Police reform shines light on disciplinary records

CC0 Pixabay via picryl

A favorable reform to follow the police protest movement of recent years, stemming in particular from the killing of George Floyd, has been transparency around police disciplinary dispositions.

There is room for disagreement over what police reform should look like. I'm of the opinion that it costs society more to have police managing economic and social problems, such as homelessness and mental health, than it would cost to tackle those problems directly with appropriately trained personnel. I wouldn't "defund" police per se, but I would allocate public resources in efficient proportion to the problems they're supposed to remedy. We might not need as much prison infrastructure if we spent smarter on education, job training, and recreation.

Regardless of where one comes down on such questions, there is no down-side to transparency around police discipline. Police unions have cried privacy, a legitimate interest, especially in the early stages of allegation and investigation. But when official disciplinary action results, privacy should yield to accountability. 

Freedom-of-information (FOI) law is well experienced at balancing personnel-record access with personal-privacy exemption. Multistate FOI norms establish the flexible principle that a public official's power and authority presses down on the access side. Because police have state power to deprive persons of liberty and even life, privacy must yield to access more readily than it might for other public employees.

In September 2023, Stateline, citing the National Conference on State Legislatures, reported that "[b]etween May 2020 and April 2023, lawmakers in nearly every state and [D.C.] introduced almost 500 bills addressing police investigations and discipline, including providing access to disciplinary records." Sixty-five enacted bills then included transparency measures in California, Colorado, Delaware, Illinois, Maryland, Massachusetts, and New York.

The Massachusetts effort has come to fruition in online publication of a remarkable data set. Legislation in 2020 created the Massachusetts Peace Officer Standards and Training (POST) Commission. On the POST Commission website, one can download a database of 4,570 law enforcement disciplinary dispositions going back 30 years. There is a form to request correction of errors. The database, at the time of this writing last updated December 22, 2023, can be downloaded in a table by officer last name or by law enforcement agency, or in a CSV file of raw data.

The data are compelling. There are plenty of minor matters that can be taken at face value. For example, one Springfield police officer was ordered to "Retraining" for "Improper firearm usage or storage." I don't see that as impugning the officer, rather as an appropriately modest corrective and a positive for Springfield police. Many dispositions similarly suggest a minor matter and proportional response, for example, "Written Warning or Letter of Counseling" for "conduct unbecoming"/"Neglect of Duty."

Then there are serious matters. The data indicate termination of a police officer after multiple incidents in 2021, including "DRINKING ON DUTY, PRESCRIPTION PILL ABUSE, AND MARIJUANA USE," as well as "POSING IN A HITLER SALUTE." Again, it's a credit to the police department involved that the officer is no longer employed there. Imagine if such disciplinary matters were secreted in the interest of personal privacy, and there were not a terminal disposition.

The future of the POST Commission is to be determined. It's being buffeted by forces in both directions. Apropos of my observation above, transparency is not a cure-all and does not remedy the problem of police being charged with responsibility for social issues beyond the purview of criminal justice.

Lisa Thurau of the Cambridge-based Strategies for Youth told GBH in May 2023 that clarity is still needed around the role and authority of police in interacting with students in schools. Correspondingly, she worried whether the POST Commission, whose membership includes a chaplain and a social worker, is adequately funded to fulfill its broad mandate, which includes police training on deescalation.

Pushing the other way, the POST Commission was sued in 2022, GBH reported, by police unions and associations that alleged, ironically, secret rule-making in violation of state open meetings law. Certainly I agree that the commission should model compliance in rule-making. But I suspect that the union strategy is simply obstruction: strain commission resources and impede accountability however possible. Curious that the political left supports both police unions and police protestors.

WNYC has online a superb 50-state survey of police-disciplinary-record access law, classifying the states as "confidential," "limited," or "public." Massachusetts is among 15 states in the "limited" category. My home state of Rhode Island and my bar jurisdictions of Maryland and D.C. are among the 24 jurisdictions in the "confidential" category.

"Sunshine State" Florida is among 12 states in the "public" category. In a lawsuit by the Tallahassee Police Benevolent Association, the Florida Supreme Court ruled unanimously in November 2023 that Marsy's Law, a privacy law enacted to protect crime victims, does not shield the identity of police officers in misconduct matters. (E.g., Tallahassee Democrat.)

Western myopia marginalizes war in Sudan, Ecuador

My prayers, especially over the recent holidays, have admittedly felt cliché, if not comical, being dominated by desire for "world peace."

In case Ricky Gervais is right and prayer works like a democratic election (jk; it doesn't), I've focused on the conflicts of the world that my otherwise-trusted David Muir & co., reporting on Israel and Ukraine, seem quick to forget: Sudan and Ecuador.

I've written previously about Sudan (Apr. 2023, Sept. 2023). The New York Times in December reported a death toll in excess of 10,000 and displaced persons rounding 6 million. My friend from Khartoum remains safe abroad, but it looks increasingly like there will be nothing to come home to. I just read in Christianity Today that hospitals have been targeted and destroyed by the warring generals in the unscrupulous scorched-earth struggle.

