Document: 453 U.S. 247 101 S.Ct. 2748 69 L.Ed.2d 616 CITY OF NEWPORT et al., Petitioners,v.FACT CONCERTS, INC. and Marvin Lerman. No. 80-396. Argued March 31, 1981. Decided June 26, Syllabus Respondents (an organization licensed by petitioner city to present certain musical concerts, a promoter of the concerts) brought suit in Federal District Court against officials. Alleging, inter alia, that city's cancellation license amounted violation their constitutional rights under color state law, respondents sought compensatory punitive damages 42 U.S.C. § 1983. Without objection, court gave an instruction authorizing jury award each defendant, including city. Verdicts were returned for respondents, which addition awarding also awarded both individual officials The moved new trial, arguing first time could not be municipality Although noting challenge was untimely Rule Civil Procedure 51, considered rejected substantive legal arguments on merits. Appeals affirmed, finding failure object charge at as required overlooked theory itself plain error. expressed belief challenged might have been error all, identified "distinct possibility" municipalities liable 1983 proper circumstances. Held: 1. trial does foreclose this from reviewing issue. Because adjudicated merits, did disagree with adjudication, no interests fair effective administration advanced 51 would served if refused reach Nor should review here limited restrictive "plain error" standard. contours municipal liability §1983 are currently evolving definition uncertainty, very novelty issue stake counsels unconstricted review. In being novel, question is important appears likely recur litigation municipalities. Pp. 255-257. 2. A immune 258-271. (a) order conclude Congress meant incorporate particular immunity affirmative defense litigation, must undertake careful inquiry into considerations history public policy. 258-259. (b) 1871, when enacted what now 1983, it generally understood treated natural person subject wide range tortious activity, but understanding extend common law. Indeed, common-law courts consistently expressly declined Nothing legislative suggests that, enacting 1 Rights Act intended abolish doctrine damages. If anything, relevant opposite. 259-266. (c) Considerations policy do support exposing malicious or reckless conduct its Neither retributive nor deterrence objectives significantly holding such 266-271. 626 F.2d 1060, vacated remanded. Guy J. Wells, Providence, R.I., petitioners. Leonard Decof, respondents. Justice BLACKMUN delivered opinion Court. Monell v. New York City Dept. Social Services, 436 658, 98 2018, 56 611 (1978), held local government "person" within meaning Aside concluding body wholly civil liability, had occasion explore nature scope any statute. U.S., 701, S.Ct., 2041. presented case whether may 2 * A. 3 Respondent Fact Concerts, Inc., Rhode Island corporation organized purpose promoting concerts.1 1975, received permission Department Natural Resources several summer concerts Fort Adams, park located Newport. securing approval final August 30 respondent obtained entertainment Newport.2 Under written contract, retained control over choice performers type music played while reserved right cancel without "in safety demand." App. 27. 4 engaged number well-known jazz acts perform during concerts. Shortly before dates specified, group Blood, Sweat Tears hired replacement previously performer who unable appear. Members Newport Council, Mayor, became concerned Tears, they characterized rock rather than band, attract rowdy undesirable audience Record Appendix (R. A.) 265, 316-317, 325.3 Based concern, Council attempted removed program. 5 On Monday, 25, Mayor Donnelly informed telephone he group, permitted because experienced crowd disturbances previous Id., 195. Officials appeared special meeting next day, explained fact band performed Carnegie Hall similar symphony hall facilities throughout world. Speaking reiterated condone festivals. attempting investigate either group's representations made respondent, voted days unless 267-269. vote considerable publicity, adversely affected ticket sales. 