Document: 471 U.S. 808 105 S.Ct. 2427 85 L.Ed.2d 791 CITY OF OKLAHOMA CITY, Petitionerv.Rose Marie TUTTLE etc. No. 83-1919. Argued Jan. 8, 1985. Decided June 3, Rehearing Denied Aug. 14, See 473 925, 106 16. Syllabus An officer on petitioner city's police force shot and killed respondent's husband outside a bar in which robbery had been reported progress. Respondent brought suit Federal District Court under 42 U.S.C. § 1983 against the petitioner, alleging that their actions deprived her of certain constitutional rights. With respect to liability city, trial judge informed jury could be held liable only if municipal "policy" caused deprivation, further instructed it "infer," from "a single, unusually excessive use . was attributable inadequate training or supervision amounting 'deliberate indifference' 'gross negligence' part officials charge." The returned verdict favor but awarded respondent damages. Rejecting petitioner's claim instruction improper, Appeals proof single incident unconstitutional activity by suffice establish liability. Held: judgment is reversed. 728 F.2d 456 (CA 10 1984), Justice REHNQUIST delivered opinion with Part II, concluding where question not raised until she mentioned brief merits this later at oral argument, too late for argue issue properly preserved because failed object sufficient specificity satisfy Rule Civil Procedure 51. Nonjurisdictional defects sort should Court's attention no than opposition; not, within discretion deem defect waived. Pp. 815-816. REHNQUIST, joined THE CHIEF JUSTICE, WHITE, O'CONNOR, an III, improperly concerning standard imposing municipalities 1983. inference unwarranted its assumption act arose state mind policymakers. More importantly, allowed plaintiff without submitting action taken policymaker. requirement Monell v. New York City Dept. Social Services, 436 658, 98 2018, 56 611, can imposed injuries inflicted pursuant Government "policy custom," makes clear that, least, intended prevent imposition circumstances wrong ascribed decisionmakers. fact case introduced independent evidence difference, impose even did believe expert witness' testimony officer's inadequate. There must very least affirmative link between municipality's policy particular violation alleged. Here, infer thoroughly nebulous "inadequate training" question, same time sanctioned cause incident. 816-824. BRENNAN, MARSHALL BLACKMUN, concluded existence city misconduct low-level officer, as here allowed, then hold basis policy, would amount permitting precisely theory strict respondeat superior rejected supra. may many ways proving custom deprivation right, scope does permit such merely wrongful employee authorized make policy. 827-833. Burck Bailey, Oklahoma City, Okl., petitioner. Carl Hughes, respondent. announced Court, O'CONNOR joined. 1 In 611 (1978), are "persons" subject damages Ku Klux Act 1871, 1983, violations visited officials. noted, however, premised mere municipality employed offending official. Instead, we government custom." Id., 694, S.Ct., 2037. We noted "no occasion address full contours immunity .," id., 695, 2038, expressly left development "to another day." Today take small necessary step toward defining those contours. 2 * On October 4, 1980, Officer Julian Rotramel, member force, Albert Tuttle We'll Do Club, City. who months, responded all-points bulletin indicating there progress Club. bulletin, turn, product anonymous telephone call. caller progress, described robber gun. parties stipulated placed 3 Rotramel first reach bar, what happened thereafter sharply conflicting. Rotramel's version when he entered walked him, grabbed Tuttle's arm requested stay bar. matched description contained bulletin. proceeded barmaid robbery, while doing so once again restrain leaving, grabbing holding it. testified told occurred. questioning kept bending towards his boots, attempting squirm grip. finally broke away and, ignoring commands "halt," went outside. When cleared threshold door, saw crouched down sidewalk, hands near boot. ordered halt, started come out crouch discharged weapon. believed removed gun boot, life danger. died gunshot wound. boot hospital prior surgery, toy pistol fell out. 4 Rose widow, administratrix estate. She United States Western Oklahoma, At facts surrounding incident, also adduced practices. based upon conduct during expert's review curriculum, grossly any other involved similar 5 presented due process law, violated rights using "excessive apprehension." App. 38. individually, charged entitled qualified extent acted good faith reasonable belief were lawful.1 sought Monell, presumably "custom policy" led violations. jury: 6 "If denies person rights, employs denial right simply employment relationship. But right. Where official causes deprive execution liable. 