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R E N D E L L , C i r cui tJ udge. G ar den St at e El ectr i cal I ns pect i on Ser vi ces , I nc. ( “G ar den St at e”) appea l s the Di s tr i c tCo u r t ’ s o r d e rg r a n t i n g th e d e f e n d a n t s ’ mo t i o n t o d i s mi s s p u r s u a n tt o F e d . R. C iv. P. 12 (b)(6 ). T h e D istri ct C o u rtd eterm ined that G ard en S tat e’s d am ag es c lai m s w ere barr ed bythe El eventh A m endmentand thatG ar den St at e coul d nots t at e a c l ai m for reli ef u n d er the E q u al P rotec ti o n C laus e o f th e F o u rt ee n th A m en d m en t. W e w il l aff irm th e ju d g m e n t o f

th e D istric t C o u rt. I. B e c a u se w e w rite s o lelyf o r th e p a rties , an d th e f

a c ts a re k n o w n to th e m , w e w ill di s cus s onl ythos e fa ct s pert i nentt o thi s appea l . T he St at e U ni form C ons truct i on C ode ( “C ode”) es t abl i s hes uni form cons truct i on s t andar ds and enf or cementpol i ci es forthe S tat e o f N ew Jerse yin sp ec ifi c a rea s su ch as p lum b ing , elec tr ical, b u il d ing , an d fire pr event i on. T he C ode author i zes the St at e D epart m entof C om m uni tyA ffa i r s ( “D C A ”) ori ndi vi dual m uni ci pal i t i es t o per form s ubcode e nfor cement . N . J . A dm i n. C ode t i t . 5, § 2 3 - 4 . 3 . A m u n i c i p a l i tyma yc h o o s e t o e n f o r c e th e Co d e b y : ( a ) e s t a b l i s h i n g i t s o wn agenc y ; ( b) form i ng an I nt er l ocal E nfor ci ng A gencyw i th otherm uni ci pal i t i es ; or ( c) contr act i ng l i cens ed thi r d- partyagenc i es , cal l ed “on- s i t e i ns pect i on agenc i es . ” I d. § § 2 3 -4 .3 , 2 3 -4 .6 , 2 3 -4 .1 2 (a ). U n d e r th e C o d e , G a rd e n S tate is lice n se d a s a p riv a te o n - s i t e i n s p e c t i o n a g e n c y. G a rd e n S tate ’s A m e n d e d C o m p lain t alle g e d th a t th e C o m m iss io n e r f a iled toG ar den St at e al l eges thatthe C om m i s s i onerhas i m pr oper l yal l ow ed muni ci pal 1 s ubcode of

fi ci al s t o per form enfor cementfunct i ons s i m ul t aneous l yforas m anyas ei ght di ffe r entm uni ci pal i t i es , w i th a t ot al of 194 off i ci al s per form i ng enfor cementfunct i ons si m ult aneo usl yfor three or m ore m un i ci pali t i es. S e e N .J. A d m in . C o d e tit . 5 , § 2 3 -4 .2 1 (o u tli n in g a u th o riz a tio n f e e s f o r p riv a te o n -site 2 in s p e c tio n a g e n c ie s ); s e e a ls o id . § 23- 4. 5A ( out l i ni ng the bi ddi ng r equi r ement s forons i t e i ns pect i on agenc i es ) . M uni ci pal empl oy ees ar e nots ubj ectt o bi ddi ng r equi r ement s or author i zat i on fee s . I n or dert o be dee m ed a “ bona fi de muni ci pal empl oy ee” underthe C o d e, “su ch p erso n sh all rec eive n o co m p en sati o n fo r his serv ice o ther tha n a f ixed salary orhour l yw age, ” and mustnothol d “tw o orm or e j obs w hi ch ar e det erm i ned bythe [D C A ] t o b e inc o m p ati b le byrea so n o f c o n fli cti n g ti m e re q u ir em en ts. ” Id . § 2 3 -4.12 (h). T he s ubcode of

