Document: 530 U.S. 327120 S.Ct. 2246147 L.Ed.2d 326 NOTICE: This opinion is subject to formal revision before publication in the preliminary print of United States Reports. Readers are requested notify Reporter Decisions, Supreme Court States, Washington, D. C. 20543, any typographical or other errors, order that corrections may be made goes press.MILLER, SUPERINTENDENT, PENDLETON CORRECTIONAL FACILITY, et al.v.FRENCH, al. No. 99-224. SUPREME COURT OF THE UNITED STATES Argued April 18, 2000 Decided June 19, 20001 ON WRITS CERTIORARI TO OFAPPEALS FOR SEVENTH CIRCUIT Syllabus In 1975, prison inmates at Pendleton Correctional Facility brought a class action, and District issued an injunction, which remains effect, remedy violations Eighth Amendment regarding conditions confinement. Congress subsequently enacted Prison Litigation Reform Act 1995 (PLRA), which, as relevant here, sets standard for entry termination prospective relief civil actions challenging conditions. Specifically, 18 U.S.C. § 3626(b)(2) provides defendant intervenor move terminate under existing injunction does not meet standard; §3626(b)(3) court such if it makes certain findings; §3626(e)(2) dictates motion "shall operate stay" beginning 30 days after filed ending when rules on motion. 1997, petitioner officials (hereinafter State) remedial §3626(b). Respondent prisoners moved enjoin operation automatic stay, arguing violates due process separation powers principles. The enjoined State appealed, intervened defend §3626(e)(2)'s constitutionality. affirming, Seventh Circuit concluded precluded courts from exercising their equitable but statute, so construed, was unconstitutional grounds. Held: 1. clearly intended make PLRA's stay provision mandatory, precluding power stay. Government contends (1) should interpret statute displacing courts' traditional authority preserve status quo pending resolution merits absent clearest command contrary (2) reading remove would raise serious questions, therefore avoided canon constitutional doubt. But where, has its intent clear, this must give effect intent. Sinclair Refining Co. v. Atkinson, 370 195, 215. Under §3626(e)(2), once state §3626(b) motion, during" specified time period indicates mandatory throughout period. statute's plain meaning subverted were interpreted merely burden-shifting mechanism prevent suspending Viewing context §3626 whole confirms Court's conclusion. Section 3626(e)(4) appeal preventing stay's operation, denial provision's one-way nature only sense required during specific period, attempt by district circumvent immediately reviewable. Mandamus more appropriate because granted exercise sound discretion. Given curbing discretion principal objective PLRA, have been odd left enforcement 3626(e)(3) also support Government's view, permits starting point delayed up 90 days; affect begins. While construing raises doubt avoid questions where saving construction plainly Congress' Pp. 6-12. 2. 3626(e) violate Constitution prohibits one branch encroaching central prerogatives another. Article III gives Federal Judiciary power, rule cases, decide them, review superior courts. Plaut Spendthrift Farm, Inc., 514 211, 218-219. Respondents contend principle legislatively final judgment violation Hayburn's Case, 2 Dall. 409. Unlike situation involve direct judicial decision Legislative Executive Branch. Nor reopening judgment, addressed Plaut. careful distinguish legislation attempted reopen dismissal money damages suit altering injunctions entered Prospective continuing, executory decree alteration changes underlying law. Cf. Landgraf USI Film Products, 511 244, 273. conclusion follows Pennsylvania Wheeling & Belmont Bridge Co., How. 421, 432 (Wheeling II), 13 518 I), became unenforceable altered law ongoing relief. Applied II principles demonstrate unconstitutionally suspend court's judgment. It tell judges when, how, what do, reflects change implemented §3626(b), establishes new standards As instruct, awarding relief, no longer enforceable extent inconsistent with Although here purposes appeal, last word department, continuing supervisory jurisdiction, according subsequent For same reasons, articulated Klein, Wall. 128, found purporting prescribe cases it. That itself amend legal help respondents; read whole, imposes consequences application standard. Finally, imposition limit offend structural concerns powers. Whether short deprives litigants opportunity heard question Court. occasion whether there could constraint action severe implicated concerns. 12-21. 