Document: 510 U.S. 471 FEDERAL DEPOSIT INSURANCE CORPORATIONv.MEYER No. 92-741. Supreme Court of United States. Argued October 4, 1993. Decided February 23, 1994. After the Federal Savings and Loan Insurance Corporation (FSLIC), as receiver for a failing thrift institution, terminated respondent Meyer from his job senior officer that he filed this suit in District Court, claiming summary discharge deprived him property right without due process law violation Fifth Amendment. In making claim, relied on Bivens v. Six Unknown Fed. Narcotics Agents, 403 U. S. 388, 397, which implied cause action damages against federal agents who allegedly violated Fourth The jury returned verdict FSLIC, whose statutory successor, petitioner Deposit (FDIC), appealed. Appeals affirmed, holding that, although Tort Claims Act (FTCA) provides exclusive remedy States all "claims are cognizable under [28 C. § ]1346(b)," Meyer's claim was not so cognizable; "sue-and-be-sued" clause contained FSLIC's organic statute constituted waiver sovereign immunity entitled to maintain an FSLIC; had been when summarily discharged notice hearing. Held: 1. has waived. Pp. 475-483. (a) constitutional tort is "cognizable" 1346(b) because section does provide such claim. A actionable if it alleges, inter alia, would be liable "a private person" "in accordance with place where act or omission occurred." could contain allegation reference "law place" means State, see, e. g., Miree DeKalb County, 433 25, 29, n. and, by definition, law, state source liability alleging deprivation right. Thus, FTCA constitute remedy, properly brought FSLIC. There simply no basis language interpretation suggested FDIC, deem claims "sounding tort"—including torts—"cognizable" 1346(b). 475-479. (b) sue-and-be-sued waives clause's terms simple broad: FSLIC "shall have power . [t]o sue sued, complain defend, any court competent jurisdiction States." FDIC attempt make "clear" showing congressional intent necessary overcome presumption fully immunity. See, Housing Admin. Burr, 309 242, 245; International Primate Protection League Administrators Tulane Ed. Fund, 500 72, 86, 8. Instead, argues waiver's scope should limited cases subjected entity. This category include instances tort. relies, supra, Loeffler Frank, 486 549, Franchise Tax Bd. California Postal Service, 467 512, do support limitation FDIC. 480-483. 2. cannot directly logic itself extension agencies. Bivens, sued Bureau rights, itself, S., at 389-390, part direct Government available, id., 410 (Harlan, J., concurring judgment). essence, asks imply based decision presumed absence very action. Moreover, were agencies, thereby permitting claimants bypass qualified protection invoked many defendants, there longer reason aggrieved parties bring actions individual officers, deterrent effects lost. Finally, "special factors counselling hesitation" creation Such create potentially enormous financial burden Government, matter affecting fiscal policy better left Congress. 483-486. 944 F. 2d 562, reversed. THOMAS, delivered opinion unanimous Court. CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR NINTH CIRCUIT Deputy Solicitor General Bender argued petitioner. On briefs Days, Acting Bryson, Assistant Attorney Schiffer, James A. Feldman, Barbara L. Herwig, Jacob M. Lewis, Alfred J. T. Byrne, Jack D. Smith, Jerome Madden. Gennaro Filice III brief respondent.* JUSTICE THOMAS 1 388 (1971), we Constitution. Today asked similar agency Government. Because extension, decline take step. 2 * April 13, 1982, Commissioner seized Fidelity Association (Fidelity), California-chartered appointed (FSLIC) serve Fidelity's law. That same day, Home Bank Board its capacity receiver, broad authority "take may put [the thrift] sound solvent condition." 48 Stat. 1259, amended, 12 1729(b)(1)(A)(ii) (repealed 1989). Pursuant general terminating employment failed thrift's management, through special representative Robert Pattullo, John H. Meyer, officer. 3 Approximately one year later, lawsuit number including Northern California. At time trial, sole Pattullo (his continued law) upon $130,000 but found favor grounds. 