Legal Document

522 U.S. 156118 S.Ct. 523139 L.Ed.2d 525 CITY OF CHICAGO, et al., Petitioners,v.INTERNATIONAL COLLEGE SURGEONS al. No. 96-910. Supreme Court of the United States Argued Oct. 14, 1997. Decided Dec. 15, Syllabus * Following Chicago Landmarks Commission's preliminary determination that two respondent ICS's buildings qualified for protection under city's Ordinance, city enacted a Designation Ordinance creating landmark district included buildings. ICS then applied to Commission permits allow demolition all but facades The denied permit applications. filed actions in state court Illinois Administrative Review Law judicial review decisions, alleging, among other things, ordinances and manner which conducted its proceedings violated Federal State Constitutions, seeking on-the-record decisions. Petitioners (collectively City) removed suits federal on basis question jurisdiction. District consolidated cases, exercised supplemental jurisdiction over law claims, granted summary judgment City, ruling were consistent with Constitutions findings supported by evidence not arbitrary capricious. Seventh Circuit reversed remanded court, lacks case containing claims local administrative action. Held: A action violates law, also findings, can be court. P. ___. (a) properly recognized it could thus exercise claims. Defendants generally may remove "any civil brought [federal] courts . have original jurisdiction.'' 28 U.S.C. §1441(a). courts' encompasses cases "arising Constitution, laws, or treaties States,'' §1331, an satisfies this requirement when plaintiff's well-pleaded complaint raises issues Metropolitan Life Ins. Co. v. Taylor, 481 58, 63, 107 1542, 1546, 95 55. complaints raised number such form various constitutional challenges Ordinances, proceedings. Once was removed, before statute. That statute provides, "in any jurisdiction, the[y] shall part same controversy.'' §1367(a). Here, are legal "claims'' sense term is used denote judicially cognizable cause action, they derive from common nucleus operative fact, see Mine Workers Gibbs, 383 715, 725, 86 1130, 1138, 16 218. Pp. ___-___. (b) argument lacked because contained requiring deferential, decisions stems erroneous premise those must "civil actions'' within "original jurisdiction'' §1441(a) removal purposes. Because case, Court's derives satisfy §1441(a)'s requirements. Having established relevant inquiry respecting accompanying whether fall court's turns §1367(a)'s proposed approach would effectively read out books: whole point pendent as lacking. (c) This disagrees reasoning extent means suggest claim involving deferential decision never "so related [it] form[s] controversy'' purposes While Congress establish exception statute, written, bears no construction, confers without reference nature review. Nor do Chicago, R.I. & P.R. Stude, 346 574, 581, 74 290, 295, 98 L.Ed. 317, Horton Liberty Mut. Co., 367 348, 354-355, 81 1570, 1573-1574, 6 890, require equivalent into To these might limits scope address only diversity §1332, cases. Even assuming, arguendo, latter question, both indicate See supra, at 578-579, S.Ct., 293-294; Horton, 352, 1572-1573. (d) §1367(a) authorizes does mean decline interests economy, convenience, fairness, comity. Carnegie-Mellon Cohill, 484 343, 357, 108 614, 622-23, 720; 726-727, 1139-1140. enumerates situations refuse §1367(c), taking account factors circumstances particular character governing relationship between obligated decide (or stay their adjudication) where one abstention doctrines applies. See, e.g., Quackenbush Allstate 517 706, ----, 116 1712, 1721, 135 1. (e) contentions principles required should done so left first instance. 91 F.3d 981, remanded. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., SCALIA, KENNEDY, SOUTER, THOMAS, BREYER, JJ., joined. GINSBURG, dissenting opinion, STEVENS, Benna Ruth Solomon, IL, petitioners. Richard J. Brennan, respondents. Justice O'CONNOR Court. 1 like municipalities throughout country, has ordinance provides designation historical landmarks. Municipal Code, Art. XVII, §§2-120-580 through 2-120-920 (1990). administered Historical Architectural (the Commission). Pursuant Law, Ill. Comp. Stat., ch. 735, §§5/3-103, 5/3-104 (Supp.1997), final municipal landmarks commission lies circuit In we asked consider lawsuit Cook County contains 2 Respondents International College Surgeons Section ICS) own properties North Lake Shore Drive Chicago. July 1988, made seven Drive, including mansions properties, Ordinance. June 1989, council Ordinance) designating district. 3 February after determination, executed contract sale redevelopment properties. called developer, whose interest since been acquired Robin Construction Company, demolish construct high-rise condominium tower. October 1990, necessary designated landmark. applications, finding "adversely affect destroy significant architectural features [landmark] district.'' App. 49. reapplied provision allowing exceptions economic hardship. again did qualify hardship exception. 