TJOFLAT, Circuit Judge:
In 2010, the Georgia legislature, apparently concerned that the carrying of weapons
One of the eight locations designated in the Carry Law is a "place of worship." Id. § 16-11-127(b)(4). In this case, Edward Stone and Jonathan Wilkins ("Plaintiffs") each allege in their Amended Complaint that they regularly attend religious services, possess a weapons carry license, and "would like to carry a handgun" while in a place of worship. Plaintiffs seek a declaration that the Carry Law is unconstitutional on its face and as applied to them because compliance with § 16-11-127 will violate their First Amendment right to the free exercise of their religion
This case began on July 12, 2010, in the Superior Court of Upson County, Georgia. Plaintiffs sued the State of Georgia and Upson County in a two-count complaint presenting the constitutional claims referred to above and seeking declaratory and injunctive relief under 42 U.S.C. § 1983.
The State of Georgia and the Governor jointly moved to dismiss the Amended Complaint under Federal Rule of Civil Procedure 12(b)(1)
In addressing the defendants' motions, the District Court bypassed the question of whether Plaintiffs had standing to sue
"The judicial Power [of the United States] shall extend to all Cases, in Law and Equity, arising under this Constitution." U.S. Const. art. III, § 2. To establish an Article III "case," see Summers v. Earth Island Inst., 555 U.S. 488, 492-93, 129 S.Ct. 1142, 1148-49, 173 L.Ed.2d 1 (2009) ("In limiting the judicial power to `Cases' and `Controversies,' Article III of the Constitution restricts it to the traditional role of Anglo-American courts, which is to redress or prevent actual or imminently threatened injury to persons caused by private or official violation of law."), a plaintiff must establish standing, which requires a showing that
Friends of the Earth, Inc. v. Laidlaw Envtl. Servs., Inc., 528 U.S. 167, 180-181, 120 S.Ct. 693, 704, 145 L.Ed.2d 610 (2000) (citing Lujan v. Defenders of Wildlife, 504 U.S. 555, 560-561, 112 S.Ct. 2130, 2136, 119 L.Ed.2d 351 (1992)). Case law from both the Supreme Court and this court is clear: because we must afford special protection for the exercise of constitutional rights, a plaintiff does not always need to risk prosecution to obtain preventative relief when his or her exercise of a constitutional right at stake. See Steffel v. Thompson, 415 U.S. 452, 459, 94 S.Ct. 1209, 1215, 39 L.Ed.2d 505 (1974) ("[I]t is not necessary that [the plaintiff] first expose himself to actual arrest or prosecution to be entitled to challenge [the] statute that he claims deters the exercise of his constitutional rights."); Jacobs v. Florida Bar, 50 F.3d 901, 904 (11th Cir.1995) ("A plaintiff stating that he `intends to engage in a specific course of conduct arguably affected with a constitutional interest... does not have to expose himself to enforcement to be able to challenge the law.'" (quoting ACLU v. Florida Bar, 999 F.2d 1486, 1492 (11th Cir.1993))). Instead, a plaintiff with the exercise of a constitutional right at stake may seek declaratory or injunctive relief prior to the challenged
The "injury" in this pre-enforcement context is the well-founded fear that comes with the risk of subjecting oneself to prosecution for engaging in allegedly protected activity. Babbitt v. UFW, 442 U.S. 289, 298-99, 99 S.Ct. 2301, 2309, 60 L.Ed.2d 895 (1979) ("When plaintiffs `do not claim that they have ever been threatened with prosecution, that a prosecution is likely, or even that a prosecution is remotely possible,' they do not allege a dispute susceptible to resolution by a federal court." (quoting Younger v. Harris, 401 U.S. 37, 42, 91 S.Ct. 746, 749, 27 L.Ed.2d 669 (1971))); see also Virginia v. Am. Booksellers Ass'n, Inc., 484 U.S. 383, 393, 108 S.Ct. 636, 643, 98 L.Ed.2d 782 (1988) (finding that allegations were sufficient when plaintiffs alleged "actual and well-founded fear that the law will be enforced against them").
