K. Cowan v. PPB ( 2023 )

IN THE COMMONWEALTH COURT OF PENNSYLVANIA
Kaylon Cowan, :
Petitioner :
:
v. :
:
Pennsylvania Parole Board, : No. 727 C.D. 2022
Respondent : Submitted: May 5, 2023
BEFORE: HONORABLE ANNE E. COVEY, Judge
HONORABLE MICHAEL H. WOJCIK, Judge
HONORABLE STACY WALLACE, Judge
OPINION NOT REPORTED
MEMORANDUM OPINION BY
JUDGE COVEY FILED: August 25, 2023
Kaylon Cowan (Cowan) petitions this Court for review of the
Pennsylvania Parole Board’s (Board) July 6, 2022 order denying his request for
administrative relief. Cowan is represented in this matter by Centre County Chief
Public Defender David Crowley, Esquire (Counsel), who has filed an Application to
Withdraw Appearance (Application) and submitted a no-merit letter pursuant to
Commonwealth v. Turner, 544 A.2d 927 (Pa. 1988) (Turner Letter),1 in support
thereof. After review, we grant Counsel’s Application and affirm the Board’s order.
1
Through this type of letter, an attorney seeks to withdraw from
representation of a parole violator because “the [violator’s] case
lacks merit, even if it is not so anemic as to be deemed wholly
frivolous.” Com[monwealth] v. Wrecks, 931 A.2d 717, 722 (Pa.
Super. 2007).
Such letters are referred to by various names by courts of
this Commonwealth. See, e.g., Commonwealth v.
Porter, . . . 728 A.2d 890, 893 [] n.2 ([Pa.] 1999) (referring
to such a letter as a “‘no merit’ letter” and noting that such
Cowan was an inmate at the State Correctional Institution (SCI) at
Benner Township.2 On October 3, 2015, the Lancaster County Common Pleas Court
sentenced Cowan to 5 to 20 years of incarceration for aggravated assault involving
serious bodily injury (Original Sentence). See Certified Record (C.R.) at 1. By
decision recorded June 7, 2018, the Board granted Cowan parole from his Original
Sentence. See C.R. at 4-5. Cowan’s Original Sentence maximum release date was
April 15, 2033. See C.R. at 5.
On September 25, 2018, the Board released Cowan on parole to
Keystone Correctional Services, Inc. (Keystone) in Harrisburg. See C.R. at 6-10.
Cowan agreed to the following conditions pertinent to this appeal:
5. You shall:
a. abstain from the unlawful possession of
narcotics and dangerous drugs and abstain from
the use of controlled substances . . . ;
b. refrain from owning or possessing any firearms
or other weapons; and
c. refrain from any assaultive behavior.
....
a letter is also commonly referred to as a “Finley letter,”
referring to the Superior Court case Commonwealth v.
Finley, . . . 479 A.2d 568 ([Pa. Super.] 1984)); Zerby v.
Shanon, 964 A.2d 956, 960 (Pa. Cmwlth. 2009) (“Turner
[L]etter”); Commonwealth v. Blackwell, 936 A.2d 497, 499
(Pa. Super. [] 2007) (“Turner/Finley letter”).
Hughes v. Pa. Bd. of Prob. & Parole, 977 A.2d 19, 25 n.2 (Pa.
Cmwlth. 2009).
Anderson v. Pa. Bd. of Prob. & Parole, 237 A.3d 1203, 1204 n.2 (Pa. Cmwlth. 2020), subsequent
determination, Anderson v. Pa. Bd. of Prob. & Parole (Pa. Cmwlth. No. 813 C.D. 2019, filed Mar.
25, 2022).
2
Cowan has since been reparoled. See vinelink.vineapps.com/person-
detail/offender/24548234;tabIndexToSelect=0 (last visited Aug. 24, 2023).
2
7. . . . If you are arrested on new criminal charges, the
Board has the authority to lodge a detainer against you
which will prevent your release from custody[] pending
disposition of those charges, even though you may have
posted bail or been released on your own recognizance
from those [new] charges.
If you violate a condition of your parole/reparole and, after
an appropriate hearing(s), the Board decides that you are
in violation of a condition of your parole/reparole[,] you
may be recommitted to prison for such time as may be
specified by the Board.
If you are convicted of a crime committed while on
parole/reparole, the Board has the authority, after an
appropriate hearing, to recommit you to serve the balance
of the sentence or sentences which you were serving when
paroled/reparoled, with no credit for time at liberty on
parole.
