Professional Documents
Culture Documents
No. 97-1489
Plaintiffs, Appellants,
v.
Defendants, Appellees.
____________________
____________________
Before
Assistant
Solicitor
Solicitor General of
the Commonwealth of
Puerto Rico
____
and Edda Serrano-Blasini, Deputy Solicitor
_____________________
brief, for appellees.
____________________
General, were on
LYNCH,
LYNCH,
of
cases
Circuit Judge.
Circuit Judge.
_____________
following
Progressive Party
November 1992.
employees
Party
assumption of
In
these cases,
This
court faced
candidates
because
of
an earlier
won election in
by
the
New
elections held in
plaintiffs are
of the losing
their jobs
power
from
that
the
government
Popular Democratic
their political
wave
of such
affiliation.1
cases when
PDP
members complained
suffered because of
their party
membership.
long-term government
employees who
their
civil
service positions
Commonwealth's Department
as Managerial
of Social
being performed
Services, now
known as
designated as
of the agency.
The district
the theory
established
the
by NPP members
Coordinators in
defendants
had
they would
have
anyway for
and that
taken
action
of plaintiffs'
____________________
1.
In re Martinez-Catala, 1997 WL
_____________________
96-1285
693558 (1st
Cir. 1997);
Ortiz-Pinero v.
____________
Rivera-Arroyo, 84
_____________
F.3d 7
(1st
Cir. 1996).
-22
political affiliation.
I.
I.
judgment is
de novo.
Goldstone &
___________
Sudalter, P.C.,
______________
the facts in
summary judgment.
of the former
been working
to the PDP,
employees
Puerto Rico,
at the Department
plaintiffs belong
We state
whom have
the party of
All
former Governor
Rafael Hernandez Colon, who held office for two terms between
supervisory position of
within
the
plaintiffs
Department.
and
several
Between
1988
others were
and
1992,
the six
promoted
to
this new
position.
The
middle
Managerial
level
assistance to the
Coordinator classification
managerial
established
created
Governor's
position
cabinet.
as a career
The
to
was
provide
The Regional
Managerial
Coordinator job
-33
was
Rico's civil
L.P.R.A.
1301,
Roque, 889
_____
F.2d 1209,
The Regional
1331-1338; Agosto-de-Feliciano v.
___________________
Directors,
in
contrast,
of public
the department,
L.P.R.A.
The
1350;
the Secretary
Cir. 1989)
were
Central Office of
Aponte_______
classified
Services.
Personnel Administration
as
formation
(en banc).
involved in the
of Social
See
___
head of
See
___
1213 n.3.
(COPA), the
laws, approved
position.
the creation
In
approving the
agency necessarily
not
of
necessary
the Managerial
position,
the
prerequisite
for
Coordinator
civil service
affiliation was
holding
Managerial
Coordinator position.
The
Director
of
COPA
described
the
position
responsibility
. . . activities
in
the
work of great
coordination and
complexity and
evaluation
of the
Plaintiffs'
On paper,
a Managerial Coordinator
on
advice
Regional Directors
-44
and
the
Secretary
investigating
monitoring
and
local
informed
of
local
reporting
on
grievances
offices' expenses,
office
training
of
operations,
employees,
local office
In practice,
ranged
plaintiffs' duties
widely,
and
programs, attending
the
Regional
activities,
checks.
included
to client
Director,
as Managerial
Coordinators
coordinating
inter-agency
complaints, substituting
planning
other duties.
professional
diem and
and
for
social
mileage reimbursement
functions
In
by the
came
to
power.
Rodriguez-de-Rivera
Governor
as
Rosello
Secretary
named
of
Pedro Rosello,
defendant Carmen
Social
Services.
Rodriguez-de-Rivera, in
In the first
month of the
Regional Directors.
