WILLIAM T. MOORE, JR., District Judge.
Before the Court is Defendant John Wilcher's Motion for Partial Summary Judgment. (Doc. 113.) In his motion, Defendant Wilcher contends that he is entitled to partial summary judgment on three counts of Plaintiffs' amended complaint. For the following reasons, his motion is
After experiencing a mental health crisis, Mathew Ajibade was detained and transported to the Chatham County Detention Center ("CCDC") on January 1, 2015.
Subsequently, Ajibade's parents, Soloman Oledamisi and Adenike Hannah Ajibade, and his estate brought suit citing various constitutional and state law violations. (Doc. 21.) Against Defendant John Wilcher in his official capacity as sheriff, Plaintiffs brought suit seeking relief pursuant to 42 U.S.C. § 1983, alleging in Count Three that Defendant Wilcher maintained "a pattern and practice of inadequate and deplorable medical conditions for detainees at the CCDC," and in Count Four the existence of "a pattern and practice of the excessive use of force against detainees at the CCDC." (
Defendant Wilcher now seeks dismissal of Counts Four, Five, and Six. In regards to the claim that Defendant Wilcher maintained a pattern and practice of the excessive use of force, Defendant Wilcher alleges that this suit is barred by the Eleventh Amendment. He contends that as sheriff, he functions as an arm of the state and is entitled to the state's immunity from being sued in federal court. With respect to the assault and battery claim, Defendant Wilcher alleges that this claim fails as a matter of law because sovereign immunity bars suits against sheriffs for state law tort claims. Finally, Defendant Wilcher contends that the wrongful death claim fails to the extent it is based on the assault and battery claim or the excessive use-offorce policy claim. The Court will assess each of these arguments in turn.
In Count Four of the amended complaint, Plaintiffs contend that Defendant Wilcher is liable pursuant to 42 U.S.C. § 1983 for "maintain[ing] a pattern and practice of the excessive use of force against detainees at CCDC." (Doc. 21 at 18.) In his motion for partial summary judgment, Defendant Wilcher contends that he is entitled to summary judgment on this claim because the Eleventh Amendment bars suits in federal court against the state or arms of the state. (Doc. 113.) He contends that as the sheriff of Chatham County, Georgia, he functions as an arm of the state and can, therefore, claim immunity under the Eleventh Amendment. (
In response, Plaintiffs contend that sheriffs in Chatham County are not entitled to the same protections as other Georgia sheriffs. (Doc. 114.) Rather, Plaintiffs contend that an 1881 amendment to the Savannah City Charter ("Charter Amendment") changed the relationship between Chatham County, the local sheriff's office, and Georgia. (
Plaintiffs' argument is a matter of first impression. Accordingly, the Court will begin its analysis by reviewing the Charter Amendment and assessing its validity. After determining whether the Charter Amendment is effective, this Court will then consider what effect it has on whether Defendant Wilcher is entitled to immunity under the Eleventh Amendment.
To support its position, Plaintiffs rely on an 1881 amendment to Savannah's City Charter. Ga. L. 1881, p. 393. The Charter Amendment was enacted by the Georgia General Assembly in order to repeal the city's control of the local jail and return it to the control of Chatham County.
More specifically, the Charter Amendment provides that the sheriff in Chatham County will function as the jailer and have the ability to hire a deputy jailer and guards subject to the approval of the local county commissioners.
Plaintiffs contend that the Court should read the Charter Amendment as an express grant of authority to Chatham County over Defendant Wilcher in his operation of the jail. Plaintiffs argue that the Charter Amendment is the key distinguishing factor that makes Defendant Wilcher unlike any other sheriff running a jail in Georgia when considering immunity. In contrast, Defendant Wilcher argues that the Court should ignore the Charter Amendment because it is invalid. He contends that the law is ineffective or, alternatively, the law has been repealed by implication. The Court, however, cannot agree with either of Defendant Wilcher's arguments.
Defendant Wilcher first contends that the Charter Amendment should be ignored by the Court because he argues that it is ineffective. (Doc. 124 at 5.) To make this argument, Defendant first argues that the law is no longer included in Savannah's City Charter and is, therefore, no longer in effect. (
Next, Defendant Wilcher argues that the law is invalid because it is listed in an index for the 2009 Edition, Volume 42A of the Official Code of Georgia Annotated as "repealed" and "noncurrent." However, this argument must also fail. Defendant Wilcher misreads the index, which states that the Charter Amendment actually repealed the earlier law vesting power of the jail in the City of Savannah. There is no evidence in the index that the Charter Amendment has been repealed. Moreover, Georgia law expressly provides that indexes lack the force of law.
