Legal Document

466 U.S. 522 104 S.Ct. 1970 80 L.Ed.2d 565 Gladys PULLIAM, Magistrate for the County of Culpeper, Virginia, Petitioner,v.Richmond R. ALLEN and Jesse W. Nicholson. No. 82-1432. Supreme Court United States Argued Nov. 2, 1983. Decided May 14, 1984. Syllabus After respondents were arrested nonjailable misdemeanors, petitioner, a in Virginia county, imposed bail, when unable to meet bail petitioner committed them jail. Subsequently, brought an action against Federal District under 42 U.S.C. § 1983, claiming that petitioner's practice imposing on persons offenses law incarcerating those if they could not was unconstitutional. The court agreed enjoined practice, also awarded costs attorney's fees Civil Rights Attorney's Fees Awards Act 1976. Determining judicial immunity did extend injunctive relief 1983 prospective properly had been Appeals affirmed award fees. Held: 1. Judicial is bar officer, such as acting her capacity. Pp. 528-543. (a) Common-law principles incorporated into system should be abrogated absent clear legislative intent do so. Although there no injunctions common-law judges, parallel injunction at issue here collateral available judges through use King's prerogative writs England. history these discloses rule include from relief. 528-536. (b) fully consistent with experience. There never has absolute relief, evidence absence chilling effect independence. Limitations obtaining equitable serve curtail or prevent harassment suits by disgruntled litigants. Collateral judge, particularly raises concern relating proper functioning federal-state relations, but addressed directly matter comity federalism, independent immunity. While need restraint federal courts called upon enjoin actions state officers, support conclusion Congress intended limit way would judge. Rather, protection rights, nothing suggest expand doctrine insulate completely review. 536-543. 2. Act. made its any enforce And confirms Congress' fee even damages barred limited doctrines. 543-544. 690 F.2d 376 (4th Cir.1982), affirmed. Gerald L. Baliles, Richmond, Va., petitioner. Deborah C. Wyatt, Charlottesville, respondents. Justice BLACKMUN delivered opinion Court. 1 This case issues concerning scope civil suit seeks declaratory 1871, amended, awards 1976, 90 Stat. 2641, 1988. 2 Petitioner Pulliam Culpeper County, Va. Respondents Richmond Allen Nicholson plaintiffs Eastern Distict Virginia. They claimed Pulliam's practice. That $7,691.09 Fourth Circuit rejected claim have We agree affirm award. 3 * Respondent January 1980 allegedly using abusive insulting language, Class misdemeanor Va.Code 18.2-416 (1982). maximum penalty $500 fine. See 18.2-11(c). set bond $250. post bond, jail, where he remained 14 days. He then tried, found guilty, fined, released. trial judge subsequently reopened judgment reversed conviction. filed his claim, seeking waiting nonincarcerable offenses.1 4 incarcerated four times within 2-month period immediately before after filing Allen's complaint. His arrests alleged violations 18.2-388 (1982), being drunk public. Section which $100 18.2-11(d). Like Allen, respondent periods two six days failure bond. intervened party plaintiff. 5 it require offenses. declared violation due process equal it.2 respondents, having substantially prevailed their claims, entitled costs, including reasonable fees, accordance It directed submit request 10 App. 23. appeal this order. 6 submitted totalling $7,691.09. component figure $7,038. objections prayed "that reduce Plaintiffs fees." Id., 33. granted requested amount. 7 took order awarding her. She argued that, she absolutely immune reviewed language concluded officer Since already determined 1983,3 therefore v. Burke, II 8 certiorari case, 461 904, 103 1873, 76 806 (1983), determine, phrased question, "[w] hether Immunity Bars Award Pursuant 1988 Against Member Judiciary Acting Capacity." initial leaf petition certiorari. As recognized, answer question depends part whether bars clearly indicates provide cases officials who are awards. H.R.Rep. 94-1558, p. 9 (1976).4 indication, however, official underlying premised. Consumers Union States, Inc., 446 719, 738-739, 100 1967, 1977-1978, 64 641 (1980). Before addressing specific provisions 