Document: 457 U.S. 922 102 S.Ct. 2744 73 L.Ed.2d 482 Giles M. LUGAR, Petitioner,v.EDMONDSON OIL COMPANY, INC. and Ronald L. Barbour. No. 80-1730. Argued Dec. 8, 1981. Decided June 25, 1982. Syllabus This case concerns the relationship between requirement of "state action" to establish a violation Fourteenth Amendment, action "under color state law" right recover under 42 U.S.C. § 1983, which provides remedy for deprivation constitutional rights when that takes place any statute, ordinance, regulation, custom, or usage" State. Respondents filed suit in Virginia court on debt owed by petitioner, sought prejudgment attachment certain petitioner's property. Pursuant law, respondents alleged, an ex parte petition, belief petitioner was disposing might dispose his property order defeat creditors; acting upon Clerk issued writ attachment, executed County Sheriff; hearing propriety later conducted; 34 days after levy trial judge dismissed respondents' failure alleged statutory grounds attachment. Petitioner then brought this Federal District Court alleging attaching had acted jointly with State deprive him without due process law. The held actions did not constitute as required complaint therefore valid claim 1983. Appeals affirmed, but basis failed allege conduct law purposes 1983 because there neither usurpation corruption official power private litigant nor surrender judicial such way independence enforcing officer compromised significant degree. Held : 1. Constitutional requirements apply garnishment procedures whenever officers act creditor securing dispute. Sniadach v. Family Finance Corp., 395 337, 89 1820, 23 349. And if challenged constitutes delimited Court's prior decisions, is also will support Pp. 926-935. 2. Conduct allegedly causing protected against infringement must be fairly attributable In determining question "fair attribution," (a) caused exercise some privilege created rule imposed it person whom responsible, (b) party charged who may said actor, either he official, has together obtained aid from officials, otherwise chargeable 936-939. 3. Insofar only misuse abuse cause action. Such could ascribed governmental decision, have authority officials put weight behind their decision. However, insofar statute being procedurally defective Due Process Clause, present scheme obviously product action, party's joint participation seizure disputed sufficient characterize actor" Amendment. were, therefore, participating 939-942. 4th Cir., 639 F.2d 1058, affirmed part, reversed remanded. Robert Morrison, Jr., Danville, Va., petitioner. James W. Haskins, Martinsville, respondents. Justice WHITE delivered opinion Court. 1 Amendment Constitution part: 2 "No shall make enforce abridge privileges immunities citizens United States; life, liberty, property, law; deny within its jurisdiction equal protection laws." 3 Because directed at States, can violated characterized action." 4 Title deprivations secured laws States usage, Territory. . ."1 5 * 1977, lessee-operator truckstop Virginia, indebted supplier, Edmondson Oil Co., Inc. sued court. Ancillary pursuant Va.Code 8.01-533 (1977).2 procedure allege, creditors. Acting Sheriff. effectively sequestered although left possession. conducted. Thirty-four levy, ordered petition.3 6 subsequently president. His lower courts construed both itself.4 He compensatory punitive damages specified financial loss improvident 7 Relying Flagg Brothers Brooks, 436 149, 98 1729, 56 185 (1978), relief granted appealed; Fourth Circuit, sitting en banc, three dissenters.5 1058 (1981). 8 rejected reliance finding requisite missing case. executing sufficiently distinguished Brothers. stated issue follows: 9 "[W]hether mere institution presumptively proceedings, subsequent collusion concerted proceed adjudicative, administrative, executive enforcement contemplation 1983." F.2d, 1061-1062 (footnote omitted). 10 acts directly larger context those occurred, including direct While latter no doubt amounted former so clearly meaning been thought none these elements here, 11 construction under-color-of-state-law appears inconsistent decisions Court, we certiorari. 