COTTON v. BANKS
Case Details
- Citation
- 310 Mich. App. 104
- Judge(s)
- Before: SERVITTO, P.J., and STEPHENS and M. J. KELLY, JJ.; SERVITTO, P. J., and STEPHENS, J., concurred with M. J. Kelly, J.
- Procedural Posture — the stage the case had reached
- appeal
- State
- Michigan
Related Laws
No specific laws identified for this ruling.
Claim Types
Outcome
The court of appeals affirmed the trial court's denial of the legislator's motion for summary disposition, allowing the employment discrimination and harassment case to proceed. The legislator was found not entitled to absolute Speech or Debate Clause immunity for personnel decisions, though the case was not finally resolved on the merits.
Excerpt
COTTON v BANKS Docket No. 319001. Submitted February 10, 2015, at Detroit. Decided March 26, 2015, at 9:10 a.m. Tramaine Cotton brought a wrongful-termination suit in the Wayne Circuit Court against the state of Michigan and Brian Banks (a member of the Michigan House of Representatives by whom Cotton had been hired as a legislative assistant). Cotton alleged that Banks terminated his employment because Cotton rejected Banks’s romantic advances. Banks contended that he terminated Cotton’s employment after learning that Cotton had been driving without a valid driver’s license and that a bench warrant had been issued for Cotton’s arrest following his failure to appear at a court hearing related to a traffic violation. Cotton’s suit claimed that Banks discriminated against him on the basis of his sex, demanded sexual favors as a condition of employment, created a hostile work environment, and retaliated against him for reporting Banks’s conduct. Cotton also claimed that Banks’s conduct constituted the tort of intentional infliction of emotional distress. The state moved for summary disposition on the basis that it was not Cotton’s employer for purposes of his civil rights claim and that his intentional tort claim should have been brought in the Court of Claims. Banks claimed that his conduct was protected by the legislative immunity provided under the Speech or Debate Clause of Michigan’s Constitution, Const 1963, art 4, § 11, and moved for summary disposition on that basis. The court, Susan D. Borman, J., denied Banks’s motion and granted the state’s motion for summary disposition. The court also granted Cotton’s motion to amend his complaint to add the House of Representatives as a defendant. Cotton’s amended complaint alleged civil rights violations against Banks and the House of Representatives and one count of intentional infliction of emotional distress against Banks alone. Banks appealed. The Court of Appeals held,'. 1. The trial court erred by determining that the Civil Rights Act, MCL 37.2101 et seq., effectively waived the legislative immunity provided by the Speech or Debate Clause of the Michigan Constitution, Const 1963, art 4, § 11, for certain acts of legislators, because the Civil Rights Act did not expressly and unequivocally state such a waiver. Waiver of the constitutional immunity offered by the Speech or Debate Clause cannot be made by inference. 2. The trial court properly held that Banks was not immune from civil suit under the Speech or Debate Clause because terminating Cotton’s employment did not constitute activity within the legitimate sphere of legislative activity for which the immunity was intended. Banks’s decision to terminate Cotton’s employment was not integral to the legislative process. That is, Banks’s personnel management was not essential to the consideration and passage or rejection of proposed legislation, nor did it involve a matter solely within the jurisdiction of the Legislature. 3. Banks was not protected by the Speech or Debate Clause because his decision to terminate Cotton’s employment was administrative, not legislative, in nature. Whether the absolute immunity provided legislators by the Speech or Debate Clause protects a legislator from civil arrest and civil process for the legislator’s employment decisions does not depend on the nature of an employee’s duties. Rather, the immunity offered by the Speech or Debate Clause depends on whether the legislator is engaged in a true legislative act, not simply an act that has some connection to the legislative process. Trial courts must be careful to distinguish between a true legislative act, and an act that is merely performed by a legislator. 4. The trial court properly denied Banks’s motion for summary disposition, which was based on the ground that he was protected by the absolute immunity found in the Speech or Debate Clause. Banks was not entitled to absolute immunity because analysis of Banks’s alleged misconduct — terminating Cotton’s employment for improper reasons — did not require an investigation into Banks’s legislative activity. 5. The trial court did not err by denying Banks’s motion for summary disposition based on his contention that the Civil Rights Act provided the exclusive remedy for Cotton’s claim of sexual harassment and his consequent allegation of the common-law tort of intentional infliction of emotional distress. The Civil Rights Act did not abrogate Cotton’s right to bring suit against Banks, because the statutory language in the Civil Rights Act contains no reference to legislators, and it does not preclude an action for the intentional infliction of emotional distress even when the same facts could give rise to a statutory violation of the Civil Rights Act. Affirmed. 