Theresa Ann Ela v. Kathleen Destefano , 869 F.3d 1198 ( 2017 )


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  •               Case: 16-11548    Date Filed: 08/30/2017   Page: 1 of 12
    [PUBLISH]
    IN THE UNITED STATES COURT OF APPEALS
    FOR THE ELEVENTH CIRCUIT
    ________________________
    No. 16-11548
    ________________________
    D.C. Docket No. 6:13-cv-491-JA-KRS
    THERESA ANN ELA,
    Plaintiff-Appellant,
    versus
    KATHLEEN DESTEFANO,
    individually a.k.a. Kathleen Ela,
    JERRY L. DEMINGS,
    in his official capacity as Sheriff of Orange County,
    JOHN DOES 1-30,
    acting in their individual capacity,
    JANE DOES 1-30,
    acting in their individual capacity,
    ORANGE COUNTY, SHERIFF DEPARTMENT,
    Defendants-Appellees.
    ________________________
    Appeal from the United States District Court
    for the Middle District of Florida
    ________________________
    (August 30, 2017)
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    Before TJOFLAT and WILSON, Circuit Judges, and ROBRENO,∗ District Judge.
    WILSON, Circuit Judge:
    Theresa Ela sued Kathleen Destefano, an Orange County Sheriff’s Deputy,
    for improperly accessing and viewing her private information on Florida driver’s
    license databases. Following a jury trial, the district court granted Ela’s motion for
    judgment as a matter of law and held Destefano liable under the Driver’s Privacy
    Protection Act (DPPA) and 
    42 U.S.C. § 1983
    . Based on special interrogatories
    answered by the jury, the Court awarded Ela liquidated damages and attorneys’
    fees. On appeal, Ela challenges the amount of liquidated damages awarded, which
    requires us to interpret the remedies provision in the DPPA. Ela also argues that
    the district court abused its discretion in reducing the requested attorneys’ fees.
    I.
    Theresa Ela was married to Dennis Ela until 2010. In 2011, Dennis Ela
    married Kathleen Destefano, who had a romantic relationship with Dennis Ela
    while he was still married to Theresa Ela. From January 2010 through November
    2011, while sitting alone in her patrol car, Destefano used her access to law
    enforcement databases (which store photographs, addresses, vehicle information,
    etc.) to search Ela’s name. In 2010, shortly after her divorce, Ela requested access
    to public records and learned that Destefano had been searching her name on
    ∗
    Honorable Eduardo C. Robreno, United States District Judge for the Eastern District of
    Pennsylvania, sitting by designation.
    2
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    driver’s license databases. Ela complained to the Professional Standards Division
    of the Orange County Sheriff’s Office. During the ensuing internal investigation,
    Destefano stated that she did not have a legitimate business or law enforcement
    reason for accessing Ela’s information.1 Destefano was suspended for 60 hours
    without pay and placed on disciplinary probation for six months. The internal
    investigation revealed no evidence that Destefano used or disclosed Ela’s personal
    information. Despite this, Ela asserted emotional distress 2 and proceeded to trial
    against Destefano, her ex-husband’s new wife, seeking over $1,000,000 in
    compensatory damages.
    After the jury trial, the district court granted Ela’s motion for judgment as a
    matter of law as to Destefano’s liability, and Ela agreed to seek damages only
    under the DPPA and not § 1983. The district court then provided the jury with a
    verdict form containing three interrogatories to determine damages. In response to
    the first interrogatory, the jury found that Destefano violated the DPPA 101 times.
    In response to the second interrogatory, the jury found that Destefano’s actions did
    not cause Ela to suffer any actual damages. The jury did not reach the third
    interrogatory, which asked what amount of compensable damages were
    attributable to Destefano’s conduct.
    1
    Destefano also admitted that she did not have a legitimate law enforcement purpose when she
    testified at trial. During her testimony, Destefano admitted that it was a “very big mistake.”
    2
    Ela testified that she was “sickened” by Destefano’s actions, which made her feel “anxious,
    nervous, sick, angry [and] violated.”
    3
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    After the trial, Ela, by motion, requested $252,500 in liquidated damages:
    $2,500 for each of Destefano’s 101 violations of the DPPA. Ela also sought
    attorneys’ fees of $153,787 and costs of $4,227.44. The district court awarded Ela
    $2,500 in liquidated damages, $15,379 in attorneys’ fees, and $4,227.44 in costs.
