Document: 514 U.S. 725115 S.Ct. 1776131 L.Ed.2d 801 CITY OF EDMONDS, Petitionerv.OXFORD HOUSE, INC., et al. No. 94-23. Supreme Court of the United States Argued March 1, 1995. Decided May 15, Syllabus * Respondent Oxford House operates a group home in Edmonds, Washington, for 10 to 12 adults recovering from alcoholism and drug addiction neighborhood zoned single-family residences. Petitioner City Edmonds issued citations owner resident house, charging violation City's zoning code. The code provides that occupants dwelling units must compose "family," defines family as "persons [without regard number] related by genetics, adoption, or marriage, five fewer [unrelated] persons." Community Development Code (ECDC) § 21.30.010. asserted reliance on Fair Housing Act (FHA), which prohibits discrimination housing against, inter alios, persons with handicaps. Discrimination covered FHA includes "a refusal make reasonable accommodations rules, policies, practices services, when such may be necessary afford [handicapped] person[s] equal opportunity use enjoy dwelling." 42 U.S.C. 3604(f)(3)(B). subsequently sued federal court, seeking declaration does not constrain definition rule. counterclaimed under FHA, failure "reasonable accommodation" permitting maintenance zone. filed separate action same FHA-"reasonable ground, cases were consolidated. District held rule defining ECDC 21.30.010, is exempt 3607(b)(1) . restrictio[n] regarding maximum number permitted occupy Appeals reversed, holding 3607(b)(1)'s absolute exemption inapplicable. Held: Edmonds' term "family" occupancy restriction 3607(b)(1). Pp. __. (a) Congress enacted against backdrop an evident distinction between municipal land restrictions restrictions. Land designate districts—e.g., commercial residential —in only compatible uses are allowed incompatible excluded. Reserving residences preserves character neighborhoods communities. To limit residences, municipality define "family"; thus composition rules essential component Maximum restrictions, contradistinction, cap per dwelling, typically basis available floor space rooms. Their purpose protect health safety preventing overcrowding. Section language "restrictions dwelling"—surely encompasses fit tied (b) provisions invoked House, §§ 16.20.010 classic examples complementing These do people who live dwelling: So long they "genetics, marriage," any can house. A provision—§ 19.10.000 —caps based area, prototypical restriction. In short, rule, describes living, living occupant. Defining primarily biological legal relationships, also accommodates another association: unrelated together though family. But this accommodation cannot convert values preserver into contention subjecting scrutiny will overturn Euclidian destroy effectiveness both ignores limited scope issue before exaggerates force FHA's antidiscrimination provisions, require "reasonable" accommodations. Since threshold question presented case, it remains lower courts decide whether actions violate prohibitions discrimination. 18 F.3d 802 (CA9 1994), affirmed. GINSBURG, J., delivered opinion Court, REHNQUIST, C.J., STEVENS, O'CONNOR, SOUTER, BREYER, JJ., joined. THOMAS, dissenting opinion, SCALIA KENNEDY, W. Scott Snyder, petitioner. William F. Sheehan, private respondents. Paul Bender, respondent. Justice GINSBURG Court. 1 (FHA Act) handicaps.1 entirely exempts compass "any local, State, Federal This case presents provision petitioner qualifies complete scrutiny. provision, governing areas units, 21.30.010 (1991). 2 at unit; prescribe "the occupants" unit We hold prescriptions family-defining kind, i.e., designed foster neighborhood. Instead, removes total limits, numerical ceilings serve prevent overcrowding quarters. 3 summer 1990, respondent opened Washington addiction. home, called House-Edmonds, located Upon learning had leased was operating criminal charged units. family, "means individual two more marriage." House-Edmonds houses than persons, therefore conform 4 Act, 102 Stat. 1619, 3601 seq., declares unlawful "[t]o discriminate sale rental, otherwise unavailable deny, buyer renter because handicap renter." 3604(f)(1)(A). parties have stipulated, purposes litigation, residents "are alcoholics addicts handicapped within meaning" Act. App. 106. 5 practices, asked allowing remain leased. Group homes substance abusers, urged, need 8 financially therapeutically viable. declined permit stay zone, but passed ordinance listing multifamily general zones. 6 Western suspended its enforcement pending resolution litigation. 