Regional
that
the
assigning
activists
Managerial
those duties
and
had
Coordinators
to
been
unofficially,
as
aides
Additionally,
the
Regional
Managerial
other
had
been
employees
designated,
to
the
Directors
Coordinators several
-55
who
were
NPP
officially
or
Regional
took
perquisites
performing,
Directors.
away from
the
that had
been
associated with
that position,
political
party
such as
affiliation,
and
parking, telephones
of plaintiffs' PDP
the
aides
to
whom
active
defendant
Regional
of
her
launch
Rodriguez-de-Rivera,
to
complain
that
the
new
position.
Rodriguez-de-Rivera's reaction
an investigation
of the
complainant
and the
was
to
other
Managerial
Coordinators.
investigation
position and
The
was to determine
the selection
stated
purpose
of
of candidates
had been
the
of the
proper.
In
May
1993,
Secretary
Rodriguez-de-Rivera
Department, to
Coordinators.
During
being
performed by
reported
interviews
interviews,
delivered
the
Managerial
NPP-affiliated aides
to the Regional
and
the
Directors.
her
--
Salivia
notes to
-- now
and said
they
completed the
defendant
Enrique
Salivia
-66
Although
no
In June 1993,
to
Rodriguez-de-Rivera.
reports
nullity
because it
duplicative
of
Specifically, he
the
had
been
duties
improperly
of
the
created
Regional
and
was
Directors.
Managerial Coordinators
position
should
"confidential"
have
rather than as
Under
Puerto
those
employees
agency.
therefore
Rico law,
See 3
___
been
a career civil
"confidential
who report
L.P.R.A.
classified
directly
service post.
employees" are
to
the head
1350 (aides
to
as
of
the heads
only
the
of
list
of
facially
confidential
contrary to
employees).
These
the determination
-77
conclusions
made
by COPA,
are
the
civil
it approved the
creation of the
positions.2
the
Managerial Coordinators
had
been improperly
promoted,
time.
given a
assessment
positions.
--
that
they
be
demoted
to
their
previous
In
Secretary of
legality
of
repeating
1994,
December
1993, Rodriguez-de-Rivera
Justice of
the
Managerial
the allegations
that the
appointments
legality
depended
allegations, not
on
of
factual
on any question
on the
In
May
to give an opinion,
the Managerial
the
the
appointments,
Cappas reports.
noting
an opinion
Coordinators'
of the
asked
Coordinators'
accuracy
of law, and
of
those
referred that
____________________
2.
Cappas
position
said
that
the
COPA
document
describing
the
the Secretary, but that this document was altered with liquid
paper
to state that
Directors.
with
reported to
the Regional
the Managerial
There is
the position
no evidence
Coordinators
that he
to
alter the
considered another
documents.
plausible
explanation
--that
mistake
the
in
plaintiffs'
the
alteration was
original
statements
--
reasonable
correction
Cappas
was
to Salivia
in the
field interviews
jury
unaware
of a
and
credit
the
of
Of
plaintiffs'
-88
issue
COPA and
(BMO)
the Director
to
determine
Coordinator was a
of the
that
Budget and
the
reports,
and
several of the
by
Management Office
position
by disputing
the Director of
refusing
The
of
Managerial
her letters to
claims contained in
to
nullify
the
the Cappas
position
or
In
document
In spite of
Rodriguez-de-Rivera issued an
on August 9,
1994,
"[t]hat all
positions classified as
Managerial Coordinators
opportunity
to dispute
the
allegations
contained
in
the
____________________
3.
possibility, also
plausible, that
the proper
to show that
document from
Plaintiffs have
-99
Each
of
the
plaintiffs
result of
was
thereafter
demoted
to
the nullification
order, each
of the
the
As a
plaintiffs
the position of
members, all in
It is our
directors
cannot
be
classified
as
"confidential"
(or
See 3 L.P.R.A.
___
1350.
II.
II.
In November
violations
of
their
First Amendment
suit, alleging
rights
of
political
of Ill.,
_______
497 U.S. 62
(1990).