178 F.3d 437, reversed remanded. O'Connor, J., delivered Court, Rehnquist, Scalia, Kennedy, Thomas, JJ., joined, Souter Ginsburg, joined Parts I II. Souter, concurring part dissenting part, joined. Breyer, opinion, Stevens, Notes 1 Together 99-582, French al., certiorari court. Opinion Justice O'Connor (PLRA) §§801-810, 110 Stat. 1321-66 1321-77. If satisfy these standards, entitled "immediate termination" (1994 ed., Supp. IV). And "automatic provision, filing (extendable "good cause") §§3626(e)(2), (3). superintendent Facility, currently operating confinement, PLRA. unconstitutional. Appeals affirmed. We and, not, * A 3 litigation began four now Rev. §1979, 42 1983 behalf all persons who were, be, confined facility against predecessors office petitioners State). Record, Doc. 1, p. After trial, living violated both federal law, including Amendment's prohibition cruel unusual punishment, correct those violations. Owens, 538 F. 910 (SD Ind. 1982), aff'd vacated remanded 777 F.2d 1250 (CA7 1985). State's pending, decided Pennhurst School Hospital Halderman, 465 89 (1984), held Eleventh jurisdiction over claims injunctive based Accordingly, reconsideration. F.2d, 1251. On remand, most ran afoul Amendment, amended address accounted improvements had occurred interim. Ibid. 4 affirmed aspects governing overcrowding double celling, use mechanical restraints, staffing, quality food medical services, portions pertaining recreation, protective custody, fire occupational safety standards. Id., 1258. remained ever since, modification occurring October 1988, parties resolved joint stipulation remaining issues related 14. B 5 1996, PLRA facilities. grant approve unless finds narrowly drawn, extends further than necessary right, least intrusive means right." 3626(a)(1)(A) criteria apply injunctions, See §3626(b)(2). particular, §3626(b)(2) provides: 6 "In respect conditions, intervener shall immediate approved absence finding 7 however, "makes written findings record current drawn violation." §3626(b)(3). requires "promptly" motions mandamus available failure do so. §3626(e)(1). 8 issue that, circumstances, stayed terminate. subsection (e)(2), "Automatic Stay," states: 9 "Any modify (b) period- 10 "(A)(i) 30th day filed, case paragraph (b); - 11 "(B) date enters ruling motion." 12 several 1997 amendments permitted postpone 60 cause," cannot include general congestion docket. §123, 111 2470, codified 3626(e)(3).1 C 5, confinement Facility. 16. response, prisoner temporary restraining Due Process Clause Fifth prisoners' enjoining id., 23; see Duckworth, 440-441 1999). pursuant 28 2403(a) constitutionality §3626(e)(2). 14 order, concluding although F.3d, 447-448. reasoned drafted unequivocal terms, providing operate" 443. acknowledging lightly assume meant restrict courts, "it impossible language doing anything less that." Turning question, characterized "a self-executing legislative determination set aside time." 446. such, directly suspends doctrine 211 (1995), mandates particular decision, pendency 128 (1872). Having grounds, did reach claims. Over dissent three judges, denied rehearing en banc. 448-453 (Easterbrook, banc). 15 certiorari, 528 1045 (1999), resolve conflict among Courts authority, Appeals' Compare Ruiz Johnson, 385 (CA5 1999) (holding retain constitutional); Hadix 144 925 (CA6 1998) (same), 437 (case below). 16 statutory first. Both agree, majority below, precludes argues, construed leave intact "stay stay," invoking two canons construction. First, we "[a]bsent contrary." Califano Yamasaki, 442 682, 705 (1979). Second, asserts Like Appeals, agree constitutionally doubtful constructions "fairly possible." Communications Workers Beck, 487 735, 762 (1988). "we intent." 215 (1962). 17 text "[a]ny fixed time, i.e., (or 90) until 3626(e)(2) IV) (emphasis added). "automatic" [specified time] period" time. Lexecon Inc. Milberg Weiss Bershad Hynes Lerach, 523 26, 35 (1998) ("[T]he `shall' normally creates obligation impervious discretion"). Nonetheless, enter consistent because, simply mechanism. is, purpose relieve defendants burden establishing prerequisites eliminate deny even established, public interest hardship plaintiffs. Thus, reading, nothing prevents applying 19 Such interpretation, subvert making permissive. states (Emphasis added.) employ term "shall," specifies points begin end. words, Breyer's suggestion "says about " `stay,' post, (dissenting opinion), unequivocally interval. To allow "operating" statutorily prescribed contradict terms. mean despite "shall" effect. accomplish best, awkward indirect achieve result. 20 prohibit contained §3626(e) staying, suspending, delaying, barring appealable" 1292(a)(1). §3626(e)(4). At first blush, might supporting view expressly recognized possibility preserving reached 394; 938. They provided expedited orders place. ibid. "Congress understood some conscientious acting good faith perceive equity suspend" so, appellate review." supra,, 394. 