Document: 523 U.S. 833118 S.Ct. 1708140 L.Ed.2d 1043 COUNTY OF SACRAMENTO, et al., Petitioners,v.Teri LEWIS and Thomas Lewis, personal representative of the Estate Philip Deceased. No. 96-1337. Supreme Court United States Argued Dec. 9, 1997. Decided May 26, 1998. Syllabus * After petitioner James Smith, a county sheriff's deputy, responded to call along with another officer, Murray Stapp, latter returned his patrol car saw motorcycle approaching at high speed, driven by Brian Willard, carrying respondents' decedent, as passenger. Stapp turned on rotating lights, yelled for cycle stop, pulled closer Smith's in an attempt pen in, but Willard maneuvered between two cars sped off. Smith immediately switched own emergency lights siren began high-speed pursuit. The chase ended after tipped over. slammed brakes, skidded into causing massive injuries death. Respondents brought this action under 42 U.S.C. §1983, alleging deprivation Lewis's Fourteenth Amendment substantive due process right life. District granted summary judgment Ninth Circuit reversed, holding, inter alia, that appropriate degree fault liability police pursuits is deliberate indifference to, or reckless disregard for, person's life security. Held: A officer does not violate death through automobile aimed apprehending suspected offender. Pp. ____-____. (a) "more-specific-provision'' rule Graham v. Connor, 490 386, 395, 109 1865, 1871, 104 443, bar suit. simply requires if constitutional claim covered specific provision, must be analyzed standard process. E.g., Lanier States, 520 259, ----, n. 7, 117 1219, 1228, 137 432 (1997). Substantive analysis therefore inappropriate here only if, amici argue, "covered by'' Fourth Amendment. It not. That covers "searches seizures,'' neither which took place here. No one suggests there was search, Court's cases foreclose finding seizure, since did terminate freedom movement means intentionally applied. Brower County Inyo, 489 593, 597, 1378, 1381, 103 628. (b) Respondents' allegations are insufficient state violation. Protection against governmental arbitrariness core process, e.g., Hurtado California, 110 516, 527, 4 111, 116-117, 28 L.Ed. 232, including see, Daniels Williams, 474 327, 331, 106 662, 665, 88 most egregious executive can said "arbitrary'' sense, Collins Harker Heights, 503 115, 129, 112 1061, 1071, 261; cognizable level abuse power shocks conscience, id., 128, S.Ct., 1070; Rochin 342 165, 172-173, 72 205, 209-210, 96 183. conscience-shocking concept points clearly away from liability, toward it, ends tort law's culpability spectrum: Liability negligently inflicted harm categorically beneath threshold, U.S., 328, 663, while conduct deliberately intended injure some way unjustifiable any government interest sort official likely rise level, see 665. Whether reached when falls negligence intentional matter calls. has recognized enough context, medical needs pretrial detainees, City Revere Massachusetts Gen. Hospital, 463 239, 244, 2979, 2983, 77 605; cf. Estelle Gamble, 429 97, 104, 97 285, 291, 50 251, rules subject mechanical application unfamiliar territory, need preserve proportions demands exact context circumstances before condemned conscience-shocking, Betts Brady, 316 455, 462, 62 1252, 1256, 86 1595. Attention markedly different normal custody law enforcement chases shows why less other. In offender, where unforeseen demand instant part who feels pulls competing obligations, purpose cause unrelated legitimate object arrest will satisfy shocks-the-conscience test. Such no intent suspects physically worsen their legal plight do give liability. Cf. Whitley Albers, 475 312, 320-321, 1078, 1084-1085, 89 251. claimed fails meet faced course lawless behavior were blame. They had done nothing Willard's driving first place, excuse flouting commonly understood authority control traffic, (beyond refusal off chase) encourage him race traffic breakneck speed. outrageous practically instantaneous, so instinctive response. While prudence would have repressed reaction, instinct job, induce lawlessness, terrorize, harm, kill. Prudence, is, countervailing considerations, exaggerated demands, reason believe they tainted improper malicious motive. 