State v. in Re Patrick A.

BLACKWELL, Judge. The five cases consolidated in the instant appeal present a common question: what is the appropriate remedy when the State’s Attorney files a petition requesting waiver of juvenile jurisdiction in disregard of the Juvenile Service Administration intake procedure as required by Maryland Code (1974,1984 Repl.Vol.), Courts and Judicial Proceedings Article, § 3—810(b)(3)(ii)? For the reasons set forth below, we conclude that the trial court properly dismissed the petitions. I. The facts of this case are not in dispute.

On December 11, 1985, the Baltimore County Police Department charged Peter A.P., James P.W., Joseph G.D., Edward B.K. and Patrick A. (“respondents”), all 16 years of age or older, among others, with violation of the Controlled Dangerous Substance Laws, Maryland Code (1957, 1982 Repl.Vol.), Article 27, §§ 286 and 287, occurring in Baltimore County schools prior to December 11, 1985. The Baltimore County Police Department referred the cases to the Juvenile Service Administration (“JSA”) pursuant to Maryland Code (1974, 1984 Repl.Vol.), Courts and Judicial Proceedings Article, § 3-810 et seq., 1 and to the Baltimore County State’s ⁴⁸⁵ Attorney’s Office. On January 16, 1986, the State’s Attorney filed a delinquency petition and a petition requesting waiver of juvenile jurisdiction for each respondent.

The following day the State’s Attorney’s Office notified JSA of its intention to seek waiver of the respondents. These petitions were subsequently granted and the State’s Attorney sought indictments charging each respondent as an adult with the above listed offenses. 2 A Baltimore County grand jury returned an indictment for each respondent (with the exception of Patrick A.) for the offenses alleged in the delinquency petitions. Each respondent moved to dismiss the juvenile and criminal charges contending that the State acted in clear contravention of the juvenile intake procedure prescribed in §§ 3-810 and 3-812. On May 14, 1986, the Circuit Court for Baltimore County (DeWaters, J.), sitting as a juvenile court, granted respondents’ motions to vacate jurisdiction and on June 26, 1986, granted respondents’ motions to dismiss the criminal indictments and juvenile petitions.

In doing so, the circuit court concluded that the State’s Attorney was without authority to file a petition until JSA had completed its intake proce ⁴⁸⁶ dure and referred the matter to the State’s Attorney’s Office in accordance with §§ 3-810 and 3-812. 3 The State filed a timely appeal to the Court of Special Appeals. That court, in a reported opinion, In re Patrick A., 70 Md.App. 191 , 520 A.2d 743 (1987), affirmed the dismissal of the petition against Patrick A. and in an unreported, per curium opinion, State v. Peter A.P., James P.W., Joseph G.D. and Edward B.K., (September Term, 1986, Nos. 900-908, filed March 2, 1987), affirmed the dismissal of the petition against the remaining respondents. We granted certiorari to determine whether dismissal is the proper sanction when the State violates the statutory procedure for filing a petition against a juvenile.

II

The State concedes in its argument that the State’s Attorney filed the petition against the respondents prior to JSA having completed its intake procedure. The State further admits that the premature filings directly violated § 3—810(b)(3)(ii). The State argues, however, that the State’s Attorney has “virtually unlimited discretion” in deciding whether to file a petition against a juvenile and therefore noncompliance with the statute, even when intentional, does not warrant a dismissal. Moreover, the State contends that the acts of the State’s Attorney were consonant with the legislative purpose of the Juvenile Causes Act and that the respondents suffered no prejudice from the premature filings.

Respondents, on the other hand, contend that the State’s Attorney’s discretion whether to file a petition is unlimited only when a juvenile, 16 years or older, commits an enumerated felony as set forth under Article 27, § 441(e). As to ⁴⁸⁷ other felonies committed by a juvenile, 16 years or older, the State’s Attorney must comply with the statutorily required procedure set forth in § 3-810 et seq. We agree with the respondents.

III

We look to the statute itself as the primary source of legislative intent. Tucker v. Firemen’s Fund Insur. Co., 308 Md. 69, 73 , 517 A.2d 730, 731 (1986). A corollary to this rule is that when language of a statute is clear and unambiguous, courts may not insert or omit words to make a statute express intentions not evident in its original form.

