Document: 440 U.S. 391 99 S.Ct. 1171 59 L.Ed.2d 401 LAKE COUNTRY ESTATES, INC., et al., Petitioners,v.TAHOE REGIONAL PLANNING AGENCY, etc., al. No. 77-1327. Argued Dec. 4, 1978. Decided March 5, 1979. Syllabus California and Nevada entered into a Compact, later consented to by Congress, create respondent Tahoe Regional Planning Agency (TRPA) coordinate regulate development in the Lake Basin resort area conserve its natural resources. The Compact authorized TRPA adopt enforce regional plan for land use, transportation, conservation, recreation, public services. Petitioners, property owners, brought suit Federal District Court alleging that individual members executive officer (also respondents) had adopted land-use ordinance destroyed value of petitioners' violation Fifth Fourteenth Amendments, seeking monetary equitable relief. To support their federal claim, petitioners asserted, inter alia, respondents acted under color state law therefore cause action was 42 U.S.C. § 1983, jurisdiction provided 28 1343. dismissed complaint, holding although "inverse condemnation" sufficiently alleged, could not be maintained against because it no authority condemn were immune from liability. Appeals, while reinstating complaint on other grounds, rejected claims based §§ 1983 1343, congressional approval transformed with result pursuant rather than law. court further held Eleventh Amendment respect they should absolutely conduct legislative character qualifiedly action. Held: 1. Petitioners stated hence properly invoked requirement did foreclose finding respondents' "under law" within meaning 1983. facts TRPA's operation—such as implementation depended upon appointment both States subdivisions financing counties; appointees, discharging duties officials, also serve interests appointing units; involvement is limited one nonvoting member; each State has an absolute right withdraw Compact—adequately characterize alleged actions law." Pp. 398-400. 2. liability Amendment. States' intention creating TRPA, terms actual operation make clear nothing short rule would allow claim sovereign immunity, prescribes such rule, subject "the judicial power United States" 400-402. 3. extent evidence discloses acting capacity, are entitled immunity damages "Legislators deterrents uninhibited discharge duty, private indulgence but good," Tenney v. Brandhove, 341 367, 377, 71 783, 95 L.Ed. 1019, this reasoning equally applicable federal, state, legislators. Whatever potential legislators may face matter law, do encompass recovery capacity. 402-406. 566 F.2d 1353, reversed part affirmed part. John J. Bartko, San Francisco, Cal., petitioners. Kenneth C. Rollston, South Tahoe, E. Clement Shute, Jr., Asst. Atty. Gen., respondents. Mr. Justice STEVENS delivered opinion Court. 1 We granted certiorari decide whether Agency, entity created between Nevada, provides compacting themselves.1 436 943, 98 2843, 56 784. case presents question Agency's governing body when 2 unique mountain lake, located partly Nevada. Basin, comprising 500 square miles, popular grown rapidly recent years.2 3 In 1968, agreed single agency As required Constitution,3 1969 Congress gave consent organized.4 services.5 4 own Basin. 1973, filed Eastern body, general plan, engaged conduct, economic property.6 thereby taken without due process just compensation Amendments Constitution States. They sought 5 advanced alternative theories claim. First, asserted violations rise implied action, comparable Fourth recognized Bivens Six Unknown Fed. Narcotics Agents, 403 388, 91 1999, 29 619, predicated 1331.7 Second, claimed 19838 1343.9 6 complaint. Although concluded condemnation,"10 have property. defendants exercise discretionary functions 7 On appeal, Appeals Ninth Circuit dismissal reinstated 1353. Addressing first questions jurisdiction, result, authority, 1343 provide jurisdiction. But accepted argument: It deprivation remedy upheld Bivens, supra, available, 1331. 8 Having found basis turned questions. point been argued, decided immunized court. With respondents, afforded qualified Since record adequately disclose challenged or executive, remanded hearing. 9 ask hold Because none cross-petition certiorari, we occasion review Appeals' additional Due Process Clause alleged.11 For purposes our decision, assume sufficiency those allegations. 10 * Before addressing issues, must consider While cross petition now argue rationale does apply liberty, jurisdictional analysis defective. 11 normally address any issues fairly comprised presented cross-petitions. An exception jurisdiction: even if raised parties, cannot ignore absence case, however, attack fails want two reasons. 12 "jurisdictional" arguments squarely directed at itself, existence rights. Faced similar Mt. Healthy Board Ed. Doyle, 429 274, 97 568, 50 471 cause-of-action argument "not sort which raises motion." Id., 279, S.Ct., 572. "failed preserve issue relief granted," id., 281, 573, simply assumed, deciding, brought. 13 lack considered defect 1331,12 dismiss reason fact exist. need reach conclude there 14 Section individuals deprivations constitutional rights incorrectly assumed interstate foreclosed possibility officers 1983.13 15 genesis States, remains statutory States.14 after obtained, executives mandatory secured, counties.15 officials county appointees necessarily served political units appointed them. involvement, contrast, member board.16 original required, confer powers And retains Compact. 