    The court explained that it awarded only $2,500 for the DPPA violations because
    this case does not implicate the purposes of the DPPA, Destefano did not use or
    disclose Ela’s private information, and Ela did not suffer any actual damages. The
    court then explained its decision on attorneys’ fees by noting that this “lawsuit
    resulted in an award of 0% of [Ela’s] request[ed] $1 million in compensatory
    damages, 1% of her request[ed] $252,000, and at most a minimal spill-over benefit
    for the public, [so] a reasonable attorney[s’] fee incurred by [Ela] in litigating this
    case is 10% of $153,787, or $15,379.”
    II.
    We review a district court’s interpretation of a statute de novo. See Kehoe v.
    Fidelity Fed. Bank & Trust, 
    421 F.3d 1209
    , 1211 (11th Cir. 2005). The parties
    agree that if we conclude that the district court has discretion to award the statute’s
    enumerated amount and not multiply it per violation, we review the court’s
    damages award for abuse of discretion. See DIRECTV, Inc. v. Brown, 
    371 F.3d 814
    , 816 (11th Cir. 2004) (per curiam).
    III.
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    The analysis of this case involves a simple matter of statutory interpretation.
    We hold that the text of the DPPA, our prior precedent, and the statutory context
    set a floor of $2,500 in liquidated damages, and any award the district court grants
    above that amount is reviewed for abuse of discretion.
    We begin by analyzing the language of the statute. See Merritt v. Dillard
    Paper Co., 
    120 F.3d 1181
    , 1185 (11th Cir. 1997). This case stems from violations
    of the DPPA, specifically 
    18 U.S.C. § 2724
    :
    (a) Cause of action.––A person who knowingly obtains,
    discloses or uses personal information, from a motor
    vehicle record, for a purpose not permitted under this
    chapter shall be liable to the individual to whom the
    information pertains, who may bring a civil action in a
    United States district court.
    (b) Remedies.––The court may award—
    (1) actual damages, but not less than liquidated
    damages in the amount of $2,500;
    (2) punitive damages upon proof of willful or
    reckless disregard of the law;
    (3) reasonable attorneys’ fees and other litigation
    costs reasonably incurred; and
    (4) such other preliminary and equitable relief as
    the court determines to be appropriate.
    Raising an issue of first impression in this Circuit, Ela urges us to find that
    the damages list in § 2724(b) applies to each instance that a person “knowingly
    obtains, discloses or uses personal information” from a motor vehicle record with
    an improper purpose in violation of § 2724(a). In other words, she argues that the
    5
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    plain text of the statute sets a floor of $2,500 per violation.3 Despite Ela’s
    assertions that the DPPA’s language is clear, we find it far from clear. The text of
    the DPPA does not explicitly require per violation awards, but it does not seem to
    foreclose them either.
    While the statute’s plain language neither requires nor prohibits an award of
    liquidated damages per violation, the remedy provision does use plainly permissive
    language. The use of the word “may” implies that what follows is a permissive
    rule. See Antonin Scalia & Bryan A. Garner, Reading Law: The Interpretation of
    Legal Texts 112 (2012). Not only does the use of the word “may” imply
    permissiveness, but we have expressly held so when interpreting this exact
    provision of the DPPA. In Kehoe, we held that “[t]he use of the word ‘may’ [in
    § 2724(b)] suggests that the award of any damages is permissive and
    discretionary.” 
    421 F.3d at 1216
     (emphasis added). Therefore, “the district court,
    in its discretion, may fashion what it deems to be an appropriate award.”
    
    Id. at 1217
    . While Destefano undoubtedly violated the DPPA, the jury found that
    Ela did not suffer any actual damages. The district court properly used its
    discretion to fashion a damages award appropriate for this situation. A textual
    reading of § 2724 leads us to the conclusion that the district court’s discretion is
    3
    Ela thus requests $2,500 for each of Destefano’s 101 violations of the DPPA, for a total of
    $252,500 in liquidated damages.
    6
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    only limited in the sense that it must award at least $2,500 if any violation has been
    shown. For awards above that amount, we review for abuse of discretion.
    Statutory context also supports our reading of § 2724. We find it relevant
    that Congress chose to require cumulative damages in the criminal section of the
    DPPA, § 2723, which it passed on the same day as § 2724. Section 2723(b) states
    that when a DMV has “a policy or practice of substantial noncompliance with this
    chapter,” it shall be subject “to a civil penalty imposed by the Attorney General of
    not more than $5,000 a day for each day of substantial noncompliance.” 