248-G. 6 Later same week, Solicitor changed position allow play music. Thursday, 28, agreed attend second following day. 7 session convened afternoon 29, day scheduled performance. members two options—it prohibition music, concert altogether. advocated alternative advised unlawful, R. 478, offer option respondent. Instead, one inquired all provisions contract fulfilled. Manager, just site, reported wiring together spectator seats fully completed p. m., auxiliary electric generator place. fulfill these conditions part overall procedures. 28.4 then "lived up phases" agreement. 10. offered dates, specifically excluding Tears. Respondent, however, indicated take action original honored. 96; 202; 11. After adjourned 9:30 p.m., decision revoke respondent's broadcast extensively media. 97; 204. 8 Saturday morning, 30, restraining enjoining interfering performance 2-day event, appearance took place incident. Fewer half available tickets sold. B 9 instituted United States Island, naming city, six other defendants. content-based censorship, free expression due process violated pendent state-law counts, interference contractual relationships. 8. At conclusion charged respect counts. Included instruction, given authorized defendant individually, "based degree culpability defendant." 62.5 verdicts $72,910 $275,000; damages, $75,000 spread among seven $200,000 city.6 10 Petitioner cannot municipality, even can, excessive.7 objected noted 51. But determined "rest procedural ground alone." Pet. Cert. B-3. Reasoning "a resolution novel critical verdict case," id., B-7, proceeded consider petitioner's 11 recognized, ibid., left undecided observed, often actions, found clear basis distinguishing between individuals regard. Emphasizing general deterrent awards, reasoned municipality's payment focus taxpayer voter attention upon entity's conduct, turn promote accountability election. B-9. burden imposed taxpaying citizens warranted judicial caution area, concluded appropriate circumstances action.8 12 First Circuit affirmed. 1060 (1980). That noted, initial matter, flawed trial. observed "only where 'has seriously fairness, integrity reputation proceeding.' " 1067. none factors present, law concerning flux, appellate barred awards municipality. 13 well all. F.2d, Citing own prior holdings effect defendants, Court's recent determination possibility municipalities, like persons circumstances." 14 importance issue, we granted certiorari. 449 782, 66 603 II 15 outset, asserts properly preserved Brief 7-9. light 51's uncompromising language9 policies fairness efficiency incorporated therein, claims further instruction. problem argument instance accept it. perhaps avoided simply reliance, default,10 judge justice consideration "novel question" federal law.11 reached merits ourselves.12 16 persuaded our determining has committed, exception invoked Courts absent timely objection court.13 No "right" specific standard exists setting, more existed once failed except case, limiting peculiarly inapt. 17 "Plain suited correcting obvious instances injustice misapplied court's interpretation below hardly give rise since those uncertainty. See Owen Independence, 445 622, 100 1398, 63 673 (1980); Monell. Maine Thiboutot, 448 1, 2502, 65 555 Middlesex County Sewerage Authority National Sea Clammers Assn., 2615, 435. We resolve element is, availability scarcely confine exist sufficiently egregious qualify 18 municipalities.14 And squarely decided complete record resort, argued sides Appeals, briefed factors, restricting plain-error serve neither advance efficient administration.15 therefore claim.16 III 19 It settled tort created historical vacuum. remedy who, acting deprives another rights. Monroe Pape, 365 167, 172, 81 473, 476, 492 (1961). Congress, intention away immunities afforded construe language 198317 automatically abolishing traditional implication. Procunier Navarette, 434 555, 561, 855, 859, 55 24 (1978); Imbler Pachtman, 424 409, 417, 96 984, 988, 47 128 (1976); Pierson Ray, 386 547, 554-555, 87 1213, 1217-1218, 288 (1967); Tenney Brandhove, 341 367, 376, 71 783, 788, 95 L.Ed. 1019 (1951). recognized varying applicable different sued statute.18 One assumption underlying decisions area 42d familiar principles, defenses ordinary principles obtain, contrary. 20 time, willingness recognize led existing Scheuer Rhodes, 416 232, 243, 94 1683, 1690, 40 90 (1974). 1871 designed expose form defeat promise statute preexisting serves compatibility purposes 424, 992; 434, 996 (opinion concurring judgment); 638, 1409. Only after construed defense. 