Lead Opinion
On March 15, 1991, Chicago Police Officer Anna Gall arrested Rafael Garcia, who at the time was on probation for two felonies and had an outstanding bond forfeiture warrant, for possession of a controlled substance. Officer Gall had discovered by Garcia’s feet a plastic bag containing a white, powdery substance, but did not test the substance before making the arrest. In the process of arresting Garcia, Gall struck him in the head with her flashlight,
At that time, Garcia remained hospitalized under twenty-four hour guard and therefore was unable to attend the Gerstein hearing.
On March 18, while Garcia remained hospitalized, the court set a preliminary hearing for April 10. St. Mary of Nazareth Hospital released Garcia on March 20, and personnel from the Sheriff’s office immediately placed Garcia, who did not make bond, in custody at the Cook County Jail. On March 26, the Chicago Police Department laboratory tested the powder and found it to be negative for any controlled substances. The laboratory communicated that information to the State’s Attorney’s office, ^and at the preliminary hearing on April 10, Judge Mary Maxwell Thomas granted the prosecutor’s request for a nolle prosequi. On April 12, the court reinstated Garcia’s probation status. Cook County Jail released Garcia on April 15.
Garcia then filed this lawsuit for money damages in the District Court for the Northern District of Illinois. Garcia’s first amended complaint named as defendants Officer Gall, the City of Chicago, the Cook County Department of Corrections, Director of the Cook County Department of Corrections C. Richard English, Cook County State’s Attorney Jack O’Malley, and Cook County Sheriff Michael F. Sheahan. Garcia claimed that: (1) the Gerstein hearing was inadequate because he was not brought before the judge, due to his hospitalization; (2) Gall used excessive force against him and did not have probable cause to arrest him; (3) O’Malley, Sheahan, and English were responsible for detaining him without probable cause; and (4) the City of Chicago’s procedures for testing substances seized as narcotics were constitutionally inadequate. All defendants filed dispositive motions in response to Garcia’s complaint.
The district court dismissed State’s Attorney O’Malley and the Cook County Department of Corrections based on Eleventh Amendment immunity from civil liability, and dismissed all of Garcia’s Gerstein claims; the court did not dismiss Sheriff Sheahan and Director English because that issue was not before the court. Garcia then filed a motion to reconsider, as well as a motion to file a second amended complaint that in essence repeated the Gerstein claims from the first amended complaint. Sheahan and English filed a motion for summary judgment. The
Garcia then filed a motion to file a third amended complaint, which included new claims against the City of Chicago and Officer Gall, but included none of the other defendants. The district court granted the motion, and the City of Chicago and Gall moved to dismiss counts three through six of the complaint, which the district court granted. Counts I and II, for excessive force and false arrest, named only Gall as the defendánt. Gall and Garcia settled those claims for $25,-000, and Garcia reserved the right to appeal earlier rulings of the district court. Garcia now appeals from the dismissals of O’Malley, Sheahan, and English, the denial of leave to file his second amended complaint, and the dismissals of the fifth and sixth counts of his third amended complaint, which alleged that the City’s procedures for testing substances to determine if they are controlled were constitutionally deficient.
A. Defendant O’Malley
The Eleventh Amendment prohibits federal courts from deciding suits brought by private litigants against states or their agencies, and that prohibition extends to state officials acting in their official capacities. Will v. Michigan Dept. of State Police,
Garcia does argue that he is entitled to injunctive relief from O’Malley, and the Eleventh Amendment provides no shield against such requests. Will,
B. The Gerstein Claims
Garcia’s only claims for relief against defendants Sheahan and English relate to his inability to be present at the probable cause hearing held the day after Officer Gall arrested him. Garcia also named the City of Chicago and Cook County in those claims.
C. The Second Amended Complaint
We must ask whether the district court abused its discretion when it denied Garcia leave to amend his complaint. See Bower v. Jones,
Garcia’s second amended complaint reiterated his excessive force and Fourth Amendment claims against the City of Chicago and Officer Gall, and restated the Gerstein claims the district court had dismissed previously. The district court reasoned that because the second amended complaint stated no new claims, it was futile, and the district court therefore denied Garcia leave to amend his complaint. That decision, far from being an abuse of discretion, stood on firm legal ground.
