ON PETITION FOR REHEARING AND SUGGESTION FOR REHEARING EN BANC
Petition for rehearing denied.
dissenting from denial of rehearing en banc,
A panel of our court held that assuming arguendo the applicability of the Due Process Clause to awards of punitive damages, no violation of due process can be found on the facts of this case. By their lights, the defendant Reserve Life was “provided with adequate notice of the type of conduct which would subject it to significant punitive damages,” and the district court’s award was within Mississippi’s “well-established guidelines for the imposition of punitive damages.” The panel thus affirmed a $500,000 punitive damage award for Reserve’s delay and belated payment of a $6,658.38 medical claim, amounting to a penalty 75 times the value of the claim.
Notwithstanding the decision of my brethren to the contrary, this case should be reheard en banc. Notwithstanding its demurrer on the due process issue, the rationale of the panel opinion sets no due process limit on awards of punitive damages for bad faith refusals to pay insurance claims governed by Mississippi law. 1 I am convinced that the panel’s reasoning and result are fundamentally in error. Mississippi’s bad faith refusal tort, a creature designed by the state supreme court, not the legislature, to punish and deter insurance companies when they fail to pay certain claims, mocks our notions of fundamental fairness embodied in the Due Process Clause of the fourteenth amendment. First, neither Reserve Life nor most of the dozens of other insurers who have been attacked by this new Mississippi tort have had adequate notice of the conduct that could result in punitive damage awards. Second, despite the panel’s incantation of Mississippi’s “well established standards,” the fact finder possesses unbridled discretion to punish, and punishment is meted out among defendants in radically varying amounts.
Yet another factor counsels rehearing en banc. A majority of the Supreme Court have questioned the constitutional propriety of punitive damage awards run amok. 2 As lower court judges, we should debate this issue for the benefit of the higher Court and the public. 3
Lacking the opportunity for that debate, but in hope of spurring it on, I shall shadow-box the panel opinion.
I. Mississippi Law
Commencing with
Standard Life Ins. Co. v. Veal,
(1) Such amount as is necessary for the punishment of the wrongdoing of the defendant and deterring defendant from similar conduct in the future;
(2) such amount as is reasonably necessary to make an example of the defendant so that others may be deterred from the commission of similar offenses; and
(3) the pecuniary ability or financial worth of the defendant.
Bankers Life & Cas. Co. v. Crenshaw,
The long march of the Mississippi Supreme Court toward “equitable” insurance claim handling practices is not without significance for this case. Surprisingly, however, this sequence of decisions is completely overlooked by our court’s opinion. Prior to the handling of Eichenseer’s claim,
no
Mississippi case had held that either failure to obtain “all relevant medical records” or egregious delay in processing a claim could fall within the purview of a bad faith refusal tort. The Mississippi cases before 1983 dealt with entirely different fact patterns:
Veal,
Not until after Eichenseer’s claim was denied by Reserve did the Mississippi Supreme Court begin to “punitize” in certain cases an insurer’s failure to obtain “all relevant medical records”,
Crenshaw,
We are of the opinion the term “legitimate or arguable reason,” although spawning much comment in our cases and in briefs and arguments of counsel, is nothing more than an expression indicating the act or acts of the alleged tortfeasor do not rise to the heightened level of an independent tort. Additionally, the very term expresses the holding of this Court establishing a distinction between ordinary torts, the product of forgetfulness, oversight, or the like; and heightened torts, which are the product of gross, callous or wanton conduct, or, if intentional, are accompanied by fraud or deceit.
State Farm Fire & Casualty Co. v. Simpson,
Mississippi courts all but refuse to interfere with the amounts of punitive damages assessed by the fact finder. As the majority opinion put it in
Bankers Life v. Cren-shaw,
an award equal to less than 1% of the company’s net worth does not shock the judicial conscience.
See Bankers Life & Cas. Co.,
II. Mississippi Law Applied to this Case
Reserve Life took three and a half years to pay Eichenseer’s claim for medical expenses incurred from her hysterectomy. The company at all times based its denial of the claim on a pre-existing condition exclusion. This was supported by a statement of Eichenseer’s treating physician in the hospital admitting records, that the patient’s “pain ha[d] been present in the lower abdomen in period for the last 2-3 years.” The same doctor’s discharge summary, however, diagnosed acute pelvic inflammatory disease — a condition that would have had to arise suddenly — as well as pre-existing inflammation, cysts and en-dometriosis. The company’s adjuster did not consult with medical experts before denying the claim. Moreover, the company fumbled and mismanaged its claims handling throughout Eichenseer’s attempts to seek a non-judicial adjustment. After she filed suit, the company decided to pay her $6,000 plus claim, although it later produced expert testimony corroborating its evaluation that she underwent surgery for a pre-existing condition.
