FAY, Circuit Judge:
This appeal concerns constitutional violations alleged by students against high school officials for detaining them for breathalyzer tests prior to entering their Junior/Senior Prom as well as the high school, the school district, and county sheriff. Summary judgment was granted to all defendants. We affirm.
Jensen Beach High School ("JBHS"), located in Martin County, Florida, had scheduled its Junior/Senior Prom ("Prom") for May 3, 2014, from 8:00 P.M. until 12:00 A.M. at the Port St. Lucie Civic Center ("Civic Center"). Prom tickets specifically state "[n]o student will be admitted after 10 PM" and "[f]ailure to comply will result in expulsion from the dance and possible disciplinary actions that may include, but are not limited to, revoking of privileges, suspension, expulsion, etc." Am. Compl., Ex. D (Prom Rules, stated on the back of the Prom ticket). JBHS has a Zero Tolerance Policy regarding alcohol, drugs, tobacco, and profanity on property controlled
Each JBHS student who desired to attend the Prom was required to sign the following Zero Tolerance Form:
Am. Compl., Ex. C. Under the terms of the Zero Tolerance Form, attending students knew they would be required to pass a breathalyzer test before entering the Prom, if JBHS officials had reason to suspect they or their guests had consumed alcohol.
The nine appellants ("Students") were among approximately 37-40 students, including guests, who arrived at the Prom on a party bus.
The party bus arrived at the Civic Center at approximately 10:15 P.M. As the student passengers exited to enter the Prom, Dean of Students Lorie Kane stopped them and informed their bus would be searched. The party-bus passengers were asked to stand aside. When all the students had exited the party bus, JBHS Resource Officer Norm Brush
Upon discovery of the champagne bottle and twelve plastic cups, Kane informed the party-bus passengers they would be required to pass a breathalyzer test before entering the Prom. JBHS Principal Greg Laws called JBHS Assistant Principal Theresa Iuliucci, who had left the Prom to go home, and asked her to return to the Civic Center, because she was the only JBHS official certified to administer breathalyzer tests. Because all but two of the breathalyzer-testing mouthpieces had been used in testing Prom attendees on an earlier bus, Principal Laws also directed Kane to go to JBHS to obtain additional mouthpieces for the breathalyzer testing of the students on the party bus.
Before, during, and after administration of the individual breathalyzer tests, Officer Brush, in uniform, stood guard over the students, who had arrived on the party bus. These students were assembled in line outside the Civic Center in sight of their classmates inside the Civic Center; they were instructed not to speak with classmates, who exited the Prom. It began to rain
In her affidavit, student Taylor Ziegler, who was first in line for breathalyzer testing, averred the students from the party bus had to wait outside for forty-five minutes for Kane to return to the Civic Center with the additional breathalyzer mouthpieces. Aff. of Taylor Ziegler at 4, ¶ 28 (Jan. 21, 2015). She stated "[t]he students started to get frustrated and asked if they could call their parents and go home. Officer Brush and JBHS officials, however, told the students they could not leave and had to wait outside until everyone was breathalyzed"; Ziegler "did not feel free to leave." Id. at ¶¶ 31, 32. Kane returned with the breathalyzer mouthpieces around 11:10 P.M.; Iuliucci arrived at the Civic Center at approximately the same time. Id. at ¶¶ 33, 34. Ziegler attested it took two to four minutes for Iuliucci to administer a breathalyzer test to each student; the
Principal Laws specifically overheard Student Kendall McCormick use profanity in a private conversation with her mother during preparation for and administration of the breathalyzer tests; McCormick was suspended for three days for violating the Zero Tolerance Policy. Similarly, Student Kaelyn Drazkowski admitted to using profanity in the course of the breathalyzer testing; she also was suspended for three days for violating the Zero Tolerance Policy. Drazkowski subsequently gave a televised interview describing the incident on a local news station. After the story aired, Drazkowski was summoned to Kane's office, but she was not disciplined. She alleges she was exercising her freedom of speech and thereafter no longer felt free to state her opinions.