7 On cross-motions summary judgment, Pet. Cert. B-7. Ninth Circuit reversed; inapplicable, remanded further consideration claims States. v. State Building Council, (1994). Circuit's decision conflicts Eleventh declaring similar prescription. See Elliott Athens, 960 F.2d 975 (1992).2 granted certiorari resolve conflict, 513 ----, 115 417, 130 332 (1994), we now affirm judgment.3 II 9 sole "restrictio[n] dwelling" meaning exemption. 3607(b)(1).4 answering question, mindful Act's stated policy "to provide, constitutional limitations, fair throughout States." 3601. note precedent recognizing "broad inclusive" compass, according "generous construction" complaint-filing provision. Trafficante Metropolitan Life Ins. Co., 409 205, 209, 212, 93 364, 366-367, 368, 34 415 (1972). Accordingly, instance exception statement policy" sensibly read "narrowly order preserve primary operation [policy]." Commissioner Clark, 489 726, 739, 109 1455, 1463, 103 753 (1989).5 A. 11 "districts excluded." D. Mandelker, Use Law 4.16, pp. 113-114 (3d ed.1993) (hereinafter Mandelker). categorize residential, multiple-family commercial, industrial. See, e.g., E. Ziegler, Jr., Rathkopf's Zoning Planning 8.01, 8-2 8-3 (4th ed.1995); Mandelker 1.03, p. 4; Yokley, Practice 7-2, 252 ed.1978). aim problems caused "pig parlor instead barnyard." Village Euclid Ambler Realty 272 365, 388, 47 114, 118, 71 L.Ed. 303 (1926). particular, reserving neighborhoods, securing "zones where values, youth blessings quiet seclusion clean air area sanctuary people." Belle Terre Boraas, 416 9, 94 1536, 1541, 39 797 (1974); see Moore East Cleveland, 431 494, 521, 97 1932, 1947, 52 531 (1977) (Burger, dissenting) (purpose Cleveland's "is traditional one preserving certain communities"). 13 relation type Uniform 503(b) (1988); BOCA National Property Maintenance PM-405.3, PM-405.5 (1993) Code); Standard 306.1, 306.2 (1991); APHA-CDC Recommended Minimum Standards 9.02, 37 (1986) Standards).6 ordinarily apply uniformly all PM-101.3, commentary; Abbott, Policy, Codes Tenant Remedies, 56 B.U.L.Rev. 41-45 (1976). 14 recognized (1977). Moore, unconstitutional constricted contained ordinance. "select[ed] categories relatives declare[d] others not"; made crime grandmother's choice her grandson." Id., 498-499, S.Ct., 1935 (plurality opinion). response argument overcrowded dwellings, streets, schools, observed municipality's restrictive served asserted, undeniably legitimate, goals "marginally, best." 500, 1936 (footnote omitted). Another Cleveland ordinance, noted, "specifically addressed problem overcrowding"; permissible habitable area." n. 7, 1936, 7; accord, id., 520, 16, 1939, 16 (STEVENS, concurring judgment). Stewart, dissent, distinguished "preserv[e] area," prescription minimum person," 539, 1937, interest community safety.7 15 language—"restrictions restrictions.8 formulation sum, "plainly unmistakably," A.H. Phillips, Inc. Walling, 324 490, 493, 65 807, 808, 89 1095 (1945), fall governance; neighborhood, fastening households rather quarters contain, not.9 B Turning specifically Code, dwelling. plain terms, direct dwellings used house families. Captioned "USES," "Permitted Primary Us[e]" zone "[s]ingle-family units." itself recognizes simply "defines those single zone." 3. 17 caps area: "Floor Area. Every shall least room less 120 square feet area. Other rooms, except kitchens, 70 feet. Where sleeping purposes, required increased rate 50 each occupant excess two." (adopting (1988)).10 19 standard 20 nevertheless argues falls 3607(b)(1), surely answer question: "What house?" "by Ten siblings, their parents grandparents, example, could dwell without offending 21 Family occupant, what describes. peg rests plea Had defined solely links, would been ground staked case. Tr. Oral Arg. 11-12, 16. It curious reasoning indeed converts once town adds "and persons."11 22 additionally contends "overturn zoning" "destroy zoning." Brief 11, 25. us provisions. address Moreover, applicable, handicaps "equal enjoy" housing. 3604(f)(1)(A) (f)(3)(B). 23 24 presented, decided, describing set out For reasons stated, judgment 25 Affirmed. 26 whom KENNEDY join, dissenting. 27 has exempted requirements (FHA) (emphasis added). today's decision, concludes challenged petitioner's qualify exemption, even establish specific number—five —as Washington. Because Court's conclusion fails give effect statute, I respectfully dissent. 28 Petitioner's reserves 16.20.010(A)(1) (1991), 225. constitute either kind comprising "two nontraditional one, [so] related." 250. As conceded oral argument, these "no [a single-family] city unless [traditional of] family." 