4 each pursuant Law. Both face applied, violate Due Process Equal Protection Clauses effect property just compensation Fifth Fourteenth Amendments, rights due process equal protection. sought relief Constitution well denying permits. 5 defendants City), who petitioners lawsuits Northern After dismissing some exercising favor Ordinances record capricious.1 Appeals concluding 981 (1996). began analysis construing 317 (1954), 890 (1961), "the action'' assessing F.3d, 988. reasoned that, while Stude conduct de novo agency subject removal, propriety removing still open question. Relying Courts interpret determined appellate function "inconsistent 990 (citing Fairfax Redevelopment Housing Authority W.M. Schlosser 64 155 (C.A.4 1995), Armistead C M Transport, Inc., 49 43 (C.A.1 1995)). Accordingly, concluded, proceeding standard §1441(a), cannot removed. 990. 7 case. observing novo, reviewing accept agency's fact presumptively correct hear new evidence. Id., 991-992 (discussing §5/3-110).2 Of complaints, explained, as-applied requesting bound record, facial independent removable if alone. addressed whether, "when involves alone, [and] clearly grounded entire possible.'' 993. ruled involve review, termed jurisdiction' meaning of'' 994 (quoting §1441(a)). 8 We certiorari courts. 520 117 1424, 137 534 (1997). neither jurisdictional statutes nor our prior lacking circumstances, now reverse. II 9 reviewed several occasions initially 1Caterpillar Inc. Williams, 482 386, 391-392, 2425, 2428-2430, 96 318 (1987); 55 Franchise Tax Bd. Cal. Laborers Vacation Trust Southern Cal., 463 1, 7-12, 103 2841, 2845-2848, 77 420 (1983). As general matter, appropriate depends originally Caterpillar 392, 2429-2430; Bd., 8, 2845-2846. States.'' §1331. "It long settled arises law.'' 1546. 10 there It true, asserts, way created namely, Howard Lawton, 22 Ill.2d 331, 333, 175 N.E.2d 556, 557 (1961) (constitutional review). however, " [e]ven though creates [a party's] causes "arise under' laws right requires resolution substantial Board, U.S., 13, 2848; id., 27-28, 2856 (case "federal necessarily law''); Gully First Nat. Bank Meridian, 299 109, 112, 57 96, 97, 70 (1936) (federal exists "right immunity [is] element, essential one, action''). turn exclusively unquestionably fit rule. errs relying principle plaintiff, master complaint, "choose heard court.'' 398-399, 2433. By raising arise subjected itself possibility City ibid. 11 adhered ancillary questions carries "derive fact,'' [the federal] conclusion comprises "case.''' 218 (1966); Hurn Oursler, 289 238, 53 586, 1148 (1933); Siler Louisville Nashville R. 213 175, 29 451, 753 (1909). codified combines heading. §1367. controversy Article III Constitution.'' applies force there; "of §1441(a); CarnegieMellon Univ. 350-351, 619-620, 720 (1988) court). 12 once had arising constitute "other think clear do. "claims,'' context And unsuccessful efforts obtain Commission. (barring express statutory exception, §1367(a)). seemed recognize much amended following stating nonfederal "are 143. conclude, short, B 13 ICS, urging us adopt Appeals, argues contain calls 14 starts premise. not, submits, court: Those suffice make removal. acknowledged "if Nothing suggests presence somehow alters virtue 15 turns, discussed, §1367(a); n. 12, (distinguishing issue qualifies Laws States' "case' purposes''). approach-that determine jurisdiction''-would dissent attributes different line ICS. Post, __. argument, roughly speaking, lie 42 §1983, range beyond record; deliberately confined them thereby assuring forum. Brief 21-26. solely §1367(a)-which presupposes jurisdiction''-is inapplicable. 15-21. 17 incorrect (its claims), 529, because, supra 529-530, under'' New Orleans Public Service, Council Orleans, 491 350, 372, 109 2506, 2520-2521, 105 298 (1989) ("a challenge allegedly unconstitutional zoning ordinance'' "which assuredly courts''). although nonetheless questions. 20-21, 26. Understandably, rest proposition notion insubstantial Merrell Dow Pharmaceuticals Thompson, 478 804, 817, 106 3229, 3236-3237, 92 650 (1986); Duke Power Carolina Environmental Study Group, 438 59, 70-71, 2620, 2628-2629, 595 (1978); 1138. follows, then, view lack even mistaken idea-embraced below, 993-994, 14-that other, take entirety (including claims) rationale ultimately devolves ascribe it: order 18 courts, disagree reasoning. There nothing text indicates determination. Instead, "all claims'' course construction. 19 principally relies, -to either jurisdiction-address 20 instance, railroad company challenging amount condemnation assessment attempted separate routes. First, second, appeal undertook directly upheld dismissal, eminent domain pending improperly "separate damages try apart substantive arose.'' 