Testimonial Business Records -- Yet Another Category For Confrontation Clause Analysis?

Alain Leibman writes:

This author has on several occasions examined the interesting and unpredictable path traced by the Supreme Court’s recent Confrontation Clause jurisprudence, both in blog posts (here and here and here) and in longer form analyses. The Court's shift in position from one relegating the Confrontation Clause to a role secondary to that of the hearsay rules, to one assigning the constitutional provision a preeminent position in weighing the admissibility of many kinds of trial evidence has left lower courts struggling to analyze the correct evidentiary treatment in specific cases.

While noting in Crawford v. Washington, 541 U.S. 36 (2004), that most out-of-court statements, written or verbal, are subject under the Confrontation Clause to cross-examination at trial if they are "testimonial" in nature, the Court held that the constitutional right to cross-examination did not reach classic forms of "nontestimonial" evidence such as business records. Id. at 56. But what does it mean to be “testimonial” or "nontestimonial"? The Crawford Court described "testimonial" statements as including those made under circumstances supporting the objective belief that they were created or recorded for use at a later trial. Id. at 51-52. What to make, then, of a business record, such as a form kept in the files of a government agency and used to determine benefits eligibility, which serves multiple purposes?

The answer, according to United States v. Berry, 2012 WL 2098902 (9th Cir., June 12, 2012), is not entirely clear. The Berry case involved a conviction for social security benefits fraud; on the issue of Berry’s knowledge of the law, the trial court admitted into evidence benefits-application records of the Social Security Administration which purported to show that an agency employee had in an interview with Berry reviewed his legal obligations regarding the receipt and disbursement of benefits payments, although no form was signed by Berry himself. The forms were, according to one testifying agency witness, routinely completed as part of the benefits application process, not in anticipation of a trial. The interviewer-employee did not testify and apparently had been fired prior to trial for general incompetence. Berry's attorney objected to the admission of the government records, arguing that they were testimonial under the Confrontation Clause, and that he should have had the opportunity to cross-examine the interviewer-employee in order to establish that the forms were inaccurate and did not reflect information provided to the defendant.

The majority of the Ninth Circuit panel upheld the conviction and, specifically, the admission of the SSA exhibits as government records on the ground that they were "routine, administrative documents prepared by the SSA for each and every request for benefits." They were unsworn and "there was no anticipation that the documents would become part of a criminal proceeding," so they were nontestimonial.

The dissent argued that each of the records contained pre-printed statements acknowledging that any false statements to the SSA would be punishable as crimes and that the benefits applicant would be personally liable for repayment of improperly obtained or spent benefits. Acknowledging that some portion of the records may have had utility other than for the purpose of proof of fraud at a trial, the dissent maintained that "[i]t is hard to imagine what purpose including these statements in these documents could serve aside from establishing an applicant's knowledge of the law for a future showing of willful violation." Because the agency employee did not testify, Berry was left unable to cross-examine anyone about the veracity of the statements in the documents for which he was held responsible, and so their admission violated the Confrontation Clause.
 

 

(Alain Leibman, Esq., the author of this entry and a co-author of this blog, is a partner with Fox Rothschild LLP, based in our Princeton, NJ office. A former decorated federal prosecutor, he practices both criminal defense and commercial litigation in federal and state courts)

Crawford requires that co-conspirator statements to informants be tossed

Since the seismic shift in Confrontation Clause jurisprudence effected by Crawford v. Washington, 541 U.S. 36 (2004), lower courts have struggled to define precisely which "testimonial statements" are now excluded from evidence unless the government can show both that the declarant is unavailable to testify at trial and there was a prior opportunity for cross-examination of the declarant. The Crawford Court did not define the term "testimonial" exhaustively, leading to some confusion in the ranks.  The Court's more recent jurisprudence has been unpredictable, such as its decision last year that the Confrontation Clause requires the government to present live testimony in order to admit lab test results in drug and other cases.

In at least one major category of government-developed evidence, it appears that lower court confusion has led to lower court error in applying Supreme Court precedent. Lower courts have since Crawford generally treated as nontestimonial, and thus impervious to Confrontation Clause objection, co-conspirator statements made to and often recorded by government informants. Recently, for example, the Sixth Circuit held in United States v. Johnson, 581 F.3d 320 (6th Cir. 2009) that statements made by Johnson's co-conspirator, O'Reilly, to a government informant were admissible against Johnson. They qualified as an exception to the hearsay rule under FRE 804(b)(3) as statements against penal interest, where O'Reilly was presumed unavailable to testify because he was likely to assert his Fifth Amendment privilege. As for the Confrontation Clause, the court of appeals held that O'Reilly's statements were nontestimonial because they were not made in response to police interrogation. Id. at 325-26.

