Filed: May 26, 1999
Latest Update: Feb. 21, 2020
Summary: Jeffrey LOYD, Bruce Capshaw, et al., Plaintiffs-Appellants, v. ALABAMA DEPARTMENT OF CORRECTIONS, Michael Haley, Commissioner, Defendants-Cross- Defendants-Appellees, Lyle Haas, Administrator of the Jackson County Department of Health in his official capacity, Defendant- Appellee, J.D. Atkins, Jackson County Commissioner; et al., Defendants-Appellees. No. 98-6189. United States Court of Appeals, Eleventh Circuit. May 26, 1999. Appeal from the United States District Court for the Northern Distric
Summary: Jeffrey LOYD, Bruce Capshaw, et al., Plaintiffs-Appellants, v. ALABAMA DEPARTMENT OF CORRECTIONS, Michael Haley, Commissioner, Defendants-Cross- Defendants-Appellees, Lyle Haas, Administrator of the Jackson County Department of Health in his official capacity, Defendant- Appellee, J.D. Atkins, Jackson County Commissioner; et al., Defendants-Appellees. No. 98-6189. United States Court of Appeals, Eleventh Circuit. May 26, 1999. Appeal from the United States District Court for the Northern District..
More
Jeffrey LOYD, Bruce Capshaw, et al., Plaintiffs-Appellants,
v.
ALABAMA DEPARTMENT OF CORRECTIONS, Michael Haley, Commissioner, Defendants-Cross-
Defendants-Appellees,
Lyle Haas, Administrator of the Jackson County Department of Health in his official capacity, Defendant-
Appellee,
J.D. Atkins, Jackson County Commissioner; et al., Defendants-Appellees.
No. 98-6189.
United States Court of Appeals,
Eleventh Circuit.
May 26, 1999.
Appeal from the United States District Court for the Northern District of Alabama. (No. CV92-N-0058-NE),
Edwin Nelson, Judge.
Before BIRCH and BARKETT, Circuit Judges, and ALAIMO*, Senior District Judge.
BIRCH, Circuit Judge:
Appellants, representing all prisoners who are or will be confined at the Jackson County Jail in
Scottsboro, Alabama, appeal the district court order terminating: (1) a 1994 consent decree governing the
conditions of confinement at the Jackson County Jail, (2) a 1995 permanent injunction ordering the state to
remove state inmates from the Jackson County Jail in a timely manner, and (3) a 1995 consent decree
governing the responsibilities of the state of Alabama in removing state prisoners from Jackson County jails.
I. BACKGROUND
On November 7, 1994, the district court entered an order approving and adopting a consent decree
concerning the conditions of confinement at the Jackson County Jail. The parties to that consent decree
included the appellants, Jackson County, the Jackson County Commissioners, the Jackson County Sheriff,
and the Chief Jailor of the Jackson County Jail. On January 12, 1995, the district court entered a permanent
*
Honorable Anthony A. Alaimo, Senior U.S. District Judge for the Southern District of Georgia, sitting
by designation.
injunction against the Alabama Department of Corrections, ordering the timely removal of state prisoners
from the Jackson County Jail. On March 17, 1995, the district court entered an order adopting and approving
a second consent decree concerning the removal of state prisoners from county jails, signed by the appellants,
the Commissioner of the Department of Corrections, the Department of Corrections, the Alabama Department
of Public Health, and the Administrator of the Jackson County Health Department. On July 2, 1997, the
Attorney General and the Commissioner of the Alabama Department of Corrections (hereinafter collectively
referred to as the "Attorney General") filed a motion to terminate the consent decrees and the permanent
injunction pursuant to the Prison Litigation Reform Act ("PLRA"), codified at 18 U.S.C. § 3626(b)(2).1 The
Attorney General claimed status as an intervenor under 18 U.S.C. § 3626(b)(2) of the PLRA and as a
representative of the Alabama Department of Corrections and the Department of Public Health. On January
27, 1998, the district court granted the Attorney General's motion for termination of both consent decrees and
the permanent injunction.
The appellants argue that the Attorney General does not have standing to intervene to terminate the
1994 consent decree because the state of Alabama was not a party to that consent decree. They also challenge
the decision of the district court not to hold an evidentiary hearing on the motion to terminate. The appellants
further contend that the termination provisions of the PLRA under 18 U.S.C. § 3626(b)(2) are
unconstitutional.