fi ci al s m us tbe “a vai l abl e forcons ul t at i on and di s cus s i on dur i ng 3 n o rm a l b u sin e ss h o u rs a t sc h e d u led tim e s to b e d e ter m in e d b yth e c o n stru c tio n o f f icia l. A l l i ns pect i ons s hal l t ake pl ace betw een 9: 00 A . M . and 5: 00 P. M . on bus i nes s day s or w h ile c o n stru c tio n is ta k in g p lac e . . . o r w ith th e p e rm iss io n o f th e o w n e r o r h is r epr es ent at i ve. ” N . J . A dm i n C ode ti t. 5 , § 2 3 -4.4(c ). 3 enfor ce c ert ai n C ode pr ovi s i ons , w hi ch, G ar den St at e cl ai m s , r es tr i ctm uni ci pal s ubcode o f f ic ia ls to e m p lo ym e n t b yn o m o re th a n tw o m u n ic ip a litie s . S e e id . § 2 3 -4 .1 2 (h ). 1 G ar den St at e cont ends thatm uni ci pal offi ci al s per form i ng s ubcode e nfor cementfunct i ons form ul t i pl e muni ci pal i t i es s houl d be s ubj ectt o the bi ddi ng pr ocedur es and author i zat i on f e e s re q u ire d o f

o n -site in sp e c tio n a g e n c ies b e c a u se th e o f f ice rs a re o p e ra tin g a s d e f a c to o n -site in sp e c tio n a g e n c ies . G a rd e n S tate p o in ted to tw o sp e c if ic C o d e p ro v isio n s th a t, i t 2 ar gues , r es tr i ctm uni ci pal l y - empl oy ed s ubcode of fi ci al s fr om per form i ng enfor cement f u n c tio n s f

o r n o m o re th a n tw o m u n icip a lit ies . T h e f irst p ro v isio n , S e c tio n 2 3 -4 .4 (c ), se ts for th the t i m es thats ubcode of fi ci al s m us tbe ava i l abl e forcons ul t at i on and the t i m es t hey m u st c o n d u c t in sp e c tio n s. T h e se c o n d p ro v isio n , S e c tio n 2 3 -4 .1 2 (h )(2 ), p ro v id e s th a t: 3 “A per s on s hal l notbe dee m ed t o be a bona fi de muni ci pal empl oy ee i f he hol ds tw o or4

m or e j obs w hi ch ar e det erm i ned bythe depa r t m entt o be i ncompat i bl e byr eas on of c o n f lictin g tim e re q u ire m e n ts.” A c c o rd in g to G a rd e n S tate , the f a ilu re to p ro p e rly enfor ce the C ode vi ol at es i t s equal pr ot ect i on r i ght s underthe Four t eenth A m endmentand p l a c e s Ga r d e n S t a t e a ta c o mp e t i t i v e d i s a d v a n t a g e , c a u s i n g i te c o n o mi c h a r m. G ar den St at e fi l ed i t s I ni t i al C om pl ai ntagai ns tthe D C A . T he I ni t i al C om pl ai nt al l eged thatthe D C A ’ s i m pr operenfor cementof the C ode, N . J . A dm i n. C ode t i t . 5, § 23, vi ol at ed the Equal Pr ot ect i on C l aus e of the Four t eenth A m endment . T he D C A fi l ed a m o tio n to d is m is s , c o n te n d in g th a t th e E le v e n th A m e n d m e n t b a rr e d G a rd e n S ta te ’s c la im . Ga r d e n S t a t e f

i l e d a n Ame n d e d Co mp l a i n ta s s e r t i n g th e s a me c l a i ms u n d e r4 2 U. S . C. § 1 9 8 3 a g a in s t th e C o m m is s io n e r o f th e D C A a n d te n u n id e n tif ie d D C A o f

f ic ia ls . G ar den St at e s oughtdamages , decl ar at oryr el i ef, and i nj unct i ve r el i ef. II. T he D i s tr i ctC our thad j ur i s di ct i on pur s uantt o 28 U . S. C . § 1331. W e have j ur i s di ct i on under28 U . S. C . § 1291. W e exe r ci s e pl enaryr evi ew overthe D i s tr i ct C o u rt ’s dism issal of

a c o m p lai n t pu rsua n t t o F ed . R . C iv. P. 12 (b)(6 ). A lst o n v . P ark er, 3 6 3 F . 3 d 2 2 9 , 2 3 3 (3d C ir . 2 0 0 4 ); N am i v. Fa u v er, 82 F . 3 d 6 3 , 6 5 (3d C ir . 1 9 9 6 ).