7 8 "It plaintiff's contention existed relies allegations negligent officers, failure supervise discipline officers. has alleged adequately supervise, train, review, officers constitutes deliberate indifference decedent acquiescence probability serious misconduct. 9 "Absent more supervisory indifference, matter conduct, federal Rights cannot ordinarily inferred illegality stop suspect; sufficiently ordinary warrant charge. simple negligence. Furthermore, show causal adoption plan defendant municipality." 42-44 (Emphasis supplied.) 11 $1,500,000 appealed Tenth Circuit, arguing, inter alia, court particular, claimed error instruct activity. claims. (1984). 12 Viewing instructions "as whole," determined "gross negligence" required training. addressed nevertheless erred instructing act. It distinguished cases required, decided where, here, "was plainly spoke positively lack "single rule considered absolute. ." 461. therefore "proper." 459. referred "independent evidence" training, "action, coupled clearly training," justify granted certiorari Appeals' seemed conflict decisions Courts Appeals. 469 814, 79, 83 27 See, e.g., Languirand Hayden, 717 220, 228-230 (CA5 1983); Wellington Daniels, 932, 936-937 (CA4 1983). cf. Owens Haas, 601 1242, 1246-1247 (CA2 1979).2 reverse. II 13 Before proceeding merits, procedural argument incident" 51, our review. disagree. requirements 51 one sentence suggest preserved. filed supplemental postargument question. present protests obscure failures. argued unreasonable insufficient liability, specifically court's single-incident highlighted above. mention seems refer below. petition centered issue, opposition hint "questions presented" might Respondent's attempt avoid now comes far late. 14 do mean give short shrift provisions Indeed, have prevailed made Appeals.3 think judicial economy served invoking point, after received plenary consideration merits. Our decision grant represents commitment scarce resources view deciding questions petition. certiorari; consider Here squarely Appeals, will proceed decide Cf. Lee States, 343 747, 749-750, n. 72 967, 969-970, 96 L.Ed. 1270 (1952). III 15 lawsuit Although host statute recent years, never hurt embark statutory construction Act's precise language mind. states: 16 "Every who, color statute, ordinance, regulation, custom, usage, State ., subjects, subjected, citizen jurisdiction thereof privileges, immunities secured Constitution laws, shall party injured equity, proper redress. 17 By terms, course, creates substantive rights; provides remedies deprivations established elsewhere. Baker McCollan, 443 137, 140, 144, 99 2689, 2692, 2694, 61 433 (1979). "without law," Fourteenth Amendment, free apprehension"—presumably Fourth Amendments.4 Having still "person" "cause[d] [Tuttle] subjected" deprivation. teaches accountable result policy." 18 plaintiffs challenged defendant's compelling pregnant employees unpaid sick leave before medical reasons, ground Due Process Equal Protection Clauses Amendment. Since entity, whether entity suable term used analysis focused 1983's legislative history, debate proposed "Sherman amendment" 1871 Klan Act, derived. Sherman amendment responsible damage property private persons "riotously tumultuously assembled." Cong. Globe, 42d Cong., 1st Sess., 749 (1871). Congress' refusal adopt amendment, reasons given, Monroe Pape, 365 167, 187-192, 81 473, 484-486, 492 (1961), 1983; extensive history overrule Monroe. principal objections voiced Congress section appeared obligation keep peace—a Congressmen thought doubtful constitutionality, event place position insurers harms suffered borders. found these concerns, although fatal consistent "for own Amendment." U.S., 683, 2032 (emphasis supplied). 