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Memorandum Order — Summary

Factual and Procedural Background

This action was brought by Frederick Jackson, administrator of the Estate of Craig Jackson (decedent), alleging that defendants—including the City of Chicago and Police Superintendent Richard J. Breczek—deprived the decedent of his constitutional rights in violation of 42 U.S.C. § 1983. The incident alleged occurred on September 15, 1981, when the decedent was arrested, taken to a Chicago police station, detained in a lockup cell, beaten, deprived of food, and denied permission to communicate with relatives. Later that day the decedent was discovered hanged in the lockup cell. Plaintiff filed suit and defendants Breczek and the City of Chicago moved to dismiss under Federal Rule of Civil Procedure 12(b)(6). The Court considered the motion and, for the reasons stated in the opinion, denied the motion to dismiss as to the City and Breczek.

Legal Issues Presented

  1. Whether the Complaint states a claim against the City of Chicago under 42 U.S.C. § 1983 by alleging that a constitutional deprivation was caused by a municipal policy or custom (the Monell requirement).
  2. Whether a single incident of constitutional deprivation can satisfy the municipal "policy" requirement where the action or inaction is traceable to a municipal policymaker (i.e., the application of Pembaur).
  3. Whether a municipal official's failure to act (inaction) can constitute a municipal "policy" or "custom" for purposes of § 1983 liability, and what pleading is required when the asserted policy is an official's inaction.
  4. Whether the Complaint states an individual § 1983 claim against Police Superintendent Breczek, including whether Breczek acted under color of state law.

Arguments of the Parties

Plaintiff's Arguments

  • Plaintiff alleges unknown Chicago police officers violated the decedent's constitutional rights while implementing what is described as an unconstitutional municipal policy.
  • Plaintiff contends that the Complaint adequately pleads a § 1983 claim against the City by alleging that a single unconstitutional event resulted from an unconstitutional municipal policy or custom—relying on the contention that a Monell "policy" allegation is sufficiently pleaded here.
  • Plaintiff alleges that Police Superintendent Breczek "knew . . . and tacitly approved of police officers' and detention aides' failure to protect individuals in police lock-ups from committing suicide," and that Breczek consciously chose not to implement procedures that would have prevented lockup suicides.

Defendants' Arguments

  • Defendants Breczek and the City of Chicago moved to dismiss the Complaint pursuant to Federal Rule of Civil Procedure 12(b)(6).
  • The opinion does not contain a detailed account of the defendants' specific legal arguments beyond the filing of the Rule 12(b)(6) motion.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Oklahoma City v. Tuttle, 471 U.S. 808, 105 S.Ct. 2427, 85 L.Ed.2d 791 (1985) Referenced for the requirements to state a municipal liability claim under 42 U.S.C. § 1983 (elements to plead). The Court cited Tuttle in describing the two basic pleading requirements for municipal liability: a constitutional deprivation and that the deprivation was caused by an official acting pursuant to a municipal policy or custom.
Monell v. New York City Dept. of Social Services, 436 U.S. 658 (1978) Establishes that municipal liability under § 1983 requires that the constitutional deprivation be caused by a municipal policy or custom. The Court relied on Monell to frame the municipal liability analysis and to explain that a "policy" generally requires an official course of action consciously chosen from alternatives.
Rogers v. Lincoln Towing Service, Inc., 771 F.2d 194, 202 (7th Cir. 1985) Boiler-plate municipal liability assertions without sufficient factual allegations are insufficient to state a § 1983 claim against a municipality. The Court noted Rogers to emphasize the pleading standard: pleadings must contain sufficient factual allegations rather than mere conclusory assertions of municipal liability.
Hossman v. Blunk, 784 F.2d 793 (7th Cir. 1986) Alleging one specific incident and generally alleging it resulted from a custom or policy is inadequate; plaintiff must allege a pattern or series of incidents to support general allegations absent special circumstances. The Court referenced Hossman to explain the normal insufficiency of a single-incident pleading to establish municipal policy, while distinguishing the present case under other precedents.
Pembaur v. City of Cincinnati, ___ U.S. ___, 106 S.Ct. 1292, 89 L.Ed.2d 452 (1986) Holds that § 1983 liability may attach to a single isolated incident where a municipal officer implements a mandated course of action deliberately chosen from alternatives by officers responsible for establishing final policy. The Court applied Pembaur to conclude that a single incident can satisfy the Monell "policy" requirement when it results from a direct command or decision by a final policymaker—here, Breczek's alleged decision not to implement suicide-prevention procedures.
Alvarez v. City of Chicago, 633 F. Supp. 1361 (N.D.Ill. 1986) Addresses the concept that establishing a Monell "policy" often requires a conscious choice of course of action from alternatives; where the course is inaction, policy can be established only if the official knew of the deprivation and consciously chose not to act. The Court relied on Alvarez to articulate that where the alleged policy is official inaction, the complaint must allege that the official knew of the constitutional deprivation and consciously chose not to act; it found such allegations present as to Breczek.
Gomez v. Toledo, 446 U.S. 635, 638, 100 S.Ct. 1920, 1922, 64 L.Ed.2d 572 (1980) States two requirements for an individual § 1983 claim: a deprivation of a federally protected right and action under color of state law. The Court invoked Gomez in evaluating the claim against Breczek, finding the Complaint alleged a constitutional deprivation and that Breczek acted under color of state law, thereby satisfying the Gomez elements.

