Source: http://www.chanrobles.com/usa/us_supremecourt/420/308/case.php
Timestamp: 2020-01-28 17:50:41
Document Index: 789914187

Matched Legal Cases: ['§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983', '§ 1983']

2. When the regulation in question is construed, as it should have been and as the record shows it was construed by the responsible school officials, to prohibit the use and possession of beverages containing any alcohol, rather than as erroneously construed by the Court of Appeals to refer only to beverages containing in excess of a certain alcoholic content, there was no absence of evidence to prove the charge against respondents, and hence the chanrobles.com-red
Respondents Peggy Strickland and Virginia Crain brought this lawsuit against petitioners, who were members of the school board at the time in question, two school administrators, and the Special School District of Mena, Ark., [Footnote 1] purporting to assert a cause of action chanrobles.com-red
under 42 U.S.C. § 1983, and claiming that their federal constitutional rights to due process were infringed under color of state law by their expulsion from the Mena Public High School on the grounds of their violation of a school regulation prohibiting the use or possession of intoxicating beverages at school or school activities. The complaint as amended prayed for compensatory and punitive damages against all petitioners, injunctive relief allowing respondents to resume attendance, preventing petitioners from imposing any sanctions as a result of the expulsion, and restraining enforcement of the challenged regulation, declaratory relief as to the constitutional invalidity of the regulation, and expunction of any record of their expulsion. After the declaration of a mistrial arising from the jury's failure to reach a verdict, the District Court directed verdicts in favor of petitioners on the ground that petitioners were immune from damages suits absent proof of malice in the sense of ill will toward respondents. 348 F.Supp. 244 (WD Ark.1972). The Court of Appeals, finding that the facts showed a violation of respondents' rights to "substantive due process," reversed and remanded for appropriate injunctive relief [Footnote 2] and a new trial on the question of damages. 485 F.2d 186 (CA8 1973). A petition for rehearing en banc was denied, with three judges dissenting. See id. at 191. Certiorari was granted to consider whether this application of due process by the Court of Appeals was warranted and whether that court's expression of a standard governing immunity for school board members from liability chanrobles.com-red
The violation of the school regulation [Footnote 3] prohibiting the use or possession of intoxicating beverages at school or school activities with which respondents were charged concerned their "spiking" of the punch served at a meeting of an extracurricular school organization attended by parents and students. At the time in question, respondents were 16 years old and were in the 10th grade. The relevant facts begin with their discovery that the punch had not been prepared for the meeting as previously planned. The girls then agreed to "spike" it. Since the county in which the school is located is "dry," respondents and a third girl drove across the state border into Oklahoma and purchased two 12-ounce bottles of "Right Time," a malt liquor. They then bought six 10-ounce bottles of a soft drink, and, after having mixed the contents of the eight bottles in an empty milk carton, returned to school. Prior to the meeting, the girls experienced second thoughts about the wisdom of their prank, but by then they were caught up in the force of events and the intervention of other girls prevented them from disposing of the illicit punch. The punch was served at the meeting, without apparent effect. chanrobles.com-red
The board subsequently agreed to hold another meeting chanrobles.com-red
on the matter, and one was held approximately two weeks after the first meeting. The girls, their parents, and their counsel attended this session. The board began with a reading of a written statement of facts as it had found them. [Footnote 4] The girls admitted mixing the malt liquor into the punch with the intent of "spiking" it, but asked the board to forgo its rule punishing such violations by such substantial suspensions. Neither Mrs. Powell nor Waller was present at this meeting. The board voted not to change its policy and, as before, to expel the girls for the remainder of the semester. [Footnote 5]
The District Court instructed the jury that a decision for respondents had to be premised upon a finding that chanrobles.com-red
