Document: 494 U.S. 111 110 S.Ct. 1293 108 L.Ed.2d 98 State of TEXAS, plaintiff,v. NEW MEXICO. No. 65, Original. Supreme Court the United States February 26, 1990 ON BILL OF COMPLAINT Based upon recommendation Special Master, Joint Motion for Entry Stipulated Judgment (Joint Motion) is granted, and hereby enters judgment as follows: STIPULATED JUDGMENT 1. On or before March 1, 1990, New Mexico shall pay Texas $14 million, to be disbursed by in accordance with Exhibit B which herein reproduced, either delivering a check draft that amount made payable transferring electronic wire transfer. 2. releases from all claims equitable legal relief, other than relief embodied 28, 1988, Amended Decree actions thereunder, arising out Mexico's breaches Pecos River Compact years 1952 through 1986, plus attorney's fees costs incurred prior August 10, 1989. 3. Nothing affects Court's thereunder. EXHIBIT deposit $13.8 million Water Assistance Fund 480 Development Board (Board), created pursuant Chapter 15 Code, used agricultural irrigation projects (including associated water quality improvement projects) any necessary studies counties Loving, Ward, Reeves, Pecos. In funding such studies, give preference affecting surface irrigators Red [112] Bluff Power Control District four designated counties, if appropriate. The remaining $200,000 may treated Attorney General investigative costs; provided, however, agree use settlement funds this manner does not constitute, construed as, an admission, express implicit, has liability Texas' litigation. Zinermon v. Burch [110SCt975,494US113,108LEd2d100] 975 113 100 Marlus C. ZINERMON, et al., Petitioners Darrell E. BURCH. 87-1965. Argued Oct. 11, Decided Feb. 27, 1990. Syllabus Respondent Burch, while allegedly medicated disoriented, signed forms requesting admission to, treatment at, Florida state mental hospital, apparent compliance statutory requirements "voluntary" facilities. After his release, he brought suit under 42 U.S.C. § 1983 against, inter alios, petitioners—physicians, administrators, staff members at hospital—on ground they had deprived him liberty without due process law. complaint alleged violated law admitting voluntary patient when knew should have known was incompetent informed consent their failure initiate Florida's involuntary placement procedure denied constitutionally guaranteed procedural safeguards. court granted petitioners' motion dismiss Federal Rule Civil Procedure 12(b)(6), relying on Parratt Taylor, 451 527, 101 1908, 68 420, Hudson Palmer, 468 517, 104 3194, 82 393, held deprivation protected property interest caused employee's random, unauthorized conduct rise claim unless fails provide postdeprivation remedy. pointed did contend State's inadequate ensure process, but only petitioners failed follow procedure. Since could anticipated prevented Burch's liberty, reasoned, there no feasible predeprivation remedy, tort remedies provided him. Appeals reversed remanded. Held: sufficient violation rights. While apply deprivations do preclude claim, because safeguards might been value preventing valid hearing. Such unpredictable. It foreseeable persons incapable consent, officials power admit patients take willingness admitted face value. And will occur, all, predictable point admissions given sign. Nor impossible here. placement, hospital position notice misuse proper procedures are afforded both those who unwilling unable consent. addition, "unauthorized" within meaning Hudson, since delegated them authority deprive concomitant duty set up guard against unlawful confinement. Pp. 124-139. 840 F.2d 797 (CA11 1988), affirmed. BLACKMUN, J., delivered opinion Court, BRENNAN, WHITE, MARSHALL, STEVENS, JJ., joined. O'CONNOR, filed dissenting opinion, REHNQUIST, C.J., SCALIA KENNEDY, joined, post, p. 139. Louis F. Hubener, III, Daytona Beach, Fla., petitioners. Richard M. Powers, Tallahassee, respondent. Justice BLACKMUN Court. 1 * (1982 ed.)1 11 petitioners, physicians, Hospital (FSH) Chattahoochee, others. alleges law, FSH admission. contends case required Constitution commitment mentally ill person, so 2 argue because, view, it statutes governing patients. Their argument rests 420 (1981) (overruled part relevant here, Daniels Williams, 474 327, 330-331, 106 662, 88 (1986)), 517 393 (1984), where adequate two cases reasoned situation cannot predict advance deprivation, remedy can expected provide, sufficient. 