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HomeMy WebLinkAbout2023CV228 - Lynne V. Yonce - 18 - Order District Court, Larimer County, State of Colorado 201 LaPorte Avenue, Suite 100 Fort Collins, CO 80521-2761 (970) 494-3500 COURT USE ONLY STACY LYNNE, Plaintiff, v. JEREMY YONCE, in his official capacity as Internal Affairs records custodian for Fort Collins Police Services, Defendant. Case No.: 2023 CV 228 Courtroom: 3B ORDER The Court held a show-cause hearing under Colo. Rev. Stat. § 24-72-305(7) of the Colorado Criminal Justice Records Act (“CCJRA”).1 Plaintiff Stacy Lynne appeared in person and pro se. Defendant Jeremy Yonce, the Internal Affairs records custodian of the Fort Collins Police Services (“FCPS”), appeared in person and with counsel. Based upon the evidence presented at the hearing, Ms. Lynne’s application, other briefing, and argument of the parties, the Court makes the following findings of fact by a preponderance of the evidence and concludes that the Order to Show Cause shall be discharged. I. PROCEDURAL HISTORY AND FINDINGS OF FACT. The records dispute arose when Ms. Lynne submitted a request for release of the entire internal investigations file of then “Assistant Chief of Police John Feyen’s Internal Affairs 1 While the Court initially construed Ms. Lynne’s application “as proceeding under § 24-72- 303(4)(f) of the CCJRA,” that’s incorrect. That provision applies to requests for inspection of records of official action. As explained below, and with the benefit of the parties’ briefing and evidence received at the hearing, because the records sought dealt with a criminal justice record, involving conduct by Mr. Feyen that occurred off duty and not in uniform, the request must be analyzed under subsections 24-72-304(1) and 24-72-305(5). DATE FILED: December 11, 2023 9:51 AM CASE NUMBER: 2023CV228 2 Investigation that was conducted in part by Karen Cochran and Adam McCambridge in 2022.” Ex. 1. That investigation came about when Mr. Feyen was running for sheriff. Mr. Feyen made allegedly defamatory statements about Ms. Lynne during a Facebook Live campaign event. It’s undisputed that when he made those statements, Mr. Feyen wasn’t in uniform and was off duty. (The statements and circumstances under which Mr. Feyen made the ostensible defamatory statements are detailed in an Order Regarding Defendant John Feyen’s Motion to Dismiss Complaint Pursuant to Colo. Rev. Stat. § 13-20-1101, in Lynne. v. Feyen, No. 2022CV30685.) That Order was attached to Ms. Lynne’s CCJRA request and was available for the FCPS custodian to review. Ex. 1. Feeling aggrieved by Mr. Feyen’s statements, Ms. Lynne filed a complaint against him with FCPS, which caused the police to initiate an internal affairs (“IA”) investigation. In April 2022, FCPS informed Ms. Lynne that it had completed the IA investigation into Mr. Feyen, concluding apparently that he hadn’t “violated applicable FCPS policy.” Exs. 3 and 8. Separately, in October 2022, Ms. Lynne sued Mr. Feyen, asserting, as relevant here, a claim for defamation per se for statements that “[Mr. Feyen] made on February 2, 2022, at a candidate forum for election of Larimer County Sheriff in front of a live audience in addition to being live-streamed … in the capacity as a candidate for sheriff; and for a Facebook post … posted on June 10, 2022, … on the John Feyen for Larimer Sheriff Facebook page.” Ex. 1, Ord. at 1–2. In that Order, Judge Findley concluded, after conducting an evidentiary hearing under the Colorado Anti-SLAPP (Strategic Lawsuit Against Public Participation) statute, that Ms. Lynne had “shown a reasonable likelihood of success established by clear and convincing evidence that [Mr. Feyen]’s statements were defamatory per se and made with actual malice.” Id. at 9. The action is presently set for a jury trial in March 2024 but Mr. Feyen has moved for summary judgment on the defamation claim. The motion is pending adjudication. 3 On March 6, 2023, Ms. Lynne submitted a written CCJRA request for production of the internal affairs’ investigation file that she had triggered to FCPS. Ex. 1. Nearly three weeks later, Lt. Jeremy Yonce, the custodian of the CCJRA records, sent her a written response denying her request to produce the records. In his letter, Lt. Yonce initially found that FCPS is a “criminal justice agency” and that the internal affairs’ investigation file Ms. Lynne requested is a “criminal justice record,” both under the CCJRA. Ex. 3 at 1. He denied, however, that the file sought is a public record under the Colorado Open Records Act (“CORA”) and didn’t conduct any analysis under that statute.2 Id. Lt. Yonce also construed Ms. Lynne’s request under §§ 24-72-304(1) and 24-72-305(5) of