State v. Salgado-Mendoza ( 2017 )

This opinion was fiied for record
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IN CLERKS OFFICE
WFRaE COURT,81RIE OF mSHR^QTON
DATE QCT I 2 2517
SUSAN L CARLSON
^ClAAl/UA4Slir , C/ SUPREME COURT CLERK
CHIEF JUSTICE
IN THE SUPREME COURT OF THE STATE OF WASHINGTON
STATE OF WASHINGTON,
NO. 93293-0
Petitioner,
V. EN BANC
ASCENCION SALGADO-MENDOZA,
Filed OCX 1 2
Respondent.
STEPHENS, J.—We are asked to decide whether the district court in
Ascencion Salgado-Mendoza's 2013 trial for driving under the influence abused its
discretion by refusing to suppress the testimony ofthe State's toxicology witness. The
State initially disclosed the names of nine toxicologists from the Washington State
Patrol toxicology laboratory,indicating its intent to call "one ofthe following." Clerk's
Papers (CP) at 6. It whittled the list to three names the day before trial, but did not
specify which toxicologist it would call until the morning oftrial, noting that it provided
the witness's name "as soon as we had it and that's all that we can do in terms of
disclosure." Verbatim Report of Proceedings (YRP)(May 9, 2013) at 31. Salgado-
State V. Salgado-Mendoza (Ascencion), 93293-0
Mendoza moved to suppress the toxicologist's testimony under CrRLJ 8.3(b)based on
late disclosure, asking the court to "send a message to the state patrol crime lab and
say this isn't okay anymore." Id. at 27. The court refused, finding no actual
prejudice to the defense and observing that the practice ofdisclosing a list ofavailable
toxicologists rather than a specific witness was driven more by underflinding of the
crime labs than by mismanagement.
Salgado-Mendoza appealed to the superior court, which found the district
court had abused its discretion. The Court of Appeals affirmed, reasoning that the
delayed disclosure violated the discovery rules and caused prejudice. We disagree.
While the State's disclosure practice amounted to mismanagement within the
meaning of CrRLJ 8.3(b), Salgado-Mendoza has not demonstrated actual prejudice
to justify suppression. The trial court considered all the circumstances, including
the nature ofthe witness's testimony and the five months that counsel had to prepare
following the State's initial disclosure. On this record, we cannot say the district
court's ruling was "manifestly unreasonable" and thus an abuse of discretion. We
reverse the Court of Appeals.
FACTS AND PROCEDURAL HISTORY
In August 2012, Salgado-Mendoza was arrested on suspicion of driving under
the influence(DUI), Salgado-Mendoza consented to a breath test, which revealed his
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State V. Salgado-Mendoza (Ascencion), 93293-0
blood alcohol concentration to be above the legal limit. The State charged Salgado-
Mendoza with DUI,and trial was set in the district court of Jefferson County for May
9,2013.
At trial, the State planned to call a toxicologist as an expert witness to testify
regarding DUI testing procedures in Washington. Five months before trial, the State
disclosed a list ofnine potential toxicologist witnesses,only one ofwhom would testify.
Two weeks before trial, Salgado-Mendoza filed a supplemental discovery request
demanding,in part,that the State identify which toxicologist it actually intended to call.
The State asserts that it attempted to comply. Salgado-Mendoza still had not received
this information by May 6, 2013, three days before trial. Alleging governmental
misconduct, he filed a CrRLJ 8.3(b) motion to dismiss the case or suppress the
toxicologist's testimony. The day before trial, the State narrowed the list to three
names. At 9:00 a.m. on the morning of trial, the State identified the toxicologist who
would testify, indicating it had just received the name that morning.
Salgado-Mendoza asserted that the State's delayed disclosure was "a classic
form ofgovernmental misconduct." VRP at 25. Arguing that the need to interview and
prepare for cross-examination of nine witnesses when only one will testify placed an
undue bmfien on the defense, Salgado-Mendoza urged the court to dismiss—or at least
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to preclude the toxicologist's testimony.^ In opposition, the State argued that five
months was adequate time to prepare for each possible witness, the late disclosure was
a result of the toxicology lab being "overworked and understaffed,"^ and the
prosecution had repeatedly contacted the toxicology lab to request that a specific
toxicologist witness be identified. VRP at 30. The trial judge denied the motion and
allowed the toxicologist's testimony. Id. at 35-36(citing the toxicology lab's perennial
staffing shortages and the five months Salgado-Mendoza had to prepare). The case
proceeded to trial, where ajuiy found Salgado-Mendoza guilty.
Salgado-Mendoza appealed his DUI conviction to the superior court for
Jefferson County. Finding that the State's late disclosure constituted governmental
mismanagement and a violation ofdiscovery rules, that court held that the district court
abused its discretion by failmg to suppress the toxicologist's testimony. The superior
court additionally held the trial court abused its discretion by suppressing a portion of
^ Salgado-Mendoza further argued that the need to review nearly 200 pages of
available background materials (roughly 20 pages per toxicologist) represented a
"tremendous and needless waste of[counsel's] time." CP at 40. He conceded that the 60
pages associated with the three short-list names would have been reasonable had he been
given more than one day's notice. See VRP at 28.
^ Because the lab serves the entire state, its toxicologists are sometimes asked to
testify at multiple trials at the same time. The toxicology lab's staff shortage was
particularly acute here because at the time oftrial, three ofthe nine disclosed toxicologists
were on maternity leave. Although this suggests that there were actually only six
toxicologists who might testify, the State apparently did not remove the unavailable
toxicologists from the list until May 8, 2017.
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the defense expert's testimony regarding the breath alcohol testing machine used in
testing Salgado-Mendoza. The superior court reversed the conviction and remanded
the matter for a new trial.
