Jim's a Final Signatory, so when he prepares the certificate, the course is considered certified.
What if he wasn't?
If, while acting in one's capacity as a certifier, you get a message from a measurer saying not to issue a certificate on a course because the measure hasn't been paid? Everything else is OK- the measurer just wants it to be held up because he hasn't been paid.
Personally I see the certifier's role to be to get as many courses on the course list as possible- not to make sure measurers get paid. I'd issue the certificate. As a measurer you may do this because you get paid for it. As a certifier you do this to make the sport better. And if Jim were acting in the capacity of a certifier, I think he's be obligated to forward the course certificate to the vice-chair.
As for the scenario on the table, I don't see where you get much of anywhere by throwing your weight around. That being said, and in line with discussions I've recently had with Gene and Duane on the subject, I think the time has passed by which it made any difference if the documents were sent forward for this past year's event, and at this point you might as well hold the certificates until you get paid for the measurement.
And to respond to Mark's comment- I'd say that easily three quarters of the courses I measure are for somebody or some organization who is trying to make money with the event. It's usually a fundraiser for a charity or some other not-for-profit, but more and more we're seeing people put on races because they can make money off of them. If I adopted Mark's policy I'd be asking for an awful lot of checks up front.