Bost v. State
Full Opinion (html_with_citations)
The question presented in this case is whether the Circuit Court for Prince Georgeâs County erred in denying the motion to suppress evidence seized by District of Columbia police officers after they entered Prince Georgeâs County, Maryland. Appellant challenges the validity of the officersâ actions as violating the Maryland Uniform Act on Fresh Pursuit. Maryland Uniform Act on Fresh Pursuit, Md.Code (2001, 2006 Cum.Supp.), § 2-304 to-309 of the Criminal Procedure Article (âthe Actâ).
I.
Appellant, Robert Bost, was indicted by the Grand Jury for Prince Georgeâs County on charges of possession with intent to distribute cocaine, possession of cocaine, wearing a dangerous weapon concealed on or about the person, and use of a machine gun for an aggressive purpose, which the State later amended to carrying a handgun on or about his person. Bost filed a motion to suppress the evidence seized by the police incident to his arrest, arguing that the out-of-state District of Columbia Metropolitan police, in arresting appellant in Maryland, acted in violation of the Maryland Uniform Act on Fresh Pursuit.
Bost ran into a wooded area, falling several times, each time clutching at his right side. The officers followed in pursuit, eventually crossing into Prince Georgeâs County, Maryland. Once in Maryland, the officers caught up to Bost and physically restrained him on the ground. As one officer attempted to grab Bostâs elbows to turn him onto his side, the officer felt a metal object and indicated to the other officers âgun, gun.â The officer unzipped Bostâs jacket and discovered a black nine millimeter semiautomatic pistol with 21 rounds of ammunition. The gun was tied around Bostâs neck to his body. Bost was arrested, and a further search incident to arrest revealed two large, white, rock-like substances and $140 from the pocket of Bostâs pants. The Metropolitan Police immediately contacted Prince Georgeâs County officials, who responded and took custody of Bost.
âThis is one of those difficult cases where you have to balance a personâs right to run I suppose versus the police department and law enforcement in generalâs right to inquire based on the circumstances of this case.
âThe facts are fairly clear, the defendant is in a drug trafficking area known to the police department in the District of Columbia. A group of people that number between 12 and 15 I believe. When the police arrive the defendant took flight clutching at his waistband. Certainly the police department and the police officers involved in this instance based on their training, experience, had cause to believe that crime was afoot here.
âIn chasing the defendant, after ordering him to stop several times, he continued to clutch at his side as if he had a weapon or something else illegal. Of course, they couldnât tell at the time. The question is do they have a right to inquire? I think they do.
âI will deny the motion to suppress for those reasons. I think they had a right to inquire. I appreciate the argument of counsel, it is certainly to his credit. I will deny the motion to suppress.â
Following the courtâs ruling, the case proceeded to trial before the court on a not guilty plea, agreed statement of facts, to the possession with intent to distribute cocaine and carrying a handgun on or about his person.
Bost noted a timely appeal to the Court of Special Appeals. This Court, on its own initiative, issued a writ of certiorari before the intermediate court decided the appeal to consider the ruling of the Circuit Court on appellantâs motion to suppress. Bost v. State, 402 Md. 352, 936 A.2d 850 (2007).
Appellant presents a single argument to this Court. He argues that the Circuit Court erred in denying appellantâs motion to suppress, because the Metropolitan police officers violated the Uniform Act on Fresh Pursuit. In particular, appellant maintains that the Metropolitan officers lacked the authority to cross the state line into Maryland under § 2-305 of the Act, which grants the authority for an out-of-state officer âwho enters this State in fresh pursuit and continues within this State in fresh pursuit of a person to arrest the person on the ground that the person is believed to have committed a felony in the other state.â Appellant contends that the Metropolitan Police Officers did not have reasonable grounds to believe that Bost had committed a felony in the District of Columbia at the time the officers crossed into Maryland. He maintains that the fact that appellant was observed clutching his waistband did not give rise to a reasonable belief that a felony had been committed.
