Thomas v. Texas Department of Family & Protective Services

Case: 10-10405 Document: 00511495824 Page: 1 Date Filed: 06/02/2011

IN THE UNITED STATES COURT OF APPEALS

FOR THE FIFTH CIRCUIT United States Court of Appeals

Fifth Circuit

FILED

June 2, 2011

No. 10-10405 Lyle W. Cayce

Summary Calendar Clerk

LORENZO ALLEN THOMAS; HEATHER D. SHOUGH,

Plaintiffs–Appellants

v.

TEXAS DEPARTMENT OF FAMILY AND PROTECTIVE SERVICES; and

Jane/John Does 1–10; THOMAS CHAPMOND; CARNESHA COLLINS;

PAULA PIETZ; JOYCE COLEMAN-ALFORD; CRYSTAL MARTIN;

TARRANT COUNTY; TARRANT COUNTY DISTRICT ATTORNEY’S

OFFICE; LISA HAINES; SAFE HAVEN MISSION; JOE SHANNON, JR.,

Defendants–Appellants

Appeal from the United States District Court

for the Northern District of Texas

USDC No. 4:10-CV-193

Before WIENER, PRADO, and OWEN, Circuit Judges.

PER CURIAM:*

Lorenzo Allen Thomas and Heather D. Slough, both proceeding pro se and

in forma pauperis (“IFP”), challenge the district court’s dismissal of their claims

without prejudice against the Texas Department of Family and Protective

*

Pursuant to 5TH CIR . R. 47.5, the court has determined that this opinion should not

be published and is not precedent except under the limited circumstances set forth in 5TH CIR .

R. 47.5.4.

Case: 10-10405 Document: 00511495824 Page: 2 Date Filed: 06/02/2011

No. 10-10405

Services (“TDFPS”), Tarrant County, the Tarrant County District Attorney’s

Office, Safe Haven Mission, and several employees of these entities in their

individual and official capacities. On appeal, Appellants contend that the

district court improperly dismissed their Fourth and Fourteenth Amendment

unreasonable search-and-seizure claim that Defendants entered their home

without consent and removed their child without a warrant, court order, or

exigent circumstances. While the district court correctly dismissed the claims

as to all defendants other than Carnesha Collins, we find that the district court

erred in dismissing Appellants’ unreasonable search-and-seizure claim against

Collins. Therefore, we affirm in part, and reverse and remand in part.

I. FACTUAL AND PROCEDURAL BACKGROUND

On or about June 15, 2009, Plaintiffs Lorenzo Allen Thomas and Heather

D. Shough got into an argument. The two lived together at the time with their

young daughter. As a result of the argument, Shough left the home late one

night and relocated to a shelter, where she informed the counselors that Thomas

had choked her and that she was a victim of domestic violence. Both Shough

and Thomas now claim that Thomas did not abuse Shough, but that Shough

manufactured the allegations because she was angry at Thomas for continuing

to smoke marijuana. Regardless, Appellants’ complaint alleges that a call was

placed to TDFPS, and that Defendant Carnesha Collins, an employee of TDFPS,

told Shough that if she left the shelter she would not be allowed to take her

daughter with her. Collins also allegedly informed Shough that if TDFPS found

out that she had contact with Thomas, TDFPS would remove their child from the

home. Shough then called Thomas, who agreed to leave the house so that

Shough and their child could return home.

After Shough returned home with the child, on or about June 23, 2009,

Collins paid a visit to Shough’s residence. It is unclear from the complaint

whether or not this visit was scheduled. The complaint alleges that Collins

2

Case: 10-10405 Document: 00511495824 Page: 3 Date Filed: 06/02/2011

No. 10-10405

knocked on Shough’s door, which Shough opened, and that Collins then walked

into the house uninvited and began questioning Shough about why she left the

shelter, whether she had been using drugs, and whether she had been seeing

Thomas. Shough admitted to smoking marijuana on June 19, and denied having

contact with Thomas except once when she turned him away when he tried to

collect personal items from the house. Collins then allegedly drafted a “safety

plan,” whereby TDFPS would remove the child if Shough used drugs or had

contact with Thomas in the future. The complaint states that later the same

day, Shough took her daughter to the doctor for a physical and her daughter was

given a “healthy report.”

