William Williams appeals the denial of his dispositive motion to dismiss after being convicted under Florida’s “Refusal to Submit” statute.
I.
On October 4, 2013, at approximately 10:17 p.m., Williams was arrested for driving under the influence. Less than twenty minutes later, the arresting officer asked Williams to submit to a breath test to determine his blood-alcohol content; he refused. The officer did not have a warrant. Williams was then issued five uniform traffic citations, including a citation for Refusal to Submit in violation of section 316.1939, Florida Statutes. That section provides, in pertinent part:
(1) Any person who has refused to submit to a chemical or physical test of his or her breath, blood, or urine, as described in s. 316.1932, and whose driving privilege was previously suspended for a prior refusal to submit to a lawful test of his or her breath, urine, or blood, and:
(a) Who the arresting law enforcement officer had probable cause to believe was driving or in actual physical control of a motor vehicle in this state while under the influence of alcoholic beverages, chemical substances, or controlled substances;
(b) Who was placed under lawful arrest for a violation of s. 316.193 unless such test was requested pursuant to s. 316.1932(l)(c);
(c) Who was informed that, if he or she refused to submit to such test, his or her privilege to operate a motor vehicle would be suspended for a period of 1 year or, in the case of a second or subsequent refusal, for a period of 18 months;
(d) Who was informed that a refusal to submit to a lawful test of his or her breath, urine, or blood, if his or her driving privilege has been previously suspended for a prior refusal to submit to a lawful test of his or her breath, urine, or blood, is a misdemeanor; and
(e) Who, after having been so informed, refused to submit to any such test when requested to do so by a law enforcement officer or correctional officer
commits a misdemeanor of the first degree and is subject to punishment as provided in s. 775.082 or s. 775.083.
§ 316.1939, Fla. Stat. (2013).
Williams filed a motion to dismiss the Refusal to Submit charge, arguing that the statute is unconstitutional as applied. For purposes of the motion, the parties stipulated that: (1) the police had probable cause to ask Williams to submit to a breath test; (2) the initial stop of Williams’ vehicle was lawful; (3) Williams refused to take the breath test; (4) Williams’ driving record reflected a prior refusal to submit to a breath test; and (5) the motion to dismiss was dispositive as to the Refusal to Submit charge.
The county court denied the motion to dismiss and certified the following question as one of great public importance:
If the implied[-]consent statute provides consent to search as an exception to the Fourth Amendment warrant requirement, then can that consent be withdrawn by refusal to submit to an otherwise lawful test of breath, blood or urine and can the second such refusal be punishable as a criminal offense?
The court then accepted Williams’ no contest plea, which specifically reserved the right to appeal the denial of the motion to dismiss. Williams was sentenced to two days’ imprisonment, with two days’ credit for time served. This appeal followed.
II.
Under the unconstitutional conditions doctrine, “the government may not deny a benefit to a person because he exercises a constitutional right.” Koontz v. St. Johns River Water Mgmt. Dist., — U.S. -,
Camara is distinguishable in some important respects. Most importantly, section 316.1939, Florida Statutes, criminalizes the refusal to submit to a breath test only if the officer had probable cause to believe the driver was under the influence. See § 316.1939(l)(a), Fla. Stat. (2013). By contrast, the statute in Camara allowed suspicionless searches. See Camara,
III.
The Fourth Amendment provides that “[t]he right of the people to be secure in their persons, houses, papers, and effects, against unreasonable searches and seizures, shall not be violated, and no Warrants shall issue, but upon probable cause.... ” U.S. Const, amend. IV. A breath-alcohol test is a search subject to Fourth Amendment protections. Skinner v. Ry. Labor Execs. Ass’n,
Generally, warrantless searches are presumptively unreasonable unless they fall within a recognized exception to the warrant requirement. See, e.g., Missouri v. McNeely, — U.S.-,
The interests in human dignity and privacy which the Fourth Amendment protects forbid any such intrusions on the mere chance that desired evidence might be obtained. In the absence of a clear indication that in fact such evidence will be found, these fundamental human interests require law officers to suffer the risk that such evidence may disappear unless there is an immediate search.
Id. at 769-70,
The officer in the present case ... might reasonably have believed that he was confronted with an emergency, in which the delay necessary to obtain a warrant, under the circumstances, threatened “the destruction of evidence[.]” We are told that the percentage of alcohol in the blood begins to diminish shortly after drinking stops, as the body functions to eliminate it from the system. Particularly in a case such as this, where time had to be taken to bring the accused to a hospital and to investigate the scene of the accident, there was no time to seek out a magistrate and secure a warrant. Given these special facts, we conclude that the attempt to secure evidence of blood-alcohol content in this case was an appropriate incident to petitioner’s arrest.