The State presents three arguments to support the search and seizure. First, the State contends that the Metropolitan police officers were authorized under the Act to enter into Maryland in fresh pursuit because they in fact had reasonable suspicion to believe that appellant had committed a felony. The State argues that the Act requires only reasonable suspicion at the time officers cross the border into Maryland, and not probable cause. Under this analysis, the State argues that the totality of the circumstances involved â including factors such as the high crime area in which Bost was located, Bostâs unprovoked flight from police, and the police officerâs experience and training in recognizing behavior such as Bostâs clutching at his waistband as consistent with possession of a concealed weapon â meets the standard of reasonable suspicion. Second, the State argues that the arrest was lawful because one of the District of Columbia police officers had been deputized by the United States Marshal Service and therefore, while on duty, he is authorized to go anywhere to investigate cases and to arrest outside of the District of Columbia. Finally, the State argues that even if the statute
III.
In reviewing the ruling on a motion to suppress evidence, we consider only the evidence contained in the record of the suppression hearing. Rush v. State, 403 Md. 68, 82-83, 939 A.2d 689, 697 (2008). We extend great deference to the hearing judgeâs findings of fact and those findings will not be disturbed unless clearly erroneous. Id. at 83, 939 A.2d at 697. We review the evidence and the inferences that may be reasonably drawn in the light most favorable to the prevailing party. We make our own independent appraisal as to whether a constitutional right has been violated by reviewing the law and applying it to the facts of the case. Id.
IV.
A.
Appellant does not contend that the police officers lacked probable cause to arrest him. Nor does he contend that his arrest violated the Fourth Amendment to the United States Constitution or Article 26 of the Maryland Declaration of Rights. His argument on appeal rests solely on an interpretation of the Uniform Act found at § 2-305 of the Criminal Law Article. Appellant claims that the Metropolitan police officers lacked the authority under the statute to cross the border into Maryland at the time they did so, and that the statute would be ineffective unless read broadly to include an exclusionary rule.
The cardinal rule of statutory interpretation is to ascertain and effectuate the intent of the Legislature. Tribbitt v. State, 403 Md. 638, 645, 943 A.2d 1260, 1264 (2008). In
The Uniform Act on Fresh Pursuit, including Marylandâs version of the model act, âconsists of a grant of authority from the enacting state to officers from other states, permitting those officers to enter the enacting state.â State v. Meyer, 183 Or.App. 536, 53 P.3d 940, 944 (Or.Ct.App.2002). The Maryland Uniform Act on Fresh Pursuit reads, in relevant part, as follows:
â(a) A member of a state,[5 ] county, or municipal law enforcement unit of another state who enters this State in fresh pursuit and continues within this State in fresh pursuit of a person to arrest the person on the ground that the person is believed to have committed a felony in the other state has the same authority to arrest and hold the person in custody as has a member of a duly organized State,*351 county, or municipal corporation law enforcement unit of this State to arrest and hold a person in custody on the ground that the person is believed to have committed a felony in this State.
â(b) This section does not make unlawful an arrest in this State that would otherwise be lawful.â
§ 2-305. Based on a plain reading, the statute authorizes a state, county, or municipal law enforcement officer of another state to enter Maryland if in âfresh pursuit.â Both Maryland and the District of Columbia expressly permit officers from the other jurisdiction to enter their respective state territories for the purpose of pursuing persons (in hot pursuit) who reasonably are believed to have committed a felony. A valid arrest requires probable cause. U.S. Const. amend. IV; Johnson v. State, 356 Md. 498, 504, 740 A.2d 615, 618 (1999). In keeping with the law of arrest, the Act requires that the officer have probable cause at the time of the arrest. In order to determine whether the officer has authority to enter into Maryland, however, it is necessary to examine the concept of âfresh pursuitâ and its statutory definition.