The operative Amended Complaint was filed by Students against Martin County School District, JBHS, Laws, Iuliucci, Kane, Officer Brush ("School Defendants"), and Martin County Sheriff William Snyder in the Southern District of Florida. They allege violations of the First, Fourth, and Fourteenth Amendments to the United States Constitution and 42 U.S.C. § 1983. Specifically, they contend defendants' searching the party bus, breathalyzing Prom attendees, and seizing Prom attendees before and after administering breathalyzer tests violated the Fourth Amendment; regulating the speech of certain students and retaliating against Drazkowski for her speech violated the First Amendment; breathalyzing students who arrived by party bus or limousine under JBHS policy violated the Equal Protection Clause of the Fourteenth Amendment; and failing to train police officers properly regarding the Fourth Amendment by Martin County Sheriff's
We review de novo the grant of summary judgment and construe the evidence and draw all reasonable inferences in the light most favorable to the nonmoving party. Baloco v. Drummond Co., 767 F.3d 1229, 1246 (11th Cir. 2014). We apply the same legal standards that bound the district judge. Shuford v. Fid. Nat'l Prop. & Cas. Ins. Co., 508 F.3d 1337, 1341 (11th Cir. 2007). We review de novo a district judge's "interpretation and application of the law." NAACP, Jacksonville Branch v. Duval Cnty. Sch., 273 F.3d 960, 965 (11th Cir. 2001). Summary judgment is appropriate "if the movant shows that there is no genuine dispute as to any material fact and the movant is entitled to judgment as a matter of law." Fed. R. Civ. P. 56(a). The determinative inquiry is "whether the evidence presents a sufficient disagreement to require submission to a jury or whether it is so one-sided that one party must prevail as a matter of law." Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 251-52, 106 S.Ct. 2505, 2512, 91 L.Ed.2d 202 (1986).
At the outset, there is no dispute the students on the party bus arrived at the Civic Center for the Prom after 10 P.M. on May 3, 2014. The JBHS Prom Rules definitively state "[n]o student will be admitted after 10 P.M." Am. Compl., Ex. D, ¶ 9 (Prom Rules). Because of their arrival at the Civic Center for the Prom after 10 P.M., it is undisputed the students on the party bus could have been denied entrance to the Prom upon arrival had the JBHS officials strictly enforced the clearly stated Prom Rules. The searches and seizure about which the Students complain likely would have been alleviated, if they had arrived timely at the Civic Center for the Prom.
The Students have focused their Fourth Amendment appeal on the cumulative time period they were detained for the search of the party bus and breathalyzer tests. They state the district judge "on multiple occasions characterized this case as an allegation by the Students that the Defendants violated their constitutional rights by delaying their entrance to [the P]rom. This case is not about the Prom; it is about a denigrating two-hour detention with no cause." Principal Br. of Appellants at 11 (emphasis added).
Our Fourth Amendment analysis under the governing law will examine the separate time periods the Students were detained after arrival at the Civic Center for the Prom. We will address each alleged Fourth Amendment violation following the students' arrival at the Civic Center on the party bus. The cumulative time the Students were detained while the JBHS officials conducted their investigative searches, however, effectively caused the Students to miss their Prom, which ended at midnight.
"[T]he touchstone of the constitutionality of a governmental search" is "reasonableness." Bd. of Educ. of Indep. Sch.
"[T]he legality of a search of a student should depend simply on the reasonableness, under all the circumstances, of the search." New Jersey v. T.L.O., 469 U.S. 325, 341, 105 S.Ct. 733, 742, 83 L.Ed.2d 720 (1985) (emphasis added). Determining the reasonableness of a search involving students "involves a twofold inquiry": (1) "whether the action was justified at its inception," and (2) "whether the search as actually conducted was reasonably related in scope to the circumstances which justified the interference in the first place." Id. at 341, 105 S.Ct. at 742-43 (citation, internal quotation marks, and ... omitted). "Under ordinary circumstances, a search of a student by a teacher or other school official will be `justified at its inception' when there are reasonable grounds for suspecting that the search will turn up evidence that the student has violated or is violating either the law or the rules of the school." Id. at 341-42, 105 S.Ct. at 743 (quoting Terry v. Ohio, 392 U.S. 1, 20, 88 S.Ct. 1868, 1879, 20 L.Ed.2d 889 (1968)) (footnotes omitted).
