*

The Honorable Karl S. Forester, Senior United States District Judge for the Eastern District of

Kentucky, sitting by designation.

RECOMMENDED FOR FULL-TEXT PUBLICATION

Pursuant to Sixth Circuit Rule 206

File Name: 09a0288p.06

UNITED STATES COURT OF APPEALS

FOR THE SIXTH CIRCUIT _________________

Nos. 08-2068/2079

SAGINAW HOUSING COMMISSION;

DOES 1-300,

 Plaintiffs-Appellees,

v.

BANNUM, INCORPORATED,

 Defendant-Appellant.

Nos. 08-2069/2082

SAGINAW SCHOOL DISTRICT,

 Plaintiff-Appellee,

v.

BANNUM, INCORPORATED,

 Defendant-Appellant,

CITY OF SAGINAW,

Defendant.

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Nos. 08-2068/2069/2079/2082

Appeal from the United States District Court

for the Eastern District of Michigan at Bay City.

Nos. 08-12148; 08-12154—Thomas L. Ludington, District Judge.

Argued: April 23, 2009

Decided and Filed: August 17, 2009 

Before: MOORE and McKEAGUE, Circuit Judges; FORESTER, Senior District Judge.*

1
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 2

_________________

COUNSEL

ARGUED: Russell C. Babcock, THE MASTROMARCO FIRM, Saginaw, Michigan,

for Appellant. Robert A. Jarema, SMITH BOVILL, P.C., Saginaw, Michigan, R.

Drummond Black, CURRIE KENDALL, PLC, Midland, Michigan, for Appellees.

ON BRIEF: Russell C. Babcock, Victor J. Mastromarco, Jr., THE MASTROMARCO

FIRM, Saginaw, Michigan, for Appellant. Robert A. Jarema, SMITH BOVILL, P.C.,

Saginaw, Michigan, R. Drummond Black, Peter A. Poznak, CURRIE KENDALL, PLC,

Midland, Michigan, for Appellees. 

_________________

OPINION

_________________

McKEAGUE, Circuit Judge. Bannum, Inc. obtained a permit from the City of

Saginaw to build a halfway house in Saginaw. After Bannum received its permit, the

Saginaw Housing Commission and the School District of the City of Saginaw both filed

complaints in Saginaw circuit court seeking injunctions against Bannum’s construction

of the halfway house. Bannum removed both actions to the United States District Court

for the Eastern District of Michigan. The district court then remanded the School

District action back to state court because, as the City of Saginaw was also a defendant,

complete diversity was not satisfied. The district court also dismissed the Housing

Commission’s action based on Burford abstention. For the reasons set forth below, we

dismiss Bannum’s appeal with regard to the School District action (Nos. 08-2069, 08-

2082) and reverse and remand the action involving the Housing Commission (Nos. 08-

2068, 08-2079).

I.

Bannum, Inc. is a private corporation that regularly contracts with the Federal

Bureau of Prisons (“BOP”) to operate Residential Re-entry Centers (“RRCs”). Bannum

is incorporated in Kentucky and has its principal place of business in Florida. Bannum
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 3

1

The approval order requested minor modifications to the order that are not relevant to this

appeal.

runs RRCs in Alabama, Florida, Georgia, Mississippi, Nevada, North Carolina, and

Texas. 

RRCs are halfway houses to which the BOP transfers prisoners approaching their

release dates and probationers under supervised release. The BOP provides extensive

regulations for RRCs. The RRC allows those staying there to transition into the

community, finding places to live and work, while remaining subject to supervision by

the RRC. Bannum employees monitor and supervise those staying at the RRC, but

Bannum employees do not have weapons or uniforms. They also do not have the

authority to stop those staying at the RRC from leaving the facility. Unauthorized

excursions are instead reported to federal authorities. 