III . C i vi l l i abi l i tym aybe i m pos ed under42 U . S. C . § 1983 upon “anyper s on w ho, act i ng un der the co l or of st at e l aw , dep ri ves ano ther i nd i vidual of an yri gh t s, pri vil eges,5

ori m m uni t i es s ecur ed bythe C ons t i tut i on orl aw s of the U ni t ed St at es . ” G ruenke v. Sei p, 22 5 F . 3d 29 0, 29 8 (3d C i r. 20 00 ). T o est abli sh a cl ai m un der § 19 83 , a plai nti ff m ust s how thatthe def

endant s , act i ng undercol orof s t at e l aw , depr i ved pl ai nt i ff of a fe der al cons t i tut i onal ors t atut oryr i ght . I d. A s a thr es hol d m att er , w e agr ee w i th the D i s tr i ctC our t ’ s concl us i on thatG ar den St at e s eeks t o r ecove rfr om the C om m i s s i oneri n heroffi ci al capa ci tyand ther efor e the E lev e n th A m e n d m e n t b a rs G a rd e n S tate ’s § 1 9 8 3 c laim s f o r d a m a g e s. T h e E lev e n th A m e n d m e n t h a s b e e n in terp re ted to re n d e r sta tes g e n e ra llyim m u n e f ro m su it b yp riv a te part i es i n fede r al court . Pa. Fed’ n of Spor t s m en’ s C l ubs , I nc. v. H es s , 297 F. 3d 310, 323 ( 3d C i r . 2002) . E l eventh A m endmenti m m uni tyext ends t o the s t at e’ s agenc i es or depart m ent s , pr ovi ded thatthe s t at e i s the r eal partyi nt er es t . M C I T el ecomm . C orp. v. B e ll A tla n tic -P a . S e rv ., 2 7 1 F .3 d 4 9 1 , 5 0 3 (3 d C ir . 2 0 0 1 ); s e e a ls o P e n n h u rs t S ta te S c h . & H osp. v. H al derm an, 46 5 U . S . 89 , 10 0-01 (19 84 ). T he E l even th A m end m ent al so bars a sui tagainsta st at e off

i ci al i n h i s or heroff

i ci al capac i tybecau se i t“i s not a s uitagainst the off i ci al butr atheri s a s ui tagai ns tthe off i ci al ’ s offi ce. A s s uch i ti s i ti s no di ffe r ent fr om a s ui tagai ns tthe St at e i t s el f. ” W i l l v. M i ch. D ept . of St at e Pol i ce, 491 U . S. 58, 71 (19 8 9 ). T he E l even th A m end m ent does no t , ho w ever, bar sui t s for dam ages ag ai nst g o v e rn m e n t o f

f ic ia ls s u e d in th e irp e rs o n a l c a p a c itie s . In p e rs o n a l c a p a c ity su its , a pl ai nt i ff s eeks t o i m pos e per s onal l i abi l i tyupon an i ndi vi dual offi cerand r ecove rfr om t he6

per s onal as s et s of thatoffi cer . T her efor e, the El eventh A m endmenti s noti m pl i cat ed beca us e the St at e i s notthe r eal partyi n i nt er es t . K entuckyv. G r aham, 473 U . S. 159, 165 ( 1985) . I n W i l l , the Supr eme C our temphasi zed thatthe di s t i nct i on betw een pe r s onal and o f f icia l ca p a c itysu its is m o re th a n “ a m e re p lea d in g d e v ice .” 4 9 1 U .S . at 7 1 . S tate offi cer s s ued fordamages i n t hei roffi ci al capa ci t i es ar e not“per s ons ” under§ 1983 beca us e theyas s um e the i dent i tyof the governm entthatempl oy s them. See H afe rv. M el o, 502 U . S. 21, 27 ( 1991) . B ycontr as t , offi cer s s ued i n thei rper s onal capa ci t i es come t o courtas i ndi vi dual s . I d. G overnm entoffi ci al s s ued i n thei rper s onal capa ci t i es thus ar e “pe r s ons ” under§ 1983. I d. A lth o u g h th e A m e n d e d C o m p lain t d id n o t sp e c if yw h e th e r G a rd e n S tate so u g h t to rec o v er f rom the C o m m issi o n er in h er o ff ici al or p erso n al ca p ac ity , the D istri ct C o u rt pr oper l ycons trued G ar den St at e’ s compl ai ntas an off i ci al capa ci tys ui t . I n det erm i ni ng w h e th e rG a r d e n S t a t e s u e d th e C o m m i s s i o n e ri n h e ro f f i c i a l c a p a c i ty, p e r s o n a l c a p a c i ty, orboth, w e l ook atthe compl ai nt s and the “c our s e of pr ocee di ngs ” t o det erm i ne the natur e of the l i abi l i tyG ar den St at e s oughtt o i m pos e. G r aham, 473 U . S. at167 n. 14 ( quot i ng B r andon v. H ol t , 469 U . S. 464, 469 ( 1985) ) . I n M el o v. H afe r , 912 F. 2d 628 ( 3d C ir. 1 9 9 0 ), af

