Case Name: MISSISSIPPI COMMISSION ON JUDICIAL PERFORMANCE v. Solomon C. OSBORNE
Court: Mississippi Supreme Court
Jurisdiction: Mississippi
Decision Date: 2004-07-01
Citations: 876 So. 2d 324
Docket Number: No. 2003-JP-00057-SCT
Parties: MISSISSIPPI COMMISSION ON JUDICIAL PERFORMANCE v. Solomon C. OSBORNE.
Judges: WALLER, P.J., AND EASLEY, J., CONCUR. COBB, P.J. CONCURS IN RESULT ONLY. DICKINSON, J., SPECIALLY CONCURS WITH SEPARATE WRITTEN OPINION, JOINED BY WALLER AND COBB, P.JJ.; EASLEY AND RANDOLPH, JJ„ JOIN IN PART. SMITH, C.J., CONCURS IN PART AND DISSENTS IN PART WITH SEPARATE WRITTEN OPINION JOINED BY CARLSON AND RANDOLPH, JJ. DIAZ, J., NOT PARTICIPATING.
Reporter: Southern Reporter, Second Series
Volume: 876
Pages: 324–337

Head Matter:
MISSISSIPPI COMMISSION ON JUDICIAL PERFORMANCE v. Solomon C. OSBORNE.
No. 2003-JP-00057-SCT.
Supreme Court of Mississippi.
July 1, 2004.
Luther T. Brantley, III, Darlene Ballard, Jackson, attorneys for appellant.
Leonard McClellan, Jackson, attorneys for appellee.

Opinion:
GRAVES, Justice,
for the Court.
¶ 1. This judicial performance case involves the alleged judicial misconduct of Leflore County Court Judge Solomon C. Osborne. On August 8, 2001, Judge Osborne was appointed to fill an unexpired term of County Court Judge for Leflore County. He was later elected to a full term. Judge Osborne admits that between October, 2001 and January, 2002, he filed on behalf of clients five complaints in chancery courts, one complaint in circuit court, and two petitions in bankruptcy court. The state court filings occurred in the following counties: Sunflower, Bolivar, Leflore, and Montgomery. The federal bankruptcy petitions were filed in the United States Bankruptcy Court for the Northern District of Mississippi.
¶ 2. On January 9, 2003, the Mississippi Commission on Judicial Performance filed a formal complaint against Judge Osborne. The complaint alleged that Judge Osborne continued to practice law after his appointment to the bench, thereby violating Miss. Code Ann. § 9-1-25 and 9-9-9, as well as Canons 1, 2A, 2B, 3A and 4G of the Mississippi Code of Judicial Conduct. The complaint also asserted that Judge Osborne's conduct constituted willful misconduct and conduct prejudicial to the administration of justice in violation of Miss. Const. art 6, § 177A. The Commission filed a petition for interim suspension, and this Court granted the petition.
¶ 3. The Commission's attorney urged the Commission to remove Judge Osborne from office. After a hearing, the Commission rendered its Findings of Facts, Analysis and Recommendations and found that Judge Osborne's conduct did not warrant the harsh sanction of removal from office. Specifically, the Commission recommended that this Court take the following actions in this matter: publicly reprimand Judge Osborne, rescind his temporary suspension, reinstate Mm to office, and order him to pay costs of the proceeding. This Court agrees with and adopts the Commission's findings and recommendations.
STANDARD OF REVIEW
¶ 4. This Court reviews disciplinary matters de novo. Miss. Comm'n on Judicial Performance v. Teel, 863 So.2d 973, 975 (Miss.2004). While it is true that this Court is the trier of fact in judicial misconduct proceedings and may impose additional sanctions, it nonetheless gives great weight to the findings of the Commission which has had the opportunity to observe the demeanor of the witnesses. In re Garner, 466 So.2d 884, 885 (Miss.1985).
DISCUSSION
I. Whether Judge Osborne's conduct constitutes "practicing law" as prohibited by Mississippi Code Annotated, Sections 9-1-25 and 9-9-9.
¶ 5. Miss.Code Ann. § 9-1-25 states in pertinent part:
It shall not be lawful for any judge of the Supreme Court, Court of Appeals or a judge of the circuit court, or a chancellor to exercise the profession or employment of an attorney or counselor at law, or to be engaged in the practice of laws; and any person offending against this prohibition shall be guilty of a high misdemeanor and be removed from office; but this shall not prohibit a chancellor or circuit judge or a judge of the Court of Appeals from practicing in any of the courts for a period of six (6) months from the time such judges or chancellors assume office so far as to enable them to bring a conclusion to cases actually pending when they were appointed or elected in which such chancellor or judge was then employed.
(emphasis added). Miss.Code Ann. § 9-9-9 (Rev.2002) extends the prohibition against practicing law to county judges in stating:
The county judge shall not practice law in any of the courts of the county wherein he holds court, but this prohibition shall not prohibit the judges of the county courts from practicing in any of the courts so far as to enable them to bring to a conclusion cases actually pending when they were appointed or elected, in which such county judges were then employed as provided in section 9-1-25, Mississippi Code of 1972, for judges of the circuit court and chancellors.
