### IN THE UNI TED STAT ES COURT OF APPEALS

FOR THE FIF TH CIRCU IT

N o

. 0 9

- 4 1 0 7 2

I D E L M A A N A S A E N Z ; Y O L A N D A R A M I R E Z ; G L O R I A S A E N Z

, I n d i v i d u a l l y

a n d a s N e x t F r i e n d o f D i a n a F i g u e r o a ; D I A N A F I G U E R O A ; J E S U S H E N R Y

S A E N Z ; J E S U S S A E N Z

, I n d i v i d u a l l y a n d a s A d m i n i s t r a t o r o f t h e E s t a t e s o f

D o m i n g a S a e n z a n d N e l s o n S a e n z

,

P l a i n t i f f s

- A p p e l l a n t s

v

.

C I T Y O F M C A L L E N ; A R M A N D O H E R N A N D E Z ; H U M B E R T O R E S E N D E Z ;

O R L A N D O O L I V A R E Z ; Y A S S A R H A S S A N

,

D e f e n d a n t s

- A p p e l l e e s

A p p e a l f

r o m t h e U n i t e d S t a t e s D i s t r i c t C o u r t

f o r t h e S o u t h e r n D i s t r i c t o f T e x a s

B e f o r e J O L L Y

, D E M O S S

, a n d D E N N I S

, C i r c u i t J u d g e s

.

P E R C U R I A M : *

A p p e l l a n t s f

i l e d s u i t a g a i n s t t h e C i t y o f M c A l l e n ( t h e C i t y ) a n d t h e

i n d i v i d u a l d e f e n d a n t s ( c o l l e c t i v e l y “ A p p e l l e e s ” ) f o r v i o l a t i o n s o f 4 2 U

. S

. C

. § 1 9 8 3

a n d T e x a s s t a t e l a w

, a r i s i n g f r o m t h e d e a t h s o f D o m i n g a S a e n z a n d N e l s o n

S a e n z

. T h e m a g i s t r a t e j u d g e g r a n t e d t h e A p p e l l e e s ’ m o t i o n s f o r s u m m a r y

j u d g m e n t o n t h e § 1 9 8 3 c l a i m s a n d m o t i o n t o d i s m i s s t h e s t a t e l a w c l a i m s

. U n i te d S ta te s C o u rt o f A p p ea l s

F i ft h C i rc u i t



### F I L E D

Octob er 4, 20 10

Lyle W . Cayce

Clerk

Pursua nt to 5 T H C I R

. R. 47.5

, the cour t has d ete rm ined t hat this op inion s hould not *

be publ ish ed and is not pr ece dent excep t unde r the lim ite d cir cum st ance s se t for th in 5 T H C I R

. R. 47.5 .4. Case: 09-41072 Document: 00511252649 Page: 1 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

A p p e l l a n t s f

i l e d t h i s a p p e a l

. B e c a u s e A p p e l l a n t s ’ t h e o r y o f l i a b i l i t y s u p p o r t i n g

t h e i r § 1 9 8 3 c l a i m s a g a i n s t t h e i n d i v i d u a l p o l i c e o f f i c e r s i s n o t c l e a r l y e s t a b l i s h e d

i n t h i s c i r c u i t

, w e a f

f i r m t h e m a g i s t r a t e j u d g e ’ s g r a n t o f s u m m a r y j u d g m e n t o n

t h e b a s i s o f q u a l i f

i e d i m m u n i t y

. W e a l s o a f f i r m t h e m a g i s t r a t e j u d g e ’ s g r a n t o f

s u m m a r y j u d g m e n t o n A p p e l l a n t s ’ m u n i c i p a l l i a b i l i t y c l a i m s a g a i n s t t h e C i t y

a n d i t s d i s m i s s a l o f A p p e l l a n t s ’ s t a t e l a w c l a i m s

.

I

.

N e l s o n S a e n z

, D o m i n g a ’ s s o n

, h a d a h i s t o r y o f s e r i o u s m e n t a l i l l n e s s a n d

h a d m u r d e r e d h i s w i f e y e a r s a g o

. I n t h e d a y s l e a d i n g u p t o t h e e v e n t s i n 1

q u e s t i o n

, N e l s o n ’ s m e n t a l h e a l t h h a d d e t e r i o r a t e d

. H e h a d a l l e g e d l y s t o p p e d

t a k i n g h i s m e d i c a t i o n

, a c q u i r e d a g u n

, a n d t h r e a t e n e d t o k i d n a p c e r t a i n

m e m b e r s o f h i s f a m i l y

. O n S e p t e m b e r 3

, 2 0 0 5

, I n v e s t i g a t o r A r m a n d o H e r n a n d e z

,

a 1 5

- y e a r v e t e r a n o f t h e C i t y ’ s p o l i c e d e p a r t m e n t

, a n d h i s w i f e

, L i n d a

H e r n a n d e z

, w e n t t o N e l s o n ’ s a p a r t m e n t f o r t h e p u r p o s e o f h a v i n g h i m

c o m m i t t e d

. L i n d a w a s D o m i n g a ’ s n i e c e

. A r m a n d o a n d L i n d a k n e w o f N e l s o n ’ s

2

m e n t a l i l l n e s s

, h i s t o r y o f v i o l e n c e

, a n d d e t e r i o r a t i n g m e n t a l c o n d i t i o n

. A r m a n d o

a t t e m p t e d t o g e t N e l s o n t o c o m e o u t s i d e b u t N e l s o n r e f u s e d a n d b a r r i c a d e d

h i m s e l f i n h i s a p a r t m e n t

, t e l l i n g A r m a n d o t o “ c o m e b a c k n e x t w e e k

. ” A r m a n d o

c a l l e d f o r b a c k u p a n d M c A l l e n p o l i c e o f f i c e r s O l i v a r e z H a s s a n

, H u m b e r t o

Becaus e this cas e involv e s a n app eal fr om a grant of sum mar y judgm ent, we ado pt 1

the App ellant s’ vers ion of the fac ts to the exten t sup por ted by the e v i d e n c e. See Stew ar t v.

