Whitfield v. Department of Corrections
Whitfield v. Department of Corrections
Opinion of the Court
Inmate Shannon Whitfield appeals the order dismissing his petition for writ of mandamus challenging the disciplinary action taken against him by the Department of Corrections (Department). The circuit court dismissed the petition for failure to exhaust administrative remedies. We affirm the dismissal order on the basis that the petition was not timely filed in the circuit court.
In February 2011, Whitfield was issued a disciplinary report for possession of marijuana. He was found guilty of the offense after a disciplinary hearing, and as a result, he received 60 days in disciplinary confinement and lost 180 days of gain time. Whitfield timely filed a formal grievance with the warden of his institution, which was denied on March 28, 2011. Whitfield then appealed to the Secretary of the Department. The appeal was dated April 4, 2011, and according to Whitfield, it was provided to prison staff for mailing on April 6, 2011.
Whitfield claimed that he submitted his grievance appeal to the designated prison staff person in an unsealed envelope, but
Whitfield’s appeal was received by the Secretary on April 13, 2011, which was one day after the applicable deadline. See Fla. Admin. Code R. 33-103.011(l)(c) (“Grievance appeals to the Office of the Secretary — Must be received within 15 calendar days from the date of the response to the formal grievance.”). Accordingly, on April 18, 2011,
Whitfield did not seek judicial review in the circuit court within 30 days of the Secretary’s response. Instead, in August 2011, he embarked on a second round of grievances and appeals within the Department challenging the Secretary’s determination that his original appeal was untimely. When this series of grievances was unsuccessful, Whitfield filed a petition for writ of mandamus in the circuit court. The petition was filed on September 14, 2011.
In the petition, Whitfield sought judicial review of the merits of the disciplinary action taken against him based on the February 2011 disciplinary report. The
As he did below, Whitfield contends on appeal that his original grievance appeal was timely because he provided it to prison staff for mailing prior to the appeal deadline. The Department responds that the appeal to the Secretary was untimely — and, thus, the circuit court properly determined that Whitfield had not exhausted his administrative remedies — because Whitfield bypassed the institution’s mailing procedures for grievance appeals and instead submitted his appeal in a sealed envelope for mailing directly to the Secretary. The Department argues in the alternative that dismissal was proper because the mandamus petition was untimely, having been filed in the circuit court more than 30 days after the Department’s final action in the original disciplinary proceeding.
We find the Department’s alternative argument to be dispositive. Thus, we need not consider whether the circuit court correctly determined that Whitfield failed to exhaust his administrative remedies, nor do we need to address whether the Department’s use of the date of receipt by the Secretary (rather than the date the appeal is provided to prison staff for mailing) is proper when an inmate elects to bypass the loggingtracking process when submitting a grievance appeal. But cf. Gonzalez v. State, 604 So.2d 874, 876 (Fla. 1st DCA 1992)(holding prior to the adoption of the mailing procedures in rule 33-103.006(8) that the mailbox rule in Haag applies to the administrative grievance process within the Department and, thus, a grievance appeal is “deemed ‘received’ by the Department ‘at the moment in time when the inmate loses control over the document by entrusting its further delivery or processing to agents of the state’ ”) (quoting Haag, 591 So.2d at 617).
Section 95.11(8), Florida Statutes (2011), provides that “[a]ny court action challenging prisoner disciplinary proceedings conducted by the Department ... must be commenced within 30 days after final disposition of the prisoner disciplinary proceedings through the administrative grievance process under chapter 33, Florida Administrative Code.” This time period is jurisdictional and, thus, a mandamus petition filed more than 30 days after the final disposition of a disciplinary proceeding must be dismissed. See, e.g., Hale v. McDonough, 970 So.2d 362, 364-65 (Fla. 3d DCA 2007); see also § 95.11(8), Fla. Stat. (2011) (“Any action challenging prisoner disciplinary proceedings shall be barred by the court unless it is commenced within the time period provided by this section.”).
