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UNITED STATES DISTRICT COURT
for the
DISTRICT OF NEW HAMPSHIRE

ROBERT FRESE
Plaintiff,
v.

Case No.: __________________

GORDON MACDONALD, in his official
capacity only as Attorney General of the
State of New Hampshire,
Defendant.

COMPLAINT FOR DECLARATORY AND INJUNCTIVE RELIEF
INTRODUCTION
New Hampshire’s criminal defamation statute, RSA 644:11, makes it a misdemeanor to
“purposely communicate[] to any person, orally or in writing, any information which [the
defendant] knows to be false and knows will tend to expose any other living person to public
hatred, contempt or ridicule.” Robert Frese, an outspoken resident of Exeter, New Hampshire, has
twice been arrested and charged with criminal defamation under the statute. Most recently, on May
4, 2018, the Exeter Police Department arrested Mr. Frese and charged him with criminal
defamation after he posted online comments stating that Exeter Police Chief William Shupe
“covered up for [a] dirty cop.”
Criminal defamation statutes like New Hampshire’s violate the First Amendment. These
laws must be considered “against the background of a profound national commitment to the
principle that debate on public issues should be uninhibited, robust, and wide-open, and that it may
well include vehement, caustic, and sometimes unpleasantly sharp attacks on government and

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public officials.” New York Times Co. v. Sullivan, 376 U.S. 254, 270 (1964). Because “erroneous
statement is inevitable in free debate,” defamation laws must provide the “breathing space” that
free expression “need[s] to survive.” Id. at 271–72 (citation and internal quotation marks omitted).
The Supreme Court’s “decisions since the 1960’s have narrowed the scope of the traditional
categorical exceptions for defamation.” R.A.V. v. City of St. Paul, 505 U.S. 377, 383 (1992). “The
emphasis has shifted from criminal to civil remedies, from the protection of absolute social values
to the safeguarding of valid personal interests. Truth has become an absolute defense in almost all
cases, and privileges designed to foster free communication are almost universally recognized.”
Curtis Publ’g Co. v. Butts, 388 U.S. 130, 151–52 (1967).
Criminal defamation laws like RSA 644:11 are inconsistent with the First Amendment.
The standard for determining whether speech is defamatory falls “far short of the reasonable
precision necessary to define criminal conduct.” Gottschalk v. State, 575 P.2d 289, 292 (Alaska
1978) (emphasis added). New Hampshire’s criminal defamation law gives the public far too little
guidance on what may constitute a crime, and gives law enforcement far too much discretion in
deciding whom to prosecute. “[T]he fear of being prosecuted under laws prohibiting false speech
may deter the promulgation of valuable and protected speech,” a concern that “is particularly acute
in the context of allegations of police misconduct.” State v. Allard, 148 N.H. 702, 706 (2003).
The public interest in preventing defamation is insufficient to justify the repressive effect
that criminal defamation laws impose on free expression. The award of damages in a civil action
provides an adequate remedy for the defamed individual. See Garrison v. Louisiana, 379 U.S. 64,
69 (1964). And, although prosecutions for so-called “seditious libel” against the government were
known at the time of the Star Chamber in England and the Alien & Sedition Act in the United
States, it is now widely recognized that “[t]he Constitution does not tolerate actions for libel on

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government.” Rosenblatt v. Baer, 383 U.S. 75, 91 (1966) (Stewart, J., concurring).
Accordingly, Mr. Frese brings a claim for declaratory and injunctive relief against the State
of New Hampshire. He seeks a ruling (i) declaring that RSA 644:11 facially violates the First
Amendment and (ii) permanently enjoining the State from enforcing the statute. He further alleges
as follows:
PARTIES
1.

Plaintiff Robert Frese lives in Exeter, New Hampshire. He has been twice been

arrested for and charged with criminal defamation. These consisted of the following: (i) a
prosecution in 2012 by the Hudson Police Department; and (ii) a prosecution in 2018 by the Exeter
Police Department.
2.

