Lead Opinion
delivered the opinion of the Court.
Gеrmaine A. Handy was arrested as a result of incorrect information regarding the existence of a warrant, conveyed by a police dispatcher to an officer who had stopped Handy for riding his bicycle on the sidewalk in violation of a city ordinance. At issue before us is whether evidence uncovered in the ensuing search should be suppressed. We answer that question in the affirmative. The dispatcher had, in hand, a ten-year-old warrant for a California resident that did not match the spelling of Handy’s
I.
On September 13, 2005, at approximately 7:40 p.m., Millville Special Officer Anthony Sills stopped a group of individuals for riding their bicycles on the sidewalk, in violation of a city ordinance. Officer Sills called for back-up and Officer Carlo Drogo, who was on routine patrol, responded. Because none of the bicyclists had identification, Officer Drogo asked for their names and dates of birth.
Defendant, Germaine A. Handy, was one of the individuals questioned by Officer Drogo. He provided his name as Germaine Handy, which he spelled out, along with his address—218 East Broad Street, Millville, New Jersey, and his date of birth—March 18, 1974. Officer Drogo recorded Handy’s information and radioed police dispatch with Handy’s name and date of birth for a warrant check. The police dispatcher informed Officer Drogo that there was an outstanding warrant for Handy. Based on that information, Officer Drogo placed Handy under arrest and handcuffed him.
A search incident to the arrest led to the recovery of drugs. Subsequently, the police dispatcher informed Officer Drogo that there was a discrepancy between the date of birth Handy had given (March 18, 1974) and the date of birth listed on the warrant (March 14, 1972).
When Officer Drogo arrived at headquarters with Handy he attempted to verify the existence of the warrant himself. In doing so, he ascertained that, in addition to the birth date discrepancy, the warrant, which was about ten-years old, had been issued to
Officer Drogo then called the Chesterfield Township Municipal Court which had issued the warrant, reached an automated voice-mail, left a message, but did not receive a reply. In light of what he had learned, Officer Drogo did not process Handy on the warrant, presumably because he concluded that Handy was not the subject of the warrant; instead, he charged him with the drug offenses and subsequently released him.
Cumberland County Indictment No. 05-12-1153 charged Handy with one count of third-degree possession of a controlled dangerous substance (cocaine) in violation of N.J.S.A. 2C:35-10(a)(l). Handy moved to suppress the evidence against him on the ground that the police acted unreasonably in linking him to the warrant. The State countered that the arresting officer was entirely reasonable in relying on the police dispatcher.
The trial court denied Handy’s motion and, in ruling, found, as a matter of fact, that the dispatcher was aware of the discrepancies between the warrant and the information conveyed by Officer Drogo. Although the trial court characterized the dispatcher’s actions as unreasonable, it noted that the more important factor wаs that the arresting officer’s actions were entirely reasonable in light of the information presented to him.
Handy ultimately entered a plea to the indictment and to an unrelated indictment. He was sentenced in accordance with the plea agreement to an aggregate three-year term. Thereafter, he appealed the denial of the suppression motion. The Appellate Division reversed. State v. Handy, 412 N.J.Super. 492, 494,
Here, the police were responsible, through the unreasonable actions of the police dispatcher, for conveying incomplete and inaccurate information to the arresting officer. If the citizens’ right to be free from unreasonable search and seizure is to be vindicated, then the exclusionary rule must be applied beyond the officer in the field and to the police employee who acts unreasonably in supplying critical, but inaccurate or incomplete, information under circumstances such as those before us.
[76M.]
The State sought certification, which we granted. State v. Handy, 203 N.J. 95,
II.
The State argues that: the conduct of both the arresting officer and the dispatcher was entirely reasonable; even if the dispatcher’s conduct is deemed unreasonable, the evidence should not be suppressed because the exclusionary rule is only triggered by police action that is deliberate, reckless, or systemic; and, in this case, the goal of deterrence would not be advanced by suppressing the evidence against Handy.
Handy counters that the Appellate Division was correct in: viewing the police dispatcher as part of the police department family; characterizing her conduct as objectively unreasonable; attributing her unreasonable actions to the department as a whole; and suppressing the evidence under the exclusionary rule.
III.