Court's Reasoning and Analysis

The Court proceeded stepwise, treating all well-pled factual allegations as true for purposes of the Rule 12(b)(6) motion. It summarized the factual allegations concerning the decedent's arrest, alleged beating, deprivation of food and contact with relatives, and subsequent death by hanging while detained in a lockup cell on September 15, 1981.

For municipal liability, the Court set out the two basic pleading requirements derived from Monell and related authority: (1) the plaintiff must allege a deprivation of a constitutional right, and (2) the deprivation must have been caused by a government official acting pursuant to a municipal policy or custom. The Court acknowledged established pleading limitations (citing Rogers and Hossman) that generally require more than conclusory assertions or a single incident to plead a municipal "policy."

The Court confronted the particular issue of attempting to establish a municipal policy from an official's failure to act. Citing Alvarez, the Court explained that where the asserted "policy" is inaction, the plaintiff must allege that the official knew of the constitutional deprivation and consciously chose not to act. The Court found that the Complaint adequately alleged such knowledge and tacit approval by Police Superintendent Breczek—specifically quoting the Complaint's allegation that "Breczek knew . . . and tacitly approved of police officers' and detention aides' failure to protect individuals in police lock-ups from committing suicide."

Addressing the single-incident issue, the Court applied Pembaur to hold that a single isolated incident can satisfy Monell's "policy" requirement when the incident resulted from a direct command or decision by a municipal policymaker who possessed final policymaking authority on the subject. The Court concluded that Breczek, as the official responsible for establishing final policy regarding prevention of lockup suicides, allegedly made a conscious choice not to implement suicide-prevention procedures; that single decision sufficed to allege a municipal policy causing the constitutional deprivation.

Having found that plaintiff met both elements for municipal liability, the Court denied the City's motion to dismiss. Separately, the Court evaluated the claim against Breczek under Gomez's two elements for individual liability—constitutional deprivation and action under color of state law—and found both satisfied by the Complaint, concluding that Breczek acted under color of state law and that the Complaint alleged Breczek's culpable decision not to implement procedures to prevent suicides.

Holding and Implications

Core Ruling: The Court held that the plaintiff stated a claim under 42 U.S.C. § 1983 against both the City of Chicago and Police Superintendent Richard J. Breczek, and accordingly denied defendants' motion to dismiss.

Direct consequences: The denial of the Rule 12(b)(6) motion means the § 1983 claims against the City of Chicago and against Breczek proceed beyond the pleading stage. The opinion does not announce or claim to establish a broader binding precedent; it applies existing Supreme Court and Seventh Circuit authority (as cited) to the facts alleged in this case.

