FILED U.S. COURT OF AP P EALS E LEVEN T HC IRC UIT OCTOB ER 3, 2006 THOMAS K. KAH

N CLERK [ DO NO T P UB L I S H] I N THE UN I TE D STATE S C OU RT OF APPE ALS F O R T H E E L E V E N T H C IR C U IT

________________________ N o. 05- 16256

________________________ D. C . Do c k e tNo . 0 2 - 8 0 5 5 5 - C V- J AL K E N N E T H E G G L E S T O N , P la in tif f - A p p e lla n t, v ersu s E D B I E L U C H , F o rm e rS h e r if f , in d iv id u a lly , R IC B R A D S H A W , i n h i s offi ci al capaci ty a s S heri ff o f P a lm B e a c h C o u n ty , D e f e n d a n ts - A p p e lle e s .

________________________ A pp ea l fr om the U ni t ed S t at es D i stri ctC ou rt f orthe S outhe rn D i s tr i c tof F l or i da

_________________________ ( O c t ob e r 3, 2006)In Februar y 2005, Ric Bradshawwas substituted as a pa rty pursuant to Fe deral Rule of 1 Civil Proc e dure26 (d)( 1) , which p ro vide s f or a uto maticsu

bs tit uti on wh en a pu bli cof fi c er whois a par ty to an action in an official c apac ity is succee ded in offic e duringthe pendency of the action. Although thereareboth individual and official c apac ity claims raise d in this appeal, for easeof re ferencewe will re fer to the defendant as B ieluch throughout this opi nion.

2 B efo re T JO F L A T , C A RN E S an d H IL L , C i rcu i tJu d g es. C A RN E S , C i rc ui tJudg e: K e n n e th E g g le s to n ap p e a ls th e s u m m a ryju d g m e n t e n te r e d a g a in s t h im in the l aw sui the brou gh tagai nstE d B i el uch, the form ersher i ff of P al m B ea ch C ounty , F l or i da . T he c ourtf ound tha tbyt e rm i na t i ng E ggl e s t on’ s e m pl oy m e nt 1 w i th the S he r i f

f’ s O f f i c e , B i e l uc h ha d vi ol a t e d ne i the rE ggl e s t on’ s e qua l pr ot e c t i on ri g h t s n o r h i s F i rstA m en d m en tri g h t s. I. O n S ep t em b er 1 , 1 9 8 9 , E g g l est o n w as h i red b y th e S h eri ff’ s O ffi ce as a d e p u tyin th e r o a d p a tr o l d iv is io n . I n tha tpos i t i on, E ggl e s t on w a s a tthe bott om of the com m and structure. F rom hi gh es tt o l ow es trank , the structure i s: sher i ff , u n d e r s h e r if

f , c o lo n e l, m a

jo r , c ap ta in , lie u te n a n t, s e r g e a n t, c o rp o r a l, d e p u tys h e r if f . O f f a nd on ove rthe ne xtde c a de , E ggl e s t on w orke d unde rthe s upe rvi s i on of B ie lu c h w h ile B ie lu c h w a s as e r g e a n t a n d th e n lie u te n a n t. T he tw o m e n ha d a c lo s e w o rk in g r e la tio n s h ip a n d h e ld e a c h o th e rin h ig h r e g a r d . B ie lu c h p e r s o n a lly si g n ed o ff o n E g g l est o n ’ s yearl y ev al u at i o n s fro m 1 9 9 3 t o 1 9 9 5 . In each o f th o se3

eval uat i on s, B i el uch agreed w i th the re vi ew er ’ s f i nd i ng thatE gg l es t on ei ther m et o r ex ceed ed ex p ect at i o n s o r w as o u t st an d i n g i n al l cat eg o ri es. E gg l es t on w as p r o m o te d to s e r g e a n t in 1 9 9 5 . I n 1 9 9 6 , B ie lu c h a s k e d E g g le s to n to h e lp a n a s s o c ia te o f th e ir s in h is c a m p a ig n f

o rs h e r if f o f P a lm B e a c h C o u n ty , a n d E g g le s to n a g r e e d . D ur i ng the c o u r s e o f th a t c a m p a ig n , E g g le s to n a n d B ie lu c h “w e r e to g e th e ra ll th e tim e ,” r a is in g m o n e ya n d o r g a n iz in g c a m p a ig n f u n c tio n s . E gg l es t on , w ho had n ever be f or e pa rt i c i pa t e d i n apol i t i c a l c a m pa i gn, c ons i de r e d B i e l uc h a“ m e nt or ” a nd a f r ie n d . T h e tw o r e m a in e d c lo s e a f te rE g g le s to n r e s ig n e d , f o rr e a s o n s n o t r e la te d to th is la w s u it, f

r o m th e S h e r if

f’s O f f ic e in S e p te m b e r1 9 9 9 a t th e r a n ko f s e r g e a n t. B i e l uc h, the n ac apt a i n, a s ke d f orE ggl e s t on’ s a s s i s t a nc e i n hi s ow n c a m pa i gn f or s h e r if f d u r in g th e N o v e m b e r2 0 0 0 e le c tio n . E g g lesto n m an ag ed B ielu ch ’s c a m p a ig n , h a n d lin g h is m e e tin g s , te le v is io n ap p e a r a n c e s a n d m a ilin g s . E ggl e s t on c la im s th a t th e tw o h a d a n u n d e r s ta n d in g th a t if th e c a m p a ig n w a s s u c c e s s f u l, B i e l uc h w oul d appoi nthi m unde r s he r i f f a nd gr oom hi m t o be the ne xts he r i f f of P al m B each C o u n ty. H e c l ai m s thatB i el uch t ol d h i m thathe pl anned t o ret i re af t er o n lyo n e te rm .4

T hi ng s i ni t i al l y w entas pl anned. A ft erw i nn i ng the el ec t i on , B i el uch asked th e in c u m b e n t s h e r if

f to h ir e E g g le s to n d u r in g th e tr a n s itio n o f a d m in is tr a tio n s . E g g le s to n r e tu rn e d to th e s h e r if f’s o f f ic e a s ac ap ta in in D e c e m b e r2 0 0 0 . A ft er t a ki ng of f i c e i n J a nua ry2001, B i e l uc h pr om ot e d E ggl e s t on t o the r a nk of u n d e r s h e r if

f . A s unde r s he r i f

f , E ggl e s t on w a s s e c ond- i n- c om m a nd, r e s pons i bl e f or the day- t o-day a dm i ni stra t i on of the departm entand run ni ng i tw hen B i el uch w as ab s e n t. B e c aus e unde r s he r i f f i s apol i t i c a l pos i t i on w hi c h c a rr i e s no pr ot e c t i on u n d e rth e Ca r e e rSe rv i c e s A c t , Eg g l e s t o n c o u l d b e r e mo v e d f r o m o f f i c e a ta n yt i me in B ie lu c h ’s s o le d is c r e tio n . In Jul y or A ug ustof 20 01 , ata m ee t i ng of the C om m and S t af f, B i el uch anno un ce d thathe pl anned t o see k a se cond t erm as sher i ff . E gg l es t on conceded thathe w as “ shocked” by B i el uch’ s c hang e of pl ans and by hi s f ai l ure t o speak w ith E g g le s to n p r iv a te lyab o u t th e d e c is io n b e f o r e f o rm a llya n n o u n c in g it. E gg l es t on no nethel es s i nsi st ed i n h i s deposi t i on thathe “ ac ce pt ed i tand m ov ed on . ” H e s a id th a t “[ a ]t w o r s t” B ie lu c h ’s d e c is io n “w o u ld h a v e d e la y e d [ h is ] ab ility to ru n f o rs h e r if f ,” b u t it “d id n ’t c h a n g e [ h is ] d a y - to - d a yw o rk in g r e la tio n s h ip w ith [B i el uch] . ” I t w a s a r o u n d th is tim e th a t E g g le s to n an d B ie lu c h ’s r e la tio n s h ip b e g a n to so u r. In th e f

all o f 2 0 0 1 E g g lesto n b eg an to v o ice h is d isag re em en t w ith B ielu ch ’sTh ereis s omeevidenc ein t here c ord th at E g g le sto n h ad expre sse d c onc ern s with 2 Bie luch’s hiringdecisions and f ailure to ke ep his campaign promises as ea rly as De cember 2000, even be forehe wa s actually promoted to undersheriff.