C.R. at 7.
By decision recorded on January 11, 2019 (mailed January 16, 2019),
the Board recommitted Cowan as a technical parole violator to serve six months of
backtime on his Original Sentence for failing to refrain from serious assaultive
behavior and failing to successfully complete Keystone’s program. See C.R. at 11.
The Board’s decision reflected that Cowan would be automatically reparoled
(subject to detainers) upon completion of prescribed programs, and if his behavior
did not result in disciplinary action. See C.R. at 12. The Board reparoled Cowan to
the York Community Corrections Center on April 17, 2019, subject to the same
parole conditions he agreed to on September 25, 2018. See C.R. at 14-18.
On December 6, 2019, Newberry Township police arrested Cowan and
charged him with a broken tail light and possession of drug paraphernalia (Newberry
Township Charges). See C.R. at 19, 22-23. By decision recorded April 27, 2020,
the Board continued Cowan on parole pending disposition of the Newberry
Township Charges. See C.R. at 19. However, the drug paraphernalia possession
3
charge was eventually reduced to a summary offense with the broken tail light
charge. See C.R. at 23.
On August 19, 2020, Manheim Township police arrested Cowan,
charged him with possession with intent to deliver (PWID) marijuana, possession of
a controlled substance - oxycodone, and possession of drug paraphernalia (Manheim
Township Charges), and placed him in the Lancaster County Prison. See C.R. at 23,
25. The Lancaster County Common Pleas Court set Cowan’s bail at $50,000.00,
which he did not pay. See C.R. at 25, 28. That same day, the Board issued a Warrant
to Commit and Detain Cowan. See C.R. at 20. By decision recorded September 18,
2020, the Board detained Cowan pending disposition of the Manheim Township
Charges. See C.R. at 21.
On May 19, 2021, Cowan pled guilty to the Manheim Township
Charges, and the Lancaster County Common Pleas Court sentenced him to time
served to 23 months of incarceration. See C.R. at 23, 29, 38-50. On May 25, 2020,
Cowan signed the Board’s notice of charges, which scheduled a parole revocation
hearing for June 14, 2021, relative to his Manheim Township Charges. See C.R. at
51. That same day, Cowan waived his right to a panel hearing, a detention hearing,
and his right to counsel. See C.R. at 53-54.
By decision recorded June 30, 2021 (mailed July 9, 2021), the Board
recommitted Cowan to an SCI as a convicted parole violator (CPV) to serve 18
months of backtime on his Original Sentence because of the Manheim Township
Charges. See C.R. at 55-70. The Board declined to credit Cowan for the time he
spent in good standing at liberty on parole based on his Manheim Township Charges,
his poor adjustment under supervision (showing he is not amenable to parole
supervision), his previous parole failure, and because he presents a threat to
4
community safety. See C.R. at 57-59, 69. The Board recalculated Cowan’s Original
Sentence maximum release date to May 17, 2035. See C.R. at 69-70.
On July 19, 2021, Cowan, pro se, executed an Administrative Remedies
Form (received by the Board on July 23, 2021), wherein he challenged the Board’s
June 30, 2021 decision (mailed July 9, 2021). Cowan asserted that the Board’s
guidelines did not allow for an 18-month recommitment, the Board failed to state
why he was not awarded credit for the time he spent in good standing at liberty on
parole, and his December 2018 parole violation was related to a halfway house (i.e.,
Keystone). See C.R. at 71-72. Therefore, he maintains that his maximum release
date was incorrectly calculated.
At Cowan’s request, on August 2, 2021, Counsel entered his
appearance for Cowan and executed a separate Administrative Remedies Form
(received by the Board on August 4, 2021) challenging therein the Board’s decision
recorded June 30, 2021 (mailed July 9, 2021). Counsel declared that Cowan had not
yet received the Hearing Examiner’s report when he filed his initial appeal, and
essentially reiterated Cowan’s claims of error. In addition, Counsel argued that
“[t]he reason given for not awarding credit does not appear to be supported by
substantial evidence or made contemporaneous[ly] with the [Board’s May 19, 2021]
decision to recommit [Cowan] as a [CPV] and[,] thus[,] contravenes Pittman v.
Pennsylvania Board of Probation & Parole, 159 A.3d 466 (Pa. 2017).” C.R. at 76.
