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Smart Summary

Factual and Procedural Background

William H. Rodgers and Kathleen Rodgers filed a complaint against the town commissioners of Centreville, Maryland, alleging deprivation of equal protection and taking of property without due process under 42 U.S.C. §§ 1983 and 1985. The dispute arose from the town's installation of a sewerage system crossing the Rodgers' property. They contested a charge for a 241.55-foot section of sewer installed on their land, claiming it provided no individual benefit and was installed without an easement or condemnation. The Rodgers alleged the actions were taken in bad faith and retaliation for William Rodgers's criticisms of local government. After paying for the remainder of the sewer line, the Rodgers refused to pay for the disputed section. The town notified them their property would be sold to satisfy the debt, prompting this federal lawsuit. The district court dismissed the complaint, leading to this appeal.

Legal Issues Presented

  1. Whether the Rodgers' claim under 42 U.S.C. § 1985(3) alleging conspiracy based on political opposition states a claim upon which relief can be granted.
  2. Whether the district court erred in dismissing the Rodgers' § 1983 claim alleging deprivation of equal protection and due process rights related to the sewer assessment and property taking.

Arguments of the Parties

Appellants' Arguments

  • The Rodgers argued that the sewer line assessment included a portion that provided no individual benefit and was imposed without proper easement or condemnation, violating their due process rights.
  • They claimed the town commissioners acted in bad faith and retaliated against them for William Rodgers's outspoken criticism of local government.
  • They asserted that their § 1985(3) claim was valid because they constituted a class of persons politically opposed to the commissioners and outspoken in criticism, thus suffering conspiratorial discrimination.

Appellees' Arguments

  • The town commissioners contended that the § 1985(3) claim failed because it requires class-based discrimination, which political opposition alone does not satisfy.
  • They argued dismissal of the § 1983 claim was appropriate, relying on qualified immunity principles established in Wood v. Strickland and related cases, asserting good faith on their part.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Griffin v. Breckenridge, 403 U.S. 88 (1971) § 1985(3) requires some racial or class-based invidiously discriminatory animus. Used to affirm dismissal of § 1985(3) claim because Rodgers failed to allege a cognizable class.
Doski v. M. Goldseker Co., 539 F.2d 1326 (4th Cir. 1976) Uncertainty whether § 1985(3) extends beyond racial discrimination. Referenced to note the court had not decided the scope of § 1985(3) beyond race.
Hughes v. Ranger Fuel Corp., 467 F.2d 6 (4th Cir. 1972) Same as Doski regarding § 1985(3)'s reach. Referenced similarly for § 1985(3) scope.
Cameron v. Brock, 473 F.2d 608 (6th Cir. 1973) Extension of § 1985(3) to clearly defined classes such as political supporters. Discussed but distinguished as not applicable to Rodgers' vague class definition.
Means v. Wilson, 522 F.2d 833 (8th Cir. 1975) Similar to Cameron on non-racial classes under § 1985(3). Referenced as supporting broader interpretation, but not adopted here.
Glasson v. City of Louisville, 518 F.2d 899 (6th Cir. 1975) Similar to Cameron and Means regarding § 1985(3) class scope. Referenced for comparison with Rodgers' claim.
Bricker v. Crane, 468 F.2d 1228 (1st Cir. 1972) Requirement for identifiable class membership in § 1985(3) claims. Used to support dismissal due to vague class allegations.
Jacobson v. Industrial Foundation of the Permian Basin, 456 F.2d 258 (5th Cir. 1972) Similar to Bricker on class identification requirements. Used analogously to affirm dismissal.
Bell v. Hood, 327 U.S. 678 (1946) Federal courts must assume jurisdiction over claims seeking recovery under federal laws or Constitution. Supported reversal of dismissal of § 1983 claim for lack of jurisdiction.
Adickes v. Kress Co., 398 U.S. 144 (1970) Elements of § 1983 claim: deprivation of rights under color of state law. Applied to establish that Rodgers satisfied "color of state law" element.
Monroe v. Pape, 365 U.S. 167 (1961) State action under color of law for § 1983 purposes. Supported finding that commissioners acted under color of state law.
Chicago, Burlington & Quincy Railroad Co. v. Chicago, 166 U.S. 226 (1897) Due process requires just compensation for property taken for public use. Used to establish federal question for property taking claim.
Mosher v. Phoenix, 287 U.S. 29 (1932) Due process protections for property rights. Supported federal question jurisdiction on takings claim.
Ballard Fish Oyster Co. v. Glaser Construction Co., 424 F.2d 473 (4th Cir. 1970) Due process protections for takings. Reinforced federal question on due process claim.
Sunday Lake Iron Co. v. Wakefield, 247 U.S. 350 (1918) To state a federal equal protection claim, there must be intentional and arbitrary discrimination. Applied to assess sufficiency of Rodgers' equal protection allegations.
Southland Mall, Inc. v. Garner, 455 F.2d 887 (6th Cir. 1972) Same as Sunday Lake on intentional discrimination requirement. Used to evaluate equal protection claim's validity.
Wood v. Strickland, 420 U.S. 308 (1975) Qualified immunity for officials acting in good faith. Referenced by appellees; court found qualified immunity did not justify dismissal given allegations of bad faith.
Scheuer v. Rhodes, 416 U.S. 232 (1974) Qualified immunity for state officials. Referenced in support of qualified immunity doctrine.

