Dunn v. Morse

Filing 19

MEMORANDUM AND ORDER granting 7 Motion for Judgment. Signed by U.S. District Senior Judge Sam A. Crow on 3/31/17. (msb)

IN THE UNITED STATES DISTRICT COURT
FOR THE DISTRICT OF KANSAS
AL DUNN,
Plaintiff
vs.

Case No. 16-4164-SAC

TIM MORSE, in His Individual
Capacity and in His Capacity
as Sheriff of Jackson County,
Defendant.
MEMORANDUM AND ORDER
This civil rights action alleges claims under the First Amendment
(speech and association) and Fourteenth Amendment (procedural due
process) based on the plaintiff Al Dunn’s termination in July of 2016 from his
position as detective with the Jackson County Sheriff’s Department. With
2016 being an election year for the defendant Sheriff Tim Morse, Dunn
alleges the defendant Morse violated Dunn’s constitutional rights in
terminating him for reasons related to the election. Morse moves for
judgment on the pleadings pursuant to Fed. R. Civ. P. 12(c). (Dk. 7). The
motion has been fully briefed and is ready for decision.
Standards Governing Motion
“A motion for judgment on the pleadings under Rule 12(c) is
treated as a motion to dismiss under Rule 12(b)(6),” Atlantic Richfield Co. v.
Farm Credit Bank of Wichita, 226 F.3d 1138, 1160 (10th Cir. 2000), and the

same standards govern motions under either rule, Ward v. Utah, 321 F.3d
1263, 1266 (10th Cir. 2003). On either motion, the court considers only the
contents of the complaint. Gee v. Pacheco, 627 F.3d 1178, 1186 (10th Cir.
2010). The court accepts as true “all well-pleaded factual allegations in a
complaint and view[s] these allegations in the light most favorable to the
plaintiff.” Smith v. United States, 561 F.3d 1090, 1098 (10th Cir. 2009),
cert. denied, 558 U.S. 1148 (2010). This duty to accept a complaint's
allegations as true is tempered by the principle that “mere labels and
conclusions, and a formulaic recitation of the elements of a cause of action
will not suffice; a plaintiff must offer specific factual allegations to support
each claim.” Kansas Penn Gaming, LLC v. Collins, 656 F.3d 1210, 1214
(10th Cir. 2011) (quoting in part Bell Atl. Corp. v. Twombly, 550 U.S. 544,
555 (2007) (internal quotation marks omitted)).
To withstand a Rule 12(b)(6) motion, “a complaint must contain
enough allegations of fact, taken as true, to state a claim to relief that is
plausible on its face.” Al–Owhali v. Holder, 687 F.3d 1236, 1239 (10th Cir.
2012) (quoting Ashcroft v. Iqbal, 556 U.S. 662, 678 (2009)). Thus, “a
plaintiff must offer sufficient factual allegations to ‘raise a right to relief
above the speculative level.’” Kansas Penn Gaming, 656 F.3d at 1214
(quoting Twombly, 550 U.S. at 555). “The plausibility standard is not akin to
a ‘probability requirement,’ but it asks for more than a sheer possibility that
a defendant has acted unlawfully.'” Iqbal, 556 U.S. at 678 (quoting
2