4 Petitioner successor,1 appealed Ninth Circuit, affirmed. 562 (1991). First, determined (FTCA Act), 28 §§ 1346(b), 2671-2680, did remedy. 2d, 568-572. Although "exclusive" 1346(b)," 2679(a), decided 567, 572. then concluded statute, 1725(c)(4) 1989), agency. 566, merits, affirmed jury's conclusion Id., 572-575. We granted certiorari consider validity award 507 983 (1993).2 II 5 Absent waiver, shields agencies suit. 554 (1988); Administration 244 (1940). Sovereign jurisdictional nature. Indeed, "terms States'] consent define court's entertain suit." Sherwood, 312 584, 586 (1941). See also Mitchell, 463 206, 212 (1983) ("It axiomatic existence prerequisite jurisdiction"). Therefore, must first decide whether 6 When Congress created 1934, empowered "[t]o jurisdiction." 1989).3 By effected "broad" Nordic Village, Inc., 503 30, 34 (1992). 1946, passed FTCA, waived certain torts committed employees. 1346(b).4 order "place `suable' precisely footing `nonsuable' agencies," Loeffler, (internal quotation marks omitted), Congress, waivers statute. provides: 7 "The own name shall construed authorize suits title, remedies provided title exclusive." 2679(a). 8 name," despite clause. 9 question, then, term defined Act. construe ordinary natural meaning. Smith States, 508 223, 228 (1993). Cognizable ordinarily "[c]apable being tried examined before designated tribunal; within [the] [a] given adjudicate controversy." Black's Law Dictionary 259 (6th ed. 1990). Under inquiry focuses grant 10 Section grants district courts over "render[ed]" liable. Richards 369 1, (1962). includes are: 11 "[1] [2] money damages, [3] injury loss property, personal death [4] caused negligent wrongful employee [5] while acting office employment, [6] circumstances person, claimant comes grant—and thus 1346(b)—if And alleges six elements outlined above. (§ 2679(a) limits context [Congress] FTCA" (emphasis added)).5 13 Applying these principles case, conclude 1346(b)—that is, As noted above, allege, "would claimant" allegation. consistently held 1346(b)'s State—the substantive FTCA. (1977); Muniz, 374 150, 153 (1963); Richards, 6-7, 11; Rayonier Inc. 352 315, 318 (1957). To use terminology rendered claims. His therefore name." 14 exposing claims, our "cognizability" runs afoul Congress' understanding "suable" "nonsuable" footing. 562. FDIC's reading only portion describes "tort"—i. e., Government"—would govern cognizability. remaining describe "limitation" immunity.6 15 reject already noted, seeks uncouple interpretation, (covering sounding tort), narrow those person law). parsing suggests. 2679(a)'s whole it.7 B 16 determine Meyer's, argues, fall outside Constitution generally restrict conduct entities. us engraft sixth element 1346(b)—liability "under claimant"—onto 17 face, contains limitation. contrary, past, recognized "liberally construed," 245, notwithstanding rule read narrowly sovereign. 34. Burr makes clear clauses implication unless 18 "clea[r] show[ing] types consistent scheme, restriction avoid grave interference performance governmental function, other reasons plainly purpose `sue sued' sense." 245 (footnote omitted). 561; Cal. 517-518 (1984). showing, "authorized immunity." (1991) (describing Burr). 19 waived.8 bases argument solely suggesting bear burdens borne Typical stated "when launche[s] into commercial world endow[s] sued,' less amenable judicial than enterprise like be." added). Bd., 520 ("[U]nder liberally clause, presume [Postal] Service's business") added); 557 (through "Congress Service's] interest awards, authorizing recovery Service extent recoverable party normal incident suit" added)). 20 context, however, Board, proposes. cases, sought subject particular businesses course. example, claimant, obtained judgment (FHA), served FHA writ garnish employee's wages. 243, 248, 11. Similarly, directed withhold amounts delinquent income taxes wages four 513. rural letter carrier, prejudgment successful Title VII Civil Rights 1964, 42 2000e et seq. 551-552. 