Document: 458 U.S. 670 102 S.Ct. 3304 73 L.Ed.2d 1057 FLORIDA DEPARTMENT OF STATE, Petitioner,v.TREASURE SALVORS, INC., etc. No. 80-1348. Argued Jan. 20, 1982. Decided July 1, Syllabus After respondents had located the wreck of a 17th-century Spanish galleon off Florida coast, immediately claimed ownership pursuant to statute. Contracts were then entered into between Division Archives, as owner and its cargo, respondents, whereby agreed conduct underwater salvage operations in exchange for Division's agreement transfer 75% appraised value all material recovered from respondents. The contracts did not purport any property Division. Ultimately, many valuable artifacts discovered. In meantime, proceedings unrelated operations, it was held United States v. Florida, 420 531, 95 1162, 43 375, that, against entitled lands, minerals, other natural resources area which remains come rest. Respondents thereafter filed an admiralty rem action Federal District Court Southern naming defendant but State seeking declaration title galleon. Throughout ensuing proceedings, intervened both Appeals on appeal rejected States' claim galleon, some remained custody officials Archives Tallahassee, is beyond Court's territorial jurisdiction. Appeals' decision, motion order commanding Marshal arrest take those bring them within court's granted issued warrant arrest. Although addressed state officials, itself quash warrant, court denied this motion, ruling that extraterritorial seizure proper under Supplemental Admiralty Rule C(5), show cause why should deliver Marshal's custody. argued Eleventh Amendment barred exercise jurisdiction, argument, holding waived property, apart such claim, bar subsequent On merits, also State's based with affirmed. Held : judgment affirmed part reversed part. 5 Cir., 621 F.2d 1340, Justice STEVENS, joined by THE CHIEF JUSTICE, MARSHALL, BLACKMUN, concluded that: 1 1. process secure possession officials. Pp. 683-699. 2 (a) Amendment, while barring directly or agency thereof, does official theory acted scope his statutory authority or, if authority, unconstitutional. however, limits relief may be latter kind action; compel use funds compensate plaintiff injury. 683-690. 3 (b) Here, at issue direct State, because directed only Neither fact elected defend behalf nor purported adjudicate rights, deprives jurisdiction been properly invoked over parties. Pp.691-692 4 (c) named do have colorable artifacts, thus invoke block execution warrant. contracts, whether valid not, provide no officials' refusal surrender provision even arguably would authorize retain has advanced. 692-697. (d) sought consistent principles Edelman Jordan, 415 651, 94 1347, 39 662. specific property. It seek attachment impose burden treasury. And are asserting damages either officers. 697-699. 6 2. resolution require—or permit—a determination hence improperly adjudicated right artifacts. Pp.699-700 7 BRENNAN, agreeing opinion established inapplicable case corporations suit "commenced prosecuted one citizens another State," provides. 700-702. 8 WHITE, POWELL, REHNQUIST, O'CONNOR, concurred insofar reverses P. 703, n. *. 9 Susan Gamble Smathers, Fla., petitioner, pro hac vice, special leave Court. 10 David Paul Horan, Key West, respondent. 11 STEVENS announced delivered opinion, BLACKMUN joined. 12 action, federal attempted two court. property—artifacts Nuestra Senora de Atocha, galleon—was discovered floor ocean international waters. question presented immunized process. 13 * Battered tropical hurricane, carrying cargo New World treasure King Philip IV Spain, sank 1622, 40 nautical miles west what today Fla. years searching studying archives Seville, respondent Treasure Salvors1 site spring 1971 near shoals known "Quicksands," nine one-half Marquesas Keys.2 14 Atocha belonged State. Fla.Stat. § 267.061(1)(b) (1974), provided:3 15 "It further declared public policy trove, objects having intrinsic historical archeological abandoned state-owned lands sovereignty submerged shall belong thereto vested division archives, history, records management department purpose administration protection." (Emphasis added.) 16 Officials threatened Mel Fisher, president Salvors, confiscate boats equipment Salvors commenced without contract Under threat arrest, executed one-year permitted vessel.4 Similar during each three succeeding years. 