UNITED STATES COURT OF APPEALS
FOR THE TENTH CIRCUIT

________________ _________________ RAYMOND SCHWAB; AMELIA SCHWAB, Plaintiffs - Appellants,

v. KANSAS DEPARTMENT OF CHILDREN AND FAMILIES; KIM YOXELL; ANGIE SUTHER; PHYLLIS GILMORE; GINA MEIER-HUMMEL; THERESA FREED; KENDRA BAKER; MIRANDA JOHNSON; LORA INGLES; BARRY WILKERSON; BETHANY FIELDS; RILEY COUNTY POLICE DEPARTMENT; CARLA SWARTZ; JULIA GOGGINS; KVC; PATHWAYS FAMILY SERVICES, LLC; PAWNEE MENTAL HEALTH SERVICES; SUNFLOWER CASA PROJECT; ST. FRANCIS COMMUNITY SERVICES; KATHY BOYD; LAURA PRICE; KAYLEE POSSEN; ANTHONY ALLISON; MICHELLE ALLISON; DOES 1-10, Defendants - Appellees, and KRIS KOBACH; SCOTT SCHWAB; RANDY DEBENHAM; BLAKE ROBINSON; ANDREW VINDUSKA; RHONDA EISENBAREGER; DEJAJACKSON; AMANDA ALLISONBALLARD, Defendants. No. 20-3099 (D.C. No. 2:18-CV -02488-DDC-GEB) (D. Kan.) FILED United States Court of Appeals Tenth Circuit 

### March 16, 2021 Christopher M. Wolpert Clerk of Court2 ________________ _________________ ORDER AND JUDGMENT *

________________ _________________ Before MORITZ , BALDOCK , and EID , Circuit Judges.

________________ _________________ Raymond Schwab and Amelia Schwab (the “Schwabs”) appeal from the district court’s judgment dism issing their pro se complain t in which they asserted claims against numerous defendants under 42 U.S.C. §§ 1983 and 1985 and Kansas state law. Exercising jurisdiction un der 28 U.S.C. § 1291, we affirm. I. Background While the Schwabs’ five children were st aying with their grandmother in April 2015, she and the children’s uncle, defendant Anthony Allison, contacted the police department in Riley County, Kansas (“RCP D”), to express concerns about how the Schwabs were caring for their children. The Schwabs later alleged that their relatives’ assertions to the police were false and that th e children were instead being

* After examining the briefs and appella te record, this pa nel has determined unanimously that oral argument would not ma terially assist in the determination of this appeal. See Fed. R. App. P. 34(a)(2); 10th Cir. R. 34.1(G). The case is therefore ordered submitted without oral argument. This order and judgment is not binding precedent, except under the doctr ines of law of the case, res judicata, and collateral estoppel. It may be cite d, however, for its persuasi ve value consistent with Fed. R. App. P. 32.1 and 10th Cir. R. 32.1.3 hidden from them. The RCPD took custody of the Schwabs’ children. Defendants Carla Swartz 1 and Julia Goggins were the inves tigating officers with RCPD. The State of Kansas initiate d proceedings in state c ourt to determine if the Schwab children were Children in Need of Care (“CINC”) under Kansas law. After a hearing, the state court pla ced the children in the temporary custody of the Kansas Department for Children and Families (“DCF” ) and appointed defendant Lora Ingles as guardian ad litem to re present the children. Fo llowing another hearing in July 2015, at which the Schwabs were represented by counse l, the state court adjudicated the Schwab children as CINC. Raymond appealed that decision. The Kansas Court of Appeals affirmed and th e Kansas Supreme Court denied review. In March 2016, the Schwabs filed a comp laint in federal district court (the “2016 Action”) against numerou s defendants alleging civil ri ghts violations and other claims related to the initial seizure of thei r children, the CINC adjudication, and later events. All defendants moved to dismiss. The district court dism issed certain claims without prejudice, holding they were either barred by the Rooker-Feldman 2 doctrine or the court was required to abstain pursuant to the Younger 3 doctrine. To the extent the Schwabs had asserted claims for m oney damages under §§ 1983 and 1985 that

1 The complaint named Carla “Schwartz” as a defendant. We refer to Carla “Swartz,” reflecting the spelling of her last name used by all parties and the district court in later filings.

