AMBRO, Circuit Judge, with whom SCIRICA, RENDELL, BARRY, FUENTES, SMITH, FISHER, CHAGARES, JORDAN, HARDIMAN, GREENAWAY, JR., and VANASKIE, Circuit Judges, join.
Does a party "prevail" within the meaning of 42 U.S.C. § 1988 if it obtains a temporary restraining order the day after it files suit (after a hearing but before briefing from the opposing side), but 22 days later is denied a preliminary injunction because the opposing party's voluntary change of position moots the case? Because we believe that Supreme Court precedent requires us to answer no, we affirm the same determination by the District Court.
The District Court had jurisdiction under 28 U.S.C. § 1331. We have jurisdiction under 28 U.S.C. § 1291.
I. Factual Background and Procedural History
Live Gold Operations, Inc. manages and promotes the music recording and performing groups known as "The Platters" and "The Cornell Gunter Coasters" pursuant to licenses of unregistered trademarks. In August 2007, the State of New Jersey learned that Live Gold had scheduled a two-week concert, to begin on August 18, of the Platters and Coasters groups at the Hilton Hotel in Atlantic City. The State informed Live Gold that its use of the trademarks "The Platters" and "The Cornell Gunter Coasters" might violate the New Jersey Truth in Music Act, which provides in pertinent part:
A person shall not advertise or conduct a live musical performance or production through the use of an affiliation, connection or association between the performing group and the recording group unless:
(a) The performing group is the authorized registrant and owner of a federal service mark for the group registered in the United States Patent and Trademark Office; or
(b) At least one member of the performing group was a member of the recording group and has a legal right by virtue of use or operation under the group name without having abandoned the name or affiliation of the group; or
(c) The live musical performance or production is identified in all advertising and promotion as a salute or tribute; or
(d) The advertising does not relate to a live musical performance or production taking place in this State; or
(e) The performance or production is expressly authorized by the recording group.
N.J. Stat. Ann. § 2A:32B-2.
Live Gold responded by providing the State with evidence of its ownership of common law unregistered trademarks in each group's name and asserting that the unregistered trademarks should be considered "express authorizations" under sub-section (e). Not satisfied that ownership of an unregistered trademark could comply with the Truth in Music Act, the State advised the Hilton Hotel that it could avoid liability under the Act by ticketing and advertising the concert as a "tribute" or "salute" to the Platters and Coasters groups. Hilton complied.
On August 17, 2007, the day before the first Hilton concert, Live Gold sued the State, seeking a TRO and injunctive relief against its enforcement of the Truth in Music Act in the manner it advised. Live Gold argued, among other things, that the State's enforcement of the Act conflicted with the federal Lanham Act, 15 U.S.C. § 1125, and violated its civil rights.
At the TRO hearing before Judge Debevoise, Live Gold asserted that it had the right to conduct performances using its unregistered trademarks, and objected to the State's actions that caused the Hilton to label the groups' performances inaccurately as "tributes" or "salutes." The State responded that, because Live Gold's unregistered trademarks were not "express authorizations" under the Act, the Hilton concert must be billed as a tribute or salute. Judge Debevoise expressed doubts about the State's position:
That is not what [Live Gold's groups] want to do. That is not what they say accurately describes them. So, in effect, the State is telling the Hilton to advertise or publicize this event in a way which is not in accordance with the description which these promoters of the events say is accurate.
. . .
I think there is sufficient problem with the State's position so that I — there is a likelihood of success on the merits in this particular case.
. . .
[T]here may be substantial federal rights being impaired by the action of the State in this case, generally, under the statute . . . important federal rights are at issue, both freedom of speech rights under the Lanham Act and private rights to nonregistered trade-mark — trade name. Consequently, the Temporary Restraining Order will issue.
. . .
[W]e'll have an opportunity to get to
the merits of this case on September 7th.
(Emphasis added.) The TRO "temporarily restrained and enjoined [the State] from interfering in any way with [the Hilton concert], and the marketing and promotion thereof."
