In re Custodial Law Enf't Recording
Date Filed2022-12-16
Docket364PA19
Cited0 times
StatusPublished
Syllabus
Whether the trial court abused its discretion in denying, without explanation, the city's Motion to Modify Restrictions.
Full Opinion (html_with_citations)
IN THE SUPREME COURT OF NORTH CAROLINA
2022-NCSC-125
No. 364PA19
Filed 16 December 2022
IN THE MATTER OF: CUSTODIAL LAW ENFORCEMENT RECORDING
SOUGHT BY CITY OF GREENSBORO
On discretionary review pursuant to N.C.G.S. § 7A-31 and on appeal of right
of a substantial constitutional question pursuant to N.C.G.S. § 7A-30(1) of a
unanimous decision of the Court of Appeals, 266 N.C. App. 473 (2019), affirming an
order entered on 23 February 2018 by Judge Susan E. Bray in Superior Court,
Guilford County. Heard in the Supreme Court on 29 August 2022.
Fox Rothschild LLP, by Patrick M. Kane and Kip David Nelson, for petitioner-
appellant City of Greensboro.
Ward and Smith P.A., by Chris S. Edwards and Alexander C. Dale, court-
appointed amicus curiae.
Mark Dorosin, Elizabeth Haddix, Jaclyn Maffetore, Cheyenne N. Chambers,
and Kimberly M. Rehberg for Beloved Community Center of Greensboro, League
of Women Voters of the Piedmont Triad, Reclaiming Democracy, Roch Smith
Jr., Guilford Anti-Racism Alliance, Homeless Union of Greensboro, Triad City
Beat, The Carolina Peacemaker, Pulpit Forum of Greensboro and Vicinity,
Democracy Greensboro, UNCG Chapter of the American Association of
University Professors, St. Barnabas Episcopal Church, Community Play!/All
Stars Alliance, American Civil Liberties Union of North Carolina Legal
Foundation, NC WARN, and City of Durham, NC, amici curiae.
HUDSON, Justice.
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¶1 Here, we consider an order entered pursuant to N.C.G.S. § 132-1.4A(g) to
release police video recordings of an incident on 10 September 2016 in Greensboro.
In the order, the trial court imposed restrictions upon the possible use and discussion
of the recordings by the Greensboro City Council. Interpreting these conditions as a
âgag order,â the City of Greensboro asked the trial court to modify the restrictions.
The trial court summarily denied that request. On appeal, the Court of Appeals
affirmed the trial courtâs order and maintained that the City was not entitled to relief.
Because we conclude that the trial court abused its discretion by denying, without
explanation, the Cityâs Motion to Modify Restrictions, we vacate the decision of the
Court of Appeals and remand the case to the trial court for a new hearing on the
Cityâs motion.
I. Factual and Procedural Background
¶2 On the evening of 10 September 2016, several police officers for the City of
Greensboro arrested four Black men on a busy public sidewalk downtown. In a short
cell phone video posted to YouTube titled âGreensboro police brutality,â1 the officers
can be seen shoving and arresting two of the men. Among other images, the YouTube
video shows the police apparently using a chokehold on Aaron Garrett before
throwing him to the ground. Mr. Garrett was able to stand and back away with his
1 Greensboro Police Brutality, YouTube (Sept. 13, 2016),
https://www.youtube.com/watch?v=MzdS-aSVR0w.
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arms lowered and palms open. Several police officers are seen firing their tasers into
Mr. Garrett, who is then depicted screaming, before he falls to the sidewalk while
electricity visibly courses through his body.
¶3 The entire incident, including the prelude and aftermath, was also recorded on
several body cameras worn by the police officers. While the YouTube video is less
than two minutes long and depicts a single perspective, there are approximately four
hours of police body camera video showing the incident from multiple angles. This
case concerns the videos from these police-worn body cameras.
¶4 One of the arrested individuals alleged misconduct by the police and reported
the officers to the Professional Standards Division (PSD) of the Greensboro Police
Department. The PSD conducted an internal investigation and in 2017 concluded
that the police officers behaved appropriately. The same individual then appealed the
decision to the Greensboro Police Community Review Board (PCRB).
¶5 At that point, more than a year after the 2016 incident, various entities
petitioned the Superior Court, Guilford County, for the release of the police body
camera videos pursuant to N.C.G.S. § 132-1.4A(g), which governs the release of such
videos. The PCRB petitioned for the release of the videos as part of its investigation.
