# U n i t e d S t a t e s C o u r t o f A pp e a l s

For the Eig hth Circu it

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

No . 1 7 -3 0 93

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

J o h n R. Van Ord en ; M i ch ael D. M cCo rd ; J o s ep h M i l l er; M aco n Bak er; Ch an ce W

. Ty ree; W al t er W . Ri t ch ey ; Dav i d Bro wn ; An t h o n y Am o n et t e; Ri ch ard Ty s o n ;
W ad e A. Tu rp i n; M at th ew Ki ng ; An dre Co k es ; J o s ep h Bo w en , Cl as s Rep res en t at iv e; W i l l i am

M u rp h y , Cl as s Rep res en t at i v e,

l l l l l l l l l l ll l l l l l l l l l Pl a in t i

f f s - Ap p el l a n t s ,

v

.

Mark St ri n ger; Haro l d M y ers , Rei m b u rs em en t Offi cer, Heal t h Li n k, In d i v i d u al l y

an d Offi ci al ly ; Al an Bl ak e, Ch i ef Op erat i n g Offi cer, M SOTC, In d i v i d u al l y an d

Offi ci al l y ; J u l i e In m an ; J ay E n g l eh ard t ; J u st in Arn et t ; Ri ck Go wd y , i n h i s o ffi ci al

cap aci t y as Di rect o r o f t h e M i s s o u ri Dep art m en t o f M en t al Heal t h s Di v i si o n o f

Beh av i o ral Heal t h; Ro bert Rei t z; Li n d a M o l l ; Dam an Lo n g wo rt h ; Do n n a
Au gu s t in e; Dav e Sch m i t t ; Eri ck a L. Kem pk er; Kri s t i na Ben d er-Cri ce; An g el i n e
St an is l au s
, i n h er o ffi ci al cap aci t y as Ch i ef Cl i n ical Offi cer o f t he M i s so u ri
Dep art m en t o f M en t al Heal t h ; An n e Precy t h e, i n h er o ffi ci al cap aci t y as Di rect o r

o f t h e M i ss o u ri Dep art m en t o f Co rrect i o n s ; Ri k k i W ri g h t

, i n h i s o ffi ci al cap aci t y

as Dep u t y Di rect o r o f t h e M i s s o u ri Dep art m en t o f M en t al Heal t h fo r t h e Di v i s i o n

o f Beh av io ral Heal th ; Dav i d Sch m i t t , i n h is o ffi ci al cap aci ty as Ch i ef Op erat i n g Offi cer o f So ut h eas t M i s so u ri M en t al Heal t h Cen t ers Ad u l t Ps y ch i at ri c Serv i ces ;
A n d y A t k in s o n , i n h is o ffi ci al cap aci t y as Ch i ef Op erat i ng Offi cer o f Fu l t o n St at e
Ho s p i t al ; Lee An n M cVay , i n h er o ffi ci al cap aci ty as Pro g ram

Co o rd in at o r at

SORTS-Fu lt o n St at e Ho s p i t al ; Su s an Kn o p fl ei n , i n h er o ffi ci al cap aci t y as Ch i ef

Nu rs e Ex ecu t i ve at Fu l to n St at e Ho sp i t al

,

ll l l l l l l l l l ll l l l l l l l l Def

en da n t s - Ap p el l ees

.

_ __ _ _ __ _ __ _ _

Ap p eal fro m

Un i t ed St at es Di s t ri ct Co u rt

fo r t he Eas t ern Di s t ri ct o f M i s s o u ri - St . Lo u i s

_ __ _ _ __ _ __ _ _Su bm i t t ed : Sep tem ber 2 6 , 2 0 1 8

Fi led : Sep t em

b er 1 1

, 2 0 1 9

_ __ _ _ __ _ __ _ _

Befo re COLLOTON, BEAM , an d GRASZ, Ci rcu i t J u dg es

.

_ __ _ _ __ _ __ _ _

COLLOTON, Ci rcu i t J u d g e.

A cl as s o f ci v i l l y -co m

m it t e d r e side nts of M iss o u ri ’ s ci v i l co m m i t m en t p ro g ram

fo r cert ai n s ex o ffen ders ap p eal t h e d i s m i s s al o f t hei r cl ai m s ag ai n s t s t at e o ffi ci al s

. Th e res i d en t s al l eg e t h at t he s t at e o ffi ci al s d ep ri ved t h em o f co n st i tu t i o n al ri g h t s

u n d er t h e ru b r i c o f s u b s t an t i v e d u e p ro ces s

. Th e d i s t ri ct co u rt 1 i ni t i al l y fo u n d t h e

d efen d an t s l i ab l e fo r co n s t i t u t i o n al v i o l at i o n s
, b u t reco n s i d ered in l i g h t o f Ka r s j en s

v. Pi p er , 8 45 F

. 3 d 3 9 4 ( 8 t h Ci r. 2 0 1 7 ), an d en t ered ju d g m en t o n b eh al f o f t h e s t at e

o ffi ci al s . Th e res id en t s ap p eal , an d we affi rm

.

I.

In 1 9 98

, t h e M i ss ou ri l e g i s l at u re en act ed t h e M i s so u ri Sex u al l y Vi o l en t

Pred at o r Act t o g o v ern t h e ci v i l co m m i t m en t o f p ers o n s ad

ju d i cat ed t o b e s e x u al l y

v i o l en t p red at o rs

. S

ee 1 9 9 8 M o

. Leg i s

. Serv

. 1 0 6 (W es t ); Mo

. Rev

. St at

. §§ 6 3 2 .4 8 0

-

6 3 2 .5 2 5

. A p ers o n m ay b e co m m i t t ed i n t h e pro g ram o n l y i f a j u d g e o r ju ry

d et erm i n es b y cl ear an d co nv i n ci n g ev i d en ce t h at h e i s a s e x u a l l y v i o l en t pred at o r.