Plaintiffs also
alleged that
of
the constitution
of Puerto Rico.
On January
27, 1997,
the district
defendants,
connection
affiliation.
court granted
between
The
their
demotions
district
court
summary judgment
and
also
their
for
a causal
political
reasoned
that
-1010
defendants'
stated
rationale
for
the
demotions
--
was sufficient
defense under
U.S. 274
to compel
finding that
defendants had
(1977), even
if political
Doyle, 429
_____
affiliation had
played
III.
III.
Plaintiffs
have
produced evidence
sufficient
to
employee
for
affiliation
See Rutan,
___ _____
patronage
purposes
unless
political
party
497
U.S.
at
64;
Nereida-Gonzalez
________________
v.
Tirado_______
A plaintiff who
_______
was
demoted
from
requirement
is
job
for
inappropriate
which
party
affiliation
"may
ordinarily
forestall
if credited, would
that
occurred
demotion
discriminatory animus."
There is
and
that
it
stemmed
from
to conclude
were demoted;
____________________
4.
Of
course,
'nullity'
transfers,
"a
new
administration
[cannot]
use
the
affiliation."
discrimination
Santiago-Negron
_______________
based
v.
solely
on
political
Castro-Davila, 865
_____________
F.2d
-1111
altogether
and
previously,
which are
subjects
returned
them
of lower
of demotion, "which
official rank,"
to
rank
the
jobs
and salary.
involve reductions in
plaintiffs
situation
[is] unreasonably
they
the
the
pay and
at 1218
inferior to
As
held
n.8,
new "work
norm for
the
position"
such that
"the new
work
conditions would
place
Id. at 1218.5
___
____________________
5.
The
"unreasonably
Feliciano
_________
was
expressly
discrimination short
n.8.
Thus
survives
we
need
against
not
doctrine
limited
of actual
the Supreme
protections
inferior"
to
"It
providing
complaints
of
See id.
_______
at 1218
consider whether
that
doctrine
Court's extension
patronage
of First
dismissals
inferior' rule]
to
Amendment
"promotion,
[the 'unreasonably
Agosto-de__________
demotion.
of
some vestige of
survives Rutan,
_____
thereby
[official
Nereida-Gonzalez,
________________
actions]
described by
990 F.2d at
705.
the
Rutan
_____
court."
That question
must be
Rutan Court
_____
against a
public
suggested
in dicta
employee,
no
any adverse
matter
Amendment if it is in
exercise of First
that
how
minor,
retaliation for an
Amendment rights.
See Rutan,
___ _____
to hold
punish
[them] for
birthday party
. . .
exercising [their]
when intended
free
speech rights."
colorful
rhetoric
as
to
necessarily
We do
not
foreclosing
dismissal that
applicants to conform
their
some
beliefs
and
associations
orthodoxy,"
id. at 75,
___
Feliciano's
_________
standard that
to
a formulation similar
"the
-1212
new
state-selected
to Agosto-de__________
work conditions
would
Viewed
plaintiffs, the
that
in
the
light
summary judgment
most
favorable
record amply
to
the
demonstrates
stemmed from a
discriminatory animus.
In this
case, it was
were
knew
this,
supporters of
and
that
the party
their
duties
in power.
were given
Of course,
to
active
the Supreme
Court has cautioned that the mere fact that an adverse action
was
(1996).
Umbehr, 116
______
"Merely juxtaposing
--
S. Ct.
2342, 2352
a protected characteristic
someone
else's politics
with
treated
unfairly is
claim."
Correa-Martinez v. Arrillaga-Belendez,
_______________
__________________
not enough
the
to
fact
plaintiff
state a
See
___
--
was
constitutional
Nevertheless, a plaintiff
evidence
gun")
of discriminatory
to
establish
discriminatory demotion.
judgment in
favor of
treatment (a
prima
facie
so-called "smoking
case
of
defendants in
direct
cases where
politically
of summary
plaintiffs
____________________
place
conform
substantial pressure
to
Feliciano,
_________
the
prevailing
conflict in the
on
even one
political
of
view."
thick skin
to
Agosto-de______________
personnel actions
-1313
of a discriminatory animus
Gonzalez-Rivera,
_______________
983
Rodriguez-Pinto v.