D. The Fourth and Fourteenth Amendment Claims
Garcia argues that the Fourth Amendment requires that police officers perform tests on substances believed to be illegal drugs immediately at a police station, rather than ten to twenty days after arrests at a crime lab, as the City of Chicago did after Garcia’s arrest. Nevertheless, Garcia concedes that finding a white powder in a person’s possession provides probable cause to arrest that person for possession of cocaine. See United States v. Potter,
Garcia has suggested that the cobalt thioc-yanate spot test is a superior, quicker means of determining whether a substance is cocaine. Perhaps he is correct, but what is wise practice and what is constitutionally compulsory are two very different concepts. See Gramenos v. Jewel Cos.,
Garcia also contends that the City held him in custody in violation of the Fourth and Fourteenth Amendments after it discovered that the powder in question was not a controlled substance.
Instead, Garcia cites BeVier v. Bu-cal,
What happens when the prosecutor discovers exculpatory evidence after a probable cause determination at a Gerstein hearing? Not all exculpatory evidence irrefutably proves the defendant’s innocence. The decision to move for nolle prosequi is a matter of prosecutorial discretion, and the prosecutor can proceed to trial if the prosecutor believes doing so is warranted. In this case, in fact, the prosecutor did dismiss the case well before trial, at the preliminary hearing — Garcia just contends that the delay from March 26 until April 10, the date the court set for his preliminary hearing, was too lengthy. The Due Process Clause, however, does not compel prosecutors to dismiss its cases before trial based on exculpatory evidence in its possession, much less compel them to do so within fifteen days. See Albright v. Oliver, - U.S. -, -,
Of course, if the prosecutor fails to deliver exculpatory evidence to the defendant before trial, it may run afoul of Brady v. Maryland,
For the foregoing reasons, the judgment of the district court is AFFIRMED.
Notes
. Garcia settled for $25,000 a claim against Gall based on her use of excessive force, and that claim is not at issue in this appeal.
. Gerstein v. Pugh held that "the Fourth Amendment requires a timely judicial determination of probable cause as a prerequisite to detention,"
.Garcia spent approximately five days in the hospital.
. Garcia failed to specify in his notice of appeal that he was appealing the dismissal of the Ger-stein claims against the City of Chicago as Federal Rule of Appellate Procedure 3(c) requires. That failure is jurisdictional, see Torres v. Oakland Scavenger Co.,
. If Garcia believed the City was proceeding too slowly, he could have tested the substance himself by exercising his right to investigate. See U.S. Const, amend VI (Compulsory Process Clause); IU.S.CtR. 412(a)(v).
. Because the seizure of a person ends after the Gerstein hearing, the Due Process Clause of the Fourteenth Amendment is the only applicable constitutional provision. See Wilkins v. May,
. In Scott, this court adopted a three factor test to determine whether a revocation hearing was not reasonably prompt: “the reason for the delay, the defendant's assertion of his right, and prejudice to the defendant.” Scott,
. We are somewhat puzzled as to why Garcia was not released until April 15, 1991, given that the prosecutor entered a nolle prosequi on April 10, and that Garcia's probation was reinstated on April 12. Perhaps this was due in part to the weekend that fell on April 13-14, 1991, or to administrative inefficiencies. Obviously, holding a person in jail for several days who does not belong there might rise to the level of a constitutional violation. Nevertheless, nothing in the record suggests that Garcia’s attorney ever brought Garcia's continued confinement to the attention of the court, nor is there any indication that Garcia himself ever made an effort to contact the court, his attorney, or an administrator in the Cook County Jail.
Concurrence Opinion
concurring in part and dissenting in part.
I agree with the majority’s able analysis and disposition of all the issues save one. I have difficulty, however, with the approach to the City’s delayed drug testing and egregiously slow application of the negative test results. Garcia alleges that the City’s policy caused him to be detained for the 11 days it took the white powder to be tested for drugs, and for 15 more days after the tests came back negative. Because I think that such a policy may implicate Garcia’s Fourteenth Amendment due process rights, I would not dismiss this claim at the early stage of a 12(b)(6) motion. Whether the City policy actually caused Garcia’s detention and whether it is reasonable are issues requiring further proceedings. The waters are muddied somewhat by the fact that Garcia was on probation for an auto theft offense at the time of his arrest. At the Gerstein hearing, the state’s attorney was granted leave to file a violation of probation report, although, contrary to the majority’s assumption, Garcia’s probation was never actually revoked.