M o

. Rev

. St at

. § 6 3 2

. 4 9 5

. 1. A “ [s ] ex u al l y v i o l en t p red at or” i s a p ers o n wh o
, am o n g

o t h er th i n g s
, h as a “ m en tal ab n o rm al i t y wh i ch m ak es t h e p ers o n m o re l ik el y t h an n ot

t o en g ag e i n p red at o ry act s o f s e x u a l v i ol en ce i f n o t co n fi n ed i n a secu re faci l i t y .”

Id

. § 6 3 2 .4 80 (5 ).

1 Th e Ho n o rab l e Au d rey G

. F l e i s s i g
, Un i t ed St at es D i st ri ct J ud g e fo r t h e
Eas t ern Di s t ri ct o f M i ss ou ri

.

-2

-Aft er co m m i t m en t

, M i s s o u ri l aw p ro vi d es av en ues t o s ecu re co nd i t i o n al

rel eas e. T h e d i rect o r o f t h e d ep art m en t o f m en t al h eal t h (o r h i s d es i g n ee) i s req u i red

t o p rep are an an nu al rep o rt o n each res id en t ’ s m en t al co nd i t i o n an d p ro v i d e i t t o t h e

s t at e co u rt t h at co m

m i t ted t h e p ers o n

. Id

. § 6 32 .4 9 8

. 1

. If t h e d i rect o r d et erm i n es t h at

a res i d en t i s n o l o n g er l i k el y t o co m m i t act s o f s ex u al v i o len ce, th en h e “ s h a l l

au t h o ri ze t h e p ers o n t o p et it i on t h e co u rt fo r rel eas e.” Id

. § 6 3 2 .5 0 1

. Al t ern at i v el y ,

a res i d en t m ay fi l e h is o wn p et i t i o n fo r rel eas e wi t h ou t di rect o r ap p ro v al

. S ee i d.

§ § 6 3 2

. 4 98 .2

, .5 0 4

. I f t h e co u rt at a h eari ng det erm in es b y a p rep o n deran ce o f t h e

ev i d en ce t h at t h e co m

m i t ted p ers o n i s n o l o n g er l ik el y t o e n g ag e i n act s o f s ex u al

v i o l en ce i f rel eas ed

, t h en t h e p e r s o n i s en t i t l ed t o a t ri al o n t h e i s s u e. S ee i d.

§ 6 32 .4 9 8 .4 ; In r e Co

f f ma n , 2 2 5 S.W .3 d 4 39

, 4 4 2 -4 4 (M o

. 2 0 0 7 ). To ju s t i fy

co n ti n u ed co m

m i t m en t , t h e St at e m

u s t p ro v e b y cl ear an d co n v in ci n g ev i d en ce t h at

t h e pers on i s s t i l l l i k el y t o en g ag e in act s o f s ex u al v io l en ce i f rel eas ed

. M o

. Rev

. St at

. § 6 3 2 .4 9 8 .5 (3 ). Ot herwi s e, t h e p ers o n i s en t i t l ed t o co n d i t i o n al rel eas e. S ee i d.

§ § 6 3 2 .4 9 8 .5 (4 ), .5 05 .1

.

In 2 0 0 9

, a g ro u p o f ci vi l l y -co m m i t t ed p ers o n s b ro ug h t s u i t on b eh al f o f

t h em s el v es an d t h o s e s i m i l arl y s i t u at ed ag ai n st s tat e o ffi ci al s res p o ns i b l e fo r

o p erat i n g t h e pro g r a m

. Th e fi ft h am en d ed co m p lai n t al l eg ed

, i n t er a l i a , t h at t h e

S t a t e’ s co m

m i t m en t p ro v i s i o n s are faci al l y u n co ns t i t u t i o nal

, an d t h at t h e treat m e n t

p ro g ram as ap p l i ed to t h e res i den t s v i o l at es t h ei r su b s t an t i v e d u e p ro ces s ri g h t s

. Th e

t reat m en t p ro g ram
, th e co m p l ai n t al l eg ed

, i s a “ s h am ” t h a t do es n o t p ro v i de a

“ real i s t ic o p p o rt u n i ty fo r rel eas e.” Fo r p u rp o s es of t h e t reat m en t cl ai m s
, t h e d i s t ri ct

co u rt cert i fi ed a cl as s u n d er Fed eral Ru l e o f Ci vi l Pro ced u re 23 (a) an d (b )(2 ) m ad e

u p o f “ p ers o n s wh o are, o r wi l l b e, d u ri n g t h e p en d en cy o f t hi s act i o n ,” res i d en t s o f

M i s s ou ri ’ s co m

m it m en t p ro g ram

fo r s ex u al ly

v i ol en t p red at o rs

.

Th e di st ri ct co urt h el d a b en ch tri al i n Ap ri l 2 0 1 5 an d en t ered an o rd er o n t h e

q u es ti o n o f l i ab i l i ty

. Th e co u rt ru l ed t h at th e Act i s n o t u n co n s t i t u t i o n al o n i t s face,

an d d i s m i s sed t h e s tat e-l aw cl ai m s wi t h p reju d i ce, b u t g ran t ed a d ecl arat i o n t h at t h e

-3

-Act i s u n co n s ti t ut i o n al as ap pl i ed t o th e cl as s

. Th e co u rt co n cl u d ed t h e t reat m en t

p ro g ram s u ffered fro m t h ree “ co n s t i t u t i o n al d efi ci en c[i es ] .”

