Opinion ID: 796469
Heading Depth: 2
Heading Rank: 1

Heading: Political Affiliation as a Valid Qualification for Employment

Text: 11 Moss first argues that the district court erred in granting the IDOT defendants' motion for judgment on the pleadings because Moss's position as Chief of the Highway Sign Shop is not the type of position for which a politically-motivated personnel action is constitutionally permitted. Under Rule 12(c), a party can move for judgment on the pleadings after the filing of the complaint and answer. Brunt v. Serv. Employees Int'l Union, 284 F.3d 715, 718 (7th Cir.2002) ( citing Fed.R.Civ.P. 12(c)). Only when it appears beyond a doubt that the plaintiff cannot prove any facts to support a claim for relief and the moving party demonstrates that there are no material issues of fact to be resolved will a court grant a Rule 12(c) motion. Id. at 718-19 ( citing N. Indiana Gun & Outdoor Shows, Inc. v. City of South Bend, 163 F.3d 449, 452 (7th Cir.1998)). We review a district court's ruling on a Rule 12(c) motion de novo. Id. at 719. 12 If the nature of a public official's job makes political loyalty a valid qualification for the effective performance of his position, that official may be terminated on the basis of his political affiliation. Riley v. Blagojevich, 425 F.3d 357, 359 (7th Cir. 2005) ( citing Elrod v. Burns, 427 U.S. 347, 367-68, 96 S.Ct. 2673, 49 L.Ed.2d 547 (1976); Branti v. Finkel, 445 U.S. 507, 518, 100 S.Ct. 1287, 63 L.Ed.2d 574 (1980)). To determine whether political loyalty is a valid qualification, we consider whether the employee's position entailed the making of policy and thus the exercise of political judgment. Allen v. Martin, 460 F.3d 939, 944 (7th Cir.2006) ( quoting Kiddy-Brown v. Blagojevich, 408 F.3d 346, 355 (7th Cir.2005)). We also consider the degree of discretion and responsibility exercised in the position by examining the official job description for the position. Id. at 944-945; Selch v. Letts, 5 F.3d 1040, 1044-45 (7th Cir.1993). We only look past the official job description where the plaintiff demonstrates systematic unreliability. Allen, 460 F.3d at 944. To show such systematic unreliability, a plaintiff must provide specific facts demonstrating that the description was unreliable and unauthoritative. Id. 13 On prior occasions, we have held that political affiliation is an appropriate requirement for various positions within state highway departments. See Selch, 5 F.3d at 1047 (political affiliation appropriate requirement for position of subdistrict superintendent of Indiana Department of Highways); Allen, 460 F.3d at 945 (political affiliation appropriate requirement for IDOT's bureau chief of accounting and auditing). Viewing the allegations in the light most favorable to Moss, however, we cannot conclude at this early stage in the litigation that political loyalty is a valid qualification for the Chief of the Highway Sign Shop position. 14 Almost all jobs in government above the lowest level require the holder of the job to exercise at least a modicum of discretion . . . . Riley, 425 F.3d at 359. The Chief of the Highway Sign Shop is no different. The Chief exercises substantial independent judgment in making decisions concerning the development and implementation of innovative rehabilitation procedures; is afforded broad latitude in accomplishing his/her duties; and formulates and implements policies, procedures, programs, and operational concepts . . . . The use of buzz words such as formulates policies, broad latitude and substantial independent judgment in a position description does not transform professional or technical judgment into political judgment, however. In his complaint, Moss alleged that there is nothing in the job duties of the Chief of the Highway Sign Shop that made or makes political considerations a requisite for that position. The position description alone does not refute this allegation conclusively, as it raises and fails to answer numerous questions as to the judgment and discretion exercised by the Chief of the Highway Sign Shop. 15 In particular, while the Highway Sign Shop is within the Bureau of Operations, we do not know where the Chief of the Highway Sign Shop position falls within IDOT's overall hierarchy. We do not know what policies the Chief implements: whether such policies merely ensure that signs are properly repaired or manufactured or whether they affect the IDOT's broader policies and delivery of services. We do not know Moss's salary. We do not know what contact, if any, the Chief of the Highway Sign Shop has with public officials or citizens regarding signs. Cf. Selch, 5 F.3d at 1047 (subdistrict superintendent received between fifteen to twenty telephone calls a day from public officials and citizens); Allen, 460 F.3d at 945 (major challenge of bureau chief's position is to respond to legislator questions on fund expenditures in their districts). 16 The position description states that the Chief makes budget requests and administers resources and manpower to operate the sign shop, but it does not mention whether the Chief has the power to enter into contracts. During oral argument, Moss represented that the Chief does not decide what signs are erected or where or when signs are installed. Cf. Selch, 5 F.3d at 1046 (subdistrict superintendent decided where and when road maintenance work was to be completed). He does not oversee the crews that place the signs. In the absence of additional evidence as to the functions of the Chief and the policies developed and enforced by the Chief, the extent of any political value associated with these functions and policies is also unclear. Cf. Selch, 5 F.3d at 1046 (stating that the successful implementation of policy in the area of highway maintenance would likely have substantial effect on the public's perception of the Democratic administration); Allen, 460 F.3d at 945 ([T]he effective and reliable execution of the Bureau's audit function is of great political value.). While a better-developed record may demonstrate that political affiliation is a valid requirement for the Chief of the Highway Sign Shop, we simply do not have enough evidence to reach that conclusion now.