10-5059-cv 

Zherka v. City of New York 

UNITED STATES COURT OF APPEALS 

FOR THE SECOND CIRCUIT 

SUMMARY ORDER

RULINGS BY SUMMARY ORDER DO NOT HAVE PRECEDENTIAL EFFECT. CITATION 

TO A SUMMARY ORDER FILED ON OR AFTER JANUARY 1, 2007, IS PERMITTED AND IS 

GOVERNED BY FEDERAL RULE OF APPELLATE PROCEDURE 32.1 AND THIS COURT’S 

LOCAL RULE 32.1.1. WHEN CITING A SUMMARY ORDER IN A DOCUMENT FILED WITH 

THIS COURT, A PARTY MUST CITE EITHER THE FEDERAL APPENDIX OR AN 

ELECTRONIC DATABASE (WITH THE NOTATION “SUMMARY ORDER”). A PARTY 

CITING A SUMMARY ORDER MUST SERVE A COPY OF IT ON ANY PARTY NOT 

REPRESENTED BY COUNSEL.

 At a stated term of the United States Court of Appeals for the Second Circuit, held at the 

Daniel Patrick Moynihan Courthouse, 500 Pearl Street, in the City of New York, on the 19th day 

of January, two thousand twelve. 

Present: 

 RALPH K. WINTER, 

 ROBERT A. KATZMANN, 

 GERARD E. LYNCH, 

 Circuit Judges. 

________________________________________________ 

SELIM ZHERKA, 

 

 Plaintiff-Appellant, 

 v. No. 10-5059-cv 

CITY OF NEW YORK, 

 Defendant-Appellee. 

________________________________________________ 

For Plaintiff-Appellant: RORY J. BELLANTONI, Lovett & Bellantoni, LLP, 

Hawthorne, N.Y. 
 

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For Defendant-Appellee: FAY NG, Assistant Corporation Counsel (Pamela 

Seider Dolgo, Assistant Corporation Counsel, on 

the brief), for Michael A. Cardozo, Corporation 

Counsel for the City of New York, New York, N.Y. 

 Appeal from the United States District Court for the Southern District of New York 

(Preska, C.J.). 

 ON CONSIDERATION WHEREOF, it is hereby ORDERED, ADJUDGED, and 

DECREED that the judgment of the district court is AFFIRMED.

 Plaintiff-Appellant Selim Zherka brings this action under 42 U.S.C. §§ 1983 and 1985, 

alleging that he is the victim of a wide-ranging, racially-discriminatory conspiracy among 

various City of New York (the “City”) and Westchester County officials to publicly brand him as 

an “Albanian mobster,” principally in retaliation for the publication of an article critical of the 

Westchester County District Attorney in a local news periodical that he owns. By Order and 

Judgment dated November 9, 2010, the district court (Preska, C.J.) dismissed Zherka’s First 

Amended Complaint (“Complaint”) on the grounds that it failed to adequately allege the 

existence of a municipal policy or custom, and that its claims are barred by operation of 

collateral estoppel. We assume the parties’ familiarity with the underlying facts and procedural 

history of this case. 

We review de novo a district court’s dismissal of a complaint for failure to state a claim. 

S. Cherry St., LLC v. Hennessee Grp. LLC, 573 F.3d 98, 103 (2d Cir. 2009). In order to state a 

claim under Rule 12(b)(6), “a complaint must contain sufficient factual matter, accepted as true, 

to ‘state a claim to relief that is plausible on its face.’” Ashcroft v. Iqbal, 129 S. Ct. 1937, 1949 

(2009) (quoting Bell Atl. Corp. v. Twombly, 550 U.S. 544, 570 (2007)). “A claim has facial 

plausibility when the plaintiff pleads factual content that allows the court to draw the reasonable 

inference that the defendant is liable for the misconduct alleged.” Id. In assessing whether a 
 

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plaintiff has met this standard, the Court must accept all non-conclusory factual allegations as 

true and draw all reasonable inferences in the plaintiff’s favor. Goldstein v. Pataki, 516 F.3d 50, 

56 (2d Cir. 2008). 

 “[To] hold a city liable under § 1983 for the unconstitutional actions of its employees, a 

plaintiff is required to plead and prove three elements: (1) an official policy or custom that (2) 

causes the plaintiff to be subjected to (3) a denial of a constitutional right.” Wray v. City of New 

York, 490 F.3d 189, 195 (2d Cir. 2007) (alteration in original) (citation omitted); see Monell v. 