Twombly, 550 U.S. at 556). It follows then that if the “complaint pleads facts
that are ‘merely consistent with’ a defendant's liability it ‘stops short of the
line between possibility and plausibility of “entitlement to relief.”’” Id. “‘A
claim has facial plausibility when the [pleaded] factual content . . . allows
the court to draw the reasonable inference that the defendant is liable for
the misconduct alleged.’” Rosenfield v. HSBC Bank, USA, 681 F.3d 1172,
1178 (10th Cir. 2012).
“Thus, in ruling on a motion to dismiss, a court should disregard
all conclusory statements of law and consider whether the remaining specific
factual allegations, if assumed to be true, plausibly suggest the defendant is
liable.” Kansas Penn Gaming, 656 F.3d at 1214. The Tenth Circuit regards
the Twombly–Iqbal decisions as crafting a new “refined standard” whereby
“plausibility refers to ‘the scope of the allegations in a complaint: if they are
so general that they encompass a wide swath of conduct, much of it
innocent, then the plaintiffs “have not nudged their claims across the line
from conceivable to plausible.”’” Khalik v. United Air Lines, 671 F.3d 1188,
1191 (10th Cir. 2012) (quoting Robbins v. Oklahoma, 519 F.3d 1242, 1247
(10th Cir. 2008) (quoting in turn Twombly, 550 U.S. at 570). “[T]he degree
of specificity necessary to establish plausibility and fair notice, and therefore
the need to include sufficient factual allegations, depends on context . . . .”
Robbins v. Oklahoma, 519 F.3d 1242, 1248 (10th Cir. 2008) (citing Phillips
v. County of Allegheny, 515 F.3d 224, 231-32 (3d Cir. 2008)).
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Claims and Allegations
The plaintiff alleges his termination was unlawful being in
violation of his rights to freedom of speech and freedom of association under
the First Amendment and his right to procedural due process under the
Fourteenth Amendment. The following are the relevant factual allegations
gleaned from the plaintiff’s complaint.
Hired in 2000, promoted to Detective in 2004, and then
promoted to Chief Detective in 2007, Al Dunn worked for Jackson County
Sheriff’s Department. He worked under the defendant Sheriff Morse from
June 2011, until Morse terminated Dunn on July 12, 2016, on the stated
grounds of insubordination. In May of 2016, Dunn began investigating a
local young man on multiple allegations of sexual assaults with multiple
victims. Dunn carried out his investigatory duties, “by interviewing
witnesses, speaking with officials, and speaking with defendant Morse.” (Dk.
1, ¶ 11). Dunn alleges that because of this “speech related to the
investigations,” family members and friends of the young male suspect
began complaining to Morse and using the pending political campaign to
influence Morse to stop the investigation. Id. at ¶ 12. The complaint alleges
Morse yielded to this pressure from the suspect’s family and friends in that
he then “pressured plaintiff to back off of his investigation, stop his speech
related to the investigation, and to become associated with his political need
to appease family/friends of the suspect.” Id. at ¶ 13. According to the
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complaint, “[a]s a result of plaintiff’s speech related to the investigation, and
as a result of his failure to associate with Morse’s political needs, in spite of
official pressure by defendant Morse that he do so,” the plaintiff was
suspended on June 24, 2016, pending an investigation into alleged
insubordination, and then was terminated on July 12, 2016, for alleged
insubordination. Id. at ¶¶ 14 and 15.
The court notes other significant allegations in the complaint.
First, as to the First Amendment claims, “Plaintiff believes and expressly
alleges that his speech related to the investigation of . . . [the suspect] was
on matters of public concern, and thus protected.” (Dk. 1, ¶ 22). Second, as
to the due process claim, “Plaintiff believes and expressly alleges that he
was entitled to due process before being terminated from his position; and
that even though he was suspended allegedly pending an investigation, in
fact no investigation was done; he was informed of no investigation; he was
not asked to participate into any investigation; and he was thus terminated
without due process.” (Dk. 1, ¶ 27). Finally, the “Plaintiff believes and
expressly alleges that his right to speech; the fact that his speech was on
matters of public concern; his right to not associate with defendant Morse’s
political needs; and his right to due process before being terminated; were
all clearly established at the time of his suspension and termination.” Id. at ¶
28.

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Because the defendant asserts qualified immunity, the burden is
with the plaintiff to show he has alleged both that the defendant violated a
constitutional right and that this constitutional right was clearly established
in the law at the time of the violation. Bowling v. Rector, 584 F.3d 956, 964
(10th Cir. 2009). The qualified immunity inquiry is made “in light of the
specific context of the case, not as a broad general proposition.” Id. (internal
quotation marks and citations omitted). “[A] right is clearly established only
if there is a Supreme Court or Tenth Circuit decision on point, or the clearly
established weight of authority from other courts has found the law to be as
the plaintiff maintains.” Id. The following findings and conclusions
demonstrate the plaintiff has failed to carry his burden in both regards.
First Amendment—Freedom of Speech
Morse seeks judgment because Dunn’s alleged speech is not
constitutionally protected for the following argued reasons. Dunn was not
speaking as a citizen on a matter of public concern, but as a detective and
public employee in the performance of his official duties. The complaint
alleges speech only related to the investigation, as in interviewing witnesses,
speaking with officials, and speaking with Sheriff Morse. Dunn’s speech was
a part of his duties and responsibilities as a detective in the sheriff’s
department. Consequently, Dunn’s speech activities were simply a function
of his official job responsibilities.