I'm the last to rush to judgment with the r-word, but is there another explanation for seeming western indifference to this ongoing tragedy?

And then there's Ecuador, which in recent weeks also has entered a chaotic kind of civil war. It's a country dear to me for personal history there, but also of professional interest for fascinating and groundbreaking developments in constitutional law in recent years.

The Daniel Noboa Administration declared war on organized crime after drug lords were broken out of prison, almost certainly with the help of corrupt insiders. As Noboa cracked down, the country was besieged by retaliatory violence, especially in the Guayaquil Canton.

Efforts to remedy the desperate situation are closely related to the social and economic prosperity Ecuador experienced in recent decades. Ecotourism, again especially in Guayaquil, an access point for the Galápagos, had been an engine of economic and social development, precipitating recognition of rights of indigenous people and of nature with which the nation's courts were experimenting.

When I was last in Guayaquil about a dozen years ago, it was safe enough to walk around, for me, at least, by day. Security and the economy were on the upswing. On January 9, 2024, in contrast, the world was horrified to see armed terrorists, some of them teenagers, holding guns to the heads of journalists in a Guayaquil news station broadcasting live. My friend Ugo Stornaiolo Silva, an Ecuadorean lawyer living and working in Poland, reports that his family in Ecuador is safe, but the hatches are battened down. Domestic travel is out of the question.

Elected only in November 2023, Noboa promised to get a grip on drug trafficking and restore the rule of law. In a sense, then, the present violence is a promising sign of a much needed reckoning. Yet it remains to be seen whether the cause is winnable. Observers predict a bloody road ahead, or maybe worse if Noboa wavers in his resolve.

Ecuador's problem is part of the wider narrative of drug trafficking and human migration through Colombia and Central America, driven by the wealth, demand, and relative opportunities of the United States. America's backyard is declining into a mega-narco-state, while neither of our only choices of political party has demonstrated the will or ability to tackle the problem even in its domestic dimension.

Say what you will about China, the PRC recognizes that stability in its neighborhood is essential to the country's own national security. The means to the ends of course are problematic, exemplified by Nauru's recent change of alignment from Taiwan to China. But that matter again demonstrates the ascendancy of Chinese foreign policy over America's apparent appetite for isolationism.

Pray for world peace, as a spiritual matter. Know that it will only happen with American commitment, as a political matter.

*     *     *

As often happens in the course of the school year, my personal blogging in the fall semester had to yield to professional workload. I have been logging matters I'm eager to share and will endeavor to catch up in the coming months.

War protests expose double standards in higher ed

Ted Eytan CC BY-SA 4.0

I've refrained from commenting on the Israel-Hamas war, specifically and especially on the eruption of conflict, mostly, fortunately, non-violent, in higher ed in the United States, in which my own interests in academic freedom and free speech are most immediately implicated.

Despite my reticence—I'm under water with exams and a textbook deadline, though I follow the war closely in the news and remain in contact with friends in Tel Aviv—I read something in The New York Times that hit the nail on the head, so I want to amplify it.

In "Why Campus Speech Is Vexing" for The Morning from the Times, David Leonhardt wrote today:

[U]niversity leaders do face a basic choice. Do they want to expand the list of restricted speech to include more statements that make conservatives, Jewish students and others feel unsafe? Or do they want to shrink the list and tell all students that they will need to feel uncomfortable at times?

What since-resigned UPenn President Liz Magill said to Congress—essentially that the First Amendment protects a call for the genocide of Jews in the political abstract, absent hallmarks of unprotected speech such as incitement to imminent violence, or the severity and pervasiveness that characterize harassment—however socially and politically tone deaf, was technically a correct statement of the law from the former professor of constitutional law and Stanford Law dean.

The problem that Leonhardt recognized is that the First Amendment is not the standard that university administrators and their henchpersons have been applying on campuses for decades. Rather, hate speech codes, anti-discrimination policies, anti-bullying rules, and related prohibitions have proliferated and been enforced vigorously, First Amendment notwithstanding. And the standard has been a double one, because enforcement has been variable based on viewpoint, protecting only favored classes of minority persons or condemning disfavored, read: politically incorrect, viewpoints.

The problem is only compounded for university faculty, who are supposed to be the standard bearers for free expression, but have our livelihood hanging in the balance. At renowned schools where misdoings garner headlines, faculty might have a fighting chance to protect themselves. But what I've seen at the universities where the rest of us work, in the trenches, faculty routinely are intimidated, disciplined, and terminated for not toeing the line. When it happens in flyover country or in the lowest tiers of rankings, no one bats an eye.

