Untitled Texas Attorney General Opinion ( 2002 )


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  •    OFFICE OF   THE    ATTORNEY GENERAL . STATE OF TEXAS
    JOHN CORNYN
    November 20,2002
    The Honorable Tom O’Connell                               Opinion No . JC-0579
    Collin County Criminal District Attorney
    210 South McDonald, Suite 324                             Re: Whether the testimony of a non-English
    McKinney, Texas 75069                                     speaking or deaf or hearing-impaired         witness
    before a grand jury requires the appointment of a
    certified or licensed court interpreter under section
    57.002 of the Government Code (RQ-0554-JC)
    Dear Mr. O’Connell:
    You have asked this office whether the requirement for certified or licensed interpreters for
    non-English speaking or deaf or hearing-impaired individuals mandated by the Seventy-seventh
    Texas Legislature in chapter 57 of the Government Code applies to grand jury proceedings.’ In
    particular, you ask whether a grand jury proceeding is a “criminal proceeding” within the meaning
    of section 57.002 of the Government Code, “thereby requiring appointment of a licensed court
    interpreter to translate for witnesses who do not understand the English language.” Request Letter,
    supra note 1, at 1; see also TEX. GOV’T CODE ANN. 8 57.002 (Vernon Supp. 2002). We conclude
    that such a proceeding does require the appointment of a licensed or certified interpreter.
    The Seventy-seventh Texas Legislature added chapter 57 concerning court interpreters to the
    Government Code. See Act ofMay22,2001,77th      Leg., R.S., ch. 1139,200l Tex. Gen. Laws 2537.
    Chapter 57 requires, inter alia, that:
    (a) A court shall appoint a certified court interpreter or a licensed
    court interpreter if a motion for the appointment of an interpreter is
    filed by a party or requested by a witness in a civil or criminal
    proceeding in the court.
    (b) A court may, on its own motion,            appoint   a certified   court
    interpreter or a licensed court interpreter.
    (c) In a county with a population of less than 50,000, a court may
    appoint a spoken language interpreter who is not a certified or
    licensed court interpreter and who:
    ‘Letter from Honorable Tom O’Connell, Collin County Criminal District Attorney, to Honorable John Comyn,
    Texas Attorney General (May 13,2002) (on file with Opinion Committee) [hereinafter Request Letter].
    The Honorable Tom O’Connell        - Page 2          (JC-0579)
    (1) is qualified by the court as an expert under the Texas Rules
    of Evidence;
    (2) is at least 18 years of age; and
    (3) is not a party to the proceeding.
    TEX. GOV’T CODEANN. 8 57.002 (Vernon Supp. 2002) (emphasis added). Section 57.002(c), which
    allows some limited exemption from the strictures of the statutory scheme in counties of fewer than
    50,000, is inapplicable to Collin County, which according to the 2000 census has a population of
    491,675. See BUREAU OFTHECENSUS,U.S. DEPT OF COMMERCE,2000 CENSUSOFPOPULATION,
    available at ht@://www.census.Pov/.
    Chapter 57 is intended to establish standards for interpreters who assist those participants in
    court proceedings who either do not speak or understand English, or who are deaf or hearing-
    impaired. See OFFICEOFHOUSE,BILL ANALYSIS, Tex. H.B. 2735,77th Leg., R.S. (2001). To that
    end, it grants authority to the Texas Commission for the Deaf and Hard of Hearing to set standards
    for the certification of interpreters for the deaf or hearing-impaired, see TEX. GOV’T CODE ANN.
    $8 57.021-.027 (Vernon Supp. 2002), and to the Texas Department of Licensing and Regulation
    to license interpreters for persons who can hear but do not communicate                in English, see
    
