In Shero v. City of Grove, --- F.3d --- (10th Cir. 2007), the Tenth Circuit held, as a matter of law, that "being properly named as a defendant in a declaratory judgment suit, however styled, would not chill a person of ordinary firmness from continuing to engage in constitutionally protected activity."
Shero's plight began when City denied his requests for "Council Packets" in advance of city council meetings. After Shero initially received the packets, the City changed course and began denying his requests. Shero, in turn, threatened suit under the Oklahoma Open Records Act, prompting City to file its own declaratory action against Shero, ostensibly seeking clarification regarding the applicability of the Act to the packets.
Shero eventually prevailed in state court. He then filed suit in federal court arguing, among other things, that City filed the declaratory action in retaliation for Shero exercising his First Amendment right to speak out against the City.
In a 2-1 decision, the Tenth Circuit disagreed. In doing so, the Court held that declaratory actions, even if filed with retaliatory animus, are not actionable under the First Amendment because “'[t]he nature and purpose of a declaratory judgment is to declare rights,' not to attack the opposing party." In support, the Tenth Circuit cited the fact that under Oklahoma's Declaratory Judgment Act, "the state court was prohibited from awarding damages against Mr. Shero."
The dissent argued that such a position might give cold comfort to citizens untrained in the procedural niceties of litigation. For example, the dissent pointed to the fact that litigation forced Shero to expend time and effort in defense of the action utilizing his own assets until awarded attorney's fees. This, argued the dissent, "may alone be enough to dissuade a person from continuing to engage in constitutionally protected speech."
Although litigation may be a "significant matter for private citizens," the Court ultimately concluded the specter of a declaratory action is not significant enough to rise above a de minimus injury and, as such, cannot be actionable under the First Amendment.
At least under federal law, the decision appears to give Oklahoma municipalities a green light to pursue declaratory actions against citizens without fear of violating the First Amendment.
