Appellants Floyd E. Squires III and Betty Squires (when referred to collectively, plaintiffs) sued the City of Eureka and several individuals. The complaint alleged 10 causes of action, the first seven common law claims, the last three under 42 Unites States Code section 1983. Defendants filed an anti-SLAPP motion, which the trial court granted as to the first seven causes of action, allowing plaintiffs to conduct discovery on the other three. Following such discovery, defendants filed a renewed anti-SLAPP motion, which the trial court granted in an extensive order, concluding that plaintiffs had not shown a probability of prevailing on any of their remaining claims. We reach the same conclusion, and we affirm.
This case arises out of an October 2010 lawsuit filed by plaintiffs against the City of Eureka (City) and various individuals connected with it (when referred to collectively, defendants). The relationship between plaintiffs and the City goes back many years, at least until the early 1990's, when plaintiffs
As to that interaction, and what triggered what, the parties' briefs do not agree. Plaintiffs' brief begins as follows: "Since the filing of the present lawsuit, respondents' behavior against petitioners has escalated. [Citation.] Shortly after petitioners filed this lawsuit, the City filed a lawsuit against petitioners attempting to appoint a receiver and gain control over all 26 of petitioners' properties (all except petitioners' personal residence) located within the City. [Citation.]"
Defendants' brief describes the setting this way: "Appellants Floyd and Betty Squires are property owners in the city of Eureka who own 26 properties with code violations that eventually resulted in the City of Eureka filing a receivership action. [Citation.] Appellants filed the complaint below during the pendency of the city's code enforcement administrative proceedings preceding the filing of the City receivership proceeding."
On October 14, 2010, plaintiffs filed a complaint for damages against the City and five individuals, identified by plaintiffs as follows: Sheryl Schaffner, City Attorney until her resignation on July 9, 2010; Michael Knight, public works director/building official and assistant city manager; Brian Gerving, city planning manager; Gary Broughton, deputy city engineer; and Larry Glass, councilman for the City council's ward 1. The complaint alleged 10 causes of action, styled as (1) harassment; (2) intentional interference with contractual relations; (3) intentional interference with prospective economic advantage; (4) abuse of process; (5) slander; (6) intentional infliction of emotional distress; (7) general negligence; (8) municipal liability; (9) public entity liability-failure to train; and (10) supervisor liability. The first eight causes of action were alleged against all defendants, the ninth and 10th against only the City.
The complaint was 10 pages long, much of which described the parties and their relationships. Paragraphs 12 through 14 set forth plaintiffs' fundamental allegations, alleging as follows:
Paragraphs 17 through 65 of the complaint alleged the essential elements of the 10 causes of action mentioned above.
On November 18, 2010, defendants filed a special motion to strike each cause of action pursuant to Code of Civil Procedure section 425.16 (SLAPP or anti-SLAPP),
On December 7, 2010, plaintiffs filed their opposition to the anti-SLAPP motion. The opposition ignored the first seven causes of action, focusing only on the eighth, ninth, and 10th, arguing that "plaintiffs will receive favorable judgments for their 1983 claims."
On December 9, 2010, plaintiffs filed a motion to lift stay on discovery, requesting the court shorten time so that their motion could be heard before the anti-SLAPP motion. Plaintiffs' motion sought to conduct discovery only as to the eighth, ninth, and 10th causes of action.
The February 25 order also ordered that plaintiffs could "conduct discovery relating to the Eighth, Ninth, and Tenth causes of action." These three causes of action were, as indicated, based on section 1983 of title 42 of the United States Code, and they alleged as follows:
The eighth cause of action (municipal liability): "Each act of the defendants mentioned herein violated Plaintiffs' civil rights, and occurred as a result of the official policy or custom of defendant City. [¶] Plaintiffs were harmed, and the defendants' conduct was a substantial factor in causing that harm."
The ninth cause of action (public entity liability-failure to train): "Defendant City's training program was not adequate to train its officers and employees to properly handle usual and recurring situations. [¶] Defendant City was deliberately indifferent to the need to train its officers and employees adequately. [¶] The failure to provide proper training was the cause of the deprivation of Plaintiff's civil rights. [¶] The Plaintiffs were harmed, and the defendant City's failure to adequately train its employees was a substantial factor in causing Plaintiffs' harm."
The 10th cause of action (supervisor liability): "Defendant City knew, or in the exercise of reasonable diligence should have known, the Individual
The allowed discovery ensued, and in fact over four volumes of the 1,750-page clerk's transcript consists of papers filed below in connection with discovery disputes. That discovery extended over the remainder of 2011 and throughout 2012.
On January 10, 2013, defendants filed their renewed special motion to strike the remaining three claims. The renewed motion was accompanied by four declarations, of Brian Gerving, chief official in the City Building Department; Gary Boughton, deputy City engineer; Michael Knight, assistant City manager; and one of defendants' attorneys, Krista McNevin Jee. Defendants also filed a request for judicial notice.