485 F.2d 191 (footnote omitted).
Petitioners, as members of the school board, assert here, as they did below, an absolute immunity from liability under § 1983 and, at the very least, seek to reinstate the judgment of the District Court. If they are correct and the District Court's dismissal should be sustained, we need go no further in this case. Moreover, the immunity question involves the construction of a federal statute, and our practice is to deal with possibly dispositive statutory issues before reaching questions turning on the construction of the Constitution. Cf. Hagans v. Lavine, 415 U. S. 528, 415 U. S. 549 (1974). [Footnote 6] We essentially sustain the position of the Court of Appeals with respect to the immunity issue. chanrobles.com-red
The nature of he immunity from awards of damages under § 1983 available to school administrators and school board members is not a question which the lower federal courts have answered with a single voice. There is general agreement on the existence of a "good faith" immunity, but the courts have either emphasized different factors as elements of good faith or have not given specific content to the good faith standard. [Footnote 7] chanrobles.com-red
This Court has decided three cases dealing with the scope of the immunity protecting various types of governmental officials from liability for damages under § 1983. In Tenney v. Brandhove, 341 U. S. 367 (1951), the question was found to be one essentially of statutory construction. [Footnote 8] Noting that the language of § 1983 is silent with chanrobles.com-red
respect to immunities, the Court concluded that there was no basis for believing that Congress intended to eliminate the traditional immunity of legislators from civil liability for acts done within their sphere of legislative action. That immunity, "so well grounded in history and reason . . . ," 341 U.S. at 341 U. S. 376, was absolute, and consequently did not depend upon the motivations of the legislators. In Pierson v. Ray, 386 U. S. 547, 386 U. S. 554 (1967), finding that "[t]he legislative record gives no clear indication that Congress meant to abolish wholesale all common law immunities" in enacting § 1983, we concluded that the common law doctrine of absolute judicial immunity survived. Similarly, § 1983 did not preclude application of the traditional rule that a policeman, making an arrest in good faith and with probable cause, is not liable for damages, although the person arrested proves innocent. Consequently the Court said:
386 U.S. at 386 U. S. 555 (footnote omitted). Finally, last Term, we held that the chief executive officer of a State, the senior and subordinate officers of the State's National Guard, and the president of a state controlled university were not absolutely immune from liability under § 1983, but instead were entitled to immunity, under prior precedent and in light of the obvious need to avoid discouraging effective official action by public officers charged with a considerable range of responsibility chanrobles.com-red
Scheuer v. Rhodes, 416 U. S. 232, 416 U. S. 247-248 (1974).
Common law tradition, recognized in our prior decisions, and strong public policy reasons also lead to a construction of § 1983 extending a qualified good faith immunity to school board members from liability for damages under that section. Although there have been differing emphases and formulations of the common law immunity of public school officials in cases of student expulsion or suspension, state courts have generally recognized that such officers should be protected from tort liability under state law for all good faith, nonmalicious action taken to fulfill their official duties. [Footnote 9] chanrobles.com-red
As the facts of this case reveal, school board members function at different times in the nature of legislators and adjudicators in the school disciplinary process. Each of these functions necessarily involves the exercise of discretion, the weighing of many factors, and the formulation of long-term policy. [Footnote 10] "Like legislators and judges, these officers are entitled to rely on traditional sources for the factual information on which they decide and act." Scheuer v. Rhodes, supra, at 416 U. S. 246 (footnote omitted). As with executive officers faced with instances of civil disorder, school officials, confronted with student behavior causing or threatening disruption, also have an "obvious need for prompt action, and decisions must be made in reliance on factual information supplied by others." Ibid.
