UNPUBLISHED
UNITED STATES COURT OF APPEALS
FOR THE FOURTH CIRCUIT
No. 12-4868
UNITED STATES OF AMERICA,
Plaintiff - Appellee,
v.
CHARLIE SONG,
Defendant – Appellant.
Appeal from the United States District Court for the Eastern
District of Virginia, at Alexandria. Leonie M. Brinkema,
District Judge. (1:12-cr-00372-LMB-1)
Argued: May 17, 2013 Decided: June 25, 2013
Before NIEMEYER, AGEE, and THACKER, Circuit Judges.
Vacated and remanded by unpublished per curiam opinion.
ARGUED: Kevin R. Brehm, OFFICE OF THE FEDERAL PUBLIC DEFENDER,
Alexandria, Virginia, for Appellant. Ryan K. Dickey, OFFICE OF
THE UNITED STATES ATTORNEY, Alexandria, Virginia, for Appellee.
ON BRIEF: Michael S. Nachmanoff, Federal Public Defender,
Alexandria, Virginia, for Appellant. Neil H. MacBride, United
States Attorney, Alicia J. Yass, Special Assistant United States
Attorney, Jonathan Keim, Special Assistant United States
Attorney, OFFICE OF THE UNITED STATES ATTORNEY, Alexandria,
Virginia, for Appellee.
Unpublished opinions are not binding precedent in this circuit.
PER CURIAM:
Charlie Song appeals an order of the district court
committing him to the Federal Bureau of Prisons (“BOP”) for a
mental status and competency examination pursuant to 18 U.S.C.
§§ 4241(b), 4242(a), and 4247(b), and an order denying
reconsideration of the same. Because we lack adequate findings
upon which to decide whether the district court’s commitment
order is a proper exercise of its discretion, we vacate the
commitment order and remand for further proceedings.
I.
On August 23, 2012, a grand jury sitting in the
Eastern District of Virginia returned an indictment charging
Song with one count of attempted receipt of child pornography
and one count of possession of child pornography. Song was
arrested on August 27 and made his initial appearance before a
magistrate judge the same day. During a detention hearing held
the following day, August 28, the magistrate judge granted the
Government’s request that Song be detained pending trial. On
August 29, Song moved to revoke the detention order. On
September 5, during Song’s arraignment, the district court
released him on conditions of bail that included the appointment
of two third-party custodians. In addition, the district court
ordered that any pretrial motions be filed by September 19.
Song filed several motions in advance of the September 19
2
deadline, including two motions to suppress, a motion to
dismiss, and a motion for a bill of particulars. 1
On October 9, 2012, Song filed a notice of intent to
raise the insanity defense. The notice indicated that Song, who
has suffered from schizophrenia throughout his life, intended to
present a defense of insanity, as well as expert evidence
relating to a mental condition bearing on the issue of guilt.
That same day, Song also moved to reinstate the previously
withdrawn motions. The following day, Wednesday, October 10,
the district court ordered a “status” hearing to be held on
October 16 to address several of Song’s submissions. In that
order, the district court stated in pertinent part,
Before the Court are several pleadings filed by the
defendant, a Notice of Insanity Defense and Expert
Evidence of Mental Condition, Motion to Allow Late
Filing of Notice and to Reset Trial, and Motion to
Reinstate Previously Withdrawn Motions. For good
cause shown and there being no objection by the
government, a status hearing will be scheduled to
address these and any other matters that have arisen.
Accordingly, it is hereby
ORDERED that a status hearing be and is scheduled
for Tuesday, October 16, 2013, at 11:00 a.m.
before the undersigned judge.
J.A. 99 (brackets and emphasis omitted). 2
1
Song moved to withdraw these motions on September 28. The
district court granted the motion the same day.
2
Citations to the “J.A.” refer to the Joint Appendix filed
by the parties in this appeal.
3
Two days after the status hearing notice, on Friday,
October 12, Song filed a motion requesting that any mental
health examination be conducted on an outpatient basis in the
metropolitan area of Washington, D.C. The day before the
scheduled hearing, October 15, the Government filed a response
to Song’s October 9 notice of intent to raise the insanity
defense. In that response, the Government requested that Song
be committed to the custody of the BOP for a mental health
examination. The Government also submitted to the district
court a video and transcript of a law enforcement interview of
Song, which occurred on June 26, 2012.