452 937, 101 3078, 69 951 II 12 Although correctly perceived importance proper resolution case, misread case.6 It give line cases, beginning 349 (1969), considered attachments. See North Georgia Finishing, Di-Chem, Inc., 419 601, 95 719, 751 (1975); Mitchell T. Grant 416 600, 94 1895, 40 406 (1974); Fuentes Shevin, 407 67, 92 32 556 (1972). Each cases involved implicit predicate application standards. them ground each overt, involvement deprivation; overt U.S., 157, S.Ct., 1734. falls Sniadach, Brothers, side distinction, irrelevant arose distinguishable.7 determined ignore all whether rather 13 As see it, however, two concepts cannot easily disentangled. Whether they are identical not, state-action related.8 Indeed, until recently distinguish all. 14 Price, 383 787, 794, n. 7, 86 1152, 1157 n.7, 16 267 (1966), explicitly were identical: "In 'under color' consistently treated same thing 'state action' Amendment."9 proposition cited Smith Allwright, 321 649, 64 757, 88 L.Ed. 987 (1944), Terry Adams, 345 461, 809, 97 1152 (1953).10 black voters Texas exclusion primaries Fifteenth 43 (1946 ed.).11 understood problem before discriminatory policy political association Amendment." Smith, supra, 664, 765.12 Having found Constitution, further inquiry into associations met law." 15 Similarly, clear identical. conclusion Classic, 313 299, 326, 61 1031, 1043, 85 1368 (1941), "[m]isuse power, possessed virtue made possible wrongdoer clothed taken of' law," founded announced Ex 100 339, 346-347, 25 676 (1880), exceeds limits Amendment.13 decision rests misreading action: 17 "[Plaintiffs] first bound show deprived 'secured laws' States. They secondly statute' New York. denote separate areas inquiry. Adickes S. H. Kress & 398 144, 150 [90 1598, 1604, 26 142] (1970)." 155-156, 1732-1733. 18 Plaintiffs' foundered requirement. Clause protects individuals plaintiffs demonstrate sale goods accomplished concluded sale, authorized amount set aside Appeals' contrary judgment. 19 There reason address expressly eschewed deciding satisfied Id., 156, 1733. "separate inquiry," hold suggest present, satisfy Nevertheless, relied conclude necessarily We do agree. 20 two-part approach referred derived 150, 90 142 (1970). party, based racial discrimination Equal Protection stating plaintiff "of 'Constitution States" defendant State," ibid., conspiracy discriminate would essential rights" " statute." 152, 1606.14 our "can liable 1983," part 1157, (quoted above). novel 1983.15 B 21 difficult reconcile congressional purpose enacting 22 Beginning (1975), state-created procedures; (1974), execution vendor's lien secure agents aided property; federal litigation debtor named party. entertained adjudicated defendant-debtor's standards process. Necessary holding use help (1972), Attorney General. declaratory injunctive relief, grounds, continued statutes authorizing replevin. prevailed; correct parties. Yet remained parties, judgment ran Court.16 24 If state-court collection proceedings successfully challenge, creditor's resort understand why behavior should provide creditor-plaintiff violates debtor-defendant's seizing accordance procedures, little designed redress just violations. To read statute" language Act impose limit violations redressed wholly Civil Rights 1871, Stat. 13, derived. passed "for express 'enforc[ing] Provisions Amendment.' Lynch Household 405 538, 545, 1113, 1118, 31 424 history replete statements indicating Congress creating broad affords individual. Perhaps most statement Senator Edmunds, manager bill Senate: "[Section is] very simple really reenact[s] Constitution." Cong.Globe, 42d Cong., 1st Sess., 569 (1871). Representative Bingham similarly bill's "the behalf every individual citizen Republic extent guarantied App. 81.17 sum, drawn substantially undercut providing 1983.18 III 27 matter substantive reflects recognition fact "most governments," Jackson Metropolitan Edison 345, 349, 449, 453, 477 (1974): 28 1883, Cases, 109 [3 18, 835], dichotomy forth [the Fourteenth] State, subject scrutiny provisions, conduct, 'however wrongful,' offers shield." 29 Careful adherence preserves area freedom limiting reach power. avoids imposing agencies responsibility blamed. A major consequence require respect own governments interests. good bad policy, fundamental order. 30 Our accordingly insisted These reflect attribution." First, responsible. Fuentes, Grant, Georgia, example, provided garnish obtain well exercised. Second, actor. Without this, parties face seek rely governing interactions community surrounding them. related, principles same. collapse other whose character lend decisions. Monroe Pape, 365 167, 172, 81 473, 476, 492 (1961). diverge apparent authority, i.e., difference inquiries illustrated comparing Moose Lodge 107 Irvis, 163, 1965, 627 supra. Lodge, practices appellant violate focused primarily admittedly decision.19 inquiry, looked policies adopted applied appellant. 