5 a dm i ni s tr a t i on of

the de pa rtm e nt , e xpr e s s i ng hi s f e e l i ngs both i n pr i va t e m e e t i ngs w i th B i el u ch an d du ri n g C o m m an d S t aff m eet i n g s. 2 E ggl e s t on c r i t i c i z e d f

oura s pe c t s of

B i e l uc h’ s a dm i ni s tr a t i on. F i r s t , he q u e s tio n e d B ie lu c h ’s p e r s o n n e l d e c is io n s , te llin g B ie lu c h th a t p r o m o tio n s s h o u ld notbe a w a r de d i n the abs e nc e of e xa m s orothe runi f

orm gui de l i ne s ; pa ygr a de changes s ho ul d b e r evi ew ed because they w er e a ff ec t i ng m oral e; and u nq ual i fi ed in d iv id u a ls s h o u ld n o t h a v e b e e n h ir e d o rap p o in te d to c e rta in p o s itio n s . S e c ond, E g g le s to n c r itic iz e d B ie lu c h ’s d e c is io n to m a k e o f f ic e r s s e rv in g a t th e E a g le Y o u th A c a d e m y e lig ib le f

o rth e s ta te ’s h ig h - r is kp e n s io n p la n . T hi r d, E ggl e s t on c ha l l e nge d B i e l uc h’ s ha ndl i ng of the de pa rtm e nt ’ s budge t . H e obj e c t e d t o the pur c ha s e of

c e rt a i n e xpe ns i ve i t e m s , i nc l udi ng ahe l i c opt e ra nd m obi l e c om m a nd vehi cl e. H e a l so qu es t i on ed bo th B i el uch’ s use of sol e s ou rc i ng and h i s a l l eged f a ilu r e to f

u lf ill h is c a m p a ig n p r o m is e to p r o v id e q u a rte r lyb u d g e t d e f ic it u p d a te s . F o u rth , E g g le s to n o p p o s e d B ie lu c h ’s e x p a n s io n o f ta k e - h o m e c a rp r iv ile g e s to in c lu d e m o r e c iv ilia n s a n d c o rr e c tio n s p e r s o n n e l. E ggl e s t on t e s t i f

i e d i n hi s de pos i t i on tha ta f t e rhe m a de hi s f

e e l i ngs know n, B i el uch “ beg[a] n t o cut[hi m ] ou tof the l oo p. ” In the fa l l of 20 01 , B i el uch st art ed6

t o e xc l ude E ggl e s t on f

r om m e e t i ngs r e ga r di ng de pa rtm e nts pe ndi ng a nd the c la s s if ic a tio n o f

th e e m p lo y e e s a t th e E a g le Y o u th A c a d e m y . I n D e c e m b e ro f

2 0 0 1 , E g g le s to n w a s r e c ru ite d b yth e D e m o c r a tic C o n g ressi o n al C am p ai g n C o m m i tt ee i n W ash i n g t o n , D . C . t o ru n fo r C o n g ress a g a in s t R e p r e s e n ta tiv e M a rkF o le y , aR e p u b lic a n . In D ec em ber and Janu ary, l ocal ne w s pape r s r a n art i c l e s aboutE ggl e s t on’ s pot e nt i a l c ongr e s s i ona l bi d a nd the po ss i bi l i ty thathe m i gh trun for sheri ff agai nstB i el uch i f hi s c on gres si on al c a m p a ig n p r o v e d u n s u c c e s s f u l. E gg l es t on and B i el uch d i sput e w hether they e ver actu al l y d i scu ssed th e art i cl es. E g g l est o n cl ai m s th ata “ t en si o n ” an d “ co l d n ess” d e v e lo p e d in h is r e la tio n s h ip w ith B ie lu c h , a n d a lth o u g h it w a s “v e ryb o th e r s o m e ,” it d id n o t d is s u a d e h im f r o m ru n n in g . B i e l uc h doe s notr e c a l l di s c us s i ng the a rt i c l e s w i th E ggl e s t on. I n a n ye v e n t, E g g le s to n f o rm a llylau n c h e d h is c o n g r e s s io n a l c a m p a ig n in la te J a n u a ry . O n F ebruary1, 20 02 , B i el uch asked for E gg l es t on ’ s r es i gn at i on as u n d e r s h e r i f

f , e x p l a i n i n g th a th e h a d l o s tc o n f i d e n c e i n h i m. E gg l es t on ar gu ed a g a in s t B ie lu c h ’s d e c is io n a n d a s k e d B ie lu c h to r e a s s ig n h im to b e ac ap ta in se rvi ng as D i stri ctC om m ander over the cong re ss i on al di stri cti n w hi ch he w as s e e k in g e le c tio n . B ie lu c h e v e n tu a llya g r e e d to d o th a t. E gg l es t on concedes that B i e l uc h w a rne d hi m tha the c oul d notus e hi s of f i c e phone orpa ge rf

orc a m pa i gn7

p u rp o s e s . A ddi t i ona l l y , E ggl e s t on c onc e de s tha tB i e l uc h i nf orm e d hi m tha the w oul d ha ve t o e i the rt a ke al e a ve of abs e nc e orr e s i gn f

r om the s he r i f

f’ s of f i c e i f he q u a lif ie d to ru n f

o rC o n g r e s s . B i e l uc h c l a i m s tha the a l s o t ol d E ggl e s t on tha the coul d n otca m pai gn on du ty or w hi l e i n u ni form and cou l d n otuse hi s off i ci al vehi cl e t o tra vel t o p ol i t i ca l event s, bu tE gg l es t on deni es thatthere w er e any such o r d e r s . B i el uch and E gg l es t on al so di sc usse d the i ss ue of “ fl ex-t i m e, ” aprac t i ce w h e r e a l l me mb e r s o f

th e e x e c u t i v e s t a f

f , i n c l u d i n g c ap t a i n s , tr a c kth e o v e rt i me h o u r s w o rk e d a n d u s e th o s e h o u r s f o rp e r s o n a l b u s in e s s d u r in g aw o rk d a y , w h ile s till b e in g c o n s id e r e d “o n d u ty ” f o rp a yp u rp o s e s . N one of the w r i tt e n pol i c i e s or p r o c e d u r e s o f

th e d e p a rtm e n t a d d r e s s e d th e is s u e o f f le x - tim e . B ie lu c h e x p lic itly t o l d E g g l est o n th atfl ex -t i m e d i d n o tex i st , b u tE g g l est o n assert ed th at“ i t ’ s al w ays e x is te d ” a n d th a t h e h a d a c c u m u la te d 4 0 0 h o u r s o f f le x - tim e a s u n d e r s h e r if

f . B i e l uc h s a y s tha the “ s pe c i f i c a l l y t ol d [ E ggl e s t on] he c oul d notus e f l e x- t i m e ” f

or c a m p a ig n in g . E g g le s to n s a y s th a t n o d ir e c t o r d e rw a s g iv e n . E g g le s to n d id c o n c e d e in h is d e p o s itio n th a t B ie lu c h in f o rm e d h im th a t h is p r e v io u s ly a c c um ul a t e d f

l e x- t i m e hour s no l onge re xi s t e d, a nd tha t , e ve n i f the us e of

f l e xt i m e ha d be e n pe rm i tt e d i n the pa s t , B i e l uc h, a s s he r i f f , ha d the r i ghtt o c ha nge the p r a c tic e a t w ill.8