Defendant Gordon MacDonald is the Attorney General of the State of New

Hampshire. He is named in his official capacity. His office is located at 33 Capitol Street, Concord,
NH 03301. The Attorney General is the chief legal officer and chief law enforcement officer of
the State. He exercises “general supervision of the criminal cases pending before the supreme and
superior courts of the state, and with the aid of the county attorneys [he] shall enforce the criminal
laws of the state.” RSA 7:6. Law enforcement officers “shall be subject to the control of the
attorney general whenever in the discretion of the latter he shall see fit to exercise the same.” RSA
7:11.
JURSIDICTION AND VENUE
3.

This action arises under the First and Fourteenth Amendments to the U.S.

Constitution and 42 U.S.C. § 1983. This Court has subject-matter jurisdiction under 28 U.S.C. §§
1331 and 1343.
4.

Declaratory relief is authorized by 28 U.S.C. § 2201 and 28 U.S.C. § 2202.

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5.

The Defendant is a public official of the State of New Hampshire. The Defendant

resides within this District and/or performs official duties within the State of New Hampshire. This
Court, accordingly, has personal jurisdiction over the Defendant.
6.

Venue in the District of New Hampshire is based on 28 U.S.C. § 1391(b).
FACTS

Criminal Defamation Laws
1.

In Garrison v. Louisiana, the Supreme Court expressed disapproval of criminal

defamation laws, but observed that prosecutions under these laws had long since fallen “into virtual
desuetude,” as “the civil remedy had virtually pre-empted the field of defamation.” 379 U.S. 64,
69 (1964).
2.

Nonetheless, criminal defamation laws remain on the books in 25 states and the

U.S. Virgin Islands.

See Committee to Protect Journalists, Critics Are Not Criminals:

Comparative Study of Criminal Defamation Laws in the Americas 25–27 (2016),
https://cpj.org/x/675b. Penalties range from $500 to $10,000 and/or ten years in jail for certain
offenses, but the typical penalty is $1,000 and/or one year in jail. Id. Any criminal conviction
also carries a number of collateral penalties, including potential immigration consequences and
ineligibility for various employment and housing opportunities.
3.

Nationally, criminal defamation charges are disproportionately filed against people

who criticize public officials or government employees, especially law enforcement officers. One
study identified 23 criminal defamation prosecutions or threatened prosecutions for the period
from 1990-2002, 12 of which were deemed “political,” and 20 of which involved public figures or
issues of public controversy. George C. Lisby, No Place in the Law: The Ignominy of Criminal
Libel in American Jurisprudence, 9 Comm. L. & Pol’y 433, 467 (2004) (citing Russell Hickey, A

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Compendium of U.S. Criminal Libel Prosecutions: 1990-2002, Libel Defense Resource Center
Bull., Mar. 27, 2002, at 97)). Another study, focusing on Wisconsin, found that 39 percent of
criminal defamation prosecutions involved either public officeholders or government employees,
including numerous charges of sexual misconduct by law enforcement and probation officers.
David Pritchard, Rethinking Criminal Libel: An Empirical Study, 14 Comm. L. & Pol’y 303, 327–
33 (2009).
4.

Although criminal defamation prosecutions remain relatively rare, they have

increased with the rise of online speech. Edward L. Carter, Outlaw Speech on the Internet:
Examining the Link Between Unique Characteristics of Online Media & Criminal Libel
Prosecutions, 21 Santa Clara Computer & High Tech. L.J. 289, 298 (2005). In Wisconsin, one
study found that there were 21 criminal defamation prosecutions from 1991 through 1998, or
roughly 2.62 per year, none of which involved online speech. Pritchard at 316. From 1999 through
2007, there were 40 criminal defamation prosecutions, 18 of which involved the Internet. Id. at
317.
5.

If the trend continues, abetted by calls for government regulation of “fake news,”

criminal defamation laws could become regular tools for policing online discourse.
New Hampshire’s Criminal Defamation Statute
6.