17 Each expressly predicated assumption found boundaries "to upon certain belonging Florida." App. 20. describing metes bounds "lying being Monroe County, Florida," provided shipwreck "is worked salvaging vessels thereof including, limited to, relics, trove materials related thereupon therein, Id., 22 (emphasis added). provided: "In payment Salvager's satisfactory performance compliance Agreement, will award Salvager seventy-five percent (75%) total hereunder, made time parties hereto. Said fair market value, combination both, option director." 32-33. 18 bargain, brief, contractor perform services pay $1,200 year, post bond, work specified manner, proceeds operation—or equivalent—to Salvors. Archives; entirely law. 19 attempt lost immensely successful. salvager headquarters remainder Tallahassee. All deemed subject distribution receive contractual share. 20 operation, engaged litigation determine seaward boundary Atlantic Ocean Gulf Mexico rights resources. February 1974, Special Master Report defined Florida's landward Atocha. objections overruled. 375 (1975).5 A final decree providing 425 791, 96 1840, 48 388 (1976).6 21 overruled exceptions Master's Report, complaint demanding "Plaintiffs put ATOCHA persons, firms, government agencies enjoined interfering Plaintiffs title, possession, property," confirmed claimants world." 9. maritime Civil Procedure 9(h) and, rem, defendant. Items Salvors' duly served brought Most lay buried sand waters; No serve party-defendant counterclaim declaratory Atocha.7 Government's "possession rightfully conferred finder res derelictae." Inc. Abandoned Sailing Vessel, 408 F.Supp. 907, 911 (1976). favor "against America claimants." Record 270.8 23 States, modified decree. Unidentified Wrecked 569 330 (CA5 1978). lacked portion lying portions outside district; noted must district seized 333. appellate held, intervening stipulating Government "waived usual requirement present consented interest vessel." 335. existed claims court, who appeared submitted court.9 common-law advanced States. 24 these Since Tallahassee Northern Immediately following decision Appeals, 318. That forms basis controversy. 25 arrest.10 officers contending party could 43.11 obtained emergency stay Appeals. 368. quash, C(5). 51.12 stayed Marshal.13 26 response cause, raised several substantive issues 425. Contending supplemental see 11, supra, demonstrated repeated arguments affect "contractual" share 429-439. 27 comprehensive memorandum. 459 507 (1978). first just resolved earlier proceeding, privity proceeding. 512; 7, supra. Alternatively, salvaged articles C(5) resolve res. F.Supp., 518. multiple grounds 521. 28 At conclusion memorandum defense. 526. necessarily asserted Ibid. Marshal.14 29 1340 1980). As Court, 14, prevent resolving controverted res, since dispute essential F.2d, 1345.15 proper, id., 1346, 1349.16 30 Department petition writ certiorari, presenting question: "Whether Constitution bars recover owned state." Pet. Cert. I. We petition. 451 982, 101 2312, 68 838. hold they power, consent. II 31 Stripped procedural complexities factual glamor, presents narrow legal question. seize extraterritorial, involved application our different merely resisted district. 32 contended immune Amendment.17 "alone determined obligations contracting . ." 44. difficult exercising belongs State.18 33 generally maintained itself, unless sovereign immunity. Alabama Pugh, 438 781, 98 3057, 57 1114. If suit, dismissed action. 782, S.Ct., 3057.19 Of course, proceeded mean stand suit.20 34 when actions taken their capacity defended most senior executive branch government. Ex parte Young, 209 123, 441, 52 L.Ed. 714, enjoin enforcement unconstitutional statute Amendment. argument act officer therefore characterized explained: 35 "The enforced alleged unconstitutional, so, name enforce injury complainants proceeding governmental capacity. simply illegal attempting legislative enactment void Attorney General seeks violation Constitution, comes conflict superior he stripped representative character subjected person consequences individual conduct. power impart him immunity responsibility supreme States." 159-160, 454. 36 There well-recognized irony Young; "state action" purposes Fourteenth yet attributable Eleventh. Nevertheless, rule Young cornerstones jurisprudence. See 663-664, 1355-1356, 662; Quern 440 332, 337, 99 1139, 1143, 59 358. 