On October 16, 2012, the district court held a 27-
minute hearing during which the court addressed a number of
pretrial motions, including, principally, the issue of Song’s
mental health. Neither before nor during the hearing did the
district court ask the Government to present evidence supporting
its request for a custodial examination, nor did it inquire if
Song intended to present any evidence bearing on the same.
Neither the Government nor Song presented any witness testimony
or other evidence at the hearing.
Nonetheless, at the close of the hearing, the district
court indicated in a brief discussion its intention to order
Song to self-surrender to a BOP facility for a custodial mental
health examination. The district court offered the following
4
rationale for granting the Government’s request for a custodial
examination:
Now, the issue then is the type of examination that
would be most appropriate. There are two options.
One is the outpatient examination, which is normally
just a couple of hours of interviews with a defendant.
I think this case is more complicated than that and
the defendant’s condition more nuanced than that.
Just again from my observations of the defendant in
court, my review of his statement to the agents, and I
haven’t had a chance to review the tape but that will
probably, I suspect present more information, but at
this point, my experience has been that the out-of-
custody type of interviews just are not as thorough,
and in this case, the government’s request for a
residential custodial evaluation is in my view
warranted. So I am going to grant the motion.
J.A. 196-97 (emphasis added). Following the hearing, the
district court entered an order requiring Song’s commitment for
a custodial examination.
The next day, October 17, Song moved for
reconsideration and submitted to the district court an excerpt
from the Legal Resource Guide to the Federal Bureau of Prisons
in support of his request for a non-custodial examination. The
Government opposed the motion and submitted to the district
court the Bureau of Prisons’ Program Statement for Forensic and
Other Mental Health Evaluations.
On October 23, 2012, the district court issued the two
orders that are now before us on interlocutory appeal. The
first order denied Song’s motion for reconsideration of the
5
district court’s initial order, entered October 16, 2012, which
required Song to submit to a custodial examination. The second
order directed Song to self-surrender to a BOP facility,
preferably Federal Correction Institution Butner (“Butner”), for
a reasonable time not to exceed 45 days to undergo a mental
health examination. The district court explained that the
examination should address whether Song is competent to stand
trial; whether, during the commission of the acts constituting
the offense, Song was unable to appreciate the nature and
quality of the wrongfulness of his acts; and the bearing, if
any, of any mental condition on the issue of guilt. Song
noticed this appeal on November 1, 2012. 3
II.
While the parties do not dispute our jurisdiction to
hear this appeal, we conclude the orders before us fall within
the ambit of the collateral order doctrine. See United States
v. Deters, 143 F.3d 577, 579-82 (10th Cir. 1998) (“[W]e hold
that a commitment order issued pursuant to 18 U.S.C. § 4247(b),
whether it be for the purpose of ascertaining competency to
stand trial under section 4241 or for the purpose of evaluating
insanity at the time of the offense under section 4242, is
3
On November 2, 2012, Appellant filed an emergency motion
to stay the mental health examination, which the district court
granted later that day.
6
immediately appealable.”); see also Sell v. United States, 539
U.S. 166, 176 (2003) (describing collateral order exception);
United States v. Bowles, 602 F.3d 581, 582 (4th Cir. 2010)
(same). We thus possess jurisdiction over this interlocutory
appeal.
We review a district court’s decision to order a
custodial mental health examination pursuant to 18 U.S.C.
§§ 4241 and 4247(b) for an abuse of discretion. See 18 U.S.C.
§ 4247(b) (“For the purposes of an examination pursuant to an
order under section 4241, . . . the court may commit the person
to be examined for a reasonable period, but not to exceed thirty
days.”) (emphasis added); Deters, 143 F.3d at 579 (“The district
court . . . has the discretion to confine a defendant during the
examination period.”); United States v. Neal, 679 F.3d 737, 740
(8th Cir. 2012) (same); cf. United States v. Banks, 482 F.3d
733, 743 (4th Cir. 2007) (“We defer so to the district court
because it is in a superior position to adjudge the presence of
indicia of incompetency constituting reasonable cause to
initiate a hearing [pursuant to 18 U.S.C. § 4241(a)].”).
III.
Song contends the district court violated his due
process rights by failing to conduct an evidentiary hearing and
make sufficient factual findings concerning the need for
commitment to the BOP for a mental health examination. While
7
the Government does not dispute that Song should be afforded
some due process protection, it essentially contends that the
process below was sufficient. Specifically, the Government
asserts the district court undertook a thorough review of the
evidence and circumstances prior to determining that a custodial
mental health examination was warranted.
