Document: 415 U.S. 528 94 S.Ct. 1372 39 L.Ed.2d 577 Cynthia HAGANS et al., Petitioners,v.Abe LAVINE, Commissioner of New York State Department Social Services, al. No. 72—6476. Argued Dec. 11, 1973. Decided March 25, 1974. Syllabus Petitioners, recipients public assistance under the federal-state Aid to Families with Dependent Children (AFDC) program, brought this action 42 U.S.C. § 1983 and 28 2201 challenging a regulation permitting recoup prior unscheduled payments for rent from subsequent grants AFDC on ground that violated Equal Protection Clause Fourteenth Amendment conflicted Security Act implementing regulations Health, Education, Welfare (HEW). Injunctive declaratory relief was sought jurisdiction invoked §§ 1343(3) (4). The District Court declared recoupment contrary HEW enjoined its implementation or enforcement. Appeals reversed, holding because petitioners had failed present substantial constitutional claim, lacked entertain either equal protection statutory claim. Held: 1. 1343(3). Pp. 534—543. (a) Section conferred claim if it sufficient substance support federal jurisdiction, in which case, could hear as matter pendent conflict between state law, without determining latter clim own right encompassed within 1343. P. 536. (b) Within accepted substantiality doctrine, petitioners' complaint alleged confer pass controversy, since (1) deprivation, color rights meaning s 1983; (2) issue neither frivolous nor so insubstantial be beyond Court's challenged not clearly rational require no meaningful consideration; (3) cause patently merit justify dismissal want Bell v. Hood, 327 678, 66 773, 90 L.Ed. 939, whatever may ultimate resolution issues merits. 536—543. 2. Given question over also 'statutory' decided first by single district judge, while adjudicated only three-judge court previously rejected. 543—545. 3. law claims conferring generally are dismissed. advantages economy convenience unfairness litigants, they adjudicated, particularly where dispositive their decision would avoid adjudication questions. There special reasons adjudicate where, here, although called 'statutory,' is reality arising Supremacy Clause, 'federal courts appropriate bodies application pre-emption principles.' Mine Workers Gibbs, 383 715, 729, 86 1130, 1140—1141, 16 218. 545 550. 471 F.2d 347, reversed remanded. Carl Jay Nathanson, Hempstead, N.Y., petitioners. Michael Colodner, Asst. Atty. Gen., N.Y. Dept. Law, City, respondents. Mr. Justice WHITE delivered opinion Court. 1 cooperative With program,1 themselves infant children representatives other similarly situated recipients. Their suit provision Code Rules Regulations program.2 They contravened pertinent provisions governing promulgated thereunder administering agency, (HEW).3 injunctive pursuant 2201, found provided basis so-called claim—the law. After hearing, trial Following remand,4 347 (CA2 1973). jurisdictional being an important one, we granted certiorari, 412 938, 93 2784, 37 396 (1973). For set forth below, hold consider attack regulation.5 2 * Petitioners 1983, provides: 3 'Every person who, any statute, ordinance, regulation, custom, usage, Territory, subjects, causes subjected, citizen United States thereof deprivation rights, privileges, immunities secured Constitution laws, shall liable party injured at equity, proper proceeding redress.' 4 By terms, embraces enforced respondent county welfare officials deprives them 'secured laws,' viz., laws. But created section does itself upon these claims. Accordingly, relied principally 1343(3): 5 'The have original civil authorized commenced person: 6 '(3) To redress custom right, privilege immunity Congress providing citizens all persons . ..' 