Document: 475 U.S. 469 106 S.Ct. 1292 89 L.Ed.2d 452 Bertold J. PEMBAUR, Petitionerv.CITY OF CINCINNATI et al. No. 84-1160. Argued Dec. 2, 1985. Decided March 25, 1986. Syllabus Petitioner, a physician and the proprietor of clinic in Cincinnati, Ohio, that provided medical services primarily to welfare recipients, was indicted by grand jury for fraudulently accepting payments from state agencies. During investigation, subpoenas were issued appearance two petitioner's employees. When employees failed appear, Assistant County Prosecutor obtained capiases their detention. But when Deputy Sheriffs attempted serve at clinic, he barred door refused let them enter part where presumably located. Thereafter, Cincinnati police officers, whom petitioner had called, appeared told allow enter. Petitioner continued refuse. The then called superior who call Prosecutor's Office follow his instructions. spoke assigned case. He turn conferred with Prosecutor, him instruct "go get" relayed these instructions Sheriffs. After tried unsuccessfully force door, city officers an axe chopped down door. entered searched but unable locate sought. Although acquitted fraud charges, convicted obstructing performance authorized act. His conviction upheld Ohio Supreme Court. filed damages action Federal District Court under 42 U.S.C. § 1983 against county, among other defendants, alleging county violated rights Fourth Fourteenth Amendments. dismissed claim on ground individual not acting pursuant kind "official policy" is predicate municipal liability Monell v. New York City Dept. Social Services, 436 658, 98 2018, 56 611. Appeals affirmed, holding prove existence policy because shown nothing more than "this one occasion" Sheriff decided entry into clinic. Held: judgment reversed, case remanded. 746 F.2d 337 (CA6 1984), reversed Justice BRENNAN delivered opinion respect Parts I, II-A, II-C, concluding that: 1. requirement intended distinguish acts municipality municipality's employees, thereby make clear limited actions which actually responsible. held recovery are, properly speaking, "of municipality," i.e., has officially sanctioned or ordered. With this understanding, it plain may be imposed single decision policymakers appropriate circumstances. If adopt particular course directed those establish governmental policy, equally responsible whether taken only once repeatedly. Pp. 484-485. 2. It error dismiss county. law authorizes obtain Prosecutor. followed practice delegating certain decisions appropriate. In case, received Sheriff's orders made considered based understanding commanded That directly caused violation Amendment rights. ordering as final decisionmaker therefore liable 1983. BRENNAN, joined WHITE, MARSHALL, BLACKMUN, concluded Part II-B every automatically subjects liability. fact official discretion exercise functions does give rise unless also responsible, law, establishing respecting such activity. Municipal attaches where—a deliberate choice various alternatives officials subject matter question. 481-484. J., STEVENS, O'CONNOR (except II-C), JJ., joined, II-B, joined. concurring opinion, post, p. 485. 487, , O'CONNOR, 491, opinions judgment. POWELL, dissenting BURGER, C.J., REHNQUIST, 492. Robert E. Manley, petitioner. Roger Friedmann, respondents. Court, except II-B. 1 611 (1978), deprivations federally protected "pursuant some nature. . ." Id., 691, S.Ct., 2036. question presented whether, what circumstances, occasion satisfy requirement. 2 * Pembaur licensed sole Rockdale Medical Center, located Hamilton County. Most Pembaur's patients are recipients rely government assistance pay care. spring 1977, Simon Leis, began investigating charges accepted agencies patients. A convened, William Whalen. April, charged six-count indictment. 3 appear directed, arrest detention Common Pleas County.1 4 On May 19, reception area open public, rest through next receptionist's window. Upon arriving, identified themselves receptionist sought pass apparently open. blocked way asked wait doctor. moment later, closed locked inside, wedged piece wood between wall. Returning window, Pembaur, showed explained why they there. enter, claiming no legal authority there requesting leave. police, local media, lawyer. take further until arrived. 5 Shortly thereafter, several appeared. situation speak Pembaur. papers lawful should refused, officer. too persuade supervisor Their Whalen telephoned informed situation. get [the witnesses]." passed along 6 attempt voluntarily been advised witnesses, Two individuals fit descriptions witnesses detained, turned out right persons. 7 incident, additional indictment all offense. reasoning privileged exclude deputies search office Amendment. State C-790380 (Hamilton Appeals, Nov. 3, 1982). reinstated conviction. 