_______________
Cir.
F.2d
332,
335
(1st
Cir.
34, 39-40
v.
1993);
(1st
(1st Cir.
1992).
In
[T]he
appellants' argument
that political
by
direct
Victims
of
seems
to be
evidence.
heavy-handed
We
uses
disagree.
of
the
that circumstantial
evidence
political
In this
the
mere fact
different party.
that they
were demoted
First, the
more than
by supervisors
of a
the supposed
rather
than "confidential"
defendants
believed it
Managerial
aides to
improperly classified as
was
positions.
appropriate
This
civil service
suggests that
to take
account in deciding to
political
eliminate the
the Regional
what plaintiffs
Directors.
Indeed, that is
exactly
-1414
to NPP members.
find the
This
position was
appropriately classified
as a
civil
service position.
Second, a reasonable
PDP member
that
were being
her
rights under
the
civil service
laws
the complainant --
statements
could
that they
support
reported
reasonable
to the
Regional
inference
that
Directors,
it
was
not
legal
pretext
for
a foreordained
decision
to
demote the
plaintiffs.
to
of their
imply
plaintiffs a hearing
could likewise
was uninterested in
fairly
the truth of
the controversy.
Finally,
the advice of
casts
serious
Rodriguez-de-Rivera's
doubt
on
the
supposed
disagreement
with
service commission,
"nullity"
of
the
-1515
be
drawn that
her
decision
was in
fact
motivated by
an
IV.
IV.
The
district
entirely
on
however,
but decided
they
would
its
have
court
view
of
did
not
plaintiffs'
that defendants
taken
plaintiffs' political
rest
the
same
affiliation
prima
had
for
under
court
Mount Healthy.
______________
The
district
facie
case,
regardless
what
reasoned, established
decision
established that
action
the district
its
it
considered
efficiency.
valid
court noted
of
This,
defense
what
it
political
unclear
discrimination.
Observing that
the
record was
of political discrimination.6
____________________
6.
Of
course,
political
Coordinators would
cannot
their
prevail simply
by showing
that
motive may
condemns
among
the
Managerial
claim.
Defendants
a desire
to reward
than a desire
to punish
The First
have a sponsor in
directed
Bennis
______
Amendment
the dominant
Either
the knowledge
party
diversity
towards
a party's
political
when it
opponents.
See
___
That
party
inevitably
chooses to
reward
its
followers with
good
jobs
-1616
PDP
some
political purpose,
a 'de
position served
confianza,' or
The burden
establish a Mount
_____
have
did
not
is on
Healthy defense.
_______
been warranted
proffer compelled
of persuasion
. . . only
"Summary
'but
to
judgment would
if defendants'
constitute a
the Secretary
evidentiary
political discrimination
for' cause
for
the demotion."
Jirau-Bernal v. Agrait,
____________
______
Here,
there
disputes
which
are
significant
of
material
fact
Defendants'
evidence
that
their
decision
was
have
resulted in
the same
personnel
from
conclusive.
action regardless
is both
disputed and
of
far
of the Managerial
the
agency hierarchy
reported
to
the
was based
on
Secretary, not
Regional Directors.
Plaintiffs
a view
to
her
flow of
that plaintiffs
subordinates, the
have successfully
put this
to the
____________________
members.
Rutan
_____
Amendment rights
expressly discussed
of employees
left in
-1717
the
effect
on First
such dead-end
jobs.
contrary.
responsibilities have
been transferred
If
this is
true, it
"efficiency"
undercuts
calls into
rationale,
as
the
question the
addition
of
to
NPP.