98 F.3d 434, reversed. SOUTER, J., delivered opinion Court, REHNQUIST, C. O'CONNOR, KENNEDY, GINSBURG, BREYER, JJ., joined. filed concurring opinion. opinion, STEVENS, judgment. SCALIA, judgment, THOMAS, Terence J. Cassidy, Sacramento, CA, petitioners. Paul Hedlund, Los Angeles, respondents. Justice SOUTER Court. 1 issue case whether violates Amendment's guarantee We answer no, hold such element arbitrary shocking necessary 2 On 22, 1990, approximately 8:30 p.m., Everett Sacramento break up fight. Upon returning car, operated 18-year-old carried 16-year-old Neither boy anything fight prompted police. 3 overhead boys Smith's, attempting in. Instead pulling over response Stapp's warning commands, slowly siren, made quick turn, pursuit For 75 seconds 1.3 miles residential neighborhood, wove out oncoming forcing bicycle swerve road. speeds 100 hour, following distance short feet; required 650 feet stop. tried sharp left turn. By time way, Lewis 40 propelling 70 down road inflicting injuries. pronounced dead scene. 5 Respondents, parents representatives estate, Rev. Stat. §1979, §1983 petitioners County, Sheriff's Department Deputy life.1 reasoning even he violated Constitution, entitled qualified immunity, because respondents could point "state federal published May, alleged misconduct supports [their] view [the decedent had] speed pursuits.'' App. Pet. Cert. 52.2 6 Appeals holding "the applied security,'' 441 (1996), concluding regarding injury caused during established'' death, 445. Since apparently disregarded Department's General Order pursuits, found genuine material fact might resolved amounted indifference: 7 "The communicate intention pursue vehicle department dispatch center. But defendants concede contact consider seriousness offense warrants excess posted limit. here, apparent "offense' boys' stop told them so. apprehension justifies existing conditions. Yet "needed' apprehend refused presents unreasonable hazards property. taking facts light favorable plaintiffs, existed hazard lives. also directs discontinue continuing outweigh benefits immediate apprehension. danger involved permitting escape. There certainly risk others pursuit.'' Id., 442. 8 Accordingly, reversed favor remanded trial. 9 certiorari, (1997), resolve conflict among Circuits violating case. Compare F.3d, ("deliberate indifference'' "reckless disregard''),3 Evans Avery, 1033, 1038 (C.A.1 1996) ("shocks conscience''), cert. denied, 1693, 820 Williams Denver City, 99 1009, 1014-1015 (C.A.10 (same), Fagan Vineland, 22 1296, 1306-1307 (C.A.3 1994) (en banc) Temkin Frederick Commissioners, 945 F.2d 716, 720 (C.A.4 1991) 502 1095, 1172, 417 (1992), Checki Webb, 785 534, 538 (C.A.5 1986) (same). now reverse. II 10 Our prior held provision " [n]o State shall . deprive person life, liberty, property, without law,'' Const., Amdt. 14, §1, "guarante[e] more than fair process,'' Washington Glucksberg, 521 2258, 2267, 138 772 cover sphere well, "barring certain actions regardless fairness procedures used implement them,'' 665 (1986); Zinermon Burch, 494 113, 125, 975, 983, 108 (1990) (noting violations actionable §1983). allegation deprived violation amounts claim, described earlier, unjustified objective barred 126, 1069, 261 (1992) Due Process Clause prevent officials ""from abusing power, employing it instrument oppression''') (quoting DeShaney Winnebago Dept. Social Servs., 189, 196, 998, 1003, 249 (1989)) Davidson Cannon, 344, 348, 668, 670-671, 677 (1986)).4 11 Leaving aside question formed basis dismissal case,5 face principal objections claim. its necessarily governed definite Constitution (to exclusion possible process); second, event power. objection, second. 12 Because we "always been reluctant expand supra, 1068, Connor [w]here particular amendment provides explicit textual source protection behavior, Amendment, generalized notion guide analyzing these claims.'' Albright Oliver, 510 266, 273, 114 807, 813, 127 (1994) (plurality C.J.) 443 (internal quotation marks omitted). Given Graham, presented oral argument threshold raised several amicus briefs,6 involving ever support runs chasing motorcycle, make seizure within meaning and, perhaps, succeeded stopped fatal collision. Hence, turn reasonableness governing searches seizures, constitutionally action. See 1871 ("all claims officers excessive force-deadly not-in arrest, investigatory other "seizure' free citizen should "reasonableness' standard, rather "substantive process' approach''); 276, 814 (GINSBURG, concurring); 288, 2, (SOUTER, judgment). One indeed preclude principles motor passenger's resulting Mays East St. Louis, 123 999, 1002-1003 (C.A.7 1997). 