T he i ss ue of fl ex-t i m e a gai n cam e up i n M ar ch 20 02 , ata C om m and S t af f m e e t i ng. U nde r s he r i f

f W i l l i a m T r e m e ri nf

orm e d E ggl e s t on a nd othe re xe c ut i ve st af f m em bers that“ [t ] he sher i ff has s t at ed thatfl ex-t i m e does notexi st . ” T he m in u te s o f

th e m e e tin g s p e c if

ic a llyr e c ite th a t e m p lo y e e s a r e n o lo n g e ra llo w e d to a c c ru e a n d b a n kf

le x - tim e . A d d itio n a lly , T r e m e ra n n o u n c e d th a t f le x - tim e c o u ld o n lyb e u s e d a t th e d is c r e tio n o f as u p e rv is in g o f

f ic e r . E gg l es t on , ho w ever , i ns i s t e d i n hi s de pos i t i on tha tf ol l ow i ng the m e e t i ng, the i s s ue “ w a s n’ tr e s ol ve d” and that“ [t ] here w as n’ tan absol ut e ordergi ven. ” R eg ard l ess o f B i el u ch ’ s p o si t i o n o n th e su b j ect , E g g l est o n co n t i n u ed t o u se fl ex-t i m e t o cam pai gn for C on gres s. O n M ar ch 26 , 20 02 , he att ended a po l i t i ca l l unc h m e e t i ng w i th ar e pr e s e nt a t i ve of the S uga rC a ne G r ow e r s C oope r a t i ve of F lo r id ain W e s t P a lm B e a c h . H e w or e hi s of f i c i a l uni f orm t o the m e e t i ng, butthe re cord i s uncl ear a s t o w hether he drove his patrol car. E ggl e s t on i ns i s t e d tha the w a s u s i n g f

l e x - t i me , b u th e a d mi tt e d th a th e d i d n o tr e c e i v e au th o r i z a t i o n f r o m a m a jo ra s r e q u ir e d b yT r e m e r ’s M a r c h 5 , 2 0 0 2 o r d e r . T he m e e t i ng l a s t e d f r om 1 2 : 3 0 p . m. u n t i l 2 : 0 0 p . m. O n A p r il 1 0 , 2 0 0 2 , E g g le s to n tr a v e le d ab o u t f if tym ile s to S t. L u c ie C o u n ty to m e e t w ith th e lo c a l s h e r if f f o rac a m p a ig n e v e n t. E g g le s to n a g a in w o r e h is u n if o rm , a n d h e d r o v e h is p a tr o l c a rto th e m e e tin g . H e c l a i m e d tha the us e d f l e x-9

t i m e f or the tri p and thathe had n ot i fi ed hi s e xecut i ve offi ce r, L i eut enantH art , that h e w a s ta k in g af

le x - d a y . B i e l uc h a s s e rt s tha tE ggl e s t on w a s on dutya nd t ook the tri p i n d i rectv i o l at i o n o f b o th d ep artm en tp o l i ci es an d B i el u ch ’ s o rd ers. W i thi n a f e w d a y s o f

th e e v e n t, a rtic le s ap p e a r e d in alo c a l n e w s p ap e rq u e s tio n in g w h e th e rit w a s ap p r o p r ia te f

o rE g g le s to n to c a m p a ig n d u r in g w o rk in g h o u r s . O n A p r il 1 6 , 2 0 0 2 , B ie lu c h p la c e d E g g le s to n o n a d m in is tr a tiv e le a v e w ith pa ya nd or de r e d af

orm a l i nt e rna l i nve s t i ga t i on i nt o E ggl e s t on’ s c a m pa i gn a c tiv itie s . H e i ns truc t e d E ggl e s t on nott o l e a ve hi s hous e be tw e e n 8 a . m . a nd 4 p .m ., n o t to r e p r e s e n t h im s e lf a s a n o f f ic e r , a n d n o t to w e a rh is u n if o rm . E gg l es t on w as stri pp ed of hi s off i ci al i dent i fi ca t i on and p atrol car and no l on ger a llo w e d to a c t in a n yo f f ic ia l c ap a c ity . T hatsam e day , E gg l es t on gave a t el evi se d s p e e c h , te llin g r e p o rte r s th a t h e h a d b e e n s u s p e n d e d f r o m th e d e p a rtm e n t, w h e n , in f a c t, h e h a d b e e n p la c e d o n p a id a d m in is tr a tiv e le a v e . In h i s t el ev i sedrem ark s, E g g le s to n a ls o o p e n lyc r itic iz e d th e d e p a rtm e n t a n d B ie lu c h ’s d e c is io n s a s s h e r if f . U po n con cl usi on of the i nv es t i gat i on on M ay7, 20 02 , E gg l es t on w as c ha r ge d w i th vi ol a t i ng de pa rtm e nt a l r e gul a t i ons a nd pol i c i e s thr ough hi s ( 1) i nsub ordi nat i on i n fai l i ng t o com pl y w i th a di re ctorder of a s up er i or; (2) i m prop er pol i t i c a l a c t i vi ty ; a nd ( 3) i ns ubor di na t i on i n c r i t i c i z i ng B i e l uc h’ s or de r s a nd p o lic ie s . Th e f

i r s ta n d s e c o n d v i o l a t i o n s w e r e b a s e d o n Eg g l e s t o n ’ s d a y t i me10

m e e tin g s w ith th e S u g a rC a n e G r o w e r s r e p r e s e n ta tiv e a n d th e S t. L u c ie C o u n ty s h e r if f . T he thi rd vi ol at i on w as base d o n the t el evi se d speec h E gg l es t on gave aft er b e in g p la c e d o n a d m in is tr a tiv e le a v e . B i e l uc h t e rm i na t e d E ggl e s t on on M a y8, 2 0 0 2 . A f t e rhi s t e rm i na t i on f

r om the de pa rtm e nt , E ggl e s t on w a s quot e d i n aJ une 1 4 , 2 0 0 2 n e w s p ap e ra rt i c l e a s s a y i n g : “ I w a s v o c a l a n d c o n s i s t e n ti n my oppos i t i on w i th the s he r i f f . . . . B e c aus e of

thi s , ourr e l a t i ons hi p s our e d, a nd I k n ew th ato u r ab i l i ty t o w o rkt o g eth er w as i rrev o cab l y b reach ed . ” T h e art i cl e al so r e port e d E ggl e s t on’ s J une 13th a nnounc e m e nttha the w a s w i thdr a w i ng f r om the c o n g r e s s io n a l r a c e a n d s u in g B ie lu c h “f o ru n la w f

