Document: 495 U.S. 299 110 S.Ct. 1868 109 L.Ed.2d 264 PORT AUTHORITY TRANS-HUDSON CORPORATION, Petitionerv.Patrick FEENEY. No. 89-386. Argued Feb. 26, 1990. Decided April 30, 1990.* Syllabus Petitioner Port Authority Trans-Hudson Corp. (PATH) is an entity created by New York and Jersey to operate certain transportation facilities. Alleging that they incurred injuries during their employment with PATH, respondents filed separate complaints against PATH in the District Court recover damages pursuant Federal Employers' Liability Act. The court dismissed on ground enjoyed States' sovereign immunity thus Eleventh Amendment deprived of jurisdiction. Appeals reversed both cases, holding did not bar suits because, inter alia, any possessed had been waived under identical statutes States, which provided States "consent . [PATH]," "[t]he foregoing consent granted upon condition venue [such] suit shall be laid within a judicial district, established United States." Held: statutory provision, as elucidated establishes waiver might otherwise respondents' PATH. It appropriate here assume, arguendo, state agency entitled immunity. Petty v. Tennessee-Missouri Bridge Comm'n, 359 275, 279, 79 785, 788. In determining whether State has such immunity, this applies particularly strict standard: A will given effect "only where stated most express language or overwhelming implication [will] leave no room for other reasonable construction." Atascadero Hospital Scanlon, 473 234, 239-240, 105 3142, 3145-3146, 87 171. Moreover, does waive its consenting only own courts, but must specify intention subject itself federal court. Id., at 241, S.Ct., 3146. Here, provision suffices resolve ambiguity contained general expressly indicating extends PATH's argument cannot control construction rejected. directly indicates extent embodied because passed provisions portions same Acts; refers qualifies provision; issues are closely related State's constitutional interest encompasses merely it may sued, sued. broaden begs question what intended through latter provision. elucidates rather than broadens provision's meaning removing ambiguity: would hardly qualify consent" unless include suits. Furthermore, suggests "reasonable construction" alternative interpretation phrase "judicial States" sets forth Pp. 304-309. 873 F.2d 628 (CA2 1989) 633 1989), affirmed. O'CONNOR, J., delivered opinion unanimous respect Part I, II, REHNQUIST, C.J., WHITE, SCALIA, KENNEDY, JJ., joined. BRENNAN, concurring part judgment, MARSHALL, BLACKMUN, STEVENS, joined, post, p. 309. Joseph Lesser, City, petitioner. Richard W. Miller, respondent. Justice O'CONNOR Court. 1 These cases call determine bars 2 * 1921, entered bistate compact creating (Authority). 1921 N.J.Laws, chs. 151, 154; see N.J.Stat.Ann. § 32:1-1 et seq. (West 1963); N.Y.Unconsol.Laws 6401 (McKinney 1979). accord Constitution's Compact Clause, Art. 10, cl. 3, Congress consented compact. 42 Stat. 174 (1921). Through compact, achieve "a better co-ordination terminal, facilities commerce in, about port York," 1979), lodged "full power authority purchase, construct, lease and/or terminal facility [the port] district." 32:1-7 (1963); 6407 See generally Trust Co. N.Y. Jersey, 431 1, 4-5, 97 1505, 1508-1509, 52 92 (1977); E. Bard, (1942). (PATH), petitioner these consolidated wholly owned subsidiary operates interstate railway system "all privileges, immunities, tax exemptions authority" Authority. 32:1-35.61 6612 3 Respondents Patrick Feeney Charles Foster alleged Both Southern Act (FELA), 35 65, amended, 45 U.S.C. 51 (1982 ed.), Boiler Inspection Act, 36 913, 22 Safety Appliance 27 531, ed.). moved dismiss complaints, asserting Jersey's jurisdiction over Relying Police Benevolent Assn., Inc. 819 413 (CA3), cert. denied, 484 953, 108 344, 98 370 (1987), concluded complaints. App. Pet. Cert. A-27, A-46. Third Circuit reasoned continued exercise extensive operations, was F.2d, 413. also found 418, n. 2. 4 Second held Feeney's "the either extend [PATH] waived." 628, 628-629 (1989). enjoy principally treasuries largely insulated from liabilities. 