Lead Opinion
Plаintiff John Doe, individually and on behalf of his two minor children, brought suit under 42 U.S.C. § 1983 (1988), claiming that their Fourteenth Amendment rights were violated by various state employees and entities during a child abuse investigation. The defendants filed a motion to dismiss under Fed.R.Civ.P. 12(b)(6) on the basis of absolute and qualified immunity, which the district court granted as to all defendants, except for two. The two defendants appeal, contending that they are entitled to qualified immunity. Finding that the district court erred, we reverse.
I
The following is a summary of the facts alleged in the complaint, which for purposes of a Rule 12(b)(6) motion are taken as true. See Jefferson v. Ysleta Indep. School Dist.,
Pursuant to its statutory mandate,
On the third day of the investigation, Dr. William Janzen, a psychologist who was selected by the OCS, interviewed and evaluated the daughter and the mother. He concluded that there was no evidence of sexual abuse. George told the mother that Dr. Janzen did not make a report of his findings.
When the investigation commenced, the son was in North Carolina with his paternal grandparents. George was informed that Doe was supposed to join the son and drive him back to New Orleans. Both George and Detective John Pinero of the Jefferson Parish Sheriffs Office agreed to wait a few weeks to interview the son in New Orleans. George and Bennett secretly wrote to the 24th Judicial District Court and described the son as a victim of sexual abuse, identified the father as the alleged perpetrator, and described the son as being in urgent danger. As a result, court orders were issued and the mother went to North Carolina where, in the company of a local sheriff, she took legal custody of the son and took him back to New Orleans.
Subsequently, an informal expedited custody hearing was conducted by the 24th Judicial District Court judge who had presided over Doe’s and the mother’s divorce and custody proceedings. The judge determined that the OCS case file misrepresented Dr. Bagnetto’s physical findings, and therefore contained at least one material factual misrepresentation. The judge placed both the daughter and son in the custody of their paternal grandparents. Thereafter, George and Detective Pinero interviewed the son, but refused to videotape the interview or allow an independent child psychologist to be present. George stated that the interview was inconclusive. George also insisted that the son undergo a proctoscopic examination, despite his parents’ objections. The examination failed to produce evidence of sexual abuse. Subsequently, based on information provided by George, the District Attorney
Thereafter, George falsely informed the District Attorney that the grandparents would not allow the daughter to attend group counseling, in an effort to change custody from the grandparents to the mother. George then commenced an unjustified investigation of abuse of the daughter and son by the grandparents, which was abandoned when Doe’s counsel intervened. In addition, OCS threatened the mother that the children would be placed in a foster home in another city if she did not give evidence that the children were sexually abused by Doe.
The hearing in the ehild-in-need-of-care proceeding was held about four months after the investigation had begun. The eve before the hearing, Doe’s attorney requested the videotape of the daughter’s interview, but was told that the tape did not exist. Under threat of court order, however, the tape was produced. The tape contained no proof that Doe sexually abused his daughter. George also produced the information contained in Dr. Janzen’s report. No evidence of physical abuse was presented at the hearing; two psychologists, including Dr. Janzen, opined that no abuse had occurred. The treating physician testified that there had been no abusе. In addition, George admitted that the son had never made a statement to her to establish that either child had been sexually abused. Furthermore, although George had represented during the investigation that the culdoscopic examination of the daughter was inconclusive, the judge stated that the result of the exam was negative, and not inconclusive. The judge dismissed the charges against Doe immediately after the hearing.
Subsequently, the plaintiffs brought this action pursuant to 42 U.S.C. §§ 1983, 1988 and the Fourteenth Amendment. The plaintiffs claimed that the defendants
The defendants filed a motion to dismiss for lack of subject matter jurisdiction and for failure to state a claim or cause of action upon which relief could be granted on the ground that the defendants were entitled to absolute and/or qualified immunity. The district court granted the motion as to all defendants, except Bennett and George. The district court found that Bennett and George were not entitled to qualified immunity, because the plaintiffs’ complaint alleged facts which indicated that Bennett and George violated clearly established statutory or constitutional rights of which a reasonable person would have known. In denying the motion to dismiss as to George and Bennett, the district court found that “[djefendants’ bad faith maintenance of proceedings against Doe rises to the level of a constitutional tort ... because under the facts alleged by plaintiffs, defendants violated their fundamental liberty interest in Doe’s care, custody, and management of Daughter and Son, as that liberty interest is protected by the fourteenth amendment.” Record on Appeal at 23. Bennett and George bring this intеrlocutory appeal of the order denying them qualified immunity.
