Document: 487 U.S. 412 108 S.Ct. 2460 101 L.Ed.2d 370 Richard SCHWEIKER, et al., Petitioners,v.James CHILICKY, al. No. 86-1781. Argued March 1, 1988. Decided June 24, Syllabus In 1980, Congress enacted legislation requiring that most disability determinations under Title II of the Social Security Act be reviewed at least once every three years. Under "continuing review" (CDR) program, as originally implemented by Secretary Health and Human Services, benefits were usually terminated if state agency performing initial evaluation found a claimant had become ineligible, not available during administrative appeals. Finding frequently being improperly agencies CDR, only to reinstated federal law judge (ALJ) on appeal, reform in 1983 1984, which, inter alia, provided for continuation through completion ALJ review. Respondents, individuals whose 1981 1982, but later restored, filed suit Federal District Court. They alleged petitioners, one Arizona two officials who CDR policymakers, violated respondents' due process rights adopting illegal policies led terminations. Respondents sought money damages from their individual capacities, emotional distress loss necessities proximately caused petitioners' conduct. The court dismissed case, Court Appeals reversed remanded, noting claims predicated constitutional tort theory Bivens v. Six Unknown Fed. Narcotics Agents, 403 388, 91 1999, 29 619, concluding, it could determined matter respondents prove no facts warranting recovery. Held: improper denial benefits, allegedly resulting violations petitioners administration cannot give rise cause action against petitioners. Pp. 420-429. (a) A remedy torts will devised courts where "special factors counse[l] hesitation absence affirmative Congress." Bivens, supra, 396, S.Ct., 2005. Such factors" include existence statutory mechanisms giving meaningful remedies United States, even though those do provide "complete relief" claimant. Bush Lucas, 462 367, 103 2404, 76 648. Thus, must appropriate deference indications congressional inaction has been inadvertent, should create when design Government program suggests what considers adequate may occur course program's administration. 420-423. (b) Since elaborate remedial scheme does responsible unconstitutional conduct leads wrongful such is unavailable. present case indistinguishable Bush, supra. both, failed authorize other hardships, presumed have balanced governmental efficiency an acceptable manner. Moreover, attention problems (including very gave this case) frequent intense, shown enactment occasions. Congress' unwillingness compensation consequential clear here was Bush. limited its civil service context, since reasoning—that better position than decide whether creation new substantive legal liability would serve public interest applies much, or more, case. Respondents' attempt distinguish ground plaintiff there received violation itself, while merely which they entitled violation, analytically meaningful, harm can neither separated right. fact fully compensated injury lengthy delays providing depended life remedied charged with designing welfare programs, balancing need rights, discharged responsibility extent affects 424-429. 796 F.2d 1131 (CA 9 1986), reversed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., WHITE, SCALIA, KENNEDY, JJ., joined, all n. 3 STEVENS, joined. concurring part judgment, post, p. ---. BRENNAN, dissenting opinion, MARSHALL BLACKMUN, post Sol. Gen. Charles Fried, Washington, D.C., Laurence H. Tribe, Cambridge, Mass., respondents. Justice O'CONNOR 1 This requires us government administered officials. We conclude remedy, having included Congress, 2 * A. (Act), provides contributed who, because medically determinable physical mental impairment, are unable engage substantial gainful work. 42 U.S.C. §§ 423(a), (d) (1982 ed. Supp. IV). similar disabled indigents operated XVI Act, § 1381 seq. IV), provisions technically issue II, conjunction agencies, individual's persists. See 421(a), 423(a)(1) noted existing procedures reexamination eligibility "only number circumstances." H.R.Cong.Rep. 96-944, 60 (1980); see also S.Rep. 96-408, pp. 60-61 (1979), U.S.Code Cong. & Admin. News 1277, 1338, 1408. responded enacting Pub.L. 96-265, 311(a), 94 Stat. 460, amended, 421(i) Although statute did require effective before January Services initiated 1981. 