This court has held that a risk of prosecution is sufficient if the plaintiff alleges (1) that an actual threat of prosecution was made, (2) that prosecution is likely, or (3) that a credible threat of prosecution exists based on the circumstances. See Jacobs, 50 F.3d at 904. To show that a prosecution is likely or a credible threat exists, a plaintiff must show that there is "a realistic danger of sustaining direct injury as a result of the statute's operation or enforcement." Am. Civil Liberties Union v. Florida Bar, 999 F.2d 1486, 1492 (11th Cir.1993) (quoting Babbitt v. United Farm Workers Nat. Union, 442 U.S. 289, 298, 99 S.Ct. 2301, 2308, 60 L.Ed.2d 895 (1979)). We look to see "whether the plaintiff is seriously interested in disobeying, and the defendant seriously intent on enforcing the challenged measure." Id. at 1493 (quoting Int'l Soc'y for Krishna Consciousness v. Eaves, 601 F.2d 809, 818 (5th Cir.1979)).
Although the Amended Complaint is lacking in many respects, we believe that Plaintiffs have alleged a credible threat of prosecution under the Carry Law sufficient to establish standing to bring a facial challenge. They are license holders who regularly attend services at a place of worship. Moreover, they "would like to carry a handgun in such place of worship for the protection of [their] family and [themselves], but [they are] in fear of arrest and prosecution." It thus seems clear that Plaintiffs are seriously interested in engaging in conduct that is arguably prohibited by the Carry Law and that could give rise to prosecution by state authorities. Nothing in the defendants' answers suggests that the Carry Law will not be vigorously enforced. Therefore, we cannot say that there exists only a "speculative risk" of prosecution; rather, Plaintiffs appear to be subject to a legitimate threat that they will be prosecuted for activity that, they believe, is constitutionally protected. And if the court granted the relief that Plaintiffs seek, we would surely provide redress for the alleged constitutional infringement at issue.
Having concluded that Plaintiffs have standing to prosecute their claims, we turn to the question of whether the District Court erred in dismissing Counts 1 and 2 of the Amended Complaint — the allegation that Plaintiffs' forced compliance with the Carry Law will infringe their right to the free exercise of their religion, in violation of the First Amendment.
The First Amendment provides, "Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof[.]" U.S. Const. amend. I (emphasis added). The Free Exercise Clause of the First Amendment is applicable to the States through the Due Process Clause of the Fourteenth Amendment. See Cantwell v. Connecticut, 310 U.S. 296, 303, 60 S.Ct. 900, 903, 84 L.Ed. 1213 (1940). The protections afforded by the Free Exercise Clause prevent the government from discriminating against the exercise of religious beliefs or conduct motivated by religious beliefs. See Church of the Lukumi Babalu Aye, Inc. v. City of Hialeah, 508 U.S. 520, 532, 113 S.Ct. 2217, 2226, 124 L.Ed.2d 472 (1993) ("At a minimum, the protections of the Free Exercise Clause pertain if the law at issue discriminates against some or all religious beliefs or regulates or prohibits conduct because it is undertaken for religious reasons.").
Counts 1 and 2 allege that the Carry Law "interferes with the free exercise of religion by Plaintiffs by prohibiting them from engaging in activities in a place of worship when those activities are permitted throughout the state." Count 1, labeled a "direct action," purports to state a cause of action directly under the First Amendment. The Amended Complaint, however, does not cite the statutory source of the District Court's jurisdiction to entertain Count 1; nor does the District Court's order dismissing it. The District Court ruled on the merits of Count 1; thus, we assume that the court found jurisdiction under 28 U.S.C. § 1331, which gives the district courts "original jurisdiction of all civil actions arising under the Constitution ... of the United States." The First Amendment does not explicitly create the cause of action Count 1 attempts to assert, and we are aware of no case holding that such cause of action is implied when the relief a plaintiff seeks is plainly available through a mechanism created by Congress.
Count 2 asserts a claim under 42 U.S.C. § 1983.