1. Constitutional Law — Speech or Debate Clause — Legislative Immunity— Waiver. The Elliott-Larsen Civil Rights Act, MCL 37.2101 et seq., does not expressly and unequivocally waive the absolute immunity to which a legislator is entitled under the Speech or Debate Clause of the Michigan Constitution, Const 1963, act 4, § 11, and a waiver of the immunity cannot be made by inference. 2. Constitutional Law — Speech or Debate Clause — Legislative Immunity. The Speech or Debate Clause of the Michigan Constitution immunizes a legislator from civil arrest and civil process premised on actions that the legislator took within the legitimate sphere of legislative activity; a legislator’s conduct that is integrally related to the consideration and passage or rejection of proposed legislation or concerns a matter solely within the Legislature’s jurisdiction is engaged in conduct within the legitimate sphere of legislative activity. 3. Constitutional Law — Speech or Debate Clause — Legislative Immunity— Employment Decisions. Whether a legislator is immune from civil arrest and civil process under the Speech or Debate Clause for decisions related to his or her staffs employment does not depend on the nature of an employee’s duties; whether a legislator is entitled to immunity depends on whether the legislator’s conduct constituted a true legislative act and was not merely an act performed by a legislator. 4. Constitutional Law — Speech or Debate Clause — Legislative Immunity— Investigation Into Legislator’s Conduct. A legislator is absolutely immune from civil arrest and civil process when evaluation of the legislator’s conduct would require an investigation into his or her legislative activity. Darryl K. Segars for Trámame Cotton. The Bradley Law Center, LLC (by Avery J. Bradley and Andrea J. Bradley), for Brian Banks. Dickinson Wright, PLLC (by Peter H. Ellsworth, Jeffery V. Stuckey, and Ryan M. Shannon), for the Michigan House of Representatives. Before: SERVITTO, P.J., and STEPHENS and M. J. KELLY, JJ. M. J. KELLY, J. In this employment dispute, defendant Representative Brian Banks of the Michigan House of Representatives appeals by right the trial court’s order denying his motion for summary disposition of the claims by Banks’s former staff member, plaintiff, Tramaine Cotton. The primary issue on appeal is whether Banks has absolute immunity from suit under the Speech or Debate Clause of Michigan’s Constitution for personnel decisions involving those members of his staff who might have involvement in the legislative process. See Const 1963, art 4, § 11. For the reasons fully explained below, we conclude that there were no errors warranting relief. Accordingly, we affirm. I. BASIC FACTS According to Cotton, Banks hired him in January 2013 to serve as a driver. Cotton alleged that, after his hire, Banks continuously expressed his desire to have a dating relationship with him, but Cotton rejected Banks’s advances. After Cotton made it clear that he would not agree to a romantic relationship, Cotton maintained that Banks began to assign him tasks that were beyond the scope of his employment and asked him to work on days he was not supposed to work. Cotton alleged that he was constructively discharged in April 2013. Banks, however, presented a very different version of events in the trial court. Banks stated that he hired Cotton in February 2013 to serve as a legislative assistant and that Cotton’s duties included responding to constituent concerns, attending functions, and driving Banks and other representatives between Detroit and Lansing. Banks claimed that he began proceedings to terminate Cotton’s employment after he learned that Cotton had been arrested for driving on a suspended license and had missed a court date, after which a bench warrant issued for Cotton’s arrest. He stated that Cotton was terminated from his employment in May 2013 for those reasons. In May 2013, Cotton sued Banks and the state of Michigan for wrongful termination. Cotton alleged that Banks violated Michigan’s Elliott-Larsen Civil Rights Act, MCL 37.2101 et seq., by discriminating against him on the basis of his sex, by demanding sexual favors as a condition of employment, by creating a hostile work environment, and by retaliating against him. Cotton also alleged that Banks’s sexual harassment constituted the intentional infliction of emotional distress. Cotton alleged that the state, as Banks’s employer, was vicariously liable for Banks’s wrongful conduct. In August 2013, the state moved for summary disposition under MCR 2.116(C)(4) and (10). The State argued that, because employees of the House of Representatives were excluded from state civil service, the State was not Cotton’s employer for purposes of the Civil Rights Act. The state also argued that the circuit court did not have jurisdiction over Cotton’s intentional tort claim — that