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Opinions of The and the Court of Appeals To be used in
conjunction with the CPS Criminal Procedure Textbook |
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CPS Commonwealth
Police Service, Inc. and the Law Office of Patrick Michael Rogers |
Commonwealth
v. Diemer (2003)
Present: Jacobs, Cypher, & Kantrowitz, JJ.
Brownlow M. Speer, Committee for Public Counsel
Services (Robert M. Tutino, Committee for Public Counsel Services, with him)
for the defendant.
Tracey A. Cusick, Assistant District Attorney, for the Commonwealth.
The following submitted briefs for amici curiae:
Sam Silverman & John Reinstein for American Civil Liberties Union of
Massachusetts.
Valerie C. Epps for International Law Association (American Branch).
Francis J. O'Rourke for
Thomas F. Reilly, Attorney General, & Pamela L. Hunt & Emily R.
Paradise, Assistant Attorneys General, for the Attorney General.
KANTROWITZ, J.
The issue of significance[1] concerns
the appropriate remedy for a violation of Article 36 of the Vienna Convention
on Consular Relations (Article 36).[2] We hold that, in the
circumstances of this case, suppression of statements is not warranted and
accordingly affirm the defendant's conviction.[3]
Background. The defendant, Sven Olaf Diemer, a citizen of the Federal Republic
of Germany, was charged with being an accessory after the fact to murder,
G. L. c. 274, § 4, the murder having been committed by one Heath
Saffores some time in the late hours of May 22 or in the early morning hours of
May 23, 1998. Diemer filed a motion to suppress statements on the ground that
the
Factual background. Diemer speaks multiple languages, including English. He
arrived in
On the evening of
On May 29, Diemer and Saffores left for
Diemer returned to
On August 16 and 17, 1998, Diemer stated that he did not know where Magnarelli
was. The next day, Diemer changed his story and told the officers that on July
2, while in
With this information, the police returned to
The police commenced an unsuccessful search for Diemer, who had departed for
parts unknown, despite earlier police requests that he not do so. As a result
of a routine traffic stop in
Trooper John Sylva and two
On the trip to
On
Article 36 of the
Article 36 sets out the procedure to be followed when a foreign national is
arrested. In pertinent part, it states, "if [the defendant] so requests,
the competent authorities of the receiving State [here, the United States]
shall, without delay, inform the consular post of the sending State [here,
Germany] if, within its consular district, a national of that State is arrested
or committed to prison or to custody pending trial or is detained in any other
manner. . . . The said authorities shall inform the person
concerned without delay of his rights under this sub-paragraph." Article
36(1)(b).[7] If the detainee requests notification, and the consular
post is accordingly contacted, an officer from the consular post "shall be
free to communicate with [the detainee] and to have access to
[him]. . . . [Further, the officer] shall have the right to
visit . . . converse and correspond with [the detainee] and to
arrange for his legal representation." Article 36(1)(a), (c).
The treaty is silent as to the remedy if this notification is not provided and
the detainee is subsequently charged and convicted of a crime. Two issues arise
in such a scenario. First, does the treaty confer an individual right that a
detainee may pursue? If so, what is the remedy for a violation of that right?
There is no
rights[8]; (2) Article 36 does not create such rights[9];
and (3) the issue need not be decided, because even if such rights are
created, suppression of evidence is not a remedy for its violation.[10]
The Supreme Court has withheld judgment thus far on the issue, although it was
tangentially raised in Breard v. Greene, 523 U.S. 371 (1998), a capital case in
which the Court refused to issue a stay of execution. The Court observed that
the Vienna Convention "arguably confers on an individual the right to
consular assistance following arrest."
We shall briefly review the rationale for each of the positions.
Those asserting that the treaty confers individual rights (including amicus curiae
International Law Association) reason that an aggrieved person has standing in
court to raise the violation of his treaty rights and to request a remedy. In
addition to noting the observation of the Supreme Court in Breard v. Greene,
supra, they rely on the plain language of the last sentence of Article 36(b):
"The said authorities shall inform the person concerned without delay of
his rights under this sub-paragraph" (emphasis supplied). "Were we
dealing with such text in a statute originally enacted by Congress rather than
this species of 'Law of the Land,' is there any doubt as to how this provision
would be interpreted?"
The counter argument is the general rule that "international treaties do
not create rights that are privately enforceable in the federal courts."
