UNITED STATES COURT OF APPEALS
FOR THE FIFTH CIRCUIT
______________________
No. 95-50188
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LILLIAN FREEMAN,
Plaintiff-Appellant,
versus
COUNTY OF BEXAR, ET AL.,
Defendants,
JOHN JENNINGS, Individually and in his official capacity;
GEORGE SAIDLER, Individually and in his official capacity;
Defendants-Appellees.
************************************
LILLIAN FREEMAN,
Plaintiff-Appellant,
versus
CITY OF SAN ANTONIO, ET AL.,
Defendants,
JOHN JENNINGS, Individually and in his official capacity;
GEORGE SAIDLER, Individually and in his official capacity;
Defendants-Appellees.
_________________________________________________________________
Appeal from the United States District Court
for the Western District of Texas
_________________________________________________________________
May 29, 1998
Before JONES, SMITH, and STEWART, Circuit Judges.
EDITH H. JONES, Circuit Judge:
Appellant Lillian Freeman appeals the district court’s
grant of summary judgment in favor of the appellees in her 42
U.S.C. § 1983 civil action. For the foregoing reasons, we reverse
and remand to the district court.
FACTUAL BACKGROUND
Appellant Freeman was arrested twice by the San Antonio
Police Department for armed robberies which occurred June 4, 1991
and July 10, 1991 at two different San Antonio Credit Union
(“SACU”) branches. The police first arrested Freeman in July, 1991
after receiving an anonymous tip from one of her co-workers who
claimed that the photo displayed on a local “Crime Stoppers”
program resembled Freeman. Appellees Detective George Saidler and
Officer John Jennings investigated the robberies on behalf of the
San Antonio Police Department. Because both SACUs were national
banks, agents from the Federal Bureau of Investigation were also
investigating the crimes.
The FBI investigation revealed that Freeman was not
involved in the robberies. In fact, two of the bank tellers who
were robbed on June 4 could not identify Freeman in a photo array
conducted by the FBI. However, in spite of having knowledge of
this information from the FBI, Saidler and Jennings continued to
investigate Freeman. Saidler obtained what he asserts was an
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identification of Freeman from an eyewitness to the first robbery
who had earlier been unable to identify her for the FBI. In his
deposition for this case, however, Saidler admitted that witness
Joy King did not make a positive identification. Detective Saidler
also conducted a photo array before a group of people at Freeman’s
former place of employment. When comparing the bank surveillance
camera photo with a photo of Freeman in her personnel file,
employees expressed doubt as to whether the bank’s photo was
Freeman. Nevertheless, Detective Saidler wrote statements for the
witnesses to sign indicating that they positively identified
Freeman as the robber. None of the co-employees corrected or
attempted to correct the statements before signing them.
Officer Jennings met with two tellers from the second
SACU that had been robbed and showed them a surveillance photo
taken in the first robbery. Jennings informed the witnesses that
the person in the surveillance photo was Lillian Freeman. One of
the witnesses identified the person in the surveillance photo as
the person who had robbed her. Jennings took this to be a positive
identification of Freeman.
Jennings and Saidler arrested Freeman a second time on
October 10, 1991 in spite of FBI warnings that there was
insufficient probable cause to arrest her for the two robberies.
Subsequent to her arrest, a third robbery occurred in late
November. Another woman, Carolyn Yvonne Butler, was federally
3
indicted for all three robberies and was convicted for the crimes
in April, 1992.
In spite of Butler’s arrest and conviction, Freeman was
prosecuted in the state system until several weeks after Butler’s
conviction. Eventually, the Bexar County District Attorney filed
a motion to dismiss charges against Freeman due to insufficient
evidence.
Freeman filed suit in state court against Bexar County,
the City of San Antonio, and a host of municipal employees in their
individual and official capacities. The gist of Freeman’s many
claims was that she had been arrested without probable cause on two
occasions for the two robberies. Freeman also alleged that the
defendants had acted maliciously, willfully, and with specific
intent to deprive her of her federal constitutional and state law
rights. The case was removed to federal court, and pretrial
proceedings were assigned to a magistrate judge.