IT IS SO ORDERED. (Memorandum Order dated October 24, 1986)

Frederick JACKSON, administrator of the Estate of Craig Jackson deceased, and as his next of kin and on behalf of his immediate family members; Plaintiffs, v. The CITY OF CHICAGO, a municipal corporation, Richard J. Breczek, and other John Does who are or were Chicago Police Officers, and whose identities are presently unknown to plaintiffs; all indi

MEMORANDUM ORDER

BUA, District Judge.

Plaintiff brought this action against several defendants. Plaintiff alleges that these defendants deprived the decedent of his constitutional rights. Plaintiff seeks relief under 42 U.S.C. § 1983.

Before this Court is defendants' Breczek and City of Chicago's motion to dismiss pursuant to Federal Rule 12(b)(6). For the reasons stated below, this Court holds that plaintiff stated a § 1983 claim and denies defendants' motion to dismiss.

FACTS

All well-pled facts are considered true for purposes of this motion. On September 15, 1981, decedent Jackson was arrested and brought to a Chicago police station. Wherein, decedent was beaten, deprived of food and denied permission to communicate with relatives. These events occurred while the decedent was being detained in a lockup cell. Later that day, decedent was discovered hanged to death in the lockup cell. Justifiably distraught over decedent's death, plaintiff filed suit and this action ensued.

DISCUSSION A. City of Chicago

Plaintiff believes that the Complaint states a § 1983 claim against the City of Chicago. The Complaint alleges unknown police officers violated the decedent's constitutional rights while implementing an unconstitutional municipal policy. Moreover, plaintiff contends that the single unconstitutional event presented was sufficient to establish a Monell "policy" allegation. This Court agrees.

Several requirements must be met to state a claim for municipal liability pursuant to 42 U.S.C. § 1983. First, the complaint must allege that the plaintiff was deprived of a constitutional right. Second, the plaintiff must plead that the constitutional deprivation was caused by a government official acting in accordance with a municipal policy or custom. Oklahoma City v. Tuttle, 471 U.S. 808, 105 S.Ct. 2427, 85 L.Ed.2d 791 (1985); Monell v. New York City Dept. of Social Services, 436 U.S. 658 (1978). In addition, boiler-plate assertions of municipal liability, without sufficient factual allegations to support those assertions, do not state a § 1983 claim against a municipality. Rogers v. Lincoln Towing Service, Inc., 771 F.2d 194, 202 (7th Cir. 1985). Finally, alleging one specific incident of constitutional deprivation and generally alleging that the deprivation resulted from a custom or policy does not constitute adequate pleadings; a plaintiff must allege a specific pattern or series of incidents that support the general allegations. Hossman v. Blunk, 784 F.2d 793 (7th Cir. 1986). However, § 1983 liability may attach to a single isolated incident of constitutional deprivation where a municipal officer implements a mandated course of action that was deliberately chosen from various alternatives by officers responsible for establishing final policy with respect to the subject matter in question. Pembaur v. City of Cincinnati, ___ U.S. ___, 106 S.Ct. 1292, 89 L.Ed.2d 452 (1986).

In the instant case, neither party disputes plaintiff's satisfaction of the first pleading requirement. Plaintiff clearly alleged that the decedent was deprived of his constitutional rights.

The fundamental question before this Court is whether plaintiff properly pled the second requirement, that the constitutional deprivation was caused by a government official acting in accordance with a municipal policy or custom. This Court appreciates the difficulty all plaintiffs encounter when, as in this case, the constitutional deprivation resulted from a municipal official's failure to act, rather than resulting from an officer's affirmative action.

