The recent health care fraud case United States v. Stryker Biotech
Charging Corporations
In every criminal investigation, the prosecutors have to decide whom to prosecute. Section 9-27 of the United States Attorneys’ Manual sets out the formal “Principles of Federal Prosecution.”
Officially, the current guidelines direct prosecutors to consider the following factors in determining the proper treatment of a corporate target: (1) the nature and seriousness of the offense; (2) the pervasiveness of wrongdoing within the corporation; (3) the corporation’s history of similar misconduct; (4) the corporation’s timely and voluntary disclosure of wrongdoing and its willingness to cooperate in the investigation of its agents; (5) the existence and effectiveness of the corporation’s pre-existing compliance program; (6) the corporation’s remedial actions; (7) collateral consequences, including whether there is disproportionate harm to shareholders, pension holders, employees, and others not proven personally culpable, as well as an impact on the public arising from the prosecution; (8) the adequacy of the prosecution of individuals responsible for the corporation’s malfeasance; and (9) the adequacy of remedies such as civil or regulatory enforcement actions.
First, money motivates the government to charge corporations. The government wants to secure big corporate settlements or fines, particularly in the health care sector. In July, GlaxoSmithKline agreed to pay more than $3 billion in fines and penalties for various health care violations.
GlaxoSmithKline to Plead Guilty and Pay $3 Billion to Resolve Fraud Allegations and Failure to Report Safety Data, Department of Justice Press Release, July 2, 2012 (http://www.justice.gov/opa/pr/2012/July/12-civ-842.html (last visited Sept. 10, 2012)).
This result was not anomalous. In 2009, pharmaceutical giant Pfizer agreed to pay $2.3 billion in a combination of civil and criminal settlements arising out Pfizer’s allegedly illegal promotion of certain drugs.Because the government cannot recover these staggering figures from individuals, corporations have to be targeted. If the company is unwilling to pay what the government demands pretrial, then the government might well indict the company in hopes of getting the money as part of a sentence or as the result of a plea bargain once the company tastes the unappetizing publicity that accompanies an indictment.
Second, indicting the company with its executives can give the prosecution a tactical evidentiary advantage at trial.
Cooperation Credit
In 1999, DOJ set forth the first iteration of its guidelines regarding prosecutions of corporations and other related business organizations in what became known as the Holder Memo. That memo directed prosecutors to “consider the corporation’s willingness to identify the culprits within the corporation, including senior executives, to make witnesses available, to disclose the complete results of its internal investigation, and to waive the attorney-client and work product privileges” in gauging the extent of the corporation’s cooperation.
The italicized clause sparked a decade-long debate over the government’s power to force corporations under criminal investigation to waive their attorney-client privilege to earn cooperation credit and avoid prosecution. The debate culminated in 2008 with DOJ disavowing the practice of coercing corporations into waiving attorney-client privilege in a letter by then-Deputy Attorney General Mark Filip. This letter was subsequently codified as part of the Principles of Federal Prosecution of Business Organization in Section 9-28 of the United States Attorneys’ Manual.
As with the prior iterations, DOJ’s current policy promises that corporations that cooperate in investigations should earn credit for their effort and perhaps avoid prosecution altogether. Unlike prior DOJ policy statements, however, the current guidelines recognize “the value of promoting a corporation’s ability to seek frank and comprehensive legal advice,” which is “particularly important in the contemporary global business environment, where corporations often face complex and dynamic legal and regulatory obligations imposed by the federal government and also by states and foreign governments.”
Accordingly, the guidelines now place emphasis on the corporation disclosing “relevant facts.” While a corporation remains free to voluntarily disclose nonfactual or “core” attorney-client communications or work product, Section 9-28.710 of the United States Attorneys’ Manual specifically forbids prosecutors to ask for such waivers. What this means is that today corporations are free to cooperate as much as possible pre-indictment in an attempt to avoid prosecution without having to waive their attorney-client privilege.
The Shield:
Preserving the Attorney-Client Privilege
The government was late to the game in recognizing that “corporations often face complex and dynamic legal and regulatory obligations imposed by the federal government and also by states and foreign governments” in the contemporary global business environment.
On the flip side, there also may be cases where the legal advice and/or conduct in response to the advice is so inculpatory, solely as to either the attorney or the person who received the attorney’s advice, that it makes sense to waive the attorney-client privilege in the spirit of identifying the singular individual culprit and sparing the corporation any further punishment. But real life is rarely that simple. Even in situations where attorneys are fully aware of the challenged conduct and there is a chance the corporation’s pre-indictment cooperation might help it avoid prosecution altogether, corporations are now free to decide that it is in their best interest to preserve their attorney-client privilege.