In an exhaustive memorandum, the magistrate judge
recommended that the defendants’ several motions for judgment as a
matter of law be granted. These included motions for judgment as
a matter of law from Saidler and Jennings predicated on qualified
immunity. In making her ruling, the magistrate judge held
inadmissible the affidavit of Freeman’s expert, Ray Hildebrand, a
former San Antonio police officer, because it consisted almost
entirely of legal conclusions unsupported by any facts and did not
state which policies and procedures the officers violated.
4
Freeman, in response, submitted motions to compel
discovery and for submission of additional evidence and timely
objected to the magistrate judge’s recommendation. She also filed
a supplemental affidavit of her expert Hildebrand. The defendants
opposed these efforts.
On February 16, 1995, the district court filed a
memorandum opinion accepting the magistrate judge’s recommendation.
With respect to the supplemental affidavit of Hildebrand, the
district court stated:
Plaintiff attempts to support much of the rest of
her objections with a supplemental affidavit of her
expert, Ray Hildebrand. The Magistrate Judge concluded
that his affidavit was not proper summary judgment proof
because it consisted almost exclusively of legal
conclusions unsupported by any facts. Mr. Hildebrand has
fleshed out his supplemental affidavit considerably,
analyzing each step in the investigative process taken by
each officer and concluding how, in his opinion, that
conduct violated City policies or fell short of proper
investigative techniques. None of this, however, was
presented to the Magistrate Judge. Although 28 U.S.C. §
631 [sic] provides for de novo review by the district
court if timely objections are filed, it does not allow
the parties to raise at the district court stage new
evidence, argument, and issues that were not presented to
the Magistrate Judge, absent compelling reasons. Cupit
v. Whitley, 28 F.3d 532, 535 n.5 (5th Cir. 1994). The
affidavit will not be considered.
Freeman timely filed her notice of appeal. Pursuant to
a motion by Freeman, the appeal was dismissed as to all parties
except Jennings and Saidler.
5
DISCUSSION
We review a district court’s grant of judgment as a
matter of law de novo. See Topalian v. Ehrman, 954 F.2d 1125, 1131
(5th Cir.), cert. denied, 506 U.S. 825 (1992). Judgment as a
matter of law is appropriate “if the pleadings, depositions,
answers to interrogatories, and admissions on file, together with
the affidavits, if any, show that there is no genuine issue as to
any material fact and that the moving party is entitled to judgment
as a matter of law.” Celotex Corp. v. Catrett, 477 U.S. 317, 322
(1986).
Freeman asserts that, in refusing to consider the
supplemental affidavit of her expert, Hildebrand, the district
court deprived her of a ruling by an Article III judge on her case
and, alternatively, abused his discretion. We do not reach the
constitutional question as it is posed in this case because the
district court mistook his authority to consider additional
evidence. Freeman correctly cites 28 U.S.C. § 636(b)(1) to support
her argument that the district court chould have accepted the
supplemental affidavit:
A judge of the court shall make a de novo determination
of those portions of the report or specified proposed
findings or recommendations to which objection is made.
A judge of the court may accept, reject, or modify, in
whole or in part, the findings or recommendations made by
the magistrate. The judge may also receive further
evidence or recommit the matter to the magistrate with
instructions.
28 U.S.C. § 636(b)(1).
6
Two portions of the statute are relevant here. First,
the district court makes a de novo determination upon those aspects
of the magistrate judge’s report to which objection has been made.
Second, the court “may receive further evidence or recommit the
matter to the magistrate with instructions.” These phrases are
carefully drafted to maximize the district court’s authority to
review and reconsider the magistrate judge’s decision on an
objected-to finding or recommendation. See generally 12 CHARLES ALAN
WRIGHT & ARTHUR R. MILLER, FEDERAL PRACTICE AND PROCEDURE § 3076.8 (Supp.
1997).
FED. R. CIV. P. 72(b) implements and reflects the breadth
of statutory discretion by providing:
(b) Dispositive Motions and Prisoner Petitions.
* * *
The district judge to whom the case is assigned shall
make a de novo determination upon the record, or after
additional evidence, of any portion of the magistrate
judge’s disposition to which specific written objection
has been made in accordance with this rule. The district
judge may accept, reject, or modify the recommended
decision, receive further evidence, or recommit the
matter to the magistrate judge with instructions.