21 Since three years ago, applied two-part approach scrutinizing claim proffered InOwen supported construction assert good faith officers agents 657, 1409, 1418. Owen, only contends examination background yields result. 22 By open serious question. private corporation, activity,19 exemplary virtually unanimous denying corporation. E. g., Woodman Nottingham, 49 N.H. 387 (1870); Chicago Langlass, 52 Ill. 256 (1869); Montgomery Gilmer & Taylor, 33 Ala. 116 (1858); Order Hermits St. Augustine Philadelphia, Clark 120, Brightly N.P. (Pa.1847); McGary President Lafayette, Rob. 668, 674 (La.1846).20 Judicial disinclination persisted vast majority jurisdictions.21 McQuillin, Municipal Corporations 53.18a (3d rev. ed. 1977); F. Burdick, Law Torts 245-246 (4th 1926); Dillon, 1712 (5th 1911); G. Field, Damages 80 (1876). 23 opinions themselves instructive reasons behind tradition. McGary, example, Louisiana Supreme Lafayette despite officers, injunction ordering demolition plaintiff's house. officials' malice attributed community, holding: "Those violate laws country, disregard authority justice, wantonly inflict injuries, certainly become thereby obnoxious vindictive These, can never allowed innocent. Those plaintiff recovered . ., evidently vindictive, cannot, opinion, sanctioned court, borne widows, orphans, aged men women, strangers, admitting repair injury inflicted plaintiff, bound beyond amount, will sufficient her indemnification." Rob., 677. 25 Similarly, Hunt Boonville, Mo. 620 (1877), Missouri treble trespass statute, notwithstanding statute's authorization "any person." existence "respectable authority" corporations "can not, such, criminal act willful wrong damages," 624, continued: 26 "[T]he relation sustain toward thereof whom act, respects identical stockholders agents; there reason corporations, benefit, corporations." 625. 27 Of relevance current supra, involved Pennsylvania property owners county bring actions destruction mob violence.22 "persons" recovery included plaintiffs entitled county's duty make reparation injuries sustained result lawless violence. While rioters themselves, nonetheless recoverable county. 28 rationale numerous jurisdictions. Wilson Wheeling, W.Va. 323, 350 (1882) ("The spoliator visited damages"); Ill., 259 ("But fixing compensation Against compensatory, way punishment"); Ala., 132 [municipal] principle known us, responsible towards plaintiffs"). general, viewed contrary sound policy, taxpayers whose benefit wrongdoer chastised. readily distinguished compensate agents, punishment bad-faith agents. Compensation obligation shared itself, whereas actual wrongdoers. thus protected unjust punishment, undue fiscal constraints.23 29 Given established proceed "Congress so provided wished doctrine." 1218. debates Act, abolition. debate looked Congress' treatment amendment introduced Senator Sherman indicative congressional attitudes liability. Monell, 692, n. 57, 2036, 57.24 Initially, significant proposed contemplated exposed governments damages; rather, "shall pay full damnified" Globe, 749, 755 (emphasis added).25 exclusion oversight confirmed Representative Butler, amendment's chief supporters, responded floor House: 31 "The invalidity gentleman's looks [the amendment] Now, look mutual insurance. done inhabitants indemnify injured party wrong. ." 792. 32 doubt having permitting explicit context bodies sub silentio Act. Notwithstanding amendment, extension met substantial resistance resulting separate occasions.26 reservations broached legislators, discussed some length 669-683, 2024-2032, Chambers practical objections. Notably, supporters opponents voiced concern unmanageable financial governments.27 Legislators apprehension innocent unfairly punished deeds knowledge control.28 Admittedly, objections raised reference threat expansive embodied amendment. concerns inquiry, reflect relied rejecting awards. see believe opposition punishing bankrupting less regard specter 34 Finding evidence disturb immunity, determine dictate doing so, examine relationship goals 35 Punitive party, punish tortfeasor wrongful intentional malicious, deter him others extreme conduct. Restatement (Second) 908 (1979); W. Prosser, 9-10 1971). Regarding retribution, remains true "punishes" taxpayers, commission tort. These assessed above amount necessary party. Thus, equitably distributing losses official misconduct. Cf. windfall compensated accompanied increase taxes reduction services footing bill. retribution shoulders blameless unknowing taxpayers.29 36 himself suffer his unlawful knowingly maliciously deprive rights, community's sentiments. Silver Cormier, 529 161, 163 (CA10 1976); Bucher Krause, 200 576, 586-588 (CA7 1952), cert. denied, 345 997, 73 1141, 97 1404 (1953). independent purposes, therefore, sensibly governmental entity itself. 