46. other words, establishes five-occupant limit, [with] [traditional] families." Ibid. 29 my mind, (a "five-occupant limit") readily fashion, "restrict[s]"—to —"the sure, majority observes, imposed persons. ante, forth narrow "absolute" "unqualified" occupants. sweeps broadly number. difficult imagine broader terms signify kinds relevant governmental FHA.1 30 Consider real estate agent assigned responsibility Edmonds. Desiring learn he about his new territory, inquires: "Does dwelling?" accurate affirmative—yes, five. Or consider different example. Assume Republic Germany imposes no speed "cars" drive Autobahn "trucks" (which vehicles). If conscientious visitor asks there motor vehicles Autobahn," again affirmative one—yes, trucks Autobahn. 31 ask observing pursuant house," so "related 'by marriage.' " "surely 'What house?' Ante, majority's however, accord text statute. take advantage state, law impose establishing occupants; "regarding" Surely, "regar[d]"—or "concern," "relate to," "bear on"—the cases.2 32 written. qualified dwelling," statute "any" reverse case.3 33 right results fundamental error focusing "maximum restrictions" "family rules." generally describe—are irrelevant initial matter, agree interpretive premise "this [is] 'a policy' 'narrowly [policy].' __ (quoting (1989)). Why case? "policy"; every that. Nor reason reading provide Congress, body responsible deciding how achieve objective housing, obviously believed consistent policy. service—indeed, negate "primary operation" 3607(b)(1)—by giving congressional enactment artificially reading. Rodriguez States, 480 522, 526, 107 1391, 1393, 533 (1987) (per curiam) ("[I]t frustrates effectuates legislative intent simplistically assume whatever furthers statute's law"); Board Governors, FRS Dimension Financial Corp., 474 361, 374, 106 681, 689, 88 691 ("Invocation 'plain purpose' legislation expense ., end, prevents effectuation intent").4 35 event, applied present clashes our Gregory Ashcroft, 501 452, 456-470, 111 2395, 2398-2406, 410 state judges protected Age Employment 1967 (ADEA), 81 602, amended, 621-634 (1988 ed. Supp. V). Though ADEA protects employees political subdivisions, 630(b)(2), protection local elected officials "appointee[s] policymaking level," 630(f). concluding fell did construe "narrowly" ADEA. said "not looking excluded" coverage. Gregory, supra, 467, 2404. despite 'broadly prohibits' age workplace. Trans World Airlines, Thurston, 469 111, 120, 105 613, 621, 83 523 (1985) Lorillard Pons, 434 575, 577, 98 866, 868, 55 40 (1978)). Cf. (noting "precedent 'broad inclusive' compass" 367, (1972))). 36 Behind construction ADEA's level" power "legislate traditionally regulated States" "an extraordinary federalist system," exercise lightly." U.S., 460, 2400. Thus, 'Congress should intention "clear manifest" if intends pre-empt historic powers States.' 461, 2401 Will Michigan Dept. Police, 491 58, 65, 2304, 2309, 45 obvious use—the subject code—is regulation "zoning laws peculiarly province authorities." Warth Seldin, 422 508, 18, 95 2197, 2210, 343 (1975). Hess Port Authority Trans-Hudson Corporation, 394, 402, 245 (1994) ("regulation function performed governments"); FERC Mississippi, 456 742, 768, 30, 2126, 2142, 72 532 (1982) perhaps quintessential activity"); 13, 1543, (1974) (Marshall, ("I am full agreement most government"). might sensible contexts exemptions narrowly, principle application turn analysis, focus first serving label category invented majority: "cap rooms," "ordinarily units," "purpose overcrowding." __.5 bear familial resemblance statutory apparent labels exhaust words refer "available rooms"; embrace requirement "apply units"; indication 38 Of course, contend precisely labeled restrictions." Rather, makes far claim encompasses" category. concede point.6 tells nothing here. although discussion doubt guidance future cases, completely fares better treatment rules," employed describe yet Although seems hinge "classic exampl[e] rule," __, says virtually crucial briefly alludes derivation rules" example them.7 Apart references, analysis consists announcing [of ] reasoning; ipse dixit. Indeed, until after announced (in course summing up) all. ibid. (referring "rules contain"). say explicitly, infer belated encompass particular ("to neighborhood") qualitative well quantitative (by "fastening Yet like character," "composition households," "total [that is, absolute] occupants," "living quarters" noticeably absent limits neither qualifying nor ways accomplish purposes. restriction—whatever means accomplishes purpose—so "regard[s]" explained, that.8 41 matter 21.030.010 "[f]amily occupant," immaterial constitutes rule" restriction." believe does, part prepared Reporter Decisions convenience reader. Detroit Lumber 200 321, 337, 282, 287, 499. originally 1968, prohibited race, color, religion, national origin. 