Cynthia Archer v. John Chisholm

870 F.3d 603, 2017 WL 3709149, 2017 U.S. App. LEXIS 16493
CourtCourt of Appeals for the Seventh Circuit
DecidedAugust 29, 2017
Docket16-2417
StatusPublished
Cited by262 cases

This text of 870 F.3d 603 (Cynthia Archer v. John Chisholm) is published on Counsel Stack Legal Research, covering Court of Appeals for the Seventh Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Cynthia Archer v. John Chisholm, 870 F.3d 603, 2017 WL 3709149, 2017 U.S. App. LEXIS 16493 (7th Cir. 2017).

Opinion

WOOD, Chief Judge.

While Governor Scott Walker was leading the charge for controversial changes to Wisconsin’s public" union laws, plaintiff-appellant Cynthia Archer was at his side, drafting the law and advocating for its passage. At the same time, the Milwaukee County State’s Attorney’s Office was investigating allegations of misconduct against Archer and several of the governor’s close associates, using Wisconsin’s unique “John Doe” procedure. Archer sees a connection between the legislative campaign and the John Doe investigation. She alleges that she was targeted because of her work on the union bill and her affiliation with Governor Walker. Although Archer was never charged with wrongdoing, she filed this section 1983 action against three prosecutors and three members of the investigative team. The district court dismissed the case on the basis of immunity. We affirm.

I

As Archer tells it (and that is the perspective we adopt at this stage), this case is about a top Republican policy staffer who was dragged unfairly into a criminal investigation by members of a rabidly political prosecutor’s office.. The story begins in 2006, when,Archer joined Milwaukee County Executive Scott Walker’s administration as the budget director for the Department of Administrative Services. Archer was no government neophyte; she had served before, usually in Republican administrations. Two years later, Walker promoted Archer to Director of Administrative Services. There she played a key role in developing and implementing Walker’s policies. She was wéll suited for the work, thanks to her master’s .degree in public policy and administration and her policy experience. Walker, a Republican, launched his bid for governor in April 2009.

In May 2010, with the gubernatorial campaign' underway, Milwaukee County District Attorney John Chisholm’s office began investigating activities in" Walker’s Milwaukee County Executive’s office. The impetus for the investigation was a report from Thomas Nardelli, Walker’s chief of staff, concerning some money that the county had given to a non-profit and that had since vanished. Nardelli had reported the missing money to David Budde, an investigator in the Milwaukee D.A.’s office (and a defendant-appellee here),.back in April. 2009. His report stated that the county had asked the recipient charity to document how the money was spent, but it failed to submit a satisfactory accounting. Nardelli identified the charity’s treasurer, Kevin Kavanaugh, as the likely thief,

To-get the investigation started, Assistant D.A. Bruce Landgraf asked a state judge to open a “John Doe” investigation into- the missing charity funds, although the purpose of his investigation was not limited to that topic. A “John Doe” is a unique Wisconsin device that permits the prosecutor, under the supervision and direction of a judge, to conduct a secret investigation. Wis. Stat. § 968.26; State ex rel. Two Unnamed Petitioners v. Peterson, 363 Wis.2d 1, 866 N.W.2d 165, 197-99 (2015). After the proceeding is opened, the John Doe judge may issue subpoenas and examine witnesses. State v. Doe, 78 Wis.2d 161, 254 N.W.2d 210, 211 n.1 (1977). The Wisconsin Supreme Court believes that, if conducted appropriately, the John Doe process “provides' much greater protections to the -target of an investigation”, than other types of investigations, because *609 the supervising judge acts as a check on the prosecutor. Two Unnamed Petitioners, 866 N.W.2d at 198. In this case, the petition for the John Doe investigation said that it was “reasonable to expect” that county officials, including those from the county executive’s office, would be witnesses.

The John Doe investigation expanded several times as it uncovered evidence of wrongdoing, including illegal campaign fundraising and anomalies in the bidding process for two county projects (a 2009 housekeeping contract and a 2010 lease for agency space at a building known as Reuss Plaza). The bidding investigation was exploring whether county officials were giving companies associated with Walker’s campaign treasurer, John Hiller, an improper advantage. Along the way, D.A. Chisholm’s office learned that Archer had communicated with members of Walker’s inner circle, including Hiller, about bid proposals. In December 2010, after Walker was elected governor but before he had taken office, the defendants searched Archer’s county office pursuant to a search warrant.

By that point, Archer had left her position with the county. Walker had invited her to join his transition team and had appointed her Deputy Secretary of Administration. .The deputy secretary job was a high-ranking political position; its head drafted policy and oversaw state departments. Walker hired Archer because of her experience working on his policies in the county office.

Soon after Walker became governor, he began advocating for legislation that would significantly weaken bargaining rights for public sector unions. He announced a legislative proposal in February 2010. Public protests and national headlines followed. At the same time, Archer was playing a lead role crafting legislation. This sort of policy work was not inherent in her position as deputy secretary, but she took the initiative to participate in the drafting and implementation process of what became known as Act 10. She advised the governor and other members of the staff about the bill and became a self-described point person for fielding questions from lawmakers and other officials. The law passed in early March. Recall campaigns targeting some lawmakers and Governor Walker followed.

While the State Capitol was focused on the public union legislation, the John Doe investigation rolled on. By this time, Archer says, the Milwaukee County D.A.’s Office had “bec[o]me a hotbed of pro-union, anti-Act 10, and anti-Walker activity.” D.A, Chisholm had been a vigorous opponent of Walker for years, ever since Walker’s stint as county executive. (The Milwaukee District Attorney is an elected office, and Chisholm had run as a Democrat.) Archer asserted that Chisholm had promoted Landgraf and David Robles, assistant district attorneys, “at least in part” because they shared Chisholm’s political views; she makes the same claim for the three detective defendants—David Budde, Robert Stelter, and Aaron Weiss.

The John Doe investigation, Archer alleges, was a veiled attempt by the defendants to stop Walker and harass his allies. (Although she claims that D.A. Chisholm’s office had conducted “a continuous campaign of harassment and intimidation” against Walker’s allies since at least May 2010, she alleges facts concerning only the defendants’ opposition to Act 10.) All six defendants worked on the John Doe investigation in some capacity. And although the John Doe proceeding was being conducted under the judge’s secrecy order, word of it seeped out to the news media. Archer believes that this, too, was the work of the defendants, who leaked infor *610 mation in order to sully Archer’s reputation.

The efforts to stop Act 10 failed, and it became law on March 11, 2011. Six months later, the defendants sought and received from the John Doe judge a search warrant for Archer’s home in Madison. The application was supported by a 33-page affidavit from investigator Stelter.

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870 F.3d 603, 2017 WL 3709149, 2017 U.S. App. LEXIS 16493, Counsel Stack Legal Research, https://law.counselstack.com/opinion/cynthia-archer-v-john-chisholm-ca7-2017.