Document: 481 U.S. 412 107 S.Ct. 1831 95 L.Ed.2d 365 Edward Lunn TULL, Petitionerv.UNITED STATES. No. 85-1259. Argued Jan. 21, 1987. Decided April 28, Syllabus The Clean Water Act (Act) authorizes injunctive relief against violators (33 U.S.C. § 1319(b)) and subjects them to a civil penalty not exceed $10,000 per day (§ 1319(d)). After denying petitioner's timely demand for jury trial in the Government's suit under §§ 1319(b) 1319(d), District Court imposed penalties granted petitioner. of Appeals affirmed, rejecting argument that Seventh Amendment entitled him on claim. court held, inter alia, had exercised statutorily conferred equitable power assessing monetary penalties. Held: 1. guarantees determine liability actions by Government seeking Act. An examination nature such remedies sought demonstrates they are more analogous "Suits at common law" within meaning than cases traditionally tried courts equity. Pp. 417-425. (a) A 1319(d) is an action debt jurisdiction English law prior Amendment's enactment, therefore should be jury. sovereign abate public nuisance debatable but irrelevant purposes, since requires unheard law. Both could asserted seek injury numerous contexts. conclusion both appropriate analogies sufficient here, particularly light Court's characterization sought, infra. 418-421. (b) Unlike which relied provided equity courts, text legislative history demonstrate suits thereunder intended punish culpable individuals, thus yield type remedy only enforced contention similar disgorgement profits persuasive, latter restitution, limited form penalty. its injunction provides incidental without necessity also fails, may enforce penalties, knew when it filed would primarily because petitioner already sold most property issue. potential $23 million hardly considered "incidental" modest sought. Moreover, was free pursue claim independent By choosing combine them, preserved right legal all issues claims, cannot abridge characterizing as "incidental." 422-425. 2. does guarantee assess fact judges those violate Amendment, assessment said involve substance common-law to, nor fundamental element of, trial, necessary implicate Amendment. Congress has unquestioned fix delegate judges, where, highly discretionary calculations take into account multiple factors necessary. 425-427. 769 F.2d 182 (CA 4 1985), reversed remanded. BRENNAN, J., delivered opinion Court, REHNQUIST, C.J., WHITE, MARSHALL, BLACKMUN, POWELL, O'CONNOR, JJ., joined, Parts I II STEVENS SCALIA, joined. concurring part dissenting part, STEVENS, post, p. ----. Richard R. Nageotte, Woodbridge, Va., Lawrence G. Wallace, Washington, D.C., respondent. Justice BRENNAN Court. 1 question decision whether guaranteed amount instituted Federal Act, 62 Stat. 1155, amended, 33 1251 et seq. 2 * prohibits discharging, permit, dredged or fill material "navigable waters," including wetlands adjacent waters. 1311, 1344, 1362(7); CFR 323.2(a)(1)-(7) (1986). "Wetlands" "swamps, marshes, bogs areas." 323.2(c) sued petitioner, real estate developer, dumping island Chincoteague, Virginia. alleged original complaint dumped three sites: Ocean Breeze Mobile Homes Sites, Mire Pond Properties, Eel Creek. later amended allege placed manmade waterway, named Fowling Gut Extended, property.1 3 Section 1319 enumerates available Subsection temporary permanent injunctions. (d) certain sections "shall subject day" during period violation. this case When filed, however, almost issue been third parties. Injunctive impractical except with regard small portion land.2 App. 110, 119. demanded imposition maximum $22,890,000 subsection (d). 31-34. Petitioner's denied During 15-day bench did dispute he locations deny his failure obtain permit. Petitioner contended, constitute "wetlands." 615 F.Supp. 610, 615-618 (ED Va.1983). concedes triable were presented disputes between experts involving composition fillings. Tr. Oral Arg. 44. 5 concluded illegally filled wetland areas properties question, drastically reduced Government. With respect fine $35,000, noting seven lots profit $5,000 lot. F.Supp., 626. fined another $35,000 illegal fillings ibid., filling affected single lot Creek, although realized no from these properties. In addition, $250,000 suspended, "on specific condition restore extension former navigable condition. . ." Id. 627. Although argued restoration required purchasing land parties cost over $700,000, leaving choice pay fine, refused alter order. 107a-108a. separate relief: ordered portions Creek still owned 627, further removal five Home Sites unless "after-the-fact permit" validating Id., 6 affirmed dissent, that, trial. (CA4 1985). expressly declined follow Second Circuit United States v. J.B. Williams Co., 498 414 (1974), held there " 'right sues collect [statutory civil] penalty, even though statute silent trial.' F.2d, 422-423 (quoting J. Moore, Practice ¶ 38.