Opinion ID: 2616670
Heading Depth: 1
Heading Rank: 1

Heading: STATE v. MATTHEWS

Text: Each of the Defendants in this case was arrested for a suspected DWI violation. As part of the investigation, the Defendants each submitted to a DataMaster chemical breath analysis and registered a breath alcohol content above the legal limit of .10 percent. When DWI charges were brought in the Shoreline Division of King County District Court, counsel for the Defendants submitted pretrial motions for suppression of the DataMaster results on the grounds, among others, that their due process rights were violated by the State's failure to preserve maintenance and repair records on the DataMaster machines. Because the cases involved identical issues, they were consolidated for a suppression hearing. Rather than submit new expert testimony on the issues in this case, the parties stipulated to a record consisting primarily of the transcripts from two similar cases in Bellevue and Renton District Courts. The extensive detailed testimony addresses the technology of the DataMaster machines, the relevance and value of various DataMaster records, and the circumstances surrounding the development of the new Washington Administrative Code procedures for DataMaster operation and maintenance. Under RCW 46.61.506(3), the State Toxicologist has the delegated authority to approve breath testing procedures and protocols and has recently drafted revised protocols and procedures for breath testing to reflect the switch to the updated DataMaster technology. The new procedures became effective in 1991 and are found in WAC 448-13. Under WAC 448-13-050, the accuracy of the DataMaster test results is ensured by adherence to specific testing procedures. For example, before a breath test is performed, the DataMaster operator must observe the individual for 15 minutes and check his or her mouth for substances that might affect the test. When testing begins, a blank test is conducted to ensure that the internal air of the DataMaster chamber contains no alcohol from a previous test that could interfere with the current results. Next, the individual blows into the machine, and the first breath sample is tested, followed by another blank test. At this point, a specially prepared simulator solution with a known alcohol content is tested to verify that the DataMaster is correctly performing the chemical analysis. After a third blank test, the individual gives another breath sample followed by a final blank test. The results of these tests are printed out on a breath ticket. In order to be considered valid, the entire test must be performed following all protocol, the blank tests must register a 0.00 alcohol content, the results of the two breath samples must be within plus or minus 10 percent of the average of the two measurements, and the reading from the simulator test must be within 10 percent of the known alcohol content. WAC 448-13-050, -060. In addition to the breath test protocol, the State Toxicologist has developed a quality assurance protocol (QAP) designed to ensure the DataMasters are maintained in proper working order on a regular basis. See WAC 448-13-110. Under the QAP, a DataMaster is officially approved for use only after a thorough inspection of its components. Such an inspection is also required at least every 12 months and after most repairs. Under the new QAP, the actual procedures used to evaluate and approve the DataMasters closely resemble those previously used to certify the Breathalyzer machines. The State's record-keeping policies, however, have been revised. For example, specific data from the inspections is no longer recorded. Instead of recording information such as initial voltage values, adjusted voltage values, and calibration factors, the technicians merely indicate that the required tests were performed with satisfactory results by checking a box on the inspection forms. The Defendants contend that these detailed inspection records, along with additional repair and maintenance records no longer generated by the State, are necessary to their defense. In support of this contention, the defense presented the testimony of two experts, Dr. Richard Jensen, forensic scientist, and Carol Murren, former employee of the State Toxicologist. The experts essentially testified that all records of machine malfunctions and repairs would be useful and should be retained in order to assist the defense in challenging the reliability of the DataMasters. The District Court suppressed the results of the Defendants' BAC Verifier DataMaster breath test results on the ground that the State, by no longer generating certain maintenance repair records, deprived the Defendants of due process of law under both the Fourteenth Amendment and article 1, section 3 of the Washington State Constitution. The State filed a RALJ appeal in King County Superior Court, but before the appeal was heard, the Court of Appeals granted a motion for direct review. The appeal was then certified to this court and linked for oral argument with two similar cases. We find that neither federal nor state due process requires state