On February 1, plaintiffs filed their opposition to the renewed SLAPP motion. It was apparently accompanied by four declarations, those of plaintiff Floyd Squires, his attorneys, Bradford Floyd and Carlton Floyd, and Scott Penfold, an expert witness in the receivership action (whose declaration was apparently submitted late, at the hearing).
The City filed a reply memorandum, along with objections to the Squires and Floyd declarations and a second request for judicial notice.
The renewed motion to strike came on for hearing on February 13, 2013. On April 2, 2013, the trial court issued its 11-page order entitled "Rulings Re: Renewed Special Motion to Strike." The order was thorough and detailed,
The court then turned to the substance of the motion, ultimately granting it. Doing so, the court provided an extensive discussion supporting its conclusion that plaintiffs had failed to demonstrate a probability of prevailing on the remaining three causes of action. The court began by dividing the alleged violations into two categories: (1) acts that, on their face, could be a violation of plaintiffs' rights, and (2) treating plaintiffs as a "class of one" that defendants selectively prosecuted for an impermissible motive.
As to the first category of violations, the court found that: "To substantiate the first category of violations, the Squires [plaintiffs] submit the declarations of ... [Attorney] Floyd and Floyd Squires.... [¶] Floyd Squires's declaration similarly does not make a prima facie showing of facts sufficient to sustain a judgment in the Squires[es]' favor. Squires faults Assistant City Manager Michael Knight for executing an inspection warrant ... many years ago, in 2004, to determine whether debris was being dumped on the property. Yet, Squires simultaneously explains in detail his belief that the warrant was based on an actual informant who, unbeknownst to Eureka, had purposely dumped debris on the property because of a personal vendetta against Squires. Clearly, Squires thinks it suspicious that Knight may have relied on an informant that Squires believes has no credibility. But even had Knight done so, the Court fails to see how that reliance would be a violation of the Squires[es]' civil rights; Squires himself characterizes Knight's reliance as Knight being duped, not Knight being malicious.... Squires also complains about a search years later in which Eureka alleged that sewage from the property was draining into `the gulch' and garbage was being dumped onto the property. Squires characterizes this search as improper, yet admits that `the tenant in the upper house had connected a washing machine on his deck to a house gutter to drain and the gray water was draining into the woods.' He also admits that furniture and household items had been thrown on the property by his tenants, and that a stack of `building debris' was in the driveway.
"In sum, the Court fails to see anything in the declarations of [Attorney] Floyd or Floyd Squires sufficiently substantiating the grave allegations of the Complaint, such as that Defendants falsely swore inspection warrants and manipulated evidence."
In regard to the second category of violations — that the plaintiffs constitute a "class of one" that defendants selectively prosecuted for an impermissible motive — the court found as follows:
On May 31, 2013, defendants filed a motion for attorney fees. Plaintiffs filed opposition, and defendants a reply. The motion came on for hearing on July 1, and on July 29, the trial court entered its order awarding defendants $57,414.28, significantly less than they sought.
On September 24, 2013, plaintiffs filed another notice of appeal, stating that they were appealing the "Judgment entered May 30, 2013 and order granting statutory attorney fees entered July 29, 2103 under Code of Civil Procedure section 904.1(a)(13)." This appeal was numbered in this court case number No. A139849. By order dated May 2, 2014, we ordered the appeals consolidated.
We recently discussed the SLAPP law and its operation in Hecimovich v. Encinal School Parent Teacher Organization (2012) 203 Cal.App.4th 450, 463-464 [137 Cal.Rptr.3d 455]:
The trial court found that "defendants have made an initial showing that plaintiffs' causes of action arise from protected activity under CCP section 425.1[6]" because plaintiffs' claims against defendants "involve actions allegedly taken by the defendants in the investigation and prosecution of plaintiffs regarding code enforcement violations occurring at real properties owned by plaintiffs." This was undisputed by plaintiffs below, and is expressly conceded here. Thus the issue before us involves that in the second step of the SLAPP analysis: whether plaintiffs demonstrated a probability they would prevail.
Plaintiffs' opening brief begins with a passage that includes a short "Introduction," a "Statement of the Case" (including a one-page statement of
Unfortunately, perhaps impelled by plaintiffs' reference to their pleadings, defendants devote some 10 pages in their respondents' brief to argument that the plaintiffs' "complaint fails to allege any constitutional injury." While it is true that plaintiffs' burden requires that they show a legally sufficient claim (Navellier v. Sletten, supra, 29 Cal.4th at p. 93), we also note that defendants' demurrer was overruled. (See fn. 3, ante.) Thus, we refrain from any analysis of the pleadings, and turn, as is usual, to the factual showing by plaintiffs, to determine whether they met the burden imposed on them under the second step in the SLAPP analysis. We conclude they did not.