Two of the arrested individuals and the City also petitioned for the release of the
videos. Subsection 132-1.4A(g) reads, in pertinent part, as follows: âThe court . . . may
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place any conditions or restrictions on the release of the recording that the court, in
its discretion, deems appropriate.â N.C.G.S. § 132-1.4A(g) (2021).
¶6 The trial court addressed all these petitions in one proceeding. On 16 January
2018, the trial court initiated an in-camera review of the videos and scheduled a
hearing on the petitions, after which the trial court entered an order on 23 January
2018, granting the release of the videos with restrictions. Specifically, in response to
the Cityâs petition, the trial court checked the following boxes on the form order,
under âfindings of factâ:
[X] Release is necessary to advance a compelling public
interest.
[X] The recording contains information that is otherwise
confidential or exempt from disclosure or release under
State or federal law.
[X] The person requesting release is seeking to obtain
evidence to determine legal issues in a current or potential
court proceeding.
[ ] Release would reveal information regarding a person
that is of a highly sensitive personal nature.
[X] Release may harm the reputation or jeopardize the
safety of a person.
[X] Release would create a serious threat to the fair,
impartial, and orderly administration of justice.
[X] Confidentiality is necessary to protect either an active
or inactive internal or criminal investigation or potential
internal or criminal investigation.
[X] There is good cause shown to release all portions of a
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recording.
[X] Other (if applicable): It is appropriate to place certain
restrictions on the release.
The court then specified additional restrictions in an attachment to the order, which
included the following language:
Recordings are to be viewed in presence and under
direction and control of the City Attorney for Greensboro
or his designee. No one other than the City Manager, City
Council members, or legal counsel for the City shall be
present. No photographs, screen shots or other
duplications or recordings of the body-worn camera footage
shall be made. All viewers shall sign a pledge of
confidentiality and are not to disclose or discuss the body-
worn camera recordings except with each other in their
official capacity as managers, council members and legal
counsel for the City of Greensboro and as necessary to
perform their legal duties. Failure to comply with these
restrictions subjects viewers to the contempt powers of the
court (fine of up to $500 and imprisonment of up to 30
days). If any of these restrictions pose a substantial
impediment to the city manager, council members or city
legal counsel from discharging their duties, the City
Attorney may request modification of the restrictions (with
notice and opportunity to be heard given to all parties).
The trial court placed similar restrictions on the other petitioners (the PCRB and the
two arrested individuals).
¶7 Convinced that the order operated as a gag that imposed a substantial
impediment to the discharge of its membersâ duties, the City Council voted
unanimously to request that the trial court lift the restrictions on speaking about the
videos. The members of the City Council also decided to refrain from watching the
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videos until the order was lifted or modified. The City then filed a Motion to Modify
Restrictions with the trial court.
¶8 At the subsequent hearing, the trial court responded abruptly after learning
that the City was requesting a modification of the restrictions before viewing the
videos, as the following colloquy demonstrates:
THE COURT: Well, that makes a difference. Iâm not really
inclined to entertain their motion if they havenât even
bothered to watch it.
[THE CITYâS ATTORNEY]: Well, itâs not that they havenât
bothered to watch it. They definitely want to watch it.
THE COURT: Well, then, let them watch it. The motions
are denied.
....
[THE CITYâS ATTORNEY]: And, Your Honor, if I could
clarify, Your Honor â
THE COURT: That just doesnât make sense to me at all.
[THE CITYâS ATTORNEY]: If I could clarify, Your Honor
â
THE COURT: In fact I think thatâs ridiculous to say I want
to be able to discuss something I didnât even watch.
[THE CITYâS ATTORNEY]: If I could clarify that. It wasnât
that â itâs not that council does not want to watch this.
They absolutely want to watch it.
THE COURT: Well â
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[THE CITYâS ATTORNEY]: Itâs a matter of â the question
is, if Your Honor would go back and look at the council
meeting, itâs a question of, well, do we watch it and then we
canât talk about it. Kind of like, you know, how does that
help us? How does that help us answer the questions of our
constituents?
So the issue was, we would love to be able to talk about it
once we watch it. So itâs not a matter of they are just like
too busy to watch it or that they donât want to watch it.
They just wanted clarification as to whether or not they
would be able to discuss it after they watch it.
THE COURT: The motion is denied.
