In Re: v. Grand Jury

• Court: Court of Appeals for the First Circuit
• Decided: March 16, 1998
• Docket: 97-2335
• Status: Published

Opinion

USCA1 Opinion

                  UNITED STATES COURT OF APPEALS

                      FOR THE FIRST CIRCUIT



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No. 97-2335


IN RE:  GRAND JURY SUBPOENA



             (SERVED UPON STEPHEN A. ROACH, ESQUIRE).



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                   AN ANONYMOUS POLICE OFFICER,



                      Intervenor, Appellant.



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           APPEAL FROM THE UNITED STATES DISTRICT COURT



                FOR THE DISTRICT OF MASSACHUSETTS



            [Hon. Nancy Gertner, U.S. District Judge]



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                              Before



                     Selya, Boudin and Lynch,



                         Circuit Judges.



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     Thomas M. Hoopes, with whom Hoopes and Cronin and Dana A.

Curhan were on brief, for intervenor.

     Louis E. Peraertz, Attorney, U.S. Dep't of Justice, with whom

Bill Lann Lee, Acting Assistant Attorney General, Dennis J. Dimsey,

Attorney, U.S. Dep't of Justice, Donald K. Stern, United States

Attorney, and S. Theodore Merritt, Assistant United States

Attorney, were on brief, for respondent.



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                         March 16, 1998

                       _________________

                                

          SELYA, Circuit Judge.  This appeal requires us to develop a

mechanism for modulating the tension that can develop between a

protective order in a civil case, see Fed. R. Civ. P. 26(c), and

  a grand jury subpoena seeking evidence that falls within the

protective order's compass.  The question arises here on appeal

   from the district court's refusal to quash a grand jury's

 subpoena duces tecum that demands the production of materials

    covered, at least in part, by a previously issued civil

protective order.  The question presented is new to us, and the

 decisions elsewhere  divide over the correct approach.  After

pondering the problem, we reject the district court's choice of

   an analytic method, but nevertheless uphold the subpoena.

                         I.  BACKGROUND

          Because of the procedural posture in which this appeal arises,

 the facts before us afford little expository nourishment.  We

    nonetheless offer the following informational crudit‚. 

          On an undetermined date, Michael Cox, an undercover Boston police

officer,  was, it is said, beaten brutally by a band of uniformed

police officers.  To redeem this alleged wrong, Cox sued the City

    of Boston and several individual officers, including the

intervenor in this action, whom we shall call Joe Doakes.  In

short order, the City filed a motion   later joined by Doakes  

for a protective order pursuant to Fed. R. Civ. P. 26(c).  The

court (Young, U.S.D.J.) granted this request and issued a

modifiable order that protected confidential information, defined

as including "[a]ny and all Internal Affairs Division [(IAD)]

records," as well as exhibits or evidence that incorporate any

such confidential information.  Doakes thereafter gave deposition

testimony on three separate occasions between December 29, 1996,

and April 7, 1997.

     In due season, a federal grand jury initiated an investigation

into the attack.  On April 4, 1997, the United States moved to

intervene in the civil case and to stay discovery.  Judge Young

granted this motion and, with the consent of all parties,

administratively closed the case "until April 1, 1998 or [until]

any investigation by the [United States] is completed, whichever

comes first."

     On September 30, 1997, the grand jury summoned Cox's attorney,

Stephen A. Roach.  The subpoena duces tecum directed Roach  to

produce "[a]ll volumes of the deposition, including exhibits, of

[Joe Doakes] taken in Michael Cox v. City of Boston, et al." 

Roach filed a motion requesting the district court to rule 

whether his compliance with the subpoena would violate the

protective order.  Citing the administrative closure of the civil

case file, Judge Young declined to hear the motion and directed

Roach to the district court's emergency calendar. Doakes moved to

intervene in the proceedings and the duty judge (Gertner,

U.S.D.J.) heard Roach's motion for instructions as well as

Doakes's motion to quash the subpoena duces tecum.

     In pressing the motion to quash, Doakes's counsel   who had not

represented him at the start of the civil case    argued that

the protective order safeguarded Doakes's entire deposition (and

the exhibits associated therewith) because he had been questioned

extensively about his statement to the IAD.  After some backing

and filling, not now germane, Judge Gertner denied the motion to

quash.  In fashioning her decision, the judge adopted the Second

Circuit's balancing test, see Martindell v. International Tel. &

Tel. Corp., 594 F.2d 291 (2d Cir. 1979), and determined that, all

things considered, the interests of the criminal investigation in

this instance outweighed the movant's interest in maintaining the

confidentiality of the record (especially since Doakes had

demonstrated no prior reliance on the protective order). 