On September 7, 2007, the parties returned to the District Court for a hearing on the preliminary injunction. In its written submission prior to the hearing, the State argued that an unregistered trademark satisfied the Truth in Music Act only if the performing group obtained express authorization from an original group member, included an original member, or denominated itself as a tribute or salute to the original group. The State contended that its interpretation of the Act was consistent with the Lanham Act, the First Amendment, and the Equal Protection Clause of the Fourteenth Amendment. It also objected to Live Gold's suit on jurisdictional grounds.
Judge Debevoise began the preliminary injunction hearing by asking the State why it insisted on distinguishing between registered and unregistered trademarks: "Why shouldn't they proceed on an equal basis, two valid trademarks?" In response, the State contended that because the Lanham Act accorded a rebuttable presumption of validity to registered trademarks, its action here against unregistered trademarks was consistent with federal law. Judge Debevoise repeatedly rejected this argument, explaining that the differences under federal law between registered and unregistered trademarks for purposes of validity did not authorize the State to discriminate against an unregistered trademark, once proven valid. "There's no reason for it," he declared. Nevertheless, the State continued to press its interpretation of the Truth in Music Act. Judge Debevoise again rejected the State's position, stating, "Well, I fail to see it."
After rejecting the State's arguments, Judge Debevoise suggested that the State reconcile the Truth in Music Act with the Lanham Act by interpreting subsection (e) of the former to permit unregistered trademark holders to perform under their group names without any additional requirements. The State suddenly capitulated, effectively adopting Live Gold's interpretation of the Act. Incredulous, Live Gold objected that the State had made "a 180 degree shift in position." Judge Debevoise agreed, telling the State that the position in its brief was "contrary to what I [just] understood you to say." In response, the State explained that its previous position "was inadvertently put into the brief." The Judge then declared that the State would be "bound" by its new interpretation of the Act.
Live Gold then moved for summary disposition, contending that it "should win" because the State had "admitt[ed] the allegations" in the complaint. Judge Debevoise observed that the State's new position resolved the "basic legal problem, which was an equal protection problem, a First Amendment problem, [and] a due process problem." He again took note of the State's "evolved" position, but saw no need to "go any further." He then announced:
We have a statement by the State of New Jersey as to what the meaning of this statute is insofar as it relates to common law trademarks, and I think we've stated it. If there's a valid common law trademark under the Lanham Act, and if whoever has possession of it can establish a right to that possession, he is to be treated — or she is to be treated in the same way as the holder of a registered trademark. Now, no necessity of — to say or give any tribute to anybody. So we have an agreement on that.
The Court then vacated the TRO, which had already expired "by its own term[s] [after] 10 days, and . . . was directed primarily to the August performance at the Hilton." Having secured the State's position going forward, Judge Debevoise left open the option of continuing consideration of the preliminary injunction, but he found no need to convert the TRO to a preliminary injunction at that time.
Subsequently, Pryor Cashman LLP sought leave to move for an award of its attorney's fees and costs incurred in representing Live Gold. The issue was referred to Magistrate Judge Salas, who denied Pryor Cashman's application, concluding that Live Gold was not a "prevailing party" under 42 U.S.C. § 1988(b) because the State had voluntarily changed its position on the meaning of the Truth in Music Act.
Live Gold sought review of Judge Salas's order by the District Court. The State filed a motion to dismiss. Judge Debevoise addressed both issues in a hearing on March 16, 2009. At that hearing, he first addressed the State's motion to dismiss. Seeking to identify any unresolved constitutional issues, he asked the State to confirm that "[e]ven though literally . . . [the Truth in Music Act] might be interpreted to exclude [performing groups holding unregistered trademarks], it doesn't really do so and you're not interpreting it to do so." The State concurred, stating that "[t]he [revised] position we took on September 7, 2007, in this courtroom, is the position we're taking now." Judge Debevoise then obtained the agreement of all parties that the preliminary injunction hearing resolved Live Gold's constitutional claims, and asked, "Why shouldn't [Live Gold's complaint] be dismissed, other than [Pryor Cashman's] application for attorney's fees?" After hearing Live Gold's arguments, he remained unpersuaded, explaining "I just don't know what else there is to address. . . . In effect, [Live Gold] won the case."