Questions regarding the reasonableness of a search or seizure based on established facts must be decided by the trial judge and not the jury. United States v. Edgerton, 438 F.3d 1043, 1047 (10th Cir. 2006) ("Where the historical facts giving rise to the stop and detention are undisputed, the only question is one of law, namely, whether the stop and detention, considered in light of the totality of the circumstances, were reasonable."); United States v. Jones, 269 F.3d 919, 927 (8th Cir. 2001) ("The ultimate determination of reasonableness under the Fourth Amendment is a question of law which we review de novo."). These applicable reasonableness principles guide our analysis of each search and seizure involving the Students following their arrival at the Civic Center for the Prom.
The Students initially argue that, because the Prom was not at JBHS or during school hours, it did not qualify as
Shade v. City of Farmington, 309 F.3d 1054, 1061 (8th Cir. 2002); see Earls, 536 U.S. at 837-38, 122 S.Ct. at 2568-69 (upholding under the Fourth Amendment the constitutionality of the school-district policy of randomly urinalysis-drug testing students participating in extracurricular activities); Vernonia Sch. Dist., 515 U.S. at 664-65, 115 S.Ct. at 2396-97 (rejecting Fourth Amendment challenge to random urinalysis-drug testing of student athletes).
The Students also contend they had a legitimate expectation of privacy in the party bus for the duration of their rental, which was from 5:30 P.M. until 11:30 P.M. on May 3, 2014, for the Prom. There is no dispute, however, the Students did not expect additional transportation on the party bus once they arrived at the Civic Center for the Prom.
The student passengers on the party bus had left no personal belongings on the bus to indicate they intended to return to the bus at any point after exiting to enter the Prom. To assert a Fourth Amendment violation, an individual must establish he or she had a legitimate expectation of privacy in the place searched. Rakas v. Illinois, 439 U.S. 128, 148-49, 99 S.Ct. 421, 433-34, 58 L.Ed.2d 387 (1978); United States v. Brazel, 102 F.3d 1120, 1147-48 (11th Cir. 1997). "Establishing a legitimate expectation of privacy is `a two-fold requirement, first that a person have exhibited an actual (subjective) expectation of privacy and, second, that the expectation be one that society is prepared to recognize as "reasonable."'" United States v. Ford, 34 F.3d 992, 995 (11th Cir.
The students who had occupied the party bus to the Civic Center left no personal belongings whatsoever on the bus when they exited to go into the Prom. None of them objected when they were told the party bus would be searched or mentioned they needed to return to the bus for any reason, which showed they did not intend to return to the bus. Irrespective of the contract stating the rental terminated at 11:30 P.M., the students who had arrived at the Civic Center at approximately 10:15 P.M. were not relying on the party bus to transport them after the Prom and had abandoned the bus, when they exited to enter the Prom. We conclude the Students have not established an actual or reasonable expectation of privacy in the party bus, which they had abandoned once they had exited for the Prom.
After all the students on the party bus voluntarily had exited at the Civic Center to attend the Prom and were standing aside waiting for the inspection of the bus, Officer Brush asked the bus driver for permission to board the bus to inspect it. He describes the search in his affidavit:
Aff. of Norm Brush at 3, ¶ 6, 4, ¶ 8 (Jan. 9, 2015) (citation omitted). When Officer Brush asked the driver about the champagne, the driver told him it belonged to the students, whom he had transported to the Prom.
