No language in 42 U.S.C. § 1983 provides for the survival of a civil rights action in favor of another upon the death of the injured party. Because the statute is silent or "deficient" in this respect, 42 U.S.C. § 1988(a) requires application of state survivorship law, provided that law is "not inconsistent with the Constitution and laws of the United States." Under the Alabama survivorship statute, Ala.Code § 6-5-462, unfiled personal injury claims do not survive the death of the injured party. Finding this statute "inconsistent with the Constitution and laws of the United States," the district court declined to apply it in this case, and instead fashioned a federal common law rule of survivorship. The case was tried to a jury, and resulted in a verdict and judgment for the decedent's estate. Because we conclude that Ala.Code § 6-5-462 is not inconsistent with the Constitution and laws of the United States, we reverse.
One evening in April 2007, two City of Prattville, Alabama police officers—Brian Gentry and Camille Emmanuel—stopped Eugene Gilliam's vehicle for violating the speed limit. During the course of the stop, the officers found marijuana in Gilliam's pocket and attempted to arrest him. In the process, both officers tasered Gilliam multiple times. At trial, the facts about the amount of resistance the police officers encountered in trying to subdue Gilliam were disputed. Gilliam's estate presented evidence that Gilliam did not struggle or resist at all. The officers testified that he forcibly resisted arrest and attempted to flee.
After the officers restrained Gilliam by using tasers, he complained of chest pains and breathing difficulties. The paramedics, who were called almost immediately, arrived within minutes and took Gilliam to the hospital. About seven hours later, Gilliam died. The state medical examiner performed an autopsy and listed "hypertensive cardiovascular disease consistent with dysrhythmia" as the final pathological diagnosis. He listed the cause of death as "hypertensive cardiovascular disease" and the manner of death as "natural." Using blood drawn from Gilliam an hour or so after the incident, a toxicology screen flagged his blood as positive for marijuana and cocaine.
About a year after Gilliam's death, Cynthia Waldroup, Gilliam's mother and personal representative of his estate, sued officers Gentry and Emmanuel.
The two officers filed a motion for summary judgment and a motion in limine. Through both of these motions, the officers generally challenged the Estate's evidence as to whether the officers' firing of the taser was the proximate cause of Gilliam's death. Through their motion in limine, the officers sought to exclude the death causation testimony and reports of the Estate's two medical experts.
The case went to trial against both officer Gentry and officer Emmanuel on the non-death § 1983 excessive force claims. At the close of the Estate's case and again at the close of the officers' case, counsel for the officers moved to dismiss the excessive force claims. They argued that Gilliam died prior to the filing of this lawsuit and thus the § 1983 excessive force claims had abated under Alabama law as provided by Ala.Code § 6-5-462.
The jury returned a defense verdict in favor of officer Gentry, but returned a verdict against officer Emmanuel in the amount of $30,000. The district court entered final judgment against Emmanuel. She now appeals that judgment, arguing that the district court erred in denying her pre-verdict motions because the § 1983 excessive force claims did not under Alabama law survive Gilliam's death.
We review a district court's denial of a motion to dismiss de novo, applying the same standard as the district court. Randall v. Scott, 610 F.3d 701, 705 (11th Cir.2010); Dalrymple v. Reno, 334 F.3d 991, 994 (11th Cir.2003).
The issue in this case is whether a § 1983 excessive force claim survives in Alabama if the injured party dies before the lawsuit is filed, or abates pursuant to Ala.Code § 6-5-462. We stress at the outset that this case, in its present procedural posture, does not involve a claim that the officers' unconstitutional conduct caused the decedent's death. The state law wrongful death claims under Ala.Code § 6-5-410, and the § 1983 excessive force claims alleging that death was the result of the use of force, were both dismissed at the summary judgment stage because the Estate produced no admissible evidence
By its terms, 42 U.S.C. § 1983 does not provide for the survival of civil rights actions. Due to this "deficiency" in the statute, the survivorship of civil rights actions is governed by 42 U.S.C. § 1988(a). Robertson v. Wegmann, 436 U.S. 584, 588-89, 98 S.Ct. 1991, 1994, 56 L.Ed.2d 554 (1978). That statute generally directs that, where federal law is "deficient," the state law of the forum applies as long as it is "not inconsistent with the Constitution and the laws of the United States." 42 U.S.C. § 1988(a).