Judge Debevoise then turned to Pryor Cashman's application for attorney's fees. After hearing from Live Gold, he asked, "State, why shouldn't you be responsible for attorney's fees[?]" In response, the State replied that a fee award was inappropriate because "there was no past enforcement action" and because it had never taken any position on the Truth in Music Act. Judge Debevoise disagreed with the latter contention, reminding the State that it made a "180 degree change in position because [it] came in negating everything that [Live Gold] [was] urging, and in effect conceded [Live Gold] [was] right, and permitted everything to go forward." The State again distanced itself from its initial arguments, explaining that they were "not . . . as clear as they could have been" because the State was rushed in responding to the TRO application. The Court took the matter under advisement.
One month later, Judge Debevoise entered an order affirming the Magistrate Judge's order denying reimbursement of Live Gold's attorney's fees and granting the State's motion to dismiss. In his order, Judge Debevoise held that Live Gold was not a prevailing party because he "did not enter a preliminary injunction or any other order on the merits of the case." He also concluded that the State voluntarily changed its position, stating that "[w]hile it may be true that this court's involvement aided in the resolution of the constitutional issues between the parties, the fact remains that the issues were not resolved as the result of a court order." In granting the State's motion to dismiss, Judge Debevoise concluded that Live Gold's claims were moot in light of the parties' agreement that the preliminary injunction hearing had resolved all of Live Gold's constitutional claims. In this appeal, Live Gold challenges only the denial of attorney's fees.
II. Governing Precedent
To be eligible to make a prevailing-party claim under § 1988, the plaintiff must, "at a minimum, . . . be able to point to a resolution of the dispute which changes the legal relationship between itself and the defendant." Tex. State Teachers Ass'n v. Garland Indep. Sch. Dist., 489 U.S. 782, 792, 109 S.Ct. 1486, 103 L.Ed.2d 866 (1989). The change must be "judicially sanctioned," Buckhannon Bd. Care Home v. W. Va. Dep't of Health Human Res., 532 U.S. 598, 605, 121 S.Ct. 1835, 149 L.Ed.2d 855 (2001), and must "achieve[] some of the benefit the part[y] sought in bringing suit," Hensley v. Eckerhart, 461 U.S. 424, 433, 103 S.Ct. 1933, 76 L.Ed.2d 40 (1983) (internal quotation marks and citation omitted). A "voluntary change in conduct . . . lacks the necessary judicial imprimatur on the change." Buckhannon, 532 U.S. 598-99, 121 S.Ct. 1835. In other words, "a plaintiff does not become a `prevailing party' solely because his lawsuit causes a voluntary change in the defendant's conduct." People Against Police Violence v. City of Pittsburgh, 520 F.3d 226, 232 (3d Cir. 2008) (" PPAV"). Rather, the change in the parties' legal relationship must be the product of judicial action. See Buckhannon, 532 U.S. at 605-06, 121 S.Ct. 1835.
The Supreme Court so far has identified two resolutions that establish prevailing party eligibility: (1) judgments on the merits, and (2) court-ordered consent decrees (including settlement agreements enforced through consent decrees). Id. at 604, 121 S.Ct. 1835. The first resolution contains two independent requirements: (1) a judgment (2) that was on the merits.
Live Gold does not argue that the second resolution, "court-ordered consent decree," is in play here, nor could it for the reasons discussed below. See infra note 3.
A. The judgment requirement
A grant of summary judgment or a trial verdict in favor of the plaintiff is no doubt a "judgment." In contrast, a court's "judicial pronouncement that the defendant has violated the Constitution" does not create the requisite "material alteration of the legal relationship between the parties . . . until the plaintiff becomes entitled to enforce a judgment." Farrar v. Hobby, 506 U.S. 103, 112-13, 113 S.Ct. 566, 121 L.Ed.2d 494 (1992).