3 file answer complaint. They moved, instead, dismissal 12(b)(6) Rules Procedure. motion, pointing health and, 4 appeal, Eleventh Circuit panel affirmed dismissal; it, too, relied Hudson. Apalachee Community Mental Health Services, Inc., 804 1549 (1986). Appeals, its own ordered rehearing en banc. 812 1339 (1987). rehearing, remanded case. (1988). challenge constitutional adequacy procedure, assumed constituted due. Id., 801, n. 8. A plurality concluded remedies. F.2d, 801-802. letting determine whether Petitioners, plurality's were acting State, hearing, so, itself so. Five judges dissented controlled 810-814. 5 This certiorari resolve conflict—so evident divided views arisen Courts over scope rule.2 489 1064, 109 1337, 103 807 (1989). Because concerns propriety dismissal, question us narrow one. We decide rule necessarily means allege entitled nothing more what received—an opportunity sue broader questions Due Process Clause requires context meet these requirements, presented frame action statutes. Both brief disavowed themselves restricted contention rights.3 II A. 6 For purposes review factual allegations taken true. complaint, medical records attached exhibits, following background: 7 December 7, 1981, found wandering along highway, appearing hurt disoriented. He Services (ACMHS) Tallahassee.4 ACMHS private care facility receive suffering illness.5 Its evaluation stated that, arrival ACMHS, hallucinating, confused psychotic believed "in heaven." B-1 Complaint. His chest bruised bloodied, suggesting fallen attacked. asked sign giving treatment. remained three days, during time facility's diagnosed condition paranoid schizophrenia gave psychotropic medication. need longer-term stabilization," B-2 Complaint, referred FSH, public owned operated facility.6 Later day, authorizing FSH. Exhibits C-1 C-2 then county sheriff. 8 Upon One form, "Request Voluntary Admission," recited requests "observation, diagnosis, [my] condition," patient, admitted, agrees "to accept prescribed psychiatric provisions expressed consent." E-1 Two Janet V. Potter Marjorie R. Parker, form witnesses. accredited technician; Parker's job title appear form. 9 23, "Authorization Treatment." authorized "the professional [FSH] administer treatment, except electroconvulsive treatment"; purpose treatment; common side effects thereof; alternative modalities; approximate length care"; revoke read fully understood Authorization. E-5 Petitioner Zinermon, physician witness. 10 Doctor wrote "progress note" indicating "refusing cooperate," would questions, "appears distressed confused," "related medication helpful." F-8 nursing assessment dated reason hospitalization still "[t]his F-3 F-4 29 further report condition, stating "disoriented, semimute, bizarre appearance thought," "not cooperative initial interview," "extremely psychotic, appeared hallucinating." doctor's also delusional, psychotic. F-5 until May 1982, five months after ACMHS. During time, hearing regarding 12 complained inappropriately FHS remember signing reached Human Rights Advocacy Committee Department Rehabilitation (Committee).7 investigated replied letter April 4, 1984. fact "documentation you heavily disoriented . probably competent documents." G meeting 1983, "hospital administration aware very likely asking clients make decisions competent." Ibid. 13 1985, Northern Florida. alleged, among things, individual color "by respective positions employees regular official employment took Plaintiff 'voluntary' patient." App. Pet. Cert. 200.8 Specifically, alleged: 14 "Defendants, each them, voluntary, knowing, understanding See hereto incorporated herein.9 Nonetheless, Defendants, seized Plaintiff's confined imprisoned subjected period 1982. said 149 benefit counsel sort challenged ". contravention Fourteenth Amendment Constitution. Defendants acted willful, wanton reckless disregard indifference Constitutionally right law." 201-202. 16 thus detained These comprehensive scheme person several different ways.10 17 First, provides short-term emergency If believe injure himself others" "need lacks capacity responsible application behalf," immediately 48 hours. Fla.Stat. 394.463(1)(a) (1981). professional, enforcement officer, judge effect hours, released "voluntarily gives treatment," proceeding court-ordered initiated. 