The Students argue the bus driver did not have authority to permit Officer Brush to inspect the party bus. "`A search of property, without warrant or probable cause, is proper under the Fourth Amendment when preceded by valid consent.'" United States v. Harris, 526 F.3d 1334, 1339 (11th Cir. 2008) (quoting United States v. Dunkley, 911 F.2d 522, 525 (11th Cir. 1990)). "Valid consent may be granted by a person with actual or
The company from which the party bus was rented provided the driver for the transportation. The rental contract gives the driver discretion to drop off any unruly passengers. Consequently, the driver had authority over the party bus and the student passengers under the rental contract. Because all the students being transported to the Prom had exited the party bus, when Officer Brush boarded the bus and asked permission to inspect it, the driver was the sole occupant. See United States v. Eldridge, 984 F.2d 943, 948 (8th Cir. 1993) ("The driver of a car has the authority to consent to search of that vehicle. As the driver, he is the person having immediate possession of and control over the vehicle."). From Officer Brush's perspective, the driver had apparent authority to consent to search of the party bus. Therefore, the search of the party bus conducted by Officer Brush did not violate the Students' Fourth Amendment rights.
With valid consent of the driver, Officer Brush boarded the party bus and immediately discovered the empty champagne bottle and twelve plastic cups in plain view. When he left the bus holding the champagne bottle, Kane told the student passengers on the party bus, who had been waiting outside the bus, to stand in a straight line to be breathalyzed. Officer Brush said he had only two breathalyzer mouthpieces, and the students would have to wait until someone drove back to JBHS to get more mouthpieces. In her affidavit, Taylor Ziegler stated "[s]ome of the students asked whether two of the students could take the test and go inside the [P]rom, but they were told that they had to wait outside in the line until they picked up more [breathalyzer] sticks and until everyone was finished being breathalyzed."
Iuliucci, who had gone home, was called by Principal Laws to return to the Civic Center to administer the breathalyzer tests to the student passengers on the party bus. He also asked Kane to drive to JBHS to obtain additional breathalyzer mouthpieces for the testing. When it began to rain, the student line was moved to a covered area of the Civic Center. Iuliucci and Kane returned to the Civic Center at approximately 11:10 P.M. Ziegler attested the "students waited outside in a line for 45 minutes to an hour for the breathalyzer sticks to arrive." Id. at ¶ 28.
The initial detention of the students on the party bus for breathalyzer testing meets the T.L.O. standard of being justified at its inception, because it was reasonably
Because of the public school setting, where "the State is responsible for maintaining discipline, health, and safety" of the students, the School Defendants had a legitimate government interest in conducting the breathalyzer tests on the students from the party bus before allowing them to enter the Prom or to drive themselves home. Earls, 536 U.S. at 830, 122 S.Ct. at 2565. If the consumption of alcohol was proved, then it violated the JBHS Zero Tolerance policy for school-sponsored activities outside Martin County and state law regarding underage drinking. Administering a minimally invasive breathalyzer test to the student passengers on the party bus was the only reasonable and determinative method to know which students might have consumed alcohol in violation of the JBHS policy.
The initial detention of the students on the party bus for approximately forty-five minutes to an hour was waiting for the breathalyzer testing to begin. They waited for Kane to go to JBHS to obtain additional breathalyzer mouthpieces for the breathalyzer testing and return to the Civic Center and for Iuliucci to return to the Civic Center from her home to administer the breathalyzer tests to the individual students. As the district judge noted, the students on the party bus arrived well after the 10:00 P.M. deadline for arrival at the Prom. This could have been the reason Iuliucci, the only JBHS official certified to administer breathalyzer tests, had departed. Consequently, the Students cannot fault the School Defendants for not having someone on site to administer the breathalyzer tests immediately. In addition, the judge further concluded the prior use of numerous breathalyzer mouthpieces was unforeseen, which resulted in the depletion of mouthpieces, when the Students arrived on the party bus. Under the particular circumstances of this Prom night, the initial waiting period for the breathalyzer mouthpieces and a trained individual to administer the breathalyzer tests was reasonable,
Even if the seizure or detention of the students on the party bus was justified at its inception, the Students argue on appeal the actual administration of the breathalyzer tests was unreasonable in two respects. They initially contend it was unreasonable for the School Defendants to detain them as a group until each student from the party bus was breathalyzed, approximately forty-five minutes to an hour. Their related and primary argument is, once each student was breathalyzed and shown to have no alcohol in his or her system, the student should have been free to leave, whether to go into the Prom; drive away in his or her car, for those who had driven earlier to the Civic Center; or go home with parents.