In reviewing a motion to suppress, an appellate court “must uphold the factual findings underlying the trial court’s decision so long as those findings are supported by sufficient credible evidence in the record.” State v. Elders, 192 N.J. 224, 243,
IV.
The Fourth Amendment to the United States Constitution provides:
The right of the people to be secure in their persons, houses, papers, and effects, against unreasonable searches and seizurеs, shall not be violated, and no Warrants shall issue, but upon probable cause, supported by Oath or affirmation, and particularly describing the place to be searched, and the persons or things to be seized.
[U.S. Const. amend. IV.]
A consequence for violating the Fourth Amendment is the so-called exclusionary rule, “a judicially created remedy designed to safeguard Fourth Amendment rights generally through its deterrent effect.” United States v. Leon, 468 U.S. 897, 906, 104 S.Ct. 3405, 3412,
There are those who say ... that under our constitutional exclusionary doctrine “[t]he criminal is to go free because the constable has blundered.” People v. Defore [242 N.Y. 13, 150 N.E. 585, 587, cert. denied, 270 U.S. 657, 46 S.Ct 353, 70 L.Ed. 784 (1926) ]. In some cases this will undoubtedly be the result. But, ... “there is another consideration—the imperative of judicial integrity.” [Elkins v. United States, 364 U.S. 206, 222, 80 S.Ct. 1437, 1447, 4 L.Ed.2d 1669, 1680 (1960) ]. The criminal goes free, if he must, but it is the law that sets him free. Nothing can destroy a government more quickly than its failure to observe its own laws, or worse, its disregard of the charter of its own existence----
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The ignoble shortcut to conviction left open to the State tends to destroy the entire system of constitutional restraints on which the liberties of the people rest. Having once recognized that the right to рrivacy embodied in the Fourth Amendment is enforceable against the States, and that the right to be secure against rude invasions of privacy by state officers is, therefore, constitutional in origin, we can no longer permit that right to remain an empty promise. Because it is enforceable in the same manner and to like effect as other basic rights secured by the Due Process Clause, we can no longer permit it to be revocable at the whim of any police officer who, in the name of law enforcement itself, chooses to suspend its enjoyment. Our decision [to apply the rule to the States], founded on reason and truth, gives to the individual no more than that which the Constitution guarantees him, tо the police officer no less than that to which honest law enforcement is entitled, and, to the courts, that judicial integrity so necessary in the true administration of justice.
[Id. at 659-60, 81 S.Ct. at 1693-94, 6 L.Ed.2d at 1092-93 (footnotes omitted).]
Without an exclusionary rule, the Fourth Amendment “is of no value, and ... might as well be stricken from the Constitution.” Weeks v. United States, 232 U.S. 383, 393, 34 S.Ct. 341, 344, 58 L.Ed. 652, 656 (1914).
In parallel language, our own constitution protects our citizens from unreasonable searches and seizures:
The right of the people to be secure in them persons, houses, papers, and effects, against unreasonable searches and seizures, shall not be violated; and no warrant shall issue except upon probable cause, supported by oath or affirmation, and particularly describing the placе to be searched and the papers and things to be seized.
[N.J. Const. art. I, ¶ 7.]
At issue in this matter is the execution of a warrant. In that connection, the basic test under both the Fourth Amendment to the United States Constitution and Article I, Paragraph 7, of
V.
All parties agree that the aforementioned standard of objective reasonableness is the polestar for our inquiry. They differ over how the application of that standard plays out.
A.
The State first argues that the conduct of both the arresting officer and the dispatcher was reasonable, and thus, no further analysis is required. Like the trial court and the Appellate Division, Handy disagrees, as do we. Although we cannot quarrel in any way with Officer Drogo’s behavior, the dispatcher’s actions were plainly unreasonable. Despite the fact that the warrant was over ten years old and referenced Jermaine Handy, a California resident, not Germaine Handy and bore a different date of birth, the dispatcher told Officer Drogo that the warrant was issued for Handy.
There was nothing reasonable about that conduct in light of what the dispatcher actually knew. Indeed, there were two reasonable paths for her: one was to tell Officer Drogo about the information on the warrant she had before her so that he could probe the issue further with Handy, the other was to say that there was no warrant matching the information she had been
When the actions of the dispatcher, given the facts she knew at the time, are tested against the “touchstone of reasonableness,” Ramirez, supra, 528 U.S. at 71, 118 S.Ct. at 996,
B.