In response to Cowan’s Administrative Remedies Form filing, by
decision mailed November 5, 2021, the Board affirmed its decision recorded June
30, 2021 (mailed July 9, 2021). In that decision, the Board declared that Cowan’s
recommitment fell within the presumptive range for his drug charges; 3 Section
3
Pursuant to Section 75.2 of the Board’s Regulations, the Board could have recommitted
Cowan for up to 33 months for the 3 drug charges (9 to 15 months for PWID marijuana (first
degree felony with a maximum 5 years of incarceration); 6 to 12 months for intent to possess a
5
6138(a)(2) of the Prisons and Parole Code (Parole Code),4 61 Pa.C.S. § 6138(a)(2),
authorized the Board to recommit him without credit for the time he spent in good
standing at liberty on parole, and the Board properly set forth its reasoning; and the
Board properly recalculated his Original Sentence maximum release date. See C.R.
at 73-74. Cowan did not appeal from the Board’s November 5, 2021 decision.
In response to Counsel’s Administrative Remedies Form filing, by
decision mailed July 6, 2022, the Board clarified:
The Board previously addressed issues concerning the
presumptive range and the recalculation of Cowan’s
[Original Sentence] maximum [release] date in a response
mailed to [] Cowan on November 5, 2021. Those issues
were raised in the pro se correspondence received on July
23, 2021. As such, this response will be limited to the
contention that the reason the Board denied Cowan
credit for the time spent at liberty on parole is not
supported by substantial evidence.
C.R. at 78 (emphasis added). The Board concluded that its “reason provided for
denying credit for the time spent at liberty on parole is sufficient and supported by
the record.” Id. On July 12, 2022, Counsel appealed to this Court on Cowan’s
behalf.5
On December 6, 2022, Counsel filed the Application and the Turner
Letter in support thereof. By December 9, 2022 Order (Order), this Court informed
Cowan that he may, within 30 days after Counsel’s service of the Order on him,
controlled substance (first degree misdemeanor with a maximum 2 or 3 years of incarceration);
and 3 to 6 months for possession of drug paraphernalia (first degree misdemeanor with a maximum
1 year of incarceration)). See 37 Pa. Code § 75.2; see also C.R. at 57.
4
61 Pa.C.S. §§ 101-7301.
5
“This Court’s ‘review over actions of the Board is limited to determining whether the
decision was supported by substantial evidence, whether an error of law occurred or whether
constitutional rights were violated.’ Ramos v. Pa. Bd. of Prob. [&] Parole, 954 A.2d 107, 109 n.1
(Pa. Cmwlth. 2008).” Brown v. Pa. Bd. of Prob. & Parole, 184 A.3d 1021, 1023 n.5 (Pa. Cmwlth.
2017).
6
either obtain substitute counsel at his own expense and have new counsel enter an
appearance and file a brief in support of the petition for review (Petition), or file a
brief on his own behalf. On December 9, 2022, Counsel served the Order on Cowan.
Cowan did not obtain substitute counsel or file a brief with this Court.
Before addressing the validity of Cowan’s substantive arguments, this
Court must assess the adequacy of Counsel’s Turner Letter. This Court has
explained:
“A [Turner] [L]etter must include an explanation of ‘the
nature and extent of counsel’s review and list each issue
the petitioner wished to have raised, with counsel’s
explanation of why those issues are meritless.’”
Seilhamer[ v. Pa. Bd. of Prob. & Parole], 996 A.2d [40,]
43 [(Pa. Cmwlth. 2010)] (quoting Turner, 544 A.2d at
928) (some alterations omitted). As long as a Turner
[L]etter satisfies these basic requirements, [this Court]
may then review the soundness of a petitioner’s request for
relief. Zerby[ v. Shanon], 964 A.2d [956,] 960 (Pa.
Cmwlth. 2009)]. However, if the Turner [L]etter fails on
technical grounds, [this Court] must deny the request for
leave to withdraw, without delving into the substance of
the underlying petition for review, and may direct counsel
to file either an amended request for leave to withdraw or
a brief on behalf of [his/her] client. Id.
Anderson v. Pa. Bd. of Prob. & Parole, 237 A.3d 1203, 1207 (Pa. Cmwlth. 2020).
“[C]ounsel must fully comply with the procedures outlined in Turner
to ensure that each of the petitioner’s claims has been considered and that counsel
has [] substantive reason[s] for concluding that those claims are meritless.” Hont v.