9 St.3d 136, 459 N.E.2d 217, cert. denied, 467 1219, 104 S.C. 2668, 81 373 (1984). state-law privilege applied bad-faith conduct enforcement officials, that, circumstances obliged acquiesce seek redress later civil damages. St.3d, 138, N.E.2d, 219. 8 April 20, 1981, present United States Southern Hamilton, Police Chief, Sheriff, members Board Commissioners (in capacities only), Whalen, nine officers.2 1983, theory absent exigent prohibits searching individual's home business without warrant even execute third person. We agreed proposition Steagald States, 451 204, 101 1642, 68 38 (1981), day after lawsuit. $10 million actual punitive damages, plus costs attorney's fees. Much testimony 4-day trial concerned practices serving capiases. Frank Webb, testified previously served property persons warrant, never required use gain access. unaware prior instance denied access person's capias used entry. Lincoln Stokes, Department written proper response any given would depend upon could recall specific entrance forcibly gained. Stokes did testify, however, refer questions "it thing do" 10 awarded defendants complaint its entirety. court Steagald, supra, inapplicable since nearly four years incident occurred. Because construed Sixth Circuit 1977 permit premises person capias, immune Harlow Fitzgerald, 457 800, 102 2727, 73 396 (1982). 11 claims Monell. County, assuming per se " "[t]he Commissioners, behalf simply control policies Sheriff." found "the custom aiding Deputies duties." participation resulted permissible scope provide, provide assistance. 12 appeal, challenged dismissal Cincinnati. Court's findings concerning clearly erroneous. (1984).3 13 affirmed different grounds. Board's lack over preclude if nature duties fairly said represent county's matter." 340-341. Based examination "clea[r]" both County" matters enforcement. 341. Notwithstanding conclusions, dismissed: 14 "We believe deputy sheriffs acted forcing center. establish, anything occasion, office. single, discrete insufficient, itself, implementing policy." Ibid. (footnote omitted) (emphasis original). 15 petitioned certiorari review conflicts holdings Courts Appeals,4 we granted petition resolve conflict. 472 1016, 105 3475, 87 (1985). reverse. II A. 16 Our analysis must begin "Congress intend municipalities constitutional tort." U.S., 2036.5 As read action, although policymakers, cannot 1983.6 reached conclusion referring indeed, explanation all. However, demonstrates misinterpreted holding. 17 about responsibility. first units federal rights, overruling contrary Monroe Pape, 365 167, 473, 492 (1961). second recognized limitation application doctrine respondeat superior. See Monell, part, rested language imposes "subjects, causes subjected," deprivation rights; noted "cannot easily impose vicariously bodies solely basis employer-employee relationship tortfeasor." 692, Primarily, our legislative history, disclosed while Congress questioned power own illegal acts, doubt order oblige others. 665-683, 2022-2032.7 doubts, chose create obligations Recognizing effect superior, interpreted incorporate doctrines vicarious 692-694, n. 57, 2036-2037, 57. 18 tortious conduct, contained discussion. municipality, responsible.S8 reasoned municipality"—that is, 19 No ever doubted, instance, constituted body similar past do so future—because unquestionably constitutes act policy. See, e.g., Owen Independence, 445 622, 100 1398, 63 673 (1980) (City Council resolution firing plaintiff pretermination hearing); Newport Fact Concerts, Inc., 453 247, 2748, 69 616 (1981) canceled license permitting concert dispute content performance). exclusive province legislature level national level. makes expressly envisioned "whose edicts policy," 694, 2037-2038, whose 20 Indeed, inconsistent principles underlying To sure, often refers formal rules understandings—often always committed writing—that to, do, fixed plans consistently time. involved rule requiring pregnant unpaid leaves absence before medically necessary. Newport, frequently chooses tailored situations. government's decisionmakers, surely represents "policy" term commonly understood.9 More importantly, deny compensation victim fundamental purpose B 21 Having much, hasten emphasize possesses ordered.10 official—even policymaking official—has not, more, discretion. Oklahoma Tuttle, 471 822-824, 2435-2436.11 activity can liable.12 Authority enactment delegated authority, course, law. like entities, spread bodies. result, have binding adjust changing hold ordered exercising Councils Newport. each attached unlawful policymakers. where—and 823, 2436 (" 'policy' generally implies consciously chosen alternatives"). C 22 Applying standard us, little difficulty erred dismissing difficult Unsure follow, supervisors. 