Kuczinski v. City of N.Y.
Kuczinski v. City of N.Y.
Opinion of the Court
The plaintiff, Gregory Kuczinski, former Deputy Commissioner of the Investigations Division of the New York City Department of Correction ("DOC"), brings this action against the City of New York, Commissioner of the New York City Department of Investigation ("DOI") Mark Peters, former DOI Inspector General Jennifer Sculco, DOI Assistant Commissioner Paul Cronin, and DOI Deputy Commissioner Michael Carrol in their individual and official capacities (collectively, the "defendants"). The plaintiff alleges violation of his right to free speech under the United States and New York State Constitutions, violation of his rights under the Fourteenth Amendment to the United States Constitution, and state law defamation.
The defendants move to dismiss the Second Amended Complaint pursuant to Federal Rule of Civil Procedure 12(b)(6) for failure to state a claim upon which relief can be granted. For the reasons explained below, the defendants' motion is granted in part and denied in part.
I.
In deciding a motion to dismiss pursuant to Federal Rule of Civil Procedure 12(b)(6), the allegations in the complaint are accepted as true, and all reasonable inferences must be drawn in the plaintiff's favor. McCarthy v. Dun & Bradstreet Corp.,
A court may also consider documents incorporated by reference in the complaint as well as documents the plaintiff either had in the plaintiff's possession or had knowledge of and upon which the plaintiff relied in bringing suit. See *319Cortec Indus., Inc. v. Sum Holding L.P.,
II.
The following facts are taken from the Second Amended Complaint and the documents referenced therein, and are accepted as true for purposes of this motion to dismiss.
In March 2015, the plaintiff was hired as Assistant Commissioner of the Investigations Division of the New York City DOC. (Second Am. Compl. ("SAC") ¶ 13.) In April 2016, he was promoted to Deputy Commissioner of that Division. (Id. ¶ 15.)
In September or October 2016, the New York City DOI asked the plaintiff to release ten DOC personnel for assignment to the DOI. (Id. ¶ 16.) The plaintiff refused. (Id. ¶ 17.)
On January 23, 2017, the plaintiff assumed responsibility for the DOC Intelligence Bureau. (Id. ¶¶ 19-21.) The Intelligence Bureau is a division of the DOC that, among other things, gathers intelligence in order to prevent contraband from coming into New York City detention facilities and re-arrests inmates for crimes committed while in custody. (Id. ¶ 20.)
On February 25, 2017, the plaintiff was put in charge of the Analytical Intelligence Division.
Under the DOC's rules and regulations, the Analytical Intelligence Division was prohibited from listening to certain inmate calls, including when the inmate was speaking to the inmate's attorney, physician, or clergy member. (Id. ¶ 30.) The defendants claim that the Analytical Intelligence Division was prohibited by Mayor's Executive Order 16 from listening to calls between inmates and DOI investigators. (Defs.' Mem. at 5-6). The plaintiff asserts that monitoring calls between inmates and DOI investigators was permissible. (SAC ¶ 52.)
On March 9, 2017, members of the DOI learned that the Analytical Intelligence Division had been listening to telephone calls between an inmate and a DOI investigator and that Analytical Intelligence Division personnel had continued listening to the calls even after learning of the connection to an investigation by the DOI. (Defs.' Ex. A, at 3.) The plaintiff claims that the Analytical Intelligence Division was not under his control at the time these calls were placed and monitored. (SAC ¶ 26.)
The calls in question took place between January 9, 2017, and February 7, 2017. (Id. ¶ 40.) During that time, the Analytical Intelligence Division was managed by Executive Agency Counsel Douglas Ziegler and Assistant Commissioner Keith Taylor. (Id. ¶ 26.) On February 7, 2017, Mr. Ziegler informed the Commissioner of the DOC -- referred to only as "DOC Commissioner Ponte" in the Second Amended Complaint -- that there had been some "suspicious" inmate phone calls. (Id. ¶ 41.) The plaintiff claims that Commissioner Ponte then asked the plaintiff to review and "vet" the suspicious phone calls. (Id. ¶ 42.)
Thereafter, the plaintiff went to a trailer on Rikers Island where Analytical Intelligence Division personnel conducted operations. (Id. ¶ 60.) The plaintiff was briefed by unnamed Analytical Intelligence Division officers on the suspicious phone calls.