Thus, when an appellate court, in reversing the district court's dismissal of the plaintiffs claim, ruled that the plaintiffs constitutional rights were violated, the Supreme Court held that the plaintiff had not "prevailed" because there was no enforceable judgment. Hewitt v. Helms, 482 U.S. 755, 760, 107 S.Ct. 2672, 96 L.Ed.2d 654 (1987). The only "relief to the plaintiff from this appellate victory was "the moral satisfaction of knowing that a federal court concluded that his rights had been violated." Id., at 762, 107 S.Ct. 2672.
B. The merits requirement
Any judgment must also be "on the merits." As recognized by the Supreme Court shortly after § 1988 was amended to allow attorney's fees, "Congress intended to permit the interim award of counsel fees only when a party has prevailed on the merits of at least some of his claims." Hanrahan v. Hampton, 446 U.S. 754, 758, 100 S.Ct. 1987, 64 L.Ed.2d 670 (1980) ( per curiam) (emphases added); see also id. at 757, 100 S.Ct. 1987 ("[J]t seems clearly to have been the intent of Congress to permit such an interlocutory award only to a party who has established his entitlement to some relief on the merits of his claims, either in the trial court or on appeal."). Similarly, the Supreme Court has observed that "[r]espect for ordinary language requires that a plaintiff receive at least some relief on the merits of his claim before he can be said to prevail." Hewitt, 482 U.S. at 760, 107 S.Ct. 2672.
Indeed, in an area of the law that "has been framed in various ways," Hensley, 461 U.S. at 433, 103 S.Ct. 1933, the merits-based requirement established in Hanrahan and Hewitt has been consistently repeated throughout the Court's "prevailing party" jurisprudence. See Sole v. Wyner, 551 U.S. 74, 82, 127 S.Ct. 2188, 167 L.Ed.2d 1069 (2007); Buckhannon, 532 U.S. at 603-04, 608, 121 S.Ct. 1835; Farrar, 506 U.S. at 110-12, 113 S.Ct. 566; Garland, 489 U.S. at 790, 792, 109 S.Ct. 1486. We have followed suit to hold that, to be entitled to prevailing party fees based on interim relief, relief must be "derived from some determination on the merits." 3.0. v. Orange Twp. Bd. of Educ., 287 F.3d 267, 274 (3d Cir. 2002).
III. Live Gold did not receive a "judgment on the merits," and therefore was not a prevailing party.
A. The temporary restraining order was not issued on the merits.
In this case, we have a temporary restraining order. In PAPV, we held that injunctive relief "can, under appropriate circumstances, render a party `prevailing.'" 520 F.3d at 233.
However, the "merits" requirement is difficult to meet in the context of TROs and preliminary injunctions, as the plaintiff in those instances needs only to show a likelihood of success on the merits (that is, a reasonable chance, or probability, of winning) to be granted relief. A "likelihood" does not mean more likely than not. Cf. Hackett v. Price, 381 F.3d 281, 290-91 (3d Cir. 2004). Because of this, we have held that a court's finding of "reasonable probability of success on the merits" is not a resolution of "any merit-based issue." John T. v. Del. County, 318 F.3d 545, 559 (3d Cir. 2003) (internal quotation marks and citation omitted). As this "probability" ruling is usually the only merits-related legal determination made when courts grant TROs and preliminary injunctions, it follows that parties will not often "prevail" based solely on those events.
Our decision in PAPV provides an example of that rare situation where a merits-based determination is made at the injunction stage. There, a rally organizer challenged the constitutionality of an ordinance that required groups to prepay police protection costs before they could receive a permit for parades and rallies. PAPV, 520 F.3d at 229. At the first hearing in the case, the District Court granted the requested TRO after "concluding that [the ordinance] "was facially unconstitutional,'" and that, even if the City voluntarily did not enforce the ordinance (as it had offered to do), "a permit regime devoid of any prescribed process would also be un-constitutional." Id. Therefore, the Court enjoined the City from enforcing the law, imposed its own temporary procedures governing permits, and directed the parties to meet and confer concerning a new proposal. Id. at 229-30. The City later proposed a revised ordinance, but the Court found it lacking, converted the TRO to a preliminary injunction, and requested further briefing. Id. at 230.
