Danny Battaglia, Quentin Coleman, James Gilmore, Anderson Hill, Scott Lingle, and Terrance Simon v. James M. LeBlanc, Secretary, Louisiana Department of Public Safety and Corrections

STATE OF LOUISIANA

COURT OF APPEAL

FIRST CIRCUIT

2021 CA 0011

DANNY BATTAGLIA, QUENTIN COLEMAN, JAMES GILMORE,
ANDERSON HILL, SCOTT LINGLE, AND TERRANCE SIMON

VERSUS

0 JAMES M. LEBLANC, SECRETARY, LOUISIANA DEPARTMENT
OF PUBLIC SAFETY AND CORRECTIONS

Decision Rendered:
JUN 17 2021

ON APPEAL FROM THE
19th JUDICIAL DISTRICT COURT
EAST BATON ROUGE PARISH, LOUISIANA
DOCKET NUMBER C698, 570

HONORABLE WILLIAM A. MORVANT, JUDGE

Carol A. Kolinchak Attorneys for Plaintiffs/ Appellants
Kristen Rome Danny Battaglia, Quentin Coleman,
Hannah Vandecar James Gilmore, Anderson Hill, and
Stephen J. Haedicke Scott Lingle
New Orleans, Louisiana
and

Jane Hogan
Hammond, Louisiana

Jonathan R. Vining Attorneys for Defendant/ Appellee
Heather C. Hood James M. LeBlanc, Secretary,
Baton Rouge, Louisiana Louisiana Department of Public
Safety and Corrections

BEFORE: McDONALD, HOLDRIDGE, and PENZATO, 77.

C4" ItAA?N,

McDONALD, J.

Five inmates, serving life sentences for murders they committed as juveniles,

allege a recently amended statute entitles them to parole eligibility. They filed a

petition seeking a writ of mandamus directing the Secretary of the Department of Public

Safety and Corrections ( DPSC) to set their parole eligibility dates. After the district

court denied their petition, the inmates appealed. Upon review, we affirm the

judgment.

FACTUAL AND PROCEDURAL BACKGROUND

In the 2020 Regular Legislative Session, the Louisiana legislature passed 2020

La. Acts. No. 99 ( Act 99), effective August 1, 2020, dealing with parole eligibility for

certain incarcerated persons who: ( 1) were serving prison term( s) resulting in

incarceration of 25 years or more, ( 2) were under 18 years old when they committed

the offense, and ( 3) had met certain other conditions. Act 99 enacted La. R. S.

15: 574. 41 ( Subsection J), which pertinently provides:

1) Notwithstanding any provision of law to the contrary, any person
serving a term or terms of imprisonment that result in a period of
incarceration of twenty-five years or more and who was under the
age of eighteen years at the time of the commission of the offense shall
be eligible for parole consideration pursuant to the provisions of this
Subsection if [ certain other] conditions have been met[.] ( Emphasis
added.) ( Subsection 1( 1)( a) -( g) omitted.)

On August 12, 2020, Danny Battaglia, Quentin Coleman, James Gilmore,

Anderson Hill, and Scott Lingle ( Plaintiffs)' filed a petition for writ of mandamus

directing DPSC to update its records to show Plaintiffs were parole eligible and to set

their parole eligibility dates, pursuant to newly enacted Subsection J. Plaintiffs alleged

they met all requirements of Subsection J and were entitled to have their parole

eligibility dates set under its provisions. For purposes of this appeal, we accept

Plaintiffs' representations that they have met Subsection J' s requirements.

In their appellate brief, Plaintiffs state that plaintiff Terrance Simon chose not to appeal.

6

In response, z DPSC argued Plaintiffs were not entitled to parole eligibility under

newly enacted Subsection J. Rather, DPSC argued that previously enacted La. R. S.

15: 574. 4G ( Subsection G) governed Plaintiffs' parole eligibility and the enactment of

new Subsection J did not change that. Subsection G addresses parole eligibility for

incarcerated persons who: ( 1) are serving life sentences for murder convictions, ( 2)

were under 18 years old when they committed the offense, ( 3) have received a judicial

determination of parole eligibility under La. C. Cr. P. art. 878. 16, and ( 4) had met certain

other conditions. Subsection G pertinently provides:

1) Notwithstanding any provision of law to the contrary, any person
serving a sentence of life imprisonment for a conviction of first
degree murder ( R. S. 14: 30) or second degree murder ( R. S.
14: 30. 1) who was under the age of eighteen years at the time of
the commission of the offense and whose indictment for the offense
was prior to August 1, 2017, shall be eligible for parole consideration
pursuant to the provisions of this Subsection if a judicial determination
has been made that the person is entitled to parole eligibility pursuant to
Code of Criminal Procedure Article 878. 1( 6) and [ certain other] conditions
have been met[.] ( Emphasis added.) ( Subsection G( 1)( a)-( g) omitted.)