Section 1983 gives a party who claims to have suffered the deprivation of a constitutional right at the hands of a person acting "under color of" state law "an action at law [or] suit in equity" against such person "for redress." 42 U.S.C.
This brings us to the Governor. Part of the Governor's job is to ensure the enforcement of Georgia's statutes.
To survive a motion to dismiss, a plaintiff must "plead factual matter that, if taken as true, states a claim" that is plausible on its face. Ashcroft v. Iqbal, 556 U.S. 662, 666, 129 S.Ct. 1937, 1942-43, 173 L.Ed.2d 868 (2009). This necessarily requires that a plaintiff include factual allegations for each essential element of his or her claim. Randall v. Scott, 610 F.3d 701, 707 n. 2 (11th Cir.2010) ("[C]omplaints ... must now contain either direct or inferential allegations respecting all the material elements necessary to sustain a recovery under some viable legal theory." (internal quotations omitted)); Am. Dental Ass'n v. Cigna Corp., 605 F.3d 1283, 1289 (11th Cir.2010) (quoting Bell Atl. Corp. v. Twombly, 550 U.S. 544, 570, 127 S.Ct. 1955, 1974, 167 L.Ed.2d 929 (2007)).
We conclude that the Amended Complaint fails to state a Free Exercise Clause challenge because Plaintiffs omit any factual matter showing how the Carry Law burdens a sincerely held religious belief. Plaintiffs argue that such an allegation is unnecessary if a law is subject to strict scrutiny because it is not neutral or generally applicable.
First Amendment Free Exercise Clause precedent is clear: a plaintiff must allege a constitutionally impermissible burden on a sincerely held religious belief to survive a motion to dismiss. This is so because, as a threshold issue — before a court even considers whether a law is subject to the rational basis test or, alternatively, strict scrutiny — a court must be able to determine that the protection of the Free Exercise Clause is triggered.
The Supreme Court has reiterated time and time again that personal preferences and secular beliefs do not warrant the protection of the Free Exercise Clause. See Frazee v. Illinois Dep't of Employment Sec., 489 U.S. 829, 833, 109 S.Ct. 1514, 1517, 103 L.Ed.2d 914 (1989) ("There is no doubt that `[o]nly beliefs rooted in religion are protected by the Free Exercise Clause[.]' Purely secular views do not suffice." (quoting Thomas v. Review Bd. of Ind. Emp't. Sec. Div., 450 U.S. 707, 713, 101 S.Ct. 1425, 1430, 67 L.Ed.2d 624 (1981))); Wisconsin v. Yoder, 406 U.S. 205, 215-216, 92 S.Ct. 1526, 1533, 32 L.Ed.2d 15 (1972). Put another way, a complaint fails to state a Free Exercise claim if it does not allege that (1) the plaintiff holds a belief, not a preference, that is sincerely held and religious in nature, not merely secular; and (2) the law at issue in some way impacts the plaintiff's
Despite Plaintiffs' arguments to the contrary, the Supreme Court's Church of the Lukumi Babalu
To be brief, the Amended Complaint fails to state a claim for relief under the First Amendment. See Iqbal, 129 S.Ct. at 1949. We searched the Amended Complaint to no avail in an attempt to find factual allegations that could possibly be construed as alleging that the Carry Law imposes a constitutionally impermissible burden on one of Plaintiffs' sincerely held religious beliefs. At various points, Plaintiffs allege that they would like to carry a handgun in a place of worship for the protection either of themselves, their family, their flock, or other members of the Tabernacle. Plaintiffs conclude by alleging that the Carry Law interferes with their free exercise of religion by prohibiting them from engaging in activities in a place of worship when those activities are generally permitted throughout the State. That Plaintiffs "would like" to carry a firearm in order to be able to act in "self-defense" is a personal preference, motivated by a secular purpose. As we note supra, there is no First Amendment protection for personal preferences; nor is there protection for secular beliefs. United States v. DeWitt, 95 F.3d 1374, 1375 (8th Cir.1996) ("Nevertheless, the Free Exercise Clause does not protect purely secular views or personal preferences." (citing Frazee v. Ill. Dep't of Emp't Sec., 489 U.S. at 833, 109 S.Ct. at 1517)). The allegations in the Amended Complaint, as Plaintiffs chose to frame their case, do not state a Free Exercise claim.