    18 U.S.C. § 2723
    (b). “It is well settled that where Congress includes particular language in
    one section of a statute but omits it in another section of the same Act, it is
    generally presumed that Congress acts intentionally and purposely in the disparate
    inclusion or exclusion.” Duncan v. Walker, 
    533 U.S. 167
    , 173, 
    121 S. Ct. 2120
    ,
    2125 (2001) (internal quotation marks omitted); see also Pugliese v. Pukka Dev.,
    Inc., 
    550 F.3d 1299
    , 1303 (11th Cir. 2008). We thus presume that Congress knew
    how to include language that permits cumulative damages in the civil section, but
    chose not to.
    Disputing this presumption, Ela argues that because § 2725 defines “person”
    to exclude states and state agencies, the use of the word “person” in § 2724(a)
    means that § 2723(b) is sufficiently dissimilar. However, Ela’s argument misses
    the point. Although § 2723(b) and § 2724(a) apply to different entities, our
    7
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    comparison of the two is only meant to show that Congress was aware how to
    include language authorizing cumulative damages, making its omission of such
    language in § 2724 deliberate and meaningful. In addition, there is good reason for
    Congress to allow cumulative damages in a section about state DMVs, which
    theoretically would be able to better handle larger cumulative damages, as
    compared to the single police officer in this case.
    Additionally, we find persuasive the argument that “[w]here Congress
    knows how to say something but chooses not to, its silence is controlling.” See,
    e.g., Animal Legal Def. Fund v. U.S. Dep’t of Agric., 
    789 F.3d 1206
    , 1217 (11th
    Cir. 2015) (internal quotation marks omitted). Congress deliberately included
    language authorizing cumulative damages awards in many other statutes. A survey
    of the United States Code reveals at least thirteen provisions in other federal
    statutes that include language (such as “per violation” or “for each violation”)
    permitting cumulative damages. 4 See Green v. Bock Laundry Mach. Co., 
    490 U.S. 504
    , 528, 
    109 S. Ct. 1981
    , 1994 (1989) (Scalia, J., concurring) (writing that a
    statute should be understood in a manner “most compatible with the surrounding
    body of law into which the provision must be integrated—a compatibility which,
    by a benign fiction, we assume Congress always has in mind”). The absence of
    4
    See, e.g., 
    18 U.S.C. § 248
    (c)(1)(B) (“statutory damages . . . per violation”); 
    39 U.S.C. § 3017
    (e)(1)(B) (“for each such violation”); 
    47 U.S.C. § 605
    (e)(3)(C)(i)(II) (“statutory damages
    for each violation”).
    8
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    any similar language in § 2724 is conspicuous, and in this case, we find Congress’s
    silence persuasive.
    By no means should our decision today be read to discourage or undermine
    the importance of private litigation to vindicate a public benefit. While
    Destefano’s conduct here was unmistakably wrong and police officers should not
    be allowed to take advantage of their position of power to access private
    information, the statute specifically provides for punitive damages to deter this
    conduct. 
    18 U.S.C. § 2724
    (b)(2). Reading “per violation” into the statute’s
    liquidated damages clause to mandate cumulative damages would enable
    unharmed plaintiffs to abuse this provision.
    We conclude that the district court did not abuse its discretion in shaping a
    damages award appropriate for the facts of this case. We affirm the award of
    $2,500 in liquidated damages.
    IV.
    We review an award of attorneys’ fees for abuse of discretion. See ACLU of
    Ga. v. Barnes, 
    168 F.3d 423
    , 436 (11th Cir. 1999). Reasonable attorneys’ fees are
    available for prevailing parties under the DPPA and § 1983.5 
    18 U.S.C. § 2724
    (b)(3); 
    42 U.S.C. § 1988
    . In this case, Ela requested $153,787 in attorneys’
    5
    “[W]e find the relief offered by the DPPA and Section 1983 to be complementary.” Collier v.
    Dickinson, 
    477 F.3d 1306
    , 1311 (11th Cir. 2007).
    9
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    fees for 481 hours of attorney time. The district court awarded $15,379,
    compensating Ela’s attorneys for 48 hours of work.
