OFFICERS SHOOTING: §1983 claim against City officers who killed erratic, aggressive, threatening person barred by qualified immunity… state law tort claims barred by MCA 2-9-305(5) immunity from individual liability… Cavan/Watters.
Magistrate Cavan’s findings & recommendations.
On the evening of 1/2/16 at 7:40 p.m. Livingston Officers Kevin Engle and Andrew Emanuel were having dinner when they received a radio call and were dispatched to Shopko. The dispatcher stated that “a 911 caller says she is the general manager — a girl at the front said a guy came in with a dark jacket — he said if you haven’t called the cops, you better call the cops, cuz I’m gonna shoot someone — he is now out front in the bushes.” (Plaintiffs contend that the dispatcher’s statements are hearsay and should not be considered. Their objection is overruled. The statements, which were set forth in the officers’ affidavits are not hearsay since they are offered to establish what they heard from dispatch, not to establish the truth of the dispatcher’s statements.) The dispatcher also said, “be advised he had his hand inside his jacket like he was holding something. He is in front in the parking lot with people walking around right now.” (Defendants submitted a recording & transcript of the dispatcher’s statements with their reply brief. Plaintiffs move to strike the submission as improperly submitted new evidence. The motion is denied as moot. The Court has determined that the dispatcher’s statements are not hearsay and are properly before the Court through the officers’ original affidavits.)
Engle arrived first and entered the parking lot in his patrol car and drove toward the north end of the building. Emanuel arrived shortly thereafter and drove toward the south end. Both cars were equipped with Watchguard video and audio recording equipment, so that audio of the entire encounter was captured from Engle’s car and most of it can be seen on the video from Engle’s car. Part of it was also captured on Emanuel’s video. The entire encounter lasted less than 1 minute.
Engle stopped in a driveway on the north side of the lot. It had large patches of ice & snow. Sean O’Brien was standing behind bushes at the front of the store north of the entrance. After Engle stopped he said, “he’s here” and got out of his vehicle. O’Brien emerged from the bushes and began to move toward Engle. Engle states that he saw a red-handled 3-4-inch folding knife in his hand. Plaintiffs assert that it was a Craftsman utility knife that he carried every day for work. The blade was not open. Engle shouted “stop, stop” and pulled out his service weapon with his right hand. O’Brien responded, “fuck you” and continued walking toward Engle. Engle states that he became concerned for his safety and drew his Taser with his left hand and fired it at O’Brien 15-20 feet away. O’Brien grunted in apparent pain but the taser did not stop him. Engle yelled “get down, on the ground, get on the ground.” O’Brien ran away, into the view of the video on the front of Engle’s car. Engle pulled the trigger on the Taser a 2nd time but it did not stop O’Brien, who can be heard grunting as he continued to run away.
When Emanuel heard Engle say “he’s here” he drove toward the north end of the building. Engle and O’Brien came into view on his video. He states that he saw that Engle had deployed his taser and it was not effective. Emanuel’s video also appears to show Engle taser O’Brien without effect. After the taser was not effective, Engle holstered his gun and attempted to holster his taser as he ran after O’Brien yelling “get on the ground, get on the ground.” He was unable to holster the taser and dropped it. O’Brien continued to run away and yelled “fuck you,” then stopped and turned to face Engle. Engle contends that O’Brien stated “shoot, shoot dammit.” Plaintiffs dispute this. The audio is unclear on this point.
As O’Brien turned to face Engle, Emanuel pulled his vehicle into the driveway ahead of Engle’s vehicle. As he was stopping, O’Brien made 2 feints toward Engle and said “little fucker.” Engle took a couple steps back and yelled “get on the ground.” O’Brien responded “fuck you” and waved his arms, perhaps in an attempt to dislodge the taser wires. Engle again yelled “get on the ground.” O’Brien started to walk north across the driveway in the direction of Engle waving his arms and again responded “fuck you.” Engle moved back across the driveway, maintaining distance between them. Plaintiffs assert that O’Brien was circling around or “flanking” Engle in an attempt to escape.
