Document: 466 U.S. 210 104 S.Ct. 1758 80 L.Ed.2d 247 IMMIGRATION AND NATURALIZATION SERVICE et al.v.Herman DELGADO al. No. 82-1271. Supreme Court of the United States Argued Jan. 11, 1984. Decided April 17, Syllabus Acting pursuant to warrants issued on a showing probable cause that numerous unidentified illegal aliens were employed at garment factory, Immigration and Naturalization Service (INS) conducted two "factory surveys" work force in search aliens. A third factory survey was with employer's consent another factory. During each survey, which lasted from one hours, INS agents positioned themselves near exits, while other moved systematically through approaching employees and, after identifying themselves, asking three questions relating their citizenship. If an employee gave credible reply he citizen or produced his immigration papers, agent employee. continued free walk around within Respondent employees—who citizens permanent resident aliens, who had been questioned during surveys—and union filed actions, consolidated Federal District Court, alleging surveys violated Fourth Amendment rights, seeking declaratory injunctive relief. The granted summary judgment for INS, but Appeals reversed, holding constituted seizure entire forces, could not question individual unless its reasonable suspicion alien. Held: did result questioning respondent by concerning citizenship amount detention under Amendment. Pp. 215-221. (a) Interrogation one's identity request identification police does not, itself, constitute seizure. Unless circumstances encounter are so intimidating as demonstrate person would have believed leave if responded, such 216-217. (b) forces factories seized duration here, even though placed exits sites. record indicates agents' conduct consisted simply arresting those they believe unlawfully present This should given respondents, any lawfully factories, reason be detained truthful answers put them refused answer. mere when it occurred inside no more exits. 217-219. (c) Since there virtue method conducting surveys, issue presented only fact detained, deposition testimony showed none were. They may litigate what happened them, description encounters classic consensual rather than seizures. 219-221. 681 F.2d 624 (9th Cir.1982), reversed. Andrew L. Frey, Washington, D.C., petitioners. Henry R. Fenton, Los Angeles, respondents. Justice REHNQUIST delivered opinion Court. 1 In course enforcing laws, petitioner enters employers' worksites determine whether employees. Ninth Circuit held involved this case amounted further these International Ladies' Garment Worker's Union, AFL—CIO v. Sureck, Cir.1982). We conclude respondents Accordingly, we reverse Appeals. 2 warrants, January September, 1977 Southern California Davis Pleating Co. (Davis Pleating) Pleating, although neither identified particular name. October, 1977, Mr. Pleat, 3 At beginning several buildings' dispersed throughout most, all, stations. displayed badges, carried walkie-talkies, armed, point weapon ever drawn. Moving approached asked citizen, ended, unsatisfactory response admitted alien, produce papers. 4 Respondents four surveys.1 1978 representative, Ladies Workers' later consolidated, Central challenging constitutionality argued right unreasonable searches seizures equal protection component Due Process Clause Fifth 5 denied class certification dismissed action lack standing, App. Pet. Cert. 58a-60a. series cross-motions partial judgment, ruled expectation privacy workplaces conferred standing challenge entry warrant owner's consent. Id., 49a-52a, 53a-55a, 56a-57a. final ruling addressed respondents' relief directed preventing personally future surveys. material facts dispute, found 46a. Reasoning Court's decision Terry Ohio, 392 1, 88 1868, 20 889 (1968), law enforcement officers ask anyone, either otherwise. 47a. favor INS.2 6 Applying standard first enunciated Member Mendenhall, 446 544, 100 1870, 64 497 (1980) (opinion Stewart, J.), concluded because stationing doors buildings meant "a worker 'would leave.' " F.2d, 634 (quoting Anderson, 663 934, 939 (CA9 1981)). Although conceded statutory authority alien remain States, see 66 Stat. 233, 8 U.S.C. § 1357(a)(1), basis being illegally country. 