law enforcement agencies to keep additional DataMaster records, and, therefore, we reverse the District Court's suppression order. In recent years we have left open the question of whether the due process clause of our state constitution places more stringent requirements on the State in the area of preservation of evidence for the defense. See State v. Furman, 122 Wn.2d 440, 858 P.2d 1092 (1993); State v. Ortiz, 119 Wn.2d 294, 831 P.2d 1060 (1992); State v. Straka, 116 Wn.2d 859, 810 P.2d 888 (1991). Today, after consideration of the six factors set out in State v. Gunwall, 106 Wn.2d 54, 720 P.2d 808, 76 A.L.R.4th 517 (1986), we hold that the state due process clause affords the same protection regarding a criminal defendant's right to discover potentially exculpatory evidence as does its federal counterpart. [1] The Fourteenth Amendment requires that criminal prosecutions conform with prevailing notions of fundamental fairness, and that criminal defendants be given a meaningful opportunity to present a complete defense. California v. Trombetta, 467 U.S. 479, 81 L.Ed.2d 413, 104 S.Ct. 2528 (1984). To comport with due process, the prosecution has a duty to disclose material exculpatory evidence to the defense and a related duty to preserve such evidence for use by the defense. See Brady v. Maryland, 373 U.S. 83, 10 L.Ed.2d 215, 83 S.Ct. 1194 (1963); California v. Trombetta, supra . [2] Two Supreme Court cases, California v. Trombetta, supra , and Arizona v. Youngblood, 488 U.S. 51, 102 L.Ed.2d 281, 109 S.Ct. 333 (1988), developed a test to determine whether the government's failure to preserve evidence significant to the defense violates a defendant's due process rights. It is clear that if the State has failed to preserve material exculpatory evidence criminal charges must be dismissed. Recognizing that the right to due process is limited, however, the Court has been unwilling to impos[e] on the police an undifferentiated and absolute duty to retain and to preserve all material that might be of conceivable evidentiary significance in a particular prosecution. Youngblood, 488 U.S. at 58. A showing that the evidence might have exonerated the defendant is not enough. In order to be considered material exculpatory evidence, the evidence must both possess an exculpatory value that was apparent before it was destroyed and be of such a nature that the defendant would be unable to obtain comparable evidence by other reasonably available means. Trombetta, 467 U.S. at 489. In Trombetta, the evidence at issue consisted of several DWI defendants' breath test samples tested by the State and then discarded. Applying its test, the Court held that the destroyed breath samples were not material exculpatory evidence and reinstated the DWI convictions. The Court found the exculpatory value of the samples to be quite low, pointing out that given the accuracy of California's Intoxilyzer the breath test samples would have been much more likely to be inculpatory than exculpatory. Trombetta, 467 U.S. at 489-90. Furthermore, the Court found that the defendants had means, other than retesting the original breath samples, to demonstrate their innocence. Trombetta, 467 U.S. at 490. In similar circumstances, we held in State v. Straka, supra , that due process did not require the State to generate and preserve records of invalid message codes on the DataMasters. These messages appear to alert the operator that the DataMaster is unable to perform a reliable test due to either an electrical misadjustment or the presence of mouth alcohol. Straka, 116 Wn.2d at 879. We found the invalid sample messages were not material exculpatory evidence because they do not confirm or deny the accuracy of a particular breath test and, thus, are not directly related to guilt or innocence of an individual charged under the DWI statute. Straka, 116 Wn.2d at 885. [3] Likewise, we find that the maintenance and repair records sought by the Defendants in this case are not directly related to the accuracy of a particular breath test. Unlike the breath test ticket, which contains specific information regarding the accuracy of each DataMaster reading, evidence of past repairs is only tangentially related to whether the machine is properly functioning on a given day. Any additional repair and maintenance records would merely be used by the defense to discredit the general reliability of the DataMaster results. Moreover, DWI defendants have alternative means of attacking the credibility of DataMaster breath tests, including cross examination of the DataMaster operator regarding operator error, expert testimony regarding the DataMaster machines and infrared spectroscopy, as well as evidence of additional independent breath or blood tests obtained under RCW 46.61.506(5). To further assist them in their defense, the defendants have access to protocols, the Washington State Patrol policy manual, the qualifications of the DataMaster operator and the breath test ticket itself, which contains a detailed record of the DataMaster breath test results, including the readings of the blank tests and the tests of the simulator