The City submitted a second revised ordinance, and in the meantime formally repealed the unconstitutional provision. Id. After this repeal, the City moved to dismiss the suit. Id. The Court denied the motion because no new procedures had taken the now-repealed ordinance's place, and a lack of guidelines was itself unconstitutional. Id. The injunction remained in effect for over two years until a new ordinance was enacted that satisfied the concerns of the Court. Id. Only then did it lift the injunction and close the case with the parties' agreement. Id.
The legal victories in PAPV are far from the events now before us. Judge Debevoise here never ruled, as did the PAPV Court, that the challenged law (or application of the law) was unconstitutional. Id. at 234. Instead, the TRO was based only on a "likelihood of success on the merits." App. 187. In PAPV, the TRO prohibited enforcement of the challenged ordinance and affirmatively created new procedures to govern the City. The TRO in our case merely enjoined the State of New Jersey "from interfering in any way with live performances by [Live Gold's] . . . groups at the Hilton Hotel in Atlantic City, New Jersey, and the marketing and promotion thereof." The State remained free to enforce the Truth in Music Act (so long as it did not interfere with the Hilton performances).
While Judge Debevoise suggested at the TRO hearing that the State's interpretation of the law posed "a very serious problem" and recognized "a significant risk there may be substantial federal rights being impaired by the action of the State," that will be true in almost all of these cases — § 1988 deals with civil rights cases, which typically involve "very serious" and "substantial federal rights." Judge Debevoise acknowledged that "the State maybe has some merit to its position" (emphasis added), and stated it could resolve the merits "at a later date upon the return day of the Order to Show Cause."
Contrary to the concerns expressed by Judge Roth, we do not mean to "cast[] doubt" on the "well-supported legal proposition" that, in some cases, interim injunctive relief may be sufficient to warrant attorney's fees. We agree that "interim relief remains a proper basis for an award of attorney's fees when that relief is based on a determination of the merits of the plaintiff's claims." We emphasize, however, that the determination must be merits-based, like the PAPV Court's decision that the challenged law in that case was unconstitutional, and may not be merely a finding of a likelihood of success on the merits, as in this case.
Therefore, the TRO here was not merits-based. As such, it does not confer eligibility for prevailing party status. We thus turn to whether anything occurred after the TRO to resolve the controversy on the merits and render Live Gold the prevailing party under § 1988.
Judge Roth argues that the TRO was a "functional determination on the merits" because it "protected Live Gold from a potential enforcement action by the State" and allowed the concert series to proceed without being labeled a "tribute." Thus, she contends, "Live Gold had largely obtained the relief it requested." While this has surface appeal, the Supreme Court has told us it is not enough. As we have explained, Live Gold did not obtain a judgment on the merits of its claim. Without that, it is simply not entitled to attorney's fees.
B. The State's actions after the TRO issued were voluntary, and no judgment was issued on the merits.
There was no determination on the merits in this case because the State mooted the case at the preliminary injunction hearing by agreeing with Live Gold's position. As noted, the Supreme Court has identified two formal resolutions that make a winning attorney eligible for a fee award: (1) enforceable judgments on the merits, and (2) court-ordered consent decrees. Buckhannon, 532 U.S. at 604, 121 S.Ct. 1835. Buckhannon characterized these two resolutions as "examples" of decisions that create the necessary material alteration of the legal relationship of the parties. Id. at 604-05, 121 S.Ct. 1835. There may be resolutions other than the two identified in Buckhannon that warrant prevailing party status (although the Supreme Court has yet to identify any). But even if they are merely examples, Buckhannon precludes the events in this case from qualifying as a third form of resolution that can support prevailing party status.
Some background helps to understand the sea change caused by Buckhannon in this area of the law. Prior to that decision, the rule in most circuits was that a plaintiff was a "prevailing party" if it "achieve[d] the desired result because the lawsuit brought about a voluntary change in the defendant's conduct." Id. at 601-02, 121 S.Ct. 1835. This became known as the "catalyst theory." Id.