582, 295. emphasizes observation interlocutory "does sit taken administratively proceeding.'' remark, turned novo. decision, makes 21 Moreover, reading statement broadly conflict treatment second case: railroad's attempt With respect held improper plaintiff But observed defendant Court.'' 294; Allegheny Frank Mashuda 360 185, 195, 79 1060, 1067, 1163 (1959) ("Although holding grounds he proceeding, [in Stude] accordance §1441 adjudication involved''). If anything, effect, workers' award. bulk addresses central suit satisfied amount-in-controversy threshold 352-354, 1572-1574; 355-363, 1574-1579 (Clark, dissenting). alleged, based order, simply responded [a]side many distinctions need pointed out,'' "trial novo'' proceeding. 1573-1574. purport hold precondition 23 Any negative inference drawn aspect assuming speaks (and diversity) insufficient trump absence indication all, routinely questions, Califano Sanders, 430 99, 105-107, 97 980, 984-985, 51 192 (1977). precisely brand determinations. Cf. Board Ed. Hendrick Hudson Central School Dist., Westchester Cty. Rowley, 458 176, 206, 102 3034, 3050-3051, 73 690 (1982) (interpreting Individuals Disabilities Education Act, §1415(e), contemplates action). 24 unclear exactly why, application passing terms §1367(a), which, view, resolve light, dissent's candid misgivings about attempting square position statutes, post, __, __-__, understandable. failure come grips explains repeated assumption, different. "supplemental'' answer we, substantiate "original'' §1332. Ultimately, presented: §1331 25 course, say authorize Our "is doctrine discretion, right,'' 726, 1139, valid reasons, 619 ("As articulated flexibility, designed deal most sensibly accommodates concerns values''). indicated "district [should] best serves comity underlie doctrine.'' 623. 26 codifies principles. establishing confirms discretionary enumerating exercise: 27 subsection if- (1) novel complex (2) substantially predominates 30 (3) dismissed 31 (4) exceptional compelling reasons declining §1367(c). 32 Depending host factors, then-including claims-district reflects understanding deciding "a weigh every stage litigation, values comity.'' 619. decided served Pet. Cert. 45a-46a. 33 addition discretion embody otherwise forum serve important countervailing interest, example warranted considerations proper adjudication, regard federal-state relations, wise administration.'' (1996) (citations internal quotation marks omitted). recently outlined principles, ibid., elaborate here except note abstain determinations prerequisites satisfied. IV 34 contends alludes contention below refused matters, preferable reverse remand further opinion. 35 ordered. 36 whom STEVENS joins, dissenting. 37 now-federal originated denials classically character-on Nevertheless, decides today shifted tribunal instance option party-plaintiff approves enlargement authority explicitly federal-question inescapable implication "neither lacking.'' Ante, 38 authorization cross-system appeals watershed decision. today, litigants asserting lodge direct (county municipal) agencies, boards, commissions. Exercising authority, superintend agencies affirming, reversing, modifying rulings. 39 relies words found §§1331 1332: "The '' Then, linchpin, 1990 codification expansion, §1367, what previously known "ancillary "pendent Specifically, stresses broad "supplemental related'' "form [Article III] ante, __-__.1 bare §§1331, 1332, 1367(a) For advanced I construe prescriptions, allocation business embrace category here. 40 expansive reading, my judgment, takes far anything conceivably meant. Lynch Overholser, 369 705, 710, 82 1063, 211 (1962) ("The repeatedly warned against dangers construction confines "literalness strangle meaning.' '') Cross-system appeals, introduced system, stem National Legislature's considered explicit accord views large majority judges unauthorized Congress, affirm Circuit's judgment. 41 Until almost 1332 displace forums actions. recalled historic understanding: 295.2 entrusted said Rooker Fidelity 263 413, 44 149, 68 362 (1923), outside lower Interpreting predecessors 1257, modify Indiana authority. 416, 150. Today, holds enacting authorized whenever pended Dismissing, irrelevant distinction easy access dissatisfied party requisite diverse citizenship. despite overwhelming weight disclaiming hint startling reallocation power national lawmakers' contemplation.3 catalog Circuit's, overrides: Volkswagen Puerto Rico, Rico Labor Relations 454 F.2d 38, 1972) (permitting "would place posture vis-a-vis non-federal agency''); 43, 47 1995) sitting power, supplementary equitable control state's tribunals.''); Frison Franklin Ed., 596 1192, 1194 1979) (District declined state-law "because essentially petition rather than distinct relief''); Auth. 155, 158 ("Because jurisdiction,' "an tribunal,' and, thus, "to proceeding,' [under §1332] Executive's finding.'') omitted); Labiche Louisiana Patients' Compensation Fund Oversight 69 21, (C.A.5 ("We [28 §§1330-1368] none agency.''); Shamrock Motors, Ford Motor 120 196, 200 (C.A.9 1997) ("When nature, proceedings.''); Trapp Goetz, 373 380, (C.A.10 1966) (Under proceeding.''). Indeed, research discloses single approved Range Oil Supply 248 477, 478-479 (C.A.8 1957) warehouse perfected Ninth Motors: [T]he prospect jarring quickly embraced matter policy.'' 