Alternatively, the State contends that even if the dispatcher’s conduct is deemed unreasonable, supprеssion is unwarranted. In particular the State, citing Herring v. United States, 555 U.S. 135, -, 129 S.Ct. 695, 702,
In Herring, the Supreme Court addressed the application of the exclusionary rule to conduct by one who was not the officer executing a warrant. Id. at-, 129 S.Ct. at 698,
The trial court denied Herring’s motion to suppress the evidence against him. Id. at-, 129 S.Ct. at 699,
police conduct must be sufficiently deliberate that exclusion can meaningfully deter it, and sufficiently culpable that such deterrence is worth the price paid by the justice system. As laid out in our cases, the exclusionary rule serves to deter deliberate, reckless, or grossly negligent conduct, or in some circumstances rеcurring or systemic negligence.
[Ibid.]
According to Herring, because the bookkeeping error at issue was isolated negligence attenuated from the arrest, and because reliance on the errant database by the officer was not objectively unreasonable, the deterrent effect of suppression was minimal, such that the principles underlying the exclusionary rule would not be advanced thereby. Id. at-, 129 S.Ct. at 704,
In Herring, the Supreme Court expanded on its earlier decision in Arizona v. Evans, 514 U.S. 1, 115 S.Ct. 1185,
After the Arizona courts split over the issue, id. at 6, 115 S.Ct. at 1188-89, 131 L.Ed.2d at 41, the United States Supreme Court declared that where the mistaken conduct that led to the arrest was attenuated—that is, attributable to a judicial employee who had “no stake in the outcome of particular criminal prosecutions”—suppression would not deter police misconduct and thus application of the exclusionary rule would be unwarranted. Id. at 15, 115 S.Ct. at 1193, 131 L.Ed.2d at 47. The difference between Arizona v. Evans and Herring is the degree of attenuation: the former involved a non-police database and the latter a police-related one. In both cases, the actions of the law enforcement officers in relying on the databases wаs deemed objectively reasonable. See Herring, supra, 555 U.S. at-, 129 S.Ct. at 700, 172 L.Ed.2d at 504; Evans, supra, 514 U.S. at 15-16, 115 S.Ct. at 1194, 131 L.Ed.2d at 47.
The State properly concedes that this is not an Arizona v. Evans case in that the dispatcher was not attenuated from the arrest, but was an integral link in the law enforcement chain. See, e.g., United States v. Shareef,
It is axiomatic that our interpretation of our own constitution will not always conform "with the view of the federal courts. Indeed, although we look to federal interpretation of the United States Constitution as a guide, we do not view it as requiring lockstep. Thus, we often interрret our own constitution in such a way as to provide greater protections for our citizens than would its federal counterpart. See, e.g., State v. Pierce, 136 N.J. 184, 208-09,
We make that point in light of the robust criticism that Herring has drawn. Indeed, many scholars and treatise writers fault Herring for unjustifiably watering down Fourth Amendment protections and, in particular, for failing to consider the non-deterrent rationales underlying the exclusionary rule. See, e.g., Albert W. Alschuler, Herring v. United States: A Minnow or a Shark?, 7 Ohio St. J.Crim. L. 463, 463 (2009); Thomas K. Clancy, The Irrelevancy of the Fourth Amendment in the Roberts Court, 85 Chi-Kent L.Rev. 191, 191-92 (2010); George M. Dery, III, Good Enough for Government Work: The Court’s Dangerous Decision, In Herring v. United States, to Limit the Exclusionary Rule to Only the Most Culpable Police Behavior, 20 Geo. Mason U. C.R. L.J. 1, 27-28 (2009); Wayne R. LaFave, The Smell of Herring: A Critique of the Supreme Court’s Latest Assault оn the Exclusionary Rule, 99 J.Crim. L. & Criminology 757, 758, 765-66 (2009); see also Wayne R. LaFave, Search and Seizure, § 1.6 at 40-41 (rev. 4th ed. Supp.2010-11).