1988, therefore, we turn more fundamental is, capacity relief.5 III rarely awarded, Courts faced agreement does relief.6 Court, decided question.7 starting point our own analysis common law. Our proceeded assumption Pierson Ray, 386 547, 554-555, 87 1213, 1217-1218, 18 288 (1967); Tenney Brandhove, 341 367, 71 783, 95 L.Ed. 1019 (1951). Accordingly, first crucial recognized 11 At itself, thing Injunctive remedy Chancellor only parties proceedings other courts. J. Story, Equity Jurisprudence ¶ 875, 72 (11th ed. 1873). limitation injunction, says about derived immunity, substantive confines Chancellor's authority. Ibid. 12 here. writs. A brief excursion helps explain relevance officer. 13 limitations concerned related histories. Both can traced successful efforts Bench ensure supremacy over 17th- 18th-century rivals. Holdsworth, History English Law 159-160 (3d 1945) (Holdsworth). number challenged authority Among Council, Star Chamber, Chancery, Admiralty, ecclesiastical In effort assert courts, Lord Coke forbade interference equity matters triable Heath Rydley, Cro.Jac. 335, 79 Eng.Rep. 286 (K.B.1614). Earlier, Floyd Barker, Co.Rep. 23, 77 1305 (1607), colleagues Chamber prosecution competing acts. doing so, announced theory concept built. involved Barker Judge Assize presided murder trial. charged conspiracy. account "before King." 24, Eng.Rep., 1307. 15 "[A]nd agreed, insomuch Judges realm administration justice, King, all subjects, ought drawn supposed corruption, extends annihilating record, them, tending slander justice will trench scandal King himself, except himself; make God suggestion Star-Chamber." 25, 16 quoted illustrates, Coke's principle extended higher 159-160. time, expanded beyond narrow protecting rival so accorded least jurisdiction.8 Scott Stansfield, L.R.Ex. 220 (1868) (immunity county court, inferior record; reliance placed precedent extending coroner court-martial, record); Haggard Pelicier Freres [1892] A.C. 61 (1891) (judge Consular Madagascar given same record). addition, itself refined, focus shifting preserve public interest decisionmaking. Taaffe Downes, reprinted footnote Calder Halket, 12, 18, n. (P.C.1840) ("An one what done another, nature Appeal; Appeal equal. solecism . Plaintiff's independence Judges"). 17 By 1868, Exchequer explained close contemporary understanding doctrine: "It essential appointed administer permitted law, independently freely, without favor fear. provision benefit malicious corrupt public, whose liberty exercise functions independence, fear consequences." L.R.Ex., 223, Bradley Fisher, Wall. 350, n., 20 646 (1872). 19 light law's control exercised particular significance. significant included habeas corpus, certiorari, prohibition, mandamus, quo warranto, ne exeat regno. 226-231 (7th 1956). Most interesting current purposes prohibition mandamus.9 issued him exceeding jurisdiction it. 228-229. controlling meant used continues committing manner errors, departing rules natural proceeding interest, misconstruing rejecting legal evidence. Halsbury's Laws England &Par; 76, 81, 130 1973); Gordon, Observance Condition Jurisdiction, 47 L.Q.Rev. 386, 394 (1931).10 21 Examples numerous Bench, issuing writ perceived error during course generally Dobbs, Decline Jurisdiction Consent, 40 N.C.L.Rev. 49, 60-61 (1961). useful exercising since direct review tribunals. Shatter Friend, Show. 158, 89 510 (K.B.1691), example, Spiritual refusing allow defendant's proof payment 10-pound legacy, justices concluding "it unconscionable unreasonable disallow proof." 161, 512.11 22 Gould Gapper, East. 345, 102 1102 (K.B.1804), explicit implicit earlier decisions. held exceeded jurisdiction, either noncommon-law misconstrued Parliament or, otherwise than subject. fact might corrected deemed irrelevant availability prohibition. court's view, reason "[n]ot construe [the statute], mischiefs misconstruction prevented prohibition." 368, 1111.12 23 See, e.g., re Hill, Exch. 726 (1855) (prohibition he, accord, amended amount jurisdiction).13 24 continued modern times. Emerson, [1913] Ir.R. 377, instance, preventing peace, capacity, deposition, because likelihood conclude magistrate's statements indicated bias Crown. magistrate pay complaining party, leaving settle Crown indemnification. 