We review de novo a district court's judgment on intervention as of right. See Purcell v.
BankAtlantic Fin. Corp., 85 F.3d 1508, 1512 (11th Cir.1996). We review the district court's denial of an
evidentiary hearing for abuse of discretion. See United States v. Fernandez,
136 F.3d 1434, 1438 (11th
1
Immediate termination of prospective relief.—In any civil action with respect to prison conditions, a
defendant or intervener shall be entitled to the immediate termination of any prospective relief if the relief
was approved or granted in the absence of a finding by the court that the relief is narrowly drawn, extends
no further than necessary to correct the violation of the Federal right, and is the least intrusive means
necessary to correct the violation of the Federal right.
18 U.S.C. § 3626(b)(2).
2
Cir.1998). Questions of constitutional law we review de novo. See Pleasant-El v. Oil Recovery Co., 148 F.3d
1300, 1301 (11th Cir.1998).
II. DISCUSSION
A. Intervention by the Attorney General
The appellants argue that the Attorney General did not possess the standing to intervene and file a
motion to terminate the 1994 consent decree because the Attorney General was not a party to the decree. As
an initial matter, we note that this circuit has held that "a party seeking to intervene need not demonstrate that
he has standing in addition to meeting the requirements of Rule 24 as long as there exists a justiciable case
and controversy between the parties already in the lawsuit." Chiles v. Thornburgh, 865 F.2d 1197, 1213 (11th
Cir.1989).2 See also Cox Cable Communications, Inc. v. United States,
992 F.2d 1178, 1181 (11th Cir.1993).
We, therefore, need not inquire into the Attorney General's standing to seek intervention in this case.
Under Federal Rule of Civil Procedure 24, a party may seek to intervene of right3 or with the
permission of the district court.4 A movant must establish the following requirements to intervene as of right:
2
Citing Diamond v. Charles, 476 U.S. 54,
106 S. Ct. 1697,
90 L. Ed. 2d 48 (1986), the appellants argue that
the Supreme Court has decided that intervenors are required under Article III to possess standing as a matter
of constitutional law. This is not so. In Diamond, the Court stated that an intervenor, unless otherwise
demonstrating Article III standing, may not initiate an appeal if the party on whose side he intervened has
decided not to appeal.
Id. at 68, 106 S.Ct. at 1706. The Court left open the question of "whether a party
seeking to intervene before a District Court must satisfy not only the requirements of Rule 24(a)(2), but also
the requirements of Art. III."
Id. at 68-69, 106 S.Ct. at 1707. Here, appellants, not the State, initiated the
appeal of the district court's order terminating the consent decrees. While ambivalent about their position,
the county defendants have remained active in opposing the appeal of the district court's order terminating
both consent decrees and the permanent injunction. See Brief of (County Defendant) Appellees, at 6-8.
Accordingly, there is an existing "case or controversy."
3
"Upon timely application anyone shall be permitted to intervene in an action ... when the applicant claims
an interest relating to the property or transaction which is the subject of the action and the applicant is so
situated at the disposition of the action may as a practical matter impair or impede the applicant's ability to
protect that interest, unless the applicant's interest is adequately represented by existing parties." Fed.R.Civ.P.
24(a)(2).
4
See Fed.R.Civ.P. 24(b).
3
(1) his application to intervene is timely; (2) he has an interest relating to the property or transaction
which is the subject of the action; (3) he is so situated that disposition of the action, as a practical
matter, may impede or impair his ability to protect that interest; and (4) his interest is represented
inadequately by the existing parties to the suit.
Chiles, 865 F.2d at 1213.
No party has challenged the timeliness of the Attorney General's intervention. We focus instead on
whether the Attorney General has sufficient "interest" in the existing suit to make intervention proper. The
intervenor must be "at least a real party in interest in the transaction which is the subject of the proceeding.
This interest has also been described as a direct, substantial, legally protectable interest in the proceedings."