We now consider Plaintiffs' Second Amendment claims, in Counts 3 and 4, that the Carry Law infringed on their right to bear arms. The Second Amendment reads, "A well regulated Militia, being necessary to the security of a free State, the right of the people to keep and bear Arms, shall not be infringed." U.S. Const. amend. II. The Supreme Court drastically changed the impact of the Second Amendment in the wake of two of its recent decisions: District of Columbia v. Heller
In Heller, the Court held for the first time that the Second Amendment "codified a pre-existing" individual right to keep and bear arms. 554 U.S. at 592, 128 S.Ct. at 2797. In so holding, the Court struck down a prohibition of the possession of operable handguns in one's home.
Plaintiffs frame their Second Amendment attack as both a facial and an as-applied challenge in a pre-enforcement review. We view the Second Amendment challenge as essentially raising only a facial challenge.
Heller commands that, in passing on a Second Amendment claim, courts must read the challenged statute in light of the historical background of the Second Amendment. See 554 U.S. at 592, 128 S.Ct. at 2797 ("We look to [the historical background of the Second Amendment] because it has always been widely understood that the Second Amendment, like the First and Fourth Amendments, codified a pre-existing right. The very text of the Second Amendment implicitly recognizes the pre-existence of the right and declares only that it `shall not be infringed.'" (emphasis omitted)). Because a place of worship is private property, not public property, it is particularly important that we understand the individual right to bear arms in light of the historical background of criminal law, tort law, and property law; for that body of law establishes the rights of private property owners. In subpart A, we describe this historical background. In subpart B, we identify the scope of any pre-existing right to bear arms on the private property of another.
We begin our review by describing the historical background of the Second Amendment.
In the Commentaries on the Laws of England, William Blackstone described a private property owner's right to exclusive control over his or her own property as a "sacred and inviolable right[]." 1 William
2 id. *2. Blackstone also discussed how a license holder who enters private property does not have the same rights as a property owner. See id. (emphasizing that the right of a property owner is in "total exclusion of the right of any other individual in the universe"). In other words, a guest is able to enter or stay on private property only with the owner's permission. A guest is removable at the owner's discretion.
Turning to common law tort principles, if a person enters upon the land of another without the owner's permission or if a person remains on the land against the owner's wishes, then the person becomes a trespasser. At common law, this status implicated the law of torts — allowing the owner to initiate a civil action against the trespasser. See 2 Frederick Pollock & Frederic William Maitland, The History of English Law 41 (Legal Classic Library special ed. 1982) (2d ed. 1899) (noting that one should look to "the law of crimes" and "the law of torts and civil injuries").
3 William Blackstone, Commentaries *209.
In addition, criminal law principles drawn from the common law reinforce the fundamental nature of a property owner's rights. In The History of English Law, Frederick Pollock and Frederic William Maitland note:
2 Pollock & Maitland, supra, at 41. Blackstone reiterates this position, describing trespass as an "offence against the public peace." 4 William Blackstone, Commentaries *147. The criminal offense of trespass, as set forth in several ancient statutes, included "any forcible entry, or forcible detainer after peaceable entry, into any lands." Id. Pollock and Maitland offer a similar view: "[T]here will be a trespass with force and arms if a man's body, goods or land have been unlawfully touched." 2 Pollock & Maitland, supra, at 526.
Thus, property law, tort law, and criminal law provide the canvas on which our Founding Fathers drafted the Second Amendment. A clear grasp of this background illustrates that the pre-existing right codified in the Second Amendment does not include protection for a right to carry a firearm in a place of worship against the owner's wishes. Quite simply, there is no constitutional infirmity when a private property owner exercises his, her, or its — in the case of a place of worship — right to control who may enter, and whether that invited guest can be armed, and the State vindicates that right. This situation, being a likely application of the Carry Law, illustrates that Plaintiffs cannot show that all or most applications of the Carry Law are unconstitutional. See United States v. Salerno, 481 U.S. 739, 107 S.Ct. 2095, 95 L.Ed.2d 697 (1987).