On June 25, 2009, Collins and three unidentified women allegedly

awakened Shough by knocking at her door. The complaint states that Collins

and the women told Shough that she must move back to Ohio to live with her

parents if she wanted to retain custody of the child. After initially refusing,

Shough called her parents on the phone to discuss arrangements. After hanging

up, Collins claimed that Shough had told Shough’s mother on the phone that she

had been in contact with Thomas, which Shough denied. Collins then convinced

Shough to take a drug test, and while taking the test, one of the women allegedly

grabbed Shough’s daughter and ran out the door. The complaint alleges that

Collins then gave Shough a “notice of removal of child” and told Shough: “Now

you can be with [Thomas] all you want.”

Because Appellants only contest the district court’s dismissal of their

illegal search-and-seizure claim on appeal, the rest of the allegations in the

complaint are not relevant to this appeal. In summary, after numerous

proceedings concerning custody of the child and parental rights, on February 10,

2010, Shough received a letter from TDFPS stating that it had ruled out

allegations of abuse and neglect for lack of evidence and had closed the case.

Although the complaint states that Shough and Thomas’s daughter was in

3

Case: 10-10405 Document: 00511495824 Page: 4 Date Filed: 06/02/2011

No. 10-10405

TDFPS custody for approximately nine months, it is unclear whether she was

ultimately returned to Shough’s care.

On March 23, 2010, Appellants filed suit pro se in the U.S. District Court

for the Northern District of Texas, asserting nine claims against Defendants

under 42 U.S.C. §§ 1983 and 1988. Appellants also filed motions for

appointment of counsel and to proceed IFP, the latter of which the district court

granted on April 12, 2010. On April 15, 2010, the district court sua sponte

reviewed whether it should dismiss Appellants’ complaint pursuant to 28 U.S.C.

§ 1915(e)(2)(B). Section 1915(e)(2)(B) allows the district court to sua sponte

dismiss any IFP complaint that it finds “frivolous or malicious,” that “fails to

state a claim on which relief may be granted,” or that “seeks monetary relief

against a defendant who is immune from such relief.” The district court

dismissed Appellants’ complaint without prejudice on two grounds. First, it held

that TDFPS and its officials sued in their official capacities are immune from

liability under the Eleventh Amendment, and that neither the agency nor

officials have waived that immunity. Second, the district court held that it

lacked subject-matter jurisdiction over all of the claims, because “[t]his is strictly

a suit affecting the parent-child relationship that is currently being litigated in

the Texas family courts, and Plaintiffs’ attempts to cast it as a civil rights

complaint are unavailing.” Based upon the dismissals, the district court denied

Appellants’ motion for appointment of counsel. Appellants timely appealed.

II. STANDARD OF REVIEW

Because the district court’s dismissed Appellants’s claim on immunity

grounds and impliedly because Appellants failed to state a claim on which relief

can be granted, we review the dismissal de novo. See, e.g., Black v. Warren, 134

F.3d 732, 734 (5th Cir. 1998) (“We . . . employ the same de novo standard to

review the § 1915(e)(B)(ii) dismissal as we use to review dismissal pursuant to

4

Case: 10-10405 Document: 00511495824 Page: 5 Date Filed: 06/02/2011

No. 10-10405

12(b)(6).”). We review the district court’s denial of Appellants’ motion to appoint

counsel for abuse of discretion. Cupit v. Jones, 835 F.2d 82, 86 (5th Cir. 1987).

III. DISCUSSION

On appeal, Appellants’ brief challenges only the district court’s dismissal

of its Fourth and Fourteenth Amendment unreasonable search-and-seizure

claim and the denial of appointment of counsel. Additionally, the arguments in

Appellants’ brief address only why dismissal was improper as to Defendant

Collins, Safe Haven Mission, and perhaps TDFPS as an entity. The brief makes

no mention of the roles of the other Defendants relevant to the unreasonable

search-and-seizure claim. Therefore, arguments as to the dismissal of all other

Defendants are waived. Sanders v. Unum Life Ins. Co. of Am., 553 F.3d 922,

926 (5th Cir. 2008) (“A party waives an issue if he fails to adequately brief it on

appeal.”). Further, Appellants failed to make any allegation in their complaint

regarding the role of Safe Haven or its employees in the illegal search-and-

seizure. While Appellants’ brief implies that Safe Haven employees entered

Shough’s residence without consent along with TDFPS employees, they fail to

make any such claim in their complaint. Therefore, we affirm the dismissal of

the claims against Safe Haven for failure to state a claim upon which relief can

be granted.