In a subsequent written order memorializing the denial of the Cityâs motion, the trial
court did not offer any reasoning or explanation for its decision; the order stated only
the following: â[H]aving considered the entire court file and having heard arguments
from all counsel, the [c]ourt has determined, in the [c]ourtâs discretion, that all of the
Motions should be denied.â The City appealed, claiming that the court committed an
âabuse of discretion as it pertains to City Councilâs First Amendment rights.â
¶9 Before the Court of Appeals, the City argued that the trial court erred by
imposing and refusing to modify a gag order on the City Council. Among other
arguments, the City maintained that the gag order was arbitrary because the trial
court did not âarticulate any factual basis for [its] findings and provided no reasoning
as to why the gag order was appropriate.â Moreover, the City noted that the
subsequent order denying its Motion to Modify Restrictions contained no explanation
at all.
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¶ 10 The police officers responded by stating that they also wanted the videos to be
released and that they likewise wanted the gag order to be lifted. The officers
emphasized that the recordings will show they did nothing wrong. However, for
various reasons, they urged the Court of Appeals to dismiss the Cityâs appeal. For
instance, the officers asserted that the order was interlocutory. The officers also
argued that the trial court did not abuse its discretion because state law explicitly
gives the trial court authority to impose any conditions on the release of body camera
video. The officers contended that the City simply made poor arguments to the trial
court and that such âadvocacy failuresâ do not render the trial courtâs ruling an abuse
of discretion.
¶ 11 In a published, unanimous opinion filed on 6 August 2019, the Court of Appeals
affirmed the trial courtâs denial of the Cityâs Motion to Modify Restrictions. In re
Custodial Law Enfât Recording, 266 N.C. App. 473, 479 (2019). The Court of Appeals
declined to entertain the Cityâs argument that the restrictions were an unjustified
abuse of discretion. Id. at 476. The Court of Appeals instead analyzed the case on
First Amendment grounds and relied on a single case, Seattle Times Co. v. Rhinehart,
467 U.S. 20 (1984), to conclude that the order did not violate the Cityâs First
Amendment rights because âthe gag order only restricts the councilâs speech about
matters that the council, otherwise, had no right to discover[,]â In re Custodial Law
Enfât Recording, 266 N.C. App. at 477. However, Seattle Times had not been briefed,
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argued, or cited by any party at the Court of Appeals. Further complicating matters,
the Court of Appeals did not state the level of First Amendment scrutiny they applied.
Andâperhaps because the record here is sparseâthe Court of Appeals did not
explain its conclusion that âprotecting the reputation and safety of those individuals,
as well as safeguarding the administration of justice, presents a substantial
government interest for which the trial courtâs restrictions are no greater than
necessary.â Id. at 479.
¶ 12 The City appealed to this Court on the basis of a constitutional question and,
in the alternative, petitioned the Court for discretionary review. On 3 February 2021,
this Court both retained the notice of appeal and allowed the Cityâs petition.
II. Analysis
¶ 13 The City now argues that the Court of Appeals misapplied fundamental
principles of constitutional law and that its decision must be reversed. The City
contends primarily that the City Council members have a right to publicly discuss
the body camera videos, that the gag order violates this right, and that the violation
cannot be justified under strict or intermediate scrutiny. The City does not mount a
facial challenge to the statute. The City also contends that the trial court abused its
discretion. It asks for this matter to be remanded to the trial court with instructions
to lift the gag order on the City Council members.
¶ 14 In response, the police officers themselves withdrew from participating in the
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case after we allowed review. Court-appointed amicus curiae (respondent) argues
that the decision of the Court of Appeals should be affirmed for three reasons. First,
respondent argues that the City does not have free speech rights. Second, respondent
claims that even if the City has free speech rights, the gag order is subject to and
survives intermediate scrutiny. Third, respondent asserts that, in the alternative, the
restrictions are not a gag order but a permissible set of time, place, and manner
restrictions.
¶ 15 We hold that the trial courtâs summary denial of the Cityâs Motion to Modify
Restrictions was arbitrary, and therefore it was an abuse of discretion. Accordingly,
we need not consider the constitutional arguments raised here. See James v. Bartlett,
359 N.C. 260, 266 (2005) (â[A]ppellate courts must âavoid constitutional questions,
even if properly presented, where a case may be resolved on other grounds.â â (quoting
Anderson v. Assimos, 356 N.C. 415, 416 (2002))). We vacate the decision of the Court
of Appeals and remand to the trial court for a new hearing on the Cityâs Motion to
Modify Restrictions.