Circuit courts differ on whether de novo review
presupposes that, for purposes of judicial economy and efficiency,
the record compiled before the magistrate judge is ordinarily
conclusive; or whether de novo review entails consideration of an
issue as if it had not been previously decided.”1 In the latter
1
Compare Paterson-Leitch v. Mass. Mut. Wholesale Elec. Co.,
840 F.2d 985, 990-91 (1st Cir. 1988) (objector to magistrate
7
case, the Fourth Circuit permits parties who object to a magistrate
judge’s report to raise any new evidence or arguments they can
muster before the district court.2 In these lines of authority
clash the goals of maintaining procedural predictability and
preserving Article III authority. There is no doubt that district
courts may, both constitutionally and by statute, assign magistrate
judges to work on dispositive motions in a case, but the Article
III judge must retain final decisionmaking authority. See United
States v. Raddatz, 447 U.S. 667, 681-82 (1980); United States v.
Dees, 125 F.3d 261, 268-69 (5th Cir. 1997), cert. denied, ____ U.S.
____, 118 S. Ct. 1174 (1998).
This court, contrary to the district court’s view, has
issued only a limited ruling on the meaning of de novo review. In
Cupit v. Whitley, it was held that a party who objects to the
magistrate judge’s report waives legal arguments not made in the
first instance before the magistrate judge. See Cupit v. Whitley,
28 F.3d 532, 535 (5th Cir. 1994), cert. denied, 513 U.S. 1163
(1995). Cupit was a § 2254 habeas case arising from a murder
conviction. This court’s waiver holding prevented the state from
raising in the district court the legal defenses of procedural
judge’s report is not “entitled as of right to de novo review by
the judge of an argument [third-party beneficiary] never seasonably
raised before the magistrate”) with United States v. George, 971
F.2d 1113, 1118 (4th Cir. 1992) (“the party entitled to de novo
review must be permitted to raise before the [district] court any
argument as to that issue that it could have raised before the
magistrate”).
2
See George, 971 F.2d at 1118.
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default and failure to exhaust that it did not urge before the
magistrate judge.
Cupit did not deal with the situation presented here: an
attempt to amplify and add factual substance to the expert opinion
affidavit ruled inadmissibly conclusory by the magistrate judge.
Indeed, in a footnote supporting the waiver holding, Cupit cites
one case concerning rules of appellate waiver3 and one case in
which a court prevented an entirely new claim for recovery from
being raised for the first time in objection to the magistrate
judge’s report.4 A third supporting citation notes a district
court’s general holding that despite the court’s de novo review
power, the Magistrate Judges Act “does not allow the parties to
raise at the district court stage new evidence, argument, and
issues that were not presented to the Magistrate Judge -- ‘absent
compelling reasons.’”5
This last citation cannot mean much in the context of
Cupit or as precedent for this circuit. First, if Cupit intended
to establish a “compelling reasons” test for any purpose, normally
the court would have done so in the text of the opinion rather than
in an obscure footnote reference. Second, Cupit never mentions or
applies that test to the state’s newly raised defenses. That is,
3
See Cupit, 28 F.3d at 535 n.5 (citing Long v. McCotter, 792
F.2d 1338 (5th Cir. 1986)).
4
See id. (citing Paterson-Leitch, 840 F.2d at 990-91).
5
Id. (citing Anna Ready Mix, Inc. v. N.E. Pierson Constr. Co.,
Inc., 747 F.Supp. 1299, 1302-03 (S.D. Ill. 1990)).
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if the court believed compelling reasons could or could not be
given for the state’s delay in raising the defenses of exhaustion
and procedural bar, the court would have said so. Third, because
Cupit treats only legal issues, not evidentiary issues, its waiver
holding -- irrespective of any “compelling reasons” gloss -- cannot
apply beyond its narrow compass. Fourth, if Cupit attempted sub
silentio to imply that waiver doctrines also apply to challenges to
a magistrate judge’s evidentiary findings or sufficiency of
evidence findings, Cupit would conflict with the express authority
conferred on the district court by statute and rule to “receive
further evidence.” 28 U.S.C. § 636(b)(1); FED. R. CIV. P. 72(b).
Cupit holds only that waiver may bar a party from raising new legal
objections to the district court.