Mi ss. T ra nsp

. Com m’

n, 586 F.3d 321

, 327 (5t h Cir

. 2009)

.

There is so me dis cre panc y over t h e cir cum st ance s unde r wh ich the pol ice we re 2

sum mo ned to Nel so n’s apar tm ent. In thei r ope ning brie f, App ellant s ass ert that Arm ando wa s

“re ques ted by the fam ily of Nel so n Saenz to com mi t Nel so n to a me ntal healt h fac ilit y,” cit ing

to Arm ando ’s dep os itio n tes tim ony, beca use “th ey kn ew [Ar man do] ha[d ] been [a] pol ice off icer

wi th the City of Mc Allen for man y years and beca use

. . . Linda [ ] wa s a rela tio n to the fam ily

wi th so me k now led ge o f Nel so n’s pr evious me ntal illne ss violenc e, inclu ding ki lling his w ife

wi th an axe.” Ho w e v er, in the App ellant s’ Or iginal and Ame nded Com plai nts

, App ellant s

allege d that they had cont act ed the pol ice dep art me nt dir ect ly and had no pr ior noti ce that the

He rnand ezes w ere goi ng t o N els on’s ap art me nt.

2 Case: 09-41072 Document: 00511252649 Page: 2 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

R e s e n d e z

, a n d Y a s s a r H a s s a n e v e n t u a l l y a r r i v e d

. A r m a n d o t h e n d e v e l o p e d a

“ p l a n o f a p p r o a c h ” t o e x t r a c t N e l s o n f r o m h i s a p a r t m e n t

. D o m i n g a w o u l d k n o c k

o n N e l s o n ’ s f

r o n t d o o r i n a n a t t e m p t t o c o a x h e r s o n t o c o m e o u t o f h i s a p a r t m e n t

w h i l e t h e p o l i c e o f

f i c e r s w o u l d r e m a i n i n f r o n t o f t h e h o u s e b u t o u t o f N e l s o n ’ s

l i n e o f s i g h t

.

A r m a n d o s u m m o n e d D o m i n g a t o N e l s o n ’ s a p a r t m e n t

. S h e a r r i v e d w i t h h e r

d a u g h t e r s Y o l a n d a R a m i r e z a n d I d e l m a S a e n z

. A r m a n d o r e m o v e d D o m i n g a

f r o m t h e v e h i c l e a n d p u l l e d h e r t o N e l s o n ’ s f r o n t d o o r

, s t a y i n g b e h i n d h e r w h i l e

t h e o t h e r o f

f i c e r s g o t i n t h e “ r e a d y p o s i t i o n

. ” Y o l a n d a

, r e a l i z i n g t h a t D o m i n g a

w a s b e i n g t a k e n t o N e l s o n ’ s d o o r i n o r d e r t o e x t r a c t h i m

, y e l l e d f o r t h e p o l i c e t o

m o v e D o m i n g a a w a y f r o m t h e e n t r a n c e b e c a u s e N e l s o n h a d a g u n

. N e l s o n b e g a n

y e l l i n g p r o f a n i t i e s a t t h e p o l i c e o f f i c e r s

. D o m i n g a a t t e m p t e d t o g e t N e l s o n t o

c o m e o u t o f

h i s a p a r t m e n t

, b u t a f t e r n o r e s p o n s e s h e k n e l t d o w n t o p r a y

. W h e n

D o m i n g a s t a r t e d t o s t a n d

, N e l s o n o p e n e d h i s d o o r a n d s t a r t e d s h o o t i n g

. T h e

p o l i c e o f

f i c e r s r e t u r n e d f

i r e

. B o t h N e l s o n a n d D o m i n g a w e r e k i l l e d i n t h e

e x c h a n g e

. D o m i n g a w a s s h o t e l e v e n t i m e s

. N e l s o n ’ s g u n h e l d o n l y n i n e r o u n d s

.

A p p e l l a n t s s u b m i t t e d e x p e r t t e s t i m o n y e v i d e n c i n g t h a t D o m i n g a w a s s h o t a t

l e a s t f o u r t i m e s b y t h e o f

f i c e r s ’ w e a p o n s

.

A p p e l l a n t s f

i l e d s u i t i n t h e U n i t e d S t a t e s D i s t r i c t C o u r t f o r t h e S o u t h e r n

D i s t r i c t o f T e x a s a g a i n s t t h e i n d i v i d u a l p o l i c e o f f i c e r s p u r s u a n t t o 4 2 U

. S

. C

. §

1 9 8 3 u n d e r t h e “ s t a t e c r e a t e d d a n g e r t h e o r y

, ” a l l e g i n g t h a t t h e p o l i c e o f f i c e r s

k n o w i n g l y c r e a t e d a d a n g e r o u s e n v i r o n m e n t t h a t w o u l d n o t h a v e e x i s t e d b u t f o r

t h e o f f i c e r s ’ a c t i o n s

. A p p e l l a n t s a l s o f i l e d c l a i m s a g a i n s t t h e C i t y p u r s u a n t t o 4 2

U

. S

. C

. § 1 9 8 3

, a l l e g i n g t h a t t h e C i t y p r o m o t e d a “ s h o o t f i r s t

, a s k q u e s t i o n s l a t e r ”

p o l i c y w i t h i n i t s p o l i c e d e p a r t m e n t

, a n d f i l e d T e x a s s t a t e l a w c l a i m s a g a i n s t a l l

A p p e l l e e s f

o r b y s t a n d e r r e c o v e r y a n d v i o l a t i o n s o f t h e T e x a s T o r t s C l a i m s A c t

.

T h e p a r t i e s c o n s e n t e d t o p r o c e e d b e f o r e a m a g i s t r a t e j u d g e

. S e e 2 8 U

. S

. C

. §

6 3 6 ( c ) ( 2 0 0 9 ) ; F E D

. R

. C I V

. P

. 7 3 ( a )

.