Worlds v. Department of Health & Rehabilitative Servs., 929 F.2d 591, 594 (11th Cir.1991) (per curiam)
(footnotes, citations, and quotation marks omitted). Here, the 1994 consent decree states in Section D, titled
"Population," that:
Inmates in the Jackson County Jail who have been sentenced to imprisonment in the custody of the
Alabama Department of Corrections shall be transferred from the existing and new jail, and accepted
by the Department of Corrections, on a timely basis. A timely basis shall be defined as within 30
days of the time the necessary documents associated with the inmate's sentence and transfer have
been completed and forwarded to the Department of Corrections. The Jackson County Sheriff shall
enlist the assistance of the Jackson County Circuit Judges and District Judge, as well as the assistance
of the Circuit Clerk, to ensure timely preparation and forwarding of these documents. Defendants
shall inform the monitor of all unreasonable delays in the preparation and forwarding of these
documents.
R5-117, 1994 Consent Decree at ¶ 25(g). The decree orders that state inmates will be transferred from county
to state jails within a specified period of time, impacting the economic ability of the State to have facilities
available for the transfer. The 1994 consent decree thus directly affects the interests of the State of Alabama,
even though the State is not a party to the consent decree.
Furthermore, Alabama was a party to the initial suit. The fact that certain parties formed a consent
decree does not eliminate the State's interest in the suit. As the Supreme Court stated:
Of course, parties who choose to resolve litigation through settlement may not dispose of the claims
of a third party, and a fortiori may not impose duties or obligations on a third party, without that
party's agreement. A court's approval of a consent decree between some of the parties therefore
cannot dispose of the valid claims of nonconsenting intervenors; if properly raised, these claims
remain and may be litigated by the intervenor.
4
Local Number 93, Int'l Ass'n of Firefighters v. Cleveland, 478 U.S. 501, 529,
106 S. Ct. 3063, 3079,
92
L. Ed. 2d 405 (1986). Both consent decrees and the preliminary injunction arise out of the same litigation.
It strains reason to argue now that these orders are so unrelated that a defendant to the initial litigation cannot
now act as an intervenor.
Under the third and fourth factors described in Chiles, when the interests of the State are affected
by the 1994 consent decree, prohibiting the State from intervening would impair the State's ability to protect
its interests. See Chiles, 865 F.2d at 1213.5 Alabama, therefore, satisfies the requirements for intervention
as of right under Federal Rule of Civil Procedure 24(a)(2). Once a party establishes all prerequisites to
intervention, the trial court has no discretion to deny the intervention. See
Purcell, 85 F.3d at 1512.
The appellants argue that because the Attorney General did not specifically invoke Federal Rule of
Civil Procedure 24 in his motion to terminate, the attempt to intervene must fail.6 The Attorney General
stated in its motion to terminate that it was intervening under 18 U.S.C. § 3626(b)(2). Here, the Attorney
General did not file a motion to intervene, but rather filed only a motion to terminate the consent decree.
Without expressly considering the intervention issue under Rule 24, the district court did, however, rule on
the Attorney General's motion to terminate. In Farina v. Mission Investment Trust, 615 F.2d 1068 (5th
Cir.1980), we held that it is within the discretion of the district court to treat a motion to remove as a motion
to intervene. Since the district court granted the motion to remove, the circuit court concluded that the court
necessarily had accepted the intervenor as a party in the suit.
Id. at 1075.7 Accordingly, we find that it was
5
Additionally, Alabama's interest are not adequately represented by either the appellants or the county
defendants. While both the State and the county were defendants in the initial action, they are, in reality,
adverse parties because the county wants to relieve overcrowding of its jails by ensuring that state inmates
are transferred to state jails.
6
A party wishing to intervene must file a motion stating the grounds for intervention, even when
intervention is permitted by statute. Fed.R.Civ.P. 24(c).
7
In Bonner v. City of Prichard, 661 F.2d 1206, 1209 (11th Cir.1981) (en banc), this court adopted as
binding precedent all decisions of the former Fifth Circuit handed down prior to October 1, 1981.