37 Tindal Wesley, 167 204, 770, 42 137, applied analysis later enshrined wrongfully South Carolina. Tindal, real official; answered defense described decision: 38 "So presented, individuals land actual control, meaning rightful agents assert Can decline inquire is, law, defendants right, withhold possession? finds, due inquiry, assertion foundation, defendants, adjudge possession?" U.S., 212, 773. Relying extensively Lee, 106 196, 240, L.Ed.171,21 "settled doctrine wholly precludes idea happens asserts lawfully behalf." 221, 777. refused accept proposition "doors courts justice closed legally mere State." 222, explaining extent stated: "[T]he gives withholding citizen make good appear plaintiff. enforcing statute, plaintiff's injured impossible how same illegally withheld can Ibid.22 41 emphasized awarding subsequently bind effect former question, shown plaintiff," 223, 777; "it open appropriate establish protect whatever premises dispute." law set forth Lee Wesley clarified Larson Domestic & Foreign Commerce Corp., 337 682, 69 1457, 93 1628. contract.23 theorized delivery required agent exceeded sued stated "the (be holding, taking otherwise affecting property) regarded so 'illegal' permit officer's powers powers, particular case, constitutionally void." 701-702, 1467. withholds acting permissible capacity.24 authority—indeed, affirmatively issue25—or unconstitutional,26 These cases clear places limit allowed proceed 662, "a private liability paid treasury Amendment." 663, 1356. Ford Motor Co. Treasury, 323 459, 65 347, 89 389; 1143.27 determining "constitute[s] prospective 'retroactive requires treasury.' " 346-347, 1147-1148. III 44 light above, answer questions: Is itself? Does challenged constitute ultra vires tortious interference rights? analogous retroactive treasury"? 45 sailing vessel floor. compelled appear. Some issue, Archives. Asserting "for Order Plaintiffs' now L. Ross Morrell James McBeth custody, care control." 11.28 requested, your said and/or McBeth, control Honorable substitute custodian appointed action." 41-42. contends Amendment.29 46 State.30 agents, deprived 1114; B 47 second considered legitimate issue. contended: "If [does] apply states territory. rationale Home Tel. Los Angeles, [227 278, 312, 510 (1913),] prohibits result allow deprive 472. 49 Thus outset, 50 1628, goods interpretation disputed constituted deprivation remedy delivery, breach Claims. Actions neither 51 From outset here, noteworthy, never artifacts; "determined "in way affected" 375. 44.31 called obligations" contract. refuse relevant Unless collateral before us. 53 apparent contracts. State; 20-21, believed toto "award 33. "yield" undisputed remaining 25%; equivalent compensation expensive undertaken retrieving 54 might well Salvors; latter's services. ownership, independently contracts.32 party's affected contracts; 55 derived solely 56 archaeological history This determined, "state-owned lands." Rather, Outer Continental Shelf beneath waters.33 58 litigation, relied process; face case.34 reason State—when land—is reasonable reading cited us State.35 recognized Larson, "action property)" sovereign, 701, 1467; follows inevitably Young. unauthorized 60 circumstances substantial constitutional presented. essence, authorized regardless manner acquired, duty taking. protection unbridled exist whim sovereign. 61 Thus, secures property; finally we need decide sovereigns voluntarily C 62 Finally, 63 quite re York (I), 256 490, 588, 1057, (II), 503, 592, 1063, caused canal chartered York. Pursuant practice, themselves. complaint, Superintendent Public Works ordered answer; event chattels used controlled him" attached. 496, 589. 64 Superintendent. prohibition here asked element nature personam Mr. Walsh, individually, York," 501, 591, moreover, "[t]here suggestion color than course constitution laws York." 502, 591. concluded: fullest sense, therefore, entire record suits York, therefore—since consent given—beyond negligent operation boat arrested. claim. broad language urged employed uses exempt rem. 511, 593. force action—otherwise State—cannot through Otherwise, easily circumvented; attaching ownership. sole arrests enable acquire 66 67 disposition making determination, While adjudication justified analysis, For reasons, To prohibit reversed. ordered. 