311(b), note following 421; Brief Petitioners 10. 4 first modeled previous eligibility. these procedures, selected review bears burden demonstrating continuing disability. performs review, persons ineligible generally claimants. IV); Cf. Mathews Eldridge, 424 319, 335-339, 96 893, 903-905, 47 18 (1976). original after H.R.Conf.Rep. 98-1039, 33 (1984), 3038. 5 too often (ALJ), temporary emergency 1983. pending ALJ, longer disabled. 97-455, 2, 2498; 98-118, 97 803. Disability Benefits Reform 1984 (1984 Act), extended provision until 1988, significant changes CDR. 98-460, 7, 98 1794-1796, 1803-1804, 423(f), (g) final form, without single opposing vote either Chamber. 130 Cong.Rec. 26000, 26145-26146 (1984); id., 6621; 13247. 6 so emphatically widespread. One cosponsors conducted hearings summarized evidence General Accounting Office follows: 7 "[T]he message perceived State swamped cases, deny, and, I might add, cases faster faster. name efficiency, we scanned our computer terminals, rounded up workers country, pushed discharge button, let them go into free [f]all toward economic chaos." Id., 13218 (Sen. Cohen). 8 Other legislators reached conclusions. See, e.g., 13234 Moynihan) ("[T]he Administration tried reduce cost terminating hundreds thousands truly Americans"); 6583 (Rep. Rostenkowski) (alluding "massive beneficiaries lost over last years work"). conclusions based, anecdotal evidence, compellingly forceful statistics. itself apparently reported about 200,000 wrongfully terminated, then reinstated, between April 1984. 25979 Levin); 25989 Byrd); 6588 Conte). year half appealed decision, "an amazing two-thirds reinstated." 25986 Heinz); 13244 Glenn); 98-466, (1984). made aware terrible effects lives produced. chairman Senate's Special Committee Aging pointed out "[t]he human dimension crisis—the unnecessary suffering, anxiety, turmoil—has graphically exposed dozens newspaper articles across country." (1984) Heinz). Termination lead cut-off Medicare some people left medical care. 13321-13322 Durenberger); 6590 Hammerschmidt). There little doubt many hardships injuries never adequately compensated. 6588-6589 Regula). B 10 pursuant 1982. Spencer Harris Dora Adelerte process, restored status, awarded full retroactive benefits. Respondent James Chilicky pursue remedies. Instead, he application his stopped. His granted, year's benefits; restoration six months' still pending. 18, 13; 3. Because terminations occurred enacted, experienced months receiving entitled. All wholly dependent allege maintain themselves families minimally fashion declared ineligible. 7-8. hospital recovering open-heart surgery informed heart condition disabling. 7. 11 addition pursuing remedies, (along several withdrawn lawsuit States Arizona. Arizona1 policymaking roles program—had rights. thrust complaint, named official adopted termination agencies. Among allegations accelerated starting date program; illegally refused acquiesce decisions Ninth Circuit; apply uniform written standards implementing effect dispositive particular cases; used impermissible quota system required terminate predetermined numbers recipients. 1131, 1133-1134 (1986) (opinion below). injunctive declaratory relief, "emotional food, shelter [petitioners'] process." 1134, 2. 12 protected qualified immunity. Their conduct, concluded, violate " 'clearly established reasonable person known.' App. Pet. Cert. 16a (quoting Harlow Fitzgerald, 457 800, 818, 102 2727, 2738, 73 396 (1982)). discussed involving acceleration non-acquiescence Circuit decisions, immunity holding applied well. 13 appealed, pressing capacities. These claims, Appeals, "predicated Named 388 . [91 619] (1971)." F.2d, 1134. argued lacked subject jurisdiction set forth 405(g), judicial like one, exclusive means redress actions "arising under" relevant Act. rejected argument, existed "arose Due Process Clause Fifth Amendment rather statute. went affirm nonacquiescence decisions. As however, concluded "[i]t [respondents] resulted consequent damages." 1139.2 accordingly remanded further proceedings, including trial necessary. 14 petition certiorari presented question: "Whether implied social security benefits." granted petition, 484 814, 64, 28 (1987), now reverse. 