19 "persons," discuss imposed. theories akin rejection imposes "cause[d]" defendant, hard find causation telling itself fault. Given "custom" lead This tracks statute; fault-based liability.5 20 sick-leave "unquestionably" "the moving Court," be." 694-695, Subsequent added little formulation, beyond reaffirming violation." Polk County Dodson, 454 312, 326, 102 445, 454, 70 509 (1981). Cases construing highlight range questions, subtle factual distinctions, arise administering standard. Bennett Slidell, 762 1984); Gilmere Atlanta, 737 894 (CA11 reheard en banc, January 1985; Languirand, F.2d, 220. 21 somewhat sketchy state, turn examine seeks city. authorizing apprehension suspected criminals, Rather, supervising resulted says: 22 "Respondent offered direct shooting policies. policies death. Chief Police insisted entirely Brief 13-14. 23 apparently accepted though makers" "negligent" establishing policies, they guilty "deliberate indifference" "police misconduct" thus engender. 24 proceeds petitioner—whether isolated establishes municipality—is truth record giving rise unfortunately respondent, given benefit additional evidence. stated indiffernce' 44. 25 unwarranted; first, second, allows foregoing discussion origins custom" Presumably, draw face uncontradicted scrutinized each applicant met highest standards imaginable. To hired "bad apple." 26 all. Nor read charge whole" difficulty. nothing elsewhere detract jury's perception solely intent charge, upholding references portions irrelevant; general yields opportunity determining evidence, instruction. Stromberg California, 283 359, 367-368, 532, 535, 75 1117 (1931). contends suggests contrary result, "expressly provided 'decision' often victim." 14. illustrates wide difference here. Department Services terms compelled mandatory leaves absence reasons; reason Cleveland Board Education LaFleur, 414 632, 94 791, 39 52 (1974). Obviously, requires application fully corporation resulting 28 rely nebulous, deal violation, Monell. needed statement corporation, exercise; type relies, relation susceptible easy proof. place, word generally implies course consciously chosen among various alternatives;6 difficult sense accept submission someone pursues unless proves inadequacies conscious choice—that is, policymakers deliberately chose program prove And second some limitation through themselves unconstitutional, test set become dead letter. retreats enough identified behind almost harm official; example, force. require different kind latter example sent "caused" "policy." 29 earlier opinion, Such approach means circumventing limitations altogether. Proof includes existing, attributed Otherwise origin, separately proved. relied considerably every both requisite fault municipality,7 connection deprivation.8 Under upheld non-policymaking Constitution. accordingly 30 Reversed. 31 POWELL took case. 32 whom BLACKMUN join, concurring judgment. 33 I agree instruction, ante, ---, us join REHNQUIST's opinion. concur reached today, am unable balance plurality 34 municipalities, like actors, "subjec[t], caus[e] today "small step," ----, 1983.1 However, needlessly complicates task unsettles clarifies, write simpler explanation result. 35 case, overturned, useful two types trial. First, elicited killing. included admission weapon possession, 150, 158, 225, committed felony. 155.2 effort employ alternative measures apprehend Tuttle, 225-226. Second, substantial minutes how answer calls "these statistically most dangerous handle." 288. addition, enter "blind" building armed wait backup unit arrive. 146-147. Finally, himself inadequately trained. 153, 159, 165. 36 attempted responsibility killing Tuttle. egregiously accord practice alone customs deficient blame hoped nature 37 permitted submit jury. previously 43. Putting together, policeman night As theory, "only results acts omissions proximate civil decedent." Ibid. 38 instructed, way determine relied. denied motion notwithstanding verdict, forward regarding procedures liability." 58. "there [Rotramel], young man, rights." Tr. 704. discussing n.o.v. motion, explicitly "impressed case" curriculum methods training." 704-705. affirmed. (CA10 1984). "[w]hether render 1983." thrust improper A. 40 "Congress intend local units applies." 690, 2035 original). Nonetheless, recognized limits asserted municipality. correctly notes, reading including see 664-704, 2022-2042, conclude desired regard breach peace damages." 