25 relationship between precisely paralleled To extent rely shaping highly relevant. view inconsistency protected "a wide, wasting, harassing persecution," (a), exceptional cases. Nor, above, deem necessary situations alternative avenue available. supra. 26 true insulating But success less superior writs.14 IV 27 experience rejection None seminal opinions country, relief.15 No ever 6, seven Circuits affirmatively irreparable injury constitutional relief.16 28 For most part, concerns different requirements defendant showing inadequate serious risk harm, see Beacon Theatres, Inc. Westover, 359 500, 506-507, 948, 954-955, 988 (1959)17 severely harassed compromised threat defend themselves litigants.18 Similar mandamus. Because mandamus "the unfortunate consequence making litigant, obliged obtain personal counsel leave defense litigants him," stressed "reserved really extraordinary causes." Ex parte Fahey, 332 258, 260, 67 1558, 1559, 91 2041 (1947). Occasionally, "really causes" and, cases, prevents supervising writ.19 29 raised relates relations. urged, sit constant supervision whatever 30 primarily intrusion result another official. concern, immunity.20 reaffirm validity officers. simply reinterpret now stemming 31 If employ enhance further federalism foreclose where, constitutionally required harm. Absent some basis determining compelled, explicitly Congress, unwilling impose limits ourselves provided. 32 illustrated little (1967), indication affirmative congressional reach provided declined impute abrogate presumption based, Court's subsequent interpretations statute supports 33 enacted predecessor, 1866, 27, rights. considered "state harass injure individuals, powerless stop deprivations league bent abrogation federally rights." Mitchum Foster, 407 225, 240, 92 2151, 2161, 705 (1972). U.S., 558-564, S.Ct., 1219-1222 (dissenting opinion) (every spoke assumed liable 1983). 34 Subsequent Acts acknowledge unconstitutional actors, judges. 339, 676 (1880), 1875, 336, employed authorize criminal indictment excluding jury service race. reasoned Fourteenth Amendment prohibits State denying person laws. acts legislative, executive, authorities, must State's like Amendment, reached action.21 35 interpretation enacting lost force passage time. supra, exception anti-injunction statute, citing proposition "very purpose interpose people, guardians people's rights protect people color 'whether judicial.' " 242, 2162. 36 Much changed passed. longer assume act deprivation implicated deprivation. remain steadfast conclusion, nevertheless, find 37 concluding, express propriety case. opportunity consider adequate rendering inappropriate,22 narrowly tailored. On record us Appeals' assessment, speculate possibilities. proceed, succeeds V 38 insists functional equivalent monetary indisputably prohibited reasons denominated 39 perhaps, logic reasoning. weakness determine judiciary's 554, 1217. Hutto Finney, 437 678, 694, 98 2565, 2575, 57 (1978). "immunity doctrines special defenses, officials." (1976).23 1977-1978 ("The House Committee Report [§ 1988] permit defendants awards"). 41 hardly plain. Appeals, allowing 43 ordered. 44 POWELL, whom THE CHIEF JUSTICE, REHNQUIST, O'CONNOR join, dissenting. 45 today reaffirms damages, holds may sued personally money judgments form merely erroneous distinction finds eviscerates long accepted absolute. 46 recognizes established serves bulwark threats "independent decisionmaking," ante, 531. Yet, time concludes attendant claims "[f] awards." Ante, 1978. illustrates unsoundness affirms determination decisions respect pretrial detentions. Such poses decisionmaking labeled "damages" "attorney's fees" Moreover, century half ago, "action [is a] Judges." (P.C. 1840). burdens identical character degree, holding subordinates realities labels. rationale refutes 1869, consistently damages. Stump Sparkman, 435 349, 1099, 55 331 (1978); (1872); Randall Brigham, 523, 285 (1869). occasion, 735, (1980).1 immunities 19832 o§ 1988.3 We, looked reveals suggests—much requires—the draws (with liability fees) 48 earliest products law.4 finality continual attack jurisdiction5 intimidation outside interference.6 Gradually, became primary objective. source articulated vexatious litigation proceedings. observed: "If you once break down barrier subject [judges] action, let persecution. ." reference remedies 49 early echo principal justification emphasis burden litigation. 