A. Eleventh Amendment Immunity

To the extent that Appellants preserved any arguments against TDFPS

as an entity, the district court correctly dismissed claims against TDFPS

pursuant to the Eleventh Amendment. As this Court and the Supreme Court

have held, “The eleventh amendment generally divests federal courts of

jurisdiction to entertain citizen suits directed against states.” Stem v. Ahearn,

908 F.2d 1, 3 (5th Cir. 1990) (citing Port Auth. Trans–Hudson Corp. v. Feeney,

495 U.S. 299 (1990); Edelman v. Jordan, 415 U.S. 651, 662–63 (1974)).

Similarly, suits against employees of state entities in their official capacity run

5

Case: 10-10405 Document: 00511495824 Page: 6 Date Filed: 06/02/2011

No. 10-10405

afoul of the Eleventh Amendment. Id. (citing Pennhurst State Sch. & Hosp. v.

Halderman, 465 U.S. 89, 101–02 (1984); Ford Motor Co. v. Dep’t of Treasury, 323

U.S. 459, 464 (1945)). Although the Ex Parte Young doctrine creates an

exception to this rule concerning suits for prospective relief against individual

state actors, Ex Parte Young “has no application in suits against . . . States and

their agencies.” P.R. Aqueduct & Sewer Auth. v. Metcalf & Eddy, Inc., 506 U.S.

139, 146 (1993). TDFPS is undisputedly a state entity that has not waived its

immunity. See Stem, 908 F.2d at 4 (“Texas has not consented to be sued in

federal court by resident or nonresident citizens regarding its activities to

protect the welfare of children.”). Therefore, the district court properly

dismissed all claims against TDFPS and all official capacity claims against

TDFPS employees.

B. Qualified Immunity

The only remaining issue, therefore, is whether the district court properly

dismissed Appellants’ individual capacity unreasonable search-and-seizure claim

against Defendant Collins. As a first matter, we cannot accept the district

court’s justification for dismissal of all the claims: that Appellants’ suit is merely

an attempt to shoehorn a parent–child relations dispute that is pending in state

court into a civil rights complaint. The district court’s citation in support of its

dismissal on these grounds refers to a case where the district court remanded a

complaint to state court in part because the complaint “consisted of purely state

law claims concerning the State's protection of children.” Tex. Dep’t of Protective

& Regulatory Servs. v. Mitchell-Davis, No. 3:07-CV-1726-D, 2007 WL 4334016,

at *4 (N.D. Tex. Dec. 11, 2007). Here, Appellants have made claims asserting

federal constitutional violations, and seek monetary relief and injunctive relief

to prevent further allegedly unconstitutional searches and seizures. The mere

fact that the underlying dispute arose from an issue concerning a parent–child

relationship does not destroy a federal court’s jurisdiction over a properly

6

Case: 10-10405 Document: 00511495824 Page: 7 Date Filed: 06/02/2011

No. 10-10405

pleaded constitutional claim. Therefore, we must proceed to consider whether

the district court erred in dismissing Appellants’ individual capacity claim

against Collins.

We have previously held that social workers employed by state agencies

may assert a qualified immunity defense when sued under 42 U.S.C. § 1983. See

Roe v. Texas Dep’t of Protective & Regulatory Servs., 299 F.3d 395, 400 (5th Cir.

2002). The district court had not yet requested that Defendants respond to the

complaint in this suit, and therefore Collins has not had an opportunity to assert

a qualified immunity defense. Nonetheless, pursuant to 28 U.S.C.

§ 1915(e)(2)(B)(iii), we may affirm the district court’s dismissal of the claim

against Collins if we find that she is entitled to qualified immunity. We find

that based on the complaint alone, Collins is not entitled to qualified immunity

at this time, and therefore the district court erred in dismissing Appellants’

individual capacity unreasonable search-and-seizure claim against her. We

emphasize that this does not preclude the district court from finding that Collins

is entitled to qualified immunity at any time upon remand, including after the

filing of responsive pleadings or at the summary judgment stage.

Qualified immunity protects state officials from civil damages liability

“insofar as their conduct does not violate clearly established statutory or

constitutional rights of which a reasonable person would have known.” Pearson

v. Callahan, 555 U.S. 223, 129 S. Ct. 808, 815 (2009) (quoting Harlow v.