For example, we held pre- Buckhannon that a plaintiff who could "prove that the existence of the lawsuit accomplished the original objectives of the lawsuit without a formal judgment c[ould] be a `prevailing party:" Baumgartner v. Harrisburg Hous. Auth., 21 F.3d 541, 544 (3d Cir. 1994), overruled by Buckhannon, 532 U.S. at 602-05, 121 S.Ct. 1835. We applied the "well-established" catalyst theory to allow attorney's fees when defendants "voluntarily changed their behavior to eliminate the complained-of conduct." Id. To support this theory, we relied in part on the policy consideration that "if defendants could deprive plaintiffs of attorney's fees by unilaterally mooting the underlying case by conceding to plaintiffs' demands, attorneys might be more hesitant about bringing these civil rights suits, a result inconsistent with Congress' intent in enacting section 1988." Id. at 548. Thus, we held that plaintiffs could be prevailing parties "notwithstanding the absence of a judgment or consent decree" so long as they "accomplished the original objectives of the lawsuit." Id. at 544, 551.
Were this the law governing us today, we would hold the prevailing party requirement satisfied, as Live Gold accomplished its objectives by filing a lawsuit that "catalyzed" the State to change its position voluntarily. In Baumgartner it did not matter that there was no judgment or consent decree; because the "existence of the lawsuit accomplished the original objectives of the lawsuit," attorney's fees would be warranted. Id. at 544.
But Buckhannon overruled Baumgartner, and the latter is no longer the law. In Buckhannon, the Supreme Court reiterated that theretofore it had "only awarded attorney's fees" when the plaintiff obtained a "judgment on the merits" or a "court-ordered consent decree." 532 U.S. at 605, 121 S.Ct. 1835. It had not awarded attorney's fees under the following circumstances: where the plaintiff acquired a "judicial pronouncement that the defendant has violated the Constitution unaccompanied by ` judicial relief,'" id. at 606, 121 S.Ct. 1835 ( quoting Hewitt, 482 U.S. at 760, 107 S.Ct. 2672) (emphasis in original); where the plaintiff "secured the reversal of a directed verdict," id. at 605-06, 121 S.Ct. 1835 (citing Hanrahan, 446 U.S. at 759, 100 S.Ct. 1987); or where there was a "nonjudicial alteration of actual circumstances," id. at 606, 121 S.Ct. 1835 (citation omitted) (internal quotations marks omitted). The "catalyst theory" was added to this list, as there is no "judicially sanctioned change" in the parties' "legal relationship." Id. at 605, 121 S.Ct. 1835. "A defendant's voluntary change in conduct, although perhaps accomplishing what the plaintiff sought to achieve by the lawsuit, lacks the necessary judicial imprimatur on the change." Id. Thus, the Supreme Court concluded, "the `catalyst theory' is not a permissible basis for the award of attorney's fees. . . ." Id. at 610, 121 S.Ct. 1835.
In so holding, it considered the same policy argument we raised in Baumgartner — that without the catalyst theory "defendants [could] unilaterally moot[] an action before judgment in an effort to avoid an award of attorney's fees" — but was not swayed. Buckhannon, 532 U.S. at 608-09, 121 S.Ct. 1835. Thus, however persuasive that argument may seem, it cannot influence our decision here.
We doubt that the consequences of our decision today will be nearly as severe as Judge Aldisert foreshadows. In any event, our job is to follow Supreme Court precedent. Judge Aldisert writes about what the law should be, but we must deal with what the law is.
* * * * * *
The TRO Live Gold obtained was plainly not a "judgment on the merits." Judge Debevoise, who entered the TRO, certainly did not think so. At the preliminary injunction hearing the State chose to agree with the position pressed by the plaintiff. As that agreement resolved the constitutional issues, the case was mooted. Even if there are circumstances where a "judgment on the merits" or a "court-ordered consent decree" is not required for prevailing-party status, Buckhannon prevents the events in this case from qualifying.
Because no enforceable judgment on the merits issued in this case and the State's actions that mooted the case were voluntary, Buckhannon tells us that Live Gold was not a prevailing party. Given that precedent, we affirm.