Incapacitating the Habitual Criminal: the English Experience
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Michigan Law Review Volume 78 Issue 8 1980 Incapacitating the Habitual Criminal: The English Experience Sir Leon Radzinowicz Cambridge University Roger Hood Oxford University Follow this and additional works at: https://repository.law.umich.edu/mlr Part of the Comparative and Foreign Law Commons, Criminal Law Commons, Legal History Commons, and the Legislation Commons Recommended Citation Sir Leon Radzinowicz & Roger Hood, Incapacitating the Habitual Criminal: The English Experience, 78 MICH. L. REV. 1305 (1980). Available at: https://repository.law.umich.edu/mlr/vol78/iss8/4 This Article is brought to you for free and open access by the Michigan Law Review at University of Michigan Law School Scholarship Repository. It has been accepted for inclusion in Michigan Law Review by an authorized editor of University of Michigan Law School Scholarship Repository. For more information, please contact [email protected]. INCAPACITATING THE HABITUAL CRIMINAL: THE ENGLISH EXPERIENCE* Sir Leon Radzinowicz**and Roger Hood*** EDITORS' PREFACE In this Article, Sir Leon Radzinowicz and .Dr. Roger Hood trace 150years of unsucces.iful English '!/forts to identify, sentence, and reform habitual crimi nal off"enders. The Supreme Court's recent decision in Rummel v. Estellea has publicized habitual off"ender statutes in the United States. But Rummel primarily addressed the constitutionality, rather than the desirability, ofa state habitual offender statute. b This Article examines the broader policy questions common to habitual offender programs in both the United $tales and Great Britain. It describes the tension between liberal tradition and the state's desire to incapacitate those who repeatedly threaten l!fe or property. The British experience with habitual offender legislation, like that in the United States, encompasses numerous statutory formulations, commission re ports,· and statistical surveys. And the British experience, like that in the United States, has been one of high hopes and repeated disappointment. While there are major d!fferences between British and Americanc approaches * This paper grew out of the authors' research into the history of English criminal law and its administration in the nineteenth century, which is being generously supported by a grant from the Home Office. We are indebted to Dr. Philip Jenkins for his assistance. ** L.L.D., F.B.A., Fellow of Trinity College, Cambridge University, -'Ed. *** Reader in Criminology, All Souls College, Oxford; Ph.D. 1963, Cambridge Univer sity. -Ed. a. 100 S. Ct. 1133 (1980). b. In Rummel, the Supreme Court held that a mandatory life sentence imposed under the Texas recidivist statute, TEX. PENAL CODE ANN.§ 12.42(d) (Vernon 1974), following the de fendant's third felony conviction did not constitute cruel and unusual punishment prohibited by the eighth amendment. Rummel's third felony consisted of obtaining $120.75 by false pre tenses. His previous convictions involved fraudulent use of a credit card, and passing a forged check. Rummel v. Estelle, 100 S. Ct. at 1134-35. Rummel claimed that a life sentence was so disproportionate to the crimes he had committed as to constitute cruel and unusual punish ment. Justice Rehnquist, writing for the Court, affirmed the sentence, noting that Texas had an interest not merely in making Rummel's third felony illegal, but also in "dealing in a har sher manner with those who by repeated criminal acts have shown that they are simply incapa ble of conforming to the norms of society as established by its criminal law." 100 S. Ct. at 1140. The Court also held that a proper assessment of Texas's treatment of Rummel could take into account his possible parole within twelve years. 100 S. Ct. at 1142. Four dissenting Justices wrote that the sentence was disproportionate to the crime, and that the possibility of parole should not be considered in assessing the nature of the punishment. 100 S. Ct. at 1145- 46 (Powell, J., dissenting). , c. For a compilation of American habitual offender statutes, see Note, The Constitutional I'!finnities ofIndiana's Habitual Offender Statute, 13 IND. L. REv. 597, 597 n.1 (1980). Ameri can state statutes typically call for enhanced sentencing upon conviction for a third or fourth felony. Federal law requires that the "mandatory minimum penalty prescribed by law" be 1305 1306 Michigan Law Review (Vol. 78:1305 to habitual ojfenders (particularly in the degree ofsentencing andprosecutorial discretiond), the two systems share many d!fficulties. And in Britain, as in the United States, the failure to reduce recidivism has become a symbol of the larger failure of the penal system. The most vexing problem of habitual offender legislation coefronls