2 Rooker v. Fid. Tr. Co. , 263 U.S. 413 (1923); D.C. Ct. of Appeals v. Feldman , 460 U.S. 462 (1983).

3 Younger v. Harris , 401 U.S. 37 (1971).4 were not barred by Rooker-Feldman , the court dismissed those claims with prejudice for failure to state plausible claims for re lief. The district court entered judgment against the Schwabs in the 2016 Action in Ju ly 2017. The Schwabs’ appeal to this court was dismissed for lack of prosecution. The Schwabs’ children were returned to their custody in December 2017. They filed this action in August 2018 (t he “2018 Action”), once again asserting claims related to the initial seizure of thei r children, the CINC adjudication, and later events. The Schwabs named as defenda nts in the 2018 Action some of the defendants they had named in the 2016 Action. They asserted federal civil rights claims under §§ 1983 and 1985, as well as claims under Ka nsas state law. In an order dated September 25, 2019 (the “First Di smissal Order”), the district court ruled on eleven motions to dismiss filed by twen ty-four of the defendants, granting some motions in their entirety and some only in pa rt. At that point, a few federal claims and some state-law clai ms remained pending. Anthony Allison and his s pouse, defendant Michelle Allison (the “Allisons”), were served with the Schwab s’ complaint in the 2018 Ac tion shortly after the First Dismissal Order was entered and more than a year after the case was filed. They moved to dismiss on October 8, 2019. In response to that motion, the Schwabs moved for leave to amend th eir complaint, seeking to amend not only their claims against the Allisons but also to cure deficiencies in their claims against other defendants in response to the First Dismissal Order.5 In an order dated April 28, 2020 (the “Second Dismissal Order”), the district court denied the Schwabs’ leave to amend their complaint. It held they could no longer amend as a matter of course under Fe deral Rule of Civil Procedure 15(a)(1), and denied them leave to amend under Ru le 15(a)(2) based upon their unexplained delay. The district court then dismisse d the Schwabs’ remaining federal claims, holding they failed to state plausible clai ms under §§ 1983 or 19 85, and declined to exercise supplemental jurisdic tion over the remaining state- law claims. It therefore dismissed the 2018 Action and entered a final judgment against the Schwabs.
II. Discussion On appeal, the Schwabs contend that the district court e rred in (1) denying them leave to amend; (2) dismissing some of their claims against some of the defendants based on the their fail ure “to state a claim to reli ef that is plausible on its face,” Robbins v. Oklahoma , 519 F.3d 1242, 1247 (10th Cir. 2008) (internal quotation marks omitted); (3) dismissing cl aims against defenda nts who were never served with the complaint; and (4) declining to exerci se supplemental jurisdiction over the remaining state-law claims afte r dismissing all of the federal claims. Because the Schwabs are proceeding pr o se, we liberally construe their complaint and their appeal brief. See Garrett v. Selby Connor Maddux & Janer , 425 F.3d 836, 840 (10th Cir. 2005); Cummings v. Evans , 161 F.3d 610, 613 (10th Cir. 1998). The Schwab s nonetheless must “follow th e same rules of procedure that govern other litigants.” Garrett , 425 F.3d at 840 (inter nal quotation marks omitted).6 A. Denial of Leave to Amend
1. Amendment as a Matter of Course In the district court, the Schwabs a sserted that they could amend their complaint once as a matter of course because they did so within 21 days after service of the Allisons’ motion to dismiss. Rule 15(a)(1)(B) provides that “[a] party may amend its pleading once as a matter of course . . . if the pleadi ng is one to which a responsive pleading is require d, 21 days after service of a responsive pleading or 21 days after service of a moti on under Rule 12(b), (e), or (f), whichever is earlier.” The district court rejected the Schwabs’ contention, holding they were required to seek leave to amend because a single 21-day period to amend as a matter of course had been triggered after the first motion to dismiss was filed in the case on December 27, 2018. The court noted, however, that there is a split of authority on Rule 15(a)(1)’s application in multi-defendant cases. We review de novo the district court’ s construction of a procedural rule. See Esposito v. United States , 368 F.3d 1271, 1275 (10th Cir. 2004). The Schwabs continue to assert on appeal that they filed their motion to amend within 21 days of the Allisons’ motion to dismiss. But they fa il to develop an argument that the district court erred in construing Rule 15(a)(1) to preclude an amendment as a matter of course at that time. See Kelley v. City of Albuquerque , 542 F.3d 802, 819 (10th Cir. 2008) (stating that “perfuncto ry” contentions of error “fai l[] to frame and develop an issue” and are therefore “[in]sufficient to invoke appellate review” (internal7 quotation marks omitted)). We will not craft such an ar gument for them. See Perry v. Woodward , 199 F.3d 1126, 1141 n.13 (10th Cir. 1999). 2. Unexplained Delay in Seeking Leave to Amend The Schwabs argue that the district c ourt erred in denying leave to amend under Rule 15(a)(2), which di rects that “[t]he court shou ld freely give leave when justice so requires.” The court denied th eir motion because they failed to explain their delay in seeking to amend for more th an a year after they filed their original complaint. See Minter v. Prime Equip. Co. , 451 F.3d 1196, 1206 (10th Cir. 2006) (“[D]enial of leave to ame nd is appropriate when the party filing the motion has no adequate explanation for the delay.” (inter nal quotation marks omitted)). It held the Schwabs did not adequately explain their de lay by stating that they had only recently discussed certain details of the case with their children. And it noted that they took no steps to amend their compla int in response to the eleven previous motions to dismiss, or even directly after en try of the First Dismissal Order. We review the denial of a motion fo r leave to amend for an abuse of discretion. Hertz v. Luzenac Grp. , 576 F.3d 1103, 1117 (10th Cir. 2009). The Schwabs’ contentions on appeal focus on th e timing of service on the Allisons, which did not occur until more than a year after the case was file d. While other defendants’ motions to dismiss were pending, the Schw abs and Allisons were litigating whether the Schwabs’ initial attempts at service on the Allisons were effective. The district court held they were not, but it declined to dismiss the Schwabs’ claims against the Allisons and instead allowed the Schwabs a dditional time to effect service. After8 they did so, the Allisons moved to dismiss and the Schwabs request ed leave to amend in response to that motion. Th ey assert that “there needed to be more clarification on the Allison[s’] involvement.” Aplt. Br. at 22. As to the other defendants, they state that they “did not feel the n eed to modify their complaint” in response to any of the previous eleven motions to dismiss, but they “decided to cure some other deficiencies” after the Alli sons moved to dismiss. Id. at 21. Regarding all defendants other than the Allisons, the Schwabs offer no reasoned basis to conclude th at the district court abused its discretion in denying leave to amend due to their unexplained dela y. The basis for th e court’s finding of undue delay is less clear, how ever, with respect to the Sc hwabs’ request for leave to amend their claims against the Allisons. It did not explicitly consider the proceedings regarding servi ce on the Allisons or the re levant—and short—timeframe between service of the compla int, the Allisons’ motion to dismiss, and the Schwabs’ motion for leave to amend. But we need not decide whether the court abused its discretion in denying the Schwabs leave to amend their claims ag ainst the Allisons based upon unexplained delay because we can affirm the district court’s ruling on the alternative ground that ame ndment would be futile. See Hertz , 576 F.3d at 1117. 4