5
within the discretion of the district court here to rule upon the motion to terminate as if the State also had filed
a formal motion to intervene. Furthermore, we have also held that we will "disregard nonprejudicial technical
defects" in complying with Rule 24(c). See Piambino v. Bailey, 757 F.2d 1112, 1121 (11th Cir.1985).8
Therefore, we affirm the district court's granting to the Attorney General intervenor status by accepting, and
ruling upon, its motion to terminate the 1994 consent decree.9
8
When considering intervention of right, prejudice to existing parties—other than that caused by would-be
intervenor's failure to act promptly—is not a factor to be considered. See Stallworth v. Monsanto Co.,
558
F.2d 257, 265 (5th Cir.1977).
9
In affirming the district court's acceptance of the Attorney General's intervention we do not dismiss lightly
the appellants' concerns here. Our holding is based on the compelling nature of the State's interest in the
litigation, in that the 1994 consent decree directly affected the State of Alabama by ordering the removal of
state inmates from county prisons within a certain period of time.
We note with concern, however, the case of Clark v. Patterson, Civil Action No. CV 78-
C5010-NE (N.D.Ala.), see Brief of Appellant, at 16-17, where the Attorney General of Alabama
attempted to represent the views of the Sheriff of Madison County, Alabama, apparently without the
sheriff's knowledge or permission. The State of Alabama may not intervene in a misguided effort
to represent an adverse party. See Kozak v. Wells, 278 F.2d 104, 113 (8th Cir.1960) (Blackmun, J.)
("courts must be on guard against the improper use of the intervention process.... The procedural
rules herein expressed are not to be taken advantage of where ... the motion for leave to intervene is
sham.").
We depart company with the dissent on the issue of the scope of the interest of the State of
Alabama. We read Chiles to hold that the State of Alabama does not need to establish Article III
standing in order to intervene in this case. Chiles requires "a justiciable case and controversy
between the parties already in the lawsuit," 865 F.2d at 1213; that provision is satisfied here. The
county defendants supported Alabama's motion to terminate the consent decree and have participated
as a party supporting that positing on appeal. This is in marked contrast to Diamond, as cited by the
dissent, where the State of Illinois filed only a "letter of interest" expressing support for the
intervenor's position. 476 U.S. at 63-64,
106 S. Ct. 1697. The county defendants have done a great
deal more here. They are appellees and have chosen to pursue the matter as an active party in the
litigation, filing briefs on appeal. Moreover, Diamond considers the ability of a party to initiate an
appeal and specifically did not consider the requirements for intervention at the district court level.
See 476 U.S. at 68-69,
106 S. Ct. 1697. Initiation of an appeal is not at issue here.
Furthermore, the interests of Alabama were affected by the November 1994 consent decree
because the success of the decree hinged on reducing the number of inmates in the county facility.
To reduce the number of inmates, the consent decree ordered Alabama to remove state inmates in a
timely manner. Other portions of the consent decree directed the county defendants to improve the
services available to the prison inmates. The facilities, services, and conditions for the old and new
county jails mandated by the 1994 consent decree could only be achieved and maintained with a
6
B. Evidentiary Hearing
The appellants argue that it was an abuse of discretion for the district court to refuse to conduct an
evidentiary hearing concerning the current conditions at the prison and the scope of the prospective relief that
the Attorney General wished to terminate. We agree.
The PLRA grants the district court broad authority to terminate prospective relief upon a motion by
any party or intervenor. See 18 U.S.C. § 3626(b)(2). There is, however, an important limitation on this
authority. Section 3626(b)(3) provides that
Prospective relief shall not terminate if the court makes written findings based on the record that
prospective relief remains necessary to correct a current and ongoing violation of the Federal right,
extends no further than necessary to correct the violation of the Federal right, and that the prospective
relief is narrowly drawn and the least intrusive means to correct the violation.
18 U.S.C. § 3626(b)(3) (emphasis added). It would read all meaning out of this section to force the party
opposing termination to show that the consent decree meets the requirements of § 3626(b)(3) and then not
provide that party with the opportunity to present evidence on that point. We hold, therefore, that it was
abuse of discretion for the district court to refuse to hold an evidentiary hearing. See also Tyler v. Murphy,
135 F.3d 594, 597-98 (8th Cir.1998) (on remand proponents of prospective relief must be given opportunity
to present evidence); Benjamin v. Jacobson,
124 F.3d 162, 179 (2d Cir.1997) (record may include
smaller prison population, making Alabama a key party to the success of the November 1994 consent
decree. The Supreme Court has noted that when some parties to a litigation resolve their claims
through a consent decree, this does not eliminate the interests of "nonconsenting intervenors" whose
"claims remain and may be litigated by the intervenor." See Local Number 93, 478 U.S. at 529, 106
S.Ct. at 3079.