u l f ir in g a n d d e s tr o y in g h is po l i t i ca l ca m pai gn . ” II. E ggl e s t on f

i l e d thi s l a w s ui ton J une 13, 2002 a s a42 U . S . C . § 1983 a c t i on a g a in s t B ie lu c h in h is in d iv id u a l a n d o f f ic ia l c ap a c itie s , a s s e rtin g v io la tio n s o f h is F o u rte e n th A m e n d m e n t r ig h t to e q u a l p r o te c tio n , F o u rte e n th A m e n d m e n t r ig h t to pr oc e dur a l due pr oc e s s , a nd F i r s tA m e ndm e ntr i ght s t o f r e e s pe e c h a nd t o run f

or p o litic a l o f

f ic e .11 A. O n Jul y 10, 20 02 , B i el uch m ov ed t o d i sm i ss al l three cl ai m s und erF eder al R ul e of C i vi l P roce du re 12 (b)( 6) for f ai l ure t o st at e acl ai m up on w hi ch re l i ef can be grant ed. H e a l so m ov ed t o d i sm i ss the cl ai m s a gai nsthi m i n h i s i nd i vi du al c ap a c ityo n q u a lif

ie d im m u n ityg r o u n d s . B i el uch res po nd ed t o the equal p r o te c tio n c la im b yc h a r a c te r iz in g it a s ar e s ta te m e n t o f th e F ir s t A m e n d m e n t c la im and b y argui ng thatE gg l es t on had n oti dent i fi ed a s i m i l ar l y s i tuat ed i nd i vi du al w h o w a s tr e a te d d if

f e r e n tlyth a n h im s e lf

. H e r e s ponde d t o the pr oc e dur a l due p r o c e s s c la im b yd e n y in g th a t E g g le s to n p o s s e s s e d ap r o p e rtyr ig h t in h is e m p lo y m e n t. W i th r e ga r d t o the F i r s tA m e ndm e ntc l a i m , B i e l uc h a r gue d tha t : ( 1) E gg l es t on ’ s s peec h cl ai m w as no tbase d o n a m att erof pu bl i c c on ce rn and for that r e a s on w a s note nt i t l e d t o pr ot e c t i on unde rthe F i r s tA m e ndm e nt ; ( 2) a ny r e s tr i c t i ons pl a c e d upon E ggl e s t on’ s s pe e c h ora c t i vi t i e s w e r e pr ope ri n l i ghtof the ope r a t i ona l ne e ds of

al a w e nf

or c e m e nta ge nc ya nd the i m port a nc e of a voi di ng d isru p ti o n in th e d ep ar tm en t; an d (3 ) a n y r es tricti o n s p lace d u p o n E g g lesto n ’s c a m p a ig n a c tiv itie s w e r e r e a s o n ab le a n d la w f u l. In an o rd eren tere d o n M ar ch 5 , 2 0 0 3 , th e d istrict co u rt d en ied B ielu ch ’s m ot i on t o di s m i s s , c onc l udi ng tha tE ggl e s t on’ s c om pl a i nts t a t e d c aus e s of a c t i on a n d th a t B ie lu c h ’s m o tio n , “f o rth e m o s t p a rt, a s s e rt[ e d ] d e f e n s e s w h ic h [ c o u ld n o t]We declined to consider Eg g leston’s claim that “B ieluch’s f iling of a n Internal Affairs 3 complaint ag ainst Eg g leston . . . violated his rights to freespeech and to run for political office guara nteed by the Fir st Amendment . . . .” We noted that in his brief to this Court, Eggleston had c onc e de d th at hi s right w a s n ot c le arly e sta bli sh e d a nd had withdrawn

thi s c laim ag ains t Bie luch in his indivi dual ca pacity . 12 be consi dere d o n a m ot i on t o d i sm i ss . ” B ie lu c h b r o u g h t a n in te r lo c u to ryap p e a l to th is C o u rt. I n a n u n p u b lis h e d o p in io n w e a f f irm e d in p a rt a n d r e v e r s e d in p a rt. F i r s t , we c o n c lu d e d th a t th e c o m p la in t’s a lle g a tio n s , ta k e n a s aw h o le , c o u ld b e r e a d to s u f f ic ie n tlys ta te a n e q u a l p r o te c tio n v io la tio n , a n d th a t B ie lu c h w a s n o t e n title d to q u a lif ie d im m u n ityo n th e e q u a l p r o te c tio n c la im . S e c ond, w e c onc l ude d tha tE ggl e s t on ha d f a i l e d t o s t a t e ac l a i m unde rthe d u e p r o c e s s c lau s e b e c au s e h e p o s s e s s e d a d e q u a te r e m e d ie s a t s ta te la w . B ecau se E g g le s to n ’s a lle g a tio n s f a ile d to s ta te av io la tio n o f d u e p r o c e s s , w e d id n o t n e e d to c o n s id e rw h e th e rth a t r ig h t w a s c le a r lye s tab lis h e d . W e hel d thatB i el uch w as e l i gi bl e f orqua l i f i e d i m m uni tyon the due pr oc e s s c l a i m a nd w e r e ve r s e d the d is tr ic t c o u rt’s d e n ia l o f B ie lu c h ’s m o tio n to d is m is s to th a t e x te n t. T hi rd, w e c on si dere d E gg l es t on ’ s a l l egat i on thatB i el uch, i n h i s i nd i vi du al capaci ty, vi ol at ed E gg l es t on ’ s F i rs tA m endm entri gh tt o p art i ci pat e i n a po l i t i ca l c a m pa i gn. W e he l d tha tbe c aus e “ the r e [ w a s ] no c l e a r l ye s t abl i s he d l a w tha tthe

3 re stri ct i on s B i eluch p l ac ed on E gg l es t on ’ s c andi dacyvi ol at ed hi s c on st i tut i on al13

r ig h ts ,” B ie lu c h w a s e n title d to q u a lif ie d im m u n ityo n th a t c la im . B as ed on that d e te rm in a tio n , w e r e v e r s e d th e d is tr ic t c o u rt’s d e n ia l o f B ie lu c h ’s m o tio n to di sm i ss E gg l es t on ’ s F i rs tA m endm entcl ai m s a gai nstB i el uch i n h i s i nd i vi du al c ap a c ity . T he netef

fe ctof the fi rs tappeal w as thatE gg l es t on ’ s l aw sui tw as a l l ow e d t o pr oc e e d a s t o the e qua l pr ot e c t i on c l a i m a ga i ns tB i e l uc h a nd a s t o the F ir s t A m e n d m e n t c la im s a g a in s t B ie lu c h in h is o f f ic ia l c ap a c ityo n ly . B. O n M a y2 6 , 2 0 0 5 , B ie lu c h , in h is in d iv id u a l c ap a c ity , a n d R ic B r a d s h a w , in hi s of f i c i a l c apa c i tya s the ne w s he r i f f of P a l m B e a c h C ounty , f

i l e d aj oi ntm ot i on fo r su m m ary j u d g m en tas t o b o th cl ai m s. O n J une 21, 2005, E ggl e s t on f i l e d a m o tio n f o rp a rtia l s u m m a ryju d g m e n t a s to th e e q u a l p r o te c tio n c la im . T he di stri ct c ourte nt e r e d a n or de ron O c t obe r7, 2005, gr a nt i ng the de f e nda nt s ’ m ot i on f

or s u m m a ryju d g m e n t a n d d e n y in g E g g le s to n ’s m o tio n . E g g le s to n f ile d atim e ly n o tic e o f ap p e a l. III. W e r e v ie w d e n o v o th e d is tr ic t c o u rt’s g r a n t o f s u m m a ryju d g m e n t,