The State moved for discretionary review. The Court of Appeals, accepting
review only with respect to the trial court's decision not to suppress the toxicologist's
testimony, affirmed the superior court. See State v. Salgado-Mendoza, 194 Wn. App.
234,238,373 P.3d 357,review granted, 186 Wn.2d 1017,383 P.3d 1028(2016). The
Court ofAppeals held that(1)the prosecutor's failure to "obtain the name ofits witness
in a timely manner" violated discovery rules and constituted governmental
mismanagement, (2) this misconduct prejudiced Salgado-Mendoza, and (3)
suppression ofthe toxicologist's testimony was the proper remedy. Id. at 243. Writing
in dissent. Judge Worswick argued that the trial court's denial of Salgado-Mendoza's
CrRLJ 8.3(b) motion did not constitute an abuse of discretion. Because Salgado-
Mendoza's"bald assertion that he would have preferred to request a continuance"rather
than proceed to trial unprepared was insufficient to meet the evidentiary burden of
actual prejudice required for relief under CrRLJ 8.3(b), id. at 260 (Worswick, J.
dissenting), it was not"manifestly unreasonable" for the district court to deny Salgado-
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Mendoza's motion. Wash. State Physicians Ins. Exch. & Ass'n v. Fisons Corp., 122
Wn.2d 299,339,858 P.2d 1054(1993). We granted review.^
STANDARD OF REVIEW
We review a trial court's ruling on a CrRLJ 8.3(b) motion under the
deferential abuse ofdiscretion standard. See, e.g.. State v. Michielli, 132 Wash. 2d 229,
240, 937 P.2d 587 (1997). A court abuses its discretion when an '"order is
manifestly unreasonable or based on untenable grounds.'" In re Pers. Restraint of
Rhome, 172 Wn,2d 654, 668, 260 P.3d 874 (2011) (internal quotation marks
omitted) (quoting State v. Rafay, 167 Wash. 2d 644, 655, 222 P.3d 86 (2009)). A
discretionary decision is "'manifestly unreasonable'" or "'based on untenable
grounds'" if it results from applying the wrong legal standard or is unsupported by
the record. Id. (internal quotation marks omitted) (quoting Rafay, 167 Wash. 2d at
655). A reviewing court may not find abuse of discretion simply because it would
have decided the case differently—it must be convinced that'"«o reasonable person
would take the view adopted by the trial court.'" State v. Perez-Cervantes, 141
Wn.2d 468,475,6 P.3d 1160(2000)(quoting State v. Huelett, 92 Wash. 2d 967, 969,
603 P.2d 1258 (1979)).
^ Because the question on appeal is limited to relief under CrRLJ 8.3(b), this case
will be remanded for a new trial regardless of our holding.
State V. Salgado-Mendoza (Ascencion), 93293-0
ANALYSIS
Under CrRLJ 8.3(b), the party seeking relief bears the burden of showing both
misconduct and actual prejudice. In this case, Salgado-Mendoza can demonstrate
misconduct within the meaniag of the rule, but not actual prejudice. He can prove
misconduct because a discoveiy violation need not be willful—simple mismanagement
will suffice. Here, the State's failure to at least narrow the list of possible toxicology
witnesses pretrial reflects mismanagement. However, Salgado-Mendoza cannot show
prejudice that wan'ants complete suppression of the toxicologist's testimony. As the
trial court recognized, Salgado-Mendoza's counsel had ample time to prepare to
examme each potential witness, given that discovery about their anticipated testimony
and their professional backgrounds was timely provided."^ Furthermore, while State
toxicologists are not exactly fungible witnesses, their substantive testimonies would
likely be similar. Under these circumstances, it was not manifestly unreasonable for
the trial court to deny Salgado-Mendoza's CrRLJ 8.3(b) motion.
The front page of the toxicology lab's website contams Imks to curriculum vitae
ofeach state toxicologist, detailing the specialties and education of each potential witness.
See WASH. STATE PATROL FORENSIC LAB. Servs., Toxicology Laboratory Division:
Public Records Index (last visited June 23, 2017), http://www.wsp.wa.gov/forensics/
toxlabindex.php [https://perma.cc/NCM3-YFQT](see entries under "Curriculum Vitae").
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State V. Salgado-Mendoza (Ascencion), 93293-0
A. Discovery Sanctions and Obligations in Washington
If a party fails to comply with the rules of discoveiy, trial courts have broad
authority to compel disclosure,impose sanctions,or both. See, e.g..State v. Hutchinson,
135 Wash. 2d 863, 882-83, 959 P.2d 1061 (1998)(regulation of discovery is left to the
"sound discretion" of trial courts). The rule at issue in this case, CrRLJ 8.3(b),
authorizes the court to dismiss a criminal action if the State violates its discoveiy
obligations. These obligations are found in CrRLJ 4.7(a), which governs discovery in
criminal cases in courts of limited jurisdiction. The rule sets out, in relevant part, the
prosecutor's obligation to disclose the identities of witnesses. See CrRLJ 4.7(a)(1).
This rule is complemented by the prosecutor's continuing obligations under CrRLJ
4.7(d). Even if the State fails to live up to its discoveiy obligations, however, relief
under CrRLJ 8.3(b) is available only if the trial court finds prejudicial governmental
misconduct or arbitraiy action.
The use of CrRLJ 8.3(b) to punish a discovery violation is limited because the
rule expressly contemplates dismissal,the most severe sanction available to trial courts.