Liability for damages for every action which is found subsequently to have been violative of a student's constitutional rights and to have caused compensable injury would unfairly impose upon the school decisionmaker the burden of mistakes made in good faith in the course of exercising his discretion within the scope of his official duties. School board members, among other duties, must judge whether there have been violations of school regulations, and, if so, the appropriate sanctions for the violations. Denying any measure of immunity in these circumstances "would contribute not to principled and fearless decisionmaking, but to intimidation." Pierson v. Ray, supra, at 386 U. S. 554. The imposition of monetary costs for mistakes which were not unreasonable in the light of all the circumstances would undoubtedly deter even the chanrobles.com-red
most conscientious school decisionmaker from exercising his judgment independently, forcefully and in a manner best serving the long-term interest of the school and the students. The most capable candidates for school board positions might be deterred from seeking office if heavy burdens upon their private resources from monetary liability were a likely prospect during their tenure. [Footnote 11]
These considerations have undoubtedly played a prime role in the development by state courts of a qualified immunity protecting school officials from liability for damages in lawsuits claiming improper suspensions or expulsions. [Footnote 12] But at the same time, the judgment implicit in this common law development is that absolute immunity would not be justified, since it would not sufficiently increase the ability of school officials to exercise their discretion in a forthright manner to warrant the absence of a remedy for students subjected to intentional or otherwise inexcusable deprivations.
Tenney v. Brandhove, Pierson v. Ray, and Scheuer v. Rhodes drew upon a very similar background, and were chanrobles.com-red
Scheuer v. Rhodes, 416 U.S. at 416 U. S. 241-242 (footnote omitted).
The disagreement between the Court of Appeals and the District Court over the immunity standard in this case has been put in terms of an "objective," versus a "subjective," test of good faith. As we see it, the appropriate standard necessarily contains elements of both. The official himself must be acting sincerely and with a belief that he is doing right, but an act violating a student's constitutional rights can be no more justified by ignorance or disregard of settled, indisputable law on the part of one entrusted with supervision of students' daily lives than by the presence of actual malice. chanrobles.com-red
To be entitled to a special exemption from the categorical remedial language of § 1983 in a case in which his action violated a student's constitutional rights, a school board member, who has voluntarily undertaken the task of supervising the operation of the school and the activities of the students must be held to a standard of conduct based not only on permissible intentions, but also on knowledge of the basic, unquestioned constitutional rights of his charges. Such a standard imposes neither an unfair burden upon a person assuming a responsible public office requiring a high degree of intelligence and judgment for the proper fulfillment of its duties nor an unwarranted burden in light of the value which civil rights have in our legal system. Any lesser standard would deny much of the promise of § 1983. Therefore, in the specific context of school discipline, we hold that a school board member is not immune from liability for damages under § 1983 if he knew or reasonably should have known that the action he took within his sphere of official responsibility would violate the constitutional rights of the student affected, or if he took the action with the malicious intention to cause a deprivation of constitutional rights or other injury to the student. That is not to say that school board members are "charged with predicting the future course of constitutional law." Pierson v. Ray, 386 U.S. at 386 U. S. 557. A compensatory award will be appropriate only if the school board member has acted with such an impermissible motivation or with such disregard of the student's clearly established constitutional rights that his action cannot reasonably be characterized as being in good faith.
The Court of Appeals, based upon its review of the facts but without the benefit of the transcript of the testimony given at the four-day trial to the jury in the District chanrobles.com-red
Court, [Footnote 13] found that the board had made its decision to expel the girls on the basis of no evidence that the school regulation had been violated:
485 F.2d 190. Although it did not cite the case as authority, the Court of Appeals was apparently applying the due process rationale of Thompson v. City of Louisville, 362 U. S. 199, 362 U. S. 206 (1960), [Footnote 14] to the public school disciplinary process. The applicability of Thompson in this setting, however, is an issue that need not be reached in this case. [Footnote 15] The record reveals that the decision of the Court of Appeals chanrobles.com-red
The Court of Appeals interpreted the school regulation prohibiting the use or possession of intoxicating beverages as being linked to the definition of "intoxicating liquor" under Arkansas statutes [Footnote 16] which restrict the term to beverages with an alcoholic content exceeding 5% by weight. [Footnote 17] Testimony at the trial, however, established convincingly that the term "intoxicating beverage" in the school regulation was not intended at the time of its adoption in 1967 to be linked to the definition in the state statutes or to any other technical definition of "intoxicating." [Footnote 18] The adoption chanrobles.com-red
of the regulation was at a time when the school board was concerned with a previous beer drinking episode. [Footnote 19] It was applied prior to respondents' case to another student charged with possession of beer. [Footnote 20] In its statement of facts issued prior to the onset of this litigation, the school board expressed its construction of the regulation by finding that the girls had brought an "alcoholic beverage" onto school premises. [Footnote 21] The girls themselves admitted knowing at the time of the incident that they were doing something wrong which might be punished. [Footnote 22] In light of this evidence, the Court of Appeals was ill-advised to supplant the interpretation of the regulation of those officers who adopted it and are entrusted with its enforcement. Cf. Grayned v. City of Rockford, 408 U. S. 104, 408 U. S. 110 (1972).