“ appr a i s i ng a l l f

a c t s a nd r e a s onabl e i nf

e r e nc e s i n the l i ghtm os tf a vor abl e t o the nonm ovi ng pa rty . ” I r a ol a& C I A , S . A . v. K i m be r l y - C l a rk C orp. , 325 F . 3d 1274, 1 2 8 3 (1 1 th C i r. 2 0 0 3 ). S u m m ary j u d g m en ti s ap p ro p ri at e “ i f th e p l ead i n g s,14

de pos i t i ons , a ns w e r s t o i nt e rr oga t or i e s , a nd a dm i s s i ons on f i l e , t oge the rw i th the a f f i da vi t s , i f

a ny , s how tha tthe r e i s no ge nui ne i s s ue a s t o a nym a t e r i a l f a c ta nd th a tth e mo v i n g p a rtyi s e n t i t l e d t o aj u d g me n ta s ama tt e ro f l a w . ” Fe d . R. Ci v . P. 56 (c ). A . E q u a l P r o te c tio n C la im E ggl e s t on c ont e nds tha tB i e l uc h vi ol a t e d hi s r i ghtt o e qua l pr ot e c t i on by di s c i pl i ni ng hi m m or e s e ve r e l ytha n othe re m pl oy e e s . S pe c i f i c a l l y , he c ont e nds tha tB i e l uc h puni s he d hi m f or : ( 1) c a m pa i gni ng i n uni f orm , ( 2) c a m pa i gni ng on duty w hi l e c l a i m i ng t o be us i ng f l e x- t i m e , ( 3) us i ng hi s t a ke - hom e c a rf or ca m pai gn i ng , and (4) pu bl i cl y c ri t i ci zi ng the departm entand B i el uch’ s dec i si on s a s s h e r if f . E g g le s to n c la im s th a t B ie lu c h u n f a ir lyd e m o te d h im to c ap ta in , p la c e d h im o n a d mi n i s tr a t i v e l e a v e , a n d u l t i ma t e l yt e rmi n a t e d h i m. I n s u p p o rto f h i s c l a i m, E ggl e s t on of

f e r s e xa m pl e s of

othe rof f i c e r s w ho e nga ge d i n s i m i l a rorw ha the vi ew s a s m ore e gregi ou s c on du ctand yetw er e notdi sc i pl i ned atal l or w er e d i sci p l i n ed l ess sev erel y th an h e w as. T h e d is tr ic t c o u rt s ta te d th a t p u r s u a n t to th e p r io rd e c is io n o f th is C o u rt, E gg l es t on coul d “ prov e hi s e qu al prot ec t i on cl ai m ei ther ( 1) by es t abl i shi ng that s i m i l a r l y - s i tua t e d i ndi vi dua l s w e r e tr e a t e d di f f e r e nt l yw i thoutar a t i ona l ba s i s f orWe rec ognize that our prior opinion stated: “ar bitrarily and vindictively

firing 4 Eg g leston for c ampaign activities while imposing no discipline on others who eng ag ed in similar political events, and imposingless severe discipline on thieves a nd drunk drivers and those who eng ag ed in sexual misconduct—was in violation of this clear c onstitut ional right.” This l anguag ec ould b ec on str ue d toac c ept t

hethe or y that an e qual prote c tio n viol atio n o c cur s if a plaintiff doe s not violate a policy and is disciplined while others who eng ag ed in misconduct aretreated more leniently . We question the leg al cor rectness of such a

theory, but we will acc ept it for our pre sent purposes a s part of thelaw of thecase . We note that beca use our prior opinion is unpublished, neither that nor a ny other pa rt of it establishes law of

the circuit. We do rec ognize that there wa s some confusion in the law of this circuit about the 5 de gre eof simila rity ne c e ssa ry for a valid c omp arator , but t

hat c on fu sio n w a s c le are d u p in Bur ke-F owler v. O rang e County, Fla., 447 F .3d 1319, 1323 n.2 (11th Cir. 2006), where we explained that an ea

rlier pa nel dec ision prevails over a conflictinglater pa

nel dec ision. There fore , the “ne arly

identical” sta

ndard set out in Maniccia v. B rown, 171 F .3d 1364, 1368–69 (1 1th Cir . 1 99 9) , isthelaw o f t hec ircuit .

15 the di f f e r e nc e i n tr e a tm e nt , or( 2) byde m ons tr a t i ng tha the vi ol a t e d no pol i c ybut w a s n o n e th e le s s s u b

je c te d to h a r s h e rd is c ip lin e th a n o th e re m p lo y e e s .” 4 A s s u m in g w ith o u t d e c id in g th a t th e “c la s s o f o n e ” th e o rya rtic u la te d in V i l l age of W i l l ow broo k v . O l ec h, 52 8 U . S . 56 2, 12 0 S . C t . 10 73 (200 0) (per c ur i a m ) , appl i e s i n the publ i c e m pl oy m e ntc ont e xt , E ggl e s t on m us ts how tha the has bee n “ i nt ent i on al l y tre at ed di ff er ent l y f rom others si m i l ar l y s i tuat ed and that the r e i s no r a t i ona l ba s i s f orthe di f f e r e nc e i n tr e a tm e nt . ” I d. at56 4, 12 0 S . C t . at 5 10 74 . H e m ustshow a s at i sf ac t ory c om para t or w ho w as i n fac tsi m i l ar l y s i tuat ed a nd y e ttr e a t e d di f

f e r e nt l y . C om pa r a t or s m us tbe “ s i m i l a r l ys i tua t e d i n a l l r e l e va nt re spec t s, ” K ni gh tv. B apt i stH osp. of M i am i , Inc. , 33 0 F . 3d 13 13 , 13 16 (11th C i r.16

2003) ( i nt e rna l c i t a t i ons om i tt e d) , a nd the “ qua nt i tya nd qua l i tyof the c om pa r a t or ’ s m i s c onduc t[ m us t ] be ne a r l yi de nt i c a l t o pr e ve ntc ourt s f r om s e c o n d - g u e s s in g e m p lo y e r s ’ r e a s o n ab le d e c is io n s a n d c o n f u s in g ap p le s w ith o r a n g e s .” M a n ic c iav . B r o w n , 1 7 1 F .3 d 1 3 6 4 , 1 3 6 8