13 unsound. Just last Term, explained 14 "does all relating abusive arise either Eighth Amendments; rather, rubric process.'' Lanier, 15 16 4, our seizure. California Hodari D., 499 621, 626, 111 1547, 1550-1551, 113 690 (1991), seize amount "seizure'' And 596-597, 628 (1989), "that occur whenever governmentally termination individual's (the innocent passerby), nor desired fleeing felon), '' illustrated saying take "pursuing sought suspect show represented flashing pursuit,'' accidentally crashing him. 1381-1382. exactly See, Campbell White, 916 421, 423 1990) (following struck killed motorcyclist pursuit), 922, 1314, 248 (1991). Graham's more-specific-provision Frye Akron, 759 F.Supp. 1320, 1324 (N.D.Ind.1991) (parents sue place); 1036 "outside injured result may prosecute section 1983''); Pleasant Zamieski, 895 272, 2(CA6) "preserve[s] fourteenth those instances denied her official's seizure''), 498 851, 144, (1990).7 B 17 early explanations action: 18 true phrase never tersely accurately stated Mr. Johnson, Bank Columbia Okely, 235, Wheat. 235-244, 559 [(1819)]: "As words Magna Charta, incorporated Maryland, volumes spoken written exposition, good sense mankind settled this: secure individual exercise powers government, unrestrained established private distributive justice.''' (1884). 19 emphasized again [t]he touchstone government,'' Wolff McDonnell, 418 539, 558, 94 2963, 2976, 41 935 (1974), lies denial fundamental procedural fairness, Fuentes Shevin, 407 67, 82, 92 1983, 1995, 32 556 (1972) protects "arbitrary takings''), reasonable justification service objective, 664 arbitrarily oppressively exercised). limits what both legislative, Griswold Connecticut, 381 479, 85 1678, (1965), capacities, 183 (1952), criteria identify fatally differ depending legislation act issue. 20 dealing repeatedly sense,'' thereby recognizing Chief Marshall, ""that constitution expounding,''' 332, M'Culloch 316, 407, 579 (1819) (emphasis original)). Thus, example, oppression.''' 1069 1003 670-671)). 21 To end, half century conscience. put test forced pumping suspect's stomach offend conscience'' "decencies civilized conduct.'' intervening years adhered 's benchmark. Breithaupt Abram, 352 432, 435, 408, 410, 448 (1957) (reiterating ""shocked conscience' "brutal' "offensive' comport traditional ideas play decency'' 1088, 251 (1986) (same); Salerno, 481 739, 746, 107 2095, 2101, 95 697 (1987) ("So-called prevents engaging "shocks conscience,' interferes rights "implicit ordered liberty''') 172, Palko 302 319, 325-326, 58 149, 151-152, 82 288 (1937)). Most recently, 1070, component "can properly characterized arbitrary, conscience shocking, sense.'' measure calibrated yard stick, does, Judge Friendly "poin[t] way.'' Johnson Glick, 1028, 1033 (C.A.2), 414 38 324 (1973).8 surprising duplicates category common-law fault, spectrum culpability. clear entail body imposing someone cloaked causes harm. Davis, 424 693, 701, 1155, 1160-1161, 47 405 (1976), "font superimposed upon whatever systems already administered States,'' reaffirmed [o]ur deals large concerns governors governed, purport supplant laying regulate attend living together society.'' accordingly rejected lowest common denominator customary mark sufficiently conduct, care officials; 663; (clarifying applies substantive, well procedural, process). contrary, end probably claim; level. ("Historically, decisions property'') original). 23 produced falling middle range, something "less recklessness "gross negligence,''' 334, 3, 666, calls.9 sure, expressly possibility acts range ibid., compelled recognition least instance. 605 (1983), [pretrial detainee] great protections available convicted prisoner.'' 