3 Case: 09-41072 Document: 00511252649 Page: 3 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

T h e C i t y f

i l e d a m o t i o n t o d i s m i s s

, i n t e r a l i a

, A p p e l l a n t s ’ s t a t e l a w c l a i m s

,

w h i c h w a s g r a n t e d

. A p p e l l e e s f i l e d s e p a r a t e m o t i o n s f o r s u m m a r y j u d g m e n t o n 3

t h e v a r i o u s § 1 9 8 3 c l a i m s

, b o t h o f w h i c h w e r e g r a n t e d

. A p p e l l a n t s t i m e l y

a p p e a l e d

.

I I

.

T h i s c o u r t r e v i e w s t h e g r a n t o f s u m m a r y j u d g m e n t b a s e d o n q u a l i f i e d

i m m u n i t y d e n o v o

, a p p l y i n g t h e s a m e s t a n d a r d a s t h e m a g i s t r a t e j u d g e

. S e e

M o n g r u e v

. M o n s a n t o C o

. , 2 4 9 F

. 3 d 4 2 2

, 4 2 8 ( 5 t h C i r

. 2 0 0 1 ) ; F E D

. R

. C I V

. P

. 5 6

.

S e c t i o n 1 9 8 3 p r o v i d e s a c a u s e o f a c t i o n f o r i n d i v i d u a l s w h o h a v e b e e n

“ d e p r i v [ e d ] o f

a n y r i g h t s

, p r i v i l e g e s

, o r i m m u n i t i e s s e c u r e d b y t h e C o n s t i t u t i o n

a n d l a w s ” o f t h e U n i t e d S t a t e s b y a p e r s o n o r e n t i t y a c t i n g u n d e r c o l o r o f s t a t e

l a w

. 4 2 U

. S

. C

. § 1 9 8 3 ( 2 0 0 3 )

. T h e d o c t r i n e o f q u a l i f i e d i m m u n i t y p r o t e c t s

g o v e r n m e n t o f

f i c i a l s f r o m l i a b i l i t y f

o r c i v i l d a m a g e s i n s o f a r a s t h e i r c o n d u c t ( 1 )

d o e s n o t v i o l a t e a c o n s t i t u t i o n a l r i g h t a n d ( 2 ) w a s n o t o b j e c t i v e l y u n r e a s o n a b l e

i n l i g h t o f c l e a r l y e s t a b l i s h e d l a w a t t h e t i m e o f t h e v i o l a t i o n

. P e a r s o n v

.

C a l l a h a n

, 1 2 9 S

. C t

. 8 0 8

, 8 1 5

- 1 6 ( 2 0 0 9 )

. T h i s c o u r t m a y a d d r e s s e i t h e r p r o n g

f i r s t

. I d

. a t 8 1 8 ( o v e r r u l i n g i n p a r t S a u c i e r v

. K a t z

, 5 3 3 U

. S

. 1 9 4 ( 2 0 0 1 ) )

.

A

.

W h e n d e t e r m i n i n g w h e t h e r a c o n s t i t u t i o n a l r i g h t w a s c l e a r l y e s t a b l i s h e d

,

t h i s c o u r t a s k s w h e t h e r t h e r i g h t w a s c l e a r l y e s t a b l i s h e d a t t h e t i m e o f t h e

c o n d u c t

, w h i c h f

o r t h i s m a t t e r i s 2 0 0 5

. S e e L y t l e v

. B e x a r C n t y

. , T e x

. , 5 6 0 F

. 3 d

4 0 4

, 4 1 7 ( 5 t h C i r

. 2 0 0 9 )

. A r i g h t i s c l e a r l y e s t a b l i s h e d w h e n “ t h e c o n t o u r s o f t h e

r i g h t [ a r e ] s u f

f i c i e n t l y c l e a r [ s u c h ] t h a t a r e a s o n a b l e o f f i c i a l w o u l d u n d e r s t a n d

t h a t w h a t h e i s d o i n g v i o l a t e s t h a t r i g h t

. ” W e r n e c k e v

. G a r c i a

, 5 9 1 F

. 3 d 3 8 6

, 3 9 2

( 5 t h C i r

. 2 0 0 9 ) ( q u o t a t i o n s a n d c i t a t i o n o m i t t e d )

. O u r i n q u i r y f o c u s e s o n w h e t h e r

t h e o f f i c i a l s w e r e o n n o t i c e t h a t t h e i r c o n d u c t v i o l a t e s c l e a r l y e s t a b l i s h e d l a w

T h e ma gist rat e judge als o dis mi ss ed App elle es ’ st ate law clai ms agains t the in di v id u a l 3

def enda nts w hich has no t been app ealed

.

4 Case: 09-41072 Document: 00511252649 Page: 4 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

a n d t h a t t h e s t a t e o f t h e l a w p r o v i d e d f a i r w a r n i n g t h a t t h e i r c o n d u c t w a s

u n c o n s t i t u t i o n a l

. S e e H o p e v

. P e l z e r

, 5 3 6 U

. S

. 7 3 0

, 7 4 0

- 4 1 ( 2 0 0 2 )

. “ [ A ]

d e f e n d a n t ’ s a c t s a r e h e l d t o b e o b j e c t i v e l y r e a s o n a b l e u n l e s s a l l r e a s o n a b l e

o f f i c i a l s i n t h e d e f e n d a n t ’ s c i r c u m s t a n c e s w o u l d h a v e t h e n k n o w n t h a t t h e

d e f e n d a n t ’ s c o n d u c t v i o l a t e d t h e U n i t e d S t a t e s C o n s t i t u t i o n o r t h e f e d e r a l

s t a t u t e a s a l l e g e d b y t h e p l a i n t i f f

. ” T h o m p s o n v

. U

p s h u r C n t y

. , T

e x

. , 2 4 5 F

. 3 d

4 4 7

, 4 5 7 ( 5 t h C i r

. 2 0 0 1 ) ( e m p h a s i s i n o r i g i n a l )

.

