Document: 520 U.S. 781117 S.Ct. 1734138 L.Ed.2d 1 Walter McMILLIAN, Petitioner,v.MONROE COUNTY, ALABAMA. No. 96-542. Supreme Court of the United States Argued March 18, 1997. Decided June 2, Syllabus * After spending six years on Alabama's death row, petitioner's capital murder conviction was reversed ground that State had suppressed exculpatory evidence. He then sued respondent Monroe County and others under 42 U.S.C. §1983 for allegedly unconstitutional actions of, inter alios, Sheriff Tom Tate in suppressing A county is liable those its sheriff constitute "policy.'' Monell v. New York City Dept. Social Servs., 436 658, 694, 98 2018, 2037-2038, 56 611. The District dismissed claims, holding Tate's unlawful acts did not represent County's policy, because an Alabama has no authority to make law enforcement policy. Appeals affirmed, agreeing a acting his capacity policymaker county. Held: sheriffs, when executing their duties, Alabama, counties. Pp. ____-____. (a) In determining local government's liability, court's task identify who speak with final policymaking governmental actor concerning action alleged have caused violation at issue. Jett Dallas Independent School Dist., 491 701, 737, 109 2702, 2723-2724, 105 598. parties agree area enforcement, but they disagree about whether sheriffs are policymakers or capacity. deciding this dispute, question act as state officials all official actions, whom particular Ibid. This inquiry dependent definition official's functions relevant law. Cf. Regents University California Doe, 519 ----, 117 900, 904, 137 55. (b) defers considerably Appeals' expertise interpreting law, see Jett, supra, 738, S.Ct., 2724, concludes State's constitutional provisions historical development provisions, interpretation given them by strongly support contention portions Code, although less compelling, also conclusion. Code cutting favor conclusion insufficient tip balance favor. (c) rejects arguments result here will create lack uniformity Alabama-by allowing 67 different policies counties-and throughout country-by permitting be classified some others. common itself envisioned possibility "policies'' might vary locally, adopted varying practices arresting criminals securing And Nation's federal nature allows wide set up governments wish. Petitioner's amici's concern manipulate officials' titles blatant effort shield from liability foreclosed St. Louis Praprotnik, 485 112, 127, 108 915, 926, 99 107 (per curiam). 88 F.3d 1573 (C.A.11 1996), affirmed. REHNQUIST, C. J., delivered opinion Court, which O'CONNOR, SCALIA, KENNEDY, THOMAS, JJ., joined. GINSBURG, filed dissenting opinion, STEVENS, SOUTER, BREYER, Bryan A. Stevenson, City, petitioner. Paul M. Smith, respondent. Chief Justice REHNQUIST Court. Petitioner County, taken Tate. If sheriff's "policy,'' them. 611 (1978). "policymaker'' purposes, he Alabama. We hold that, issue here, represents therefore policymaker. thus affirm dismissal claims against County. 2 November 1986, Ronda Morrison murdered sparsely populated located southwest one Ralph Myers were indicted crime. pleaded guilty lesser offense testified petitioner trial. jury convicted murder, trial court sentenced him death. two remands, Criminal conviction, violated Brady Maryland, 373 83, 83 1194, 10 215 (1963), statements contradicted testimony other McMillian State, 616 So.2d 933, 942-948 (1993). Thus, after prison, released. 3 brought lawsuit Middle numerous officials, including three men charge investigating murder-Tom Tate, County; Larry Ikner, investigator Attorney's office Simon Benson, Bureau Investigation. Only capacities-Sheriff Ikner-and it only these official-capacity suits us here.1 principally capacities officers intimidated into making false App. Pet. Cert. 26a-33a; Johnson, 878 F.Supp. 1473, 1486-1488 (M.D.Ala.1995). 4 Ikner capacities. held "any Defendants cannot said [Monroe] policy,'' "an [no] policy enforcement.'' 55a. appealed Court's decision Eleventh Circuit "Sheriff authority.'' 1573, 1583 (1996). granted certiorari, 554, 136 (1996), now affirm. II 5 Monell, U.S., government cause torts. These may lawmakers, "or whose edicts fairly policy.'' "identify bodies statutory issue.'' 