When I was accused of stepping out of line years ago at another institution, Foundation for Individual Rights in Education founder Harvey Silverglate gave the local paper a quote condemning me. He apparently responded to the paper's inquiry with the assumption that a typically liberal law prof had gone off the rails. He failed utterly to learn anything about the case before he opined on it. When a mutual friend reached out to tell him that "he got it wrong," FIRE adjusted its public position thenceforth. But Silverglate never retracted his remarks, nor ever said anything apologetic to me.

At the University of Massachusetts Law School, which ranks at #167 in the U.S. News ranking of U.S. law schools, I've been told that University of Massachusetts policy, which requires that all employees show "respect" for all other employees, is violated by calling out misfeasance. So when I see an opportunity through faculty governance to do things better for our students and our community, I keep my mouth shut.

Tenure means nothing in these fights. I wrote many years ago about that paper tiger. Big-name-school academics, who don't have to toil at the hamster-wheel-spinning labor of assessment data collection and interim-strategic-plan-benchmark-attainment reports, don't well understand how faculty governance roles, as distinct from teaching and research responsibilities, are weaponized against faculty in the schools of the trenches.

Just last week, I completed a survey on academic freedom by the University of Chicago NORC that asked about ideological intimidation of faculty. The check-all-that-apply list of contexts in which intimidation or suppression of viewpoints might happen named a range of research and teaching contexts, but, true to form, University of Chicago, said almost nothing about school and university service roles. I added the response in "Other."

Professor Keith E. Whittington recently published a characteristically compelling paper on faculty "intramural speech" and academic freedom. It doesn't cite my 2010 work, in which I coined the term "penumbral academic freedom." I was working in a flyover state then, so it's like the paper never existed. Or maybe, as an east-coast, Duke Law would-be mentor once gently advised me when I was toiling voicelessly in flyover country, I should accept that my writing just isn't very good.

Well, I digress. My aim here is principally to say: When Magill fell, and as Harvard President Claudine Gay flounders, I'm torn between a head-shaking sorrow for the supposed quintessential marketplace of ideas and a mite more than a modicum of schadenfreude.

Back to work. The provost's dusty bookshelf is crying out for another strategic plan, and these exams aren't going to grade themselves.

FTC 'junk fees' proposal needs tightening

The CFPB is attacking junk fees in banking. The FTC rule
would govern consumer sales transactions. CFPB image.

Today I submitted the following comment to the Federal Trade Commission on the notice of proposed rule-making regarding "Trade Regulation Rule on Unfair or Deceptive Fees." These are the "junk fees" that the Biden Administration has pledged to combat.

The NPRM was published on November 9, 2023. You too can comment at the Federal Register website. You can bet that business will be crying loudly about the impracticality of simply telling customers what the price of a thing is.

I support the proposed rule, though I don't think it goes far enough. My comment focuses on select points of ambiguity on which already I foresee business intransigence.

Elsewhere in the world, even tax is part of a price. When my friends and family visit from abroad, they are flummoxed by the repeated experience of seeing a price and then having to pay more. For some reason we countenance this in America, as if in some kind of wild West approach to market regulation, it's OK for a seller to put a gun to the consumer's head at the point of sale. As I say in my comment, that is not what "free market" means.

---

December 6, 2023

I support the proposed rule because I support free-market transaction and regulatory policy. A free market requires transparency around the terms of transaction to both buyer and seller. When a buyer is surprised by junk fees, that is, fees that are applied to a transaction after the customer believes that she or he has concluded negotiation of the terms, the seller is able to conclude the transaction upon an unfair advantage. It is an appropriate role for government regulation to level the marketplace by ensuring transparency, and that means upfront total pricing.

I note [a] point of potential ambiguity, and, thus, potential abuse by sellers. In the proposed rule, “Government charges” are defined as

all fees or charges imposed on consumers by a Federal, State, or local government agency, unit, or department. This definition covers only fees or charges imposed by the government on consumers and does not encompass fees or charges that the government imposes on a business and that the business chooses to pass on to consumers.

I anticipate argument over two points.

First, I expect that quasi-governmental actors, such as a corporations created by statute, and government contractors, such as service concessionaires, are not agencies of government. Sellers might disagree.

Second, if a governmental actor compels a seller to report and pay a per consumer or per transaction fee, I expect that the fee is nonetheless a fee that the business “chooses to pass on to consumers.” Sellers might disagree.

By way of example, I have just made a car reservation with Avis at BWI. My upfront price was $104.82.

On the payment page, the following fees were added:

• Concession Recovery Fee (11.11%): 12.27
• Customer Facility Charge-3.75/day: 7.50
• Transportation Facility Charge-2.25/day: 4.50
• Vehicle License Fee-0.56/day: 1.12
• Total Tax: 14.97

The additional fees sum $40.36, which is a 38.5% markup on the upfront price.

All of these fees are sanctioned by Maryland law. The former two fees are passed on by Avis to the Maryland Airport Authority (MAA), and the latter fee is, self-evidently, a tax. I do not know the beneficiary of the penultimate two fees, but I assume that the Transportation Facility Charge goes to an MAA shuttle contractor.