Bridges v. Nicely, 304 Md. 1, 10-11 , 497 A.2d 142, 147 (1985). In determining whether dismissal is an appropriate sanction for a violation of a statute or rule, we have repeatedly looked to the purpose of its provisions. In re Keith W., 310 Md. 99, 104 , 527 A.2d 35, 37 (1987), and cases cited therein. The General Assembly has made great strides to protect the interest of a juvenile and “[t]o remove from children committing delinquent acts the taint of criminality and the consequences of criminal behavior.” § 3-802(a)(2).

The overriding consideration in making a disposition in a juvenile proceeding is to “provide for the care, protection and wholesome mental and physical development of children” and to ensure “a program of treatment, training and rehabilitation consistent with the child’s best interests and the protection of the public’s interest.” § 3-802(a)(l). The Juvenile Causes Act makes plain that “[a]n adjudication of a child pursuant to this subtitle is not a criminal conviction for any purpose and does not impose any of the civil disabilities ordinarily imposed by a criminal conviction.” § 3-824(a)(l). See also In re Darryl D., 308 Md. 475, 480 , 520 A.2d 712, 714 (1987). The Legislature has specifically provided that the “[Juvenile Causes Act] shall be liberally construed to effectuate these purposes. § 3-802(b) See ⁴⁸⁸ also In re John P. and Thomas P., 311 Md. 700 , 537 A.2d 263 [1988], in cases cited therein.

An examination of the history of § 3-810 reveals that prior to 1982 (in accordance with Maryland Code (1974,1980 RepLVol.), Courts & Judicial Proceedings Article) the JSA intake officer was the primary decision maker as to whether a juvenile petition ought to be filed in any given case. Accordingly, complaints were filed with the intake officer rather than with the State’s Attorney’s Office. § 3-810(a). Within 15 days of filing, the intake officer was to make a preliminary inquiry to determine whether the court had jurisdiction and whether judicial action was in the best interest of the public or the child. § 3-810(b). If the intake officer denied the authorization to file a petition the State’s Attorney could not challenge this decision unless an appeal was filed by the individual or agency which originally complained to JSA. § 3-810(h).

In 1982, faced with an ever increasing number of juvenile felonies, the General Assembly revised § 3-810 “[f]or the purpose of providing that under certain conditions a complaint alleging a delinquent act shall be forwarded to the [S]tate’s [Attorney; and providing for the disposition of such complaints.” 1982 Md.Laws Ch. 469. Although this revision included several new additions which significantly enlarged the State’s Attorney’s role in determining whether a petition should be filed when a juvenile commits a felony, it is only under “certain conditions” that the State’s Attorney has unbridled discretion in the disposition of these matters. It is clear that the Legislature intended that the information provided by the intake officer is to be considered as valuable input in determining whether a juvenile petition should be filed, rather than the perfunctory service suggested by the State’s action. Under the revised statutory scheme the Juvenile Causes Act sets forth three intake procedures for the disposition of juvenile proceedings, two of which pertain when a child 16 years old or older commits a felony.

Subsection (b)(3)(i) of § 3-810 makes an explicit distinction for the disposition of a ⁴⁸⁹ juvenile proceeding when that child commits a felony considered to be a “crime of violence.” 4 Section 3—810(b)(3)(i) specifically provides: “[i]f a complaint is filed that alleges the commission of a delinquent act by a child who 16 years old or older, which would be a felony enumerated in Article 27, § 441(e) of the Code if committed by an adult, the intake officer shall immediately forward the complaint to the State’s Attorney.” However, if a child 16 years old or older commits a delinquent act which would be considered a felony other than one enumerated in Article 27, § 441(e), the intake officer may either authorize the filing of a petition or deny the authorization to file a petition. If the intake officer has denied the authorization to file a petition, § 3—810(b)(3)(ii) provides that he shall immediately: “1. Forward the complaint to the State’s Attorney; and 2. Forward a copy of the entire intake case file to the State’s Attorney with information as to any and all prior intake involvement with the child.” Under this provision, both the juvenile and the State’s Attorney have the benefit of having the intake officer’s file being forwarded along with the complaint.

In the