598 (1989). Here, "final authority'' enforcement. They sharply disagree, however, capacity.2 6 our guided principles. First, categorical, "all nothing'' manner. Our cases instruct ask area, See 2724 (court must "those power issue'' (emphasis added)); id., (question school district superintendent "possessed employee transfers'' 123, 924, (1988) (plurality opinion) (" [T]he challenged been pursuant responsible city's business'' added)). we seeking characterization true every type engage in. simply 7 Second, analysis 2723 (""[W]hether law''' (quoting, original emphasis, 924 opinion))); Pembaur Cincinnati, 475 469, 483, 106 1292, 1300, 89 452 (1986) (same). say can answer by, example, labeling clearly makes But understanding actual function official, necessarily n. 5, 55 (1997) [The] answered considering define agency's character''). B 8 determined Since jurisdiction includes defer law.3 ("We think [for Fifth Circuit], Texas greater than own, better position determine [the superintendent] possessed transfers''); Pembaur, 484, 13, 1301, 13 generally accord great deference application courts appeals''). 9 begin Constitution, "the supreme state.'' Alexander ex rel. Carver, 274 Ala. 441, 150 204, 208 (1963). least purposes. 1901, states " [t]he executive department shall consist governor, lieutenant attorney-general, auditor, secretary state, treasurer, education, commissioner agriculture industries, each county.'' Const. Art. V, §112. designation especially important Constitution included provided election voters, 1819, IV, §24; 1861, 1865, VII, §3; 1867, §21; 1875, §26; §138, always explicitly listed members "executive department.'' 1867 "governor, attorney general'' constituting §1. changed 1875 Superintendent Education added list. §1.4 framers 1901 took significant steps attempt solidify place department, clarify exercising functions. faced reports mobs abduct prisoners lynch them, made such "neglect'' impeachable offense. §138 ("Whenever any prisoner jail, custody deputy, put death, suffers grievous bodily harm, owing neglect, connivance, cowardice, grave fault sheriff, impeached''); Garber Cazalas, 162 210, 50 So. 296 (1909) (sheriff's failure close jail doors, resulting lynching prisoner, constitutes offense); McMillan, Constitutional Development 1789-1901, p. 338, 186 (1955) (impeachment provision resulted "much progress lynching''). 11 impeach moved punish neglect duty.'' Parker Amerson, 442, 443 (Ala.1987). One primary purposes change, proposed ex-Governor Thomas Goode Jones Convention, "to augment Governor.'' Id., 444. governor could order rather court, impeachment proceedings wayward would worry annul centralized control. ibid.; Strengthening Power Executive, Address Emmet O'Neal, Governor 9-10 (Sept. 12, 1911) (new increases Governor's control "gives Executive real respected feared''). share same procedures legal lower judges, §174, municipal officers, §3. 12 Critically case, interpreted background evidence framers' intent ensure considered Parker, So.2d, Based primarily unequivocally tort based 443-445.5 counties theory respondeat superior tortious. 442. issues strikingly similar ones present strong Appeals's behalf county, Turning still extent. Section 36-22-3 sets out duties. "attend upon'' "obey lawful orders directions'' courts, "execute return process orders'' even outside Ala.Code §§36-22-3(1), (2) (1991). judges (who Amdt. 328, §6.01) take certain if judge sits distant §12-17-24 (1995), presiding circuit "exercise[s] general supervision'' over circuit,6 just normal "court [i.e., state] employees'' (see §12-17-1). 14 give treasurer sworn written statement detailing funds received since last statement, pay treasurer. §36-22-3(3). contrast does appear direct specific actions. 15 Third most importantly, [i]t duty respective counties, themselves deputies, ferret crime, apprehend arrest and, insofar within power, secure crimes report so secured assistant §36-22-3(4). By mandate, complete enforce criminal contrast, "powers duties'' themselves-creatures powers Alexander, 206-do include §11-3-11 "governing body'' counties-which commission, Calvert Cullman Comm'n, 669 119 (Ala.1995) (citing §11-1-5)-cannot how criminal, evidence, obligation information (a Hooks Hitt, 539 157, 159 (Ala.1988)). 