CrRLJ 8.3(b) states:
The court, in the furtherance ofjustice after notice and hearing, may dismiss any
criminal prosecution due to arbitrary action or governmental misconduct when
there has been prejudice to the rights ofthe accused which materially affect the
accused's right to a fair trial. The court shall set forth its reasons in a written
order.
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As relevant to this case, a trial court may grant a motion for relief under CrRLJ 8.3(b)
only in the event of(1) governmental misconduct that (2) "materially affect[s] the
accused's right to a fair trial."^ Id. Violation ofthe State's discovery obligations can
support a finding ofgovernmental misconduct. See State v. Brooks, 149 Wn.App 373,
375,203 P.3d 397(2009).
CrRLJ 4.7(a)(1) sets out the State's obligations under the rules of discoveiy for
courts of limited jurisdiction. In relevant part, CrRLJ 4.7(a)(1) states that the
"prosecuting authority shall, upon written demand, disclose"
(i) the names and addresses of persons whom the prosecuting
authority intends to call as witnesses at the hearing or trial, together with any
written or recorded statements and the substance of any oral statements of
such witnesses;
(vii) any expert witnesses whom the prosecuting authority will call at
the hearing or trial, the subject oftheir testimony, and any reports relating to
the subject of their testimony that they have submitted to the prosecuting
authority;
This disclosure obligation is limited to information within the "possession [and]
control" ofthe prosecutor. CrRLJ 4.7(a)(1),(4). As the Court ofAppeals recognized,
there is some question as to whether the prosecutor "controls" the toxicology lab even
^ These requirements limit judicial discretion in the CrRLJ 8.3(b) context, consistent
with CrRLJ 4.7(g)(7)(ii)(authorizing dismissal for prosecutorial discovery violations only if
willful or grossly negligent).
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State V. Salgado-Mendoza (Ascencion), 93293-0
though both are state entities. See Salgado-Mendoza, 194 Wash. App. at 245 & n.7
(discussing alternate views).
Regardless of whether the state prosecutor "controls" the state toxicology lab,
discovery rules require the prosecutor to obtain disclosure ofdiscoverable information
m the possession of others. CrRLJ 4.7(d) states:
Upon defendant's request and designation of material or information in the
knowledge, possession or control of other persons which would be
discoverable if in the knowledge, possession or control of the prosecuting
authority, the prosecuting authority shall attempt to cause such material or
information to be made available to the defendant. If the prosecuting
authority's efforts are unsuccessful and ifsuch material or persons are subject
to the jurisdiction of the court, the court shall issue suitable subpoenas or
orders to cause such material to be made available to the defendant.
CrRLJ 4.7(d) imposes a continuing obligation on the prosecutor to seek the disclosure
ofdiscoverable information not in his or her control,including the identity ofwitnesses.
If the State, despite its best efforts, is unable to obtain the information, it should so
notify the court. See, e.g.. State v. Blackwell, 120 Wash. 2d 822, 832, 845 P.2d 1017
(1993) (prosecutor's unsuccessful efforts to obtain police personnel files, and
subsequent communication to inform the trial court, were reasonable).
In this case, the Court of Appeals majority found that the prosecutor's late
disclosure "would not likely have justified dismissal ofthe case, but suppression was a
reasonable alternative to dismissal." Salgado-Mendoza, 194 Wash. App. at 251. Indeed,
the primary remedy sought by Salgado-Mendoza's motion was suppression, not
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dismissal. See VRP at 27(arguing for CrRLJ 8.3(b)suppression).® This is consistent
with the general approach to discovery violations, encouraging courts to impose the
least severe sanction that adequately addresses the prejudice. See, e.g.,State v. Wilson,
149 Wash. 2d 1, 12,65 P.3d 657(2003)(suppression represents an "intermediate step,"
avoiding the "extraordinary remedy of dismissal"); see also State v. McReynolds, 104
Wash. App. 560, 579, 17 P.3d 608(2000)("Dismissal is notjustified when suppression
ofevidence will eliminate whatever prejudice is caused by the action or misconduct.").^
This court has previously interpreted CrRLJ 8.3(b) as authorizing suppression (as well
as lesser sanctions) at the discretion of the trial court. See City ofSeattle v. Holifield,
170 Wn.2d 230,239,240 P.3d 1162(2010)(noting that because dismissal under CrRLJ
8.3(b) is discretionary, "suppression presents an appropriate, less severe remedy than
dismissal under CrRLJ 8.3(b)"). Before the court may grant relief under CrRLJ 8.3(b),
however,it must find misconduct and actual prejudice.
® Salgado-Mendoza's counsel explained his support for suppression over outright
dismissal; "Yes,I would love for you [the court] to dismiss it. I know you're not going to
do that. But I would like you to send a message to the state patrol crime lab and say this
isn't okay anymore." VRP at 27.
^ Legal scholarship analyzing federal case law highlights similar themes ofjudicial
discretion and preference for the least severe sanction. See, e.g.. Discovery and Access to
Evidence,44 Geo.L-J. ANN.Rev.Crim.Proc.405,429-30(2015)("The district court has
broad discretion to sanction the govemment for failure to comply with discovery requests,
but the court should impose the least severe sanction that will accomplish prompt and full
compliance with its discovery order.").
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The party seeking relief bears the burden to show misconduct by a
preponderance of the evidence. See, e.g., State v. Rohrich, 149 Wash. 2d 647, 654, 71
P.3d 638(2003). However,the party does not need to prove bad faith on the part ofthe
prosecutor. See State v. Dailey,93 Wash. 2d 454,457,610 P.2d 357(1980). As this court
noted in Dailey, the '"governmental misconduct' need not be of an evil or dishonest
nature; simple mismanagement is sufficient." Id.