It is significant that the district court did not dismiss Garcia’s due process claim for failure to allege a constitutional violation. Instead, the court found that “conduct that results in unreasonable, unnecessary and unjustified delays in processing and releasing arrestees violates the Constitution if done intentionally or with deliberate indifference to the rights of arrestees.” And the district court concluded that for purposes of a motion to dismiss, it must be presumed that 10 to 20 days is an unreasonable testing delay. But the court eventually dismissed the claim for failing to allege municipal liability with heightened specificity, an approach since invalidated by Leatherman v. Tarrant County Narcotics Intelligence and Coordination Unit, - U.S. -,
Garcia’s objection to the City’s policy is essentially a challenge to extended pre-trial detention. The majority reasons that after a Gerstein hearing the speedy trial guarantee is the only limitation on subsequent prolonged pre-trial detention. This is cold comfort — the Constitution permits a trial months or even years after an arrest. See, e.g., Barker v. Wingo,
In Baker v. McCollan,
On the other hand, Baker also rejected a requirement that law enforcement officials exercise “due diligence” to determine whether the person detained is in fact innocent, holding that officials need not “investigate independently every claim of innocence.”
But Baker, by its own admission, is not absolute. Since Baker, courts have found that prolonged pre-trial detention without any investigation can constitute a deprivation of liberty without due process. In Johnson v. City of Chicago,
But whatever haziness obscures the exact contours of a duty to investigate burns off once the authorities know that they have no basis for detention. Baker only permitted pre-trial detention after a valid arrest pursuant to a valid warrant “until it was discovered that [the detainee] was not the person sought.” Powe v. City of Chicago,
Richmond, Indiana had a drug testing policy that resulted in a similar prolonged detention that the district court found unconstitutional in Pennington v. Hobson,
The Fifth Circuit also recently concluded that detention without investigation could be unconstitutional. Sanders v. English,
In the Fourth Amendment context, if the evidence that forms probable cause for a warrantless arrest dissipates before the ar-restee is brought before a judge, continued detention is unconstitutional. Sivard v. Pulaski County,
Garcia has also challenged the City’s policy as objectively unreasonable under the Fourth Amendment. As the majority noted, this circuit has a line of cases stating that after a Gerstein hearing, the Fourth Amendment ceases to apply and due process furnishes the only standard. Wilkins v. May,
Since, however, the court’s statements about the applicability of the Fourth Amendment are essentially only dicta in an otherwise narrow substantive due process case, I have difficulty concluding that they revive Garcia’s Fourth Amendment claim. In any event, it probably makes little difference here, since the Fourth Amendment’s prohibition against “unreasonable” seizures is coextensive with the Fourteenth Amendment’s prohibition against deprivations of liberty without due process. Id. — U.S. at-, n. 24,
No party has suggested that Garcia’s claim with respect to pre-trial detention has been affected by his status as a probationer. Nor did the district court consider this germane to the issues presented here. I therefore do not think the issue is properly before us. Even if it were, I do not think that Garcia’s probation status would significantly affect the analysis of this case. Once the essential
On a final note, the majority observes that Garcia was detained for an additional five days after the charges against him were nolle prossed, or three days after probation had been restored. Inexplicably, Garcia does not appear to challenge this period of detention. I mention this fact only to underscore my view that such arbitrary detention — when a person is neither suspected, arrested, charged nor convicted of any crime or wrongdoing — is clearly unconstitutional.
. Probation may be revoked only after a full hearing that includes notice of the alleged violation, an opportunity to appear and present evidence, a conditional right to confront adverse witnesses and a written report. Gagnon v. Scar-pelli,
. These cases all rely, to some degree, on the fact that the detainees were not brought before a magistrate to present their claims of innocence. But although Garcia received a Gerstein hearing, it is by no means clear that this alone renders these cases inapplicable. A Gerstein hearing follows a warrantless arrest, and essentially replaces the probable cause determination that otherwise precedes issuance of an arrest warrant, Gerstein,
. Of course, a probation violation may exist where no crime has been committed. See, e.g., Thompson v. Duke,