Pa. Bd. of Prob. & Parole, 680 A.2d 47, 48 (Pa. Cmwlth. 1996). Counsel is also
required to “notify the parolee of his request to withdraw, furnish the parolee with []
a copy of . . . [the] no-merit letter satisfying the requirements of Turner, and inform
the parolee of his right to retain new counsel or submit a brief on his own behalf.”
Reavis v. Pa. Bd. of Prob. & Parole, 909 A.2d 28, 33 (Pa. Cmwlth. 2006). This
7
Court must then “conduct its own independent review of the petition to withdraw
and must concur in counsel’s assessment before [it] may grant counsel leave to
withdraw.” Hont, 680 A.2d at 48.
Upon review, this Court concludes that Counsel’s Turner Letter
contains the procedural history of Cowan’s appeal, as well as Counsel’s review of
the record and relevant statutes and case law. Counsel served Cowan with a copy of
the Turner Letter and Counsel’s Application. The Turner Letter only addressed the
merits of Cowan’s claim that Counsel expounded upon in his August 2, 2021
Administrative Remedies Form - whether substantial record evidence supported the
reason for the Board’s denial of credit for the time Cowan spent at liberty on parole
- because Cowan waived his other challenges to the Board’s decision by failing to
timely appeal therefrom.
Indeed, the Board’s November 5, 2021 decision informed Cowan that
he could appeal therefrom to this Court “within thirty (30) days of the mailing date
of the Board’s response[,]” or he could seek the assistance of counsel to do so on his
behalf, and failing to do so “may affect [his] legal rights.” C.R. at 74. Thus, Cowan
had until December 5, 2021, to timely appeal from the Board’s decision mailed
November 5, 2021, but he did not. Therefore, Counsel properly concluded in the
Turner Letter that the only issue properly preserved on appeal to this Court is
whether substantial record evidence supported the reason for the Board’s denial of
credit for the time Cowan spent at liberty on parole.6 Regarding that issue, this Court
6
In the Turner Letter, Counsel nevertheless explained:
In [Counsel’s] Administrative Appeal, [] Cowan refined the
complaint about the excessiveness of the recommitment to one of
his inabilities to discern whether the [B]oard used the correct
guideline range for the most serious offense[,] PWID [m]arijuana[,]
because he was not provided with the Hearing Examiner’s report
and the decision did not specify that it was aggregating the
presumptive ranges to assess 18 months for the convictions. To the
8
concludes that Counsel complied with the procedural requirements for withdrawing
from representation.
This Court will now conduct an independent review of the only issue
Cowan preserved on appeal - whether substantial record evidence supported the
reason for the Board’s denial of credit for time Cowan spent at liberty on parole.
Until it was amended effective June 30, 2021,7 Section 6138(a) of the
Parole Code specified, in relevant part:
(1) A parolee under the jurisdiction of the [B]oard released
from a correctional facility who, during the period of
parole or while delinquent on parole, commits a crime
punishable by imprisonment, for which the parolee is
convicted or found guilty by a judge or jury or to which
the parolee pleads guilty or nolo contendere at any time
thereafter in a court of record, may at the discretion of the
[B]oard be recommitted as a parole violator.
....
(2) If the parolee’s recommitment is so ordered, the
parolee shall be reentered to serve the remainder of the
term which the parolee would have been compelled to
serve had the parole not been granted and, except as
provided under paragraph (2.1), shall be given no
credit for the time at liberty on parole.
extent that this could be considered a discreet claim and not waived
for the failure to appeal the November 5, 2021[] denial of the pro se
Administrative Relief[,] [Cowan] now possesses that [H]earing
[E]xaminer’s report and it clearly states the correct . . . presumptive
range[s were] . . . used in calculating the aggregate presumptive
recommitment range. [See C.R. at] 57[.] Under these circumstances
there is no factual or legal argument to be made that the 18-month
recommitment was excessive.
Id. at 4-5.
7
Section 6138(a) of the Parole Code, as quoted herein, is as it appeared when applicable
to this case. The General Assembly amended Section 6138(a) of the Parole Code effective June
30, 2021.
9
(2.1) The [B]oard may, in its discretion, award credit
to a parolee recommitted under paragraph (2) for the
time spent at liberty on parole, unless any of the
following apply:
(i) The crime committed during the period of
parole or while delinquent on parole is a crime of
violence as defined in [Section 9714(g) of the
Sentencing Code,] 42 Pa.C.S. § 9714(g) (relating
to sentences for second and subsequent offenses)
or a crime requiring registration under 42 Pa.C.S.
Ch. 97 Subch. H (relating to registration of sexual
offenders).