The movant also bears the burden of demonstrating prejudice. See, e.g.,
Michielli, 132 Wash. 2d at 240. Our case law makes clear that a party cannot meet this
burden by generally alleging prejudice to his fair trial rights—a showing of actual
prejudice is required. See Rohrich, 149 Wash. 2d at 649 (noting "dismissal under CrR
8.3(b)... requires a showing ofnot merely speculative prejudice but actualprejudice
to the defendant's right to a fair trial" (emphasis added)); see also City ofSeattle v.
Orwick, 113 Wn.2d 823,829,784 P.2d 161(1989)("'[Ajbsent demonstrable prejudice,
or substantial threat thereof, dismissal of the indictment is plainly inappropriate.'"
(quoting UnitedStates v. Morrison,449 U.S. 361,365,101 S. Ct. 665,66 L.Ed.2d 564
(1981))). Importantly, late disclosure of material facts can support a finding of actual
prejudice. See State v. Price,94 Wash. 2d 810,814,620 P.2d 994(1980). In the dismissal
context, a defendant is prejudiced when delayed disclosure inteijects "new facts"
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shortly before litigation, forcing him to choose between his right to a speedy trial and
to be represented by an adequately prepared attorney. Id.
B. The Trial Court Did Not Abuse Its Discretion by Refusing To Suppress
the Toxicologist's Testimony
On appeal, the superior court held that the trial court abused its discretion by
denying Salgado-Mendoza's CrRLJ 8.3(b) motion. The Court of Appeals affirmed
based on two findings: first, that late disclosure of a witness's identity constitutes
governmental misconduct, and second, that the late disclosure prejudiced Salgado-
Mendoza's defense. See Salgado-Mendoza, 194 Wash. App. at 243. We agree that the
State's delayed disclosure likely constitutes misconduct under the rule. However,
Salgado-Mendoza's allegation of prejudice due to the mere fact of late disclosure,
without more, is inadequate to establish prejudice under CrRLJ 8.3(L). Because
Salgado-Mendoza has not demonstrated by a preponderance of the evidence how the
State's misconduct "materially" prejudiced his defense, we cannot conclude it was
"manifestly unreasonable" for the trial court to allow the toxicologist's testimony.
CrRLJ 8.3(b); Rhome, 172 Wash. 2d at 668. Given the deference due to trial courts under
the abuse of discretion standard, we reverse the Court of Appeals.
(1) The State's Disclosure Likely Constituted Governmental Misconduct
On this record, Salgado-Mendoza likely meets his burden to show
"governmental misconduct." CrRLJ 8.3(b). The State did not disclose which
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toxicologist it intended to call until 9:00 a.m. on the day of trial. See VRP at 25;
CrRLJ 4.7(a)(l)(i) (requiring timely disclosure of "the names and addresses of
persons whom the prosecuting authority intends to call as witnesses"). Delayed
disclosure may support a finding of governmental misconduct. See Price,94 Wn.2d
at 814. Misconduct occurs when the prosecutor "inexcusably fails to act with due
diligence," resulting in material facts not being disclosed "until shortly before a
crucial stage in the litigation process." Id. As the State acknowledges, it did not
"intend[]" to call nine toxicologists as witnesses—it intended to call one. CrRLJ
4.7(a)(l)(i). By not disclosing the name of the witness it intended to call until the
day of trial, the State did not live up to its discovery obligations under CrRLJ 4.7.
In opposition to Salgado-Mendoza's motion, the State argued its late
disclosure was not the product of misconduct. See VRP at 30. Rather, the delay
resulted from perennial staffing and resource shortages at the toxicology lab—^not
from any failure of due diligence on the part of the prosecutor. Id. The prosecutor
essentially argued that she could not disclose what she did not know, and had made
a sincere effort to obtain the requested information. Id.(noting multiple phone calls
to the toxicology lab). While we might be sympathetic to the prosecutor's situation,
these arguments seem to confuse the Price "due diligence" standard with the concept
of bad faith, which is not alleged here. See VRP at 25; Price, 94 Wash. 2d at 814;
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Blackwell, 120 Wn.2d at 832(dismissal appropriate based on bad faith violations of
discovery rules, i.e., prosecutorial '"game playing'"). Compliance with discovery
obligations—"due diligence" under Price—^requires more than the absence of bad
faith. See 94 Wash. 2d at 814; CrRLJ 4.7(d)(imposing ongoing disclosure obligations).
The prosecutor has the continuing obligation to pursue the disclosure of
discoverable information. See CrRLJ 4.7(d). If these efforts prove unsuccessful,
discovery rules instruct her to so inform the court.^ Id. In this case, it is unclear
from the record whether the prosecutor communicated adequately with the court; it
was Salgado-Mendoza, not the prosecutor, who repeatedly brought the matter to the
court's attention. See CP at 12, 40. The prosecutor seemed to minimize the State's
obligations under CrRLJ 4.7(d), stating that "[t]he defendant was given the name as
soon as we had it and that's all we can do in terms of disclosure." VRP at 31. This
statement is incon'ect—^pursuing disclosure of information the prosecutor does not
have is literally the purpose of CrRLJ 4.7(d).
^ Blackwell is instructive. 120 Wash. 2d 822. In that case,the State communicated to the
trial court that it had failed to obtain police records, and suggested the judge subpoena the
information. Id. at 827. On appeal, we found no mismanagement. Id. at 832. The Court of
Appeals majority's reading ofBlackwell, suggesting that a prosecutor's failure to take these
steps is mismanagement, appears overbroad. See Salgado-Mendoza, 194 Wash. App. at 246-
47. Nevertheless, on this record, we agree that Blackwell supports finding
mismanagement.