Id. at 770-71,
After Schmerber, disagreement arose in the lower courts regarding whether Schmerber mandated a per se rule that warrantless blood tests were always reasonable because of the inherent evanescence of blood-alcohol content (“BAC”) evidence. See McNeely,
In McNeely, the Court was asked to determine “whether the natural metabo-lization of alcohol in the bloodstream presents a per se exigency that justifies an exception to the Fourth Amendment’s warrant requirement for nonconsensual blood testing in all drunk-driving cases.” Id. at 1556. It concluded that a per se exigency did not exist in drunk-driving cases, and that exigencies must always be examined case-by-case based on the totality of the circumstances. Id. It stated that, absent a warrant, “ ‘the fact-specific nature of the reasonableness inquiry,’ demands that we evaluate each case of alleged exigency based ‘on its own facts and circumstances.’ ” Id. at 1559 (citations omitted).
In sum, the Court concluded that “[i]n those drunk-driving investigations where police officers can reasonably obtain a warrant before a blood sample can be drawn without significantly undermining the efficacy of the search, the Fourth Amendment mandates that they do so.” Id. at 1561. Nevertheless, the Court noted that, in some cases, “exigent circumstances justifying a warrantless blood sample may arise in the regular course of law enforcement due to delays from the warrant application process.” Id. at 1563.
Notably, in section III of the McNeely opinion, a plurality of the Court recognized that states have “a broad range of legal tools,” including implied-consent laws, “to enforce their drunk-driving laws and to secure BAC evidence without undertaking warrantless nonconsensual blood draws.” Id. at 1566. The plurality went on to explain that implied-consent laws “impose significant consequences when a motorist withdraws consent; typically the motorist’s driver’s license is immediately suspended or revoked, and most States allow the motorist’s refusal to take a BAC test to be used as evidence against him in a subsequent criminal prosecution.” Id. at 1566. The plurality did not, however, mention criminal penalties for withdrawing consent. Therefore, although some courts have inferred a great deal from section III of the McNeely opinion, we do not find this section to be dispositive.
Because pre-McNeely Florida case law simply cited Schmerber, no Florida case specifically states what exception to the warrant requirement, if any, applies to breath-alcohol tests conducted immediately after a DUI arrest. As such, this is an issue of first impression. Courts in other jurisdictions have found that warrantless breath tests are justified under one of three potentially applicable exceptions to
IV.
The State argues that the consent exception to the warrant requirement applies to the facts of this case; thus, we will address that potential exception first. Because Williams did not expressly consent to the breath test — in fact, he did exactly the opposite — the issue is whether he impliedly consented by obtaining a driver’s license in Florida and choosing to drive on Florida roads on the night in question. Under Florida law, any person who operates a motor vehicle within the State is “deemed to have given his or her consent to submit to an approved chemical test ... for the purpose of determining the alcoholic content of his or her blood or breath ....” § 316.1932(l)(a)l.a., Fla. Stat. (2013).
Although this appears to be an issue of first impression in Florida, several other states’ appellate and supreme courts have considered this issue, with varying results. The vast majority of courts have found that statutory implied consent is not equivalent to Fourth Amendment consent.
Valid consent has long been recognized as a “jealously and carefully drawn” exception to the warrant requirement. See Georgia v. Randolph,
On the other hand, statutory implied consent — at least according to the State’s position — is irrevocable. Even if Williams impliedly consented to the breath test when he received his driver’s license and chose to drive on Florida roads, he explicitly revoked that consent when he refused to submit to the breath test. Furthermore, statutory implied consent is not necessarily given freely and voluntarily. Thus, allowing implied-consent statutes to constitute a per se, categorical exception to the warrant requirement would make a mockery of the many precedential Supreme Court cases that hold that volun-tariness must be determined based on the totality of the circumstances.
We also find it improbable that the Supreme Court would mention implied-consent statutes in McNeely, yet completely ignore this important potential exception to the warrant requirement. In McNeely, the Court recognized that nearly every state had an implied-consent statute, including Missouri. See
Therefore, we choose to follow the majority of courts, including all of the state supreme courts that have addressed this issue, in holding that' statutory implied consent does not constitute a per se exception to the warrant requirement. Williams did not necessarily consent to a breath test when he got behind the wheel of his car that night. To the extent that he did, he revoked that consent when he affirmatively refused the breath test.