33 "We hold, exception hereafter noted, operation regulatory enforced Pennsylvania Liquor Control Board does implicate guest ambit 177, 1973. words, decision; affect unconnected policies.20 35 component principle. warehouseman proceeded York Uniform Commercial Code, 7-210, constitutionality provision Clauses Undoubtedly responsible statute. response terms suit: Action something more, justify characterization actor." suggested "something more" convert actor vary circumstances simply articulated number different factors tests contexts: e.g., "public function" test, (1953); Marsh Alabama, 326 501, 66 276, 265 (1946); compulsion" 170, 1615; "nexus" Burton Wilmington Parking Authority, 715, 856, 45 (1961); attachments, "joint test," 1734.21 actually ways characterizing fact-bound confronts situation need resolved here. Burton, 722, 860 ("Only sifting facts weighing nonobvious attributed true significance"). IV 36 Turning claimed resulted having source authority. second whether, respondents, appropriately actors." Both noted ambiguous scope contentions: "There considerable confusion throughout Lugar's ultimate unconstitutional itself erroneous him." 1060, ambiguity necessary disposition case: favor view attacking misapplication. view, 37 presented counts complaint. Count pendent tort one Clause. "malicious, wanton, willful, opressive [sic], [and] unlawful acts." By "unlawful," apparently meant "unlawful say complained rather, relevant Nor fall doctrine recognized That invoked two, challenges 38 matter. count describes followed obtaining burden summarily states sequence events referring agree better reading Amendment.22 39 describe procedural restraints properly addressed element well. discussion Part II, 1605-1606, deprivation: 41 'Private persons, engaged prohibited color" accused enough willful participant activity agents,' quoting 1157. erred participation" more than invoking take advantage procedures. conclusions reached applicability Whatever contexts, system whereby attach summary, through action; deprivation. statute; statute.23 44 remanded consistent opinion. So ordered. Chief BURGER, dissenting. 46 dealing suits my same: Rendell-Baker Kohn, 830, 838, 2764, 2770, 418. Applying standard, State.* invoke available dubious "but for" analysis, erroneously concludes steps putative debtor's transforms commences lawsuit secures which, even temporary, injury defendant. Invoking process, course, implicates transform essentially Dennis Sparks, 449 24, 183, (1980). trade profession, drives automobile, builds house license engaging state. instant lies malicious prosecution. expands beyond anything intended Congress. too casually falling semantical trap figurative term "color POWELL, REHNQUIST O'CONNOR join, 47 Today's disquieting example how expansive decisionmaking ensnare believe strict began nearly five years ago outgrowth Respondent—a small wholesale oil dealer Southside, Va.—brought Lugar, owner pay debt.1 collect indebtedness. Fearful dissipate assets collected, respondent petition seeking sequestration assets. traceable least 1819, permits creditors possession debtors.2 No questioned validity remains valid. duly Sheriff it. allegation conspired fair 48 Respondent ultimately prevailed lawsuit. Lugar debt. find, attached underlying 49 Following instituted legal Western Virginia. Suing respondent—by filing court—had Amendment—an create enforceable citizens, assumed be, 837, 2769, 418; Bros., 1733, (1978); Shelley Kraemer, 334 1, 68 836, 842, 1161 (1948); 3, 11, 21, 835 (1883).3 agreed sensibly belong 50 today reverses courts. holds respondent, commence kind traditionally initiated thereby unprecedented implausible. plainly unjust makes argument contrary. Respondent, represented counsel, notion court, effort payment debt, Commonwealth analysis mode prescribed cases. On contrary, undermines distinctions common-sense categories 51 plain establishes jurisdictional requisites actionable claim. "secured laws" compels presence "these inquiry." 