We note as well that the parties are sharply divided over whether adopting Herring would violate our decision in Novembri-
We need not assess whether Herring can be reconciled with our own constitutional standards for, like the Appellate Division, we conclude that this ease would not be governed by Herring, in any event. See Handy, supra, 412 N.J.Super. at 501-02,
Attenuation is not part of the factual calculus before us. First, the dispatcher was not attenuated from the arrest but was literally a co-operative in its effectuation along with the officer on the scene. Second, as far as we know, the database was entirely accurate and there is, in fact, an outstanding warrant for a Jermaine O. Handy of Los Angeles, California. What occurred here was that the dispatcher, with a presumably accurate database, simply provided Officer Drogo with wrong information when a reasonably prudent person would, at least, have advised him of the discrepancies so that he could verify the information himself.
Third, the minimal deterrent effect that the Supreme Court in Herring and Arizona v. Evans intuited would flow from suppression based on an attenuated “clerical error,” is wholly unlike what is before us. Instead, suppressing the evidence garnered from this illegal search would have important deterrent value, would underscore the nеed for training of officers and dispatchers to focus on detail, and would serve to assure that our own constitutional guarantees are given full effect. As the Appellate Division pointed out:
*53 The police dispatcher is the crucial link between the officer in the field and police headquarters. The officer depends on receiving the correct information from the dispatcher, information such as whether there is or is not an outstanding arrest warrant for the person with whom the officer is then face to face. Misinformation either way has the potential to leave the officer either unaware that he or she is dealing with a dangerous criminal or arresting the wrong person.
Thе need to avoid the former is obvious and clearly in the best interest of the police officer in the field, the need to avoid the latter finds its basis in the Fourth Amendment’s protection of “Lt]he right of the people to be secure in their persons, houses, papers, and effects, against unreasonable searches and seizures.” See also N.J. Const. art. I, ¶7. The police officer in the field and the citizen on the street both benefit from a police dispatch system that is free of unreasonable conduct by dispatchers who fail to ensure that they are providing the available information about outstanding warrants as accurately and completely as possible.
[Handy, supra, 412 N.J.Super. at 502,991 A.2d 281 .1
What is critical to our analysis is that neither Herring nor Arizona v. Evans dispensed with the standard of “objective reasonableness” that governs the execution of a warrant. To the contrary, those decisions took pains to reaffirm that standard. Herring, supra, 555 U.S. at-, 129 S.Ct. at 701,
VI.
The Fourth Amendment is a bulwark against the government’s unwarranted intrusions into the daily lives of our fellow citizens. As interpreted by the dissent, it would provide little or no protection to the people it was intended to serve. First, the dissent’s notion that the “urgency” of the situation facing the dispatcher justified her conduct is misguided. Officer Drogo was confronted with persons who had ridden their bicycles on the sidewalk, not suspected armed robbers, burglars, or rapists. If
Second, the dissent’s conclusion that a Fourth Amendment exclusionary rule analysis is limited to the conduct of the arresting officer is wrong. Under that construct, police operatives, like the dispatcher here, are free to act heedlessly and unreasonably, so long as the last man in the chain does not dо so. Nothing in our jurisprudence supports that view.
Third, as we have said, the analysis under federal and state jurisprudence focuses on the objective reasonableness of the police conduct. Here, the dispatcher’s notion, echoed by the dissent, that a warrant with a wrong name and a wrong date of birth, is close enough to justify the arrest of a citizen, fails to satisfy that standard. To be sure, “room must be allowed for some mistakes by police ...,” Illinois v. Rodriguez, 497 U.S. 177, 186, 110 S.Ct. 2793, 2800,
VII.
The judgment of the Appellate Division reversing the order denying suppression is affirmed.
Dissenting Opinion
dissenting.
A lone Special Police Officer,
In order to issue the summonses, the оfficers needed basic information about each individual’s name and address, but none of them had any form of identification. After asking each of them for their names and dates of birth, but lacking anything against which to verify the accuracy of the information that each provided, the patrolman radioed the information to the police dispatcher, seeking to learn whether any of the men was the subject of an outstanding warrant.
In searching multiple databases for a response about whether there were any active warrants for the six names that she had been given, the dispatcher found one that appeared, at least initially, to match. The dispatcher immediately alerted the patrolman that there was an active outstanding warrant for defendant. The patrolman, acting on that information, advised defendant about the warrant and placed him under arrest. In response, defendant raised no protest and did not suggest that he was not the subject of an outstanding warrant. In the search of his person that followed, the officer found narcotics and secured him in a patrol car.