When the regulation is construed to prohibit the use and possession of beverages containing alcohol, there was no absence of evidence before the school board to prove the charge against respondents. The girls had admitted that they intended to "spike" the punch and that they had mixed malt liquor into the punch that was served. The third girl estimated at the time of their admissions to Waller that the malt liquor had an alcohol content of 20%. After the expulsion decision had been made and this chanrobles.com-red
litigation had begun, it was conclusively determined that the malt liquor, in fact, had an alcohol content not exceeding 3.2% by weight. [Footnote 23] Testimony at trial put the alcohol content of the punch served at 0.91%. [Footnote 24]
Given the fact that there was evidence supporting the charge against respondents, the contrary judgment of the Court of Appeals is improvident. It is not the role of the federal courts to set aside decisions of school administrators which the court may view as lacking a basis in wisdom or compassion. Public high school students do have substantive and procedural rights while at school. See Tinker v. Des Moines Independent Community School District, 393 U. S. 503 (1969); West Virginia State Board of Education v. Barnette, 319 U. S. 624 (1943); Goss v. Lopez, 419 U. S. 565 (1975). But § 1983 does not extend the right to relitigate in federal court evidentiary questions arising in school disciplinary proceedings or the proper construction of school regulations. The system of public education that has evolved in this Nation relies necessarily upon the discretion and judgment of school administrators and school board members, and § 1983 was not intended to be a vehicle for federal court corrections of errors in the exercise of that discretion which do not rise to the level of violations of specific constitutional guarantees. See Epperson v. Arkansas, 393 U. S. 97, 393 U. S. 104 (1968); Tinker, supra, at 393 U. S. 507.
Respondents' complaint alleged that their procedural due process rights were violated by the action taken by petitioners. App. 9. The District Court did not discuss chanrobles.com-red
this claim in its final opinion, but the Court of Appeals viewed it as presenting a substantial question. It concluded that the girls were denied procedural due process at the first school board meeting, but also intimated that the second meeting may have cured the initial procedural deficiencies. Having found a substantive due process violation, however, the court did not reach a conclusion on this procedural issue. 486 F.2d 190.
The Court of Appeals, in its statement of the facts, observed that the malt liquor and soft drinks were mixed by the girls prior to their return to school, 485 F.2d 187, and petitioners in their brief recite the facts in this manner. Brief for Petitioners 5. This discrepancy in the board's findings of fact is not material to any issue now before the Court.
In their original complaint, respondents sought only injunctive and declaratory relief. App. 11-12. In their amended complaint, they added a prayer for compensatory and punitive damages. Id. at 92. Trial was to a jury, and the District Court, in ruling on motions after declaring a mistrial, appears to have treated the case as having developed into one for damages only, since it entered judgment for petitioners and dismissed the complaint on the basis of their good faith defense. In a joint motion for a new trial, respondents specifically argued that the District Court had erred in treating the case as one for the recovery of damages only and in failing to give them a trial and ruling on their claims for injunctive and declaratory relief. Id. at 131. The District Court denied the motion. Id. at 133. Upon appeal, respondents renewed these contentions, and the Court of Appeals, after finding a substantive due process violation, directed the District Court to give respondents an injunction requiring expunction of the expulsion records and restraining any further continuing punishment. 485 F.2d 190. Petitioners urge that we reverse the Court of Appeals and order the complaint dismissed. Brief for Petitioners 48. Respondents, however, again stress that the relief they sought included equitable relief. Brief for Respondents 47-48, 50.
