1. Parties--intervention--timeliness--legal commonality
The trial court did not abuse its discretion by granting an inmate's motion to intervene
under N.C.G.S. § 1A-1, Rule 24 in plaintiff inmates' class action complaint seeking declaratory
and injunctive relief from acts committed by officials at the North Carolina Department of
Correction (DOC) including unilaterally modifying judgments to conform to state statutes even if
it was in violation of an inmate's plea agreement, because: (1) the inmate made his motion prior
to any hearing on the merits of this action and prior to the entry of final judgment; (2) defendants
have not shown any unfairness or prejudice resulting from the trial court's granting of the
motion; (3) this inmate, like the other plaintiffs, is in the custody of DOC and his sentence was
subsequently modified by DOC; (4) the reason for delay in the motion to intervene was
reasonable and legitimate since the inmate would not have needed to intervene had the trial court
granted plaintiffs' motion for class certification; and (5) the inmate's claim contained sufficient
legal commonality with the claims presented by plaintiffs to permit his intervention.
2. Declaratory Judgments--standing--actual controversy
The trial court did not err by concluding that it had jurisdiction in plaintiff inmates' action
seeking declaratory and injunctive relief from acts committed by officials at the North Carolina
Department of Correction (DOC) including unilaterally modifying judgments to conform to state
statutes even if it was in violation of an inmate's plea agreement, because: (1) an actual
controversy existed between plaintiffs and defendants at the time the complaint was filed since
plaintiffs were in DOC custody serving sentences never ordered by any trial court; (2) although
plaintiffs received some relief after instituting the present action, they did not receive specific
performance of their original plea agreements; and (3) the trial court's conclusion that plaintiffs
were not entitled to specific performance of their original plea bargains does not render the
former proceedings moot.
3. Declaratory Judgments--injunctive relief--motion to dismiss
The trial court did not err by denying defendants' motion to dismiss plaintiff inmates'
complaint seeking declaratory and injunctive relief from acts committed by officials at the North
Carolina Department of Correction (DOC) including unilaterally modifying judgments to
conform to state statutes even if it was in violation of an inmate's plea agreement, because: (1)
plaintiffs' claims were not moot; and (2) an inmate's motion to intervene was timely.
4. Sentencing--legal effect--contravention of statutory law
The trial court did not err by ordering the North Carolina Department of Correction
(DOC) to give legal effect to judgments by the trial courts that contravene statutory law, because:
(1) the sentencing courts had authority over the dispute and control over the parties, thus
requiring the resulting judgments to be honored as received by DOC; (2) DOC usurped the power
of the judiciary and violated separation of powers by independently amending judgments to
reflect compliance with DOC's interpretation of statutory authority; and (3) the trial court's order
merely requires DOC to record the sentence in its official agency records as the sentence appears
on the face of the judgment instead of granting specific performance to illegal plea bargains.
5. Constitutional Law; Sentencing--due process rights--unilateral modification of
judgments
The trial court did not err by concluding that the North Carolina Department of
Correction's (DOC) policy of unilaterally modifying judgments did not violate plaintiff inmates'
due process rights, because: (1) the State did not have the authority to offer benefits to plaintiffs
in violation of state law, and plaintiffs were never entitled to such benefits; and (2) even though
plaintiffs are entitled to return to court in order to regain the position they held before the
sentencing courts' errors, plaintiffs may not seek to enforce a plea bargain that violates North
Carolina General Statutes nor do they have a protected interest in such an agreement.
6. Sentencing--unilateral modification--prospective or retrospective relief
Although plaintiff inmates contend the trial court erred by providing prospective rather
than retrospective relief to plaintiff inmates seeking declaratory and injunctive relief from acts
committed by officials at the North Carolina Department of Correction (DOC) including
unilaterally modifying judgments to conform to state statutes even if it was in violation of an
inmate's plea agreement, the trial court's order directs DOC to provide appropriate relief to all
affected inmates, present and future.
North Carolina Prisoner Legal Services, Inc., by Winifred H.
Dillon, for plaintiff, intervenor, and proposed intervenor
appellants-appellees.
Attorney General Roy Cooper, by Assistant Attorney General
Elizabeth F. Parsons, for defendant appellants-appellees.
TIMMONS-GOODSON, Judge.
On 14 June 1996, Camilia Michelle Hamilton, Timothy Wayne
Hayes, and Claude Richard Huggins (collectively "plaintiffs") filed
a class action complaint in Wake County Superior Court seeking
declaratory and injunctive relief from certain acts committed by
officials at the North Carolina Department of Correction ("DOC"). At the time the complaint was filed, plaintiffs were inmates
incarcerated at various facilities administered by DOC. The
complaint named as defendants in their official capacities Franklin
Freeman, the North Carolina Secretary of the DOC, and Hazel Keith,
DOC's Manager of Combined Records ("defendants").
The pertinent factual and procedural events of this appeal are
as follows: On 4 May 1993, Camilia Hamilton ("Hamilton") entered
into a plea bargain with the State, in which she agreed to plead
guilty to armed robbery in exchange for the State's recommendation
that she receive a fourteen-year sentence as a Committed Youthful
Offender ("CYO"). At the time, CYOs were eligible for parole
consideration immediately upon entering DOC's custody. See N.C.