the CCJRA because Mr. Feyen wasn’t in uniform and wasn’t on duty when the conduct occurred. He disagreed that the request could proceed under § 24-72-303(4)(a) because that provision applies to requests when the peace officer is acting in uniform and on duty. Ex. 3 at 1. Lt. Yonce then set forth the applicable factors that he must consider in considering a request under the applicable statute. Id. at 2. Specifically, he stated he must “deny such a request if public disclosure of it would be ‘contrary to the public interest’ and, in so deciding, the custodian is to ‘engage in balancing the public and private interest in the inspection request’” and by considering other additional factors. Id. Lt. Yonce’s rationale for denying the request is reproduced here verbatim: Having considered these factors in evaluating your records request, I have determined that the private interest in not releasing the IA file for public inspection outweigh the public interest in making it publicly available. I conclude this based primarily on consideration of factors 1, 2 and four above, and the additional pertinent factors that Chief Feyen’s conduct examined in the IA file involved the exercise of his First Amendment rights in a political campaign and he is no longer a city employee. First, since the conduct examined in the IA file did not occur while Chief Feyen was in uniform or on duty, he has a strong personal privacy interest as a former city employee in keeping this IA file private. This privacy interest is clearly recognized 2 Ms. Lynne didn’t challenge that decision. 4 in section 24-72-303(4)(a) by excluding from required disclosure those internal investigations of officer conduct that occurred while an officer was not in uniform and not on duty. Second, the city and FCPS have an interest in keeping confidential the internal investigations of the conduct of its police officers while they are off duty and out of uniform. While the off-duty and out-of-uniform conduct of their officers can have an adverse effect on the City and FCPS, if the conduct investigated involves an officer’s exercise of their constitutional rights or other legal rights protected by law, it is important that the City, as the officer’s employer, can protect those rights from being chilled or adversely affected by the prospect of an internal investigation being made public. Third, you have not identified a public purpose or interest supporting the public release of the IA file. Instead, as the court order included with your records request reflects, you are seeking the IA file in support of the lawsuit against Chief Feyen, a private interest, not a public interest. Fourth, since the IA file documents the investigation of Chief Feyen’s conduct occurring while he was exercising his First Amendment rights in a political campaign, releasing the IA file weighs in favor of Chief Feyen’s privacy interest of not having his former employer, the City, releasing it. The consideration of this factor and weighing it in favor of non-disclosure is also important because it lessens the likelihood that the City’s other employees will be chilled in the future. Probe exercising these important rights in similar circumstances. And finally, since Chief Feyen is no longer a city employee, there is a reduced need for the public to be informed about his off-duty and out-of-uniform conduct wireless city employee. Therefore, based on the consideration of these and other factors, I have determined that it would be contrary to the public interest to release to you the CIA file, since the private interests involved in your records request outweigh any public interests. Id. at 2–3. Several months later, in October 2023, Ms. Lynne submitted a new and broader request for any IA investigation records for Mr. Feyen since April 2019 and for other public records of Mr. Feyen’s while he was a FCPS employee. Ex. 4. As to the CCJRA portion of the request, Ms. Lynne sought responsive records under both § 24-72-303(4)(a), which cover records of official action, and § 24-72-305(5), which cover criminal justice records. Id. at 2–3. 