The Act, in § 2-304(b), defines fresh pursuit as follows:
â(b) âFresh pursuitâ includes:
(1) fresh pursuit as defined by the common law;[6 ] and
*352 (2) pursuit without unreasonable delay, but not necessarily instant pursuit, of a person who:
(i) has committed or is reasonably suspected of having committed a felony; or
(ii) is suspected of having committed a felony, although a felony has not been committed, if there is reasonable ground for believing that a felony has been committed.â
We focus on the language of § 2 â 304(b)(2)(i), which includes pursuit of one who âis reasonably suspected of having committed a felony.â
Under the Act, an out-of-state officer is authorized to enter Maryland to arrest and hold a person in custody if that officer has reasonable suspicion that a person has committed a felony. âReasonable suspicionâ is a less demanding standard than probable cause. Illinois v. Wardlow, 528 U.S. 119, 123, 120 S.Ct. 673, 675, 145 L.Ed.2d 570 (2000); United States v. Sokolow, 490 U.S. 1, 7, 109 S.Ct. 1581, 1585, 104 L.Ed.2d 1 (1989). As the Supreme Court stated in Sokolow, reasonable suspicion is more than an âinchoate and unparticularized suspicion or âhunch,â â but is âconsiderably less than proof of wrongdoing by a preponderance of the evidenceâ and less than probable cause, which is ââa fair probability that contraband or evidence of a crime will be found.â â Sokolow, supra, 490 U.S. at 7, 109 S.Ct. at 1585. While less than probable cause is required under the Act, nonetheless, âreasonable suspicionâ requires that the officer articulate more than an âinchoate and unparticularized suspicion or âhunchâ â of criminal activity. Terry v. Ohio, 392 U.S. 1, 27, 88 S.Ct. 1868, 1883, 20 L.Ed.2d 889 (1968).
âThe purpose of the Uniform Act on Interstate Fresh Pursuit is to prevent criminals from utilizing state lines to handicap our police in their apprehension. At the present time our most desperate criminals head straight across state lines after the commission of a crime, knowing that there is comparative safety beyond the border. For in the foreign state the pursuing officer from the state wherein the crime was committed is, in general, no longer an officer. This abnormality, so contrary to all justice and reason, is remedied in a simple manner by the Fresh Pursuit Act. Thereunder, the moment an officer in fresh pursuit of a criminal crosses a state line, the state he enters will authorize him to catch and arrest such criminal within its bounds. The statute grants this right only when the officer is in fresh pursuit of a criminal, that is, pursuit without unreasonable delay, by a member of a duly organized peace unit, and only in cases of felonies or supposed felonies occurring outside the boundaries of the state adopting the act. It is thus based upon the little-known common-law doctrine of fresh pursuit, from which the statute has derived its name.â
Thus the overall intent is a grant of authority.
The Court of Special Appeals reached the same conclusion when considering the Uniform Act on Fresh Pursuit in Hutchinson v. State, 38 Md.App. 160, 380 A.2d 232 (1977). In Hutchinson, a Montgomery County police officer entered into the District of Columbia and arrested Hutchinson in relation to a homicide. Hutchinson was convicted and sentenced for felony murder and use of a handgun in the Circuit Court for Montgomery County. Hutchinson appealed, arguing that, among other things, the arrest by a Montgomery County officer in the District of Columbia was unlawful. It was clear
âWas the statute intended to blind the eye and stop the ear of an officer who entered the District under its authority? We think not.
âThe circumstances in State v. Tillman, 208 Kan. 954, 494 P.2d 1178 (1972), closely parallel the subject case. Both Kansas and Missouri had enacted the Uniform Law on Fresh Pursuit. In Tillman, as here, the arresting officers entered the foreign State without probable cause to arrest. In Tillman, as here, a missing factor essential to probable cause was supplied by knowledge gained in the foreign State. The Supreme Court of Kansas, sustaining the validity of the arrest, said at 1182:
â âIn the case at bar the robbers fled from the scene of the robbery in Kansas City, Kansas, to Kansas City, Missouri, where they were apprehended 90 minutes later. The pursuit was continuous, uninterrupted and without unreasonable delay. It was a âfresh pursuitâ; hence the arrest of the appellants by the Kansas police officers in Missouri was a valid arrest since the police had actual knowledge that the robbery had been committed and since the appellants were identified [in Missouri] as the robbers by Craig (Moon) Davis prior to their arrest at Southtown Motors.â â
Id. at 168-69, 380 A.2d at 236-37 (emphasis in original). The court then reasoned as follows:
â[T]he Uniform Act on Fresh Pursuit should not be so narrowly construed as to alter the firmly fixed rule of law that the existence of probable cause at the time of an arrest should be the measure of its validity. We think that the statute intended no such alteration.