In this case, after a hearing on Plaintiffs' petition for writ of mandamus, the

district court signed a judgment on October 13, 2020, denying the petition, based on

the court's conclusion that Subsection G was the more specific provision of La. R. S

15: 574. 4 applicable to Plaintiffs' parole eligibility and therefore prevailed over

Subsection 1. The district court designated the judgment as final under La. C. C. P. art.

191513( 1).

Plaintiffs appealed from the adverse judgment. After the appeal was lodged, the

legislature passed 2020 La. Acts, 2nd Ex. Sess., No. 4 ( Act 4), effective October 20,

2020, amending and reenacting Subsection J to clarify that its parole eligibility

provisions do not apply to persons such as Plaintiffs, who were serving life sentences

for first or second degree murder. As amended by Act 4, Subsection J now reads:

1) Notwithstanding any provision of law to the contrary, and
except as provided in Subsections D, E, F, G, and H of this
Section, any person serving a term or terms of imprisonment that result
in a period of incarceration of twenty-five years or more and who was

2 DPSC captioned its response to the petition for writ of mandamus as a " memorandum." Under La.
C. C. P. art. 3783, a petition for a writ requires a written answer. A litigant's characterization of a pleading
is not controlling. See La. C. C. P. art. 865; Greene v. Succ. of Alvarado, 15- 1960 ( La. App. 1 Cir.
12/ 27/ 16), 210 So. 3d 321, 339.
3

under the age of eighteen years at the time of the commission of the
offense shall be eligible for parole consideration pursuant to the provisions
of this Subsection if all of the following conditions have been met:

4)
The provisions of this Subsection shall not apply to a
person serving a sentence of life imprisonment for a conviction of
R. S. 14: 30 [ first degree murder], 30. 1 [ second degree murder],
42 [ first degree rape], or 44 [ aggravated kidnapping].
Emphasis added.)

On appeal, Plaintiffs claim that, under well- settled rules of statutory construction,

the district court erred in applying Subsection G, rather than Subsection J, to determine

their parole eligibility. They also contend that retroactive application of Act 4 would

violate constitutional provisions dealing with ex post facto laws, due process, and

separation of powers.

DISCUSSION

Courts interpret criminal statutes by using a genuine construction, according to

the fair import of their words, taken in their usual sense, in connection with the context,

and with reference to their purpose. La. R. S. 14: 3; State v. Palermo, 00- 2488 ( La.

5/ 31/ 02), 818 So. 2d 745, 749. The interpretation of a statute begins with the language

of the statute itself. State v. Skipper, 04- 2137 ( La. 6/ 29/ 05), 906 So. 2d 399, 402- 03.

When a statute is clear and unambiguous, and its application leads to no absurd

consequences, courts shall apply the statute as written. See La. C. C. art. 9; Skipper,

906 So. 2d at 403. We must also presume that every word, sentence, or provision in a

statute is intended to serve some useful purpose, is to be given effect, and that the

legislature used no unnecessary words or provisions. See Boudreaux v. La. DP5C, 12-

0239 ( La. 10/ 16/ 12), 101 So. 3d 22, 26. Consequently, courts are bound, if possible,

to give effect to all parts of a statute and to construe no sentence, clause, or word as

meaningless and surplusage, if a construction giving force to and preserving all words

can legitimately be found. Id. Further, when two statutes deal with the same subject

matter, and if there is a conflict between them, then the statute specifically directed to

the matter at issue prevails over the more general statute. See Burge v. State, 10- 2229

La. 2/ 11/ 11), 54 So. 3d 1110, 1113 ( per curiam). Appellate courts use a de novo

standard when reviewing the interpretation and application of statutes. See State v.

McKinnies, 13- 1412 ( La. 10/ 15/ 14), 171 So. 3d 861, 867.

Plaintiffs contend Subsection J is clear and unambiguous, that we must apply it

as written, and that our inquiry into its meaning ends there. However, if we construe

Subsection J in this manner, such would disregard our duty to give effect to all parts of

a statute, as well as our duty to apply a more specific statute over a more general

statute. See Boudreaux, 101 So. 3d at 26; Burge, 54 So. 3d at 1113. Such an

interpretation would render the more specific provisions of Subsection G meaningless

and without useful purpose. That is, read in isolation, Subsection J would entitle