So first, is the MAA contractor a “government agency, unit, or department” under the proposed rule? I suggest no, because contractors and concessionaires, like quasi-governmental “sue or be sued” entities created by Congress, are expected to comply with the rules of the competitive marketplace when they act in a commercial capacity. However, Avis might disagree, arguing that the fee is set by the MAA. The MAA is a governmental unit of Maryland state government.

Second, are these fees “impose[d] on a business[,] and … the business chooses to pass [them] on to consumers”? I suggest yes, because Avis owes these fees to the MAA, et al., but is not obligated to pass them on to consumers. As long as Avis accounts for the fees with the government, Avis remains free to price its services as it pleases. Moreover, to calculate the state tax on the car rental, 11.5%, the tax basis includes the fees. Thus, it seems plain to me that the fees represent the price of service and are not akin to a tax that is imposed upon the transaction. However, Avis might disagree, arguing that the seller is a mere conduit for fees set by the MAA.

I suggest that the junk-fee rule is virtually impotent in a broad range of transactions if it does not address fees in a transaction such as this one. While I might like to see tax and all incorporated into upfront pricing—as it is in countries the world over—I understand that that is not the American custom. But any fee besides tax on sale or service should be disclosed to a customer as part of an upfront price. Otherwise, the proposed rule is completely undermined. I must go all the way to the payment page of the Avis transaction before I discover the actual price, a substantial markup, for the transaction I desire.

I hope you will clarify that government contractors and comparable quasi-governmental actors are not governmental actors within the meaning of the proposed rule. And I hope you will clarify that government-sanctioned fees that are incorporated into the tax basis of a transaction, even if imposed on a per customer or per transaction basis, are fees that a seller “chooses to pass on to consumers.”

Professor Marshall Shapo leaves extraordinary legacy

Marshall S. Shapo
Northwestern photo by Jasmin Shah

Barukh atah Adonai Eloheinu melekh ha'olam, dayan ha-emet. 

A luminary in American legal education, a brilliant scholar in torts, and a dear mentor and friend, Professor Emeritus Marshall S. Shapo died Friday, at 87, in Chicagoland.

A professor at Northwestern University Law School for more than 40 years, most of his more-than-half-century academic career, Shapo was a prolific scholar and award-winning authority on torts and product liability law. In his books, articles, and teaching, Shapo saw tort law as inextricable from culture, politics, and society. Accordingly, he approached his subject matter holistically, embracing historical, economic, and critical perspectives as all essential, and none alone definitive, to understand the law.

It was that breadth of perspective that prompted me to adopt the second edition of Shapo's Tort and Injury Law as my textbook when I started teaching torts 20 years ago, in 2003. Reflective of Shapo's versatility of mind and insatiable curiosity, his pedagogy challenged students at once with writings in ancient philosophy and religion, and with theories of economics and feminism. References to the Torah appeared alongside excerpts from research in the latest interdisciplinary social science.

I reached out to Marshall in 2003 for guidance in using his book; I did not then suspect that he would become my extraordinary mentor. I was privileged to join Tort and Injury Law as a co-author for the third edition in 2006. My teaching today in torts, and in Tortz, is and forever will be a product of Shapo's worldview. His teaching lives on in my career and classes, and no doubt in the practices and lives of his generations of students and mentees, and theirs in turn.

Yet Tort and Injury Law was a only small part of Marshall's importance to me. Of incalculable value were his insights into academic life, his counsel, especially in times of hardship, and, so often, simply his enduring friendship. As relentlessly busy and productive as he always was, he called me periodically with no agenda, just to check in. However much I wished not to burden him with mundane ups and downs, he somehow, with the skill of a seasoned counselor, elicited my confessions. His humility and wisdom were invariably comforting. Never was there a frustration—a discontented student, a shortsighted colleague—that Shapo had not faced and hurdled already in his career: evidence that I, too, could land well on the other side.

Shapo above else modeled balance of work and life. His obituary honors his surviving wife, Helene—also an inspiring and renowned legal educator—sons, Benjamin and Nathaniel; and six grandchildren and great-grandson.

Appropriately, Shapo's family led off the obituary, before any mention of his career. Marshall himself placed his wife and sons at the top of his CV. Never did I have a catch-up conversation with Marshall in which he did not update me on their well-being. When speaking of grandchildren, he radiated with a joy that not even product liability litigation could evoke. All of his accomplishments and honors as a lawyer and educator meant nothing to him in comparison with his devotion to family.

Marshall, rest in peace.

The Shapo family invites memorial contributions to the American Parkinson's Disease Association, P.O. Box 61420, Staten Island, N.Y. 10306.

Gunshots are the soundtrack of America

A shooting range features at Elvis's Graceland.
Adam Fagen via Flickr CC BY-NC-SA 2.0

'Tis the season for gunshots and sirens.