5 In an unsigned letter dated October 18, 2023, FCPS denied her CCJRA request. Ex. 5. (At the hearing, Lt. Yonce confirmed that exhibit 5 reflected his decision and that he authorized sending that letter to Ms. Lynne.) As to the request for records of official action, FCPS indicated that there were no responsive records: “In response to Part 2 and Part 3 regarding policy violations, training violations, procedural violations, there are no internal affairs investigation files or related documents involving John Feyen that fall under House Bill 19-1119.”3 Id. at 2. The letter, like the previous one, construed Ms. Lynne’s request under § 24-72-305(5), articulated the applicable legal standards, and concluded thus: Having considered these factors in evaluating your Records Request, I have determined that the private interests in not releasing IA File(s) for public inspection outweigh the public interests in making it publicly available. Therefore, based on my consideration of this and other factors, I have determined that it would be contrary to the public interest to release your requested items since the private interests involved in your Records Request outweigh any public interests. Id. Lt. Yonce testified that his October 2023 letter was briefer than the April 2023 letter because he had already explained the bases for his denial of Ms. Lynne’s request in the prior letter. Dissatisfied with FCPS’s responses, Ms. Lynne took the matter to Court. She filed a complaint under CORA and CCJRA, seeking judicial review of the custodian’s decision. The Court issued an Order to Show Cause directed to the FCPS custodian and set the matter for a hearing, which occurred as scheduled. At the show-cause hearing, Lt. Yonce testified and the Court finds him to be a credible witness, given his demeanor on the stand and his careful and 3 The letter also indicated that in “response to Part 3 regarding records pertaining to untruthfulness, dishonesty, false statements about material facts, and/or omissions of material facts including all instances in testimony, under oath, and in written narratives and in audio/video from agency reports, there are no records responsive to this request.” Ex. 5. 6 thoughtful answers to the many questions posed by Ms. Lynne, his counsel, and the Court. Any relevant testimony will be noted below. II. CONCLUSIONS OF LAW. “As one of Colorado’s open government laws, the CCJRA governs the public’s access to criminal justice records.” Madrigal v. City of Aurora, 349 P.3d 297, 299 (Colo. App. 2014). “Criminal justice records” are those “that are made, maintained, or kept by any criminal justice agency in the state for use in the exercise of functions required or authorized by law or administrative rule. . . .” Colo. Rev. Stat. § 24-72-302(4). The definition of “criminal justice agencies” is found in § 24-72-302(3). There’s no dispute that FCPS is a criminal justice agency, and that the requested IA investigation records are criminal justice records under the CCJRA. But this is solely the beginning of the analysis. “The CCJRA differentiates between two categories of records: (1) records of ‘official action,’ and (2) all other criminal justice records, each possessing its own ‘regimens of public access to those records.’” Freedom Colo. Info., Inc. v. El Paso Cnty. Sheriff's Dep’t, 196 P.3d 892, 898 (Colo. 2008). A record of “official action” includes an arrest, indictment, disposition, or “any decision to formally discipline, reclassify, or relocate any person under criminal sentence.” Colo. Rev. Stat. § 24-72-302(7). Generally, records of official action “shall be open to inspection.” § 24- 72-301(2). One way to determine whether the IA record at issue is a record of official action or a criminal justice record centers on the nature of the peace officer’s conduct. If the peace officer’s misconduct involving a member of the public occurred while he was in-uniform and on-duty, the entire investigation file may be released to the public upon completion of the investigation: Upon completion of an internal investigation, including any appeals process, that examines the in-uniform or on-duty conduct of a peace officer, as described in part 1 of article 2.5 of title 16, related to an incident of alleged misconduct involving a 7 member of the public, the entire investigation file, including the witness interviews, video and audio recordings, transcripts, documentary evidence, investigative notes, and final departmental decision is open for public inspection upon request. Colo. Rev. Stat. § 24-72-303(4)(a).4 All other records that aren’t records of official action are criminal justice records, Madrigal, 349 P.3d at 299, and requests to release such records must be analyzed under subsections 24-72- 304(1) and 24-72-305(5). Under subsection 24-72-305(5), a custodian may deny access to “any criminal justice investigatory files compiled for any other law enforcement purpose” if, in his discretion, disclosure would be contrary to the public interest. Colo. Rev. Stat. Ann. § 24-72- 305(5). When “the records requested are criminal justice records but are not records of official actions . . . the decision whether to grant inspection of the records [is] ‘consigned to the exercise of the custodian’s sound discretion under sections 24-72-304 and -305.’” Madrigal, 349 