639-645. number working site insufficient justify 643. Consequently, also them.3 7 certiorari review Appeals, 461 904, 103 1872, 76 805 (1983), has serious implications laws presents conflict reached Third Babula 665 293 (1981). proscribe all contact between citizens, is designed "to prevent arbitrary oppressive interference officials personal security individuals." Martinez-Fuerte, 428 543, 554, 96 3074, 3081, 49 1116 (1976). Given diversity however, cautious defining limits imposed citizens. As noted elsewhere: "Obviously, intercourse policemen involves 'seizures' persons. Only officer, means physical show authority, restrained liberty 'seizure' occurred." supra, U.S., 19, n. 16, S.Ct., 1879 16. While applying test relatively straightforward situation resembling traditional arrest, Dunaway New York, 442 200, 212-216, 99 2248, 2256-2258, 60 824 (1979), against extends "seizures involve brief short arrest." Brignoni-Ponce, 422 873, 878, 95 2574, 2578, 45 607 (1975). What evolved our cases determination initially officer can transformed into meaning Amendment, "if, view surrounding incident, leave." 1877 (footnote omitted); Florida Royer, 460 491, 502, 1319, 1326, 75 229 (1983) (plurality opinion). 9 yet rule directly official, without more, recent plainly implies interrogation Drug Enforcement Administration matched drug courier profile, defendant him airplane ticket driver's license, then examined. majority examination documents "permissible themselves." 501, 1326 opinion), id., 523, 3, 1337-1338, REHNQUIST, J.). contrast, much different prevailed Brown Texas, 443 47, 2637, 61 357 physically identity, officers' identify himself. absent some misconduct, defendant's 52, 2641. 10 apparent Royer questioning, unlikely violation. most will respond request, people do so, told respond, hardly eliminates nature response. Cf. Schneckloth Bustamonte, 412 218, 231-234, 93 2041, 2049-2051, 36 854 (1973). cannot say resulted But persons refuses answer take additional steps—such taken Brown—to obtain answer, imposes minimal level objective justification validate 1877; 21, 1879. 11 "the manner workforce" 634. element surprise systematic workers contributed court's holding, pivotal factor buildings. According "departures contemplated," thus, "not Ibid. support below, argue created psychological environment intruded unexpectedly workplace officers.4 Besides add length failure inform force.5 reject claim Ordinarily, freedom move about meaningfully restricted, actions officials, workers' voluntary obligations employers. initiated, ordinary business, operating machinery performing job assignments. disruption, including efforts hide, prevented moving factories. 12 argue, INS's intent leaving. nothing indicating actually did. obvious purpose presence insure questioned. occurs exits.6 13 similar conclusion holds true posed threat walked Likewise, possibility sought apprehension meaningful way. fear upon leaving, whole seized.7 14 "detentive questioning" individuals articulate "objective providing investigators person, country." 638. Under analysis, since way named detained. Reviewing 15 seems encounter. None survey. September Delgado discussing where city. When informed came Mayaguez, Puerto Rico, made innocuous observation partner left. 94. Correa's experience similar. Walking part another, Correa stopped she born. replied "Huntington Park, [California]," away her business. 115. Labonte, employee, tapped shoulder Spanish, "Where your papers?" 138. Labonte responded papers agents, Finally, Miramontes, sole Pleat case, encountered en route office worksite. Questioned citizenship, Miramontes agent's permit. 120-121. 16 attendant disruption caused reasonably afraid leave. work, effectively feared refusing arrest. people. Persons went business way; them. attempted flee evade eventually d., 50, 81-84, 91-93, questioned, purpose, continue satisfies us See (1983); (1980). 17 18 Reversed. 19 STEVENS, concurring. trial case. entered reversing, remand enter injunction comes us, therefore, must construe favorably petitioners, resolve issues favor. Because I agree establish genuine way, join 21 POWELL, concurring result. 22 persuasive, find "seizures" close one. turns difficult characterization law: position refuse need decide question, clear "seizure" place permissible reasoning 23 stopping automobiles traffic checkpoints Mexican border consistent authorized warrant.1 assumed stops 546, 3078, 556, 3082, upheld reasonable. prior involving weighed public interest practice individual. 555, 3081. Noting importance routine checkpoint controlling flow interior country, Government substantial practice. On hand, intrusion motorists minimal: brief, usually possibly production documents. Moreover, regularized activities vesting limited discretion field. Weighing considerations, issue, well referrals slightly longer secondary inspection, might "in absence individualized suspicion" car contained 562, 3085. 24 Government's using great greater. affidavit Assistant Director Angeles account one-half three-quarters arrested every day District. 