681, 40, 2031, 40. vicarious suit, violate evident congressional preclude 41 Because broadly available compensate individuals Owen Independence, 445 622, 650-653, 100 1398, 1415-1416, 63 673 (1980); supra, 683-687, 2032-2034, suffered. showing, prove, broad "subjected" "caused him carries burden, mandated language, underlying purposes B begin statute: 43 law. 44 elements summarized follows: (1) (2) acting law (3) subjected (4) laws States. Element involves States; ignored 45 Of three remaining relevance two. After undoubtedly applies. doubt "under commonly understood. 46 causation. involving element proved seen divided into parts. predicate recovery opposed unilaterally nonpolicymaking employee. inquiry carry burden custom.3 officers.4 47 introducing 1980.5 isolate assume disbelieved inadequacy content practices, unconvincing all documentary While perhaps unlikely, disbelief assumed ordinary. 48 A finding unduly threaten grossly, outrageously, recklessly misbehave misbehavior fairly customs, either authorize nonetheless "moving force," (1981), violation. Yet equally likely numerous factors responsible; unbalanced mental obvious example. Brandon Holt, 464, 466, 873, 878 (1985). well bear incident; done Thus, misconduct, knowing Monell.6 49 objects (1980), despite showed instance If depended premise immune provide authority contrary. incurring liability—even taking innocent citizen—would legal anomaly, unsupported victim foreseeably avoidably individual subsequent victims; exposing occurrence future incidents occur. 50 depend unlikely extravagant premise. depends instead sole support comparable agreed forcing women maternity medically necessary. 661, 2, 2020, 2. interest Owen, council, dismissing post Police, passed resolution releasing press material smeared reputation plaintiff. release information action—that custom—of crucial factor acted.7 cases, let occasion.8 For above, reversed; policy.9 STEVENS, dissenting. 53 engaged performance duties, entrusted civic responsibilities order. His mission protect life, liberty, citizenry. violates performing mission, remedy employer individual. conclusion supported text holdings reasoning several major statute. rests fiat litigant asked decree. 54 frequently "came onto books April 20, 1871. Stat. 13."1 especially important, remedial measure, drafted expansive language.2 class potential defendants defined words "every person."3 settled encompasses corporations,4 true corporate entities human agents.5 corporations, them agents. 55 enacted doctrine common England.6 agents, specific instructions,7 applied corporations,8 officers.9 "is always appropriate elected representatives, citizens, know law,"10 authors apply species tort admits immunities."11 repeatedly construed incorporate common-law "absent contrary."12 consistently principle legislation 19th century.13 supports reasons. "nobody" objected 114 expected normal rules enforcing Amendment—an extraordinary novel form absolute municipalities—indicates seriously ever mentioning possibility lesser person.15 Amendment sheds light meaning extreme measure indicates corporations share carrying 57 greatest importance, remedy. primarily designed Constitution—wrongs kind.16 recognizes, "unconstitutional activity."17 characterized "unconstitutional" employer. purely conduct.18 Unless authority, him. relationship treat analysis, surely justifies principles purpose allocating action. 58 central confirms analysis. Chicago rested entire defense "ultra vires" invaded petitioners' home.19 side separated Members attach recurring usage." today's decision, petitioners represented Over Frankfurter's vehement dissent,20 constitute statute.21 59 Harlan's opposing positions identifies Monroe: 60 "One that: " 'It abundantly afford courts because, prejudice, passion, neglect, intolerance otherwise, enforced claims citizens enjoyment guaranteed agencies. .' 