The Secretary’s “no action” response to Whitfield’s original grievance appeal was the final disposition of the disciplinary proceedings. Thus, that was the point at which Whitfield was required to seek judicial review of both the Secretary’s decision that his grievance appeal was untimely and the disciplinary action taken against him. Whitfield’s pursuit of additional, unauthorized administrative grievances did not toll or otherwise extend the time in section 95.11(8) for seeking judicial
In sum, because Whitfield’s mandamus petition seeking judicial review of his disciplinary action was not filed within the 30-day statutory time limit, the circuit court lacked jurisdiction to consider the petition and, thus, the court did not err in dismissing the petition. Accordingly, we affirm the dismissal order.
AFFIRMED.
. Rule 33-103.006 governs institution level grievances. Rule 33-103.007 governs appeals to the Secretary, but rule 33-103.007(l)(h) incorporates the mailing procedures in rule 33-103.006(8).
. The Secretary’s response was dated April 14, 2011, but it was not filed with the clerk of the Department until April 18, 2011. The latter date is the date of rendition for purposes of judicial review. See Fla. R.App. P. 9.020(h); Ortiz v. Moore, 741 So.2d 1153, 1154 (Fla. 1st DCA 1999) (”[T]he timeliness of an inmate petition challenging a disciplinary proceeding is dependent upon the date of rendition of the ‘order’ constituting final disposition of the inmate’s grievances concerning the proceeding.”).
.The petition was received by the clerk of the circuit court on September 16, 2011, but the certificate of service included with the petition reflects that it was provided to prison officials for mailing on September 14, 2011, and thus it was deemed filed on that date. See Fla. R.App. P. 9.420(a)(2). ■
Concurring Opinion
concurring.
I agree that Appellant, Shannon V. Whitfield, did not timely seek review in the circuit court of the Department’s refusal to accept his appeal as timely. As to whether he timely filed an appeal with the Department from his initial grievance, it is worth noting that in Gonzalez v. State, 604 So.2d 874 (Fla. 1st DCA 1992), we explicitly held that the mailbox rule applies to prisoners when they submit internal grievance appeals by U.S. Mail, which is what Whitfield did here. We held:
[ Wjhere an appeal from a grievance procedure must be received by the Department within 15 calendar days of the date of the institutional response, under the mailbox rule the appeal is deemed ‘received’ by the Department “at the moment in time when the inmate loses control over the document by entrusting its further delivery or processing to agents of the state.”
Id. at 876 (quoting Haag v. State, 591 So.2d 614, 617 (Fla. 1992)). Gonzalez explicitly requires that the Department deem a legal paper (even one involving an internal administrative appeal) as timely filed on the day the inmate gives control of the document to a prison official; this rule applies to any situation where jurisdiction is based on the timeliness of a filing. Id. at 875-76 (mailbox rule to be “uniformly applied whenever a pro se inmate is required to use the U.S. mail to file documents within a limited jurisdictional time-frame”).
Here, Whitfield must have put the document in the hands of a prison official on or before the deadline; after all, the Department received it in the mail the day after the deadline. This would be proof enough to comport with this Court’s and the supreme court’s direction that a prisoner provide some evidence to show relinquishment of control to prison officials on or before the deadline. Thompson v. State, 761 So.2d 324, 326 (Fla. 2000); see also Gonzalez, 604 So.2d at 876.
The Department’s brief omits mention of Gonzalez (or Haag or Thompson), presumably because it assumes its administrative rule, Rule 33 — 103.006(2)(h)—which subsequent to Gonzalez created a means of delivering grievances and appeals internally within the Department — operates to nullify the prisoner mailbox rule for those inmates, such as Whitfield, who choose to place their legal papers directly in the U.S. mail system. The Department’s only mention of the prison mailbox rule is its assertion that its administrative rule “provides an inmate the opportunity to have his or her grievances receipted at the institution, thereby complying with the Prisoner Mailbox Rule.”
While the administrative rule provides one means for inmates to present their grievances to the Department, it is unclear whether its adoption was intended to be the exclusive means and thereby operate to override the judicially-created filing presumption that allows for the type of filing made by Whitfield in this case. See Gon
As noted, we need not decide this point of law today, an issue that was sidestepped by the Fourth District in Pedroza v. Tadlock, 705 So.2d 1005 (Fla 4th DCA 1998) (administrative rule inapplicable because it became effective after the date prisoner submitted his legal papers). But it merits resolution to eliminate uncertainty that may exist about the continued viability of Gonzalez.
Reference
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- Shannon WHITFIELD v. DEPARTMENT OF CORRECTIONS
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