Document: 374 U.S. 150 83 S.Ct. 1850 10 L.Ed.2d 805 UNITED STATES, Petitioner,v.Carlos MUNIZ and Henry Winston. No. 464. Argued April 22 23, 1963. Decided June 17, J. William Doolittle, Washington, D.C., for petitioner. John Abt Richard D. Friedman, New York City, respondents. Mr. Chief Justice WARREN delivered the opinion of Court. 1 The question in this case is whether a person can sue under Federal Tort Claims Act1 to recover damages from United States Government personal injuries sustained during confinement federal prison, by reason negligence government employee. For reasons be developed below, we hold that such suits are within purview Act. 2 This litigation, brought here as single case, arises two separate respondents Winston Carlos Muniz District Court Southern York. Both sought suffered while they were confined prisons. district judge granted Government's motions dismiss both cases on ground not permitted Appeals Second Circuit, sitting en banc, reversed, four judges dissenting. 305 F.2d 264, 287.2 Because decision below involves an important construction Act because Courts had previously reached contrary result,3 certiorari. 371 919, 292, 9 229. 3 alleged 1959, he was Penitentiary at Terre Haute, Indiana, began suffering dizziness, loss balance, difficulty with his vision. Upon Winston's initial complaint, prison medical officer's diagnosis borderline hypertension; treatment, reduction weight. symptoms nevertheless recurred increasing severity over next nine months; unable keep balance fell frequently. He also suffer periodic Despite repeated complaints officers, given no further except some dramamine dizziness. In January 1960, attorney became alarmed condition him examined consulting physician. February operation successfully removed benign brain tumor which caused difficulties, but sight could saved. employees responsible delay removal blindness. 4 Respondent was, August prisoner correctional institution Danbury, Connecticut. On afternoon 24, outside one institution's dormitories when struck inmate, then pursued 12 inmates into another dormitory. A guard, apparently choosing confine altercation instead interceding, locked who chased dormitory set upon him, beating chairs sticks until unconscious. fractured skull ultimately lost vision right eye. officials negligent failing provide enough guards prevent assaults leading letting prisoners, whom mentally abnormal, intermingle without adequate supervision. 5 Whether entitled maintain these requires us determine what Congress intended it passed 1946. would appear first glance pose serious difficulty. used neither intricate nor restrictive language waiving sovereign immunity. It gave jurisdiction 6 'of civil actions claims against States, money damages, * injury or wrongful act omission any employee acting scope office employment, circumstances where if private person, liable claimant accordance law place occurred.' 28 U.S.C. § 1346(b). 7 provides 'United shall liable, respecting provisions title relating tort claims, same manner extent individual like circumstances.' 2674. qualified general waiver immunity 2680 excepting arising certain activity, transmission postal matter, assessment taxes, imposition quarantine, Panama Canal. None exceptions precludes suit prisoners prison. So far appears face Act, has clearly consented those involved bar. claim made out depend state law, least prohibited suing. Since number lower courts have conclusion,4 largely reliance our Feres v. 340 135, 71 153, 95 L.Ed. 152, deem appropriate make more detailed investigation intent Congress. 8 An examination legislative history reinforces conclusion permit suits. reasons, well aware its failure exclude them deliberate. First, part Legislative Reorganization 1946,5 designed only avoid injustice having meritorious hitherto barred immunity, eliminate burden investigating passing bills seeking relief. See Dalehite 346 15, 24—25, 73 956, 962, 97 1427; 139—140, 156, 152.6 task screening substantial. See, e.g., 74 Cong.Rec. 6868. Private introduced Sixty-eighth through Seventy-eighth Congresses averaged 2,000 per Congress, roughtly 20% enacted. H.R.Rep. 1287, 79th Cong., 1st Sess. Among submitted behalf which, between 1935 1946, 21.7 much larger must been therefore among adding Congress' burdens. cannot assumed unaware their presence. second indication conscious found prior versions Efforts 1925 introduction H.R. 12178, 68th 2d Sess.8 Thereafter, bill every exception Seventy-fifth, present Seventy-ninth Though underwent change intervening 21 years, similarities noteworthy. With amendment S. 1912 Sixty-ninth First Session, example, came specific Two exceptions, matters taxation, cast virtually identical 20 years later. And added most relieved liability Only few time proposed