4 Although the Schwabs argued in the dist rict court that amendment would not be futile, see R., Vol. II at 376-77, 525, 528-30, th e district court did not reach that issue, see id. at 574 n.7. But we can affirm on an alternative basis supported by the record. See Fields v. City of Tulsa , 753 F.3d 1000, 1013-15 ( 10th Cir. 2014) (noting court could affirm on any ba sis supported by the record and holding that amendment of plaintiff’s complaint would be futile). Nor will we intrude upon the district court’s discretion by doing so because futility of amendment is a legal rather than a discretionary determination. See Hertz , 576 F.3d at 1117.9 3. Futility of Amendment The Schwabs did not oppose the Allis ons’ motion to dismiss and instead sought leave to file their proposed amended complaint. We conclude that leave to amend would be futile because the propos ed amended complaint did not state a plausible claim for relief against the Allisons. The Schwabs’ proposed amended complain t removed all federal claims against the Allisons and asserted only one state-law claim against them: a “false light” claim under Kansas law. 5 A false light claim is one of four types of invasion of privacy claims in Kansas. See Dominguez v. Davidson , 974 P.2d 112, 12 1 (Kan. 1999). “One who gives to another publicity which places him before the public in a false light of a kind highly offensive to a reasonable man, is subject to liability to the other for invasion of his privacy.” Id. (alteration and internal quotation marks omitted). The elements of a false light claim are: “(1) publication of some kind must be made to a third party; (2) the publication must falsely represent the person; and (3) that representation must be highly offe nsive to a reasonable person.” Id. (internal quotation marks omitted). In the context of a false light/invasi on of privacy claim, “[p]ublicity . . . means that the matter is made public, by communicating it to the