    id. $9 57.041-.05
    1. Only certified or licensed interpreters may hold themselves out or act as such.
    See 
    id. $9 57.026,
    .049. Violations of the statute are Class A misdemeanors. See 
    id. $5 57.027(a),
    .050(a).
    You inform us that “a recurring practice utilized prior to the promulgation” of chapter 57 was
    for “a Spanish-speaking investigator with [your county’s] District Attorney’s office [to] volunteer[]
    any necessary interpretation” for a Spanish-speaking witness other than the accused. Request Letter,
    supra note 1, at 1. We presume from the context of your question that such investigators were not
    licensed interpreters. You are uncertain whether such a practice can continue, given the criminal
    penalties listed in chapter 57. See 
    id. at l-2.
    Accordingly, you ask whether a grand jury is a criminal
    proceeding for the purpose of section 57.002(a). See 
    id. We conclude
    that it is.
    The meaning of “criminal proceeding” for the purpose of this statute appears to be a matter
    of first impression. While, as you note, criminal prosecutions have been said for Sixth Amendment
    purposes to be “initiated . . . by way of formal charge, preliminary hearing, indictment, information,
    or arraignment,” see Griffith v. State, 
    55 S.W.3d 598
    , 603 (Tex. Crim. App. 2001) (en bane), and
    thus to begin after grand jury hearings have been held, the meaning of “criminal proceeding” will
    depend upon context. See Howland v. State, 
    990 S.W.2d 274
    , 276-77 (Tex. Crim. App. 1999);
    Tigner v. State, 
    928 S.W.2d 540
    , 543-44 (Tex. Crim. App. 1996) (en bane). On at least two
    occasions, when the question of interpreting the word “proceeding” in the criminal context has
    arisen, the Court of Criminal Appeals has chosen a broad, rather than a narrow, construction.         In
    Tigner v. State, the court noted that, “[tlhe term ‘proceeding’ is a very broad nomenclature.” 
    Tigner, 928 S.W.2d at 543
    . It further noted that Black’s Law Dictionary defines proceeding as “‘all
    The Honorable Tom O’Connell        - Page 3         (JC-0579)
    possible steps in an action from its commencement to its execution.“’ 
    Id. (citing BLACK’S
    LAW
    DICTIONARY 1204 (6th ed. 1990). Similarly, in Howland the court found that extrinsic offense
    evidence permissible in any “proceeding” after the effective date of a statute could be admitted in
    any such “proceeding” in the sense of any step required in the course of an action. See 
    Howland, 990 S.W.2d at 276-77
    . We believe that, in light of the remedial purpose of chapter 57 and its legislative
    history, a court would in this instance liberally interpret the phrase to accomplish the statute’s
    purpose. See, e.g., Davis v. Ector County, 40 F.3d 777,785 (5th Cir. 1994) (remedial statute to be
    liberally construed). We emphasize that this conclusion is limited to the interpretation of the phrase
    in section 57.002.
    While we have found no Texas cases on the question of whether a grand jury session
    constitutes a criminal proceeding, a majority of the cases we have discovered from other jurisdictions
    discussing the issue hold that it does. See Kinamon v. United States, 
    45 F.3d 343
    , 347-48 (9th Cir.
    1995)’ United States v. Berv, 678 F.2d 856,860 (10th Cir. 1982)’In re Grand Jury Empaneled, 
    597 F.2d 851
    , 856-57 (3rd Cir. 1978)’ Bacon v. United States, 
    449 F.2d 933
    , 939 (9th Cir. 1971)’
    Schwimmer v. United States, 
    232 F.2d 855
    , 860 (8th Cir. 1956)’ United States v. Lawson, 255 F.
    Supp. 261,263 (D. Minn. 1966)’ State v. Carroll, 
    515 P.2d 1299
    , 1302 (Wash. 1973)’ People v.
    McCloskey, 
    238 N.Y.S.2d 676
    , 680 (N.Y. App. Div., 1st Dept. 1963)’ People v. Feinberg, 193
    N.Y .S.2d 937’94 1 (N.Y .Gen. Sess. 1959); but see United States v. l%ompson, 3 
    19 F.2d 665
    ’66%70
    (2d Cir. 1963) (grand jury investigation not “criminal proceeding” for purpose of federal statute
    giving district court power to issue subpoenas to witnesses outside United States).
    The legislative history of chapter 57 also argues strongly          for a liberal reading     of
    “proceeding” in this context. As the bill analysis makes clear:
    Prior to the 77th Legislature, in Texas there were over 400 district
    courts and 800 county courts at law in which some participants in the
    court process did not speak or fully comprehend English or were deaf
    or hearing[-limpaired.    Such a situation hindered an individual’s
    ability to understand the actions of the court, the questions asked and
    answered, and the import of the proceedings.
    OFFICEOF THE HOUSE, BILL ANALYSIS, Tex. H.B. 2735, 77th Leg., R.S. (2001). At the public
    hearing of the Senate Committee on Jurisprudence of May 11,2001, Senator J.E. “Buster” Brown
    explained that the legislation was intended “to protect a person’s right to fully understand the actions
    of the court, the questions asked and answered, and the import of any and all proceedings.”
    Hearings on Tex. H.B. 2735 Before the Sen. Comm. on Jurisprudence, 77th Leg., R.S. (May 11,
    200 1) (emphasis added).
    Testimony before a grand jury is by no means trivial, and we can discern no basis for a
    supposition that it is less necessary that a witness in such a matter understand what is going on, or
    that the panel understand him or her, with the same clarity as in any other proceeding. As the United
    States Court of Appeals for the Ninth Circuit said in Bacon v. United States:
    The grand jury carries out its investigative function with the specific
    purpose of determining whether probable cause exists to institute
    The Honorable   Tom O’Connell     - Page 4         (JC-0579)
    criminal prosecutions. Its decision to return an indictment throws the
    full weight of the criminal process against persons suspected of
    crime. It is incongruous to say that a proceeding before the body
    charged by the Constitution with initiating criminal prosecutions does
    not amount to a proceeding in a criminal case prior to verdict.
    
    Bacon, 449 F.2d at 939-40
    (citation omitted). Accordingly, the interpretation offered in a grand jury
    hearing for deaf, hearing-impaired, or non-English speaking witnesses must be subject to the same
    standards as in any other hearing governed by section 57.002.
    You suggest that the secrecy of grand jury proceedings offers another reason that properly
    trained translators or interpreters ought not to be in the grand jury room. However, the Code of
    Criminal Procedure specifically permits their presence during the proceedings. TEX. CODE GRIM.
    PROC. ANN. art. 20.01 l(a)(5) (V emon Supp. 2002) (among those who may be present in grand jury
    room are “interpreters if necessary,‘).
    The Honorable Tom O’Connell        - Page 5      (JC-0579)
    SUMMARY
    For the purposes of section 57.002 of the Government Code,
    a grand jury hearing is a “criminal proceeding” requiring the
    appointment of a properly qualified interpreter for a witness who is
    either non-English speaking or deaf or hearing-impaired.
    Attorney General of Texas
    HOWARD G. BALDWIN, JR.
    First Assistant Attorney General
    NANCY FULLER
    Deputy Attorney General - General Counsel
    SUSAN DENMON GUSKY
    Chair, Opinion Committee
    James E. Tourtelott
    Assistant Attorney General, Opinion Committee