II
The plaintiffs’ complaint alleged that George and Bennett (1) interfered with Doe’s fundamental liberty interest in the care and custody of his children, (2) violated Doe’s constitutional right to be free from malicious prosecution, and (3) violated the children’s right to privacy. George and Bennett argue
Child care workers are entitled to qualified immunity in the performance of discretionary, nonprosecutorial functions. Stem v. Ahearn,
[T]he right the official is alleged to have violated must have been ‘clearly established’ in a ... particularized ... sense: The contours of the right must be sufficiently clear that a reasonable official would understand that what he [or she] is doing violates that right. This is not to say that an official action is protected by qualified immunity unless the very action in question has previously been held unlawful ...; but it is to say that in. light of preexisting law the unlawfulness must be apparent.
Anderson v. Creighton,
A
George and Bennett argue that a parent’s substantive due process liberty interest in- the right to the care and custody of his or her child was not a clearly established constitutional right at the time of the alleged violation. The plaintiffs argue to the contrary.
Although we agree with the plaintiffs that those three cases recognize a constitutional right of family integrity under the Fourteenth Amendment, we disagree that those cases establish that a parent’s liberty interest in family integrity is a clearly established constitutional right. While the Supreme
In Santosky, child care workers sought to permanently terminate the parents’ custody of their children. See id.,
In Hodorowski, the plaintiffs argued that child protective service workers were not entitled to qualified immunity, because the workers interfered with their right to family integrity under the Fourteenth Amendment by removing the сhildren from their parents’ home without a prior court order. Id.,
An important consideration in deciding whether an official violated clearly established law is the generality of the relevant rule.... [M]any general constitutional rights, such as the right to due process of law, are clearly established and yet so general that it often will be unclear whether particular conduct violates the right....
The district court held that appellants were not protected by qualified immunity because they violated the clearly established right of ‘family integrity.’ We think the district court’s formulation of the right was too general. It is beyond dispute that many aspects of family integrity possess constitutional stature. But reasonable government officials, knowing only that they must not infringe on family integrity, would not necessarily know just what conduct was prohibited. In particular, in the absence of more fact-specific authority, we do not think that appellаnts in this case should have known that their conduct in removing the Hodorowski children from the home violated the nebulous right of family integrity.
Id. (citation omitted) (footnote omitted). In conclusion, we held that the child care workers violated no clearly established constitutional right. See id. at 1217.
In Frazier, a case involving facts and allegations similar to those in this case, the First Circuit also emphasized that the contours of the right to family integrity are not well-defined.
Given the absence of more fact-specific law,
B
George and Bennett next allege that they did not violate a clearly established Fourteenth Amendment right to be free from malicious prosecution. The plaintiffs claimed that George and Bennett continued the investigation and child-in-need-of-eare proceeding initiated by the District Attorney after it was clear that there was no evidence to support the allegation that Doe sexually abused his children. The plaintiffs’ contention essentially asserts the common law tort of malicious prosecution. The issue confronting us is whether, and under what circumstances, malicious prosecution might rise to the level of a constitutional violation for which § 1983 provides a remedy.
Although the alleged malicious prosecution occurred in a civil custody proceeding and a civil ehild-in-need-of-care proceeding, the plaintiffs argue that the underlying proceedings should be considered quasi-сriminal because Doe could have been criminally prosecuted and was advised of his Fifth Amendment rights at the child-in-need-of care adjudication. The circuits are divided on whether malicious prosecution alone constitutes a constitutional violation where the underlying proceeding was criminal. In Wheeler v. Cosden Oil & Chemical Co.,
Plaintiffs argue that because the underlying proceedings were quasi-criminal we should find that their allegation of malicious prosecution alone sufficiently states a constitutional violation that is actionable under § 1983. We reject the plaintiffs argument. It is entirely speculative whether Doe would have been criminally prosecuted for child abuse. We find no authority for and decline to hold that the mere possibility of criminal prosecution converts an otherwise civil proceeding into the equivalent of a criminal proceeding for purposes of determining whether a constitutional right was violated.
