Document: 506 U.S. 139 113 S.Ct. 684 121 L.Ed.2d 605 PUERTO RICO AQUEDUCT AND SEWER AUTHORITY, Petitionerv.METCALF & EDDY, INC. No. 91-1010. Argued Nov. 9, 1992. Decided Jan. 12, 1993. Syllabus * Petitioner, an autonomous Puerto Rico government instrumentality, moved to dismiss the diversity action brought against it by respondent, a private firm, on grounds that was "arm of State," and Eleventh Amendment therefore prohibited suit. After District Court denied motion, Appeals dismissed petitioner's appeal for want jurisdiction, concluding Circuit precedent barred both States their agencies from taking immediate claim immunity. Held: state entities be "arms State" may take advantage collateral order doctrine Cohen v. Beneficial Industrial Loan Corp., 337 541, 69 1221, 93 L.Ed. 1528, district court denying immunity suit in federal court. Although 28 U.S.C. § 1291 requires appeals taken "final decisions courts," Cohen, supra, at 546, S.Ct., 1225, provides "small class" judgments are not complete final will immediately appealable. Once is acknowledged State its "arms" are, effect, immune federal-court under Amendment, see, e.g., Welch Texas Dept. Highways Public Transportation, 483 468, 480, 107 2941, 2949, 97 389, follows elements necessary bring within Cohen's class," see Coopers Lybrand Livesay, 437 463, 98 2454, 2457, 57 351, satisfied. First, denials claims purport conclusive determinations have no right sued Second, motion involves fundamental constitutional protection whose resolution generally bearing merits underlying action. Third, value immunity—like benefits conferred qualified individual officials, Mitchell Forsyth, 472 511, 526, 105 2806, 2815, 86 411—is most part lost as litigation proceeds past practice, such denial effectively unreviewable judgment. Respondent's does confer suit, but merely defense liability, misunderstands role our system federalism rejected. Moreover, there little basis respondent's alternative argument distinction should drawn between cases which determination bound up with factual complexities trial not. In any event, status appear implicate extraordinary difficulty can fully explored remand. Pp. ____. 945 F.2d 10, (CA1 1991) reversed remanded. WHITE, J., delivered opinion Court, REHNQUIST, C.J., BLACKMUN, O'CONNOR, SCALIA, KENNEDY, SOUTER, THOMAS, JJ., joined. filed concurring opinion. STEVENS, dissenting Richard G. Taranto, Washington, D.C., petitioner. Peter W. Sipkins, Minneapolis, Minn., respondent. Justice WHITE Court. 1 The question before whether or entity appealed 1528 (1949). We conclude may. 2 Aqueduct Sewer Authority (PRASA), "an instrumentality" functions "provide inhabitants adequate drinking water, sanitary sewage service other facility proper incidental thereto." P.R.Laws.Ann., Tit. 22, §§ 142, 144 (1987). 1985, PRASA entered into consent decree Environmental Protection Agency agreed upgrade many wastewater treatment plants ensure compliance Federal Clean Water Act. subsequently contracted engineering firm incorporated Delaware, assist this task. 1990, withheld payments contract light alleged overcharging Respondent United Rico, alleging breach damage business reputation. 3 suit.1 found petitioner did qualify "because ability raise funds payment contractual obligations do affect Commonwealth's funds" motion. App. Pet. Cert. A-9. timely notice First sought stay proceedings while pending. 14 (1991), Id., 12 (discussing Libby Marshall, 833 402 1987)). 4 conflict decision below those Courts considered issue, we granted certiorari.2 503 ----, 112 1290, 117 514 (1992). II 5 Title courts." Appeal thereby precluded "from tentative, informal incomplete," well "fully consummated decisions, where they steps towards judgment merge." U.S., 1225. Nevertheless, case appealable if it: 6 "fall[s] small class finally determine separable from, to, rights asserted action, too important review independent cause itself require appellate consideration deferred until whole adjudicated." Ibid. 7 Thus, itself, held could defendant's compel plaintiffs shareholder derivative post bond. because "did make step toward disposition [would] merged judgment" because, after judgment, would "be late present order, [bond] statute, applicable, been lost." 8 has orders officials' absolute among fall ambit Cohen. See Nixon Fitzgerald, 457 731, 102 2690, 73 349 (1982); 411 (1985). bears particularly case. There, Attorney General his immunity.3 remanded trial. reversed, holding that, absent appeal, central immunity—avoiding costs general consequences subjecting public officials risks discovery forfeited, much benefit bond requirement forfeited "The entitlement rather than mere liability; like immunity, erroneously permitted go trial." Mitchell, 2815 (emphasis original). 9 Petitioner maintains, agree, same rationale ought apply made possessing share Under terms "[t]he Judicial power shall construed extend law equity, commenced prosecuted one Citizens another State. . ." Const., Amdt. 11. This withdrawal jurisdiction confers "this consistently unconsenting suits courts her own citizens State." Edelman Jordan, 415 651, 662-663, 94 1347, 1355, 39 662 (1974). Absent waiver, neither nor acting control subject court." 2949-2950, 389 (1987) (plurality opinion); also Will Michigan Police, 491 58, 66, 109 2304, 2309, 45 (1989); Cory White, 85, 90-91, 2325, 2328-2329, 72 694 Alabama Pugh, 438 781, 3057, 1114 (1978) (per curiam); Mt. Healthy City School Dist. Bd. Ed. Doyle, 429 274, 280, 568, 572, 50 471 (1977). 10 established court, "To come 'small class' must [1] conclusively disputed question, [2] resolve issue completely separate [3] judgment." 