7 Concededly, 1343 authorizes 'redress States.' therefore jurisdiction. If was, clear Rosado Wyman, 397 397, 402—405, 1207, 1212—1214, 25 442 (1970); see Services Dublino, 413 405, n. 2507, 2512, 688 8 ruled tendered ordered entire subject principle applied Appeals—that 'substantial' necessary jurisdiction—was unexceptionable cases. Over years has repeatedly held power otherwise 'so attenuated unsubstantial absolutely devoid merit,' Newburyport Water Co. Newburyport, 193 561, 579, 24 553, 557, 48 795 (1904); 'wholly insubstantial,' Bailey Patterson, 369 31, 33, 82 549, 550—551, 512 (1962); 'obviously frivolous,' Hannis Distilling Baltimore, 216 285, 288, 30 326, 327, 54 482 (1910); 'plainly unsubstantial,' Levering & Garrigues Morrin, 289 103, 105, 53 550, 77 1062 (1933); 'no longer open discussion,' McGilvra Ross, 215 70, 80, 27, 95 (1909). One principal decisions subject, Ex parte Poresky, 290 30, 31—32, 3, 4—5, 78 152 (1933), held, first, '(i)n absence diversity citizenship, essential should presented'; second, initial jurisdiction; third, '(t)he question, plainly unsubstantial, merit' 'its unsoundness results previous foreclose leave room inference raised can controversy.' supra; 482; 95.' 9 Only recently again reviewed general arose context convening 2281: 10 "Constitutional insubstantiality' purpose been equated such concepts 'essentially fictitious,' U.S., S.Ct., 551, ibid.; 32, (1933). limiting words 'wholly' 'obviously' cogent legal significance. In effect claims, those import constitutionally inescapably render frivolous; merely doubtful questionable do purposes 2281. A "its questions controversy." supra, 4, quoting 327; 105 106, (1909).' Goosby Osser, 409 512, 518, 854, 858—859, 35 36 11 doctrine statement principles affecting questioned, 683, 776, 939 (1946), characterized 'more ancient than analytically sound,' 404, 1214. remains rule needs re-examination convinced controversy. 12 Jurisdiction essentially authority decide given type case one way other. Fair Kohler Die Specialty Co., 228 22, 33 410, 411—412, 57 716 (1913). Here, unquestionably suits rights. It plain formally deprivation. threshold determination, turned whether too consideration. 13 Dandridge Williams, 471, 1153, 491 (1970), Maryland maximum grant grounds. We resolved inquiring classification basis. Finding did, sustained regulation. evinced intention suspend operation field social laws must still 'be rationally based free invidious discrimination.' Id., 487, 1162. See Jefferson Hackney, 406 535, 546, 92 1724, 1731, 32 285 (1972); Carter Stanton, 405 669, 671, 1232, 1234, 31 569 cf. San Antonio School Independent Rodriguez, 411 1, 1278, 14 Judged standard, cannot say unaware cases specifically dealing similar settling other.6 Nor immediately obvious us face recouping emergency future disbursements, argue deprived needy parental default, 15 rightly felt obliged measure 'by discriminating irrationally invidiously different classes recipients'7 against standard prescribed Dandridge. then reasoned who were preferred paid full out normal monthly grant. further incentive properly manage become delinquent rent.8 concluded presented. This reasoning respect rationality propriety ultimately prove correct, but 'very plain'9 Clause. think admonition followed here: 17 'Jurisdiction defeated respondents seem contend, possibility averments might fail actually recover. well settled failure calls judgment merits Whether states just fact after before assumed later exercise determine allegations relief, merits, jurisdiction.' 682, 776. (Citations omitted).10 18 As 'say justify, even qualifications noted, court's insubstantial, implausible, foreclosed completely involve controversy Court, merits.' Oneida Indian Nation County Oneida, 414 661, 666—667, 772, 777, 73 (1974). omitted.) II 19 former reached dispositive. California Human Resources Java, 402 121, 124, 91 1347, 1350, 666 (1971); 475—476, 1156—1157; 402, 1212—1213; King Smith, 392 309, 88 2128, 20 1118 (1968). court, judge. Swift Wickham, 382 111, 258, 194 (1965); 403, 1213. Thus, Judge, sitting alone, moved directly His appealed Appeals, convened, injunction issued, alone decided, appeal 1253. procedure Court—initial determination court—may appear odds some our decisions. See, e.g., Brotherhood Locomotive Engineers Chicago, R.I. P.R. 423, 594, 501 (1966); Florida Lime Avocado Growers, Inc. Jacobsen, 362 73, 80 568, 568 (1960). But, accurately reflects recent evolution three-judge-court jurisprudence, 'this concern efficient lower courts,' 'the constrictive view (court) traditionally taken.' 128, 129, 268 (citations omitted). 1213, suggested 21 '(e)ven moot, most course remand judge findings rather encumber time when calendars overburdened, consuming three judges required determined court. (1965).' 