New Hampshire’s criminal defamation statute, RSA 644:11, provides: “A person is

guilty of a class B misdemeanor if he purposely communicates to any person, orally or in writing,
any information which he knows to be false and knows will tend to expose any other living person
to public hatred, contempt or ridicule.”
7.

Criminal defamation under RSA 644:11 is a class B misdemeanor, which carries a

maximum penalty of a fine up to $1,200, see RSA 651:2, IV(a), plus a twenty-four percent penalty

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assessment. Police departments may initiate prosecutions under RSA 644:11 on their own
initiative, without input from an attorney. People charged under RSA 644:11 are not entitled to
court-appointed counsel if they are indigent.
8.

Records from the New Hampshire Judicial Branch reveal approximately 25 cases

between January 1, 2009 and December 31, 2017 in which a defendant was charged with criminal
defamation under RSA 644:11. See Exhibit A.
The 2012 Hudson Police Department Prosecution
9.

Mr. Frese was first charged with criminal defamation in May of 2012 by the Hudson

Police Department for, in part, repeatedly calling a life coach business a “scam” on Craigslist. See
Exhibit B, e.g., HUD010, 013-14, 021-22, 024-027, 029-39, and 047-053.
10.

Without the benefit of an attorney to advise him on his legal rights, Mr. Frese

pleaded guilty to criminal defamation under RSA 644:11 in August of 2012.

As part of his

sentence, Mr. Frese was fined $1,488 (with $1,116 suspended) and ordered to be on good behavior
for two years. Id. at HUD003-04.
The 2018 Exeter Police Department Prosecution
11.

On May 4, 2018, the Exeter News-Letter published online, including on its

Facebook page, an article entitled “Retiring Exeter Officer’s Favorite Role: Mentoring Youth.”
12.

Using the pseudonym “Bob William,” 1 Mr. Frese published a comment to this

article on the Exeter News-Letter’s Facebook page. The comment stated, in part, that “[t]his
[Officer D’Amato] is the dirtiest most corrupt cop that I have ever had the displeasure of knowing
[….] and the coward Chief [William] Shupe did nothing about it.” See Exhibit C, EXE091.
13.

1

That day, Chief William Shupe became aware of the comment and emailed the

William is Mr. Frese’s middle name.
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reporter who wrote the article, asking that the comment be removed. The Exeter News-Letter
complied and removed the comment. See Exhibit C, EXE084-85.
14.

After the Exeter News-Letter deleted Mr. Frese’s comment, Mr. Frese submitted

another comment under the pseudonym “Bob Exeter.” This comment stated in part: “The coward
Chief Shupe did nothing about it and covered up for this dirty cop. This is the most corrupt bunch
of cops I have ever known and they continue to lie in court and harass people …. ” See Exhibit
C, EXE092. This comment was forwarded by Chief Shupe to Detective Patrick Mulholland. See
Exhibit C, EXE019 (P. Mulholland May 9, 2018 Police Report, Paragraph 4), EXE026 (P.
Mulholland May 23, 2018 Arrest Warrant Affidavit, Paragraph 4).
15.

Mr. Frese’s speech was constitutionally protected under the First Amendment.

16.

Detective Mulholland discussed the investigation with Chief Shupe, who

“expressed his concern regarding the comments as they are false and baseless and were made in a
public forum.” See Exhibit C, EXE019 (P. Mulholland May 9, 2018 Police Report, Paragraph 6),
EXE026 (P. Mulholland May 23, 2018 Arrest Warrant Affidavit, Paragraph 4).

Detective

Mulholland and Chief Shupe reviewed the criminal defamation statute, RSA 644:11, and “believed
that Frese crossed a line from free speech to a violation of law.” Id.
17.

Detective Mulholland then spoke with Mr. Frese at the Exeter Police Station on

May 8, 2018.
18.

According to police reports, Detective Mulholland discussed the interview with

Chief Shupe. Chief Shupe denied being aware of criminal acts by Officer D’Amato and denied
covering up criminal conduct. Detective Mulholland determined that “no credible information
exists to believe that Ofc. D’Amato committed the acts Frese suggests.” See Exhibit C, EXE020
(P. Mulholland May 11, 2018 Police Report, Paragraph 5), EXE026-27 (P. Mulholland May 23,

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2018 Arrest Warrant Affidavit, Paragraph 10).
19.

