Charbonnet v. Lee
Opinion of the Court
This appeal concerns the ongoing question of when a federal court must limit a plaintiff to state law relief for violations of procedural due process. In this case we consider a judgment notwithstanding the verdict in favor of a Louisiana parish police officer sued for his participation in an alleged deprivation of property without due process of law. Because a recent en banc opinion by this Court
This case also involves an appeal from a summary judgment in favor of Continental Casualty Insurance Company. We AFFIRM that summary judgment for the reasons stated in the trial court’s order of November 21, 1989.
I. BACKGROUND
This case concerns events that took place on August 31, 1988 at the office of Dr. Clayton J. Charbonnet, Jr., in Metairie, Louisiana. On August 30, 1988, Dr. Char-bonnet resigned from the Lakeside Dental Group, a partnership he had joined in July 1987. His three partners (“the partners”), who worked at another location, accepted his resignation unanimously. They were concerned, however, over certain medical equipment belonging to them that was in Dr. Charbonnet’s office. On August 81, 1988, they consulted an attorney who told them that they could take the furniture from Dr. Charbonnet’s office themselves, without benefit of any legal authorization. One of the partners telephoned the Jefferson Parish Sheriff’s Office (“JPSO”). He apparently led that office to believe that the partners had court papers giving them
The JPSO code of conduct contains an article preventing its officers from taking any action in civil matters except to prevent or record a violation of law.
When Lieutenant McClendon met the partners outside Dr. Charbonnet’s office on the night of August 31, he discovered that they lacked the writ of sequestration or attachment (or any legal order) necessary to authorize the seizure they were about to undertake. The partners showed him their partnership agreement, nothing else. After reviewing it, McClendon stayed on the scene, and accompanied the partners into Dr. Charbonnet’s office. McClendon refused to leave after Dr. Charbonnet asked both him and the partners to get out of his office. Dr. Charbonnet called his attorney, and then again asked McClendon to leave. He did not. Dr. Charbonnet then called the emergency “911” number. When two criminal officers arrived, McClendon met with them alone. They departed, without having taken any action.
Before McClendon and the three partners left Dr. Charbonnet’s office that night, they or the workers they employed had removed most of the medical equipment. In the process they cut carpets, damaged the walls and ceiling of the office and, of course, deprived Dr. Charbonnet of the tools of his trade.
Dr. Charbonnet sued Sheriff Lee and Lieutenant McClendon under 42 U.S.C. § 1983, charging them with a violation of his civil rights.
The trial court then granted McClendon’s motion for a JNOV. After having viewed the evidence presented at trial, the court found that the doctrine of Parratt v. Taylor
II. DISCUSSION
When a state official is involved in a deprivation of property without adequate predeprivation safeguards, he may be liable (in his personal or official capacity) under the Fourteenth Amendment for violating the due process rights of the person deprived of property. When the state’s pre-deprivation safeguards are sufficient, the state actor cannot be liable in his official capacity. Even though he can still be liable in his personal, or individual, capacity as a state actor, the Supreme Court absolves him of such liability when the property “loss is not a result of some established state procedure and the State cannot predict precisely when the loss will occur”.
In recent years federal courts have tried to map the boundaries of the Parratt/Hudson doctrine. Last year the Supreme Court cast some doubt on its breadth. In Zinermon v. Burch
Zinermon treated Parratt and Hudson as two unusual cases in which the governmental interests prevailed under Mathews,
In Caine, this Court held that Par-ratt/Hudson prevents the procedural due process claim of a doctor deprived of his staff privileges at a public hospital because the three predeprivation conditions highlighted by Zinermon were each present.
A. PROCEDURAL CORRECTNESS OF THE JNOV
Before we reach the merits of the case we address a procedural issue. Dr. Charbonnet contends that the court’s JNOV was inappropriate because it was requested and granted on grounds not raised by McClendon’s motion for a directed verdict.
Under the Parratt/Hudson doctrine, § 1983 cannot subject a public official like McClendon to individual capacity liability for violating government policy. In opposition to McClendon’s motion for a directed verdict, Dr. Charbonnet’s lawyer argued that if neither Sheriff Lee nor his policy were responsible, “then Lt. McClendon was in direct violation of the policy”. Dr. Char-bonnet thus acknowledged at the directed verdict stage the grounds of McClendon’s § 1983 defense at the JNOV stage. That McClendon’s revival of his defense to § 1983 liability was made under a different line of cases—cases that preclude a federal court from subjecting certain public officials to liability because their actions do not implicate the Fourteenth Amendment— does not violate Rule 50(b).
B. LEGAL CORRECTNESS OF THE JNOV
We should at first note that this appeal does not address whether or not Jefferson Parish should have provided a procedure which would have prevented the partners from entering Dr. Charbonnet’s office and taking the furnishings from it. The partners failed to seek the legal writ necessary to effect such a seizure. This case does address whether the JPSO, through additional safeguards, could have prevented McClendon’s violation of the neutrality it required of him. We think not. In this case the partners’ unforeseeable actions made it nearly impossible for the JPSO to have foreseen, and prevented, McClendon’s unauthorized actions, actions that were really reactions to the intervention of citizens over whom the JPSO had no control. A series of independent, unpredictable private actions stood behind McClendon’s similarly unpredictable abuse of his official position; this case satisfies the three conditions for applying the Par-ratt/Hudson doctrine.