It would be difficult, if not impossible, to keep in effect, as the dissent suggests, the
provisions of the decree relating to services while not enforcing those provisions instructing Alabama
to reduce the prison population. The decree is not made up of two separate pieces, each of which can
survive on its own. In this situation, the decree must be read in its entirety. Newman v. Graddick,
740 F.2d 1513 (11th Cir.1984), cited by the dissent, is not in conflict with our decision here.
Newman requires that the intervenor show the decree has "adversely affect[ed] his interest." Id. at
1517. The Attorney General has satisfied that demonstration here. Finally, as we have noted, "[a]ny
doubt concerning the propriety of allowing intervention should be resolved in favor of the proposed
intervenors because it allows the court to resolve all related disputes in a single action." Federal Sav.
& Loan Ins. Corp. v. Falls Chase Special Taxing Dist., 983 F.2d 211, 216 (11th Cir.1993).
7
supplemental evidence presented to the court), reh'g en banc granted, Dec. 23, 1997; Jensen v. County of
Lake, 958 F. Supp. 397, 406-07 (N.D.Ind.1997) (at hearing on termination, prisoners "will have the
opportunity to show whether ongoing constitutional violations exist" at the jail); Carty v. Farrelly,
957
F. Supp. 727, 733 (D.V.I.1997) (holding evidentiary hearing to determine whether constitutional violations
were current and ongoing).
The Attorney General argues that no evidentiary hearing was necessary because the "record" in this
case was current. It is true that the court-appointed monitor, Dr. William E. Osterhoff, did provide eleven
reports to the court, the most recent of which was filed two months prior to the motion to terminate. The
Attorney General's argument fails, however, because the purpose of an evidentiary hearing is far greater than
simply to receive a written report. A report alone cannot be cross-examined or disputed. The party opposing
termination must be given the opportunity to challenge or supplement the findings of the monitor and to
present evidence concerning the scope of the challenged relief and whether there are "current and ongoing"
violations of federal rights in the prison.
C. Permanent Injunction
Section 3626(b)(2) provides for the immediate termination of any prospective relief under certain
conditions. The PLRA defines "prospective relief" to mean "all relief other than compensatory monetary
damages." 18 U.S.C. § 3626(g)(7). "Relief" is defined as "all relief in any form that may be granted or
approved by the court, and includes consent decrees but does not include private settlement agreements." 18
U.S.C. § 3626(g)(9). Accordingly, permanent injunctions, as a form of prospective relief, fall under the
immediate termination provisions of the PLRA. We have previously affirmed the termination of an injunction
under this same section of the PLRA. See Parrish v. Alabama Dep't of Corrections, 156 F.3d 1128, 1129
8
(11th Cir.1998). See also Tyler v. Murphy, 135 F.3d 594, 596 (8th Cir.1998) (holding that an injunction must
be considered under restrictions of 3626(b)(2)).10
Appellants argue that the permanent injunction at issue here is based on findings of constitutional
violations, and because a court is not authorized to grant injunctive relief against a state agency that is broader
than necessary to remedy the constitutional violation, see Gibson v. Firestone, 741 F.2d 1268, 1273 (11th
Cir.1984), the permanent injunction, by definition, is narrowly tailored to correct any constitutional violations
and thus complies with requirements of the PLRA.
Since we have determined that it was improper for the district court to refuse to hold an evidentiary
hearing concerning conditions in the prison or scope of relief approved in the litigation, we decline to address
this portion of the appeal here. Rather, we will allow the district court to review appellant's arguments during
the evidentiary hearing ordered in this opinion.