The BOP published notice that it would seek bids for a new RRC in Saginaw,

Michigan. Intending to submit a bid, Bannum contacted Saginaw city authorities to

determine how best to comply with local zoning ordinances. Bannum sent a letter to

John Stemple, the Zoning Development Coordinator for Saginaw. In the letter, Bannum

requested information on where in Saginaw it could locate an RRC. Stemple informed

Bannum that “[t]hese types of facilities are permitted as a special land use after approval

by the Planning commission in an M-1 Light Industrial Zoning District and they are

permitted by right in the M-2 General Industrial Zoning District.” 

Bannum purchased 2.2 acres of property at 2209 Norman Street in Saginaw in

order to construct the RRC. Bannum submitted a site plan review form to the Saginaw

Planning Commission on October 11, 2007. On October 23, 2007, the Planning

Commission held a public meeting and unanimously approved Bannum’s site plan.1

Bannum received its building permit on April 24, 2008. It then began construction on

its RRC in Saginaw. Id.

On May 8, 2008, the Saginaw Housing Commission ( the “Commission”) and

three hundred unnamed plaintiffs filed a complaint against Bannum in the Saginaw
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 4

2

Bannum’s counsel asserts, on information and belief, that there are no residents near the Bannum

property and that several buildings and an elevated roadway separate the Bannum property from the

school.

Circuit Court and sought a temporary restraining order and an injunction. SHC is a

Michigan non-profit municipal commission that “exists to develop and rehabilitate

affordable housing in Saginaw.” The complaint alleged that Bannum’s RRC violated

Saginaw zoning ordinances and that SHC would suffer irreparable harm if the RRC

operated at that location. The Saginaw Circuit Court granted the TRO on May 7, 2008.

On May 12, the circuit court held a hearing on the TRO. After the hearing, the circuit

court lifted the TRO. 

On May 15, 2008, the School District of the City of Saginaw (the “School

District”) filed a complaint in Saginaw Circuit Court. The complaint named Bannum

and the City of Saginaw (“City”) as defendants. It alleged that the RRC was a penal

institution and, as such, required a special use permit. The complaint alleged that

Bannum had not received a special use permit and that any construction or operation

without a special use permit was a nuisance per se. Based on these facts, the School

District alleged that the RRC would be a nuisance per se and a nuisance in fact. The

nearest school is about 750 feet away from Bannum’s property.2

The School District also moved to consolidate its complaint against Bannum with

the Commission’s complaint against Bannum. Before the circuit court could act on the

motion to consolidate, Bannum filed a notice of removal in both the action brought by

the Commission and the action brought by the School District. 

Bannum’s notices of removal relied on diversity to establish the district court’s

subject matter jurisdiction. There was no issue regarding Bannum’s diversity from both

the Commission and the School District. However, in the School District complaint, the

School District had also named the City as a defendant. Bannum’s notice of removal

contended that the School District had fraudulently joined the City, and therefore the

City’s presence did not defeat diversity jurisdiction. 
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 5

 Once the matter was before the district court, both the Commission and the

School District filed motions to return the matter to state court. The Commission’s

motion contended the district court should abstain, while the School District’s motion

sought a remand because the City’s presence in the action prevented the district court

from exercising subject matter jurisdiction. The Commission later sought to add the City

as a defendant in its complaint, alleging a due process violation. Bannum, meanwhile,

filed a motion to dismiss both claims.

After a consolidated hearing, the district court found that the City was properly

joined in the School District’s complaint, defeating diversity jurisdiction, and that

abstention was appropriate with regard to the Commission’s action. Accordingly, the

district court remanded both cases to state court. In addition, it denied without prejudice

both the Commission’s motion to amend and Bannum’s motion to dismiss.

Bannum filed a motion for reconsideration, which the district court denied.

Bannum then filed a notice of appeal.

II.