Dep’t of Soc. Servs., 436 U.S. 658, 690-91 (1978). Similarly, municipal liability under § 1985(3) 

must also be predicated on an “official custom or policy” of the municipality. Owens v. Haas, 

601 F.2d 1242, 1247 (2d Cir. 1979). Accordingly, “a municipality cannot be made liable [under 

§§ 1983 and 1985] by application of the doctrine of respondeat superior,” Pembaur v. City of 

Cincinnati, 475 U.S. 469, 478 (1986), but rather the plaintiff must “demonstrate that, through its 

deliberate conduct, the municipality was the moving force behind the alleged injury,” Roe v. City 

of Waterbury, 542 F.3d 31, 37 (2d Cir. 2008) (internal quotation marks omitted). In addition, 

where a plaintiff contends that the actions complained of “were taken or caused by an official 

whose actions represent official policy, the court must determine whether that official had final 

policymaking authority in the particular area involved.” Jeffes v. Barnes, 208 F.3d 49, 57 (2d 

Cir. 2000). 

 Here, Zherka’s factual allegations are insufficient to establish that his alleged harms 

resulted from a municipal “policy.” It has long been well-settled that “the mere assertion that a 

municipality has such a custom or policy is insufficient in the absence of allegations of fact 

tending to support, at least circumstantially, such an inference.” Zahra v. Town of Southold, 48 

F.3d 674, 685 (2d Cir. 1995) (internal quotation marks, brackets, and ellipsis omitted). The 
 

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essence of the Complaint is its allegation that the New York City Police Department initiated an 

investigation into Zherka based on “false information provided [to] them” by Janet DiFiore and 

Mathew Bogdanos, the Westchester District Attorney and a New York County Assistant District 

Attorney, respectively. Compl. ¶ 11. However, neither DiFiore nor Bogdanos are City officials 

and so they cannot, by themselves, be engines of City policy. Moreover, there is nothing in the 

Complaint supporting a plausible inference that, for example, the City has a general policy of 

targeting ethnic Albanians for investigation, or of targeting individuals with an ownership 

interest in news periodicals that criticize public officials. Accordingly, the district court 

correctly held that Zherka’s claims must be dismissed for failing to allege the existence of a 

municipal policy that led to a violation of his constitutional rights. 

 The district court also held, in the alternative, that Zherka’s claims must be dismissed 

because they were premised on substantially the same factual allegations asserted by Zherka in 

several previously litigated cases. Once an issue of law or fact necessary to a judgment has been 

decided, the doctrine of collateral estoppel precludes the “relitigation of [that same] issue in a 

suit on a different cause of action involving a party to the first case.” Burgos v. Hopkins, 14 F.3d 

787, 789 (2d Cir. 1994) (internal quotation marks omitted). Specifically, collateral estoppel 

precludes relitigation where “(1) the issues in both proceedings are identical, (2) the issue in the 

prior proceeding was actually litigated and actually decided, (3) there was full and fair 

opportunity to litigate in the prior proceeding, and (4) the issue previously litigated was 

necessary to support a valid and final judgment on the merits.” NLRB v. Thalbo Corp., 171 F.3d 

102, 109 (2d Cir. 1999). To meet the identity-of-issues prong of collateral estoppel, it is not 

necessary that the issues be exactly identical; it is sufficient that “the issues presented in [the 
 

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earlier litigation] are substantially the same as those presented by [the later] action.” ITT Corp. 

v. United States, 963 F.2d 561, 564 (2d Cir. 1992). 

 Here, within months of the time Zherka filed the instant action, he filed three separate 

actions under 42 U.S.C. § 1983 in the Southern District Court of New York that were 

collectively premised on substantially identical factual circumstances as those alleged in the 

instant Complaint. In each of these cases, the district court (Seibel, J.) granted the defendant’s 

motion to dismiss the relevant complaint and we affirmed the district court’s dismissal. See 

Zherka v. Bogdanos, 411 F. App’x 440 (2d Cir. 2011) (summary order); Zherka v. Amicone, 634 

F.3d 642 (2d Cir. 2011); Zherka v. DiFiore, 412 F. App’x 345 (2d Cir. 2011) (summary order). 

The doctrine of collateral estoppel developed to address precisely this situation, where a party 

seeks to repeatedly litigate the same issue by means of more specific pleadings, by repackaging 

the same factual allegations under different causes of action, or by filing identical actions against 

different defendants. See, e.g., Hickerson v. City of New York, 146 F.3d 99, 109-10 (2d Cir. 

1998) (plaintiffs barred from bringing claims under U.S. Constitution after litigating claims 

predicated on the same factual allegations under the New York State Constitution). Accordingly, 

the district court correctly held that Zherka is collaterally estopped from asserting the claims 

made in the instant action. 

 We have considered all of Zherka’s additional arguments and found them to be without 

merit. Accordingly, for the foregoing reasons, the judgment of the district court is AFFIRMED. 

 FOR THE COURT: 

 CATHERINE O’HAGAN WOLFE, CLERK