Document ID: s3://data.kl3m.ai/documents/govinfo/USCOURTS/USCOURTS-ca5-15-10073/USCOURTS-ca5-15-10073-0/pdf.json

Parties Involved:
City of Dallas
Appellee
Frank Gorka
Appellee
Robert Groden
Appellant

Document Text:

IN THE UNITED STATES COURT OF APPEALS

FOR THE FIFTH CIRCUIT

No. 15-10073

ROBERT GRODEN, 

 Plaintiff - Appellant

v.

CITY OF DALLAS, Texas; SERGEANT FRANK GORKA, 

 Defendants - Appellees

Appeal from the United States District Court

for the Northern District of Texas

Before KING, JOLLY, and PRADO, Circuit Judges.

E. GRADY JOLLY, Circuit Judge:

Robert Groden seeks to establish Monell1 liability against the city of 

Dallas for his allegedly unconstitutional arrest. He argues that the city

adopted an unconstitutional policy of retaliating against unpopular-but 

constitutionally-protected speech and that, acting under this policy, Officer 

Frank Gorka illegally arrested Groden. The district court dismissed Groden’s

claims against the city of Dallas under Federal Rule of Civil Procedure 12(b)(6), 

primarily because his complaint did not name the specific municipal

policymaker. The Supreme Court has stated more than once, however, that

 

1 Monell v. Dep’t of Soc. Servs. of City of New York, 436 U.S. 658 (1978).

United States Court of Appeals

Fifth Circuit

FILED

June 16, 2016

Lyle W. Cayce

Clerk

 Case: 15-10073 Document: 00513550017 Page: 1 Date Filed: 06/16/2016
No. 15-10073

2

the identity of the policymaker is a question of law. Accordingly, for purposes 

of Rule 12(b)(6), we hold that a plaintiff is not required to single out the specific

policymaker in his complaint; instead, a plaintiff need only plead facts that 

show that the defendant or defendants acted pursuant to a specific official 

policy, which was promulgated or ratified by the legally authorized

policymaker. Here, the statutorily authorized policymaker is the Dallas city 

council. Groden pled sufficient facts to show that the city council promulgated 

or ratified the illegal-arrest policy and thus that this policy was attributable to 

the city of Dallas. We further conclude that, in all other relevant respects,

Groden pled a sufficient complaint to survive a dismissal on the pleadings. 

Accordingly, we reverse the 12(b)(6) dismissal of Groden’s Monell claim. 

I.

Groden is the author of several books claiming to reveal the truth behind 

the assassination of President Kennedy. Groden sells his books and magazines 

on the grassy knoll area of Dealey Plaza in Dallas. Groden alleges that his 

sales were legal but nevertheless annoyed a nearby business, the Sixth Floor 

Museum.

In the summer of 2010, a spokesperson for the city of Dallas announced 

that the city planned to “crack down” on vendors selling goods on Dealey Plaza. 

After this announcement, a Dallas police officer, Sergeant Frank Gorka, 

arrested Groden. The city charged Groden with violating Dallas City Code 

§ 32-10, which prohibits selling merchandise in a park. The city courts, 

however, determined that Dealey Plaza is not a park and quashed Groden’s 

indictment; the city appealed, and lost. 

Groden sued the city of Dallas and Gorka under 42 U.S.C. § 1983. 

Groden alleged that the city had adopted a policy—which he termed the 

“crackdown policy”—of arresting vendors in Dealey Plaza despite knowing that 

no law provided probable cause for the arrests; he further alleged that Gorka 

 Case: 15-10073 Document: 00513550017 Page: 2 Date Filed: 06/16/2016
No. 15-10073

3

arrested him pursuant to this crackdown policy. According to Groden, the city 

had adopted the crackdown policy to punish him and other vendors for 

unpopular (but constitutionally protected) speech. The city moved under 

Federal Rule of Civil Procedure 12(b)(6) to dismiss Groden’s claims against the 

city; the district court granted this motion. The suit against Officer Gorka in 

his individual capacity, however, proceeded to trial. The jury returned a 

general verdict for Officer Gorka. After the trial, Groden filed a motion for a 

new trial, which the district court denied. This appeal followed.