II.  ANALYSIS

     We review a district court's fact-based decisions regarding

quashal of grand jury subpoenas for abuse of discretion.  See In

re Grand Jury Matters, 751 F.2d 13, 16 (1st Cir. 1984).  Withal,

a court that predicates a discretionary ruling on an erroneous

view of the law inevitably abuses its discretion.  See Koon v.

United States, 116 S. Ct. 2035, 2047 (1996); United States v.

Snyder, ___ F.3d ___, ___ (1st Cir. 1998) [No. 97-1233, slip op.

at 6-7].  Thus, we review de novo whether the court below

employed the proper legal formulation in making the decision from

which Doakes appeals.  See Snyder, ___ F.3d at ___ [slip op. at

7]; Soto v. United States, 11 F.3d 15, 17 (1st Cir. 1993).

                     A.  Extant Standards.

     The Second Circuit's Martindell test strives to balance society's

 interest in obtaining grand jury evidence for law enforcement

purposes with its interest in "the just, speedy, and inexpensive

   determination of civil disputes . . . by encouraging full

disclosure of all evidence that might conceivably be relevant." 

594 F.2d at 295 (citation and internal quotation marks omitted). 

 In constructing this test, the Martindell court  exalted civil

   litigation over criminal prosecution on the theory that a

deponent's reliance on a protective order merits respect, and the

 government's evidence-gathering powers are so sweeping that it

 ordinarily will be  "unnecessary" for prosecutors to go behind

  civil protective orders.  Id. at 296.  In deference to these

  considerations, the court declared that, absent a showing of

 "improvidence in the grant of a Rule 26(c) protective order or

   some extraordinary circumstance or compelling need . . . a

witness should be entitled to rely upon the enforceability of a

   protective order against any third parties, including the

                       Government."  Id.

     The Second Circuit's rule    positing a presumption in favor of

a protective order when such an order clashes with a grand jury

subpoena   has received a cool reception elsewhere.  The Fourth

Circuit declined to follow Martindell, holding instead that "the

   existence of an otherwise valid protective order [is] not

 sufficient grounds to quash the subpoena duces tecum issued by

the . . . grand jury."  In re Grand Jury Subpoena, 836 F.2d 1468,

1478 (4th Cir. 1988).  The court adopted this per se rule after

weighing "the authority of a grand jury to gather evidence in a

   criminal investigation; the deponents' right against self-

incrimination; and the goals of liberal discovery and efficient

    dispute resolution in civil proceedings."  Id. at 1471. 

  Calibrating these scales, the court concluded that society's

   interest in grand jury access to  all relevant information

overrode any countervailing interest in civil discovery.  See id.at 1474-75.  Two other circuits have joined the fray, both siding

   with the Fourth Circuit and advocating a per se rule that

 invariably prefers grand jury subpoenas over civil protective

orders.  See In re Grand Jury Subpoena, 62 F.3d 1222, 1224 (9th

 Cir. 1995); In re Grand Jury Proceedings, 995 F.2d 1013, 1020

                       (11th Cir. 1993).

     We are uneasy with both of these approaches.  Turning first to

   Martindell, we believe that its creation of a presumption

favoring the sanctity of civil protective orders tilts the scales

in exactly the wrong direction.  By establishing a presumption in

favor of civil protective orders, Martindell fails to pay proper

respect to what we deem an issue of great importance: society's

  profound interest in the thorough investigation of potential

criminal wrongdoing.  See Nixon v. Fitzgerald, 457 U.S. 731, 754

n.37 (1982) (explaining "that there is a lesser public interest

  in actions for civil damages than, for example, in criminal

 prosecutions").  Furthermore, the Martindell rule suffers from

practical infirmities:  the principles by which one court should

adjudge a protective order issued by another court "improvidently

  granted" are difficult to standardize, and the circumstances

    under which a United States Attorney might demonstrate a

"compelling need" are opaque.  In short, the Martindell rule is

              ill conceived as a matter of policy.