The trial court, having analyzed Mississippi bad faith refusal law in detail, found this case governed by the rule that a company must make a reasonable effort to obtain “all available medical information.”
Justifying the sum of $500,000 in punitive damages, the trial court tried to enforce Mississippi’s “standards” for their as
*1418
sessment. In addition to citing the goals enunciated by
Crenshaw, supra,
the court considered “the degree of the offense, the presence or absence of malice, the motive behind the actions, the injury intended, and the public sense of justice and propriety.”
See
III. Due Process
“[N]or shall any state deprive any person of life, liberty or property without due process of law.”
U.S. Constitution, Amendment XIV.
The Due Process Clause has long and consistently been held to bar legislation that is unduly vague, i.e. that does not give fair notice of the conduct it proscribes or that entrusts enforcement to the unguided discretion of prosecutors or juries. Fundamental fairness, which characterizes due process, has been held to set up a calculus for determining whether a particular deprivation, e.g., of Reserve’s property through a punitive damage award, is attended by sufficient safeguards of accuracy to realize the goals of public policy.
Mathews v. Eldridge,
A. Vagueness
It is a basic principle of due process that an enactment is void for vagueness if its prohibitions are not clearly defined. Vague laws offend several important values. First, because we assume that man is free to steer between lawful and unlawful conduct, we insist that laws give the person of ordinary intelligence a reasonable opportunity to know what is prohibited, so that he may act accordingly. Vague laws may trap the innocent by not providing fair warning, [footnote omitted] Second, if arbitrary and discriminatory enforcement is to be prevented, laws must provide explicit standards for those
*1419 who apply them, [footnote omitted] A vague law impermissibly delegates basic policy matters to policemen, judges, and juries for resolution on an ad hoc and subjective basis, with the attendant dangers of arbitrary and discriminatory application. [footnote omitted]
Grayned v. City of Rockford,
Grayned
thus summarized a principle that was recognized over 100 years ago by the Supreme Court.
See United States v. Reese,
“[A] law fails to meet the requirements of the Due Process Clause if it is so vague and standardless that it leaves the public uncertain as to the conduct it prohibits or leaves judges and jurors free to decide, without any legally fixed standards, what is prohibited and what is not in each particular case.”
Giaccio,
It is also true, however, that the degree of scrutiny required by the vagueness doctrine may vary with the relative severity of the penalty imposed.
Village of Hoffman Estates v. Flipside, Hoffman Estates, Inc.,
We are confronted, as usual in matters of constitutional law, with a question of degree. The panel opinion held that Reserve Life had adequate notice from Mississippi law that its wrongful denial of an insurance claim could lead to the imposition of punitive damages. I disagree, because this equation fails to take into account the punitive nature of punitive damages. Punitive damages are “private fines levied by civil juries to punish reprehensible conduct and to deter its future occurrence.”
Gertz v. Robert Welch, Inc.,
*1420
In my view, vagueness inheres both in Mississippi’s standards for inflicting liability and for measuring the amount of the punitive award. As to the standard for imposing liability, Mississippi bad faith refusal law is a predator lurking in the shadows to pounce on the unsuspecting. Consider this case. Our court’s panel held that Reserve clearly had adequate notice that its failure to consult “all relevant medical records” and obtain expert advice before denying Eichenseer’s claim, coupled with its delay in adjustment, could subject it to punishment. With all due respect, as was demonstrated in the foregoing section on Mississippi law, that is not correct. In December 1983, after Reserve had denied Eichenseer’s claim, the Mississippi Supreme Court observed: “As is often the case, the court is required to apply applicable legal principles to the particular facts of a particular case. As usual, those facts are different from any other case previously considered.”
Reserve Life Ins. Co. v. McGee,
Had there been evidence that Reserve’s actions were infected by spite or ill will, this might well be a different case. 10 But the court here found no malice and punished nevertheless. It is not fundamentally fair to regulate insurance claims handling by punishing, retrospectively, conduct that was not motivated by subjective ill will. 11 As the Supreme Court put it,
[cjertainly one of the basic purposes of the Due Process Clause has always been to protect a person against having the Government impose burdens upon him except in accordance with the valid laws of the land. Implicit in this constitutional safeguard is the premise that the law must be one that carries an understandable meaning with legal standards that courts must enforce.