22 true warrant rejects issue. Nevertheless, coincidence automatically single-judge defer panel, which, what said back Kelly Illinois Telephone 325 148, 151 (CA7 1963); Duluth Georgian Bay Transit Nims, 252 317, 319—320 (CA6 1958); Doe Lavine, F.Supp. 357, 359—360 (S.D.N.Y.1972); Bryant Carleson, 444 353, 358—359 (CA9 1971). 'In fact, grossly inefficient send will sent back. inefficiency especially apparent judge's resolves there need convene court.' Norton Richardson, 352 596, 599 (D.C.Md.1972) 2281 forbid practice, inclined read statute 'in isolation mutilating literalness 94, 581 (Frankfurter, J., dissenting). III 23 Taking jaundiced dissenters dismiss issue, reject this, apparently, discretion America 218 (1966), claimed Gibbs oriented Pendent described routinely exercised considering judicial economy, convenience, fairness litigants. For, '(n)eedless avoided both comity promote justice parties, procuring surer-footed reading applicable law.' 726, 1139 (footnote omitted).11 light dissent's treatment several observations appropriate. First, evident always, almost dismissed adjudicated. On contrary, contemplates Second, reasonably follow considerations Siler Louisville Nashville R. 213 175, 29 451, 753 (1909) dispositive, reached: 26 'Where reference Federal Constitution, usually pursued departed reasons. much better regard local nature, involving construction therein commission make order unnecessarily various appearing record.' 193, 455. 27 oddity. characteristically dealt possibly Garrett, 231 298, 303—304, 310, 34 48, 50, 58 229 (1913); Ohio Tax Cases, 232 576, 586—587, 372, 373—374, 737 (1914); Greene Interurban 244 499, 508—509, 673, 677—678, 61 1280 (1917); Greene, 522, 527, 686, 1291 Davis Wallace, 257 478, 482, 485, 164, 165, 166, (1922); Chicago G.W.R. Kendall, 266 97—98, 45 55, 56—57, 69 183 (1924); Cincinnati Vester, 281 439, 448—449, 50 360, 363, 74 950 (1930); Hillsborough Cromwell, 326 620, 629, 445, 358 (1946). ironclad, Sterling Constantin, 287 378, 393—394, 396, 190, 193—194, 195, 375 (1932), recurringly applied,12 and, very least, presumes advisability deciding pendent, nonconstitutional did cite like cases, purport change ordinary available. dissent uncritically relies ignores preference stated though standing court.13 Third, rationale centers desirability having reliable final more familiarity controlling judgment. These favoring wholly irrelevant satisfy amount rendition least sure-footed lasting courts.14 relavant purposes, course, (1968); arises denominated 'because appellees' position occasion reach issues. Ashwander TVA, 297 346—347, 56 466, 483, (Brandeis, concurring); Rosenberg Fleuti, 374 449, 83 1804, 1000.' 1157. none fairly established, nevertheless if, weighing two strong weak. Harlan, writing mind, noted policy argument "particularly strong." And observed 'special reason fof jurisdiction' implicated: 1140. remanded proceedings consistent opinion. So ordered. Reversed POWELL, whom CHIEF JUSTICE REHNQUIST joins, dissenting. I join dissenting believe he expresses correct result independent appended hope success wise lies heart E.g., 726 727, 1139—1140, (1966). Compelling ancillary premise meritless impress me efficacious performance discretionary responsibility. write briefly emphasize my majority misread opinion, manner links (1909), involved same transaction apparently reads together mandating frailty rests. ante, 547 549—550. words, appears saying marginal here capable supporting indeed, exclusion it, erroneous interpretation doctrine. That broaden encompass matters whenever imaginative litigant up how related giving rise 38 extension quite unnecessary, confronted dictum prompt it. potential mischief, repeat quotation Brother Rehnquist indicates far 1966 precedent: '(R)ecognition wide latitude imply tolerate litigant's effort impose case. 40 Once constitutes real body appendage, dismissed.' 41 common sense deeply rooted notions federalism, glimmer continue until resources committed lawsuit. conditions met, business expositors citizenship. REHNQUIST, THE POWELL join, 43 decison necessarily cast terms. According acquired 'not insubstantial' lack Applying analysis finds pleaded somewhat hazy definition 'substantiality' approve alleging regulations. admonished shut eyes know men, practical consequences squarely faced. 