On May 23, 2018, the Exeter Police Department drafted a complaint alleging that

Mr. Frese “purposefully communicated on a public website, in writing, information which he
knows to be false and knows will tend to expose another person to public contempt, by posting
that Chief Shupe covered up for a dirty cop.” See Exhibit C, EXE029 (Complaint).
20.

Detective Mulholland also completed an arrest warrant pursuant to RSA 644:11.

See Exhibit C, EXE024-27 (P. Mulholland May 23, 2018 Arrest Warrant Affidavit). The arrest
warrant was granted by the 10th Circuit Court—Brentwood—District Division (LeFrancois, J.) on
May 23, 2018. Id.
21.

On May 23, 2018, Mr. Frese turned himself into the police, after Detective

Mulholland advised him of the warrant. Mr. Frese was formally charged with criminal defamation
under RSA 644:11. See Exhibit C, EXE016 (P. Mulholland May 24, 2018 police report).
22.

Mr. Frese was given a court date of July 10, 2018. Id. One of Mr. Frese’s bail

conditions was “no contact with Interested Parties,” which barred Mr. Frese from contacting Chief
Shupe. See Exhibit C, EXE088. Mr. Frese was also ordered to refrain from possession a firearm,
destructive device, dangerous weapon or ammunition, and to refrain from excessive use of alcohol.
See id.
23.

News about Mr. Frese’s arrest and prosecution caused significant public

controversy. See Exhibit C, EXE069-70.
24.

On June 4, 2018, the New Hampshire Attorney General’s Civil Rights Division

criticized the Department’s decision to arrest and charge Mr. Frese. See Exhibit C, EXE008-013
(DOJ June 4, 2018 Memo.).
25.

On June 7, 2018, the Exeter Police Department dismissed Mr. Frese’s charge under

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RSA 644:11.
26.

At the time of his arrest, Mr. Frese was subject to a “good behavior” condition on a

suspended sentence from another case. A conviction under RSA 644:11 could have constituted a
violation of “good behavior,” and resulted in Mr. Frese’s imprisonment.
27.

Based on his two prior arrests under the statute, Mr. Frese reasonably fears future

prosecution under RSA 644:11 for his speech. He especially fears that he will be arrested and/or
prosecuted for speech criticizing law enforcement and other public officials.
CLAIM FOR RELIEF
COUNT I
42 U.S.C. § 1983 – FIRST AMENDMENT
28.

All prior paragraphs are incorporated.

29.

The First Amendment to the United States Constitution prohibits abridgment of

freedom of speech.
30.

The First Amendment is applied to the states through the Fourteenth Amendment.

31.

RSA 644:11 is unconstitutionally vague. “Vagueness may invalidate a criminal law

for either of two independent reasons. First, it may fail to provide the kind of notice that will enable
ordinary people to understand what conduct it prohibits; second, it may authorize and even
encourage arbitrary and discriminatory enforcement.” City of Chicago v. Morales, 527 U.S. 41, 56
(1999). Because a vague statute that “abut(s) upon sensitive areas of basic First Amendment
freedoms . . . operates to inhibit the exercise of (those) freedoms,” Grayned v. City of Rockford,
408 U.S. 104, 109 (1972), courts require a “greater degree of specificity” when evaluating statutes
that implicate First Amendment rights, Buckley v. Valeo, 424 U.S. 1, 77 (1976).
32.

RSA 644:11 fails to provide the reasonable precision necessary to define criminal

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conduct. The statute applies to intentionally false and defamatory statements. Statements that are
deliberately false, but are not defamatory are protected under the First Amendment. United States
v. Alvarez, 567 U.S. 709 (2003). But “[w]hether an utterance is defamatory depends on the values
of the listener[,] …. and it is not always easy to predict what will be taken as defamatory.”
Gottschalk, 575 P.2d at 293. Furthermore, even ostensibly false and defamatory statements may
be protected speech if they constitute satire, parody, or rhetorical hyperbole. Hustler Magazine v.
Falwell, 485 U.S. 46 (1988); Philadelphia Newspapers, Inc. v. Hepps, 475 U.S. 757 (1986).
33.