Court's Reasoning and Analysis

The court first addressed the § 1985(3) claim, noting that this statute requires discrimination motivated by racial or otherwise class-based animus. The Rodgers' attempt to define a class based on political opposition and criticism was found too vague and amorphous to constitute a cognizable class under § 1985(3). The court distinguished the Rodgers' allegations from precedents recognizing identifiable non-racial classes, concluding dismissal of the § 1985(3) claim was appropriate.

Turning to the § 1983 claim, the court found the dismissal improper. The Rodgers sufficiently alleged that the town commissioners, acting under color of state law, took property without due process by installing a sewer line without proper easement or condemnation, violating the Fourteenth Amendment's due process clause. Furthermore, the Rodgers alleged discriminatory sewer assessments imposed in retaliation for political criticism, raising a valid equal protection claim. The court rejected the town's qualified immunity defense at the dismissal stage because the complaint alleged bad faith and retaliation. Accordingly, the court held the district court erred in dismissing the § 1983 claim for lack of jurisdiction and failure to state a claim.

Holding and Implications

The court affirmed in part and vacated and remanded in part. Specifically, it affirmed the dismissal of the § 1985(3) claim and the dismissal of the suit against defendant Benton (whose claim was solely § 1985(3)). It vacated the dismissal of the § 1983 claim related to alleged violations of equal protection and due process, remanding for further proceedings consistent with its opinion.

The direct effect is that the Rodgers may proceed with their § 1983 claims in district court, but the § 1985(3) conspiracy claim is barred due to failure to allege a proper class-based discrimination. The opinion does not establish new precedent beyond applying existing legal standards to these facts.

WILLIAM H. RODGERS, AND KATHLEEN RODGERS, APPELLANTS, v. WILLIAM H. TOLSON, HERBERT O. KAUFMAN, F. DUDLEY BENTON, JOHNATHAN M. HODGSON, INDIVIDUALLY AND COMPRISING THE TOWN COMMISSIONERS OF CENTREVILLE, MARYLAND, APPELLEES.

BUTZNER, Circuit Judge:

William H. Rodgers and Kathleen Rodgers appeal from the district court's order dismissing their complaint brought pursuant to 42 U.S.C. §§ 1983 and 1985. We affirm in part, vacate in part, and remand.

I

The Rodgers allege that the town commissioners of Centreville, Maryland, deprived them of equal protection of the law and took their property without due process of law. These allegations arise from the town's installation of a sewerage system which crosses their property. They complain that the town charged them for a 241.55 foot section of sewer installed across the northwest side of their property which is "of absolutely no individual benefit to [them]" because it "serv[es] only an engineering design function" and that the line "was installed at the direction of [the commissioners] without a conveyance from [the Rodgers] of an easement or the condemnation of a right of way." According to the complaint, the commissioners took these actions "in calculated bad faith" and "in retaliation" for William Rodgers's "outspoken . . . criticisms of the manner in which the town of Centreville and Queen Anne's County are governed."

