Opinion ID: 779462
Heading Depth: 2
Heading Rank: 1

Heading: Jurisdiction and Qualified Immunity

Text: 14 We are asked to determine whether we have jurisdiction to hear an interlocutory appeal from a district court's decision to deny summary judgment on qualified immunity where, taking the plaintiff's facts as true, there is a genuine issue of material fact as to defendants' motivation in terminating an employee. We hold that we do not. 15 Jurisdiction in the case stems from 28 U.S.C. § 1291 (1994); this statute grants us jurisdiction to hear appeals from final judgments of district courts. A denial of summary judgment is generally not a final judgment. Phelps v. Coy, 286 F.3d 295 (6th Cir.2002); Johnson v. Jones, 515 U.S. 304, 309, 115 S.Ct. 2151, 132 L.Ed.2d 238 (1995). However, district court denials of qualified immunity may be appealed as collateral orders where (1) the defendant is a public official asserting the defense of qualified immunity, and (2) the issue appealed concerns not which facts the parties might be able to prove, but whether certain alleged facts reflect a violation of clearly established law. Cohen v. Beneficial Industrial Loan Corp., 337 U.S. 541, 69 S.Ct. 1221, 93 L.Ed. 1528 (1949); Mitchell v. Forsyth, 472 U.S. 511, 105 S.Ct. 2806, 86 L.Ed.2d 411 (1985). Adding one final wrinkle, the Supreme Court held in Johnson v. Jones, 515 U.S. 304, 115 S.Ct. 2151, 132 L.Ed.2d 238 (1995), that circuit courts do not always have jurisdiction over interlocutory appeals from a district court denial of summary judgment on qualified immunity; jurisdiction exists only where the district court's ruling is confined purely to questions of law. Therefore, officials may immediately appeal an adverse ruling on their defense of qualified immunity; however, they may only do so if the appeal presents a neat abstract [issue] of law rather than the question of whether the record demonstrates a genuine issue of fact for trial. Phelps, 286 F.3d at 298, quoting Berryman v. Rieger, 150 F.3d 561, 563 (6th Cir.1998) (internal quotations and citations omitted). 16 [G]overnment officials performing discretionary functions, generally are shielded from liability for civil damages insofar as their conduct does not violate clearly established statutory or constitutional rights of which a reasonable person would have known. Harlow v. Fitzgerald, 457 U.S. 800, 818, 102 S.Ct. 2727, 73 L.Ed.2d 396 (1982). If qualified immunity is applicable, the official is not only immune from damages, but is immune from suit. Mitchell v. Forsyth, 472 U.S. 511, 526, 105 S.Ct. 2806, 86 L.Ed.2d 411 (1985). The Sixth Circuit employs a two-step process in deciding questions of qualified immunity. First, the court considers whether, on the plaintiff's facts, there has been a constitutional violation. Second, the court considers whether that violation involved clearly established constitutional rights of which a reasonable person would have known. Dickerson v. McClellan, 101 F.3d 1151, 1158 (6th Cir.1996). 17 The crux of this case is the defendants' motivation in terminating Hoover. If they fired him because of his protected speech, qualified immunity should be denied. If they terminated him because of his insubordination, the opposite is true. The district court decided that there was a question of material fact as to whether the defendants entertained impermissible motives in discharging Hoover. We must decide whether this decision as to motivation is a legal or factual one. 18 Under Dickerson, we are first tasked with determining whether the plaintiff's facts spell out a constitutional violation, and then with determining whether that violation was of a clearly established constitutional right. We hold today that we do not have jurisdiction to review the factual determination of the district court that there was a genuine issue of material fact as to whether or not the defendants entertained unconstitutional motivations. 1 Because the determination of the district court was factual and did not raise significant legal questions, we dismiss that issue for lack of jurisdiction.