A p p e l l a n t s a l l e g e a “ s t a t e c r e a t e d d a n g e r t h e o r y ” a s t h e b a s i s o f l i a b i l i t y

f o r t h e i r § 1 9 8 3 c l a i m s a g a i n s t t h e i n d i v i d u a l d e f e n d a n t s

. G e n e r a l l y

, “ a s t a t e

o f f i c i a l h a s n o c o n s t i t u t i o n a l d u t y t o p r o t e c t a n i n d i v i d u a l f r o m p r i v a t e v i o l e n c e

. ”

M c C l e n d o n v

. C i t y o f C o l u m b i a

, 3 0 5 F

. 3 d 3 1 4

, 3 2 4 ( 5 t h C i r

. 2 0 0 2 ) ( e n b a n c ) ( p e r

c u r i a m ) ( c i t i n g D e S h a n e y v

. W i n n e b a g o C n t y

. D e p ’ t o f S o c

. S e r v s

. , 4 8 9 U

. S

. 1 8 9

,

1 9 7 ( 1 9 8 9 ) )

. H o w e v e r

, t h e S u p r e m e C o u r t h a s h e l d t h a t w h e r e t h e s t a t e

,

“ t h r o u g h t h e a f

f i r m a t i v e e x e r c i s e o f i t s p o w e r s

, a c t s t o r e s t r a i n a n i n d i v i d u a l ’ s

f r e e d o m

. . . ‘ t h r o u g h i n c a r c e r a t i o n

, i n s t i t u t i o n a l i z a t i o n

, o r o t h e r s i m i l a r

r e s t r a i n t o f p e r s o n a l l i b e r t y

, ’ t h e s t a t e c r e a t e s a ‘ s p e c i a l r e l a t i o n s h i p ’ b e t w e e n

t h e i n d i v i d u a l a n d t h e s t a t e w h i c h i m p o s e s u p o n t h e s t a t e a c o n s t i t u t i o n a l d u t y

t o p r o t e c t t h a t i n d i v i d u a l f r o m d a n g e r s

, i n c l u d i n g

, i n c e r t a i n c i r c u m s t a n c e s

,

p r i v a t e v i o l e n c e

. ” I

d

. ( q u o t i n g D e S h a n e y

, 4 8 9 U

. S

. a t 2 0 0 )

. S o m e c i r c u i t c o u r t s

h a v e r e a d D e S h a n e y t o i m p l y a s e c o n d e x c e p t i o n

, t h e s t a t e c r e a t e d d a n g e r

t h e o r y

, t o t h e g e n e r a l r u l e a g a i n s t s t a t e l i a b i l i t y f o r p r i v a t e v i o l e n c e

. I n t h i s 4

See, e .g.

, Ok in v. Vi ll age of Cornw al l- On -H udson Poli ce De p’t

, 577 F.3d 415, 434- 35 4

(2d Cir. 2009) ; Wad del l v. He ndry Cnty. Sheri ff ’s Of fi ce

, 329 F.3d 1300, 1306 -07 (11t h Cir.

20 0 3 ) ; R u i z v. Mc Do nnel l

, 299 F.3d 1173, 1182- 84 (10t h Cir. 2002) ; Kal ls trom v. City of

Colum bus

, 136 F.3d 1055, 1066- 67 (6t h Cir. 1998) ; Knei pp v. Tedd er

, 95 F.3d 1199, 1201, 1208

(3d Cir. 1996) ; Ree d v. Ga rdne r

, 986 F.2d 1122, 1 1 2 5 (7t h Cir. 1993) ; Free ma n v. Fergus on

, 911 F.2d 52, 54-55 (8t h Cir. 1990) ; Wood v. Os trande r

, 879 F.2d 583, 589- 90 (9t h Cir. 1989) ;

Butera v. Di st. of Colu m b i a

, 235 F.3d 637, 651 (D .C. Cir. 2001) ; but see Ve le z- Di az v. Ve gaIriz ar ry

, 421 F.3d 71, 80 & n.3 (1s t Cir. 2005) (no ting that the Firs t Circ uit has dis cus se d the

st ate cre ated danger theo ry but never fou n d i t act ionabl e on the fac ts allege d) (quo tat ions

om itt ed) ; Pinde r v. Johns on

, 54 F.3d 1169, 1175 (4t h Cir. 1995) (f indi ng that the st ate cre ated

5 Case: 09-41072 Document: 00511252649 Page: 5 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

c i r c u i t

, t h e a v a i l a b i l i t y o f t h e s t a t e c r e a t e d d a n g e r t h e o r y a s t h e b a s i s o f l i a b i l i t y

f o r a § 1 9 8 3 c l a i m i s f a r l e s s c e r t a i n

. I n L e f f a l l v

. D a l l a s I

n d e p e n d e n t S c h o o l

D i s t r i c t

, 2 8 F

. 3 d 5 2 1

, 5 3 0

- 3 2 ( 5 t h C i r

. 1 9 9 4 )

, t h i s c o u r t d i s c u s s e d t h e s t a t e

c r e a t e d d a n g e r t h e o r y a n d s e t f o r t h t h e e l e m e n t s n e c e s s a r y t o e s t a b l i s h t h e

c l a i m a s a b a s i s f

o r l i a b i l i t y

, b u t u l t i m a t e l y h e l d t h a t e v e n i f t h e s t a t e

- c r e a t e d

d a n g e r t h e o r y w a s c o n s t i t u t i o n a l l y s o u n d

, t h e p l a i n t i f f f a i l e d t o m e e t t h e

n e c e s s a r y e l e m e n t s

. S u b s e q u e n t § 1 9 8 3 c a s e s p r e d i c a t e d o n t h e s t a t e c r e a t e d

d a n g e r t h e o r y s i m i l a r l y p r e t e r m i t t h e i s s u e

. 5

O n t w o o c c a s i o n s t h i s c o u r t e x p l i c i t l y a d o p t e d t h e s t a t e c r e a t e d d a n g e r

t h e o r y b u t w a s u l t i m a t e l y r e v e r s e d

. S e e M c C l e n d o n

, 2 5 8 F

. 3 d a t 4 3 6 ( n o t i n g t h a t

t h e F i f t h C i r c u i t h a d “ c o n t i n u e d t o r e c o g n i z e t h e e x i s t e n c e o f t h e t h e o r y ” a n d

t h u s a p p l y i n g t h e t h e o r y )

, r e v ’ d e n b a n c

, 3 0 5 F

. 3 d a t 3 2 5 ( h o l d i n g t h a t “ n e i t h e r

t h i s c o u r t n o r t h e S u p r e m e C o u r t h a s y e t d e t e r m i n e d w h e t h e r a c i t i z e n h a s a

danger t heor y d id not app ly ab se nt a c ust odi al rela tio nshi p)

.