Fi rs t

, t h e co u rt fo u n d th at “ an n ual rev i ewers hav e n ot b een ap p l y i n g t h e co rrect

l eg al st an d ard wh en ev al u at i n g wh et h er a res i d en t m eet s t h e cri t eri a fo r co nd i t i o n al

rel eas e.” Th e res ul t

, t he co u rt b e l i e v e d

, was t h at res i d en t s rem ai n ed co n fi n ed

“ b ey o n d t h e t i m e co n s t i t u t i on al l y j u s t i fi ed .” Seco n d

, t h e co u rt fo u n d t h a t s t at e

o ffi ci al s were n ot rel eas in g l o w-ri s k res id en t s i n t o l es s res t ri ct i v e h ou s i ng
, an d h ad

“ n o t ev en d es ig ned p ro ced u res t o d o s o
, ” b u t were i ns t ead im p o s in g an i n d efi n i t e

“ rel eas e wi t h ou t d i s ch arg e” co nd i t i o n o n t h o se res i d en ts

. Th i rd

, t h e co u rt fo u n d t h at

t h e d i rect o r o f th e d ep art m en t of m en t al h eal t h h ad “ ab d i cat ed h i s d u t y ” t o au t h o ri ze

p et i t i o n s fo r rel eas e o f l o w-ri s k res i d en t s, res u l t i n g i n “ t h e co n t i nu ed co n fi n em en t o f

p ers o n s wh o n o l o n g er m eet t h e cri t eri a fo r co m m i t m en t

. ”

Befo re reach i n g t h e rem ed i es p h a s e
, th e d i s t ri ct co u rt su a sp o nt e req u es t ed

b ri efi n g o n wh et h er i t s h ou l d reco n s i d er it s l i ab i l i t y o rd er i n l i gh t o f ou r in terv en i n g

d eci s i o n i n Ka rs

j en s v. Pi p er , 8 4 5 F.3 d 3 9 4 (8 t h Ci r. 2 01 7 ). In Ka r sj en s , t h i s co u rt

reject ed an as -ap p l i ed s u b s t an t i v e d u e p ro ces s ch al l en g e t o M i n n es o t a’ s ci v i l

co m m i t m en t p ro g ram fo r sex u al l y d an g ero u s p ers o n s

. S ee id

. at 41 0 -1 1

. Th e d i s t ri ct

co u rt co n cl u d ed t h at t h e u n d e r l y i n g fi n di n gs in Ka r s j en s w ere m at eri al l y

i n d i s t in g ui s h ab l e fro m t ho s e i n i t s o wn l i ab i l i t y o rd er, so i t reco n s i dered t h at o rd er

an d reject ed t h e res i d en t s ’ a s

- a p p l i ed co n st it u t i o n al cl ai m s

. Th e d i s t ri ct co u rt l at er

d en ied t h e res id en t s ’ m o t i on t o al t er or am en d t h e j u d gm en t o n t h ei r s t at e-l aw cl ai m s

t o a d i s m i s s al wi t h o u t preju d ice.

W e rev i ew t h e d is t ri ct co u rt ’ s fi n d i n g s o f f a c t f o r cl ear erro r an d i t s l eg al

co n cl u s i o n s d

e no vo

. Li

s d a h l v. Ma yo Fo un d

. , 6 3 3 F.3 d 7 1 2

, 7 1 7 (8 t h Ci r. 2 0 1 1 ).

Th e d en i a l o f t h e m o t i o n t o al t er o r am en d t h e j u d gm en t i s rev i ewed fo r ab u s e o f

d i s cret i o n

. S i

p p v. As t ru e , 6 4 1 F.3 d 9 7 5 , 9 8 0 -8 1 (8 t h Ci r. 2 0 11 ).

-4

-II.

A.

To p rev ai l o n an as -ap p li ed su b s tan t iv e d u e p ro ces s cl ai m
, t h e res i d en t s m u s t

s h o w b o t h t h at t h e s t at e o ffi ci al s ’ co n du ct is co ns ci en ce-s h ock i n g an d t hat i t v i o l at ed

a fu n d am en t a l ri g h t o f t h e res i d en t s

. S ee Ter r el l v. La r

s o n , 3 9 6 F.3 d 9 75

, 9 7 8 n

. 1

(8 t h Ci r. 2 0 0 5 ) (en b an c); Mo ra n v. Cl a r ke

, 29 6 F.3 d 6 3 8

, 6 51 (8 th Ci r. 2 0 0 2 ) (en

b an c) (By e, J

., co n cu rri n g an d wri t i n g fo r a m ajo ri t y o n t hi s is s ue). On e q u es t i o n in

a s u b st an t i v e d u e p ro ces s ch al l en g e t o ex ecu t i v e act io n i s “ w h et h er t h e b eh av i o r o f

t h e g o v ern m en t al o ffi cer i s s o eg reg i o u s
, s o o u t rag eo u s
, t h at i t m ay fai rl y b e s ai d to

s h o ck th e co n t em

po rary co n s ci en ce.” Co u n ty o f S a cr amen t o v. Lewi s , 5 2 3 U.S. 8 3 3,

8 4 8 n .8 (1 9 9 8 ). An o t h er p rereq u i s i t e fo r su ch a c l a i m i s th at t h e o ffi ci al s ’ co n d u ct

v i o l at ed “ o n e o r m o re fu n d am en t al ri g h t s t h at are d eep l y ro o t ed i n t hi s Nat i o n ’ s

h i s t o ry an d t rad it i on
, an d i m pl i ci t i n t h e co n cep t o f o rd ered l i b ert y .” Mo r a n , 29 6 F.3 d

at 6 5 1 (By e, J

., co n cu rri n g an d wri t in g fo r a m ajo ri t y ) (i n tern al q u o t at i on m ark s

o m it t ed ). Th e cl ai m s h ere fo un d er o n b o t h el em en ts

.