394.463(1)(d). 18 Second, order days evaluation, which, result neglect refusal poses real present threat substantial harm well-being." 394.463(2)(a). Anyone petition criteria. "express consent" proceedings 394.463(2)(e). 19 Third, meets same criteria administrator professionals recommend placement. §§ 394.467(1) (2). Before notice, judicial appointed counsel, access personnel, independent expert examination. 394.467(3). determines decides not, appoints guardian advocate decisions. 394.467(3)(a). six months, must release seek continued reasons therefor, summarizing patient's point, submitting plan future 394.467(3) (4). 20 Finally, patient. hospitals adult "making consent," "found show evidence illness suitable treatment." 394.465(1)(a). "Express defined "consent voluntarily writing explanation disclosure enable knowing willful decision element force, fraud, deceit, duress, constraint coercion." 394.455(22). request discharge time. does, process. 394.465(2)(a). At thereafter, representatives notified discharge. 394.465(3). 21 394.465(1), applying alleges, statute making anin formed rights failing suffice light III 22 To understand background arises, we return interpretation articulated Monroe Pape, 365 167, 81 473, 492 (1961) Monell York City Dept. Social 436 658, 664-689, 2018, 56 611 (1978)). Monroe, rejected view applies violations reach abuses forbidden torts explained intended "override" discriminatory otherwise unconstitutional laws, civil "where inadequate," federal though theory, available practice." U.S., 173-174, S.Ct., 476-77. said: 23 "It enforced relief. supplementary latter first sought refused one invoked." 183, 481. 24 Thus, overlapping generally irrelevant existence cause 1983. plaintiff, example, bring search seizure despite statutes, common-law trespass conversion. As noted many "no quarrel laws books," id., 176, 478; problem way implemented officials. 25 general straightforward kinds Amendment. incorporates specific protections Bill Rights. plaintiff officials' e.g., freedom speech unreasonable searches seizures. contains substantive component bars certain arbitrary, wrongful government "regardless fairness implement them." 331, 664. types claims, actionable complete taken. 338, 678 (STEVENS, concurring judgments). invoke regardless state-tort compensate 26 encompasses third type protection, guarantee fair here special sense. "life, property" unconstitutional; Parratt, 537, 1913; Carey Piphus, 435 247, 259, 1042, 1050, 55 252 (1978) ("Procedural rules meant protect mistaken unjustified life, property").11 occurs; Therefore, occurred, ask adequate. inquiry examine built into administrative effecting erroneous 27 case, confinement guarantees Rights.12 include issue raised certiorari, facts claim.13 falls third, procedural, category based Clause. 28 often said, flexible concept varies particular situation. weigh factors: "First, affected action; second, risk used, probable value, any, additional substitute safeguards; finally, Government's interest, including function involved fiscal burdens requirement entail." Mathews Eldridge, 424 319, 335, 96 893, 903, 47 (1976). 30 Applying test, usually some kind deprives property. See, Cleveland Education Loudermill, 470 532, 542, 105 1487, 1493, 84 (1985) (" '[T]he root requirement' Clause" " 'that significant interest' "; termination (emphasis original)); Parham J.R., 442 584, 606-607, 99 2493, 2506, 61 (1979) (determination neutral standard met child hospital); Memphis Light, Gas & Div. Craft, 18, 1554, 1564, (hearing cutting off utility service); Goss Lopez, 419 565, 579, 95 729, 738, 725 (1975) (at minimum, "some hearing" original); informal suspension students school); Wolff McDonnell, 418 539, 557-558, 94 2963, 2975, 41 935 (1974) forfeiture prisoner's good-time credits); Fuentes Shevin, 407 67, 80-84, 92 1994-96, 32 556 (1972) issuance writ allowing repossession property); Goldberg Kelly, 397 254, 264, 90 1011, 1018, 287 (1970) welfare benefits). 31 circumstances, provision satisfies Logan Zimmerman Brush Co., 455 422, 436, 102 1148, 1158, 71 265 (1982) necessity quick impracticality providing process' mean adequate, quoting 1913); 19, 1565 ("[W]here potential severity indicate likelihood serious loss sufficiently reliable minimize determination," required); Ingraham Wright, 430 651, 682, 97 1401, 1418, 51 711 (1977) corporal punishment junior high school students); Mitchell W.T. Grant 416 600, 619-620, 1895, 1906, 40 406 sequester debtor's property). comes play. represent Eldridge analysis, due, simply provide. prisoner prison negligently lost materials mail.14 dispute Under tort-claim recovered materials. 