– 6 9 ( 1 1 th C ir . 1 9 9 9 ) . A l th o u g h d et erm i n i n g w h eth er i n d i v i d u al s are si m i l arl y si tu at ed i s g en eral l y a fa ctual i ss ue for the j ury, w here there i s no g enui ne i ss ue of m at er i alfa ctthatsuch ac om pa r a t ordoe s note xi s t s , s um m a ryj udgm e nti s appr opr i a t e . H a r l e n A s s oc s . v. Inc. V i l l . of M i neol a, 27 3 F . 3d 49 4, 49 9 n . 2 (2d C i r. 20 01 ) ( “ [A ] courtcan p r o p e r lyg r a n t s u m m a ryju d g m e n t w h e r e it is c le arth a t n o r e a s o n ab le ju ryc o u ld fi nd the si m i l ar l y s i tuat ed pron g m et . ”) . W e r e c ogni z e tha tourpr i oropi ni on i n thi s c a s e ga ve E ggl e s t on s om e r e a s on t o be l i e ve tha the c a n m a ke outavi abl e e qua l pr ot e c t i on c l a i m m e r e l ybys how i ng thatanother off

i ce r e ng aged i n “ si m i l arpo l i t i ca l event s” and w as tre at ed m ore f a vor abl y . T ha ti s s i m pl ynotthe l a w . A s the di s tr i c tc ourtde t e rm i ne d, E ggl e s t on m u s t s h o w ac o m p a r a to rw h o b o th e n g a g e d in s im ila rp o litic a l e v e n ts a n d p u b lic ly cr i t i ci ze d B i el uch and hi s pol i ci es . T o the ext entou r pri or deci si on sugg es t ed othe rw i s e , i ti s c l e a r l ye rr one ous a nd f ortha tr e a s on notbi ndi ng unde rthe “ l a w of th e c a s e ” d o c tr in e . U n ite d S ta te s v . E s c o b a r - U rr e g o , 1 1 0 F .3 d 1 5 5 6 , 1 5 6 1 ( 1 1 th C i r. 19 97 ). U nd erci rc ui tl aw a val i d com para t or m ustbe “ near l y i dent i ca l . ”17

F o rE g g le s to n to p r e v a il o n h is c la im h e r e , h e m u s t p o in t to as im ila r ly rank ed P al m B ea ch C ou nty off i ce r w ho bo th cam pai gn ed du ri ng the w ork d ay w hi l e i n uni f

orm a nd publ i c l yc r i t i c i z e d B i e l uc h a nd the de pa rtm e nt . E ggl e s t on has notdo ne that . H e off er ed as com para t ors s i x o ff i ce rs w ho engaged i n p ol i t i ca l c onduc ta nd as i ngl e of

f i c e rw ho c r i t i c i z e d de pa rtm e ntpol i c e s a nd B i e l uc h, but n o n e th a t d id b o th . E g g le s to n c a n n o t c o b b le to g e th e rac o m p a r a to ru s in g m u ltip le offi ce rs . H e m ustshow a s i ng l e, si m i l ar l y s i tuat ed i nd i vi du al w ho w as tre at ed di ff er ent l y. M ani cc i a, 17 1 F . 3d at13 68 –6 9. H e c anno tm ake the neces sary sh o w i n g , an d h i s cl ai m fai l s. A s as e c ond the orys upport i ng hi s e qua l pr ot e c t i on c l a i m , E ggl e s t on cont ends thatB i el uch w as m ore l eni entw i th em pl oyee s w ho com m i tt ed m ore s e r i o u s o f

f e n s e s w h i l e Eg g l e s t o n d i d n o th i n g w r o n g . To s u p p o rth i s c l a i m, E g g le s to n n a m e s an u m b e ro f o f f ic e r s w h o m h e a lle g e s e n g a g e d in aw id e v a r ie ty o f m i sco n d u ctan d w ere d i sci p l i n ed l ess h arsh l y th an h e w as. N o n eth el ess, E ggl e s t on c a nnotpr e va i l unde rthi s the orye i the r , be c aus e i ti s c l e a rtha the vi ol a t e d de pa rtm e ntpol i c ybyope nl yc r i t i c i z i ng B i e l uc h a nd the de pa rtm e nti n a p r e s s c o n f

e r e n c e o n A p r il 1 6 , 2 0 0 2 . T h e d is tr ic t c o u rt f o u n d th a t th is p u b lic c r itic is m “s u b

je c t[ e d ] th e O f

f ic e to r id ic u le a n d u n d e rm in [ e d ] its e f f e c tiv e n e s s .” E ggl e s t on f

r e e l ya dm i tt e d t o gi vi ng tha ts pe e c h, a nd the de pa rtm e nti nve s t i ga t i on18

c onc l ude d tha thi s c onduc tc ons t i tut e d i ns ubor di na t i on i n vi ol a t i on of de pa rtm e nt po l i cy . T hu s, E gg l es t on fa i l ed t o sho w thathe vi ol at ed no po l i cyand there fore , c a n n o t e s tab lis h av iab le c la im . T h e d is tr ic t c o u rt’s g r a n t o f s u m m a ryju d g m e n t in fa vo r of B i el uch as t o E gg l es t on ’ s e qu al prot ec t i on cl ai m s w as prop er . B. Fi r s tA me n d me n tCl a i ms E ggl e s t on pr e s s e s tw o F i r s tA m e ndm e ntc l a i m s i n thi s appe a l . F i r s t , he cont ends thatB i el uch’ s t erm i nat i on of hi m vi ol at ed hi s F i rs tA m endm entfr ee s pe e c h r i ght s . H e a r gue s tha thi s s pe e c h i nvol ve d m a tt e r s of publ i c c onc e rn a nd c au s e d n o d is ru p tio n in th e d e p a rtm e n t. T h e s p e e c h in q u e s tio n o c c u rr e d in p r iv a te di sc ussi on s w i th B i el uch and i n C om m and S t af f m ee t i ng s w hi l e E gg l es t on se rved a s u n d e r s h e r if

f . E g g le s to n c r itic iz e d f

o u ra s p e c ts o f

B ie lu c h ’s a d m in is tr a tio n : h is p e r s o n n e l d e c is io n s , h is r e c la s s if ic a tio n o f

th e o f f ic e r s a t th e E a g le Y o u th A c a de m y , hi s budge ta l l oc a t i ons , a nd hi s de c i s i on t o i nc r e a s e the num be rof pos i t i ons e nt i t l e d t o t a ke - hom e c a rpr i vi l e ge s . E ggl e s t on a r gue s tha tw e m us tl ook athi s r ank att erm i nat i on (c apt ai n) and n othi s r ank w hen the com m ent s w er e ac tual l y m ade ( un ders heri ff ). H e a ss ert s thathi s c ri t i ci sm s nei ther c ause d di s rupt i on i n the de pa rtm e ntnors ugge s t e d di s l oy a l tyt o B i e l uc h. W e an al yze E g g l est o n ’ s sp eech cl ai m i n acco rd an ce w i th th e fo u r-p artt est a rt i c ul a t e d i n P i c ke r i ng v. B oa r d of E duc a t i on, 391 U . S . 563, 88 S . C t . 173119

( 1968) . I n c ons i de r i ng w he the rpa rt i c ul a rs pe e c h i s pr ot e c t e d, w e m us t : ( 1) de t e rm i ne w he the rthe e m pl oy e e ’ s s pe e c h i nvol ve s am a tt e rof publ i c c onc e rn; a nd if so , (2 ) w eig h th e e m p lo ye e’s F irst A m en d m en t rig h ts ag ain st th e e m p lo ye r’s i nt er es ti n eff

i ci entpu bl i c s ervi ce s; then, (3) dec i de i f the spee ch i n q uest i on pl ay ed as u b s t a n t i a l r o l e i n th e e m p l o y e r ’ s d e c i s i o n ; a n d f i n a l l y , ( 4 ) i f

th e e m p l o y e e s h o ws tha tthe s pe e c h di d s ubs t a nt i a l l ym ot i va t e the e m pl oy m e ntde c i s i on, a l l ow the d e f e n d a n t a n o p p o rtu n ityto e s tab lis h th a t it w o u ld h a v e ta k e n th e s a m e a c tio n in the abse nce of the spee ch. M organ v . F ord, 6 F . 3d 75 0, 75 4 (11 th C i r. 19 93 ). O u rf ir s t in q u iryis w h e th e rE g g le s to n ’s s p e e c h a d d r e s s e d a“p u b lic concern. ” T he S up re m e C ou rthas def i ned speech addres si ng a pub l i c c on ce rn as