15 Constitution given "all Cases, Law Equity, arising Constitution, Laws Treaties made, shall Authority." Const., Art. III, 1875, general cases. Judiciary 3, 470; 13B C. Wright, Miller, E. Cooper, Practice Procedure 3561 (2d 1984); American Institute, Study Division Jurisdiction Courts 162-163 (1969). currently "district laws, treaties States." 1331. 16 1971, held victim Fourth officers acting color authority bring court. 1999. specifically "the words enforcement award consequences violation." 2004. Nevertheless, finding "no special counselling Congress," explicit declaration" awarded, majority relied rule 'where invaded, right sue invasion, use any make good wrong done.' 396-397, 2004-2005 Bell Hood, 327 678, 684, 66 773, 777, 90 L.Ed. 939 (1946)). 17 So-called "Bivens actions" subsequently permitted 1331 Amendment, Davis Passman, 442 228, 99 2264, 846 Cruel Unusual Punishments Eighth Carlson Green, 446 14, 100 1468, 64 (1980). each prohibition relief sought, alternative remedy. U.S., 246-247, 2277-2278; 18-20, 1471-1472. Our more recent cautiously suggestions contexts. example, necessarily imply violation. Chappell Wallace, 296, 2362, 586 (1983), refused—unanimously—to enlisted military personnel injured superior itself: 19 "The nature life—the unhesitating decisive equally disciplined responses personnel—would undermined judicially created exposing personal hands command. 20 "Also, constitutionally authorized source justice, officers. Any response way plainly inconsistent field. 21 "Taken together, unique disciplinary structure Military Establishment activity field constitute 'special factors' dictate inappropriate Bivens-type officers." 304, 2367-2368 (emphasis added; citation omitted). 22 Stanley, 483 669, 681, 107 3054, 3062, 550 (1987) (disallowing "whenever arises 'incident service' "). 23 Similarly, refused—again unanimously—to First "aris[ing] employment relationship governed comprehensive procedural 368, 2406, 648 (1983). employee demoted, making statements critical worked. He seniority backpay, recover anguish, attorney's fees. 371, 372, nn. 8-9, 2407, 2408, 8-9; 390-391, 2417-2418 (MARSHALL, concurring). Concluding "provides employees unfairly comments agencies," 386, 2414 (footnote omitted), assumed acknowledged "existing complete plaintiff," 2417. 385, 28, 2414, (no whatsoever short suspensions adverse probationary employees). stressed involved policy questions area careful Congress. 380-388, 2412-2417. Noting Legislature far competent carry necessary "balancing [of] employees," "decide permit supervisor him exercising rights." 389, 390, 2417, 24 sum, concept Congress" proved inadvertent. When administration, additional 25 system, virtually American, "are size difficult comprehend." Richardson Perales, 402 399, 1420, 1426, 842 (1971). Millions Act's programs alone, handled unusually protective [multi]-step adjudication disputed claims." Heckler Day, 467 104, 106, 104 2249, 2251, 81 88 26 steps essentially identical claimants An determination claimant's agency, criteria. 421(a) CFR 404.1588-404.1599 (1987). Next, de novo reconsideration time. 404.907-404.922. If dissatisfied agency's ALJ; stage, again introduce raise issues. 421(d) ed., 404.929-404.965 dissatisfied, hearing Council Administration. 404.967-404.983. Once exhausted, seek claims. Ringer, 466 602, 615, 2013, 2021, 80 622 332, 901; Weinberger Salfi, 422 749, 762, 95 2457, 2465, 45 522 (1975). makes concede, lack standing invoke statute's provision. 32-33. 27 reasonably distinguished Lucas. Here, exactly relief": suffered receipt Compare 9, obviously offer prospect unredressed. safeguards situated were. Indeed, protecting is, anything, considerably considered acts, moreover, undoubtedly difficulties expense recruiting administrators established. Congressional competence [individuals]," questionable context context. Forrester White, 219, 223-224, 538, 542, 555 (1988). arisen has, intense. H.R.Rep. 98-618, 10, 17-18 instituted. Within began, ineligibility agency. Less passing law, results extensive investigations practices injuries, aimed reforming CDR; addressed problem provoked earlier legislation. At step, chose specific forms levels protection affected incorrect point choose extend kind lawsuit. Rec. 6585-6586 Perkins) (expressing regret bill eventually early CDR). deprivations nonetheless contend confined facts, arguing call relations." 40. parties "not share sort close, collaborative, juridical service," suggest availability less "inconvenience" service. 