Hale et al v. State Farm Mutual Automobile Insurance Company et al

Filing 67

ORDER denying 32 Motion to Dismiss for Failure to State a Claim; denying 61 Motion to Dismiss for Failure to State a Claim; denying 13 Motion to Dismiss. See Order for details. Signed by Chief Judge David R. Herndon on 3/28/13. (klh, )

IN THE UNITED STATES DISTRICT COURT
FOR THE SOUTHERN DISTRICT OF ILLINOIS
MARK HALE, TODD SHADLE
and CARLY VICKERS MORSE,
on behalf of themselves and all
others similarly situated,
Plaintiffs,
v.
STATE FARM MUTUAL AUTOMOBILE
INSURANCE COMPANY, EDWARD
MURNANE, and WILLIAM G. SHEPHERD,
Defendants.

No. 12-0660-DRH
MEMORANDUM and ORDER

HERNDON, Chief Judge:
Introduction and Background
Pending before the Court are defendants’ motions to dismiss plaintiffs’
class action complaint (Docs. 13, 32, and 61). Plaintiffs filed oppositions to the
motions (Docs. 50 & 63). Based on the complaint and the following, the Court
denies the motions to dismiss.
On May 29, 2012, plaintiffs Mark Hale, Todd Shadle and Carly Vickers
Morse, on behalf of themselves and all others similarly situated, filed a two-count
Racketeer Influenced and Corrupt Organizations Act (”RICO”), 18 U.S.C. § 1961 et
seq., class action complaint against State Farm Mutual Automobile Insurance

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Company, Ed Murnane, William G. Shepherd and Citizens for Karmeier (Doc. 2). 1
Count One alleges violations of 18 U.S.C. §1962(c) and Count Two alleges
violations of 18 U.S.C. §1962(d) by conspiring to violate 18 U.S.C. §1962(c).
According to the complaint and during the time periods alleged in the complaint,
Hale is a citizen of New York; Morse is a citizen of Maryland and Shadle is a
citizen of Texas.

State Farm is a mutual non-stock company, organized and

existing under the laws of Illinois, having its principal place of business in
Bloomington, Illinois. Shepherd is a citizen of Illinois and was employed by State
Farm. Murnane is a citizen of Illinois and was the president of the ICJL. Citizens
for Karmeier is an Illinois organization and the political committee for Illinois
Supreme Court Justice Lloyd Karmeier. 2
In the class action complaint, plaintiffs allege in their Introduction and
Nature of Action section the following:
1. From 2003 to the present, State Farm, Murnane, Shepherd and Citizens
for Karmeier (collectively, “Defendants”) created and conducted the RICO
1

Plaintiffs purport to represent the following class of individuals:
All persons who were members of the Certified Class in Avery v. State Farm Mut. Auto. Ins. Co.,
No. 97-L-114 (First Jud. Cir. Williamson County, Ill.), more specifically described as:
All persons in the United States, except those residing in Arkansas and Tennessee, who,
between July 28, 1987, and February 24, 1998, (1) were insured by a vehicle casualty insurance
policy issued by Defendant State Farm and (2) made a claim for vehicle repairs pursuant to their
policy and had non-factory authorized and/or non-OEM (Original Equipment Manufacturer) ‘crash
parts’ installed on their vehicles or else received monetary compensation determined in relation to
the cost of such parts. Excluded from the class are employees of Defendant State Farm, its
officers, its directors, its subsidiaries, or its affiliates.
The following persons are excluded from the class: (1) persons who resided or garaged
their vehicles in Illinois and whose Illinois insurance policies were issued/executed prior to April
16, 1994, and (2) persons who resided in California and whose policies were issued/executed
prior to September 26, 1996.
2
The officers listed for Citizens for Karmeier are David Luechtefeld and Gary S. Malaway. On
September 26, 2012, plaintiffs filed a notice of voluntary dismissal as to Citizens for Karmeier
(Doc. 54). That same day, the Court acknowledged the notice of voluntary dismissal and
dismissed without prejudice Citizens for Karmeier as a defendant (Doc. 55).

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enterprise described below to enable State Farm to evade payment of a
$1.05 billion judgment affirmed in favor of approximately 4.7 million State
Farm policyholders by the Illinois Appellate Court.
2. Plaintiffs bring this class action for damages against Defendants for
violation of the Racketeer Influenced and Corrupt Organizations Act
(“RICO”), 18 U.S.C. § § 1961 et seq., in particular, §§ 1962(c), (d); and
1964 for perpetrating a scheme through an enterprise specifically designed
to defraud Plaintiffs and Class out of a $1.05 billion judgment.
3. Plaintiffs were each named plaintiffs, class representatives and class
members in Avery v. State Farm Mutual Automobile Insurance Company
(“Avery Action”), a class action litigated in the Illinois state court system.
The Avery Action was certified as a class action, tried to jury verdict on a
breach of contract claim, and tried to the Court on a claim under the
Illinois Consumer Fraud Act (“ICFA”), resulting in a judgment of $1.18
billion.
4. The Illinois Appellate Court upheld a $1.05 billion judgment, sustaining
the compensatory and punitive damages, and disallowing disgorgement
damages as duplicative. See Avery v. State Farm Mut. Auto. Ins. Co., 321
Ill. App. 3d 269, 275, 292 (Ill. App. Ct. 5th Dist. 2001)(A true copy of the
Avery Appellate Court decision is attached hereto as Exhibit “A”).
5. On October 2, 2002, the Illinois Supreme Court accepted State Farm’s
appeal.

The appeal was fully-briefed, argued and submitted as of May

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2003, yet the matter remained under submission without a decision until
August 18, 2005.
6. From the fall of 2003 until November 2004, Trial Judge Lloyd Karmeier
(“Karmeier”) and Appellate Judge Gordon Maag waged a judicial campaign
for a vacant seat on the Illinois Supreme Court, ultimately resulting in
Karmeier’s election. In January 2005, having received reliable information
that State Farm had exerted financial and political influence to achieve
Karmeier’s election, the Avery plaintiffs moved to disqualify Karmeier him
[sic] from participating in the appeal of the Avery Action.
7. On or about January 31, 2005, State Farm filed its response to the
disqualification motion, grossly misrepresenting the magnitude of State
Farm’s financial support (and the degree of participation by its executives,
surrogates, lawyers and employees) of Karmeier’s campaign.
8. Plaintiffs’ motion was denied, and on August 18, 2005, with now-Justice
Karmeier participating in the Court’s deliberations and casting his vote in
State Farm’s favor, the Illinois Supreme Court issued a decision
overturning the $1.05 billion judgment.

See Avery v. State Farm Mut.

Auto. Ins. Co., 216 Ill2d 100, 835 N.E.2d 801 (Ill. 2005). (A true copy of
this decision is attached hereto as Exhibit “B”).
9. In December 2010, spurred in part by a recent United States Supreme
Court decision vacating a West Virginia Supreme Court ruling in a case
which featured similar facts, i.e., involving a party’s political and financial

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influence to elect a justice whose vote it sought for its appeal, Plaintiffs’
counsel launched an investigation into State Farm’s covert involvement in
the Karmeier campaign.

The investigation, led by a retired FBI Special

Agent, uncovered evidence that to gain reversal of the $1.05 billion
judgment in the Avery Action, State Farm – acting through Murnane,
Shepherd and the Illinois Civil Justice League (“ICJL”) – recruited
Karmeier, directed his campaign, had developed a vast network of
contributors and funneled as much as $4 million to the campaign. Then,
after achieving Karmeier’s election, State Farm deliberately concealed all of
this from the Illinois Supreme Court while its appeal was pending.
10. On September 9, 2011, based on the information uncovered in the Reece
investigation, the Avery plaintiffs petitioned the Illinois Supreme Court to
vacate its decision overturning the $1.05 billion judgment. Responding on
September 19, 2011, State Farm again deliberately misrepresented its role
in directing and financing Karmeier’s campaign. On November 17, 2011,
the Illinois Supreme Court denied Plaintiff’s petition, without comment.
11. Reece’s investigation had revealed, among other things, that, having been
ordered on April 5, 2001 by the Appellate Court to pay a 1.05 billion
judgment to the Avery class, and having succeeded in persuading the
Illinois Supreme Court to accept its appeal, State Farm had next developed
an elaborate plan to obtain reversal of the judgment.