50 compelled acts, subjected necessity preserving complete produced every litigated authorities cited arguments presented, able show summoned losing integrity; second similar burden, amenable party." 349. 51 Addressing concluded: 52 'The deeply interested th[e] [of immunity], secure actions.' (quoting Fray Blackburn, B. & S. 576, 578, 122 217 (1863)). 53 emphasized repeated 1217; Butz Economou, 438 478, 512, 2894, 2913, 895 well, litigation, rather pecuniary loss, posing occasioning These apply equally conduct. immaterial sought Ray Sparkman. Indeed, today, largely ignoring motivated makes argument contrary. Unless rejected, coextensive A. 54 nevertheless argues viewed supporting concedes, must, maintained equity. 529. inequitable "to stay [a common-law] trial; verdict, judgment; judgment, execution." 874, 72. type concedes present "common-law here." analogous protects judge's provides excess jurisdiction.7 jurisdiction,8 posed none policies Thus, England's attacking jurisdiction.9 allegation jurisdiction. based solely construction application kind prohibit. B 56 observation correct errors excesses bar. "rely immunity," 536, practices consulted systems. ignores constraint. rivalry temporal spiritual induced adopt myth misapplication affects jurisdiction.10 points out, system. 535. country resorted fictional contrary, expressly fiction jurisdictional duty act. Roche Evaporated Milk Assn., 319 21, 26, 63 938, 941, 1185 (1943). Bankers Life Casualty Co. Holland, 346 379, 382-383, 74 145, 147-148, 106 (1953); Will 389 90, 103-104, 88 269, 278-279, 305 (1967). Nor expansive modified country.11 sparing American jurisprudence large Cases counseling repeatedly observed consequence" "plac[ing] anomalous position uncompensated volunteers." La Buy Howes Leather Co., 352 249, 309, 314, 290 (1957). Kerr 426 394, 402, 96 2119, 2123, 725 (1976); 384-385, 148-149; 259-260, response Rules Appellate Procedure elect appear conceding petition. Fed.Rule App.Proc. 21(b).12 Finally, prevailing First explained: 58 contrary freedom tax apprehend correctly." Haight Freese 164 F. 688, (1908). 59 Accord, Cotler Inter-County Orthopaedic 530 538 (CA3 1976). 60 sum, analogy withstand analysis. shown rests peculiar occasioned unique country. Procedure, very extraordinary, justify exposing suggests "risk litigants." 537-538. advanced optimism unavailable unless plaintiff "an harm." Again, argument. Adequate each law.13 harm Nevertheless, forced bear immunity.14 62 discussed, both identify threatening just likely scenario well stated Downes: "[Without judges] become species correction One hour bar—the next bench, busy getting station other—from accused—from corrector corrected." 20, (a). ever-present burdensome realistic today's decision, influence determinations, decision unpopular. 65 Suits pose greater specter contempt orders inhibit unbiased much point. entered unlimited duration authorizing detention certain class misdemeanor, "lawfully danger himself others," "only persists." 22. Whether "likely others" how "long [that will] last" questions normally necessarily left discretion presiding contempt—with possibility fine imprisonment—could deter courageous free intimidation.15 66 potential increases Perhaps understandable reasons, passes lightly fact, major additional enactment increased geometrically.16 facilitating encouraging citizens means pursue remedies. §§ regardless financial ability engage private counsel. lure substantial awards,17 routinely plaintiffs, assures lawyers reluctant recommend press suits.18 again reality combined prospect potentially adverse consequences I principled why providing office—articulated Court—applies types asserted principle, vital assurance detachment broader serve. Bradley, Wall., appearance, appoint counsel, advise incarceration. dismissed "he played role plaintiff." 31-32. constitutionality Code 19.2-74.1 (later repealed 1981 Va.Acts, ch. 382) retention custody receive jail sentence. contained profane swearing 18.2-388. 344. 19.2-74.A.1, authorized "believed arresting disregard summons" "reasonably believed cause person." 