631-632. reaching conclusion possessed, relied two governing subsidiaries (in 1950) 1951). 1951 ch. 204; 1950 N.Y.Laws, 301; 32:1-157 7101 first section suits, actions proceedings form nature law, equity Authority." Another part: 5 "The [of 32:1-157; 7101] suit, action proceeding county one said situated partially District. deemed resident each district purpose actions, proceedings." 32:1-162 7106 6 that, despite "somewhat anomalous" location indication demonstrated "an intent allow sued designated courts explicit waiver, albeit partial, [immunity]." 633. Court's dismissal Foster's complaint grounds. Two days before issued decisions, reaffirmed elaborated extended Leadbeater Corp., (1989), pending, 89-479. That acknowledged "[i]t certainly arguable statutes, read light create 'overwhelming implication' court," "[n]ot without some unease, we conclude fails constitute requisite showing states P.A.T.H.'s [E]leventh [A]mendment immunity." 49. To conflict, certiorari review decisions Circuit, 493 932, 320, 107 311 now affirm. II 7 states: Judicial construed law equity, commenced prosecuted Citizens another State, Subjects Foreign State." This drawn principles construe "establish 'an unconsenting immune brought her citizens well state.' " Pennhurst School Halderman, 465 89, 100, 104 900, 907, 67 (1984) (quoting Employees Missouri Dept. Public Health Welfare, 411 280, 93 1614, 1615, 251 (1973)); Pennsylvania Union Gas Co., 491 29, 2273, 2296, (1989) (SCALlA, dissenting part); Welch Texas Highways Transp., 483 468, 2941, 389 (1987) (plurality opinion). absolute. court, see, e.g., 3146, 171 (1985); Clark Barnard, 436, 447, 878, 882, L.Ed. 780 (1883), and, abrogate See, e.g. Dellmuth Muth, 223, 2397, 181 8 challenge claim Jersey. 804 (1959), guides our resolution issue. Petty, considered barred entertaining Jones 46 688 (1958 Commission. Similar Authority, Commission constructed operated Tennessee ratified Congress. "assume[d] arguendo since bi-state corporation joint common Missouri," U.S., 788, possessed. Because find have similar course case. 9 Well-established governs abrogation "abrogation upsets 'the fundamental balance between Government States,' supra, 227, 2400 Hospital, 238, 3145), unable remedy misapprehension abrogation, adopted standard evaluate claims abrogated 242, 3147 ("Congress constitutionally secured making unmistakably clear statute"). do assert underlie arguments unavailing. (opinion Powell, J.); id., 495, 2958 (SCALIA, judgment). solicitude underlies employs give 'only text construction.' 239240, 3145-3146 Edelman Jordan, 415 651, 673, 94 1347, 1360, 39 662 (1974) (internal quotation omitted)). Florida Rehabilitative Services Nursing Home 450 147, 150, 101 1032, 1034, 132 (1981) (per curiam ), "[t]hus, order statute court." 10 expansive terms. provides Authority," interpreted encompass But broadly framed reflect courts. Sensitive values underlying Amendment, required ambiguous provisions, standing alone, insufficient (general "provision specifically indicate willingness court"); Great Northern Life Ins. Read, 322 47, 54, 64 873, 876, 88 L.Ed.1121 (1944) ("When authorizes ., consonant dual astute embrace courts"). Other textual evidence sufficiently clearly establish scope more suit. circumstances, indicated 11 case, 1979) ] District." eliminates danger, identified mistake deny Courts, argues reference shape Although look believe Acts set nature, timing, Additionally, those concerning emphasizing "[a] sued." 99, 907. Petitioner's provision: persuasive called prudential canon construction. 12 Finally, construction," phrase, States," Brief 36-38; Tr. Oral Arg. 15-16. We agree below reasonably ineffectual attempt limit 633; Leadbeater, 49 (declining accept construction). Amici curiae supporting confess inability provide phrase. Council Governments al. Curiae 17. upholding petitioner's defense professed bafflement regarding import 49; 304. essentially presents choice giving natural all. Charged statute, difficult one. 13 judgments therefore 14 Affirmed. 15 whom STEVENS join, judgment. 