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Ultimately,Salgado-Mendoza must prove neither bad faith nor a CrRLJ 4.7(d)
violation to demonstrate governmental misconduct. The standard, at least at this
stage ofthe CrRLJ 8.3(b) analysis, is considerably more lenient. Salgado-Mendoza
needs to show only "mismanagement"—^that the State, with no presumption of ill
will, belatedly disclosed material information. See, e.g., Dailey, 93 Wash. 2d at 457
("'[G]ovemmental misconduct' need not be of an evil or dishonest nature; simple
mismanagement is sufficient."). Salgado-Mendoza has met that burden here. CrRLJ
4.7(a)(l)(i) obligated the State to disclose the name ofthe toxicologist it intended to
call; the State instead disclosed the names of nine potential witnesses. CP at 6. For
a full five months,the State made no attempt to narrow the list—despite the fact that
at least three potential witnesses were on maternity leave and would clearly be
unavailable at trial. See VRP at 30. Instead, no additional relevant disclosures were
made until, the afternoon before trial, the State narrowed the list to three names. Id.
at 21. The toxicology lab did not reveal the individual witness's name until the
morning of trial, the day he was to testify.^ Id. at 25. This constitutes
mismanagement by the State, and the fact that the information was as much a
® We note with concern that the delayed disclosure in this case does not appear to
be an isolated incident. The record indicates that failing to identify a witness until just
before trial is standard operating procedure for the State toxicology lab. See, e.g., VRP at
30. With respect to initial disclosures, it appears the lab's policy has been to disclose the
names of all toxicologists on staff. See, e.g., Suppl. Br. of Resp't at 1.
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surprise to the prosecutor as it was to Salgado-Mendoza is hardly evidence to the
contrary.
(2)Although Salgado-Mendoza Demonstrates Misconduct, There Was
Insujficient Evidence ofPrejudice To Justify Suppression
Relief under CrRLJ 8.3(b) requires the moving party to show both
mismanagement and prejudice. Salgado-Mendoza, despite demonstrating
misconduct, does not show that the State's action sufficiently prejudiced his defense
to justify suppression of the toxicologist's testimony. At trial, Salgado-Mendoza
argued that reviewing material for each potential witness would obligate counsel to
"spend needless hours wasted," thus burdening the defense. VRP at 25. The trial
judge denied the motion, reasoning that the five months defense counsel had to
review each potential witness's materials mitigated the prejudice. The Court of
Appeals disagreed, finding that the "unfair burden" of investigating nine potential
witnesses is sufficient, without more,to establish prejudice. See Salgado-Mendoza,
194 Wash. App. at 249. Because this is not what CrRLJ 8.3(b)requires, we reverse.
CrRLJ 8.3(b) requires that governmental misconduct "materially affect[ed]"
the defendant's right to a fair trial. Our case law typically refers to this as "actual
prejudice." See, e.g., Rohrich, 149 Wash. 2d at 649. A defendant may be
impermissibly prejudiced if a late disclosure compels him to choose between his
right to a speedy trial and his right to be represented by adequately prepared
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counsel.^® See, e.g., Price, 94 Wash. 2d at 814. However, because the party seeking
relief carries the burden of proof, Salgado-Mendoza must articulate how the late
disclosure materially prejudiced his defense. See, e.g., Rohrich, 149 Wash. 2d at 649
(party must show "not merely speculative prejudice but actual prejudice"). He has
not done so here.
At trial, Salgado-Mendoza's counsel argued that the prosecutor's disclosure
of nine names instead of one prejudiced the defense because preparing to cross-
examine multiple witnesses would have resulted in "needless hours wasted." VRP
at 25. Notably, counsel did not argue that he actually wasted them." Id. This
argument seems to falsely equate the risk of prejudice with "actual prejudice" in the
CrRLJ 8.3(b) context. See, e.g., Rohrich, 149 Wash. 2d at 649 (party must show "not
merely speculative prejudice but actual prejudice").
The Court of Appeals majority and dissent disagree as to whether the "new facts"
test applies in this case. See Salgado-Mendoza, 194 Wash. App. at 249 n.l4. If so, Salgado-
Mendoza would have to establish actual prejudice by specifically showing that the
"interjection of'new facts'" due to the late disclosure compelled him to choose between
two constitutional rights. State v. Woods, 143 Wash. 2d 561, 584, 23 P.3d 1046 (2001).
However, as the Court of Appeals majority points out, our case law developing the
heightened "new facts" standard deals with the extreme remedy of dismissal—not
suppression. See Salgado-Mendoza, 194 Wash. App. at 249 n.l4. We are not compelled to
resolve the question here because Salgado-Mendoza fails to demonstrate actual prejudice
regardless of whether the "new facts" test applies. See supra Section B.2.
As the Court of Appeals dissent puts it, "[Cjounsel was not unable to prepare—
he wasjust unwilling to prepare for cross-examination." Salgado-Mendoza, 194 Wash. App.
at 262. Relatedly, counsel did not claim that the State's mismanagement had unreasonably
increased the time or money spent on Salgado-Mendoza's defense. See, e.g., VRP at 25.
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Before this court, Salgado-Mendoza argues more convincingly that the late
disclosure resulted in a less effective cross-examination of the State's toxicologist
witness. See Supp, Br. of Resp't at 15-16. The district court judge addressed this
concem directly, asking counsel whether there was "anything specifically [he]
need[ed] to research" further before the toxicologist testified. VRP at 37. Counsel
reasonably pointed out the difficulty ofpredicting the impact ofthe disclosure delay
on a cross-examination that had not yet occurred. Id. ("I will do the best I can with
what I have. . . . [I]t really is going to depend ... on how far [the toxicologist's
testimony] goes."). Nevertheless, counsel never asserted he was unprepared for
cross-examination, nor did Salgado-Mendoza request a continuance. Id. On these
facts, the State's misconduct did not give rise to "actual prejudice" under CrRLJ
8.3(b).