“ re l at i ng t o any m att erof po l i t i ca l , soci al , or other c on ce rn t o the com m un i ty. ” C onni c k v. M e y e r s , 461 U . S . 138, 146, 103 S . C t . 1684, 1690 ( 1983) . I n our a s s e s s m e n t, w e m u s t c o n s id e r“th e c o n te n t, f o rm a n d c o n te x t o f

ag iv e n s ta te m e n t, a s r e ve a l e d bythe w hol e r e c or d. ” M or gan, 6 F . 3d a t754 ( quot i ng D e r e m o v. W a tki ns , 939 F . 2d 908, 910 ( 11th C i r . 1991) ) . “ A c ourtm a yc ons i de rthe em p lo ye e’s a tt em p ts to m ak e th e c o n ce rn s p u b li c, alo n g w ith ‘th e e m p lo ye e’s m ot i vat i on i n speaki ng . ’ ” I d. (quo t i ng D er em o, 93 9 F . 2d at91 1). S peec h i s m ore l i ke l ye nt i t l e d t o pr ot e c t i on w he n i ti s m a de pa rtof apubl i c di a l ogue . S e e P e rryv. S i nd erm ann, 40 8 U . S . 59 3, 59 8, 92 S . C t . 26 94 , 26 98 (197 2). A dd i t i on al l y, spee ch20

i s m o re l i k el y t o b e p ro t ect ed w h en i ti s m ad e b y an i n d i v i d u al sp eak i n g o u tas a c i t i z e n r a the rtha n i n hi s c apa c i tya s a n e m pl oy e e . S e e C onni c k, 461 U . S . a t147, 10 3 S . C t . at16 90 ; M orri s v. C row , 14 2 F . 3d 13 79 , 13 82 (11th C i r. 19 98 ). T he s pe e c h m us tbe aboutam a tt e rof publ i c c onc e rn f

orF i r s tA m e ndm e nt pr ot e c t i ons t o a tt a c h. T ha tr e qui r e m e nti s notm e the r e . E ggl e s t on w a s nottry i ng t o exp ose any i l l egal cond uctor corrup t i on com m i tt ed by B i el uch o r other off i ce rs w i thi n the de pa rtm e nt . H e w a s i ns t e a d a c t i ng i n hi s r ol e a s unde r s he r i f f a nd c a rry in g o u t h is d u tyto a d v is e B ie lu c h . A ll h is c o n c e rn s w e r e e x p r e s s e d in te rn a lly a t s ta f f m e e tin g s . A lth o u g h it is n o t n e c e s s a ryth a t s p e e c h b e g iv e n in ap u b lic forum t o m er i tprot ec t i on , the fa ctthatthe spee ch w as gi ven t o a “ l i m i t ed audi e nc e ” w e i ghs a ga i ns tpr ot e c t i on i n the ba l a nc i ng pr oc e s s . A nde r s on v. B urke C ou nty, G a. , 23 9 F . 3d 12 16 , 12 21 (11th C i r. 20 01 ). T here i s no evi dence that E ggl e s t on w a s try i ng t o i ni t i a t e publ i c di s c our s e ore duc a t e the e l e c t or a t e on the pr a c t i c e s of

the de pa rtm e nt . H e w a s a c t i ng a s a n e m pl oy e e , nota s ac i t i z e n. T he f oura r e a s of

c r i t i c i s m voi c e d byE ggl e s t on s how tha thi s s pe e c h w a s not o n m att ers o f p u b l i c co n cern . F i rst , h e ch al l en g ed B i el u ch ’ s p erso n n el d eci si o n s, a r gui ng tha te xa m s a nd othe rgui de l i ne s s houl d be ut i l i z e d t o de t e rm i ne pr om ot i ons and thatun qu al i fi ed em pl oyee s w er e bei ng hi re d. W e have hel d thatpers on nel d e c is io n s a r e b a s ic e m p lo y m e n t is s u e s th a t d o n o t c o n s titu te m a tte r s o f p u b lic21

concern. Id. at12 20 . T he i ss ues E gg l es t on ra i se d d ea l tsol el y w i th i nt ernal offi ce dynam i cs , no tm att er s of gener al pu bl i c i m po rt ance . S ec on d, E gg l es t on cr i t i ci ze d B i el uch’ s r ec l as si fi ca t i on of the offi ce rs atthe E agl e Y ou th A ca dem y, w hi ch ent i t l ed them t o h i gh -r i sk pensi on benefi t s. W e have al re ady hel d thatthi ng s s uch a s p e n s io n b e n e f

its r e la te to e m p lo y m e n t is s u e s a n d a r e n o t m a tte r s o f p u b lic c onc e rn. I d. E ggl e s t on w a s nots ugge s t i ng tha tB i e l uc h ha d a c t e d i l l e ga l l y , he si m pl y t oo k i ss ue w i th B i el uch’ s pol i cydet erm i nat i on s abo utan i nt ernal e m p lo y m e n t m a tte r . T h ir d , E g g le s to n c r itic iz e d B ie lu c h ’s b u d g e t a llo c a tio n s , s p e c if ic a llyh is deci si on t o p urchas e s ever al l ar ge-t i cketi t em s, hi s f ai l ure t o o ff

erqu art er l y bud get defi ci tup dat es , and h i s pra ct i ce of sol e s ou rc i ng . W e have hel d thatw hen b ud get a llo c a tio n s d e tr im e n ta llya f f e c t p u b lic s a f

e ty , am a tte ro f

p u b lic c o n c e rn m a ye x is t. M a rt i ne z v. C i tyof

O pa - L oc ka , F l a . , 971 F . 2d 708, 712 ( 11th C i r . 1992) . I n the M a rt i ne z c a s e , how e ve r , the pr ot e c t e d s pe e c h oc c urr e d i n apubl i c f orum be f or e the c ity ’s B o a r d o f

I n q u irya f

te ra n o f f ic ia l h a d v io la te d ac ityo r d in a n c e b yf a ilin g to fol l ow bu dg etal l ocat i on procedures. Id . H e r e , E ggl e s t on a dm i t s tha tthe a c t i ons of B i e l uc h tha the c r i t i c i z e d w e r e noti l l e ga l . F urthe rm or e , E ggl e s t on w a s not c ha l l e ngi ng the e xpe ndi tur e s outof ac onc e rn f

orthe i re f

f e c ton publ i c s a f

e ty , but be c aus e he thoughtthe r e w e r e be tt e rus e s f orthe m one y . E ggl e s t on w a s not22