D. Constitutionality of PLRA, 18 U.S.C. § 3626(b)
In a companion case, Nichols v. Hopper, 173 F.3d 820 (11th Cir.1999), we held that the termination
provisions of the PLRA are constitutional under a separation of powers challenge as articulated in United
States v. Klein, 80 U.S. (13 Wall.) 128,
20 L. Ed. 519 (1871). In Dougan v. Singletary,
129 F.3d 1424 (11th
Cir.1997) (per curiam), cert. denied, --- U.S. ----,
118 S. Ct. 2375,
141 L. Ed. 2d 743 (1998), we held that the
PLRA termination provision did not violate the Fifth Amendment's Due Process Clause,
id. at 1426-27; did
not violate the equal protection component of the Fifth Amendment,
id. at 1427; and did not violate the
10
It is not unusual for a court to modify or even terminate an injunction in response to a change in the law.
See Pennsylvania v. Wheeling & Belmont Bridge Co., 59 U.S. (18 How.) 421, 431-32, 15 L. Ed. 435 (1855).
See also Agostini v. Felton,
521 U.S. 203,
117 S. Ct. 1997, 2006,
138 L. Ed. 2d 391 (1997) ("A court errs when
it refuses to modify an injunction or consent decree in light of [statutory or decisional law] changes.").
9
separation of powers doctrine, id. at 1426.11 The appellants' challenges to the constitutionality of the PLRA
termination provisions, therefore, are without merit.
III. CONCLUSION
We AFFIRM the district court's treatment of the Attorney General as an intervenor. We REVERSE
the district court's decision not to hold an evidentiary hearing and REMAND to the district court to hold a
hearing consistent with this opinion. We AFFIRM the district court's finding that the PLRA withstands
constitutional scrutiny.
AFFIRMED in part, REVERSED in part, REMANDED.
BARKETT, Circuit Judge, concurring in part and dissenting in part:
I agree with the majority that Loyd was entitled to an evidentiary hearing in the district court and that
his constitutional challenge to the PLRA must fail under our precedents. However, I believe that the majority
errs in holding that the Attorney General was entitled to seek termination of the entire November 1994 decree
without satisfying Article III standing requirements.
There is no question that the Attorney General would be a permissible intervenor in a case where one
of the parties to a consent decree also sought termination. Intervention in that context would not require a
showing of Article III standing. Chiles v. Thornburgh, 865 F.2d 1197, 1212-13 (11th Cir.1989). Here,
however, the Attorney General alone asked the district court to terminate the November 1994 decree. The
parties to the decree, the county defendants, did not and have not sought to join the Attorney General's motion
to terminate or independently move to terminate the decree. The Supreme Court's decision in Diamond v.
Charles,
476 U.S. 54,
106 S. Ct. 1697,
90 L. Ed. 2d 48 (1986), indicates that the Attorney General must satisfy
Article III standing requirements in these circumstances.
11
In Dougan, the plaintiffs challenged section 3626(b)(2) under the separation of powers doctrine that
forbids legislation that "command[s] the federal courts to reopen final judgments," as articulated most recently
in Plaut v. Spendthrift Farm, Inc., 514 U.S. 211, 219,
115 S. Ct. 1447, 1453,
131 L. Ed. 2d 328 (1995).
10
In Diamond, noting Article III's requirement of injury-in-fact, the Court observed that, because of
the profound effect of judicial review on the populace, "the decision to seek review must be placed 'in the
hands of those who have a direct stake in the outcome.' It is not to be placed in the hands of 'concerned
bystanders,' who will use it simply 'as a vehicle for the vindication of value interests.' " Id. at 62, 106 S. Ct.
1697 (citations omitted). Accordingly, the Court held that "an intervenor's right to continue a suit in the
absence of the party on whose side intervention was permitted is contingent upon a showing by the intervenor
that he fulfills the requirements of Article III."
Id. at 68, 106 S. Ct. 1697. Because the defendant in that case,
the State of Illinois, had not filed an appeal, the intervenor could not simply attempt "to ride 'piggyback' on
the State's undoubted standing,"
id. at 64, 106 S. Ct. 1697, but had to show that he had satisfied Article III's
demands in order to appeal since "in the absence of the State [as an appellant], there is no case for Diamond
to join."
Id. See also United States v. AVX Corp.,
962 F.2d 108, 112-13 (1st Cir.1992) (holding that
intervenor who opposed consent decree could not appeal the district court's order approving the decree
without satisfying Article III standing requirements). The same result obtains here. Because the Attorney
General alone asked the district court to terminate the Nov 1994 consent decree, it must show that it has a
direct stake in whether or not that consent decree will continue in force. Accordingly, the majority errs in
concluding that the Attorney General was entitled to seek termination of the consent decrees without
satisfying Article III standing requirements.