f ’d , 5 0 2 U .S . 2 1 (1 9 9 1 ), w e a p p lied th e “ c o u rse o f p lea d in g s” tes t to a s c e r t a i n w h e th e ra g o v e r n m e n to f f i c i a l w a s s u e d i n h e rp e r s o n a l o ro f f i c i a l c a p a c i ty . We d e t e r mi n e d th a tth e p l a i n t i f f s me a n tt o s u e th e o f

f i c i a l i n h e rp e r s o n a l c a p a c i tyf o rtwo r eas ons . Fi r s t , the compl ai nt s onl yl i s t ed the off i ci al , notthe St at e, as a def endantand7

thus the pl ai nt i ffs m ani fes t ed thattheyonl ys oughtt o r ecove rfr om the off i ci al , notthe S tate . M e lo , 9 1 2 F .2 d a t 6 3 6 . S e c o n d , the o f f icia l as se rte d th e q u a lifie d im m u n ity defe ns e thr oughoutthe cour s e of the pr ocee di ngs . T hi s defe ns e i s onl yavai l abl e w hen governm entoffi ci al s ar e s ued i n t hei rper s onal , notoffi ci al , capa ci ty . I d. W e det erm i ned thati n r ai s i ng thi s defe ns e, the off i ci al “under s t ood thatpl ai nt i ffs s oughtt o s ue heri n her per s onal capa ci ty . ” I d. A ppl y i ng the “c our s e of pl eadi ngs ” t es tt o thi s cas e, w e fi nd thatG ar den St at e s ued the C om m i s s i oneri n heroffi ci al capa ci tyand notherper s onal capa ci ty . Fi r s t , G ar den St at e’ s I ni t i al C om pl ai nts oughtdamages fr om the D C A , notthe C om m i s s i oner . T he D C A is a p rin c ip a l d e p a rtm e n t “e sta b lish e d in th e E x e c u tiv e B ra n c h o f th e S tate G o v e rn m e n t.” N .J. S tat. A n n . § 5 2 :2 7 D -1 . B ysu in g th e D C A , a “ p rin c ip a l d e p a rtm e n t” o f th e G o v e rn m e n t o f

N e w Je rse y , G a rd e n S tate c lea rlyso u g h t d a m a g e s f ro m a S tate a g e n c ya n d th e E lev e n th A m e n d m e n t b a rs s u c h re c o v e ry . In th e A m e n d e d C o m p lain t, G ar den St at e vi r tual l ys ubs t i tut ed the name of the C om m i s s i onerand t en unnamed in d iv id u a ls f