A district court lacks subject matter jurisdiction in a diversity action where the

parties are not completely diverse. Jerome-Duncan, Inc. v. Auto-By-Tel, L.L.C., 176

F.3d 904, 907 (6th Cir. 1999). However, “fraudulent joinder of non-diverse defendants

will not defeat removal on diversity grounds.” Coyne v. Am. Tobacco Co., 183 F.3d 488,

493 (6th Cir. 1999). Fraudulent joinder occurs when the non-removing party joins a

party against whom there is no colorable cause of action. Jerome-Duncan, 176 F.3d at

907. If the removing party does not demonstrate fraudulent joinder, the district court

must remand back to state court based on the lack of subject matter jurisdiction. Id.

Because a remand based on the absence of fraudulent joinder is based on a lack of

subject matter jurisdiction, such a remand is generally immune from appellate review.

Hernandez v. Seminole County, Fla., 334 F.3d 1233, 1237 (11th Cir. 2003); Garbie v.

DaimlerChrysler Corp., 211 F.3d 407, 409-10 (7th Cir. 2000); Am. Home Assurance Co.

v. Insular Underwriters Corp., 494 F.2d 317, 319 (1st Cir. 1974). Remands based on
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 6

a lack of subject matter jurisdiction are unreviewable even where the district court erred

in its assessment of its jurisdiction. Volvo Corp. of Am. v. Schwarzer, 429 U.S. 1331,

1333 (1976); Ohio v. Wright, 992 F.2d 616, 617 (6th Cir. 1993) (en banc). 

There are, however, several limited exceptions to the unreviewability of remands

to state court. See 28 U.S.C. § 1447(d). The only exception at issue in this appeal is

whether the district court made “a substantive decision on the merits of a collateral

issue.” See, e.g., Regis Assoc. v. Rank Hotels (Mgmt.) Ltd., 894 F.2d 193, 194 (6th Cir.

1990). Collateral issues under this exception include decisions such as abstention-based

remands and remands based on the interpretation of a forum selection clause. Dawalt

v. Purdue Pharma, L.P., 397 F.3d 392, 399 (6th Cir. 2005). 

Both the School District and the City are citizens of Michigan for purposes of

diversity. Bannum thus based its assertion of diversity on an allegation that the School

District had fraudulently joined the City as a defendant. The district court found that

there was no fraudulent joinder and remanded the School District’s claim to Saginaw

Circuit Court. As the remand order was based on the district court’s assessment of its

own jurisdiction, it is generally unreviewable regardless of whether it reached the correct

result.

Bannum argues that one of the exceptions to the bar on reviewing remand orders

applies because the district court made substantive decisions on the merits of collateral

issues. Specifically, Bannum alleges “the District Court found that the School District

had a colorable case against the City of Saginaw” and that the Court addressed the issue

of standing. These arguments were part of the district court’s assessment of fraudulent

joinder. As such, they were part of a remand based on jurisdiction, not any sort of

collateral order. Compare Dawalt, 397 F.3d at 399. Therefore, the remand order is

unreviewable.
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 7

3

Though some previous opinions in this circuit apply an abuse of discretion standard, see, e.g., Caudill v. Eubanks Farms, Inc., 301 F.3d 658, 660 (6th Cir. 2002), de novo review is “the rule of the

circuit.” Habich, 331 F.3d at 530 n.2.

III.

Abstention is “an extraordinary and narrow exception to the duty of a District

Court to adjudicate a controversy properly before it.” Answers in Genesis of Ky., Inc.

v. Creation Ministries Int’l, Ltd., 556 F.3d 459, 467 (6th Cir. 2009) (quoting Colorado

River Water Conservation Dist. v. United States, 424 U.S. 800, 813 (1976)). A district

court’s decision to abstain under Burford v. Sun Oil Co., 319 U.S. 315 (1943), is

reviewed de novo.3 Habich v. City of Dearborn, 331 F.3d 524, 530 (6th Cir. 2003).