It is unclear when the tort of malicious prosecution states a claim for denial of civil rights under § 1983 where the malicious prosecution occurred in a civil proceeding. Even assuming that the plaintiffs’ allegations support the common law tort of malicious prosecution, we stated in Beker Phospate Corp. v. Muirhead,
Although the above-cited eases indicate that a civil malicious prosecution claim may give rise to a constitutional claim where egregious conduct is present, nоne of those cases even hint as to what constitutes such egregious conduct. We have found only two cases where the court found that the plaintiffs’ claim of misuse of legal procedure in a civil proceeding stated a constitutional violation because the defendants’ conduct was so egregious. In Vinson v. Campbell County Fiscal Court,
Nonetheless, the district court found that George and Bennett’s “bad faith maintenance of proceedings against Dоe rises to the level of a constitutional tort ... because ... defendants violated [the plaintiffs’] fundamental liberty interest in Doe’s care, custody, and management of Daughter and Son.” Record on Appeal at 23. We, however, refuse to take a synergistic approach, and thus decline to find that the plaintiffs’ claims of malicious prosecution and interference of family integrity, both of which were not clearly established constitutional rights at the time of the alleged unlawful conduct, taken together state a violation of a clearly established constitutional right.
C
Lastly, George and Bennett contend that they violated no clearly established constitutional right by having the son and daughter physically examined for signs of sexual abuse. The plaintiffs claimed that the son and daughter were subjected to proctoscopic and culdoscopic examinations in violation of their right to privacy under the Fourteenth Amendment. Under Louisiana law, child care workers who have reason to believe that a child has been sexually abused may obtain a court order for a physical examination of the child. See La.Rev.Stat.Ann. § 14:403 Note (West Supp.1993). We conclude that in light of preexisting law, George and Bennett would not have known that their efforts to fulfill their public responsibility in determining whether sexual abuse occurred violated a constitutional right. See Darryl H. v. Coler,
For the foregoing reasons, we hold that George and Bennett are entitled to qualified immunity from liability in this case. The district court’s judgment is REVERSED.
Notes
. The daughter was four years of age and the son was eight years of age during the relevant period.
. Plaintiffs contend that unbeknownst to Dr. Bagnetto, the daughter had a recurring yeast infection over the past several months, which another pediatrician had diagnosed and treated. The treating pediаtrician attributed the condition to the daughter's poor hygiene and obesity.
. "Any mandatory reporter who has cause to believe that a child's physical or mental health or welfare is endangered as a result of abuse or neglect or sexual abuse ... shall" make a “report immediately to the local child protection unit of the Department of Health and Human Resources and, if necessary, to a local or state law enforcement agency." La.Rev.Stat.Ann. § 14:403 Note (West Supp.1993).
. See La.Rev.Stat.Ann. § 14:403 Note (West Supp.1993).
. The plaintiffs failed in their amended complaint to identify the party or parties who gave the mother and the attorney the information about the existence of the videotape.
. Besides Bennett and George, the plaintiffs brought suit against the State of Louisiana, the Department of Social Services, the Office of Community Services ("OCS”), Maynerva Nelson, in her capacity as Secretary, and Brenda Kelley, in her capacity as Assistant Secretary.
. In examining preexisting law,
[a]s a general proposition, we will not rigidly define the applicable body of law in determining whether relevant legal rules were clearly established at the time of the conduct at issue. See Harlow v. Fitzgerald [457 U.S. 800 at 818, n. 32] 102 S.Ct. [2727] at 2738, n. 32 [73 L.Ed.2d 396 ]. Relying solely on Fifth Circuit and Supreme Court cases, for example, would be excessively formalistic, but they will loom largest in our inquiries. In determining what the relevant law is, then, a court must necessarily exercise some discretion in determining the relevance of particular law under the facts and circumstances of each case, looking at such factors as the overall weight of authority, and the status of the courts that render substantively relevant decisions, as well as the jurisdiction of the courts that render substantively relevant decisions.