o r t h a t o f th e D C A in to w h a t is o th e rw is e s u b s ta n tia lly th e In itia l C o m p la in t. G ar den St at e di d notaveranypart i cul ar i zed a l l egat i ons orfac t s w hi ch s ugges tthatthe C om m i s s i oneroranyof the unnamed defe ndant s had anyper s onal i nvol vementi n the al l eged s el ect i ve and i m pr operenfor cementof the C ode. Fur therm or e, unl i ke the off i ci al i n M el o, the C om m i s s i onerdi d notr es pond t o G ar den St at e’ s A m ended Com pl ai nti n a m a n n e r t h a t s h o w s s h e u n d e rs to o d th a t th e s u it w a s a g a in s t h e r i n h e r p e rs o n a l c a p a c ity.T he exc ept i on forcl ai m s of pr os pect i ve dec l ar at oryori nj unct i ve r el i ef i s know n as 4 the Ex P art e Y oung exce pt i on. See Ex P art e Y oung, 209 U . S. 123 ( 1908) . T he r el i ef s oughtm us tbe pr os pect i ve, decl ar at ory , ori nj unct i ve and c annotbe r etr os pect i ve, s uch as m onet arydamages . H es s , 297 F. 3d at323. 8 I n r es pons e t o t he A m ended Com pl ai nt , the C om m i s s i onerdi d notatt empt t o r ai s e any per s onal i m m uni tydefe ns e, s uch as qual i fi ed i m m uni ty , thati s avai l abl e i n per s onal c a p a c ity su its . G i ven the I ni t i al C om pl ai nt , A m ended Com pl ai nt , and “c our s e of pl eadi ngs , ” the D istric t C o u rt’s c o n c lu sio n th a t th e A m e n d e d C o m p lain t is a n a ttem p t b yG a rd e n S tate to avoi d the El eventh A m endmentbym as quer adi ng cl ai m s fordamages agai ns ta pr i nci pal d e p a rt m e n t o f

th e S ta te (i .e ., th e D C A ) a s c la im s a g a in s t th e C o m m is s io n e r w a s c o rr e c t. A s s uch, the D i s tr i ctC our tcorr ect l ydet erm i ned thatG ar den St at e s ued the C om m i s s i oner i n heroffi ci al capa ci tyand the El eventh A m endmentbar s G ar den St at e’ s cl ai m s for dam ages. T h e r e a r e th r e e p r i m a r y e x c e p t i o n s t o E l e v e n th A m e n d m e n ti m m u n i ty: (1 ) c o n g re ss io n a l ab ro g a tio n , (2 ) w a iv e r b yth e sta te, a n d (3 ) su its a g a in st in d iv id u a l sta te offi cer s forpr os pect i ve i nj unct i ve and de cl ar at oryr el i ef t o end an ongoi ng vi ol at i on of fede r al l aw . H es s , 297 F. 3d at323. T he onl yexce pt i on t o E l eventh A m endment

4 im m u n itythat co u ld ap p lyh ere is th e third, w h ich c o u ld p o tential lyp erm itG ard en S tat e’s cl ai m s forpr os pect i ve i nj unct i ve and de cl ar at oryr el i ef a gai ns tthe C om m i s s i oneri n her offi ci al capa ci ty . H ow ever , as w e w i l l expl ai n, G ar den St at e ca nnots t at e a c l ai m under9

the Equal Pr ot ect i on C l aus e of the Four t eenth A m endmentupon w hi ch r el i ef, pr os pect i ve orotherw i s e, can be gr ant ed. T he D i s tr i ctC our tpr oper l ydi s m i s s ed G ar den St at e’ s cl ai m s forpr os pect i ve in ju n c tiv e a n d d e c lar a to ryre lief p u rsu a n t to F e d . R . C iv . P . 1 2 (b )(6 ). G a rd e n S tate c a n n o t sta te a n e q u a l p ro tec tio n c laim b e c a u se G a rd e n S tate c a n n o t d e m o n stra te th a t: ( 1) the C om m i s s i oneri s i m pr oper l yenfor ci ng the C ode, ( 2) on- s i t e i ns pect i on agenc i es and muni ci pal s ubcode of fi ci al s ar e s i m i l ar l ys i tuat ed underthe C ode and s houl d be tr eat ed al i ke, and ( 3) the cl as s i fi cat i ons w i thi n the C ode ar e notr at i onal l yr el at ed t o a leg iti m a te S tate in ter e st. T h e E q u a l P ro tec tio n C lau se o f th e F o u rte e n th A m e n d m e n t d e c lar e s th a t n o S tate s ha l l “ de nyt o a nype r s on w i thi n i t s j ur i s di c t i on the e qu a l pr ot e c t i on of the l a w s . ” U . S. C o n st. a m d . X IV § 1 . T h e E q u a l P ro tec tio n C lau se “ is e ss e n tiallya d ire c tio n th a t all per s ons s i m i l ar l ys i tuat ed s houl d be tr eat ed al i ke. ” C i tyof C l eburne v. C l eburne Li vi ng C tr . , 473 U . S. 432, 440 ( 1985) . I n N or dl i ngerv. H ahn, 505 U . S. 1, 10 ( 1992) , the S u p re m e C o u rt e x p lain e d th a t “th e E q u a l P ro tec tio n C lau se d o e s n o t f o rb id c las sif ica tio n s. It sim p lyk e e p s g o v e rn m e n tal d e c isio n m a k e rs f ro m tre a tin g d if