Burford abstention arose out of a conflict involving state oversight of oil fields

in Texas. The Supreme Court observed that, in certain cases, abstention “further[s] the

harmonious relation between state and federal authority” and that, when faced with an

equitable claim, federal courts “should exercise their discretionary power with proper

regard for the rightful independence of state governments in carrying out their domestic

policy.” 319 U.S. at 318, 332. In the case before it, an oil company challenged a state

administrative agency’s grant of a drilling permit to another oil company. 319 U.S. at

317. The Supreme Court found that the regulation of Texas oil fields was “as thorny a

problem as has challenged the ingenuity and wisdom of legislatures.” Id. at 318. The

nature of the oil fields required the fields to be regulated as units, and Texas vested

regulatory authority in the Texas Railroad Commission. Id. at 319-20. Texas required

all appeals from Texas Railroad Commission decisions be taken “to a state district court

in Travis County” and then, through appeals, to a state circuit court and the state

supreme court. Id. at 325. Given the complexity of oil field regulation, the unified

method Texas selected to regulate those fields, and the process provided for judicial

review, the Supreme Court held that district courts should abstain from hearing cases

challenging Commission decisions. Id. at 333-34. 

“[I]n Burford . . . dismissal was appropriate because the availability of an

alternative, federal forum threatened to frustrate the purpose of the complex
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 8

administrative system that Texas had established.” Quackenbush v. Allstate Ins. Co.,

517 U.S. 706, 725 (1996). The Supreme Court has therefore summarized Burford

abstention as follows: 

Where timely and adequate state-court review is available, a federal court

sitting in equity must decline to interfere with the proceedings or orders

of state administrative agencies: (1) when there are “difficult questions

of state law bearing on policy problems of substantial public import

whose importance transcends the result in the case then at bar”; or

(2) where the “exercise of federal review of the question in a case and in

similar cases would be disruptive of state efforts to establish a coherent

policy with respect to a matter of substantial public concern.” 

New Orleans Pub. Serv., Inc. v. Council of City of New Orleans (“NOPSI”), 491 U.S.

350, 361 (1989). 

Burford abstention often protects “complex state administrative processes from

undue federal interference.” Id. That said, “it does not require abstention wherever

there exists such a process.” Id. “Because Burford abstention is concerned with

potential disruption of a state administrative scheme, rather than the mere existence of

such a scheme, looking behind the action to determine whether it implicates the concerns

of Burford is necessary.” AmSouth Bank v. Dale, 386 F.3d 763, 784 (6th Cir. 2004).

“The key question is whether an erroneous federal court decision could impair the state’s

effort to implement its policy.” Ada-Cascade Watch Co., Inc. v. Cascade Res. Recovery,

Inc., 720 F.2d 897, 903 (6th Cir. 1983). 

A.

The question in this appeal is one of first impression in this circuit: whether a

federal court should abstain from a decision involving the interpretation of a local land

use ordinance. We find that it should not. Every case in which we have found Burford

abstention appropriate has involved evidence that federal involvement would disrupt a

coherent state policy. See Adrian Energy Assocs. v. Mich. Pub. Serv. Comm’n, 481 F.3d

414, 424 (6th Cir. 2007) (state utility regulation); Ellis v. Gallatin Steel Co., 390 F.3d

461, 480-81 (6th Cir. 2004) (state air pollution regulation); Caudill v. Eubanks Farms,
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 9

Inc., 301 F.3d 658, 665 (6th Cir. 2002) (state corporate dissolution procedures);

MacDonald v. Village of Northport, Mich., 164 F.3d 964, 968 (6th Cir. 1999) (state land

plat supervision); Coal. for Health Concern, 60 F.3d at 1194-95 (state hazardous waste

removal regulation); Ada-Cascade Watch Co., 720 F.2d at 904-05 (state hazardous waste

treatment regulation). 

This emphasis on state policy is in keeping with the Supreme Court’s emphasis

on the disruption of state regulatory processes. Burford repeatedly articulates the

purpose of abstention as facilitating the relationship between the federal government and

the states. It notes the importance of preserving “the rightful independence of state

governments in carrying out their domestic policy.” Burford, 319 U.S. at 318.