543-544, 1916-17. ruled address deprivation. nature negligent explained: 33 "The justifications uphold takings applicable involving tortious random act employee. established precisely occur. difficult conceive how meaningful takes place." 541, 1916. 34 Given clear adequately redress loss, exception balancing rather test unusual variables equation—the safeguards—is negligible issue. matter stake see Mathews, 35 extended reasoning intentional cell, deliberately maliciously destroyed property, papers. Again, compensated. 534-535, 3204. but, apparently pursuing personal vendetta prisoner. 521, 2, 3197, 3203. out: anticipate control similar conduct." 533, Of course, guard's "foresee" prevent refraining misconduct. ability foresee "of consequence," "whether process." 534 3204 added). C 36 possibly "random, unauthorized" due.15 37 turning issue, threshold Burch. argues situation, limited liberty.16 38 avoiding consent17 seriously hospital. Vitek Jones, 445 480, 491-492, 1254, 1263, 63 552 (1980) (commitment entails 'a massive curtailment liberty,' protection); 2503 (there "substantial being unnecessarily treatment"); Addington Texas, 441 418, 425, 1804, 1808, 60 323 ("[C]ivil constitutes protection"); Jackson Indiana, 715, 1845, 1858, (due least duration "bear reasonable relation purpose" commitment). validly consented clearly infringes interest. 39 never opposed We, find support precedent categorical distinction between Lynch Household Finance Corp., 405 538, 552, 1113, 1121, ("[T]he dichotomy liberties false one"); Wolff, 2975 (a final interests, "a person's equally protected"). itself, 1916, analysis "quite consistent approach taken" (1977), true concerned months' inmate Parratt's mail-order valued $23.50. But emphasizes inability unpredictable losses stake. situations feasibly taking taking. 1493; 1564; Fuentes, 1994-96; Goldberg, 1018. Conversely, unduly burdensome proportion stake, Ingraham, truly satisfy automatically rule. whether, contend, precludes alleges. this, involved. come facilities willing Indeed, makes needing proffered "explanation subject matter" sign, decision" admission.18 394.455(22) (definition consent). is, token, unlikely danger indefinitely specifically designed looking interests. 394.467(2) (3) (providing examination expert, appointment advocate, etc.). Persons others, threatens well-being. 394.467(1)(b). serves who, ill, harmless live safely outside institution. Confinement violates unconstitutional. O'Connor Donaldson, 422 563, 575, 2486, 45 396 basis confining involuntarily "if dangerous freedom"). possible Moreover, even assuming harmed periodic (4).19 43 risks informed-consent borne appears exhibits accompanying clerical workers, signed, considered allegation supported, petitioner psychiatrist's notes, described above, state. certainly 44 now consider guarding suffered. urge errors disagree. allow direct member nor every protest demand followed. 46 chose delegate broad i.e., what, absence liberty. imposed occur protections. permissible like Florida's, little guidance fail whom escape invoking immaterial best comply patients, neither challenging facial procedures, laws. attempting blame misconduct employees. seeks hold accountable abuse broadly delegated, uncircumscribed therefore, basic reasons: 49 scheme, There specified determining, forms, competent. hardly unforeseeable procedures. Any specific, process—when 50 differs predicament Parratt. occasionally lose negligence, "cannot occur." Likewise, able guards harass persecute prisoners dislike, "know say already voluntarily, 52 "impossible." good telling mail mistake, "borders absurd suggest corrections officer engage Daniels, 342, 680, errant employee conduct. 533-534, 3203-04. forbidding destroy done good; 53 Here, contrast, guided averted. "knew known" incompetent, nonetheless "willful, wanton, disregard" Understood context, disregarded followed, they, bent indeed strange futile subvert them. 54 characterize sense term (for interests) sanctioned "depriv[ation] official's position." 