Nanette Tucker v. City of Chicago
Nanette Tucker v. City of Chicago
Opinion
Does a six month delay between a property inspection and notice of a municipal ordinance citation violate due process? The district court said no, dismissing plaintiff-appellant Nanette Tucker's amended complaint for failure to state a procedural due process claim under
We affirm. The administrative and judicial proceedings available for Tucker to challenge her citation satisfied due process, and the accuracy of the city's interpretation of its ordinance does not implicate the U.S. Constitution. Given Tucker's failure to allege facts supporting a plausible violation of her due process rights, dismissal under Federal Rule of Civil Procedure 12(b)(6) was appropriate.
I. BACKGROUND 1
Chicago sells vacant real estate to local residents for $1 per lot through its "Large Lot Program." 2 As the city council explained, *490 "Many of the City-owned parcels are of minimal value, yet are costly for the City to clean up and maintain." CHI. MUN. CODE § 2-157-010. Under the program, in February 2015, Tucker purchased a vacant lot on her neighborhood block, intending to convert it into a community garden.
Defendant Sonya Campbell works as an inspector for Chicago's Department of Streets and Sanitation. On June 3, 2015, she inspected Tucker's property and concluded its vegetation violated the city's yard weed ordinance, CHI. MUN. CODE § 7-28-120(a), which provides:
Any person who owns or controls property within the city must cut or otherwise control all weeds on such property so that the average height of such weeds does not exceed ten inches. Any person who violates this subsection shall be subject to a fine of not less than $600 nor more than $1,200. Each day that such violation continues shall be considered a separate offense to which a separate fine shall apply.
During Campbell's inspection, she took two photographs of the lot from the street to depict the overgrown vegetation. No citations or notices regarding Campbell's inspection or its results were posted at the property.
Six months later, on December 4, 2015, another city employee served Tucker (via first class mail) with a citation for the alleged June 3 violation. The citation included a certification by Campbell and the description, "Weeds are greater than 10 inches in height." It also notified Tucker she could appear at a hearing before the end of the month to contest the violation in front of an administrative law judge. 3
Tucker, represented by counsel, attended the hearing. The city's case-in-chief consisted of the citation and inspector Campbell's two photographs. Tucker's counsel moved to dismiss the citation, claiming the city failed to present evidence of the "average height" of the weeds. The administrative law judge denied that motion, spurring Tucker's counsel to raise a series of constitutional challenges to the ordinance and its enforcement by the city. The administrative law judge stated he was not authorized to rule on any constitutional matters, but permitted Tucker's counsel to make a record for purposes of appeal.
Next, Tucker took the witness stand and testified she made it her practice to have the property "cut and cleaned" every other week. She stated she passes her lot every day but has never seen vegetation greater than an average of ten inches, and no neighbors have ever complained about its condition. Besides her own testimony, Tucker presented no other evidence to the administrative law judge.
After arguments from counsel, the administrative law judge ruled in favor of the city and imposed a $640 fine against Tucker. Tucker could have appealed the fine to the Circuit Court of Cook County,
4
but instead she paid it "under protest." That same day, she filed this putative class action, alleging
After the defendants filed a Rule 12(b)(6) motion, the district court dismissed Tucker's original complaint but granted her leave to re-plead. Tucker filed an amended complaint, but the district court dismissed that as well, ruling the facts alleged failed to state a plausible claim that the defendants deprived Tucker of due process. Rather than amend her complaint yet again, Tucker chose to pursue this appeal.
II. ANALYSIS
We review
de novo
a district court's grant of a Rule 12(b)(6) motion to dismiss, accepting as true all well-pleaded facts and drawing all reasonable inferences in the plaintiff's favor.
Forgue v. City of Chicago
,
The two elements of a procedural due process claim are "(1) deprivation of a protected interest and (2) insufficient procedural protections surrounding that deprivation."
Michalowicz v. Vill. of Bedford Park
,
A. Availability of Post-Deprivation Relief in State Court
Before reaching Tucker's main contentions, we reject her argument that the district court erred in considering her appeal rights under Illinois law. Relying on
Zinermon v. Burch
,
In
Parratt
, the Supreme Court held the government did not offend due process by failing to provide an inmate with a hearing before prison officials inadvertently lost his property in the mail. Such a hearing would have been impossible to schedule given it was the result of a "random and unauthorized act."
These cases address whether post-deprivation remedies
standing alone
satisfy due process, in the absence of any pre-deprivation hearing. Here, Tucker received both a pre-deprivation hearing and an avenue to seek post-deprivation relief through judicial review. While
Parratt
holds that post-deprivation remedies may be sufficient if the deprivation is "random and unauthorized," neither
Parratt
nor
Zinermon
stands for the proposition that post-deprivation remedies are otherwise irrelevant to a procedural due process claim. Rather, the adequacy of pre-deprivation proceedings
*492
may turn on the availability and nature of post-deprivation remedies.
See
Parratt
,
As Tucker points out, a plaintiff need not exhaust her remedies through state agencies or courts before bringing a § 1983 claim.
Veterans Legal Def. Fund v. Schwartz
,
B. Delay Theory
Now we turn to Tucker's primary argument that the city's six month delay in notifying her of the yard weed citation denied her due process.
Tucker does not dispute that she received a hearing, in which she was represented by counsel, presented evidence in her defense, and made legal arguments. On its face, such a hearing embodies the "fundamental requirement of due process."