6

In his brief, Dunn repeats his allegation that he was terminated,
“because he would not shirk his duty to investigate an alleged serial sex
offender, because the family of the alleged serial sex offender was making
political noise in the election year.” (Dk. 13, p. 6). Dunn stands on his
allegations that he engaged in protected activity by speaking with officials
and Morse on matters related to the investigation and these matters were of
public concern. Dunn argues his allegation of “speech related to the
investigation” is not the same as “speech of the investigation itself,” and he
maintains the former is constitutionally protected. Dunn asks for discovery
to “be conducted on the details of the events, from which the Court can then
determine as a matter of law whether the speech is protected.” (Dk. 13, p.
13). Dunn then presumes for the court’s consideration:
So, for instance, if discovery shows that when it was time to interview
a victim at one point, and at the last minute defendant directed a less
experienced detective to do the interview, telling plaintiff to stay
behind for a routine task with an applicant, when plaintiff told the
defendant the routine task was completed so he could still attend the
victim interview: the defendant became angry. Of if discovery shows
that on another occasion when defendant learned plaintiff was going to
conduct a search of the suspect’s mother’s property, he responded
with angry words to plaintiff about the impact of the search on the
suspect’s mother. Or when plaintiff spoke with the department’s Victim
Services Coordinator about how victims were being treated, defendant
criticized the Victim Services Coordinator for her and plaintiff speaking
about victim treatment, thus thwarting further speech between her
and plaintiff. And so forth. With an evidentiary record on such facts,
the Court can determine if plaintiff’s speech was official duty or beyond
his official duty and on issues of public concern, and thus protected
speech.