The School Defendants maintain keeping all the students together until the breathalyzer testing was completed was done for fairness, so the students tested at the front of the line would not be advantaged by being able to go into the Prom, while the rest waited to be breathalyzed. The district judge found the School Defendants' decision to detain all the students from the party bus together until all had been breathalyzed was reasonable under the circumstances to maintain order, since Deputy Brush had reported some of the students had become disruptive while waiting for all the students to be breathalyzed. Neither rationale as a basis for holding all the students from the party bus until all had been breathalyzed satisfactorily answers the core question presented in this case: once a student from the party bus was found to be alcohol free by the breathalyzer test, why was he or she not free to go, whether into the Prom or to leave by personal vehicle or with parents?
The Supreme Court has held breath and urine tests implicate the Fourth Amendment.
But the continued detention of all the students on the party bus until all had been breathalyzed is a different situation. We now hold, when government officials need to conduct breathalyzer or urine tests on students, the testing must be accomplished in a reasonably expeditious time period; once exonerated by the test, the student must be free to go. Like urine testing for drugs, breathalyzer testing for alcohol must be conducted quickly before
When a student is tested as alcohol or drug free, there is no justification for continuing to detain the student with such definitive exculpatory evidence. We conclude each student from the party bus who tested alcohol free reasonably should have been free to leave without being detained until all the students had been tested. After their being delayed for the breathalyzer testing, some no longer wanted to go to the Prom, which was about to end at midnight. Detaining a student after he or she was found to be alcohol free was not "reasonably related" to the reason for the detention "in the first place" of determining if the student passengers on the party bus had been drinking. T.L.O., 469 U.S. at 341, 105 S.Ct. at 743.
"The doctrine of qualified immunity protects government officials from liability for civil damages insofar as their conduct does not violate clearly established statutory or constitutional rights of which a reasonable person would have known." Pearson v. Callahan, 555 U.S. 223, 231, 129 S.Ct. 808, 815, 172 L.Ed.2d 565 (2009) (citation and internal quotation marks omitted). "For a constitutional right to be clearly established, its contours must be sufficiently clear that a reasonable official would understand that what he is doing violates that right." Hope v. Pelzer, 536 U.S. 730, 739, 122 S.Ct. 2508, 2515, 153 L.Ed.2d 666 (2002) (citation and internal quotation marks omitted).
For qualified immunity to apply, "the public official must first prove that he was acting within the scope of his discretionary authority when the allegedly wrongful acts occurred." Lee v. Ferraro, 284 F.3d 1188, 1194 (11th Cir. 2002) (citations and internal quotation marks omitted). Clearly, the individual School Defendants, Laws, Iuliucci, Kane, and Officer Brush were acting within the scope of each's respective authority at JBHS in the search of the party bus, which led to the subsequent detention of all the students on the bus for breathalyzer testing for alcohol, the crux of the Students' case. At oral argument, their counsel conceded he did not know of any case directly on point,
The remaining defendants are Martin County School District, JBHS, and Sheriff Snyder. On appeal, the Students have not addressed Martin County School District and JBHS. Therefore, they have abandoned any arguments on appeal regarding these defendants. See United States v. Ardley, 242 F.3d 989, 990 (11th Cir. 2001) ("[W]e apply our well-established rule that issues and contentions not timely raised in the briefs are deemed abandoned." (collecting cases)).