The Supreme Court has interpreted § 1988(a) as requiring a "three-step process" to determine the rules of decision applicable to civil rights claims. Wilson v. Garcia, 471 U.S. 261, 267, 105 S.Ct. 1938, 1942, 85 L.Ed.2d 254 (1985) (superseded by statute on other grounds); Burnett v. Grattan, 468 U.S. 42, 47-48, 104 S.Ct. 2924, 2928, 82 L.Ed.2d 36 (1984); Moore v. Liberty Nat'l Life Ins. Co., 267 F.3d 1209, 1214 (11th Cir.2001). Courts must first look to federal law "so far as such laws are suitable to carry [the civil and criminal civil rights statutes] into effect." 42 U.S.C. § 1988(a). Second, if federal law is "not adapted to the object" or is "deficient in the provisions necessary to furnish suitable remedies and punish offenses," courts must apply the law of the forum state. Id. Third, if application of state law is "inconsistent with the Constitution and laws of the United States," courts must not apply state law. Id.
There is no dispute in this case regarding the first two steps of the analysis: The parties agree, as do we, that the failure of § 1983 to include a survivorship provision is not "suitable to carry [that statute] into effect" and is "deficient" in providing suitable remedies for civil rights violations. Indeed, the Supreme Court has definitively held that § 1983 is deficient in not providing for survivorship. See Robertson, 436 U.S. at 588, 98 S.Ct. at 1994; see also Brazier v. Cherry, 293 F.2d 401, 407-08 (5th Cir.1961) (holding that § 1983 is deficient in not providing for survivorship and looking to Georgia's survivorship and
The applicable Alabama survivorship law is Ala.Code § 6-5-462. Under that provision, "a deceased's unfiled tort claims do not survive the death of the putative plaintiff." Bassie v. Obstetrics & Gynecology Assocs. of Northwest Ala., P.C., 828 So.2d 280, 282 (Ala.2002); see also Cont'l Nat'l Indem. Co. v. Fields, 926 So.2d 1033, 1037 (Ala.2005) ("As a general rule, causes of action in tort do not survive in favor of the personal representative of the deceased."); Malcolm v. King, 686 So.2d 231, 236 (Ala. 1996) ("The general rule is that under Ala.Code 1975, § 6-5-462, an unfiled tort claim does not survive the death of the person with the claim.").
The Estate contends that Ala. Code § 6-5-462 is inconsistent with federal civil rights laws and thus the district court was correct in refusing to apply it and instead fashioning a federal common law rule of survival. Our analysis of whether the Alabama survivorship statute applies in this § 1983 action is guided by the Supreme Court's decision in Robertson v. Wegmann, 436 U.S. 584, 98 S.Ct. 1991, 56 L.Ed.2d 554 (1978).
Id. at 593, 98 S.Ct. at 1996-97.
Using the analytical approach established in Robertson, we conclude that Ala.Code § 6-5-462 is not inconsistent with federal law and therefore must apply in this case. The Estate does not contend that the Alabama survivorship statute is inconsistent with the text of § 1983. Nor could it. As the Supreme Court has recognized, there is "nothing in [§ 1983] to indicate that a state law causing abatement of a particular action should invariably be ignored in favor of absolute survivorship." Id. at 590, 98 S.Ct. at 1995. In fact, by its own terms, § 1983 grants the cause of action "to the party injured," suggesting that the action is personal to the injured party. 42 U.S.C. § 1983. Thus, Alabama survivorship law is not "inconsistent" with the text of § 1983 itself.