16 While I consented, behalf Corporation write separately add necessary decision today. join opinion1 presupposes validity current characterization cloaking themselves. adhere my belief doctrine "rests flawed premises, misguided history, untenable vision needs purports protect." 248, 3150, (1985) (BRENNAN, dissenting); 497, 2958, dissenting). Nevertheless, view Amendment,2 similarly entities subjected 17 seek hold liable variety suffered.3 view, irrelevant reasons. First, secures being haled into out-of-state foreign plaintiffs state-law claims, based diversity. constitutionalize notion immunity; jurisdictional Neither nor therefore, reach. opinion, reach, bar, federal-question admiralty Welch, 504-516, 2962-2968 Papasan Allain, 478 265, 292-293, 106 2932, 2947-2948, 209 (1986) part, judgment Green Mansour, 474 64, 78-79, 423, 431-432, 371 Atascadero, 252-302, 3152-3177 23, 2286, (STEVENS, concurring). 18 Second, retain common-law surrendered insofar challenges concerned, 'in plan Convention' "4 when agreed union enumerated powers. 687, 1367, 318-322, 1634-1637, (1973) 14, 2281 opinion) Parden Terminal Railway Alabama Docks Dept., 377 184, 191-192, 84 1207, 1212-1213, 233 (1964)). ancient them, even allege violations statutes. Thus, affirm ground. 19 Even however, waive. "commenced (Port Authority) compact; "one By terms, then, appear inapplicable. very limited exceptions literal reading so applies: (1) intricately intertwined can best understood "arm State"; (2) though nominal party, real party interest. falls exception second if, like independently solely levied it.5 20 inherent agencies precludes developed "arm-of-the-State" tool protection not. private Amendment. Pugh, 438 781, 782, 3057, 3058, 57 1114 (1978) (reversing lower court's enjoin Board Corrections). Nonetheless, long counties cities integrally shielded Lincoln County Luning, 133 529, 530, 363, 33 766 (1890), noting "Eleventh limits courts] continued: "[W]hile territorially yet politically powers State. remote sense city, town, municipal Ibid. Moor Alameda, 693, 721, 1785, 1801, 596 (county); Graham Folsom, 200 255, 26 ,S.Ct. 245, 50 464 (1906) Workman 179 552, 565-566, 21 212, 217, 314 (1900) (city); cf. Chicot Sherwood, 148 533-534, 695, 697-698, 37 546 (1893) (rejecting legislature's insulate providing could courts). Mt. Healthy City Education Doyle, 429 274, 568, 572, 471 (1977), noted corporations" looked "nature law" local school boards Ohio appeared city arm boards' issue bonds levy taxes, categorization political subdivision, rendered them "[o]n city." rule derived shields tied direct means acts, instance agency. contrast, creates subdivisions imbues significant measure autonomy, ability bonds, land name, too "arms." exist whim behest ibid; 252, 246. 23 Interstate lack close link plenary destroy subdivisions, enjoys hegemony begin with, will. so, persuade several it. creation requires relinquish sister sovereignty. regulatory exercised longer inhering compacting State; shared. Likewise, complete dominion property, proprietary activities operated, For instance, practical advantages coordinated planning administration ceded partial regulation operation foreseeable future. change Authority's organization powers, legislatures pass bill effect. 24 addition, approval Congress; right "in Convention" accepted Clause. Clause provides: 25 "No shall, Consent Congress, enter Agreement ." Const., 3. Constitution prohibits entering "Treaty, Alliance, Confederation" governments. 1.6 Treaty ensure whatever sovereignty possesses sphere ends border.7 autonomous regulate Each circumscribed further veto relinquished Constitution. If "arms" conferred autonomy them—an withdraw will—then agency, none exercises untrammeled control, "arm" them.8 B 28 defendant, money judgment.9 Ford Motor Department Treasury Indiana, 323 459, 464, 65 347, 350, 89 (1945), treasury department individuals constituting board refund taxes "when essence recovery state, real, substantial invoke individual officials defendants." 