*355 âAccordingly, we hold that the statute was intended to permit any member of an organized peace unit of any State to enter in fresh pursuit; to continue in fresh pursuit within the District; and to arrest the person pursued, whom he has probable cause to believe, at the time of arrest, committed a felony in the place of the officerâs jurisdiction.â
Id. at 172, 380 A.2d at 238 (emphasis in original). Implicit in the courtâs holding was that probable cause was not required when the officer crossed into the District of Columbia in fresh pursuit.
Our holding comports with the standard adopted by several states that have examined the issue. In State v. Ferrell, 218 Neb. 463, 356 N.W.2d 868 (1984), the Supreme Court of Nebraska held that requiring probable cause at the time of crossing the state line into Iowa âis too strict an interpretation of the statute which authorizes pursuit of a person âwho is reasonably suspected of having committed a felony.â This is sufficient to authorize an investigatory stop.â Id. at 870 (emphasis in original); see also State v. Joy, 637 So.2d 946, 948 (Fla.Dist.Ct.App.1994) (finding, when interpreting the Florida Uniform Act on Fresh Pursuit, Fla. Stat. § 901.25 (2004), that â[t]he officerâs reasonable suspicion that the truck was speeding justifiefd] the extraterritorial stop under a fresh pursuit theoryâ). One commentator notes as follows:
âIn some states, fresh pursuit statutes have been interpreted to authorize not only pursuit in order to arrest, but also pursuit for the purpose of conducting a Terry stop [Terry v. Ohio, 392 U.S. 1, 88 S.Ct. 1868, 20 L.Ed.2d 889 (1968)]. State v. Merchant, 490 So.2d 336, 339 (La.Ct.App.1986); State v. Dahlheimer, 413 N.W.2d 255, 257 (Minn.Ct.App. 1987); Commonwealth v. Montgomery, 513 Pa. 138, 144, 518 A.2d 1197, 1201 (1986), cert. denied, 480 U.S. 935, 107 S.Ct. 1579, 94 L.Ed.2d 769 (1987). The justification generally given is that police need not have probable cause to arrest at the time they cross their jurisdictional limits, but only at the time they make the arrest. Montgomery, 513 Pa. at 144-46, 518 A.2d at 1200-01. One court has noted also its belief that a close pursuit stop is within the âspiritâ of the*356 state fresh pursuit statute. State v. Bickham, 404 So.2d 929, 932 (La.1981). In dissent, one justice has argued that investigation should not justify fresh pursuit because the purpose of a Terry stop is to prevent presently occurring criminal activity, whereas the purpose of fresh pursuit is the apprehension of a suspect where a crime has already been committed. Montgomery, 513 Pa. at 147-49, 518 A.2d at 1202 (Zappala, J., dissenting).â
Judith V. Royster & Rory SnowArrow Fausett, Fresh Pursuit onto Native American Reservations, 59 U. Colo. L.Rev. 191, 246 n. 122.
B.
We turn to the facts of the instant case. Reviewing whether reasonable suspicion exists, we have stated as follows:
âWhile there is no litmus test to define the âreasonable suspicionâ standard, it has been defined as nothing more than âa particularized and objective basis for suspecting the particular person stopped of criminal activity,â and as a common sense, nontechnical conception that considers factual and practical aspects of daily life and how reasonable and prudent people act---- Moreover, â[w]hen evaluating the validity of a detention, we must examine the totality of the circumstances the whole picture.â â
Stokes v. State, 362 Md. 407, 415-16, 765 A.2d 612, 616 (2001) (internal citations omitted). The test is âthe totality of the circumstances,â viewed through the eyes of a reasonable, prudent, police officer. In Ferris v. State, 355 Md. 356, 391-92, 735 A.2d 491, 510 (1999), we explained as follows:
â[A] police officer, âby reason of training and experience, may be able to explain the special significance of ...*357 observed facts.â Thus, conduct that appears innocuous to the average layperson may in fact be suspicious when observed by a trained law enforcement official. The Fourth Amendment, however, does not allow the law enforcement official to simply assert that apparently innocent conduct was suspicious to him or her; rather the officer must offer âthe factual basis upon which he or she bases the conclusion.â â
In Alabama v. White, 496 U.S. 325, 110 S.Ct. 2412, 110 L.Ed.2d 301 (1990), the Supreme Court elaborated on the concept of reasonable suspicion, stating as follows:
âReasonable suspicion is a less demanding standard than probable cause not only in the sense that reasonable suspicion can be established with information that is different in quantity or content than that required to establish probable cause, but also in the sense that reasonable suspicion can arise from information that is less reliable than that required to show probable cause ... [An] unverified tip from [a] known informant might not have been reliable enough to establish probable cause, but nevertheless found it sufficiently reliable to justify a Terry stop. Reasonable suspicion, like probable cause, is dependent upon both the content of information possessed by police and its degree of reliability. Both factors â quantity and quality â are considered in the âtotality of the circumstances â the whole picture,â that must be taken into account when evaluating whether there is reasonable suspicion.â
Id. at 330, 110 S.Ct. at 2416 (internal citations omitted). In United States v. Cortez, 449 U.S. 411, 418, 101 S.Ct. 690, 695, 66 L.Ed.2d 621 (1981), former Chief Justice Burger discussed the appropriate test, the totality of the circumstances test, pointing out that it contains two interdependent analytical techniques:
âThe idea that an assessment of the whole picture must yield a particularized suspicion contains two elements, each of which must be present before a stop is permissible. First, the assessment must be based upon all of the circumstances. The analysis proceeds with various objective ob-*358 serrations, information from police reports, if such are available, and consideration of the modes or patterns of operation of certain kinds of lawbreakers. From these data, a trained officer draws inferences and makes deductionsâ inferences and deductions that might well elude an untrained person.â
The United States Supreme Court has made clear that unprovoked flight is enough to support reasonable suspicion that a crime has been committed. Illinois v. Wardlow, 528 U.S. 119, 124, 120 S.Ct. 673, 676, 145 L.Ed.2d 570 (2000). The Court explained as follows:
âIn this case, moreover, it was not merely respondentâs presence in an area of heavy narcotics trafficking that aroused the officersâ suspicion, but his unprovoked flight upon noticing the police. Our cases have also recognized that nervous, evasive behavior is a pertinent factor in determining reasonable suspicion. United States v. Brignoni-Ponce, 422 U.S. 873, 885, 95 S.Ct. 2574, 45 L.Ed.2d 607 (1975); Florida v. Rodriguez, 469 U.S. 1, 6, 105 S.Ct. 308, 83 L.Ed.2d 165. 469 U.S. 1, 105 S.Ct. 308, 83 L.Ed.2d 165 (1984) (per curiam); United States v. Sokolow, [490 U.S. 1, 109 S.Ct. 1581, 104 L.Ed.2d 1 (1989)]. Headlong flightâ wherever it occurs â is the consummate act of evasion: [i]t is not necessarily indicative of wrongdoing, but it is certainly suggestive of such. In reviewing the propriety of an officerâs conduct, courts do not have available empirical studies dealing with inferences drawn from suspicious behavior, and we cannot reasonably demand scientific certainty from judges or law enforcement officers where none exists. Thus, the determination of reasonable suspicion must be based on commonsense judgments and inferences about human behavior. See United States v. Cortez, 449 U.S. 411, 418, 101 S.Ct. 690, 66 L.Ed.2d 621 (1981). We conclude Officer Nolan was justified in suspecting that Wardlow was involved in criminal activity, and, therefore, in investigating further.â
The Circuit Court, in its ruling, pointed out that the police saw appellant in a drug trafficking area, and that when the police approached, he fled, clutching his waistband. The court found also that after ordering appellant to stop several times, appellant continued to clutch at his side as if he had a weapon or something else illegal. The courtâs finding that âthey had a right to inquireâ was in effect a finding that the officerâs had reasonable suspicion to stop appellant for further investigation.
We hold that the Metropolitan police officers had reasonable suspicion to believe that appellant had committed a felony and therefore, they were authorized under the Act to pursue appellant into the State of Maryland.
Appellant was seen by the poliee in a high crime, drug trafficking area. Appellant fled from the police and the flight was unprovoked. The nature of the area is a factor in
The Metropolitan police officers were authorized under the Uniform Act on Fresh Pursuit to enter into Maryland in fresh pursuit of appellant. The Circuit Court did not err in denying appellantâs motion to suppress the evidence seized from him.
