In the wake of the September 11, 2001 terrorist attacks, the FBI dedicated more than 4,000 special agents and 3,000 support personnel to an investigation that by September 18 had received more than 96,000 tips or potential leads from the public. In the ensuing months the FBI questioned more than 1,000 people with suspected links to the attacks or to terrorism in general. Of those individuals, 762 were held on immigration charges, and a 184-member subset of that group was deemed to be of high interest to the investigation and held under restrictive conditions designed to prevent communication with the general prison population or the outside world.
Javaid Iqbal, a citizen of Pakistan and a Muslim, was arrested in November 2001 by agents of the FBI and Immigration and Naturalization Service on charges of fraud in relation to identification documents and conspiracy to defraud the United States. Pending trial, he was housed at the Metropolitan Detention Center in Brooklyn, New York. In January 2002 he was designated a person of high interest and placed in the Administrative Maximum Special Housing Unit, where detainees were kept in lock-down 23 hours a day and spent the remaining hour outside their cells in handcuffs and leg irons accompanied by a four-officer escort.
Iqbal pleaded guilty to the criminal charges, served a term of imprisonment, and was removed to Pakistan. He then filed a Bivens action in the United States District Court for the Eastern District of New York against 34 current and former federal officials, including former Attorney General John Ashcroft and FBI Director Robert Mueller, as well as 19 John Doe corrections officers. The complaint concentrated on his treatment while confined to the ADMAX SHU and alleged that petitioners designated him a person of high interest on account of his race, religion, or national origin.
The complaint alleged that the FBI under Mueller’s direction arrested and detained thousands of Arab Muslim men as part of the September 11 investigation, that the policy of holding post-September-11 detainees in highly restrictive conditions until cleared by the FBI was approved by Ashcroft and Mueller in discussions in the weeks after September 11, and that petitioners each knew of, condoned, and willfully agreed to subject Iqbal to harsh conditions solely on account of his religion, race, and national origin. It named Ashcroft as the principal architect of the policy and identified Mueller as instrumental in its adoption, promulgation, and implementation.
Petitioners moved to dismiss the complaint for failure to state sufficient allegations showing their own involvement in clearly established unconstitutional conduct. The District Court denied the motion. Petitioners brought an interlocutory appeal, and while the appeal was pending the Supreme Court decided Bell Atlantic Corp. v. Twombly. The Court of Appeals for the Second Circuit affirmed the District Court’s decision. The Supreme Court granted certiorari.
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