21 each seeking hold just "any business," 520, look guidance. It stood escape face circumstances. Here, contrast, seek business. impose form liability—tort arising Constitution—that apply speak issue 22 nothing decisions suggests outer boundary waiver. Rather, "merely involve[d] determination suit] [came] of" 244. fell looked floor below agency's fall. present never greater entity; attempts entity ceiling. Again, supports result. 23 hesitate onto expressly set out how former provision limit latter. contemplates encompass render unconstrained express limitations construction—taken logical conclusion—would permit result coextensive generally. Had wished achieve outcome, surely employed Connecticut Nat. Germain, 249, 253-254 (1992) ("[C]ourts legislature says what there"). "[n]o made presumption" "fully waived" instance, 520; League, 8, 24 falls end point. Here ways Circuit's reasoning conflates two "analytically distinct" inquiries. 218. If second play—that relies avenue relief. 216-217. now turn. 25 injured agent's alleged Amendment agent. 397. most recent decisions, "responded cautiously suggestions extended new contexts." Schweiker Chilicky, 487 412, 421 (1988).9 significant Bivens: He expand defendants whom Bivens-type agents, well. 26 know decision, below, recognizes supporting position, "logic" disagree. itself. 389-390. supports—a him.10 27 An additional problem fact officials available. real complaint But clearly contemplated official raised. 397 (noting "the [had] ruled respondents immune virtue their position"). More importantly, proposed "solution"—essentially circumvention immunity—would mean evisceration rather extension. remembered deter Carlson Green, 446 14, (1980) ("Because individuals, more effective States"). immunity, officers. regime, 29 inappropriate even Bivens. unlike 396. recognize creating disputes expends resources indemnifying employees implicitly funds used indemnification shifted cover true, involving "`federal policy'" ours make. Ibid. (quoting Standard Oil Co. Cal., 332 301, 311 (1947)). leave weigh implications expansion liability.11 IV 30 supported Accordingly, reversed.12 31 So ordered. Notes: David W. Graves Gary Laturno National Employment Lawyers amicus curiae urging affirmance. 1821(d) (1988 ed., Supp. IV). abolished Financial Institutions Reform, Recovery, Enforcement 1989 (FIRREA), Pub. 101-73, 103 183, substituted cross-appeal challenging finding protected Circuit finding. 575-577. declined review aspect caseMeyer 984 governing nearly identical 1819(a) IV) (FDIC equity, State Federal") "[T]he civil inLoeffler, bit imprecise. question generally, suggests, "cognizable 1346(b)." uponUnited 499 160 (1991), "cognizable." "foreign country" exception, 2680(k), barred plaintiffs' injuries negligence working abroad. 165. "exclusive remedy," though recovery. 166. involve 2679(b)(1), proceeding gave rise claim." occasion address meaning 2679(b)(1) term. find unhelpful regard. Nothing inHubsch 338 440 (1949) (per curiam), contrary. Hubsch, submitted approval settlement agreement 2677 (1946 IV), General, "with court," "settle "as imposing responsibility passing compromises," prove acted (the fifth mentioned above). 441. Hubsch 174 (CA5 1949). Our case lose cognizability failure proof proof; rather, instance. discussion mention—let alone overcome—the Brief 12-13 For aBivens Due Process Clause appropriate some contexts, others. Compare Davis Passman, 442 228, 248-249 (1979) (implying equal component gender discrimination employment), 429 (refusing violations denial Social Security disability benefits ground included elaborate remedial scheme devised Congress). critical analysis, note addition theBivens initially contractual later dropped. value rights believed violated. 1729(d) 1989); CFR 569a.6, 569a.7 (1982); Coit Independence Joint Venture 489 561, 580-581 (1989). regard, considered several proposals aBivens-type R. 440, 99th Cong., 1st Sess.(1985); 595, 98th Sess. (1983); 1775, 97th (1981); 2659, 96th (1979). noBivens reach merits

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