A county court judge is allowed six months to bring his practice to a conclusion. See id. § 9-1-25.
¶ 6. As the Commission correctly notes, this Court has never interpreted Miss. Code Ann. § 9-9-9 pertaining to the "winding down" period in which judges are allowed six months from the time they assume office to bring a conclusion to cases actually pending when they were appointed or elected. The Commission argues that the term "cases actually pending" is intended to reflect a matter in which a pleading has been filed before the Court and for which no final determination has yet been made. The Commission further avers that the language of Miss.Code Ann. § 9-1-25 sufficiently and clearly defines what members of the bench are permitted to do to conclude their law practice within the permissible statutory period either by resolution of the matter via negotiation, submission of a final order, or by withdrawal of counsel.
¶ 7. In the case at bar, Judge Osborne filed neiv actions, either complaints or petitions, within the six month "winding down" period. Judge Osborne claims that he relied on the language of Miss.Code Ann. § 9-9-9, and the term "pending cases" is not limited to cases pending in court. Rather, pending cases could also mean cases awaiting conclusion in a lawyer's office. While it is true that the term "pending cases" is somewhat ambiguous, it is clear that filing new actions in no way constitutes concluding cases actually pending. This Court finds that the actions of filing new complaints or petitions by Judge Osborne constitutes "practicing law" under § 9-1-25.
II. Whether Judge Osborne's conduct constituted conduct prejudicial to the administration of justice which brings the judicial office into disrepute.
¶ 8. Pursuant to . the Mississippi Constitution, the Court may "remove from office, suspend, fine or publicly censure or reprimand any justice or judge of this state for . conduct prejudicial to the administration of justice which brings the judicial office into disrepute." Miss. Const. art. 6, § 177A. As the Court has stated, the conduct need not be in bad faith-rather, it may be the result of negligence or ignorance. Miss. Comm'n on Judicial Performance v. Justice Court Judge S.S., 834 So.2d 31, 34-35 (Miss.) That is, the Court has held:
While the conduct of Respondent, in our opinion, amounted to willful misconduct in office and conduct prejudicial to the administration of justice, bringing the judicial office into disrepute, we recognize . that a judge may also, through negligence or ignorance not amounting to bad faith, behave in a manner prejudicial to the administration of justice so as to bring the judicial office into disrepute. The result is the same regardless of whether bad faith or negligence and ignorance are involved and warrants sanctions.
Id. (quoting Miss. Comm'n on Judicial Performance v. Boykin, 763 So.2d 872, 875 (Miss.2000)) (internal citations omitted).
¶ 9. While the Commission's counsel argued that Judge Osborne's conduct constituted willful misconduct in office and conduct prejudicial to the administration of justice which brings the judicial office into disrepute, the Commission found only that it amounted to prejudicial conduct. This Court agrees with the Commission's findings that Judge Osborne's conduct only amounted to prejudicial conduct and not willful conduct which brings the judicial office into disrepute. Judge Osborne did not willfully abuse the privilege of his office in filing the new complaints. He simply misinterpreted the statute allowing a judge six months to wind down his practice. However, as this Court has previously held, regardless of whether a judge's misconduct arises from bad faith or ignorance, sanctions must be imposed.
III. Whether Judge Osborne's conduct warrants removal from office.
¶ 10. Under this Court's established jurisprudence, in a judicial misconduct proceeding, "[t]he sanction imposed should be consistent with other like cases." Miss. Comm'n on Judicial Performance v. Willard, 788 So.2d 736, 745 (Miss.2001). The sanction should also fit the offense. Miss. Comm'n on Judicial Performance v. Warren, 791 So.2d 194, 197 (Miss.2001).
¶ 11. The Commission's attorney suggests that because Judge Osborne filed eight complaints during the six months after he was elected to office, removal from office somehow "fits the offense." We disagree. Removal is an extreme and draconian measure, and does this sanction fit this offense. This sanction should only be employed as a last resort.
¶ 12. In Mississippi Comm'n on Judicial Performance v. Jenkins, 725 So.2d 162, 169 (Miss 1998), this Court defined willful misconduct in office as:
the improper or wrongful use of power in his office by a judge acting intentionally or with gross unconcern for his conduct and generally in bad faith. It involves more than an error of judgment or a mere lack of diligence. Necessarily, the term would encompass conduct involving moral turpitude, dishonesty, or corruption, and also any knowing misuse of he office, what ever motive.
The Commission found that Judge Osborne's actions did not rise to the level of willful misconduct which would result in removal from the bench. Specifically, the Commission found that:
§ 9-9-9 does not address the penalty phase as found in § 9-1-25. More specifically, the statute does not provide for the removal of office as a violation of penalty. Judge Osborne should be governed under § 9-9-9 and as such, removal from office should not be the only option.