The Sixth Circuit cited other, post-Crawford decisions which have likewise held that co-conspirator statements to informants are nontestimonial under the Sixth Amendment. For example, the Third Circuit in United States v. Hendricks, 395 F.3d 173 (3d Cir. 2005), held that statements of co-conspirators made to a CI were admissible under the Confrontation Clause. What underlies the holdings in these cases is the essential proposition that answering the questions of and responding to a government informant is different for Sixth Amendment purposes than making the same type of statements to a known government representative, as in a formal interview with an agent or police officer. The problem with this proposition is that the Supreme Court's Sixth Amendment jurisprudence shows it to be unfounded.

In Massiah v. United States, 377 U.S. 201 (1964), the Court long ago held that it was a violation of the Sixth Amendment to admit at trial the statements of the defendant made to a government informant after he had been arrested and his right to counsel had attached. To the argument that there was a meaningful difference under the Sixth Amendment between post-charge interrogation by the police and interrogation by an informant working for the police, the Court said unequivocally:

It is true that in the Spano [v. New York] case [excluding a post-indictment confession] the defendant was interrogated in a police station, while here the damaging testimony was elicited from the defendant without his knowledge while he was free on bail. But [the Sixth Amendment rule] must apply to indirect and surreptitious interrogations as well as those conducted in the jailhouse.

Under Massiah, then, the distinction drawn in cases like Johnson and Hendricks based on whether the interrogator is or is not wearing a uniform and carrying a badge is a meaningless one. If the person to whom statements are made is either a law enforcement agent or one doing the bidding of law enforcement, then those statements should be deemed "testimonial" under the Sixth Amendment and they should not be admitted unless the declarant is unavailable at trial and was subject to cross-examination about the statement at an earlier time. The second element of that test will never been met in the informant situation and those statements should be thrown out.
 

New Jersey's Supreme Court Explores Parameters of Crawford

In three recent decisions, the New Jersey Supreme Court considered and applied the parameters of the United States Supreme Court case of Crawford v. Washington, 541 U.S. 36 (2004) to similar, but distinct questions of evidence admissibility.  In Crawford, the Court held that under the Confrontation Clause of the Sixth Amendment, “[t]estimonial statements of witnesses absent from trial have been admitted only where the declarant is unavailable and only where the defendant has had a prior opportunity to cross examine.”  Id. at 59.  The three New Jersey Supreme Court opinions, State v. Ryan Buda (A-45/5-07), State in the Interest of J.A. (A-2-07), and State v. William Sweet (A-1-07)/State v. James Dorman (A-38-07), required the court to consider whether certain types of evidence ran afoul of the Confrontation Clause and the holding in Crawford.

 

In State v. Ryan Buda, the court was asked to evaluate whether two separate hearsay statements made by a severely abused child were “testimonial” under Crawford and therefore inadmissible without the child testifying and being subjected to cross examination.  The first statement made by the child – “Daddy beat me” – was made to the child’s mother.  The second statement – “Dad says nobody beat me.  I fell when I was sleeping in my room.” – was made to a representative of the Division of Youth and Family Services (DYFS) who was called in to speak to the child after he had been hospitalized for injuries.  Buda was charged with three counts of second degree endangering the welfare of a child and one count of third degree aggravated assault, and the child did not testify at trial.  The trial court held that both statements were excited utterances and admissible.  On appeal, the appellate division affirmed that the statements were excited utterances, and further found that the statement to the child’s mother was admissible but the statement to the DYFS worker was testimonial and inadmissible because the child did not testify at Buda’s trial and was not subject to cross examination.

 

The New Jersey Supreme Court affirmed in part and reversed in part, holding that the trial court was correct in admitting the statements into evidence as “excited utterances” under N.J.R.E. 803(c)(2) [FRE 803(2)] and, further, that the statements were not testimonial and did not violate the Confrontation Clause.  All parties agreed that the child’s statements were hearsay, and the court easily held that the statement to the mother was an excited utterance.  The statement to the DYFS worker presented a “closer question,” but was still an excited utterance, considering the context in which it was delivered and the time and circumstances that elapsed between the child’s abuse that day and when the statement was made.  Moving to the Crawford analysis, the court concluded that the child’s statement to his mother was nontestimonial because it did not “bear the indicia of a ‘formal statement to government officers’” and instead was more like “ ‘a casual remark to an acquaintance.’”  Buda at p. 32 (citing Crawford, 541 U.S. at 51).  It then considered whether the child’s statement to the DYFS worker was nontestimonial.  The court rejected the conclusion that the DYFS worker stood in the shoes of a polices officer and therefore, the statement was the result of a policy inquiry.  Instead, the court believed that the DYFS worker, in questioning the child, was confronted with a battered child who needed protection from the adults charged with his care, and the worker took the necessary steps to attain that protection.  Her question to the child was designed to elicit information that would help her determine how to remove the threat of continued bodily harm, and possibly even death, to the child.  The court noted that the primarily obligation of a DYFS worker is “to protect prospectively a child in need” and “not to collect evidence of past events to secure the prosecution of an offender.”  Buda at p. 34.  The court drew an analogy to Davis v. Washington, 547 U.S. 813 (2006), where the United States Supreme Court held that a statement during a 911 call was nontestimonial, even though made in the course of a police interrogation, because the primary purpose was to enable police to meet an ongoing emergency.  Accordingly, the New Jersey Supreme Court concluded that both of the child’s statements were excited utterances and nontestimonial, and therefore admissible.

