Adem A. Albra v. City of Fort Lauderdale ( 2007 )

[DO NOT PUBLISH]
IN THE UNITED STATES COURT OF APPEALS
FILED
FOR THE ELEVENTH CIRCUIT U.S. COURT OF APPEALS
________________________ ELEVENTH CIRCUIT
APRIL 25, 2007
No. 06-14544 THOMAS K. KAHN
Non-Argument Calendar CLERK
________________________
D. C. Docket No. 05-61612-CV-KAM
ADEM A. ALBRA,
Plaintiff-Appellant,
versus
CITY OF FORT LAUDERDALE,
GEORGE GRETSAS,
JAMES NAUGLE,
DEAN TRANTALIS,
BRUCE ROBERTS, et al., in their official capacity,
Defendants-Appellees.
________________________
Appeal from the United States District Court
for the Southern District of Florida
_________________________
(April 25, 2007)
Before BIRCH, DUBINA and WILSON, Circuit Judges.
PER CURIAM:
Appellant Adem A. Albra proceeds pro se and appeals the district court’s
dismissal without prejudice of his civil rights complaint against the City of Fort
Lauderdale, Florida (“City”), and other city officials named in their official
capacities, brought pursuant to the Americans with Disabilities Act (“ADA”), the
Rehabilitation Act of 1973 (“Rehabilitation Act”), 42 U.S.C. § 1983, and Florida
state law. Albra alleged that the City police discriminated against him because of
his disease, Human Immunodeficiency Virus (“HIV”), when they refused to
investigate a crime of which he was a victim. Albra also alleged that when he
reported the officers’ refusal, various City and federal entities retaliated against
him by denying him access to services.
Albra alleges the following claims: (1) negligent investigation (“Claim 1”);
(2) negligent supervision and retention (“Claim 2”); (3) 42 U.S.C. § 1983, for
violations of Title II of the ADA and § 504 of the Rehabilitation Act, as well as
negligent training under Florida tort law (“Claim 3”); (4) retaliation under the
ADA and conspiracy between the City and its employees (“Claim 4”);
(5) retaliation under the Rehabilitation Act (“Claim 5”); (6) 28 U.S.C. § 1343(“Claim 6”); and (7) FLA. STAT. § 760.50 (“Claim 7”). Albra argues that the
district court erred in dismissing his complaint without prejudice for failure to state
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a claim, pursuant to Fed. R. Civ. P. 12(b)(6), because he did state a claim under
each of his causes of action.
We review “dismissals pursuant to [Fed. R. Civ. P. 12(b)(6)] de novo, taking
all the material allegations of the complaint as true while liberally construing the
complaint in favor of the plaintiff.” Ellis v. Gen. Motors Acceptance Corp., 160
F.3d 703, 706 (11th Cir. 1998). The district court may only grant a Fed. R. Civ.
P. 12(b)(6) motion to dismiss where it is demonstrated “beyond doubt that the
plaintiff can prove no set of facts in support of his claim which would entitle him
to relief.” Conley v. Gibson, 355 U.S. 41, 45-46, 78 S. Ct. 99, 102, 2 L. Ed. 2d 80(1957). Although the threshold is “exceedingly low” for a complaint to survive a
motion to dismiss for failure to state a claim, Ancata v. Prison Health Servs., Inc.,
769 F.2d 700, 703 (11th Cir. 1985) (quotation omitted), a court nonetheless may
dismiss a complaint on a dispositive issue of law when “no construction of the
factual allegations will support the cause of action,” Marshall County Bd. of Educ.
v. Marshall County Gas Dist., 992 F.2d 1171, 1174 (11th Cir. 1993).
I. Claims 1, 2, and 7 – State Law Claims
Although the State of Florida and its municipalities are generally immune
from tort liability, Florida has waived its sovereign immunity “under circumstances
in which the state or agency or subdivision, if a private person, would be liable to
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the claimant, in accordance with the general laws” of Florida. FLA. STAT.
§ 768.28(1). Even if a complaint contains adequate allegations showing that a
private person would be liable in tort, the sovereign immunity waiver does not
apply if the challenged act of the state agent was “discretionary” rather than
“operational.” Lewis v. City of St. Petersburg, 260 F.3d 1260, 1262 (11th Cir.