16 Even well settled given liberal construction,17 these statute. rests II 17 delegated ordinarily residing TRPA. bi-state Authority serves participant states, exercising specially aggregated slice power," "that protected preserved states Amendment." 1359-1360. 18 extend every bistate unless expressly waived. argues propriety evidenced special compact. Any so important Act receive same accorded themselves. 19 accept expansive reading By terms, protection only available "one States." true, course, some agencies permitted invoke order protect treasury essentially practical consequences judgment itself.18 consistently refused construe afford counties municipalities, though entities "slice power."19 20 If compact municipality, construed immunize entity. Unless good believe structured new enable enjoy themselves, concurred purpose, appear justification language 21 briefs disclaiming intent provisions indicate regarded subdivision arm State. Thus described Art. III(a) "separate legal entity" VI(a) "political subdivision." Under cities, States.20 Funding counties, States.21 Finally, instead being directly responsible judgments VII(f) obligations shall binding either 22 regulation use traditionally function performed local governments. Concern proper performance primary motivation creation specific controversy litigation. Moreover, like towns, originally rules veto level. Indeed, control perhaps most forcefully demonstrated resorted litigation unsuccessful attempt impose will TRPA.22 23 intentions California, implicit California. Amendment.23 III 24 turn, finally, challenge capacities. 25 civil what say roots parliamentary struggles 16th- 17th-century England; common course Nation's founders.24 reasoned enacting Civil Rights 1871, intended "to overturn tradition freedom achieved England War carefully formation National Governments here." U.S., 376, 788. "in sphere legitimate activity." 26 validity Tenney, decisions recognizing legislators.25 Rather, levels, capacity proposed distinction, source provisions, Speech Debate Clause, application addition, out legislatures effective means disciplining have, threat possible personal necessary deter lawless TRPA.26 27 find unpersuasive. Constitution27 more are, free clauses constitutions, many done so.28 These reflect central importance attached Nation. reflected Court's interpretation law; decision depend presence speech debate clause constitution State, particular set procedures discipline erring recognizes "public good." Frankfurter pointed out: good. One expect uncommon courage privilege little subjected cost inconvenience distractions trial conclusion pleader, hazard them jury's speculation motives. Fletcher Peck, Cranch 87, 130, 162, consonant scheme government inquire motives legislators, remained unquestioned." This legislators.29 capacity.30 30 Like unable determine seek duties. agree, legislature, 31 32 ordered. 33 BRENNAN, dissenting 34 I join Part BLACKMUN's addition question, discusses dicta,ante, 401, can immunity. all respects opinion. 35 MARSHALL, 36 today extends nonelected acts. extension extraordinary precedent policy, 37 1019 (1951), declined abrogating legislators' unqualified suits arise activity. Underlying recognition status privilege, several centuries enshrined Constitution, I, 6, seven constitutions. 372-375, 786-787. Absent explicit intent, unwilling strip long enjoyed voters "discourag[e] correc[t]" abuses elected representatives. 378, 789. 38 Neither premises rested sustain today's holding. Immunity common-law antecedents status. purport neither nor instant case. More significantly, 10-member board elected. city governments area, Governors respectively, virtue offices resource agencies. III(a). Thus, accountable his cloak where electorate attenuated subverts very system checks balances doctrine designed secure. Insulating liability, how egregious "legislative" misconduct, unlikely enhance integrity decisional process. Nor outcome processes fostered placing decision-makers beyond constraints. 39 Equally troubling majority's refusal confront logical implications analysis. sure, reserves performing level claims. Ante, 404 n. 26. leaves room municipal stand different footing counterparts. Surely supposition "cost trial" impede " 'uninhibited duty,' ante, 405, quoting 788, applies equal force occupy positions. implies test conferring purely functional. 30. sole inquiry nature officials' responsibilities, see ibid., underpinnings itself wisdom extending then presumably 40 A denies redress wrongs should, my judgment, narrowly confined contexts history policy compel acceptance. Today's expands scope limits lays groundwork extension. 41 respectfully dissent. BLACKMUN, whom BRENNAN joins 43 easily, does, 405-406, ultimately determined know "regional legislator"—other such—or line drawn legislator" somewhat farther down scale varied structures. 44 difficult me associate Their solely legislative; possess powers. equipoise branches government, concept separation relevance responsibility brake electoral provision House possess. 