Posted by Michael Bryan
What has happened?
The DOJ has released a public Letter of Findings concerning its investigation into the Maricopa County Sheriffs Office's (MSCO) practices which infringe on the civil rights of the citizens of Maricopa County. Most of those abuses and illegal practices concern Equal Protection and Due Process violations of Latino citizens and legal residents (not, as Arpaio would contend, the rights of undocumented aliens).
Here is a copy of the Findings Letter (pdf link).
Here is some coverage of from the DOJ Civil Rights Division's (CRD) presser, and the full transcript of the CRD's Statement. Sorry for the use of FOX footage (and the annoying ad), but it was the most extensive excerpt of the DOJ's presser I could find.
You will note that in Arpaio's responses, he simply denies any pattern of infringement of civil rights and instead attacks the DOJ as trying to block Arpaio's efforts at enforcing immigration law. Here's more FOX coverage throwing softballs to Arpaio regarding the allegations for him to swat down unchallenged by any facts.
Arpaio Fires Back Against Fed's Report: MyFoxPHOENIX.com
Note carefully the DOJ's stated intention to cooperate with Sheriff Arpaio in negotiating an agreement to address their concerns, and the contrast with the divisive polemical attacks in Arpaio's response.
What does the DOJ's finding under section 14141 (42 U.S.C. 14141) actually mean?
Firstly, what this is NOT, is any sort of demand by the DOJ that Arpaio resign.
Just the opposite, in fact. The Civil Rights Division specifically notes in both its finding letter and presser that it wants very much to work with Arpaio to remedy his agency's policies and practices to conform with best practices and stop the civil rights violations they found in their multi-year investigation of his office.
It is Arpaio who is failing to cooperate, and making this into a show-down. He stone-walled the DOJ's investigation for over a year, refusing to release records and make personnel and facilities available to DOJ investigators. Finally, the DOJ had to sue the MSCO to gain access to those resources to complete their investigation.
Section 14141 was enacted in 1994 as part of an omnibus crime package. It was intended to give more enforcement power to the DOJ's CRD to reform public justice institutions, including police departments, prisons and juvenile detention facilities. It gives the DOJ a right of action to seek injunctive and equitable redress in federal court of any patterns of practice resulting in civil rights violations.
The findings which the CRD have published establish that the CRD's investigation has found evidence that patterns and/or practices of the MSCO are resulting in constitutional violations. The letter puts MSCO on notice of the subjects on which the MSCO will need to enter into negotiations for reform under a legally enforcable consent decree, or face a federal lawsuit to force reform.
MSCO is not unique in facing such an investigation. Several police departments around the country have been similarly investigated and subsequently entered into consent agreements with the DOJ (24 that I'm aware of) concerning similar alleged practices. As far as I'm aware, however, this is the first time that the sort of systemic racial profiling and discriminatory practices have been the subject of a 14141 action against a police agency by the DOJ.
The CRD gave Arpaio a 60 day deadline during which they intend that he should begin to design and implement reforms of policies and practices, and enter into negotiations with the CRD on an enforceable consent decree. Instead of indicating that he would work with the CRD, Arpaio has publicly counter-attacked and denied any need of reform. It seems likely, judging by Arpaio's response to the CRD's findings that he will use this time to rally political support and throw mud at the DOJ. He does not appear to be amenable to negotiating a settlement.
That public and divisive intransigence is, so far as I'm aware, unprecedented. It could be that cooler heads will prevail and Arpaio will dial it back and sit down with the CRD to start work on an agreement. But he may not, and that puts us in some entirely unprecedented legal and political territory.
What are the tools DOJ can use to force reform?
The DOJ can obtain equitable and injunctive relief from the federal courts to ensure that procedures are put in place to address the alleged systemic violations.
Historically, this involves negotiating a consent decree outlining the needed reforms, procedures, systems, training and oversight needed to end the violations. Generally, one or more monitors or compliance officers are appointed to directly oversee the implementation process once a consent decree is in place.
That historical method of implementation of 14141 reforms seems, at least initially, unlikely to be workable with Arpaio at the helm of MSCO.
Ultimately, the consequences could include civil contempt judgements against MSCO, if Arpaio refuses to comply with court orders. It could even include a federal receivership of departments or facilities that demonstrate an ongoing pattern of non-compliance. I don't believe this has ever happened in the context of a police agency, but it has been done for specific detention facilities. Ultimately, it is possible that the Maricopa jails could be taken from Arpaio's control if violations continue and Arpaio refuses to address the problems CRD has found in his jails.
I can't stress enough that it is unprecedented for a police agency to seriously and publicly deny any problem and resist entering into negotiations toward a consent decree. I'm simply not aware of any situation that 14141 has been used against police agency headed by a political figure who bases his legitimacy on the very conduct the DOJ finds to be a violation of the Constitution. I have looked at the prior actions CRD has brought under 14141 and at the literature discussing those procedures, and have been unable to locate any real parallel to the situation with MSCO.
Part of this stems from the fact that 14141 has only been law for roughly 15 years. The real parallels with police agencies who stubbornly insist on maintaining discriminatory and illegal practices predate 14141, and where fought by the DOJ with inferior legal tools. It was, in fact, to more effectively combat problematic principals like Arpaio that Congress passed 14141, but the DOJ hasn't yet had to deal with open defiance of its autohority and findings in a 14141 action. In a sense, this might be a welcome opportunity for the professional staff at the CRD to really give 14141 a real test of its effectiveness.