A place of worship's right, rooted in the common law, to forbid possession of firearms on its property is entirely consistent with the Second Amendment. Surely, given the Court's pronouncement that the Second Amendment merely "codified a pre-existing right," Plaintiffs cannot contend that the Second Amendment in any way abrogated the well established property law, tort law, and criminal law that embodies a private property owner's exclusive right to be king of his own castle. By codifying a pre-existing right, the Second Amendment did not expand, extend, or enlarge the individual right to bear arms at the expense of other fundamental rights; rather, the Second Amendment merely preserved the status quo of the right that existed at the time.
An individual's right to bear arms as enshrined in the Second Amendment, whatever its full scope, certainly must be limited by the equally fundamental right of a private property owner to exercise exclusive dominion and control over its land. The Founding Fathers placed the right to private property upon the highest of pedestals, standing side by side with the right to personal security that underscores the Second Amendment. As Blackstone observed,
1 William Blackstone, Commentaries *129.
Blackstone talks not of sacrificing one of the "principal or primary" rights for another, but rather of "preservation of these, inviolate." Id. (emphasis added). He concludes that all of the three fundamental rights of personal security, personal liberty, and private property can, and must, coexist together to fully protect civil liberties. Id. It is simply beyond rational dispute that the Founding Fathers, through the Constitution and the Bill of Rights, sought to protect the fundamental right of private property, not to eviscerate it. See John Adams, Defence of the Constitutions of Government of the United States (1787), reprinted in 6 John Adams, The Works of John Adams, 3, 9 (Charles Francis Adams ed., 1851) ("The moment the idea is admitted into society that property is not as sacred as the laws of God, and that there is not a force of law and public justice to protect it, anarchy and tyranny commence."); James Madison, Property (1792), reprinted in 6 The Writings of James Madison 101, 102 (Gaillard Hunt ed., 1906) ("Government is instituted to protect property of every sort; as well that which lies in the various rights of individuals, as that which the term particularly expresses. This being the end of government, that alone is a just government which impartially secures to every man whatever is his own." (emphasis in original)); Thomas Paine, Essay dated December 23, 1776, reprinted in Thomas Paine, The Crisis 8 (2009 ed.) (1776) ("[I]f a thief breaks into my house, burns and destroys my property, and kills or threatens to kill me, or those that are in it, and to `bind me in all cases whatsoever' to his absolute will, am I to suffer it? What signifies it to me, whether he who does it is a king or a common man; my countryman or not my countryman; whether it be done by an individual villain, or an army of them? If we reason to the root of things we shall find no difference; neither can any just cause be assigned why we should punish in the one case and pardon in the other.").
Plaintiffs, in essence, ask us to turn Heller on its head by interpreting the Second Amendment to destroy one cornerstone of liberty — the right to enjoy one's private property — in order to expand another — the right to bear arms. This we will not do. If, as Blackstone argues, our concept of civil liberties depends on a three-legged stool of rights — personal security, personal liberty, and private property — it would be unwise indeed to cut off one leg entirely only to slightly augment another. Rather, our task is to read the Second Amendment's pre-existing right
In sum, to the extent Plaintiffs' argument implies that the Second Amendment — in light of the Court's decisions in Heller and McDonald — somehow abrogates the right of a private property owner — here, a place of worship — to determine for itself whether to allow firearms on its premises and, if so, under what circumstances, the argument badly misses the mark. We conclude that the Second Amendment does not give an individual a right to carry a firearm on a place of worship's premises against the owner's wishes because such right did not pre-exist the Amendment's adoption. Enforcing the Carry Law against a license holder who carries a firearm on private property against the owner's instructions would therefore be constitutional. Plaintiffs' facial challenge fails because the Carry Law is capable of numerous constitutional applications. See Salerno, 481 U.S. at 745, 107 S.Ct. at 2100.
