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Friday, July 01, 2005

The Castle Rock Debate - Part 3

Castle Rock | Posted by Tom Goldstein at 07:40 AM

The comments following Richard’s posting have already provided much of the answer I intended. Let me elaborate, and clarify, a bit.

The district court ruled for Castle Rock on a motion to dismiss, not even a motion for summary judgment, so there was nothing outside the allegations in the initial complaint. The facts alleged in the complaint are principally as Richard states, but they are not supported by the actual documentary evidence. During the recorded 911 call at 8:45 p.m., for example, Mrs. Gonzales stated that she knew that Mr. Gonzales was not violating the restraining order and that, as a result, there was nothing the police could do. And in the first 911 call, Mrs. Gonzales admitted to police that she had authorized the dinner visit. Moreover, one important assertion by Richard of even the alleged facts is wrong; he says that the restraining order ordered Mr. Gonzales not to molest or disturb the peace of Mrs. Gonzales or her children “in part because [of his] history of suicidal threats and eratic behavior.” The restraining order contains no allegation of suicidal threats, eratic behavior, or violence of any kind, much less a finding of such behavior. The allegation of suicidal threats and eratic behavior exists only in paragraph 11 of the complaint, without any reference to the restraining order, or even any allegation that Mrs. Gonzales ever conveyed this concern to police. The simple fact is that the restraining order at issue here was a standard order issued incident to a divorce proceeding, not one based on any claim of actual or threatened domestic violence.

My point in raising the actual facts was not to “mischaracterize the operative facts” on which the legal issues were determined, but to demonstrate just how easy it would be, had this case come out differently, so force municipalities into Court every time there is a call on a restraining order that did not produce the result desired by one party or the other. Given what the police knew—that the restraining order authorized prearranged mid-week dinner visits (actually, whether or not Mrs. Gonzales even showed police the restraining order is also contested); that Mrs. Gonzales had, by her own admission, agreed to the Tuesday night dinner visit; and that Mr. Gonzales picked up the girls as agreed—it is very likely that they could have been sued by Mr. Gonzales for false arrest had they actually taken that step at any time that evening. Colorado law provides police immunity from suit when mistakenly making arrests for restraining order violations, but that state statute would not immunize them from a federal § 1983 action for deprivation of liberty without due process.

With respect to police discretion, I’ll concede, for argument’s sake, that the legislature may have intended to eliminate at some of the discretion traditionally afforded to police, but that still does not mean that Colorado also intended the additional step, required by Roth, of creating a protected property interest. As we noted in our briefs, the Supreme Court confirmed in Sandin v. Conner, 515 U.S. 472 (1995), that a State may establish mandatory procedures without creating a property right to those procedures. At most, that is all that Colorado did here.

One of the comments blasts Justice Scalia for trying to have it both ways in how he interprets “shall.” But even accepting that shall is mandatory does not mean that the Colorado legislature also intended to create a property interest in that mandate. I think the real inconsistency is with Justice Stevens’ reliance on the word “shall” as dispositive proof that Colorado created a property interest. In City of Chicago v. Morales, 527 U.S. 41, 47 n.2 (1999), he had just the opposite view. A Chicago ordinance specified that a police officer “shall order all [loitering gang members] to disperse and remove themselves from the area,” yet Justice Stevens, writing for the majority, held that police had an unconstitutional amount of discretion to decide whether to enforce the statute, and against whom. He elaborated on the point as follows: “It is possible to read the mandatory language of the ordinance to conclude that it affords the police no discretion, since it speaks with the mandatory ‘shall.’ However, not even the city makes this argument, which flies in the face of common sense that all police officers must use some discretion in deciding when and where to enforce city ordinances.” Id., at 62 n.32.

Finally, Richard wonders what more Colorado could do if it really wanted to create a property interest (contrary to Justice Souter’s view that there cannot be a property interest in procedure). For starters, it could make the crime of violating a restraining order more serious than a relatively minor class 2 misdemeanor. It could treat the restraining order’s injunction against disturbing the peace of an estranged spouse as more important than the injunction against transferring marital assets without prior permission. It could specifically promise “protection” from the State to named beneficiaries of restraining orders, and it could expressly state it is creating an entitlement to such protection in its beneficiaries and provide a remedy against the government or its officers for failures to protect. It could broaden its tort remedies to extend to negligence, or even impose strict liability, rather than limit its tort remedies to willful and wanton police action, as it has done. But if it did that, the state tort law would be more than adequate, and resort to a “zany” constitutional claim, to use Justice Scalia’s word again, would not be necessary even then.


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Comments

"but to demonstrate just how easy it would be, had this case come out differently, so force municipalities into Court every time there is a call on a restraining order that did not produce the result desired by one party or the other"

Given the "facts" of the case, is this not a tad bit harsh? Perhaps it is impossible, but when three children die, a hearing just might be a good idea while regular things like delay of return and so forth would not meet the threshold.

It's comparable to property cases where perhaps a hearing would not be required if $5 is at stake, but $1M would warrant a hearing.

Again, maybe line drawing is not possible, but I think not. Also, does the word "shall" work the same in different contexts? The argument seems to be that THIS law as a whole works differently. Without more, the "shall" point seems to not be enough to prove Stevens inconsistent.

Posted by: Joe at July 1, 2005 09:02 AM


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