44, 46-48. sanguine, "a disruption [a] carefully crafted constantly monitored scheme." Reply 15. 30 competing predictions, bearing applicability decision rest Court's belief disruptive contexts allowed, (Bivens itself) prisons (Carlson (1980)). Rather, declined 'to .' convinced served creating it." 2417 (citation That reasoning itself. 31 distinguishable 20, ("Bush's reinstatement abuse, just something ."); (failure "would precisely same thing victims deprivation thus leave post-deprivation allege"). drew distinction "constitutional wrong" unconstitutionally taken away. Nor labels matter. appeared assume get "precisely deprivation." Ibid.; (civil agencies") footnote lends support notion violations. evident "to [the complaining party] prevail." 373, 2409. presence separately remedy" issue. 32 case: (Social instance job other). light schemes involved, effort separate sense. end, various arguments rooted insistent vigorous contention simply recompensed injuries. say, example: 34 "Respondents upon them. needed time withheld, purchase shelter, medicine, life's necessities. result relation dollar amount unjustly withheld For belated back lump sum quits, display gross insensitivity damage done lives, trivialize seriousness offense." 11. 35 agree suffering delay income "belated trauma respondents, others them, surely gone beyond anyone normal sensibilities wish imposed innocent citizens. care "trivialize" wrongs agencies' Whether believe best response, body inevitable compromises massive complex program. Dandridge Williams, 397 471, 487, 1153, 1162, 491 (1970). us, basis allow revise decision.3 36 unavailable dismissed. judgment contrary therefore 37 Reversed. judgment. 38 asserted arise Amendment. my reach brought directly deciding Solicitor correct submission expressly dismissal complaint. Schweiker Hogan, 569, 585, 2597, 2607, 227 (1982). explanation Part III-A BRENNAN's why 405(h) preclude Accordingly, join except 39 whom BLACKMUN join, dissenting. 40 certain disabilities, rely primarily exclusively 423 families. Like recipients, 1980's essential implementation federally mandated (CDR), ultimately reinstate regain respondent did, filing benefit variety administering allege, dispute, deprivations, lasted months, immediate financial hardship, necessities, fashion. 41 today reaffirms violating ante, 421. ' "[W]here done." Ibid. 619 (1971), turn quoting Acknowledging acts "must citizens," 428—429, moment always remotely approximates trauma. refuses recognize "design insurance] administration." Ante, 423. circumstances defer substitute Neither II's nor debate surrounding contains suggestion meant recognition viewed mentioned, alone debated, desirability wrongs. "normal sensibilities" traumatic unrecompensed, find inconceivable mere silence bar 43 escalating costs insurance 1980 directing order ensure continued qualify assistance. take then-new advanced 1981, critics characterized "meat ax approach" fraud. 6594 (remarks Rep. Alexander); 6595 Anthony). judging quotas, disregarding favorable selecting biased physicians, purposely using unpublished criteria rules standards, arbitrarily reversing failing impartially 44 Whatever merits allegations, question undisputed total disarray. recounts, followed inauguration approximately recipients appeal. 2464. Just reviews yet nearly regained 6598 96-466, Typically, appeals took anywhere sufficient coverage. Sen. Levin). 120,000 contested directed reopen another 100,000, Conte); "massive" class challenging Administration's (SSA's) 14; comply barred orders doing so, 13218-13219 Cohen); debilitating challenges prompted halt imposing temporary, nationwide moratorium. Chief among identified contributing chaotic affairs SSA's stringent improvement standard, adjudicative climate "rigorous," denounced "overzealous callous." 6596 Fowler). Critics strict erroneously deeming impairments "slight" evaluating recipients' actual ability work, eliminated rolls changed reevaluating new, 6-7, 10-11. harshness both standard produced reject it, widespread confusion near national uniformity 46 crisis establishing, time, governing Designed end practice based nothing reassessment old criteria, permits demonstrates four conditions met.1 establishing SSA others,2 reforms protect future erroneous operate fairer humane protections allowing elect continue receive payments, recoupment circumstances, appeal penultimate stage 424.3 that, although form damages, exercise regards effective, [even] divines prior inadvertent." Describing numerous spawned "frequent intense," 425, concludes "suggests setting analysis relies, reveal, comparison, inadequacy "remedial mechanism" inadvertent failure inflicted proceedings. 