16 While commission fulfills duty, do kind Pursuant §36-22-5, investigate counties.'' "proceed[ing] promptly'' investigation, "promptly'' write stating findings, listing witnesses secured, summarizing what prove. addition, salaries legislature, commissions. §36-22-16. 17 To this, counters four cut officials. salary paid "out treasury.'' provides equipment (including cruisers), supplies, lodging, reimbursement expenses, extent "reasonably needed proper efficient conduct affairs office.'' §36-22-18. Third, limited borders See, e.g., §36-22-3(4) ("It . crime'' Fourth, elected locally voters (as 1819 Constitution). §138; §24. 18 find sufficient county's payment translate him, neither change nor discretion refuse completely. commissions deny operations beyond necessary.'' Etowah Comm'n Hayes, 569 397, 399 (Ala.1990) most, allow exert attenuated indirect influence operations. 19 "state policymakers'' typically entire (without limits jurisdiction) statewide (not local) basis, surely force. attorneys often (and considered) though too jurisdictions locally. characteristics consistent placed element residents receives services.7 20 sum, there supports argument, weight side reached Appeals: 125, 925 not, course, predicting perfect clarity''); 126-127, 926 possible draw elegant line resolve conundrum''). C 21 argues country. anomalous person policies'' points Federal Courts found implies affirmance either call decisions unacceptable patchwork rulings sheriffs. reject both arguments: first ignores history second nature. 22 English (or "shire-reeves'') King's "reeves'' (officers agents) "shires'' (counties), Norman Conquest 1066. Wigan & D. Meston, Mather Execution Law 1-2 (1935). Although chosen shire's inhabitants, king's business county,'' W. Blackstone, Commentaries Laws England 328 (1765), keeper peace,'' 332. officer Crown along outstanding characteristic office''). 23 As basic forms transplanted country, became voters,8 reality ultimately represented fulfilling keep peace. Wager, Introduction, Government Across Nation (P. Wager ed. 1950) ("The unbroken lineage Anglo-Saxon shire-reeve''); Anderson, Treatise Sheriffs, Coroners Constables (1941) ("In exercise administrative functions, conserving public peace, vindicating preserving rights government, (the sheriff) sovereignty county''); R. Cooley, Handbook Municipal Corporations 512 (1914) ("Sheriffs, coroners, clerks so-called properly Their duties pertain chiefly J. Bouvier, Bouvier's Dictionary 3058 (8th ed.1914) (defining [a] representing county''). 24 sketch indicates evidence.9 disagreement concept "county sheriffs'' actually ancient meant sheriff. 25 characterized differently States. while easier decide arising insisted uniform, national blunderbuss approach ignore crucial axiom government: Understandably, then, importance varied historically region region, State. 5-8 (describing systems rural developed Massachusetts, York, Pennsylvania, Virginia colonies, later having widely roles regions); Martin, American Government, Governments Era Change 3-5 Berman ed.1993) (same); DeSantis Renner, Governing 16-25 levels currently exercised States, explaining regional influences States); Sokolow, Legislatures Legislating 37 (listing 37th among amount discretionary counties). entirely natural role inconsistency created declare another.10 26 amici liability. efforts already Praprotnik. [E]gregious attempts insulate precluded'' plaintiffs prove "a widespread practice'' established ""custom usage' force law''). certainly manipulation here; indeed, predate time. 27 judgment 28 Affirmed. 29 BREYER join, dissenting. 30 McMillian, spent nearly Death Row. 1993, concealed McMillian's innocence. overturned conviction. thereafter charges released prison. 31 Seeking redress incarceration rights, commenced instant §1983. named defendants Sheriff, withheld generated false, inculpatory subjected gross racial insults relentless intimidation. 