The initial

component of the plan was to recruit a candidate for the open Fifth District

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seat on the Illinois Supreme Court for the November 2004 election who
would support State Farm once its appeal came before the Court for
disposition. Of course, there was no guarantee for State Farm that the
appeal would not be decided before the November 2004 election, but the
risk – a $2 to $4 million investment for a possible $1.05 billion return –
was sufficiently minimal to make it a worthwhile gamble.
12. Defendants’ scheme was developed and implemented in two distinct but
related phases. In the first phase, State Farm sought to recruit, finance,
direct, and elect a candidate to the Illinois Supreme Court who, once
elected, would vote to overturn the $1.05 billion judgment. As Plaintiffs
describe below, Defendants ultimately succeeded in obtaining this
objective. Nine months after his election, Karmeier voted in favor of State
Farm to overturn the $1.05 billion judgment of the Appellate Court.
13. Once the initial phase of the scheme had succeeded, the second phase
featured two spirits of affirmative fraudulent activity, each furthered by use
the of the U.S. mails: the 2005 and 2011 written misrepresentations to the
Illinois Supreme Court.

Specifically, this phase consisted of: (a) a

continuing concealment of these facts to permit Karmeier to participate in
the deliberations and cast his vote to overturn the judgment in 2005 (this
was accomplished, in part, by State Farm’s January 31, 2005 filing), and
(b) withholding information from the Illinois Supreme Court that would
have conceivably led it to vacate the decision in 2011 (this was

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accomplished, in part, by State Farm’s September 19, 2011 filing). Again,
both filings were made through the U.S. mail, having been mailed to the
Clerk of the Illinois Supreme Court and to Plaintiffs’ counsel in several
states, including Illinois, Louisiana, Mississippi and Tennessee.
14. From its inception, Plaintiffs and the other Class members in the Avery
Action were the targets of and ultimate victims of the racketeering acts and
the RICO enterprise – stripped of hundreds or even thousands of dollars
each, seized of a class-wide judgment totaling $1.05 billion which
compensated them for their losses – as a proximate result of Defendants’
actions and the actions of the Enterprise participants.
15. In both the 2005 and 2011 filings, State Farm continued to hide and
conceal its role in Karmeier’s campaign, and deliberately misled the Court
by omitting and concealing material facts regarding State Farm’s role in
Karmeier’s campaign, which it directed through Shepherd, Murnane, the
ICJL and Citizens for Karmeier, including: (a) recruiting Karmeier to be a
candidate; (b) selecting Murnane to direct Karmeier’s campaign; (c)
creating Karmeier’s judicial campaign contribution network; and (d)
funding Karmeier’s campaign.
16. To carry out and conceal this elaborate and covert scheme, Defendants
created and conducted a continuing pattern and practice of activity through
an association-in-fact Enterprise consisting of, among others, the following:
Shepherd; Murnane; Murnane’s non-profit organization, the ICJL; the

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Shepherd-led ICJL Executive Committee (“Executive Committee”); Citizens
for Karmeier (the campaign committee of Karmeier); JUSTPAC (the ICJL’s
political action committee); and the United States Chamber of Commerce
(“US Chamber”).
17. The ICJL and the Executive Committee, through Murnane and Shepherd,
respectively, aided by the Citizens for Karmeier, functioned collectively as
State Farm’s vehicle to: (a) recruit Karmeier as a candidate; (b) direct
Karmeier’s

campaign,

(c)

lend

credibility

to

that

campaign

via

endorsement, and (d) assure that Karmeier’s campaign was well-funded.
Campaign finance disclosures show that State Farm secretly funneled to
Karmeier’s campaign as much as $4 million (over 80%) of Karmeier’s total
$4.8 million campaign contributions. Led by Murnane and Shepherd, the
ICJL and its Executive Committee were the “glue” that held together the
many pieces of State Farm’s judicial campaign contribution network.
18. The utilization of the U.S. mail throughout every stage of Defendants’
scheme – to solicit, receive and direct contributions, to conduct
conferences and disseminate communications and campaign strategies,
and to conceal the extent of State Farm’s role in Karmeier’s campaign –
was essential to the conduct of this Enterprise.
19. Various Enterprise participants and co-conspirators also used electronic
mail to carry out the initial phase of Defendants’ scheme throughout 2003-

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2004 to communicate details regarding the direction, management and
financing of the campaign to fellow Enterprise participants.
20. As the following paragraphs illustrate, the motivation for this seven-yearlong-cover-up is both plausible and demonstrable.

State Farm’s

misrepresentations and deception directed toward the Illinois Supreme
Court by its mailed court-filings, and the continuing use of the mails by
Defendants and Enterprise participants to carry out the scheme (to evade
payment of the $1.05 billion judgment) constitutes a pattern and practice
of knowing and deceptive conduct employed to effectuate and then to
conceal State Farm’s extraordinary support for Karmeier.
(Doc. 2, ps. 1-6).
Thereafter, defendants State Farm, Shepherd and Murnane all filed
motions to dismiss based on the Rooker-Feldman doctrine; res judicata
and/or collateral estoppel; untimeliness of the RICO claims; and failure to
sufficiently plead violations of RICO and RICO conspiracy.

Obviously,

plaintiffs oppose the motions. As the motions are ripe, the Court rules as
follows. 3
Motion to Dismiss Standard
The purpose of a Rule 12(b) motion to dismiss is not to decide the merits of
the case. A Rule 12(b)(6) motion tests the sufficiency of the complaint, Gibson v.
City of Chicago, 910 F.2d 1510, 1520 (7th Cir.1990), while a Rule 12(b)(1)

3

On July 31, 2012, the Court stayed the initial disclosures and discovery pending ruling on the
motions to dismiss (Doc. 30).

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motion tests whether the Court has subject matter jurisdiction. Long v.
Shorebank Development Corp., 182 F.3d 548, 554 (7th Cir. 1999). In reviewing
a motion to dismiss under either rule, the Court takes as true all factual
allegations in plaintiffs’ complaint and draws all reasonable inferences in their
favor. Killingsworth v. HSBC Bank Nevada, N.A., 507 F.3d 614, 618 (7th Cir.
2007); Long, 182 F.3d at 554.
To survive a Rule 12(b)(6) motion to dismiss, the claim first must comply
with Rule 8(a) by providing “a short and plain statement of the claim showing that
the pleader is entitled to relief” (Fed.R.Civ.P. 8(a)(2)), such that the defendant is
given “fair notice of what the * * * claim is and the grounds upon which it rests.”
Bell Atlantic Corp. v. Twombly, 550 U.S. 544, 555, 127 S.Ct. 1955, 167 L.Ed.2d
929 (2007) (quoting Conley v. Gibson, 355 U.S. 41, 47, 78 S.Ct. 99, 2 L.Ed.2d 80
(1957)). Second, the factual allegations in the claim must be sufficient to raise the
possibility of relief above the “speculative level,” assuming that all of the
allegations in the complaint are true. E.E.O. C. v. Concentra Health Servs., Inc.,
496 F.3d 773, 776 (7th Cir. 2007) (quoting Twombly, 550 U.S. at 555). “Detailed
factual allegations” are not required, but the plaintiff must allege facts that, when
“accepted as true, * * * ‘state a claim to relief that is plausible on its face.’ “
Ashcroft v. Iqbal, 556 U.S. 662, 129 S.Ct. 1937, 1949, 173 L.Ed.2d 868 (2009)
(quoting Twombly, 550 U.S. at 555). “A claim has facial plausibility when the
plaintiff pleads factual content that allows the court to draw the reasonable
inference that the defendant is liable for the misconduct alleged.” Id. “[O]nce a

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claim has been stated adequately, it may be supported by showing any set of facts
consistent with the allegations in the complaint.” Twombly, 550 U.S. at 563. A
motion seeking dismissal based on res judicata or collateral estoppel under Rule
12(c) is evaluated using the same standard that governs a motion to dismiss
under Rule 12(b)(6). See Buchanan–Moore v. County of Milwaukee, 570 F.3d
824, 827 (7th Cir. 2009).
Surviving a Rule 12(b)(1) motion to dismiss is more difficult. United
Phosphorus, Ltd. v. Angus Chem. Co., 322 F.3d 942, 946 (7th Cir. 2003).
Federal courts are courts of limited jurisdiction; “they have only the power that is
authorized by Article III of the Constitution and the statutes enacted by Congress
pursuant thereto.” Transit Express, Inc. v. Ettinger, 246 F.3d 1018, 1023 (7th
Cir. 2001). Pursuant to 28 U.S.C. § 1331, “[t]he district courts shall have original
jurisdiction of all civil actions arising under the Constitution, laws, or treaties of
the United States.” The plaintiff bears the burden of establishing that a district
court has proper jurisdiction of an action. Transit Express, 246 F.3d at 1023. A
defendant arguing that the plaintiff has not met this burden with respect to an
action may move for dismissal under Rule 12(b)(1). A challenge based on the
Court's lack of subject matter jurisdiction is properly brought in a motion under
Federal Rule of Civil Procedure 12(b)(1), rather than as a motion to dismiss
under Rule 12(b)(6). See also Fed.R.Civ.P. 12(h)(3) (court must dismiss for lack
of subject matter jurisdiction). Under Rule 12(b)(1), consideration of evidence
extrinsic to the pleadings is appropriate. Hay v. Indiana State Bd. of Tax

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Commis, 312 F.3d 876, 879 (7th Cir. 2002) (“the district court had not only the
right, but the duty to look beyond the allegations of the complaint to determine
that it had jurisdiction to hear the landowners' claim”).
Allegations of fraud in a civil RICO complaint are subject to Rule 9(b)'s
heightened pleading standard, which requires a plaintiff to plead all averments of
fraud with particularity. Fed.R.Civ.P. 9(b); see Goren v. New Vision Intern, Inc.,
156 F.3d 721, 726 (7th Cir. 1998).