44 wake (1968), massive influx plaintiffs typical conflicts invalid Constitution. allegation presents requirement 1331,1 question' many find statute's second requirement, exceed sum $10,000, impossible meet. Normally, therefore, left, surely understood imposed limitation, likewise charged enforcing natural disposition, however, 1343, narrowly drawn requiring minimum amount. relevant reads: 46 47 never now, provides section. escapes granting theory sufficiently requirements seems suggest consideration course. Since establish appropriately dissent. history long complex. Its roots go Osborn Bank States, Wheat. 738, 204 (1824), extended nonfederal settlement No doubt wisdom Chief Marshall's exposition forced into simply ones.2 expanded upheld founded by-pass 'had adversely raising them, omitted all, only.'3 cautioned: 'Of colorable fraudulently mere endeavoring give jurisdiction.'4 49 returned Hurn Oursler, 238, 586, 1148 agreed court,5 test met involved, attempted define relationship separate action, itself.6 extensive occurred Because spoken terms 'causes action,' term superseded adoption Civil Procedure, redefined relation understandable Restating pretty language earlier continued: 51 derive nucleus operative fact. considered character, plaintiff's ordinarily expected try proceeding, then, assuming issues, whole.' 725, 1138 omitted) (emphasis original). 52 served clarify proved troublesome Oursler. importantly, went lacking indiscriminately. reiterated 'pendent discretion, right,' id., 1139, urged caution abuse discretion. example, 'if trial, sense, well.' Ibid. Furthermore, stressed relative importance considered: 55 'Similarly, substantially predominate, proof, scope raised, comprehensiveness remedy sought, prejudice left tribunals.' 726—727, 1139. Although discussed opinion's basis.7 Of deny naturally involves abstention, primarily presence induce expand Congress, dollar made legislative certain courts. Considerations hearing genuine business, contrasted weak intended secure subordinated federalism constitute body' situation remember embodies 'a system sensitivity legitimate interests National Governments, Government, anxious vindicate protect interests, always endeavors ways unduly interfere activities Younger Harris, 401 37, 44, 746, 751, 669 (1971). analysis, seemingly finding courts' greater declining Gibbs. now says anyway 'at sure-footed' bodies" so. undoubtedly reflect accuracy Congress. 59 heavily position, intimation securing stronger Rather moot. stated: 60 'Unlike insubstantiality, outset, mootness, frequently control occur energy expended looking toward dispute entitled bring Thus settle today. offers aid resolving confronts 62 parts. attach unless asserted exist, judiciously. relatively permissive standards guide 'considerations litigants' predominate worth applied. While am thin wrong point outlined supra. 63 proceeded discussion reversing further. disagrees substantiality, reinstating Unfortunately, process treat aspects 64 Whatever terminology good. brief, petitioners, received funds York, above usual grants, prevent eviction places lodging nonpayment rent. State, recover unusual expenditures making deductions next succeeding months grants. contended laws.8 65 searches vain, brief opinions why meets minimal substantiality. extraordinary entitlement meet situation, period time. substantial, cited Bradford Juras, 331 167 (Or. 1971), Bradford, discussion.9 sheds states: 67 'This plain' Clause.' Ante, 542. 68 largely discredited attacks about apportionment limited funds. At penalty race interstate travel, 'conceivable basis' exists. 'suspend Clause' area, assuredly makes particular one.10 agree Even refer pleadings made, imply, vacuum. 