First, although the risks that a private citizen will improperly seize the property of another may be foreseeable to the government, the violation of rules of neutrality by a police officer after a private party has misrepresented its right to effect such a seizure, is not predictable. As in Caine, any harm to the plaintiff came not from a lack of foreseeably necessary safeguards but from a violation of controlling state regulations.
The third condition is the most important, and should probably come first. Because a finding that the state action was random and unauthorized usually establishes the two other conditions,
Although it may have been within Lieutenant McClendon’s authority to be present at the partners’ seizure of the property in Dr. Charbonnet’s office, the JPSO policy specifically requires officers in such situations to remain more neutral than McClen-don did remain. Zinermon cautions us not to find that an action is “unauthorized” simply because it is not sanctioned by state law.
Finally we note that Louisiana does offer a postdeprivation remedy to Dr. Charbon-net for McClendon’s participation in the destruction of his office, and that Dr. Char-bonnet has taken advantage of this alternative. On January 8, 1989, Dr. Charbonnet filed an original petition in the 24th Judicial District Court for the Parish of Jefferson. He later amended that suit to include Sheriff Lee and Lieutenant McClendon as defendants. Dr. Charbonnet has not contested the legal adequacy of this remedy. Nothing we decide here will deprive him of that remedy, under state tort law, for injuries inflicted by Lee or McClendon.
Dr. Charbonnet’s letter brief correctly describes the “inescapable corner” into which constitutional law has now painted such a plaintiff. If the policy he challenges is constitutional, there is no official liability; a defendant in his official capacity is merely a representative of that policy. If a state actor is found to have reasonably
III. CONCLUSION
We find that this case is entirely controlled by Caine v. Hardy and its narrow reading of Zinermon. If there were no postdeprivation procedure available to Dr. Charbonnet under state law, or if any of the three conditions that Zinermon and Caine read into the Parratt/Hudson doctrine were not present, then the suit against McClendon, based on the evidence Dr. Charbonnet presented at trial, could stand. But there is such postdeprivation relief, and (applying Caine’s interpretation of these words) McClendon’s actions were both “unauthorized” and “unforeseeable”, and better predeprivation safeguards were “impossible”. The district court properly decided that it was not the proper forum, and § 1983 was not the proper source of liability, for Dr. Charbonnet’s case against McClendon. We AFFIRM the JNOY.
As for the district court’s order granting CNA’s motion for summary judgment because all of the alleged actions of the partners would have been excluded from the coverage of their insurance policy with CNA, we AFFIRM for the reasons carefully set forth in the order.
. Caine v. Hardy, 943 F.2d 1406 (5th Cir. 1991) (en banc).
. The article, part of the Rules for the Administration of the Jefferson Parish Sheriff’s Officer— Code of Conduct, reads as follows:
TITLE III OFFICIAL OBLIGATION
Chapter D. Restricted Activities
Art. 75 Acting in Civil Matters
A member while in performance of his duty shall take no action in a legal matter which is not currently subject to penal jurisdiction, except to prevent or record the violation of a law or ordinance, or in compliance with department procedures.
. Dr. Charbonnet dismissed without prejudice his similar charges against another defendant, the JPSO itself.
We read Dr. Charbonnet's complaint, and his entire lawsuit, to state a claim against Sheriff Lee in his official capacity and against Lt. McClendon in both his official and individual capacities.
As for Sheriff Lee, Dr. Charbonnet alleged that he established a policy that resulted in the deprivation of his property without due process. He did not allege that Sheriff Lee did anything personally to deprive him of his rights, and Sheriff Lee cannot be liable under a theory of respondeat superior for the actions of his officers.
As for Lt. McClendon, Dr. Charbonnet’s "Second Supplemental and Amended Complaint" states that he "was acting in the course and scope of his employment or with the apparent authority of the JPSO” (emphasis added). He also contended that McClendon’s activities were "taken under color of state law sufficient to impose liability on him and the JPSO for his and/or its actions which form the basis of this litigation” (emphasis added). Although Dr. Charbonnet contended throughout trial that McClendon was obeying an unconstitutional policy, he also showed that in personally enforcing that policy McClendon was responsible for depriving the doctor of his rights. When that policy was found to be constitutional, see n. 4 and the accompanying text below, McClendon’s potential liability was limited to his individual capacity. Dr. Charbonnet put on evidence of McClendon’s personal involvement in the deprivation of his property sufficient for the jury to find that McClendon was personally liable to him for $50,000 of compensatory damages and $175,000 of punitive damages. The irony of this case is that Dr. Charbonnet’s success on the facts ensures his loss on the law. The trial court’s JNOV declared, as we agree, that, under the Parratt/Hudson doctrine, McClendon cannot be legally liable in his individual capacity for those actions.