Shorn of its mistaken reliance on Cupit, the district
court’s decision to disregard Hildebrand’s supplemental affidavit
is insupportable. At least, the statute’s authority for the court
“to receive further evidence” in the course of de novo review of a
magistrate judge’s decision requires that discretion must be
exercised. The court exercised no such discretion here. We must
therefore describe the test for such exercise of discretion by the
district court confronted with an objection to magistrate judge
evidentiary findings and an offer of new or amplified evidence.
It is unnecessary to go as far as the Fourth Circuit in
George and demand that de novo review treats an objected-to
magistrate judge finding or recommendation as if it had never been
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issued. This view appears inconsistent with § 636(b)(1) insofar as
it transforms a permissive authority to receive new evidence into
an arguable mandate. Raddatz indeed emphasizes -- as this court
has done6 -- the district court’s obligation to review de novo the
actual evidence on objected-to findings, but the district court
should not be compelled to ignore that the parties had a full and
fair opportunity to present their best evidence to the magistrate
judge.
While we do not fully agree with the George approach, it
is clear that the district court has wide discretion to consider
and reconsider the magistrate judge’s recommendation. In the
course of performing its open-ended review, the district court need
not reject newly-proffered evidence simply because it was not
presented to the magistrate judge. Litigants may not, however, use
the magistrate judge as a mere sounding-board for the sufficiency
of the evidence.
The best description of the district court’s discretion
is that it should be at least as broad as that conferred on the
district court to determine motions for reconsideration of its own
rulings. Our court carefully explained the scope of such
discretion in Lavespere v. Niagara Mach. & Tool Works, Inc., 910
F.2d 167 (5th Cir. 1990). Lavespere enunciated the considerations
applicable to motions to alter or amend a judgment under FED. R.
6
See, e.g., Calderon v. Waco Lighthouse for the Blind, 630
F.2d 352, 355-56 (5th Cir. 1980); United States v. Marshall, 609
F.2d 152, 155 (5th Cir. 1980).
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CIV. P. 59(e), i.e., those served within ten days of the rendition
of judgment:7
That discretion, of course, is not limitless. In any
case in which a party seeks to upset a summary judgment
on the basis of evidence she failed to introduce on time,
two important judicial imperatives clash: the need to
bring litigation to an end and the need to render just
decisions on the basis of all the facts. The task of the
district court in such a case is to strike the proper
balance between these competing interests. In order to
do this, the court should consider, among other things,
the reasons for the moving party’s default, the
importance of the omitted evidence to the moving party’s
case, whether the evidence was available to the non-
movant before she responded to the summary judgment
motion, and the likelihood that the nonmoving party will
suffer unfair prejudice if the case is reopened.
Id. at 174 (citations omitted).
The fit between Rule 59(e) motions and de novo review of
objections to magistrate judge recommendations is not perfect
because somewhat different considerations attach to a court’s
review of its own work and its review of the work of its adjunct.
But the general nature of the inquiry is the same, and this court’s
review of the exercise of that discretion, when it is exercised,
must be generous.
Because the district court here mistakenly concluded that
he had no discretion to consider additional evidence, we must
7
Lavespere articulated different standards, founded on FED. R.
CIV. P. 60(b), if the “motion to reconsider” is served more than 10
days after the order complained of. Rule 59(e) furnishes a better
model here, given the court’s broad authority with respect to
magistrate judge decisions. (As an irrelevant aside, we note that
after Lavespere was issued, rule 59(e) was amended to measure the
10-day filing period according to the motion’s filing date rather
its date of service.)
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reverse and remand for his reconsideration in light of this
opinion. We note that although Hildebrand’s supplemental affidavit
paints a detailed picture of alleged violations of San Antonio
police department investigative policies, willful ignorance of
contrary FBI conclusions, and an investigation arguably slanted to
incriminate Ms. Freeman, the underlying facts contained in the
affidavit were not unknown to Saidler and Jennings. It seems
unlikely they could claim prejudice from Freeman’s attempt to
resurrect this expert testimony after it had been declared too
conclusory. The supplemental affidavit also appears crucial to
Freeman’s case against the officers. On the other hand, Freeman
stated no reason why the first Hildebrand affidavit lacked
supporting details. All of this said, we do not prognosticate the
district court’s ultimate decision.
For the foregoing reasons, the judgment of the district
court is REVERSED and the case REMANDED for further proceedings.
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