Justice Network Inc v. Craighead County
Opinion
The Justice Network Inc. (TJN) appeals from the district court's
1
dismissal of its
*757
I. Background 3
TJN is a private probation company, and it offers services to probation clients in Craighead County. Services offered to the probation clients include program and counseling coordination, public service work, random drug screening, curfew monitoring, or any other condition of probation ordered by the court. TJN also offers a variety of classes to its probation clients, including life skills, parenting skills, anger management, alcohol safety school, and drug offender school.
Since 1997, TJN has provided probation services to probation clients under the jurisdiction of the district and circuit courts of Craighead County. Since that time, it has also provided probation services to probation clients under the jurisdiction of the City Defendants' courts ("City Courts"). TJN's Jonesboro branch employed 12 full-time employees, all residents of Craighead County.
From 1997 until February 3, 2017, all misdemeanor offenders who had been charged in Craighead County District Court ("District Court") or the City Courts, and who required probation services, were placed under TJN's supervision. TJN contracted individually with each probation client. The Probation Fee Agreement set forth a $35 monthly fee for probation services and included a $15 monthly fee for the supervision of public service work (a typical condition of probation). A court order issued in conjunction with the Probation Fee Agreement directed each probation client to pay all probation supervision fees to TJN for each month of supervised probation.
If the probation client failed to abide by the probation order and failed to complete his or her court-ordered special conditions, TJN would file an affidavit with the court indicating what conditions were not completed. The Craighead County prosecutor and the judge would then countersign the affidavit. The judge of the District Court would order the probationer to pay restitution for all outstanding fees owed to TJN. The same process was followed in the City Courts, including the court order directing the probationer to pay fees to TJN. For cases pending in the District Court, the District Court would collect the fees that the probation clients owed to TJN and forward those funds to TJN. For cases pending in the City Courts, the City Courts would collect the fees that the probation clients owed and forward those funds to TJN. This system operated for nearly 20 years, from 1997 until 2016.
*758 In early 2016, Judges Boling and Fowler were elected Craighead County District Judges. During the election, Judge Boling stated that if he were elected, he would end the use of TJN's probation services in his court. Likewise, Judge Fowler stated during his campaign that he opposed the privatization of probation services.
On August 11, 2016, Judge Boling was reported in a local newspaper as stating "that he dismissed the case of one defendant on probation and 'purged' the remaining debt that had not paid." Compl. at 13, ¶ 81,
Justice Network, Inc. v. Craighead Cty
., No. 3:17-cv-00169-JM (E.D. Ark. June 30, 2017), ECF No. 1. This "purged" debt included court costs and fees that the defendant owed to TJN pursuant to a contract between the defendant and TJN. On August 12, 2016, the local newspaper reported that Judge Boling said he would "consider nonpayment cases on a case-by-case basis."
On December 7, 2016, the local newspaper reported that Judges "Fowler and Boling planned to implement an 'Amnesty Program' in January and February 2017."
On January 26, 2017, the local newspaper reported that Judges Fowler and Boling had implemented a "temporary amnesty program," which "allow[ed] offenders who were delinquent on their payments to reset their payment plan."
As a result of the Amnesty Program, and the consequent loss of revenue, TJN has ceased all operations in Craighead County and has been forced to terminate its 12 employees. TJN has suffered significant economic loss and will continue to sustain that loss in the future if the Amnesty Program continues.
TJN brought suit against Judges Boling and Fowler; Craighead County; and the City Defendants pursuant to
The defendants moved to dismiss the complaint for failure to state a claim. See Fed. R. Civ. P. 12(b)(6).
The district court granted the defendants' motions to dismiss. First, the court found that Judges Boling and Fowler are entitled to absolute judicial immunity against all of TJN's claims because "[u]nless judges act completely outside all jurisdiction, they are absolutely immune from suit when acting in their judicial capacity."
Justice Network, Inc. v. Craighead Cty
., No. 3:17-cv-00169-JM,
Second, the district court granted Craighead County and the City Defendants' motions to dismiss because "[s]tate district court judges are state government officials and are not employees of the cities. Further, even if the judges were employees of the cities, Judge Boling and Judge Fowler's judicial decisions were 'not a final policy decision of a type creating municipal liability under § 1983.' " Id . (internal citations omitted).
Finally, the court concluded that TJN's remaining claims for unjust enrichment, ratification, and supervisory liability also failed because
[n]o supervisor or employee relationship exists between the judges and the City and County defendants. Plaintiff failed to state any facts which would support a finding that the City or County defendants had any authority or control over the judges. And, the probation services at issue were provided to the probation clients. Plaintiff has failed to state facts which demonstrate that the City or County defendants received something of value to which they were not entitled by the forgiveness of a debt owed by the probation clients to the Plaintiff.