II.

We “review de novo a district court’s grant or denial of a Rule 12(b)(6) 

motion to dismiss, accepting all well-pleaded facts as true and viewing those 

facts in the light most favorable to the plaintiff.” Hines v. Alldredge, 783 F.3d 

197, 200–01 (5th Cir. 2015). Municipalities are not liable for the 

unconstitutional actions of their employees under respondeat superior. Monell 

v. Dep’t of Soc. Servs., 436 U.S. 658, 694 (1978). Instead, “[t]o establish 

municipal liability under § 1983, a plaintiff must show that (1) an official policy 

(2) promulgated by the municipal policymaker (3) was the moving force behind 

the violation of a constitutional right.” Peterson v. City of Fort Worth, Tex., 588 

F.3d 838, 847 (5th Cir. 2009).

III.

The district court identified two reasons to dismiss Groden’s Monell

claims against the city. First, the district court dismissed the complaint 

because Groden did not plead the identity of the policymaker of the alleged city 

policy. Second, the district court held that Groden did not plead that the city 

of Dallas adopted an unconstitutional policy or that the policy was the moving 

force behind his constitutional violation. Both of these reasons for dismissal, 

 Case: 15-10073 Document: 00513550017 Page: 3 Date Filed: 06/16/2016
No. 15-10073

4

however, are flawed.2

A.

First, the district court held that Groden is required to plead the specific 

identity of the city policymaker. This holding presents a question of first 

impression: whether a § 1983 claim against a municipality under Monell must 

allege the specific identity of the policymaker.3 Following the clear indication 

 

2 The city argues we need not reach the merits of Groden’s appeal because the jury 

verdict in favor of Officer Gorka blocks Groden from appealing the dismissal of his suit 

against Dallas for the same constitutional violation. The city points out that, according to 

Groden’s complaint, Gorka was the only officer who carried out Dallas’ allegedly 

unconstitutional policy. Thus, if a jury found that Gorka did not violate the Constitution, 

then Dallas could not have violated the Constitution through Gorka. Under the city’s 

reasoning, the jury verdict renders the dismissal of Groden’s claims against the city correct—

even if the dismissal had been erroneous when it occurred. See City of Los Angeles v. Heller, 

475 U.S. 796 (1986) (per curiam). 

As we have said above, the city’s argument is flawed: we do not know whether the jury 

found that Gorka acted constitutionally when arresting Groden. The jury was charged on 

both the constitutional issue and on qualified immunity and subsequently rendered a general 

verdict. We cannot know which issue the jury found to be decisive. Heller’s holding applies 

only when “no issue of qualified immunity was presented to the jury.” Id. at 798. Accordingly, 

the jury’s verdict for Gorka does not prevent Groden from appealing the dismissal of his 

claims against Dallas.

3 Although this is a question of first impression in our circuit, several district courts 

have held that complaints must specifically identify the policymaker. See, e.g., Covington v. 

Covington, No. CIV.A. H-13-3300, 2015 WL 5178078, at *7 (S.D. Tex. Sept. 4, 2015). These 

cases typically cite either other district court opinions or Piotrowski v. City of Houston, 237 

F.3d 567, 578 (5th Cir. 2001). Piotrowski, however, is inapposite—it did not require plaintiffs 

to plead the identity of the policymaker. Instead, it said only that “municipal liability under 

section 1983 requires proof of three elements: a policymaker; an official policy; and a violation 

of constitutional rights whose ‘moving force’ is the policy or custom.” Id. at 578. This

statement is simply an alternative articulation of the familiar requirements for Monell

liability: “(1) an official policy (2) promulgated by the municipal policymaker (3) was the 

moving force behind the violation of a constitutional right.” Peterson, 588 F.3d at 847. 