Th e res i den t s
, of co u rs e, h av e a l i b ert y in t eres t i n freed o m fro m s t at e cu s t o d y , b u t i n t h i s cas e, t h ei r l i b ert y was co n s t rai ned i n acco rd an ce wi t h d ue p ro ces s o f l aw.

Al l were ad

ju d i cat ed as s ex u al l y

v i o l en t p red at ors i n t h e M i s so u ri co urt s , an d t h ere

i s no d i s p u t e th at t hey were co n s t i t u t io n al l y d ep ri v ed o f l i b e r t y o n th at bas i s

. See

Ka n s a s v. Hen d

r i cks

, 5 21 U.S. 3 4 6

, 3 5 6 -6 0 (1 9 9 7 ). A ci v i l l y -co m m it t ed p ers o n al s o

h as a l i b ert y in teres t i n g ai ni n g rel eas e fro m d et en t i on i f t h e reas o n s t hat ju st i fi ed t h e

co m m i t m en t n o l on g er ex i st

. O’Co n no r v. Do n a ld s o n , 4 2 2 U.S. 56 3

, 5 75 (1 9 7 5 ).

Bu t M is s o u ri l aw p ro v i d es a p ro ced u re u nd er wh ich a co m m i t t ed pers o n can p et i t i o n

fo r rel eas e, an d a s t at e co u rt m u s t d et erm i ne wh et h er t h e p er s o n s ti l l s uffers fro m a

m en t al a b n o rm al i t y t h at m ak es h i m l i k el y t o en gag e in act s o f s ex u al v i o l en ce i f

rel eas ed

. M o

. Rev

. St at

. § § 6 3 2 .4 9 8 .2 -.5

, .5 0 4. If a p ers o n i n vo k es t h o s e p ro ced u res
,

an d a co u rt p ro p erl y d et erm in es t h at h e rem ai n s a s ex ual l y v i o l en t p red at o r, t h en t h ere

-5

-i s co nt i n u ed dep ri v at i on of l i b ert y , b u t t h at d ep ri v at i o n o ccu rs wi th d u e p ro ces s o f

l aw.

In t h i s l it ig at i o n
, t h e res i d en t s h av e p ro ceed ed as a cl as s, seek i n g th e s am e

rel i ef as t o ev ery cl as s m em ber. S ee Fed

. R. Ci v

. P. 2 3 (b )(2 ). Th ey d o n o t cl ai m t h at

t h e cl as s m em

b ers as a g ro u p are en t i t l ed t o rel eas e. Th ey u r g e i n s t e a d t h at t h e

d efen d an t o ffi ci al s h av e fai l ed t o i m p l em en t cert ai n s t at u t ory req u i rem en t s i n a way

t h at wi l l rel eas e res i d en t s fro m d et en t i o n wh en ap p ro p ri at e, an d t hey s eek i n ju n ct i v e

rel i ef t h at d i rect s t h e o ffi ci al s t o o p erat e d i fferen t ly

. W h at ev er t h e m eri t s o f t h e

cl ai m s th at M i s s o u r i o ffi ci al s are n o t p ro perl y i m p l em en t i n g t he Act

, w e co n cl u d e

t h at t h e co n cep t o f s u b s t an t i v e d u e p ro ces s d o es n o t en co m p as s a fu n d am en t al ri g ht

i n h av in g t h e s tat e o ffi ci al s p erfo rm as req u es ted

.

Fo r pu rp o ses o f s ub s tan t i v e d u e p ro ces s
, a fu n d am en t al ri gh t or l i b ert y i s o n e

t h at is “ d e e p l y ro o ted i n th i s Nat i o n ’ s h i s t o ry an d t rad i t i o n
, ” an d “ i m pl i ci t i n t h e

co n cep t o f o rd ered l i b ert y ,” s u ch t h at “ n ei t h er l ib ert y n o r ju s ti ce wo u l d ex i s t i f t h ey

were s acri fi ced .” W

a s h i n g t o n v. Gl u cks b er

g , 5 21 U.S. 7 02

, 72 1 (1 9 9 7) (i n t ern al

q u o t at i o n s o m i t t ed ). T h e res i d en t s su g g es t t h at t h ey are p u rs u i n g a fu n d am en t al ri g ht

o f freed o m fro m b o d i l y res t rai n t t h at m eet s t h e fo reg o in g cri t eri a. S ee Za d vyd a s v.

Da vi s , 5 3 3 U.S. 6 7 8

, 6 9 0 -9 5 (2 0 0 1 ). Bu t t h ei r cl ai m i n t h i s l i t i g at i o n is di fferen t

. Th ey d o n o t a s sert a t y p i cal s u b s t an t i v e d u e p ro ces s cl ai m ag ai n s t “ cert ai n

g o v ern m en t act i o ns reg ard l es s o f t h e fai r n e s s o f t h e pro ced u res us ed t o i m p l em en t

t h em .” Co l l i ns v. Ci t

y of Ha r ker Hei g h t s , 5 0 3 U.S. 1 1 5

, 1 2 5 (1 9 9 2) ( i n t e r n a l

q u o t at i o n o m i t t ed ). Rat h er, t h ey co n t en d t h at t h e d efen d an t o ffi ci al s m u st ch an g e t h e

way th at t h e y c o n du ct an nu al rev iews of ci v i l l y -co m m i t ted p ers o n s
, d es i g n

p ro ced ures fo r rel eas i n g l o w-ri s k res i d en t s in t o l es s res t ri ct i v e ho u s i n g
, an d carry o ut

a s t at ut o ry

d u t y t o au th o ri ze p et i t i o n s fo r rel eas e o f l ow-ri s k res id en t s

.