48 seeking "plenary military, statutes regulating life, internal justice regulate life. complaints grievances equal claim] respondents." 302, 2367. aggrieved authorizes recovery notably promotions. 303, "elaborate, scheme" relations, 2415, supplemental inappropriate. scheme—which "constructed step-by-step, conflicting considerations," years—"[c]onstitutional cognizable" prevailing promotions, seniority, pay raises, accumulated leave. 2416. "intended [to] put 'in unjustified place.' 2416 1062, 89th Cong., 2d Sess., (1966), 1966, 2097). 49 It true relations affords injuries; nevertheless, process. dignitary harms suffer injury, they, counterparts, including, significantly, careers. stark contrast, tiers 424, prevail proceedings whatsoever. afforded deprived payment along. award, course, fails miserably compensate stripped subsistence depends.4 50 product program." 429. dealt systems anticipated afford Government's institutional concerns allow. "balanc[ed] paying "careful "established taking account patterns define structure." Chappell, 51 legislative history abundantly clear, achieve delicate balance hand, other. Rather fine-tuning ha[d] constructed step-by-step" century, confronted paralyzing breakdown vital rescue near-total anarchy. littered references "arbitrary," "capricious," "wrongful" else paralysis. blamed systemic faced control accelerating mandating restrictive reviews. Legislators explained "[b]ecause abrupt reviews,. [s]tate offices forced accept three-fold increase workloads," 13241 Bingaman); despite acceleration, "assur[e] resources handle greatly increased 13229 Cranston), instead "pressure [those] inaccurate unfair decisions." 13221 52 Legislating near-crisis atmosphere, saw wrestling Executive Branch repudiated restrictive, illiberal, hasty reviews, prospective measures designed prevent reckless reviews," sustenance 53 debate, Member much hint notice requirements, interim govern redressed past sacrificed interest. identifies compromise, "inevitable" otherwise, lawmakers legislator suggested shielded exposure scheme. 54 intimates consciously 426, bemoaning inadequate December 31, redetermination standards. 6586 Perkins). other, possibility redressing flowing act discussed, factored faced. 55 injustices factor hesitation" Inaction, repeatedly stated, notoriously poor indication intent, see, Bob Jones University 461 574, 600, 2017, 2032, 157 (1983); Zuber Allen, 168, 185-186, 21, 314, 323-325, 345 (1969), legislating face calling prompt sweeping corrective measures. undertook resuscitate ceased functioning: prescribed dislocations conscious choice unremedied. think altogether untenable conclude, inaction, intended cognizance displace 56 reveal flaw employs today. legislate areas enjoys expertise clearly lacks. affairs, contemplated Legislative plenary control." 301, 2366. reaffirmed: 57 '[I]t conceive competence. complex, subtle, professional composition, training, equipping, force judgments, civilian Branches.' 2366 Gilligan Morgan, 413 93 2440, 2446, 407 (1973)) original). 58 governor employer. observed devoted century studying peculiar subject, "developed considerable familiarity employees." addition, "has informing morale Branch," capable apprising matters "through factfinding courts." declining therefore, reasoned upset structuring "Congress evaluate impact species litigation service." Ignoring characteristics observes "[c]ongressional 'balancing [individuals]' context." 425 2417). observation, avails nothing, addressing courts. quarrel assertion decline believed elsewhere, 'convinced [such action.]' 