See, e. g., Bustos v. Ma rtini Club, Inc.

, 599 F.3d 458, 466 (5t h Cir. 2010) (“ [T] his cir cuit 5

has no t ado pt ed the st ate- cre ated danger theo ry.” ); Luev ano v. Ge yer

, 355 F. App ’x 834, 836

(5t h Cir. 2009) (“ We ha v e r epe ated ly dec lined to rule on wh ethe r the st ate- cre ated danger

theo ry app lies in this Circ uit, but have fou nd that even if it did app ly, it wo uld not allow

rec overy for the plai ntif f unde r the fac ts of the cas e at hand. ”) ; Ha le v. Bexa r Cnty., Tex

. , 342

F. App ’x 921, 925- 27 (5t h Cir. 2009) (d ecli ning to app l y t h e st ate cre ated danger theo ry

beca use this cour t had never expr es sly done so and even if availabl e the plai ntif f had not me t

the elem ents of the clai m) ; Leste r v. City of Coll ege Station

, 103 F. App ’x. 814, 814- 816 (5t h Cir.

2004) (“ [T] his cour t has neit her ado p t e d nor acc ept ed the st ate- cre ated -d anger theo ry of

liabil ity. ”) ; Gr een e v. Pla no Indep. Sch. Di st.

, 103 F. App ’x 542, 543- 544, & n.3 (5t h Cir. 2004)

(“ This Court

. . . has never he l d that the st ate cre ated danger theo ry is one of the lim ite d

cir cum st an c e s that wo uld ris e to the level of a due pr oce ss cons tit utio nal violat ion

cont em plat ed in De Shane y .” ); Riv era v. Ho uston Indep. Sch. Di st

., 349 F.3d 244, 249 (5t h Cir.

2003) (“ We have never rec ognized st ate- cre ated danger as a tri gger of Sta te aff irm ative dut ies

unde r the Du e Proc es s clause

. . . .We again dec line to do so.” ); Piotr ow ski v. City of Ho uston

, 237 F.3d 567, 584- 85 (5t h Cir. 2001) (r eco gnizing that the st ate cre ated danger theo ry had not

been expli cit ly ado pt ed by this cour t and dec lining to do so in that mat ter beca use plai ntif f had

not me t the elem ents of the theo ry); Rand olp h v. Cerv antes

, 130 F.3d 727, 731 (5t h Cir. 1997)

(s ame ); Do e v. Hi ll sbor o Indep. Sch. Di st.

, 113 F

. 3 d 1 4 1 2, 1415 (5t h Cir. 1997) (en banc)

(s ame ); see al so Walton v. Al exa nder

, 44 F.3d 1297, 1306 (5t h Cir. 1995) (ho ldi ng that abs ent

a sp ecia l rela tio nshi p betw een the st ate act o r a n d the indi vidual

, the “s tat e has no duty to

pr ote ct nor liabil ity f r o m f a i l i n g to pr ote ct a per so n unde r the due pr oce ss claus e of the

Fourt eent h Am endm ent fr om vio lenc e a t the hands of a pr ivate act or” ) (em phas is add ed)

.

6 Case: 09-41072 Document: 00511252649 Page: 6 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

c o n s t i t u t i o n a l r i g h t t o b e f r e e f r o m s t a t e

- c r e a t e d d a n g e r s ” a n d b e c a u s e t h e

p l a i n t i f f f a i l e d t o e s t a b l i s h t h e n e c e s s a r y e l e m e n t s o f t h e t h e o r y i t w o u l d n o t

a p p l y e v e n i f a v a i l a b l e ) ; B r e e n v

. T e x

. A & M U n i v

. , 4 8 5 F

. 3 d 3 2 5

, 3 3 7 ( 5 t h C i r

.

2 0 0 7 ) ( h o l d i n g t h a t t h e s t a t e c r e a t e d d a n g e r t h e o r y w a s “ a v a l i d b a s i s f o r a c l a i m

o n t h e s e t o f f a c t s a l l e g e d ” )

, r e v ’ d

, 4 9 4 F

. 3 d 5 1 6 ( 5 t h C i r

. 2 0 0 7 ) ( g r a n t i n g

r e h e a r i n g s u a s

p o n t e a n d i s s u i n g a s u b s e q u e n t o p i n i o n o m i t t i n g d i s c u s s i o n o f

s t a t e c r e a t e d d a n g e r t h e o r y ) ; s e e a l s o R i v e r a v

. H o u s t o n I n d e p

. S c h

. D i s t

. , 3 4 9

F

. 3 d 2 4 4

, 2 4 9 n

. 5 ( 5 t h C i r

. 2 0 0 3 ) ( r e c o g n i z i n g t h a t t h e p a n e l ’ s d e c i s i o n i n

M c C l e n d o n “ w a s v a c a t e d a n d w i t h i t o u r r e c o g n i t i o n o f t h e [ s t a t e c r e a t e d d a n g e r ]

t h e o r y ” )

. T h u s

, t h i s c o u r t ’ s s t a n c e o n t h e s t a t e c r e a t e d d a n g e r t h e o r y a s a b a s i s

o f l i a b i l i t y f

o r a § 1 9 8 3 c l a i m i s u n c e r t a i n

.