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(Dk. 13, pp. 13-14). None of these presumed scenarios are alleged in the
complaint. Relying on Lane v. Franks, ---U.S.---, 134 S.Ct. 2369 (2014),
Dunn argues his speech related to the investigation may be still protected if
it was not within the scope of his ordinary duties or not commissioned by his
employer. Dunn asks the court to consider his speech protected, because:
He was not paid to make the elected Sheriff refrain from interfering
with or thwarting investigations. He was not paid to take extraordinary
steps and engage in additional speech to try to protect victims and
public from a politically-motivated interference with an investigation.
The speech for which plaintiff claims protection here; the speech which
angered defendant and caused him to terminate plaintiff; the speech
that was of critical interest to the public and its interests; was the
speech that defendant characterized as refusing to “back off” on the
investigation. That is the protected public interest speech plaintiff has
alleged was the motivation for his termination. Discovery should be
permitted to flesh out the details of that speech; . . . . The efficient
running of the agency was imperiled by defendant’s actions, not
plaintiff’s speech. Plaintiff’s speech was designed to support the
efficient running of the agency.
(Dk. 13, pp. 15-16). In refusing or opposing the Sheriff’s orders for him,
Dunn says his speech is outside his job duties, because the Sheriff’s orders
were politically motivated.
The Tenth Circuit recently summarized the law governing a claim
like the plaintiff’s:
A public employer may not “discharge an employee on a basis
that infringes that employee's constitutionally protected interest in
freedom of speech.” Rankin [v. McPherson], 483 U.S. [378] at 383,
107 S.Ct. 2891 [(1987)]; see also Connick v. Myers, 461 U.S. 138,
142, 103 S.Ct. 1684, 75 L.Ed.2d 708 (1983). “Speech by citizens on
matters of public concern lies at the heart of the First Amendment,”
and “public employees do not renounce their citizenship when they
accept employment.” Lane v. Franks, ––– U.S. ––––, 134 S.Ct. 2369,
2377, 189 L.Ed.2d 312 (2014). Therefore, the Supreme Court “has
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cautioned time and again that public employers may not condition
employment on the relinquishment of constitutional rights.” Id.
Nevertheless, a public employer must be able to control the
operations of its workplace. Pickering v. Bd. of Educ., 391 U.S. 563,
568, 88 S.Ct. 1731, 20 L.Ed.2d 811 (1968); Lytle [v. City of
Haysville], 138 F.3d [857] at 863 [(10th Cir. 1998)]. “Government
employers, like private employers, need a significant degree of control
over their employees' words and actions; without it, there would be
little chance for the efficient provision of public services.” Garcetti v.
Ceballos, 547 U.S. 410, 418, 126 S.Ct. 1951, 164 L.Ed.2d 689 (2006).
Thus, “the First Amendment protection of a public employee's speech
depends on a careful balance ‘between the interests of the
[employee], as a citizen, in commenting upon matters of public
concern and the interest of the State, as an employer, in promoting
the efficiency of the public services it performs through its
employees.’” Lane, 134 S.Ct. at 2374 (quoting Pickering, 391 U.S. at
568, 88 S.Ct. 1731).
The familiar Garcetti/Pickering test governs our review of
Helget's First Amendment retaliation claims. The test consists of five
steps:
(1) whether the speech was made pursuant to an employee's
official duties; (2) whether the speech was on a matter of public
concern; (3) whether the government's interests, as employer,
in promoting the efficiency of the public service are sufficient to
outweigh the plaintiff's free speech interests; (4) whether the
protected speech was a motivating factor in the adverse
employment action; and (5) whether the defendant would have
reached the same employment decision in the absence of the
protected conduct.
Trant v. Oklahoma, 754 F.3d 1158, 1165 (10th Cir. 2014) (quoting
Dixon v. Kirkpatrick, 553 F.3d 1294, 1302 (10th Cir. 2009)). The first
three steps concern questions of law for the courts, and the last two
concern questions of fact. Id.
Helget v. City of Hays, Kansas, 844 F.3d 1216, 1221-22 (10th Cir. 2017).
The issue here is whether the plaintiff Dunn’s complaint contains enough
allegations of fact, taken as true, as to state a claim, plausible on its face, on
the first element of the Garcetti/Pickering test that is a question of law.

