Harris v. City of Philadelphia

47 F.3d 1333, 1995 WL 60780
Court of Appeals for the Third Circuit·Decided February 15, 1995·No. 94-1286·Unknown·Cited by 2 cases

Opinion

*1335 OPINION OF THE COURT

SLOVITER, Chief Judge.

In this appeal, the City of Philadelphia and its responsible officials (jointly City or Philadelphia) appeal from the order of the district court dated February 16, 1994 denying reconsideration of a $125,000 contempt fine imposed on them on June 16, 1993. That fine was levied because the City defendants failed to comply with the court’s earlier order requiring the City to maintain a 90 percent occupancy rate in a residential drug treatment facility.

The City and plaintiffs in this case, a class of inmates in the Philadelphia prison system who filed suit in 1982 claiming unconstitutional conditions of confinement, entered into a consent decree in 1986 (1986 Consent Decree). That decree was partially superseded by a stipulation and agreement approved by the district court in 1991 (1991 Consent Decree), see Hams v. Reeves, 761 F.Supp. 382 (E.D.Pa.1991), under which the City was obliged to provide a 250-bed substance abuse and treatment facility. This particular appeal arises out of that undertaking.

Today we also file two other opinions disposing of several related appeals by the City. The most detailed recapitulation of the underlying facts appears in Harris v. City of Philadelphia, 47 F.3d 1311 (3d Cir.1995) (Harris V), an appeal from the imposition of stipulated penalties in the amount of $584,000 and the dismissal of the City’s Motion to Modify the Consent Decree as a penalty for the City’s lengthy delay in submitting a Facilities Audit and Ten-Year Plan. We file as well an opinion in Harris v. City of Philadelphia, 47 F.3d 1342 (3d Cir.1995) (Harris VII) (an appeal from the adjudication of contempt and imposition of fines arising out of designation of bailable pretrial detainees for release). An earlier opinion was filed from a related appeal argued the same day. See Harris v. City of Philadelphia, 35 F.3d 840 (3d Cir.1994) (Harris IV). This opinion will set forth only those facts necessary to decide the issues presented in this appeal.

I.

Facts and Procedural History

Paragraph 16 of the 1991 Consent Decree provides, in relevant part:

Not later than April 3, 1991, defendants shall contract for and provide a minimum of 250 beds in a program or programs that provide alcohol and substance abuse rehabilitation, training and other support services .... The beds and services provided pursuant to this Paragraph 16 shall be reserved for persons who would otherwise be committed to or retained in the custody of the Philadelphia Prisons. Defendants shall have discretion in selecting the program provider(s), but may not reduce or discontinue the provision of such programs without Court approval.

App. at 115-16.

It was understood that this program for alcohol and substance abuse rehabilitation was designed for 250 persons already in or sentenced to the Philadelphia prison system as an alternative to incarceration in existing facilities. To comply with paragraph 16, the City contracted with the Greater Philadelphia Center for Community Corrections (GPCCC) to provide the required 250 beds in a single facility. 1

However, by June 13, 1991, the GPCCC facility was still not operational because necessary renovations had not been completed. At a status hearing on that date, the district court announced its intention to enter an order “that the 250 beds be available by June 30th. And that the City be fined for any day that the beds are available and it’s not filled to 90 percent of capacity.” SuppApp. at 969. Significantly, the City Solicitor, who was present, did not object to the proposed order but merely requested that the proposed date be extended. The relevant colloquy was as follows:

MS. LILLIE: [W]e could get to capacity in about 30 days, to 90 percent.
THE COURT: Good.
MS. LILLIE: And I would respectfully request that the point at which you are *1336 going to impose fines would be 30 days beyond today as opposed to June 30th.
* * * * * *
THE COURT: —all right....
MS. LILLIE: Thank you, your Honor.

Supp.App. at 974.

As a result, on July 2, 1991 the district court entered an order which provided, in relevant part:

The 250 treatment beds that the City agreed to provide by April 3, 1991, pursuant to Paragraph 16 ..., shall be available and the facility filled to at least 90% (225 residents) of capacity by July 15, 1991.

App. at 199 (referred to as the July 2, 1991 Order). The order also provided that the City must pay a fine of $500.00 per day for every day after July 15, 1991 that 250 beds were not available or at least 90 percent occupied. App. at 199-200. The City neither objected to nor appealed from the district court’s July 2, 1991 Order.

On October 10, 1991, following a hearing, the district court held the City in contempt, imposing $44,000 in fines for the City’s “continued failure” to fill the GPCCC facility to 90 percent of capacity. App. at 201. The City paid the fines and did not appeal that order. On the same day, the district court vacated the July 2, 1991 Order to a date certain 2 and suspended further accrual of fines until November 25, 1991 to allow the parties to develop a protocol for sending eligible inmates to the GPCCC facility at the time of sentencing. Because the protocol had not been completed as planned, the question of further fines did not arise at the November 25, 1991 hearing.

In the following months, the GPCCC facility population fluctuated but it was never again 225 after April 15, 1992. Supp.App. at 624 (Fortieth Report of Special Master). The special master repeatedly found that the City remained out of compliance with the July 2, 1991 Order. On July 17, 1992, after reviewing the special master’s Thirty-Seventh Report, the district court issued a Rule to Show Cause ordering a hearing to determine whether the City should be fined an additional $37,000 for 74 days during which the GPCCC facility was not 90 percent occupied. Supp.App. at 1139. After the hearing, the court deferred until the next scheduled compliance hearing a decision on the amount of fines owed by the City, based on the City’s representation that the GPCCC facility would begin accepting pretrial detainees to increase the occupancy level. Supp.App. at 1142 (Order of August 4, 1992).

The assignment of pretrial detainees to the GPCCC facility failed to raise its population above 225, and on October 16, 1992, the district court ordered the special master and an independent expert to evaluate the GPCCC program and recommend changes to make the program more effective. During the evaluation process, the court again deferred the imposition of fines. SuppApp. at 625 (Fortieth Report of Special Master).

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Harris v. City of Philadelphia, 47 F.3d 1333, 1995 WL 60780 (3d Cir. 1995).

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