Consider the following example. In-house counsel at Target Company consults outside counsel about the lawfulness of a particular financing transaction. Outside counsel advises in-house counsel that the government might challenge the lawfulness of the transaction, but it is a matter of first impression. In-house counsel conducts further research and decides that the transaction is lawful enough and so advises the company’s management. Target Company’s management then carries out the financing transaction. Lo and behold, the government later contends the transaction was unlawful and commences a criminal investigation. Faced with the prospect of a criminal indictment, defense counsel for Target Company digs into the facts and starts cooperating with the prosecutors.
As with all cases, to earn cooperation credit Target Company’s defense counsel has to balance the need to help identify the culprits within the corporation and demonstrate remediation by firing those culprits, while attempting to minimize the appearance that there was pervasive wrongdoing within the corporation. But in this situation Target Company’s defense counsel also has to decide whether it is in the company’s best interest to waive the attorney-client privilege and expose in-house and outside counsel’s role in the transaction. This requires assessing the risk that the prosecutor might challenge the good-faith nature of in-house counsel’s advice and impute further criminal liability on Target Company based on in-house counsel’s conduct.
The fear of additional criminal exposure for the company based on the conduct of in-house counsel is legitimate given DOJ’s unrepentant indictment of attorneys such as a former GlaxoSmithKline associate general counsel in United States v. Stevens, No. 10-cr-694 (D. Md.). In that case, the government petitioned the district court to compel production of material otherwise covered by the attorney-client privilege in the grand jury on the basis of the crime-fraud exception. The resulting production led to the indictment of Lauren Stevens on false statements and obstruction of justice charges related to her role in responding to Food and Drug Administration subpoenas. While the trial judge later granted Stevens’s Rule 29 motion to acquit—finding with the 20/20 vision of hindsight that the privileged material should never have been produced
Even in less stark contexts where attorneys but not necessarily the decisionmakers are involved, it may be prudent to retain the attorney-client privilege. For starters, the corporation has to consider how such a waiver might impact the civil lawsuits and shareholder derivative actions that usually follow criminal white collar prosecutions.
But even in the criminal context, affirmatively referencing the role of attorneys in the challenged conduct might force the company to defend the legal advice or, in some cases, even the inaction or passiveness of the legal/compliance department. At trial, it might also create an impossible and unnecessary burden for the company if the court construes evidence as to the role of attorneys in the challenged conduct as raising the so-called “advice of counsel” defense. Generally the advice-of-counsel defense is viewed not as a separate defense but as evidence of good faith, which the trier of fact is entitled to consider for specific-intent crimes.
In sum, it makes sense that many companies are now choosing to retain their attorney-client privilege as a shield even as they do everything else in an attempt to avoid prosecution.
The Sword:
The Co-Defendant Executive’s Rights
Up to this point, all of the discussion has been from the company’s perspective. But it is very rare that a company is indicted alone. Usually the company is indicted along with a handful of the employees and executives deemed to be the most culpable, just as the United States Attorneys’ Manual contemplates.
Whenever a party raises the advice-of-counsel defense, the attorney-client privilege is generally deemed waived. This makes sense. It would be unfair for a party to claim that he or she relied on counsel (sword), while protecting the actual advice from disclosure (shield).
So what happens to the managers of Target Company who relied on in-house counsel’s advice? Can they raise the advice-of-counsel defense even if Target Company chooses not to waive the attorney-client privilege? Pretrial or at trial? This dilemma is the new scenario prosecutors and defense counsel are increasingly going to face in white collar criminal prosecutions.
Severance: The Attorney-Client Privilege
Versus an Individual’s Sixth Amendment Right
The battle between the corporation’s attorney-client privilege and the individual manager’s advice-of-counsel defense played out in the W.R. Grace trial in the District of Montana and the Stryker Biotech trial in the District of Massachusetts. In both cases, the result was theoretical pretrial rulings that the individual defendants had a right to present evidence of attorney-client communications and advice over the corporation’s privilege objection and severance of the individual defendants from the corporation based on this conflict. The ramifications of these pretrial rulings remain unknown because in both cases the government abandoned the prosecution of the severed defendants so the exculpatory privileged material was never disclosed in court.