Municipalities have no such independence. Municipalities, unlike states, “are not

themselves sovereign.” Town of Hallie v. City of Eau Claire, 471 U.S. 34, 39 (1985).

“[T]hey do not receive all the federal deference of the States that create them.” City of

Lafayette, La., v. La. Power & Light Co., 435 U.S. 389, 412 (1978) (plurality opinion).

The only authority they possess is derived from the state. See Cmty. Commc’ns Co., Inc.

v. City of Boulder, Colo., 455 U.S. 40, 53 (1982). Therefore, we find it appropriate to

look to state policy to determine if Burford abstention is warranted. 

While the presence of a state agency is not conclusive proof that Burford

abstention is appropriate, the Supreme Court has found that the presence of such a

process does indicate that a court should consider Burford abstention. NOPSI, 491 U.S.

at 361; County of Allegheny v. Frank Mashuda Co., 360 U.S. 185, 189 (1959) (“This

Court has also upheld an abstention on grounds of comity with the States when the

exercise of jurisdiction by the federal court would disrupt a state administrative

process.”); see also ERWIN CHEMERINSKY, FEDERAL JURISDICTION 805 (5th ed. 2007)

(“Burford abstention requires that the administrative system have a primary purpose of

achieving uniformity within a state and that there be the danger that judicial review

would disrupt the proceedings and undermine the desired uniformity.”).
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 10

4

Michigan has since replaced the Township Zoning Act with the Zoning Enabling Act. See

MICH. COMP. LAWS §§ 125.3101-125.3702. Like the Township Zoning Act, the Zoning Enabling Act

provides municipalities with the authority to create and implement zoning ordinances but does not provide

any substantive guidance in developing the ordinances. MICH. COMP. LAWS §125.3401.

This emphasis on state administrative involvement is clear in our decisions on

Burford abstention. In most cases in which we have applied Burford, the creation of an

agency to promulgate and administer the state policy has served as evidence of the

state’s level of concern and of its desire for uniform application of the policy. See

Adrian Energy Assocs., 481 F.3d at 424; Ellis, 390 F.3d at 480-81; Coal. for Health

Concern, 60 F.3d at1194-95; Ada-Cascade Watch Co., 720 F.2d at 904-05. 

Where there is not an agency devoted to implementing the policy in question, we

have looked elsewhere for proof of state involvement. In Caudill, we found that the

extensiveness of the state statutory scheme governing corporations justified abstention

in cases seeking corporate dissolution. 301 F.3d at 665. In MacDonald, meanwhile, a

state statute provided that a party seeking to challenge a recorded plat must bring suit in

state circuit court and that the state treasurer, state director of the department of natural

resources, and the relevant township must all be joined. 164 F.3d at 968. The statute

provided for mandatory joinder of these parties to ensure that the state agencies and

townships would review both the plat and the challenge to it. See id. Further, if the suit

resulted in a change to a plat providing public access to a lake, the statute provided the

state an opportunity to take the property as an ingress or egress point. Id. These features

demonstrated that Burford abstention was appropriate. Id. Notably, while the statute at

issue provided for the joinder of the local township, our focus was on the state’s

interests–not those of the township. 

B.

Like MacDonald, there is both a state and local policy at interest here. And, like

MacDonald, we find it appropriate to focus on the state rather than the local policy. The

evidence of a coherent state policy here is minimal. The City of Saginaw drafted and

implemented the ordinances under the authority of the Township Zoning Act.4 See
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 11

5

This feature also forecloses abstention under the first prong of Burford abstention as articulated

in NOPSI. See NOPSI, 491 U.S. at 361. As there is no question of state law at issue, there are no “difficult

questions of state law bearing on policy problems of substantial public import whose importance

transcends the result in the case then at bar.” Id.