32 uncontested, matters precedent instructs accountable, §1983, policy; if, hand, answerable 33 elected, paid, equipped countywide, statewide, authority. Unlike work judicial hierarchy, prosecutors belong prosecutorial corps superintended Attorney General, part command serve "State General.'' nonetheless, holds discrete uncoordinated with, "may [Alabama] 2037-2038. I disagree. 34 my view, defining setting implementing policy.1 why otherwise deems State's, county's, policymaker, leans heavily Constitution. relies Constitution's county'' member Const., §112; ante, __-__. amendments relating measures strongest classification actors. sturdy enough, justify 35 consistently designate department'' officers; instead, several instances refers re Opinions Justices, 225 359, 143 345 (1932) (sheriffs 1912 amendment regarding officers' salaries); §36-3-4(a) (1991) (sheriff, officer,'' four-year term); §36-22-16(a) compensated treasury manner "other employees''). Moreover, designations attaches laws dispositive assessment status Univ. Cal. (1997); Howlett Rose, 496 356, 376, 110 2430, 2442-2443, 332 (1990) (defenses questions law); Martinez California, 444 277, 284, 8, 100 553, 558, 62 481 (1980) (state granting immunity parole §1983). sufficed issue, "States free nullify own people legislative Congress People.'' Howlett, 383, 2447. 36 Nor indicators explains, intended provide check view glaring lapses acquiescing abductions lynchings late 1800's. __. However, eligible impeachment, itself, unit belongs. §175 subject impeachment); §36-11-1(a) transferring sensibly seen acknowledgment wielded consequent need placement removal bailiwick. Furthermore, reserved exclusively officials; "five resident taxpayers'' initiate impeachment. §36-11-6 Impeachment, ultimate flagrant behavior, tight rein. prime controllers service residents, select quadrennial elections. owes chief unseat him. amended ("A qualified electors thereof ''). On ballot, candidates grouped offices, candidates. §17-8-5 (1995). 38 Traditionally, autonomy formulate execute geographic confines Under crimes.'' added); §15-6-1 (1995) principal conservator peace suppress riots, assemblies affrays. execution summon aid many thinks proper.'') §15-10-1 arrests "within counties''). 39 pays salary, employees paid''), operates provided, furnished, fully equip substantial, requiring "furnish necessary quarters, books, stationery, equipment, postage conveniences automobiles repairs, maintenance expenses incidental thereto.'' obligations practical importance, mean purse strings pulled level; obliged office,'' ibid. added). How generously likely officer's day remote prospect Geneva Cty. Tice, 578 1070, 1075 (Ala.1991) (county reasonably limit budget overtime deputies); increased "by act''); §36-22-3(3) (sheriff render periodic moneys collected county). 40 short, vital respects official. Indeed, hard-pressed single more completely 746 F.2d 337, 340-341 (C.A.6 1984) officer, "obvious[ly]'' official), rev'd grounds, (1986).2 41 observes "most importan[t]'' "are means suggest should enforcing opposed municipal) proves far much. Because application, relying enforces yields allstate categorization despite recognition blanket inappropriate. Sheriffs Arkansas, Texas, Washington, like __, 10. emphasizing Commission accomplish mission, indirectly endorses Circuit's reasoning: possess authority, activities 1578 1996). There irony approach: lacks becomes official; possesses directs activities, presumably realm (plurality). 43 never reasoned vested body exercises formally delegates another. Few fit rigid model. 124-125, extremely latitude form takes -[O]ne expect rich variety ways distributed host bodies.''). constricted authority; there, spoke "lawmakers 2037-2038 virtue delegation governing but, rather, elected.'' Turner Upton Cty., 915 133, (C.A.5 1990); Blackburn Snow, 771 556, 571 (C.A.1 1985); accord, Vera Tue, 73 604, 609 1996) [in Texas], equal commissioners [so] constituted much commissioners.''). An independently respect, arrangement resembles "unique structure government'' Texas. Turner, F.2d, 136-137, cited 44 suggests __-__ §36-22-5 (1991)). It worth noting group citizens likewise trigger investigation §36-22-6(b). respondent, inform investigations regularity. More important, suggestion proceeding direction pursued led Row confinement. instruction Governor, very case. bare sometime lessen run undertakes. 