Neil Morgan v. Fairfield Cty., Ohio
Opinion of the Court
*558Neil A. Morgan II and Anita L. Graf sued Fairfield County, Ohio, three of its officials, and five members of its sheriff's department under
BACKGROUND
Morgan and Graf owned a home together on about a one-acre lot. The front of the house faced the road, and a sidewalk ran from the road to their front door. In the front window and on a vehicle parked on the property were no-trespassing signs. There were neighboring homes-each approximately 300 feet away. At the time of the events of this case, one of the neighboring houses was occupied; the other was empty. There were only limited sightlines between the houses and no residences across the street or behind Morgan's and Graf's house.
In the back of the house there was a second-story balcony that was not visible from the front of the residence. There were no stairs to the balcony, so that the only way to access it was through the house. On one side of the balcony was a privacy fence, blocking the view to the one neighbor's house that was occupied. On the other side, large trees blocked the view to the unoccupied neighboring house.
The county's SCRAP unit received two anonymous tips that Morgan and Graf were growing marijuana and cooking methamphetamine at their house. The SCRAP unit was familiar with Morgan and Graf; they had conducted a 'knock and talk' a year earlier and let Morgan and Graf off with a warning. The two new tips were not sufficient to establish probable cause for a warrant, however, and so the SCRAP unit decided to do another 'knock and talk.'
Five members of the SCRAP unit went to the house and, following their standard practice, surrounded the house before knocking on the door. One officer was stationed at each corner of the house, and *559one approached the front door. The officers around the perimeter were standing approximately five-to-seven feet from the house itself. The officers forming the perimeter could see through a window into the house on at least one side of the building.
With the officers in position, the officer at the front door-Deputy Lyle Campbell-knocked and spoke briefly with Graf. Graf shut the door, remaining inside.
An Ohio court issued a search warrant based on the officers' observation of the marijuana plants. During the ensuing search, the police found weapons, drugs, and drug paraphernalia. Morgan and Graf were arrested and charged in state court. The trial court denied Morgan's and Graf's suppression motion, after which Morgan pleaded guilty and Graf was found guilty by a jury. On appeal, however, the denial of the suppression motion was overturned and the convictions vacated. The State of Ohio subsequently dropped the charges.
The proceedings below
After the dismissal of the charges, Morgan and Graf filed this
Morgan and Graf alleged that forming a perimeter around the house intruded on their curtilage, an area protected by the Fourth Amendment. What is more, the intrusion was not a one-time event-it was the county's policy to do so during every 'knock and talk.' On cross-motions for summary judgment, the district court dismissed all of the claims.
First, addressing the claims against the officers in their individual capacities, the district court concluded that the officers were entitled to qualified immunity. Specifically, the court held, qualified immunity was appropriate because even if intruding onto the curtilage violated the Fourth Amendment, it was not clearly established that such an action was a violation at the time of the 'knock and talk'-June 19, 2012. The district court relied on the unpublished decision in Turk v. Comerford ,
Next, the district court addressed the official-capacity claims and the claim against the county-correctly analyzed as one claim against Fairfield County-and concluded that Morgan and Graf could not meet the standard for municipal liability required by Monell v. Department of Social Services ,
DISCUSSION
Standard of review
This court reviews a grant of summary judgment de novo . Daughenbaugh v. City of Tiffin ,
Qualified immunity
Government officials sued in their individual capacities for constitutional violations are free from liability for civil damages unless (1) they violate a constitutional right that (2) was clearly established at the time that it was violated. See Harlow v. Fitzgerald ,
Fourth Amendment violation
"It is well settled" under the Fourth Amendment that a warrantless *561search is " 'per se unreasonable ... subject only to a few specifically established and well-delineated exceptions.' " Schneckloth v. Bustamonte ,