21 critical flaw construction, §3626(e)(4) ("Any appealable"). rationale situations demands suspended, then presumably appealable. 22 goal circumventing commands, review. proposition doubtful, extraordinary "granted discretion." Whitehouse Illinois Central R. 349 366, 373 (1955). objectives, very Instead, sensibly chose mistakenly believe-under novel scheme created PLRA-that they rather mandamus, showing "clear indisputable" right issuance writ. Mallard Dist. Southern Iowa, 490 296, 309 (1989). event, originally provide interlocutory refused refusal, re Scott, 163 282, 284 1998); supra, 388; 23 §3626(e)(3). authorizes extension, filed. explains allowing relatively generous cause" standard, negative implication preserved stringent sure, delay cause necessarily imply reason stay-for example, basis principles-is precluded. §3626(e)(3) isolation. When §§3626(e)(2) (3) together, clear adjusts delayed. Once 90-day passed, During irreconcilable statute. 24 construe displace "clearest command," U.S., 705, "inescapable inference" contrary, Porter Warner Holding 328 395, 398 (1946), convinced unmistakable while us "plainly Congress." Edward J. DeBartolo Corp. Florida Gulf Coast Building Constr. Trades Council, 485 568, 575 "We press `to disingenuous evasion' question." Locke, 471 84, 96 (1985) (quoting George Moore Ice Cream Rose, 289 373, 379 (1933)); Dept. Corrections Yeskey, 524 206, 212 (constitutional unambiguous); Commodity Futures Trading Comm'n Schor, 478 833, 841 (1986) "does prerogative ignore will"). find unambiguous, accordingly, adopt "more flexible interpretation" Post, 3. Any effectively convert into discretionary one. Because enacting confront issue. 25 enumerates separates branches Articles I, II, III, "very structure" exemplifies concept INS Chadha, 462 919, 946 (1983). boundaries between `hermetically' sealed," 951, another, Loving 517 748, 757 (1996); Buckley Valeo, 424 121-122 (1976) (per curiam). Judicial Branch forth §1, "judicial Power vested supreme inferior ordain establish," staffed hold behavior, whose compensation diminished tenure office. explained 218-219, "gives hierarchy." 26 encroaches thereby doctrine. this, assert, 409 (1792). According prisoners, court, constitutes impermissible usurpation commands albeit temporarily. An analysis Case Plaut, well examination interaction provisions §3626, 27 arose out 1792 authorized pensions veterans Revolutionary War. Mar. 23, 1792, ch. 11, 243. circuit applications determine amount pension, Secretary War either reject findings. 408-410. opinions five Justices, sitting Courts, reported, since "stands vest decisions Branch." 218; Morrison Olson, 654, 677, n. effort coequal "annul judgment" `an assumption power' forbidden." 224 Bates Kimball, Chipman 77 (Vt. 1824)). Branches. suggest falls within "suspension" 226 413 (opinion Iredell, Sitgreaves, J.) (" `[N]o can, liable revision, suspension, [l]egislature itself, whom kind appears vested' ")). judgments enactment 211. plaintiffs securities fraud seeking damages. 213. ruled Lampf, Pleva, Lipkind, Prupis Petigrow Gilbertson, 501 350 (1991), suits commenced year discovery facts constituting years violation. light intervening plaintiffs' untimely, accordingly dismissed barred. 214. dismissing become final, reinstatement actions, plaintiffs', Lampf timely previously applicable limitations. 29 retroactive exceeded authority. hierarchy department (unless expired), "[i]t Congress's latest enactment, overturning each every level, `decide laws.' 227 Schooner Peggy, Cranch 103, 109 (1801)). achieves finality, "becomes department." 227. hierarchy," render dispositive judgments," retroactively judgments, 219 Easterbrook, Presidential Review, 40 W. Res. L. 905, 926 (1990) (internal quotation marks omitted)). case-legislation damages-from "altered courts." 232. emphasized "nothing our holding today calls question" alter injunctions. 273 (1994) ("When affects propriety retroactive"). (1852) I) 421 (1856) II). 31 bridge across Ohio River, too low, unlawfully "obstruct[ed] navigation Ohio," ordered raised permanently removed. How., 578. Shortly thereafter, declaring "lawful structur[e]," `post-roa[d] passage mails States,' Company maintain then-current site elevation. 429. destroyed storm, sued bridge's reconstruction, legalizing annulled I. rejected argument, "directing abatement obstruction" defendants' continuance reconstruction obstruction. unlawful obstruction, "quite enforced." 431-432. awarded later affected plaintiff's 431. relief-a continuation bridge-the validity depended "whether [the bridge] interferes navigation." maintenance enforceable. 432. 