"A treaty is primarily a compact between
independent nations. It depends for the enforcement of its provisions on the
interest and honor of the governments which are parties to it. If these fail,
its infraction becomes the subject of international negotiations and
reclamation, so far as the injured parties choose to seek redress, which may in
the end be enforced by actual war. It is obvious that with all this the
judicial courts have nothing to do and can give no redress."
Ibid., quoting from Edye v. Robertson (Head
Money Cases), 112
"It is common ground that the treat[y] in question [is an] agreement[]
among sovereign States. Nothing in [its] text explicitly provides for judicial
enforcement of [its] consular access provisions at the behest of private
litigants. Of course, there are references in the treat[y] to a 'right' of
access, but these references are easily explainable. The contracting States are
granting each other rights, and telling future detainees that they have a
'right' to communicate with their consul is a means of implementing the treaty
obligations as between States. Any other way of phrasing the promise as to what
will be said to detainees would be both artificial and awkward" (emphasis
original).
Proponents of this view also cite the preamble to the treaty as "expressly
disclaim[ing] the creation of any individual rights: '[T]he purpose of such
privileges and immunities is not to benefit individuals but to ensure the
efficient performance of functions by consular posts on behalf of their
respective States.' Vienna Convention, 21 U.S.T. at 79, 596 U.N.T.S. at 262
(emphasis added)."
Finally, "[t]he other very powerful reason for reaching this conclusion is
that the State Department in substance supports it. As we have held in other
cases, the State Department's view is entitled to substantial weight in treaty
interpretation."
The third, and most popular, approach to this issue is the one declining to
provide a definitive answer to the question and leapfrogging to the second
consideration of the remedy, or lack thereof, for a violation. "[F]ederal
courts whenever possible have sidestepped the question of whether the treaty
creates individual rights -- typically by concluding that remedies such as
suppression of evidence or dismissal of an indictment are not available even if
the treaty creates individual rights."
Suppression is not warranted for a variety of reasons. First, no express
language in the treaty contemplates suppression. "Absent [such] an express
provision in the treaty, the exclusionary rule is an inappropriate
sanction."
"We also note that to impose judicially such a drastic remedy, not imposed
by any other signatory to this convention, would promote disharmony in the
interpretation of an international agreement. See Restatement of Foreign
Relations Law, § 325 [comment] d (1987) ('Treaties that lay down
rules to be enforced by the parties through their internal courts or
administrative agencies should be construed so as to achieve uniformity of
result despite differences between international legal systems')." Ibid.
See
Similarly, it is unnecessary for this court to decide whether Article 36
confers individual rights, as it is not essential for resolving the underlying
dispute. Even if the treaty does confer such rights, and we are neither stating
nor intimating that it does, the suppression of evidence, as indicated above,
is not an appropriate remedy for a violation.
Lastly, "even if suppression were an appropriate remedy for a violation of
the Vienna Convention, it would not be appropriate in this case because [the
defendant] has not demonstrated he was prejudiced by a violation of the
treaty. . . . [The defendant] understood his constitutional
rights, and was generally familiar with this country's criminal processes.
Moreover, in this case, the [lower] court made a factual finding that [the
defendant's] assertion that he would have contacted the consulate had he been
aware of his Vienna Convention rights lacked credibility. We defer to a [trial]
court's credibility determinations when reviewing a . . . court's findings of
fact under a clearly erroneous standard, and nothing in the remainder of the
record leaves us with a conviction that a mistake has been made."
Likewise, in the case at bar, Diemer did not demonstrate prejudice. He was
intelligent, literate, and spoke English fluently. He was read his Miranda
rights on three separate occasions. The motion judge found that, even if he had
been notified of his rights under Article 36, Diemer was "almost
irrepressibly eager to discuss with authorities his knowledge of the
circumstances surrounding Ms. Magnarelli's death."[12] As in United
States v. Minjares-Alvarez, supra, "[w]e defer to a [trial] court's
credibility determination when reviewing a [trial] court's findings of fact
under a clearly erroneous standard," and are satisfied that nothing in the
record indicates a mistake has been made.[13]
Remaining issues. The remaining issues can be dealt with in summary fashion.
Redirect testimony. During trial,
The admission of
The trial judge acted within his discretion in admitting the testimony. In so
ruling, the judge also was within his discretion in implicitly finding that
Prior bad act. The Commonwealth introduced evidence that, in March, 1998,
Diemer was present and ripped a telephone from the wall of the home Saffores
and Magnarelli shared following an altercation between Saffores and Magnarelli.