solution. See WAC 448-13-130; Straka, 116 Wn.2d at 875. [4] Thus, applying the Youngblood test, we find that the maintenance and repair records at issue in this case do not rise to the level of material exculpatory evidence and are, at best, only potentially useful to the defense. Under the Fourteenth Amendment, failure to preserve potentially useful evidence does not constitute a denial of due process unless a criminal defendant can show bad faith on the part of the State. Youngblood, 488 U.S. at 58. The Defendants concede that the State in this case has acted in compliance with its established policy regarding the evidence at issue, a fact that we have found in the past to be determinative of good faith. See Ortiz, 119 Wn.2d at 302. Cf. Trombetta, 467 U.S. at 488. They argue, however, that here, unlike a typical preservation of the evidence case, the normal procedures themselves constitute a pattern of bad faith designed by the State to systematically deny DWI defendants access to useful evidence. They contend that it is patently unfair for the State to rely heavily on DataMaster test results to obtain DWI convictions on one hand, while simultaneously limiting the universe of evidence that the defense can use to challenge those test results. The Defendants also allege the State no longer keeps certain maintenance and repair records because defense attorneys have used them successfully to challenge DWI prosecutions in the past. They point to meetings between the State Toxicologist and prosecuting attorneys, arguing that the new protocols were drafted with a prosecutorial bias. The record reveals, however, that the defense bar also had opportunity to voice concerns regarding the proposed changes in protocol and the promulgation of WAC 448-13. [5] The fact that the State Toxicologist was aware the criminal defense bar was opposed to the changes in record-keeping policy and that defense counsel had found the old records useful does not lead us to conclude the State acted in bad faith when it made the changes. Rather, our review of the record convinces us the State Toxicologist was acting in good faith and pursuant to his statutorily delegated authority when he opted to revise the breath testing protocol and update the State's record-keeping procedures. The protocols contained in WAC 448-13 represent a good faith effort on the part of the State to verify that the DataMasters are in good working order and are performing accurate chemical breath analysis each time an individual is tested. Furthermore, the fact that the State has ceased to keep records it kept in the past does not in itself constitute a showing of bad faith. The Defendants have failed to convince us the State's reduction in the amount of data retained from the results of the various tests performed on a DataMaster during a QAP inspection was improperly motivated. Specifically, the defense requested voltage values, frequencies and distances used to test radio frequency interference, values used to detect acetone, and previous calibration factors, all of which are no longer retained by the State. The State has not made any changes to the battery of tests performed on the DataMasters, and elimination in the records of the specific statistics and numerical values obtained from these tests is not inherently evil. In fact, the record shows that given the DataMaster technology, the State no longer had use for the specific readings. For example, the records of voltage values are no longer needed because any voltage fluctuations affecting a breath test would show up on the breath test ticket at the time of a test. In maintaining it acted in good faith, the State has provided logical and valid reasons for other changes in its record-keeping policies as well. For example, the telephone complaint forms requested by the defense were previously filled out each time a problem with a DataMaster was reported. Initially designed to provide the repair technicians with specific information regarding a malfunction, the forms were useless in practice because the technicians rarely received the forms until after they had repaired the malfunctioning machine. This indicates the State's elimination of the forms did not stem from bad faith. The defense also requested records of repairs to DataMaster circuit boards completed by Mark Stone, an electrician employed by the Washington State Patrol. Trooper Stone does not keep the notes from the technicians, which are often attached to the boards to alert him to the possible cause of the malfunction, because they often do not reflect the actual problem with the board. These notes would be of little value to the defense, and failure to keep these notes does not constitute bad faith. Once the boards have been repaired and placed into a machine, the DataMaster must again undergo a complete inspection to verify that it is functioning properly before it can be approved for use in the field. WAC 448-13-050. Records of this QAP inspection are available to the defense. In our view, the records currently available to the defense contain ample information regarding the condition of the DataMasters. The