The last weekend in October, I spent the night at a Memphis hotel near the airport to catch a 5 a.m. flight homeward. I pulled up to the hotel on Elvis Presley Boulevard in the Whitehaven neighborhood to see people running and chaos at the restaurant across the street, Tha Table. Before long, police came streaming in, sirens blaring. A fire engine and an ambulance followed.

Two men were shot and killed. One was the owner of Tha Table; it looks like he came out into the parking lot to confront would-be car thieves, one of whom shot him with an automatic weapon. The other person killed was a bystander "in the wrong place at the wrong time," Fox 13 Memphis said, merely driving by with his three young children in the car on the way to a park.

A man arrested in the shooting, police say found with weapons including an AR-15 and a Glock with switch (converting the pistol into an automatic weapon), blames his companions for firing the fatal shots, Fox 13 reported.

When I left the hotel later that night, to go to a gym in West Memphis, I had to ask police to let me drive out and back under yellow tape that had cordoned off the block.

That shooting occurred as I arrived at the Red Roof Inn at about 3:30 p.m.  Just eight minutes later, two-and-a-half miles down the same road, a 15-year-old was shot at an Exxon station. According to WREG, he was selling water at the side of the road at the time. He was transported by a private car to the hospital and reported in critical condition.

When I came back from the gym, I fueled up at that Exxon, to return my rental car full the next morning. I didn't know about the second shooting until I got back to my room and checked the news about the first shooting.

About 60 hours later, a 19-year-old sitting in his car at a gas station in West Memphis was fatally shot multiple times by another customer, KARK reported. I was long gone, but that shooting took place 500 feet from the gym I had gone to, just around a corner. I learned of that third shooting when I checked the news to see if anyone had been arrested in the earlier two.

It happens that while I was in Memphis and Arkansas, I visited an old friend and mentor I had not seen in many years. He retired in recent years from work in Memphis and told me he wants to move away. He's tired, he said, of having to worry every day about being car-jacked.

I also visited my aunt and uncle at their home in south Little Rock. They've been renovating, and their place looks great, homey. They're very happy there, my uncle said, except only for the unwelcome ring of gunshots at night. Sometimes the shots ring so close to the house that they fear they're being targeted. My uncle, a Vietnam vet, lamented of the contemporary life of youth in the Little Rock neighborhood: "I'd rather be judged by twelve than carried by six."

When I boarded my plane home from Memphis, I overheard one flight attendant telling another that she's looking for a new apartment. She was working through the calculation of finding lower rent, but having to hear gunshots at night.

As I rejoined the world that Monday, I learned about the Lewiston, Maine, shootings, and that the suspect was found dead from a self-inflicted gunshot wound. He had killed 18 people and injured 13 just before I left home for Memphis. Ensconced as I was in my business away, I had not known the details. It was a kind of blessing, I figured, that I didn't know what was happening. While the suspect was at large, I did not know to worry about my wife in Rhode Island or a friend's son at university in Vermont.

I'm not a gun control advocate. I believe the Supreme Court got it right when it said that the Second Amendment protects an individual right to bear arms. I'm informed by the Second Amendment analysis of my constitutional law professor, William Van Alstyne. I believe that the Second Amendment anticipated the possibility that revolution might one day again be necessary.

At the same time, I don't want life cut short for me, my family, or my friends just because I drove to the park at the wrong time, or a stray bullet pierced the walls of my home. The price of the Second Amendment cannot be that gunshots and sirens are the soundtrack of American life.

Sorry, if you read this far thinking I'd have the answer; I don't. 

I want to be prepared to revolt when the time comes, because I think that corrupt politicians already have aggrandized an excess of power; that they now represent corporations, not constituents; and that the federal legislature has become perhaps irretrievably dysfunctional.

I also want the people I love to be safe against meaningless violence. I don't want to live in the Wild West of the movies.

I want my tres leches and to eat it too.

Court quashes $19m side deal in casino creation

Encore Boston Harbor, shiny and new in 2018.
Photo by Pi.1415926535 via Wikimedia Commons CC BY-SA 3.0

A $19m side deal in a major casino real estate transaction is invalid and unenforceable as a matter of public policy, the Massachusetts Supreme Judicial Court ruled this morning.

The ruling demonstrates the rarely seen hand but overriding importance of public policy in the law of obligations. The state high court was answering a certified question from the First Circuit.

First, some context.

For the record, nobody does corruption in America like northeasterners. It's been eye opening for me, living in this part of this country for the first time in my life, since moving here in 2011: the weird way roads and bridges remain perpetually under construction for decades—the orange barrel is said to be Rhode Island's state flower; the revolving doors that shuffle politicians between corporate boards and regulatory bodies and back again. Everywhere I've lived—"developed" world or not—I've seen the continuum of corruption that runs from smoke-filled rooms to the open-and-legal-yet-shocking. But you have to take your hat off to the New York-Boston corridor, where milking the system is a way of life. If the taxpayer is a cash cow, then this is Big Ag.