An en t it l em en t t o th es e act i o ns i s n ot d eep l y ro o t ed i n t h e Nat i o n’ s h i s t o ry an d

t rad i ti o n o r i m

p l i ci t i n t he c o n c e p t o f o rd ered l ib ert y

. Reg ard l es s o f h o w t h e

-6

-d efen d an t o ffi ci al s carry o u t t h ei r fu n ct io n s u n d er s t at e l aw, t h e Act p ro v i des t h at a

ci v i l l y -co m

m i t t ed p ers o n m ay p et i t i o n a s t at e co u r t fo r rel eas e on t he g ro u n d t h at t h e

p ers o n n o lo n g er s u ffers fro m a m en t al ab no rm al i t y t h at m ak es h i m li k el y t o en g ag e

i n act s o f s ex u al v i o l en ce i f rel eas ed

. S ee M o

. Rev

. St at

. § 63 2

. 4 9 8 .2 -.4

. W h et h er o r

n o t t h e d ep art m en t o f m en t al h eal t h ap p l i es t h e co rrect l eg al s t an d ard i n co n d u ct i n g

i t s an n u al rev i ew of t h e co m m i t t ed p ers o n
, o r au t h o ri zes a p et i t i o n fo r rel eas e i n t h e

n am e of t h e d i rect o r, t h e co m m i t t ed p ers o n i s en t i t l ed to rev i ew o f h i s co n t i n u ed

d et en t i o n b y an i n d ep en d en t ju d i ci al offi cer. Th e s t at e co u rt i s d u t y -b o u n d t o ap p l y

t h e co rrect l eg al s tan d ard s reg ard l es s o f t h e d i rect or ’s p o t e n t i al s h o rt co m i n g s in

carry i n g o u t h is fu n ct i on s u n d er s t at e l aw. S ee i d

. § 6 3 2 .4 98 .4

. If t h e s t at e co u rt (o r

a ju ry ) d et erm i n es b as ed o n t h e ev i d en ce t h at t he p ers o n i s n o l o n g er l i k el y to en g ag e

i n act s o f s ex u al v i o l en ce, t h en t h e co urt m u s t o rd er h im co n d i ti o n al l y rel eas ed

. Id

. § 63 2 .4 98

. 5 (4 ). An d d es p i te t h e as s ert ed fl a w s i n t h e d ep art m en t’ s p ro g ram fo r

rel eas i n g l o w-ri sk res i d en t s i n t o l es s res t ri ct i v e ho u s i n g
, t h e s tat e co u rt h as fi n al

au t h o ri t y t o det erm in e wh at co n d i t io n s s h ou l d ap p l y , i ncl u d i n g w h et h er a res i d en t

s h o u ld b e rel eas ed wi th ou t d is ch arg e o r i n t o t h e co m m u n i t y

. S ee i d

. § 6 3 2 .5 0 5 .3

.

Th e av ai l ab i l i t y of the se pr oc e dur e s i s su ffi ci en t t o v i n di cat e a res i d en t ’ s l i b ert y

i n t eres t i n g ai n i n g r e l e a s e fro m d et en ti o n o n ce t he reas o n s t h at ju s t i fi ed t h e

c o m m i t m en t d i s s i p at e. Th at t h e Act p ro vi d es ad d i t i o n al o p p o rt u n i t ies t o faci l i t a t e

rel eas e, an d t h at s t at e o ffi ci al s al l eg ed ly h av e fai l ed t o i m p l em en t t h em p ro p erl y , d o es

n o t ru n afo u l o f s u b s t an t i ve d u e p ro ces s.

Th e res i den t s i n s i s t t h a t o n ce t h e St at e ad o p t ed t h e Act

, t h ey en j o y ed “ s t at ecreat ed l i b ert y in t eres ts ” t h at co u l d n ot b e i n fri n g ed

. Th i s arg u m en t co n fu s es

p ro ced ural d u e p ro ces s an d t h e co n cep t o f s u b s t an ti v e d u e p ro ces s

. “ [S] t at e s t at u t es

m ay creat e l i b ert y i n t eres t s t h at are en t i t l ed to t h e p r o ced u r a l p ro t ect i o n s o f t h e Du e

Pr o c e s s C l a u s e of t h e Fo u rt een t h Am en d m en t

. ” Vi t ek v. Jo n es , 4 4 5 U.S. 4 8 0

, 4 8 8

(1 9 8 0) (em

p h as i s ad d ed )

. Th e res i d en t s
, ho wev er, cl ai m a s u b s t an t ive d u e p ro ces s

r i g h t to cert ai n act i o n s b y s t at e o ffi ci al s

. Fu n dam en t al ri g h t s o r l i b ert i es t h a t a r e

-7

-p ro t ect ed b y s u b s t a n t iv e d ue pro ces s are th o s e i m p l i ci t i n t h e co n cep t of o rd ered

l i bert y o r d eri ved fro m o u r Nat i o n ’ s h i s t o ry an d t rad i t i o n ; t h ey are n o t c r e a t ed by

St at es

. S t eel e v. Ci cch i

, 8 55 F.3 d 4 94

, 5 0 1 (3 d Ci r. 2 0 1 7 ). Th e res i d en t s al s o co n t en d

t h at a p eri od i c rev i ew req ui rem en t u n der s t at e l aw w a s a “ k ey reas o n ” wh y t h e

Su p rem e Co u rt u p h el d a ci v i l co m m i tm en t s ch em e fo r s ex u al l y v i o l en t p red at o rs in

Hen dr i cks

, s o peri o d i c rev i ew o f t h e s o rt t h ey d e m a n d m u s t b e req u i red by

s u b s t an t i ve d ue pro ces s. Th e Co u rt i n Hen d ri cks

, h o wev er, ci t ed p eri od i c rev i ew as

ev i d en ce t h at t he K an s as s t at u t e was no t “ p un i t i v e” fo r p u rp o s es o f a d i fferen t cl ai m

u n d er th e Do ub l e J eo p ard y Cl au s e. 5 2 1 U.S. at 36 4

. Th e res i d en t s h ere i nv o k e o n l y

s u b s t an t i ve d u e p ro ces s i n t h ei r ap p eal

, an d t h ey h av e n o t d em o n st rat ed t h e vi o l at i o n

o f a fu n d am en tal ri g h t u n d er t h at ru b ri c.