every draftsman and special commission right at the outset: How is the habitual ojfender to be defined? Is he only the violent criminal who poses an immediate threat to public sefety, or is he also the bumbling petty thief? The authors outline a series of unsuccessful British definitions of the term; definitions that bear the clear mark ofcriminologists and legislators preoccupied with the no tion ofa "criminal class." Once the target ofthe legislation is dejined,furt/1er problems remain. What measure ofproof is required lo show habituality, and who decides when that burden is met? Once ident!fted and convicted, how should the habitual criminal be sentenced?: Proposals vary both in the length ofsentence and in the conditions ofimprisonment. Somefavor indeterminate sentencing, while others require a steady cumulation ofsentences. Some sug gest harsh co,ifinementfor the habitual criminal· others a more gentle environ ment geared to reforming the criminal and returning him to society. These disagreements reveal an underlying debate about how the stale just!ftes sen tencing habitual criminals to extendedprison terms: Is the goal lo protect the community, to rehabilitate the criminal or merely to punish him? These are perennial questions, questions that trouble twentieth century American courts and legislators as much as they troubled the English in the nineteenth century. The comparative and topical sign!ftcance of Sir Leon's and .Dr. Hood's Article needs no further emphasis. served by dangerous special offenders. 18 U.S.C. §§ 3575-77 (1976). q. Model Penal Code § 7 .03 (Proposed Official Draft, 1962) (granting court discretion to increase sentence for persis tent offenders and professional criminals); Model Sentencing Act§ 5 (granting court discretion to increase sentence for persistent offenders). But American habitual offender statutes have been no more successful than their counterparts in Great Britain. See L. SLEFFEL, THE LA w AND THE DANGEROUS CRIMINAL 155-60 (1977). Sleffel's book contains a long list of objec tions to the U.S. state and federal habitual offender statutes. A number of recent books and articles discuss habitual offender statutes and their implications. See, e.g., J. PETERSILIA, P. GREENWOOD & M. LAVIN, CRIMINAL CAREERS OF HABITUAL FELONS (1978); Y. RENNIE, THE SEARCH FOR CRIMINAL MAN (1978); S. VAN DINE, J. CONRAD, & S. DINITZ, RE STRAINING THE WICKED (1979); Cook, Punishment and Crime: A Critique of Current Findings Concerning The Preventive Effects of Punishment, 41 LAW & CONTEMP. PROB. 164 (Winter 1977); Dershowitz, Preventive Co'!finement: A Suggested Framework for Constitutional Analy sis, 5 I· TEXAS L. REV. 1277 (1973); Katkin, Habitual Offender Laws: A Reconsideration, 21 BUFFALO L. REV. 99 (1972); von Hirsch, Prediction of Criminal Conduct and Preventive Confine ment of Convicted Persons, 21 BUFFALO L. REV. 717 (1972); Note, A Closer Look at Habitual Criminal Statutes-. Brown v. Parratt andMartin v. Parratt, A Case Study of the Nebraska Law, 16 AM. CRIM. L. REV. 275 (1979). d. For discussion of the divergent English and American approaches to the sentencing of habitual offenders, compare R. CROSS, THE ENGLISH SENTENCING SYSTEM 42-51 (2d ed. 1975) (describing the British sentencing of habituals) with L. SLEFFEL, THE LAW AND THE DANGER• ous CRIMINAL 4-18 (1975) (describing the harsher American sentencing provisions). In the area of prosecutorial discretion, there are marked differences between the British and American approaches. In the United States, prosecutors commonly threaten defendants with indictment under applicable habitual offender statutes in an effort to force the defendant to plead guilty to a lesser charge. See Davidson & Krause, Plea Bargaining: Limits on Prosecutorial .Discretion, 1979 ANN. SURVEY AM. L. 27, 36-49. The English prosecutor is far more circumscribed in his ability to plea-bargain. See Davis, Sentencesfor Sale: A New Look at Bargaining in England and America, 1911 CRIM. L. REV. 161, 218, 221-28. August 1980) Habjtual Criminals 1307 INCAPACITATING THE HABITUAL CRIMINAL: THE ENGLISH EXPERIENCE TABLE OF CONTENTS I. THE ELUSIVE CONCEPT OF CRIMINAL CLASSES ...••..•.• 1308 II. FIVE APPROACHES .••...•••.••.••.••.•••..••....•••••••. 1317 A. Indefinite Confinement and Preventive Policing ...... 1317 B. The Cumulative System ............................. 1322 C. Requiring Proper Proof ofHabituality ............... 1326 D. The Dual-Track Scheme ............................ 1327 E. Readjusting Controls to Categories ofHabitual Criminal . ........................................... 1328 III. FIRST LEGISLATIVE ENDEAVORS •.•••.••..••••....•••••• 1333 A. Attempts to Enforce the Cumulative Scheme ......... 1333 B. Preventive Policing . ................................. 1336 C. The Impact ofthe Habitual Criminals Legislation