427 conviction, flowed developed matters, well 59 suggestion, factor" "counsel[s] 2205, mistaken. recognized Amendment's she discriminated her sex, pass own Members, 2000e-16(a) (excluding coverage 717 VII). Likewise, (1980), prison officials, notwithstanding (and competently) Tort Claims inquire arose greater courts, fear tread action. here. respect it. But unlike setting, deference, expertise, hardly largely incompetent act. concededly large, involve relationships officers, employers. penal Carlson, issues surface governs—the lies adjudication. determining dictates are. short, types refrain III 61 scope precluding action, remaining 62 explicitly precluded Section provides: 63 findings binding hearing. No person, tribunal, herein provided. Secretary, officer thereof section 1346 title claim [Title II]." Secretary's 405(g). argue second sentence precludes latter subsection 65 recently explaining purpose 'the sentences 405(h),' 757 [95 2462, 522] (1975), 'assure exhaustion required.' Bowen Michigan Academy Family Physicians, 476 667, 679, 8, 106 2133, 2140, 623 (1986). requirement, "there hearing, exhaust." Academy, contest parties, preceded challenge attack regulation cognizable limitations requirement impose inapplicable 617, 2022-2023, (where "have 405(g) aspects [,] avenue [their] ") added). says whatever establishes period defines Had exclusive, recognizing hearing—do express preclusion unspecified, actions. another, independent isolation, broad preclusion, bars resort federal-question jurisdiction—the jurisdictional actions—for II. sentence, appear discrete category claims: party. Read serves adjunct channeling thereby forestalling attempts circumvent guise challenges. 615-616, 2021-2022 (§ refusal reimbursement procedures); 760-761 2464-2465 leveled rendered benefits). determination, attempted bypass process: rather, exhausted provides, "by terms prevents grant contained 1331," 679-680, assert, seek. 67 Finally, sheer militating "probably largest western world," Campbell, 458, 461, 1952, 1954, (1983)(internal quotations citations processing million year. 2250, argue, intolerably Thousands suits potentially brought, diverting energy goals discouraging deterring brave enough "legitimate efforts" work 47. 68 Petitioners' dire predictions overblown respects. To begin with, payments legislation, dramatically reduced termination. incorporated champion wrongs, forestall deprivations. deliberate abuse power negligence, Daniels 474 327, 662, 662 (1986), overcome defense immunity.5 requirements "legitimate" actions; known dissuade well-intentioned servants accepting carrying legitimate duties imposes. 69 fundamentally flawed. Both vast undertakings, come contact entities consider misuse great Yet legitimately counsel actually authority. 410, 2012 (Harlan, judgment) ("I 'frivolous' warrants closing courthouse doors Bivens' situation. ways, coping frivolous lawsuits"). "acting posses[s] capacity [a private] own." 392, 2002. wielded especially large citizens, militates favor argument perverts entire underlying modern society live, depend sustenance, stands guarantee arbitrary 335, 903, (1976), restraints, likewise excuse contravention Clause's commands. IV 70 After throughout working turned disabling prevented themselves. true, bounds grievous actions—harm them—is indisputable. declares breakdown. am intend here, dissent. Petitioner William R. Sims director Determination Service, participates supervision Services. purposes only, "was agent Secretary." 1135, (CA9 1986) assume, arguendo, akin employees, Sims. disposition question. described "1. Knowing "2. Intentional disregard evidence. "3. Purposeful selection physicians staff "4. Imposition quotas. "5. Failure "6. Arbitrary reversal "7. Denial type impairment. "8. Unreasonable 1138. contends 397, rests sections Relying 614-616, 620-626, 2021-2022, 2024-2028, 756-762, 2462-2465, previously third Without question, General's position. 2140-2141. exact sentence's restriction doubt; hold grounds effect. (1) recipient's impairment improved able activity; (2) reveals medically, benefitted vocational therapy (3) diagnostic techniques evaluations demonstrate (4) record, erroneous. 423(f) certification remand opportunity newly standard. 2(d), 1797-1798, administratively moratorium place; consideration combined multiple sufficiently severe establish called study subjective pain evaluations. 4, 5, 421, 423(d)(2)(C), concerning high rate 2498, 423(g)(1982 authorization affirmed Council, unless determines undue hardship. 423(g) 1987, 1989. 9009 Omnibus Reconciliation 100-203, 423(g)(1)(C) replete cars homes, died Regula); Glickman). Two already fallen defense. 419.

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