2001). An act is “discretionary” if all of the following conditions are met:
(1) the action involves a basic governmental policy, program, or
objective; (2) the action is essential to the realization or
accomplishment of that policy, program, or objective; (3) the action
requires the exercise of basic policy evaluations, judgments, and
expertise on the part of the governmental agency involved; and (4) the
governmental agency involved possesses the requisite constitutional,
statutory, or lawful authority and duty to do or make the challenged
act, omission, or decision.
Id. at 1264 (quotation and alterations omitted). Therefore, when Florida or its
municipality is sued, we must first determine whether a duty was owed to the
plaintiff such that “the circumstances alleged would subject a private person to
liability under Florida law.” Id. at 1262. If a duty is owed, we must next
determine whether “the claim is nonetheless barred by the ‘discretionary’ act
exception to the waiver of sovereign immunity.” Id. at 1263.
“To state a claim for negligence under Florida law, a plaintiff must allege
that the defendant owed the plaintiff a duty of care, that the defendant breached
that duty, and that the breach caused the plaintiff to suffer damages.” Id. at 1262.
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The Florida Supreme Court has recognized that there is no “common law duty of
care owed to an individual with respect to the discretionary judgmental power
granted a police officer . . . to enforce the law.” Everton v. Willard, 468 So. 2d
936, 938 (Fla. 1985); see also DeShaney v. Winnebago County Dept. of Social
Services, 489 U.S. 189, 195, 109 S. Ct. 998, 1002-03, 103 L. Ed. 2d 249 (1989).
Police officers have a duty to protect the public as a whole, but do not owe the
victim of a crime any common law duty of care, absent a special duty to, or
relationship with, the victim. Lewis, 260 F.3d at 1266. The power of a police
officer to choose whether to make an arrest or enforce the law is a discretionary
function. See Everton, 468 So. 2d at 938.
To state a cause of action for negligent supervision or negligent retention
under Florida law the claimant must allege: (1) the existence of a relationship
giving rise to a legal duty to supervise; (2) negligent breach of that duty; and
(3) proximate causation of injury by virtue of the breach. See Roberson v. Duval
County School Bd., 618 So. 2d 360, 362 (Fla. Dist. Ct. App. 1993). Pursuant to
FLA. STAT. §760.50, a person with HIV is entitled to the same protections as a
disabled person, and discrimination on the basis of a person’s HIV positive status
in employment, housing, public accommodations, or governmental services is
prohibited. FLA. STAT. § 760.50(3) and (4).
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According to FLA. STAT. § 768.28(6), an “action may not be instituted on a
claim against the state or one of its agencies or subdivisions unless the claimant
presents the claim in writing to the appropriate agency.” FLA. STAT.
§ 768.28(6)(a). Notice to the agency and written denial of the claim are
“conditions precedent to maintaining an action.” FLA. STAT. § 768.28(6)(b).
Florida courts strictly construe this notice requirement and a claimant must allege
in the complaint that he complied with the notice provisions of FLA. STAT.
§ 768.28(6). Levine v. Dade County School Bd., 442 So. 2d 210, 212-13 (Fla.
1983). When a claimant fails to allege compliance with notice provisions, the
complaint should be dismissed without prejudice and the plaintiff should be
allowed leave to amend. Commercial Carrier Corp. v. Indian River County, 371
So. 2d 1010, 1022-23 (Fla. 1979); see also Hattaway v. McMillian, 903 F.2d 1440,
1447 (11th Cir. 1990).
As to Claim 1, we conclude as a matter of law, police officers do not owe a
duty to protect individuals, absent a special relationship with the victim, but rather
owe a duty to the entire community. Lewis, 260 F.3d at 1266. Therefore, Claim 1
fails because no duty was owed to Albra to investigate his criminal claim, and
Albra did not allege that any special relationship existed between him and the
police department. Nevertheless, even if there was a duty, Claim 1 would fail
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because the decision of whether to enforce laws by investigating a criminal
complaint is a discretionary decision, which is immune from challenge. Further, as
to Claim 2, because no duty existed to investigate Albra’s claim, we conclude that
the City did not breach a duty to supervise the officers during an investigation.