F u r t h e r

, w e h a v e f

o u n d t h a t t h e s t a t e c r e a t e d d a n g e r t h e o r y w a s n o t

c l e a r l y e s t a b l i s h e d f

o r c o n d u c t t h a t o c c u r r e d i n 1 9 9 3

. S e e M c C l e n d o n

, 3 0 5 F

. 3 d

a t 3 3 2

- 3 3

. M o r e r e c e n t l y t h i s c o u r t h a s h e l d t h a t t h e s t a t e c r e a t e d d a n g e r t h e o r y

i s “ n o t c l e a r l y e s t a b l i s h e d l a w w i t h i n t h i s c i r c u i t s u c h t h a t a § 1 9 8 3 c l a i m b a s e d

o n t h i s t h e o r y c o u l d b e s u s t a i n e d ” f o r a n i n c i d e n t t h a t o c c u r r e d i n 2 0 0 6

. S e e

W a l k e r v

. L i v i n g s t o n

, N o

. 0 9

- 2 0 5 0 8

, 2 0 1 0 W L 2 4 6 5 0 3 5

, * 2 ( 5 t h C i r

. J u n e 1 7

,

2 0 1 0 ) ( u n p u b l i s h e d ) ( c i t i n g M o r i n v

. M o o r e

, 3 0 9 F

. 3 d 3 1 6

, 3 2 1 ( 5 t h C i r

. 2 0 0 2 ) )

.

A l t h o u g h t h i s c o u r t m a y c o n s i d e r t h e l a w o f o t h e r c i r c u i t s w h e n

d e t e r m i n i n g w h e t h e r a c o n s t i t u t i o n a l r i g h t i s c l e a r l y e s t a b l i s h e d

, “ [ t ] h e

r e l u c t a n c e o f t h i s c o u r t

. . . t o e m b r a c e s o m e v e r s i o n o f t h e s t a t e

- c r e a t e d d a n g e r

t h e o r y d e s p i t e n u m e r o u s o p p o r t u n i t i e s t o d o s o s u g g e s t s t h a t

, r e g a r d l e s s o f t h e

s t a t u s o f t h i s d o c t r i n e i n o t h e r c i r c u i t s

, a r e a s o n a b l e o f f i c e r i n t h i s c i r c u i t w o u l d

,

e v e n [ i n 2 0 0 2 ]

, b e u n c l e a r a s t o w h e t h e r t h e r e i s a r i g h t t o b e f r e e f r o m

‘ s t a t e

- c r e a t e d d a n g e r

. ’ ” M c C l e n d o n

, 3 0 5 F

. 3 d a t 3 3 2 n

. 1 2

. “ [ T ] h i s c i r c u i t i s

l i t t e r e d w i t h o p i n i o n s e x p r e s s i n g v a r y i n g l e v e l s o f s k e p t i c i s m

. ” I d

. T h i s c i r c u i t ’ s

h o l d i n g s o n t h e v i a b i l i t y o f t h e s t a t e c r e a t e d d a n g e r t h e o r y f o l l o w i n g M c C l e n d o n

d o n o t m a k e i t s p o s i t i o n a n y c l e a r e r

. S e e

, e

. g

. , R i o s v

. C i t y o f D e l R i o

, T e x

. , 4 4 4

7 Case: 09-41072 Document: 00511252649 Page: 7 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

F

. 3 d 4 1 7

, 4 2 2

- 2 3 ( 5 t h C i r

. 2 0 0 6 ) ( “ [ N ] e i t h e r t h e S u p r e m e C o u r t n o r t h i s c o u r t

h a s e v e r e i t h e r a d o p t e d t h e s t a t e

- c r e a t e d d a n g e r t h e o r y o r s u s t a i n e d a r e c o v e r y

o n t h e b a s i s t h e r e o f

. W e h a v e

, h o w e v e r

, m a n y t i m e s r e f u s e d t o a l l o w r e c o v e r y

s o u g h t t o b e p r e d i c a t e d t h e r e u n d e r

. ” ) ; L o n g o r i a v

. T e x a s

, 4 7 3 F

. 3 d 5 8 6

, 5 9 3 n

. 8

( 5 t h C i r

. 2 0 0 6 ) ( “ S i n c e [ 2 0 0 3 ]

, w e h a v e e x p l i c i t l y r e j e c t e d [ t h e s t a t e c r e a t e d

d a n g e r ] t h e o r y o f l i a b i l i t y

. ” ) ; H e r n a n d e z e x r e l

. H e r n a n d e z v

. T e x

. D e p ’ t

. o f

P r o t e c t i v e a n d R e g u l a t o r y S e r v s

. , 3 8 0 F

. 3 d 8 7 2

, 8 8 0 n

. 1 ( 5 t h C i r

. 2 0 0 4 ) ( “ W e

e m p h a s i z e t h a t o u r c o u r t h a s n o t y e t d e t e r m i n e d w h e t h e r a s t a t e o f f i c i a l h a s a

. . . d u t y t o p r o t e c t i n d i v i d u a l s f r o m s t a t e

- c r e a t e d d a n g e r s

. ” ) ( q u o t a t i o n a n d

c i t a t i o n o m i t t e d ) ; B e l t r a n v

. C i t y o f E l P a s o

, 3 6 7 F

. 3 d 2 9 9

, 3 0 7 ( 5 t h C i r

. 2 0 0 4 )

( “ T h i s c o u r t h a s c o n s i s t e n t l y r e f u s e d t o r e c o g n i z e a ‘ s t a t e

- c r e a t e d d a n g e r ’ t h e o r y

o f § 1 9 8 3 l i a b i l i t y e v e n w h e r e t h e q u e s t i o n o f t h e t h e o r y ’ s v i a b i l i t y h a s b e e n

s q u a r e l y p r e s e n t e d

. ” )

.

“ [ Q ] u a l i f

i e d i m m u n i t y s h o u l d b e g r a n t e d ‘ i f a r e a s o n a b l e o f f i c i a l w o u l d b e

l e f t u n c e r t a i n o f t h e l a w ’ s a p p l i c a t i o n t o t h e f a c t s c o n f r o n t i n g h i m

. ’ ” M c C l e n d o n

,

3 0 5 F

. 3 d a t 3 3 2 ( q u o t i n g S a l a s v

. C a r p e n t e r

, 9 8 0 F

. 2 d 2 9 9

, 3 1 1 ( 5 t h C i r

. 1 9 9 2 )

( c i t a t i o n o m i t t e d )

. T h e s t a t e c r e a t e d d a n g e r t h e o r y h a s n o t b e e n a p p l i e d i n t h i s

c i r c u i t w i t h “ o b v i o u s c l a r i t y ” t o t h e s p e c i f i c c o n d u c t i n q u e s t i o n s u c h t h a t a

r e a s o n a b l e o f

f i c e r w o u l d b e a w a r e t h a t h i s a c t i o n s w e r e u n l a w f u l

. S e e i d

.

