Document: 423 U.S. 362 96 S.Ct. 598 46 L.Ed.2d 561 Frank L. RIZZO et al., Petitioners,v.Gerald G. GOODE al. No. 74-942. Argued Nov. 11, 1975. Decided Jan. 21, 1976. Syllabus Two suits, permitted to proceed as class actions, were brought in District Court under 42 U.S.C. § 1983 by respondents, individuals and organizations, against petitioners, the Mayor of Philadelphia, Police Commissioner, others, alleging a pervasive pattern illegal unconstitutional police mistreatment minority citizens particular Philadelphia residents general. The petitioners charged with misconduct ranging from express authorization or encouragement failure act such way avoid recurrence. principal antagonists involved one case two officer, not named parties, who found have violated complainants' constitutional rights three eight incidents which made detailed factual findings five-day suspension had resulted incident no disciplinary action another. In other case, only 28 did conclude that conduct amounted deprivation federally secured right; it four incidents; another, departmental policy was subsequently changed; and, though court comment on degree occurring remainder, there arguably 16 violations citizens' year involved. found, inter alia, evidence establish existence any part violate respondent classes but discouragement complaints tendency minimize consequences misconduct. small percentage policemen commit generally could be dismissed rare isolated. Petitioners directed draft for court's approval "a comprehensive program dealing adequately civilian complaints" formulated accordance "guidelines" containing suggestions revising manuals procedural rules changing procedures handling complaints. On petitioners' appeal Appeals affirmed. Held : 1. requisite Art. III controversy between individually respondents lacking, since those respondents' claim "real immediate" injury rests upon what might do them future small, unnamed them, thus lacked personal stake outcome, i. e., order overhauling procedures. Cf. O'Shea v. Littleton, 414 488, 94 669, 38 674. Pp. 371-373. 2. judgment constitutes an unwarranted federal judicial intrusion into discretionary authority perform their official functions prescribed state local law, validating type litigation granting relief here, lower courts exceeded 1983. 373-381. (a) Court's theory liability erroneous, being based showing "unacceptably high" number dimension when fact 20 city million inhabitants 7,500 policemen, untenable conclusion even without direct responsibility actions force face statistical just enjoinable active enjoined Hague CIO, 307 496, 59 954, 83 L.Ed. 1423, Allee Medrano, 416 802, 2191, 40 566. 373-376. (b) Nor can remedy granted here upheld basis equitable sanctioned Swann Charlotte-Mecklenburg Board Education, 402 1, 91 1267, 554, unlike situation where authorities implemented deprivation, responsible played affirmative deprivations. 376-377. (c) Important principles federalism militate proposition, advanced equity power should fashion prophylactic designed handful employees, injunctive order, sharply limited department's "latitude dispatch its internal affairs," contravened principles. 377-380. 506 F.2d 542, reversed. James M. Penny, Jr., Pa., petitioners. Peter Hearn, respondents. Mr. Justice REHNQUIST delivered opinion Court. 1 Eastern Pennsylvania, after parallel trials separate actions1 filed 1970, entered 1973 requiring "to submit (the District) improving citizen misconduct" together order. proposed program, negotiated purpose complying incorporated six months later final judgment. Petitioner City Commissioner thereby required, put directive governing manner officers henceforth handled department.2 Third Circuit, upholding finding existing "inadequate," affirmed choice relief: "The revisions . ordered because they appeared potential prevention misconduct." 548 (1974). We certiorari consider claims represents judiciary committed law functions. find ourselves substantially agreement these claims, we therefore reverse Appeals. 2 * central thrust efforts lay foundation intervention, assertedly officers. This said been all individual group certified represent classes. Mayor, Managing Director, this so assure would recur future. 3 Hearing some 250 witnesses during 21 days hearings, faced staggering amount evidence; each 40-odd alone piece de resistance short, trial. carefully conscientiously resolved often conflicting testimony, fact,3 both sides now accept, respect presented Goode COPPAR.4 4 recounted Officers DeFazio D'Amico, members city's "Highway Patrol" force. They parties action. violative complainants three5 incidents, further Inquiry relatively mild another 5 COPPAR (which ranged time October 1969 1970) draw explicit expressly whatsoever complained changed. As remaining proffer occurred: whether simply improvident, regulations actually individual's rights. Respondents' brief asserts latter group, facts 14 "reveal (federal) violations."6 While think somewhat overstatement, accept it, arguendo, take established that, insofar record reveals, over year's numbers Additionally, reference seven 16; which, involving dimension, department received ultimately took offending 6 conclusions are relevant our analysis. It legal plaintiff classes, procedure indicated discourage filing larger class, rights, frequency occur is "they cannot rare, isolated instances." Rizzo, 357 F.Supp. 1289, 1319 (1973). course opinion, commented: 7 "In proceedings, much argument has toward proposition attempt supervise functioning department. Although, contrary defendants' assertions, firmly established, I am persuaded drastic called for, at least initially, present cases." Id., 1320. 