70 concurring dissenting 71 I agree plurality prohibited case. ante,at 699 page. My differs plurality's, however. Both organized Florida. U.S.Const., Amdt. "long govern" "actions own citizens." Ante, 683, added), citing Hans Louisiana, 134 504, 842 (1890). long view rely citizens. Employees Missouri Health Dept., 411 279, 309-322, 1614, 1630-1636, 251 (1973) (dissenting opinion); 687, 1367, 662 (1974) opinion). adhere view, believe case.* extent, am plurality's disposition. 72 disagree, below erred [their] analysis." 700. plainly indicates full opportunity respecting evidentiary hearing merits arguments. 507, 521 (SD Fla.1978); 1344 rejection appears available were, are, insubstantial. 694-697. "No issue," ante, 696 artifacts" 694 Given conclusions, fail reverse prescribes, understand remand rather point. But already claim: Even incorrect did, invalidate determination? Why get bite apple? sum, affirm entirety. 74 whom O'CONNOR join, 75 essence treasure. entertaining agrees waive Because purports treasure, very 714 (1908). short, permission. Moreover, find 76 like thought jurisdictional merged validity "jurisdiction jurisdiction" ascertain was, fact, By "[t]he consent," rejects novel conception Amendment.* approach prior cases; incorrectly assumes unsatisfactory because, Judge Rubin dissent, eleventh amendment loses." 1351 disagreeing nevertheless conclude "State [its] contracts" 694, "have [no] artifacts." 694. practical adjudicates repeating error 77 STEVENS' rests precariously transparent fictions. First, indulges fantasy somehow divorced res—a position contradicted apposite precedents, cases, (1921), 1063 (1921). dubious parlayed fiction—that freedom meaningfully safeguarded formally rejecting although contested title. propositions premised axiom cannot evade "comes [the] Constitution." 159, Today, dilutes probative behind cornerstone extrapolating citizens, explained below, dissent 78 Suit Against 79 traceable filing roots rest bounty. rested Fla.1976). territory respect 1978) (Treasure ). 80 request decision.1 decided "sole Defendant 13. Notwithstanding limitation 521, (1975), removed privy bound 81 "Inasmuch [and officers] [the court] immediate together her wherever found." deleted). 82 requested enough accompanying articles, invoking judicial agents. 83 events reveal requesting void; "[t]hat interest" possession. 371. 63. suit. arguments, arrested possession." 85. judgment. 84 inescapable filed, litigated, decided, artifacts.2 type heart 85 line culminating (1908), contrary. 171 (1882), 137 (1897), Government. correctly notes, plain Here point erase issuance warrant; 86 supported precedents closest instant case: (1921, arose libel owners tugboats fault collisions operated charters behalf. could, consent, impleaded "proceedings asked," i.e., implead personam" officer. distinction suggest original true highlight impleading official, less "official capacity" require satisfaction out 87 extended 88 principle uniformly municipal applies greater purposes." (II) "otherwise 699.3 Nothing Pitney's supports interpretation. ship classic after identified often amended include well. G. Gilmore C. Black, Law 498 (2d ed. 1975) (Gilmore Black). Therefore, "true" 90 similarity clear: libels requested; responded indicated attachment. awarded authorizing When Queen City reached forum, rem.4 aside, distinguished single point: here. That, case—a apparently rejects. 91 (I) involving squarely stands hands though strictly vessel, indispensable party. Significantly, distinguish service thrust vessel. follow sever 92 particularly forceful reflect concern seized. dates back English5 significantly altered country.6 examples concerning Government, foreign respective doctrines pertaining been, presentation entity dismiss modify accordingly.7 allowance "personification" res—that runs decisively rejected. fiction personality declined, Black 615, 804-805, given effect, judgments actions. 802, 613-614. See, e.g., Burns Bros. Central R. Jersey, 202 910 (CA2 1953) (L. Hand, J.). long-established tolerated, Holding Was Not Ultra Vires more, right. settled nominal Louisiana Jumel, 107 711, 719-723, 727-728, 128, 134-137, 141-142, 448 (1883). Leaving aside possible bases address renewed annually, lands. terms contract, received recovered. 25% arrangement occasions, last December 3, 1974. contract's duration along lines placed 97 cavil one-fourth deciding consents. 