“While dismissal of a RICO claim is

appropriate if the plaintiff fails to allege sufficient facts to state a claim that is
plausible on its face, the adequate number of facts varies depending on the
complexity of the case.” Kaye v. D'Amato, 357 Fed.App'x 706, 710 (7th Cir.
2009). To plead with particularity means to allege “the who, what, when, where,
and how” of the alleged fraud. Wigod v. Wells Fargo Bank, N.A., 673 F.3d 547,
569 (7th Cir.2012) (quoting Windy City Metal Fabricators & Supply, Inc. v. CIT
Tech. Financing Svc's, Inc., 536 F.3d 663, 668 (7th Cir. 2008)).

With these

principles in mind, the Court turns to address the merits of the motions.
Analysis
Rooker-Feldman
First, defendants all argue that the Rooker-Feldman doctrine requires
plaintiffs’ class action complaint to be dismissed for lack of subject jurisdiction as
plaintiffs’ federal claims are based on the same factual allegations as their
previous state law claims. Specifically, defendants maintain that plaintiffs clearly
satisfy the “state court loser” requirement in that plaintiffs were all named

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plaintiffs in Avery and that plaintiffs’ injury, that the Illinois Supreme Court’s
reversal of the $1.05 billion judgment, satisfies the second requirement. Thus,
defendants contend that plaintiffs’ alleged injuries stem from the Illinois Supreme
Court judgment they lost and their claims are barred by Rooker-Feldman.
Plaintiffs counter that Rooker-Feldman cannot apply to this case and that this
case does not require the Court to review the merits of the judgment in Avery. In
particular, plaintiffs assert that they neither seek review nor rejection of the Avery
judgment and that plaintiffs’ injuries were not caused by any action of the Illinois
Supreme Court but solely as the result of these defendants’ conduct. The Court
agrees with plaintiffs.
The Rooker–Feldman doctrine, articulated by the Supreme Court in Rooker
v. Fidelity Trust Co., 263 U.S. 413, 44 S.Ct. 149, 68 L.Ed. 362 (1923), and
District of Columbia Court of Appeals v. Feldman, 460 U.S. 462, 103 S.Ct. 1303,
75 L.Ed.2d 206 (1983), is a jurisdictional rule directing that only the Supreme
Court of the United States may review the judgment of a state court in civil
litigation. Freedom Mortg. Corp. v. Burnham Mortg., Inc., 569 F.3d 667, 670 (7th
Cir. 2009); Commonwealth Plaza Condominium v. City of Chicago, 693 F.3d
743, 745 (7th Cir. 2012). The doctrine holds that federal district courts lack
jurisdiction over lawsuits “ ‘brought by state-court losers complaining of injuries
caused by state-court judgments rendered before the district court proceedings
commence and inviting district court review and rejection of those judgments.’ ”
Lance v. Dennis, 546 U.S. 459, 464, 126 S.Ct. 1198, 163 L.Ed.2d 1059 (2006)

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(quoting Exxon Mobil Corp. v. Saudi Basic Indus. Corp., 544 U.S. 280, 284, 125
S.Ct. 1517, 161 L.Ed.2d 454 (2005)); see also Freedom Mortg. Corp., 569 F.3d
at 671; Kelley v. Med–1 Solutions, LLC, 548 F.3d 600, 603 (7th Cir. 2008). Thus,
the doctrine “ ‘precludes lower federal court jurisdiction over claims seeking
review of state court judgments ... [because] no matter how erroneous or
unconstitutional the state court judgment may be, the Supreme Court of the
United States is the only federal court that could have jurisdiction to review a
state court judgment.’ ” Taylor v. Fed. Nat'l Mortg. Ass'n, 374 F.3d 529, 532 (7th
Cir. 2004) (quoting Brokaw v. Weaver, 305 F.3d 660, 664 (7th Cir. 2002)).
The Rooker–Feldman doctrine still deprives lower federal courts of
jurisdiction if the claims made in federal court are “inextricably intertwined” with
the state court judgment. Feldman, 460 U.S. at 486; Brokaw, 305 F.3d at 664.
Although “‘inextricably intertwined’ is a somewhat metaphysical concept,” the key
issue is whether the district court is being asked to review the state court
decision, and this “determination hinges on whether the federal claim alleges that
the injury was caused by the state court judgment, or, alternatively, whether the
federal claim alleges an independent prior injury that the state court failed to
remedy.” Taylor, 374 F.3d at 533. In other words, the Rooker–Feldman doctrine
is inapplicable when the alleged injury is distinct from the judgment. Johnson v.
Orr, 551 F.3d 564, 568 (7th Cir. 2008).
If a claim is “inextricably intertwined” with a state court decision, the court
must then determine whether the plaintiff had a “reasonable opportunity to raise

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the issue in the state court proceedings.” Taylor, 374 F.3d at 533. To establish
that there was no reasonable opportunity to raise an issue in state court, a
plaintiff must point to “some factor independent of the actions of the opposing
party that precluded the litigants from raising their federal claims during the state
court proceedings.” Long, 182 F.3d at 558. A plaintiff may then proceed in federal
court if she can make this showing. Taylor, 375 F.3d at 533.
If, on the other hand, the claimed injury is independent of the state-court
judgment, or if the federal claim is based on “a prior injury that a state court
failed to remedy,” Rooker–Feldman does not bar the claim. See Centres, Inc. v.
Town of Brookfield, Wis., 148 F.3d 699, 701–02 (7th Cir.1998).
Here, at this stage of the pleadings and as accepting the allegations as true
as the Court must, the Court concludes that the complaint does not request that
the Avery judgment be overturned or reviewed. Plaintiffs’ federal claims allege
separate injuries and violations that are separate from the Avery judgment.
Plaintiffs are not asking for the Illinois Supreme Court’s judgment to be
overturned or reviewed. Nor does it appear that plaintiffs are attacking the merits
of the Avery judgment.

It appears from the complaint that they are asserting

claims for an independent legal wrong: the illegal acts or omissions by
defendants.

The complaint contains specific allegations that State Farm and

others, including Shepherd and Murnane, conspired with others to ensure a
predetermined decision in Avery.

Particularly, plaintiffs are challenging

defendants’ actions in procuring the Avery judgment. Plaintiffs allege that the

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improper actions of defendants during and after the Avery proceedings in the
Illinois

Supreme

Court

–

specifically

defendants’

mail

fraud

containing

misrepresentations to the Illinois Supreme Court– resulted in the denial of their
constitutional rights and the related injury. They do not allege that they have been
injured by the Illinois Supreme Court.

Instead they allege that defendants’

conduct and Justice Karmeier’s failure to step aside prevented them from raising
their claims before the full Illinois Supreme Court. Based on these allegations,
the Court finds that the Rooker-Feldman doctrine does not bar this Court’s
exercise of jurisdiction. The Court concludes that it has subject matter
jurisdiction in this case.
Res Judicata and Collateral Estoppel
Next, defendants argue that res judicata and/or collateral estoppel bar
plaintiffs’ claims here as these same claims and issues were litigated in the Illinois
Supreme Court and cannot be relitigated again in this cause of action.
Defendants maintain that the issue of the proprietary of Justice Karmeier’s
participation in Avery and the legitimacy of the judgment in that case were finally
and conclusively litigated and adjudicated by the Illinois Supreme Court.
Plaintiffs counter that theory of their case is that defendants and others
committed a “new wrong” separate and apart from the Avery case. Specifically,
that these cases do not contain the same causes of action as Avery deals with
State Farm’s failure to properly pay for replacement automobile parts and this