The answer to the first question is yes, the SCRAP unit searched the property for Fourth Amendment purposes. When the government gains information by physically intruding into one's home, " 'a search within the original meaning of the Fourth Amendment' has 'undoubtedly occurred.' " Florida v. Jardines ,
Whether a part of one's property is curtilage generally involves a fact-intensive analysis that considers (1) the proximity of the area to the home, (2) whether the area is within an enclosure around the home, (3) how that the area is used, and (4) what the owner has done to protect the area from observation by passersby. United States v. Dunn ,
Under that commonsense approach, the area five-to-seven feet from Morgan's and Graf's home was within the home's curtilage. Even when the borders are not clearly marked, it is "easily understood from our daily experience" that an arm's-length from one's house is a "classic exemplar of an area adjacent to the home and 'to which the activity of home life extends.' "
But not only were the SCRAP unit members positioned on the sides of the house, they were in the backyard, too. Indeed the backyard is where they discovered *562the marijuana plants, the cause of the injuries alleged by Morgan and Graf. And "the law seems relatively unambiguous that a backyard abutting the home constitutes curtilage and receives constitutional protection." Daughenbaugh ,
The county mistakenly focuses its application of the Dunn analysis on the backyard balcony itself, arguing that the there is no search because the balcony was not part of the curtilage. But even if the county were correct that a backyard, second-story balcony with no outside access was not part of the curtilage, it would make no difference here, because the balcony is not what is at issue. The curtilage that the officers are said to have entered is the area surrounding the house, five-to-seven feet from the residence. Regarding that area, the county argues only two points-first that the immediate perimeter surrounding the house was not part of the curtilage because there was no fence enclosing the rear or perimeter of the house and, second, that area was not part of the curtilage because Morgan and Graf had neighbors. Those arguments are belied, however, by Dunn and Jardines and the "relatively unambiguous" conclusion this court came to 20 years ago in Daughenbaugh .
Because the area surrounding Morgan's and Graf's house was curtilage, and curtilage is treated as part of the home for Fourth Amendment purposes, the officers' entry onto the curtilage could be justified only by a warrant or one of the recognized exceptions to the warrant requirement. It is undisputed that the SCRAP unit had no warrant. As for exceptions to the warrant requirement, the county argues that the entry was justified for three reasons. None, however, is convincing.
First, the county argues that forming a perimeter was not unconstitutional because the officers were protecting their own safety. To be sure, officer safety can be an exigency justifying warrantless entry. But "[q]ualification for this exception is not easy" and requires a particularized showing of a risk of immediate harm. United States v. Purcell ,
Instead of showing a particular and immediate risk, the county argues that concern for officer safety generally allows police to enter the curtilage and form a perimeter. Yet rather than citing a case supporting that position, the county argues that drugs and guns often go together. Maybe. But that is no more than a general statement of correlation; and generic possibilities of danger cannot overcome the required particularized showing of a risk of immediate harm. See id. at 961. But, even if the officers knew that Morgan had a weapon, "[t]he mere presence of firearms does not create exigent circumstances." United States v. Johnson ,
What is more, the county's position would create an exception that would swallow the rule. It might be safer for the police to enter the curtilage to form a perimeter; it would certainly be easier to *563stop someone who might flee by establishing some sort of barrier to that flight. Indeed, many (if not most) Fourth Amendment violations would benefit the police in some way: It could be safer for police without a warrant to kick in the door in the middle of the night rather than ring the doorbell during the day, and peering through everyone's windows might be a more effective way to find out who is cooking methamphetamine (or engaging in any illegal behavior, for that matter). But the Bill of Rights exists to protect people from the power of the government, not to aid the government. Adopting defendants' position would turn that principle on its head.
