Quality Living, Inc. v. State Department of Public Health

711 So. 2d 1021, 1997 Ala. Civ. App. LEXIS 828, 1997 WL 641015
CourtCourt of Civil Appeals of Alabama
DecidedOctober 17, 1997
Docket2960554
StatusPublished
Cited by1 cases

This text of 711 So. 2d 1021 (Quality Living, Inc. v. State Department of Public Health) is published on Counsel Stack Legal Research, covering Court of Civil Appeals of Alabama primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Quality Living, Inc. v. State Department of Public Health, 711 So. 2d 1021, 1997 Ala. Civ. App. LEXIS 828, 1997 WL 641015 (Ala. Ct. App. 1997).

Opinion

HOLMES, Retired Appellate Judge.

Quality Living, Inc., and Leonore Cooper appeal from a summary judgment entered in favor of the State Department of Public Health (Department).

Quality Living is an assisted living facility (ALF),1 and Leonore Cooper is the sole owner and operator of that facility. At the outset we would note that the Department and Quality Living have been involved in previous state and federal litigation, involving some of the same issues raised by Quality Living in the instant appeal. Therefore, in order to gain a better understanding of the issues at hand, this court deems it necessary to narrate the facts and the events that give rise to the present action.

The Department initially issued Quality Living a provisional license in 1985. Over a one-year period, the Department conducted approximately ten inspections of Quality Living’s facility.2 According to the Department, [1023]*1023some of these inspections were prompted by complaints that the Department had received about Quality Living’s operations, while others were just normal regulatory inspections. We would note that in addition to inspecting the actual physical facility, the inspectors also have a duty to assess the residents for the purpose of determining whether their health care needs are being met.

In any event, the inspections revealed that Quality Living had violated a number of the State Board of Health rules, including housing residents whose personal health care needs exceeded the level of care that an ALF is authorized to provide. As a result, following an administrative hearing on February 22, 1990, the Department revoked Quality Living’s license.

Quality Living appealed to the Circuit Court of Montgomery County, contending that the Department’s rules regarding resident eligibility were discriminatory and that such rules violated the federal Fair Housing Act. Specifically, Quality Living contended that the residents, regardless of their physical and mental condition, should have been able to decide where they wanted to live.

As a result of that appeal, the Department and Quality Living entered into a consent agreement, which required Quality Living, among other things, to discharge certain residents who, the Department determined, were ineligible to remain at Quality Living because of their need for advanced care. The Department, in turn, agreed to issue Quality Living a regular license once Quality Living had complied with the terms of the consent agreement.

The trial court entered a consent judgment on February 12,1992, which incorporated the settlement agreement. The consent judgment required that the Department conduct a follow-up inspection by February 28, 1992, to determine if Quality Living had resolved its deficiencies.

After conducting a follow-up inspection, the Department learned that Quality Living had not complied with the consent judgment because it had failed to discharge two of the ineligible residents. Therefore, the Department did not issue Quality Living a license. On May 26, 1992, one of the ineligible residents, through her brother and next friend, filed a complaint in the United States District Court for the Middle District of Alabama. In essence, the resident challenged the Department’s eligibility rules, contending that the rules violated the federal Fair Housing Act (FHA), 42 U.S.C. §§ 3601-3631 (1991), as well as the Americans with Disabilities Act (ADA), 42 U.S.C. §§ 12101-12213 (1991). The resident also named Quality Living as a defendant in the suit. Wé noté that at some point during the pendency of the federal litigation, the Department voluntarily issued Quality Living a provisional license to prevent Quality Living from being totally unregulated.

On September 30, 1994, the federal court entered a memorandum opinion and order in favor of the Department, finding that the Department’s eligibility rules did not violate the FHA or the ADA. The court stated the following in its order:

“The undisputed, legitimate interest of the [Department] is to ensure the safety of ALF residents by preventing residents requiring greater levels of care than ALFs are licensed to give from residing at ALFs.... The court finds that to require the Department to reasonably accommodate Mrs. O’Neal by allowing her to remain at Quality Living would undermine the basic purpose of the Department regu-lation_”

O’Neal v. Alabama Dep’t of Public Health, No. 92-D-633-N, slip op. at 12 (M.D.Ala. September 30, 1994) (citations omitted). The ineligible resident, through her brother and next friend, appealed. However, the resident died, and the appeal was, thus, rendered moot.

In December 1994 Quality Living once again applied to the Department for a license, since its provisional license had expired. On March 28, 1996, several members of the Department staff made an unannounced visit to Quality Living for the purpose of conducting an inspection to determine if Quality Living was in compliance with [1024]*1024the State Board of Health rules. The staff was accompanied by Marie Tomlin, the State Ombudsman, an advocate for the aging, who is employed by the Alabama Commission on Aging.

When the staff arrived at Quality Living on March 28, 1995, Cooper, the owner, was not present. According to one of the staff members, Cooper indicated in a telephone conversation that she did not wish for the Department staff to conduct the inspection in her absence.3 The Department staff left Quality Living without conducting the inspection.

On March 29, 1995, several of the Department staff made another unannounced visit to Quality Living for the purpose of conducting an inspection. Cooper was present when the Department staff arrived. However, she requested that the Department staff “wait” until she contacted the family members of the residents to obtain permission for the Department staff to perform assessments on the residents. Cooper reminded the Department staff that she had several letters from family members who opposed the assessments. In fact, one of the family members called Quality Living and instructed Cooper not to allow the Department staff to question or to assess his relative. Another resident indicated in Cooper’s presence that she did not want to talk to the Department staff. As a result, the Department staff left Quality Living again without conducting an inspection. According to the Department, Cooper had been urging the residents and their family members not to talk to the Department staff or to allow the Department staff to conduct assessments.

On April 11, 1995, the Department’s attorney informed Quality Living’s attorney that the Department would still consider issuing Quality Living a license provided Quality Living grant the Department full access to conduct an unannounced survey, which would include “unimpeded” access to the residents of the facility.

Quality Living’s attorney replied that Cooper was “ready, willing, and able to have an inspection of her facility and records.” However, the attorney reiterated that “the residents and families object to ... assessments.” The Department did not regard Cooper’s response as “adequate or in good faith.”

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711 So. 2d 1021, 1997 Ala. Civ. App. LEXIS 828, 1997 WL 641015, Counsel Stack Legal Research, https://law.counselstack.com/opinion/quality-living-inc-v-state-department-of-public-health-alacivapp-1997.