32 "suspend" "tell do." 449 "heavy lifting" Berwanger Cottey, 834, 839 3626 "approved violation," §3626(b)(2), "findings findings, cease, tailored, assists §§3626(b)(2) requiring enforceable, supported 33 By restricted enforce concerning precisely tailored needed right. Benjamin Jacobson, 172 144, (CA2 (en banc); Imprisoned Citizens Union Ridge, 169 178, 184-185 (CA3 1999); Tyler Murphy, 135 594, 597 (CA8 Inmates Suffolk County Jail Rouse, 129 649, 657 (CA1 1997). note challenged here; assume, without deciding, pronounces effective. "final "last Rufo Jail, 502 367, 388 (1992). "modified if, turns out, obligations placed upon law." Ibid.; Railway Employees Wright, 364 642, 646-647 (1961) (a reflect fact, entered); Lauf E. G. Shinner 303 323, 329 (1938) (applying Norris-LaGuardia Act's findings). 34 helps implement caused §3626(b)(3), stayed. previous nor divest Rather, changed circumstances-that case, executor estate Confederate sympathizer, sought recover value property seized Civil War, recoverable Klein decedent given aid comfort rebellion. 131. Padelford, 531, 542-543 (1870), pardon satisfied proving given. Klein's instead taken proof pardoned individual fact aided enemy, claimant offered dismiss lack jurisdiction. Wall., 133-134. purported "prescribe Department government it." 146. 36 Here, argue similarly outcome: noted "[w]hatever precise scope take `amend[s] law.' 218 Robertson Seattle Audubon Soc., 503 429 (1992)). concede still applicable. explained, isolation, whole. operates conjunction relief; met, Rather prescribing 37 assert fall prohibitions offends places deadline decisionmaking, interfering core functions. Constitution's certainly apprehensions encroached function "cases controversies properly them." Raines, 362 17, (1960). Respondents' concern limit, then, relative brevity. meaningful us. open, therefore, particularly complex implicate 38 contrast process, principally serves protect personal rights full fair hearing, primarily protecting role independent design. deprive adjudicatory role, encourages promptly. 39 Through conclude reversed, proceedings opinion. ordered. enacted, [for termination] automatically §802, 1321-68 1321-69. revised form, cases." 41 Stevens joins, dissenting. says "any party intervener" "prospective relief" 3626(b)(1) IV), modify) "necessary [a] [and is] means" 3626(b)(3). 43 consider procedural "during (no than) 90th decided. approximately following: Suppose 1980, present future 1996 asking 1980 injunction. days, automatically-regaining life judge eventually 44 interprets words mean, terms my ineffective day, matter what. Solicitor General, believes adopted interpretation rigid provision. He argues silent can silence sufficient create exception circumstances read, neither significant difficulties. (1979) (only "clearest" congressional "command" displaces powers); (1988) (the will problems "un- Congress"). 45 General believe `reasonable construction' Hooper California, 155 648, (1895), stating `every reasonable resorted to, save unconstitutionality' "). 46 outset, understand why needed. keep mind extreme correct, complexity resulting decrees, potential difficulties arising need decrees follow directives. hypothetical example actual help. 47 January 1979, 81 factual describing extremely poor-indeed "barbaric shocking"-prison Commonwealth Puerto Rico. Morales Feliciano Romero Barcelo, 497 14, (PR 1979). These included prisons typically twice number designed hold; square feet space (i.e., feet); care, psychiatric beds, mattresses, hot water, soap towels toothbrushes underwear; prepared budget $1.50 per "tons rats, vermin, worms, spoilage"; "no working toilets showers," "urinals [that] flush sinks," "plumbing systems collapse," "stench" "omnipresent"; "exposed wiring extinguisher, [and] poor ventilation"; "calabozos," dungeons, "like cages bars top" slits steel door opening onto corridor, floors "covered raw sewage" mental illnesses, "caged like wild animals," sometimes months; areas mentally ill "kept cells naked, private possessions, them work drinking water." 20-23, 26-27, 29, 32. led epidemics communicable diseases, untreated illness, suicides, murders. 48 amounted forbidden "cruel punishment." 33-36. produce mandated improvement system screen handlers close patients hospitals, fix broken plumbing, feet) prisoner. 39-41. 49 pervasiveness seriousness described difficult cure quickly. next decade, embodied published opinions, affecting institutions. concerned, inter alia, overcrowding, security, disciplinary proceedings, classification, rehabilitation, parole, drug addiction treatment. Not surprisingly, involved extensive evidence argument consuming thousands pages transcript. 672 591, 595 1986). Their implementation services monitors, assistants, Special Master. Along way, documented degree "administrative chaos" system, Hernandez Colon, 697 37, 1988), contempt Commonwealth, followed assessment collection $74 million fines. 