For the foregoing reasons, we AFFIRM the District Court's Rule 12(b)(6) dismissal of Counts 1 through 4 of the Amended Complaint.
SO ORDERED.
(emphasis added).
Pls. Resp. to Supplemental Br. Defs. State of Georgia and Gov. Sonny Perdue in Supp. of Defs. Mot. to Dismiss at 13-14; see also Pls. Br. Supp. Mot. Prelim. Inj. at 10 ("[I]t is true that Plaintiffs do not assert that their religious beliefs require them to carry guns to `places of worship'[.]").
Id. at 531, 113 S.Ct. at 2225-26 (internal references omitted) (internal quotations omitted).
By deconstructing this paragraph sentence by sentence, we see that the Supreme Court engaged in exactly the analysis that Plaintiffs claim is inapposite to a law subject to strict scrutiny. The Court first cites the overarching rule at issue — the First Amendment. Id. ("The Free Exercise Clause of the First Amendment, which has been applied to the States through the Fourteenth Amendment, provides that `Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof[.]'" (internal references omitted)). Next, the Court sets out that what is at issue is religious in nature, id. ("The city does not argue that Santeria is not a `religion' within the meaning of the First Amendment. Nor could it."), and that there is a religious belief, not merely a preference at stake, id. ("Although the practice of animal sacrifice may seem abhorrent to some, `religious beliefs need not be acceptable, logical, consistent, or comprehensible to others in order to merit First Amendment protection.'" (quoting Thomas, 450 U.S. at 714, 101 S.Ct. at 1430)). The Court then establishes that this religious belief is sincerely held. Id. ("Neither the city nor the courts below, moreover, have questioned the sincerity of petitioners' professed desire to conduct animal sacrifices for religious reasons."). Finally, the Court illustrates how the sincerely held religious belief at issue (animal sacrifice) is burdened by the governmental regulation (prohibiting animal sacrifice). Id. at 526-31, 113 S.Ct. at 2222-25 (explaining the Santeria religion and, in light of the conflict of these beliefs with the ordinances described by the court immediately preceding the introduction, turning to the merits of the First Amendment claim).
Like our sister circuits, we believe a two-step inquiry is appropriate: first, we ask if the restricted activity is protected by the Second Amendment in the first place; and then, if necessary, we would apply the appropriate level of scrutiny. See Heller v. District of Columbia, 670 F.3d 1244, 1252 (D.C.Cir. 2011) (adopting two-step inquiry); Ezell v. City of Chicago, 651 F.3d 684, 701-04 (7th Cir.2011) (noting that "the threshold inquiry in some Second Amendment cases will be a `scope' question: Is the restricted activity protected by the Second Amendment in the first place," and then moving to a second step, if necessary, applying the appropriate level of scrutiny); United States v. Chester, 628 F.3d 673, 680 (4th Cir.2010) (noting that "a two-part approach to Second Amendment claims seems appropriate under Heller," requiring first a determination that the law at issue imposes a burden on conduct falling within the scope of the Second Amendment, and then applying the requisite level of scrutiny); United States v. Reese, 627 F.3d 792, 800-01 (10th Cir.2010) (adopting a similar two-step analytical framework); United States v. Marzzarella, 614 F.3d 85, 89 (3d Cir.2010) (adopting a two-pronged approach where "[f]irst, we ask whether the challenged law imposes a burden on conduct falling within the scope of the Second Amendment's guarantee. If it does not, our inquiry is complete. If it does, we evaluate the law under some form of means-end scrutiny."). In this case, we need only reach the first step. In reaching this conclusion, we obviously need not, and do not, decide what level of scrutiny should be applied, nor do we decide whether a place of worship is a "sensitive place" under Heller, 554 U.S. at 626, 128 S.Ct. at 2817.
W. Page Keeton et al., Prosser and Keeton on Torts § 58, at 393 (5th ed. 1984).
O.C.G.A. § 16-7-21(b)(3).