*320(Id. ¶ 61.) The Analytical Intelligence Division personnel told the plaintiff that the calls were "secured," saved to disks, and that the conversations were "problematic." (Id. ¶¶ 62-63.) The plaintiff alleges that he then "reinstructed" the Analytical Intelligence Division personnel to secure the disk that held the telephone conversations, and that he subsequently asked other investigators from the Investigation Division to listen to the calls. (Id. ¶¶ 64-65.) The plaintiff claims he did this to determine whether the calls were "highly suspicious." (Id. ¶ 65.) On March 10 or 14, 2017, one Investigation Division investigator reported that the calls were "questionable but overall not problematic," and another investigator said that "there was nothing there." (Id. ¶ 66.)
On March 8, 2017, the DOI notified the plaintiff of a pending investigation concerning the improper personal use of City vehicles by the DOC. (Id. ¶ 36.) This was not the first time questions were raised about the plaintiff's personal use of City vehicles. The plaintiff had previously been interviewed in late 2016 by defendant Sculco, the Inspector General of the DOI, concerning the DOC policy regarding the personal use of City vehicles. (Id. ¶¶ 37-38.) On March 13, 2017, the DOI again questioned the plaintiff about personal use of City vehicles. (Id. ¶ 70.)
On March 16, 2017, pursuant to an investigation into the phone calls that the Analytical Intelligence Division recorded between prisoners and DOI agents, the DOI raided the Analytical Intelligence Division trailer on Rikers Island and confiscated computers, cell phones, and investigative files. (Id. ¶ 67.) The DOI interviewed the plaintiff about the phone monitoring the next day. (Id. ¶ 71.) At that interview, defendants Sculco, Carroll, and Cronin asserted that the plaintiff violated Mayor's Executive Order 16 and the City Charter, and that the plaintiff violated, obstructed, and interfered with a DOI investigation. (Id. ¶¶ 74-76.)
The plaintiff claims that within a week or two of that meeting he went to the Bronx County District Attorney's Office, Public Integrity Unit, and informed them of the monitored telephone calls and his discussions regarding personal use of City vehicles, among other things.
A few weeks later, on May 5, 2017, defendant Mark Peters, the Commissioner of the New York City DOI, sent a letter to the Mayor (the "Peters Letter"), which stated the findings of the investigation "into multiple violations of Mayor's Executive Order 16 ... by members of the New York City [DOC]." (Defs.' Ex. A.) That letter stated:
DOI has determined that on multiple dates between January 2017 and March 2017, members of DOC staff inappropriately monitored telephone calls between *321a DOI investigator and a DOC inmate that was cooperating with a DOI investigation. This monitoring violated [Mayor's Executive Order] 16, the New York City Charter, and the Rules of the City of New York, potentially compromised an ongoing criminal investigation, and jeopardized the safety of DOI investigators and inmate cooperators.
(Id. )
The plaintiff alleges that on May 8, 2017, he was shown a "different version" of the Peters Letter from the one that was sent to the Mayor. (Id. ¶ 104.) The plaintiff alleges that the version he was shown was "a different version with more false allegations, misrepresentations and inconsistences in fact and law." (Id. ) The plaintiff asserts that this version of the letter was distributed to various newspapers in New York City and certain other public media. (Id. ¶ 105.)
The plaintiff brings claims for retaliation in response to his exercise of his right to free speech, deprivation of a liberty interest without due process, and defamation.
III.
The defendants argue that the plaintiff's First Amendment retaliation claim must be dismissed because the plaintiff's speech is not protected by the First Amendment.
A violation of the First Amendment to the United States Constitution by state officials is actionable under
The Supreme Court in Garcetti v. Ceballos clarified that in order to bring a claim for violation of the First Amendment a public employee must first establish that the employee spoke "as a citizen" on "a matter of public concern."
When a public employee airs a complaint or concern pursuant to a clear duty to report imposed by law or employer policy, the employee is speaking as an employee and not as a citizen.