Fitzgerald, 457 U.S. 800, 818 (1982)). As the Supreme Court established in

Saucier v. Katz, 533 U.S. 194 (2001), we must undertake a two-step inquiry to

determine whether the official is entitled to immunity, asking: (1) whether the

plaintiffs have alleged facts sufficient to establish a violation of a constitutional

right; and (2) whether that right was “clearly established” at the time of the

defendant’s alleged misconduct. Pearson, 129 S. Ct. at 815–16 (citing Saucier,

533 U.S. at 201). As the Pearson Court established, we may address these two

7

Case: 10-10405 Document: 00511495824 Page: 8 Date Filed: 06/02/2011

No. 10-10405

prongs in either order. Id. at 818. In determining whether Collins violated a

constitutional right, “we employ currently applicable constitutional standards.”

Wernecke v. Garcia, 591 F.3d 386, 392 (5th Cir. 2009) (quoting Kinney v. Weaver,

367 F.3d 337, 350 (5th Cir.2004) (en banc)) (internal quotation marks omitted).

On the “clearly established” inquiry, we have noted that “[o]fficials should

receive the protection of qualified immunity ‘unless the law is clear in the more

particularized sense that reasonable officials should be “on notice that their

conduct is unlawful.”’” Wernecke, 591 F.3d at 393 (quoting Kinney, 367 F.3d at

350 (quoting Saucier, 533 U.S. at 206)).

Appellants allege that Collins violated their constitutional right to be free

from unreasonable search-and-seizure in several respects. First, they maintain

that Collins entered Shough’s home without a warrant or court order and

without Shough’s consent, any exigent circumstances, or justification under the

special needs doctrine. Second, they contend that Collins remained in the house

after Shough asked her to leave. Third, they allege that by seizing the child

without a court order and absent exigent circumstances or special needs, Collins

also violated their Fourth and Fourteenth Amendment rights.

We first inquire whether any of the alleged violations, as stated, would

represent a violation of Appellants’ Fourth and Fourteenth Amendment rights.

In this Circuit, it is “well established . . . that the Fourth Amendment regulates

social workers’ civil investigations.” Gates v. Tex. Dep’t of Protective &

Regulatory Servs., 537 F.3d 404, 420 (5th Cir. 2008) (citing Roe, 299 F.3d at 401).

We have further noted that “[w]arrantless searches of a person’s home are

presumptively unreasonable unless the person consents, or unless probable

cause and exigent circumstances justify the search.” Id. (quoting United States

v. Gomez-Moreno, 479 F.3d 350, 354 (5th Cir. 2007)) (alteration in Gates).

Therefore, based on the allegations in the complaint, Collins violated

8

Case: 10-10405 Document: 00511495824 Page: 9 Date Filed: 06/02/2011

No. 10-10405

Appellants’s constitutional rights unless we find that consent, exigent

circumstances, or special needs existed.

We can quickly dispose with the issue of consent. On this basis of the

complaint, Shough did not consent to Collins’s entry into the home, although she

did not verbally object. We have previously held that “[s]ilence or passivity

cannot form the basis for consent to enter,” Roe, 299 F.3d at 402, and that “a

defendant’s mere acquiescence to a show of lawful authority is insufficient to

establish voluntary consent.” Gates, 537 F.3d at 420–21 (quoting United States

v. Jaras, 86 F.3d 383, 390 (5th Cir. 1996)). Therefore, on the basis of the

complaint alone, Shough did not consent to Collins’s entry into the home.

We can similarly dispose of the possibility of a special needs exception

based on the facts alleged. Under similar circumstances, we recently concluded

that a home visit to investigate possible child abuse “was not separate from

general law enforcement,” and therefore “the special needs doctrine cannot be

used to justify the warrantless entry.” Id. at 424. Because Collins’s visit to

Shough’s home was also to investigate the possibility of child abuse and the

safety of Shough and Thomas’s daughter, we conclude that the special needs

exception does not apply on the basis of the facts alleged in the complaint.