37 To extent bearing rationale, alter analysis. violations Carey Piphus, 435 247, 257, 11, 1042, 1049, 252 suggested prominent deterrence. See, e. 651, 1415; Robertson Wegmann, 584, 590-591, 1991, 1995-1996, 554 256-257, 1048-1049. Whatever weight, advanced, 38 major objective prevent future argues vigorously primary policymaking induce voters condemn misconduct through electoral process, violations. 9-11. correct asserting abuses power 591, 1995. statements contemplating 'a proper' action" understood. Carlson Green, 446 14, 22, 1468, 1474, 64 For reasons, justify making 39 First, far officials, level, deterred wrongdoing large based wealth Indemnification were, able sizable assuming arguendo, impervious shame humiliation, impact air best uncertain. There suppose corrective action, discharge offending appointed excoriation elected, occur recently related context: reasonable superiors motivated fisc Government's integrity." 21, 1473. This electorate large. additional protection needed, wrongdoers out office. 41 Moreover, means allowing juries assess official, personal resources, directly advances public's interest preventing repeated deprivations.30 view, provides prospect commit recurrent found, violations, employer. depart here, especially imposition penalties most fall citizen-taxpayer. Finally, although benefits associated doubtful character, costs real. last Term (1980), statutory cf. Ass'n, expanded units face assure harmed covering activity everyday life. add exposure employees create risk entities. 43 remarked elsewhere broad discretion traditionally accorded assessing Electrical Workers Foust, 442 42, 50-51, 99 2121, 2127, 60 698 Gertz Robert Welch, 418 349-350, 2997, 3011-3012, 789 tortfeasor's admissible measure awarded,31 unlimited taxing prejudicial jury, encouraging impose award. unpredictable and, times, substantial, sensitive possible strain treasuries large.32 Absent compelling approving award, deem unwise risk. IV 44 sum, find absolute undisturbed compatible hold Accordingly, judgment vacated, remanded proceedings consistent opinion. 45 ordered. 46 BRENNAN, MARSHALL STEVENS join, dissenting. today considers decides instructions, though petitioners instructions manner, Rules Procedure. departure unprecedented unwarranted, I respectfully dissent. 48 filed alleging Amendment complaint amended complaint, prayed relief. 12, 13, 24, 26. submitted pretrial memorandum response request parties. Opposition close evidence, instructed explicitly detail acted maliciously, wantonly, oppressively. 57-58. giving summoned attorneys side bar, inviting suggestions instructions. (R.A.) 591-A 591-B. revealed record, counsel suggestion.1 favor petitioners, Petitioners verdict, arguing, denied motion, stating: 50 "None ever fact, defendants interpretations inserted aspect retired. Therefore, defendants' post-trial motion." B-2 B-3 (citing Fed.Rule Civ.Proc. 51). Petitioners' precluded them raising motions. Not content alone," added), held, alternative, B-7 B-10. appeal Circuit, stated petitioners' allegation 53 "is Fed.R.Civ.P. overlook nature, 1067 quoting Morris Travisono, 528 856, 859 (CA1 1976) (footnote citation omitted). 54 briefly canvassed precedents, "state flux," 1067, concluded: "[W]e hard-pressed say judge's containing 'peculiar [to warrant noticing error] miscarriage justice.' 1067-1068, Nimrod Sylvester, 369 870, 873 1966) (citation omitted; brackets original). argue instruction.2 They rely states part: "No assign objects thereto retires verdict." clearly. Cases too list manner accordance precludes review.3 function ensuring orderly precise terms "an opportunity thought, late, inadvertent erroneous charge." Marshall Nugent, 222 604, 615 1955). prevents litigants tactical preserve appeal. "uncompromising language," ante, 255, lightly structures. 