5 The only count explicitly asserted ag ainst the Allisons in the Schwabs’ proposed amended complaint was Count 4 alleging publicity placing the Schwabs in a false light. Unlike all the other count s, Count 2—alleging claims under §§ 1983 and 1985—did not explicitly st ate which defendants it was as serted against. But in their reply in support of th eir motion to amend the Schw abs made clear that their proposed amended complaint “removed Federa l Claims against th e Allisons.” R., Vol. II at 529. We therefore do not constr ue Count 2 as brought against the Allisons.10 public at large, or to so many persons that the matter must be regarded as substantially certain to become one of public knowledge.” Id. (internal quotation marks omitted). A false light claim fails if “the alleged offensive statements had not become common knowledge in the . . . public arena.” Id. (affirming summary judgment in the absence of “evidence to show such widespread disclosure of private

matters as to cons titute publicizing”). In their proposed amended complaint, the Schwabs made collective false light allegations against all nine of the named defendants (plus Does 1-10) against whom they brought that claim. See R., Vol. II at 461 (making allegations against “all the individual defendant listed above”). Such collective allegati ons are insufficient to put the Allisons on notice of the wrongf ul acts they allegedly committed. See Robbins , 519 F.3d at 1250 (holding that co llective allegations do not satisfy a plaintiff’s “burden . . . to provide fair notice of the gr ounds for the claims made against each of the defendants”). The Schwabs did also include the followi ng allegations specifically against the Allisons: [I]n January of 2016 wh en journalist David Olinger of the Denver post contacted the Schwab’s [sic] after runn ing a story about the Removal of the Schwab children. He informed the Schwab’s [sic] that Anthony and Michelle contacted him after publishi ng the story and told him that the Schwab’s [sic] were meth addicts, th at they abused and neglected their kids, that the Plaintiff’s [sic] were liars and should not be believed. This pattern continued to the Schools, th erapist of the children, and email exchanges between the other defendants and the Allisons.11 R., Vol. II at 461. These al legations fail to state a plau sible false light claim because they do not allege that the Alliso ns’ statements to the reporter, aftera newspaper story had already been publis hed, were ever communicated to the public at large. And communication of (presumably) the same statements to the Schwabs’ children’s schools, therapist, and other unspecified defendants, all of whom were involved in the CINC proceedings, would not show that “the matter must be regarded as substantially certain to become one of public knowledge.” Dominguez , 974 P.2d at 121 (internal quotation marks omitted); see also Werner v. Kliewer , 710 P.2d 1250, 1256 (Kan. 1985) (holding that communica tion to persons involved in a divorce proceeding did not constitute “publicity”). Because the Schwabs’ proposed amended complaint failed to state a plausible claim against the Allisons, we affirm the district court’ s denial of leave to amend under Rule 15(a)(2) based on the alternative ground of futility.
B. Dismissal of Claims The Schwabs challenge the district court’ s dismissal of some of their claims against some of the defendants. 6 We review de novo a cour t’s dismissal for failure to state a claim under Federal Rule of Civil Procedure 12(b)(6). SEC v. Shields , 744 F.3d 633, 640 (10th Cir. 2014).