Our decision in Chiles is not to the contrary. In Chiles, we recognized that a party seeking to
intervene need not establish Article III standing "as long as there exists a justiciable case or controversy
between the parties already in the lawsuit." Chiles, 865 F.2d at 1213. Here, however, at the time the Attorney
General moved to terminate the consent decrees, there was no ongoing case or controversy between the
parties to the decree—the case between them had been settled by the consent decree that the Attorney General
was seeking to terminate. Moreover, the fact that the county defendants acquiesced in the termination of the
consent decrees before both the district court and this Court is not sufficient to create a case or controversy.
11
The Supreme Court rejected a similar contention in Diamond. In Diamond, the State of Illinois filed a "letter
of interest" expressing its support for the intervenor's position and noting that it was still a "party" to the
litigation. The Court found that this "mere expression of interest ... insufficient to bring the State into the suit
as an appellant," explaining that "[t]he State's general interest may be adverse to the interest of appellees, but
its failure to invoke our jurisdiction leaves the Court without a 'case' or 'controversy' between appellees and
the State of Illinois." Diamond, 476 U.S. at 63-64,
106 S. Ct. 1697. The same principle applies here. Because
the county defendants did not invoke the district court's jurisdiction and move to terminate the decrees, there
was no case or controversy between the plaintiffs and the county defendants at the time the Attorney General
filed the motion to terminate.
The majority concludes that the Attorney General has a sufficient direct and substantial interest in
the November 1994 consent decree, even though he was not a party to the decree, because one of the
paragraphs of the consent decree requires transfer of inmates from county jails to state-run jails within a
specified period of time. I agree that the Attorney General has a direct stake in the continued existence of
this portion of the consent decree. I do not think, however, that the fact that the Attorney General has a direct
stake in one provision of this consent decree, albeit an important one, gives him the right to seek the
termination of the entire decree, the vast majority of which only relates to the county defendants. The
majority offers no reason why the Attorney General should be able to seek termination of those portions of
the decree that only relate to the county defendants. Moreover, as the majority recognizes, the state and
county defendants have different and adverse interests, making it inappropriate for the Attorney General to
act as a representative for the county defendants.
This reasoning finds support in our decision in Newman v. Graddick, 740 F.2d 1513 (11th Cir.1984).
In Newman, we considered whether the Attorney General of Alabama had standing to challenge a consent
decree to which he had not agreed and whether he could seek modification of that decree. Because the
Attorney General was a party to the decree and the decree was approved over his objections, we held that he
12
had standing to challenge the decree. However, we explained that "he would need to show that the decree
adversely affects his interests as Attorney General of Alabama. He could not assert the interests of other
parties to the litigation." Id. at 1517. Likewise, we affirmed the district court's conclusion that the Attorney
General "had no standing to seek to modify the decree in respects that were not prejudicial to the interest of
the Attorney General."
Id. at 1518. As Newman makes clear, the Attorney General's standing is confined
to his own interests; he cannot assert the interests of other parties to the litigation. See also Graddick v.
Newman,
453 U.S. 928, 934,
102 S. Ct. 4,
69 L. Ed. 2d 1025 (1981) (Powell, J.) (denying stay to Alabama
Attorney General on basis that he lacked standing because, at the time, Alabama statutes vested responsibility
over prison system in the Governor, who opposed stay).
I recognize that, even if the Attorney General lacks the authority to terminate the remaining portions
of the November 1994 decree, the district court would have the authority to do so sua sponte. See United
States v. City of Miami, 2 F.3d 1497, 1506 (11th Cir.1993). However, I believe that the district court should
have an opportunity to decide whether it will exercise its discretion to act sua sponte, especially given the fact
that its decision on this point will affect the scope of the evidentiary hearing it needs to hold. This follows
the same approach we took in Magluta v. Samples,
162 F.3d 662 (11th Cir.1998), where we remanded a case
to the district court to permit the district court to decide whether it would dismiss plaintiff's case for failure
to comply with the local rules.
Id. at 664-65.
13