In their reply brief, the Students complain the district judge did not address their claim under Monell v. Department of Social Services, 436 U.S. 658, 98 S.Ct. 2018, 56 L.Ed.2d 611 (1978), which held a municipality is not liable for constitutional deprivations under respondeat superior, unless the constitutional violation resulted from a policy or custom. "[I]nadequacy of police training may serve as the basis for § 1983 liability only where the failure to train amounts to deliberate indifference to the rights of persons with whom the police come into contact." City of Canton v. Harris, 489 U.S. 378, 388, 109 S.Ct. 1197, 1204, 103 L.Ed.2d 412 (1989). A finding of deliberate indifference requires evidence the municipality was on notice, meaning a plaintiff "must present some evidence that the municipality knew of a need to train and/or supervise in a particular area and the municipality made a deliberate choice not to take any action." Gold v. City of Miami, 151 F.3d 1346, 1350 (11th Cir. 1998). There was no notice to Sheriff Snyder about how Officer Brush handled the detention for breathalyzer testing the night of the Prom, because there is no evidence in the record that such a situation had occurred before this instance. Moreover, we have determined Officer Brush is entitled to qualified immunity, because holding students from the
Students Kaelyn Drazkowski and Kendall McCormick allege their First Amendment rights were violated, when they were suspended three days each for cursing in the course of the breathalyzer detention. The Zero Tolerance Form plainly states: "
While recognizing "[t]he First Amendment guarantees wide freedom in matters of adult public discourse," the Supreme Court has differentiated "the constitutional rights of students in public school are not automatically coextensive with the rights of adults in other settings." Bethel Sch. Dist. No. 403 v. Fraser, 478 U.S. 675, 682, 106 S.Ct. 3159, 3164, 92 L.Ed.2d 549 (1986) (citing T.L.O., 469 U.S. at 340-42, 105 S.Ct. at 742-43). "Surely it is a highly appropriate function of public school education to prohibit the use of vulgar and offensive terms in public discourse"; "[n]othing in the Constitution prohibits the states from insisting that certain modes of expression are inappropriate and subject to sanctions." Id. at 683, 106 S.Ct. at 3164. The First Amendment rights of students "must be applied in light of the special characteristics of the school environment." Hazelwood Sch. Dist. v. Kuhlmeier, 484 U.S. 260, 266, 108 S.Ct. 562, 567, 98 L.Ed.2d 592 (1988) (citation and internal quotation marks omitted). Consistent with these principles, the JBHS officials were constitutionally correct in disciplining Drazkowski and McCormick for their cursing during the breathalyzer testing for the Prom, because "it was perfectly appropriate for the school to disassociate itself to make the point to the pupils that vulgar speech and lewd conduct is wholly inconsistent with the `fundamental values' of public school education." Bethel Sch. Dist., 478 U.S. at 685-86, 106 S.Ct. at 3165. No First Amendment violation occurred to Drazkowski and McCormick for their respective suspensions for knowingly failing to abide by JBHS rules during the breathalyzer-testing process.
Drazkowski pursues on appeal her claim of retaliation for her First Amendment right to express her views regarding the Prom night, breathalyzer-testing incident during a news program on a local station. But JBHS officials did not punish her for this speech; instead, they voiced strong disapproval, and Drazkowski contends punishment was threatened. See Morrison v. Bd. of Educ. of Boyd Cnty., 521 F.3d 602, 609 (6th Cir. 2008) (recognizing in a § 1983 case "absent proof of a concrete harm, where a First Amendment plaintiff only alleges inhibition of speech, the federal courts routinely hold that no standing exists"). The district judge did not rule on Drazkowski's retaliation claim. At oral argument, the Students' counsel agreed we could address this issue de novo, if we did so purely on a legal basis without the need for factual findings.
Accordingly, we have recognized the elements of a retaliation claim under the First Amendment: (1) a plaintiff must establish her speech "was constitutionally protected," (2) the "retaliatory conduct adversely affected the protected
As we have explained, the Students have not established they should succeed on any of their allegations concerning their Fourth Amendment detention by the School Defendants for breathalyzer testing on their Prom night or their First Amendment and Fourteenth Amendment claims. In according the School Defendants qualified immunity, we have established the requirement in our circuit that, when a student is exonerated by a test with an immediate result, such as a breathalyzer or urine test, that student can no longer be held after being shown to be alcohol or drug free. The district judge correctly granted summary judgment to all the defendants.
Am. Compl., Ex. B (The School Board of Martin County, Bylaws & Policies, § 5771, Search and Seizure)(emphasis added).
Dep. of Haley O'Hanna at 56-57 (Dec. 16, 2014).