23 Respondent argues lacked practices. suggests merely rendering "legal advice" witnesses. Consequently, argument concludes, following advice entering established 24 might inclined agree respondent thought rendered advice." concluded, here.13 Rev.Code Ann. 309.09(A) (1979) provides "require Prosecutor] connected Pursuant procedure, referred decline accept respondent's invitation overlook delegation disingenuously labeling command mere 25 remanded proceedings consistent opinion. 26 27 concurring. 28 forcible federal, state, frankly conceded third-party otherwise valid arrests operating procedure. There reason abjure using means executing Further, approve disapprove entries opted forceful entry, Vesting sufficiently manifested reversal below. 29 This mean authorize searches municipality. events issue here occurred, Constitution statutes forbidden ordinance effect. Local expected obey ordinarily swear Where controlling places limits Had existing requirement, absurd say nevertheless authorizing stranger secured Magistrate mistakenly probable cause warrant. mistaken this, admittedly expose liability, officers' 30 Such results conform cases it. I understand stating "a question." Ante, 483-484. sheriff, example, policymaker probable-cause arrest. alternative accordance standard; departure 31 applicable make. less time declared unwarranted Amendment.* Hence, join 32 33 hard difficulty, arises problem obtaining consensus meaning word "policy"—a text statutory provision supposed construing. thus consequence lawmaking efforts rather work States.1 34 merits unconstitutional activities agents performed duties, enacted Ku Klux Act 1871 statute kind. perfectly party's consent circumstances.2 my view, surprising respondents "conceded" retroactivity Steagald. For plainly compelled by, presaged in, well-established precedent.3 35 Similarly, view perspective Legislature 1871, answer clear. history indicating parties, ante, 478-479, 7, confirms governments' acts—including employment. words, dissent 808, 835-840, 2427, 2442-2445, 85 791 (1985), broad remedial embodied contemporaneous common-law doctrine, including require entity duties.4 36 Finally, construing sometimes "considerations public policy."5 extent concerns relevant, support finding construction produce most anomalous result. primary responsibility protecting residents shoulders trying perform jobs. recognize insurance protection agents, party run itself. resources best avoid future violations fair remedy occurred past. Thus, "public inform considerations, statute's background, unconstitutional, axe-swinging 37 II-C well precedents, opinion6 concur 39 reasons stated within (1978). freely conceded, procedure 1977. Given arose, seems infer different. Moreover, definitively "had entries." 485 (WHITE, concurring). combination WHITE break "sufficiently below." Because, majority goes beyond necessary decide fear articulates misread II-A 40 THE CHIEF JUSTICE REHNQUIST join, dissenting. 41 today holds subsequent parties—petitioner's employees—who summons them, request supervisor, call, give. witnesses]" five-word phone now created wrong least reasons. First, Deputies' violate existed Second, off-hand telephone busy 43 Petitioner's allegation rests exclusively here. officer consensual justified situations arrested searched. McKinney, 379 259, 262-263 (1967). shared Circuits. Gaultney, 606 540, 544-545 (CA5 1979); Harper, 550 610, 612-614 (CA10), 434 837, 128, 54 99 (1977). Another favored dicta. 632 978, 983 (CA2 1980). governing Circuit, uncontradicted 44 transform search—legitimate apply retroactively. startling retroactive new criminal direct appeal conviction.1 seeks something very different—retroactive announced Even accepts retroactively 1983,2 show action. 45 leading explaining framework Chevron Oil Co. Huson, 404 97, 92 349, 296 (1971). Under Chevron, assess: (i) "establish[ed] principle precedent deciding impression foreshadowed," id., 106, 355; (ii) question, effect, retrospective operation will retard operation," 107, (iii) respective inequities nonretroactive application, ibid. 46 viewed light factors, justified. overruled precedent, foreshadowed three Circuits permitted parties' homes see 493, earlier arguably supported searches.3 "purpose" clarify searches, money context substantial inequitable imposing legitimate undertaken. Griffin Illinois, 351 12, 26, 76 585, 594, L.Ed. 891 (1956) (Frankfurter, judgment) ("We indulge fiction ."). Civil attach notice risk. Procunier Navarette, 555, 562, 855, 859, 55 47 ought wary applying deterence, constitutionality actions, "err side citizens' rights." 