claim had to be brought in the Court of Claims. Banks moved for summary disposition under MCR 2.116(C)(7) and (8) in September 2013. Banks argued that he was absolutely immune, under MCL 691.1407(5), from claims arising out of his termination of Cotton’s employment. He claimed he was entitled to immunity under an unpublished decision from a circuit court because his decision to terminate Cotton involved an integral part of the legislative process, but Banks did not specifically argue that he had immunity under Const 1963, art 4, § 11. Additionally, Banks argued that the trial court must dismiss Cotton’s claim of retaliation because Cotton did not plead that he reported the alleged sexual harassment to anyone before his discharge. Cotton’s claim for intentional infliction of emotional distress similarly had to be dismissed, Banks stated, because that claim, as alleged, involved wrongful sexual discrimination in employment, and the Civil Rights Act is the exclusive remedy for such a claim. In response, Cotton argued that the Civil Rights Act constitutes an exception to the immunity provided under MCL 691.1407 and, in any event, the acts of sexual harassment were outside the scope of Banks’s authority as a representative. He also maintained that the Civil Rights Act is not the exclusive remedy for the harms occasioned by sexual harassment. Therefore, he argued, the trial court should deny Banks’s motion for summary disposition. In his reply brief, Banks cited Const 1963, art 4, § 11, and for the first time argued that he had absolute immunity from suit under the Speech or Debate Clause of Michigan’s Constitution for any personnel decisions involving his staff. Banks argued that the undisputed evidence — namely the job description for a legislative assistant and copies of correspondence — showed that Cotton’s job duties were integrally related to the legislative process. On that basis, Banks claimed he was immune from liability for his actions related to Cotton’s employment. In October 2013, the trial court held a hearing on the motions. At the hearing, the trial court expressed its belief that the Civil Rights Act created an exception to all governmental immunity, including immunity provided under the Speech or Debate Clause. The trial court also did not believe that Cotton was so integrally related to the legislative process that immunity would apply. As for Cotton’s retaliation claim, the trial court refused to consider Banks’s evidence that Cotton did not report the alleged harassment because Banks’s motion was brought under MCR 2.116(C)(8). See MCR 2.116(G)(5). Additionally, the trial court did not agree that the Civil Rights Act preempted Cotton’s claims for intentional infliction of emotional distress. Finally, the trial court agreed that the state was not Cotton’s employer and that the claims against it should be dismissed. The trial court entered an order granting the state’s motion for summary disposition and dismissed the state without prejudice. It also entered a separate order allowing Cotton to amend his complaint to include the House of Representatives as a defendant. Finally, the trial court entered an order denying Banks’s motion for summary disposition. Cotton soon filed his first amended complaint naming the Michigan House of Representatives as a defendant. In his amended complaint, Cotton alleged that he reported the sexual harassment to his superiors. Cotton again alleged four counts against Banks and the House of Representatives premised on violations of the Civil Rights Act, and a fifth claim of intentional infliction of emotional distress against Banks alone. Banks then appealed in this Court. II. THE SPEECH OR DEBATE CLAUSE A. STANDARDS OF REVIEW Banks first argues that the trial court erred when it denied his motion for summary disposition, which was based on the ground that he was absolutely immune from suit under Const 1963, art 4, § 11. He maintains that Michigan courts should construe Michigan’s Speech or Debate Clause similarly to the federal courts’ construction of the federal Speech or Debate Clause. Relying on federal authority, Banks contends that this Court should conclude that the Speech or Debate Clause applies to bar any claims premised on acts or omissions arising from the legislative process. According to Banks, because his decision to terminate Cotton implicated the legislative process, the trial court should have determined that he had absolute immunity under Const 1963, art 4, § 11. This Court reviews de novo a trial court’s decision on a motion for summary disposition. Barnard Mfg Co, Inc v Gates Performance Engineering, Inc, 285 Mich App 362, 369; 775 NW2d 618 (2009). This Court also reviews de novo whether the trial court properly interpreted and applied Michigan’s Constitution. Wayne Co v Hathcock, 471 Mich 445, 455; 684 NW2d 765 (2004). B. CIVIL IMMUNITY UNDER THE SPEECH OR DEBATE CLAUSE Michigan’s Speech or Debate Clause provides legislators with a privilege against civil arrest and civil process during sessions of the Legislature and immunity from liability for their speech in either house: Except as provided by law, senators and representatives