Al t ern at i v el y , we ag ree w i t h t h e d i s t ri ct co u rt t h at t he rat i on al e o f o u r d eci s i o n

i n Ka r sj e n s t hat M i n n es ot a’ s co m m i t m en t sch em e d id n o t s h o ck t h e co n s ci en ce

d i ct at es t h e s am e o u tco m e h ere. In Ka r s jen s , t h e di s t r i c t co u rt h ad d et erm i n ed t h e

M i n n es o t a p ro gram

was u n co n s t i t u t i o n al as ap p l i ed fo r s i x reas o n s :

(1 ) Defen d an t s d o n o t co n d u ct p eri o d ic i n dep en d en t ri s k as s es s m en t s o r

o t h erwi se ev al u at e wh et h er an i n d i v i d u al co n t i nu es t o m eet t h e i n i t i al

co m m i t m en t cri teri a o r t h e d i s ch ar g e cri t eri a if an i n d i v i d u al d o es n o t

fi le a p et i t i o n ; (2 ) t h o s e ri s k as s es s m en t s t h at h av e b een p erfo rm ed h av e

n o t al l b een p erfo rm ed i n a co ns t i t u ti o n al m an n er; (3 ) i n d i v i d u al s h av e

rem ai ned co nfi n ed [i n t h e p ro g ram ] ev en t h o u g h t h ey ha v e co m p l et ed

t reat m en t o r s u ffi ci en t l y red u ced t h ei r ri s k; (4 ) d i sch arg e p ro ced ures are

n o t w o rk in g p ro p erl y [i n t h e p ro g ram ]; ( 5 ) al t h o u g h s ect i o n 25 3 D

ex p res s l y al l o ws t h e referral o f co m m i t t ed i n d i vi d u al s t o les s res t ri ct iv e al t ern at i v es
, t hi s is n o t o ccu r r i n g i n p ract i ce b ecau se t h ere are
i n s u ffi ci en t l es s res t ri ct i ve al t ern at i v es av ai l ab l e fo r t ran s fer an d n o l es s

res t ri ct i v e al t ern at i v es a va ila ble f or initia l c om

m itm e n t; an d (6 ) al t ho u g h

t reat m en t h as b een m ad e av ai l ab l e, t h e t r e a tm e nt pr ogr a m ’ s s t ru ct u re h as b een an i n s t i t u t i o n a l f

a i l u re an d t h ere is no m ean i n g fu l rel at i o n s h i p b et ween t he t reat m en t p ro g ram an d an en d t o i nd efi n i t e d et en t io n

.

-8

-Ka r

s jen s , 8 4 5 F.3 d at 40 2 -0 3

. Th i s co u rt co n cl ud ed t h at “ [n ] o n e o f t h e s i x g ro u nd s

u p o n wh i ch th e d i s t ri ct co urt d et erm i n ed t h e s t at e d efen d an ts v io l at ed t h e cl as s

p l ai n t i ffs ’ s u b s t an ti v e du e pro ces s ri g h t s i n an as -ap p l i ed co n tex t sat i s f y t h e

co n sci en ce-s ho ck i n g s t an d ard

. ” Id

. at 4 10

.

Th e defi ci en ci es t h e di s tri ct co u rt fo u n d i n t h e Mi s so u ri p ro g ram are n o m o re

eg reg i o u s o r o ut rag eo u s t h an t h o s e at is s ue i n Ka r s j en s

. Th e d i s t ri ct co u rt fo u n d t h at

M i s s ou ri ’ s an n u al rev i ewers h av e n o t b een ap p l y i n g t h e co rrect l eg al s t an d ard fo r

as s es s i n g el i g i bi l i t y fo r co n d it i o n al rel eas e, res u l t i n g i n p ro l o n g ed co n f i n e m e n t o f

l o w-ri s k res i d en ts

. Bu t M i n nes ot a h ad n o p eri o d i c ri sk as s es s m en t s wh at s o ev er. Th e

d i s t ri ct co u rt h ere fo u n d t h at M i s s o u ri o ffi ci al s h av e n o t rel eas ed l o w-ri s k res i d en t s

i n t o l es s res t ri ct i v e faci l i t i es o r creat ed p r o c e d u r e s t o t h at en d

. “ [I] n p ract i ce,”

h o wev er, M i n n es o t a d i d n o t rel eas e l o w-ri sk res i d en ts i n t o l es s res t ri ct i v e faci l i ti es

ei t h er. Id

. at 4 0 2

. Th e d i s t ri ct co u rt h ere fo u n d t h at t h e d irect o r o f t h e M i s s o u ri

d ep art m en t o f m en t al h ea l t h h ad n o t au t h o ri zed ev en on e res i d en t t o p et i t i o n fo r

co n di t i o n al rel eas e, an d th at s t at e o ffi ci al s were “ s t al l i n g or b lo ck i n g ” au th o ri zat i on s

fo r q u al i fi ed res i d en t s

. Ye t M i n n es o t a h ad n o req u i rem en t t h at o ffi ci al s t ak e an y

“ affi rm at i v e act i o n” at al l

, “ s u ch as p et i t i o n fo r a red u ct i on i n cu s t o d y , o n b eh al f o f

i n d i v i d u al s w h o n o l o n g er s at i s fy t h e cri t eri a fo r co n t i n u ed co m m i t m en t .” Id

. Becau s e t h e s h o rt co m i n g s ci t ed b y th e d i s t ri ct co u r t i n M is s o u ri m irro r th o s e t h at

Ka r s jen s h el d were n ot co n s ci en ce-s h o ck i n g i n M in n es ot a, t h e di s t ri ct co u rt co rrect l y

reas on ed t h at t h e as -ap p li ed s u b s t an ti v e d u e p ro ces s cl ai m s s h o ul d b e d i s m i s s ed

.

