The 2nd Circuit Court of Appeals rendered an
important decision in the chemical testing of NYPD officers involved in
shooting incidents. The significance of
this opinion, even it that Circuit isn’t necessarily authoritative in your
jurisdiction, is that it is very clear in its analysis and follows case law
from the U.S. Supreme Court. It clearly
distinguishes the “special needs” and “public safety” doctrines applicability
to public employees and relationship to the Fourth Amendment provisions in
criminal proceedings.
In November 2013 a panel of judges in the 2nd
Circuit Court of Appeals took up the appeal of a previously decided case, Lynch v. City of New York, 589 F.3d 94
(2 Cir. 2009) concerning the NYPD provision to test all officers involved in a
fatal or wounding shooting while either on- or off-duty. This court affirmed the district court’s
award of summary judgment to the NYPD on the plaintiff’s Fourth Amendment challenge,
which failed as a matter of law. This
court also was impressed with the narrow scope of the NYPD written provisions.
The NYPD adopted a written policy following a 2006 shooting
incident involving undercover officers that resulted in the death of Sean Bell
and wounding of two of his companions.
The NYPD convened a review committee and enacted a policy requiring
alcohol testing “when a uniformed member of the (NYPD), on or off duty, is
involved in a firearms discharge within New York City which results in injury to
or death of a person.” The procedure was
that a Captain from Internal Affairs Bureau would respond to the scene or
station and administer a portable breathalyzer to the involved personnel. If the results were .08 or greater the
officer would be tested by a second “more alcohol sensitive…Intoxilyzer machine”
at another location.
Many law enforcement agencies have procedures when officers
are involved in similar shooting incidents and actually have expanded those
incidents to include other critical incidents such as in-custody deaths and
fatal or serious vehicle accidents. Many
agencies also use blood or urine samples for these types of cases, as these
tests will detect other chemical substances, prescription medicines, and
anabolic steroids. This case involving
the NYPD did not address these issues and was much more narrow. But the substance of this case is important
to demonstrate the legal issues involved in these types of personnel
investigations by a public safety agency.
“The stated purpose of IO–52 is “[t]o ensure the highest levels of
integrity at the scene of police involved firearms discharges which result in
injury to or death of a person.” As
explained further by Chief Campisi in opposing plaintiffs' motion for a
preliminary injunction, IO–52 serves (1) to protect “the integrity of the
NYPD”; (2) to protect “the safety of the public and NYPD officers”; (3) to
deter “alcohol intoxication by NYPD who are carrying firearms”; and (4) to
assure “the public that one of the most important and daunting powers of the
police, the power to apply deadly force when necessary, is not being abused or
used by officers who are under the influence of alcohol.”
This court discussed the “special needs” doctrine in its decision. It indicated that “neither a warrant nor
probable cause, nor, indeed, any measure of individualized suspicion, is an
indispensable component of reasonableness in every circumstance…Warrantless,
even suspicionless, searches can be constitutionally reasonable where ‘special
needs, beyond the normal need for law enforcement,’ are present.” The court cited National Treasury Emps. Union v. Von Raab (1989) and Skinner v. Ry.
Labor Execs. Ass’n (1989). It found
that “that the interests served by the special needs outweigh the privacy
interests at stake.”
The court found,
“B. IO–52 Testing Is Constitutionally Reasonable Under the Special Needs
Doctrine
When we apply
these principles to this case, the record compels the following conclusions.
First, it is
evident that IO–52 testing is conducted to determine an officer's sobriety at
the time he discharged his firearm. Sobriety is a fitness-for-duty condition of
employment with the NYPD. Thus, a sobriety determination serves special needs
distinct from criminal law enforcement, specifically, personnel management of,
and maintaining public confidence in, the NYPD. Indeed, these needs must be
served in every police shooting case, without regard to whether the shooting
implicates the criminal laws, which most police shootings, in fact, do not.
Second, the
NYPD's interest in these special needs is not compatible with the warrant
requirement applicable to criminal investigations.
Third, the NYPD's
interest in these special needs sufficiently outweighs the privacy interests of
tested police officers as to render warrantless, suspicionless IO–52 testing
constitutionally reasonable.”