Notwithstanding the parties’ arguments in framing the
issues as they perceive it, for purposes of this stage of the
appellate proceedings, we can resolve the issue without the need
to address their constitutional arguments. See Ashwander v.
Tenn. Valley Auth., 297 U.S. 288, 341-56 (1936) (Brandeis, J.,
concurring) (stating that courts should not “decide issues of a
constitutional nature unless absolutely necessary”). Indeed,
based on this record, we are unable to conduct an appellate
review of the district court orders being appealed. See, e.g.,
J.H. Henrico Cnty. Sch. Bd., 326 F.3d 560, 567 (4th Cir. 2003)
(vacating and remanding an Individuals with Disabilities
Education Act action because the “appellate record [was]
inadequate for effective appellate review”).
A.
In response to Song’s notice of intent to raise the
insanity defense, the Government requested that Song undergo a
custodial mental health examination. When the defendant files
such a notice and the Government so moves, the district court
8
“shall order that a psychiatric or psychological examination of
the defendant be conducted, and that a psychiatric or
psychological report be filed with the court, pursuant to the
provisions of section 4247(b) and (c).” 18 U.S.C. § 4242(a).
An examination regarding the defendant’s sanity at the time of
the offense was therefore required by statute; thus, we need
only decide whether the district court properly ordered that the
examination be conducted as a custodial examination.
As noted, Song’s mental health examination must be
conducted pursuant to 18 U.S.C. § 4247(b), which provides, “the
court may commit the person to be examined for a reasonable
period” -- up to 30 days for a competency examination and 45
days for a sanity examination -- “to the custody of the Attorney
General for placement in a suitable facility.” 18 U.S.C.
§ 4247(b) (emphasis supplied). 4 These time periods may be
4
The provision states, in full, as follows:
(b) Psychiatric or psychological examination. -- A
psychiatric or psychological examination ordered
pursuant to this chapter shall be conducted by a
licensed or certified psychiatrist or psychologist,
or, if the court finds it appropriate, by more than
one such examiner. Each examiner shall be designated
by the court, except that if the examination is
ordered under section 4245, 4246, or 4248, upon the
request of the defendant an additional examiner may be
selected by the defendant. For the purposes of an
examination pursuant to an order under section 4241,
4244, or 4245, the court may commit the person to be
examined for a reasonable period, but not to exceed
(Continued)
9
extended by up to 15 days for a competency examination and up to
30 days for a sanity examination, according to statute. Id.
However, the statute does not articulate a standard for
determining under what circumstances a custodial examination is
appropriate.
Although § 4247(b) uses the word “may” when describing
a district court’s ability to commit a person to the BOP for an
inpatient competency examination, the statute does not grant a
district court unbounded discretion to order such a commitment
as opposed to an outpatient examination. 5 See United States v.
thirty days, and under section 4242, 4243, 4246, or
4248 for a reasonable period, but not to exceed forty-
five days, to the custody of the Attorney General for
placement in a suitable facility. Unless
impracticable, the psychiatric or psychological
examination shall be conducted in the suitable
facility closest to the court. The director of the
facility may apply for a reasonable extension, but not
to exceed fifteen days under section 4241, 4244, or
4245, and not to exceed thirty days under section
4242, 4243, 4246, or 4248 upon a showing of good cause
that the additional time is necessary to observe and
evaluate the defendant.
18 U.S.C. § 4247(b).
5
While the Supreme Court has not articulated a specific
test for determining when pretrial commitment of an accused for
purposes of a custodial mental health examination is permissible
under the Due Process Clause, we are confident that “[t]he
institutionalization of an adult by the government triggers
heightened, substantive due process scrutiny. There must be a
‘sufficiently compelling’ governmental interest to justify such
action. . . .” Reno v. Flores, 507 U.S. 292, 316 (1993)
(Continued)
10
Neal, 679 F.3d 737 (8th Cir. 2012); United States v. Deters, 143
F.3d 577, 582–84 (10th Cir. 1998); In re Newchurch, 807 F.2d
404, 409 (5th Cir. 1986).
B.
In support of his position that the mental health
examination must be performed on an outpatient basis, Song
relies on Newchurch, 807 F.2d 404, and Neal, 679 F.3d 737, cases
that address the question presented here.