'specifically deal(s)' neglects branch enunciated repeated merit.' Under today's plaintiff able plead his straight face. carries promise turn rejecting thesis laying down rules 70 Assuming, exercising judgments reasonable lawyer evaluating respective strengths weaknesses undertake. highly improbable familiar place faith examination shows attention Amendment. chose identifiable plaintiffs' mind classic tail wagging dog. 71 erroneously courts, convince main anything promising Presented declined referred court.11 major categorical programs established 1935, 316—317, 2133, scheme federalism: 'It financed matching fund basis, administered States. participate desire take advantage available distribution submit plan approval Secretary Stat. 627, 601, 602, 603, 604. (U.S. Advisory Commission Report Intergovernmental Relations, Statutory Administrative Controls Associated Grants Public Assistance 21—23 (1964)). conform HEW. amended, 602 (1964 ed., Supp. H). HEW, Handbook Administration, pt. IV, 2200, 2300 407—409, 1215—1216, (1970). Act, withholds compliance Department's terminate partially entirely administration (state) comply 602(a) (the Act) included plan.' 317 12, 2133; 420—422, 1221—1223. provides, part: '(g) Payment services supplies already received. current needs. following specified circumstances payment deemed need: '(7) recipient evicted advance allowance rehouse family; deducted amounts six months. When month, month period, restricted accordance Part 381 Title.' N.Y.C.R.R. 352.7(g)(7). recipients, receive calculated provide 90% family shelter, fuel, basic necessities. another, each petitioner unable pay her rent, faced imminent eviction, she Nassau Services. 'advances,' disbursements recouped familial assumed, funds, need, remain income family's during mandated six-month period. Title 602(a)(7) (a)(10) '(a) families (7) except clause (8), (administering) agency shall, child claiming dependent children, individual (living home relative) whose determines aid, expenses attributable earning .. '(10) provide, effective July 1951, individuals wishing opportunity so, furnished promptness eligible CFR 233.20(a)(3)(ii)(c): Requirements Plans. Plan OAA, AFDC, AB, APTD AABD must, below: '(ii) Provide that, establishing financial eligibility payment: (c) net use regular considered, currently entry injunction, Without passing conclusions, dissenting, 'reduction grant' trigger fair-hearing procedures 351.26. 462 928 1972). remand, allowed additional parties fair hearings intervene file complaint. invitation filed amicus curiae contravene assumes existence months.' Brief Appendix once violative enforcement implementation. disposition whether, aside pendent-jurisdiction valid grounds existed sustaining suggested, Connecticut Union Employees White, F.R.D. 481, 486 (D.C.Conn.1972). interpreting applying 2281, provision, (1965). recognized void benefits allegedly succeed resort Constitution—'to sure, obstructing rest Constitution.' 125, 266. Moreover, regulations, invalidated Townsend Swank, 404 282, 286, 502, 505, 448 Constitution' construed exclude another day. contend 'laws' 'providing including vote' 1343(4). event, particular, general, invest 1983. reach. 7, 1214; Herzer, Statutorily-Based Claims, Harv.Civ.Rights Civ.Lib.L.Rev. 16—18 Note, Challenges Programs, 72 Col.L.Rev. 1404, 1405 1435 Judicial Review Practices, 84, 109—115 (1967). Several past concerning challenges analysis. Carleson Remillard, 598, 1932, 284 2, 504 2; Ct. Goldberg Kelly, 254, 1011, 312 2130—2131; Damico California, 389 416, 526, 647 contention petitions statements, briefs Edelman Jordan, 651, 670—671, 1359—1360, 662. passed sub silentio, bound finally brings us. More, Cranch 159, 172, (1805); Mfg. Augusta, 277 100, 134—135, 21, 489, 501—502, 801 (1928) approach calling canvass considerations. 88, 577, (1960) Those drafted program Cooper Laupheimer, 316 264 (ED Pa.1970), Pennsylvania two-month overpayments inconsistent reasons, including, inter alia, punishment depriving him mother mistakenly obtained extra ago. '(T)he (arbitrary) method restitution asserting management produce (cash) reserve. permit starve mother's budgetary mismanagement. specifies remedies 269. (Or.1971), subject-matter challenge Oregon authorizing Measuring goals primary child. 601; 313, thwarted takes money penalize misconduct parent. '. child-oriented requires treated equally. parent-recipient acted wrongfully withholding information reducing subsistence level below children.' F.Supp., 170. Holloway Parham, 340 336 (ND Ga.1972), due Georgia unlawful enough Addressing inconsistency prerecoupment part parent children. explore depth, panel (1972). (federal district) characterization (Fourteenth Amendment) presented complaint, been, error.' 