To be clear, there are circumstances in which it would be appropriate to infer
actual prejudice from delayed disclosures. For example, late disclosure of a key
witness presenting unique testimony—such as an investigating officer—is likely to
prejudice the defense. A state toxicologist presents a closer question. We
acknowledge that toxicologists are not "'fungible'" witnesses as the district court
suggested—they have individual professional and educational backgrounds, making
them unique for purposes of impeachment and influencing the likely scope of their
-19-
State V. Salgado-Mendoza (Ascencion), 93293-0
testimony. CP at 69; Suppl. Br. ofResp't at 13. Yet the fact remains that any state
toxicologist called to testify in Salgado-Mendoza's case would give similar
substantive testimony: a description ofthe effects ofalcohol on the body,how blood-
alcohol is measured, and procedures for roadside sobriety testing, etc. Salgado-
Mendoza implicitly concedes this point, primarily arguing that toxicologists are
unique for purposes of impeachment. See CP at 41 (noting that each witness "has
his or her own background and story that might well provide fodder for cross-
examination"). The district court addressed this point explicitly, observing that on
topics such as lab procedures Salgado-Mendoza could ask any of the toxicologists
the same set of cross-examination questions. See VRP at 22 (noting each
toxicologist would testify similarly because each would speak to the same "standard
operating procedure[s] for a toxicology lab").
It is also important to recognize that prejudice can arise from actions other
than withholding discoverable information. Although the State did delay disclosure
in this case, its initial error was actually one ofoverdisclosure—listing nine potential
witnesses rather than the single toxicologist it intended to call. See CP at 6; CrRLJ
4.7(a)(l)(i). As anyone who has used an Internet search engine knows, receiving
Presumably, many of these differences were known to Salgado-Mendoza's
attorney during the months leading up to trial—^the toxicology lab's website lists each
toxicologist's curriculum vitae. See WASH.STATE PATROL FORENSIC LAB.Serys.,supra.
-20-
State V. Salgado-Mendoza (Ascencion), 93293-0
too much infonnation can be just as unenlightening as receiving nothing at all. The
district court, in denying Salgado-Mendoza's CrRLJ 8.3(b) motion, acknowledged
that the State's actions could give rise to prejudice—^but found that any such
prejudice was mitigated by the circumstance ofthe case.
The district court's finding turned on its evaluation of the practical
consequences ofthe State's disclosure. The court found that the extra work required
was not "extraordinary" given the amount of time counsel had to prepare and the
fact that he was an experienced attorney, having litigated roughly 1,000 DUI trials.
VRP(5/9/13)at 35. Again,this conclusion is reasonable and supported by the record.
Researching the backgrounds ofnine potential witnesses rather than one is not trivial
and, on a sufficiently tight timeline, could be burdensome. On the other hand, in
this case counsel had a full five months to prepare following the State's initial
disclosure. Id. During that time, counsel had access to publicly available
information detailing the toxicolegists' different educational and professional
histories. Furthermore, any of the witnesses would likely testify to a common core
oftopics—^blood alcohol content testing procedures, DUI field tests, etc.—allowing
counsel to prepare a common set of cross-examination questions. In this context,
the trial court reasonably determined that having to review additional materials
-21-
State V. Salgado-Mendoza (Ascencion), 93293-0
relating to toxicologists who did not ultimately testify would not substantially
prejudice the defense.
The trial court was in the best position to make a fair call. The trial court,
after considering mitigating factors such as counsel's expertise and extensive
preparation time, and the substantive similarity oftoxicologist testimony across DUI
trials, found that the burden caused by the State's delayed disclosure did not justify
suppression of the toxicologist's testimony." Although another court might have
held differently, perhaps viewing the State's apparent disinterest in even narrowing
the list of toxicologists as a sufficiently egregious violation to support relief under
CrRLJ 8.3(b), disagreement in result is an insufficient basis on which to find an
abuse ofdiscretion. See, e.g., Perez-Cervantes, 141 Wn.2d at 475(reviewing courts
must be convinced that "'«o reasonable person would take the view adopted by the
trial court'"(quoting Huelett,92 Wn.2d at 969). Because the trial court's action was
not"manifestly unreasonable" under the circumstances ofthis case, we find no abuse
of discretion. See Wash. State Physicians, 122 Wash. 2d at 339.
Note that the district court's rejection of Salgado-Mendoza's motion to suppress
does not eliminate the possibility of lesser sanctions. For example, the court could
reasonably have ordered the State to pay a portion of Salgado-Mendoza's legal fees had
his counsel "wasted" time in preparing for multiple cross-examinations. See CrRLJ
4.7(g)(7)(i).
-22-
State V. Salgado-Mendoza (Ascencion), 93293-0
CONCLUSION
While we acknowledge the State's mismanagement in failing to timely
disclose its testifying toxicologist, we agree with the district court that Salgado-
Mendoza has not demonstrated actual prejudice to justify suppression of the
toxicologist's testimony. Because there was no abuse of discretion, we reverse the
Court of Appeals,
-23-
State V. Salgado-Mendoza (Ascencion), 93293-0
WE CONCUR:
d-
QiA-Likj,
-24-
State V. Salgado-Mendoza (Ascencion)
No. 93293-0
MADSEN,J.(dissenting)—I agree with the majority that the State's failure to
disclose the name ofthe toxicologist who would testify at Ascencion Salgado-Mendoza's
trial until the morning of trial was mismanagement sufficient to show governmental
misconduct under CrRLJ 8.3(b). By failing to disclose the name ofthis key witness until
the day he was set to testify, the State did not live up to its discovery obligations under
CrRLJ 4.7. I depart from the majority, however, because I would also find that Salgado-
Mendoza was prejudiced by this delayed disclosure. Forcing a defendant to bear the
burden of preparing to cross-examine a long list of witnesses when the State only intends
to call one is not how our system ofjustice operates. The State cannot cite funding
deficiencies and simply shift its burden of prosecution onto defense counsel. If the State
wishes to pursue prosecution, it must allocate sufficient resources to its departments so
that they may operate in a way that is consistent with a defendant's right to a fair trial.