1605, 52 demonstrates required. Here manner while sue agents. identified Bros.: "causing" rights.4 Consistently past respondent's occurred 53 Rejecting reasoning Appeals, inexplicably conflates mandated Bros. Ignoring involves sets actions—one merely accompanying petition; another lien—it wrongly frames "whether actors.' Ante, 939. may, theory invokes procedures" participant" "The rule," asserts, 54 "Private agents." 941, turn 1156, (1966). 55 fallacies conclusion. quotation, established participants" themselves become actors. Where interact pursuit ends, appropriate generally standard legitimate ends. (1961), historic prevent using cloak Amendment.5 important wrongful "conduct State." 941. But still question: question, unasked reveals fallacy accountable actor."6 From occurrence follow became was. today, never endorsed non sequitur. 57 course unconnected. "[t]hat responds [private] [taking own] render actions." Blum Yaretsky, 991, 1005, 2777, 2786, 534. 164-165, 1737-1738; 357, 456-457, (1974). where behave way, See, 1004-1005, 2786; 172-173, 1971-1972, "[r]espondent's choice allowed initiative comes doing 58 amenable "jointly engaged" rights. (1970).7 advancing theory, cite single Even quotation principally relies applicable "rule," ante, refer Rather, "[p]rivate 59 distinction sound supportive "private" government limitations notes: "Careful blamed." 936. 60 acknowledges individuals, personally wrongs occur. confuse actors State—the involving petitioning liability I turn. Contrary position invocation "conspiracy" satisfying (1980), corruptly conspiring defraud. holding, "merely resorting winning co-conspirator judge." 28, 186. reinforced recent Polk Dodson, 454 312, 445, 70 509 defense criminal defendant, "essentially function office needed." 319, 450. independent, occur law.8 nevertheless advances principal 62 argues supported specifically (1969); (1972); (1975). According statute.9 fact, careful proposition. 63 Of Mitchell, Di-Chem attacks statutes. None creditor. suit, unnecessary consider creditor, instituting garnishment, word characterizes creditor.10 General.11 Again, occasion status discusses this. andDi-Chem, thus fails represents law—even unconstitutional. addition relying statutes, restaurant local police her treatment public accommodation. 153, 1605-1606. Reversing below, upheld "conspiring" custom segregation, 'joint agents' 1606 (quoting 1156). 65 suggestion Harlan's purport define Attending closely presented, observed "[w]hatever else [a] think knowledge 162, 23, 1611, (emphasis added). indicated language, seems contemplated summoning ordinarily "conspiracy." Nor, presumably, risking amenability Surely nothing indicate kind. distinguishable hypotheticals, current not. 1964, Brown Education, 347 483, 74 686, 873 (1954), decade publicized wake. intense national focus issues discrimination, virtually inconceivable innocent customs Harlan wrote, "[f]ew firmly stitched fabric race companions, compel encourage segregation." 151-152, 1605. Construed resting basis, conspires enjoy presumption validity. context, hiding rights.12 Here, conspiracy. known constitutionally invalid.13 Finally, compelled lived. inapposite. 67 unjust.14 time full: "Every who, Territory, subjects, causes subjected, thereof rights, privileges, laws, injured equity, proceeding redress." At section codified 8-519 (1973). entry sold answer motion dismiss abstention "[n]o made." Plaintiff's Memorandum Opposition Motion Dismiss responded "[D]espite plaintiff's protests challenging Virginia's Pet. Cert. 38. agreed. (CA4 1981). originally argued three-judge panel. sua sponte, rehearing banc. POWELL suggests "consistent cases." Post, 946. opposite. precisely majority earlier cases: "This total absence distinguishes restrictions creditors' remedies." point mentions aspect method adopt (1970), seemingly approved Joint accomplish interest Shevin defendants included General, court's "private nominal relief." 1068, 22. Judge Butzner, dissent, controlling. basic patterns litigation—that party—there Only stated, arise requirements. indictment "allege[s] 'private' action,' [it alleges] [18 U.S.C.] 242." 7. 