In Newchurch, the Fifth Circuit vacated a district
court order committing a defendant to the custody of the
Attorney General for a custodial examination because “[t]he
government offered no evidence that the commitment of Newchurch
. . . is necessary or that an examination adequate for
determination of his sanity . . . cannot be conducted on an
outpatient basis or by a confinement of short duration in a
hospital near the place of trial.” 807 F.2d at 410. Newchurch
reasoned, “a district court should not exact such a deprivation
of liberty” unless there is “some evidence that commitment is
necessary.” Id. To that end, the Fifth Circuit concluded, “the
district court should make findings of fact concerning the need
(O’Connor, J., concurring) (quoting United States v. Salerno,
481 U.S. 739, 748 (1987)).
11
for commitment to the custody of the Attorney General.” Id. at
412.
The Tenth Circuit in Deters, 143 F.3d 577, resolved
the question likewise. The court in Deters held, “In ordering
commitment pursuant to 18 U.S.C. § 4241, a ‘district court
should make findings of fact concerning the need for
commitment,’ and ‘[a]n appellate court should give appropriate
deference not only to these findings but also to the conclusion
reached by the district court’ regarding the appropriateness of
confinement.” Id. at 584 (quoting Newchurch, 807 F.2d at 412).
In Deters, unlike this case, the district court actually held an
evidentiary hearing, discussed on the record the defendant’s
request that she be evaluated on an outpatient basis, and then
made factual findings identifying two governmental interests --
the risk the defendant would not appear at trial and the
defendant’s unstable living conditions -- which justified the
custodial examination. See id. at 583–84.
The Eighth Circuit recently adopted the Fifth
Circuit’s approach in Neal. The Neal court explained that the
failure of the district court to “require the government to
present evidence to justify the inpatient commitment, seriously
consider the defendant’s alternative request for an outpatient
examination, or make findings of fact concerning the need for
commitment,” necessitated remand. See Neal, 679 F.3d at 741-42.
12
In the absence of such factual findings, the court concluded it
was left unable to determine whether the district court’s order
satisfied due process. We face a similar circumstance in the
case at bar.
C.
Unlike Deters, and more akin to the circumstances of
Newchurch and Neal, the record below does not reveal specific
factual findings on which the district court justified
committing Song for a custodial examination. The Government
directs us to its submissions, principally the video and
transcript of a law enforcement interview of Song that occurred
on June 26, 2012, which they claim raise serious concerns
regarding the nature of his illness and subsequent insanity
notice. However, the district court’s own statement during the
status hearing indicated the court did not review the video.
See J.A. (“I haven’t had a chance to review the tape. . . . “).
In any event, although there is some support in the record that
the district court considered the transcript of the interview,
it is unclear how the interview bore on the need for a custodial
rather than outpatient examination. Moreover, the district
court’s explicit reliance on its own personal experience in
other cases does not satisfy due process, as it has no nexus to
the specific commitment determination for Song. If the district
court’s sole rationale for choosing a custodial, as opposed to
13
an outpatient, format for the examination of Song is the court’s
subjective experience in other cases, then the court abused its
discretion as a matter of law. See Newchurch, 807 F.2d at 411-
12 (“The district court should not undertake to evaluate the
quality of outpatient examination as opposed to an examination
conducted in the custody of the Attorney General solely on its
personal past experience, for that experience is neither a
matter of record, a subject for cross examination, nor a
question susceptible to review on appeal.”).
Because the district court did not receive evidence
upon which to base a custodial finding for Song’s examination or
make explicit factual findings that would allow us to determine
whether the district court properly exercised its discretion in
this case, we are constrained to vacate the commitment order.
Without a factual record upon which we can review the district
court’s commitment determination to ascertain whether its
discretionary authority was properly exercised, we are unable to
undertake our appellate review function. See, e.g., JH v.
Henrico Cnty. Sch. Bd., 326 F.3d at 567 (vacating and remanding
action because the “appellate record [was] inadequate for
effective appellate review”); FDIC v. Aroneck, 643 F.2d 164, 167
(4th Cir. 1981) (in reviewing a discretionary grant of an
attorney’s fee award, observing that “[e]ffective appellate
review of such a discretionary determination is impossible . . .
14
unless [the appellate court] has before [it] the district
court’s reasons for finding a particular award appropriate,” and
vacating and remanding the judgment where the district court
failed to the necessary findings of fact and to articulate the
basis for its decision).
IV.
In view of the foregoing, we vacate the district
court’s commitment order and remand this case for further
proceedings consistent with this opinion.
VACATED AND REMANDED
15