As to Claim 7, we conclude from the record that the City owed a duty to
Albra not to discriminate against him because of his HIV status. Given that the
duty not to discriminate against HIV positive persons is codified, the duty is
operational, and a plaintiff may sue a municipality for violating FLA. STAT.
§ 760.50. Albra, however, failed to allege in his complaint that he had complied
with the notice provisions of FLA. STAT. § 768.28(6). Therefore, his suit is
barred by sovereign immunity because notice to the municipality is a condition
precedent to bringing a lawsuit, and the district court properly dismissed the
complaint.
II. Claim 3 and Part of Claim 4 – 42 U.S.C. § 1983A plaintiff alleging a 42 U.S.C. § 1983 violation must prove “that he or she
was deprived of a federal right by a person acting under color of state law.” Griffin
v. City of Opa-Locka, 261 F.3d 1295, 1303 (11th Cir. 2001). “A person acts under
color of state law when he acts with authority possessed by virtue of his
employment with the state.” Id. The police officers and other City employees in
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this case were all acting under color of state law, given that they were acting in
their capacity as employees of the City. Therefore, it is left to be determined
whether Albra was deprived of a constitutional or statutory right. See Griffin, 261
F.3d at 1303. Albra alleged that his rights were violated under the ADA and
Rehabilitation Act, that the City negligently trained the police officers, and that the
City conspired with its employees to violate his rights.
ADA
Pursuant to the ADA, “no qualified individual with a disability shall, by
reason of such disability, be excluded from participation in or be denied the
benefits of the services, programs, or activities of a public entity, or be subjected to
discrimination by any such entity.” 42 U.S.C. § 12132. A disability under the
ADA is defined as “(A) a physical or mental impairment that substantially limits
one or more of the major life activities of such individual; (B) a record of such an
impairment; or (C) being regarded as having such an impairment.” 42 U.S.C.
§ 12102(2). The Supreme Court has declined to address whether an HIV infection
is a per se disability under the ADA, but has held that HIV could be considered a
disability in some cases. Bragdon v. Abbott, 524 U.S. 624, 641-42, 118 S. Ct.
2196, 2206-07, 141 L. Ed. 2d 540 (1998).
The record here demonstrates that Albra did not allege a prima facie case
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under the ADA. First, he failed to allege that he was disabled under the ADA’s
definition of disability and, therefore, failed to allege the first prong of a prima
facie case for deprivation of a right under the ADA. Second, Albra was not denied
public benefits because the City did not have a duty to investigate his claim.
Albra’s claim also fails because he does not allege nor does he provide any facts
from which we might infer that the officers knew of his HIV status. Thus, Albra
failed to establish any causal connection between the officers’ refusal to investigate
his claim and his illness. Accordingly, we conclude that Albra failed to state a
discrimination claim under the ADA.
Rehabilitation Act
Section 504 of the Rehabilitation Act states that “[n]o otherwise qualified
individual with a disability in the United States . . . shall, solely by reason of her or
his disability, be excluded from the participation in, be denied the benefits of, or be
subjected to discrimination under any program or activity receiving Federal
financial assistance.” 29 U.S.C. § 794(a). The Rehabilitation Act defines
“disability” as a “physical or mental impairment that constitutes or results in a
substantial impediment to employment” or “a physical or mental impairment that
substantially limits one or more major life activities.” 29 U.S.C. § 705(9).
The record here demonstrates that Albra failed to plead a proper claim under
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the Rehabilitation Act. First, just as Albra failed to show that he was disabled
under the ADA, he also failed to show that he was disabled under the
Rehabilitation Act. Second, Albra failed to allege that any of the City employees
knew that he was HIV positive and that he was denied services because of his HIV
status. Because Albra failed to allege one or more prongs of a prima facie case
under the Rehabilitation Act, he did not allege a claim under the Rehabilitation
Act.