1234. majority's determination. F.2d, 930—931, 932. App. 5. NYCRR 352.7(g)(7), allocate designed ensure availagle legislature. receiving gotten treating alike favor misappropriated allowance. disincentive month. encourages management, acceptable, incidental, legislation. 'No accomplish ends However evaluate state's choice means. means end, further.' 349—350. Hart B. F. Keith Vaudeville Exchange, 262 271, 274, 540, 541, 977 (1923). ascertained jurisdiction-conferring 'insubstantial face,' 428, 596—597, claim(s) matter.' Baker Carr, 186, 199, 691, 700, 663 (1962). Judge Magruder's concurrence Strachman Palmer, 177 427, 431 (CA1 1949), advising "(f)ederal overeager litigation." 15, Numerous proposition endorsed Siler—that vested issues—and dispose solely ground. 629—630, (1946); Waggoner Estate Wichita County, 273 113, 116—119, 272—273, 566 (1927); Fuel Gas Railroad Comm'n, 278 300, 308, 150, 152, 390 (1929); Risty 270 387, 236, 240, 641 (1926). illustrate practice avoiding Other addressed random fashion, see, Atlantic Coast Line Doughton, 413, 421—426, 623—625, 1051 (1926); Southern Watts, 260 519, 525 531, 192, 195—197, (1923); denied asserted, Doughton Watts written Brandeis, celebrated concurring (1936), summarizing grounds, latter.' expressly took account aspect Siler: acquires virtue omit alone. unmistakable clarity, reaffirmed announce broadly, qualification; perceive exception suggested. application, 245, 589. notes Hurn's warning 'permit assume distinct However, certainly allows alleged, 246, added). thus Hurn, (complaint) alleges violation (here nondiscriminatory receipt assistance). action. Indeed, (violation precisely identical facts little equivalent epithets characterize group circumstances. put end wrong, however differently characterized, enjoin wrongs constituting action.' 590. Armstrong Paint Varnish Works Nu-Enamel Corp., 305 315, 324—325, 191, 195—196, 195 (1938). closely analogous context, capability Romero International Terminal Operating 354, 79 468, 368 (1959), Spanish seaman damages Jones maritime unseaworthiness ship, maintenance cure, negligence. (46 688) federal-question (28 1331) 1332) expressing cognizable 1331. means, inquiry. (petitioner's claims) 'pendent' Act. call pending 1148, when, barrier us.' 380—381, 484 1331 follows: actions wherein exceeds value exclusive interest costs, treaties $3,000 $10,000 1958. 'Under construction, extends effectively beneficially class depend character cause. opposite whole expressed constitution, parts constitution because, circumstance points disable Courts cause, equally disables appeal, cause; obviously Courts, insecure insulated point, shape tribunal, will.' 822—823, (1824). 191—192, today, heavy emphasis ones, 546—547, 'for agree. numerous stand long-recognized sensible possible; heard place. infra. competing safeguarding weight Levering, 'Whether objection bill fails raises rule. sets consideration, sufficiency distinguished wanting pleading unsubstantial. variety ways, effect. averred merit, 245—246, 589, (1933): 'But joined distinction character. former, substance, retain ground; (Emphasis original.) 'tolerate' efforts chosen portion setting full: 'Said discriminates victims eviction. exists live levels persons. Said applies resource exemptions levy 168. 'Conflicting morality intelligence opponents proponents every measure, intractable economic, social, philosophical problems procedural safeguards systems administration, (397 (1970)). empower second-guess difficult responsibility allocating among myriad Cf. Steward Mach. Davis, 301 548, 584—585, 883, 889—890, 81 1279; Halvering 619, 644, 904, 909, 1307.' originally withdrew request. Pursuant stipulation tried only. (1973), convened 'substantial.' true, commonly alternative 482—483, (1936) concurring). lead circular reasoning. improperly wished appropriate, rare disagree lacks resolve favor. rendered possible, cost, few likely arise, less expensive cost allowing expanded.

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