652, 1416, (1980). particularly prosecutors, much position deterrence officials. Cf. Imbler Pachtman, 424 409, 425, 96 984, 992, 128 (1976). affirmative duty enforce vigorously requires legitimately intrude liberties, "under serious constraints information." While official, rights" doubts deterred doing doubts. decision. engages same balancing interests required, deliberation, relying court. "harbor lawfulness actions," Owen, deter. 48 significant cost strong interest "vigorous fearless" prosecution, "essential functioning justice system." 427-428, 993-994. Those general Unwarranted undesirable discouraging essential system protects State's safety. sense, Owen. entitled either absolute qualified immunity. ignores reality successful $20-million suit chilling County.4 49 reasons, complain. affirm Appeals.5 50 retroactively, demonstrate liable. brief telephone. before, memory participants. 474-475. strongly indicate formed. reaction formed sparse facts supporting theory—adopted today—do 2036, injury 51 alleged implements executes statement, ordinance, regulation, adopted promulgated body's officers." 690, 2035-2036. presents opportunity define meant Proper calls identification determining created. instead focuses almost status decisionmaker. Its circular: contends make, 52 variously notes "is understood," 481, "where .," test "by 53 policy—in normal sense term—has answered "could policy?" rather, "did By focusing fails key presented. turns decisionmaker, look Here "both [had to] circumstances." 484. Apparently recitation needed discussion offered Today's finds authority. organization unit cavalierly. mechanism distinguishing process entity. rejected Monell: category 2036; 818, 2433, (1985) (rejecting theories akin ) (plurality opinion). reliance employee carries concept far focus factors: taken, taken. Focusing distinguishes ad hoc decisions. reflects embody applicability. tenor statement "implements implication applies situations—a "governing [or] plan." Webster's Twentieth Century Dictionary 1392 (2d ed. 1979).6 applicability approved, responsible.7 57 factor reached. Formal procedures involve, voting elected prepared reports, extended records resulting "may 2037-2038. (1980), example. met regularly scheduled meeting. One member motion release press reports cast bad light. dissents abstention. 627-629, 1403-1404. applicability, 58 factors instant formulated. Certainly, adopted. correctly "testified 474. Nor result implicit response—"go them"—altered case-by-case approach cases. Nothing inquiry phone, nor surrounding response, indicates formed.8 59 prosecutor, thoughtful consideration consultation, gave off-the-cuff undercuts basic rationale unfairly increases risk able bear dissent. writ attachment commanding bring subpoenaed witness testify contempt. 2317.21 (1981). Leis defendant counsel believed absolutely immune. Tr., Mar. 14-Mar. 17, 267. express correctness evaluation. 430-431, 995, (1976) (leaving prosecutor's immunity "in role administrator investigative advocate"). police. Chief Myron Leistler, whatever steps necessary, doors, document. F.2d, 341-342; also, pp. 43-45, 46-47. determination incurred execution 342. McKinley Eloy, 705 1110, 1116-1117 (CA9 1983); Berdin Duggan, 701 909, 913-914 (CA11), 464 893, 239, 78 230 (1983); Van Ooteghem Gray, 628 488, 494-495 1980), 455 1255, 71 447 (1982); Quinn Syracuse Model Neighborhood Corp., 613 438, 448 Sanders St. Louis 724 665, 668 (CA8 1983) (per curiam ("It senior enough himself another's rights"). Losch Borough Parkesburg, Pa., 736 903, 910-911 (CA3 1984) ("[E]ven Chief] regard activities, regulation evidence repeated chief] transmute policy"). suffered deprivation. found, concedes, 340, 1; Brief Respondents 11. Tr. Oral Arg. 26-27. concessions. below unsupported last Term established, fully Monell's corporation 822, 2435-2436 opinion); 831-832, 2440 (BRENNAN, judgment). then, satisfied discussed length need summarized distinction prevent others Members House Representatives successfully opposed "Sherman amendment" Rights Stat. 13, precursor Sherman amendment damage done inhabitants private "riotously tumultuously assembled." Cong.Globe, 42d Cong., 1st Sess., 749 (1871) (quoted 664, 2022). Opponents argued obligation governments keep peace, Government constitutionally peace not. succeeded blocking passage amendment. opponents Congress' already obligated 2022-2032. juxtaposes conclude, therefore, sued inflicted agents. Instead, ., lawmakers inflicts 1983." dictionary source questions, note description word's ordinary definition. defines set designed carry action." Third International 1754 Oxford English "[a] pursued government, party, ruler, statesman, etc.; advantageous expedient." VII 1071 (1933). 