At least one state supreme court has found warrantless breath tests to be permissible under the search-incident-to-arrest exception to the warrant requirement. See Minnesota v. Bernard,
The seareh-incident-to-arrest exception allows police to search an arrestee’s person and “the space within an arrestee’s ‘immediate control.’ ” Arizona v. Gant,
Recently, the Minnesota Supreme Court, dealing with an issue almost identical to the one presented here, held that breath-alcohol tests were valid warrantless searches under the search-incident-to-arrest doctrine. See Bernard,
First, and most importantly, breath-alcohol tests are not justified by either of the rationales for the exception. See Chimel,
Finally, it must be determined whether a warrantless post-arrest breath test is permissible under a general reasonableness test. Notably, while relying upon different rationales, not a single court that has dealt with a criminal refusal-to-submit statute, like the one here, has struck it down as unconstitutional. See Hawaii v. Yong Shik Won, 134 Hawai’i 59,
The Fourth Amendment prohibits unreasonable searches and seizures. U.S. Const, amend. IV. Although McNeely held that the diminishing nature of BAC did not justify a per se exception to the warrant requirement, it did not foreclose the possibility that a warrantless blood or breath test could sometimes be permissi
Recently, the Supreme Court explained that some searches do not require a warrant, even if they do not fall under a specific, recognized exception:
In some circumstances, such as “[w]hen faced with special law enforcement needs,[5 ] diminished expectations of privacy, minimal intrusions, or the like, the Court has found that certain general, or individual, circumstances may render a warrantless search or seizure reasonable.” Those circumstances diminish the need for a warrant, either because “the public interest is such that neither a warrant nor probable cause is required,” or because an individual is already on notice, for instance because of his employment, that some reasonable police intrusion on his privacy is to be expected. The need for a warrant is perhaps least when the search involves no discretion that could properly be limited by the “interpolation of] a neutral magistrate between the citizen and the law enforcement officer.”
Id. at 1969-70 (citations omitted). The Court further clarified: “To say that no warrant is required is merely to acknowledge that ‘rather than employing a per se rule of unreasonableness, we balance the privacy-related and law enforcement-related concerns to determine if the intrusion was reasonable.’ ” Id. at 1970 (citation omitted). Under this traditional reasonableness standard, the court must weigh “the promotion of legitimate governmental interests” against “the degree to which [the search] intrudes upon an individual’s privacy.” Id. (alteration in original) (quoting Wyoming v. Houghton,
Here, balancing the State’s legitimate interest against the degree to which the breath-alcohol test would have intruded upon Williams’ privacy, we conclude that the warrantless test would have been reasonable under the Fourth Amendment. The State clearly has a legitimate interest in decreasing and prosecuting drunk driving. See Mich. Dep’t of State Police v. Sitz,
Moreover, a breath test is minimally intrusive, which heavily favors finding it reasonable. See King,
Finally, Williams’ expectation of privacy was diminished, initially, because he was driving on a public road. Cf. California v. Carney,
jn sum¡ balancing Williams’ diminished eXpectation of privacy and the minimal invasiveness of the search against the state’s legitimate interest in curbing driv-jng un(jer the influence leads us to con-c¡U([e that a post-arrest warrantless breath-alcohol test would have been permissible undér the Fourth Amendment.
V.
In conclusion, Williams had no Fourth Amendment right to refuse the test because, under the totality of the circumstances, a warrantless breath-alcohol test would have been reasonable. Accordingly, no constitutional bar prohibits the State from criminally punishing Williams for refusing the test.
AFFIRMED.
Notes
. § 316.1939, Fla. Stat. (2013).
. Camara, like this case, was arguably not an unconstitutional conditions doctrine case because no administrative right or privilege was involved. Id. Rather, the issue was whether it was permissible to punish a person criminally for exercising a constitutional right. Id.
. Although it is not our function to question the assumptions underlying Supreme Court decisions, we note that the practicality of securing expert witnesses in the typical driving-under-the-influence case is questionable because of availability and cost. In addition, technology has no doubt made the securing of warrants easier, but the suggestion that an arresting officer in a DUI case can realistically secure a search warrant expeditiously, especially in the middle of the night, is questionable. And, in Florida, by statute, a warrant is generally not available in a misdemeanor drunk driving case. See § 933.02, Fla. Stat. (2013); State v. Geiss,
. See, e.g., Arizona v. Butler,
. The "special needs” exception, which allows-for example-breath-alcohol tests at "check points,” does not apply in this case because that exception requires that the main purpose of the search not be a "general interest in crime control.” See, e.g., Lynch v. City of New York,