later dropped, counterpart Act.9 One related prisoners. Six 31 1946 either suing precluded death prisoner.10 That absent itself significant view consistent course development marked each succeeding earlier bills. We feel want prisoners' reflects deliberate choice, rather than inadvertent omission. Finally, Report House Committee Judiciary explicit reference laws relaxed, differing degrees, rule immunity.11 report noted 'legislation does detrimental undesirable effect.' Id., 3.12 York, settled persons prison.13 Congressional equanimity strengthens 11 Considering plain import statutory language, applications passage frequent mention prisonerclaims bills, reference, others, recovery believe clear waive claims.14 argues should imply thing, urges controls. another, maintains impact discipline so seriously impair administration prisons 'extreme' result. 13 held, soldier 'arise activity incident service.' U.S., 146, S.Ct., 159. principal articulated doing were: (1) absence analogous parallel liability, State; power mobilize militia, State held militiamen; (2) presence comprehensive compensation system service personnel; (3) dearth military; (4) distinctly relationship superiors Government, disturbed laws; (5) variations soldiers subjected, involuntarily, since choice go. Although find occasion Feres, military concerned, compelling here. 14 longer restricted bodies traditionally misconduct employees. extends novel unprecedented forms well. Indian Towing Co. 350 61, 76 122, 100 48; Rayonier, Inc., 352 315, 77 374, 354. event, form exists. allowed jailers negligently injuries15 several themselves.16 15 Second, system, persuasive necessity preclude negligence. Brown, 348 110, 75 141, 99 139, veteran treatment Veterans Administration Hospital aggravating service-incurred injury. received additional aggravation injury, even though active duty. nonetheless bring Also, effect comprehensive. provided incurred engaged industries. Neither covered.17 16 Third, never problem military, 140, might thought prisoners.18 17 Admittedly, remaining flowing establishment, relevance armed forces. may hamper uniform prisons, feared military. opportunities affected differences control, position shared personnel whose location determined order volition. uniformity however, concrete examples how system.19 told will judged too high standard many. seems matter conjecture reality. published decisions precautions necessary protect kitchen worker getting steel wool fingers,20 exploding emery wheel,21 falling off ladder,22 delicate administration. Even improper varying malpractice violent dislocation routine. Cf. Panella 216 622 (C.A.2d Cir.). Without definite risks harm diversity, conclude disrupted application Connecticut Indiana decide expresses concern nonuniform prejudice more. 18 last analysis, best explained 19 'peculiar special superiors, effects maintenance discipline, extreme results obtain orders acts committed duty *.' 112, 143. reluctant possible abuses stemming all chance denied. possible, suggests, frivolous brought, harass or, sinister, discover details security useful planning escape. subjected pretrial preparation, discovery, trial, prevails merits. inescapable concomitant liability. litigation damage vigorously argues. However, shown evidence possibilities become actualities many allowing jailers, smaller directly themselves. notes 16, supra. addition, taken steps handicap efficient operations. do intimate applicability complaints, issue presented review. simply note defenses. Most important, 'Any based exercising due care, execution statute regulation, regulation valid, exercise performance perform discretionary function agency discretion abused.' 2680(a). (Emphasis added.)23 23 intentional torts employees, U.S.C.A. 2680(h), especially tempted initiate retributive litigation.24 confident judges, jury required 2402, able dispose intelligently undue coming prisons.25 rules procedure inflexible need embarrass Attorneys' offices. 24 point remains. Jailers decided warden charge penitentiary, Carder Steiner, 225 Md. 271, 170 A.2d 220, sheriff county jail, Bush Babb, Ill.App.2d 285, 162 N.E.2d 594, immune exercises quasi-judicial requiring use discretion. Another master house correction care toward O'Hare Jones, 161 Mass. 391, 37 N.E. 371. there overtones suggesting denied fear otherwise undermined. Such persuasive. Just refused 'casuistries municipal torts' Towing, think limit 2680(a), political, judicial, quasi-judicial, ministerial functions. owed Bureau Prisons fixed 4042, independent inconsistent rule.26 impaired inflicted injuries, State's contrary.27 25 much-needed relief not, striving mitigate hardships immunity,28 narrow remedies Congress.29 As said supra, 320, 377, 'There justification read exemptions beyond If altered body adopted it.' 26 Affirmed. 