Concerning exigent circumstances, the Supreme Court has held that “law

enforcement officers may enter a home without a warrant to render emergency

assistance to an injured occupant or to protect an occupant from imminent

injury.” Brigham City v. Stuart, 547 U.S. 398, 403 (2006). In Gates, we

addressed whether exigent circumstances existed for TDFPS officials to enter a

home without a warrant or court order when the father had “pushed and kicked

[his son] that morning, had handcuffed [his son] to his bed at some point, and

used unusual discipline methods.” 537 F.3d at 422. We held that exigent

circumstances were not present, because (1) at the time of entry, the allegedly

abusive father was not at home; (2) there were no allegations he had abused his

9

Case: 10-10405 Document: 00511495824 Page: 10 Date Filed: 06/02/2011

No. 10-10405

other children, his “unusual discipline methods” aside; and (3) the interviews

conducted at the home were “routine, non-emergency interviews.” Id. at 422–23.

Because the district court has not yet ordered Defendants to respond in

this case, it is unclear what information Collins may have had at the time of the

allegedly unlawful entry. The complaint alleges that Thomas was not at home

or even living at the house at the time. While the complaint notes that Collins

presented an affidavit at a later removal hearing averring that Shough told her

that (1) Thomas had picked up their daughter by the limbs and thrown her into

a playpen; (2) Thomas had grabbed their daughter by the neck; and (3) the child

had been sexually assaulted, the complaint contends that these allegations were

all fabricated. Although Collins’s belief that these allegations were true at the

time of the unlawful entry may have sufficed to create exigent circumstances,

the complaint does not establish whether or not this information was known to

Collins at the time of the entry. Therefore, the complaint alone does not support

the application of the exigent circumstances exception.

Having found that the complaint alleges a constitutional violation, we

must decide whether the law supporting such a finding was clearly established

at the time of the allegedly unconstitutional conduct. In Gates, we held under

similar factual circumstances that the law of consent and exigent circumstances

in this area “has been clearly established for some time.” Id. at 424. While in

Gates we held that the law regarding special needs was not clearly established

at that time, we find that Gates sufficiently established the law for purposes of

this case. As we noted above, we held in Gates that the “purpose of TDPRS’s

entry into the Gateses’ home—the investigation of possible child abuse—was

closely tied with law enforcement,” and that “because the need to enter the

Gateses’ home was not divorced from the state’s general interest in law

enforcement, there was no special need that justified the entry.” Id. Because

10

Case: 10-10405 Document: 00511495824 Page: 11 Date Filed: 06/02/2011

No. 10-10405

the rationale behind the entry here was likely the same, we hold that the law

was clearly established at the time of the conduct at issue.

C. Denial of Motion to Appoint Counsel

The district court denied Appellants’ motion for appointment of counsel

because it had already dismissed all of their claims. We have held that “[t]here

is no automatic right to the appointment of counsel in a section 1983 case,” and

that “a district court is not required to appoint counsel in the absence of

‘exceptional circumstances.’” Cupit, 835 F.2d at 86. “In evaluating whether the

appointment of counsel is proper, the district court considers the type and

complexity of the case, the litigant’s ability to investigate and present the case,

and the level of skill required to present the evidence.” Baranowski v. Hart, 486

F.3d 112, 126 (5th Cir. 2007) (quoting Castro Romero v. Becken, 256 F.3d 349,

354 (5th Cir.2001)).

Appellants allege that the district court abused its discretion in failing to

appoint counsel because “the issues in the complaint are factually and legally

complex,” and because they generally lack resources to expend on the case. At

this juncture of the case, Appellants have failed to show the presence of

exceptional circumstances. Only one party remains in Appellants’ suit, and

responsive pleadings have not yet been filed. While Appellants may have limited

resources at their disposal, this constraint applies to all litigants proceeding IFP

and thus is not one of the above factors evaluated under the “exceptional

circumstances” inquiry. Therefore, Appellants have failed to show that the

district court abused its discretion in denying their motion for counsel.

IV. CONCLUSION

Because we are unable to grant qualified immunity to Collins on the basis

of the complaint alone, we REVERSE AND REMAND the district court’s

dismissal of Thomas and Shough’s Fourth and Fourteenth Amendment

individual capacity claim against Collins. We emphasize, again, that the district

11

Case: 10-10405 Document: 00511495824 Page: 12 Date Filed: 06/02/2011

No. 10-10405

court may find that Collins is entitled to qualified immunity at another stage in

this case, and that this decision rests solely on the basis of the complaint, as

Defendants have not yet been ordered to respond. We AFFIRM on all other

grounds.

AFFIRMED in part, REVERSED AND REMANDED in part.

12