In the alternative, Defendant Wilcher argues that the Charter Amendment is invalid because it was repealed by implication in two different provisions of the Georgia Constitution. First, Defendant Wilcher cites Article IX, § 2, §L I(c)(1) of the 1983 Georgia Constitution. This provision provides:
Ga. Const. art. IX, § 2, § I(c)(1). Defendant Wilcher contends that the Charter Amendment gives Chatham County the direct authority to control the sheriff's office. As a result, the Charter Amendment is directly contradictory to the terms of the provision in the Georgia Constitution that preempts local "action affecting any elective county office."
However, the Court cannot agree that this constitutional provision implicitly repeals the Charter Amendment. As an initial matter, "[r]epeals by implication are disfavored under Georgia law."
In his second argument that the Charter Amendment has been repealed by implication, Defendant Wilcher cites Article III, § 6, § IV(a) of the 1983 Georgia Constitution. This provision, often called the uniformity clause, provides:
Ga. Const. art. III, § 6, § IV(a).
In reliance on the uniformity clause, Defendant Wilcher argues that the General Assembly has passed general laws regarding some of the powers within the Charter Amendment. As a result, he contends that the Charter Amendment has been repealed by implication. Specifically, Defendant Wilcher points to general laws that set the sheriff's salary, allow the Governor to discipline sheriffs for their policies, and require annual training of sheriffs. He contends that because these general laws conflict with the Charter Amendment's instruction, the Charter Amendment is invalid under the uniformity clause.
This Court, however, is unwilling to find that the uniformity clause repeals the Charter Amendment. As previously mentioned, courts disfavor repeals by implications. Moreover, repeals by implication only occur when the laws cannot be reconciled "or the most recent enactment appears to cover the whole law on the subject and substitutes for every prior general, local, and special law relating to that subject matter."
Moreover, the Georgia Supreme Court has upheld the validity of the Charter Amendment.
Because this Court has found that the 1881 Charter Amendment is valid and effective, the Court will now consider Plaintiffs' contention that this law prohibits Defendant Wilcher from now seeking immunity under the Eleventh Amendment. The Eleventh Amendment provides immunity to the state and arms of the state from being sued in federal court without the state's consent.
When determining whether a Georgia sheriff is entitled to immunity, this Court must assess whether the sheriff acts as a state or local actor "in light of the particular function in which the [sheriff] was engaged when taking the actions out of which liability is asserted to arise."
As an initial matter, all courts considering the fourfactor test have found that sheriffs in Georgia typically function as arms of the state.
The first factor this Court must consider is how state law defines the sheriff's office in Chatham County. As a starting point, sheriffs in Georgia are elected officials pursuant to state law. Ga. Const. art. IX, § 1, § 1. By design, sheriffs function independently from the county governments where they are elected. Ga. Const. art. IX, § 1, § 1(c)(1). The Georgia Supreme Court has found that "[t]he sheriff . . . is an elected, constitutional. officer; he is subject to the charge of the General Assembly and is not an employee of the county commission."
Although it is clear that sheriffs generally are governed by state law, this Court must focus on how to classify the Chatham County sheriff's office in light of the specific function of setting the jail's use-of-force policy. On this point, the Eleventh Circuit's analysis in
In this case, Plaintiffs challenge a similar use-of-force policy implemented at a jail. Similar to the use-of-force policy in
The second factor that this Court must consider is where the state vests control over the sheriff's ability to implement a use-of-force policy at the jail. At the outset, the Court notes that there is both state and county control over Defendant Wilcher's use-of-force policy at the jail. On one hand, the state's control over a sheriff's use-of-force policy is well documented. Under 0.C.G.A. § 15-16-3, the state requires specialized training of all sheriffs in Georgia. Included in this training, sheriffs receive general law enforcement training that covers the use of force when arresting and handling individuals.
On the other hand, however, the Charter Amendment grants Chatham County considerable authority to "make proper rules and regulations" in its control of the jail. Ga. L. 1881, p. 393. In
Although the Court notes that there is both state and county control over the sheriff's use-of-force policy in the jail, the Court ultimately finds the Eleventh Circuit precedent to be dispositive. The Eleventh Circuit has emphasized that the Charter Amendment is a unique grant of power to a local county over a sheriff in implementing a jail's use-of-force policy. Accordingly, the Court finds that this factor cuts in favor of finding that Defendant Wilcher is a local actor that is not entitled to immunity.
The third factor that this Court must consider is whether the sheriff's office derives its funds from the county or the state. As a starting point, it is undisputed that the sheriff's office in Chatham County derives at least some of its funds from the state. In fact, all sheriffs in Georgia receive some funding from the state.