27 WHITE took consideration case. §§ 1346(b), 2671—2680. initially reversed panel three 253, 285. rehearing upheld. 287. James 280 428 (C.A.8th Cir.), cert. denied, 364 845, 81 88, 69; Lack 262 167 Cir.); Jones 249 864 (C.A.7th Berman F.Supp. 107; Golub Civil 148—117, D.C.S.D.N.Y., Oct. 5, 1959; Collins T—1509, D.C.D.Kansas, Jan. 29, 1958; Trostle 1493, D.C.W.D.Mo., Feb. 20, Van Zuch 118 468; Shew 116 1; Sigmon 110 906; Ellison 1003, D.C.W.D.N.C., July 26, 1951. 2, c. 753, 60 Stat. 812. To ensure transfer courts, cognizable 131, 831, 190g. 13, 1935, 49 2132; 2182; March 7, 1936, 2233; 2234; 11, 1937, 50 986; Stat 993; 1011; 19, 1036; 1938, 52 1293; 1939, 53 1473; 1501; 21, 1941, 55 955; November 971; 10, 1942, 56 1101; 18, 1112; 6, 1180; December 1244; 22, 1944, 58 948; May 982; 1070; 25, 1264. already admiralty maritime involving vessels Suits Admiralty 41 525, 46 741—752, Public Vessels 43 1112, 781—790. hospitals. No waived claims. 139. Three schemes effect: covered Employees' Compensation Act; duty; destruction property belonging predecessors Military Personnel 1945. applicable statutes exclusive: Johansen 343 427, 72 849, 96 1051; Sasse 201 871 cf. Parr 172 462 (C.A.10th 152 (at service-connected personnel); Preferred Ins. 222 942 (C.A.9th 837, 74, 747. Exceptions SEC FTC Executive Order appear, subsumed excludes 'upon valid Other discussed text, governmental flood harbor river work, irrigation projects. activities constitute 'discretionary function(s),' 2680(a) still preserves Ure, 709 Coates 181 816, A.L.R.2d 840 McGillic 153 565. 17168, 71st 3d Sess.; 211, 72d 4567, 5065, 1833, 73d 1043, 74th accompanied 181, Sess., Session Title IV limitation N.Y.Laws 1929, 467, provided, part: 'The hereby waives officers consents apply action supreme court corporation, assumes acts, conferred hear misfeasance officer *' other referred, California, Arizona, Illinois, governments CalStat.1893, 45; Ariz.Laws 1912, 59; Ill.Laws 1917, p. 325. did construe grant continued immune, proprietary capacity. E.g., Denning State, 123 Cal. 316, P. 1000; Sharp, Ariz. 424, 189 631; Monahan C.C.R. (Ill. Ct. Claims). distinction apparent, refer particularity State. Paige 269 N.Y. 352, 199 617 (1936); White 260 App.Div. 413, N.Y.S.2d 526, aff'd, 285 728, 34 896 (1941). remedy limited extent, 'civil death' statute, Penal Law 510, At Illinois just amended 1945, 660 (now Ill.Rev.Stat.1961, 37, 439.8). Under amendment, Moore 282 occurred after prepared attention. true, points out, has, 1955, 69 A30; 1956, 70 A97. 131 190g, available must, argues, congressional approval barring Eighty-fourth determinative, Rainwater 356 590, 593, 78 946, 949, 996, acquiescence subsequent approval. 'We expect affirmative move indulges erroneous interpretation.' Liberty Glass Co., 332 524, 534, 68 229, 234, 92 142. collected 353; see Woody, Recovery Prisoners 36 Wash.L.Rev. 338, 353, n. 83. 12, supra; North Carolina, N.C.Gen.Stat., 1958, 143—291; Ivey Carolina Prison Dept., 252 N.C. 615, 114 S.E.2d 812; Wash.Laws 1961, 136, RCWA 4.92.090. predecessor 4126 prissoners working Industries, Inc. engaged. 1957 Rep. Atty. Gen. 409. hours. extended 'to dependents industry work connection confined.' 4126, amended, Sept. 681. broadened coverage fails reach roughly 10% physically work. And, nonwork personnel. alteration scheme reliable insight existing intent. suggestion Kansas guard ratio necessary, Alabama satisfied 30 thus wardens penitentiaries Leavenworth Atlanta shape conduct different standards. seem probable, carefully delineated boundary reasonable that, assign afford satisfy concepts care. 468. 906. 167, Morton U.S.App.D.C. 84, 228 431. Ibid. instances declined review internal administration, frequently habeas corpus, reviewed charges deprivation constitutional rights, Pierce La Vallee, 293 233 Sewell Pegelow, 291 196 (C.A.4th Cir.) (U.S. Health Service Hospital, Lexington, Ky.); Coffin Reichard, 143 443, 155 A.L.R. (C.A.6th Ky.). 4042 provides: Prisons, direction Attorney General, shall— '(1) management penal institutions; '(2) suitable quarters safekeeping, subsistence charged convicted offenses witnesses otherwise; '(3) protection, instruction, States.' suggests developed, enclaves. impractical, enclaves, forestalled 45 54, 457, 'In neglect national park subject exclusive exterior boundaries exist be; account rights parties governed be.' Stokes Adair, 265 662 361 80 56, 62. Holytz Milwaukee, Wis.2d 115 N.W.2d 618; Muskopf Corning Dist., Cal.2d Cal.Rptr. 89, 359 P.2d 457; Williams Detroit, Mich. 231, 111 Molitor Kaneland Community Unit Dist. 302, Ill.2d 163 86 469; Hargrove Cocoa Beach So.2d 130 (Fla.). 29 Pound, Act: Reason History? NACCA L.J. —- (1963).

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