Nor is Alabama survivorship law inconsistent with the policies underlying § 1983—the "compensation of persons injured by deprivation of federal rights and prevention of abuses of power by those acting under color of state law." Robertson, 436 U.S. at 591, 98 S.Ct. at 1995. To determine whether the Alabama survivorship statute is inconsistent with federal law, we must ask whether that statute, along with other Alabama statutes, generally serves the purposes of § 1983. In the vast majority of cases, applying Alabama law through § 1988(a) will compensate the constitutionally injured and impose liability on those state officials who violate the Constitution. First, when an injured party actually files a § 1983 action and later dies, that action will survive death. See Georgia Cas. & Sur. Co. v. White, 582 So.2d 487, 491 (Ala.1991) (noting that filed tort claims pending in court at time of injured party's death survive under § 6-5-462 while unfiled claims do not). So, when a § 1983 claim is actually filed prior to the victim's death, Alabama law provides compensation for the constitutional violation and imposes liability on the state official responsible for the unconstitutional conduct—a result consistent with the purposes of § 1983. Second, when a constitutional violation actually causes the injured party's death, a § 1983 claim can be asserted through the Alabama wrongful death statute, Ala.Code § 6-5-410.
We recognize that the facts of this case are unusual. Gilliam, who died seven hours after the use of force, could not file a § 1983 claim that would have survived under Ala.Code § 6-5-462. At the same time, Gilliam's estate could not assert a § 1983 claim through the wrongful death statute, Ala.Code § 6-5-410, because it could not produce admissible evidence that the use of force caused Gilliam's death. This case is, therefore, an unusual one, where application of Alabama law does not provide for survivorship. But, just because applying Alabama law causes the Estate to lose in this unusual case does not mean Alabama law is generally inconsistent with federal law. See Robertson, 436 U.S. at 593, 98 S.Ct. at 1996 ("A state statute cannot be considered `inconsistent' with federal law merely because the statute causes the plaintiff to lose the litigation."). And, with no inconsistency between Alabama law and federal law, we cannot, as the dissent proposes, craft a highly specific federal common law rule of survivorship that applies to the unique facts of this case.
The Estate argues that Alabama law is generally inhospitable to § 1983 claims because it does not provide for the survival of any unfiled tort actions. The Estate points out that the Alabama survivorship statute is more restrictive on survivorship than the Louisiana statute in Robertson, which provided for the survival of most tort claims and simply limited the individuals who could maintain the survival action. Robertson, 436 U.S. at 591, 98 S.Ct. at 1995. Therefore, the Alabama survivorship statute, according to the Estate, is inconsistent with § 1983 because it "significantly restrict[s] the types of actions that survive." Id. at 594, 98 S.Ct. at 1997.
We are not persuaded. Robertson requires that, in applying § 1988(a), the survivorship law of the forum state applies as long as it is not "inconsistent" with federal law. As the Eighth Circuit has recognized, "Robertson does not require courts to compare the laws of one state with those of another state, or to ask whether someone could benefit from survival of the action, or to use some as yet undefined measure to determine whether a state rule on the survival of actions is overly restrictive." Parkerson v. Carrouth, 782 F.2d 1449, 1454 (8th Cir.1986). To be sure, application of state law under § 1988(a) does not turn on the reasonableness of that particular state law.
We recognize that application of Alabama's survivorship law does not lead to uniform application of federal civil rights laws. For instance, had the events in this case occurred in Georgia instead of Alabama, Gilliam's § 1983 claim would have survived his death. See O.C.G.A. § 9-2-41 (providing for survival of decedent's cause of action). But this is the natural result under § 1988(a), which references state law and mandates that it will often apply in § 1983 litigation. As the Supreme Court has recognized, "[1988(a)'s] reliance on state law obviously means that there will not be nationwide uniformity[.]" Robertson, 436 U.S. at 593 n. 11, 98 S.Ct. at 1997 n. 11. Had Congress intended § 1983 lawsuits to survive a decedent's death no matter where the decedent was injured, it could have explicitly written this language into the law.
For these reasons, we conclude that the district court erred in denying Emmanuel's motions to dismiss based on the abatement of Gilliams's excessive force claims. When § 6-5-462 is applied to this action, which was not filed prior to the death of Eugene Gilliam, the excessive force claim against Emmanuel abates under Alabama law. The judgment entered against Camille Emmanuel is reversed.
REVERSED.
MARTIN, Circuit Judge, dissenting:
I respectfully dissent from the Majority's opinion because I cannot agree that there is "no inconsistency between Ala. Code § 6-5-462 and federal law." To the contrary, I would conclude that the Alabama survivorship statute, to the extent that it permits the abatement of tort actions for wrongful conduct that immediately contributes to a person's death, is inconsistent with both the abuse prevention and compensation goals underlying and embodied in 42 U.S.C. § 1983.