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cause of action deals with defendants fraudulently reversing a judgment by
colluding to elect a judge.
The doctrine of res judicata, also known as claim preclusion, prevents
relitigation of matters that were fully litigated in an earlier suit that resulted in a
judgment on the merits. Groesch v. City of Springfield, 635 F.3d 1020, 1029
(7th Cir. 2011). Because of the Full Faith and Credit Act, 28 U.S.C. § 1738,
federal courts must give a state court judgment the same preclusive effect that the
court rendering the judgment would give it. Haber v. Biomet, Inc., 578 F.3d 553,
556 (7th Cir. 2009); Licari v. City of Chicago, 298 F.3d 664, 666 (7th Cir. 2002).
Thus, when examining whether an Illinois court judgment bars a federal lawsuit
because of res judicata the Court looks to the preclusive effect an Illinois court
would give the judgment in question. Groesch, 635 F.3d at 1029; Licari, 298 F.3d
at 666.
Under Illinois law, res judicata applies if the prior decision (1) was a final
judgment on the merits rendered by a court of competent jurisdiction, (2)
involved the same parties or their privies, and (3) constituted the same cause of
action as the current suit. Nowak v. St. Rita High Sch., 197 Ill.2d 381, 258
Ill.Dec. 782, 757 N.E.2d 471, 477 (Ill. 2001); People ex rel. Burris v. Progressive
Land Developers, Inc., 151 Ill.2d 285, 176 Ill.Dec. 874, 602 N.E.2d 820, 825
(Ill.1992); Groesch, 635 F.3d at 1029.
Illinois uses a transactional approach to determining whether different
claims constitute the same cause of action for res judicata purposes. River Park,

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Inc. v. City of Highland Park, 184 Ill.2d 290, 234 Ill.Dec. 783, 703 N.E.2d 883,
893 (Ill.1998); see Garcia v. Village of Mt. Prospect, 360 F.3d 630, 637 (7th
Cir.2004). Under the transactional approach, “separate claims will be considered
the same cause of action for purposes of res judicata if they arise from a single
group of operative facts, regardless of whether they assert different theories of
relief.” River Park, 234 Ill.Dec. 783, 703 N.E.2d at 891; accord Rodgers v. St.
Mary's Hosp., 149 Ill.2d 302, 173 Ill.Dec. 642, 597 N.E.2d 616, 621 (Ill.1992)(res
judicata bars suit if “the same facts were essential to maintain both actions” or if
“a single group of operative facts gives rise to the assertion of relief”). As a
corollary to this rule, Illinois observes the doctrine of merger and bar which
precludes the relitigation not only of claims that were actually litigated but also
claims that could have been litigated. People ex rel. Burris, 176 Ill.Dec. 874, 602
N.E.2d at 825; River Park, 234 Ill.Dec. 783, 703 N.E.2d at 889 see Garcia, 360
F.3d at 639.
28 U.S.C. § 1738's “full faith and credit” requirement also encompasses the
equitable principle of collateral estoppel. Generally, collateral estoppel prohibits
the relitigation of any settled issue that was necessary to a prior final judgment.
Under Illinois law the “minimum requirements” for application of collateral
estoppel are:
the issue decided in the prior adjudication is identical with the one presented
in the suit in question, (2) there was a final judgment on the merits in the prior
adjudication, and (3) the party against whom estoppel is asserted was a party
or in privity with a party to the prior adjudication.
Gumma v. White, 216 Ill.2d 23, 295 Ill.Dec. 628, 833 N.E.2d 834, 843 (2005).
Page 18 of 43

Defendants argue that res judicata and/or collateral estoppel bars this
lawsuit as plaintiffs have already fully litigated their claims regarding Justice
Karmeier’s participation in Avery and those claims were conclusively rejected by
the Illinois Supreme Court. Specifically, as to res judicata, defendants assert that
all three elements are met in that (1)that the Illinois Supreme Court issued a final
judgment on the merits, reversing the $1.05 billion judgment against State Farm,
and rejected repeated challenges to Justice Karmeier’s participation and that the
United States Supreme Court denied plaintiffs’ petition for certiorari; (2) that
plaintiffs allege in the complaint the same core of operative facts that they alleged
unsuccessfully in the Illinois and the United States Supreme Courts in challenging
Avery; and (3) that the identity of the parties is satisfied as the plaintiffs are the
same and State Farm was an adverse party in the prior proceedings as it is an
adversary party in this case and that defendants Shepherd and Murnane are in
privity.

As to collateral estoppel, defendants argue that the issue of the propriety

of Justice Karmeier’s participation Avery and the legitimacy of the Avery
judgment were finally and conclusively litigated and adjudicated by the Illinois
Supreme Court. Plaintiffs counter that the first element of res judicata has not
been met as the Avery judgment was entered through fraud and, thus, plaintiffs
contend that the Avery judgment is void. Plaintiffs argue that the judgment in
Avery was void because it was procured through fraud based on defendants’
conduct. Plaintiffs assert that that defendants committed a “new wrong” separate
and apart from Avery, thus the cases do not present the same causes of action or

Page 19 of 43

operative facts. Further, plaintiffs argue that defendants’ statements that were
made to the Illinois Supreme Court and to plaintiffs’ counsel prevented plaintiffs
from exhibiting their case and circumvented an adjudication on the merits of the
Avery appeal.
The Court finds that making such factual determinations regarding res
judicata and/ or collateral estoppel at this stage in the proceedings is not proper
and declines to do so. It is unclear from the record before the Court what merits
were reached regarding the issues contained in plaintiffs’ complaint at bar and it
is unclear whether plaintiffs had a full and fair opportunity to litigate those issues
during the Avery proceedings before the Illinois Supreme Court. The Court
concludes that these arguments are better suited for discussion and decision after
discovery has been completed.
RICO CLAIM
Timeliness of Plaintiffs’ claims
Next, defendants assert that plaintiffs’ RICO claims are untimely.
Specifically, defendants argue that plaintiffs’ alleged claims accrued in 2005 with
the Illinois Supreme Court’s decision in Avery, or at the latest, in 2006 with the
United States Supreme Court’s denial of certiorari, and the limitations period
expired in either 2009, or 2010, well before plaintiffs’ filed their complaint on May
29, 2012. Plaintiffs counter that while they may have been aware of some of the
background facts of the alleged pattern of racketeering, they had not been injured
until 2011 and no claim for a RICO violation could begin to accrue until it existed.

Page 20 of 43

Plaintiffs allege that they were not injured until at least September 19, 2011, when
State Farm mailed the second of its briefs falsely denying its substantial role in
Justice Karmeier’s election. (Doc. 2, ¶¶ 101-103). Thus, plaintiffs maintain that
they could not have filed their RICO action before September 19, 2011 and that
their complaint is timely.
RICO does not provide an express statute of limitations for actions brought
under its civil enforcement provision. However, the Supreme Court has held that
civil RICO claims should be governed by the same four-year statute of limitations
period that governs closely related claims under the Clayton Act. See Agency
Holding Corp. v. Malley–Duff & Assocs., Inc., 483 U.S. 143, 150–56, 107 S.Ct.
2759, 97 L.Ed.2d 121 (1987) (analyzing the statutory relationship and legislative
history of 18 U.S.C. § 1964 and the Clayton Act, 15 U.S.C. § 15); Cancer Found.,
Inc. v. Cerberus Capital Mgmt., LP, 559 F.3d 671, 674 (7th Cir. 2009) (“The
statute of limitations for a civil RICO cause of action is a fairly generous four
years.”).
The statute of limitations is an affirmative defense, see Fed.R.Civ.P. 8(c),
and need not be addressed by plaintiffs in their complaint. See U.S. Gypsum Co.
v. Indiana Gas Co., Inc., 350 F.3d 623, 626 (7th Cir. 2003); see also United
States v. N. Trust Co., 372 F.3d 886, 888 (7th Cir. 2004) (“[A] complaint states a
claim on which relief may be granted whether or not some defense is potentially
available.”). Therefore, complaints need not anticipate defenses, and the
resolution of the statute of limitations comes after the complaint stage. See

Page 21 of 43

Trust Co., 372 F.3d at 888 (citing Gomez v. Toledo, 446 U.S. 635, 100 S.Ct.
1920, 64 L.Ed.2d 572 (1980)). This general rule is subject to an important
exception: the statute of limitations issue may be resolved definitely on the face of
the complaint when the plaintiff pleads too much and admits definitively that the
applicable limitations period has expired. See id; Gypsum, 350 F.3d at 626 (“A
litigant may plead itself out of court by alleging (and thus admitting) the
ingredients of a defense....”). Therefore, this Court must determine whether
plaintiffs have pleaded themselves out of court based on the allegations in its
complaint.
A plaintiff's RICO claim does not accrue until after the alleged defendants
have engaged in a “pattern of racketeering” activity. McCool v. Strata Oil Co., 972
F.2d 1452, 1465 (7th Cir. 1992) (“There must, of course, be a pattern of
racketeering before the plaintiff's RICO claim accrues, and this requirement might
delay accrual until after the plaintiff discovers her injury.”). Therefore, the RICO
statute of limitations begins to accrue when both a “pattern of racketeering”-i.e.
two predicate acts-has occurred, and when the plaintiff knows or should know he
or she was injured. The Court views the allegations in the complaint in the light
most favorable plaintiffs and accepts for the purposes of this analysis that each
alleged predicate act (the alleged count of mail fraud) is plead with sufficient
particularity and would indeed support plaintiffs’ allegation of a predicate act of
“racketeering” under RICO. The four year statute of limitations for civil RICO
claims does not begin to run until a plaintiff knows or should have known he was

