BRIAN A. JACKSON, CHIEF JUDGE.
Before the Court are four
This action was initiated on February 6, 2014, by nine nail-salon owners of Vietnamese and Asian heritage. The nine Plaintiffs sought injunctive relief and damages against the Louisiana State Board of Cosmetology ("LSBC") and individuals associated with the LSBC, including Celia R. Cangelosi ("Cangelosi"), who serves as an attorney for the LSBC. Specifically, Plaintiffs alleged that they were "harassed, intimidated, falsely imprisoned, and arbitrarily discriminated against or racially profiled based on their race, ethnicity or national origin by the Louisiana State Board of Cosmetology and/or its agents." (Doc. 1-1 at ¶ 5).
Through the course of these proceedings, the Court dismissed the claims against eighteen Defendants and the claims of five Plaintiffs. (See Docs. 62, 63, 146). In the instant Motion, Defendant Cangelosi seeks summary judgment on the claims of the four remaining Plaintiffs:
Thoa Nguyen ("T. Nguyen") is the owner of the manicuring salon Exotic Nails in Lafayette, Louisiana. On July 19, 2013, LSBC inspectors Sherrie Stockstill ("Stockstill") and Debra Ashmore ("Ashmore") inspected Exotic Nails at the direction of Stockstill's supervisor, Tywanda Spland.
The inspectors forwarded the Inspection Report and Notices of Violation to Cangelosi, whereafter Cangelosi would decide whether disciplinary proceedings were warranted. Cangelosi drafted Informal Hearing Letters and sent the Letters to the Executive Director of the LSBC, Steven Young ("Director Young"). Director Young signed the Letters and sent them to T. Nguyen on September 16, 2013. The Informal Hearing Letters notified T. Nguyen that he had ten days to demonstrate compliance with the Louisiana Cosmetology Act and that should he fail to do so, the matter would be scheduled for a formal hearing.
In February 2014, Cangelosi prepared formal charges to be brought against T. Nguyen pursuant to Louisiana Revised Statutes section 37:600. The charges were not finalized, however, due to the initiation of this action on February 6, 2014.
Hien Hoang ("Hoang") is the owner of the manicuring salon Magic Nails in Prairieville, Louisiana. Magic Nails was inspected by the LSBC three times within a fourteen-month period.
Four months after the first inspection, Stockstill conducted a second inspection on August 8, 2012. Stockstill noted on the Inspection Report and Notice of Violation that an unlicensed nail technician was performing manicures.
While the proceedings for the second inspection were pending. Stockstill — with the assistance of Margaret Keller ("Keller"), who also was an LSBC inspector — conducted a third inspection on May 3, 2013. On the Inspection Report and Notices of Violation, the inspectors noted the presence of waxing equipment and supplies in the salon and that "a girl performing a pedicure ... ran out the back door."
On June 14, 2013, the alleged violations from the second and third inspections were consolidated into Amended Notices to Show Cause.
On August 16, 2013, Hoang received Formal Hearing Letters, Second Amended Notices to Show Cause, and Second Amended Administrative Complaints. These documents were prepared by Cangelosi and signed by Director Young. At the LSBC hearing on October 7, 2013, the proposed Consent Agreements were formally accepted.
Uan Pham ("Pham") is the owner of the manicuring salon Elegant Nails # 2 in Lafayette, Louisiana. On August 28, 2013, Stockstill inspected the salon.
The Informal Hearing Letters notified Pham that he had ten days to show compliance with the Louisiana Cosmetology Act and that should he fail to do so, the matter would be scheduled for a formal hearing. On October 3, 2013, Cangelosi and Pham negotiated proposed Consent Agreements. Pham received the proposed Consent Agreements from Cangelosi, but he did not return them to Cangelosi by the October 24, 2013, deadline.
On December 23, 2013, Pham called Cangelosi to negotiate new proposed Consent Agreements that would contain lesser fines. The negotiations were unsuccessful.
Mai Thi Nguyen ("M. Nguyen") is the owner of the manicuring salon Nu Nails in Gonzales, Louisiana. M. Nguyen purchased the salon from Thu Nguyen on August 14, 2013.
On September 11, 2013, M. Nguyen applied for a manicuring-salon license. M. Nguyen's application was immediately forwarded to Cangelosi.