f e re n tly per s ons w ho ar e i n al l r el evantr es pect s al i ke. ” C l as s i fi cat i ons thatdo noti m pl i cat e a su sp e c t cla ss o r f

u n d a m e n tal rig h t ar e v a lid if th e ya re ra tio n a llyre late d to a leg iti m a te St at e i nt er es t . C l eburne, 473 U . S. at440. Fi r s t , the D i s tr i ctC our tw as corr ecti n i t s concl us i on thatthe C om m i s s i oneri s not10

im p ro p e rlye n f

o rc in g th e C o d e . In su p p o rt o f th e a rg u m e n t th a t th e C o m m iss io n e r is deny i ng G ar den St at e i t s Four t eenth A m endmentr i ght s byi m pr oper l yenfor ci ng the C ode, G ar den St at e ci t es tw o C ode pr ovi s i ons thati tcl ai m s barm uni ci pal s ubcode empl oy ees fr om per form i ng i ns pect i ons form ul t i pl e muni ci pal i t i es . T he fi r s tpr ovi s i on, Sect i on 23- 4. 4( c) , pr ovi des thatm uni ci pal s ubcode of fi ci al s s houl d be ava i l abl e for cons ul t at i on “dur i ng nor m al bus i nes s hour s ats chedul ed t i m es t o be det erm i ned bythe cons truct i on offi ci al . ” The se cond pr ovi s i on, Sect i on 23- 4. 12( h) , pr ovi des that : “A p erso n sh all n o t be d ee m ed to b e a b o n a f ide m u n ici p al em p loy ee if h e h o lds tw o o r m o re j obs w hi ch ar e det erm i ned bythe depa r t m entt o be i ncompat i bl e byr eas on of conf l i ct i ng t i m e r equi r ement s . ” B as ed on a pl ai n r eadi ng of the C ode, i ti s cl earthatthe C ode does notcont ai n a r es tr i ct i on thatpr event s m uni ci pal l y - empl oy ed s ubcode of fi ci al s fr om p e rf o rm in g in s p e c tio n s f

o r m u ltip le m u n ic ip a litie s . A c c o rd in g to th e C o d e , a m uni ci pal l y - empl oy ed i ns pect orw oul d have t o r egi s t eras an on- s i t e i ns pect i on agenc y onl yi f: ( 1) he ors he r ece i ves a fe e otherthan hi s orherfi xed s al aryorhour l yw age f or conduct i ng i ns pect i ons , or( 2) i f the empl oy ee hol ds tw o orm or e j obs w hi ch the depart m ent d e te rm in e s a re in c o m p a tib le b yre a s o n o f c o n f lic tin g tim e re q u ir e m e n ts . G ar den St at e does notcont end thatthe muni ci pal empl oy ees per form i ng i ns pect i ons for m ul t i pl e muni ci pal i t i es have voi ded thei r“bona f i de muni ci pal empl oy ee” s t atus by r ece i vi ng compensa t i on otherthan thei rfi xed s al aryorw age. M or eover , the C ode p r o v i d e s n o p r o v i s i o n th a te q u a t e s e mp l o y e e s p e r f o r mi n g i n s p e c t i o n s f

o rmo r e th a n two11

m u n icip a lit ies w ith e m p lo y e e s h o ld in g tw o o r m o re “ jo b s” th a t ar e in c o m p a tib le d u e to con fl i ct i ng t i m e requi rem ents . Ad d i t i o n a l l y , a s th e Di s tr i c tCo u r tn o t e d , th e Co d e ’ s f r a me wo r k p r o v i d e s th e DCA a n d m u n ic ip a litie s w ith f le x ib ility in th e ira d m in is tr a tio n a n d e n f o rc e m e n t o f

th e C o d e . U n d e r S e c tio n 2 3 -4 .6 (a ), m u n icip a lit ies m a yf o rm “ in ter lo c a l en f