6 We note that the Schwabs do not challe nge the court’s dismissal of any of their § 1985 claims based on a failure to alle ge racial or class- based discriminatory animus.12 1. Dismissal of § 1983 Claims Against the Allisons The district court held that the Schw abs failed to state a claim under § 1983 against the Allisons becau se they did not allege sufficient facts plausibly demonstrating that the Allisons’ conduct wa s “fairly attributab le to the State,” Gallagher v. Neil Young Freedom Concert , 49 F.3d 1442, 1447 (10th Cir. 1995) (internal quotation marks omitted). “Under Section 1983, liability attaches only to conduct occurring ‘under color of law.’” Id. (quoting § 1983). Thus, under the state action doctrine, a proper defenda nt in a § 1983 action is one who represents the state in some capacity. Id. We “apply[] a variety of tests to the facts of each case” to determine “whether particular co nduct constitutes state action.” Id. Under the joint action test, “courts examine whether state o fficials and private pa rties have acted in concert in effecting a pa rticular deprivation of constitutional rights.” Id. at 1453. Here, the district court held that complaining to a po lice officer about a person’s conduct does not, without more, constitute state action. See Carey v. Cont’l Airlines, Inc. , 823 F.2d 1402, 1404 (10th Cir. 1987). The Schwabs argue this holding mischaracterized thei r claims, which they say were based on a conspiracy between the Allisons, other relatives, and the RCPD to deprive them of lawful control of their children. But the court held their cons piracy allegations we re conclusory and insufficient to demonstrate state action wh ere they “pleaded no facts capable of supporting a rational finding that there wa s a meeting of the minds, the defendants formed an agreement, or that they engaged in a general c onspiracy.” R., Vol. II at 580; see Beedle v. Wilson , 422 F.3d 1059, 1073 (10th Cir. 2005) (“[W]hen a plaintiff13 attempts to assert the stat e action required for a § 1983 cl aim against private actors based on a conspiracy with government actor s, mere conclusory allegations with no supporting factual averments are insufficient.” (internal quotation marks omitted)). The Schwabs do not cite to a ny nonconclusory allegations in their compla int that are sufficient to show agreemen t and concerted action between the Allisons and any state actor. They therefore fail to demonstrate error in the district court’s dismissal of their § 1983 claims against the Allisons base d on their failure to sufficiently allege conduct constituting state action. 7 2. Dismissal of § 1983 Claims Against KVC, St. Francis Community Services, Kathy Boyd, Laura Price, and Kaylee Possen The district court also dismissed the Schwabs’ § 1983 claims against private parties KVC, St. Francis Community Servi ces, Kathy Boyd, Laura Price, and Kaylee Possen because the complaint failed to assert nonconcluso ry allegations of conduct amounting to state action. The Schwabs alleged that St. Francis and KVC are private, nonprofit corporations that were each “awarded a so cial services contract by DCF to provide similar services that DCF w ould otherwise provide.” R., Vol. I at 39,

7 The Schwabs also contend th at, in its First Dismissal Order, the district court omitted certain allegations a nd mischaracterized others regarding their relatives’ report to the RCPD and later events. See Aplt. Br. at 29. In ruling on a Rule 12(b)(6) motion, a court must “accept as true all well-pleaded factual allegations in the complaint and view them in the light most favorable to the [plaintiff].” Shields , 744 F.3d at 640 (internal quotation marks om itted). But the Schwabs do not point to any error in the district court’s rulings in the First Dismissal Order as a result of such mischaracterization or omission.14 40; see also id. at 92 (stating that DCF “contracted out core public functions” to these private entities). Boyd, Price, and Possen are employees of St. Francis. On appeal, the Schwabs argue that thes e defendants’ conduct qualifies as state action under two of the recognized tests. Th ey first invoke the symbiotic relationship test, see Gallagher , 49 F.3d at 1451, asserting that St. Francis and KVC “are solely tasked and contracted for providing fostercare placement, investigation, and adoption service in place of and in symbio tic relationship with Kansas DCF,” Aplt. Br. at 27. Setting aside that no such alle gation is found in thei r complaint, this contention is insufficient to demonstrat e state action under the narrowly-applied symbiotic relationship test. See Gallagher , 49 F.3d at 1451. Rather, “[t]he [Supreme] Court has held that extensive st ate regulation, the receipt of substantial state funds, and the performance of impor tant public functions do not necessarily establish the kind of symbiotic relations hip between the government and a private entity that is required for state action.” Id. Next, contending that these defendants “work[] in place of DCF to provide core foster care serv ices,” Aplt. Br. at 28, the Sc hwabs argue that their alleged conduct qualifies as state acti on under the public function test, see Gallagher , 49 F.3d at 1456. “If the st ate delegates to a private pa rty a function traditionally exclusively reserved to the St ate, then the private party is necessarily a state actor.” Id. (citation and internal quotation marks omitte d). But “[t]his test is difficult to satisfy” because “[w]hile many functions have been traditionally performed by15 governments, very few have been ex clusively reserved to the State.” Id. (internal quotation marks omitted). In a similar context, we held that neither an adoption service nor adoptive parents were state actors unde r the public function test. See Johnson v. Rodrigues , 293 F.3d 1196, 1203 (10th Cir. 2002). And other courts ha ve held that the care of foster children is also not a power traditionally exclusivel y reserved to the state. See,