The plaintiff does not clearly delineate what speech is the basis of his retaliation claim. The defendants proffer six potential acts of speech that might be the basis for the plaintiff's claim:
• the plaintiff's rejection of DOI's request for the release and assignment to DOI of ten additional staff members in September or October 2016, (SAC ¶ 17);
• a telephone conversation between defendant Sculco and the plaintiff in late 2016 concerning the DOC policy on the personal use of City vehicles, wherein:
• the plaintiff stated that he believed it was expected that he would be allowed to use the department vehicle "24/7" so that if he was called in there would be no delay, (id. ¶ 37);
• the plaintiff told defendant Sculco to discuss his and others' use of the vehicles with the Deputy Commissioner of the DOC, (id. ¶ 39);
• the March 13, 2017, DOI interview where the plaintiff was questioned about personal use of City vehicles, (id. ¶ 70);
• the March 17, 2017, DOI interview where the plaintiff was questioned regarding inmate phone monitoring, (id. ¶ 71);
• the conversation the plaintiff had with the Bronx County District Attorney's *323Office during the week of March 20 or 27, 2017, (id. ¶ 87).
The defendants argue that none of these instances of speech can survive a motion to dismiss because each instance of speech was made "not as a citizen, but as part-and-parcel of [the plaintiff's] duties as Deputy Commissioner of Investigations for DOC." (Defs.' Mem. at 12-13.) In his opposition papers, the plaintiff does not address the first five instances of speech offered by the defendants; rather, the plaintiff responds only that his conversation with the Bronx County District Attorney's Office in March 2017 was made "as a citizen."
The plaintiff has sufficiently pleaded that his speech to the Bronx County District Attorney's Office Public Integrity Unit was made "as a citizen." The defendants concede that a civilian analogue exists for these statements. Indeed, it is clear that ordinary citizens may raise public integrity claims with the district attorney, and there is no suggestion that the plaintiff was under a duty to report to the district attorney. See Hughes v. Town of Bethlehem, No. 10cv1489,
The plaintiff also plausibly alleges that his speech to the Bronx County District Attorney's Office involved matters of public concern. The plaintiff alleges that he "went to the Bronx County District Attorney's Office, Public Integrity Unit, and informed them of all the facts as alleged [in paragraphs 1-86 of the Second Amended Complaint]" -- which includes his allegations that the investigation into the plaintiff was designed to cover up DOI incompetence, that the DOI was misusing public funds, and that certain officials were using their public office for personal vendettas. See Laface v. E. Suffolk Boces, No. 18cv1314,
Therefore, the plaintiff has sufficiently alleged that his speech to the Bronx County District Attorney's Office was made as a citizen on a matter of public concern.
IV.
The plaintiff alleges, pursuant to
The plaintiff's claim is one for loss of reputation. The loss of one's reputation can violate the Due Process Clause if the loss of reputation is associated with the deprivation of a federally protected liberty interest, such as government employment. Bd. of Regents v. Roth,
"[T]he availability of adequate process defeats a stigma plus claim."
In this case, there was an adequate post-termination name-clearing hearing available to the plaintiff through an Article 78 proceeding under the New York Civil Practice Law and Rules ("CPLR"). The availability of and failure to take advantage of an Article 78 proceeding defeats stigma-plus claims made by at-will employees. Anemone v. Metro. Transp. Auth.,
Because the plaintiff had the opportunity to avail himself of a name-clearing hearing through an Article 78 proceeding under the CPLR and did not do so, the stigma-plus claim fails as a matter of law and must be dismissed.
V.
The plaintiff also alleges a claim for defamation from reputational harm stemming from both the Peters Letter, which was sent to the Mayor, and the "different version" of that letter, that the plaintiff claims was provided to the press. The defendants argue that the Peters Letter is entitled to either an absolute or qualified *325privilege. As to the "different version" of the letter, the defendants argue that the plaintiff has failed to state a claim for defamation because the plaintiff did not define with specificity what statements in that letter were defamatory.
A.
The plaintiff's defamation claim based on the Peters Letter is barred by an absolute
Some communications are privileged and, even if they are defamatory, may not be the basis for a defamation action. Boice v. Unisys Corp.,
"Absolute privilege is based upon the personal position or status of the speaker and is limited to the speaker's official participation in the processes of government."
Qualified privilege in New York covers a "communication made by one person to another upon a subject in which both have an interest." Liberman v. Gelstein,
DOI reports and reports issued by similar agencies have been held to be subject to an absolute or qualified privilege. Murphy v. City of New York, No. 106059/06,
*326In this case, the plaintiff does not dispute that either an absolute or qualified privilege applies, and the plaintiff does not contend that any qualified privilege has been overcome by a showing of malice. Rather, the plaintiff asserts that the defendants waived the privileges by disclosing the Peters Letter to individuals other than the Mayor. The plaintiff does not cite any authority to support this argument. Indeed, courts have routinely applied the absolute and qualified privileges in similar situations where the allegedly libelous reports were shared with the public. See, e.g., Murphy,
Therefore, the plaintiff's defamation claim based on the Peters Letter is barred by an absolute or qualified privilege and is dismissed with prejudice.