172, 476.20 conclude characterizing avert, damages according charged foreseeable, illness, Unlike instance alleged. ultimate merits claim; 57 58 ordered. 59 THE CHIEF JUSTICE, SCALIA, KENNEDY join, dissenting. Without doubt, respondent liberty; yet concludes actors' departure policies working suffices post-deprivation transforms well-established doctrine departs controlling precedent. I respectfully dissent. (1981), govern Only disregarding gist complaint—that practice worked deprivation—and transforming attempt distinguish occasioned allows employed "application admission," elaborate requiring 394.465, 394.467 explicitly disavows avenues hospitals. Brief committed appeal"); ("Burch attacking validity procedures"). widespread subverting instead wrongfully recklessly deny actors position. "with to" "subjected commitment" "at 200-202 (complaint); i, ("The intentional, ."). Consistent disavowal attack flagrantly contravened requirements. short, 62 readily respondent's. Taken together, departures unimpugned addressed "occurred agents procedure." 543, actor's "practicable hearing," ibid., system applied confirmed "an procedure" "random action." 532-533, 3203; cf. 435-436, 1157-58, (1982). know property," "[t]he solely 534, Application indicates recovery ed.). Petitioners' unauthorized: wrongly license departed practices. Cf. supra, establish commanded consenting unconsenting Yet commands. random. process," 3204, resulting practice, remedies, courts below concluded, dispute. 64 subversion underscores why meaningfully suggests "that Ante, 136. foreseeability routine difficulty evaluating prospective considering forestall deliberate practice. implicated remedial scheme. occur," require appropriate 65 attempts avert force failures According suffered "erroneous deprivation," ante, 136, "risk alleges" "persons forms," 133, prompting "mak[e] 135. characterization omits mind source 66 negligence 662 (1986), unresolved gross recklessness suffices, 334, 3, 666, Respondent, avoids pitfalls. "knew" incompetence knowledge. 201. Far alleging inadvertent duty, "acted indifference" treating requires. 202. That bumble commit "errors" "apparent value." 135, Rather, subverted 67 character "impracticable" underlying rationale effected employee, 'impracticable' surrounding quite reduced 135-137. conflates error repeated usual (evaluated forth (1976)) departing from, indifferent complying Unsurprisingly, vague merely willfully, recklessly, wantonly subvert. clearest incompetence, actor handler cases, have, doubt did, range guiding packages. 530, 1910; occurred unpredictable, beyond control. Additional secure correct results practicably flout command Even indulging belief "some" benefit, extend circumstances "negligible" 129. measures conceivably deprivations. barring unsupervised shakedown searches, always pairing monitoring guards, conducted policy" (the proposed measure unnecessary 528-530, 3201-02) helped More sensible staffing practices, better training, rigorous tracking averted one, exact possibility implementing marginally beneficial measures, alter analysis. renders dictates 69 Every imparts exercise discretion accord affords discretion. constrained abuse. possessed power. 135-138. depart exceed limits authority, withhold misdeliver mail. akin handler's delivery packages, properly. seizing search. packages prisoners. sharply acts 1916; accord, Logan, 1157-58. e delegation blurs line ignores 70 suggestion insufficiently trammeled conflicts ostensibly embraces. undue bound with, properly analyzed aspect safeguards, purports it. 117, 135-136; infra, 150-151. By attributable 135-136, abandons "Burch procedure," Hudson' formulating policy, Neither passing reflections argument. states conclusion combined inadequate, repudiates focus formulate extent exists whenever appropriate, 768.28(1) (partial waiver immunity, suits); 394.459(13) "[a]ny privileges patients" Act). argument, "we here," revives rebuffed "because agent intends so." (internal quotation omitted). advance" abandoning embraces "fundamental misunderstanding Parratt." Each distinctions essential doctrines, together disavow cases' central insights holdings. 