JOHN Z. LEE, District Judge.
Plaintiffs Mandi Swan, Denise Burns, and Felicia Bradley (collectively "Plaintiffs") are parents of children who are enrolled in special education programs and attend the Chicago public schools slated for closure before the commencement of the; 2013-2014 school year. They have sued the Board of Education of the City of Chicago ("Board"), Barbara Byrd-Bennett, the: Chief Executive Officer of the Chicago Public Schools ("CPS"), and the City of Chicago (the "City") (collectively "Defendants"), alleging two violations of Title II of the Americans with Disabilities Act ("ADA"), 42 U.S.C. § 12132. First, Plaintiffs allege that closing the schools as scheduled will disproportionately harm children in special education programs because the closures will not allow sufficient time for students with disabilities to adequately socialize and acclimate to their new schools. Nor will there be enough
The City moves to dismiss Plaintiffs' claims pursuant to Fed.R.Civ.P. 12(b)(6), arguing that, as a matter of law, the Board, not the City, is responsible for school closings and has the statutory power to delay the closings. For the reasons stated herein, the City's motion is granted, and Plaintiffs' claims against the City are dismissed.
The following facts are taken from Plaintiffs' Complaint and are accepted as true for purposes of resolving this motion to dismiss. See Reger Dev., LLC v. Nat'l City Bank, 592 F.3d 759, 763 (7th Cir. 2010).
On March 23, 2013, CPS's CEO Byrd-Bennett proposed to close fifty-three CPS elementary schools, including the elementary schools that Plaintiffs' children attend. (Compl. ¶¶ 28, 32, 34, 36.) On May 22, 2013, the Board met to approve the closings. (Id. ¶ 30.) The City, through the Mayor, appoints the Board members and makes decisions with respect to the revenue available for the education of CPS students. (Id. ¶para; 120-21.)
In their requests for relief, Plaintiffs ask the Court to issue injunctive relief "enjoint[ing] the defendants [including the City] from carrying out the closings for at least a year and until such time as the defendants can assure an orderly process of transition that will minimize the emotional and learning setbacks to the plaintiff class." (Id. at pp., 14, 16.) On May 29, 2013, the City moved to dismiss the lawsuit pursuant to Rule 12(b)(6).
Although the City brings its motion to dismiss pursuant to Rule 12(b)(6), the Court's "first task, as it is in every case, is to determine whether we have subject matter jurisdiction" over Plaintiffs' claims against the City. Grinnell Mut. Reins. Co. v. Haight, 697 F.3d 582, 584 (7th Cir.2012). The Court must engage in this jurisdictional inquiry, even if it is not directly raised by the parties. Hay v. Ind. State Bd. of Tax Comm'rs, 312 F.3d 876, 879 (7th Cir.2002) ("[N]ot only may the federal courts police subject matter jurisdiction sua sponte, they must.") (internal citations omitted). In this case, the Court must determine whether Plaintiffs have standing to seek the requested injunction against the City. For the reasons discussed below, the Court finds that they do not. Additionally, even if Plaintiffs possess standing to seek alternative forms of relief against the City, see Bontkowski v. Smith, 305 F.3d 757, 762 (7th Cir.2002), they have failed to state a claim upon which relief can be granted and fall short of the pleading standard announced by the Supreme Court in Bell Atl. Corp. v. Twombly, 550 U.S. 544, 555, 127 S.Ct. 1955, 167 L.Ed.2d 929 (2007), and Ashcroft v. Iqbal, 556 U.S. 662, 678, 129 S.Ct. 1937, 173 L.Ed.2d 868 (2009). The Court will address each of these issues in turn.
Article III, section 2 of the United States Constitution "limits the `judicial power' to the resolution of `cases' and `controversies'" Valley Forge Christian Coll. v. Ams. United for Separation of Church & State, Inc., 454 U.S. 464, 471, 102 S.Ct. 752, 70 L.Ed.2d 700 (1982). A necessary element of Article Ill's case-or-controversy requirement is "that a litigant have `standing'
"[T]he irreducible constitutional minimum of standing contains three elements." Lac Du Flambeau Band of Lake Superior Chippewa Indians v. Norton, 422 F.3d 490, 495 (7th Cir.2005) (quoting Lujan v. Defenders of Wildlife, 504 U.S. 555, 560, 112 S.Ct. 2130, 119 L.Ed.2d 351 (1992)). A party must have personally suffered an injury-in-fact, which is fairly traceable to the defendant's challenged conduct, and which is likely to be redressed by a favorable decision. Lujan, 504 U.S. at 560-61, 112 S.Ct. 2130. The party invoking federal jurisdiction bears the burden of establishing each of these elements. Id. at 561, 112 S.Ct. 2130.