A. Standard of Review
¶ 16 By statute, trial courts enjoy the authority to âplace any conditions or
restrictions on the release of the recording that the court, in its discretion, deems
appropriate.â N.C.G.S. § 132-1.4A(g). Accordingly, orders imposing or denying relief
from restrictions on the release of body camera videos are reviewed for abuse of
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discretion. A trial court abuses its discretion when its ruling âis manifestly
unsupported by reason or is so arbitrary that it could not have been the result of a
reasoned decision.â Chappell v. N.C. Depât of Transp., 374 N.C. 273, 280 (2020)
(quoting State v. Hennis, 323 N.C. 279, 285 (1988)). A trial court also abuses its
discretion when it makes an error of law. Da Silva v. WakeMed, 375 N.C. 1, 5 n.2
(2020). Questions of law are reviewed de novo. Id. at 5.
B. Abuse of Discretion Analysis
¶ 17 First, the City has preserved the argument that the denial of its Motion to
Modify Restrictions is an abuse of discretion. The City argued to the trial court that
the restrictions âpose a substantial impedimentâ to the City Council and prevent its
members âfrom fulfilling their Oath of Office.â The City appealed from the trial courtâs
denial of its motion claiming the denial âconstitut[ed] an abuse of discretion as it
pertains to City Councilâs First Amendment rights.â The Cityâs discussion of First
Amendment rights is only indirectly applicable to the abuse of discretion analysis.
However, this is not the only argument the City makes. Before the Court of Appeals,
the City argued that the denial of the Motion to Modify Restrictions âcontained no
rationale at all.â The City dedicated several pages of its brief to arguing that the
denial was internally inconsistent, unexplained, unsupported by the evidence, and
harmful to âthe Council membersâ ability to fulfill their Oath of Office.â In its brief to
this Court, the City again pursues that argument: â[E]ven if the trial court had the
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discretion envisioned by the Court of Appeals in the abstract, maintaining the gag
order was inappropriate in these circumstances.â Thus, it is appropriate for this Court
to review the trial courtâs denial of the Cityâs Motion to Modify Restrictions for abuse
of discretion on grounds that it is arbitrary or manifestly unsupported by reason.
¶ 18 Next, we conclude that the trial courtâs denial of the Cityâs motion was
arbitrary. In its Motion to Modify Restrictions filed on 16 February 2018, the City
explained that the City Council had voted to watch the videos but it had also voted to
request relief from the restrictions first. The motion contained several possible
reasons why the restrictions were a substantial impediment: the restrictions directly
contradicted the City Council membersâ duties as elected officials, prevented the City
Council members from engaging in political discourse, impeded the City Council
membersâ ability to respond to questions from the public, prevented the City Council
members from supervising other municipal departments, and made little sense given
that the cellphone video of the event was already circulating in the community.2
¶ 19 The City also maintained that several potential justifications for the
restrictions no longer pertained. The internal investigations had concluded, and the
criminal trials of all individuals depicted in the videos were over. On 19 February
2018, even the police officersâ attorney agreed that lifting the gag would benefit the
2 The trial court had previously noted that, âI think the real danger is if you have
excerpts or snippets of this being shown and people donât see the whole â the whole view,
itâs â it can be very â it can misrepresent the whole event.â
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police officers stating, âI understand that it â that there is probably a benefit in some
respect to the police officers so that the city council members can say, well, everything
was right. The police did the right thing.â Yet in ruling on the motion, the trial court,
rather than considering these proffered reasons to modify the restrictions, apparently
considered one fact and one fact alone:
[THE CITYâS ATTORNEY]: As of today the city council
does not know whatâs on the body-worn camera footage.
THE COURT: Well, that makes a difference. Iâm not really
inclined to entertain their motion if they havenât even
bothered to watch it.
[THE CITYâS ATTORNEY]: Well, itâs not that they havenât
bothered to watch it. They definitely want to watch it.
THE COURT: Well, then, let them watch it. The motions
are denied.
¶ 20 This ruling can only be deemed arbitrary, given that the trial court gave no
explanation of the possible relevance of viewing the video to whether the restrictions
âpose a substantial impedimentâ to the City Council membersâ ability to fulfill their
duties. Without more discussion of the reasons for the denial of the motions, we
cannot know if there were any. Thus, we conclude that the trial courtâs reaction to
one possibly irrelevant factor by immediately denying the Motion to Modify
Restrictions fails to demonstrate any exercise of discretion, but rather its abuse.