o rc in g a g e n c ies ” to jo in tlya d m in iste r a n d e n f o rc e th e su b c o d e s. T h e C o d e e sta b lish e s th a t su b c o d e o f f icia ls do nothave t o w or k “exc l us i vel yforthe enf or ci ng agenc y , or. . . be l ocat ed i n one off i ce orbui l di ng w i thi n t he muni ci pal i ty . ” I d. § 23- 4. 3( d) ( 3) . Fur therm or e, the C ode pr ovi des thatm uni ci pal i t i es can r eor gani ze “ t o pr ovi de forthe coor di nat i on of di s per s ed per s onnel . ” I d. T he D i s tr i ctC our tpr oper l yconcl uded thatthe onl yr es tr i ct i ons pr ovi ded bythe C ode ar e: ( 1) thatthe publ i c s hal l have the r i ghtt o do bus i nes s atone enf or ci ng agenc ycent erand ( 2) thats ubcode of fi ci al s m us tbe ava i l abl e forcons ul t at i on dur i ng n o rm a l b u sin e ss h o u rs. Id . T h e re is s im p lyn o re stric tio n th a t m u n icip a l su b c o d e o f f icia ls cannotper form i ns pect i ons form or e than tw o m uni ci pal i t i es . T o the contr ary , the C ode en co u rag es m u n ici p ali ti es to reo rga n ize, t o w o rk w ith o ther m u n ici p ali ti es to fo rm i nt er l ocal enfor ci ng agenc i es , ort o hi r e l i cens ed, pr i vat e on- s i t e i ns pect i on agenc i es ( l i ke G ar den St at e) i n or dert o m eetthe r equi r ement s s etfor th i n the s t atut e. I n perm i t t i ng m uni ci pal l y - empl oy ed i ns pect or s t o per form i ns pect i ons form ul t i pl e muni ci pal i t i es , t he C o m m iss io n e r is e n f

o rc in g th e C o d e a s it is w ritten . T h e D istric t C o u rt w a s c o rre c t in its concl us i on thatthe C om m i s s i oneri s noti m pr oper l yenfor ci ng the C ode.12

S econ d, the D i stri ctC ou rtproperl ycon cl ud ed thatG arden S t at e fai l ed to est abli sh that m u n ici p al su b co d e o ff ici als p erf

o rm ing insp ec ti o n s fo r m u lt iple m u n ici p ali ti es a re s i m i l ar l ys i tuat ed forpurpos es of the Equal Pr ot ect i on C l aus e. T he Equal Pr ot ect i on C l aus e “i s es s ent i al l ya di r ect i on thatal l per s ons s i m i l ar l ys i tuat ed s houl d be tr eat ed al i ke. ” C l eburne, 473 U . S. at440. Per s ons ar e s i m i l ar l ys i tuat ed underthe Equal Pr ot ect i on C l aus e w hen theyar e al i ke “i n al l r el evantas pect s . ” N or dl i nger , 505 U . S. at 10. T he C ode makes di s t i nct i ons betw een on- s i t e i ns pect or s and muni ci pal l y - empl oy ed in sp e c to rs. U n d e r th e C o d e , m u n icip a lly -e m p lo y e d in sp e c to rs a re e m p lo y e e s o f th e S tate w h o a re p a id a f

ix e d sa lar y , w h e re a s o n -site in sp e c tio n a g e n c ies a re p riv a te e n tit ies p a id on a fe e bas i s . O n- s i t e i ns pect i on agenc i es ar e s ubj ectt o bi ddi ng r equi r ement s and author i zat i on fee s w hi l e muni ci pal empl oy ees ar e not . A s di s cus s ed above , the C ode pr ovi des tw o s i tuat i ons w her e muni ci pal empl oy ees voi d thei rs t atus as “bona f i de” empl oy ees : ( 1) w her e theyr ece i ve a f ee f ori ns pect i ons otherthan thei rfi xed s al aryor ( 2) w hen empl oy ees hol d t w o orm or e j obs w hi ch the depa r t m entdet erm i nes have d if f e re n t tim e c o m m itm e n ts . N e ith e r o f th o s e s itu a tio n s h a s o c c u rr e d in th is c a s e . M or eover , as not ed i n t he D i s tr i ctC our t ’ s opi ni on, G ar den St at e does notcont end that m uni ci pal s ubcode of