B.
The defendants argue that the plaintiff's defamation claim regarding the "other version" of the Peters Letter should be dismissed because the plaintiff fails to define with specificity what statements were defamatory. The plaintiff's entire description of the "other version" of the Peters Letter is that it made "more false allegations, misrepresentations and inconsistencies in fact and law" than the original letter. (SAC ¶¶ 104-05.) This level of generality is insufficient to establish a defamation claim.
"[I]n order to bring a cause of action for defamation, [the] plaintiff must 'particularize the words uttered, as well as ... the time, manner and persons to whom the publications were made.' " Rosenberg v. Home Box Office, Inc., No. 0601924/2005,
CONCLUSION
For the reasons explained above, the defendants' motion to dismiss is granted in part and denied in part.
• The defendants' motion to dismiss the First Amendment retaliation claim is denied.
• The plaintiff's deprivation of liberty interest claim is dismissed with prejudice.
• The plaintiff's defamation claim regarding the Peters Letter is dismissed with prejudice.
• The plaintiff's defamation claim regarding the "different version" of the Peter's Letter is dismissed without prejudice.
*327The Court has considered all of the arguments raised by the parties. To the extent not specifically addressed, the arguments are either moot or without merit. The Clerk of Court is directed to close docket number 20.
SO ORDERED.
The defendants assert that the Analytical Intelligence Division is actually called the Intelligence and Analytics Unit. (Defs.' Mem. at 4.)
In the Second Amended Complaint, the plaintiff asserts in paragraph 87 that he went to the Bronx County District Attorney's Office, Public Integrity Unit, and informed them of "all the facts as alleged above" -- that is, in paragraphs 1 through 86 of the Second Amended Complaint. (SAC ¶ 87.) This includes his allegations that: the investigation into the plaintiff was designed to cover up DOI incompetence, (id. ¶ 82), the DOI was misusing public funds, (id. ¶ 84), certain officials were using their public office for personal vendettas, (id. ¶ 86), and he refused to release ten DOC personnel for assignment to the DOI, (id. ¶¶ 16-17).
The defendants include two exhibits with their motion to dismiss: the Peters Letter, (Defs.' Ex. A), and Mayor's Executive Order 16 and amendments to that Executive Order, (Defs.' Ex. B). The plaintiff specifically refers to the Peters Letter and the Mayor's Executive Order in the Second Amended Complaint. (SAC ¶¶ 45-51, 91-103.) Therefore, the Court considers both the letter and the Executive Order on this motion to dismiss.
The plaintiff includes affidavits and exhibits with his opposition papers. The plaintiff includes three affidavits (Maria Aff.; Pl.'s Exs. 14-15), exhibits reflecting correspondence between counsel in this case, (Pl.'s Exs. 1-3), the Peters Letter and a Memorandum of Understanding between the DOI and the DOC, (Pl.'s Ex. 4), and nine exhibits of news articles, (Pl.'s Exs. 5-13). The Peters Letter and Memorandum of Understanding are incorporated by reference in the Complaint. Both parties assert that the news articles may be considered. However, the affidavits and exhibits reflecting correspondence between counsel are plainly improper at this stage of the proceedings and will not be considered.
In Count I of the Second Amended Complaint, the plaintiff does not specifically allege that he is bringing a claim under the First Amendment or Article I § 8 of the New York State Constitution. (SAC ¶¶ 106-21.) However, the plaintiff claims that he "spoke of matters of public concern and safety," (id. ¶ 107), and that he was "terminated from his employment with DOC because of his speech," (id. ¶ 108). Therefore, the Court construes this claim as arising under the First Amendment of the United States Constitution and brought under
Although the plaintiff does not appear to allege that the defendants knew that the plaintiff spoke to the Bronx County District Attorney's Office, the defendants do not assert that they were unaware of this conversation and did not raise causation as a basis for dismissal.
Courts also refer to this as an "absolute immunity." See Murphy v. City of New York, No. 106059/06,
Reference
- Full Case Name
- Gregory KUCZINSKI v. CITY OF NEW YORK
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- Published