57 Nevertheless, rules, susceptible flexible strictly avoid justice. Wood Georgia, 450 261, 5, 1097, 1100, 67 220 (1981); 17, 2, 1471, Hormel Helvering, 312 552, 557, 61 719, 721, 85 1037 (1941).4 developed deal unchallenged manifestly unjust. doctrine,5 commentators uniformly agree exceptional As noted: 'If confined integrity, proceedings.' C. Wright Miller, Practice 2558, 675 (1971). below. 58 "problem with" respondents' it." Ante, 255. reject argument; contrary, "untimely" "not basis" challenge. Its prudential discuss detract holding.6 compel affirmance absence constituting manifest injustice. admit reviewed 59 frankly admits error, governing "currently uncertainty." 256. vacates Appeals' judgment. Such vacating necessarily implies hint applied.7 many words erred, much explain why. "special case" "peculiarly inapt" employed explains "novel," "appears recur." 256, 257. issues recur: why worthy behooves us grant certiorari cases below, cursory somehow "special" "was Court." whenever reconsiders holding, affirms standard, grants n.6, supra. short, anything "special." 62 Applying affirm case. admits, constitute error." cause treat differently purposes. Whiting Jackson State University, 116, 126-127 (CA5 1980) (no made, upheld cases); Mid-America Food Service, Inc. ARA 578 691 (CA8 1978) error). virtue status. (failure correctional excused, directed apply harsher precedent). inapt default. whatsoever adhering notice case; unambiguous; ample object; offering excuse.8 Whether default negligent tactical, complain. not? disregarded enforced? entered joint venture Lerman, promoter, produce lawsuit. convenience, refer Council. petitioner. 7, infra. Contemporary press accounts "fear attracting 'long-haired hangers-on.' 87-A. Testimony compliance achieved. 101-102; 136-137, 141-142, 201. Director Resources, site Friday afternoon, preparations satisfactory health 159. He said Manager criticisms "picayune," 157 (although characterization, stricken judge, ibid.), "frivolous," 179. assist possible, told needed. 158. 57-58 (instructing damages). Compensatory single sum liable. 62. 75% 25% claim. 594-595. address propriety challenging aspects rulings Judge Both valid relief qualified good-faith proved cross-examination merit. issues, writ respects, findings conclusions lower undisturbed. went rule excessive B-12 B-13. ordered remittitur, reducing $75,000. accepted remittitur objection. 68. reads pertinent stating distinctly matter grounds objection." 5A Moore Lucas, Moore's ¶ 51.04, 2553 Judge, observing fashion stated: "Despite [petitioner's] tardiness, case." B-7. statement makes merely abundance caution. dissent's suggestion post, 273, 276, mistaken. influenced unusual instant situation. Ordinarily, difficult, impossible, retrial, jury's verdict. separable rendered rectification proceedings. Williams York, 508 356, 362 (CA2 1974); Troupe D. Bay Transit Co, 234 253, 259-260 1956). But. Telfon Communications Corp., 589 959, 966 (CA9 1978). already arisen occasions. Compare Hild Bruner, 496 F.Supp. 93, 99-100 (NJ 1980), Flores Hartford Police Dept., FEP 180, 193 (Conn.1981), Edmonds Dillin, 485 722, 729-730 (ND Ohio 1980). Valcourt Hyland, 503 630, 638-640 (Mass.1980). exercise parties, 34.1(a); Washington Davis, 426 229, 238, 2040, 2046, 597 Silber States, 370 717, 718, 82 1287, 1288, 798 (1962), deciding courts, 265 Youakim 425 231, 234, 1399, 1401, 701 (1976). unnecessary exclusively affirming warrants plenary consideration, 2106, express view regarding application Appeals. "Every ordinance, regulation, custom, usage, Territory, subjects, causes subjected, citizen jurisdiction deprivation privileges, secured Constitution laws, shall equity, proceeding redress." Rev.Stat. 1979, (1976) (state prosecutor); (1974) executive); (1967) judge); (1951) legislator). Local initially shielded sovereign immunity. Russell Men Devon, T.R. 667, Eng.Rep. 359 (K.B. 1788). 1926). Subsequently, bifurcated, proprietary spheres Bailey Hill 531 (N.Y.Sup.Ct.1842), aff'd, Denio 433 (1845). Williams, Liability Tort (1901). 