Page 22 of 43

injured. Barry Aviation Inc. v. Land O'Lakes Mun. Airport Comm'n, 377 F.3d
682, 688 (7th Cir. 2004); McCool, 972 F.2d at 1464; see also Klehr v. A.O. Smith
Corp., 521 U.S. 179, 186–87, 117 S.Ct. 1984, 138 L.Ed.2d 373 (1997) (rejecting
“last predicate act” rule for determining accrual). This rule applies even where the
plaintiff has not yet discovered the pattern. See Rotella v. Wood, 528 U.S. 549,
554 n. 2, 555, 120 S.Ct. 1075, 145 L.Ed.2d 1047 (2000) (rejecting “last predicate
act” rule and “injury and pattern discovery rule”).
The Court finds the situation presented here is not one where the plaintiffs
have “plead itself out of court” based on the allegations in the complaint. The
complaint describes defendants’ actions in detail from conceiving the plan to elect
Justice Karmeier in late 2003, to how the Karmeier campaign was directed,
supported and funded by State Farm and others, to Justice Karmeier’s election,
to State Farm’s first act of mail fraud on January 31, 2005, to Justice Karmeier’s
decision to participate in the Avery decision in 2005, and leading up to State
Farm’s second act of mail fraud on September 19, 2011.

Thus, according to

plaintiffs’ complaint, they were not injured until at least September 19, 2011,
when State Farm mailed the second of its briefs falsely denying its role in Justice
Karmeier’s election. Plaintiffs filed their complaint on May 29, 2012, well within
the four year statute of limitations.
Assuming arguendo that that the claims are time-barred, the Court
addresses fraudulent concealment and equitably tolling. Defendants argue that it
is clear from the complaint and their court papers in 2005 and 2006 that

Page 23 of 43

plaintiffs in 2006 at the latest did know the facts that they are now relying on to
establish their RICO claims. Further, defendants argue that plaintiffs failed to
investigate these claims in that they admitted that they waited until December
2010 to investigate and that nothing prevented plaintiffs from starting that
investigation years sooner. At this stage of the pleadings, the Court rejects this
argument.
While the doctrine of equitable tolling does not require fault on the part of
the defendant, it is applied sparingly and only where extraordinary circumstances
beyond the litigant's control prevented timely filing. Asher v. Chase Bank United
States, N.A., 310 Fed. Appx. 912, 917 (7th Cir. 2009); see also United States v.
Marcello, 212 F.3d 1005, 1010 (7th Cir. 2000). Equitable tolling is frequently
confused with fraudulent concealment, a subset of equitable estoppel. Shropshear
v. Corp. Counsel of Chi., 275 F.3d 593, 595 (7th Cir. 2001); see also Asher, 310
Fed. Appx. at 917. However, the Seventh Circuit has clearly held that equitable
tolling and fraudulent concealment are two separate doctrines, see Shropshear,
275 F.3d at 595.
Unlike equitable estoppel, equitable tolling “applies when the plaintiff,
though diligent, could not have obtained the information necessary to file a claim
before the end of the limitations period.” Asher, 310 Fed. Appx. at 917. Under the
doctrine of equitable tolling, “even if a defendant is not responsible for the
plaintiff's failure to sue within the limitations period, the [plaintiff] can get an
extension of time within which to sue if it would have been unreasonable to expect

Page 24 of 43

him to be able to sue earlier.” Shropshear, 275 F.3d at 595. However, “an
essential element [of such an extension] is that the plaintiff have exercised due
diligence; in other words that he have acted reasonably.” Id . Furthermore, the
plaintiffs bear the burden of demonstrating that the applicable statute of
limitations should be tolled. Asher, 310 Fed. Appx. at 917.

While fraudulent

concealment implies deliberate efforts by the defendant to prevent the plaintiff
from suing within the applicable statute of limitation, which efforts are above and
beyond the wrongdoing upon which the plaintiff's underlying claim is based. Cada
v. Baxter Healthcare Corp., 920 F.2d 446, 452 (7th Cir. 1990).
In their complaint, plaintiffs allege that State Farm’s January 31, 2005
mailing “failed to disclose the prominent role played by Shepherd in forming the
ICJL, as a member of the ICJL Executive Committee (which engineered
Karmeier’s candidacy, endorsed him, and insured a substantial flow of case from
State Farm Executives, employees, and corporate and political partners), as a
central figure in Karmeier’s campaign.” (Doc. 2, ¶ 53). Plaintiffs further assert
that “State Farm falsely denied Murnane’s involvement in Karmeier’s campaign
and declared ‘Mr. Murnane … was not Karmeier’s campaign manager or
campaign finance chairman and was not employed by Karmeier’s campaign ….’
See State Farm’s Oppostion, at pp. 15-16.” (Doc. 2, ¶ 54 & 103). Also, plaintiffs
allege that it was not until September 11, 2011 that State Farm “conceded that
Shepherd was a charter member of the Executive Committee, thus unveiling the
missing [sic] connecting State Farm to the ICJL, to JUSTPAC, to Murnane, to the

Page 25 of 43

discarded emails, and finally, to Karmeier’s campaign.” (Doc. 2, ¶ 106).
According to plaintiffs, this concession provided the context: “Shepherd’s position
explains Murnane’s role in Karmeier’s campaign, how State Farm was able to use
the ICJL and JUSTPAC as vehicles to raise nearly $1.2 million and funnel it to
Citizens for Karmeier, and why the Executive Committee supported Karmeier’s
candidacy from “Day One” and gave him its “official endorsement,” signaling other
ICJL members that Karmeier was State Farm’s choice.” (Doc. 2, ¶ 107). Further,
plaintiffs’ complaint alleges: “Not only did State Farm fail to utter a single word
about Shepherd’s position on the Executive Committee until September 19, 2011,
it also failed to explain why it did not do so.” (Doc. 2, ¶108). Based on these
allegations contained in the complaint, the Court finds that the limitations should
be tolled until September 19, 2011 and the claims are not time-barred.
Therefore, dismissal for failure to file a complaint within the statute of limitations
period is not appropriate at this stage in the proceedings.
Defendants next argue that plaintiffs’ RICO claims fail as a matter of law in
that they lack standing because they have not adequately alleged causation; have
not adequately pled a pattern of racketeering activity; the allegations of an
enterprise are deficient as a matter of law and have failed to allege a nexus
between the purported activity and the affairs of the enterprise.
addresses causation first.

Page 26 of 43

The Court

Proximate Cause
Defendants argue that plaintiffs’ RICO claims fail for lack of standing
because they have not alleged causation. In particular, defendants argue there
was every expectation that Avery would be decided long before the newly elected
justice took office and that plaintiffs’ allegations that State Farm was taking a
“long shot” do not solve the lack of direct proximate causal relationship. Further,
defendants contend that Justice Karmeier did not cast the deciding vote as to the
unanimous holding in Avery that there could be no nationwide contract and ICFA
classed, thus his participation did not cause their injury. Defendants also argue
that plaintiffs fail to allege facts to support their contention that the purported
contributions to Justice Karmeier’s campaign influenced his vote on the Avery
case. Plaintiffs respond that their complaint sufficiently links their injuries to
defendants’ actions.
Under RICO, “[a]ny person injured in his business or property by reason of
a violation of section 1962 of this chapter may sue therefor in any appropriate
United States district court....” 18 U.S.C. § 1964(c). “A cause of action under §
1964(c) requires a plaintiff to plead ‘(1) an injury in its business or property (2)
by reason of (3) the defendants' violation of section 1962.’” DeGuelle v. Camilli,
664 F.3d 192, 198 (7th Cir. 2011)(quoting RWB Servs., LLC v. Hartford
Computer Grp., Inc., 539 F.3d 681, 685 (7th Cir. 2008)) (internal quotation
marks and brackets omitted).