II. Discussion
On appeal, TJN argues that the district court erred in dismissing its claims against Judges Boling and Fowler using judicial immunity. TJN argues that the judges' termination of TJN as probation services provider and forgiveness of fees due it were not judicial acts but instead administrative decisions. TJN also argues that Judges Boling and Fowler were authorized policymakers whose actions are attributable to Craighead County and the City Defendants; therefore, the district court erred in dismissing TJN's claims against the municipal defendants.
We review de novo the district court's dismissal of TJN's complaint pursuant to Federal Rule of Civil Procedure 12(b)(6).
Grand River Enters. Six Nations, Ltd. v. Beebe
,
A. Judicial Immunity
We first consider TJN's argument that Judges Boling and Fowler are not entitled to judicial immunity.
"[J]udicial immunity is an immunity from suit, not just from ultimate assessment of damages."
Mireles v. Waco
,
1. Judicial Capacity
"[T]he factors determining whether an act by a judge is a 'judicial' one relate to the nature of the act itself,
i.e.
, whether it is a function normally performed by a judge, and to the expectations of the parties,
i.e.
, whether they dealt with the judge in his judicial capacity."
Stump v. Sparkman
,
Arkansas statutory law creates and circumscribes the judicial sentencing power of district courts and city courts.
A district court or city court may:
(A) Place a defendant on probation or sentence him or her to public service work; and
(B) As a condition of its order, require the defendant to pay a:
(i) Fine in one (1) or several sums; and
(ii) Probation fee or a public service work supervisory fee in an amount to be established by the district court or city court.
Did Judge Boling's and Judge Fowler's dismissal of probationers' cases, "purging" of fees that probationers owed, and resetting payment plans for delinquent probations via court order sufficiently relate to these general functions? We conclude that they did. The judges' reviewing of individual probationers' cases and amending of probation orders are related to the district court's authorized functions of placing a defendant on probation, requiring a defendant to pay a probation fee, *761 discharging a defendant from probation at the court's discretion, suspending the imposition of a defendant's fine, and modifying a defendant's condition of probation.
TJN attempts to analogize this case to cases in which courts have held that judges who make staffing decisions engage in administrative personnel decisions, not official judicial acts protected by judicial immunity.
4
These cases are inapposite. TJN's complaint states that the judges "dismissed" the probationers' cases, Compl. at 13, ¶ 81; " 'purged' the remaining debt that had not been paid,"
Furthermore, there was no employment relationship or contract for services between the judges, Craighead County, or the City Defendants, nor did the judges ever "terminate" TJN's work in their orders; this is because the contractual relationship at issue is between TJN and the probationers. The complaint provides that "[e]ach probation client enters into a contract with [TJN], agreeing to pay probation fees in exchange for services provided, such as drug screenings and classes."
While a district court or city court "may contract" with a probation services provider "[u]pon request of the district court judge or city court judge,"
Therefore, this case is not analogous to those cases relied upon by TJN in which judges have terminated employees.
*762 2. Jurisdiction
In examining whether a judge acted "in the complete absence of all jurisdiction," "[t]he Supreme Court has instructed us to construe broadly 'the scope of the judge's jurisdiction ... where the issue is the immunity of a judge.' "
Schottel
,
TJN argues that Arkansas law makes the Department of Corrections the entity responsible for the administration of probation services.
See
A court may sentence a misdemeanor offender to probation.
See
Based on these statutory provisions, we hold that Judges Boling and Fowler did not act in a clear absence of their jurisdiction because Arkansas law provides that the state district court and city courts have jurisdiction to modify or dismiss probation sentences and conditions of the misdemeanor offenders.
3. Conclusion on Judicial Immunity
Because Judges Boling and Fowler acted within their judicial capacity and did not act in the complete absence of all jurisdiction, we hold that the district court correctly dismissed the damages claims against them based on judicial immunity.
See
Mireles
,
B. Injunctive and Declaratory Relief
Our conclusion that Judges Boling and Fowler are entitled to judicial immunity does not resolve whether TJN may seek injunctive and declaratory relief. In addition to monetary damages, TJN sought: (1) a declaratory judgment that the defendant judges created a custom and policy with the Amnesty Program; and (2) an injunction prohibiting the defendant judges from implementing their custom and policy using *763 the Amnesty Program. See Compl. at 25, ¶¶ d-e.
On appeal, TJN argues that it is entitled to injunctive relief because the judges' conduct was not a judicial act. Appellant's Br. at 54 (citing
Judge Boling and Judge Fowler respond that judicial immunity prohibits TJN's claims for declaratory and injunctive relief. Specifically, they argue that their absolute judicial immunity bars all relief.