To av o i d t hi s co n cl u si o n
, t h e res i d en t s arg u e t h at t h e co u r t i n Ka r s j en s

i n co rrect l y ap pl ied an i n ten t -t o -h arm s t an dard fo r co ns ci en ce-s h o ck i n g co nd u ct

, an d

t h at “ d el i b erat e i nd i fferen ce” t o l i b ert y i s t h e p ro p er s t an d ard

. Ka r s j en s is n o t en t irel y

cl ear o n t h i s p o i n t

. T h e i s s u e was n o t rai s ed i n bri efs b efo re th e Ka r s j en s p an el

b ecau s e t h e p l ai n t i ffs d i s p u t ed t h at t h e co ns ci en ce-s h ock i n g s t an dard ap p l i ed at al l

. Th e Ka r s j en s o p i n i o n
, i d

. at 4 0 8

, d i d refer t o co nd u ct i n s p i red by “ m al i ce o r s ad i s m ”

(l an g u ag e as s o ci at ed wi t h i n t en t t o h arm ), b u t i t al s o fram ed th e i ss u e as wh et h er t h e

-9

-d efen d an t s ’ ac t i o n s w e re “ eg reg i o u s o r o u trag eo u s ,” a p hras e t h at al i g n s wi t h t h e

u n d ers t an d i n g t h at de libe r a te indif f e r e nc e involve s “ pa t en t l y eg reg i o u s ” co n d u ct

. See

Lewi s , 5 2 3 U.S. at 8 5 0 -5 1

.

Th e res i d en t s s u b m i t t h at a d el i b erat e i n d i fferen ce s t an d ard m u st ap p l y h ere,

b ecau s e t h e d efen d an t offi ci al s h ad s u ffi ci en t t i m e t o refl ect an d d el i b erat e ab o u t t h ei r

act i on s

. T h ey po i n t t o th e s t at em en t in Lewi s t hat t h e d el i b erat e i n di fferen ce s t an d ard

“ i s s en s i b l y em

p l o y ed o n l y wh en act u al d el i b erat i on is p ract i cal .” Id

. a t 8 5 1

. Th e

St at e res p o n d s t h at d eci s i o n s fro m o t h er ci rcu i ts hav e s u g g es ted th at so m et h i n g m o re

a k i n t o an i n t en t -t o-h arm s t an d ard m ay ap p l y wh en o ffi ci al s
, aft er del i berat i n g
, a r e

fo rced t o ch o o se am o ng co m p et i n g
, l eg i t i m at e i n t eres t s

. S ee Hu nt v. Syca mo r e Cmt

y.

S ch

. Di st

. Bd

. o f Ed u c. , 5 4 2 F.3 d 5 2 9

, 5 4 1 -4 2 (6 t h Ci r. 2 0 08 ); Ma t i ca n v. Ci t y o f New

Y or k

, 5 2 4 F.3 d 1 51

, 1 58 -5 9 (2 d Ci r. 2 0 0 8 ); S ch i eb er v. Ci t

y o f Ph i l a d el p h i a , 3 2 0 F.3 d

4 0 9

, 4 19 -2 0 (3 d Ci r. 2 00 3 ). Th e St at e s u g g es t s t h at t h e n eed fo r o ffi ci al s t o b al an ce

t h e co m p et i n g o bl ig at i o n s o f co m m u n it y s afet y an d p ro p er t r e a t m en t m ak es t h e

i n t en t -t o -h arm s t an dard ap p ro p ri at e h ere. W e n eed n o t res o lv e t h e d i s pu t e o v er t h e

ap p li cab l e s tan d ard

.

W e reject th e res i d en ts ’ arg u m en t b ecau s e t h e al l eg ed act i o n s of t h e d efen d an t

o ffi ci al s do n o t s h o ck t h e co n s ci en ce u n d er ei t h er s t an d ard

. Th ere i s no s h o wi n g o f

m al i ci ou s o r s ad i s t i c in t en t t o h a r m
, a n d w h at was n o t “ eg reg i o u s ” co n d u ct in

Ka r s jen s , 8 4 5 F.3 d at 41 1

, is n o t “ p at en tl y eg reg i o u s ” d el i b erat e i n d i fferen ce h ere.