Negligent Training
Municipal liability may be
based on a claim of inadequate training where a municipality’s failure
to train its employees in a relevant respect evidences a deliberate
indifference to the rights of its inhabitants such that the failure to train
can be properly thought of as a city policy or custom that is actionable
under § 1983.
Sewell v. Town of Lake Hamilton, 117 F.3d 488, 489-90 (11th Cir. 1997)
(quotations omitted). A “policy” is an officially adopted decision of the
municipality, or a decision of a municipal officer of such a rank that he may be
said to be acting on the municipality’s behalf. Id. at 489. “A custom is a practice
that is so settled and permanent that it takes on the force of law.” Id. Deliberate
indifference is exhibited when a “municipality knew of a need to train and/or
supervise in a particular area and the municipality made a deliberate choice not to
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take any action.” Gold v. City of Miami, 151 F.3d 1346, 1350 (11th Cir. 1998).
Unless a plaintiff shows that the municipality had notice of the need to train, the
plaintiff has not shown deliberate indifference. Id. at 1351. Furthermore, vague
and conclusory allegations in a complaint without specific factual support are
insufficient to support a civil rights complaint because such complaints are held to
a higher pleading standard, and unsupported conclusions of law do not meet that
standard. See GJR Invs., Inc. v. County of Escambia, Florida, 132 F.3d 1359, 1367
(11th Cir. 1998); Gonzalez v. Reno, 325 F.3d 1228, 1235 (11th Cir. 2003).
Here, we conclude that Albra’s claim fails. First, Albra failed to allege in
Claim 3 that the City knew of a need to train its employees in processing citizen
complaints.1 Second, although Albra alleged that police officers had a custom of
refusing to investigate claims, Albra did not provide any factual support to suggest
that department officials or the City was on notice of this custom. Further, Albra’s
complaint contains only conclusions of law without any factual support and,
therefore, does not meet the higher pleading standard for a civil rights complaint
and fails to state a proper claim for negligent training.
1
Albra did allege in Claim 2, however, that the City was on notice that it had negligently
trained its police officers. (See R1-24 at 5). Nevertheless, this vague allegation did not meet the
higher pleading standard for a civil rights complaint and should not serve to meet the first prong
of a prima facie case for negligent training. See GJR Invs., Inc., 132 F.3d at 1367; Gonzalez,
325 F.3d at 1235; Gold, 151 F.3d at 1350-51.
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Conspiracy
To establish a prima facie case of conspiracy under 42 U.S.C. § 1983, the
plaintiff must allege, among other things, that the defendants “reached an
understanding to violate his rights.” See Rowe v. City of Fort Lauderdale, 279
F.3d 1271, 1283 (11th Cir. 2002) (quotation and alteration omitted) (in a summary
judgment context). “The plaintiff does not have to produce a smoking gun to
establish the understanding or willful participation required to show a conspiracy,
but must show some evidence of agreement between the defendants.” Id. at 1283-
84 (quotations and citation omitted). To allege a conspiracy, a plaintiff must make
“particularized allegations” that are more than vague or conclusory. GJR Inv., Inc.,
132 F.3d at 1370; Fullman v. Graddick, 739 F.2d 553, 556-57 (11th Cir. 1984).
Under the doctrine of intracorporate conspiracy, “a corporation cannot
conspire with its employees, and its employees, when acting in the scope of their
employment, cannot conspire among themselves” because a corporation and its
employees are considered to be “a single legal actor.” McAndrew v. Lockheed
Martin Corp., 206 F.3d 1031, 1036 (11th Cir. 2000). The intracorporate
conspiracy doctrine also applies to public, governmental entities. Dickerson v.
Alachua County Comm’n, 200 F.3d 761, 767 (11th Cir. 2000).
The record demonstrates that Albra failed to state a claim of conspiracy in
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his complaint. First, Albra failed to allege that any City employee agreed to violate
his rights, thus failing to allege a prima facie case of conspiracy. Second, Albra
only made vague allegations that a conspiracy existed and failed to include any
details about the alleged conspiracy. Third, the intracorporate conspiracy doctrine
applies to the City and bars Albra’s conspiracy claim. Accordingly, the district
court properly dismissed the claim.