185, 242 Besides Supreme concept satisfies Simkins Moses Cone Memorial Hospital, 323 959 1963); Holiday Inns, 336 630 (CA6 1964); Hampton City Jacksonville, 304 320 (CA5 1962); Boman Birmingham Transit 280 531 1960); Kerr Enoch Pratt Free Library, 149 212 1945). discrimination. private-party Once met, sought. ed.) reclassified 1952. Adams. All opinions reversal pose Jaybird Democratic Association, constituted prove Classic involve directly; interpreted (then (1940 ed.)), counterpart 9, contained following statement, 1611 23. "Whatever definition trespass factual showing of, to, made. BRENNAN, writing separately, "when alone, shown needed 210, 1630 conjunction whatever BRENNAN's rested, much less what majority. POWELL's confuses respondent—a party—and "(1) 'to [petitioner] service accommodation'; (2) arrest 'on false charge vagrancy.' 149-150, 1604. count, she "custom segregate races eating places." "petitioner abridgment right, proves refused state-enforced custom." 171, 173, 1615, 1616. wrong summarizes "a validity." 954-955. Adickes. Unless vagrancy unconstitutional—an Adickes—the "plainly unconstitutional" find incomprehensible 950. Likewise, post, 952-953, steadfastly ignores challenge adequacy principle coupled warrants debate over 1871 Act, officially described "to provisions fourteenth amendment purposes." also, remarks Trumbull describing House passing Act: "[A]s Representatives, members body go protect persons States," 579 (1871); Shellabarger id., 68. [state law] means "with statute," n.23, itself, add already contain issue, distinct implicitly particular right. County, defender's actions, performing lawyer's traditional functions counsel proceeding, suit. analyzed light Amendment: "Although sometimes questions identical, decide case." 322, n.12, 451, n.12. defender, employee, day-to-day client, canons professional ethics role adversarial Accordingly, employment infra, "peculiarly difficult" detect 320, 451. claims "failed arguably Sixth, Eighth, Amendments." 454. allegations proposed below. Infra, 937. Thus, outcome County. 175, 1972. "one exception" illustrates point. enjoined requiring comply constitution bylaws racially provisions. rule, judicially administratively, would, circumstances, policy. participation' 'conspiracy' 951. above clear, limited nature oral various times seemed see, Tr. Oral Arg. "[t]he taken, law—whether rights." 19. concerned innocently unconstitutional, consequences actions. dealt changing establishing affirmative defense. similar concern partially availability good-faith defense, qualified immunity, officials. juncture. What Adickes, 174, n.44, 1617, confronted today: intimate views concerning shown. briefed remedial issues, proved best explored instance below new record developed remand. mean determine juncture defenses like hand. Cf. Pierson Ray, 386 547 [87 1213, 288] (1967)" (citations pleadings amply solely acts. "conclusory allegations," 5, lacked "factual basis" 10, "good support" name $41,983 products merchandise previously delivered. Co. president, Barbour sole stockholder 2, litigation, 26, respondent. et seq. (1977). form despite numerous recodifications since 1819. (1950); 6378 (1919); 2959 (1887); Va.Code, ch. 151 (1849); 123 (1819). provided: Phillips' excellent banc defined 1981) capacities, lawful E.g., 171-172, 475-476; (1880). "clothed authority" gives perpetrate prevent. (1941); 676. (1981) (a representing indigent client performs needed, attorney's roles). 928, quotes "[i]n (if alleges law'. ."). quite different. Sheriff—action Price. real here Price resolve question. relies, used connote engagement 152-153, avers "is attachment." 939, n.21. However welcome, limitation lacks principled basis. unclear engages papers (e.g., injunction), investigate suspected crime. stage averred raised statutes." n.1. finds embracing today. Di-Chem—as case—there occurred. There, State—an undisputed actor—had undertaken wages. For ipso facto viewed Given inquire so. arising consolidated facts, Epps Cortese, F.Supp. 127 (E.D.Pa.1971). Arguing patent unconstitutionality charges 932, n.15. understand. "deprive accommodation," n.5, legally baseless invalid face, "did 'plainly unconstitutional' not." wrong. place, agreement segregation restaurants. Further, certainly segregation. Presumably reasons "conspir[ed]" police. entirely bar. scholarly commentator cautious Brabham, Through Backwards: An Analysis Attachment Detinue Statutes, U.Rich.L.Rev. 195-199 correctness posture case's resolution. entitled immunity civil damages. 942, n.23. positive mitigate cost litigation. one. years. now proceedings. undertook assert subjected expense, distractions, hazards protracted

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