JUDGMENT OF THE CIRCUIT COURT FOR PRINCE GEORGEâS COUNTY AFFIRMED. COSTS TO BE PAID BY APPELLANT.
BELL, C.J., HARRELL and GREENE, JJ., Dissent.
. Unless otherwise noted, all subsequent statutory references herein shall be to the Criminal Procedure Article of Maryland Code (2001, 2006 Cum.Supp.).
"(a) A member of a state, county, or municipal law enforcement unit of another state who enters this State in fresh pursuit and continues within this State in fresh pursuit of a person to arrest the person on the ground that the person is believed to have committed a felony in the other state has the same authority to arrest and hold the person in custody as has a member of a duly organized State, county, or municipal corporation law enforcement unit of this State to arrest and hold a person in custody on the ground that the person is believed to have committed a felony in this State.
"(b) This section does not make unlawful an arrest in this State that would otherwise be lawful.â
Section 2-304(b) sets forth the definition of "fresh pursuitâ as follows:
"(b) 'Fresh pursuitâ includes:
(1) fresh pursuit as defined by the common law; and
(2) pursuit without unreasonable delay, but not necessarily instant pursuit, of a person who:
(i) has committed or is reasonably suspected of having committed a felony; or
(ii) is suspected of having committed a felony, although a felony has not been committed, if there is reasonable ground for believing that a felony has been committed.â
. Because we find that the officers did not violate the Maryland Uniform Act on Fresh Pursuit, we do not address the Stateâs argument that the Act does not contain an exclusionary rule.
. The State entered a nolle prossequi for the remaining charges.
. Appellant does not argue that we should read a general exclusionary rule into Maryland law for a violation of Article 26.
. "Stateâ is defined as any state or the District of Columbia. § 2-304.
. The Uniform Act on Fresh Pursuit, in addition to providing a statutory definition of fresh pursuit, incorporates fresh pursuit as defined by the common law. In United States v. Atwell, 470 F.Supp.2d 554 (D.Md. 2007), the United States District Court for Maryland discussed the authority of a police officer under the common law to effect an arrest outside of the officerâs jurisdiction. The court noted as follows:
"Under Maryland common law, a police officer acting outside of the geographical coniines of which he is an officer is generally without official authority to apprehend an offender unless he is authorized to do so by a stale or federal statute. See Stevenson v. State, 287 Md. 504, [508], 413 A.2d 1340, 1343 (1980); Horn v. City of Seat Pleasant, Md., 57 F.Supp.2d 219, 226 (D.Md.1999); see also People v. Marino, 80 Ill.App.3d 657, 400 N.E.2d 491, 494, 36 Ill.Dec. 71 (1980); Perry v. State, 303 Ark. 100, 794 S.W.2d 141, 144 (Ark. 1990).
"Two exceptions have developed under the common law rule, whereby an officer acting outside his jurisdiction may arrest an individual:
*352 (1) if the officer is engaging in fresh pursuit of a suspected felon; or
(2) if the officer is acting with the authority of a private citizen to make an arrest.â
Id. at 563, 413 A.2d 1340 (footnote omitted). Therefore, under the common law, police officers may effect an extra-territorial arrest outside their jurisdiction if they are in "fresh pursuitâ of a person that has committed a felony. Id.; Doolittle v. State, 154 P.3d 350, 355 (Wyo. 2007).
. A handful of states have adopted a contrary view and assumed probable cause is required in order to pursue across state lines. See People v. McKay, 10 P.3d 704, 706 (Colo.Ct.App.2000); State v. Cochran, 372 A.2d 193, 195 (Del.1977); Gullick v. Sampson, 118 N.H. 826, 395 A.2d 187. 118 N.H. 826, 395 A.2d 187, 187-88 (1978); State v. Foulks, 653 S.W.2d 430, 432 (Tenn.Crim.App.1983).
. Because we find in the State's favor that reasonable suspicion existed, we need not address the Stateâs secondary argument, that one of the Metropolitan police officers involved in the pursuit and arrest had authority to pursue across state lines because he was deputized as a federal marshal.