new protocols, coupled with the improved DataMaster technology, create a system of accurate and reliable chemical breath analysis. Absent a more convincing showing by the defense, we make no finding of bad faith and, thus, find no due process violation. Next, we move to the issue of our state constitution. Defendants argue that the State's failure to generate and preserve the requested maintenance and repair records violates their due process rights under article 1, section 3 of the Washington State Constitution. They urge us to employ the reasonable balance analysis of State v. Vaster, 99 Wn.2d 44, 659 P.2d 528 (1983) and State v. Wright, 87 Wn.2d 783, 557 P.2d 1 (1976), which would not necessarily require a finding of bad faith for suppression of potentially exculpatory evidence. As we held in State v. Straka, supra , however, the analysis in those cases was based on federal constitutional principles and, thus, to this extent is no longer valid under the holdings of Trombetta and Youngblood. Straka, 116 Wn.2d at 883. In order to be revived, Vaster's reasonable balance test must be supported by an independent state constitutional analysis. [6] In State v. Gunwall, 106 Wn.2d 54, 720 P.2d 808, 76 A.L.R.4th 517 (1986), we enumerated six nonexclusive neutral criteria that must be addressed before we will engage in state constitutional analysis: (1) the textual language of the state provision; (2) significant differences in the federal and state texts; (3) state constitutional history; (4) preexisting state law; (5) structural differences between the federal and state constitutions; and (6) matters of particular state interest or local concern. Const. art. 1, § 3 provides: No person shall be deprived of life, liberty, or property without due process of law. This language is nearly identical to the federal provision, and no legislative history indicates that the state provision should be interpreted differently. Although our constitution may generally provide more protection than the federal, we must analyze each particular issue individually. [7] Defendants rely primarily on factors 4 and 6. First they argue chemical breath testing is strictly a matter of local concern because the State is charged with developing testing and maintenance procedures for the DataMaster. Law enforcement, however, is always a matter of local concern. Defendants have failed to demonstrate how the State's involvement in administering the breath testing program and enforcing our DWI laws relates to our inquiry of whether the preservation of potentially exculpatory evidence is a matter of particular state interest or local concern. Although they point to other jurisdictions that have rejected the Youngblood analysis under their state constitutions, we are not persuaded that the preservation of potentially exculpatory evidence is of particular local interest in Washington. This factor does not further our analysis of the particular question in this case. Next, Defendants rely on preexisting case law in Washington to argue that we should retain the standard adopted in State v. Vaster, supra . Under Vaster a criminal defendant must show that there is a reasonable possibility the unavailable evidence would affect the defense. The court must then balance this possibility against the ability of the State to preserve the evidence, the nature of the evidence and the circumstances surrounding its loss. Vaster, 99 Wn.2d at 52. Neither Vaster nor the cases cited in Vaster, however, included analysis of state law, and, as noted earlier, the federal principles applied in Vaster have been supplanted by the holdings in Trombetta and Youngblood. See Straka, 116 Wn.2d at 883; Ortiz, 119 Wn.2d at 303-04. The defense also argues that, given the unique nature of DWI cases, we should place a heightened duty on the State to preserve evidence that could be used in a DWI defense. In their support, the Defendants cite to cases involving a DWI defendant's right to counsel. These cases, however, analyze the right to counsel not only under the constitution, but also under the preexisting state court rule JCrR 2.11. See Spokane v. Kruger, 116 Wn.2d 135, 142, 803 P.2d 305 (1991); State v. Fitzsimmons, 94 Wn.2d 858, 620 P.2d 999 (1980) ( Fitzsimmons II); State v. Fitzsimmons, 93 Wn.2d 436, 610 P.2d 893, 18 A.L.R.4th 690, vacated and remanded, 449 U.S. 977, aff'd on remand, 94 Wn.2d 858, 620 P.2d 999 (1980). Because any independent state analysis is based on the existence of former JCrR 2.11, these cases shed no light on any preexisting law regarding the state due process clause and are not helpful in this case. We are not convinced separate and independent state grounds exist to support a broader interpretation of the state due process clause in the context of preservation of evidence. We hold Arizona v. Youngblood, 488 U.S. 51, 102 L.Ed.2d 281, 109 S.Ct. 333 (1988) provides the proper standard for preservation of exculpatory evidence, and under our analysis above, we find no due process violation. Accordingly, we reverse the District Court's suppression order and reinstate the DWI charges under RCW 46.61.502(1).