8 concluded directing draft, approval, complaints", along following suggested court: 9 "(1) Appropriate revision spelling out detail, simple language, 'dos don'ts' permissible civilians (for example, manifestations racial bias, derogatory remarks, offensive etc.; unnecessary damage property unreasonable executing search warrants; limitations pursuit persons summary offenses; recording processing complaints, etc.). (2) Revision police, including ready availability forms use lodging officers; screening eliminating frivolous complaints; prompt adequate investigation (d) adjudication nonfrivolous impartial body, insulated far practicable chain command pressures, fair opportunity afforded complainant his complaint, officer defense; (3) notification concerned informing outcome." 1321. 10 noting consistent "generally recognized minimum standards" imposed "no substantial burdens" department, emphasized right improved But given "unacceptably" high numbers, likely continue occur, court-mandated "necessary first step" attempting prevent abuses. Ibid. II 11 These brought, fashioned, Civil Rights Act 1871, provides "(e) very person who, color (law) subjects, causes subjected, within jurisdiction (of United States) Constitution laws, shall liable party injured (or) suit ." plain words statute impose form payment redressive damages placed injunction "subjects, subjected" laws. 12 sharp contrast sought prove disclose paradox permeates conclusions. Individual individuals, few whom plaintiff. developed, link occurrence various adoption plan otherwise Instead, sole causal connection absence change procedures, represented. sum, genesis lawsuit heated dispute certain evolved resolve "controversy" entire citizenry petitioning elected appointed officials steps might, Appeals' words, "(appear) F.2d, 548. have, think, overlooked several significant decisions granted. A. 13 entertain serious doubts 674 (1974), plaintiffs Court, alleged county magistrate judge, embarked continuing, intentional practice racially discriminatory bond setting, sentencing, assessing jury fees. No specific instances set forth prayer And counsel oral stated "suffered practices," "(p)ast exposure does itself show regarding relief, however, if unaccompanied adverse effects." 495-496, S.Ct., 676. while "past wrongs bearing real immediate threat repeated injury", anticipate circumstances appear before "takes us area speculation conjecture." 496-497, observations apply more force, race unknown policeman's perception hypothesis attenuated than allegations insufficient warrant invocation jurisdiction. Thus, concerned, "personal outcome," Baker Carr, 369 186, 204, 82 691, 703, 663 (1962), B That end matter, also noted "if none establishes defendants, may seek behalf himself member class" purport represent. U.S., 494, 675. But, O'Shea, arise pleadings. having classes,7 bridged gap shown trial classwide unprecedented liability. held classes' large inhabitants, policemen. 15 Nothing 1423 (1939), decision cited Court,8 supports open-ended construction Hague, grounded enforcement deliberate policies defendants (including Chief Police) excluding removing plaintiff's labor organizers forbidding peaceful communication views Jersey City. "by violence" There mistaking discrete group. Likewise, 566 relied noted: 17 complaint single intimidation suppress appellees' blunderbuss effort statutes constitutionally deficient, concurrently exercised valid laws manner." 812, 2198 (emphasis added). 18 numerous Texas Rangers, summarized beyond peradventure "persistent pattern" flowed intentional, concerted, indeed conspiratorial deprive First Amendment place fear coming back. 814-815, 2199-2200. 