B e c a u s e t h e s t a t e c r e a t e d d a n g e r t h e o r y a s a b a s i s o f l i a b i l i t y w a s n o t c l e a r l y

e s t a b l i s h e d a t t h e t i m e t h e i n c i d e n t o c c u r r e d

, t h e i n d i v i d u a l d e f e n d a n t s a r e

e n t i t l e d t o q u a l i f

i e d i m m u n i t y

. 6

App ellant s ass ert ed in thei r com plai nts and app ellat e brie fs

, and conc ede d at oral 6

argum ent, that thei r clai m wa s brou ght pur sua nt to De S h a n e y v

. Win neba

go Cnty. De

p’t of

Soc. Se rv s

., 489 U.S . 189 (19 89). Appel lants now alle ge a seco nd bas is f or liabil ity unde r the

“s pec ial rela tio nshi p” t heor y. Becaus e App ellant s rais e the “s pec ial rela tio nshi p” theo ry of

l i a b i l ity for the fir st tim e on app eal, this cour t wi ll not cons ide r them

. See Stew ar t Gl as s &

Mi rro r, Inc. v. U. S. Auto Gla ss Dis c. Ctrs.

, Inc

., 200 F.3d 307, 316- 17 (5t h Cir. 2000) (ho ldi ng

that t his c ourt d oes no t cons ide r clai ms no t rais ed bef ore t he dis tri ct cour t)

.

8 Case: 09-41072 Document: 00511252649 Page: 8 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

B

.

A p p e l l a n t s a l s o a p p e a l t h e m a g i s t r a t e j u d g e ’ s g r a n t o f s u m m a r y j u d g m e n t

t o t h e C i t y o n t h e b a s i s o f q u a l i f i e d i m m u n i t y

. A m u n i c i p a l i t y i s a “ p e r s o n ”

s u b j e c t t o s u i t u n d e r § 1 9 8 3

. S e e M o n e l l v

. D e p ’ t o f S o c

. S e r v s

. o f t h e C i t y o f N e w

Y o r k

, 4 3 6 U

. S

. 6 5 8

, 6 9 0 ( 1 9 7 8 )

. “ [ M ] u n i c i p a l l i a b i l i t y u n d e r s e c t i o n 1 9 8 3 r e q u i r e s

p r o o f o f t h r e e e l e m e n t s : a p o l i c y m a k e r ; a n o f f i c i a l p o l i c y ; a n d a v i o l a t i o n o f

c o n s t i t u t i o n a l r i g h t s w h o s e ‘ m o v i n g f o r c e ’ i s t h e p o l i c y o r c u s t o m

. ” P i o t r o w s k i v

.

C i t y o f H o u s t o n

, 2 3 7 F

. 3 d 5 6 7

, 5 7 8 ( 5 t h C i r

. 2 0 0 1 ) ( c i t a t i o n o m i t t e d )

. “ M u n i c i p a l

l i a b i l i t y r e q u i r e s d e l i b e r a t e a c t i o n a t t r i b u t a b l e t o t h e m u n i c i p a l i t y t h a t i s t h e

d i r e c t c a u s e o f t h e a l l e g e d c o n s t i t u t i o n a l v i o l a t i o n

. ” Z a r n o w v

. C i t y o f W i c h i t a

F a l l s

, T e x

. , — F

. 3 d

— , 2 0 1 0 W L 3 0 9 3 4 4 3

, * 3 ( 5 t h C i r

. A u g u s t 9

, 2 0 1 0 ) ( c i t i n g

C i t y o f C a n t o n

, O h i o v

. H a r r i s

, 4 8 9 U

. S

. 3 7 8

, 3 9 1

- 9 2 ( 1 9 8 9 ) )

.

A p p e l l a n t s a s s e r t t h a t t h e C i t y “ r a t i f i e d a n d a p p r o v e d ” t h e a c t i o n s o f t h e

i n d i v i d u a l d e f e n d a n t s b y w a y o f i t s d e t e r m i n a t i o n

, f o l l o w i n g a r e v i e w o f t h e

i n c i d e n t

, t h a t t h e p o l i c e o f f i c e r s d i d n o t “ b r e a c h [ ] ” a n y C i t y p o l i c e d e p a r t m e n t

r u l e s

. T h e m a g i s t r a t e j u d g e h e l d t h a t A p p e l l a n t s ’ r e s p o n s e t o t h e C i t y ’ s m o t i o n

f o r s u m m a r y j u d g m e n t o n t h i s p o i n t w a s “ v a g u e

, ” a n d b e c a u s e A p p e l l a n t s f a i l e d

t o e s t a b l i s h a c a u s a l l i n k b e t w e e n t h e d e p a r t m e n t ’ s a l l e g e d p o l i c y a n d t h e

c o n s t i t u t i o n a l v i o l a t i o n

, t h e C i t y w a s e n t i t l e d t o q u a l i f i e d i m m u n i t y

.

“ I f t h e a u t h o r i z e d p o l i c y m a k e r s a p p r o v e a s u b o r d i n a t e ’ s d e c i s i o n a n d t h e

b a s i s f o r i t

, t h e i r r a t i f

i c a t i o n w o u l d b e c h a r g e a b l e t o t h e m u n i c i p a l i t y b e c a u s e

t h e i r d e c i s i o n i s f

i n a l

. ” C i t y o f S t

. L o u i s v

. P r a p r o t n i k

, 4 8 5 U

. S

. 1 1 2

, 1 2 7 ( 1 9 8 8 )

.