     The Fourth Circuit's per se rule manifests a different vice: 

inflexibility.  Although the per se rule properly privileges the

 public's interest in law enforcement over its interest in the

resolution of civil controversies, it does so without regard to

idiosyncratic circumstances.  In other words, this approach puts

priorities in proper perspective, but overlooks that the balance

nonetheless is variable and that the confluence of the relevant

  interests   generally, those of society at large and of the

    parties who are seeking to keep a civil protective order

  inviolate   occasionally may militate in favor of blunting a

 grand jury's subpoena.  Because this per se rule obviates all

analysis, it will trench upon legitimate concerns when (even if

  rarely) a solid case can be made for exceptional treatment. 

  Always bringing overwhelming force to bear may be acceptable

  military strategy, but the law often requires a more nuanced

                           approach.

                 B.  The Modified Per Se Rule.

     Regarding both the Martindell rule and the per se rule as flawed

    to some extent, we chart a different course.  The proper

approach, we think, is along the following lines:  A grand jury's

subpoena trumps a Rule 26(c) protective order unless the person

 seeking to avoid the subpoena can demonstrate the existence of

 exceptional circumstances that clearly favor subordinating the

  subpoena to the protective order.  We believe that this rule

offers the desired flexibility and at the same time allows room

   for reasoned analysis in a way that does not undermine the

public's interest in law enforcement out of a misplaced deference

 to private parties.  See Ajit V. Pai, Comment, Should a Grand

Jury Subpoena Override a District Court's Protective Order?, 65

     U. Chi. L. Rev. 317 (1997) (espousing a similar rule).

     How this presumption in favor of a grand jury subpoena plays out

in each individual case will depend upon the particular facts and

circumstances.  When called upon to adjudicate a motion to quash

a grand jury subpoena in the face of a civil protective order, a

district court may mull factors such as the government's need for

 the information (including the availability of other sources),

 the severity of the contemplated criminal charges, the harm to

society should the alleged criminal wrongdoing go unpunished, the

     interests served by continued maintenance of complete

   confidentiality in the civil litigation, the value of the

protective order to the timely resolution of that litigation, the

    harm to the party who sought the protective order if the

 information is revealed to the grand jury, the severity of the

harm alleged by the civil-suit plaintiff, and the harm to society

and the parties should the encroachment upon the protective order

hamper the prosecution or defense of the civil case.  In the

end, society's interest in the assiduous prosecution of criminal

wrongdoing almost always will outweigh its interest in the

resolution of a civil matter between private parties, see, e.g.,

Nixon, 457 U.S. at 754 n.37, and thus, a civil protective order

ordinarily cannot be permitted to sidetrack a grand jury's

investigation.

                        C.  The Remedy.

     We are mindful that the district court, compelled by conflicting

 precedent to guess at the rule of decision, applied the wrong

legal standard.  Ordinarily, such a chain of events counsels in

  favor of a remand.  Yet, when a trial court misperceives the

 applicable rule of law, remand is not always required.  If the

   record is sufficiently informative and the court has made

sufficiently detailed findings, it sometimes is possible for an

  appellate tribunal to take those findings, marry them to the

 correct rule of law, and render a decision.  See, e.g., United

States v. Pierro, 32 F.3d 611, 622 (1st Cir. 1994); Societe des

 Produits Nestle v. Casa  Helvetia, Inc., 982 F.2d 633, 640-41,

 642 (1st Cir. 1992); United States v. Mora, 821 F.2d 860, 869

                        (1st Cir. 1987).

     This is such a case.  The record yields all the information a

court is likely to need in order to rule upon a motion to quash. 

In addition, Judge Gertner made certain relevant findings.  More

importantly, the record is barren of any evidence that would

permit a court to find exceptional circumstances, or that might

tend to show that the public interest would be served by taking

the unusual step of preferring the civil protective order over

the grand jury subpoena.  The subpoenaed information is highly

relevant, the contemplated criminal charges are serious, the need

for deterrence is great, the public interest in prosecuting

police brutality cases is obvious, and, conversely, a limited

incursion on the protective order will neither delay the civil

litigation (which is stayed) nor unfairly skew its outcome.

     We will not paint the lily.  Remand would serve no useful purpose

because   the record presents insurmountable obstacles for

Doakes.  Indeed, even though Judge Gertner erroneously used a

legal standard much more congenial to Doakes's  position   a

legal standard which incorrectly presumed that a protective order

ordinarily would prevail over a grand jury subpoena   she found

that the subpoena should be enforced.  As the correct legal

standard treats grand jury subpoenas with considerably more

respect than the standard employed below, and as the judge's

findings of fact are entirely supportable, the subpoena's

survival is assured.  We need go no further.



Affirmed.