In the early and mid-1980s, petitioner John Hudson was the chairman and controlling shareholder of the First National Bank of Tipton and the First National Bank of Hammon.
During the same period, petitioner Jack Rackley was president of Tipton and a member of the board of directors of Hammon. Petitioner Larry Baresel was a member of the board of directors of both Tipton and Hammon.
An examination of Tipton and Hammon led the Office of the Comptroller of the Currency to conclude that petitioners had used their bank positions to arrange a series of loans to third parties. Those loans violated federal banking statutes and regulations. According to the OCC, those loans were in reality made to Hudson in order to enable him to redeem bank stock that he had pledged as collateral on defaulted loans. The illegal loans resulted in losses to Tipton and Hammon of almost $900,000 and contributed to the failure of those banks.
On February 13, 1989, OCC issued a Notice of Assessment of Civil Money Penalty. The notice alleged that petitioners had violated 12 U.S.C. §§ 84(a)(1) and 375b and related regulations by causing the banks to make loans to nominee borrowers in a manner that unlawfully allowed Hudson to receive the benefit of the loans. OCC assessed penalties of $100,000 against Hudson and $50,000 each against Rackley and Baresel. On August 31, 1989, OCC also issued a Notice of Intention to Prohibit Further Participation against each petitioner.
In October 1989, petitioners resolved the OCC proceedings against them by each entering into a Stipulation and Consent Order. These consent orders provided that Hudson, Baresel, and Rackley would pay assessments of $16,500, $15,000, and $12,500 respectively. In addition, each petitioner agreed not to participate in any manner in the affairs of any banking institution without the written authorization of the OCC and all other relevant regulatory agencies.
In August 1992, petitioners were indicted in the Western District of Oklahoma in a 22-count indictment on charges of conspiracy, misapplication of bank funds, and making false bank entries. The violations charged in the indictment rested on the same lending transactions that formed the basis for the prior administrative actions brought by OCC. Petitioners moved to dismiss the indictment on double jeopardy grounds, but the District Court denied the motions. The Court of Appeals affirmed the District Court's holding on the nonparticipation sanction issue, but vacated and remanded to the District Court on the money sanction issue. The District Court on remand granted petitioners' motion to dismiss the indictments. This time the Government appealed, and the Court of Appeals reversed. The Supreme Court granted certiorari because of concerns about the wide variety of novel double jeopardy claims spawned in the wake of Halper.
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