e.g. , Leshko v. Servis , 423 F.3d 337, 343 (3d Cir. 2005) (“No aspect of providing care to foster children in Pennsylvania has ev er been the exclus ive province of the government.”); Rayburn ex rel. Rayburn v. Hogue , 241 F.3d 1341, 1347 (11th Cir. 2001) (holding that foster care is not trad itionally an exclusive state prerogative). The Schwabs do not cite any authority for th e proposition that the care of foster children in Kansas is a power traditionally exclusively re served to the state. The Schwabs have not demonstrated erro r in the district court’s dismissal of their § 1983 claims against KVC, St. Franci s, Boyd, Price, and Possen based on a failure to sufficiently allege conduct constituting state action. 3. Dismissal of § 1983 Clai ms Against Swartz and Goggins Swartz and Goggins were the investigat ing officers with RCPD. The district court dismissed the Schwabs’ § 1983 claims against both of these defendants in the 2018 Action. It appl ied claim preclusion to dismiss th e claims against Swartz based16 upon the judgment entered in the 2016 Ac tion, and it held both defendants were entitled to qualified immunity. 8
a. Swartz Swartz was a defendant in the 2016 Actio n. On several different grounds, the district court dismissed the claims ag ainst her under §§ 1983 and 1985 in that previous action for failure to st ate plausible claims for relief. It first held that Swartz was entitled to witness imm unity against claims based upon her testimony during the CINC proceedings. 9 The court also held that Sw artz was entitl ed to qualified immunity because the Schwab s’ conclusory allegations failed to sufficiently demonstrate a constitutional viol ation. It further held th at their § 1985 claims failed because the Schwabs did not allege racial or class-based discriminatory animus. After dismissing all of the federal claims in the 2016 Action, the court declined to exercise supplemental jurisd iction over any state-law clai ms and entered judgment in the defendants’ favor. The district court also granted Swartz ’s motion to dismiss in the 2018 Action, holding that the claims ag ainst her under § 1983 were ba rred by claim preclusion. Claim preclusion applies when there was “(1) a judgment on the meri ts in the earlier action; (2) identity of the part ies or their privies in both su its; and (3) identity of the

8 The Schwabs do not challenge the distri ct court’s bases fo r dismissing their state-law claims against these defendants.