P.3d at 300 (quoting Freedom Colo. Info., Inc., 196 P.3d at 897). See also Gazette v. Bourgerie, 533 P.3d 597, 603 (Colo. App. 2023) (“By contrast, all other criminal justice records ‘may be open for inspection’ at the custodian’s discretion (save for some exceptions barring disclosure).’”). The Supreme Court has ruled that a custodian must consider multiple factors when determining whether to release criminal justice records, which include:  the privacy interests of individuals who may be impacted by a decision to allow inspection;  the agency’s interest in keeping confidential information confidential; 4 This provision also allows the custodian initially to release to a requester “a summary of the investigation file and if, after reviewing the summary, the requester requests access to the investigation file, the custodian shall provide access to the entire investigation file subject to the provisions of subsections (4)(b), (4)(c), and (4)(d) of this section.” § 24-72-303(4)(a). But the option to obtain a summary of the investigation file isn’t available for requests to obtain a criminal justice record. 8  the agency’s interest in pursuing ongoing investigations without compromising them; the public purpose to be served in allowing inspection; and  any other pertinent consideration relevant to the circumstances of the particular request. Freedom Colo. Info., 196 P.3d at 899. This Court must “review the custodian’s decision for an abuse of discretion.” Madrigal, 349 P.3d at 300. “The custodian’s determination constitutes an abuse of discretion when it is manifestly arbitrary, unreasonable, or unfair; it reflects a misapplication of the law; or it is not reasonably supported by competent evidence in the record.” Id. Critically, this Court can’t “reweigh the custodian’s balancing of the interests.” Id. at 302 (citing Freedom Colo. Info., 196 P.3d at 900). Instead, the Court’s review “primarily entails the court holding the custodian to its balancing role, which includes adequately explaining the reasons for the custodian’s inspection determination.” Freedom Colo. Info., 196 P.3d at 901. The Court concludes that Lt. Yonce didn’t abuse his discretion in denying Ms. Lynne’s CCJRA request.5 Initially, the custodian correctly concluded that the requested records—Mr. Feyen’s IA investigation file—is a criminal justice record and not a record of official action. As such, Lt. Yonce correctly analyzed Ms. Lynne’s request under subsections 24-72-304(1) and 24-72- 305(5) and applicable case law. Further, Lt. Yonce articulated the correct balancing test and “adequately explained the rationale for denying release of the records” to Ms. Lynne. Madrigal, 349 P.3d at 302. Each is addressed below. 5 Lt. Yonce explained that factor 3 above was inapplicable. Ms. Lynne didn’t challenge that finding. 9 A. Privacy Interests. As to the first factor, Lt. Yonce found that Mr. Feyen’s “privacy interest outweigh[ed] the public’s interest in making [the record] publicly available.” Ex. 3. In his view, a peace officer enjoys a heightened privacy interest when acting off-duty and not in-uniform because § 24-72-303(4)(a) excludes from required disclosure “those internal investigations of officer conduct that occurred while an officer was not in uniform and not on duty.” While the custodian’s statutory interpretation of that provision of the CCJRA misapplied the law, the error is harmless. Under well-established precedent, “[s]tatutes should be applied as written, and [courts] do not add or subtract words.” People v. Brown, 442 P.3d 428, 432 (Colo. 2019) (quoting State v. Medved, 2019 CO 1, ¶ 19, 433 P.3d 33, 37 (“[I]n interpreting a statute, we must accept the General Assembly's choice of language and not add or imply words that simply are not there.”)). It’s clear that subdivision 24-72-303(4)(a) doesn’t mention the words “privacy interest” or create a “strong personal privacy interest” for certain peace officers. Nothing in the text of the provision purports to effect that purpose, let alone create a hierarchy of privacy interests. Indeed, the purpose of the CCJRA isn’t to create any privacy interests. It’s to prescribe statewide standards for “the maintenance, access and dissemination, completeness, accuracy, and sealing of criminal justice records.” Colo. Rev. Stat. § 24-72-301(1). And to that end, the General Assembly created two types of CCRJA records—records of official action and criminal justice records; it mandated release of the former, while allowing permissive release of the latter on a case- by-case basis, subject to the custodian’s discretion. §§ 24-72-301(2) and 24-72-304(1). So, when the custodian interpreted the CCJRA by injecting words into the statute that aren’t there and that aren’t consistent with the statute’s purpose, the custodian misapplied the law and abused his discretion. Madrigal, 349 P.3d at 300. 