Page 27 of 43

Section 1962(c) makes it unlawful for an employee of an enterprise engaged
in interstate commerce “to conduct or participate, directly or indirectly, in the
conduct of such enterprise’s affairs through a pattern of racketeering activity….”
18 U.S.C. 1962(c). To state a claim for relief under 1962(c), plaintiffs must allege
“(1) conduct (2) of an enterprise (3) through a pattern of racketeering activity.”
DeGuelle, 666 F.3d at 199 (quoting United States v. Shamah, 624 F.3d 449, 454
(7th Cir. 2010), cert denied, --- U.S. --- 131 S.Ct. 1529, (2011)).
“The phrase ‘injured in business or property’ [in § 1964(c) ] has been
interpreted as a standing requirement—rather than an element of the cause of
action—which must be satisfied in order to prevail on a RICO claim.” Evans v.
City of Chicago, 434 F.3d 916, 924 (7th Cir. 2006) (citation omitted).

Likewise,

“the causation component of § 1964(c)—whether an alleged RICO injury was
caused ‘by reason of’ a violation of the statute—has also been considered a
component of standing.” Id.; RWB Servs., 539 F.3d at 686; see also Anza v. Ideal
Steel Supply Corp., 547 U.S. 451, 126 S.Ct. 1991, 164 L.Ed.2d 720 (2006)
(holding that a plaintiff does not have standing to sue for a civil RICO violation
unless its injury was proximately caused by the alleged violation).
In Holmes v. Securities Investor Protection Corp., 503 U.S. 258 (1992), the
Supreme Court concluded that the “by reason of” language in 18 U.S.C. § 1964(c)
requires a showing that the defendant's violation not only was the “but-for” cause
of the plaintiff's injury, but the proximate cause as well. See Id. at 267–268. In so
holding, the Court explained that it used the term “ ‘proximate cause’ to label

Page 28 of 43

generically the judicial tools used to limit a person's responsibility for the
consequences of that person's own acts.” Id. at 268. As set forth in Holmes, in a
civil RICO action, proximate cause is determined by examining whether a direct
relationship exists between the injury asserted and the injurious conduct alleged.
See Id. at 268–269 (describing the interpretation federal courts had given to the
term in the past and holding that the same interpretation applies to section
1964(c) the Court stated that “a plaintiff who complain[s] of harm flowing merely
from the misfortunes visited upon a third person by the defendant's acts [is]
generally said to stand too remote a distance to recover.” Id. See also Anza v.
Ideal Steel Supply Corp., 547 U.S. 451 (2006) (“When a court evaluates a RICO
claim for proximate causation the central question it must ask is whether the
alleged violation led directly to the plaintiff's injuries.”).
The Court in Holmes discussed three policy considerations for requiring a
direct relationship between the alleged harm and the alleged injurious conduct:
First, the less direct an injury is, the more difficult it becomes to ascertain
the amount of a plaintiff's damages attributable to the violation, as distinct
from other, independent, factors. Second, quite apart from problems of
proving factual causation, recognizing claims of the indirectly injured would
force courts to adopt complicated rules apportioning damages among
plaintiffs removed at different levels of injury from the violative acts, to
obviate the risk of multiple recoveries. And, finally, the need to grapple with
these problems is simply unjustified by the general interest in deterring
injurious conduct, since directly injured victims can generally be counted on
to vindicate the law as private attorneys general, without any of the problems
attendant upon suits by plaintiffs injured more remotely.
Holmes, 503 U.S. at 269–270 (internal citations omitted).
Here, in their complaint, plaintiffs allege:

Page 29 of 43

“Defendants’ motive in conducting the Enterprise … was to deceive the Illinois
Supreme Court into believing that State Farm’s support of Karmeier’s campaign
was minimal. The scheme was designed and implemented for the purpose of
recruiting a candidate, financing that candidate, electing that candidate and
effectively concealing its support for that candidate. State Farm’s efforts to
escape liability to pay the $1.05 billion judgment rested on the continued
success of every aspect of this scheme.
(Doc. 2, ¶ 98). Further, the complaint alleges
“The scheme was designed to achieve, and did achieve, its intended result:
approximately 4.7 million State Farm policyholders suffered damage to their
business and property, seized of the rightful damages awarded to them by the
Avery Action judgment.
(Doc. 2, ¶ 99). Thus, plaintiffs’ allege that defendants acted to defraud plaintiffs
out of their property. Specifically, plaintiffs allege that defendants perpetrated a
scheme to defraud plaintiffs of their property and the alleged scheme took place
in two phases: (1) State Farm decided to select its own candidate for the vacant
Illinois Supreme Court seat and place him on the Court to insure a decisive vote
and (2) to keep the candidate on the bench despite State Farm’s support.
Plaintiffs allege that State Farm used the U.S. mail to conceal these facts to
permit

Karmeier

to

participate

in

the

Avery

decision

and

to

make

misrepresentations to the Illinois Supreme Court. These mailings took place on
January 31, 2005 with its filing in the Illinois Supreme Court and on September
19, 2011 with its filing in the Illinois Supreme Court.

Based on these

allegations, the Court finds that plaintiffs have alleged a set of facts and
cognizable damages that are sufficient to demonstrate that defendants’ alleged
acts proximately caused a loss to plaintiffs.

Page 30 of 43

As to the injury, plaintiffs allege that defendants recruited Karmeier to run
for the vacant seat and together defendants directed Karmeier’s campaign.
Plaintiffs allege that State Farm engineered $4,200,417 of the $4,800,000 raised
by Karmeier’s campaign.

Plaintiffs allege that thereafter, Justice Karmeier

refused to recuse himself from the appeal and voted to overturn plaintiffs’ $1.05
billion judgment. Based on the record before the Court, the Court finds that
plaintiffs have sufficiently alleged injury to business or property element and that
they have standing to pursue the RICO claims.
Pattern of Racketeering Activity
As to pattern of racketeering activity, defendants contend that plaintiffs’
allegations are based upon a single purported “fraudulent scheme” to “obtain,
exert, and deliberately misrepresent its control over and extraordinary financial
support of Karmeier’s campaign” and to “suppress and conceal the level of such
control and support from the Illinois Supreme Court,” in order to obtain “the
Karmeier vote to gain reversal of the $1.05 billion judgment.” Defendants further
contend that plaintiffs do not allege a threat of continuing future racketeering
activity and do not allege facts that would show either closed or open-ended
continuity.

Plaintiffs maintain that their complaint alleges predicate acts of mail

fraud occurring within a ten-year period, beginning approximately November
2003 and continuing at least through September 19, 2011. The Court agrees with
plaintiffs.

Page 31 of 43

The Seventh Circuit has acknowledged that “the tremendous breadth of the
language of civil RICO has caused a large number of garden-variety fraud claims
to be brought in federal court.” Morgan v. Bank of Waukegan, 804 F.2d 970, 973
(7th Cir. 1986). However, to prevent RICO from being misused as a vehicle for
federalizing state law fraud claims, the courts have sought to limit RICO’s reach
by requiring plaintiffs to demonstrate that defendants engaged in a sufficiently
continuous “pattern of racketeering activity.” See H.J. Inc. v. Northwestern Bell
Telephone Co., 492 U.S. 229, 240–42, 109 S.Ct. 2893, 106 L.Ed.2d 195 (1989);
Gamboa v. Valez, 457 F.3d 703, 710 (7th Cir. 2006). A pattern of racketeering
activity requires at least two predicate acts of racketeering within a ten year
period. 18 U.S.C. § 1961(5); see also Vicom, Inc. v. Harbirdge Merchant
Services, Inc., 20 F.3d 771, 779 (7th Cir. 1994).

Establishing a pattern also

requires a showing of the “continuity plus relationship” test: that the racketeering
predicates are related to one another and pose a threat of continued criminal
activity. See Northwestern Bell, 492 U.S. at 237, 109 S.Ct. 2893 (holding that the
definitions set forth in 18 U.S.C. § 1961 do “not so much define a pattern of
racketeering activity as state a minimum necessary condition for the existence of
such a pattern”); see also Gamboa, 475 F.3d at 706 (“[I]solated instances of
criminal behavior, not presenting at least some threat of future harm, cannot
meet § 1962(c)'s continuity element.”). This approach recognizes that in enacting
RICO, “Congress was concerned ... with long-term criminal conduct.” Vicom, 20
F.3d at 780. In order to demonstrate sufficient relationship and continuity among