Thus, although deliberately false and defamatory statements of fact are not

protected by the First Amendment, the line between protected speech and unprotected defamation
is inherently blurry. As a result, it is often almost impossible for a speaker to determine in advance
whether their speech would be considered unprotected defamation or protected expression. Civil
law may permit such ambiguities, but criminal laws must be held to a higher standard of definition.
See Hoffman Estates v. Flipside, Hoffman Estates, Inc., 455 U.S. 489, 498–99 (1982) (stating that
the Court has “expressed greater tolerance of enactments with civil rather than criminal penalties
because the consequences of imprecision are qualitatively less severe”).
34.

Without a well-defined standard of criminal responsibility, law enforcement

officials and juries are given nearly unfettered discretion to apply their own standards. Criminal
defamation laws are thus susceptible to arbitrary, uneven, and selective enforcement.
35.

Mr. Frese’s recent prosecution under RSA 644:11 demonstrates the problem. On

information and belief, individuals throughout New Hampshire routinely violate the criminal
defamation statute, but Mr. Frese was arrested and prosecuted because he criticized law
enforcement officials. The use of criminal defamation laws to prosecute the government’s critics
“is both the hallmark and the vice of a vague criminal statute.” Gottschalk, 575 P.2d at 294–95.

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36.

The State’s interest in preventing defamation is insufficient to justify the repressive

effects that RSA 644:11 imposes on free expression.
RELIEF REQUESTED
WHEREFORE, Plaintiff Robert Frese respectfully requests that this Court:
A.
Declare that RSA 644:11 is facially unconstitutional in violation of the First and
Fourteenth Amendments to the United States Constitution;
B.
Permanently restrain and enjoin the Defendant—including all of Defendant’s
officers, troopers, agents, servants, employees, attorneys, and other persons in active concert or
participation with Defendant, including but not limited to every New Hampshire County
Attorney, municipal prosecutor, police prosecutor, or peace officer—from enforcing RSA
644:11;
C.

Award Plaintiff attorneys’ fees in this action pursuant to 42. U.S.C. § 1988(b);

D.

Award Plaintiff its costs of suit; and

E.
Grant such other and further relief as this Court deems just and proper in the
circumstances.
Respectfully submitted,
ROBERT FRESE,
By and through his attorneys affiliated with the
American Civil Liberties Union of New Hampshire
Foundation and the American Civil Liberties Union
Foundation,
/s/ Gilles R. Bissonnette
Gilles R. Bissonnette (N.H. Bar. No. 265393)
Henry R. Klementowicz (N.H. Bar No. 21177)
AMERICAN CIVIL LIBERTIES UNION OF NEW
HAMPSHIRE
Concord, NH 03301
Tel.: 603.224.5591
gilles@aclu-nh.org
henry@aclu-nh.org

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Brian Hauss*
Emerson Sykes*
AMERICAN CIVIL LIBERTIES UNION FOUNDATION
ACLU Speech, Privacy, and Technology Project
125 Broad Street, 18th Floor
New York, NY 10004
Tel.: 212.549.2686
bhauss@aclu.org
esykes@aclu.org
John M. Greabe (N.H. Bar No. 18706)
296 Gage Hill Road
Hopkinton, NH 03229
Tel.: 603.513.5191
john@greabe-law.com
Lawrence A. Vogelman, Esq. (N.H. Bar No. 10280)
NIXON, VOGELMAN, BARRY, SLAWSKY & SIMONEAU,
P.A.
77 Central Street
Manchester, NH 03101
Tel.: 603.669.7070
lvogelman@davenixonlaw.com
* pro hac vice application forthcoming
Date: December 18, 2018

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