On September 14, 2013, three days after M. Nguyen applied for a manicuring-salon license, Cangelosi's legal assistant — Terri Clark ("Clark") — patronized Nu Nails. During her deposition testimony, Clark testified that she repeatedly "bugged" Cangelosi for authorization to patronize the salon because it "irritate[d]" her to see the salon operating unlawfully.
On September 25, 2013, the LSBC sent M. Nguyen a Rule to Show Cause Why Application Should Not Be Denied ("Rule to Show Cause"), which was prepared by Cangelosi and signed by Director Young. The Rule to Show Cause directed M. Nguyen to demonstrate why her application should not be denied on grounds of (1) attempting to obtain a salon license by means of fraud, misrepresentation, or the concealment of facts and (2) operating a salon without a license.
While the Rule to Show Cause was pending, Stockstill conducted a second inspection of the salon on October 1, 2013. On the Inspection Report, Stockstill noted that the inspection was a follow-up visit, conducted at the direction of Director Young and Cangelosi.
Summary judgment is appropriate "if the movant shows that there is no genuine dispute as to any material fact and the movant is entitled to judgment as a matter of law." Fed. R. Civ. P. 56(a). "A party asserting that a fact cannot be genuinely disputed must support the assertion by... citing to particular parts of materials in the record, including depositions, documents, electronically stored information, affidavits or declarations, stipulations (including those made for purposes of the motion only), admissions, interrogatory answers," or by averring that an adverse party cannot produce admissible evidence to support the presence of a genuine dispute. Fed. R. Civ. P. 56(c)(1)(A).
"[W]hen a properly supported motion for summary judgment is made, the adverse party must set forth specific facts showing that there is a genuine issue for trial." Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 250, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986) (quotation marks and footnote omitted). "This burden is not satisfied with some metaphysical doubt as to the material facts, by conclusory allegations, by unsubstantiated assertions, or by only a scintilla of evidence." Little v. Liquid Air Corp., 37 F.3d 1069, 1075 (5th Cir. 1994) (quotation marks and citations omitted). In determining whether the movant is entitled to summary judgment, the Court "view[s] facts in the light most favorable to the non-movant and draw[s] all reasonable inferences in her favor." Coleman v. Houston Indep. Sch. Dist., 113 F.3d 528, 533 (5th Cir. 1997).
In sum, summary judgment is appropriate if, "after adequate time for discovery and upon motion, [the non-movant] fails to make a showing sufficient to establish the existence of an element essential to that party's case, and on which that party will bear the burden of proof at trial." Celotex Corp. v. Catrett, 477 U.S. 317, 322, 106 S.Ct. 2548, 91 L.Ed.2d 265 (1986).
Cangelosi raises the defenses of absolute immunity and qualified immunity. In the alternative, Cangelosi moves for summary judgment on the ground that there is no genuine dispute as to any material fact relating to Plaintiffs' race discrimination claims. For the reasons discussed herein, the Court finds that summary judgment is appropriate on Plaintiff T. Nguyen's, Plaintiff Hoang's, and Plaintiff Pham's claims against Defendant Cangelosi, but summary judgment is not appropriate on Plaintiff M. Nguyen's claim against Defendant Cangelosi.
Absolute immunity "denies a person whose federal rights have been violated by a government official any type of remedy, regardless of the conduct." O'Neal v. Miss. Bd. of Nursing, 113 F.3d 62, 65 (5th Cir. 1997). Government officials to whom absolute immunity is extended "include judges performing judicial acts within their jurisdiction, prosecutors in the performance of their official functions, and certain `quasi-judicial' agency officials who,
In determining whether absolute immunity extends to a particular government official, "the proper focus should not be the identity of the party claiming the immunity, but rather his `role in the context of the case.'" Id. (quoting Mays v. Sudderth, 97 F.3d 107, 110 (5th Cir. 1996)). Under this "functional approach" to the application of absolute immunity, the United States Court of Appeals for the Fifth Circuit has directed courts to analyze the "nature of the function performed" by the government official. Beck v. Tex. State Bd. of Dental Examiners, 204 F.3d 629, 634 (5th Cir. 2000). "In other words, immunity attaches to particular official functions, not to particular offices." O'Neal, 113 F.3d at 65.