341 U.S. at 341 U. S. 376.
See also Vachon v. New Hampshire, 414 U. S. 478, 414 U. S. 480 (1974); Gregory v. Chicago, 394 U. S. 111, 394 U. S. 112 (1969); Johnson v. Florida, 391 U. S. 596, 391 U. S. 598-599 (1968); Shuttlesworth v. City of Birmingham, 382 U. S. 87, 382 U. S. 94-95 (1965); Garner v. Louisiana, 368 U. S. 157 (1961). Cf. Boilermakers v. Hardeman, 401 U. S. 233, 401 U. S. 246 (1971).
That is not to say that the requirements of procedural due process do not attach to expulsions. Over the past 13 years, the Courts of Appeals have, without exception, held that procedural due process requirements must be satisfied if a student is to be expelled. See Goss v. Lopez, 419 U. S. 565, 419 U. S. 576-578, n. 8 (1975).
The Court of Appeals referred to comments which seemed also to adopt this construction made by the District Court in its findings of fact when it denied respondents' motion for a preliminary injunction. 485 F.2d 190; App. 80. After noting the District Court's initial view that petitioners would find it difficult to prove the requisite alcoholic content, the Court of Appeals expressed puzzlement at the failure of the lower court to discuss the absence of such evidence in its final opinion. The District Court, however, indicated in its instructions that the question of the proper construction of the regulation would not be relevant if the jury found that the school officials in good faith considered the malt liquor and punch to fall within the regulation. 348 F.Supp. at 248. The District Court's ultimate conclusion apparently made unnecessary a final decision on the coverage of the regulation.
Despite its construction of the present regulation, the Court of Appeals indicated that the school board had the authority to prohibit the use and possession of alcoholic beverages or to continue its policy of proscribing only intoxicating beverages. 485 F.2d 191.
The holding of the Court on the immunity issue is set forth in the margin. [Footnote 2/1] It would impose personal chanrobles.com-red
liability on a school official who acted sincerely and in the utmost good faith, but who was found -- after the fact -- to have acted in "ignorance . . .of settled, indisputable law." Ante at 420 U. S. 321. Or, as the Court also puts it, the school official must be held to a standard of conduct based not only on good faith, "but also on knowledge of the basic, unquestioned constitutional rights of his charges." Ante at 420 U. S. 322. Moreover, ignorance of the law is explicitly equated with "actual malice." Ante at 420 U. S. 321. chanrobles.com-red
This harsh standard, requiring knowledge of what is characterized as "settled, indisputable law," leaves little substance to the doctrine of qualified immunity. The Court's decision appears to rest on an unwarranted assumption as to what lay school officials know or can know about the law and constitutional rights. These officials will now act at the peril of some judge or jury subsequently finding that a good faith belief as to the applicable law was mistaken, and hence actionable. [Footnote 2/2]
The Court states the standard of required knowledge in two cryptic phrases: "settled, indisputable law" and "unquestioned constitutional rights." Presumably these are intended to mean the same thing, although the meaning of neither phrase is likely to be self-evident to constitutional law scholars -- much less the average school board member. One need only look to the decisions of this Court -- to our reversals, our recognition of evolving concepts, and our five-to-four splits -- to recognize the hazard of even informed prophecy as to what are "unquestioned constitutional rights." Consider, for example, the recent five-to-four decision in Goss v. Lopez, 419 U. S. 565 (1975), holding that a junior high school pupil routinely suspended for as much as a single day is entitled to due process. I suggest that most lawyers and judges would have thought, prior to that decision, that the law to the contrary was settled, indisputable, and unquestioned. [Footnote 2/3] chanrobles.com-red
"These considerations suggest that, in varying scope, a qualified immunity is available to officers of the executive branch of government, the variation being dependent upon the scope of discretion and responsibilities of the office and all the circumstances as they reasonably appeared at the time of the action on which liability is sought to be based. It is the existence of reasonable grounds for the belief formed at the time and in light of all the circumstances, coupled with good faith belief, that affords a basis for qualified immunity of executive officers for acts performed in the course of official conduct."