1979) ("any principle, plan, action"); Random 1113 (1966) ("a political etc."). Section color "custom usage," accordingly "local governments, 'person,' visited 'custom' though approval decisionmaking channels." 690-691, recover adducing usage." "custom," aspect Tuttle broader this. relies near end REHNQUIST's plurality "[p]roof sufficient proof includes existing, attributed policymaker." 823-824, added). "existing" reading strained, weight word. officer's excessive deprived her decedent life due proved nonpolicymaking city. She "caused" adopting inadequate training. judge instructed unusually inference attributable grossly training, basis. plaintiff's submission she "but for" sense. 2435-2436, opinion), 829-830, 2439 entirely hire fire being employment practices, policymaker, true left exercised manner; unlawfully Board. accord great deference interpretation courts appeals. S.A. Empresa de Viacao Aerea Rio Grandense, 797, 815, 2755, 2766, 660 (1984); Brockett Spokane Arcades, 499-500, 2794, 2799-2800, 86 394 (citing cases); Bishop Wood, 426 341, 345-347, 2074, 2077-2078, 684 address issue. 841, 2445-2446, (STEVENS, dissenting) ("While purports us 690-695, [98 2035-2038, 611] theme today's decision"). become, "envisioned" Post, 491 (O'CONNOR, judgment); 499 (POWELL, dissenting). justification weaker Since (1984), reviewing conviction, situations, conception, unnecessary possible difference. 211, 1647 ("Except [cases circumstances], unreasonable warrant"); 213-214, 1648 ("In judicially untested determinations reliable justify objects depart settled object"); 216, 1650 ("Since warrantless impermissible conclude Amendment"); 219, 1651 ("[I]f anything, guidance gleaned authorities Government's position. Semayne's Case, [5 Co.Rep. 91a, 77 Eng.Rep. 194 (K.B.1603) ], find sanctuary remained 'castle privilege' residents. Similarly [common-law] commentators suggested insulate constable trespass brought searched"); 220, ("[T]he Framers search"). split somehow presumptively disagreed ultimate conclusion. Furthermore, suggestion compelling nonretroactivity context, 492-496 dissenting), societal reversing convictions. Johnson Jersey, 384 719, 731, 1772, 1779, 882 ("[R]etroactive Escobedo [v. 378 478, 84 1758, 977 (1964),] Miranda Arizona, 436, 1602, 694 (1966),] seriously disrupt administration laws. retrial numerous prisoners guilty trustworthy conformity standards"). Additionally, Payton York, 573, 1371, 639 cites discusses, has, Johnson, 537, 2579, 202 Several dicta regarding misreads Blum, From Defining Scope Liability Courts, Temp.L.Q. 413, (1978) ("The rejection espoused author drew 'political' cases, itself violation, 'constitutional tort' misconduct sensitive fiscal plight corporations today, acknowledged congressional intent 1871"); Note, Doctrine Respondeat Superior, U.Chi.L.Rev. 935, 936 purposes demand scheme liability"); Services: Step Forward Half Back Hofstra L.Rev. 921 ("Analysis section similarly offers proof. relied best, poorly unauthorized employees"); Comment, Violations 64 Iowa 1032, 1045 [respondeat superior] considerations"). 266, 2759, (1981); 650, 1415, joining IV 714, 2047 part), fact, enjoy entitle 217 specifically issue, discuss appeal. 137-138, 218-219. reasoned, "substantive" offense involved, unconstitutionality defense. applied, benefit attack collaterally. prisoner literally forced remain prison collecting award. Shea Louisiana, 470 51, 1065, collateral become final. Solem Stumes, 465 638, 1338, 79 579 apply, likely Stumes old standards. 643, 1341. Dalia 441 238, 1682, 60 177 (1979), separate install eavesdropping device interfere privacy explicitly warrant." 257, 1693. STEVENS misunderstands unique posture versus special above arise gained comparing retroactivity, 488-489, severe nonnegligent mistake heavy especially skyrocketing cost—or unavailability—of insurance. Malley Briggs, 335, 1092, 271 (1986). "never concessions." 477, 5. central reach issues resolved Steagald's retroactivity. prevented concession respondent. contention. so—especially unfairness anticipating 559, 6, 858, (1978); Blonder-Tongue Laboratories, Inc. University Illinois Foundation, 402 313, 320, 91 1434, 1438, 788 required. duly An example form "policy," allowing rock concerts. Plaintiffs concerts First cancellation implementation rule, govern record Justices O'CONNOR. assume neighboring cities counties. all, entities. again views colleagues, held—at knowledge—that undisputed refute assumptions Neither knew Otherwise, office, certainly put asked, Rather, them" sort spontaneous reply quite thoughtlessly. above,

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