¶ 21 Moreover, the written order fails to clarify the trial courtâs ruling. âTo show an
abuse of discretion and reverse the trial courtâs order, the appellant has the burden
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to show the trial courtâs rulings are manifestly unsupported by reason, or could not
be the product of a reasoned decision.â Winkler v. N.C. State Bd. of Plumbing, 374
N.C. 726, 735 (2020) (cleaned up). This is a high bar and is not an opportunity to
second guess the trial courtâs wisdom. The only consideration is âwhether the trial
courtâs actions are fairly supported by the record.â State v. Whaley, 362 N.C. 156, 160
(2008) (quoting State v. Peterson, 361 N.C. 587, 603 (2007)). âFairly supportedâ means
âthere is competent evidence to support the courtâs findings and . . . those findings
support the courtâs conclusions.â GE Betz, Inc. v. Conrad, 231 N.C. App. 214, 242
(2013) (citing Dyer v. State, 331 N.C. 374, 376(1992)), writ denied, review denied,367 N.C. 786
(2014). In sum, if there is any competent evidence to support the trial courtâs
findings and conclusions, then there is no abuse of discretion.
¶ 22 Here, the order contains no findings of fact, analysis, explanation, or
conclusions of law. Instead, the order merely states the following: â[T]he [c]ourt
having considered the entire court file and having heard arguments from all counsel,
the [c]ourt has determined, in the [c]ourtâs discretion, that all of the Motions should
be denied.â âWhere no findings are made, proper findings are presumed, and our role
on appeal is to review the record for competent evidence to support these presumed
findings.â Carlisle v. CSX Transp., Inc., 193 N.C. App. 509, 516 (2008) (quoting
Bruggeman v. Meditrust Acquisition Co., 138 N.C. App. 612, 615 (2000)). On such
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review, we must assume the trial court found that the restrictions did not pose a
substantial impediment to the City Council members in discharging their duties.
¶ 23 However, because no competent evidence in the record supports the finding
that the restrictions are not a substantial impediment, we hold that the trial court
abused its discretion in denying the Cityâs motion. Notably, there is almost no
evidence in the record at all. All we have are the Cityâs motions, the transcripts, and
the courtâs bare-bones orders. Before the trial court, the police officersâ attorney could
not point to evidence and instead argued that some people will still âallege[ ]
conspiracies and everything elseâ and argued, â[I]tâs a better policy, I would contend,
Your Honor, to stick with Your Honorâs order in all situations because I think that is
going to end some of this nonsense that weâre spending on body-cam footage.â Even if
these assertions were evidence, they do not support the conclusion that the restriction
is not a substantial impediment to the City Council. Because the trial courtâs ruling
is entirely unsupported by the record, we conclude that the trial court abused its
discretion in denying the Cityâs Motion to Modify Restrictions.
III. Conclusion
¶ 24 History teaches that opaque decision-making destroys trust; recent history
involving police body cameras emphasizes this risk. Nearly every party here sought
transparency. Both the arrested individuals and the police officers recorded their
actions. The City Council sought to answer questions and explain the Cityâs response
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by publicly discussing the facts behind their decisions. And the officers themselves
hoped to clear their names by urging the release of all of the body camera videos. Yet,
with no explanation, the trial court halted this process, leaving the people of
Greensboro in the dark for more than six years. On this record, we hold that the trial
court abused its discretion.
¶ 25 We vacate the decision of the Court of Appeals and remand to that court for
further remand to the trial court for a new hearing on the Motion to Modify
Restrictions and for such further proceedings not inconsistent with this decision, as
are warranted.
VACATED AND REMANDED.
Justice BERGER did not participate in the consideration or decision of this
case.
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Newby, C.J. concurring in result only
Chief Justice NEWBY concurring in the result only.
¶ 26 The General Statutes grant trial courts great latitude in determining the
release of body camera recordings. N.C.G.S. § 132-1.4A(g) (2021). No one questions
that the trial courtâs original order complied with the statute. Although
N.C.G.S. § 132-1.4A(g) does not require the trial court to make findings of fact, on the
record before this Court, the basis for the denial of the motion is unclear, rendering
it impossible for this Court to determine if the ruling was arbitrary. Thus, the matter
should be remanded to the trial court for clarification. Therefore, I concur in the result
only.
Justice BARRINGER joins in this concurring opinion.