47.2 alone, over 20,000 year. 44. arrest 20% 50% factories.3 25 before dimensions problem E.g., 878-879, 2578-2579, (1975); 551-553, 3080-3081. Recent estimates country range million, consensus appears time million.4 One main reasons come—perhaps reason—is seek employment. 43; 551, 3080; Select Committee, 25, 38. Factory strike cause, enabling few diminish incentive dangerous passage across apprehend large numbers come. Clearly, technique enormous.5 26 interests employees, same Martinez-Fuerte. less: there, cars often up five minutes, here progressed. diverted briefly display registration cards. It initial plant workers, obviously character operation, serve minimize concern fright lawful employees' setting like automobile, certainly far less residence. Therefore, Martinez-Fuerte suspicion, reasonable.6 27 BRENNAN, whom MARSHALL joins, dissenting part. 28 ongoing enforce conducts "surveys" employ undocumented subject deportation. carrying out surveys"1 violates rights affected secure guaranteed Answering today holds, first, complete ante, 218-219, second, generally conclusion,2 am convinced fair application decisions compels unreasonably 29 blush, unremarkable. striking today's studied air unreality. Indeed, considerable feat legerdemain able arrive seized. success sleight hand proposition interrogations merely "consensual encounters," 221, freedom. record, tells story. 30 * Contrary suggestion, 216, repeatedly considered See, e.g., (1968); Mississippi, 394 721, 89 1394, 676 (1969); Adams Williams, 407 143, 92 1921, 32 612 (1972); (1979); (1980); (1983). Of course, recognize, admit simple difficulty springs inherent tension commitment safeguarding precious, too fragile, go unwarranted government interference, recognition allowed latitude gathering information willing cooperate. difficulties, perhaps understandable appropriate balance uniform results. Nevertheless, outline inquiry traced years clarity. 31 launched explaining governs eventuate trip station house prosecution crime—'arrests' terminology. recognized whenever accosts restrains away, 'seized' person." (emphasis added). Such seizure, noted, evidenced "physical authority" individual's restrained. 1879, essential teaching Terry—that respected fall full arrest—has consistently reaffirmed. 726-727, 1397-1398, example, confirmed investigatory detentions implicate protections explained "while voluntarily unsolved crimes compel answer." 727, 6, 1397, 6. Similarly, overturned conviction stop oneself police, because, making stop, lacked "reasonable based facts, [was] criminal activity." 51, animating principle underlying unanimous protects amounts identity. joined Part IIA Stewart's offered helpful, preliminary distillation lessons cases. "as long remains disregard person's privacy," Stewart if, 1877. suggested include threatening officers, touching use language tone voice compliance officer's compelled." 33 adopted formula determining inquiries cross boundary separating forcible investigate suspected crime. opinion); 511-512, 1331 (BRENNAN, J., result); 514, 1333 (BLACKMUN, dissenting). properly looks subjective impressions characteristics suggest remained away. W. LaFave, Search Seizure 9.2, p. 52 (1978). governing principles guide area summarized plurality opinion: 34 "[L]aw violate street place, questions, putting listen, offering evidence questions. Nor identifies himself convert requiring justification. approached, him; indeed, decline listen He momentarily reasonable, grounds doing so; refusal furnish grounds." 497-498, 1324 (citations omitted) 35 concluding accosted States. nonetheless plain beyond cavil demonstrated "show sufficient size overbear person. Faced tactics, help feel compelled provide avoid rooted fantasy goes astray, my view, chiefly insists considering isolation single lone passerby occur corner. Obviously, once begins unrealistic step equally fanciful acted answered isolated street. Each testified widespread disturbance among sparked atmosphere investigative tactics. First, explained, rows seated 77-78, 81-85, 102-103, 122-123. Second, discovered handcuff lead waiting vans outside 88, 140-141. Third, conspicuously guarded stationed anyone leaving conducted. 48, 82, 125-126, 144-145, 158. badges direct pointed workers. light circumstances, fantastic ignore occurring him, temerity 37 experiences recounted clearly For Delgado, naturalized American state 95. seen going naturally responded. reminder controlled situation, remarked coming back check again spoke English well. described terms: "He me Immigration, [work permit] saw badge. hadn't [seen badge], wouldn't shown him." 121 She frightened interview "normally you get nervous everybody scared, nervous." Labontes sitting machine behind, left Explaining demand, testified: "I turned, didn't wish myself. [the agents], said, 'Yes, yes, papers.' 