30 years later 677, 1362, defendants were Illinois relief sought injunction ordering retroactive payments benefits treasury. observed evolved [in court] parties seeking impose liability paid public funds Amendment." 663, 1355. Kennecott Copper Tax 327 573, 66 745, 90 862 (1946) (tax refund); 1121 Smith Reeves, 178 919, 44 1140 Osborne Bank Wheat. 738, 204 (1824) interest).10 29 Conversely, obligations obligations. concluded: "We enforceable explicitly pledging credit borrowing name own. [permitting] appropriation moneys administrative expenses up $100,000 per year prior governor actual [by legislature] incurred. [provision's] 'salaries, office expenses' optional obligation narrow category evidences states' vast bulk operating capital expenses, including personal injury judgments. No commits satisfy 631 1989). 31 Therefore neither applied concept area. C 32 say restriction affirmative wishes, independent strictures Equal Protection ordinarily expected address matter specific legitimately infer Congress' terms patently grant Lake Country Estates, Tahoe Regional Planning Agency, 440 391, 401, 99 1171, 1177, 59 401 (1979). disputed there here. conferring Nor attempting Consequently, Court, following rested today absence waiver. Together Trans. Hudson Foster, (see Rule 12.2). T. asserted Employer's Alexander Hamilton's. He used passage reassuring concerned securities wished honor, diversity Article III annul should writ debt. "It sovereignty, amenable consent. sense, practice mankind; exemption, attributes every Union. Unless surrender Convention, remain States. [T]here color pretend governments would, adoption plan, divested privilege paying debts way, free constraint, flows good faith." Federalist 81, 567 (H. Dawson ed. 1876) (second emphasis added). twice addressed raise jurisdiction, rejected presented. 279-280, 788-789, (1959) (not finding waived); 401-402, 1177-1178, (1979) (finding least whose parent disclaimed it, failed disclose congressional protect binding State). Framers serious concerns problem, shown inclusion stricter Articles Confederation. Confederation, limitation "sovereignty, freedom independence" retained was: 'No treaty, confederation alliance united congress assembled, specifying accurately into, how continue.' Frankfurter & Landis, Constitution—A Study Adjustments, 34 Yale L.J. 685, 693-694 (1925) VI, Confederation). Clauses disfavor intermediate-level sovereigns settled. 694 ("The powerful national capabilities Confederacy, except conduct affairs, underlines significance clauses Confederation] insurance competing power. curb combinations almost haec verba Constitution"); V. Thursby, Cooperation, (1953) (suggesting reason endangered States); Virginia Tennessee, 503, 518, 728, 734, 537 (declaring compacts "those tend increase build influence contracting encroach impair supremacy interfere rightful management particular subjects placed control"); Barron Baltimore, 243, 672 (1833) (explaining agreements purposes "scarcely fail [C]onstitution"). (1979), inconsistent analysis. available 'one never 'slice power,' "no justification additional Amendment" immunize desire place special position. 400-401, 1176-1177. "TRPA fact perhaps forcefully California resorted litigation unsuccessful TRPA." 402, 1178. equitable officer defendant acted contrary Cory White, 457 85, 102 2325, 72 (1982) (interpleader action). However, prospective injunctive run II-A, supra. Therefore, interprets agency's relationship treasuries. Ex parte Young, 123, 441, 714 (1908); Quern 332, 1139, 358 decided arrangements sufficient purposes. simple indemnification clause, more, trigger doctrine. Lower uniformly cloak officers promising, indemnify awards imposed taken employment. Blaylock Schwinden, 1352, 1354, (CA9 1988) eleventh amendment payment properly pay 1983, if bring Duckworth Franzen, 645, 650-651 (CA7 1985) ("[T]he involuntary liability. chooses pick tab errant officers, torts voluntary. absurd all put employees beyond reach 1983 thereby make promise awarded suit"); Wilson Beebe, 770 578, 588 (CA6 ("State clothe [state officer] [Eleventh Amendment] voluntarily agreeing him").

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