19.2-74 "[t]o [they] incarceration misdemeanors authorized, cannot bond." "[t]he conduct confined prior "solely inability bail," id., "[a]ny grounds lawfully others last persists cease condition created changes abates, arrangements release third-party circumstances abate danger." Timmerman Brown, 528 811, 814 Cir.1975), rev'd sub nom. Leeke Timmerman, 454 83, 69, 70 (1981). "[W]hile theoretically statutes covered H.R.15460, officials, preclude damage remedy. Consequently important adequately protected. sure, sought, ordinarily recover (Footnote omitted.) Rule 21.1(a) provides: "The statement presented comprise subsidiary fairly therein." "fairly included" presented. (1980), appeared divided examination recent pronouncements Justices Puerto Rico, 695 (CA1 1982); Heimbach Lyons, 597 344 (CA2 1979); supra; Slavin Curry, 574 1256 (CA5), vacated moot, 583 779 WXYZ, Hand, 658 420 (CA6 1981); Harris Harvey, 605 330 (CA7 1979), cert. denied, 445 1331, 772 (1980); Richardson Koshiba, 693 911 (CA9 1982). Eighth seems taken contradictory positions Compare Koen Long, 428 876 (1970), aff'g 302 F.Supp. 1383, 1389 (ED Mo.1969) (no immunity), 401 923, 877, 827 (1971), Smallwood 486 1407 (1973), opinion, 358 398, 403 Mo.) (immunity), Tate Arnold, 223 782, 786 (1955) (same). 1975, "[t]his circuit enjoying similarly relief," Bonner St. Louis, Missouri, 526 1334, R.W.T. Dalton, 712 1225, 1232, (1983). 14. Feinman Cohen, Suing Judges: Theory, S.C.L.Rev. 201, 211 demonstrated, always easy appears, seriously—offering protection—when Gwinne Poole, Lut. 935, 125 (C.P.1692), (K.B.1804). appears Mandamus anything pertained office duty. 81 1973). remove tribunal keeping effectuating Once forbidden proceed Failure suspend amounted contempt. Pound, (1941). Gordon observes constitutes abandoned, textbooks ground distinct want L.Q.Rev., 394. Harrison Burwell, Vent. 9, 86 278 (K.B.1670), void incestuous marriage man woman married great uncle. misinterpreted Levitical decree declare decree. Serjeant Dale, Q.B.D. 558 (1877) Arches bishop hearing interest); White Steele, N.R. 383, C.B. 383 (1862) (writ Canterbury until allowed introduction admitted). North, [1927] K.B. 491 (1926), vicar ordered Consistory restoration fresco caused painted over. notice heard. property heard general laws land, Blackstone, described follows: "This law; as, counties palatine principality Wales, hold plea land lying respective franchises; county-courts baron, attempt value forty shillings: christian, university chivalry, admiralty, jurisdiction: try custom pleaded, latter contract executed kingdom. Or, if, handling cognizance, transgress bounds prescribed England; witnesses prove tithes, like; awarded. For, signing release, actual payment, incident accessory original jurisdiction; differ, according spiritual, else ways, depending: impropriety, wise government endure, shall attachment punish contempt, it; lie repair injured damages." Commentaries *112-*113 (footnotes omitted). Queen Adamson, 201 (1875) (mandamus peace hear applications summons charge conspiracy grievous refusal distaste applicants' views); Marsham, Q.B. 371 evidence). Blackstone out king's writ; furtherance chancery, pleas, exchequer; parties, commanding thereof." *112 retaliate writ. (K.B.1607) (criminal conspiracy); 15, (damages assault false imprisonment); slander); (1869) removing attorney bar); (1872) improperly rolls court); (1967) conviction); 369, 1111, (1978) resulting sterilized). McLeod, 385 734 (CA5 1967) (injunction Negroes attempted register vote judge); Fernandez Trias Monge, 586 848 1978) pre-trial procedure); 1981) enforcement "gag" order, threatened violators contempt). When pending state-court proceeding, "even insufficient 'both immediate.' Younger Harris, 37, 46, 746, 751, 669 quoting Fenner Boykin, 271 243-244, 492, 493, 927 (1926). discussion 19, infra. Article imposes 17, 1982) controversy adjudicates litigant attacks statute). Los Angeles 95, 1660, 75 675 (1983) (claims too speculative). Hall West, 335 481 1964), Negro years. Courts, Louisiana segregated school passed board schools avoid desegregation, take change refused compelling plan commencement desegregation control. Attorney General 596 (CA2) vacate General), 444 903, 217, 141 (1979). dissent, post, 1986, remains risks violating Smith, Cal.App. 83 P. 167 (1905); Williams, Rob. 252 (La.1844); People ex rel. Bristol Pearson, Ill. 270 (1841). although good-faith performance responsibilities, discretion, Clement Grzezinski, 158 Ohio 22, N.E.2d (1952). O'Shea Littleton, 414 488, 94 1669, 674 (1974) (rejecting, Art. grounds, Littleton Berbling, 468 1972), devoted bulk immunity). among (1972), reaffirmed equity, comity, restrain asked proceeding." 