Page 32 of 43

the predicate acts, the plaintiff must establish either (1) a series of related
predicate acts extended over a substantial period of time—also known as “closedended continuity,” or (2) that the past predicate acts by their very nature project
into the future with a threat of repetition—known as “open-ended continuity.” See
Northwestern Bell, 492 U.S. at 241–242; Jennings v. Auto Meter Products, Inc.,
495 F.3d 466, 473 (7th Cir. 2007).
The Court finds that plaintiffs have alleged a pattern of racketeering
activity. Plaintiffs allege that defendants’ scheme was two-fold: (1) to elect Justice
Karmeier and gain his vote to undo the $1.05 billion judgment and (2) then to get
away with it in the face of a challenge. The complaint alleges that the conduct
spanned a seven year period beginning no later than January 31, 2005 when State
Farm first misrepresented its involvement in Karmeier’s recruitment, campaign
and election. Plaintiffs also allege that State Farm continues to conceal the scope
of its involvement. Further, plaintiffs’ complaint contains the two predicate acts
of mail fraud within a ten year time frame: the January 31, 2005 mailing and the
subsequent September 19, 2011 mailing. Plaintiffs have alleged continuity and a
pattern of racketeering.
RICO Enterprise
Defendants maintain that the allegations of enterprise are deficient as a
matter of law. Specifically, defendants maintain that plaintiffs have not provided
a plausible factual basis for asserting that the members of the enterprise
“associated together for the common purpose of allowing State Farm to evade

Page 33 of 43

$1.05 billion judgment” as the common purpose was simply to support Justice
Karmeier’s election. Further, defendants assert that plaintiffs fail to allege the
necessary relationships of enterprise members and longevity. Plaintiffs counter
that they have sufficiently identified the enterprise members, their common
purpose and their relationships.
The RICO statute defines an “enterprise” as including “any individual,
partnership, corporation, association, or other legal entity, and any union or
group of individuals associated in fact although not a legal entity.' ” Boyle v.
United States, 556 U.S. 938, 944, 129 S.Ct. 2237, 173 L.Ed.2d 1265 (2009)
(citing 18 U.S.C. § 1961(4)). A RICO enterprise is not limited to “business-like
entities,” but rather requires “an ongoing organization, formal or informal” that
“function[s] as a continuing unit.” Id. at 945, 950, 129 S.Ct. 2237 (quoting United
States v. Turkette, 452 U.S. 576, 580, 101 S.Ct. 2524, 69 L.Ed.2d 246 (1981)).
“[A]n association-in-fact enterprise must have at least three structural features: a
purpose, relationships among those associated with the enterprise, and longevity
sufficient to permit these associates to continue to pursue the enterprise's
purpose.” Id. at 946, 129 S.Ct. 2237. It does not require “a structural hierarchy,
role

differentiation,

a

unique

modus

operandi,

a

chain

of

command,

professionalism and sophistication of organization, diversity and complexity of
crimes, membership dues, rules and regulations, uncharged or additional crimes
aside from predicate acts, an internal discipline mechanism, regular meetings
regarding enterprise affairs, an enterprise name, [or] induction or initiation

Page 34 of 43

ceremonies and rituals.” Boyle, 556 U.S. at 948, 129 S.Ct. 2237 (internal
quotation marks omitted).
Here, the plaintiffs allege the following as to enterprise:
“The Enterprise is an association-in-fact of State Farm executives and
employees, including Shepherd, as well as Murnane, Citizens for Karmeier,
political operatives, a political action committee, political organizations, an
Executive Committee of one such organization which wields significant political
influence in Illinois, a political campaign committee, insurance and business
lobbyists and the US Chamber. The Enterprise is distinct from, albeit
conducted, by State Farm, through Shepherd, Murnane and the ICJL, and has
an ongoing existence. Specifically, participants in the Enterprise include: ….”
(Doc. 2, ¶ 30). The complaint names and describes the relationships between
State Farm and fifteen other individuals and/or organizations that are alleged
participants in the enterprise. 4 These allegations sufficiently describe the nature
of the enterprise and the relationships between State Farm and the enterprise
members and the longevity.

Based on those allegations, there is a plausible

factual basis for asserting that the members of the enterprise “associated together
for the common purpose of allowing State Farm to evade the 1.05 billion
judgment.” Pursuant to Boyle, these allegations are sufficient to infer the existence
of a RICO enterprise. 556 U.S. at 946–948, 129 S.Ct. 2237.

4

For instance, the complaint describes Ed Rust as a participant. It alleges he is “State Farm’s
CEO and played an important role in the US Chamber committee that targeted the Karmeier-Maag
race in 2004 and steered millions of dollars to Illinois to elect Karmeier. Further, as to Al
Admonite, another participant, the complaint alleges that he was “hired by Murnane as a
consultant to Karmeier’s campaign, paid by the campaign. Currently, he is Vice President and
Director of Government Relations. Admonite confirmed Murnane’s control over Karmeier’s
campaign and that Murnane had provided a substantial portion of the funding for the campaign -$1.19 million through JUSTPAC.” It also alleges that David Leuchtefeld was “‘chairman’ of
‘Citizens for Karmeier’ whose discarded emails evidence the inner-workings of the Karmeier
campaign.”

Page 35 of 43

Next, both Shepherd and Murnane argue that plaintiffs have not alleged a
nexus between the purported racketeering activity and the affairs of the
enterprise. Specifically, Shepherd and Murnane contend that plaintiffs have not
alleged facts showing that they personally committed any of the alleged predicate
acts, that they were not parties to Avery and that plaintiffs have not alleged any
facts

showing

that

their

relationships

with

State

Farm

representations made by State Farm during the Avery case.

facilitated

the

Both defendants

maintain that their alleged actions are “protected political speech” under the First
Amendment.

Plaintiffs respond that the nexus is well established in their

complaint. The Court agrees with plaintiffs.
As stated previously, the RICO statute provides that “[i]t shall be unlawful
for any person employed by or associated with any enterprise ... to conduct or
participate, directly or indirectly, in the conduct of such enterprise's affairs
through a pattern of racketeering activity ...,” and the RICO conspiracy statute
makes it unlawful to conspire to violate this provision. 18 U.S.C. § 1962(c) & (d).
The Supreme Court has ruled that
[i]n order to “participate, directly, or indirectly, in the conduct of such
enterprise's affairs,” one must have some part in directing those affairs. Of
course, the word “participate” makes clear that RICO liability is not limited to
those with primary responsibility for the enterprise's affairs, just as the phrase
“directly or indirectly” makes clear that RICO liability is not limited to those
with a formal position in the enterprise, but some part in directing the
enterprise's affairs is required.
Reves v. Ernst & Young, 507 U.S. 170, 179, 113 S.Ct. 1163, 122 L.Ed.2d 525
(1993) (footnote omitted). The Court rejected, however, an interpretation that
Page 36 of 43

would require a RICO defendant to have “significant control over or within an
enterprise.” Id. at 179 n. 4 (emphasis in original; internal quotation marks
omitted). Rather, the Court held that the statute requires proof of participation in
the operation or management of the enterprise. Id. at 179.
The complaint alleges the existence of multiple people, including Murnane
and Shepherd acting in concert over a period of time with the purpose of
perpetuating the RICO fraud. The acts alleged have a purpose: to recruit, elect
Karmeier to the Illinois Supreme Court and make possible his participation in the
Avery decision to rule in State Farm’s favor. The complaint alleges that Shepherd
helped create the ICJL, hired Murnane as the ICJL’s president, and served as a
member of the ICJL’s Executive Committee.

The complaint also alleges that

Shepherd recruited Karmeier on State Farm’s behalf to be a candidate and that he
insured a substantial amount of cash flow to Karmeier from State Farm
executives, employees, and corporate and political partners. As to the allegations
against Murnane, the complaint states: “A July 2003 Forbes Magazine article
quoted Murnane as saying the Illinois Supreme Court is 4-3 “anti-business” and
that ICJL would target the 2004 Fifth District race to change the composition of
the Court. The article cites the Avery Action – which was already pending before
the Illinois Supreme Court. (See Forbes article, Exhibit D hereto).

A second

article from 2004 stated that Murnane viewed the Avery verdict against State
Farm as part of the problem with courts in the Fifth District.” (Doc. 2, ¶ 64).
Further, the complaint alleges that Murnane recruited Karmeier, directed the

Page 37 of 43

Karmeier campaign and was used by State Farm as a middleman through which
State Farm could funnel millions of dollars to the campaign. (Doc. 2, ¶¶ 65-90).
Clearly, the allegations directed against both Shepherd and Murnane are sufficient
as to their participation in the operation and/or management of the enterprise.
As to defendants’ protected First Amendment argument, the Court finds
that this argument is best addressed at the summary judgment stage.

As the

Court stated previously “[o]rders under Rule 12(b)(6) are not appropriate
responses to the invocation of defenses, for plaintiffs need not anticipate and
attempt to plead around all potential defense.