It's for that reason that I have found myself strangely attracted, like a rubbernecker to a car wreck, to everything having to do with the creation of a Wynn-operated casino complex, the Encore Boston Harbor, in the once rusty, quaint, and relatively sleepy Boston suburb of Everett. 

I liked Everett when I discovered it. It's rough around the edges, but genuine. I had to be there now and then, and I found both a corner bar and a gym I liked. Everett reminded me of the working-class neighborhoods of my hometown Baltimore. First news of a casino project in Everett broke when I arrived in New England in 2011, so I became interested in the natural social science experiment that ensued.

A piece of the development of the Encore project landed in the courts. When Wynn enterprises sought to site a casino in Everett, they offered to buy land from an outfit called FBT Everett Realty, LLC, for $75m. And because Wynn also was looking for a casino license, the real estate transaction drew the attentive oversight of the Massachusetts Gaming Commission.

As anyone who studies development will tell you, these major land acquisitions are always suspect. I remember when Baltimore announced plans to build the twin Ravens and Orioles stadiums in the heart of downtown, and there were rumblings, however futile, about the strangely coincidental land rush that had occurred in the area prior to the announcement. Too many buyers had political connections, and they profited handsomely by flipping their deeds over to the quasi-public stadium projects. That's how economic opportunity works in America, at least for people who pay the lower tax rates for capital gains.

In Massachusetts in 2011, the commonwealth had newly opened itself to big-time, Las Vegas-style gambling, so the commission was under heavy scrutiny to do its due diligence. Though it couldn't prove the precise relationship, as the Supreme Judicial Court explained, the commission suspected that an FBT co-owner was "a convicted felon with possible connections to organized crime": naturally, a red flag in gaming regulation. To its credit, the commission put the brakes on the real estate transaction and conditioned its casino approval on a renegotiation. FBT had to buy out its suspicious stakeholder, and the purchase price was dramatically reduced to $35m.

One minority owner of FBT was unhappy with the new deal and demanded compensation for the reduction. It happened that the same minority owner had bought out the interest of the problematic co-owner and still owed him money. To quell the quarrel and get the deal done, Wynn made a side deal in which it would pay the minority owner $19m, a proportional share of the price reduction that had satisfied the commission.

Wynn didn't pay, and the minority owner sued, alleging breach of contract, common law fraud, and unfair trade practices under the commonwealth's powerful and wide-ranging consumer protection statute, "chapter 93A." Ultimately resulting in the instant case, the First Circuit asked the Massachusetts Supreme Judicial Court to assess the enforceability of the side deal.

The high court opened its analysis with the supreme public policy of America, "The general rule of our law is the freedom of contract" (quoting Massachusetts precedent that in turn quoted the U.S. Supreme Court in Smith v. The Ferncliff (1939)). "However," the court qualified, "it is 'universally accepted' that public policy sometimes outweighs the interest in freedom of contract, and in such cases the contract will not be enforced" (also quoting state precedents).

I just finished a unit of 1L torts in which the class sees the interaction of tort with contract and equity principles in the assumption of risk. Specifically, we see how theories in equity, if rarely, can quash a cause of action or vitiate an affirmative defense. I hasten to clarify that public policy, like equity, is not a rule of law. It's like someone saying to the court "I should win, despite the rule, because that's what's best for society." It's why the judge gets to wear a sharp black robe, sit on a dais, and wield a gavel: to bring human judgment to bear when the usual operation of law would defy common sense. It's why judges cannot be replaced by AI. Yet.

Gaming regulation is among the "core police powers" of the political branches, the court reasoned. And the legislature clearly empowered the gaming commission to ensure "the integrity of the gaming licensing process" with "strict oversight" and "a rigorous regulatory scheme." The $19m side deal was within the scope of the commission's broad mandate. The deal had not been disclosed to the commission and it was inconsistent, the court opined, with the property sale that the commission approved.

The court had little trouble concluding: "Secret deals in violation of the public terms and conditions required for gaming licensure are unenforceable violations of public policy. They place in grave doubt the integrity of the public process for awarding the license, and thereby defeat the public's confidence in that process."

The Encore project has been a powerful economic boost to communities north of Boston, including Everett, delivering an infusion of business in the billions of dollars. The construction phase especially yielded social and economic benefits, creating jobs and opportunity.

Of course, the secondary effects of "sin" businesses such as casinos don't turn up until the projects have been in operation for awhile, and then especially as they age and decline in high-end commercial appeal. To date, there is conflicting evidence on the social impact of Encore with regard to factors such as crime and the environment. For me, the jury is still out on whether north Boston will see a net benefit from Encore in the long term. I hope it does, but I'm skeptical.

Game on.

The case is Gattineri v. Wynn MA, LLC, no. SJC-13416 (Mass. Nov. 3, 2023). Justice Scott L. Kafker wrote the unanimous opinion of the court. The case in the First Circuit is Gattineri v. Wynn MA, LLC, no. 22-1117 (1st Cir. Mar. 22, 2023) (referring questions).