-31[1], pp. 232-233 (2d ed. 1971)). found unpersuasive dictum Hepner States, 213 103, 115, 29 474, 479, 53 L.Ed. 720 (1909), Regan, 232 37, 46-47, 34 213, 216-217, 58 494 (1914), applies while Regan prescribed fixed amounts, present "statutorily determining fine." 187. noted fashioned 'package' remedies" containing "one package affecting others." Ibid. 7 Atlas Roofing Co. Occupational Safety Health Review Comm'n, 430 442, 449, n. 6, 97 1261, 1266, 51 464 (1977), we explicitly decide "correctly divines intent Amendment." To resolve conflict Circuits, certiorari. 476 1139, 106 2244, 90 691 We reverse. 8 "[i]n Suits law, where value controversy shall twenty dollars, preserved. ."3 construed language require merits law." Prior adoption, customary brought courts. contrast, 18th-century admiralty do See Parsons Bedford, Pet. 433 (1830). This analysis forms action, causes created congressional enactment. Curtis Loether, 415 189, 193, 94 1005, 1007, 39 260 (1974). 9 statutory admiralty, must examine First, compare England merger See, e.g., Pernell Southall Realty, 416 363, 378, 1723, 1731, 40 198 (1974); Dairy Queen, Inc. Wood, 369 469, 477, 82 894, 899, 44 (1962). Second, nature. supra, U.S., 196, S.Ct., 1009; Ross Bernhard, 396 531, 542, 733, 740, 24 729 (1970).4 10 analogizes enactment particular species Atcheson Everitt, Cowper 382, 98 Eng.Rep. 1142 (K.B.1776) (characterizing debt); Calcraft Gibbs, T.R. 19, 101 11 (K.B.1792) (granting new penalty). adoption federal followed treating debt, requiring Mundell, 27 F.Cas. 23 (No. 15,834) (CC Va.1795) (bail Jacob 13 267 7,157) Va.1821) (action recover $500 costs violation Congress); Lees 150 476, 14 163, 164, 37 1150 (1893) ("[A]lthough recovery proceeding criminal nature, yet class same manner debts recovered ordinary courts"). Actions provisions historically have viewed one 12 It historical background propriety directed verdict Judge favor undisputed evidence defendant committed offense Alien Immigration 1903, $1,000 permissible defendant's said: "The objection made behalf defendant, affirmative answer certified used so destroy constitutional jury, merit need discussed. was, course, summoned case, condition, conduct actions, withdraw direct verdict, according if uncontradicted raises 479 (emphasis added). assumed actions. upheld validity instruction 1907. stated proof beyond reasonable doubt incorrect because: 15 "While before arise Article III Constitution Sixth relate prosecutions strictly their derives out dollars demandable." 47, 216 (citation omitted). 16 instant $22 obtained judgment sum $325,000. clearly rightly 17 argues, that—rather debt—the closer analog nuisance. "an act omission 'which obstructs inconvenience damage exercise rights Her Majesty's subjects.' W. Prosser, Law Torts 583 (4th 1971) (hereinafter Prosser) (footnote argues two nuisances. One "purpresture" enjoin order repair enclosure obstruction waterways; other "offensive trades manufactures" polluted environment. Blackstone, Commentaries *167. 18 true matter suit—the placement waters—resembles Whether, better analogy debatable. But question. As 375, 1729, cautioned, modern close equivalents "is purposes," "that suffices conclude action. 19 essential function provide means redress "a miscellaneous diversified group minor offenses, based some interference interests community, comfort convenience general public." Prosser 583.5 Similarly, money owed variety statutes then, 20 rest our what called "abstruse historical" search nearest analog. 538, 10, 738, 10. reiterate previously expressed view "[m]ore important" finding precisely cause 1009.6 B 21 Remedies opposed simply extract compensation status quo, issued 197, 1009 (punitive damages legal, equitable, relief); 536, 737 (treble-damages securities constitutes relief).7 authorized character. "civil penalty" calculated solely basis determinations, gained violations statute, imposes reveals wanted district consider retribution deterrence, addition 123 Cong.Rec. 39191 (1977) (remarks Sen. Muskie citing Environmental Protection Agency (EPA) memorandum outlining enforcement policy).8 can wrongful seriousness violations, number lack good-faith efforts comply relevant requirements. deter future basing economic impact. 1319(d)'s authorization punishment deterrence evidences reflects concern relief. instance, acknowledged received fine. Cert. 60a. Thus, disgorge impose punishment. Because demand. 