Xechem, Inc. v. Bristol–Myers

Squibb Co., 372 F.3d 899, 901 (7th Cir. 2004). A “[c]omplaint need not contain
any information about defenses and may not be dismissed for that omission.” Id.
(emphasis in the original). Nevertheless, a plaintiff can plead itself out of court
when it “admits all the ingredients of an impenetrable defense” Id.
Thus, whether defendants’ actions are in fact false or misleading, as may be
necessary to determine the existence of any First Amendment protection, is a
factual inquiry beyond the scope of this motion. The Court finds that whether
defendants’ actions are protected by the First Amendment will ultimately require
resolution of a number of factual issues which are more appropriately reserved
for resolution at summary judgment or trial on a full factual record.
Predicate Acts
Defendants also argue that State Farm’s 2005 and 2011 mail submissions
to the Illinois Supreme Court in response to plaintiffs’ motions to disqualify

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Justice Karmeier cannot as a matter of law serve as RICO predicate acts.
Further, defendants argue that the predicate acts lack factual development.
Plaintiffs counter that they have sufficiently described a scheme or artifice to
defraud through the use of the mails.
First, defendants maintain that the Noerr-Pennington doctrine is applicable
in this case and, thus, plaintiffs’ predicate acts are not actionable as serving
litigation documents cannot constitute mail fraud. 5 The Court rejects this
argument based on the sham exception at this stage of the proceedings. As the
Seventh Circuit stated in Mercatus, “there is little doubt that fraudulent
misrepresentations may render purported petitioning activity a sham not
protected from antitrust liability.” Mercatus, 834 F.3d at 842. (citations omitted).
“[A] a misrepresentation renders an adjudicative proceeding a sham only if the
misrepresentation (1) was intentionally made, with knowledge of its falsity; and
(2) was material, in the sense that it actually altered the outcome of the
proceedings.”

Id. at 843 (citations omitted).

Further, defendants cite United

States v. Pendergraft, 297 F.3d 1198 (11th Cir. 2002) for the proposition that
“servicing legal documents by mail” cannot constitute mail fraud. However, the
Court notes that the accurate holding is: “Similarly, we held in Pendergraft that,
absent an intent to deceive the victim, the ‘mailing of litigation documents, even
5

“The First Amendment of the Constitution states that Congress shall make no law abridging the
‘right of the people to peaceably assemble, and to petition the Government for redress of
grievances.’ Under the Noerr-Pennington doctrine, federal antitrust laws have been interpreted to
protect these First Amendment rights by petitioning activity from liability.” Mercatus Group, LLC
v. Lake Forest Hosp., 641 F.3d 834, 837 (7th Cir. 2011). “The doctrine extends absolute liability
under antitrust laws to “businesses and other associations when they join together to petition
legislative bodies, administrative agencies, or courts for action that may have anticompetitive
effects.” Id. at 841.

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perjurious ones, did not violate the mail-fraud statute.’” Raney v. Allstate
Insurance Co., 370 F.3d 1086, 1088 (11th Cir. 2004) (emphasis added).
As to the sufficiency of the predicate acts, the Court finds that plaintiffs
have stated predicate acts. As to the first predicate act, plaintiffs allege the
following facts: it was a January 31, 2005 mailing of a brief by State Farm’s
counsel from its offices in Edwardsville, Illinois, served via U.S. mail, on the Clerk
of the Illinois Supreme Court and also on Avery counsel in Illinois and elsewhere.
As to the substance of the misrepresentation, plaintiffs allege:
“In the January 31,2005 mailing and filing, State Farm falsely represented
its support of Karmeier as consisting of ‘quite modest contributions’ and
characterized as ‘incorrect and meritless’ Plaintiffs’ claim that State Farm had
funneled $350,000 to and peddled its enormous political influence to
Karmeier’s benefit. See State Farm’s Opposition, at pp. 12-13. State Farm
flatly denied ‘engineering contributions’ to Karmeier’s campaign ‘for the
purpose of impacting the outcome of this case’ (see State Farm’s Opposition, at
pp. 11) and downplayed the charge that it was responsible for $350,000 in
direct contributions to Karmeier’s campaign by suggesting that Plaintiffs’
counsel had presented ‘no evidence whatsoever to back up’ their claim that
those contributions were made by State Farm ‘front groups.’ See State Farm’s
Opposition, at p.11. State Farm also failed to inform the Court that its
employee, Shepherd, was a member of the ICJL Executive Committee which
recruited and vetted Karmeier, and through Murnane, it had organized, funded
and directed Karmeier’s campaign.”
(Doc. 2, ¶ 102).

The complaint also alleges that State Farm falsely denied that

Murnane ran all phases of Karmeier’s campaign. As to the second predicate act,
plaintiffs allege the following: it was a September 19, 2011 mailing of a brief via
U.S. mail by State Farm’s counsel to the Clerk of the Illinois Supreme Court and
to plaintiffs’ counsel in Illinois, Louisiana, Mississippi and Tennessee. Plaintiffs
allege:

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“In its brief, State Farm again denied Murnane’s true role in Karmeier’s
campaign, see State Farm’s Response, at ¶ 27 (‘Murnane was not Karmeier’s
campaign manager ….’), and failed to produce evidence to counter Murnane’s
statement that ‘I’m running this campaign.’”
(Doc. 2, ¶ 105). Further, plaintiffs allege:
“For the first time, however, State Farm conceded that Shepherd was a
charter member of the Executive Committee, thus unveiling the missing [sic]
connecting State Farm to the ICJL, to JUSTPAC, to Murnane, to the discarded
emails, and finally, to Karmeier’s campaign.”
(Doc. 2, ¶ 106).

Clearly, these allegations suffice as predicate acts of mail fraud

to support plaintiffs’ theory that State Farm’s mailings of litigation documents
contained false statements that intended to mislead and conceal from the Illinois
Supreme Court and plaintiffs’ counsel State Farm’s nature and support of Justice
Karmeier.
Conspiracy
Finally, defendants argue that the RICO conspiracy claim likewise fails as a
matter of law as they have not adequately alleged the elements of proximate cause,
injury, pattern, enterprise and predicate acts.
As with the 1962(c) claim, plaintiffs must allege that they were injured “by
reason of” a violation of 1962. See 18 U.S.C. 1962(d). “[I]njury caused by an
overt act that is not an act of racketeering or otherwise wrongful under RICO … is
not sufficient to give rise to a cause of action under 1964(c) for a violation of
1962(d).” Beck v. Prupis, 529 U.S. 494, 505, 120 S.Ct. 1608 (2000). “A RICO
conspiracy plaintiff must ‘allege injury from an act that is … independently
wrongful under RICO.’” DeGuelle, 664 F.3d at 204.
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In order to state a claim for 1962(d) conspiracy, “a plaintiff must allege that
(1) defendant agreed to maintain an interest or control of an enterprise or to
participate in the affairs of an enterprise through a pattern of racketeering
activity, and (2) the defendant further agreed that someone would commit at least
two predicate acts to accomplish those goals.”

Id. (quoting Slaney v. In’tl

Amateur Althletic Fed’n, 244 F.3d 580, 600 (7th Cir. 2001)).

“[T]he touchstone

of liability under 1962(d) is an agreement to participate in an endeavor which, if
completed, would constitute a violation of the substantive statute.” Id. (quoting
Goren v. New Vision Int’l, Inc., 156 F.3d 721, 732 (7th Cir. 1998)).

“The

defendant need not personally commit a predicate act; rather, ‘a plaintiff must
allege that the defendant agreed that someone would commit at least two
predicate acts in furtherance of the conspiracy.’” Id. (citing Lachmund v. ADM
Investor Servs., Inc., 191 F.3d 777, 784 (7th Cir. 1999)). Where a plaintiff fails to
allege a claim for a violation of §1962(c), the plaintiff’s § 1962(d) conspiracy claim
fails if it is based on the same nucleus of operative facts as its § 1962(c) claim.
See Stachon v. United Consumers Club. Inc., 229 F.3d 673, 677 (7th Cir. 2000).
Plaintiffs’ §1962(d) claim is based on the same allegations as its § 1962(c) claim.
As the Court found above that plaintiffs have stated a claim under 18 U.S.C.
§ 1862(c), the Court likewise finds that plaintiffs have stated a cause of action for
the RICO conspiracy claim.

Plaintiffs allege that defendants violate 18 U.S.C.

1962(d) by conspiring to violate 18 U.S.C. 1962(c) by agreeing to commit at least
two predicate acts. Plaintiffs’ allegations are sufficient to assert that there was an

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agreement between the defendants to engage in unlawful activity. The Court finds
that plaintiffs have adequately pled the existence of a conspiracy between the
defendants.
Conclusion
Accordingly, the Court DENIES defendants’ motions to dismiss (Docs. 13,
32 & 61). Also, the Court LIFTS the stay on the initial disclosures and discovery
Further, the Court DIRECTS Magistrate Judge Williams to issue a Scheduling
and Discovery Order.
IT IS SO ORDERED.

Digitally signed by
David R. Herndon
Date: 2013.03.28
14:14:02 -05'00'

Signed this 28th day of March, 2013.

Chief Judge
United States District Court.

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