. The JPSO policy is a constitutional effort, sanctioned by this Court, to keep its officers from subjecting the parish to § 1983 liability. In Mississippi Women's Medical Clinic v. McMillan, 866 F.2d 788 (5th Cir. 1989), a case cited by the trial court in granting Sheriff Lee’s motion for directed verdict, this Court found that a similar policy of neutrality in civil matters kept the police from committing state action under § 1983. The Court wrote that “[b]y simply keeping the peace and declining to advance the cause of either [side], the police department avoided being converted from a governmental agency into a state actor for purposes of establishing a claim under § 1983”. Id. at 793. The JPSO policy similarly, and sufficiently, prohibited its officers from involving themselves so much in civil matters that they took on the role of state actors. The trial judge correctly granted Sheriff Lee’s motion for a directed verdict.
Insofar as that decision found that the policy did not violate the Fourteenth Amendment, it absolved Lee of liability in his official capacity. The court acknowledged as much by releasing with Lee the JPSO, even though Dr. Charbonnet had already dismissed the JPSO. The court’s decision, as a matter of law, also absolved McClendon of liability in his official capacity for any of his actions that were consistent with that policy.
. 451 U.S. 527, 101 S.Ct. 1908, 68 L.Ed.2d 420 (1981), overruled in part not relevant here by Daniels v. Williams, 474 U.S. 327, 106 S.Ct. 662, 88 L.Ed.2d 662 (1986).
. The trial court held in the alternative that the excessiveness of the damages would require a new trial. Because we affirm his JNOV in favor of McClendon we need not reach this alternative holding.
. Parratt, 451 U.S. at 541, 101 S.Ct. at 1916.
. Id.
. Hudson v. Palmer, 468 U.S. 517, 104 S.Ct. 3194, 82 L.Ed.2d 393 (1984).
. 424 U.S. 319, 96 S.Ct. 893, 47 L.Ed.2d 18 (1976).
. 494 U.S. 113, 110 S.Ct. 975, 108 L.Ed.2d 100 (1990).
. Id. at 128, 110 S.Ct. at 984 (citations omitted).
. See, e.g., id. at 128, 110 S.Ct. at 984: “Parratt and Hudson represent a special case of the general Mathews v. Eldridge analysis, in which postdeprivation tort remedies are all the process that is due, simply because they are the only remedies the State could be expected to provide.”
. Four Justices dissented; they held that the Parratt/Hudson doctrine did apply to unauthorized actions under an unchallenged state law. Zinermon, 494 U.S. at 139-151, 110 S.Ct. at 990-997 (O'Connor, J., dissenting). The legal and institutional instability of that majority opinion has not gone unnoticed. See, e.g., Easter House v. Felder, 910 F.2d 1387, 1409 (7th Cir. 1990) (Easterbrook, J., concurring).
. Caine, 943 F.2d at 1416.
. Id., 494 U.S. at 150-51, 110 S.Ct. at 996-97. Caine at 1413-14.
. Fed.R.Civ.P. 50(b) provides in pertinent part that "a party who has moved for a directed verdict may move to have the verdict and any judgment entered thereon set aside and to have
. See, e.g., 5A Moore’s Federal Practice ¶ 50.08, p. 50-77 (emphasizing that the rule is intended to allow a party to defend against an argument of deficient proof before it is too late to cure it). Accord Quinn v. Southwest Wood Prods., Inc., 597 F.2d 1018, 1025 (5th Cir. 1979).
. Zinermon states that if either of these factors exists (that is, if the state should have foreseen such a deprivation), then no postdeprivation remedy can satisfy due process. 494 U.S. at 127-130, 110 S.Ct. at 984-986 (citing Parratt, 451 U.S. at 541, 101 S.Ct. at 1916; Mathews, 424 U.S. at 335, 96 S.Ct. at 903). See Caine at 1413.
. See, e.g., Thibodeaux v. Bordelon, 740 F.2d 329, 336 (5th Cir. 1984), in which this Court noted that a predeprivation hearing is always impracticable and unfeasible for random and unauthorized acts. In another case from the same year we combined the third and first questions by equating “random and unauthorized" with "unpredictable”. Augustine v. Doe, 740 F.2d 322, 327 (5th Cir. 1984). We have also said that even “a conspiracy among its employees can indeed be a random act if the state cannot anticipate or control such conduct in advance". Holloway v. Walker, 790 F.2d 1170, 1172 (5th Cir. 1986) (emphasis added). A State cannot be held liable under § 1983 for the general likelihood that state officials will sometimes violate official policies.
. Zinermon, 494 U.S. at 138, 110 S.Ct. at 990.
. Id.
. This Court has contrasted "random and unauthorized" acts with those that “represented official policy”. See Augustine, 740 F.2d at 328-29.
Reference
- Full Case Name
- Clayton J. CHARBONNET, Jr. v. Sheriff Harry LEE and Lt. Edwin McClendon, Defendants-Appellees DONALD E. STRAIN, D.D.S., a Professional Dental Corp., James D. Kiser, D.D.S., a Professional Dental Corp., Joseph J. Collura, D.D.S., a Professional Dental Corp., and Lakeside Dental Group, Defendants-Third-Party v. CONTINENTAL CASUALTY CO., Third-Party
- Cited By
- 17 cases
- Status
- Published