9

On the first element, the Tenth Circuit takes a practical case-by
case approach “looking both to the content of the speech, as well as the
employee’s chosen audience, to determine whether the speech is made
pursuant to an employee’s official duties.” Rohrbough v. University of
Colorado Hosp. Auth., 596 F.3d 741, 746 (10th Cir. 2010). As to the content
of the speech, the Tenth Circuit has focused the inquiry in this way:
Garcetti holds that “when public employees make statements pursuant
to their official duties, the employees are not speaking as citizens for
First Amendment purposes, and the Constitution does not insulate
their communications from employer discipline.” 547 U.S. at 421. The
official-duties question is a practical one that turns on “whether the
speech was commissioned by the employer,” Thomas v. City of
Blanchard, 548 F.3d 1317, 1323 (10th Cir. 2008) (internal quotation
marks omitted), and “reasonably contributes to or facilitates the
employee's performance of the official duty,” id. at 1324 (internal
quotation marks omitted); see Green v. Bd. of Cnty. Comm'rs, 472
F.3d 794, 801 (10th Cir. 2007) (speech activities not protected
because they “stemmed from and were the type of activities that [the
employee] was paid to do”).
Seifert v. Unified Govt. of Wyandotte County/Kansas City, 779 F.3d 1141,
1151 (10th Cir. 2015). If the employee speaks pursuant to his official duties,
then there is no constitutional protection because the restriction on speech
“’simply reflects the exercise of employer control over what the employer
itself has commissioned or created.’” Brammer-Hoelter v. Twin Peaks
Charter Academy, 492 F.3d 1192, 1202–03 (10th Cir. 2007) (quoting
Garcetti, 547 U.S. at 422). “[S]peech pursuant to the employee’s duty to
report a particular activity is usually within that employee’s official duties
under Garcetti/Pickering.” Rohrbough, 596 F.3d at 747 (citation omitted). As
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to the chosen audience, the courts look at where the speech occurred and
whether it was addressed within a chain of command. Id. Thus, “speech
directed at an individual or entity within an employee’s chain of command is
often found to be pursuant to that employee’s official duties.” Id. To be
protected, Dunn’s alleged speech must not be part of what he was employed
to do, must not be done pursuant to his official duties, and must not be the
type of expected activity which he was being paid to do.
Dunn’s complaint alleges only these details about his official
duties. He is the Chief Detective to the Sheriff’s department which was
managed by the defendant Morse. His duties included investigating
allegations by victims, “interviewing witnesses, speaking with officials, and
speaking with defendant Morse.” (Dk. 1, ¶ 11). The complaint expressly
alleges that Dunn’s “speech was on matters of public concern,” but it is
silent on whether his speech was not made pursuant to or part of his official
duties. The complaint, however, offers no more than a conclusory allegation
on the content being a matter of public concern. Indeed, the specifics of
what the plaintiff alleges as speech are omitted from the complaint. The
governing standards direct that the court should disregard these conclusory
statements of law and consider whether the remaining specific factual
allegations, if assumed to be true, plausibly suggest the defendant is liable.
As suggested in his opposing response (Dk. 13), the gist of the plaintiff’s
allegedly protected speech is all that he said and did with Morse to oppose
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his directions, orders, and conversations made in an effort to thwart the
investigation. The specific content of this speech is nowhere alleged in the
complaint and, therefore, does not plausibly suggest liability.
What is alleged as to the general content of Dunn’s alleged
speech and as to the particular audience of it exclusively points to the
speech being part of Dunn’s official duties as the Chief Investigator. There
are no specific facts alleged to support a different conclusion. Thus, the
plaintiff’s general allegation that his speech is protected is not the type of
well-pleaded allegation that must be accepted as true when ruling on a
motion for judgment on the pleadings. By itself, the plaintiff's failure to
allege the scope of his job duties and how his speech was outside his official
duties are serious pleading deficiencies. Even without knowing all of the
plaintiff's job duties, it is apparent that the allegedly protected speech to
Morse, “characterized as refusing to ‘back off’ on the investigation,” all
occurred within the chain of command and was made in opposition to
instructions and orders from his sheriff who was supervising and monitoring
the plaintiff’s performance of his official duties. (Dk. 13, p. 15). The
plaintiff's opposition, even if on a matter of public concern, directly related to
the performance of his official duties, both in content and audience, and it
does not constitute protected speech under Garcetti. Rohrbough, 596 F.3d at
747; see Cory v. City of Basehor, 631 Fed. Appx. 526 (10th Cir. 2015)
(Police officer’s complaints about the department’s safety policies and
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practices and reports of violations of the same “did not merely ‘concern’ his
duties, but were made ‘within the scope’ of his duties as a police officer”);
Myers v. County of Somerset, 293 Fed. Appx. 915, 917–18 (3d Cir. 2008)
(unpublished) (Detective sergeant’s comments protesting the validity of an
investigation and asserting the police chiefs’ hypocrisy in supporting a
prosecutors’ efforts for renomination were not protected as all were made
within the chain-of-command or to the co-lead investigator and, therefore,
were spoken pursuant to the detective’s employment duties). By all
indications, Dunn intended his speech to reasonably contribute to or
facilitate his performance of official duties. Brammer-Hoelter, 492 F.3d at
1203. Put another way, Dunn’s speech was related to alleged “wrongdoing
directly impacting . . . [his] ability to carry out . . . [his] official duties.”
Joyce v. North Metro Task Force, 2011 WL 2669162 at * (D. Colo. Jul. 7,
2011) (Detectives’ speech was made for the purpose of furthering the
agency’s work); see Cheek v. City of Edwardsville, Kan., 514 F. Supp. 2d
1220, 1231 (D. Kan. 2007) (Police Majors’ speech to Attorney General office
about Police Chief’s misconduct “reasonably contributed to and facilitated
their performance of their duties to investigate criminal conduct and conduct
IA investigations.”), aff’d, 324 Fed. Appx. 699 (10th Cir. 2008), cert. denied,
558 U.S. 816 (2009). “Restricting speech that owes its existence to a public
employee's professional responsibilities does not infringe any liberties the
employee might have enjoyed as a private citizen. It simply reflects the
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exercise of employer control over what the employer itself has
commissioned or created.” Garcetti, 547 U.S. at 421–22. The court finds
that the defendant is entitled to judgment on this freedom of speech claim
as the plaintiff was speaking as part of his official duties and not as a citizen
speaking on matters of public concern.
First Amendment—Freedom of Association
The defendant argues the plaintiff in this claim simply
repackages the unsuccessful freedom of speech claim. The plaintiff’s only
substantive allegations on this association claim are:
13. As a result of the pressure from family/friends, defendant Morse
pressured plaintiff to back off of his investigation, stop his speech
related to the investigation, and to become associated with his political
need to appease family/friends of the suspect . . . .
....
19. Plaintiff believes and expressly alleges that his failure to affiliate
with defendant Morse’s political needs was the substantial or
motivating factor behind his suspension and termination.
....
21. Plaintiff believes and expressly alleges, given the nature of his
duties and the management style of defendant Morse that his lack of
support of defendant Morse’s political campaign was not a valid
grounds for his suspension or termination, and that his position did not
demand political loyalty. Plaintiff’s political affiliation with defendant
Morse, and specifically his political campaign strategy of
accommodating the complaints and pressures of family/friends of . . .
[the suspect], was not necessary for the effective performance of
plaintiff’s duties.
(Dk. 1, pp. 3-4). The defendant argues the complaint fails to allege
protected conduct, but only seeks to transform an everyday employment
dispute into an untenable constitutional claim.