22 punitive apparent comparison classic example kind 603. "Injunctive [for enjoining request Government] given upon showing [peril health safety]." Steelworkers 361 39, 61, 80 1, 186, (1959) (Frankfurter, concurring). Government, fact, relief, Brief 24, 17. Indeed, James, Right Jury Trial Civil Actions, 72 Yale L.J. 655, 672 (1963). contends, enforcing improper profits, remedy. bases determined multiplying earned 27. is, poor analogy. Such restitution—a Restitution "restoring quo ordering return rightfully belongs purchaser tenant." Porter Warner Holding 328 395, 402, 66 1086, 1091, 1332 (1946). above discussion indicates, concerns quo. next contends deemed character, required. empowered awards intertwined 1319(b), 38. least flaws. award restitution adjunct 399, 1089. aware case. 25 Finally, intertwine Instead each separably distinct provision. (b), providing (d), situation, "legal joined claim, remains intact. abridged 'incidental' sought." 11, 1009, 11. claims. 26 remaining additionally At time tried, state juries 1977 Amendments shows, perform after found. 39190-39191 letter EPA Assistant Administrators Enforcement Dec. 14, 1977) ("[P]enalties assessed sufficiently higher agreed settlement encourage settle"). can, consistent authorize liability.9 depend shoulder responsibility preserve "substance jury." Colgrove Battin, 413 149, 157, 93 2448, 2452, 522 (1973). Is role purpose? think so. 'Only incidents regarded fundamental, inherent essence system reach legislature.' 156, Scott, Reform Procedure, 31 Harv.L.Rev. 669, 671 (1918)). Galloway 319 372, 392, 63 1077, 1088, 87 1458 (1943) ("[T]he designed basic institution elements"). "most elements." Congress' authority questioned, British practice, see, (K.B.1776). usually seeks Congress. 40, 213; 109, 477. jury," "fundamental trial." 28 assignment determination infringe Since itself judges. set These kinds performed Albemarle Paper Moody, 422 405, 442-443, 2362, 2384-2385, 45 280 (1975) (REHNQUIST, hold purpose IV liability, any. reversed, remanded proceedings opinion. 30 ordered. whom joins, part. 32 join disposition, Part my unspecified assessable involves be. Legislature elect nothing whether, chooses so, comes jury-trial guarantee. could, suppose, create private individual damages, surely creates prescribing taken While purporting base (quite correctly) adjudication never encountered. recall precedent court. Even fashion. course tempted make exception like this, imposing noncompensatory regulatory authority, immediately mind sentencing judge proceeding. If trials model, standard guilt doubt. Having chosen proceed fashion, advantages mode entails, seems me bitter sweet. Since, correctly reasons, proper analogue civil-fine prove preponderance evidence; must, any accept own officials citizens. tends discourage Founding Fathers upset. reverse remand issues. Additionally, Extended violated Rivers Harbors waters Secretary Army. 403. prosecution square feet land. relating 6,000 feet. 5. Before initiating inquiry applicability "[w]e recognize, 'cardinal principle will first ascertain construction fairly possible [constitutional] avoided.' 192, (1974) omitted); see 365, 1724, Nothing implies grant defendants phase proceedings. Given silence, presented. practical limitations functional compatibility outside traditional holding applicable administrative 454, 1268, (1977); 383, 1733. considerations extending Public nuisances included "interferences health, hogpen, keeping diseased animals, malarial pond; safety, storage explosives, shooting fireworks streets, harboring vicious dog, practice medicine qualified; morals, houses prostitution, liquor establishments, gambling houses, indecent exhibitions, bullfights, unlicensed prize fights, profanity; publice [sic ] peace, loud disturbing noises, opera performance threatens riot; comfort, bad odors, smoke, dust vibration; convenience, obstructing highway stream, creating makes travel unsafe disagreeable, collection inconvenient crowd; unclassified offenses eavesdropping being scold." 583-585 (footnotes attaches. divides remedy, analyzes component irrelevant. proposes reject novel approach. Our analog, taking consideration important factors. 1729; 195-196, 1008-1009. distinguishes here readily calculable formula. find distinction significant. characteristic exacts punishment—a 189-190, 1005-1006 (defendant authorizing actual $1,000). enacted amendments endorsed EPA's then-existing calculation policy. Muskie). policy developed guide negotiators reaching settlements instructed factors: benefits accrued requirements, impact heard along "such matters justice require." 313(d), Quality 1987, Pub.L. 100-4, 47. suggests extends Instead, "defines preserved, namely 'suits law.' 152, 2450, '[w]e concerning intention framers seventh amendment itself,' setting adopted highlighted generated fear abolished." ibid. citation Framers meant extend

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