640-650, 1410-1415; 687-689, 2034-2035. occasionally dictum circumstances, Wallace etc., How. 169, 176 (N.Y.Com.Pl.1859); Herfurth Corporation Washington, D.C. 288, 293 (1868), upheld, overruled 1870. Whipple Walpole, 130, 132-133 (1839), 387, 394 (1870). Lauer Young Men's Christian Ass'n Honolulu, Haw. 390, 557 P.2d 1334 Ranells Cleveland, St.2d 321 N.E.2d 885 (1975); Smith Columbia, 336 A.2d 831 (D.C.App.1975); Fisher Miami, 172 So.2d 455 (Fla.1965); Brown Village Deming, N.M. 302, 243 609 (1952); Town Newton Wilson, Miss. 726, 91 So. 419 (1922); Willett Albans, Vt. 330, 72 (1897). Annot., A.L.R.2d 903-920 (1951); Am.Jur.2d, Municipal, School, §§ 318, 319 Corporations, Hines, Exemplary Damages, Clev.-Mar.L.Rev. 304 (1966). strikingly Cong. Cong., 1st Sess., 663, (1871) (Globe). cited model debates. 777 (Sen. Frelinghuysen). history, acknowledged oral contemplate contended functional equivalent achieved respondeat superior still are, exposed. Tr. Oral Arg. 29. Apparently, executive responsibility knowledge, argument, persuasiveness prevalent immunity; goes soundness now. cover capacity. Taylor; Lafayette. (1876) ("[Municipal corporations] supposed capable wrong, ."). exhaustively addressed 664-695, 2022, 2038. Briefly, defended sponsor attempt enlist aid suppressing violence Ku Klux Klan. 760-761. form, inhabitant damage "riotously tumultuously assembled." 2021. version passed Senate overwhelmingly House. 704-705, 725, 2042-2043, 2053. conference substitute proposed. 755. placed government, regardless impending riot, efforts stop it, police power. 2024. lien ran "all moneys treasury," execution jails courthouses. debate, again 779, 800-801. glean "clue[s]" views 57. ibid. version, abandoned references 804. 668-669, 2024-2025. generally, Avins, Klan 1871: Some Reflected Light Action Fourteenth Amendment, Louis U. L. 331, 368-376 (1967). Blair, strong proponent obligations "utterly destroy municipality." 795. Bingham, drafted feared treasury "deprive administering justice." 798. 762 Stevenson); 763-764 Casserly); 772 Thurman; (Rep. Kerr). Stevenson declared "undertakes corporate prudence foresight prevented." 762. Frelinghuysen "the town committed crime." 777. Representatives Poland Willard referred 791 Willard); 794 Poland). 771 Thurman); 775 Bayard); 788 imagine situation perpetrating outrageous abuse kind occurrence unlikely need anticipate here. statutes requiring adverse judgments duties exclude indemnification employees. N.Y.Gen.Mun.Law 50-k(3) (McKinney Supp.1980-1981); Pa.Stat.Ann., Tit. 8550 (Purdon Supp.1981); Cal.Gov't Code Ann. 825 (West 1980); Conn.Gen.Stat. 7-465 Nev.Rev.Stat. 41.0349 (1979). Karas Snell, Ill.2d 233, 142 (1957). Messersmith American Fidelity Co., 232 N.Y. 165, 133 N.E. 432, (1921) (Cardozo, J.) ("[N]o advantage Commentators encouraged development. Calabresi, Costs Accidents 269-270 (student 1970); Project, Suing Court, 88 Yale L.J. 780, 818 908(2) Dobbs, Remedies 3.9, pp. 218-219 (1973). bar example impact, twice total individually. excessive, weight fails comport justice," unreasonable devoid firm record." contrast, R.A. argue, correct. affirmed ground, observe relies 19th-century proposition predicated superior, 259-263. latter 690-691, 2035-2036, (1978). precedent least relevant, "blameless taxpayers," 267, compelling. elected representatives people adopt violates Constitution, seems perfectly ultimately policy—the citizens. 51-9 51-18, 2553, 639, nn. 51-52 "exceptional otherwise result." 721. attorney conflict-of-interest conflict 5. parties consented waiver default, closely main promoted declines n 16. difficult understand how purport question, doctrine. join leaving exceptions any, broader uncommon unreviewable excess inquiry. Kropp Ziebarth, 601 1348, 1355-1356 1979); 691, 695-700 1978); Bilancia General Motors 538 621, 623 (CA4 1976). Surely mean suggest obtain decision. effect, defining explaining carved requirements suspect repercussions incongruity parallel area. Criminal Procedure, contain provision—similar 51—that "[n]o portion omission therefrom verdict," Crim.Proc. provision: errors defects affecting noticed court." 52(b). provision Rules. heard inverts Rules, spirit letter. defaults trials preclude habeas "cause" "prejudice." Wainwright Sykes, 72, 90-91, 2497, 2508-2509 (1977); Davis 411 242-245, 93 1577, 1582-1584, 216 "prejudice" stricter enforcing rules prisoners facing incarceration money judgments. priorities seem backwards me. apparently lack "mitigates counsel. 9.

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