s e e k in g ap u b lic d is c u s s io n o n d e p a rtm e n t s p e n d in g , h e w a s s im p lys p e a k in g in hous e i n hi s a dvi s oryr ol e a s unde r s he r i f f . A l l the budge t a ryc onc e rns r a i s e d by E g g le s to n w e r e m o r e m a tte r s o f in te rn a l p o lic yth a n m a tte r s o f p u b lic c o n c e rn . F i nal l y, E gg l es t on cond em ned B i el uch’ s dec i si on t o ext end t ake- ho m e c ar pr i vi l e ge s t o a ddi t i ona l de pa rtm e ntof f i c i a l s . T hi s , t oo, i s a n i nt e rna l e m pl oy m e nt is s u e . I n s um m a ry , w i th hi s s pe e c h E ggl e s t on onl yc ha l l e nge d ge ne r a l e m pl oy m e nt p o lic ie s a n d d e c is io n s o f a n in te rn a l n a tu r e . H e e x p r e s s e d h is c r itic is m s in h is profes si on al rol e a s und er sher i ff , no tas a c on ce rned ci t i ze n. Iti s i rr el evantthat E ggl e s t on’ s t e rm i na t i on oc c urr e d w hi l e he w a s ac apt a i n, be c aus e he w a s s e rvi ng a s unde r s he r i f

f a tthe t i m e the c om m e nt s i n que s t i on w e r e m a de . H e voi c e d a l l of hi s c ri t i ci sm s i nt ernal l y a tst af f m ee t i ng s, and there i s no i nd i ca t i on thathe w as a tt e m pt i ng t o i ni t i a t e publ i c de ba t e c onc e rni ng the de pa rtm e nt ’ s pol i c i e s or B ie lu c h ’s c o n d u c t a s s h e r if f . B e c au s e n o n e o f

th e s p e e c h E g g le s to n o f f e r s in s u p p o rt o f

h is F ir s t A m e n d m e n t f

r e e s p e e c h c la im in v o lv e s am a tte ro f p u b lic c o n c e rn , w e n e e d n o t a d d r e s s th e o th e re le m e n ts o f th e c la im . E g g le s to n ’s o th e rF ir s t A m e n d m e n t c la im is th a t B ie lu c h v io la te d h is const i tut i on al ri gh t s by l i m i t i ng hi s abi l i ty t o cam pai gn du ri ng the i nt ernal in v e s tig a tio n , w h ic h w a s c o n d u c te d f r o m A p r il 1 6 , 2 0 0 2 th r o u g h M a y7 , 2 0 0 2 .23

D uri ng thatt i m e, E gg l es t on w as i nstruct ed t o rem ai n i n h i s hom e duri ng w ork h o u rs, refrain fro m w eari n g h i s u n i fo rm , an d st o p rep resen t i n g h i m sel f as a sher i ff’ s off

i ce em pl oyee . B oth h i s patrol car and hi s off i ci al i dent i fi ca t i on w er e t a ke n. T he di s tr i c tc ourtc ha r a c t e r i z e d E ggl e s t on’ s c l a i m a s a n “ a tt e m pt [ ] t o a r gue tha tB i e l uc h pl a c e d r e s tr i c t i ons on [ hi s ] c a m pa i gn a c t i vi t i e s be c aus e B i e l uc h a nd E gg l es t on ar e m em bers of di ff er entfa ct i on s of the D em ocra t i c party. ” I tre j ec t ed the att em ptas “ bo th l egal l y and fa ctual l y i nsuffi ci entt o o verc om e s um m ary ju d g m e n t.” O n ap p e a l, E g g le s to n c o n te n d s th a t th e d is tr ic t c o u rt m is c o n s tru e d h is a r g u m e n t a n d n e g le c te d to a d d r e s s h is a rb itr a rytr e a tm e n t “c a m p a ig n ” c la im s e p a r a te f

r o m h is f a ile d in tr a - p a rtyd is c r im in a tio n “p o litic a l” c la im . E ggl e s t on d o e s n o t ap p e a l h is “p o litic a l” c la im , b u t h e d o e s a s s e rt th a t h e h a s av a lid “c a m p a ig n ” c la im b a s e d o n a rb itr a rytr e a tm e n t. W e di s a gr e e . E ggl e s t on c a nnot s how tha tB i e l uc h unc ons t i tut i ona l l yr e s tr i c t e d hi s abi l i tyt o c a m pa i gn dur i ng the in v e s tig a tio n . Th e Su p r e me Co u rth e l d i n Cl e me n t s v . Fa s h i n g , 4 5 7 U . S. 9 5 7 , 9 6 3 , 1 0 2 S. C t . 2836, 2843 ( 1982) , tha tthe r i ghtt o c a m pa i gn i s notf unda m e nt a l a nd doe s not m e r it s tr ic t s c ru tin ya n a ly s is . F u rth e r , th e C o u rt h e ld : “I n ap p r o a c h in g c a n d id a te r e s tr i c t i ons , i ti s e s s e nt i a l t o e xa m i ne i n ar e a l i s t i c l i ghtthe e xt e nta nd na tur e of24

th e i ri mp a c to n v o t e r s . ” I d . ( q u o t i n g Bu l l o c kv . Ca rt e r , 4 0 5 U . S. 1 3 4 , 1 4 3 , 9 2 S. C t. 8 4 9 , 8 5 5 ( 1 9 7 2 ) ) . S p e c if ic a lly , th e C o u rt d e te rm in e d th a t it w a s r e a s o n ab le to r e qui r e thos e hol di ng c e rt a i n s t a t e of f i c e s t o r e s i gn f

r om the i rc urr e ntpos i t i on b e f o r e s e e k in g a n o th e rp o litic a l o f f ic e . I d . a t 9 7 0

– 7 1 , 1 0 2 S . C t. a t 2 8 4 7

– 4 8 . A st at e has a l egi t i m at e i nt er es ti n m aki ng sure a gov ernm entoffi ci al “ w i l l nei ther abuse hi s posi t i on no r negl ec thi s dut i es because of hi s a spi ra t i on s f or hi gh er o f f ic e . T h e d e m a n d s o f

ap o litic a l c a m p a ig n m a yte m p t a [ n ] [ o f f ic e r ] to d e v o te l e s s tha n hi s f

ul l t i m e a nd e ne r gi e s t o the r e s pons i bi l i t i e s of hi s of f i c e . ” I d. a t968, 102 S . C t . a t2846. W hi l e w e a gree thatE gg l es t on has ari gh tt o cam pai gn fr ee fr om i rr at i on al obs t a c l e s , the l i m i t a t i ons i m pos e d byB i e l uc h w hi l e E ggl e s t on w a s be i ng in v es ti g ated w er e n o t i rr atio n al. It w as n o t u n re as o n ab le to li m itE g g lesto n ’s c a m p a ig n c o n d u c t d u r in g w o rkh o u r s a n d to r e s tr ic t h is ab ilityto r e p r e s e n t h im s e lf a s aP a lm B e a c h C o u n tyc ap ta in , u s in g th e e m b le m s o f th a t o f f ic e w h ile c a m pa i gni ng. T hos e r e s tr i c t i ons w e r e e ve n m or e r e a s onabl e c ons i de r i ng tha tthe de pa rtm e ntw a s i n the pr oc e s s of i nve s t i ga t i ng E ggl e s t on’ s pr i orc a m pa i gn act i v i t i es t o en su re th ath e h ad n o tv i o l at ed d ep artm en tp o l i ci es. T h e l i m i t at i o n s, w hi c h w e r e of

tw e nty - one da y s dur a t i on, w e r e ne i the ra rbi tr arynorvi ndi c t i ve a nd there i s no evi dence i nd i ca t i ng thatthey w er e m ot i vat ed by E gg l es t on ’ s pol i t i ca l25

a f f i l i a t i on. A s ar e s ul t , the di s tr i c tc ourtdi d note rri n e nt e r i ng s um m a ryj udgm e nt a g a in s t E g g le s to n o n th is c la im . AF F I RME D.