775 487, 488 1991). 50 improved respects. Rossello Gonzalez, 2d 151, 179 1998). express whether, of, earlier brief summary illustrate necessity Where just described, prove accurate remain necessary, "least available, orders, compliance yet assured, complex, interrelated, many different Ninety ascertain views parties, evidence, permit respond arguments others. 51 possible, reads it, familiar local problem-perhaps reinstate later, prohibited unremedied, Alternatively, threat lead abbreviate fairness otherwise demand. minimum, recipe uncertainty, long governed administration suddenly turn off, (perhaps selectively) back on. So rendering temporarily pre-existing remedies aimed correcting past, perhaps ongoing, Constitution. concedes, rise problems. Ante, 21. 52 General's avoids notes extendable days. 3626(e)(2); Brief 12. nothing, "stay." "stay" quo; suspension demonstrates "would irreparable injury, likely defeated, takes effect." shown, "court require comply outstanding resolves merits," 12-13, review, 3626(e)(4). 53 Is "reasonable construction" statute? Corp., 575. open interpretation. ordinarily (such injunction), Scripps-Howard Radio, FCC, 316 4, 9-10, (1942), accordance (irreparable likelihood success merits, balancing possible harms public, Doran Salem Inn, 422 922, 931 (1975); Yakus 321 414, 440 (1944)). There logical inconsistency saying (to terminate) retains circumstances. last-mentioned power. silent. place come may. 54 meaning. still, wishing demonstrating strong, special reasons various titles often self-starting, unstoppable. Websters Third New International Dictionary 148 (1993). Indeed, Bankruptcy uses describe petition proceedings-despite portion bankruptcy terminate, annul, 362(d); 143 Cong. Rec. S12269 (Nov. 9, 1997) (statement Sen. Abraham) (explaining modeled provision). Poultry Producers Financial Protection 1987 appeals affirming Agriculture injunction" "live poultry dealer" violating 228b-3(g); suggested lacks "injunction" appropriate. Moreover, bring about, lift (according criteria), highly cases. 55 addition, surrounding naturally favoring preceding "[m]andamus lie prompt ruling." 3626(e)(1). through served mandamus-a procedure (in complicated matter) weeks. modified lifted considerable sense. guarantees justify lifting "staying, delaying similar reasons. 56 Further, history neutral, Yet precedent. precedent denying authorizing said, "[o]ne thing clear. wished historic knew how apt words-only done born exigencies war." Scripps-Howard, 17. Lockerty Phillips, 319 182, 186-187 (1943) (finding deprived explicitly removed jurisdiction), 8-10 (refusing depriving power), Califano, 705-706 (same). recognize importance permitting tailor procedure, justice flexibility treat differently-the underlies itself. Hecht Bowles, 321, (1944) ("The essence Chancellor mould necessities case"). 57 revealed Those avoidance overly broad reassessment conformity simultaneously expressed end practices. 3626(a)(1), (a)(2), (b)(3). flexibly interpreted, risks objectives speedy fails control error. improper provisional necessary. risk occasional small additional seems comparatively price pay entire purposes) accompany majority's 58 upshot language, structure, purpose, history, party, criteria, demonstrated exception. reluctance arise 59 natural language. legislator endorsed harmonizes basic principles, And, better fits adopts. proper consequently vacate remand proceedings. 61 62 Ginsburg part. 63 unambiguous join issue, plaintiff chance valid entered. separation-of-powers allows inadequate prerequisite case.1 thus Part respectfully disposition. 64 rest premises: secured; obtaining defining requisites pleading, notice, on; lying two, level certainty ordered, permissible variety.2 65 sort imposing existing, orders. 232 (1995). adequate applicability old little claiming crossed line interfere performance function. determining applies (say, factfinding) insufficient invalidates extant practical assumed allowed order. One way result mandating perfectly rule, depending factfinding. treated usurping circumstances.3 146 66 arises something tell, sufficiency action.4 Absent determination, determined lacked requisite effective, powers, presented. forecloses challenge PLRA: promptly." Other narrow entitlements protect, secure unaffected solely inherent seem squarely engage cf. 218, (1995) (characterizing (1792)), try non-prospective 431 (1856); (1872)). rules, inability applied all. Marbury Madison, 137, 177 (1803) ("It emphatically province duty say is"). Neither Appeals. speculated able carry adjudicative responsible limits imposed (e)(2)," 447 1999), deciding presented situation. "under Congress] away ponders weighty questions."

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