10 Nevertheless, the custodian’s legal error is harmless because it doesn’t affect the outcome of his decision and because he still articulated and weighed the required factors in making his decision. No Laporte Gravel Corp. v. Bd. of Cnty. Commr’s of Larimer Cnty., 507 P.3d 1053, 1071 (Colo. App. 2022) (“[w]here the agency’s mistake did not affect the outcome of the proceedings, ‘it would be senseless to vacate and remand for reconsideration”). The custodian considered Mr. Feyen’s privacy interest as required under Freedom Colorado, leading him to find that, irrespective of the statute, Mr. Feyen had such an interest in keeping the IA file private because the conduct that led to the IA complaint and investigation didn’t occur while he was on- duty or in-uniform.6 While this Court “may have balanced the respective interests differently on these facts, it is not the role of any court to do so.” Romero v. City of Fountain, 307 P.3d 120, 125 (Colo. App. 2011). The Court stresses that it can’t “reweigh the custodian’s balancing of the interests.” Freedom Colo. Info., 196 P.3d at 302. And here, the Court can’t conclude that the custodian abused his discretion. B. Law Enforcement Agency’s Interests. As to the second factor, the custodian didn’t abuse his discretion to weigh FCPS’s interest in keeping the requested file confidential. Lt. Yonce acknowledged that a peace officer’s “off-duty and out-of-uniform conduct of their officers can have an adverse effect on the City and FCPS.” Ex. 3 at 2. But he qualified that statement with the following clause: “if the conduct investigated involves an officer’s exercise of their constitutional rights or other legal rights protected by law, it is 6 The situation is a bit more nuanced as Lt. Yonce acknowledged at the hearing: while Mr. Feyen was off-duty and not in-uniform when he allegedly engaged in misconduct during his campaign event, the substance of his statements dealt with his past conduct while he was on-duty and in- uniform while employed as a deputy at the Larimer County Sheriff’s Office. This added nuance, however, doesn’t result in an abuse of discretion. 11 important that the City, as the officer’s employer, can protect those rights from being chilled or adversely affected by the prospect of an internal investigation being made public.” Id. Later, he explained that not releasing the IA file “is also important because it lessens the likelihood that the City’s other employees will be chilled in the future from exercising thee same important rights in similar circumstances.” Id. at 3. At the hearing, Lt. Yonce clarified his rationale further: he noted that under FCPS policy, a police officer must cooperate and give statements during an IA investigation and that failure to do so will result in termination. So, seen in that light, compelling a peace officer to give statements as part of an IA investigation about his personal conduct outside and having such statements potentially being publicly disseminated would have a chilling effect on the willingness of police officers to fully cooperate in an IA investigation. Lt. Yonce also testified that Mr. Feyen was at a political campaign event, after work, off- duty, and not in-unform. Further, the substance of Mr. Feyen’s comments at the campaign event, which triggered the IA investigation, dealt with conduct while he wasn’t an FCPS employee. And he emphasized that Mr. Feyen’s statements are publicly available, including in Ms. Lynne’s Facebook page. He testified that Mr. Feyen was running for Larimer County Sheriff and was exercising his First Amendment rights. But Lt. Yonce admitted on cross examination that he didn’t closely review the Order Ms. Lynne attached as part of her request in which the judge had ruled—in an interlocutory order in her civil action against Mr. Feyen—that Mr. Feyen’s statements were defamatory per se, made with actual malice.7 And, because Lt. Yonce isn’t a lawyer, he didn’t know that defamatory statements aren’t entitled to First Amendment protection. Counterman v. Colorado, 600 U.S. 66, 73 (2023) 7 As noted above, the defamation action is still pending and there’s no final judgment in Ms. Lynne’s favor. 