In
Pulliam v. Allen
, the Supreme Court held that a judicial officer acting in his or her judicial capacity is not immune from actions under § 1983 seeking prospective injunctive relief.
In this case, TJN has not alleged that declaratory relief was unavailable or that a declaratory decree was violated; thus, § 1983 bars TJN's claim for injunctive relief.
See
Lawrence v. Kuenhold
,
Currently, most courts hold that the amendment to § 1983 does not bar declaratory relief against judges.
See, e.g.
,
Severin v. Parish of Jefferson
,
The Tenth Circuit has concluded that "[t]he only type of relief available to a plaintiff who sues a judge is declaratory
*764
relief,
but not every plaintiff is entitled to this remedy
."
Lawrence
,
Thus, declaratory relief is limited to
prospective
declaratory relief.
See, e.g.
,
Davis v. Campbell
, No. 3:13-cv-0693 LEK/ATB,
Having reviewed the complaint, we conclude that TJN's request for declaratory relief is retrospective ; as a result, TJN is not entitled to such relief under § 1983. "Although [TJN] ... refers to the judges' actions as 'policies,' essentially, ... [it] is asking the court to invalidate the actions of [Judges Boling and Fowler]." Id . (emphasis added); see also Compl. at 16, ¶ 101.
C. Municipal Defendants
TJN next argues that the district court erred in dismissing its claims against Craighead County and the City Defendants because "Judge Boling and Judge Fowler's actions were done pursuant to an official municipal policy and their conduct caused a constitutional tort." Appellant's Br. at 49.
"[A] municipality cannot be held liable
solely
because it employs a tortfeasor-or, in other words, a municipality cannot be held liable under § 1983 on a
respondeat superior
theory."
Monell v. Dep't of Soc. Servs. of City of N.Y.
,
TJN argues that Judges Fowler and Boling were authorized policymakers of Craighead County and the City Defendants and that the judges' actions should be imputed to Craighead County and the City Defendants. But whether the judges' actions should be imputed to the municipal defendants depends on whether the judges are their employees.
We recently addressed whether the Phillips County District Court Clerk "is a state government official whose actions are not attributable to the City."
Evans v. City of Helena-West Helena, Ark
.,
Following the reasoning of
Evans
, we hold that Judges Boling and Fowler are employees of the State of Arkansas,
not
Craighead County or the City Defendants. Arkansas Code Annotated § 16-17-1111(a)(2) (2011) makes clear that the district judgeships in Craighead County became "state district court judgeships" as of January 1, 2013, before the events in this case. It also makes clear that these judges are "state" judges despite the cost-sharing requirements of § 16-17-1106(b)(1)(A).
Because Judges Boling and Fowler are not employees of Craighead County or the City Defendants, their actions cannot be imputed to them. Therefore, the district court correctly dismissed the claims against them.
III. Conclusion
Accordingly, we affirm the judgment of the district court.
The Honorable James M. Moody Jr., United States District Judge for the Eastern District of Arkansas.
We refer to the City of Jonesboro and the Cities of Bay, Bono, Brookland, Caraway, Cash, Egypt, Lake City, and Monette collectively as "the City Defendants."
"We recite these facts as alleged in [TJN's] complaint and assume them to be true."
Awnings v. Fullerton
,
See, e.g.
,
Forrester v. White
,
See also id. at 2, ¶ 3 ("Boling and Fowler have unilaterally decreed that [TJN] is not entitled to fees owed under the contracts between each probation client and [TJN]."); id. at 2, ¶ 4 ("As a direct result of Fowler's and Boling's interference in the contractual relationship between [TJN] and the probation clients ...."); id. at 9, ¶ 46 ("[TJN] contracted individually with each probation client. The Probation Fee Agreement contains, inter alia , a $35 monthly fee for probation services.").
The Senate report indicates that the amendment "restores the doctrine of judicial immunity to the status it occupied prior to ... Pulliam " because Pulliam had departed from "400 years of common-law tradition and weakened judicial immunity protections." S. Rep. 104-366, at *36-37, 1996 U.S.C.C.A.N. 4202, 4216.
Reference
- Full Case Name
- JUSTICE NETWORK INC., Plaintiff - Appellant v. CRAIGHEAD COUNTY; David Boling, Judge, in His Individual and Official Capacity; Tommy Fowler, Judge, in His Individual and Official Capacity; Bay, City Of; Bono, City Of; Brookland, City Of; Caraway, City Of; Cash, City of ; Egypt, City of ; Jonesboro, City Of; Lake City, Arkansas; Monette, City Of, Defendants - Appellees Lawyers' Committee for Civil Rights Under Law, Amicus on Behalf of Appellant(s)
- Cited By
- 147 cases
- Status
- Published