The Rodgers hooked up to the sewer and paid the fee for all of the line installed on their property except the disputed section on the northwest side. On June 1, 1976, the Rodgers received notice that their property would be advertised for sale to satisfy this debt. Shortly thereafter they brought this action.

II

We affirm the district court's dismissal of the § 1985(3) claim. That section reaches only class-based discrimination. Griffin v. Breckenridge, 403 U.S. 88, 91 S.Ct. 1790, 29 L.Ed.2d 338 (1971). The Rodgers argue that their complaint indicates that they are members of a class consisting of "those who are in political and philosophical opposition to [the commissioners], and who are, in addition, outspoken in their criticism of the [commissioners'] political and governmental attitudes and activities." We conclude, however, that these allegations do not define a cognizable class and that the § 1985(3) count was subject to dismissal for failure to state a claim upon which relief can be granted. Fed.R.Civ.P. 12(b)(6).

In Griffin v. Breckenridge, 403 U.S. 88, 102, 91 S.Ct. 1790, 1798, 29 L.Ed.2d 338 (1971), the Supreme Court held that one of the elements of a cause of action founded on § 1985(3) is "some racial, or perhaps otherwise class-based, invidiously discriminatory animus behind the conspirators' action." The Court explicitly reserved the question of whether § 1985(3) embraces conspiracies motivated by non-racial discriminatory intent. 403 U.S. at 102 n. 9, 91 S.Ct. 1790. This court also has not decided whether § 1985(3) reaches beyond racial discrimination. See Doski v. M. Goldseker Co., 539 F.2d 1326 (4th Cir. 1976); Hughes v. Ranger Fuel Corp., 467 F.2d 6 (4th Cir. 1972). The Rodgers note, however, that other courts of appeals have extended § 1985(3) beyond action that was animated by racial discrimination. They rely on Cameron v. Brock, 473 F.2d 608, 610 (6th Cir. 1973), which holds that § 1985(3) "reaches clearly defined classes, such as supporters of a political candidate." Accord Means v. Wilson, 522 F.2d 833 (8th Cir. 1975); Glasson v. City of Louisville, 518 F.2d 899, 912 (6th Cir. 1975).

But we need not define the bounds of § 1985(3). Assuming without deciding that it is not limited to racial discrimination, we conclude that it does not encompass the class asserted by the Rodgers. All of the decisions recognizing non-racial classes have involved identifiable groups of which the plaintiffs were members. In contrast, the Rodgers define their class in vague and amorphous terms such as "political and philosophical opposition" and "outspoken criticism." These terms describe the Rodgers' attitude toward the commissioners but do not define a larger group that could be objectively identified by an observer. It is impossible to determine who besides the Rodgers belong to this class; indeed, the Rodgers cannot identify any other members. Consequently, we conclude that the Rodgers' complaint does not allege class-based discrimination. Cf., Bricker v. Crane, 468 F.2d 1228, 1232-33 (1st Cir. 1972); Jacobson v. Industrial Foundation of the Permian Basin, 456 F.2d 258, 259 (5th Cir. 1972).

We therefore affirm the district court's dismissal of the § 1985(3) claim. Because the Rodgers' complaint against F. Dudley Benton was based exclusively on § 1985(3), we also affirm the district court's dismissal of the suit with respect to him.

III

The district court also dismissed the Rodgers' § 1983 claim, apparently both for lack of federal jurisdiction and for failure to state a claim upon which relief can be granted. We believe that this claim should not have been dismissed. In Bell v. Hood, 327 U.S. 678, 66 S.Ct. 773, 90 L.Ed. 939 (1946), the Supreme Court declared that federal courts must assume jurisdiction over actions "seek[ing] recovery directly under the Constitution or laws of the United States." 327 U.S. at 681, 66 S.Ct. at 776. There are two essential elements of a § 1983 claim. First, the plaintiff must show that the defendant deprived him of a right secured by the Constitution and laws of the United States; and second, that the defendant acted under color of state law. Adickes v. Kress Co., 398 U.S. 144, 150, 90 S.Ct. 1598, 26 L.Ed.2d 142 (1970).