19 Respondents stress held, Appeals, "when frequent shown, clear granted." F.Supp., 1318 However, behavior different kind exists elsewhere; indeed, "that problems disclosed fairly typical (those) afflicting departments major urban areas." word "pattern" where, causally linked distant echo cases. focus Medrano occurred common thread running through them: "pervasive intimidation" flowing crush nascent organizations. supra, 2198. unadorned quite dissimilar settings underlying urged indistinguishable Medrano. posit "duty" (and corresponding "right" Philadelphia) "eliminate" misconduct; "default" duty pattern, empowered stead whatever preventive measures necessary, discretion, secure issue. Such reasoning, blurs accepted usages meanings English language inconsistent Congress chose never subscribed amorphous propositions, decline now. embodied supported desegregation cases 554 (1971). long line precedents therein, reaffirmed body originally enunciated Brown 347 483, 74 686, 98 873 (1954): 22 "Nearly years ago terms, state-imposed segregation public schools denies equal protection At deviated slightest holding underpinnings. 23 "Once violation scope district powers past broad, breadth flexibility inherent remedies." Swann, 15, 1274. 24 Respondents, bring themselves ignore critical distinction decided latter, varying periods time, whereas instant depriving Those administrators school board employ own deprived black students unitary system. administration system denied Here, Constitution. Under well-established rule "judicial violation," 16, 1276, occasion grant C 25 Going considerations concerning live threshold statutory liability, must address additional novel assert citizenry's protected exercises power, "need abuses," mandatory supervisory positions institute reduce incidence misconduct.9 proposed, extended fashioning agency employees. odds settled "the nature determines remedy," ibid., important factors weighing it. Where, exercise attacked, constantly mindful "special delicacy adjustment preserved State law." Stefanelli Minard, 342 117, 120, 72 118, 138 (1951), quoted 500, 678. 26 Section terms confers well damages, "allow proper proceeding redress, refer standards determine proceeding." Giles Harris, 189 475, 486, 639, 642, 47 909 (1903) (Holmes, J.). Even private used sparingly, case." Irwin Dixion, How. 10, 33, (1850). When seeks enjoin activity government agency, system, contend Government traditionally widest latitude 'dispatch affairs,' Cafeteria Restaurant Workers Union Local 473 A.F.L.-C.I.O. McElroy, 367 886, 896, 81 1743, 1749, 1230 (1961)," Sampson Murray, 415 61, 83, 937, 950, 39 166 significantly indisputably limitation affairs.' " 27 frame moves governed stated, representing Nation, subsisting side 50 judicial, legislative, executive branches, appropriate consideration determining relief. Doran Salem Inn, Inc., 422 922, 928, 95 2561, 2566, 45 648 (1975). So strongly weighted factor criminal enacted 2283 deny issue injunctions proceedings unless come narrowly specified exceptions. 1983, was, exceptions, Mitchum Foster, 407 225, 92 2151, 32 705 (1972), notions relationships still weight. Where equity, comity, federalism" nonetheless restrain court. 243, 2162. 29 themselves, heavily except most extraordinary circumstances. 502, 679, continuing daily conflict restraint previously noted." same civil once begun. Huffman Pursue, Ltd., 420 592, 1200, 43 482 30 Thus play relationship governments, initially expounded perhaps entitled greatest weight prosecution progress, either itself. likewise applicability sought, branch government, charge governments here. Indeed, recent Educational Equality League, 605, 1323, 630 considerations, saying: "There delicate issues federal-state 615, 1331. 31 Contrary flat pronouncement "supervise established," foregoing govern injected decree affairs departed precepts. For reasons 33 Reversed. 34 STEVENS case. 35 BLACKMUN BRENNAN MARSHALL join, dissenting. 36 To sure, federal-court intervention operation intimates, undesirable avoided possible. appropriately observes, ante, 367, Federal engage careful conscientious resolution testimony make fact, sides, attack problem subject complaint. defendant officials' assent, reluctant assent been, concededly with. memorandum December 18, 1973, disputed items nearly accord position plaintiffs' position," contemplated earlier orders March 14, see 1289 (E.D. Pa.), "did go always willing accept." App. 190a. one, majority, disputes apparent efficacy effectuated betterment serve lessen deprival What worrisome abstract principle, course, principle limits logic, produce untoward results day. See Hudson County Water Co. McCarter, 209 349, 355, 529, 531, 52 828 (1908) 37 detailed, careful, sympathetic findings, ascertained activity, continuance recurrence, indifference doing anything about accordingly, plainly fits mood despite observation, 1319, "does overall Department citizens, nor discriminate race" supplied). distinguish successful. available persistent (or, say, particularly by) constituted side. entertains "serious doubts," 371-372, citing facts. There, plaintiff-respondents subsequent future, arrest. said: "We assume will activities conviction challenged followed circumstances, proscribed presumably indicate intention too remote satisfy case-or-controversy requirement permit court." 