Next, the county argues that the officers' presence in the backyard was not a search because they were not there for the purpose of executing a search. Jardines forecloses that argument. The subjective intent of officers is irrelevant if a search is otherwise objectively reasonable, but subjective intent cannot make reasonable an otherwise unreasonable intrusion onto a constitutionally protected area. See Jardines ,
Finally, the county argues that the marijuana plants were discovered in plain view. It is a long-standing rule that police do not conduct a search under the Fourth Amendment by seeing something that is in plain view. After all, the Fourth Amendment does not require police to "shield their eyes when passing by a home on public thoroughfares." Ciraolo ,
The SCRAP unit was concerned about general drug activity at Morgan's and Graf's house. But the Fourth Amendment prohibited them from entering the property: they had no warrant, no exigent circumstances, and no other exception to the warrant requirement. A 'knock and talk' by police was permitted "precisely because that is 'no more than any private citizen might do.' " Jardines ,
Clearly established law
Whether the law in this area was clearly established at the time of defendants' actions presents a closer question. "A defendant cannot be said to have violated a clearly established right unless the right's contours were sufficiently definite that any reasonable official in the defendant's shoes would have understood that he was violating it." United Pet Supply, Inc. v. City of Chattanooga ,
In determining the contours of the right, there is a tension between defining the right at too high a level of generality, on one hand, and too granular a level, on the other. There does not need to be "a case directly on point, but existing precedent must have placed the ... constitutional question beyond debate." Ashcroft v. al-Kidd ,
For centuries, the common law has protected the curtilage of the house. See Oliver ,
Despite these long-settled standards, one case from this circuit, although incorrectly decided, requires that we grant qualified immunity. That case, Turk v. Comerford , decided within a month of the 'knock and talk' in this case, found that the law was not clearly settled against a factual background that was, in every material way, the same as here.
Central to Turk 's analysis was our published decision in Hardesty , in which we held that "[if] knocking at the front door is unsuccessful in spite of indications that someone is in or around the house, an officer may take reasonable steps to speak with the person being sought out even where such steps require an intrusion into the curtilage."
Although Hardesty and Turk are outliers, Morgan and Graf cannot overcome their burden of showing that the law *565was clearly established at the time of the search in this case. In those two cases, this court should have reaffirmed long-settled Fourth Amendment principles. Cf. Rogers v. Pendleton ,
Nevertheless, in light of recent Supreme Court decisions, neither Hardesty nor Turk remains good law. See, e.g. , Ahearn v. Jackson Hosp. Corp. ,
Municipal liability
The district court erred in granting summary judgment in favor of the county and county officials, however. A municipality is a "person" under
Each of these different approaches to liability requires a different analysis. But each approach seeks to answer the same fundamental question: did the municipality cause the harm or did an individual actor? When the injury is a result of an action of an employee who has not been trained properly, we apply "rigorous requirements of culpability and causation"-holding a municipality liable if it has been deliberately indifferent to constitutional rights. Arrington-Bey ,
*566Id. at 994. Likewise, when an injury is caused by the straightforward carrying out of a municipal policy or custom, the determination of causation is easy. See Garner ,
Although Garner has been the law in this circuit since 1993, we have developed an additional strand of case law analyzing municipal liability for policies or customs. In Gregory v. City of Louisville ,
Morgan and Graf have made that showing. It is uncontested that the county's policy required officers to enter "onto the back" of any property during every 'knock and talk.' And as acknowledged by the sheriff and members of the SCRAP unit, that policy did not give any leeway for the officers to consider the constitutional limits that they might face. The SCRAP unit did not weigh the characteristics of properties to determine what parts of the properties were curtilage (and thus off limits). The policy gave no weight to the core value of the Fourth Amendment-one's right to retreat into his or her home "and there be free from unreasonable government intrusion." Collins ,
CONCLUSION
It is well-established that a warrantless entry of the home or the area immediately surrounding the home is presumed unreasonable unless it meets one of a few narrow exceptions. The SCRAP unit, following official policy, entered the constitutionally protected area around Morgan's and Graf's home without a warrant and without satisfying any of the narrow exceptions to the warrant requirement. In doing so, they violated the Fourth Amendment. But because of the state of this circuit's Fourth Amendment law at the time of the search, it was not clearly established that members of the SCRAP unit could not do what they did. For that reason, we AFFIRM the district court's decision granting summary judgment to the individual officers based on qualified immunity. On the other hand, because the county's policy itself required officers to ignore the Constitution's rules protecting the curtilage and the home, we REVERSE the decision of the district court granting summary judgment to the county *567and the county officials in their official capacities. We REMAND the case for further proceedings consistent with this opinion.