As O’Brien reached the north side of the driveway and stepped onto a snowy berm in a field Engle yelled “pull [sic] your hands up, put the knife down, put the knife down.” O’Brien switched it from his right hand to his left and then reached into his coat with his right hand. Engle remained in the driveway and stepped back. O’Brien continued to move with his hand in his coat and Engle yelled “show me your hands, put the knife down, stop.” O’Brien took 2 quick steps to his left with his hand in his coat. Emanuel got out of his vehicle and walked to the front with his gun drawn. He states that he heard Engle yell “drop the knife” more than once and O’Brien yelling “fuck you.” He saw that O’Brien was holding a metallic object in his hand the way one would hold a knife. Emanuel yelled, “put the knife down, put it down.”
As Engle yelled “stop” O’Brien pulled his hand out of his jacket, hunched forward slightly, and started to run in Engle’s direction. The parties dispute whether he was running toward Engle or trying to run past him. He had his left arm extended with something metallic in his hand, possibly keys, and the knife in his right hand. Engle stepped back. O’Brien continued to run, saying “fuck you.” As he ran in the direction of Engle, Emanuel fired his weapon, hitting O’Brien. Engle fired immediately thereafter, also hitting him. O’Brien fell near where Engle had been standing when O’Brien started running. Plaintiffs assert that his direction of travel was altered by the bullets striking him.
Engle states that he fired when O’Brien was 7-10 feet away to protect himself. He explains that he was concerned that O’Brien was reaching for a firearm or other weapon when he reached into his coat and by the dispatcher’s statement that he said he was going to shoot someone and also was afraid he was going to be stabbed. Although the blade was not deployed, he said he knew that a blade could be quickly deployed. He was also concerned about his footing because it was icy and the possibility that O’Brien, who was much larger, could have gotten on top of him.
Emanuel states that he fired to protect Engle when O’Brien continued to run toward Engle. He explains that he also saw O’Brien put his hand in his coat and pull it back out, causing concern because the original call made reference to him stating that someone was going to get shot. He further states that he was extremely afraid that O’Brien was going to stab Engle when he started running. He states that the distance between O’Brien and Engle was closing fast and there was insufficient time to protect Engle from an edged weapon. He was also concerned because Engle was backing up on snow & ice. O’Brien was bigger than Engle, and if Engle fell, O’Brien would have been on him very quickly.
Engle and Emanuel move for summary judgment on the ground that qualified immunity bars Plaintiffs’ §1983 claim and MCA 2-9-305(5) bars their state law tort claims. Plaintiffs argue that there are fact issues that should first be resolved by a jury and that §305(5) immunity does not apply until after there has been a recovery against a governmental entity.
The relevant question as to §1983 qualified immunity is whether it was clearly established under existing precedent that the officers’ use of deadly force was excessive and violated the 4th Amendment. Neither Supreme Court nor 9th Circuit precedent on similar facts would have put Engle and Emanuel on notice that their actions violated the law. Rather, case law indicates the opposite. Like the police in Kisela v. Hughes (US 2018), Engle and Emanuel received a report of an individual acting erratically and stating “if you haven’t called the cops you better call the cops cuz I’m gonna shoot someone.” Thereafter, he engaged in more aggressive and threatening conduct than Hughes, who got close to another woman with a knife but appeared calm. In contrast, O’Brien was tased with no impact, ran from Engle and then turned and made movements toward him, called him a “little fucker,” yelled “fuck you” 5 times, clearly indicating that he did not intend to comply, reached into his coat as though reaching for a weapon, and ran in Engle’s direction holding a knife. In Kisela, Hughes ignored 2 commands to drop the knife, while O’Brien ignored 4 commands to “stop,” 4 commands to “get down on the ground,” 3 commands to “put down the knife,” and 2 commands to “show his hands” or “put them up.” Both cases involved situations where the officer believed that force was necessary to prevent a serious threat to another. The officers in Kisela were not in apparent danger as they were separated from Hughes by a chain link fence, while Engle stated that he was afraid he was going to be stabbed by O’Brien who was 3-4 inches taller and 40-50 pounds heavier and was 10 feet away on icy ground. In both cases the events unfolded in less than 1 minute. Kisela found that the officer’s use of force did not violate clearly established law. Thus it is far from obvious that Engle and Emanuel would have been on notice that their use of deadly force — where they faced more threatening circumstances — was unlawful. Cases from the 9th Circuit likewise illustrate that Engle and Emanuel should be granted qualified immunity.