Mathews v. Eldridge
,
Recognizing this, Tucker frames her claim as "a
prehearing
denial of due process." (Appellant's Brief at 17 (emphasis added).) Yet this theory suffers from a fundamental flaw: the city did not deprive Tucker of anything until the December 29, 2015 hearing in front of the administrative law judge. Before then, the city had simply issued her a citation. Only at the hearing did the administrative law judge consider the parties' evidence, adjudicate the city's allegation, and impose a fine. A plaintiff cannot be deprived of property without due process of law before that plaintiff is deprived of property.
See
DeHart v. Town of Austin
,
Supreme Court precedent provides that statutes of limitation are the primary line
*493
of defense against prosecutorial delay,
Betterman v. Montana
, --- U.S. ----,
Yet the Supreme Court has also held that due process has "a limited role to play in protecting against oppressive delay."
United States v. Lovasco
,
Tucker asserts the city's delay caused her prejudice in that she was unable "to make any measurements of the average height of the vegetation on her lot at or near the time of inspection" or to use "photographs taken contemporaneously with the date of the alleged violation." (Amended Complaint ¶¶ 29, 64.) Such allegations do not plausibly demonstrate actual and substantial prejudice. Every prosecution necessarily occurs after the alleged violation. Many defendants wish they had access to non-existent, contemporaneous evidence to use in their defense, but this "does not render the hearing meaningless" for purposes of due process.
Cochran v. Illinois State Toll Highway Auth.
,
As this court has recognized, "Due process does not require notice-on-demand but rather timely notice, and a one month delay in receiving notice does not offend due process."
Accepting Tucker's prejudice argument would place a near instantaneous notice mandate on the city. Even if Tucker received her citation the day after Campbell's inspection and quickly photographed her yard from her preferred angles, such evidence would be less probative than photographs taken on the day of the alleged *494 violation, as the weeds could have withered or been cut.
Moreover, the issue is not whether it might be "helpful" if alleged violators were provided with notice more quickly, but whether the existing procedures "present an unreasonable risk of an erroneous deprivation."
Clancy
,
Because Tucker has neither pointed us to any authority suggesting that law enforcement must initiate a prosecution immediately, nor demonstrated actual and substantial prejudice, she has failed to plausibly allege a due process claim based on the six months between the inspection of her property and issuance of the citation.
C. "Misenforcement" Theory
Tucker also argues the defendants maintain a policy of misinterpreting (or "misenforcing," as Tucker puts it) the city's yard weed ordinance. She asserts the city incorrectly asks its inspectors to determine only whether some weeds exceed ten inches, while the plain text of the ordinance requires that "the average height" of the offending weeds exceed ten inches.
But an alleged misinterpretation of a municipal ordinance does not implicate the U.S. Constitution.
See
Hebert v. Louisiana
,
As this court stated in
Kompare v. Stein
,
The constitutionality of the defendant's conduct cannot be determined by looking to a municipal ordinance. Section 1983 only creates a federal cause of action against those acting under color of state law who cause a deprivation of any rights, privileges, or immunities secured by the Constitution and laws of the United States.
... Violations of state statutes or municipal ordinances do not necessarily give one a cause of action under § 1983, nor do they necessarily state a violation of the due process clause.
*495
Even assuming Tucker is right that the city's interpretation of its ordinance is incorrect, federal due process protection is not a guarantee that state governments will apply their own laws accurately.
Simmons
,
If Tucker believed the administrative law judge's interpretation of the ordinance was legally incorrect, she could have appealed her fine to Illinois's state courts. Her amended complaint makes no attempt to establish the inadequacy of that avenue of redress.
Michalowicz
,
Finally, Tucker acknowledges that her "failure-to-train" claim against the city is "not a free-standing claim" and depends on the viability of her theories discussed above, so we need not address it separately. And because we agree with the district court that Tucker failed to plead any plausible due process violation, it is unnecessary to reach the district court's decision regarding Campbell's qualified immunity defense.
III. CONCLUSION
Although a six month delay between inspection and citation may not be a model of administrative efficiency, the delay in this case did not violate the Constitution. Similarly, the proper interpretation of a municipal ordinance is a matter of local law for state courts to decide, not constitutionally required procedure.
AFFIRMED .
These facts come from Tucker's amended complaint and the certified administrative record of the Chicago Department of Administrative Hearings. As the district court noted, matters of public record-such as a public administrative hearing-may be judicially noticed without converting a motion to dismiss into one for summary judgment. Fed. R. Evid. 201(b) ;
see also
Ray v. City of Chicago
,
See Amendment Adding New Chapter 157 Establishing Large Lot Program, Chi. City Coun. Rec. No. O2014-9405 (Dec. 10, 2014), https://chicago.legistar.com/Legislation.aspx (search record number O2014-9405).
Under Illinois law, 65 Ill. Comp. Stat. 5/1-2.1-2 (1998), municipalities may create an administrative adjudication system for ordinance violations, which Chicago has done. Chi. Mun. Code § 2-14-010 (2012).
An administrative law judge's decision is appealable to Illinois's circuit courts under the Illinois Administrative Review Law. Chi. Mun. Code § 2-14-102 (1998); 65 Ill. Comp. Stat. 5/1-2.1-7 (1998) ; 735 Ill. Comp. Stat. 5/3-104 (1994).
Reference
- Full Case Name
- Nanette TUCKER, Plaintiff-Appellant, v. CITY OF CHICAGO, Et Al., Defendants-Appellees.
- Cited By
- 98 cases
- Status
- Published