Why does my citizen have no actions available?

In Tropico 4, I received a mission to arrest the citizen with the lowest respect. Easy enough. I clicked 'view', intending on arresting the citizen in question ... but when the citizen was selected, there were no actions available for him:

Other citizens, when I clicked on them, had the usual actions available (arrest, kill, etc.):

In fact, the only citizens I could find without any actions available were the ones already in prison!

I'm also a little at a loss as to why he's associated with this quest as "the citizen with the lowest respect". He seems kinda respectful to me:

But that's neither here, nor there. Why does this citizen have no actions available for him? Is there a way to make them come back?

(And, if I can't, is the only way to complete this quest to either make a citizen respect me less than Ulises, or perhaps to wait for him to die of old age?)