Gen. Stat. § 148-49.15(a) (1983). The trial court approved the
plea bargain and sentenced Hamilton accordingly. When Hamilton
entered DOC's custody, however, DOC determined that Hamilton did
not qualify for CYO status under North Carolina General Statutes
and refused to consider her for immediate parole.
DOC also allegedly modified the sentences of Timothy Hayes
("Hayes") and Claude Huggins ("Huggins"). Both Hayes and Huggins
entered into plea agreements with the State, whereby the trial
court sentenced Hayes and Huggins to concurrent terms of
imprisonment. Hayes and Huggins were statutorily ineligible for
concurrent sentences, however, and upon entering DOC's custody, DOC
informed them that their sentences would run consecutively rather
than concurrently.
Plaintiffs filed suit against DOC, requesting class action
status for their claims in order to include all North Carolinainmates whose sentences had been modified by DOC. In their
complaint, plaintiffs alleged defendants violated plaintiffs'
constitutional rights by denying inmates the benefit of their plea
agreements as reflected in the sentencing courts' judgments.
Specifically, plaintiffs objected to DOC's policy of unilaterally
modifying judgments in order to reflect compliance with statutory
law, a practice resulting in lengthier sentences for plaintiffs.
Plaintiffs argued DOC's actions in failing to accurately honor and
record the sentences issued by the trial courts amounted to
impermissible re-sentencing of plaintiffs in violation of due
process rights and separation of powers.
Several years passed as plaintiffs and defendants attempted to
resolve their dispute through mediation. In the meanwhile, DOC
issued a directive on 12 April 2000 to its Information Resources,
Management Information, and Combined Records sections, instructing
them to identify and provide notice to those inmates sentenced to
concurrent terms for offenses which by statute require consecutive
terms. The resulting notice to the affected inmates stated in part
that, "DOC records have been made to show that [the inmate's]
sentence is to be served consecutive to (at the end of) any other
existing sentence(s) even though the plea agreement or the judgment
and commitment may show that the sentence is to run concurrent."
The notice further advised inmates that they were potentially
"entitled to go back into court and receive some relief" and urged
inmates to seek counsel for appropriate action.
On 5 May 2000, the trial court denied plaintiffs' motions to
intervene, to amend the complaint, and for class certification. Plaintiffs thereafter filed a motion for summary judgment, and
defendants filed a motion to dismiss. Jerry Lee Ward ("Ward"),
another inmate in the custody of DOC, also filed a motion to
intervene as a party plaintiff. Like Hayes and Huggins, the trial
court had sentenced Ward to concurrent terms of imprisonment, a
judgment subsequently altered by DOC to reflect consecutive
sentences. Accordingly, Ward sought permissive intervention in the
action, as well as intervention as of right.
The three motions were heard 11 July 2000 by the trial court,
which denied defendants' motion to dismiss and granted Ward's
motion to intervene. The trial court also denied plaintiffs'
claims for relief, except the request for a declaration regarding
the propriety of DOC's practices, which the trial court granted.
Accordingly, the court declared "that the Department of Correction
has no authority to record a defendant-inmate's clearly erroneous
sentence in a manner which makes the sentence conform to state
statute." The trial court therefore ordered that the
Department of Correction, when it receives a
judgment and commitment form from a superior
court which specifically orders a concurrent
sentence for a criminal offense for which
state law requires a consecutive sentence,
will record the sentence in its official
agency records as the sentence appears on the
face of judgment. Thereafter, in a reasonable
time the Department of Correction will notify
in writing the sentencing judge, the district
attorney, the inmate on whom the sentence was
imposed, and the inmate's trial counsel, if
any, that because the sentence and judgment do
not accord with state law, the judgment must
be vacated. The notice provided by the
Department of Correction will be specific to
the judgment in question and must inform those
notified that, pursuant to State v. Wall, 348
N.C. 671, 502 S.E.2d 585 (1998), the sentenceviolates state law and the affected inmate is
entitled to return to court for purposes of
withdrawing the plea entered and either
standing trial on the charge(s) or trying to
negotiate a new plea which does not violate
state law.
Defendants now appeal from the 11 July 2000 order, and plaintiffs,
intervenor, and proposed intervenors appeal from both the 11 July
2000 order and the 5 May 2000 order.
_____________________________________________
Defendants present the following issues for review: whether
the trial court erred in (1) granting Ward's motion to intervene;
(2) asserting jurisdiction; (3) denying defendants' motion to
dismiss; (4) granting declaratory relief to plaintiffs; and (5)
ordering defendants to give plaintiffs specific performance of plea
bargains. Plaintiffs, intervenor, and proposed intervenors argue
the trial court erred in (1) denying plaintiffs' motion for class
certification; (2) denying the proposed intervenors' motion to
intervene; (3) failing to find due process violations; and (4)
failing to grant appropriate relief. We address the above-stated
issues in turn.
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