The third element, commonly referred to as "redressability," "examines the causal connection between the alleged injury and the judicial relief requested...." Norton, 422 F.3d at 501 (quoting Allen v. Wright, 468 U.S. 737, 753 n. 19, 104 S.Ct. 3315, 82 L.Ed.2d 556 (1984)). "Redressability thus depends upon the relief requested." Id. at 502. And there must be a "`substantial likelihood' that the relief requested will redress the injury claimed..." Duke Power Co. v. Carolina Envtl. Study Grp., Inc., 438 U.S. 59, 75 n. 20, 98 S.Ct. 2620, 57 L.Ed.2d 595 (1978).
Furthermore, even where a plaintiff may have suffered a legally cognizable injury, this does not mean that the redressability requirement is satisfied. Perry v. Sheahan, 222 F.3d 309, 314 (7th Cir.2000) ("Standing does not automatically attach once an ongoing injury is identified."). "Relief that does not remedy the injury suffered cannot bootstrap a plaintiff into federal court; that is the very essence of the redressability requirement." Id. (quoting Steel Co. v. Citizens for a Better Env't, 523 U.S. 83, 107, 118 S.Ct. 1003, 140 L.Ed.2d 210 (1998)).
It follows from these fundamental principles that where, as here, a plaintiff seeks an injunction against a defendant, he or she must demonstrate that the defendant to be enjoined has the authority to effectuate the injunction. See Turner v. McGee, 681 F.3d 1215, 1218-19 (10th Cir. 2012) ("As is often the case, redressibility turns on the scope of authority of the defendants. We ask: Could these Defendants, enjoined as [plaintiff] has requested, remedy [plaintiff's injury]?"); Bronson v. Suensen, 500 F.3d 1099, 1111 (10th Cir. 2007) ("The redressability prong is not met when a plaintiff seeks relief against a defendant with no power to enforce a challenged statute").
Indeed, if a defendant does not have the authority to carry out the injunction a plaintiff's claim for injunctive relief must be dismissed because the Court cannot enjoin a defendant "to act in any way that is beyond [the defendant's] authority in the first place." Okpalobi v. Foster, 244 F.3d 405,
In this case, Plaintiffs seek to enjoin Defendants, including the City, "from carrying out the [school] closings for at least a year." (Compl. at pp. 14, 16.) But, as Plaintiffs acknowledge, under Illinois law, the City does not have the legal authority to keep the schools open — only the Board does.
Illinois statutes provide that cities — like Chicago — with a population exceeding 500,000 must "maintain a system of free schools under the charge of a board of education." 105 Ill. Comp. Stat. 5/34-2 (emphasis added). The Board is a "body politic and corporate" and "may sue and be sued in all courts and places where judicial proceedings are had." Id. The Board "exercise[s] general supervision and jurisdiction over the public education and the public school system of the city." Id. 5/34-18. The Board also has the authority to levy taxes for the purpose of establishing and supporting schools (id. 5/34-53), adopt budgets (id. 5/34-43), and determine appropriations (id. 5/34-45). Most significantly for our purposes, only the Board can approve "school actions," which include "any school closing[s]" or "school consolidation[s]." Id. 5/34-200, 225. Plaintiffs do not challenge the validity of these statutes and have conceded on numerous occasions that "the lawful authority to make decisions affecting the closings of the schools or the impact on children in special education is a statutory authority that formally and exclusively belongs to the Board." (Pls.' Resp. 7.)
In short, as Plaintiffs recognize, the Illinois legislature has empowered the Board, not the City, to administer CPS. Thus, even if Plaintiffs were to prevail in their claims against the City and this Court were to grant the injunctive relief they seek, the City would lack the power to carry out the injunction. In effect, Plaintiffs ask this Court to order the City to act in a manner that Illinois law prohibits; this the Court will not do. For these reasons, Plaintiffs lack standing to pursue their injunctive relief against the City, and those claims must be dismissed.
That Plaintiffs demand from the City relief to which they are not entitled does not categorically doom their complaint. See Bontkowski, 305 F.3d at 762. In such circumstances, the Seventh Circuit has observed that "lilt would be appropriate and indeed quite sensible for a judge confronting a complaint that does not demand proper relief to ascertain whether the plaintiff wants the improper relief sought in the complaint or nothing; if so, the complaint must be dismissed." Id., Because Plaintiffs may have alternative forms of relief in mind, the Court also analyzes the sufficiency of Plaintiffs' complaint in light of the City's motion under Rule 12(b)(6).