62 being meant anything abuses recurrent 'custom, usage.' One my Brother FRANKFURTER, dissent, intention over whole field torts crimes, enacting regarded official, possible position, tort, concern."22 "far tort" "made position," "matter concern" treated fortiori, 64 purports construction—which introduces quotation text, 816—its actually interpretation 690-695, 2035-2038, (1978). appear theme decision.23 concludes: 65 "Proof proved."24 66 parsimonious fair wrote persuaded bizarre 67 contains dicta persuasive kind. separate concurrence, "not accorded less weight cases."25 Moreover, pointed out, "we owe deference rendered airing relevant considerations."26 commentary responsive advanced party27 actual holding.28 explained why litigation, city.29 views expressed blatant overruled earlier—and, ironically volunteered—misconstruction activities agents performed duties.30 68 number sound considerations policy.31 litigation special quality interests stake. providing compensation victim,32 deterring formulating policy,33 treatment work,34 militate placing primary corporation. 69 concern about danger bankrupting corporations. That legitimate, Congress—perhaps maximum size requiring purchase insurance—rather Court. rather person" covered 1983.35 injection engender complicate process. My old-fashioned eliminate civil-rights consuming issues gratuitously engrafted serve administration justice effectuate Congress. 71 respectfully dissent. tried weeks Harlow Fitzgerald, 457 800, 2727, 73 396 (1982), modified executive immunity. "clearly known." 818, 2738. "question is: "Whether Pet. Cert. i. much directed pointing uncertainties said dispel notion presented, confine above reaching conclusion, unanswered order counsel objecting "stat[e] distinctly grounds objection." Apparently, objection consists statement: objection, your honor, particularly one, language." 693. right—here right—had Petitioner pass aspect are, Tennessee Garner, 1, 1694, (1985), recently "[w]here probable suspect poses threat physical harm, others, constitutionally escape deadly force." 11, ----. "good legality actions." note "unreasonable force" effecting arrest Amendment; nor law." agreeing post, 842, STEVENS' dissent depart important stare decisis. construction, commit reversal Burnet Coronado Oil & Gas Co., 285 393, 406-407, 443, 447, 815 (1932) (Brandeis, J., dissenting). area 90-degree turns years. seven years ago. Pape '§ 17-year-old written opinions accordingly, appropriately ordering financial affairs. decisis gives legitimate expectations, correction Congress, great disservice subvert concerns maintain flux. addition substantially enacted, representative contemporary authorities. Both majority dissenting complicated 644-650, 1412-1415; 676-679, 1428-1429 (POWELL, dissenting); surprised learn "common law" officers." Post, 836-837. Even known allow hardly suggested dissent; famous Thayer Boston, Mass. 511, 516-517 (1837), guarded harmony stated: "As rule, unauthorized unlawful colore officii; appear, acts, government, bona fide pursuance relate; adopted ratified corporation." Mass., 316-317. well-known dictionary, defines definite method selected alternatives conditions guide decisions." Webster's Ninth Collegiate Dictionary 910 (1983). express meet assuming suffice, open policymaker's practices policymaker required. regard, condone loose leaving misconduct." alleged, issue. clearer. Newport Fact Concerts, Inc., 453 247, 101 2748, 616 (1981) (punitive permitted); (1980) (qualified municipalities). admitted standing drink hand. 155. bartender occurred, 82-83, 106, 234, conceded 209. hinges causation, These following matters: rookie patrol alone; govern entering felony-in-progress situation; emphasis matters situations, firearms, shoot kill. bore (the Tuttle) "conscious choices," 823 supervision. officer. Some officials, occupy high policymaking roles deemed 2037 ("[I]t government's lawmakers whose edicts represent inflicts injury 1983"). respects analogous res ipsa loquitur cases. Only W. Keeton, D. Dobbs, R. Prosser Keeton Law Torts 39, p. 243 (5th ed. restriction injury. similarly liable, absent applies, custom. distinction hand, instant other, simple. mostly centering governing points 821-822, reversed understand, necessity for, metaphysical 823-824, 7. takes citizen's having department "cause" Ante, 823. submitted jury, presence structure Ordinary throughout recognize "but for" probably condition 41, 265-266. unusual plurality. 171, 475, (1961). reads: Territory Columbia, redress." "Title '[e]very person' answerable immunities, stringently reads." Imbler Pachtman, 424 409, 417, 984, 988, 128 (1976) (footnotes omitted). 