Those plaintiffs who attempt to establish a custom or policy from an official's failure to act necessarily experience greater difficulty in stating a § 1983 claim. Notwithstanding this difficulty, this Court recognizes the possibility that a municipal official's repeated failure to perform a preexisting duty may establish a "custom or policy" within the meaning of Monell v. Department of Social Services, 436 U.S. 658, 98 S.Ct. 2018, 56 L.Ed.2d 611 (1978). However, this Court requires more than a conclusory assertion that a municipal officer's breach of his duty caused a constitutional deprivation. This Court believes that the establishment of a Monell "policy" generally requires an official to engage in a course of action consciously chosen from among various alternatives. Alvarez v. City of Chicago, 633 F. Supp. 1361 (N.D.Ill. 1986). Therefore, where the chosen course of action is an official's inaction, then a "policy" can only be established if the official knew of the constitutional deprivation at issue and consciously chose not to act.

In the instant case, plaintiff properly pled the second element of a § 1983 claim, that decedent was deprived of his constitutional rights by a government official acting in accordance with a municipal policy. The Complaint alleges decedent was deprived of his constitutional rights by Police Superintendent Breczek when Breczek chose not to implement procedures and policies that would have prevented people held in lockup cells from committing suicide. Specifically, plaintiff alleges that "Breczek knew . . . and tacitly approved of police officers' and detention aides' failure to protect individuals in police lock-ups from committing suicide. . . ." This Court believes that Breczek's alleged knowledge of the situation allowed Breczek to follow a course of action consciously chosen from among various alternatives. Breczek allegedly chose not to respond to the alleged suicide problem.

Finally, this Court finds that Breczek's single action was sufficient to establish a municipal "policy." This Court holds that plaintiff properly pled that Breczek acted in accordance with a municipal policy, despite the Complaint's presentation of a single incident of constitutional deprivation. Normally, a single incident is insufficient to constitute a "policy." However, a single incident of constitutional deprivation resulting from a direct command by a municipal policymaker will satisfy the Monell "policy" requirement if the enforcement of that command directly caused the constitutional violation. Pembaur v. City of Cincinnati, ___ U.S. ___, 106 S.Ct. 1292, 89 L.Ed.2d 452 (1986). Here, Breczek followed his own "command" because he was an official who was responsible for establishing final policy with respect to the prevention of lockup suicides. Consequently, Police Superintendent Breczek's single isolated decision not to implement a policy preventing suicides in the lockup cells is sufficient to constitute a "municipal policy."

In sum, this Court holds that plaintiff stated a § 1983 claim against the City of Chicago. Plaintiff satisfied both elements of his § 1983 claim. First, plaintiff pled that the decedent was deprived of his constitutional right. Second, plaintiff pled that the constitutional deprivation was caused by a government official acting in accordance with a municipal policy or custom. Accordingly, defendant City of Chicago's motion to dismiss is denied.

B. Defendant Breczek

A plaintiff is required to plead two requirements to state a claim against a person pursuant to 42 U.S.C. § 1983. First, the Complaint must allege that the plaintiff was deprived of a federally protected right. Second, the person who deprived plaintiff of a federally protected right must have acted under the color of state law. Gomez v. Toledo, 446 U.S. 635, 638, 100 S.Ct. 1920, 1922, 64 L.Ed.2d 572 (1980).

In this case, plaintiff sufficiently stated a § 1983 claim against defendant Breczek. Neither party disputes that the Complaint alleges that decedent was deprived of a constitutionally protected right. Similarly, only a minor dispute exists over the satisfaction of the second element of plaintiff's § 1983 claim, that the person who deprived decedent of his federally protected rights acted under the color of state law.

The Complaint alleges Breczek deprived decedent of his constitutional rights. The deprivation allegedly resulted from Breczek's conscious decision not to implement any procedures that would alleviate or eliminate the suicide problem among detainees held in police lockups cells. (Complaint, para. 21.) In addition, neither party disputes that Police Superintendent Breczek acted under the color of state law. Consequently, plaintiff stated a § 1983 claim against Superintendent Breczek. Accordingly, defendant Breczek's motion to dismiss is denied.

CONCLUSION

Plaintiff stated a § 1983 claim against defendants Breczek and the City of Chicago. Accordingly, this Court denies defendants' motion to dismiss.

IT IS SO ORDERED.

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JACKSON v. CITY OF CHICAGO, (N.D.Ill. 1986)
(Oct 24, 1986)