Moreover, as discussed in the text, the holdings of these district courts are at odds with the 

Supreme Court.

Similarly, some of our sister circuits have, in dicta, gestured towards a requirement 

that plaintiffs plead the identity of the policymaker. But no circuit has held that plaintiffs 

must, as a pleading requirement, identify the policymaker. See Santiago v. Warminster Twp., 

629 F.3d 121, 135 (3d Cir. 2010) (“The dispositive point is that, whether or not Chief Murphy 

is a final policymaker, Santiago has failed to plead facts showing that his plan caused her 

injury.”); Baxter by Baxter v. Vigo Cty. Sch. Corp., 26 F.3d 728, 736 (7th Cir. 1994) (“[W]e can 

discern no sufficiently specific allegation of a policy or custom.”), abrogated on other grounds 

by Guzman v. Sheahan, 495 F.3d 852 (7th Cir. 2007). See also Blue v. District of Columbia, 

 Case: 15-10073 Document: 00513550017 Page: 4 Date Filed: 06/16/2016
No. 15-10073

5

of Supreme Court precedent, we hold no: the specific identity of the 

policymaker is a legal question that need not be pled; the complaint need only 

allege facts that show an official policy, promulgated or ratified by the 

policymaker, under which the municipality is said to be liable.4

The Supreme Court recently addressed the pleading requirements for 

§ 1983 cases in Johnson v. City of Shelby, Miss., 135 S.Ct. 346 (2014) (per 

curiam). In Johnson, this circuit had held that a § 1983 claim should be 

dismissed because the plaintiffs’ complaint did not state the proper legal theory

for the requested relief—the complaint failed to mention § 1983 at all. The 

Supreme Court reversed, saying that the plaintiffs’ complaint “stated simply, 

concisely, and directly events that, they alleged, entitled them to damages from 

the city. Having informed the city of the factual basis for their complaint, they 

were required to do no more to stave off threshold dismissal for want of an 

adequate statement of their claim.” Id. at 347 (emphasis added). Further, the 

Supreme Court held that when a complaint contains sufficient “factual

allegations,” a court should not grant a motion to dismiss “for imperfect 

statement of the legal theory supporting the claim asserted.” Id. at 346

(emphasis original). 

Furthermore, the Supreme Court has repeatedly emphasized that the 

identity of the policymaker is a question of law, not of fact—specifically, a 

question of state law. See, e.g., City of St. Louis v. Praprotnik, 485 U.S. 112, 

124 (1988) (“We begin by reiterating that the identification of policymaking 

 

811 F.3d 14, 20 (D.C. Cir. 2015) (citing dicta in Santiago and Baxter with approval when 

dismissing a case because the plaintiff “never indicated the contours of any type of municipal 

policy”). These off-hand, unspecific, remarks in dicta unaccompanied by analysis do not 

persuade us to disregard the clear language of the Supreme Court.

4 The plaintiff, of course, will name the entity that acted under the policy (here, the 

city of Dallas) as a defendant. This level of identification is fundamental.

 Case: 15-10073 Document: 00513550017 Page: 5 Date Filed: 06/16/2016
No. 15-10073

6

officials is a question of state law.”).5 By combining Praprotnik’s holding that 

the identity of the policymaker is a question of state law with Johnson’s 

holding that courts should not grant motions to dismiss § 1983 cases “for 

imperfect statement of the legal theory,” we see that courts should not grant 

motions to dismiss for failing to plead the specific identity of the policymaker. 