In this case, the Rodgers allege that the commissioners utilized the power conferred on them by state statutes and town ordinances to take the challenged actions. Hence, the complaint satisfies the "color of state law" element. See Monroe v. Pape, 365 U.S. 167, 171 87, 81 S.Ct. 473, 5 L.Ed.2d 492 (1961).

The Rodgers assert that the commissioners ran a sewer line across their property without obtaining a right of way by either conveyance or condemnation. It is now well established that the due process clause of the fourteenth amendment requires a state or its instrumentality to pay just compensation when it takes private property for a public purpose. Chicago, Burlington Quincy Railroad Co. v. Chicago, 166 U.S. 226, 17 S.Ct. 581, 41 L.Ed. 979 (1897). Consequently, the Rodgers' allegation that the commission took their property in violation of the due process clause raises a federal question. Mosher v. Phoenix, 287 U.S. 29, 53 S.Ct. 67, 77 L.Ed. 148 (1932); Ballard Fish Oyster Co. v. Glaser Construction Co., 424 F.2d 473, 475 (4th Cir. 1970).

The Rodgers also allege that the commissioners assessed them for a section of the sewer that served only an engineering design function and was of no individual benefit to their property. According to the complaint, all other residents were assessed only for the portion of the sewer line that directly benefited their property. The Rodgers charge that this discriminatory assessment was imposed on them because of Rodgers's criticism of the commissioners and that it denied them the equal protection of the laws.

Neither a mere error of judgment on the part of tax officials nor a routine complaint about the accuracy of an assessment states a federal cause of action. To obtain relief a taxpayer must establish intentional and arbitrary discrimination. See Sunday Lake Iron Co. v. Wakefield, 247 U.S. 350, 352 53, 38 S.Ct. 495, 62 L.Ed. 1154 (1918); Southland Mall, Inc. v. Garner, 455 F.2d 887, 889 90 (6th Cir. 1972). Tested by this principle, the Rodgers' allegations raise a federal question because they sufficiently charge a violation of the equal protection clause of the fourteenth amendment.

The commissioners contend that Wood v. Strickland, 420 U.S. 308, 95 S.Ct. 992, 43 L.Ed.2d 214 (1975), supports dismissal of this action. That case extended a qualified immunity to school board officials acting in good faith. Other cases have applied this defense to a broad range of state officials. See Scheuer v. Rhodes, 416 U.S. 232, 241 49, 94 S.Ct. 1683, 40 L.Ed.2d 90 (1974). In some cases good faith may appear from the face of the complaint, but in this case, as in most, it does not. The Rodgers allege that the commissioners acted "in calculated bad faith" and "in retaliation" for Rodgers's criticism of them. Therefore, the defense of qualified immunity affords no basis for summarily dismissing the complaint.

In sum, accepting the truth of the Rodgers' allegations — as we must at this stage of the proceedings — we conclude that they have sufficiently alleged a cause of action under § 1983 for violations of the equal protection and due process clauses of the fourteenth amendment. We therefore hold that their complaint should not have been dismissed either for lack of federal jurisdiction or for failure to state a claim founded on § 1983. Accordingly, we vacate the district court's order dismissing this aspect of the case and remand for further proceedings consistent with this opinion. Each party shall bear its own costs.

Affirmed in part.

Vacated and remanded in part.

[17] K.K. HALL, Circuit Judge, concurring:

I join in the majority opinion because I think the law mandates its result. But in concurrence I must note plaintiffs state in their complaint that the constitutional deprivations they suffered have been effectuated primarily by the design of a loop in a town sewage system which they admit serves an engineering design function but which inflicts upon them a high sewage assessment. Such an allegation indicates that the underlying dispute concerns the reasonableness of town sewer charges and, therefore, is one which should be settled in state court.

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RODGERS v. TOLSON
(Aug 17, 1978)