MICH. COMP. LAWS §§ 125.271-125.310. The Township Zoning Act did not provide

substantive guidance for municipalities; instead, it provided localities the authority to

create zoning ordinances, subject to certain procedural protections not at issue here. See

MICH. COMP. LAWS § 125.271. The Township Zoning Act also did not create any state

administrative agency to implement the Township Zoning Act; instead, it left

administration of local zoning ordinances to the localities themselves.5

 Id.

The Township Zoning Act also does not display any other hallmarks of a

complex and uniform approach to land use issues. While the Township Zoning Act vests

appeals from zoning commissions in the local circuit courts, there is no provision for

mandatory joinder of any state official. Compare MacDonald, 164 F.3d at 968.

Similarly, state oversight of zoning is nowhere near as comprehensive as state corporate

law governing corporate dissolution. Compare Caudill, 301 F.3d at 665. Put simply,

while land use policy is undoubtedly of substantial public concern, there is no evidence

that the state’s interest in that policy has led to the type of coherent state policy that

would warrant Burford abstention. 

C.

Our decision in this case is consistent with the approach taken by the Third

Circuit in Heritage Farms, Inc. v. Solebury Twp., 671 F.2d 743, 747-48 (3d Cir.), cert.

denied, 456 U.S. 990 (1982). There, the court found Burford abstention inappropriate

for a claim based on a local land use ordinance when there was no indication that the

claim disrupted the policies in a state statute authorizing the development of local

ordinances and instead challenged “the application of those policies by a single

township.” Id. at 748. Like Michigan’s Township Zoning Act, the Pennsylvania statute

considered by the court in Heritage Farms embodied the state’s “policies and general

rules concerning municipal land development” but “delegat[ed] power to the
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 12

municipalities” to enact and enforce local land use ordinances. Id. at 747. Noting that

“policies necessarily differ from municipality to municipality,” the court concluded that

“there is no uniform state policy for land use and development.” Id.

We recognize that we previously have cited favorably the Fourth Circuit’s

decision in Pomponio v. Fauquier County Bd. of Supervisors, 21 F.3d 1319, 1327 (4th

Cir. 1994) (en banc), which held that “absent unusual circumstances, a district court

should abstain under the Burford doctrine from exercising its jurisdiction in cases arising

solely out of state or local zoning or land use law, despite attempts to disguise the issues

as federal claims.” See MacDonald, 164 F.3d at 969. However, our decision in

MacDonald cited Pomponio only in dicta. Furthermore, MacDonald did not involve a

local ordinance, and it cited Pomponio favorably for the importance of state land use

policy, not for Pomponio’s application of Burford abstention to local ordinances. Id.

We now find the Fourth Circuit’s approach unpersuasive as it applies to local zoning

ordinances.

To summarize, we hold that Burford abstention applies only to statewide policies

and that the appropriate focus for Burford abstention is state policy, rather than local

policy. Additionally, we hold that the zoning dispute in this case does not implicate the

kind of coherent state policy that would warrant Burford abstention.

Again, the Commission has not identified any evidence of a coherent state policy

or of how federal involvement would disrupt such a policy. Instead, the Commission’s

nuisance per se action only challenges the permit Bannum received from the City. The

dispute thus turns solely on the City’s interpretation of its own zoning ordinance–it does

not implicate any policies embodied in the Township Zoning Act or the Zoning Enabling

Act. See Heritage Farms, Inc., 671 F.2d at 747-48 (holding that Burford abstention was

inappropriate where suit implicated only a municipality’s zoning policies rather than any

policy embodied in the state zoning authorization statute). Therefore, we conclude that

the district court erred in abstaining in this case.
Nos. 08-2068/2069/2079/2082 Saginaw Housing Comm’n et al.

v. Bannum, Inc.

Page 13

IV.

As the district court’s remand of the School District’s claim for lack of subject

matter jurisdiction is unreviewable by this court, we dismiss Bannum’s appeal in case

numbers 08-2069 and 08-2082. As Burford abstention was inappropriate for the

Commission’s claim, we REVERSE and REMAND for further proceedings in case

numbers 08-2068 and 08-2079.