Before the officer and defendant were able to return to the police station for processing on the charges, the dispatcher contacted the officer to alert him that there was a discrepancy between the information supplied by defendant and the information on the warrant. By that time, however, defendant had already been arrested and the illegal drugs he had in his possession had already been found.
There is no dispute about the differences between the information defendant had given and the identifying information in the
The question before this Court is whether the drugs found in the search incident to defendant’s arrest should be suppressed, a question that the majority answers in the affirmative. Applying the standard of objective reasonableness, see United States v. Ramirez, 523 U.S. 65, 71, 118 S.Ct. 992, 996,
The majority reasons that the dispatcher’s conduct fell short because, when confronted with the differences between the information provided by defendant and that in the warrant, the dispatcher could have asked the officer to makе further inquiry of defendant or could have reported that there were no matching warrants. Because the dispatcher failed to make either of those choices, the majority concludes that the decision to alert the officer about an outstanding warrant was “plainly unreasonable.” Ante at 47,
There are at least three problems with that reasoning. First, although the suggestion that the dispatcher could have asked for more clarification seems reasonable enough, it ignores the urgency of the situation faced by the dispatcher trying to run down information on six separate individuals then confronting the officers on the street.
Third, the majority’s approach leaves no room for the possibility of an innocent mistake, notwithstanding precedents holding otherwise from the United States Supreme Court, see Illinois v. Rodriguez, 497 U.S. 177, 186, 110 S.Ct. 2793, 2800,
More troubling is the majority’s extension of the Fourth Amendment remedy of exclusion, which would appropriately apply had the police officer himself acted unreasonably, to the dispatcher’s conduct. Alternately criticizing and distinguishing as irrelevant the analytical approach adopted by the United States Supreme Court when it considered similar factual circumstances, see Herring v. United States, 555 U.S. 135,-, 129 S.Ct. 695, 702,
There is no doubt that police dispatchers serve an important role in law enforcement and that police officers must be able to rely on the information that dispatchers provide when carrying out their functions. But the majority’s decision gives the narrowest possible reading to the relevant guidance from the United States Supreme Court, see Herring, supra, 555 U.S. at-, 129 S.Ct. at 701-02,
This is so for three reasons. First, the majority’s analysis imputes to the officer the mistaken decision made by the dispatcher and imposes a remedy, designed to deter police misconduct, in spite of the fact that the officer, as all concede, did nothing unreasonable. Second, there is nothing in this record that suggests that the dispatcher’s advice to the officer that there was a matching warrant was part of a larger plan or a regular effort to trample on the constitutional rights of defendant or anyone else and that corrective measures must therefore be imposed on all dispatchers by this Court. Third, there is little reason to believe that using the exclusionary rule in circumstances that amount to little more than a momentary and minor misreading will, as the
As our United States Supreme Court has held, “[t]he Constitution does not guarantee that only the guilty will be arrested,” nor does it require the police to “perform an error-free investigation.” Baker v. McCollan, 443 U.S. 137, 145-46, 99 S.Ct. 2689, 2695,
The exclusionary rule is a powerful and important tool designed to deter police misconduct. It is a remedy best reserved for circumstаnces in which there has been police misconduct or for behaviors, or patterns of behavior, that bespeak a deliberate, routine, or systemic violation of constitutional rights rather than, as here, a mistaken decision with which this Court, with the benefit of the pristine vision that hindsight provides, disagrees.
Notwithstanding the majority’s argument to the contrary, see ante at 53-54,
The unfortunate reality that our law enforcement officers face is far different, as our case law makes plain. The use of bicyclеs to procure and transport illegal narcotics, for example, is commonplace. See State v. Citarella, 154 N.J. 272, 276,
More to the point for purposes of this appeal, this Court is well aware that bicycles can be and have been used to facilitate the commission of serious crimes, including carjacking, State v. Harris, 181 N.J. 391, 424-25,
For all of these reasons, I respectfully dissent.
Notes
The modes and methods of the appointment, qualifications, training, powers and authority of special law enforcement officers are all governed by statute.