Giaccio,
The vagueness doctrine imposes another hurdle upon Mississippi’s bad faith refusal law even more significant than the patent lack of foreknown standards for punishing insurers. The Supreme Court has recognized “that the more important aspect of the vagueness doctrine 'is not actual notice, but the other principal element of the doctrine — the requirement that a legislature establish minimal guidelines to government law enforcement.’ ”
Kolender v. Lawson,
Giaccio furnishes a close analogy to the standardless discretion entrusted to the factfinder in Mississippi’s cases. The statute there at issue allowed a criminal jury to award costs against the defendant, even if he was acquitted. Not only did the statute afford no standard upon which to assess costs, but the Supreme Court found no guidance in state court decisions that awarded costs for conduct which, though not unlawful, was nevertheless characterized as “reprehensible in some respect,” “improper,” outrageous to “morality and justice,” or “misconduct of some kind as a result of which [the defendant] should be required to pay some penalty short of conviction. ...” Id. Likewise, the rubrics of punishment, deterrence and the other criteria set forth in Mississippi, while descriptive, are simply too uncertain to yield consistent results.
The arbitrariness of the awards issued by juries is not, in Mississippi’s system, subject to meaningful judicial review. The state supreme court counselled that “as the jury are the sole judges of the amount which ought properly to be assessed in order to inflict adequate punishment, the courts should scrupulously avoid any undue interference with their prerogative _”
Reserve Life Ins. Co. v. McGee,
B. The Process That is Due
It may be objected that if punitive damages awarded pursuant to Mississippi’s bad faith refusal tort are held to violate due process, the federal courts will be asked to invade additional areas of state common law adjudication. Additionally, it is feared, federal courts will be tempted to assume state adjudicatory roles in passing upon alternatives to punitive damages. I believe these arguments mischaracterize the source of judicial activism and hide under what is in this case a false flag of federalism in counseling federal judicial restraint.
It is Mississippi’s Supreme Court, not its legislature, which has undertaken to revise insurers’ claims handling practice by means of retrospective punishment. One justice clearly expressed his intentions to this effect: “Again, a court has been called upon to redress grievances which could be avoided by proper state regulation of insurance company practices.”
National Life and Accident Ins. Co. v. Miller,
The remedy for Mississippi's unconstitutional means of inflicting punitive damages is as straightforward as the constitutional analysis itself. That remedy need not be prescribed by the federal court nor should it significantly interfere with the right of Mississippians to be governed by their judges. Rudimentary modifications of the Mississippi law assessing punitive damages would cure the problems of notice and undue discretion without abandoning that remedy. For instance, the state court could declare that “new rules” of bad faith refusal would have prospective effect only.
See, e.g., Kelsay v. Motorola, Inc.,
IV. Conclusion
One of the most unseemly features of our current legal system is its tendency to promote litigation as high-stakes gambling. A winner can gain the keys to the corporate treasury, if he has the good fortune to obtain the right lawyer, the right jury and the right forum. Punitive damages are a key feature of the abuse of the litigation process. If, as in Mississippi’s bad faith refusal law, there are no clear standards to permit their avoidance by a defendant or to bring to heel the amounts awarded by a jury, this is no more tolerable than Pennsylvania’s statute that allowed an acquitted defendant to be saddled with the costs of his own prosecution. See Giaccio supra. At least in that case, the costs of prosecution were limited. In the present case, they clearly are not. I dissent from the denial of rehearing en banc.
Notes
.
Eichenseer v. Reserve Life Ins. Co.,
.
See Browning-Ferris Indus, v. Kelco Disposal, Inc.,
— U.S. —, —,
. ”[W]e ought not leave this lion in the busy street of our trial courts and inevitably multiply the appellate workload.”
Brock v. Merrell Dow Pharmaceuticals, Inc.,
.
National Life and Accident Ins. Co. v. Miller,
. Elsewhere, the trial court’s opinion found these two cases "most analogous” to the one at bar.
. "Based on the law of these cases. Reserve Life should have known that its conduct in processing the claim of Eichenseer in such a reckless and grossly negligent manner would lead to the imposition of a significant punitive damage award. In particular, we note once again the well-established requirement in Mississippi law that an insured [sic] make reasonable efforts in obtaining all relevant medical information regarding the claim of an insured for health benefits."
.
St. Louis, I.M. & S. Ry. Co. v. Williams,
. For similar expressions of the doctrine of vagueness,
see, e.g., United States v. National Dairy Prod. Corp.,
. The void-for-vagueness doctrine reflects the principle that “a statute which either forbids or requires the doing of an act in terms so vague that [persons] of common intelligence must necessarily guess at its meaning and differ as to its application violates the first essential of due process of law.”
Connally v. General Constr. Co.,
. Punitive damages are a venerable legal consequence of particularly reprehensible behavior.
Day v. Woodworth,
. Of course, as Mississippi case law evolves, explanations of "bad faith refusal” will furnish sufficient guidance to put insurers on notice, following those decisions, of what they must do. But no insurer should have to predict, in advance of such case law, what actions may subject it to punishment.