 

In State in the Interest of J.A. (A-2-70), the New Jersey Supreme Court tackled the issue of whether statements made by a non-testifying witness, to a police officer, and describing a robbery that had been committed ten minutes earlier and the witness’ subsequent pursuit of the robbers, were admissible.  In this case, two juveniles robbed a woman and ran off with her purse.  A police officer responded to the scene and eventually found a witness to the robbery about a block and a half away from where the robbery took place.  At trial, the officer was allowed to testify about the witness’ account of the robbery as a present sense impression, and therefore an exception to the hearsay rule under N.J.R.E. 803(c)(1) [FRE803(1)].  The witness did not testify.  Likely due in large part to the statements made by the non-testifying witness, the family court adjudicated J.A. as delinquent and the appellate division affirmed that adjudication.  The appellate division concluded that the witness’ statements were admissible under the present sense impression and the excited utterance exceptions to the hearsay rule, and, further, that the admission of those statements did not violate the Confrontation Clause.  The appellate division concluded that the witness’ statements were nontestimonial because “an ‘objective witness’ would not have reasonably believed they would be available for use in a later trial.”  The Supreme Court then held that the witness’ hearsay statements were a narrative of past events, and that neither the declarant, nor the victim were in imminent danger when the statements were made, and therefore ineligible for an exception to the hearsay rule.  The court further found that the statements were testimonial and the admission of such statements violated the defendant’s Sixth Amendment rights because the witness was not produced at trial and subject to cross examination.

 

In reaching its conclusion, the Supreme Court held that the witness’ statements conveying the details of a robbery that had occurred ten minutes earlier did not describe the crime “immediately after” it occurred, and therefore, were not admissible under the present sense exception.  The Supreme Court then clarified that a statement which does not qualify for admission under a present sense exception can be admissible as an excited utterance, but the facts elicited on the record in this case did not support such a conclusion.  Finally, the court moved on to the Confrontation Clause question, noting the “seismic shift” in modern jurisprudence on the subject created by Crawford.  The court explained that the non-testifying witness in this case described “what had happened” to the officer, and that at that time, there was no ongoing emergency or immediate danger.  The Supreme Court then concluded that a narrative delivered after a crime has been completed and after the conclusion of any imminent danger to the declarant or someone else, is testimonial.  J.A. at p. 32.  The court also held that the witness’ statements to the police officer met the formality and solemnity requirements of Crawford and that the out-of-court statement was the equivalent of in-court testimony, without being subject to cross examination.  Id. at 34.  All of these factors led to the conclusion (with little difficulty) that the witness’ statements to the police officer were testimonial and the admission of that testimony violated the defendant’s Sixth Amendment right to confrontation.  Id. at 35.

 

Finally, in State v. William Sweet (A-1-07) and State v. James Dorman (A-33-07), the court addressed whether the introduction into evidence of foundational documents concerning the operational status of a Breathalyzer machine used to attain two separate driving while intoxicated convictions violated the defendants’ right to confront a witness against them.

 

At trial, defendant William Sweet (charged with driving while intoxicated and assorted other traffic violations) challenged the admissibility of two “Certificates of Analysis – Breath Alcohol Reagent Ampoule” that were prepared by a laboratory and concerned certain reagent ampoules used in the breathalyzer on the basis that the certificates were inadmissible hearsay.  Likewise, defendant James Dorman, also charged with driving while intoxicated, challenged the admissibility of two “Breath Testing Instrument Inspection Certificates,” claiming that the documents were testimonial and inadmissible under the Confrontation Clause.  All documents were admitted at the municipal court level.

 

On appeal, the New Jersey Supreme Court held that the ampoule testing certificates in Sweet and the inspection certificates in Dorman were hearsay statements.  However, those “statements” were admissible under the business records exception to the hearsay rule, codified at N.J.R.E. 803(c)(6) [FRE 803(6)].  In order to qualify under this exception to the hearsay rule, the court explained that the proponent must satisfy three conditions: (1) the writing is made in the regular course of business; (2) the writing must be prepared within a short time of the act, condition, or event described; and (3) the source of the information and the method and circumstances of the preparation of the writing must justify allowing it into evidence.  State v. Sweet, State v. Dorman, at p. 17.  The court concluded that all of the certificates that were the subject of these appeals qualified as business records.

 

Further, the court held that the records were nontestimonial under Crawford and, accordingly, admissible under the Confrontation Clause.  Regarding the Crawford analysis, the court noted that, under the jurisprudence of that case, business records are considered, by their nature, to be nontestimonial, and consequently, usually not implicating the Confrontation Clause.  The court agreed that these certificates were nontestimonial because neither of them “related to or reported a past fact”, and neither of them was “generated or prepared in order to establish any fact” that was an element of the offense.  Id. at p. 21.  The court unanimously affirmed the convictions of both Sweet and Dorfman.