14

In responding, the plaintiff argues the above allegations are
enough in that he refused to associate or affiliate himself with Morse’s
political needs and was terminated for doing so. The plaintiff interprets
Morse’s supervision of him regarding the investigation to be the same as
“becom[ing] associated with the political need to appease family/friends of
the suspect.” (Dk. 1, ¶ 13). In his response, the plaintiff more clearly reveals
his position, “Demanding that plaintiff support his campaign by a different
means—not rigorously conducting an investigation; or not pressing
defendant to stop thwarting the investigation and questioning his reaction to
political pressure—also violated plaintiff’s rights.” (Dk. 13, p. 9). In short,
the plaintiff is alleging his “political allegiance” was implicated in the way he
handled or supported an investigation being conducted in the exercise of his
official duties as an investigator and in the way he responded to his
supervisor’s orders regarding the same investigation.
“Although the Garcetti/Pickering analysis applies to an
association based retaliation claim, a plaintiff need only satisfy the first,
fourth, and fifth prongs of the test.” Denton v. Yancey, 661 Fed. Appx. 933,
938 (10th Cir. Oct. 3, 2016) (citing See Shrum v. City of Coweta, 449 F.3d
1132, 1138-39 (10th Cir. 2006)(“holding that a court should not require a
showing of ‘public concern’ or engage in judicial balancing of the employer’s
interest against the employee’s interest when the public employee alleges
retaliation for participation in a union with which his employer has signed a
15