By understaffing the State's toxicology laboratory so that they cannot confirm who will
testify until the day of trial, the State is not meeting this burden and defendants are being
forced to compensate for the deficiency. Therefore, I would find that the trial court
abused its discretion by denying Salgado-Mendoza's motion to suppress the
No. 93293-0
Madsen, J., dissenting
toxicologist's testimony. Because the majority instead affirms the trial court's finding
that there was no prejudice, I respectfully dissent.
As the majority aptly explains, the discovery rules require a prosecutor to obtain
and disclose discoverable information in the possession of others. CrRLJ 4.7(d). If the
prosecutor is unable to obtain the information, he or she should notify the court, and the
court shall then issue subpoenas or orders to cause the information to be made available
to the defendant. Id. The names of persons the State intends to call as witnesses are
explicitly included in the discovery rules as information the prosecuting authority must
disclose. CrRLJ 4.7(a)(1). If the State fails to comply with the rules of discovery, the
defendant may seek relief under CrRLJ 8.3(b), which states:
The court, in furtherance ofjustice after notice and hearing, may dismiss
any criminal prosecution due to arbitrary action or governmental
misconduct when there has been prejudice to the rights of the accused
which materially affect the accused's right to a fair trial. The court shall set
forth its reasons in a written order.
To obtain dismissal under CrRLJ 8.3(b), a defendant must show arbitrary action or
governmental misconduct, but the governmental misconduct need not be of an evil or
dishonest nature; simple mismanagement is enough. State v. Dailey, 93 Wash. 2d 454, 457,
610 P.2d 357(1980). Dismissal also requires a defendant show that the misconduct
prejudiced his or her right to a fair trial. State v. Michielli, 132 Wash. 2d 229, 240, 937 P.2d
587(1997). "Such prejudice includes the right to a speedy trial and the 'right to be
represented by counsel who has had sufficient opportunity to adequately prepare a
No. 93293-0
Madsen, J., dissenting
material part of his defense.'" Id.(quoting State v. Price, 94 Wash. 2d 810, 814, 620 P.2d
994(1980)).
In this case, Salgado-Mendoza has shown actual prejudice because the State's late
disclosure forced him to choose between his speedy trial right and proceeding to trial
with adequately prepared counsel. See U.S. CONST, amend. VI. Defense counsel made
clear in the trial court that he would have preferred to request a continuance after learning
the identity of the testifying toxicologist in order to be fully prepared for cross-
examination. But Salgado-Mendoza did not wish to waive his right to a speedy trial.
Verbatim Report ofProceedings(May 9, 2013)(VRP)at 36. Instead, Salgado-Mendoza
was forced to proceed with an attorney who was not prepared to effectively cross-
examine the State's toxicologist.
One ofthe purposes of discovery rules is to afford an opportunity to prepare for
effective cross-examination. CrR 1.2 (Superior Court Criminal Rules are intended to
provide for thejust determination in every criminal proceedings, which includes
simplicity, fairness, effective justice, and elimination of unjustifiable expense and delay);
State V. Jones, 183 Wash. 2d 327, 339, 352 P.3d 776(2015)(for defense counsel to be
effective, counsel must investigate the case, which includes interviewing witnesses); State
V. Yates, 111 Wash. 2d 793, 797-98, 765 P.2d 291 (1988)(one goal of discovery is to
prevent surprises during testimony). Importantly, effective cross-examination is the goal.
As the majority suggests, Salgado-Mendoza's attorney could have prepared for a cross-
examination that probed into the general areas oftestimony common to most
No. 93293-0
Madsen, J., dissenting
toxicologists. But what makes a cross-examination truly effective is the ability to inquire
into the differences in education, experience, and knowledge that lay the foundation for
each toxicologist's unique understanding ofthose general areas.
A prime example of defense counsel's lack of preparedness was his attempt to
question the testifying toxieologist about a 2009 study that allegedly criticized certain
tests regularly used by the State toxicology laboratory. VRP at 243. When questioned
about the study, the toxieologist informed counsel that he was not aware ofthe specific
study. The trial court then sustained the State's objection to the line of questioning
because the toxicologist's lack of familiarity with the study would prevent him from
providing "an intelligent educated answer." Id. at 243-44. Had the State provided
Salgado-Mendoza with the name ofthe testifying toxieologist prior to the morning of
trial, defense counsel could have interviewed the toxieologist, learned what studies he
was familiar with, and provided him a copy ofthe unfamiliar study so that they could
have a productive dialogue about it during cross-examination. Without that time for
preparation, defense counsel's attempt at using the study to defend his client simply fell
flat. Despite counsel's apparent experience representing people in driving under the
influence(DUI)trials generally, he was unable to prepare for this particular toxicologist's
testimony in the context of Salgado-Mendoza's specific case. Without waiving his
speedy trial right, Salgado-Mendoza was left with no choice but to proceed with
unprepared counsel because ofthe State's delayed disclosure.