243, performing ministerial function. went conclude, function, statute. 348-349. 502, 679. provides, appellate requiring excessive 19.2-124 corpus unlawful detention, 8.01-654 (Supp.1983). hand, short impossible avail Cf. Gerstein Pugh, 103, 110, 11, 854, 861, (1975). "[t]here effect," 13, sufficient questioning effectiveness curtailing What dissenters ignore challenge "There showing" showing. merit dissenters' insistence inherent 554-555. place, dangerousness. misapplied "practice Pet. Cert. 11. calls following More important, unclear, demonstrated intrusive, doubt tailor narrowly. contains citation refers aspect regarding qualified Executive Branch. strained interpretation. referred precluded, limited. Of three Report, preclusion Respondents' "at implied [declaratory injunctive] relief" misreads precedents. Brief 12. note Union, appellant Boyle Landry, 77, 758, 696 appellees lower lacked 669, (1974), ground. (1975), prosecutor 738, 1977, premised enjoy immunity." Similarly, diminish reign Edward (1327-1377). 234-235 (2d 1937). During medieval period, court. procedure challenging ruling file complaint "false judgment" 213-214 1956); 235. central vied local feudal authoritativeness borrowed idea 25-26 procedure, immunize attack—hence named imprisonment, suffered judgment. substantial. days, required, expense, prepare setting forth send suitors bring Bench. 26. false, amerced fined. jeopardize decisionmaking: hostile deterred considerations judging dispassionately merits them. ("A uninfluenced consideration whatsoever operating mind, contending parties; otherwise, instead abstractedly, considerable portion attention devolved himself"). supra 4, 236-237: "[I]n Case Marshalsea, 'a difference cause, proceeds erroneously, lies [against judge]. whole coram non judice, judge] lie' 68b, 76a, 1027, 1038 (K.B.1613)). 351-353 5, Holdsworth '[I]t [I]n made, while line protected.' 239, Miller Seare, Bl.W. 1141, 1145, 673, 674-675 (K.B.1777)). cites 393 (1931), misapply fail tribunal's province, wrong. former hostility toward Courts. admitted redress mere could, course, pretext prohibitions whenever applied construed approve of." (Footnotes *113-*115; N.C. L.Rev. drew none. 351-353. distinction, coupled 21(b) relevant part: desire clerk letter, thereby admitted." Columbia joined party. 157 U.S.App.D.C. 179, 183, 482 768, reasoned: "In intrinsic act, not—and desirably not—be active nominal real outcome." themselves" 542, detention. (Supp.1983) "writ forthwith court" shows probable believe unlawfully detained (emphasis added). appealing determinations "successively up Virginia." here, effect. event, (1978), depend Responding states unavailability point, showing, finding unavailable, "[n]o [injunctive] statute." 542 inaccurate. (now repealed) respondents' arrestee others. dangerousness, requires "judgment call" enjoining arrestees bond," mistaken calls" often officer's increasing accounted 8.3% total months ended June 30, 1982, 1982 prisoners 115.6% 1977 added incentive claims. Annual Director Administrative Office 100-103 Recent precipitous rise hourly rates. Blum Stenson, 465 886, 1541, 891 (1984), rates $95 $105 second- third-year associates "prevailing rates" community. recently Morrison Ayoob, 78-267 (WD Pa.1983), (fees $17,412 $5,075 relief) aff'd, 727 1100 (CA3), rehearing 728 176 Post, 973. end district approves reasonable. services rendered ongoing Regrettably, disputes reasonableness entire successive Terms. Hensley Eckerhart, 424, 1933, (1983); Copeland Marshall, 205 390, 880 (1980) (en banc); National Assn. Concerned Veterans Secretary Defense, 219 94, 1319 work petitions compensated merits. (hourly $40 $75 firm initially prosecuted claim; $45 $110 hired litigate petition).

Classification Label: 1