The Commission further commented on the legislative intent of § 9-9-9 in stating:
Surely the legislature could not have intended § 9-9-9 of the Mississippi Code Annotated to yield such harsh results in the absence of any aggravating circumstances. . Having considered that [Judge Osborne] has not been subject to any prior disciplinary proceedings before this Body, the Mississippi Commission on Judicial Performance Panel recommends to the Mississippi Supreme Court that Judge Solomon Osborne be:
1. Publicly Reprimanded;
2. Temporary Suspension to be Rescinded and Judge Osborne Reinstated into Office; and
3. Assessed the Costs of this Proceeding.
(emphasis added).
¶ 13. Judge Osborne relied on the language of Miss.Code Ann. § 9-9-9 when he filed the complaints in the six months after he was appointed to office. Judge Osborne claims that he relied on this language, and in his view, the term "pending cases" is not limited to cases pending in court. Rather, pending cases could also mean cases awaiting conclusion in a lawyer's office. Because of the ambiguity of the statute's language Judge Osborne acted out of ignorance or misinterpretation of the statute. This does not constitute "willful misconduct" that warrants removal from office.
¶ 14. Furthermore, the record reveals that Judge Osborne did, in fact, attempt to "wind down" his practice. Judge Osborne informed all of his clients by letter that he would no longer be able to represent them due to his appointment as a County Court Judge and advised his clients to retain new counsel in order to complete their case. These actions further demonstrate that Judge Osborne did not file the complaints in bad faith or in an attempt to abuse his power of his judicial office. He took affirmative steps to properly inform his clients that he would not be able to continue his representation in their case. Therefore, this Court finds that Judge Osborne's actions were not willful and do not warrant removal from office.
¶ 15. This is a case of first impression, and as such there are no other "like cases" to the case at bar where removal from office is a suggested sanction for this type of offense. The only other "like cases" where a judge is removed from office involves criminal conduct or an extreme and obvious case of abuse of the power of the judicial office. Here, Judge Osborne filed complaints in the six months after he was appointed to office. This is a far cry from felony criminal conduct or an abuse of power of the judicial office.
¶ 16. In Mississippi Comm'n on Judicial Performance v. Willard, 788 So.2d at 745, where this Court held that "the sanction imposed should be consistent with other like cases," Judge Willard was removed from office because during a two — year period there were 31 counts - of alleged misconduct against him. The allegations included improperly accepting payment or partial payment of fines payable to the justice court, improperly dismissing a DUI charge on his own motion, improperly engaging in ex parte communications and improperly dismissing traffic citations for four defendants who did not appear in court, improperly utilizing a criminal process to collect a civil debt, improperly issuing an arrest warrant for someone who did not actual owe any fines, inter alia. Clearly, Judge Osborne's actions are not comparable to the actions in the aforementioned case and do not warrant a removal from office.
¶ 17. In Mississippi Comm'n on Judicial Performance v. Warren, where this Court held that the "sanction should fit the offense," it was ruled that the judge's conduct of engaging in ex parte communications and dismissing speeding tickets based on those communications without notice to the ticketing officer and without a hearing constituted willful misconduct in office and conduct prejudicial to the administration of justice. The appropriate sanction in that case was a public reprimand, along with a fine of $765. Warren is a case where the judge clearly abused his judicial office, and this Court held that the proper sanction to fit this offense is a public reprimand and a fine. Here, Judge Osborne was not abusing the power of the judicial office. He was merely following his interpretation of the statute. Both of the judge's sanctions in the aforementioned cases are based on judicial conduct that is far more egregious than Judge Osborne's conduct in the present ease. As such, Judge Osborne should not be removed from office.
CONCLUSION
¶ 18. We adopt the Commission's findings and recommendations.
¶ 19. LEFLORE COUNTY COURT JUDGE SOLOMON C. OSBORNE SHALL BE PUBLICLY REPRIMANDED IN OPEN COURT BY THE PRESIDING JUDGE AT THE NEXT TERM OF THE LEFLORE COUNTY CIRCUIT COURT. THE INTERIM SUSPENSION OF JUDGE OSBORNE IS LIFTED, AND JUDGE OSBORNE IS REINSTATED, EFFECTIVE JULY 1, 2004. JUDGE OSBORNE IS TAXED WITH THE COSTS OF THIS PROCEEDING IN THE AMOUNT OF $1,150.06.
WALLER, P.J., AND EASLEY, J., CONCUR. COBB, P.J. CONCURS IN RESULT ONLY. DICKINSON, J., SPECIALLY CONCURS WITH SEPARATE WRITTEN OPINION, JOINED BY WALLER AND COBB, P.JJ.; EASLEY AND RANDOLPH, JJ" JOIN IN PART. SMITH, C.J., CONCURS IN PART AND DISSENTS IN PART WITH SEPARATE WRITTEN OPINION JOINED BY CARLSON AND RANDOLPH, JJ. DIAZ, J., NOT PARTICIPATING.