Police agencies tend to be run by competent and reasonable professionals who are having problems with oversight and training that result in systemic violations. I don't know that 14141 has ever been used to try to reform of intentional policies and cultural norms tht promote constitutional violations. Principal directors tend to be quite cooperative and even eager to work with the DOJ to fix problems in their agencies. The MSCO and Arpiao seem likely to pose an entirely different set of legal and political challenges to CRD's enforcement strategy.
What the legal and political consequences could be when the DOJ and its CRD are faced with an intransigent and popular political figure intent on resisting any changes is uncharted territory. If Arpaio wants to double down and try to wait out the DOJ in hopes of a regime change in 2014, he might well succeed in the long term. That is, unless he decides at some point that he's had enough and retires when things get too hot. He is an old man, after all.
A high profile fight in the national media which airs all of Arpiao's dirty pink laundry would likely be very damaging both to Arpaio and to Arizona, but might well play perfectly to the local political constituency on whom Arpaio relies. Arpaio may relish the national attention he would garner by defying the DOJ so openly. The DOJ would have to get creative in crafting a legal strategy to address an obstreperous Arpaio; their only experience with 14141 enforcement seems to be predicated on a fairly good-faith attempt by the local stakeholders to reach a mutually satisfactory consent decree.
What would stubborn resistance to DOJ authority mean for MSCO and Maricopa residents?
It's hard to say, as its never really happened before, but we've already seen one compliance tool brought to bear by Homeland Security. Napolitano has already stripped Arpiao's agency of its 287g access to immigration status information based on the CRD's letter of findings. In her statement, Napolitano states that by continuing to allow MSCO personnel to participate in 287g programs, she would effectively be making DHS a party to the constitutional violations CRD found. It is understandable and correct that the head of DHS refuse to be involved, even vicariously, in enabling civil rights violations.
But Napolitano's principled stand is likely to be a very politically divisive move this early. Napolitano might have moved too quickly, before it is clear that Arpaio will refuse to implement any reforms. Loss of 287g certification certainly limits the ability of MSCO to violate the constitutional rights of Latinos, but it also makes immigration enforcement much more difficult for ICE in Maricopa county. The loss effectively reduces the number of boots on the ground doing immigration enforcement activities in Maricopa. it also gives Arpaio a fairly effective propaganda weapon in his claim that the Obama Administration is attempting to put MSCO out of the immigration enforcement business. The action further feeds into the paranoia and anger generated amongst Arpaio's supporters around the State by the Administration's ongoing effort to enjoin enforcement of SB1070.
Loss of access to immigration information could be only the tip of the enforcement spear; the MSCO and its jail facilities recieve millions in federal assistance and grants. That funding could ultimately be in jeopardy. Loss of those funds could sharply increase the cost of MSCO jails and programs to Maricopa residents.
Fines and penalties for non-compliance or contempt could ultimately be levied agains MSCO by the federal courts if Arpaio refuses to comply with court orders. Those costs would also ultimately be passed on to Maricopa taxpayers.
I don't know if it would be possible to hold Arpaio personally liable in any way, he likely enjoys at least some limited immunity as an elected official for his actions and those of his agency. It is possible that Arpaio might ultimately end up with some personal legal liability.
It seems likely that should Arpiao decide to pick a public fight with the CRD, there will be much less incentive for the CRD to keep its investigative findings private, as is generally done as a term of a consent decree. Should flurries of public records start coming out of the CRD regarding the violations it found, you might expect to see a lot of private section 1983 civil rights lawsuits filed on the basis of those documents and testimony.
14141 does not give a private right of action (only the DOJ may sue), but if the DOJ's investigations start producing documentation of violations that plaintiffs can get a hold of, it could produce a tidal wave of 1983 private civil rights violation litigation, which the County would be on the hook for, and which would pubicize much of the worst behavior of the MSCO under Arpaio. It is also not unknown for even elected officials to be hit with personal liability in some 1983 actions. This might be one way more than just Arpaio's political hide could be put into play by his intransigence.
What should we expect from Arpaio's camp in terms of political ploys?
We are already seeing the outlines of Arpaio's political defense. It is a mainly an aggressive offense.
In the short term at least it seems that Arpaio has decided that resistance and push-back are the stategy he wants to pursue regarding the civil rights violations against Latinos. First, he alleges that he is being persecuted for political reasons: pick you favorite flavor- Obama's presidential campaign's desire to court the Latino vote by attacking him, and/or AG Holder chumming the waters to cover the smell from the Fast and Furious scandal Arpaio's allies are out establishing these themes on the nets and all over FOX news.
The one area in which Arpaio seems to be pursuing a conciliatory line is his department's failure to adequately investigate hundreds of sex crimes. Arpaio has apologized publicly and vowed reform, including hiring an outside expert to oversee training and implementation of reforms.
I have not yet seen anything along this vein, but given the deeply racist views of Arpaio and many of his supporters, there is an obvious line of attack: Perez, the head of CRD, is Latino. I don't think will be a public ploy, but I am confident that it will play some part in Arpaio's more sotto voce propaganda campaign.
All of these counter-attacks are transparently false, given the long term nature of the investigation against MSCO and the well-supported findings (which Arpaio had best pray the CRD does not decide to further substantiate by releasing any raw data from its investigations), but they have propagandistic value and credibility to those whom Arpaio is appealing to.
It is unsurprising that Arpaio, faced with evidence of his mismanagement and the culture of bias he has created in his 20 years as Sheriff, would decide to double-down on further divisive and corrosive politics rather than focus on serving the people of Maricopa more effectively. After all, that is the modus operandi Arizonans have come to expect from a sadly dominant faction of the State GOP, which relies on demagoguery of immigration and race-baiting Latinos to maintain its power and distract from their incompetence and failures.
Arizona deserves better.
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