Plaintiffs contend that the Charter Amendment gives Chatham County unique control over the sheriff's office and how it spends its allotted funds. It is true that the Charter Amendment requires the sheriff to provide detailed financial statements to the county commissioners. Ga. L. 1881, p. 393. More importantly, Plaintiffs contend that Chatham County actively oversees financial decisions made by Defendant Wilcher and dictates how he spends the provided funds. For example, Plaintiffs cite evidence that the Chatham County Board of Commissioners actually approved the purchase of tasers to be used by the sheriff's office. (Doc. 114, Ex. W.)
While there is evidence that Chatham County approved a certain purchase of tasers for the sheriff's office, this is insufficient to show that Chatham County has active control over how Defendant Wilcher decides to allocate allotted funds. The approval of the purchase of tasers was done at Defendant's request. Defendant Wilcher made an independent decision as to how to spend the allotted funds and the county commissioners merely approved the funding to buy the tasers. Moreover, the record also shows that the sheriff's office did not need approval for purchases of tasers or other expenditures totaling less than $2,500. (
Ultimately, it is apparent that the jail derives its funding from both the state and the county. As a result, the Court cannot conclude that this factor definitively weighs in favor of finding that the sheriff functions as either a state or a local actor.
The final factor that this Court must consider is whether payment of any judgment granted in this case will come from either the state or the county. Plaintiffs contend that in this case, Chatham County will be paying for any judgment awarded against Defendant Wilcher. In support of this position, Plaintiffs cite that the county has frequently paid settlements on Defendant Wilcher's behalf. In addition, Plaintiffs contend that Defendant Wilcher responded to an interrogatory inquiring as to whether "any insurance agreements exist under which any person or company carrying on an insurance business may satisfy part of all of the judgment" with "No. Chatham County is selfinsured." (Doc. 114, Ex. X.) Plaintiffs contend that this admission is sufficient to show that Chatham County is liable for any damages awarded against Defendant Wilcher.
However, the Court cannot agree. Georgia law expressly provides that "counties are not liable for and not required to give sheriff's money to pay judgments against sheriffs in civil rights actions."
Rather, if Plaintiffs are awarded a favorable judgment, it is likely that neither the state nor the county will be directly responsible for the judgment against the sheriff.
Ultimately, the Court finds that the Charter Amendment does not change the typical analysis used to consider a sheriff's status under the Eleventh Amendment in Georgia. With the Charter Amendment, there are both indicators that Defendant Wilcher functions as an arm of the state and as a local actor when setting the use-of-force policy at the jail. This Court, however, finds that the balance tips in favor of finding that Defendant Wilcher does function as an arm of the state when setting the use-of-force policy at the jail. Accordingly, Defendant Wilcher is entitled to immunity under the Eleventh Amendment and his request for summary judgment as to Plaintiffs' claim that he maintains a pattern of the excessive use of force at the jail is GRANTED.
In their amended complaint, Plaintiffs also allege that Defendant Wilcher is "liable in respondeat superior for the [assault and battery] alleged to have been committed by [the sheriff's) deputies." (Doc. 21 at 24.) In his partial motion for summary judgment, Defendant Wilcher argues that as a sheriff acting in his official capacity he is entitled to sovereign immunity and is protected from suits based on state-law tort claims unless the immunity is otherwise waived. (Doc. 113-1 at 5-6). In this case, he contends there has been no such waiver. (
While Defendant Wilcher may be entitled to sovereign immunity, this Court will not address the merits of his argument. In their response brief, Plaintiffs "concede that the facts as developed do not support the claim" for assault and battery. (Doc. 114 at 23.) Because Plaintiffs have agreed that this claim fails as a matter of law, Count Six for assault and battery is
In Plaintiffs' Amended Complaint, Plaintiffs have also brought suit against Defendant Wilcher in his official capacity for Ajibade's wrongful death "premised on the criminal, intentional, and negligent acts of each of the Defendants, as described in all the other Counts of this Complaint." (Doc. 21 at 23.) In his motion for summary judgment, Defendant Wilcher contends that he is entitled to summary judgment on this claim "to the extent it is premised upon the barred 42 U.S.C. § 1983 excessive force claim or a barred state law tort claim." (Doc. 113, Attach. 1 at 7.) While the Court ultimately agrees with Defendant's logic, the Court cannot dismiss the wrongful death claim. Although Defendant Wilcher is entitled to dismissal of Counts Four and Six, Plaintiffs also have brought suit against Defendant Wilcher in Count Three of the amended complaint for "maintain[ing] a pattern and practice of substandard medical conditions for detainees." (Doc. 21 at 14.) Defendant Wilcher has made no argument to this Court that Count Three should be dismissed. Because Plaintiffs' claim for wrongful death can be premised on Count Three, Defendant Wilcher is not entitled to summary judgment with respect to Plaintiffs' wrongful death claim. Accordingly, Defendant Wilcher's request for summary judgment as to the wrongful death claim is
After careful consideration, Defendant Wilcher's motion is
SO ORDERED.