45 reliance sheriff,'' persuasive emphasis implies, again, all-state Nation; expressly disclaims "blunderbuss'' approach, ibid., lesson convey. England, true, perform *339. Blackstone described closer crown contemporary counterpart central government. time [t]his election,'' according "was probability absolutely [inhabitants counties], required royal approbation.'' *340. Eventually, king chose list officers. *340-*341. 46 Whatever teach, [t]hroughout history, remained G. Felkenes, System: Its Functions Personnel 53 (1973); 52-53 (referring specifically sheriffs). [i]n reserve police elective officer.'' 53. root officer. 47 *** 48 equipped, autonomously implements operative ordinarily seems be: Nothing warrants scant sense treat sheriffs' presence absence adopted. 49 Alabama-specific assures today's immediate reach. hiring jailor, Williams, 862 1471, 1477-1481 1989). And, acknowledges, __-__, decisions, decades old, ranking policymakers. historic reasons department,'' discourage endeavors municipalities change-the-label devices. misguided, little alter jurisdictions. syllabus prepared Reporter Decisions convenience reader. Detroit Timber Lumber Co., 200 321, 282, 287, L.Ed. 499. individual proceeded surviving motions summary judgment. 1544-1545 explained suit "in capacity'' ""against [the] entity agent,''' Kentucky Graham, 473 159, 165, 3099, 3105, 87 114 (1985) (quoting 690, 55, 2035-2036, (1978)), victory "official-capacity'' "imposes officer] represents,'' Brandon Holt, 469 464, 471, 873, 878, (1985). note panel Swint Wadley, 1435, 1450-1451 (1993), vacated appellate jurisdiction, 514 35, 115 1203, 131 60 oath office, XVII, §279; XV, §1, submit demand. Submitting originally §9, offense, §121. sovereign provision, I, §14 defendant equity''), immune damages acts. 446 King Colbert 620 623, 626 (Ala.1993); Boshell Walker 843, 844 (Ala.1992); Hereford Jefferson 586 209, 210 (Ala.1991). Seventeen forty circuits contain sits. §12-11-2 believe merit. vacant incapacitated, coroner fills §11-5-5 temporary assignment lasts until appoints replacement serves remainder term. §36-9-17 assuming responsibility, fall available step cites where designated officials'' employees.'' §§36-3-4, 36-15-1, 36-22-16. light (i) 443, (ii) contrary prior ignored followed, 445 (citing, cases, (1932)), implication entitled weight. Finally, Commission's insurance policy-which, cover some, all, against'' suit, 77a-to establish rendered shows, uncertainty consider circumstances, Murfree, Other Ministerial Officers (1890) two). F.3d, 1579 [W]e anomaly Such situation precinct commanders unreviewable arrestees processed. Each commander processing commander's her city §1983''). Compare, Strickler Waters, 989 1375, 1390 (C.A.4 1993) (Virginia "city sheriff'' conditions); Thompson Duke, 882 1180, 1187 (C.A.7 1989) (Illinois training employees, board area), Dotson Chester, 937 920, 926-928 1991) (Maryland conditions, exhaustive survey Maryland law; citing contrary); Davis Mason 927 1480 (C.A.9 (Washington deputy "chief county''; (internal quotation marks omitted)); 136-137 1990) (Texas Texas''; Crowder Sinyard, 884 804, 828 (Arkansas enforcement; contrary). "defer considerably'' construction cf. Salve Regina College Russell, 499 225, 231, 111 1217, 1220-1221, 113 190 (courts appeals review de novo courts' state-law determinations). Deference, supplant careful review, 129-130, 131-132, 927-928, 928, (plurality) (reversing determination policymakers), event, reasoning differs substantially Circuit. majority addressed similarly concluded engaged 10; (Alabama jailor); Lucas O'Loughlin, 831 232, 234-235 1987) (Florida firing Weber Dell, 804 796, 802-803 (C.A.2 1986) (New strip search policy); Marchese Lucas, 758 181, 188-189 1985) (Michigan deputies ratifying deputies' use force); (Massachusetts policy). Soderbeck Burnett, 821 446, 451-452 (Wisconsin employees).

Category: 1