Bahamian development, identity stall between Columbus, Atlantis; tourist dollars seem not to land

Columbus is absent from Government House, Nassau.

Bowen Yang's amusing portrayal of Christopher Columbus on the Saturday Night Live "Weekend Edition" season premiere in mid-October reminded me of an empty pedestal I saw in Nassau, Bahamas, recently: a sight sadly symbolic of stalled development. 

(All photos and video by RJ Peltz-Steele CC BY-NC-SA 4.0.)

I was in Bahamas on the country's National Heroes Day on October 9. Bahamas replaced its Discovery Day, recognizing Christopher Columbus, with Heroes Day in 2013. The idea is to honor homegrown Bahamian heroes and shed the cultural domination of the islands' colonial past.

I've written before on my conflicted feelings about Columbus Day. So I was curious when my Lonely Planet told me that I would find a Columbus statue presiding over the capital at Government House in Nassau. Indeed, my pre-pandemic Planet was outdated. The statue was vandalized just in advance of Heroes Day in 2021 and moved into storage in October 2022. 

I found not only an empty pedestal with a crumbling top, but closed gates at Government House. Neglected surroundings, outside the gates, unfortunately spoke to my overall impression of economic development in the Bahamas.

Two bridges connect Nassau to Paradise Island.

Infrastructure is in a sorry state. Roads are a mess, and signage is almost non-existent. Business outside Nassau and island resorts is minimal. I tried walking to a purported national park on New Providence, and I gave up the effort halfway for the lack of walkways alongside merciless speeding traffic. Later, I drove to the park to find little more than a set-aside green parcel walled by chain link.

K9 Harbour Island Green School subsidizes most students' tuition.

Besides the country's relentlessly cheerful people, little thrives on the islands, economically. There is the tourism sector, the stunning natural beauty of the islands, and expat enclaves such as Harbour Island and Spanish Wells. To walk from grimy downtown Nassau across either bridge to the touristic sector known as "Paradise Island," where the famous Atlantis development is located, is to transport oneself between worlds. 

A Disney ship departs Nassau before dusk.

I wondered what shop workers on Paradise Island think when they leave the artificiality of the plaster-and-paint retail village, with its Ben & Jerry's and Kay's Fine Jewelry, for dilapidated, rat-infested residential buildings in the city's corners. I wondered whether tourists see the contrast when they are whisked through downtown en route from the airport to Paradise.

The heart of the city undergoes an equally striking transformation almost daily. Cruise ships pull into the port and unleash a legion of passengers into the downtown district. Western stores such as Starbucks and Havianas open up alongside overpriced jewelers and T-shirt purveyors.

(Video below: A funeral procession for Obie Wilchombe, Parliamentarian, cabinet minister, and tourism executive, proceeded through the heart of the tourist district while cruise passengers were in port on October 11. I watched, I admit, from the balcony at Starbucks. Tourists who didn't see the coffin must be forgiven for assuming the lively music signified joyful festivity. Embodiment of the tourism-government complex himself, Wilchombe likely would have approved.)

Bahamas declared independence from Britain in 1973.

Then in the late afternoon, the passengers return to their ships, and the downtown becomes a ghost town. I walked the streets at dusk and came across a few port workers commuting by foot, a few teens joking about, and a scarily ranting homeless man who caused me to cross the street. Every business was shuttered. It was hard to believe the same space had been dense with vacationers only hours earlier.

A night street party in Nassau reverberates.

Walking Nassau at night, the relative silence was punctured by a raging street party. A man told me that it was an anniversary celebration of the most popular local radio station, and entry, food, and drink were free. He invited me to join, and I did. It was a raucous party inside with a rapper dancing wildly on a stage, flashing lights, and, he was right, free drinks and heaps of homemade local eats. I felt like I was crashing an after-hours cast party at a Caribbean Disney World. I was having fun, but I must have looked out of place—I couldn't help but attract attention as the only person not of color—as a couple of well meaning partygoers asked if I was all right or needed help finding my way.

Signs all over Eleuthera Island promise happy Disney jobs to come.

Determined as it purports to be to carve out a national identity free of colonialism, there is a painful dearth of evidence that the Bahamanian government is accomplishing that. The government imposes a hefty 12% VAT on goods and services, and I'm sure the port fees are substantial. Where is the money going?

The International Trade Association (ITA) well described what I saw: "The World Bank recognizes The Bahamas as a high-income, developed country with a GDP per capita of $25,194 (2020) and a Gross National Income per capita of $26,070 (2020).  However, the designation belies the country’s extreme income inequality, as statistics are driven by a small percentage of high-net-worth individuals, while most Bahamians earn far less." The only evidence of infrastructure investment I saw was that which directly benefited tourists and expats.

True to form, on a ferry between Eleuthera and Harbour Island, I overheard a couple of Americans in golf outfits discussing the plusses and minuses of potential investment in an island hotel. They seemed oblivious to the fact that the hotel name they bandied about was sewn into the breast of the short-sleeve work shirt of a local commuter sitting right beside them.