On Feb. 7, 2005, W.R. Grace & Co. and seven of its executives were indicted on 10 criminal counts, ranging from conspiracy to wire fraud. The charges related to a mine in Libby, Mont., that exposed workers to asbestos poisoning. The government alleged that W.R. Grace and the individual defendants conspired to keep critical scientific information regarding the asbestos dangers from the government and knowingly endangered workers for decades. Prior to trial, five of the executives moved to sever their trials on the basis that they intended to rely upon an advice-of-counsel defense that could be established only through documents and testimony over which W.R. Grace claimed an attorney-client privilege. In response to the government’s charge that the defendants were manufacturing a privilege issue to force severance, W.R. Grace filed a statement confirming its intention to invoke the attorney-client privilege in light of the lasting impact any waiver might have on pending and potential civil litigation.
On Oct. 29, 2009, Stryker Biotech, its former president, and three former sales managers were indicted on multiple counts of conspiracy, wire fraud, and misbranding related to alleged off-label promotion of medical devices. Prior to trial, Stryker Biotech’s former president moved to sever himself from the trial of Stryker Biotech and the other individual defendants to present good-faith evidence related to his frequent communications with both in-house and outside counsel.
United States v. Stryker Biotech, 09CR10330-GAO, Docket Nos. 264, 265 (filed Jan. 6, 2012).
Stryker Biotech responded that it had no intention of using any privileged material at trial and that its introduction at a trial with the company would seriously prejudice the company’s ability to defend itself.The rationale for severance in the W.R. Grace and Stryker Biotech cases is based on the following three propositions:
(1) A criminal defendant has a Sixth Amendment right to present material and favorable evidence in his defense.
(2) In certain circumstances, evidentiary exclusionary rules and privileges, including a corporation’s attorney-client privilege, must yield to a criminal defendant’s Sixth Amendment right.
(3) Severance pursuant to Fed. R. Crim. P. 14 is required—with the trial of the corporation as the privilege-holder proceeding first—when the introduction of the privileged material in a joint trial would prejudice the privilege holder’s trial rights.
In W.R. Grace, Chief Judge Donald W. Molloy was the first to apply these principles in these circumstances. He concluded that the question of whether the criminal defendant’s Sixth Amendment right trumps a corporation’s attorney-client privilege requires a balancing of the probative and exculpatory value of the otherwise privileged evidence.
In Stryker Biotech, Judge George O’Toole Jr. did not issue a written order explaining his decision to sever the former president from the trial. However, the company relying on United States v. Walters—a Seventh Circuit case distinguished in W.R. Grace—urged the court that severance was necessary where “the attorney-client privilege is compromised by joint trials.”
It remains to be determined in future case how courts are to properly balance the presumption for joint trials and judicial economy with the privilege holder’s trial rights. Specifically, courts will have to decide whether the privileged material in question must be truly antagonistic to the privilege holder, as required in Molloy’s decision in W.R. Grace, or whether the privilege holder is sufficiently prejudiced by being forced to pursue an advice-of-counsel defense it would otherwise not have pursued as a tactical decision, as suggested by the Seventh Circuit in Walters.
How This Is Going to Work
Although the W.R. Grace and Stryker Biotech cases provide a framework for determining whether a company employee may rely on exculpatory material covered by his or her employer’s attorney-client privilege over that employer’s objection, it is not clear how the disclosures are to be managed by the trial judge and the ramifications of the disclosures in the press and in follow-on civil litigation.
In W.R. Grace, Molloy’s pretrial ruling declared that for the three executives, Henry Eschenbach, Robert Bettacchi, and Jack Wolter, whose severance motions were denied, he would make “determinations of which documents might be of such probative and exculpatory value as to compel admission of the evidence over W.R. Grace’s objection as the attorney-client privilege holder … on a document-by-document basis at trial as necessary.”
Conclusion
So what does this mean for the government, defense attorneys, and in-house counsel managing criminal investigations and shareholder actions and other civil lawsuits?
We are cautiously entering new territory and new risks with big white collar criminal investigations. For individuals, it means that their employer cannot prevent them from disclosing exculpatory reliance on legal advice forever. For companies that elect to maintain the corporate attorney-client privilege, it means that they may be able to prevent compelled pretrial disclosure of privileged material, but they are not going to be able to prevent individual employees from presenting truly exculpatory attorney-client advice and communications at trial when the individuals are in jeopardy. Once that can of worms is opened, it will require diligent and creative containment efforts by the company to minimize the scope of the disclosure and the collateral consequences of the disclosure. For the government, it means an increased likelihood of multiple trials if the government chooses to prosecute companies for alleged pervasive fraud schemes that involved in-house or outside counsel in addition to individual employees who consulted with and relied on in-house or outside counsel’s involvement in the allegedly fraudulent scheme.
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