The purpose of a Rule 12(b)(6) motion to dismiss is to test the sufficiency of the complaint. Christensen v. Cnty. of Boone, 483 F.3d 454, 458 (7th Cir.2007). To survive a Rule 12(b)(6) challenge, a complaint must contain a "short and plain statement of the claim showing that the pleader is entitled to relief," Fed.R.Civ.P. 8(a)(2), such that the defendant is given "fair notice of what the ... claim is and the grounds upon which it rests." Twombly, 550 U.S. at 555, 127 S.Ct. 1955 (internal citations omitted). Although Rule 8 "does not require `detailed factual allegations,'" "it demands more than an unadorned, the-defendant-unlawfully-harmedme accusation." Iqbal, 556 U.S. at 678, 129 S.Ct. 1937 (citing Twombly, 550 U.S. at 555, 127 S.Ct. 1955). "To survive a motion to dismiss, the plaintiff must do more in the complaint than simply recite the elements of a claim...." Zellner v. Herrick, 639 F.3d 371, 378 (7th Cir.2011). A pleading that offers "labels and conclusions" or "a formulaic recitation of the elements of a cause of action will not do." Twombly, 550 U.S. at 555, 127 S.Ct. 1955. "Nor does a complaint suffice if it tenders `naked assertion[s]' devoid of `further factual enhancement.'" Iqbal, 556 U.S. at 678, 129 S.Ct. 1937 (quoting Twombly, 550 U S. at 557, 127 S.Ct. 1955). Rather, a complaint must allege "enough facts to state a claim to relief that is plausible on its, face." Id., 556 U.S. at 678, 129 S.Ct. 1937. "A claim has facial plausibility when the plaintiff pleads factual content that allows the court to draw the reasonable inference that the defendant is liable for the misconduct alleged." Id.
In this case, Plaintiffs allege that Defendants have violated Title II of the ADA by deciding to close CPS elementary schools before the 2013-2014 school year. Title II of the ADA prohibits (1) the exclusion of otherwise qualified persons with a disability from participating in or receiving "the benefits of the services, programs or activities of a public entity," and (2) a public entity from discriminating against an individual on the basis of a disability. 42 U.S.C. § 12132. To state a Title II claim, a plaintiff must allege that he was excluded from participation in a public entity's program because of his disability. See 42 U.S.C. § 12132; Glick v. Walker, 272 Fed. Appx. 514, 520-21 (7th Cir.2008); Wis. Ginty. Servs., Inc. v. City of Milwaukee, 465 F.3d 737, 750 (7th Cir.2006).
Plaintiffs' claims against the City alleging that it has discriminated against their children by deciding to close certain schools must be dismissed, because the
In response, Plaintiffs argue that their claims against the City are proper because, as alleged in the Complaint, the City, through the Mayor, "control[s] the Board and control[s] whether and how many schools will be closed." (Pls.' Resp. 1.) Plaintiffs acknowledge that the City "has no legal right to make day-to-day or even year-to-year decisions about the operation or funding of Chicago Public Schools" and that "the lawful authority to make decisions affecting the closings of the schools ... formally and exclusively belongs to the Board." (Id. 6.) But Plaintiffs nevertheless contend that the City, through the Mayor, has ignored this legal separation and exercised control over the Board by appointing Board members, "mak[ing] the decisions with respect to the revenue available for the education of children in the Chicago public schools," and treating the Board "as an instrumentality of the City." (Compl. ¶¶ 120-23.) Importing a concept from corporate law, Plaintiffs argue that the Board is the City's alter ego and that the Court should pierce the Board's corporate veil to reach the City.
Plaintiffs have provided no legal authority to support their veil-piercing theory in the context of municipal entities like those at issue here, and the Court finds none. "Under Illinois law,
It bears repeating that Plaintiffs have offered no Illinois or Seventh Circuit authority that applies a corporate veilpiercing theory to hold a municipality liable for the actions of a statutorily-created independent corporation.
Similarly, in Newcrete Products v. City of Wilkes-Barre, 37 A.3d 7 (Pa. Commw.Ct.2012), the plaintiff sought to hold the city liable for the debts of a municipal redevelopment authority under a
The Court finds the reasoning of these cases persuasive. Here, Plaintiffs have provided no Illinois law or other authority that confers upon Plaintiffs the right to pierce the corporate veil of a statutorily-created corporation to reach a municipality. In fact, the traditional veilpiercing analysis employed by the Illinois courts is ill-suited to these circumstances. For example, the Illinois veil-piercing doctrine requires the parties to have a "unity of interest and ownership." Old Orchard Urban Ltd. P'ship v. Harry Rosen, Inc., 389 Ill.App.3d 58, 328 Ill.Dec. 540, 904 N.E.2d 1050, 1061 (2009). But the Board is not authorized to sell ownership interests, and the City is incapable of possessing an equity interest in it. Nor do Plaintiffs allege that the Board and the City are commingling funds or failing to maintain corporate formalities, or that the City is attempting to use the Board to perpetrate a fraud upon Plaintiffs (or why it would even try to do so). Based upon these considerations, coupled with the general reluctance of Illinois courts to engage in veil piercing, the Court declines to apply the principles of corporate veil-piercing here.