12 (“From 1791 to the present, the First Amendment has permitted restrictions upon the content of speech in a few limited areas…. Another is defamation—false statements of fact harming another’s reputation.”). While, in the Court’s view, those two shortcomings undercut the weighing of FCPS’s interests, the Court is not the custodian and may not “reweigh the custodian’s balancing of the interests.” Madrigal, 349 P.3d at 302. Besides, the custodian “articulated an additional pertinent consideration relevant to the particular circumstances of the request,” Freedom Colo. Info., 196 P.3d at 899—that is, he looked beyond FCPS’s interests, opting to consider all Fort Collins’ employees who may be affected by the decision and who may find themselves running for office and being investigated for misconduct by the municipality. Those are appropriate matters for the custodian’s consideration, and while this Court “may have balanced the respective interests differently on these facts,” that’s not the Court’s role. Romero, 307 P.3d at 125. Reviewing the decision under the deferential standard, the Court concludes that the custodian “adequately explain[ed] the reasons for [his] inspection determination.” Freedom Colo. Info., 196 P.3d at 901. C. The Public Purpose. The custodian found that Ms. Lynne hadn’t articulated a public purpose. Exercising his discretion, he construed the court order attached to Ms. Lynne’s request as showing that her request was solely filed “in support of [her] lawsuit against Chief Feyen—a private interest, not a public interest.” Ex. 3. Ms. Lynne strongly took issue with the custodian’s characterization of her request. In her pre-hearing brief (and during argument), she pointed out the public purpose of her request: “transparency and accountability … because John Feyen, as the Assistant Chief of Police at [FCPS], was campaigning for the elected office of sheriff, was ultimately elected … and is now currently the sheriff. That alone is justification for access to John Feyen’s internal affairs investigation records.” 13 Pl.’s Pre-Hearing Brief at 6. She also explained the public nature of her lawsuit against Mr. Feyen: he “is being used for per se actual malice defamatory comments that he made when he introduced himself as the Assistant Chief of Police at [FCPS].” Id. at 7. (Notably, however, she didn’t provide any of this information when she made her request.) Undoubtedly, Ms. Lynne’s arguments carry persuasive force and suggest that the custodian took a myopic approach in considering this factor. Indeed, the custodian could’ve agreed with Ms. Lynne’s assertions and relied on them in carrying out the required balancing. But he didn’t, choosing instead to determine that Ms. Lynne’s request was solely for obtaining the IA investigation file to use it in the civil action. (Ms. Lynne didn’t entirely dispute that at the hearing.) That was the custodian’s prerogative and the Court can’t “reweigh the custodian’s balancing of the interests.” Madrigal, 349 P.3d at 302. D. Other Pertinent Considerations. Lastly, the custodian thought that because Mr. Feyen was no longer a city employee, there was “a reduced need for the public to be informed about his off-duty and out-of-uniform conduct while a City employee.” Ex. 3 at 3. This analysis presents a close call, but in the end, the Court can’t conclude that the custodian’s rationale is manifestly arbitrary or unreasonable. While it’s true that Mr. Feyen is no longer a Fort Collins employee and the custodian believed that such status lessened the public’s need to know about his off-duty conduct while employed by FCPS, the custodian seemingly ignored a critical fact: Mr. Feyen was elected as the Larimer County Sheriff. He left the number two position at FCPS for the top law enforcement position in the county. Mr. Feyen didn’t leave FCPS and faded into obscurity; he took a position with higher visibility and subject to greater scrutiny as an elected official. Still, Lt. Yonce explained that the substance of Mr. Feyen’s statements during the campaign event didn’t occur while he was employed by FCPS: they happened while he was a sheriff’s deputy more than 10 years ago. 14 In the end, it’d be an abuse of discretion for the Court to “independently engage[ ] in balancing the public and private interests involved in [an] inspection request.” Freedom Colo. Info., 196 P.3d at 901. The custodian already did so and he “adequately explain[ed] the reasons for [his] inspection determination.” Id. While Ms. Lynne argued that the custodian should’ve provided more reasons for his decision, the reasons he proffered are sufficient to comply with the law and to allow for meaningful judicial review. III. CONCLUSION. In sum, for the reasons set forth above, the Court concludes that the FCPS custodian didn’t abuse his discretion when he denied Ms. Lynne’s request for the IA investigation file for Mr. Feyen. Accordingly, the Order to Show Cause is discharged and this case shall be closed. Each party shall pay their respective costs. SO ORDERED on December 11, 2023. BY THE COURT: JUAN G. VILLASEÑOR District Court Judge