9 The Schwabs incorrectly as sert that witness immunity was the sole basis for dismissal of their federal claims against Swartz in the 2016 Action.17 cause of action in both suits.” Yapp v. Excel Corp. , 186 F.3d 1222, 1226 (10th Cir. 1999). As to the third element, the distri ct court concluded that the claims against Swartz in the 2018 Action arose from the same transaction or series of transactions as the claims against her in the 2016 Action. See id. at 1227 (noting “[t]his court has adopted the transactional approach,” which “provides that a clai m arising out of the same transaction, or series of connected transactions as a previous suit, which concluded in a valid and fina l judgment, will be preclude d” (internal quotation marks omitted)). The Schwabs argue the district court erred in applying claim preclusion to dismiss their § 1983 claims against Swar tz in the 2018 Action because, under Youngerabstention, they could not bring cl aims against Swar tz until the state proceedings concluded. But in the 2016 Ac tion the district court only abstained from deciding their equitable claims . It dismissed with prejudi ce their federal claims for money damages. The Schwabs fail to de monstrate error in the district court’s holding that the prior judgment in the 2016 Action barred their § 1983 claims against Swartz in the 2018 Action. b. Goggins The district court dismissed the Sc hwabs’ § 1983 claims against Goggins based on qualified immunity because they did not allege facts suffi cient to show that18 she plausibly violated thei r constitutional rights. See Robbins , 519 F.3d at 1248-49. 10 The defense of qualified immunityprotects government officials from individual liability under 42 U.S. C. § 1983 for actions taken while performing discretionary functions, unl ess their conduct violates clearly established statutory or constitutional rights of which a reasonable person would have known. When a defend ant pleads qualified immunity, the plaintiff has the heavy burden of establishing: (1) that the defendant’s actions violated a federal constitutional or statutory right; and (2) that the right violated was clearly established at the time of the defendant’s actions. Malik v. Arapahoe Cnty. Dep’t of Soc. Servs. , 191 F.3d 1306, 1314 (10th Cir. 1999) (citation and internal quotation marks omitted). The district court concluded that “[t]he relatively few allega tions plaintiffs make agains t . . . Goggins are either conclusory or too vague to provide [he r] with notice of plaintiffs’ theory of recovery.” R., Vol. II at 238-39. The Schwabs argue error in this ruling but they do not cite to any allegations in their complaint sp ecifically against Goggins, as required by the Federal Rules of Appellate Procedure. See Fed. R. App. P. 28(a)(8) (r equiring “citations to the . . . parts of the record on which the appellant relies”). And the majority of their argument on qualified immunity addresses the alleged conduct of Swartz rather than Goggins. We have nonetheless identified the fe w allegations against Goggins in the Schwabs’ complaint. They alleged only that she scheduled an appointment for Anthony Allison to bring the children into the police station without notifying the