But, even if the Court were to accept Plaintiffs' invitation to employ veilpiercing in this instance, Plaintiffs have failed to plead sufficient facts from which the Court can reasonably infer that the Board has abdicated its statutory responsibilities to the City. Plaintiffs' complaint contains only two factual allegations and one conclusory assertion in support of their theory that the City controls the Board. First, Plaintiffs note that the City, through the Mayor, "appoints the Board." (Compl. ¶ 120.) But, it is well-settled law that "the power to appoint is not the power to control." Takle v. Univ. of Wis. Hosp. & Clinics Auth., 402 F.3d 768, 770-71 (7th Cir.2005) (collecting cases); see Auer v. Robbins, 519 U.S. 452, 456 n. 1, 117 S.Ct. 905, 137 L.Ed.2d 79 (1997) (noting that although the governor appointed four of the five-member board of police commissioners, the "board [was] not subject to the State's direction or control in any other respect"). The Board is given the statutory authority to exercise general supervision and jurisdiction over CPS. 105 Ill. Comp. Stat. 5/34-18, 34-43, 34-45, 34-53. The City does not transform the Board into its instrumentality simply by appointing Board members. Indeed, the Mayor of Chicago has long appointed members to the Board, and Illinois courts have repeatedly recognized the legal separateness between the City and the Board. See, e.g., Schreiner v. City of Chi., 406 Ill. 75, 92 N.E.2d 133, 138 (1950) (noting that the Illinois legislature provided for public schools to be "under the charge of a board of education ... appointed by the mayor" and that "although the territory of the city [of Chicago] and the school district is coterminous, and some of the officers perform dual duties, they are two separate organizations" because "the City of Chicago
Second, Plaintiffs allege that the City "makes the decisions with respect to the revenue available for the education." (Compl. ¶ 122.) But again, the Board, not the City, possesses the legal authority to levy taxes, adopt budgets, and determine appropriations for Chicago's public schools, 105 Ill. Comp. Stat. 5/34-18, 43, 45, 53. Furthermore, even if the City were to provide some funding to CPS, "[t]o make funding entities responsible for the statutory violations of funding recipients would stretch the contours of Title II [of the ADA]." Bacon v. City of Richmond, 475 F.3d 633, 642 (4th Cir.2007). Title II does not "impose guarantor liability or make funding entities ADA insurers for funding recipients." Id. "To the contrary, the plain text of Title II limits responsibility to public entities that discriminate against or exclude persons with disabilities from the services, programs, or activities administered by the entity." Id. "To hold that a city or State by virtue of its funding authority is liable for injury caused solely by a separate and independent corporate body is a novel and unprecedented theory." Id. (reversing the denial of the City of Richmond's motion to dismiss plaintiff school children's Title II claims because the Virginia legislature had vested exclusive control over the city schools in the legally separate and independent Richmond Board of Education).
Finally, Plaintiffs' complaint contains the bald pronouncement that the City "treats the Board ... as an instrumentality of the City" (Compl. ¶ 122), but sets forth no additional facts to support this conclusion. A pleading that offers only "labels and conclusions ... will not do." Twombly, 550 U.S. at 555, 127 S.Ct. 1955. Perhaps realizing their predicament, Plaintiffs provide copies of a press release from the Mayor's office and six news articles that they contend "make it more than `plausible' that the Mayor and the City control the Board of Education, including in deciding which and how many schools to close." (Pls.' Resp. 6.)
Understandably, few issues incite as much passion or draw as much attention as the education of Chicago's children. In the debate over how to confront the challenges currently facing CPS, various stakeholders and constituencies, including parents, teachers, administrators, public officials, concerned citizens, and others have offered their views on the wisdom and necessity of various competing proposals. It is no surprise then that, as the chief elected official of Chicago, the Mayor has added his voice to this public discourse by giving interviews, making statements, and issuing press releases. Indeed, one
In sum, Plaintiffs have failed to provide any legal authority to support their veilpiercing theory and have failed to provide facts from which the Court may reasonably infer that the Board has relinquished its legal duties to the City such that the legal separation between the Board and the City should be ignored. Thus, the Court dismisses Plaintiffs' claims against the City for this additional and independent reason.
For the reasons set forth above, the Court grants Defendant City of Chicago's motion to dismiss [36]. Plaintiffs' claims against Defendant City of Chicago are dismissed.