1628 (1949). proposition.8 treats reasons. never, words, 693. sense create independent repeatedly precisely claim.9 contracts." disagree conclusion. wording reasonably interpretable intention governs instrument. waters, happened, upset mutual assumption. inexorably invalid render vires.10 mistake rescission fully performed circumstances.11 contention utterly ignores concept mistake. notion read expected written mistaken assumptions, occurred. 100 Whether ultimately beside existence presence enter ability raise mistake-of-law rejectable face, indicate vires. too much crystal respects, least, teaching recent cases. apposite. corporation Administrator War Assets Administration, Administration sold surplus coal plaintiff, new sell others. valid, invalid, injunctive requested. entertain it. Administrator's binding coal, absence failure pass initial breached.12 where limitations doing business empowered do. His object relief." 689, 1461. Similarly, protected shield rejected, third proposed category amenable suit.13 "officer wrongly takes holds title," sued. erroneous: 103 allegation officer, officially, meet requirement. True, establishes wrong committing wrong, delegated sovereign." 693, 1463. 104 indisputably relies heavily, must, This, executed. Before concluding vires, necessary reach dispose contention. scattershot reasoning refusing honor contract—characterization treatment coercion lack consideration—constitutes offer 105 significant pursued little Fifth Circuit matter. earlier, performs task rubric, equally objectionable. one, lesson begins stating "[s]tripped question." 683. Be may, supplied anything narrow. means says today, unfortunate. officers, assuming basis, there item whose expedient merits: persuade inquiry tantamount itself. away sea: notes Ibid.. hardly conceals equities litigation. Yet teaches local "procedural glamor." earned fitting sobriquet: aberration. Inc., Armada Research treated referred "Treasure Salvors." story discovery recounted Lyon, Trouble Treasure, 149 National Geographic 787 "coercive acts threatening confiscation." 522 Fla.1978). admits made. Tr. Oral Arg. 1868 Submerged Lands Act 1953. 532, 1163. exception argument. 533, 909 statutes "sovereign prerogative." intervene time. notice assisted lawsuit preliminary negotiations Interior regarding prevailed. Dept. 1343-1344 "General dictate abandonment constitutes repudiation 'animus revertendi,' returning. Ownership vest law." (citation omitted). plaintiffs affirming approve construed exclusive of, claimants, be, privies litigation." 335-336 (footnote "WARRANT FOR ARREST IN REM FC "THE PRESIDENT UNITED STATES AMERICA "TO: MARSHAL SOUTHERN DISTRICT "GREETING: "WHEREAS, 18th day July, 1975, Corporation, corporation, Complaint tackle, armament, apparel 2500 yards [sic] coordinates 24x 31.5' North Latitude 82x 20' West Longitude, NUESTRA SENORA DE reasons Complaint, November 1975 Notice published newspaper general circulation District, agencies, employees, prosecute control. "NOW, THEREFORE, you hereby commanded 40-42. asserted: "A Corporation 1974 consideration. alone in] [sic]." parties, 369. void. further, 59. dissolved stay. 65. ordered: execute forthwith items situ place lock seal location secure." 68. reconsideration instance developed court." 69. expedite custodian. serving custodian, came Marshal. support decision. Essentially, held: "There owner. owner, proceed." 527. "jurisdictional" Mine Workers, 258, 677, 884, "[i]t axiomatic jurisdiction." "[t]his finds ancillary memorandum, "ORDERED ADJUDGED DECREED Corp. Marshal, Corp." order, eventually restrictions—the 554. compelling reasoned actions, sufficient petitioners stranded forum litigate 19. 1344, 17. provides: Judicial extend equity, Citizens Subjects literally govern 842. 280, 1615, 251; 1355, Nor admiralty. Again, 500, 590, 1057. offered defenses foreclose consideration issue; sufficiently partakes bar" proceedings. 