2458, 351 (footnote omitted). Denials States' entities' agents protection, cf. Lauro Lines S.R.L. Chasser, 490 495, 502-503, 1976, 1980, 104 548 (1989) (Scalia, concurring), Finally, practice.4 11 Respondent, following (1987), maintains liability. Were true, arguably entitled avail doctrine. See, Van Cauwenberghe Biard, 486 517, 526-527, 108 1945, 1951-1952, 100 517 (1988). Support narrow view mainly Ex parte Young, 209 123, 441, 52 714 (1908), seeking prospective, compensatory retrospective relief, challenging constitutionality official conduct enforcing law. ensures employ means avoiding law, regarded carving out exception Green Mansour, 474 64, 68, 106 423, 426, 88 371 narrow: applies only prospective permit officers declaring violated past, id., 73, 428, application agencies, regardless relief sought. supra. Rather defining nature Young progeny render wholly inapplicable certain suits. Such deemed retain all 13 More generally, liability federalism: very object purpose 11th were prevent indignity coercive process judicial tribunals instance parties." re Ayers, 123 443, 505, 164, 183, 31 216 (1887). rooted recognition States, although union, maintain attributes sovereignty, including sovereign Hans Louisiana, 134 1, 13, 504, 506, 33 842 (1890). It thus accords respect owed them members federation. While type justified concern unduly burdened litigation, ultimate justification importance ensuring dignitary interests vindicated.5 argues agency's Tr. Oral Arg. 30-32; Dube University New York, 900 587, 594 (CA2 1990), cert. denied, 501 111 2814, 115 986 (1991) (immediate lie matter law). On view, example, named appealable, whereas when issued presents difficult questions agency drawing line. 527-529, n. 2816-2817, 10. us PRASA's implicates III 15 hold further consistent 16 so ordered. 17 concurring. 18 I join Court's write separately plain once again my position feature. continue believe interpretation embodying broad principle "simply cannot reconciled envisioned Basic Document Amendments." Atascadero Hospital Scanlon, 473 234, 303, 3142, 3178, 87 171 (1985) (BLACKMUN, dissenting). preserve State's limited context citizen foreign country state-law 301, 3177 (Brennan, dissenting), immediately. Whether assertion founded—a case, ante, ____, 1—is "too 1226, Because guarantee cases, concur merits, court's Sullivan Finkelstein, 496 617, 632, 110 2658, 2667, 563 (1990) (opinion judgment). 19 dissenting. 20 arises commercial dispute (PRASA Authority). parties multimillion dollar providing construction extensive improvements Rico's facilities. contract. dismiss, claiming Amendment. concluded had merit dismiss. meaning 1291. 21 If litigant engaged dispute, perfectly clear dismissal required precedents. For jurisdictional grounds—a asserts defendant particular forum—is (1988); Catlin 324 229, 236, 65 631, 635, 89 911 (1945). makes assertion—namely, forum Brief 4-5. 22 Nonetheless, despite Biard Catlin, holds decision" rule give way review. reasons analogous official's interlocutory appeal. agree. 23 designed shield conduct. absence defense, held, "officials hesitate exercise discretion injuriously affecting individuals even interest bold unhesitating action." 744-745, 2698 (internal quotation marks citation specter long contentious legal proceeding inhibit exercising authority freedom independence serve interest, 742-743, 2697-2698; 2815-2816. 24 available often labeled "immunity," label virtually common contrast latter, based read broadest, contend shielded conduct, without over entity. Nothing bars respondent recovery different forum. Indeed, noted above, acknowledges Commonwealth Rico. 25 Plainly, then, allowing so-called "immunity" bear burden, expense, distraction stemming nothing whatsoever Amendment; determines where, more precisely, not, brought.1 goes opposed entity, relevant determining 26 indeed permitting entity's objection grounds, what then driving appeal? tells us, ____: "[The] vindicated." Whereas suffer through tribunal lacks protected "indignity" having case—as merits—in neutral 27 find embarrassingly insufficient. mandate courts" predicated upon "mer[e] technical conceptions 'finality,' " 233, 633-634, serves concerning fair efficient administration justice. preserves judge conserves resources necessarily expended piecemeal appeals. relevance "fairness" preventing "the obstruction just harassment cost succession various rulings rise. Firestone Tire Rubber Co. Risjord, 449 368, 374, 101 669, 673, 66 571 (1981) Sacrificing name preserving need carry duties thing; doing "dignitary" or, aqueduct sewer authority, quite another. me, balance easy. sort clearly outweighs whatever "dignity" might derive hold, below, Accordingly, respectfully dissent. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Lumber Co., 200 321, 337, 282, 287, 499. As comes Circuit—that treated purposes Ramirez Fire Serv., 715 694, 697 (1983)—is challenged here, express matter. "not consider [took] actually claimed immunity." 14, 1991). likewise claim. (1991); Coakley Welch, 877 304, 305 (CA4), 493 976, 501, Chrissy F. Mississippi Pub. Welfare, 925 844, 848-849 (CA5 1991); Kroll Board Trustees Illinois, 934 904, 906 (CA7), 502 377, 116 329 Barnes Missouri, 960 63, 64 (CA8 1992) Durning Citibank, N.A., 950 1419, 1422 (CA9 Schopler Bliss, 903 1373, 1377 (CA11 1990) curiam). affirmed, us. 520, 2813, result reached today largely anticipated 256 490, 41 588, 1057 (1921). rem libel ships chartered operated York ground personam When applied writ prohibition. noting pressed 497, 589, vindicate "fundamental" consent. 503, 591. reason, Circuit's attempt distinguish (1985), compared better able burden fails. 402, 406 concerned withstand privilege sued.1 Not surprisingly, expressly characterized albeit context, "partak[ing] bar." 678, 1363,

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