M o r e o v e r

, “ a p o l i c y m a k e r w h o d e f e n d s c o n d u c t t h a t i s l a t e r s h o w n t o b e

u n l a w f u l d o e s n o t n e c e s s a r i l y i n c u r l i a b i l i t y o n b e h a l f o f t h e m u n i c i p a l i t y

. ”

P e t e r s o n v

. C i t y o f F o r t W o r t h

, T e x

. , 5 8 8 F

. 3 d 8 3 8

, 8 4 8 ( 5 t h C i r

. 2 0 0 9 ) ( c i t i n g

C o o n v

. L e d b e t t e r

, 7 8 0 F

. 2 d 1 1 5 8

, 1 1 6 1

- 6 2 ( 5 t h C i r

. 1 9 8 6 ) )

. A p p e l l a n t s h a v e n o t

e s t a b l i s h e d a g e n u i n e i s s u e o f m a t e r i a l f a c t a s t o w h e t h e r t h e C i t y ’ s r e v i e w o f t h e

o f f i c e r s ’ c o n d u c t v i o l a t e d d e p a r t m e n t r u l e s r i s e s t o t h e l e v e l o f r a t i f i c a t i o n s u c h

9 Case: 09-41072 Document: 00511252649 Page: 9 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

t h a t t h e C i t y i s l i a b l e f o r t h e o f

f i c e r s ’ c o n d u c t

. T h u s

, t h e C i t y i s e n t i t l e d t o

q u a l i f i e d i m m u n i t y

. 7

I I I

.

F i n a l l y

, A p p e l l a n t s a s s e r t t h a t t h e m a g i s t r a t e j u d g e e r r e d i n d i s m i s s i n g

t h e i r T e x a s s t a t e l a w c l a i m s a g a i n s t t h e C i t y

. T h i s c o u r t r e v i e w s d e n o v o a R u l e

1 2 ( b ) ( 6 ) d i s m i s s a l

. S e e L i n d q u i s t v

. C i t y o f P a s a d e n a

, T e x

. , 5 2 5 F

. 3 d 3 8 3

, 3 8 6

( 5 t h C i r

. 2 0 0 8 )

. T h e i n t e r p r e t a t i o n o f a s t a t u t e i s a q u e s t i o n o f l a w w e a l s o

r e v i e w d e n o v o

. S e e M o t i e n t C o r p

. v

. D o n d e r o

, 5 2 9 F

. 3 d 5 3 2

, 5 3 5 ( 5 t h C i r

. 2 0 0 8 )

.

U n d e r t h e d o c t r i n e o f s o v e r e i g n i m m u n i t y

, a u n i t o f s t a t e g o v e r n m e n t i s

i m m u n e f

r o m s u i t a n d l i a b i l i t y u n l e s s t h e S t a t e h a s w a i v e d i m m u n i t y

. T o o k e v

.

C i t y o f M e x i a

, 1 9 7 S

. W

. 3 d 3 2 5

, 3 3 2 ( T e x

. 2 0 0 6 )

. T h e m a g i s t r a t e j u d g e p r o p e r l y

d i s m i s s e d A p p e l l a n t s ’ c l a i m s f o r r e l i e f p u r s u a n t t o T e x a s C i v i l P r a c t i c e &

R e m e d i e s C o d e § 7 1

. 0 0 2

, a s t h a t s t a t u t e d o e s n o t w a i v e g o v e r n m e n t a l i m m u n i t y

.

S e e T E X

. C I V

. P R A C

. & R E M

. C O D E A N N

. § 7 1

. 0 0 1

- 0 0 2 ( W e s t 2 0 0 3 ) ( p e r m i t t i n g

l i a b i l i t y f

o r “ p e r s o n s

, ” d e f

i n e d a s “ a n i n d i v i d u a l

, a s s o c i a t i o n o f i n d i v i d u a l s

,

j o i n t

- s t o c k c o m p a n y

, o r c o r p o r a t i o n o r a t r u s t e e o r r e c e i v e r o f a n i n d i v i d u a l

,

a s s o c i a t i o n o f i n d i v i d u a l s

, j o i n t

- s t o c k c o m p a n y

, o r c o r p o r a t i o n

. ” )

. 8

App ellant s als o rais ed mun icip al liabil ity clai ms bas ed on the City ’ s allege d “s hoot 7

fir st ask ques tio ns late r” pol icy and allege d fai lure to tra in its pol ice off icer s a n d a dop t

dep art me nt pol icie s on the pr ope r wa y to ha n d l e s i t u a tio ns involving me ntall y ill per so ns.

Becaus e App ellant s fai led to r a i s e its clai m agains t the City’s pol icy on app eal, we dee m it

for fei ted

. See Da vi s v. Ma ggio

, 706 F.2d 568, 571 (5t h Cir. 1 9 8 3 ) ( “ Claim s not pr es se d on

app eal are dee me d a b a ndon ed. ”)

. App ellant s’ allegat ions that the City fai led to tra in and

ado pt app rop riat e pol icie s were rais ed for the fir st tim e on app eal and are lik ew ise for fei ted

. See Stew ar t G la ss & M ir ror

, 200 F.3d at 316 -17.

App el l a n t s a l s o fil ed st ate law clai ms agains t the City pur sua nt to the Texas Tort 8

Claim s Act. App ellant s mak e no argum ent on app eal as to the magis tra te judge’ s d i s m i ss al

of thes e c laim s. As s uch, t hey h ave b een for fei ted

. See Da vi s

, 706 F.2d at 571

.

1 0 Case: 09-41072 Document: 00511252649 Page: 10 Date Filed: 10/04/2010N o

. 0 9

- 4 1 0 7 2

I V

.

F o r t h e f

o r e g o i n g r e a s o n s

, t h e m a g i s t r a t e j u d g e ’ s g r a n t o f s u m m a r y

j u d g m e n t a s t o a l l A p p e l l e e s a n d g r a n t o f t h e C i t y ’ s m o t i o n t o d i s m i s s i s

a f f i r m e d

.

A F F I R M E D

.

1 1 Case: 09-41072 Document: 00511252649 Page: 11 Date Filed: 10/04/2010