138 38 sum, felt constrained so. That feeling constraint circumstances. paints frightening picture subjected wholesale conditions respect privacy, elicit prompt completely intimidated Nothing clearer tactics Amendment.3 II 39 eagerness represent extent understandable, permits imposing task justifying criteria required 40 reasonableness requirement applies sort, justified "facts 880, 2580, make kind "must manifestation is, be, engaged Cortez, 449 411, 417, 101 690, 695, 621 stated Terry, "demand specificity predicated central jurisprudence." 18, 1880, 18. Repeatedly, insisted detain interrogate suspecting unlawful activity. instance, "[Border Patrol] roving patrol vehicles aware specific articulable together rational inferences contain 884, 2581. Michigan Summers, 452 692, 699-700, 2587, 69 340 (1981); Ybarra Illinois, 444 85, 92-93, 338, 342-343, 62 238 51-52, 2640-2641; Delaware Prouse, 440 648, 661, 1391, 1400, 59 660 146-149, 1923-1924; 726-728, 1397-1398; 16-19, 1877-1878. particularized provides chief governmental privacy. 41 "based specific, society's legitimate require[d] seizure," nor "carried plan embodying explicit, neutral limitations officers." 2640. undisputed vast surveyed immigrated Mexico. apparently instructed, words charge operations, "virtually company." 49. 77, 85-86, 151-152, 155. irrespective deportable By own admission, selectively 55, policy indiscriminate surprising, many residents born Mexico, Latin appearance, speak Spanish work. 57, 73. means, done anything wrong. To mass constitutional makes mockery 42 Furthermore, pursued firm interrogating still failed, safeguard adequately secured insurmountable that, viewed realistically, poses grave problems execution affords virtually 886, 2582, reliable distinguish degree accuracy native-born ancestry other.4 Developments, Policy Rights Aliens, Harv.L.Rev. 1286, 1374-1375 demonstrates danger, both 43 immediate Congress, possesses broad power regulate admission exclusion Kleindeinst Mandel, 408 753, 766, 2576, 2583, 683 Fiallo Bell, 430 787, 792, 97 1473, 1478, 50 (1977), surely register carry proper identification, §§ 1302, 1304(e). Nonetheless, 883-884, 2581-2582, Executive Branch seeks congressional policies, techniques threaten contexts impossible fairly vital civil soon become intolerable permitted solely alienage. 884-886, 2581-2582. order protect protected Almeida-Sanchez 413 266, 273, 2535, 2539, 596 (1973), tailor focus aliens.5 Relying 44 (1976), POWELL hold represented "reasonable" alienage 224. reliance misplaced. extremely limited, pressing enforcement, travelers fixed "apparent ancestry." 563, careful earlier Border Patrol patrols ancestry, instead observations "reasonably suspect vehicle 881, 2580. "crucial distinction" checkpoints, observed 656, lesser motorist's interests" operations. Thus, Martinez-Fuerte: "This visual inspection—also existed roving-patrol stops. intrusion—the generating travelers—is appreciably stop." 558, 3083.6 departure Terry's general largely resulting operations modest. equivalent guarantees substantially invaded opposite true. unlike location known advance, sprung unsuspecting surprise. sudden arrival anxiety 89, 107, 116, 120-121, 129-130. "[b]ecause think don't shoot something. I'm guilty." 127.7 absolutely adduced 46 unfettered discretionary exercised considerably greater pass contributes significantly uncertainty 86, 90, Unlike sense orderly predictable manner. private home, automobile. All expect highway surveillance regular expectable laws. average encloses small, recognizable community locus friendships, gossip, common effort, shared experience. anonymity driving highways; instead, co-workers recognize fellows. experience, enough forms legitimate, albeit modest, indiscriminately agents. Mancusi DeForte, 364, 368-369, 2120, 2123-2124, 1154 (1968) (employee space workers). employer consented onto property mean evaporates. 47 historical precedent kinds predictable. 560-561, 14, 3084, road supported history acceptance diminishes practices motorist. wholly unprecedented, novelty therefore expected engender high resentment anxiety. MartinezFuerte, quantum correspondingly 48 acceptable alternatives values context adopt develop program predictably reliably intrusive current scheme review. alternative satisfy Terry—a control exception present. second redesign used bring closely line require plant, administrative exist believing deportation, practical Camara Municipal 387 87 1727, 930 (1967). addition, tailored intrusive. III No doubts creates titanic proportions INS. agency afforded meeting delegated responsibilities. afraid, mesmerized magnitude easily freedoms sacrificed. Before discard commands troubling area, worth remembering difficulties faced partly making. methods are, product expedience prudent policy. Nationality Act establishes quota-based system regulating immigrants operate primarily borders. 