    “The starting point for determining the amount of a reasonable fee is the
    number of hours reasonably expended on the litigation multiplied by a reasonable
    hourly rate.” Bivins v. Wrap It Up, Inc., 
    548 F.3d 1348
    , 1350 (11th Cir. 2008)
    (per curiam) (internal quotation marks omitted). This number is called the lodestar
    and “there is a ‘strong presumption’ that the lodestar is the reasonable sum the
    attorneys deserve.” 
    Id.
     In determining whether the lodestar is reasonable, “the
    [district] court is to consider the 12 factors enumerated in Johnson v. Georgia
    Highway Express, Inc., 
    488 F.2d 714
     (5th Cir. 1974).”6 
    Id.
     If the lodestar is
    reasonable, a downward adjustment “is merited only if the prevailing party was
    partially successful in its efforts.” Resolution Trust Corp. v. Hallmark Builders,
    Inc., 
    996 F.2d 1144
    , 1150 (11th Cir. 1993) (per curiam). A district court must
    determine what counts as partial success on a case-by-case basis. See Bivins,
    
    548 F.3d at
    1351 n.3.
    6
    The Johnson factors are “(1) the time and labor required; (2) the novelty and difficulty of the
    questions; (3) the skill requisite to perform the legal service properly; (4) the preclusion of
    employment by the attorney due to acceptance of the case; (5) the customary fee; (6) whether the
    fee is fixed or contingent; (7) time limitations imposed by the client or the circumstances; (8) the
    amount involved and the results obtained; (9) the experience, reputation, and ability of the
    attorneys; (10) the ‘undesirability’ of the case; (11) the nature and length of the professional
    relationship with the client; and (12) awards in similar cases.” Bivens, 
    548 F.3d at
    1350 n.2
    (citing Johnson, 
    488 F.2d at
    717–19); see also Bonner v. City of Prichard, 
    661 F.2d 1206
    , 1207
    (11th Cir. 1981) (en banc) (holding that all decisions of the “old Fifth” Circuit handed down
    prior to the close of business on September 30, 1981, are binding precedent in the Eleventh
    Circuit).
    10
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    Here, the district court did not start its analysis with the lodestar and erred in
    its approach to the Johnson factors. The court mainly discussed the eighth
    Johnson factor, the amount involved and the results obtained.7 While those are
    certainly relevant considerations, especially for determining an appropriate
    downward adjustment, under the circumstances of this case we find that the district
    court went too far by reducing the requested fees by 90%.
    We also find problematic the district court’s court analogy to nominal
    damages. The district court likened this case to one in which a party “recovers
    only nominal damages because of his failure to prove an essential element of his
    claim for monetary relief,” where “the only reasonable fee is usually no fee at all.”
    See Farrar v. Hobby, 
    506 U.S. 103
    , 115, 
    113 S. Ct. 566
    , 575 (1992). However, we
    held in Kehoe that a plaintiff “need not prove actual damages to recover the other
    types of remedies listed in § 2724(b),” which includes attorneys’ fees. See Kehoe,
    
    421 F.3d at 1212
    .
    Additionally, liquidated damages are different from nominal damages.
    Liquidated damages are “[a]n amount . . . stipulated as a reasonable estimation of
    actual damages.” Liquidated Damages, Black’s Law Dictionary (10th ed. 2014).
    Liquidated damages are a pre-fixed amount, set here by Congress. Nominal
    7
    The district court did not specifically cite Johnson, but almost the entire analysis of the
    attorneys’ fees issue was devoted to discussing the amount of actual damages (or lack thereof)
    that Ela received.
    11
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    damages are “a judicial declaration that the plaintiff’s right has been violated.”
    Nominal Damages, Black’s Law Dictionary (10th ed. 2014) (quoting Charles T.
    McCormick, Handbook on the Law of Damages § 20, at 85 (1935)). Congress
    stipulated a pre-fixed amount of liquidated damages; we should defer to
    Congress’s judgment.
    Because we hold that the district court erred in calculating Ela’s attorneys’
    fees award, we reverse and remand for reconsideration.
    V.
    After a three-day trial, a jury concluded that no compensatory damages were
    appropriate. The district court then worked within the bounds of a broad statutory
    grant to award liquidated damages. We see no problem with this decision, and we
    affirm the award of $2,500.
    As for attorneys’ fees, we find that the district court failed to start with the
    lodestar and gave too much weight to the eighth Johnson factor. We reverse and
    remand for the court to recalculate an appropriate amount of attorneys’ fees.
    AFFIRMED IN PART, REVERSED IN PART, AND REMANDED.
    12