19 The threshold inquiry a court must undertake in a qualified immunity analysis is whether plaintiff's allegations, if true, establish a constitutional violation. Hope v. Pelzer, ___ U.S. ___, 122 S.Ct. 2508, 153 L.Ed.2d 666 (2002), quoting Saucier v. Katz, 533 U.S. 194, 201, 121 S.Ct. 2151, 150 L.Ed.2d 272 (2001). Here, Hoover has stated a claim for a violation of his rights to free speech under the First Amendment. When a public employee alleges that he was terminated in retaliation for protected speech, we look to three elements. First, the speech must be constitutionally protected. Bloch v. Ribar, 156 F.3d 673, 678 (6th Cir.1998). Speech is protected if it is on a subject of public concern, Connick v. Myers, 461 U.S. 138, 143, 103 S.Ct. 1684, 75 L.Ed.2d 708 (1983); moreover, the subject matter must be of sufficient importance to outweigh the interest of the state in conducting its affairs in a collegial manner. Pickering v. Bd. of Educ., 391 U.S. 563, 568, 88 S.Ct. 1731, 20 L.Ed.2d 811 (1968). In striking the balance, courts should consider whether an employee's comments meaningfully interfere with the performance of her duties, undermine a legitimate goal or mission of the employer, create disharmony among co-workers, impair discipline by superiors, or destroy the relationship of loyalty and trust required of confidential employees. Williams v. Commonwealth of Ky., 24 F.3d 1526, 1536 (6th Cir.1994). Second, the defendants' adverse action must constitute an injury that would likely chill a person of ordinary firmness from engaging in the protected activity. Bloch, 156 F.3d at 678. Third, the adverse action [must be] motivated at least in part as a response to the exercise of the plaintiff's constitutional rights. Ibid. 20 Here, Hoover's speech included informing state officials and citizen boards about the improper procedures being used by the Circleville Building Department. When an institution oversees some aspect of public safety, the correct operation of that institution is a matter of public concern. Mattox v. City of Forest Park, 183 F.3d 515, 521 (6th Cir.1999) (wrongdoing by a municipal fire department held to be of sufficient public interest to merit First Amendment protection). As the district court correctly concluded, the interest in public safety outweighs the state's interest in conducting its affairs collegially. Termination is an adverse action that would chill speech in a person of ordinary firmness. Mattox, 183 F.3d at 521. 21 The third part of a First Amendment speech claim looks to the defendants' motivation in terminating Hoover. When the defendants' intent is at issue, summary judgment is particularly inappropriate. Marohnic v. Walker, 800 F.2d 613, 617 (6th Cir.1986). An act taken in retaliation for the exercise of a constitutionally protected right is actionable even if the action would have been proper if taken for a different reason. Bloch, 156 F.3d at 681-82. 22 We find this Circuit's decision in Hoard v. Sizemore, 198 F.3d 205 (6th Cir.1999), dispositive on the question of whether we have jurisdiction to hear an interlocutory appeal from a district court's determination that a genuine issue of material fact exists as to motive. In Hoard, a number of employees were released and not rehired by a newly elected county official; the employees then brought a civil rights action claiming unlawful discharge for party affiliation. Id. at 208-09. The defendant moved for summary judgment on qualified immunity. The district court denied this motion, and the defendant appealed. Id. at 209-11. The Sixth Circuit held that, because the district court held that a genuine issue of material fact existed as to whether the defendant's refusal to rehire was based on political affiliation, the appeals court had no jurisdiction to consider the sufficiency of the plaintiff's evidence as to defendant's motivation. Id. at 218. 23 In this case, defendants assert a nonretaliatory reason for Hoover's termination: they argue that he was fired solely because of his death threat against Sheldon. However, several pieces of evidence point to a factual conflict regarding the actual motivation of defendants. First, accounts differ as to whether the physical confrontation between Sheldon and Hoover would justify Hoover's termination. By Hoover's description, Sheldon initiated the physical contact, was extremely aggressive and threatening, and may have intended to destroy documents that Hoover intended to use in a lawsuit. Sheldon alleged, in turn, that Hoover was threatening and hostile, that Hoover initiated physical contact, shoved him out of the room, and threatened his life. This is a quintessential factual question. 24 Further, evidence adduced at trial indicated that Hoover was disciplined for attempting to speak publicly about the actions of the Department. Hoover was censured for attempting to attend the supervisor's meeting. He was warned that his job would be in jeopardy if he continued to discuss publicly the Department's failure to comply with the law. Hoover's termination notice stated that he had been fired for refusing to carry out work assignments. Some of those assignments were those that he had been ordered to approve, had refused, and had then discussed publicly. 25 The district court ruled that this evidence created a genuine issue of material fact as to the motivation element of a free-speech violation. Under our precedent, we lack jurisdiction to review the determination of a district court when it makes such a factual determination. Hoard, 198 F.3d at 218. 26