663, 2021, proposition 484-486 behalf neither detectives officers' forbidden Illinois ultra vires. Compare Petitioners O.T.1960, pp. ("The complaint virtue "), 25-27, Respondents 3. "by understood natural virtually analysis." 687, 2034. "municipal routinely sued Congress." 688, 2034 Louisville, C. C.R. Co. Letson, How. 497, 558, 353 (1844); Cowles Mercer County, Wall. 118, 121, 86 (1869). Thus William Blackstone 1765: things servant master, seem principle, master servant, command, implied: nam qui facit per alium, se. Therefore, trespass command encouragement it: excused, obey honest lawful. inn-keeper's servants rob guests, bound restitution: confidence reposed care servants, negligence implied consent robbery; nam, non prohibet, cum prohibere possit, jubet. So likewise drawer tavern sells man bad wine, whereby health injured, bring master: sell yet impliedly command." Blackstone, Commentaries *429-*430. He continued volume: "We observe, put, loser trust gainer: servant's misbehaviour, shelter punishment laying agent. uniform same; looked himself; maxim advantage wrong." *432. 1862, Limpus London General Omnibus Hurl. 526, Exchequer Chamber owner omnibus company rival driver instructions. Judge Willes wrote: omnibus, master's service, ought capable paying driving. duty defendants' obstruct moreover distinct whatever. immaterial. disobeyed, casts employment; futile secret discharge immaterial Suppose break exempt employment?" 539. Allen Decatur, Ill. 332, 335 (1860), "Governmental then, lowest, enforced. justice, sued." "That sounding lie formerly doubted, questioned. Yarborough Bank England, East, 6; Smith Birmingham Light Adolph. Ellis, 526. respect, cities towns Clark Washington, Wheaton, 40; Pick. 184. act, operating injuriously individual, previous delegation power, special, ratification fact, added.) year passed, cited "When town, tortious obtain public lawful advantage, town capacity sustained consequence done." Hawks Charlemont, 107 414, 417-418 Johnson Municipality One, La.Ann. (1850), Louisiana affirmed $600 illegal detention jail slave. acknowledged correctness "The agent day questioned." Cannon University Chicago, 441 677, 696-697, 1946, 1957-1958, 560 Patchman, 988. passage worth quoting full: created historical vacuum. deprives members familiar principles, defenses obtain, contrary." 258, 2755, Briscoe LaHue, 460 325, 330, 334, 103 1108, 1113, 1115, (1983); Pierson Ray, 386 547, 553-554, 87 1213, 1217, 288 (1967). Newport, noted: "Given punitive 'Congress wished abolish doctrine.' 555, 1218. Nothing debates abolition." 263-264, 2757-2758. 1113; Associated Contractors Carpenters, 459 519, 531, 897, 905, 74 723 475 (referring Senator Edmunds, Chairman Senate Committee Judiciary, 'The nobody to' "). 666-676, 2023-2028. 683-686, 2032-2033. 824. Shelley Kraemer, 334 13, 836, 92 1161 (1948), "Since Cases, 109 (1883), firmly embedded inhibited erects shield however discriminatory wrongful." 202-259, 492-522. 187, 484. 193, 487 (Harlan, concurring). Notwithstanding remarkable "tracks statute." 818. 823-824. 709, 6, 2045, 6. O.T.1977, 75-1914, 2035-2038. expressing today. 714, 2047 (STEVENS, part). deems characterize "holding," 818; ipse dixit describe another. plurality's response 830, 5. doctrine, wholly irrelevant ratio decidendi Carroll Lessee Carroll, 275, 287, 936 (1854); Cohens Virginia, Wheat. 264, 399-400, 257 (1821). true, Cardozo response: "I mystery me judges, world, put dicta." B. Cardozo, Nature Judicial (1921). 266-271, 2762; 650-656, 1415-1418, (1980). Marbury Madison, Cranch 163, (1803) essence liberty certainly protection whenever receives duties protection"). observer compliance helps create atmosphere conducive community serves promote enforcement Once up lines communication gain support." Traynor, Lawbreakers, Courts, Law-Abiders, Journal Bar California 458, 478 (July-August 1966). 652, 36, 1416, ("In increase attentiveness higher levels subordinates. need institute systemwide vigilance otherwise indifferent citizens' acute frontline judgment-proof capacities"). "A conscientiously job best ability rarely, ever, exposed risk Procunier Navarette, 434 569, 855, 863, (1978) Handbook Remedies (1973) relief followed procedure substance procedure").

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