45 am prepared agree claims, think limitations outlined Scheuer Rhodes, 416 232, 94 1683, 90 (1974), Butz Economou, 438 478, 2894, 57 895 (1978). Those cases, seems me, forth guidelines appropriate one, follow present context. 46 flat ruling, legislatures. That be, courts ruled otherwise, Eslinger Thomas, 476 225, 228 (CA4 1973) (holding applicable); re Grand Jury Proceedings, 563 577, 582-583 (CA3 1977), Gillock, 587 284, 286 (CA6 1978) (both Clause), live one. See Craig, 528 773, 776 (CA7), rehearing en banc, 537 957, cert. denied sub nom. Markert 999, 526, 609 (1976). (as distinguished TRPA) here, passing fiat. Edelman Jordan, 415 651, 1347, 662. provides: "The Judicial equity, commenced prosecuted Citizens another Subjects Foreign State." Senate Report describes lake background follows: "Lake High Sierra Mountain famed scenic beauty pristine clarity. Of geologic origin, 190-square-mile bore aging discovered Fremont 1844. size, 1,645-foot depth physical features, able resist pollution human activity began accelerating settlement early logging operations. 1962 waters still transparent metal disc centimeters diameter reportedly seen 136 feet light transmittance nearly detected hydrophotometer. "Only sizable lakes world quality—Crater Oregon, Crater Park, Baikal Soviet Union. Only readily accessible large metropolitan centers adaptable urban development." S.Rep.No. 91-510, pp. 3-4 (1969). Article 10, cl. 3, "No shall, Consent lay Duty Tonnage, keep Troops, Ships time Peace, enter Agreement foreign Power, engage War, actually invaded, imminent Danger admit delay." 83 Stat. 360, Cal.Gov't Code Ann. 66800-66801 (West Supp.1977), Nev.Rev.Stat. 277.190-277.230 (1973) (hereinafter cited Compact). Arts. V VI. El Dorado named parties. amount exceeds $10,000. Title 1331, federal-question statute, part: district wherein sum $10,000, exclusive interest costs, arises laws, treaties except thereof, employee thereof official capacity." "Every person who, ordinance, regulation, custom, usage, Territory, subjects, causes subjected, citizen rights, privileges, immunities secured liable party injured proceeding redress." person: "(3) deprivation, custom usage right, providing citizens persons P. Nichols, Eminent Domain 6.21 (rev. 3d ed. 1976). clearly following footnote opinion: "Under strict standard pleading called Pacific Box & Basket Co. White, 296 176, 159, 80 138 (1935), complaints cases appeal withstand motion dismiss. factual allegations which, proved, rebut presumption constitutionality acts administrative bodies. "Although never explicitly overruled, represents years before promulgation Rules Procedure. applying analogous since took effect. "In Conley Gibson, 355 41, 78 99, (1957), Supreme explained modern philosophy pleading: '[A]ll require "a plain statement claim" give defendant fair notice plaintiff's grounds rests. . reject approach game skill misstep counsel decisive principle purpose facilitate merits.' 47-48, 103 (citations omitted). "Thus insufficiency appears certainty plaintiff proved 2A Moore, Practice ¶ 12.08 (1975). 'taking,' phrased inverse condemnation, sufficient show appellants complained exercised police improperly, relied Amendments." F.2d, 1359 9. University Regents Bakke, 265, 380, 2733, 2794, 750 (WHITE, J.); Griffin, 303 226, 229, 58 601, 82 764. here mean qualify has, past, regulations "state prior implementation. Rosado Wyman, 397 397, 1207, 442; King Smith, 392 309, 88 2128, 1118. supra. III(a), VII(a). 369. 369, furnish information data considers appropriate. originated 1871. introducing Representative Shellabarger "This remedial aid preservation liberty All statutes authorizing liberally beneficently largest latitude consistent words employed uniformly construing statutes." Cong. Globe, 42d Cong., 1st Sess., App. 68 (1871). 662; Ford Motor Department Treasury Indiana, 323 459, 65 347, 89 389. 471, Moor County Alameda, 411 693, 717-721, 93 1785, 1799-1801, 596; Lincoln Luning, 133 529, 530, 363, 766; VIII(b). Advisory Commission established associated agencies, others residents region, government. III(h). 516 215 (CA9 1975). disposition that, assuming might affirmatively waived Petty Tennessee-Missouri Bridge Comm'n, 359 275, 79 785, 804. 786-787, 1019; 239 1688, 90, Developments Law—Section Federalism, Harv.L.Rev. 1133, 1200 (1977) (legislative "enjoys historical position"). Doe McMillan, 412 306, 2018, 912; Kilbourn Thompson, 168, 377. arguments, Courts denying subordinate supervisors park board. Williams Anderson, 562 1081, 1101 (CA8 1977) (school members); Jones Diamond, 519 1090, (CA5 1975) (county supervisors); Curry Gillette, 461 1003, 1005 (CA6), denied, Marsh Curry, 409 1042, 492 (1972) (alderman); Progress Development Corp. Mitchell, 222, 231 (CA7 1961) (members village trustees); Nelson Knox, 256 312, 314-315 1958) (city commissioners); Cobb Malden, 202 701, 706-707 (CA1 1953) (McGruder, J., concurring) councilmen). Respondents, hand, contend most, all, resolve dispute. Whether level, opposed "for House, [the Senators Representatives] questioned Place." 375, 787. There allegation profited personally act. 8-12. enacted unconstitutional legislation, why vindicate interests. Monell New York City Dept. Social Services, 658, 611. supported 895, prosecutorial Agriculture. Executive Branch, "[j]udges location Government responsibilities." 511, 2913.

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