1151-1153, 1221-1225. Harv.L.Rev., 1334-1369. With immigration, almost broken down. breakdown due part, patrolling 2,000-mile border; commit resources effort. Administration's Proposals Refugee Policy: Joint Hearing Subcommittee Refugees, Law House Committee Judiciary, Senate 97th Cong., 1st Sess., (1981) (statement Attorney General Smith); 1439. expressly exempts businesses sanctions, 1324(a), thereby adding already powerful incentives borders employment.8 51 face anomalous insist now unconstrained wide-ranging otherwise places employment to, submit, collapse unwilling employers share blame, must, matter expediency, visit burdens jury-rigged raids happen alongside aliens.9 American, recognized, Carroll 267 132, 154, 280, 285, L.Ed. 543 (1925), expects Nation's borders, until treatment country's interior. spawned expedient solutions fault guardian attend sensitivity pronouncing dead letter enforcement. problems, suggest, lie abandoning protecting cherished reexamining dissent. Herman Ramona Correa, Francisca worked Marie fourth respondent, Pleat. Both never claim, violated, violated. abuse denying certification. disposition claims, declined union's appeal raise members' claims. 645, 24. discussion oral argument, contest allege existence applied future. Allee Medrano, 416 802, 94 2191, 566 (1974). argument Respondents, premise infra, 221. assertion, difference took accessible public. warrant, questioning. considerations attending contacts apply here. incident October exit worker, presumably premises started. door tried pushed aside ran 125-126. An ambiguous, fails entitling Rizzo Goode, 423 362, 598, 561 (1976); cf. supra; Hague CIO, 307 496, 954, 83 1423 (1939). building load truck observe building. 98, 136. Neither depositions building, plants. notes, obtained owners entering plants Solicitor informs figure text refers 1977. whole, internal records accounted 1982 approximately 60% apprehended nonborder locations. Brief Petitioners 3-4, 3. 78 300. nine months 200 90 51. Population, 95th 2d Legal Illegal 2, 16-17 (Comm.Print 1978) (hereinafter Committee); 2578 (the 1974 million). Despite expenditures agencies despite crime irrationally continues permit hire Many actively recruit low-paid immigrant labor, encouraging—with tolerance 25. incongruity statutes calculated increase law. necessary refer inspection "seizure." 563-564, 3085-3086. overall needed choice dissent's post, 237-238, neglects unlimited approved dissent suggests certain unspecified improvements, constitutional. Post, 239. note impose 564-566, 3085-3086 changes "duration manner" address fully briefed sides. divided "border patrol" along functional equivalents "area control" turn (such maintaining major highways) correctly finds continuing moment exists completion interruption workplace. Having said emphasize factory-wide highly relevant 229-231. sufficiently coercive contend interviews labeled "custodial"; privilege self-incrimination Miranda Arizona, 384 436, 86 1602, 694 (1966). consider warn possible incriminating consequences Brignoni-Ponce: "Large small proportion aliens." 2583. field, accurately Spanish-speaking implausible discriminatory abuse. fundamental depend discretion, for, observed, "[w]hen . criteria, risk abusive exceeds tolerable limits." 2641, (1979). points out, 35-38, 287(a)(1) may, "interrogate States." 1357(a)(1). held, license unconstitutional methods. 272-273, 2539-2540. concern, (1975), open "may 9, 9. dangers exercise illegally. emphasized contrast stops, likely frighten motorists. "[m]otorists highways know elsewhere," "both appear 559, 3083. Commission Civil Rights, Tarnished Golden Door: Issues 90-91 (noting "[t]estimony received confusion pandemonium disrupting factory's decreasing production"). enormous combination Hearings Oversight Citizenship Sess. (1978); Policy, National Interest, Final Report 46, 61-62, 72-73 regard, views expressed WHITE's Ortiz, 891, 915, 2585, 2598, 623 particularly pertinent: "The [immigration enforcement] system, notably unsuccessful deterring stemming heavy [of immigration]; costs, added courts, substantial. Perhaps Judiciary strain accommodate requirements needs best effectiveness firms others problem, solve, essentially national Congress courts."

Category: 0