Miriam Estrada-Izquierdo v. Awilda Aponte-Roque, Etc.

850 F.2d 10, 1988 U.S. App. LEXIS 8896, 1988 WL 65033
CourtCourt of Appeals for the First Circuit
DecidedJune 28, 1988
Docket87-1567
StatusPublished
Cited by34 cases

This text of 850 F.2d 10 (Miriam Estrada-Izquierdo v. Awilda Aponte-Roque, Etc.) is published on Counsel Stack Legal Research, covering Court of Appeals for the First Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Miriam Estrada-Izquierdo v. Awilda Aponte-Roque, Etc., 850 F.2d 10, 1988 U.S. App. LEXIS 8896, 1988 WL 65033 (1st Cir. 1988).

Opinions

BOWNES, Circuit Judge.

Awilda Aponte Roque (Aponte), Secretary of Puerto Rico’s Department of Public Education (the Department), appeals from a judgment of the district court reinstating Miriam Estrada Izquierdo (Estrada) as superintendent of schools for the Maricao School District. The district court found that Estrada’s ouster from that position, and her assignment to a specially-created [11]*11position as assistant superintendent in the same district, was effected by Aponte for political reasons, in violation of Estrada’s first amendment rights. Estrada is a member of the New Progressive Party (Partido Nuevo Progresista or PNP) while Aponte is a member of the Popular Democratic Party (Partido Popular Democrático or PPD). Aponte argues that the district court’s finding of political motivation was clearly erroneous or, alternatively, that the district court should have abstained from exercising federal jurisdiction in order to avoid interfering with a comprehensive state personnel regulatory scheme. Aponte also argues that the district court erred in awarding Estrada back pay. We affirm in part, reverse in part and remand.

I. FACTUAL BACKGROUND

This case arises from a court-approved settlement of another political demotion case, which resulted in Estrada’s predecessor, a member of the PPD, being appointed to the position from which Estrada was removed. The background lies in two recent Puerto Rico elections, each of which resulted in the ruling party being swept out of power. In 1976, it was the PNP replacing the PPD, in 1984 vice versa. Each change in power has resulted in a multitude of personnel changes spawning numerous lawsuits alleging unconstitutionally politically motivated firings and demotions. Many of these lawsuits, involving one election or another, have reached this court. E.g., Rivera Fernandez v. Chardon, 648 F.2d 765 (1st Cir.) (1976 election), rev’d, 454 U.S. 6, 102 S.Ct. 28, 70 L.Ed.2d 6 (1981), on remand, 681 F.2d 42 (1st Cir.1982), aff'd sub nom. Chardon v. Fumero Soto, 462 U.S. 650, 103 S.Ct. 2611, 77 L.Ed. 2d 74 (1983); Kercado Melendez v. Aponte Roque, 829 F.2d 255 (1st Cir.1987) (1984 election); Kauffman v. Puerto Rico Telephone Co., 841 F.2d 1169 (1st Cir.1988) (1984 election). This case involves both elections.

In July of 1976, while the PPD was still in power, Carlos Humberto Vega (Vega), an active member of the PPD, was appointed as superintendent of schools for the Maricao School District on a substitute basis.1 In April of 1977, after the change in political power to the PNP, Vega requested that his status be changed from substitute to probationary, in order that he could eventually gain tenure or permanency in the position. Instead, on July 1, 1977, Vega was removed from the superintendency and reinstated to his prior position of assistant superintendent. Along with several other displaced educators, Vega brought suit in the Commonwealth Superi- or Court against Carlos Chardon, then Secretary of the Department of Public Education and a member of the PNP, alleging that his demotion was politically motivated and violated his statutory and constitutional rights.

In May of 1980, the superior court handed down a partial judgment in Vega’s case. Cabiya v. Chardon, Civ. No. PE-77-942 (May 16, 1980). The court held that Vega had no statutory right to a change in his status from substitute to probationary, and thus that he had no claim to tenure under state law. The court, however, reserved judgment until a later date on Vega’s constitutional claims. Those claims were still unresolved in 1981 when Estrada was elevated from assistant superintendent to superintendent in Maricao. Estrada was aware that Vega had sued, claiming a right to the superintendency, and that his claim had been rejected by the superior court on statutory grounds. But Estrada was not aware that Vega’s constitutional claims were still pending. Estrada remained superintendent without incident until January of 1986. During her time as superintendent, she admittedly satisfied all the requirements to obtain tenure in the position.

Meanwhile, in the 1984 elections, Estrada’s party, the PNP, was removed from power and the PPD voted in. Aponte became Secretary of the Department in the new administration, and Vega’s slow-mov[12]*12ing political discrimination case took on a new and interesting posture. Aponte, a member of Vega’s own political party, now became the defendant against charges that Vega should be reinstated because the pri- or secretary had discriminated against Vega on account of his political affiliation. At the same time, the superior court judge overseeing the case set a trial date and began pressing the parties to reach a settlement.

In October of 1985, an attorney at the Department of Justice (DOJ), who was handling the defense of Vega’s case, wrote to Elba Rodriguez Fuentes (Rodriguez), the head of legal affairs at the Department of Public Education, about Vega’s claims. The letter mentioned that the presiding judge was urging settlement and requested that the Department investigate Vega’s qualifications to be a superintendent. The matter was assigned to Alba Nydia Caballero Fuentes (Caballero), the Assistant Secretary for Personnel, who reported back to Rodriguez that Vega could be considered qualified. Rodriguez did not at that time make any recommendation regarding settlement, but left the matter with Caballero, herself an attorney, who was in charge of the matter for the Department.

In the course of her work on Vega’s case, Caballero conferred with an Assistant Secretary at DOJ who indicated that DOJ was recommending settlement because it believed its case was weak. DOJ did not recommend that Vega necessarily be reinstated at Maricao, but only advised that some settlement be reached. Indeed, DOJ forwarded to the Department Vega’s own proposed settlement, under which he would be made superintendent in Lajas, not Mari-cao. Vega was then occupying the Lajas position on an interim basis.

Nevertheless, Caballero, on her own accord, determined that Vega could be reinstated only in Maricao. Caballero reasoned that, under the applicable personnel regulations, if Vega had not been removed in 1977, he would have earned tenure in the Maricao superintendency. Under the Puer-to Rico Permanency Act, P.R. Laws Ann. tit. 18, § 214, such tenure is specific to a particular municipality.2 Thus, reasoned Caballero, any settlement would have to involve the Maricao position and no other. There would be no problem in removing Estrada from the Maricao position, Caballero concluded, because her purported tenure in the position was actually null under state law since Vega’s right to occupy the position was still the subject of litigation. Caballero eventually recommended a settlement, which included reinstating Vega at Maricao. Aponte approved it. Although the actual settlement was executed by DOJ, it is conceded that the settlement would not have been entered into without Aponte’s approval. A judgment embodying the settlement was entered by the superior court on November 25, 1985.

Estrada knew nothing about these 1985 settlement negotiations, and neither DOJ nor the Department informed her that they were considering a settlement that would involve appointing Vega to the position she occupied.

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Cite This Page — Counsel Stack

Bluebook (online)
850 F.2d 10, 1988 U.S. App. LEXIS 8896, 1988 WL 65033, Counsel Stack Legal Research, https://law.counselstack.com/opinion/miriam-estrada-izquierdo-v-awilda-aponte-roque-etc-ca1-1988.