678, 1363; 467, 352, 389 ("The declares sets explicit consider arising Court"). Fitzpatrick Bitzer, 427 445, 456, 2666, 2671, 614 ("Congress 'appropriate legislation' provisions impermissible contexts"); Hutto Finney, 437 2565, 522; Maher Gagne, 122, 2570, 653. Board Corrections substance number responsible prison system. ejectment Virginia estate Robert E. Lee. acquired nonpayment taxes, taxes tendered Once military installation national cemetery custodians estate, pleaded upheld trial ground defendants' unlawful. doubted depend 213, continued: "Any leads result: citizen, securing him, violate declaring Chicago, Burlington &c. Railroad 166 226, 236, 241 [17 581, 584, 586, 979], remediless chooses for, according individuals, about dismissal informing appropriated." contracted purchase Administration; failed condition precedent delivery. passed made, him. restrained sovereign]. sovereign's consented." explicitly commission tort Ibid.; 695, 1464. "was administer sales program encompassing negotiation shipment receipt payment." 692, 1462. normal concomitant matter when, agent's believes still principal's sell." "very respondent's validly enter, subordinates, sale coal." 1468. remedy, 27, 1468, 27. absolute. noted, 19, Congress State—pursuant Amendment—that entail 614; 522. "ancillary effect" inevitable consequence Young." Jordan 668, 1358; Milliken Bradley, 433 267, 288, 2749, 2761, 745. "[w]hile aid notwithstanding office." Scheuer Rhodes, 416 232, 238, 1683, 1687, 90. Director Bureau Chief Historical Museum 15. 43. effort failed, defeat property—and ultimate warrant—to 422. emphasized, Declaratory Judgment Other Relief April 17, 1978." 526 original). issued, ("COMES NOW, undersigned counsel, moves herein ."). alter involves post, 712, provides unlike L.Ed.1628, breached authority. 8, sunken ships mineral foreclosed boundaries, 5, refuted continued expiration vigorous relatively few imagine idly pirate understanding cannot, occurred, stranger transaction. benefit reformation change contracts—and provision—we note 267.061(2)(a) (1981) "[l]ocate, acquire, protect, preserve, promote location, acquisition, preservation historic sites properties, buildings, antiquity scientific public, monuments, memorials, fossil deposits, Indian habitations, ceremonial sites, settlements, caves, ships, thereof." Surely section found. reason, footnote opinion. concludes concur point, Members except agreement. Final rendered 1976 Appellate Opinion 76-2151, March 13, 1978, move Plaintiff's 11. significance. defines once accepted, replaces original. reflects followed complaint. confuses treating bearing imposed pertain instead straight grounds: record—aside 25, Original—presents went process, nations" "general comity policy." 510, implications. decisions, 686, 21. Cf. 773, (1897). Second, undercuts stops roundabout circumvention "first rem." 699. above quoted passage indicates, go far barred. English Messicano, T.L.R. 519 (1916). Where sues dismissed, obtained." Riesenfeld, Sovereign Immunity Vessels Anglo-American Law: Evolution Legal Doctrine, Minn.L.Rev. (1940). Parlement Belge, P.D. 197, 220 (1980), "leading authority" England, "[i]f think indirect mode inconsistent independence equality represented owner." state," say contentious testimony correct." 219. early Peters, Dall. 121, 535 (1795); Schooner Exchange McFaddon, Cranch 116, 287 (1812); L'Invincible, Wheat. (1816); Santissima Trinidad, 283, 454 (1822). Siren, Wall. 152, 129 (1869), sold, stressed Western Maid, 257 419, 299 (1922), per Holmes, Government-owned enforceable thereafter. Shortly thereafter, expanded embrace commerce. Berizzi S.S. Pesaro, 271 562, 611, 1088 (1926). 606-613. Only controversy Compania Espanola Navegacion Maritima Navemar, 303 68, 432, 667 (1938). unconstitutional." "At previously Brief Petitioner 32; Archives—that valid." 60. lien Reply 16-17. Motion Quash Warrant Arrest Rem, suggests "were case." 696. more restates characterization contracts' law—the statute's "inapplica[bility]" (1975). inherent uncertainty led justify Elfrida, 172 186, 146, 149, 413 (1898) ("We sustained rule, should, prima facie, enforced, exception"). 582 ("Whether gamble turns badly salvor, 'no cure pay' everywhere enforceable, absent invalidating causes fraud duress"). puzzling. breached, meaning: significant; comparison acknowledges (1882). Dicta aspect "clarified." action—to farther try 1980) (Rubin, J., dissenting). inapplicability Malone Bowdoin, 369 643, 980, 168 (1962), eject Forest Service Officer occupied land. "While overruling Pointing land, interpreted 'a immunity.' [69 1464]. So construed, continuing 'where compensation.' 697 1465]." 647-648, 983-984. An adequate compensation. Indeed, able

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