Johnson, 135 S. Ct. at 346. Thus, to survive a motion to dismiss, Groden 

needed only to plead facts—facts which establish that the challenged policy 

was promulgated or ratified by the city’s policymaker. Groden’s complaint did 

not need to supply an answer to the legal question of the specific identity of the 

city’s policymaker under the relevant statutory scheme.6

Our circuit applied this distinction between facts—which must be pled 

in a complaint and, ultimately, proven to a jury—and law in a recent § 1983 

case, Advanced Technology Building Solutions, LLC v. City of Jackson, 

Mississippi, 2016 WL 1009754, at *5 (5th Cir. Mar. 14, 2016). In Advanced 

Technology, the plaintiff alleged that the city of Jackson denied approval to a 

building project that Advanced Technology wished to pursue. Advanced 

Technology further alleged that the mayor caused this project to be denied in 

retaliation for its criticism of the mayor. Advanced Technology contended that 

the mayor’s act of retaliation was itself an unconstitutional policy of the city 

and thus that the city was liable under § 1983. The case was tried to a jury, 

which awarded Advanced Technology $600,000. 

 

5 Sometimes, a court can make this determination by consulting state statutes. Bolton 

v. City of Dallas, Tex., 541 F.3d 545, 550 (5th Cir. 2008) (consulting the Texas Government 

Code to determine the policymaker for Texas cities); Jett v. Dallas Indep. Sch. Dist., 7 F.3d 

1241, 1245 (5th Cir. 1993) (consulting the Texas Educational Code to determine the 

policymaker for Texas school districts). In other cases, courts may need to consult “local 

ordinances and regulations.” Praprotnick, 485 U.S. at 125.

6 Of course, plaintiffs (like defendants) can make legal arguments in their briefs to 

support legal conclusions about the identity of the policymaker if that question is subject to 

non-frivolous dispute. 

 Case: 15-10073 Document: 00513550017 Page: 6 Date Filed: 06/16/2016
No. 15-10073

7

After the trial, however, the city moved for a judgment as a matter of 

law. In considering this motion, the district court consulted state law and 

concluded that the city council—and not the mayor—was the final 

policymaker; consequently, Advanced Technology was not entitled to recovery 

unless it showed that the city council had denied the project. Because all of 

Advanced Technology’s evidence related to the mayor and none related to the 

city council, the district court set aside the jury verdict in favor of the plaintiff

and entered judgment for the city. 

On appeal, Advanced Technology argued that “[b]ased on the facts 

presented at trial, the jury reasonably made the conclusion that [the] Mayor [] 

was acting as a final policymaker.” More pointedly, Advanced Technology 

advocated that the jury should determine the identity of the policymaker. We 

disagreed. We held that the jury’s finding was irrelevant—the only issue was 

whether Mississippi law established that the mayor was the final policymaker. 

Under Mississippi law the city council is the final policymaker; thus, we 

affirmed the judgment as a matter of law. Id. at *4–5 (citing Miss. Code. Ann. 

§ 43-35-33). 

Advanced Technology thus makes clear that identifying the policymaker

is not the role of the jury; instead, the relevant question in Advanced 

Technology was whether the plaintiff had presented enough evidence for the 

jury to conclude that the statutorily authorized policymaker had promulgated 

an unconstitutional policy. Analogously, the question we face today is whether

Groden has pled facts that, read in the light most favorable to Groden, show 

that the statutorily authorized policymaker promulgated an unconstitutional 

policy.7

 

7 As with any question of statutory interpretation, parties, on motion to dismiss a 

complaint, may disagree and brief the issue for the court to determine. But failing to plead

these legal claims is not fatal to the cause of action and does not justify granting a 12(b)(6) 

 Case: 15-10073 Document: 00513550017 Page: 7 Date Filed: 06/16/2016
No. 15-10073

8

To answer this question, we first turn to state law to find out just who is 

the policymaker of the city of Dallas. Here, as is often the case, answering this 

question is a simple matter of consulting our binding precedent: In Bolton, we 

held that under Texas law, the final policymaker for the city of Dallas is the 

Dallas city council. Bolton, 541 F.3d at 550 (citing Texas Local Gov’t Code Ann. 

§ 25.029). Thus, to show that the city of Dallas acted unconstitutionally, 

Groden must show that the city council promulgated or ratified an 

unconstitutional policy. Accordingly, we now face a single question: whether

Groden pled facts that, read in the light most favorable to him, show that the 

city council promulgated or ratified the challenged policy.