CONCURRENCE
JANE B. STRANCH, Circuit Judge, concurring.
I join the majority opinion in full. I write separately only to emphasize the unique circumstances that merit applying qualified immunity in this case. As the Supreme Court recently reaffirmed, it "has long been clear that curtilage is afforded constitutional protection," and "officers regularly assess whether an area is curtilage before executing a search." Collins v. Virginia , --- U.S. ----,
This case, moreover, presents different circumstances from even Wilson v. Layne ,
CONCURRING IN PART AND DISSENTING IN PART
A 'knock and talk' is an investigative technique in which police, without a warrant, knock on a suspect's door and ask to speak with the suspect or for consent to search. See United States v. Thomas ,
Although the parties dispute why Graf closed the door, no one disputes that she did. Graf insists that Campbell put his foot across the threshold and she told him that if he did not have a warrant he would have to leave. Campbell, on the other hand, stated that Graf closed the door so that she could lock up her dog. The factual discrepancies are immaterial-the case is about the officers around the perimeter, not the officer at the front door.
The county asserts facts in its brief that are not discussed in this opinion because they are immaterial or unsupported in the record. For example, the county outlines overall amounts of various drugs that the SCRAP unit confiscated in 2012; explains how the unit prepared for knock and talks; and even asserts that if the knock-and-talk policy is unconstitutional, the SCRAP unit will have to disband entirely.
Concurring in Part
The Fourth Amendment provides, in relevant part, that "[t]he right of the people to be secure in their persons, houses, papers, and effects, against unreasonable searches and seizures, shall not be violated." U.S. Const. amend. IV. This mandate, though seemingly straightforward, has generated a morass of legal precedent that is often confusing, contradictory, and incomplete. After over two-hundred years, we are still not sure whether the Amendment protects privacy or property, and, in turn, what questions are relevant for determining whether a search occurred or if it was reasonable.
At times like this, courts should turn back to first principles. The Amendment's text tells us that a Fourth Amendment violation occurs when three things are *568true: (1) the government engages in a search, (2) of a person, house, paper, or effect, (3) that unreasonably violates a person's right to be secure in that object. To understand the meaning of those terms and place those inquiries in context, we look to the Fourth Amendment's meaning at the founding. For example, history shows that a "search" meant then what it means now: a purposeful, investigative act (and nothing more). When we apply this meaning to Morgan and Graf's case, no Fourth Amendment violation occurred here: the county's policy did not direct the officers to conduct a search. And, for slightly different reasons, existing Supreme Court precedent compels the same conclusion. Therefore, I concur in the majority's decision to affirm the grant of qualified immunity but dissent from the Monell liability holding.
I.
Some words in the Constitution are "terms of art." See, e.g. , McDonald v. City of Chicago ,
Some examples bring the definition to life. Kerr, supra , at 72 ("The little evidence of what searches meant in the late eighteenth century is mostly by way of example."). Start with the oppressive English search practices that inspired the founding generation to adopt the Fourth Amendment. See Riley v. California , --- U.S. ----,
*569Indeed, Charles Paxton, a famous "Surveyor and Searcher" in Massachusetts, was permitted to enter into any ship, vessel, shop, house, warehouse, or other place "to make diligent search into any trunk[,] chest[,] pack[,] case[,] truss[,] or any other parcel or package whatsoever." Josiah Quincy, Jr., Reports of Cases Argued and Adjudged in the Superior Court of Judicature of the Province of Massachusetts Bay Between 1761 and 1772 at 420 (Boston, Little, Brown & Co. 1865). In arguing against this sweeping search authority, James Otis contended that customs officials should not have authority to enter a person's home and "rifle every part of it." Essay on the Writs of Assistance Case , Boston Gazette, Jan. 4, 1762; see 10 Works of John Adams 248 (C. Adams ed. 1856) (referring to James Otis's speech denouncing writs of assistance as where "the child Independence was born"). Others complained that their "houses and even [their] bed chambers, [were] exposed to be ransacked," and their "boxes[,] chests & trunks broke open[,] ravaged and plundered." Levy, supra , at 166.
