PREGERSON, Circuit Judge:
BACKGROUND
In March 1980, Gerry Fleisher became an Explorer Scout with the Police Department ("the Department") of the City of Signal Hill ("the City"). The Explorer program, sponsored by the Boy Scouts of America, is designed to prepare youngsters for careers in law enforcement. Signal Hill Explorers normally do sixteen hours of volunteer work for the Department per week.
While Fleisher was an Explorer, he met Margaret...
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