Absolute immunity extends to officials whose responsibilities are functionally comparable to those of judges and prosecutors. See id. at 67. The Fifth Circuit has recognized absolute immunity for officials that are members, attorneys, and directors of professional licensing boards. See, e.g., Di Ruzzo v. Tabaracci, 480 Fed. Appx. 796 (5th Cir. 2012) (recognizing absolute immunity for attorneys and board members of the Texas Medical Board); Beck, 204 F.3d 629 (recognizing absolute immunity for board members of the Texas State Board of Dental Examiners); O'Neal, 113 F.3d 62 (recognizing absolute immunity for board members and the director of the Mississippi State Board of Nursing). However, when a member, attorney, or director of a professional licensing board performs an "investigative" function, as opposed to "either an adjudicative or prosecutorial function," that person is not entitled to absolute immunity. Beck, 204 F.3d at 637; see Buckley v. Fitzsimmons, 509 U.S. 259, 273, 113 S.Ct. 2606, 125 L.Ed.2d 209 (1993) ("When a prosecutor performs the investigative functions normally performed by a detective or police officer, it is `neither appropriate nor justifiable that, for the same act, immunity should protect the one and not the other.'" (quoting Hampton v. Chicago, 484 F.2d 602, 608 (7th Cir. 1973))).
Cangelosi serves as an attorney for the LSBC, a professional licensing board that oversees cosmetology licenses in the State of Louisiana.
As an attorney for the LSBC, Cangelosi serves in a role that is "functionally comparable" to a prosecutor: Cangelosi initiates disciplinary proceedings, negotiates consent agreements, and presents evidence
Cangelosi's conduct in the cases of T. Nguyen, Hoang, and Pham was soley prosecutorial in nature. In the cases of those three Plaintiffs, Cangelosi notified the Plaintiffs of the alleged violations, negotiated consent agreements, initiated disciplinary proceedings, and presented evidence during the LSBC hearings. Cangelosi thus did not exceed the traditional and customary functions of a prosecutor. Therefore, Cangelosi is entitled to absolute immunity on the claims of T. Nguyen, Hoang, and Pham. See id.
Cangelosi's conduct in the case of M. Nguyen, however, was not limited to the traditional and customary functions of a prosecutor. In M. Nguyen's case, Cangelosi assumed the role of both a prosecutor and an investigator. When Cangelosi authorized her legal assistant, Clark, to patronize M. Nguyen's salon, Cangelosi assumed the role of an investigative officer.
The patronage of Clark was an investigation that was authorized by Cangelosi, and the authorization of that investigation exceeded Cangelosi's prosecutorial function. Under the LSBC paradigm, inspectors gather evidence; the attorneys evaluate the evidence, initiate proceedings, and present the evidence at LSBC hearings.
Therefore, Defendant Cangelosi is not entitled to absolute immunity on the claim of Plaintiff M. Nguyen. See Beck, 204 F.3d at 637.
"The doctrine of qualified immunity protects government officials `from liability for civil damages insofar as their conduct does not violate clearly established statutory or constitutional rights of which a reasonable person would have known.'" Terry v. Hubert, 609 F.3d 757, 761 (5th Cir. 2010) (quoting Pearson v. Callahan, 555 U.S. 223, 129 S.Ct. 808, 172 L.Ed.2d 565 (2009)).
Cangelosi previously raised the defense of qualified immunity in motions to dismiss filed pursuant to Federal Rule of Civil Procedure 12(b)(1) and 12(b)(6).