2983 (citing Bell Wolfish, 520, 535, 16, 545, 1861, 1872, 60 447 (1979)). suffice prison indifferent prisoners, follows requirement based jailed awaiting trial, Barrie Grand Utah, 119 862, 867 1997); Weyant Okst, 101 845, 856 (C.A.2 1996).10 24 Rules not, however, territory. Deliberate environment patently another, concern preserving conscience-shocking. What just here: 25 [due law] formulates rigid fluid envisaged provisions Bill Rights. Its rule. Asserted tested appraisal totality given may, setting, constitute universal justice, circumstances, fall denial.'' 1595 (1942). 26 attention (even assuming makes speak sudden pursuit). As very term "deliberate implies, sensibly employed actual deliberation practical, 320, 1084-1085,11 custodial situation prison, forethought about inmate's welfare feasible obligatory regime incapacitates prisoner ordinary responsibility welfare. 27 [W]hen takes holds will, imposes corresponding duty assume safety general well-being. rationale principle simple enough: affirmative restrains liberty renders unable himself, same provide basic human needs-e.g., food, clothing, shelter, care, safety-it transgresses set Clause.'' 199-200, 1005 (citation footnote Nor substantial making decent locks up; State's prisoners [or detainees] ordinarily clash equally important responsibilities.'' 1084.12 29 description how too suggest like one. have, indeed, (albeit Amendment) prisoner's arises violent disturbance. instructive 30 [I]n use force restore order disturbance, undoubtedly account real threats unrest inmates alike, addition harms whom adequately capture importance convey hesitancy critique hindsight haste, pressure, frequently luxury second chance.'' 1084. 31 much higher shown riot. "whether faith effort maintain discipline maliciously sadistically harm.'' 1085 analogy (under Clause) hard avoid. Like facing riot, occasion calling fast obligations tend tug each Their lawful order, exacerbating disorder jobs. supposed decisively restraint moment, "in 1084; 397, 1872 ("police often split-second judgments-in tense, uncertain, rapidly evolving''). deciding balance hand flight freedom, other, threat everyone stopping suspects, passengers, drivers, bystanders. 33 recognize mid-level forget inmate rests enjoyed having unhurried judgments, chance repeated reflection, largely uncomplicated obligations. When extended opportunities better teamed protracted failure truly shocking. officer's precipitate inch close harmful spark shock implicates governed.'' needed riot case, ought redressible §1983.13 34 count charging complaint alleges variety culpable states mind: "negligently responsible manner,'' (App. 11, Count one, ¶8), careless'' (id., 12, ¶15), "recklessness, gross conscious [Lewis's] safety'' 13, ¶18), "oppression, fraud malice'' (Ibid.) subsequent proceedings revealed height actually "conscious disregard,'' malice aid request punitive damages, unsupported affidavit offered motions survival, treated equivalent agree reading allegations, consequently company Appeals, sufficient assumption arguendo.14 35 drivers travel lanes. job motive part. 36 Regardless offended enforcement's codes sound practice, called §1983. below 37 ordered. concurring. 39 I join County's petition certiorari is: "Whether, establish indifference' disregard.''' i. assumed parties briefed assumption. surely foundation law, clear. Ante, __. correct choice alternatives posed presented, demanding met O'CONNOR joins, 43 write explanation character analysis. 44 correct, course, repeating prohibition deprivations property contained extends beyond command procedures. longer controverted well. (1997); Planned Parenthood Southeastern Pa. Casey, 505 833, 2791, 120 674 (1992); 125-128, 1068-1070, Michael H. Gerald 491 110, 2333, 105 91 (1989). consequence, prohibited them. us, protected text implicated: causal chain undoubted loss definitional problem, then, determining invoke Ohio Adult Parole Authority Woodard, 118 1244, 140 387 (1998). 45 confront State, local police, follow protect unintentional Unlike separate violation, entity liable Monell New York 436 658, 694-695, 2018, 2037-2038, 56 611 (1978); Canton Harris, 378, 1197, 412 statutory interpretation elaboration, distinct, anterior occurred all. 120, 124, 1065-1066, 1068. 46 decides applying reiterated decisions. unfortunate connotation laden subjective assessments. respect, viewed considerable skepticism. Heights illustrates, beginning asking consistent traditions, precedents, historical understanding meaning. 