27 As noted above, the Sixth Circuit uses a two-part test to determine whether an official is protected by qualified immunity. If a plaintiff's facts make out a constitutional violation, the court must then proceed to determine whether or not that right was clearly established. Sowards v. Loudon County, 203 F.3d 426, 438 (6th Cir.2000). The test for whether a right is clearly established was set out in Harlow v. Fitzgerald, 457 U.S. 800, 102 S.Ct. 2727, 73 L.Ed.2d 396 (1982): clearly established rights, for the purpose of qualified immunity, are clearly established statutory or constitutional rights of which a reasonable person would have known. Id. at 818, 102 S.Ct. 2727. A right is clearly established if a reasonable official would understand that what he is doing violates that right. Because this question comes to us on interlocutory appeal, we have jurisdiction to review the district court's ruling only if a pure question of law is presented. Johnson v. Jones, 515 U.S. 304, 115 S.Ct. 2151, 132 L.Ed.2d 238 (1995). In this case, the district court stated: 28 Reasonable officials, such as the Defendants in this case, would understand, for example, that disciplining, let alone terminating an employee for speaking publically about a matter of public concern violated his First Amendment rights. 29 Although we lack jurisdiction to review, on interlocutory appeal, a district court's determination that a genuine issue of fact as to the defendant's motivation remains for trial, we retain jurisdiction over the purely legal question of what constitutes a clearly established constitutional right. Mattox, 183 F.3d at 519. 30 Defendants rely on Boyd v. Baeppler, 215 F.3d 594 (6th Cir.2000), which held that a defendant may claim on [interlocutory] appeal that all of the conduct which the District Court deemed sufficiently supported for purposes of summary judgment met the ... standard of `objective legal reasonableness.' Boyd, 215 F.3d at 597, quoting Turner v. Scott, 119 F.3d 425, 428 (6th Cir.1997). Boyd noted: [W]e believe that the district court's assertion that there were genuine issue[s] of material fact does not destroy the appealability of its qualified immunity ruling.... Ibid. Defendants assert that we should hold that their conduct in terminating Hoover met the standard for objective legal reasonableness, because terminating an employee for threatening a supervisor is reasonable as a pure matter of law. On a closer reading of Boyd, we disagree with defendants' argument. 31 In Boyd, a civil rights claim was brought against police officers who shot and killed an armed suspect because he aimed a firearm at them. Id. at 596. The district court held that the police officers were not entitled to qualified immunity because there was a genuine issue of material fact as to whether it was objectively reasonable to use deadly force where (1) a suspect is running away from the officers in an attempt to escape; (2) the officers did not witness the suspect fire the weapon; and (3) no verified proof exists as to whether the suspect committed the crime. Ibid. The district court applied this fleeing felon test, found that there was a genuine issue of material fact as to whether, on this standard, the officers had acted reasonably, and therefore denied the officers' motion for summary judgment on grounds of qualified immunity. 32 However, as Boyd noted, a different legal test for determining reasonableness applies when a criminal does not merely flee, but threatens the life of an officer. The Boyd court determined that the district court should have applied a self defense rather than a fleeing felon standard of reasonableness. The Boyd panel distinguished Hoard by noting that the district court in Boyd had applied the wrong legal standard to determine self defense. Id. at 596-97. The Boyd court noted that courts of appeals retain jurisdiction over purely legal questions despite a district court's order stating that genuine issues of material fact existed.... Id. at 597. 33 In this case, there is no serious intimation that the district court applied the wrong legal standard in determining reasonableness; what defendants really contest is the preliminary determination, by way of denial of summary judgment, that there is a genuine issue of material fact as to their motivation in terminating Hoover. In order for the question to be purely legal, the defendants must argue that, as in Boyd, a different legal standard of reasonableness applies when an employee engages in violent behavior; for example, that it is per se reasonable to terminate an employee following a physical altercation no matter what protected activity the employee engaged in, and no matter who is at fault for the altercation; and that the district court employed the incorrect standard in evaluating reasonableness. 34 The argument is unavailing. We decline to establish a new standard of reasonableness for workplace violence. We agree with the district court that, as a matter of pure law, the rights here are clearly established: a reasonable official would know that terminating an employee with the motivation, even in part, of quieting the plaintiff's public speech about the illegal activities of the Department violates the Constitution. Beyond that, we lack jurisdiction to review the district court's determination as to factual issues as they relate to defendants' actual motivation. III 35 For the above reasons, we affirm the district court's determination that the rights in question were clearly established, and dismiss the remainder of the appeal for lack of jurisdiction.