Meanwhile in England, King George III's Secretary of State, Lord Halifax, began issuing general warrants to go after the authors, publishers, and printers of newspapers critical of the English government. Laura Donohue, The Original Fourth Amendment ,
The meaning of "search" at the founding did not change after the United States won independence. Though the English could no longer search our homes to find uncustomed goods, Anti-Federalists feared that the federal government would adopt the same oppressive search practices that England used to collect taxes. In 1788, "A Farmer and Planter" penned an essay expressing concern that federal excise officers would "break open [their] doors, chests, trunks, desks, [and] boxes, and rummage [their] house[s] from bottom to top" for goods for which no tax had been paid. A Farmer and Planter, in 5 The Complete Anti-Federalist 75 (Herbert J. Storing ed. 1981); see also John DeWitt Letter IV, in 4 The Complete Anti-Federalist at 33; A Columbian Patriot, in 4 The Complete Anti-Federalist at 278-79. Patrick Henry contended that tax collectors "may go into your cellars and rooms, and search, ransack, and measure, every thing [people] eat, drink and wear." 3 The Debates in the Several State Conventions on the Adoption of the Federal Constitution 448-49 (Jonathan Elliot ed., 2d ed. 1836).
*570And after the people ratified the Fourth Amendment to protect against such abuses, early courts confirmed this understanding of a "search." Those courts found that searches had occurred where officers opened and examined sealed letters or packages, Ex parte Jackson ,
This history thus shows that when the Framers used the word "search," they meant something specific: investigating a suspect's property with the goal of finding something. See Katz v. United States ,
The Supreme Court's current Fourth Amendment jurisprudence, however, has taken the meaning of "search" a step further. Rather than simply asking whether the government engaged in purposeful, investigative conduct, both of the Court's prevailing tests add a threshold question that conflates the search inquiry with the reasonableness one. Start with Katz 's "reasonable expectation of privacy" test.
In both cases, the jurisprudence is misguided: the officers engaged in a search because looking through somebody's garbage or financial records for evidence of a crime is purposeful, investigative conduct. And whether we think the officers' conduct was permissible-either because the suspect abandoned the garbage or shared the bank records with third parties-does not change that result. Those considerations get at whether the search was reasonable , not whether a search occurred in the first place. See Carpenter , 138 S.Ct. at 2243 (Thomas, J., dissenting) ("[R]easonableness determines the legality of a search, not 'whether a search ... within the meaning of the Constitution has occurred .' " (quoting Minnesota v. Carter ,
After almost five decades of Katz precedent, it became apparent that requiring a reasonable expectation of privacy pushed too much police conduct outside of Fourth Amendment scrutiny. So in United States v. Jones , the Court made clear that a litigant's rights "do not rise or fall with the Katz formulation" if that formulation does not "assur[e] preservation of that degree of privacy against government that existed when the Fourth Amendment was adopted."
If we applied the ordinary and original meaning of the word "search" (and left the question of reasonableness where it belongs), many things that are currently considered outside the Amendment's scope might come back in. As discussed above, rifling through a person's garbage and reading through their bank records would both count as a search. See Greenwood ,
*572Miller ,
Not only that, but faithfully applying the term's meaning may make the courts' initial job easier. Determining whether somebody has a subjective expectation of privacy that society is willing to recognize as reasonable leaves much to the "judicial imagination" and often results in judges deciding "whether a particular practice should be considered a search under the Fourth Amendment." Carpenter , 138 S.Ct. at 2264 (Gorsuch, J., dissenting); id. at 2246 (Thomas, J., dissenting). As a result, the Court's precedents applying Katz "bear the hallmarks of subjective policymaking," which of course, courts are not equipped (or permitted) to do. Id. at 2246 (Thomas, J., dissenting); see also Carter ,
Returning to the original meaning would also eliminate the property-based approach's threshold question-whether there was an intrusion or trespass-simplifying the initial search inquiry. The Court's decision in Kyllo v. United States shows why.