At about 5:15 p.m. on April 9, 2007, Eugene Gilliam ("Mr. Gilliam") was pulled over for driving ten miles over the speed limit and not wearing a seat belt. A little over seven hours later, at 12:26 a.m. on April 10, 2007, he was dead at the age of twenty-two.
I begin by observing that this case falls beyond the scope of the "narrow" holding of Robertson v. Wegmann, 436 U.S. 584, 594, 98 S.Ct. 1991, 1997, 56 L.Ed.2d 554 (1978). In Robertson, the § 1983 plaintiff died four years after the filing of his § 1983 action alleging prosecutorial abuse. 436 U.S. at 585-86, 98 S.Ct. at 1992-93. In that case, "it [was] agreed that [the plaintiff's] death was not caused by the deprivation of rights for which he sued under § 1983." Id. at 594, 98 S.Ct. at
This case requires us to decide for the first time whether the goals of deterrence and compensation require the survival of § 1983 actions where unlawful conduct immediately contributes to, but does not proximately cause, death. I would conclude that the goals of deterrence and compensation do not support drawing a line requiring survival where, as in Brazier, unlawful conduct proximately causes death but permitting abatement where, as here, unlawful conduct contributes to, but does not proximately cause, death.
First, with respect to compensation, there is no distinction between the situation where—as in Brazier, 293 F.2d at 402 — the unlawful conduct caused the victim's death, and the situation here, where the unlawful conduct contributed to the victim's death. In either case, the person who suffered the harm cannot be compensated. But Brazier rejected the argument that "Congress purposefully extended the sanction of a civil damage suit only to the person who was the immediate physical victim of such violations." 293 F.2d at 404. Instead, the former Fifth Circuit explained that "it defies history to conclude that Congress purposely meant to assure to the living freedom from such unconstitutional deprivations, but that, with like precision, it meant to withdraw the protection of civil rights statutes against the peril of death." Id. In considering the purpose and scope of § 1983, that court explained that "[v]iolent injury that would kill was not less prohibited than violence which would cripple." Id.
We remain bound by Brazier because Robertson did nothing to overrule that case.
Second, I do not believe that the survival of § 1983 actions through wrongful death statutes is, by itself, sufficient to satisfy the goal of abuse prevention. To be sure, at least that much is required to give effect to the deterrent purpose of § 1983 because a contrary rule would not only fail to deter abuse, but would actually encourage abuse by creating an incentive for those committing abuses under color of state law to kill, rather than merely injure, the victims of their unlawful conduct.
The Majority asserts that "[t]his case is... an unusual one," because it falls between provisions of Alabama law that would have permitted the Estate to maintain a § 1983 claim against Officer Emmanuel.
For all of these reasons, I would conclude that Alabama's survivorship statute, to the extent that it would allow those acting under color of state law to escape § 1983 liability for unconstitutional conduct that immediately contributes to a person's death, is inconsistent with the goals of compensation and abuse prevention underlying and embodied in § 1983. I would therefore affirm the judgment of the District Court.
Despite this "contributing factor" finding, the claim that was submitted to the jury involved no allegation that excessive force either caused or contributed to Gilliam's death. And, the jury heard no evidence regarding Gilliam's death, and the district court gave no instruction about death.
We note that the United States Supreme Court granted a writ of certiorari in City of Tarrant on the question of whether the Alabama wrongful death statute, which allows for punitive damages only, governs recovery by the personal representative of the decedent's estate under § 1983. Jefferson v. City of Tarrant, Ala., 522 U.S. 75, 77-78, 118 S.Ct. 481, 484, 139 L.Ed.2d 433 (1997). The Court ultimately dismissed the case on jurisdictional grounds. Id. While it is clear that a § 1983 claim alleging that a constitutional violation caused the decedent's death can be asserted through the Alabama wrongful death statute, the kinds of damages that are recoverable are determined by federal law. See Gilmere v. City of Atlanta, Ga., 864 F.2d 734, 739 (11th Cir.1989).