The Equal Protection Clause of the Fourteenth Amendment commands that no State shall "deny to any person within its jurisdiction the equal protection of the laws." U.S. Const. amend. XIV, § 1. The central purpose of the Equal Protection Clause "is to prevent the States from purposely discriminating between individuals on the basis of race." Shaw v. Reno, 509 U.S. 630, 642, 113 S.Ct. 2816, 125 L.Ed.2d 511 (1993). Indeed, "[d]istinctions between citizens solely because of their ancestry are by their very nature odious to a free people, and therefore are contrary to our traditions and hence constitutionally suspect." Fisher v. Univ. of Tex. at Austin, ___ U.S. ___, 133 S.Ct. 2411, 2418, 186 L.Ed.2d 474 (2013) (internal quotation marks and citations omitted). The United States Supreme Court has held, however, that a law "neutral on its face and serving ends otherwise within the power of government to pursue ... is [not] invalid under the Equal Protection Clause simply because it may affect a greater proportion of one race than of another." Washington v. Davis, 426 U.S. 229, 242, 96 S.Ct. 2040, 48 L.Ed.2d 597 (1976). "Disproportionate impact is not irrelevant, but it is not the sole touchstone of an invidious racial discrimination forbidden by the Constitution." Id. "Proof of racially discriminatory intent or purpose is required to show a violation of the Equal Protection Clause." Vill. of Arlington Heights v. Metro. Hous. Dev. Corp., 429 U.S. 252, 265, 97 S.Ct. 555, 50 L.Ed.2d 450 (1977).
Although "such cases are rare," the Court has held that "sometimes a clear pattern, unexplainable on grounds other than race, emerges from the effect of the state action even when the governing legislation appears neutral on its face." Id. at 266, 97 S.Ct. 555 (citing Yick Wo v. Hopkins, 118 U.S. 356, 6 S.Ct. 1064, 30 S.Ct. 220 (1886); Guinn v. United States, 238 U.S. 347, 35 S.Ct. 926, 59 S.Ct. 1340 (1939); Gomillion v. Lightfoot, 364 U.S. 339, 81 S.Ct. 125, 5 L.Ed.2d 110 (1960)). "Absent a pattern as stark as that in Gomillion [v. Lightfoot] or Yick Wo [v. Hopkins], impact alone is not determinative, and the Court must look to other evidence." Id.
In Yick Wo, the San Francisco Board of Supervisors passed an ordinance that
Similarly, in Gomillion, the Alabama Legislature passed an act that redefined the boundaries of the City of Tuskegee, "which altered the shape of Tuskegee from a square to an uncouth twenty-eight-sided figure," 364 U.S. at 340, 81 S.Ct. 125, and "remove[d] from the city all [but] four or five of its 400 Negro voters while not removing a single white voter or resident," id. at 341, 81 S.Ct. 125. The Court held that "[i]f these allegations upon a trial remained uncontradicted or unqualified, the conclusion would be irresistible, tantamount for all practical purposes to a mathematical demonstration, that the legislation is solely concerned with segregating white and colored voters by fencing Negro citizens out of town so as to deprive them of their pre-existing municipal vote," thereby violating the Equal Protection Clause. Id. at 341, 81 S.Ct. 125.
Plaintiffs have produced evidence that indicates that persons of Vietnamese heritage own only 9% of the approximately 7,500 salons within the LSBC's regulatory mandate,
Defendant argues that the percentage of fines imposed on Vietnamese-owned salons should not be viewed in light of all the salons within the LSBC's regulatory mandate, but rather in light of manicuring salons only.
Because the parties dispute whether the fines imposed by the LSBC against salons owned by persons of Vietnamese heritage should be viewed in light of all the salons within the LSBC's regulatory mandate, or simply the manicuring salons that the LSBC regulates, and such a distinction is essential in determining whether there is a "clear pattern, unexplainable on grounds other than race" similar to the pattern in Yick Wo, Arlington Heights, 429 U.S. at 266, 97 S.Ct. 555, summary judgment is not proper. This question — whether the rate of fines imposed on salons owned by persons of Vietnamese heritage should be viewed in light of all salons or merely manicuring salons — is a "genuine issue for trial." Anderson, 477 U.S. at 250, 106 S.Ct. 2505. That question should be submitted to a jury, and therefore Defendant Cangelosi is not entitled to summary judgment on her claim against Plaintiff M. Nguyen.
Based on the foregoing,
The Fifth Circuit in Burge did not establish the rule that Cangelosi seeks to advance. In Burge, the Fifth Circuit looked to the function of the official. See id. The Fifth Circuit concluded that the official was an investigator because he gathered evidence prior to the indictment and did not engage in the traditional functions of a prosecutor. See id. The nature of the function of the official was integral to the Fifth Circuit's decision in Burge, not the temporal proximity of the official's conduct to the indictment. See id.