While plaintiffs' burden may not be "high," they must demonstrate their claim is legally sufficient. (Navellier v. Sletten, supra, 29 Cal.4th at p. 93.) And they must show it is supported by a sufficient prima facie showing, one made with "competent and admissible evidence." (Tuchscher Development Enterprises, Inc. v. San Diego Unified Port Dist. (2003) 106 Cal.App.4th 1219, 1236 [132 Cal.Rptr.2d 57]; see Evans v. Unkow (1995) 38 Cal.App.4th 1490, 1497 [45 Cal.Rptr.2d 624].)
As noted, defendants' renewed motion was supported by four declarations, three of which were of named defendants. Those declarants testified about the interactions with plaintiffs and their properties, testifying in great detail as to specific incidents and events.
One such declaration was that of Brian Gerving, the City's chief building official since August 2010 and, among other things, a building official for several years before that. Gerving described observing six code violations at the Sunny Avenue property in the course of serving a criminal search warrant on those premises in October 2009. Gerving notified Floyd Squires of these violations, they were not corrected, and additional citations and enforcement were necessitated. And as of December 26, 2012, the date of Gerving's declaration, the violations still had not been corrected.
Gerving also described serving an inspection warrant on another property owned by plaintiffs (117/119 5th Street), where he observed 39 violations. This resulted in written notice of violations, a nuisance abatement hearing resulting in fines, and assessment against the property for the fines. Gerving engaged in further abatement efforts on December 23, 2010, and obtained an inspection warrant in May 2011 which revealed a violation of an injunction that the City had obtained in July 2009, which was affirmed by the Court of Appeal in May 2011, preventing the property from being used as sleeping quarters.
Assistant City manager Michael Knight, whose responsibilities included oversight of the building and public works departments, also submitted a declaration in support of the renewed motion to strike, which declaration described his enforcement activity with respect to four of plaintiffs' properties. The first was property at 117/119 9th Street, concerning which Knight instituted an administrative nuisance abatement hearing and at which he testified (as well as at court hearings). Knight's inspection, testimony, and other enforcement efforts "directly related to the City's determination to file administrative, civil and criminal proceedings concerning the property."
Knight described how the 10 serious code violations at 315 C Street documented by Gerving created an immediately dangerous condition and his approval of the subsequent summary abatement of such dangerous conditions, working along with the City Attorney. Knight also prepared documentation for the board of appeals/hearing officers in April 2010 with respect to violations on this property, and how the board determined that the property was a substandard building and a public nuisance — a ruling plaintiffs did not appeal. Finally, Knight described environmental health code enforcement at the Sunny Avenue property which included County of Humboldt officials and Department of Fish and Wildlife representatives.
As noted, plaintiffs attempted to meet their burden under the second step of the SLAPP analysis with four declarations, only three of which are in the record here, those of (1) one of plaintiffs' attorneys, Bradford Floyd; (2) Scott Penfold; and (3) Floyd Squires. As also noted, attorney Floyd's declaration consisted almost entirely of his description of what he asserted was testimony given at the trial in the receivership action. The sum total of Penfold's declaration was that Floyd's recitations of what occurred at trial "are accurate and consistent with my testimony given during trial." And Squires's declaration consisted of 44 paragraphs, mostly addressing his version of facts as to the City's involvement with the Sunny Avenue property.
Defendants filed objections to both the Squires and Floyd declarations, objections that totaled 39 in number. The trial court ruled on the objections one by one, and sustained 25 of them (some of which were sustained in part). Most of the sustained objections were to Floyd Squires's declaration, and plaintiffs do not contest any of those evidentiary rulings on appeal.
As discussed hereafter, plaintiffs here rely almost exclusively on the Floyd declaration, to his claimed attributions about what City witnesses purportedly testified to in the receivership action. Before turning to a discussion of plaintiffs' attempted factual showing, we begin with a description of their legal position, which is contained in three arguments, in a total of 13 pages. Plaintiffs' first argument is entitled "Municipal Liability (42 U.S.C. 1983)," and has four subarguments, labeled as follows: (1) "Respondents' Actions Against Petitioners Were Approved by the City's Lawmaking Officers or Policy Making Officials"; (2) "Respondents Violated Petitioners' Equal Protection Rights Because Respondents Did Not Give Petitioners Equal Protection of the Law"; (3) "Respondents Violated Petitioners' Substantive Due Process Rights Because Respondents Have Deprived Petitioners' [sic] of Their Property for Arbitrary Reasons"; and (4) "Respondents Have Violated Petitioners' Fourth Amendment Rights By Falsely Swearing Their Search Warrants and Affidavits and/or Entering Petitioners' Properties for Inspection Without Permission and Without Inspection Warrants." The last two arguments, set forth in fewer than four pages, are entitled, "(2) Public Entity Liability — Failure to Train"; and "(3) Supervisor Liability."