Melear v. Spears,
. Plaintiffs did not allege that the procedures provided under Louisiana law, concededly followed in the instant case, were constitutionally inadequate. See Brief for Plaintiffs at 22, 24. Instead, plaintiffs made a substantive due process argument, claiming that George and Bennett, inter alia, withheld exculpatory evidence and fabricated evidence, thereby interfering with Doe's liberty interest in the care, custody, and management of his children.
. Although Frazier was decided two years after the alleged violation, the state of the law in 1992 as explained by the First Circuit did not differ from the state of the law at the time of the alleged unconstitutional conduct.
. We recognize, however, that "[i]t is not necessary to point to a precedent which is factually on all-fours with the case at bar. It suffices that the [defendant] be aware of general, well-developed legal principles.” Jefferson,
. Although there may have been some wrongdoing, "immunity that applies only when the defendant did no wrong is no immunity at all.” Millspaugh v. County Dept. of Public Welfare of Wabash County,
.Although plaintiffs allege malice and wrongdoing, that allegation fails to transform the liberty interest in family integrity into a clearly established constitutional right. See Siegert v. Gilley, - U.S. -, -,
. The plaintiffs' argument that this case involved quasi-criminal proceedings because Doe was informed of his Fifth Amendment rights is to no avail, for a witness may properly invоke the Fifth Amendment "privilege against compulsory self-incrimination ... 'in any proceeding, civil or criminal, administrative or judicial, investigatory or adjudicatory' when he [or she] ‘reasonably apprehends a risk of self-incrimination, ... though no criminal charges are pending against him [or her], ... and even if the risk of prosecution is remote.' " In Re Corrugated Container Anti-Trust Litigation,
. We have described "misuse of legal procedure” as "encompassing three separate but related common law torts which protect the interest in freedom from unjustified litigation: (1) malicious prosecution; (2) wrongful civil proceedings; and (3) abuse of process." Sisk v. Levings,
Concurrence Opinion
concurring in the judgment:
I agree with the majority’s holding that the caseworkers, Bennett and George, are entitled to qualified immunity as a matter of law. Unlike the majority, however, I do not reach the question whether Doe has alleged the violation of a “clearly established” constitutional right, as required by Harlow v. Fitzgerald,
I.
Initially, I note that the allegations in Doe’s amended complaint, if true, are “nightmarish.” Two child protective services workers, in a rush to prove that Doe sexually abused his young children, launched a four-month investigation which may best be described as a “witch hunt.” Among other things, the two workers: suppressed the results of reports indicating that no sexual abuse had occurred; misrepresented to authorities the nature of the findings in those reports; obtained, in secrеt and through deception, a court order awarding custody of Doe’s son to his mother; and gave false information to the District Attorney’s office in an effort to have the children removed from the temporary custody of their paternal grandparents. As a result of the deception practiced by these two workers, Doe was effectively denied all contact with his children for some four months, when he was ultimately exonerated.
That the actions of which Doe complains are egregious, however, does not mean that he has asserted the violation of a federally protected right, as required by 42 U.S.C. § 1988. After all, the gravamen of his complaint is malicious prosecution, a state law tort claim. Thus, as the majority recognizes, “[t]he issue confronting us is whether, and under what circumstanсes, malicious prosecution might rise to the level of a constitutional violation for which § 1983 provides a remedy.” Majority Opinion at 1418.
II.
The majority suggests that civil malicious prosecution, such as that alleged in this case, may give rise to a constitutional claim where egregious conduct is present. However, it never actually decides the question. Rather, the majority assumes that an “egregious” civil malicious prosecution could violate the constitution, only to then hold that the right at issue was not clearly established in 1990, when George and Bennett allegedly conducted their bad faith investigation.