The law governing prior bad acts is well known and need not be discussed at
length. Briefly, a prior bad act is admissible, not to show bad character or
propensity to commit a crime, but for a limited purpose, e.g., to demonstrate a
common scheme, pattern of operation, absence of mistake or accident, identity,
intent or motive. Commonwealth v. Helfant, 398
The evidence tended to demonstrate the relationship between Diemer and
Saffores, and was probative of Diemer's intent and motive. "The admissibility
of prior bad act evidence lies in large measure in the trial judge's
discretion, and we accept it absent palpable error." Commonwealth v.
Jury instruction. The failure of the trial judge to give a requested jury
instruction[15] was not reversible error.[16] A judge need not
use particular words for instructions and need not give an instruction on every
subsidiary fact and possible inference.
Judgment affirmed.
FOOTNOTES:
[1] The other issues
raised are that the trial judge
(1) improperly admitted in evidence (a) a prior consistent
statement of a Commonwealth witness; and (b) a prior bad act by Diemer;
and (2) refused to give a requested jury instruction.
[2] See
[3] We gratefully acknowledge the filing of amicus
curiae briefs by the Federal Republic of Germany; the American Civil Liberties
Union of Massachusetts; the International Law Association (American Branch);
and the Attorney General (whose brief was filed after oral argument).
[4]
[5] Diemer allegedly made comments about cleaning the
house with Saffores; being troubled about a blood stain that was ingrained in
the wood as "[t]hey'll be able to spot it" and "[w]e couldn't
get it off"; the need to get out of the country; and being worried that
police dogs would find the body.
[6] In addition to Trooper Sylva's recitation, Diemer
was also advised of his Miranda rights twice by Sergeant Osborne of the Nassau
County, Florida, sheriff's office. Diemer indicated that he understood his
rights, an assertion the motion judge credited.
[7] There is a mandatory notification procedure for
some countries, in which case the consulate is automatically informed of an
arrest, regardless of a request for notification by the detainee.
[8] See
[9] See
[10] See
Additionally, some courts have taken the position that even if the treaty
confers individual rights, and even if suppression could be an appropriate
remedy, no relief would be afforded where the defendant failed to demonstrate
prejudice from the violation of his alleged treaty rights. See United States v.
Cordoba-Mosquera, 212 F.3d 1194, 1196 (11th Cir. 2000), cert. denied sub nom.
Zuniga v. United States, 531 U.S. 1131 (2001); United States v. Chanthadara,
230 F.3d 1237, 1255-1256 (10th Cir. 2000), cert. denied, 534 U.S. 992 (2001);
United States v. Ortiz, 315 F.3d 873, 886-887 (8th Cir. 2002); Bell v.
Commonwealth, 264 Va. 172, 188-189 (2002), cert. denied, 123 S. Ct. 860 (2003).
[11] In harmony with the other circuits, the court also
held that "we need not decide whether the Vienna Convention creates
individually enforceable rights."
[12] The routine practice, as the motion judge
found, of the German consulate, upon learning that a German national was under
arrest and wished to speak with them, was to advise the person of his rights in
German and to assist the person in obtaining an attorney. Further, Diemer would
have been advised not to speak with the police until first speaking with an
attorney. There was no evidence, however, that Diemer would have availed
himself of his right to speak with the consulate. Further, as the judge found,
given Diemer's loquaciousness, it was doubtful he would have done anything differently,
even if he had been contacted by the German consulate.
[13] Notwithstanding our decision, we are
disheartened to learn that, on this occasion at least,
[14] The tenor of the transcript indicates that
rather than being intimidated by police,
[15] Diemer requested instructions that "in the
Commonwealth of Massachusetts it is not a crime for a person having knowledge
of a crime, of whatever nature, having been committed to fail to report said
knowledge to the police" and that "under the laws of the
Commonwealth, ordinary persons have no duty to report any particulars of a
crime of which they are aware has been committed."
[16] The judge instructed the jury, in part, that
"[t]he third element which must be proved beyond a reasonable doubt is
that the defendant, Sven Diemer, thereafter intentionally harbored, concealed,
maintained or assisted . . . Heath Saffores with the intent that
Heath Saffores should avoid or escape detention, arrest, trial or punishment
for the crime of the murder of Kim Magnarelli."