(ii) The parolee was recommitted under [S]ection
6143 [of the Parole Code, 61 Pa.C.S. § 6143]
(relating to early parole of inmates subject to
[f]ederal removal order).
61 Pa.C.S. § 6138(a) (emphasis added).
Cowan’s Manheim Township Charges were drug-related offenses.
Section 9714(g) of the Sentencing Code includes only drug delivery that results in
death under Section 2605 of the Crimes Code, 18 Pa.C.S. § 2506. Because Cowan
was not recommitted for reasons enumerated in Section 6138(a)(2.1)(i) and (ii) of
the Parole Code, the Board had the discretion to award him credit for the time he
spent at liberty on parole, if it so desired. In Pittman, the Pennsylvania Supreme
Court ruled that, although the Board has discretion to deny such credit, in order for
“an appellate court hearing the matter [to] have [a] method to assess the Board’s
exercise of discretion[,] . . . the Board must articulate the basis for its decision to
grant or deny a CPV credit for time served at liberty on parole.” Id., 159 A.3d at
474. Further, there must be record evidence to support the Board’s reason for the
credit denial. See Plummer v. Pa. Bd. of Prob. & Parole, 216 A.3d 1207 (Pa.
Cmwlth. 2019).
10
Here, in its decision recorded on June 30, 2021 (mailed July 9, 2021),
the Board declined to credit Cowan for the time he spent in good standing at liberty
on parole due to: (1) his Manheim Township Charges; (2) his poor adjustment under
supervision; (3) his showing that he is not amenable to parole supervision; (4) his
previous parole failure; and (5) his threat to community safety. See C.R. at 57-59,
69. The record evidence supports that Cowan was guilty of the Manheim Township
(drug) Charges, that he previously committed parole violations - including his failure
to refrain from drug possession and assaultive behavior, and his failure to complete
the Keystone program - as he agreed to do, and his failure to comply with the Board’s
parole conditions makes him a threat to community safety. “Because [Cowan] had
notice of the rationale behind the Board’s credit decision, and there is record
evidence to support the Board’s reason, we hold that its stated reason complied with
Pittman.”8 Plummer, 216 A.3d at 1213.
In its decision mailed July 6, 2022, the Board detailed:
In this case, the Board articulated that Cowan was denied
such credit due to a history of supervision failure in
probation and/or parole. The record reveals a previous
recommitment as a technical parole violator during his
current state sentence. That decision was recorded on
January 11, 2019[,] and was for violating condition #5c
8
Counsel represented in the Turner Letter:
[T]he [B]oard’s failure to provide [] Cowan with the [H]earing
[E]xaminer’s report deprived him of the opportunity to assess
whether the decision to decline the award of parole liberty credit was
made contemporaneous with the decision to recommit. As the
[B]oard has provided that report in the [C]ertified [R]ecord[,] it is
beyond dispute that these decisions were made on June 1, 2021, and
there is no factual or legal argument to be made relative to the
contemporaneous requirement in Pittman.
Id. at 5; see also id. at 4 (“[Cowan] was not provided with the Hearing Examiner’s report . . . .”).
Counsel made a correct assessment, and substantial evidence supported the Board’s denial of
credit. See Turner Letter at 5.
11
(assaultive behavior) and condition #7 (failure to
successfully complete the Keystone [] program). Thus,
the reason provided for denying credit for the time spent
at liberty on parole is sufficient and supported by the
record.
C.R. at 78. Because this Court agrees that substantial record evidence supported the
reason for the Board’s denial of credit for the time Cowan spent at liberty on parole,
Cowan’s appeal lacks merit.
Based on the foregoing, this Court concludes that Counsel complied
with Turner’s technical requirements and confirms, based upon an independent
record review, that Cowan’s appeal lacks merit. For all of the above reasons,
Counsel’s Application is granted, and the Board’s order is affirmed.
_________________________________
ANNE E. COVEY, Judge
12
IN THE COMMONWEALTH COURT OF PENNSYLVANIA
Kaylon Cowan, :
Petitioner :
:
v. :
:
Pennsylvania Parole Board, : No. 727 C.D. 2022
Respondent :
ORDER
AND NOW, this 25th day of August, 2023, Centre County Chief Public
Defender David Crowley, Esquire’s Application to Withdraw Appearance is
GRANTED, and the Pennsylvania Parole Board’s July 6, 2022 order is AFFIRMED.
_________________________________
ANNE E. COVEY, Judge