82 83. Proscription sex added 1974. 1974, 808(b), 729. 1988, extended coverage "familial status" discrimination, custodial domiciled children 18. 3602(k). part, "[o]ne (1) occupying unit, provided members blood, marriage contain over four (4) F.2d, 976. 17, 1993, providing: "No enact maintain development regulation, official control, policy, administrative practice treats structure occupied differently individuals. section, 'handicaps' amendments act 1988 (42 Sec. 3602)." Wash.Rev.Code 35.63.220 asserts Washington's invalidates House-Edmonds. responds "far clear." Reply Briefs Opposition 4. Even enforcing controversy seeks damages civil penalties 3614(d)(1)(B) (C), conduct occurring prior law. 85. Like Circuit, violates dissent notes tightly cabin proscribing post, involved 1967, 621-634, covering elective level." did. stake Gregory—a going "beyond implicate sort sovereign entity." light, refused attribute statement, govern tenure judges. Nothing casts cloud soundness decision. Contrary dissent's suggestion, 5, terminology bears marked 2.51, (defining "Permissible Occupancy" individuals reside rooming unit"). commentators similarly differentiated Baker, N.J. 99, 110, 405 A.2d 373 (1979); 7A McQuillin, Municipal Corporations 24.504 1989); import reinforced Committee Report, observes: "A jurisdictions unit. Reasonable limitations governments continue, occupants, operate sex, origin, status." H.R.Rep. 100-711, (1988). Tellingly, time enlarged include ban 1. making illegal families prompted fears landlords forced allow large crowd small Amendments 1988: Hearings H.R. 1158 Subcommittee Civil Constitutional Rights Judiciary, 100th Cong., 1st Sess., 656 (remarks Rep. Edwards) (questioning landlord two-bedroom apartment). that, occupancy, legitimately refuse stuff assured retirement communities proscription minor children. sentence immediately following states: "Nor subchapter status respect older An sets efficiency apartment buildings. (1991) (1988)). drives (whatever number) then appears, unavailable. introduces number—any (two do) insulate exception-takes-the-rule advances hardly warranted prescriptions. broad word novel. John Hancock Mut. Co. Harris Trust Savings Bank, 510 114 517, 524, 126 524 (citing, "Congress spoke qualification" ERISA, 'any security' plan registered investment company" assets insurance company company' 1101(b)(1), 1103(b)(2)) )); Citizens' Bank Parker, 192 73, 81, 181, 184, 48 346 (1904) ("The excludes selection distinction. limitation"). ironic cites (1988), incorporated code, 19.10.000, 248, "prototypical restriction" 503(b), it, "caps added), actually density By itself, therefore, That applies 21.30.010: "it depends." With former, depends size house's bedrooms, 503(b)); latter, related. remand pass respondents' satisfy "reasonable." rejected "five-unrelated-person law," B-10, issue. 'generous construction' provision." (1972)). What "[t]he inclusive." 367. true enough, "therefore" generous "antidiscrimination prescriptions," 810(a), 3610(a) (1970 ed.) (repealed 1988). reference "give vitality 810(a) gives standing sue injured racial management facilities statute." 368. logic presumably vitality" construction. knowledge, judicial three decisions dating 1992 1993 employs Likewise, model codes constructs either. ___ (citing authorities). conceive "enacted context, seizes phrase appears booklet published jointly American Public Health Association Centers Disease Control—" 'the unit.' (1986)). if, boldly asserts, "bears 3607(b)(1)," ibid., fail comprehend add understanding hope invoke borrows art accumulated tradition centuries practice, knows adopts cluster ideas attached borrowed taken convey mind instructed.' Molzof 502 301, 307, 112 711, 715, 116 731 (1992) Morissette 342 246, 263, 240, 250, 96 288 (1952)). quoted publication "ter[m] art"—let alone "accumulated practice." NLRB Amax Coal 453 322, 329, 101 2789, 2794, 69 672 (1981) (applying "terms settled equity common law"). According majority, "reinforced by" (1988) Cong. & Admin. News 2192. 8. conclusion, cited Report authoritative persuasive. ___. ("To 'family'; restrictions"); ("East 'select[ed] not'; 'family' grandson' 1935, opinion))). All epithet "curious" yields "exception-takes-the-rule reading" 11. clear why thinks eviscerate (intentional) 3604(f)(1), (2), specially discrimination: "refusal modifications existing premises"; services"; "failure design construct [multifamily] dwellings" accessible usable, 3604(f)(3)(A), (B), (C). discrimination—the accommodations" 3604(f)(3)(B)—is arguably implicated addition, refers "local, restrictions," broadest possibly refusals Finally, already 3,

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