Department's
new
aides
Of course, defendants'
was a
"substantial factor"
defense at trial.
show
that the
demotions
-- is
a viable
allegedly bona
were
decisions.
in the decision
sufficient
After Rutan,
_____
by
it
reasons underlying
themselves
is clear
that
the
if defendants
prevent
is
an
government's
the
demotions.
their political
omitted).7
for
alone
would
"A
or
reason
beliefs
justify
that
acceptable
political
to
the
thought
not
plaintiffs'
fide
views."
On the other
by choosing
employees on the
Rutan, 497
_____
basis of
U.S. at
74 (citations
hand, if defendants
can establish
____________________
7.
The
conduct
posture of
a
"changeover"
this
full-scale
or
case
makes
examination
"reorganization"
it
inappropriate
of
defense
the
to
so-called
established
by
-1818
that
plaintiffs opposed
actively
attempted
departmental policy
in fact
to
thwart
and that
it, that
could
they
be
497
U.S.
effective
at
74
("A
government's
employees can be
See
___
interest
in
met by discharging,
Rutan,
_____
securing
demoting or
There
appears to be
lurking in the
on stage, a suggestion by
wings of this
those
duties
nevertheless
fall
within
the
Elrod-Branti
_____ ______
political
defendants
their
affiliation
requirement
appropriate.
However,
responsive pleading
or in
their
motion for
summary
judgment.
The district
exception
but did
court
mentioned
rested its
decision
established
a prima
issue.
on its
the Elrod-Branti
_____ ______
Rather, the
view
facie case.
district court
that plaintiffs
The issue
had
has not
not
been
____________________
at 1220-22 in light
of Rutan.
_____
party affiliation,
-1919
See Agosto-de-Feliciano,
___ ___________________
on
appeal that
district court.
Cir. 1995).
is
have
not been
properly
raised before
the
somewhat related to
positions
that the
Rico law, it is by no
Plumey,
______
See
___
Roldan_______
reluctant,
as we
have
been
of the case
invited to
further analysis
of the effects
"changeover"
"reorganization"
or
are clear, we
do,
of Rutan
_____
to engage
on the
defense
as
are
in
so-called
outlined
in
Finally,
we
note
that,
if
plaintiffs
as career civil
employees,
Due
their claims
under the
were
service
Process Clause
and
under
the constitution
independently
and
laws
of
Puerto
apparently classified
Rico
survive
If plaintiffs
appropriately as career
employees and
Rico.
-2020
See 3 L.P.R.A.
___
1301,
1331-1338.
establish
The
Puerto Rico
civil
protection against
Amendment.
of Puerto
249-250
Court
service
system
may,
that
of course,
provides
political discrimination
than the
greater
First
Rico as
well.
(Torruella,
of
legislature
Puerto
J.,
Rico
Cf.
___
Jimenez-Fuentes, 807
_______________
dissenting)
grants
F.2d at
(noting that
Supreme
protection
against
broad
interpretation
of the
First Amendment);
Raffucci-Alvarado,
_________________
Likewise,
because
of plaintiffs'
tenured
status
proper.
532,
See
___
542
public
(1985)
employees
(guaranteeing
with
procedural
property
interest
Rico
law, the
public
laws).
of
in
to
continued
Gonzalez-Rivera,
_______________
existence of
sector employment
plaintiffs' appointments
protections
property right
is dependent
under Puerto
on
in continued
the legality
Rico's civil
of
service
plaintiffs'
First Amendment
claims;
the
inquiries are
-2121
distinct.8
See
___
Nieves-Villanueva v.
_________________
Soto-Rivera, No.
___________
96-
The
the
________
this opinion.
____________________
8.
We
as we find
it -- with
defendants not
in
any
reclassification
to
one
in
requirement,
which
way
if
defendants
may
validly
cause
and how,
under
affiliation
the laws
-2222
of
is
legitimate
Puerto Rico,
an