416 U.S. at 416 U. S. 247-248. (Emphasis added.)
The italicized sentence from Scheuer states, as I view it, the correct standard for qualified immunity of a government official: whether, in light of the discretion and responsibilities of his office, and under all of the circumstances as they appeared at the time, the officer acted reasonably and in good faith. This was the standard chanrobles.com-red
applied to the Governor of a State charged with maliciously calling out National Guardsmen who killed and wounded Kent State students. [Footnote 2/4] Today's pinion offers no reason for imposing a more severe standard on school board members charged only with wrongfully expelling three teenage pupils.
"The disagreement between the Court of Appeals and the District Court over the immunity standard in this case has been put in terms of an 'objective' versus a 'subjective' test of good faith. As we see it, the appropriate standard necessarily contains elements of both. The official himself must be acting sincerely and with a belief that he is doing right, but an act violating a student's constitutional rights can be no more justified by ignorance or disregard of settled, indisputable law on the part of one entrusted with supervision of students' daily lives than by the presence of actual malice. To be entitled to a special exemption from the categorical remedial language of § 1983 in a case in which his action violated a student's constitutional rights, a school board member, who has voluntarily undertaken the task of supervising the operation of the school and the activities of the students, must be held to a standard of conduct based not only on permissible intentions, but also on knowledge of the basic, unquestioned constitutional rights of his charges. Such a standard neither imposes an unfair burden upon a person assuming a responsible public office requiring a high degree of intelligence and judgment for the proper fulfillment of its duties, nor an unwarranted burden in light of the value which civil rights have in our legal system. Any lesser standard would deny much of the promise of § 1983. Therefore, in the specific context of school discipline, we hold that a school hoard member is not immune from liability for damages under § 1983 if he knew or reasonably should have known that the action he took within his sphere of official responsibility would violate the constitutional rights of the student affected, or if he took the action with the malicious intention to cause a deprivation of constitutional rights or other injury to the student. That is not to say that school board members are 'charged with predicting the future course of constitutional law.' @ 386 U. S. 557 (1967).] A compensatory award will be appropriate only if the school board member has acted with such an impermissible motivation or with such disregard of the student's clearly established constitutional rights that his action cannot reasonably be characterized as being in good faith."
Ante at 420 U. S. 321-322.
The Court's rationale in Goss suggests, for example, that school officials may infringe a student's right to education if they place him in a non-college preparatory track or deny him promotion with his class without affording a due process hearing. See 419 U.S. at 419 U. S. 597-599 (POWELL, J., dissenting). Does this mean that school officials who fail to provide such hearings in the future will be liable under § 1983 if a court subsequently determines that they were required?
For another current example of how unsettled constitutional law, deemed by some at least to be quite settled, may turn out to be, see the decision and opinions in North Georgia Finishing, Inc. v. Di-Chem, Inc., 419 U. S. 601 (1975), and compare with MR. JUSTICE STEWART's dissent in Mitchell v. W. T. Grant Co., 416 U. S. 600, 416 U. S. 629 (1974).
Id. at 386 U. S. 657. As in Scheuer, the standard prescribed is one of acting in good faith in accordance with reasonable belief that the action was lawful and justified. Not even police officers were held liable for ignorance of "settled, indisputable law."