Plaintiffs to parole eligibility, because they have all "[ served] a term ... of imprisonment

that result[ s] in a period of incarceration of twenty-five years or more and [ were] under

the age of eighteen years at the time of the commission of the offense." But,

Subsection G specifically applies to persons " serving a sentence of life imprisonment for

a conviction of ... murder ... who [ were] under the age of eighteen years at the time of

the commission of the offense ...." Thus, despite Subsection )' s applicability to those

who have served a prison term of 25 years or more for any offense they committed as

juveniles, Subsection G specifically applies to Plaintiffs, because they are serving life

sentences for committing the specific offense of murder as juveniles. Giving effect to

and preserving both Sections G and 1, we agree with the district court that Subsection

G prevails over Subsection J here. 3

Plaintiffs next argue that applying the above rule of specificity in interpreting

Subsections G and J improperly ignores other rules of statutory interpretation, including

the rule of lenity and La. R. S. 24: 176A. The rule of lenity dictates that courts narrowly

construe criminal statutes. See State v. Turner, 18- 0780 ( La. 5/ 8/ 19), 283 So. 3d 997,

999. And, Louisiana Revised Statutes 24: 176A, which codifies the principle of implied

repeal, provides, " Unless otherwise specifically provided therein, all laws or parts of

laws in conflict with a provision of a law subsequently enacted by the legislature are

3 Because Subsections G and J both state that their provisions apply "[ n] otwithstanding any provision of
law to the contrary[,]" these identical " notwithstanding clauses" offer no aid in interpreting which
subsection applies.

5

repealed by the law subsequently enacted." We first note that the rule of lenity does

not automatically apply merely because a possibly narrow construction of a statute may

exist. Turner, 283 So. 3d at 999. We further note that repeals by implication are not

favored and will only be permitted where two statutes are irreconcilably inconsistent

and repugnant.
Silver Dollar Liquor, Inc, v. Red River Parish Police Jury, 10- 2776 ( La.

9/ 7/ 11), 74 So. 3d 641, 649. Rather, when two statutes deal with the same subject

matter, courts have a duty to harmonize and reconcile them, if possible. See La. C. C.

art. 13; Silver Dollar Liquor, Inc., 74 So. 3d at 649. Subsections G and J are not

irreconcilably inconsistent and repugnant. Instead, they are statutes on the same

subject matter that can be reconciled to apply to different groups of incarcerated

persons who committed crimes as juveniles - those who committed murder as juveniles,

and those who committed other offenses as juveniles and have served prison terms

resulting in incarceration of 25 years or more. See Church Mut. Ins Co. v. Dardar, 13-

2351 ( La. 5/ 7/ 14), 145 So. 3d 271, 284.

Thus, based on our de novo interpretation of Subsections G and J, we conclude

the district court correctly rendered judgment denying Plaintiffs' petition for writ of

mandamus. Because we determine that Subsection J did not apply to Plaintiffs even

before it was amended and reenacted by Act 4, we pretermit discussion of Act 4's effect

on Subsection J and of Plaintiffs' arguments regarding Act 4's constitutionality. See

State v. Mercadel, 03- 3015 ( La. 5/ 25/ 04), 874 So. 2d 829, 834 ( noting that a court

should avoid constitutional questions when disposition of a case can be achieved on

non -constitutional grounds).

CONCLUSION

We affirm the district court's October 13, 2020 judgment denying the petition for

writ of mandamus. We assess costs to Danny Battaglia, Quentin Coleman, James

Gilmore, Anderson Hill, and Scott Lingle.

AFFIRMED.

A

DANNY BATTAGLIA, QUENTIN STATE OF LOUISIANA
COLEMAN, JAMES GILMORE,
ANDERSON HILL, SCOTT LINGLE,
AND TERRANCE SIMON
COURT OF APPEAL
VERSUS
FIRST CIRCUIT

JAMES M. LEBLANC, SECRETARY NO. 2021 CA 0011
LOUISIANA DEPARTMENT OF
PUBLIC SAFETY AND
CORRECTIONS

HOLDRIDGE, J., dissents and assigns reasons.

I respectfully dissent. The legislature passed 2020 La. Acts, 2"d Ex. Sess., No.

4 ( Act No. 4) after the appeal in this case was lodged. Act No. 4 amended La. R. S.

15: 574. 4 ( Subsection J). If Subsection J is interpreted as the majority holds, the

amendment of Subsection J would apparently have no effect and would be

unnecessary. The long- standing rule of interpreting legislation is that a statute is

intended to serve some useful purpose, is to be given effect, and that the legislature

passes no unnecessary provision. See Boudreaux v. Louisiana Dept. of Public Safety

and Corrections, 2012- 0239 (La. 10/ 16/ 12), 101 So. 3d 22. Therefore, I would vacate

the district court' s judgment and remand the matter for the district court to consider

the proper application of Act No. 4, which amended Subsection J of La. R.S.

15: 574.4.