And,
“Rather,
what the record does show is that the immediate purpose of IO–52 testing is
personnel management of, and the maintenance of public confidence in, the NYPD,
specifically with respect to officers' discharge of firearms in circumstances
causing death or personal injury.
The Supreme Court has specifically recognized a public employer's regulation of
its employees' conduct as a special need that can support warrantless,
suspicionless testing to ensure safe and responsible performance of hazardous
duties, a conclusion that obtains without regard to whether the testing occurs
before or after any harm actually occurs and whether the employer is itself
involved in law enforcement. See National Treasury Emps. Union v. Von Raab, 489
U.S. at 679 (recognizing special need to conduct suspicionless drug testing of
Customs employees involved in drug interdiction or required to carry firearms);
Skinner v. Ry. Labor Execs.' Ass'n, 489 U.S. at 620–21 (recognizing special
need to conduct blood and urine tests of all railroad employees involved in
train accidents). Breathalyzer testing most obviously serves these special
needs by promptly revealing whether a police officer was in compliance with
department guidelines respecting alcohol use and fitness for duty when he
discharged his firearm. The NYPD and the public have an interest in the answer
to that question in every police shooting resulting in death or personal
injury, without regard to whether the officer's conduct raises any criminal
concerns.”
This decision further stated, “In sum, the record compels the conclusion
that the primary, i.e ., immediate, purpose of IO–52 testing is personnel
management and the maintenance of public confidence in the NYPD, needs present
in every shooting case and distinct from normal law enforcement objectives to
solve crimes and prosecute their perpetrators. In these circumstances, the
possibility that IO–52 test results might ultimately be used as evidence in a
criminal prosecution does not take the case out of the special needs doctrine.
See Illinois v. Lidster, 540 U.S. at 423–27; United States v. Amerson, 483 F.3d
at 80–83; Nicholas v. Goord, 430 F.3d at 667–69…The Supreme Court has further
recognized that “the government's interest in dispensing with the warrant
requirement is at its strongest when, as here, the burden of obtaining a
warrant is likely to frustrate the governmental purpose behind the search.” Skinner
v. Ry. Labor Execs.' Ass'n, 489 U.S. at 623 (internal quotation marks omitted).
Because “alcohol and other drugs are eliminated from the bloodstream at a
constant rate, ․ breath samples taken to measure whether
these substances were in the bloodstream when a triggering event occurred must
be obtained as soon as possible.” Id. (internal citation omitted). Thus, a
delay associated with obtaining a warrant could negatively affect the probative
value of breathalyzer test results, undermining the NYPD's ability both to
manage its personnel effectively and to assure the public that it is doing so.
See id. (observing that delay in procuring warrant “may result in the
destruction of valuable evidence”); see also Missouri v. McNeely, 133 S.Ct.
1552, 1560 (2013) (observing that “because an individual's alcohol level
gradually declines soon after he stops drinking, a significant delay in testing
will negatively affect the probative value of the results”)… Accordingly, we
conclude that the primary non-law enforcement objectives of IO–52
testing—personnel management of and public confidence in the NYPD—are properly
deemed “special needs” in that they are incompatible with the general warrant/individualized
suspicion requirements and, further, that the mandatory, narrow, and specific
nature of IO–52 testing greatly ameliorates the mischief that the
warrant/individualized suspicion requirements were designed to prevent.”
“To summarize, we
conclude that the record compels the following conclusions:
1. The immediate
objectives of IO–52 testing are personnel management of, and public confidence
in, the NYPD.
2. The identified
objectives qualify as “special needs” for purposes of Fourth Amendment
reasonableness review because they are distinct from normal law enforcement
concerns and incompatible with the warrant and probable cause requirements for
law enforcement searches.
3. The
aforementioned special needs greatly outweigh officers' reduced expectation of
privacy with respect to alcohol testing at the time of any firearms discharge
causing death or personal injury, thereby rendering warrantless, suspicionless
IO–52 testing constitutionally reasonable as a matter of law.
The district
court's award of summary judgment to the NYPD on plaintiffs' Fourth Amendment
challenge to IO–52 is AFFIRMED.”