126-128, 1069-1070. SCALIA out, interpreted Glucksberg. Post, __-__. authorities cited persuasive, indicating contradict traditions sustain said, added history tradition starting point, ending inquiry. room assessment necessities enforcement, latitude discretion, acknowledging, primacy bound respect. interests regard. Absent injure, these, dangerous disobeys determine announcing rule, suggesting principle, ignore narrow formulation, suggestion then damages sustained ensuing flee often, increasing accidents kind 48 Though share SCALIA's using manner self-defining test, reasons gives go far establishing precedent, controlling legislative character. decide comprehensive definition participation commands suffices conclude present justify unintended 49 separately my agreement post, __, Siegert Gilley, 500 226, 1789, 277 read deny lower courts flexibility, cases, avoid wrestling issues difficult poorly presented. Siegert, 1794-1795 (KENNEDY, concurring) (Lower court "adopted altogether procedure ground appeared offer direct resolution, argued parties''). 51 52 argue alternative immunity established, tells us address outset. advice When, unresolved, wiser adhere policy avoiding unnecessary adjudication questions. reinstate relevant defined 1990. 53 expresses resolving underlying perpetuate uncertainty law. __ 5. acknowledges, must, defense unavailable municipality itself. Id. Sound exist encouraging development new doctrines adversarial suits municipalities, stake outcome exposure plainly immunity. 54 sum, Officer concur 55 THOMAS Today's lie cynics changes jurisprudence attributable membership. proves passage (not time, that), plus ancient maxim, "That now.'' 57 _________, 2267-2269, specifically method substantive-due-process concurrence today. quote Glucksberg: "Our primary features: First, regularly observed specially liberties are, objectively, "deeply rooted Nation's tradition,' liberty' Second, "careful description' asserted history, practices thus crucial "guideposts decisionmaking,' restrain exposition 59 "Justice abandon restrained methodology, instead ask [Washington's] statute sets impositions'' "purposeless restraints'' odds view, whereby outlines "liberty' carefully refined concrete examples deeply tradition. This approach tends rein elements due-process judicial review.'' 2268. Today, speak, stone builders become foundation-stone jurisprudence. atavistic methodology announces proffered fact, anything, today's throw-back highly methodologies Glucksberg was. Whereas merely (without criterion purposeless), resuscitates ne ultra, Napoleon Brandy, Mahatma Ghandi, Celophane1 subjectivity, th' ol' "shocks-the-conscience'' According __.2 "shocks-the-conscience,'' action'' 1992 executive-action paid lip-service proposition decisionmaking.''' 2268, quoting Collins, come "nothing [a] bald assertio[n],'' "failed proffer historical, textual, precedential [his right], decline fashion thin air.'' Carlisle 517 416, 429, 116 1460, 1468, 134 613 (1996). 61 Adhering decision unelected Nation traditionally assert. step analysis, description'' asserted, ---------, 2267-2268. Here "of recklessness, safety.'' 13. conclusion asserts offender.'' __; ante, right, Carlisle, "decline 1468. identified support. Indeed, precedent contrary: "Historically, th[e] property.'' 664-665, 662 (citations omitted); 127, 10, true, explains, 244-245, 2983-2984, involuntarily committed mental patients, Youngberg Romeo, 457 307, 314-325, 102 2452, 2457-2463, 73 (1982), alone "deprivation.'' Rather, combined restraining behalf-through incarceration, institutionalization, similar liberty,'' 200, 1006, Ibid. added). open whether, ability himself "something "deprivation'' Clause. Daniels, 3. Needless say, trigger protections, chase. 63 hold, urge, ""the font States.''' 1160, (1976) (other citation Here, instance, say "deprived'' run over, driver dumped car's path recklessly (Willard option rolling gentle showing license registration.) Surely every did. encouraged responsible, part, Was contributory Lewis? Did "last chance'' accident? "assume risk'' These interesting questions governance. many times, transform actor violation.'' DeShaney, 202, 1006 64 If people prefer system [t]hey create changing accordance regular lawmaking 203, 1007. now, public employees "liable civil damage operation, line duty, authorized violator law.'' Cal. Veh.Code Ann. §17004 (West 1971). prerogative self-governing choice. "Political society,'' Seventh observed, "must risks pedestrians, engender, forbidden pursue, flee-and successful flights reduce number crimes solved passengers bystanders.'' allocating risks, elected vote consciences. judges overrule democratically adopted consciences review 65 reverse Circuit, failed still, soft voice within, right. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber & Lumber Co., 200 321, 337, 282, 287, 499. immune operation Vehicle Code §17004, employee declined potential dismissing prejudice refiling court. municipal (1978), factual dispute trains vehicular evinces public. affirmed points, 446-447 (1996) us. Jones Sherrill, 827 1102, 1106 (1987), Sixth negligence'' Subsequently, Foy Berea, 227, 230 (1995), mentioning Jones, disavowed claim.'' Although inaction, pursuit, seems apply utilized 232-233, situation. virtue California's post-deprivation effectively adequate opportunity seek compensation state-occasioned son's express merits 281-286, 816-820, judgment); Parratt Taylor, 451 1908, 68 420 (1981), adequacy scheme. contours violated. 394, 1870-1871, 1990 imposition analyze because, held, plaintiff Normally, allegedly implicated events question. 1793, (1991) ("A concomitant determination "clearly established' defendant acted all,'' "assum[e], deciding, preliminary issue''). STEVENS where, "is unresolved.'' generally readily fit here; acted. significant avoidance always followed ruling standards remain detriment individuals. An determination, more, non-constitutional. practical terms, escape require suit enjoin future municipality, litigating suppression motion criminal proceeding; none block Shapiro, Public Officials' Qualified Immunity Section 1983 Actions Under Harlow Fitzgerald Progeny, U. Mich. J.L. Ref. 249, 265, avenues open, previously clarity. Brief National Association Counties al. Amici Curiae 8-13; Lodge Fraternal Police Amicus 4-9; Denver, Colorado 2-7; Riverside 6-18; Gabriel Torres 3-11. Several that, purposes attempts 10-11. foreclosed "neither usage attempted unlawful circumstances; things unlawful, few elevated proscriptions.'' 1550, 690, Attempted seizures scope 646, 1561 (STEVENS, dissenting) (disagreeing position "an coverage Amendment''). before, usefulness "conscience shocking' test,'' Herrera 506 390, 428, 853, 875, 122 203 (1993), independent understandable. He mistaken seeing insistence return scheme disagreement significance judged contravene differences specificity, prevail legislation. explain text, challenging grounds, antecedent enforcing claimed. challenges raise claims, lest demoted challenge action, egregious, outrageous, fairly contemporary informed protection, reflects blame Only condition satisfied debate sufficiency claimed, ways. considered necessity examples, difference specificity. reach egregious. formulated ultimate actors plaintiff, full appreciation brutality acts. Rochin, decided long (and Mapp Ohio, 367 643, 81 1684, 1081 (1961)), today albeit result. dereliction reflective train unconstitutional individually liable. 388-389, 1204-1205, "actual deliberation,'' mean "deliberation'' narrow, technical sometimes homicide Caldwell Ala. 412, 84 So. 276 (1919) ""deliberation man slayer ponder killing time'''; "it entertained pressing pistol fired shot[,] moment time''). categorized terms. There, severely retarded personnel institution confined professional denying training habilitation. 319-325, 2459-2463. combination patient's involuntary commitment total dependence custodians obliges thought ("Where suffers physical negligent vehicle, stated. story seriously threatened misuse vehicle'') imply treatment (decisions "involve host choices locally torts], interpreting charter Government entire country''). Richmond, Cal.4th 1154, Cal.Rptr.2d 442, 892 P.2d 1185 (1995) (discussing pursuits). classical music, note exemplars excellence borrowed Cole Porter's "You're Top,'' copyright 1934. applicable original suggested recited (in considering Bail Reform Act 1984 Clause, [s]o-called ''). am happy accept limitations willing impose though puzzlement legislatures.

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