No. 93293-0
Madsen, J., dissenting
We have found prejudice in similar eireumstanees. In Michielli, we found that the
defendant had shown prejudice because the State had brought additional charges against
him three business days before trial. 132 Wash. 2d at 244. In that situation, the defendant
was prejudiced because he was forced to waive his speedy trial right and ask for a
continuance to prepare for the surprise charges. Id. In this case, Salgado-Mendoza was
faced with similar circumstances. He too was faced with the difficult decision of whether
to waive his speedy trial right or proceed with unprepared counsel. While the defendant
in Michielli chose to waive speedy trial, Salgado-Mendoza chose to proceed with
unprepared counsel. That Salgado-Mendoza chose one of his rights to a fair trial rather
than the other does not distinguish this case from Michielli. The fact that he was faced
with the choice at all is enough to find prejudice. See, e.g.. State v. Brooks, 149 Wn.
App. 373, 387, 203 P.3d 397(2009)("The State cannot by its own unexeused conduct
force a defendant to choose between his speedy trial rights and his right to effective
counsel who has had the opportunity to adequately prepare a material part of his
defense."(citing Price, 94 Wash. 2d at 814)).
Further, there is no question that even if Salgado-Mendoza had requested a
continuance, the State would not have disclosed the name of the particular toxicologist
who would be testifying until the day of trial. This situation was not a one-time
occurrence unique to Salgado-Mendoza's trial. See VRP at 25-27, 30. There is a pattern
and practice of last minute disclosures as to which toxicologist will testify. If Salgado-
Mendoza had requested a continuance, he would have been forced to waive his speedy
No. 93293-0
Madsen, J., dissenting
trial right and later forced to yet again proceed with unprepared counsel because ofthe
State's persistent failure to meet its discovery obligations. Given the unenviable choice
between his rights to a fair trial that the State forced on Salgado-Mendoza by its delayed
disclosure, I would hold that the trial court abused its discretion by denying suppression.
I also stress that the trial court erred in describing the toxicologist witnesses as
fungible. Although the majority states that the toxicologists are not fungible, its ruling
nonetheless minimizes the importance of their differences. There are 20 experts currently
listed on the toxicology lab's website. See WASH. State Patrol Forensic Lab.
Servs., Toxicology Laboratory Division: Public Records Index (last visited Aug. 3,
2017), http://www.wsp.wa.gOv/forensics/toxlabindex.php#vitae [https://perma.cc/NCM3-
YFQT]. The toxicologists vary greatly in education and expertise. This variation in
experience is critical because it provides the foundation for the unique understanding of
each toxicologist about the core topics relevant to DUI trials. This varied experience
determines which topics a toxicologist witness is comfortable exploring in depth and
which they lack an understanding of. The trial court minimized this varied experience by
narrowing in on the fact that each toxicologist would testify similarly because each would
testify to the same "standard operating procedure for a toxicology lab." VRP at 22. But
in a typical DUI trial, the toxicologist may testify about many things beyond just the
standard operating procedure for the simulator solution that is used as the reference check
during the breath test. Toxicologists may testify about alcohol pharmacokinetics, the
effects of alcohol, field sobriety tests, retrograde extrapolation, Widmark's formula
No. 93293-0
Madsen, J., dissenting
(calculating blood alcohol content), and other biological factors that impact breath test
results. The toxicologist's training and experience dietates his or her comfort level for
testifying about these other topics. For example, the toxicologist's testimony in the
present case illustrated how his unique experienee and understanding shaped what he
eould testify about. Compare VRP at 236 (familiar with standardized field sobriety
tests), and Til (familiar with horizontal gaze nystagmus), with VRP at 242(training on
field sobriety tests was done in an "academic setting" rather than on the roadside), and
257(responding that he would not "do a very good job" at explaining partition ratios
because he only has a general understanding ofthe concept). Expecting defense counsel
to prepare an effective eross-examination addressing the variations in toxicologist
education and experience for nine potential witnesses when only one will actually testify
is unreasonable.
The majority asserts that Salgado-Mendoza's attorney could hsiVQ prepared a
cross-examination for all nine witnesses but chose not to; therefore, there was no actual
)
prejudice because eounsel did not waste needless hours. Majority at 18. But we cannot
demand a criminal defendant go above and beyond to compensate for the State's
mismanagement of its expert witnesses. It is not the defendant's responsibility to waste
substantial time and resources preparing for additional witnesses that the State never
intends to call. If the State wants to eall a toxicologist to testify against a criminal
defendant, it needs to inform the defendant who that witness will be in aeeordance with
No. 93293-0
Madsen, J., dissenting
the rules of discovery. That is the State's burden, not one that we should so quickly push
onto the defendant.
If we allow underfunding and congestion at the State's toxicology lab to excuse
fair trial rights, there will be no inducement for the State to remedy the problem. See
State V. Wake, 56 Wash. App. 472, 475, 783 P.2d 1131 (1989). The State prosecutes a high
volume of DUl trials every year. And it appears that the toxicology lab persistently does
not inform the prosecutor which toxicologist will be testifying until the morning of trial.
There is no justification for this kind oframpant disregard for discovery obligations
because it unfairly shifts the burden onto defendants to either waive their speedy trial
right or proceed will ill-prepared counsel. Ifthe State wishes to prosecute crimes, it must
put sufficient resources into that prosecution to ensure fairness to the individuals charged.
Criminal defendants should not have to bear the burden of the State's inadequate funding.
Because the trial court failed to see the actual prejudice that the State's delayed
disclosure forced on Salgado-Mendoza, 1 would hold that it abused its discretion.
Accordingly, 1 respectfully dissent.
No. 93293-0
Madsen, J., dissenting