I would approach all malicious prosecution claims under § 1983 in a different way. The Fifth Circuit has, admittedly, flip-flopped on the question of whether malicious prosecution is independently cognizable under § 1983. See Brummett v. Camble,
Thus, to the extent that Doe has sought relief solely on the basis of a malicious prosecution, I would hold that the allegations do not, in the words of Siegert, assert the violation of a constitutional right at all. To the extent he is asserting a deprivation of liberty or property without due process of law, however, his allegations must be scrutinized more closely.
III.
As I read Doe’s amended complaint, he has clearly sought to link George and Bennett’s malicious prosecution to a chain showing the deprivation of a liberty interest without due process of law. Doe specifically asserts that the defendants violated his
fundamental liberty interest in the care, custody, and management of the minor children which is a protected Fourteenth Amendment right pursuant to Santosky v. Kramer, [455 U.S. 745 ,102 S.Ct. 1388 ,71 L.Ed.2d 599 (1982)], because the action of the defendants, as outlined below, sought to destroy the familial bonds without a fundamentally fair procedure and without sufficient basis in fact.
(emphasis added). The case on which Doe relies — namely, Santosky v. Kramer—is a procedural due process case. There, the Court held that when a state moves to destroy family bonds (i.e., by terminating the parent-child relationship), it must provide the parеnts with fundamentally fair procedures. Because of Doe’s reliance on Santosky (and his allegations that he was denied a “fundamentally fair procedure”), I would construe his complaint as attempting to assert a procedural due process claim.
Doe’s allegations, if true, clearly satisfy the first two elements of a procedural due process claim. That is, he has sufficiently alleged that he was deprived of a liberty interest. His amended complaint recounts that, during the four-month investigation, he basically lost custody of his children.
The problem with Doe’s procedural due process claim ultimately lies with his ability
To the extent that Doe is seeking compensation from George and Bennett for their malicious actions in bringing about this temporary deprivation, I would hold that Louisiana’s post-deprivation procedures provide Doe with all the process he is due.
Thus, I would hold that, under Siegert, Doe has not asserted a violation of his right to due process of law. George and Bennett are, consequently, entitled to qualified immunity on Doe’s procedural due process claim, but only because state procedures provide him with an adequate post-deprivation remedy. This case might be different if Louisiana gave its child protective workers absolute immunity or if, after pursuing his state court remedy, Doe had alleged that the procedures employed by the state were in some way constitutionally defective. But he has not made such allegations. Accordingly, I must conclude that he has not asserted the violation of any federally protected right.
. Fourth Amendment protections may also be implicated in cases involving malicious prosecution. See, e.g., Sanders v. English,
. The majority construes Doe’s complaint to raise only a substantive due process claim; yet it relies primarily on procedural due process cases in determining that George and Bennett are entitled to qualified immunity. Doe has, admittedly, been less than clear on the question of whether he is asserting a procedural due process claim, a substantive due process claim, or both. My review of his amended complaint, however, convinces me that he has sought to raise a procedural due process claim. Moreover, because I do not think that there is an independent federal claim for "malicious prosecution,” I would necessarily reject any attempt to phrase such a claim as a substantive due process violation. After all, the essence of a malicious prosecution claim is an egregious abuse of the legal process; if such allegations were sufficient to raise a substantive due process claim, then every claim of malicious prosecution would be converted, ipso facto, into a federal claim.
.According to his complaint, he initially complied with one of the caseworkers' request that he have no contact with his children. There is some question as to whether this action would constitute a “deprivation” for purposes of due process analysis. See Weller v. Department of Social Servs. for Baltimore,
. Indeed, it is difficult to see how the state could have intervened to prevent the kind of abuse about which Doe complains.
. Specifically, at the time of the events in this case, a caseworker could be held civilly or criminally liable if (1) in bad faith she "conducted] an investigation, ma[de] an investigative judgment or disposition, or release[d] or use[d] information contained in the central registry,” or (2) she ”ma[de] a report known to be false or with reckless disregard for the truth of the report.” See La.Rev Stat.Ann. § 14:403 (West Supp.1993) (historical notes).