The historic "British Colonial" hotel, Nassau, lost its Hilton affiliation,
but is under renovation with plans to reopen under independent operation.

 

The one-two punch of Hurricane Dorian and COVID took a heavy toll, to be sure. And tourism income is not yet back to pre-pandemic levels. Still, that can't fully explain the development stagnancy I saw in and among local communities.

Perhaps naively, I expected to find the Bahamas more a reflection of the western sphere of influence than of the developing world. It's only a 30-minute flight from Miami to Bahamas, and 85% of imports come from the United States. But on the ground on New Providence and Eleuthera Islands, the Bahamas reminded me less of Florida and more of Guinea-Bissau—a country plunged into darkness last week for failure to pay a $17m debt to its exclusive power provider, the offshore ship of a Turkish corporation.

Two years since Columbus was vandalized and one year since he was packed away, the solution to native identity at Government House is a rubble-topped pedestal and closed grounds. The people outside the gates have embraced National Heroes Day. But there is little information in circulation about who the Bahamian heroes are or why they should be celebrated. 

The government owes its people better. And I wouldn't mind seeing American- and British-owned tourism companies taking some corporate social responsibility—if that's still a thing—to ensure that something of what they pay into the country is reaching the people and lands that truly give life to today's Bahamas.

'Sudden emergency' doesn't spare driver from jury trial

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A medical emergency did not necessarily let a driver off the hook for an injury-accident, the Massachusetts Appeals Court ruled yesterday, in a rare appellate appearance of "the sudden emergency doctrine."

The sudden emergency, or "inevitable accident," doctrine is less doctrine and more self-evident application of negligence law. The simple rule is that if a driver has a medical emergency and thus unavoidably causes an accident, that's not negligence. The doctrine requires that the medical emergency be confirmed by expert testimony.

You can get to that conclusion readily enough through the usual negligence analysis. A reasonable person having a heart attack could not have averted the same accident, so there was no negligence. "Sudden emergency" is just a shortcut that sanctions the conclusion and perhaps enhances a judge's confidence in awarding the defense summary judgment without a jury trial.

By the same token, however, the usual rules of negligence still apply. Saliently, the doctrine relieves the defendant of liability only insofar as the emergency is alleged to have been the proximate cause of the accident. If the plaintiff points somewhere else on the timeline, to a different alleged misconduct as proximate cause, then the defendant is not necessarily off the hook.

That's where the lower court erred in the instant cases, according to the Appeals Court. The plaintiff alleged that the defendant should have known of the risk of his medical condition and should not have been driving. That's a negligence allegation, and driving despite risk is not an emergency.

The medical evidence, even if weakly contested, supported the defendant's theory that he lost consciousness because of undiagnosed sleep apnea. As a result, his truck ran into the back of the unmoving bus ahead, which the plaintiff was driving. The loss of consciousness was a proximate cause of the accident. But not necessarily the only proximate cause.

The plaintiff's experts proffered evidence that sleep apnea is not something that attacks acutely out of the blue. Though the defendant denied chronic drowsiness, he had a medical history of difficulty sleeping at night and heavy snoring. He also suffered from comorbid conditions, such as obesity.

A reasonable person in the plaintiff's circumstances would have been on notice of the risk of driving, the plaintiff argued. And the evidence was sufficiently in dispute that the plaintiff was entitled to a jury trial on the question, the court agreed.

The court also reversed and remanded the summary judgment for the defendant's employer, as the employer would be vicariously liable for its employee's on-the-job conduct. But the court affirmed summary judgment for the employer on the direct negligence theories the plaintiff had leveled against it.

The evidence developed pretrial did not bear out plaintiff's allegations that the employer had any knowledge of a medical condition that could have impaired driving. So the jury may not hear theories of negligent hiring or supervision.

The case is Cottrell v. Laidley, No. 21-P-740 (Mass. App. Ct. Oct. 18, 2023). Justice Joseph M. Ditkoff wrote the opinion of the unanimous panel, which also comprised Chief Justice Green and Justice Hodgens.

Educator, law student earns town board appointment

Sullivan in Weymouth Monday.
Used with permission.

A student in my first-year Torts class was appointed this week to the Board of Health of Weymouth, Massachusetts.

Casandra "Casey" Sullivan was voted onto the Weymouth Board of Health at the Budget and Town Council meeting Monday. Her appointment will take hold officially soon, upon swearing in by the town mayor.

Casey currently works as a school psychologist and outplacement liaison for Weymouth Schools. A proud mother of five and former English teacher, Casey also served as a counter-intelligence agent and linguist for the Massachusetts Army National Guard.

In her spare time, Casey is working toward her J.D. She exemplifies the value of non-traditional students in the law classroom, which affords me an opportunity to learn as much as teach. I look forward to what she will accomplish with a law degree added to an already impressive resume.