Because Albra failed to allege any proper ADA, Rehabilitation Act,
negligent training, or conspiracy claim, his 42 U.S.C. § 1983 claim fails, and the
district court did not err in dismissing Claim 3 or the part of Claim 4 addressing
conspiracy.
III. Claims 4 and 5 – Retaliation under the ADA and Rehabilitation Act
The ADA states that “[n]o person shall discriminate against any individual
because such individual has opposed any act or practice made unlawful by this
chapter or because such individual made a charge, testified, assisted, or
participated in any manner in an investigation, proceeding, or hearing under this
chapter.” 42 U.S.C. § 12203(a). To establish a prima facie case of retaliation
under the ADA, a plaintiff must show that (1) he participated in a statutorily
protected activity or expression; (2) he suffered an adverse action; and (3) the
adverse action was related to the protected activity. Shotz v. City of Plantation,
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Fla., 344 F.3d 1161, 1180 (11th Cir. 2003). Not every unkind action is sufficiently
adverse. Id. at 1181. Rather, “an ADA plaintiff must demonstrate that a
reasonable person in his position would view the action in question as adverse.”
Id. (quotation and alteration omitted).
The anti-discrimination provision of the Rehabilitation Act incorporates the
anti-retaliation provision of the ADA. 29 U.S.C. § 794(a) and (d); 42 U.S.C.
§ 12203(a). Therefore, the prima facie case for retaliation under the Rehabilitation
Act is the same as that under the ADA. See Holbrook v. City of Alpharetta,
Georgia., 112 F.3d 1522, 1526 n.2 (11th Cir. 1997) (stating that ADA
discrimination law applies to the Rehabilitation Act).
We conclude from the record that Albra failed to allege a proper retaliation
claim. First, he failed to allege that he had engaged in a protected activity, thus
failing the first prong of a prima facie case. Second, these alleged retaliatory
actions seem wholly unrelated to any action Albra may have taken in opposition to
allegedly unlawful actions on the part of the City. Accordingly, Albra failed to
state a claim for retaliation under the ADA or the Rehabilitation Act, and the
district court did not err by dismissing this claim.
IV. Claim 6 – 28 U.S.C. § 1343The statutory language of 28 U.S.C. § 1343 sets out the jurisdiction of
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district courts in civil actions. 28 U.S.C. § 1343(a). To determine whether 28
U.S.C. § 1343 creates a private right of action, the primary inquiry is Congress’s
intent when enacting the statute. Thompson v. Thompson, 484 U.S. 174, 179, 108
S. Ct. 513, 516, 98 L. Ed. 2d 512 (1988). The Supreme Court has stated that the
four-part test created in Cort v. Ash, 422 U.S. 66, 78, 95 S. Ct. 2080, 2088, 45 L.
Ed. 2d 26 (1975), may be used as a guide to determining Congress’s intent.
Thompson, 484 U.S. at 179, 108 S. Ct. at 516. The Cort factors are:
First, is the plaintiff one of the class for whose especial benefit the
statute was enacted – that is, does the statute create a federal right in
favor of the plaintiff? Second, is there any indication of legislative
intent, explicit or implicit, either to create such a remedy or to deny
one? Third, is it consistent with the underlying purposes of the
legislative scheme to imply such a remedy for the plaintiff? And
finally, is the cause of action one traditionally relegated to state law,
in an area basically the concern of the States, so that it would be
inappropriate to infer a cause of action based solely on federal law?
McDonald v. S. Farm Bureau Life Ins. Co., 291 F.3d 718, 722 (11th Cir. 2002)
(quotation omitted). “The bar for showing legislative intent is high.” Id. at 723.
Applying the Cort factors, we conclude that 28 U.S.C. § 1343 does not
create a private right of action, and Albra’s claim pursuant to the statute failed to
state a claim. Accordingly, the district court did not err by dismissing this claim.
Conclusion
After reviewing the record and the parties’ briefs, we discern no error in the
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district court’s dismissal without prejudice of Albra’s complaint for failure to state
a claim. Accordingly, we affirm the judgment of dismissal.
AFFIRMED.
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