Dismissal of Former Baltimore Police Commissioner's Claims of Constitutional Violations Upheld By the Fourth Circuit
(December 2009) By Eric M. Leppo, Associate.
For more information, contact Paul Farquharson.
Francis, et al. v. Giacomelli, et al.,
Case No.: 08-1908 (4th Cir., December 2, 2009)
In the Francis opinion issued in early December by the Fourth
Circuit Court of Appeals, the Court affirmed the District Court of Maryland's
dismissal of a complaint brought by former Baltimore police commissioner Kevin
Clark, and former Baltimore police officers, Joel Francis and Anthony Romano.
The action arose from the highly publicized termination of
Kevin Clark as the Baltimore City Police Commissioner in 2004. Then Mayor,
Martin O'Malley, terminated Commissioner Clark's employment along with two of
his deputies: Francis and Romano. The three men filed a federal suit alleging
Constitutional and Civil Rights violations on the part of O'Malley and the
Baltimore City Solicitor Ralph Tyler. Plaintiffs also brought a claim under 42
U.S.C. ' 1981 alleging that the termination of their employment was race-based
discrimination. (Plaintiff Romano, who is white, was not listed as a Plaintiff
on the racial discrimination count).

The Fourth Circuit affirmed the District Court's dismissal
of the case pursuant to Rule 12(b)(6), finding that the Plaintiffs' Complaint
failed to state a claim upon which relief could be granted. Specifically, the
Fourth Circuit applied the standard for legal sufficiency of a complaint
articulated by the Supreme Court in Bell Atlantic Corp. v. Twombly, 550 U.S. 544
(2007), and stated again in Ashcroft v. Iqbal, 129 S.Ct. 1937 (2009).
Twombly requires that the facts alleged in a complaint must
articulate a claim for relief that is "plausible on its face." The Fourth
Circuit determined that even accepting the Plaintiffs' allegations as true, they
had failed to state a claim that could plausibly entitle them to relief. The
Court noted that the Supreme Court's "plausible on its face" standard arose from
the recent increase in "strike suits" and the high costs related to frivolous
litigation. The Court noted that this approach recognizes that "naked
assertions" of wrongdoing necessitate some "factual enhancement" within the
complaint in order to cross the line between possibility and plausibility. The
Court then briefly performed an analysis on each count of the Complaint to
illustrate why Plaintiffs had not met the plausibility threshold.
Count One contained allegations that the Mayor's use of
other Baltimore City police officers to "seize property in the Commissioner's
office" as well as requiring all three officers to surrender their weapons,
badges and identification cards was in violation of their Fourth and Fourteenth
Amendment rights against unreasonable searches and seizures. The Court noted the
important distinction that the Baltimore City police officers involved were not
performing a law enforcement activity at the time of the seizure, but rather
were acting in furtherance of the Mayor's decision to terminate Plaintiffs'
employment. In an administrative situation (as opposed to law enforcement) the
Supreme Court has approved a balancing test under which government interests are
weighed against the employee's reasonable expectation of privacy. O'Connor v. Ortega, 480 U.S. 709 (1987). This balancing test does not implicate either
probable cause or a warrant requirement which are both related to the police's
law enforcement function.
Count Two alleged racial discrimination in the terminations
due to Commissioner Clark and Deputy Francis being African-American. However, as
Deputy Romano was white and not within the alleged protected class; yet, also
terminated at the same time and for the same reasoning, the Court affirmed the
dismissal of this claim out of hand. The Court stated, "The allegations in this
count are nothing more than the sort of unadorned allegations of wrongdoing to
which Twombly and Iqbal are directed."
Count Three alleged that Mayor O'Malley and the City
Solicitor deprived the Plaintiffs of their Fourth Amendment rights to protected
property interests without due process. The Court affirmed that Mayor O'Malley
was entitled to qualified immunity in this matter. "Qualified immunity applies
when the Constitutional right alleged to have been violated is not ‘clearly
established.'" Harlow v. Fitzgerald, 457 U.S. 800, 818-19 (1982). The Court then
noted that pursuant to the memorandum of understanding which governed
Commissioner Clark's employment with the city; he could be terminated without
cause. Therefore, Commissioner Clark did not have a "clearly established"
property right to his job.
Lastly, the Plaintiffs' claimed a conspiracy to violate
their civil rights in violation of 42 U.S.C. ' 1985. Again applying the Twombly
standard, the Court stated: "To plead a violation of ' 1985, Plaintiffs must
demonstrate specific facts that the Defendants were motivated by a specific
class-based invidiously discriminatory animus to deprive the Plaintiffs of equal
enjoyment of rights." The Court noted that the allegations in Count Four were no
more than legal conclusions which, on their face, failed to assert a plausible
claim.