72 reliance inappropriate creates enormous line-drawing problems. Today's "little guidance" "broadly power" undefined breadth channel become liable misapplications. When circumscribed, arises. fraught deprivation." carries pervasive govern. essence, loosely fashioning effective ensuring routinely evaded. roundabout way, unexceptional unasserted otherwise, appropriately test. 73 undermines delicately related (1976), acknowledges, fundamental 127. Until today, largely determined amounting violation. familiar three-part (considering efficacy governmental State. 903. reflects carefully crafted accommodation conflicting weighed evaluated drew unchallenged doctrines work tandem. well event define 74 today discovers realm Now, parts. place border dividing duties marks vast terra incognita unknowable expansive dimension. told, obligation avoid circumscribed regard directly challenged, burden demonstrate powers. Despite affirming unclear remains longer complement principles contained Mathews. dis placed delegates ways. man's land" boundaries. almost requires, deduced, imposes nearly conceivable left implication exists, dimension found. much our warned result, gone 'make font superimposed whatever systems administered States.' 544, 1917 (quoting Paul Davis, 693, 701, 1155, 1160, (1976)). 75 particularly resolution subsequent traditional declaring, decided otherwise. Yet, acknowledge crafts doctrinal innovations. 76 Understandably reluctant grapple framing less understandably pleading creating innovation disrupts "Burch's laws." supports, today's unwarranted departure. 77 believes flaw. omission involves determination competence course signals suggested greatly burdensome. raise issues adopting evaluate accommodate concerns. Washington Harper, 210, 228-235, 1028, 1040-1044, 178 (1990) (applying antipsychotic drugs prisoners). holds beliefs perhaps yielded favoring approach, explicit, strained reading respondent's arguments, far preferable adopts. Ordinarily, action, novel 78 Section reads: "Every statute, ordinance, regulation, custom, usage, subjects, causes subjected, citizen rights, privileges, immunities secured party injured ." Several inapplicable defendant state-clothed Watts Burkhart, 854 839, 843 (CA6 1988); Wilson Clayton, 839 375, 382 (CA7 Fetner Roanoke, 813 1183, 1185-1186 1987); Freeman Blair, 793 166, 177 (CA8 1986); Patterson Coughlin, 761 886, 891-893 (CA2 1985), cert. denied, 1100, 879, 916 (1986); Bretz Kelman, 773 1026, 1031 (CA9 1985) (en banc); Wolfenbarger 774 358, 363-365 (CA10 1985). Other Vinson Campbell County Fiscal 820 194, 199 Holloway Walker, 784 1287, 1292-1293 (CA5 Yates Jamison, 782 1182, 1185 (CA4 Wadhams Procunier, 772 75, 77-78 1985); Toney-El Franzen, 777 1224, 1227-1228 Collins King, 743 248, 254 1984). Compare McRorie Shimoda, 795 780, 786 1986), Conway Mount Kisco, 758 46, Beebe, 770 578, 584 banc), 1227, Thibodeaux Bordelon, 740 329, 337-339 Inasmuch (1982), controlling. 'established procedure' destroys entitlement safeguards." 1158. concedes strictly complied allowed all. patients—those ACHMS named certiorari. 394.461(1) Rehabilitative "designate community receiving emergency, evaluation." 394.457(8) 394.455(8). 20.19(6)(b)2 (creating statewide eight citizens, "[r]eceiving, investigating, resolving reports human rights" concerning care). "respective roles evidenced admissions-related documents" 200. documents request-for-admission authorization-of-treatment forms. 1984, Committee. specially exhibit served custom eliciting 797, 808 rely sufficed claim. describe existed 1980-1981, amended details purposes. Piphus presence 266, 1053 (even justified, plaintiffs suffer "other actual injury" lack process"). went say, anyway, injury (such emotional distress), recover nominal damages. 1052, 1053. Fourth 807-808. pursued 803-804. remainder banc (Clark, concurring), had, inherently arbitrary constitute 809 (Anderson, specially); 815-817 (dissenting judges). ruled, 336, 667, liability. unlawfully ("Any damages, good-faith immunity negligence). Also, facility, behalf, habeas corpus "question legality detention release." 394.459(10)(a). recognizes imprisonment. Johnson Weiner, 155 Fla. 169, So.2d 699 (1944). Some supra. requested. competent, legally meaningless. characteristics create problems justified doing inquiry, Hence, awardable unaccompanied injury, 266-267, 1053-54, (1978), followed confined, anyway way. Contrary dissent's stand proposition "unauthorized practices," 146, detaches role applications settled

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