We conclude that he did. Groden alleged that the city “publicly 

announced a new policy” of cracking down on vendors in Dealey Plaza and that 

the city’s official “spokesman,” Vincent Golbeck, “gave media interviews 

describing the new policy.” The allegation that an official city spokesperson

announced an official city policy allows for a reasonable pleading inference that 

this crackdown policy was attributable to an official policy made by the 

policymaker of the city (i.e., the city council). As noted above, Groden alleges

further that this crackdown policy authorized the illegal arrests of individuals 

for engaging in annoying speech. Accordingly, Groden has pled sufficient facts 

to suggest, for the purpose of a 12(b)(6) motion, that the city council 

promulgated or ratified the crackdown policy of which he complains.8

B. 

The district court next held that Groden’s Monell claim should be 

 

motion to dismiss.

8 Of course, pleading a complaint sufficient to withstand a 12(b)(6) motion to dismiss 

most certainly does not mean that Groden will ultimately prevail. If, for example, the city 

proves that the city council did not directly or indirectly promulgate the crack-down policy, 

then the city may well be entitled to summary judgment. We express no opinion on the merits 

of this case in any other procedural posture. 

 Case: 15-10073 Document: 00513550017 Page: 8 Date Filed: 06/16/2016
No. 15-10073

9

dismissed because “Groden fail[ed] to plead a facially unconstitutional policy”

and, further, because Groden “fail[ed] to plead that the City’s ordinance was 

the actual cause and ‘moving force’ behind the alleged unconstitutional actions 

of the City’s police officer.” Both of these holdings, however, seem to misread

Groden’s allegations. Groden alleged that the city adopted a new policy to 

“‘crack down’ on vendors in Dealey Plaza.” Groden alleges that this crackdown 

policy—and not any official ordinance—was an unconstitutional policy that 

was the moving force behind his unconstitutional treatment. 

According to Groden’s complaint, this crackdown policy was 

unconstitutional. He alleges that the crackdown policy consisted of arresting

individuals who were not committing any crimes. He further alleges that this 

policy of arresting vendors without probable cause was carried out “to prevent 

vendors . . . from exercising their First Amendment rights” in a way that was 

annoying local businesses. To support this claim, Groden cites emails local 

businesses sent to police complaining of vendors and providing descriptions, 

apparently so police could target those vendors. If the city had a policy of 

arresting people without probable cause in retaliation for annoying-butprotected speech, such a policy would be unconstitutional. See Reichle v. 

Howards, 132 S. Ct. 2088, 2094 (2012). Since Groden has alleged that the city 

had exactly this policy, he successfully alleged that the city had an 

unconstitutional policy, and the district court erred by dismissing his 

complaint on that ground. Further, Groden has pled that Officer Gorka 

arrested him based on this crackdown policy. He thus pled sufficient facts to 

show that the alleged crackdown policy—not the ordinance—was the moving 

force behind the city’s alleged unconstitutional arrest.

Because none of the grounds cited by the district court support granting 

the motion to dismiss, we hold that the district court erred in granting that 

 Case: 15-10073 Document: 00513550017 Page: 9 Date Filed: 06/16/2016
No. 15-10073

10

motion.9

IV.

The district court identified two reasons to dismiss Groden’s complaint

against the city of Dallas. The first reason was founded on an error of law; the 

other was based on an erroneous reading of Groden’s complaint. Accordingly, 

we REVERSE the dismissal of Groden’s complaint against the city of Dallas

and REMAND the case to the district court for proceedings not inconsistent 

with this opinion.

REVERSED and REMANDED.

 

9 Groden also argues that the district court erred by denying his motion for a new trial. 

He contends that he suffered prejudice from the absence of the city of Dallas in his trial 

against Officer Gorka. We find no error in the district court’s denial of this motion.

 Case: 15-10073 Document: 00513550017 Page: 10 Date Filed: 06/16/2016