10 The Schwabs also assert th at the district court dism issed their claims against Goggins based upon claim preclusion. It di d not, as Goggins was not a defendant in the 2016 action.19 Schwabs and without furthe r investigating the report by the Schwabs’ maternal relatives that they had abandoned their children while on a drug binge. See R., Vol. I at 45-46. The complaint further alleged that the children were seized by the RCPD but without indicating Goggins’ role , if any, in that action. See id. at 46. The Schwabs fail to demonstrate er ror in the district court’s holding that these allegations were too vague to provide Goggins with no tice of their theory of recovery against her. See Robbins , 519 F.3d at 1250 (noting “it is particularly important in” § 1983 cases against government actors “that the complaint make clear exactly who is alleged to have done what to whom , to provide each individual with fair notice as to the basis of the claims against him or her”). 4. Dismissal of § 1983 Claims Against Ingles The district court dismissed the Schwab s’ § 1983 claims ag ainst Ingles, who was the court appointed guardian ad litem fo r their children. The court held that Ingles was entitled to immunity for her acts within the core duties of her work in that role. See Dahl v. Charles F. Dahl, M.D ., P.C. Defined Benefit Pension Tr. , 744 F.3d 623, 630 (10th Cir. 2014) (holdi ng that immunity extends to “acts . . . with in the core duties of a [guardian ad litem ] in assisting the court—th at is, performing a function closely associated with the judicial process” (brackets and internal quotation marks omitted)). The Schwabs argue error in this ruling. They mainta in that Ingles worked outside the scope of her posit ion by engaging in various t ypes of allegedly wrongful conduct as asserted in thei r complaint, including failing to investigate and provide a20 report to the court; acting as a fact finde r for the court; promo ting a narrative she knew or should have known was false; aggressively contacting reporting service providers, demanding confidential informat ion from them, and attempting to bias them against the Schwabs; and presenting the Schwabs in a false light to their counselors. A guardian ad litem is not immune “for acts taken in the clear absence of all jurisdiction.” Id. (internal quotation marks omitted). But a guardian ad litem’s act does not fall outside her jurisdiction just be cause it was in error, wrongful, unlawful, done maliciously, or in excess of her authority. Id. at 630-31. This is so because “[i]mmunity is conferred so that judicial officers can exercise their judgment (which on occasion may not be very good) without fear of being sued in tort.” Id. at 631. The Schwabs’ allegations of wrongful condu ct by Ingles do not de monstrate that she “acted in the clear absen ce of all jurisdiction.” Id. (internal quotation marks omitted). They therefore fa il to show the district c ourt erred by holding she was entitled to quasi-judicial immunity. 5. Dismissal of Individual-Capa city Claims Against Phyllis Gilmore, Angie Suther, Ki m Yoxell, Theresa Freed and Kendra Baker Phyllis Gilmore, Angie Suther, Kim Yoxell, Theresa Freed, and Kendra Baker are employees of DCF (hereaf ter, the “DCF individuals” ). The Schwabs alleged claims against them in both their official and individual capacities. DCF moved to dismiss only the official-cap acity claims, noting that th e DCF individuals had not been served with the comp laint in their individual cap acities. In response, the21 Schwabs purported to “withdraw claims agai nst these defendants[] in their official capacity.” R., Vol. I at 522. As to service of their individual-capacity claims, they asked the district court to order DCF’s counsel to provide them with the DCF individuals’ addresses. Al ternatively, they asked the court to dismiss the individual-capacity claims without prejudice. In the First Dismissal Orde r, the district court denied the Schwabs’ request for an order directing DCF’s counsel to provide the DCF individuals’ addresses. But the court exercised its discretion to extend th e time for service a nd warned that the individual-capacity claims ag ainst the DCF individuals w ould likely be dismissed if the Schwabs did not complete service within 30 days. Six months later, when the Schwabs still had not served the DCF individuals, the c ourt dismissed the individual-capacity claims against them without prejudice based on the Schwabs’ failure to prosecute. On appeal, the Schwabs assert that the district court “knew, or should have known,” Aplt. Br. at 35, that they had substantially complied with the statutory service requirements by serving the DCF individuals in thei r official capacities, and in any event, that service was effective because it resu lted in the DCF individuals having actual notice of the case . They therefore contend th at the district court erred in dismissing their individual-capacity claims against these defendants. But the Schwabs did not argue in res ponse to DCF’s motion to dismiss that service upon the DCF individuals had already been satisfied; they instead asked for the defendants’ addresses and more time to serve them. Nor do the Schwabs indicate22 where this issue was otherwise raised and ruled on in the di strict court, as required by Tenth Circuit Rule 28.1(A) (“For each issue raised on appeal, all br iefs must cite the precise references in the record where the issue was raised and ruled on.”). Because the Schwabs fail to argue for plain error re view, we do not address their argument for reversal raised for the first time on appeal. See Richison v. Ernest Grp., Inc. , 634 F.3d 1123, 1130-31 (10th Cir. 2011). 6. District Court’s Decision Not to Exercise Supplemental Jurisdiction Over Remaining State-Law Claims In the First Dismissal Order, the district cour t rejected the Schwabs’ contention that it had subj ect matter jurisdiction over th eir state-law claims under 28 U.S.C. § 1332 based upon dive rsity of citizenship. It he ld that their complaint did not satisfy the “matter in cont roversy” requirement because they failed to allege facts establishing that all defendants were join tly liable for the aggr egate damages they alleged in excess of $75,000. See Alberty v. W. Sur. Co. , 249 F.2d 537, 538 (10th Cir. 1957). Then, afte r dismissing all of the fede ral claims in the Second Dismissal Order, the court declined to exercise supplemental jurisdiction over the remaining state-law claims and dism issed those claims without prejudice. 11 On appeal, the Schwabs do not reassert their contention that their complaint was sufficient to invoke jurisdiction under § 1332. They claim instead that their proposed amended complaint would cure the de fect identified by th e district court.

11 At that time, there were state-law claims remaining against Boyd, Price, Possen, Ingles, KVC, St. Francis, Pawnee Me ntal Health Services, the Allisons, and Does 1-10. See R., Vol. II at 584.23 Because we affirm the district court’s denial of leave to file the proposed amended complaint, as well as its dismissal of all of the fede ral claims in the Schwabs’ complaint, we likewise affi rm the court’s decision not to exercise supplemental jurisdiction over their rema ining state-law claims.
III. Conclusion The district court’s judgment is affirmed.

Entered for the Court
Bobby R. Baldock Circuit Judge