fi ci al s have pa r t i ci pat ed i n the bi ddi ng pr oces s w i th G ar den St at e, ther ebycompet i ng w i th G ar den St at e and otheron- s i t e i ns pect i on agenc i es . B eca us e they d o n o t op era te i n the s am e m an n er, are n o t l icen sed an d au tho ri ze d in the sam e m an n er, and ar e notpai d i n t he s ame m anner , m uni ci pal empl oy ees and on- s i t e i ns pect i on13

agenc i es ar e notal i ke i n al l r el evantas pect s and nee d notbe tr eat ed al i ke. T hus , the D i s tr i ctC our tw as corr ecti n i t s concl us i on thaton- s i t e i ns pect i on agenc i es and muni ci pal empl oy ees per form i ng i ns pect i ons form ul t i pl e muni ci pal i t i es ar e nots i m i l ar l ys i tuat ed forpurpos es of the Equal Pr ot ect i on C l aus e. T hi r d, the cl as s i fi cat i ons w i thi n the C ode betw een publ i c, m uni ci pal l y - empl oy ed insp ec tors an d p ri v ate, on -si te i n sp ec ti o n ag en cies a re n o t i n v ali d b ec au se th eyare r at i onal l yr el at ed t o a l egi t i m at e St at e i nt er es t . U nderthe Equal Pr ot ect i on C l aus e, cl as s i fi cat i ons thatdo noti m pl i cat e a s us pectcl as s orfundament al r i ghtw i l l be dee m ed va l i d i f the ya r e r a t i on a l l yr e l a t e d t o a l e gi t i mat e St a t e i nt e r e s t . Rom e rv. Eva ns , 51 7 U. S. 6 2 0 , 6 3 1 (1 9 9 6 ). R a tio n a l b a s is re v ie w is v e ry d e f e re n tia l a n d “ a la w w ill b e s u s ta in e d . .

. even i f the l aw s eems unw i s e orw or ks t o the di s advant age of a part i cul argr oup, ori f the r at i onal e fori ts eems t enuous . ” I d. at632. A s di s cus s ed above , pr i vat e on- s i t e i ns pect i on a g e n c ies m u st b e lice n se d , p a ya u th o riz a tio n a n d re -a u th o riz a tio n f e e s, p a rticip a te in s peci al i zed bi ddi ng r equi r ement s , and w or k on a fe e bas i s . M uni ci pal l y - empl oy ed in sp e c to rs a re p a id a f

ix e d sa lar y , d o n o t h a v e th e sa m e b id d in g re q u ire m e n ts th a t p riv a te agen ci es do, and are not s ubj ectt o au tho ri zat i on and re- authori zat i on fees. T hese cl as s i fi cat i ons do noti m pl i cat e a s us pectcl as s , s uch as r ace , nordo theyi m pl i cat e a fundament al cons t i tut i onal r i ght . T her efor e, theyonl yneed t o be r at i onal l yr el at ed t o a l egi t i m at e St at e i nt er es t . H er e, the St at e has a l egi t i m at e i nt er es ti n i m pos i ng l i cens i ng re q u ire m e n ts o n p riv a te s u b c o d e in sp e c to rs, w h e re a s lic e n sin g p u b lic e m p lo y e e s w o u ld14

be s uper fl uous . T he cl as s i fi cat i ons w i thi n the C ode betw een muni ci pal l y - empl oy ed in sp e c to rs a n d p riv a te o n -site in sp e c tio n a g e n c ies a re ra tio n a llyre late d to th is S tate in ter e st a n d , the re f

o re , the C o d e itse lf

d o e s n o t v io late th e F o u rte e n th A m e n d m e n t. I V. T h e D istri ct C o u rtp rop erlyco n clud ed that G ard en S tat e’s d am ag es c lai m s are barr ed b ythe E l even th A m end m ent and t hat the C om plai nt m ustbe d i sm i ssed becau se G ar den St at e ca nnotes t abl i s h t hatthe C om m i s s i oner ’ s act i ons deni ed G ar den St at e equa l p ro tec tio n o f

th e law a s g u a ra n tee d b yth e F o u rte e n th A m e n d m e n t. Ac c o r d i n g l y , we wi l l AFF I RM .