A "search" under the Fourth Amendment is thus easier to identify when we are faithful to the ordinary and original meaning of the term, and the concept is broader than the Court's current jurisprudence contemplates.
*573II.
This brings me to the case at hand. The Fairfield County police received two anonymous tips that Morgan and Graf grew marijuana and cooked methamphetamine in their house. So five officers went to their home for a "knock and talk," a police tactic where an officer walks up to the front door of a house and seeks to speak with a suspect and/or gain consent for a search. Consistent with county policy, two officers walked up to the front door, and the rest surrounded the perimeter of the house, standing five-to-seven feet from its exterior. One officer went around back and noticed marijuana plants growing on Morgan and Graf's second-story deck. With this information, the officers secured a warrant to search inside the home. Now Morgan and Graf contend that when the officers surrounded the home, they engaged in an unreasonable search in violation of the Fourth Amendment.
The City Policy. Let's start with the policy. The question before the court is whether the policy directed officers to violate Morgan and Graf's rights. The answer under both current doctrine and the original meaning is no.
In Jardines , the Supreme Court held that an unreasonable Fourth Amendment search occurs when an officer intrudes a constitutionally-protected zone, i.e., the house, to gather evidence. See
Here, the majority is correct that the policy directed officers to enter a constitutionally-protected zone. Morgan and Graf have a right to be secure in their home, which includes the curtilage of the home. See
But the county policy did not direct officers to gather information while there. As such, there is no search. See Jardines ,
Similarly, when analyzing the policy under the original meaning, the answer is the same. But the first question is different. Whereas the property-based approach asks whether the officers were in a constitutionally-protected zone, the original meaning asks if those officers were conducting a search. The key inquiry is not whether officers conduct a search while in the protected area, but rather whether they conduct a search of the protected area. See infra Part I. While this distinction may lead to different outcomes in other cases, in Morgan and Graf's case it does not. Here the county's policy did not direct officers to engage in a purposeful, investigative act of Morgan and Graf's home. Accordingly, since there was no search directed by the policy, no constitutional violation occurred under the original meaning of the Fourth Amendment.
The officers. Turning to the officers, I agree with the majority that the constitutional violation was not clearly established. But, if I was writing on a clean slate, I would remand. And the question I would direct the district court to answer is whether the officers engaged in a purposeful, investigative act to find the marijuana plants.
III.
As the county's policy did not direct a search in Morgan and Graf's case (and the original meaning approach to the Fourth Amendment would require a remand to determine whether the officers in fact "searched"), the court need not go further. If there had been a search, however, then I would continue to adhere to a Fourth Amendment analysis guided by the Amendment's text and its original meaning. To do this analysis, ordinarily the court would need to look at the contours of the constitutionally-protected zones-persons, houses, papers, and effects.
*575U.S. Const. amend. IV ; see, e.g. , Maureen E. Brady, The Lost "Effects" of the Fourth Amendment: Giving Personal Property Due Protection ,
* * *
While I believe it is time for the courts to be more faithful to the Fourth Amendment's text, I am duty-bound to apply Supreme Court precedent. Therefore, I concur in part and dissent in part.
See also 2 Samuel Johnson, A Dictionary of the English Language (4th ed. 1773) ("Inquiry by looking to every suspected place."); 2 John Ash, The New and Complete Dictionary of the English Language (2d ed. 1795) ("An enquiry, an examination, the act of seeking, an enquiry by looking into every suspected place; a question; a pursuit.").
That is, of course, not to say that police officers should be allowed to run roughshod over people's property so long as a court does not determine that they conducted a search. The officers in this case could be liable for trespass. Under Ohio law, no person is permitted to "[k]nowingly enter or remain on the land or premises of another."
Though not presented by this case, how ever-changing technology fits within the contours of these zones may continue to challenge courts. See Orin S. Kerr, The Fourth Amendment and New Technologies: Constitutional Myths and the Case for Caution ,
Reference
- Full Case Name
- Neil A. MORGAN II; Anita L. Graf, Plaintiffs-Appellants, v. FAIRFIELD COUNTY, OHIO, Et Al., Defendants-Appellees.
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