Most of what is contained in these arguments are cases cited for general propositions of law, with little discussion of how the facts in plaintiffs' opposition support the actual law governing here — law devastating to plaintiffs.
Defendants devote over 10 pages of their brief demonstrating that plaintiffs have not shown any constitutional injury. Plaintiffs' entire response is in this one nine-line paragraph: "The declaration of Bradford C. Floyd also shows that both Brian Gerving and Mike Knight were the ones going around and posting the notices to abate and attempting to have a receiver appointed over respondents' properties. [Citation.] Furthermore, Fitzhugh stated that Gerving and Knight were treating the petitioners differenty from other property owners and singling them out with the notices to abate. [Citation.] As has already been stated above under the equal protection and substantive due process claims, there was no rational basis for posting each property owned by petitioners, yet, Gerving and Knight did so anyways. These specific actions of Gerving and Knight are exactly what causes respondents' constitutional deprivations."
We fail to see how Attorney Floyd's "testimony" demonstrates any injury to plaintiffs, let alone constitutional injury. And not one paragraph in Floyd Squires's declaration testifies about any injury.
To satisfy the first element, plaintiffs must not only demonstrate a disparity in treatment but also that "the level of similarity between [them] and the persons with whom they compare themselves must be extremely high." (Neilson v. D'Angelis (2005) 409 F.3d 100, 104; accord, Racine Charter One,
The undisputed testimony of the City's representatives established that plaintiffs had a long history of noncompliance with respect to their properties, properties that were the subject of ongoing — and frequent — complaints from neighbors and residents. Plaintiffs submitted no declarations establishing any such similar conduct by any other owner of multiple properties.
As quoted, the trial court concluded that Floyd's declaration (and, for that matter, that of Penfold) "do[es] not substantiate any wrongful conduct of Defendants other than their allegedly singling out the Squires[es] for investigation and prosecution." The trial court also noted that, while the Squires
Virtually ignoring Squires's testimony in their briefs on appeal, plaintiffs focus their factual showing on the declaration of Attorney Floyd who, as noted, purported to testify as to what others had testified to in the receivership action. Without discussion, the trial court overruled defendants' objections to Floyd's declaration on the basis that they were "party admissions," and went on to hold that Floyd's declaration did not make the requisite showing under the second step of the SLAPP analysis.
Floyd's declaration did not establish that Fitzhugh had any knowledge or involvement in the particular matters about which the individuals had testified, or was aware of the large number of complaints that City officials had
Also under subargument (2), plaintiffs make reference to two cases and conclude "This is similar to petitioners' case because respondents have been attempting to deprive petitioners of their property for arbitrary reasons. [Citation.] ... [¶] ... [¶] One possible reason for the large number of inspections and posting on petitioners' properties is based in retaliation. On April 13, 2010, petitioners filed a claim against the City for damages. On the same day, April 13, 2010, the City caused to be posted on one of petitioners' properties a notice to abate. The closeness in time to petitioners' claim against the City shows that the notices to abate were retaliatory in nature. [Citation.]" Such conclusory statement is unavailing.
Plaintiffs' claimed showing of this law says this: "In this case, petitioners have been through multiple lawsuits with respondents City as well as made various claims to respondent City, petitioning them to stop its violation of petitioners' rights. [Citations.] Thus, the City and its supervisors, many of whom are respondents in this case have been aware of this conduct as long as it has been going on. [Citation.] Respondent City and even the individual respondents have instituted the majority of the lawsuits against petitioners as well as denial of petitioners' claims. [Citations.] [¶] Neither respondent City nor its supervisors took any actions to address petitioners' grievances; instead the violative behavior has only increased and intensified. [Citations.] For example, shortly after filing this lawsuit against respondents, the City filed its own lawsuit attempting to have a receiver appointed over 26 of petitioners' properties. [Citation.] Again, this shows that the heightened harassment of petitioners has all been instituted by respondent City as well as the individual respondents, thus there has undoubtedly been tacit authorization of the individual respondents and other City employees' conduct." It is manifestly deficient.
The orders are affirmed. Defendants are awarded their costs and attorney fees on appeal.
Kline, P. J., and Brick, J.,
Squires's declaration in fact made two references to Michael Knight. The first was conclusory: "Mike Knight fabricated search warrants on all our properties at one time or another." Defendants' objection, including on grounds of lack of foundation, speculation, lack of personal knowledge, and that it was argumentative, was sustained by the trial court. The second was an attached list of actions Squires claimed that Knight had taken against him concerning various properties he owned in the City. Defendants objected to the list on a number of grounds, including relevancy, lack of foundation, speculation, lack of personal knowledge, hearsay, and that is was argumentative. The trial court sustained the objection.