shall be privileged from civil arrest and civil process during sessions of the legislature and for five days next before the commencement and after the termination thereof. They shall not be questioned in any other place for any speech in either house. [Const 1963, art 4, § 11.] The purpose of the privilege from civil arrest and civil process, our Supreme Court explained, is “to protect the legislators from the trouble, worry and inconvenience of court proceedings during the session, and for a certain time before and after, so that the State could have their undivided time and attention in public affairs.” Auditor General v Wayne Circuit Judge, 234 Mich 540, 542; 208 NW 696 (1926) (construing Const 1908, art 5, § 8, the predecessor to the present Speech or Debate Clause). Although an unreasonably long period of immunity might result in the denial of due process in an extreme case, the privilege must generally be construed to give effect to the policy which underlies it: to prevent both actual distraction and potential distraction from public duty during the legislative session. Bishop v Wayne Circuit Judge, 395 Mich 672, 677; 237 NW2d 465 (1976). The immunity provision in the Speech or Debate Clause is similarly intended to protect legislators from the distraction of litigation. See Prelesnik v Esquina, 132 Mich App 341, 347; 347 NW2d 226 (1984). Read literally, the clause only provides senators and representatives with immunity for speeches made in either house — that is, from being “questioned in any other place for any speech in either house.” See Const 1963, art 4, § 11. Because Michigan’s Speech or Debate Clause is substantially similar to the Speech or Debate Clause found in the Constitution of the United States, it should be similarly construed. See Prelesnik, 132 Mich App at 347, citing Eastland v United States Servicemen’s Fund, 421 US 491; 95 S Ct 1813; 44 L Ed 2d 324 (1975). The United States Supreme Court has stated that the Speech or Debate Clause was the product of the English experience and was intended to ensure the independence of the legislative branch from interference by the executive branch or a possibly hostile judiciary. Eastland, 421 US at 502. But, the Court noted, it had not limited the protection provided by the Speech or Debate Clause to acts of interference by public officials: The applicability of the Clause to private civil actions is supported by the absoluteness of the term “shall not be questioned,” and the sweep of the term “in any other Place.” In reading the Clause broadly we have said that legislators acting within the sphere of legitimate legislative activity “should be protected not only from the consequences of litigation’s results but also from the burden of defending themselves.” Just as a criminal prosecution infringes upon the independence which the Clause is designed to preserve, a private civil action, whether for an injunction or damages, creates a distraction and forces Members to divert their time, energy, and attention from their legislative tasks to defend the litigation. Private civil actions also may be used to delay and disrupt the legislative function. Moreover, whether a criminal action is instituted by the Executive Branch, or a civil action is brought by private parties, judicial power is still brought to bear on Members of Congress and legislative independence is imperiled. We reaffirm that once it is determined that Members are acting within the “legitimate legislative sphere” the Speech or Debate Clause is an absolute bar to interference. [Id. at 503 (citations omitted).] Consequently, in the absence of a waiver of the immunity, the Speech or Debate Clause immunizes a legislator from civil suits premised on actions that he or she took within the legitimate sphere of legislative activity. Id. C. WAIVER OF IMMUNITY UNDER THE ELLIOTT-LARSEN CIVIL RIGHTS ACT Banks initially argued that the trial court should dismiss Cotton’s claims because Banks had immunity under MCL 691.1407(5), and Cotton failed to plead in avoidance of that immunity. See Yono v Dep’t of Transp (On Remand), 306 Mich App 671, 682; 858 NW2d 128 (2014) (stating that a plaintiff must plead in avoidance of governmental immunity by alleging facts that, if true, would establish that his or her claim falls within an exception to governmental immunity). Cotton did, however, plead claims under the Civil Rights Act, and our Supreme Court has recognized that the act constitutes an exception to the immunity provided by MCL 691.1407. See Mack v Detroit, 467 Mich 186, 195; 649 NW2d 47 (2002). Banks later asserted before the trial court that he was also entitled to immunity under the Speech or Debate Clause, Const 1963, art 4, § 11. On appeal, Banks has abandoned any contention that MCL 691.1407 immunizes him from claims brought under the Civil Rights Act; instead, he now relies exclusively on the Speech or Debate Clause as the source of his immunity. Defendant Michigan House of Representatives notes that at the hearing on Banks’s motion for summary disposition, the trial court expressed its belief that there was no immunity for a
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