497-498, 677. contrast, (an allegation complaint) hands regardless law. 41 extent Part II-A today indicates spread extremely thin controversy, agree. agree, substitution shows. states minimal, thousands arrests population. Small ratio be, nevertheless operation, sufficiently "cannot 1319. demonstrates me justification record. criticism forceful, miss mark much, 100 500 3,000, compared Philadelphia. somewhere. drew proved instances. One properly wonder how many existed unproved pressure court, witnesses, question degree, despairing belief, unfounded nothing done anyway worth effort. convincingly demonstrated result affirmance, us, unanimous panel support below Commonwealth Bar Association, Greater Movement, entities briefs amici curiae appears strictures he directs Ante, 375-377. holding, seems me, ignores interpreting language. cause acting subjected," States. By reaches acts official, subordinates responsible. Monroe Pape, 365 167, 473, 492 (1961), "should read background tort makes man natural actions," id., 187, 484, and: "It abundantly reason legislation passed afford because, prejudice, passion, neglect, intolerance otherwise, enforced enjoyment privileges, immunities guaranteed Fourteenth agencies." 180, 480. (Emphasis added.) 44 necessary reach justify award money authorized superior consciousness perpetrated subordinates.1 consciously permitting subordinates, duties, deal. rejecting concept casts aside reasoned reached Courts Circuits.2 although discrimination, "such instances; little punish infractions, recurrence," "is proven misconduct, resist disclosure disposition complaints." 1318. Needless subordinates. Home Rule Charter, c2, 5-200. agree sufficient ambit Further, controlling allows necessity issued consequent supervision day-to-day men street. aptly stated: "Respect admiration performance vast majority refusal confront reality abuses exist. deference essential role society mandate sensitive limited, insuring encouraged situation." 48 regard accomplished rightly justified "intervention" municipal area. facts, degree. delineated, worked administrative structure rather then superimposed edict essentially, concededly, "livable." Brotherly Love American less expected. matter regret sees fit nullify meticulously thoughtfully need relating cherish hold dear. action, February 1970 styled individuals. second, September Tate, organizations: Council Organizations Accountability Responsibility (COPPAR), unincorporated association composed constituent community organizations; Southern Christian Leadership Conference, whose office Atlanta, Ga.; Black Panther Party Young Lords Party, associations Spanish origin, respectively. groups, members, discovery. Both occupying offices Director (who supervises Mayor's appoints Commissioner), supervisors subordinate defendants. "included" city. thorough account opinion. A considerable detail current officeholders, petitioner Mayor. n. supra. 21/2-page "directive 127" (March 1967), expanded all-encompassing 14-page document reflecting "guidelines." infra, 369-370. Directive 127 revised promulgated posted areas, copies provided anyone requested inquired "Citizen's Complaint Report" drawn up format designated printed quantities locations. propose recruit training manual reflective "guidelines," chance alternative suggestions. Finally, maintain records annual summaries provide "evaluation" ordered; reserved review progress areas appropriate. Pet. Cert., 20a-37a. Each full 1294-1316. purposes highlight findings. Incidents "1" "3." 1294-1297. textual taken Brief 14-15 18. raised propriety designation Fed.Rule Civ.Proc. 23. Lankford Gelston, 364 197 (CA4 1966), department." intimated confronted obviously distinguishable. "evil notoriously persisted Department," searching 19-day period murdered ranks, conducted 300 warrantless searches residences predominately Negro "at hours day night" "unverified anonymous (telephone) tips." 198, 205 9. "series flagrant invasions privacy every scrutiny court" arose experienced testified "routine practice" 200-201. Injunctive wholesale raids "effectuation conceived ranking (police) officials," interim "renounced obliquely, all," danger repetition removed." 202, 204. 34-35. regard, recently approved imposition "consciousness wrongdoing" States Park, 421 658, 1903, 489 concept, thus, doctrine. "Under section governmental notice fail recurrence (1939). From standpoint, difference product direction superiors superiors' mere acquiescence behavior. situation, duty, admittedly committing Convention, action." Schnell Chicago, 1084, 1086 (CA7 1969). Inmates Suffolk Jail Eisenstadt, 494 1196, 1199 (CA1), cert. denied, 419 977, 239, Rozecki Gaughan, 459 6, (CA1 1972); Wright McMann, 460 126, 134-135 (CA2), 409 885, 93 115, 141 (1972); Lewis Kugler, 446 1343, 1351 (CA3 1971); 1966); Jennings Patterson, 1021, 1022 (CA5 Smith Ross, (CA6 1973); Byrd Brishke, 466 10-11 Davis, 476 1271, 1275 (CA8 Dewell Lawson, 877, 881 (CA10 1974); Carter Carlson, 144 U.S.App.D.C. 388, 395, 447 358, (1971), rev'd grounds sub nom. Columbia Carter, 418, 602, 613

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