collective bargaining agreement”). As Morse argues, the finding of no
protected speech on the first prong applies with equal force here, as the
plaintiff has not alleged any protected activity in what he characterizes as a
refusal to associate or affiliate. In all respects, Dunn has only alleged that he
refused to conduct his official investigator duties in the manner requested by
his supervising Sheriff. The court agrees with the defendant’s position and
grants his motion for judgment on the pleadings here. The plaintiff’s
allegations show only that his refusal to support or associate with the
defendant were exclusively actions taken as part of his official duties and
were not the actions of a citizen acting on matters of public concern. The
plaintiff has not alleged a plausible claim for relief.
14th Amendment—Procedural Due Process
Morse seeks judgment on the pleadings as the plaintiff’s
complaint fails to allege a protected property interest to which due process
would apply. There is nothing offered that recognizes or that creates a
cognizable interest. Morse points to a sheriff’s statutory authority to hire and
dismiss all who serve at the sheriff’s pleasure which makes Dunn an “at-will
employee” and precludes his due process claim. “Kansas courts have been
quite clear that at-will employees lack a property interest in their position.”
Robert v. Bd. of County Com’rs, Brown Cty., Kans., 691 F.3d 1211, 1220
(10th Cir. 2012). Moreover, in Kansas, “public employment is presumptively
at-will,” and “[t]o override this presumption, a written contract must
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expressly fix the duration of employment or otherwise limit the employer’s
ability to discharge.” Id. (citations omitted).
Dunn alleges a protected due process right arising from his
suspension pending an “investigation.” He contends this gave him a right to
an investigation which was violated when he was later terminated without
one. Dunn asks for discovery on this issue. He further asserts that he has
handled personnel matters while working at the sheriff’s department and
that investigations, as a practice, have included interviewing the accused
employee. Dunn specifically alleges his due process claim arises from not
being interviewed before his termination.
The Due Process Clause of the Fourteenth Amendment requires
“some kind of a hearing prior to the discharge of an employee who has a
constitutionally protected property interest in his employment.” Cleveland
Bd. of Educ. v. Loudermill, 470 U.S. 532, 542 (1985) (internal quotation
marks and citations omitted). The plaintiff’s constitutional claim depends on
him “having a property right in continued employment.” Id. at 538. The
plaintiff Dunn has not carried his burden of alleging anything in state law
that gives rise to an arguable property interest in his continued employment.
He has not rebutted the Kansas presumption of at-will employment with any
viable or plausible allegations. He has not alleged an “entitlement to a
substantive right or benefit” supported by “rules or mutually explicit
understandings” and “not simply a unilateral expectation.” Robbins v. U.S.
17

Bureau of Land Management, 438 F.3d 1074, 1085 (10th Cir. 2006)
(internal quotation marks and citations omitted). Finally, the plaintiff’s
arguments go no further than to claim some expectation in a procedure or
process rather than in a protectable property interest. The law is clear in
that regards:
This court has explained “it is well established that an entitlement to
nothing but procedure cannot be the basis for a property interest.”
Robbins, 438 F.3d at 1085 (quotation omitted). This is because
“[p]rocess is not an end in itself,” but instead serves only “to protect a
substantive interest to which the individual has a legitimate claim of
entitlement.” Olim v. Wakinekona, 461 U.S. 238, 250, 103 S.Ct. 1741,
75 L.Ed.2d 813 (1983). Although detailed and extensive procedural
requirements may be relevant as to whether a separate substantive
property interest exists, see Hennigh [v. City of Shawnee], 155 F.3d
[1249]at 1254 [(10th Cir. 1998)], the procedures cannot themselves
constitute the property interest. Here, Plaintiffs' claimed entitlement to
be considered for promotion in accordance with the state system of
merit is no more than a claim of entitlement to a fair process. Even
assuming state law grants every state employee the right to be fairly
considered for promotion, this right is not itself a substantive right, but
rather a vehicle for arriving at the ultimate promotion decision. Where
state law is not sufficiently restrictive to create a property interest in
the underlying decision, there can be no property interest in the
procedure used to make that decision.
Teigen v. Renfrow, 511 F.3d 1072, 1081 (10th Cir. 2007) (footnote
omitted). The plaintiff Dunn has not alleged any state law involved in his
expectation of interest. Moreover, what he has alleged is no more than a
unilateral expectation in a process or procedure used during an investigation
following his suspension. The plaintiff has not alleged anything in state law
or in recognized policies that so restrict these “investigation” processes as to

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arguably give rise to a property interest in the underlying decision to
terminate. The defendant is entitled to judgment on the pleadings.
Official Capacity Action
The plaintiff’s complaint names Morse as a defendant in both his
individual and official capacity. Finding no viable constitutional claims to
have been alleged, the court grants the defendant’s motion seeking
judgment for both capacities. Additionally, Morse argues for Eleventh
Amendment immunity on the official capacity claims, and the plaintiff does
not respond to his argument. The court grants the same as uncontested.
IT IS THEREFORE ORDERED that the defendant Morse’s motion
for judgment on the pleadings pursuant to Fed. R. Civ. P. 12(c) (Dk. 7) is
granted.
Dated this 31st day of March, 2017, Topeka, Kansas.

s/Sam A. Crow
Sam A. Crow, U.S. District Senior Judge

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