Plaintiffs do not cite, discuss, or attempt to distinguish any of these recent cases, but cite Glenn (9th Cir. 2011) to attempt to establish that Engle and Emanuel were on notice that they would not be justified in using deadly force against a suspect who is holding a knife and refusing to comply with their instructions. But the facts in Glenn are plainly distinguishable. In Glenn, police responded to a report that an intoxicated individual was threatening to harm himself. When the officers arrived the suspect was not threatening them or any other person at the scene, but only threatening himself by standing in a fixed position in the driveway holding a knife to his own neck. At most, Glenn indicates that under its facts it was possible that the use of force violated a constitutional right. It did not “clearly establish” that Engle’s and Emanuel’s actions would violate O’Brien’s constitutional rights.
Recommended, Engle’s and Emanuel’s motion for summary judgment as to Plaintiffs’ §1983 claim should be granted.
Summary judgment as to Plaintiffs’ common law claims of negligence, survivorship, wrongful death, and assault & battery should also be granted pursuant to §2-9-305(5). Plaintiffs rely on Story (Mont. 1993) in support of their argument that §305(5) only applies after there has been a recovery against a governmental entity. However, Griffith (Mont. 2010) held that “§2-9-305(5) serves as a complete bar to holding individual employees liable because it provides immunity from suit to individually-named defendants for actions performed within the course and scope of the official’s employment.” See also Germann (Mont. 2006) (“The explicit grant of immunity in the second sentence of §2-9-305(5) belies the plaintiff’s contention that the statute serves merely as an anti-double recovery state.”); Kiely (Mont. 2002) (“We conclude the first sentence of §2-9-305(5) is on its face, a complete bar to holding the individual council members liable.”). Recent authority from this District likewise recognized that §305(5) provides immunity from suit.
For immunity to attach under 205(5) the plaintiff must name a governmental entity as a defendant and the entity must acknowledge or be bound by a judicial determination that the employee’s conduct arose out of the course and scope of his employment. The City of Livingston is a named defendant. All of Plaintiffs’ allegations against Engle and Emanuel are based on actions they performed while in the course & scope of their employment. The City has also acknowledged that they were acting in the course & scope of their employment when they shot O’Brien.
Judge Watters’s order adopting Cavan’s F&R.
Plaintiffs make a lone objection:
To the extent the Findings and Recommendation state that if Engle and Emanuel are found to be entitled to qualified immunity, the City does not have to defend and indemnify them for civil rights violations, the Plaintiffs object. The Plaintiffs maintain, as articulated in prior briefing, that the City has a duty to defend and indemnify Engle and Emanuel for any and all tortious conduct or civil rights violations for which they are found to be liable at trial.
The Court overrules the objection. Engle and Emanuel cannot be found liable for a civil rights violation at trial because the Court previously granted them qualified immunity from §1983 liability.
Judge Cavan’s findings & recommendation are adopted in full.
Summary judgment is granted for Livingston Police Chief Dale Johnson on all claims. Summary judgment is granted to the City as to Counts I, II, and VI, and as to Count III to the extent that it is based on negligent hiring & supervision and negligent adoption and/or enforcement policies; it is denied as to Count III to the extent that it is based on the negligent conduct of Engle and Emanuel; and it is denied to the City as to Counts IV & V. (See the subsequent verdict for the City below.)
Estate of O’Brien v. City of Livingston, Engle, Emanuel, and Johnson, 44 MFR 251 (Cavan’s F&R), 1/22/20, 44 MFR 252 (Watters’s adoption order), 6/16/20.
Nathan Wagner (Sullivan Wagner Lyons), Missoula, for Plaintiffs; Randall Nelson (Nelson Law Firm), Billings, for the City; Harlan Krogh (Crist, Krogh, Alke & Nord), Billings, for the officers; Livingston City Atty. Courtney Lawellin.