Th e di rect or’ s al l eg ed fai l u re t o au th o ri ze p et i t i o n s fo r rel eas e do es n o t am o u n t to

co n sci en ce-s ho ck i n g d el i b erat e i n d i fferen ce t o l i b ert y wh en a res i d en t m ay p et i t i o n

a co u rt d i rect l y fo r rel eas e an d t ri g g er t h e s am e t y p e o f p ro ceed i n g o n wh et h er

co m m i t m en t i s s ti l l ju s t i fi ed

. S ee M o

. Rev

. St a t

. § § 6 3 2 .4 9 8

. 2 -.5

, . 5 0 1

. Th e

n o n ex i s ten ce o f l es s res t ri ct i ve h o u s i n g o p ti o n s
, t h e di s t ri c t co u rt ex p l ai n ed

, s t em s

l arg el y fro m i n ad eq u at e fu n di n g

. Si n ce at l eas t 2 0 10

, s t at e offi ci al s h av e “ req u es t ed

m o ney t o b e p l aced i n t h e st at e’ s b u d get fo r es t ab li s hi n g co t t ag es in t h e co m m u n i t y , i n o rd er t o i m

p l em en t th e co m

m u n i t y rei n t eg rat i o n p h as e,” b u t t he g o v ern or h as n ot

-1 0

-p ro p os ed t h at fu n d i n g to t he s t at e l eg i s l at u re. T h os e effo rt s by s t at e offi ci al s to

s ecu re fu n d in g ru n co u nt er to a co n cl u s i o n of d el i b erat e i n d i fferen ce b y t h e

d efen d an t s

. S e e Cu l l o r v. Ba l d wi n , 8 3 0 F.3 d 8 3 0

, 8 38 -3 9 (8 t h Ci r. 2 0 1 6 ). Th e

d i s t ri ct co u rt t raced t h e p ro b l em o f an n u al rev i ewers ap p l y i n g i n co rrect s t an d ard s to

a l ack o f l eg al t r a i n i n g

. T h i s fau l t i s h ard l y co m m en d ab l e, b u t i t i s i n su ffi ci en t to

p ro v e co ns ci en ce-s ho ck i ng d el i b er a t e i n d i fferen ce t o a res i d en t ’ s li b ert y wh en t h e

an n ual rev i ew i s p res en t ed t o a s t at e co u rt t h at is ch arg ed wi t h rev i ewi n g t h e m at t er

i n d ep en den t l y u n d er co rrect l eg al s t an d ard s

. A s i n Ka rs j en s , we co n cl u de t h at t h e

al l eg ed s h o rt co m i n g s i n t h e St at e’ s s ex ual l y v i o len t o ffen d er p ro gram d o n o t s h o ck

t h e co n s ci en ce.

No n e o f t h i s m ean s
, o f co u rs e, th at i n d i v i d u al res i d en t s are p recl u d ed fro m

p e t i t i o n i ng fo r rel eas e o n t h ei r o wn
, ou t si d e th e fram ewo rk o f t h i s cl as s act i o n

l i ti g at i o n

. Th e d i s t ri ct co u rt

, fo r ex am p l e, was p art i cu l arl y co n cern ed t h at ag ed an d

i n fi rm res i d en t s m ay n o l o ng er p o s e a ri s k o f co m m i t t i n g p r e d a t o ry act s of s ex u al

v i o l en ce i f rel eas ed

. W e h ol d o n l y t h at t he co n cep t o f s u bs t an ti v e d ue p ro ces s d o es

n o t ju s t i fy a fi n d i n g o f cl as s-wi d e l i ab i l i t y b as ed o n t h e al leg ed d efi ci en ci es o f s t at e

o ffi ci al s t h at were ad v an ced i n t h i s act i o n

.

B.

Th e res i d en t s al so ap peal t h e d i s t ri ct co urt ’ s d i s m i s s al o f t h ei r s t at e-l aw cl ai m s

wi t h p reju d i ce. Th e co u rt co n cl u d ed t h at t h e res id en t s h ad ab an d o n ed t hes e cl ai m s
,

an d we co n cl u de t h at t h ere i s n o rev ers ib l e erro r.

Th e res id en t s p l ead ed cl ai m s u nd er t h e M i s s o u ri C o n s t i t u t i o n
, b u t n ev er

d ev el o p ed t hem

. Th e res i d en t s l as t m en t i o n ed t h e st at e co n s t i t u t i o n i n t h ei r

m em o ran d u m i n o p p os i ti o n t o t h e s t at e o ffi ci al s’ m o t i o n t o di s m i s s
, an d ev en t h ere,

t h e referen ces cam e u n d e r h ead i n g s o f “ Fo u rt een t h Am en d m en t Su b s t an t i v e Du e

Pro ces s .” Aft er t h e d i s t ri ct co u rt i ss u ed i t s i n it i al l iab i l i t y o rd er, t he res i d en ts m o v ed

-1 1

-fo r cl ari fi cat io n, b u t n ev er rai sed t h e s t at e-l aw cl ai m s . Th e am en d ed l i ab i l i t y o rd er

d en ied al l p ray ers fo r r e l i ef ex cep t fo r th e cl ai m t h at t h e t reat m en t p ro g ram was

“ u n co n st i t u t i on al as ap p li ed an d d ep ri v e[d ] Pl ai n t i ffs an d t h e Treat m en t Cl as s o f t h ei r

co n st i t u t io n al ri g ht s.” Th e res i d en ts h ad an o t her ch an ce t o res urrect t he s t at e-l aw

cl ai m s wh en t h e d i s t ri ct co u rt req u es t ed s u p p l em en t al b ri efi n g i n l i g h t o f Ka r s j en s , b u t t hey b y

p as s ed t h at o p p ort u n i t y as wel l

. On t h i s reco rd

, i t w as n ot erro r fo r t h e

d i s t ri ct co u rt t o i n fer t h e res i d en t s had ab an d on ed t h ei r s t at e-l aw cl ai m s

. Th e d i s t ri ct

co u rt di d n o t a b u s e i t s d i s cret i o n i n d en y i ng t he m o t i on t o al t er o r am en d t h e
ju d g m en t

.

* * *

Th e ju d g m en t o f t h e d i s t ri ct co u rt i s affi rm ed

.

__ _ _ _ _ __ _ _ __ _ _ __ _ __ _ _ _ _ _ __ _ _ _ _

-1 2

-