200. habeas corpus closest §§2241-2254.4 Unlike endorses, entail authority's Lambrix Singletary, ---------, 1517, 1522-1523, 771 Notably, providing great care avoid interrupting intruding upon state-court processes. §2254(b)(1) (requiring exhaustion remedies filing writ corpus). "Chicago'' supplant State's scheme 45 When actor person's right, indeed true aggrieved bring §1983 exhausting remedies. Patsy Regents Fla., 457 496, 516, 2557, 2568, 172 (1982). disregard, does, separateness adjudicatory systems. state) inquires person, acting color another deprivation rights, privileges, immunities secured laws.'' exercises original, appellate, jurisdiction; proceeds independently, reviewer record. now-Chief Judge Posner explained: 46 [A] adjudicative component. begin action.'' Hameetman 776 636, 640 (C.A.7 1985). reach result, perform [t]hose actions' courts.'' Measuring today's disposition concerning up 528, 2. 48 parties' contending parties injured worker insurance carrier worker's employer. At stage, Texas Industrial Accident award $1,050. Neither side insurer maintained entitled compensation, urged his entitlement maximum $14,035. first, court; week later, dismissal insurer's alternative grounds: meet §1332's monetary (then excess $10,000''); "nothing more order'' "no orders, 354, met, federal-court "appeal,'' therefore barred described it, "held "taken proceeding.''' 1574 294-295). On room debate. commences, vacated determines liability 355, 1574, 15. set aside proceeding-it ""a suit, appeal.''' Booth Employers' Assn., 132 Tex. 237, 246, 123 S.W.2d 322, 328 (1938)). 50 Remarkably, asserts "suggest[ed] __; __ Horton] jurisdiction.''). casts critical difference fresh tied hierarchy, fairly character. If, inconsequential, may, must, entertain cross-system, decisions-without question-whenever citizenship noting 983-985, (1977), [of action] questions.'' Just routinely, appears, "conduct [diversity cases].'' 52 homogenization rests Sanders. longstanding division §10 [Federal] Procedure Act (APA), §§701-704, ranked grant subject-matter controversy. APA afford implied permitting 107, 985. action-when prescribed route specifically excluded review-would persist. dropped "fill[ing] void.'' 106, deleted, assure fidelity presumption 105-106, 983-985; Abbott Laboratories Gardner, 387 136, 141, 87 1507, 1511-1512, 681 (1967) (courts nonreviewable "only showing "clear convincing evidence' contrary legislative intent''); Barlow Collins, 397 159, 166, 90 832, 837-838, (1970) (" [J]udicial rule, nonreviewability demonstrated.''). Whatever reason rule implicit Sanders -that engage on-the-record, §1331-Chicago homes language. 11, 30, 39. 1331 reads: jurisdiction,'' urges, bill, i.e., 54 things other. identical comport Chicago's well, recall sage grave warning: tendency assume word appears rules, connection purpose, them, runs discussions. tenacity sin constantly guarded against.'' Cook, "Substance'' "Procedure'' Conflict Laws, Yale L.J. 337 (1933). Cases States'' compose collection smaller fitting similarly worded Clause "Cases States, Treaties made.'' Mottley, 152, 42, 126 (1908); Shoshone Mining Rutter, 177 505, 513, 729, 864 (1900). Diversity complete proceed Strawbridge Curtiss, Cranch 267, 268, 435 (1806), "minimal'' interpleader §1335, Farm Fire Casualty Tashire, 386 523, 530-531, 1199, 1203-1204, 270 (1967). 56 Significantly, ordinarily available person complains fixed mentioned relation concluded history meant fill interstitial gap,'' 985, accountable making Statutes provide picture confronted void fill. gap attended-the "nonstatutory'' unless provided one-simply exist measure resist mandate 58 last Term, Members vital developing elaborating regulates citizen's contact government turn, example, gaining life-sustaining public benefits, obtaining license or, receiving permit. Last Term's lead observed: 59 "In ongoing work reflect rules traditions respective elaboration primary responsibilities judiciary. Where, here, invoke strong integrating sources system officials.'' Idaho Coeur d'Alene Tribe Idaho, 521 2028, 2038, 138 (1997) (principal joined C.J.). 60 Today's jeopardizes "strong interest'' controlling agencies. superintendence displaced dislodged Amendment plea made. 61 insists escape erosion Its explanation less compelling. describes "ICS's approach.'' approach, according "whether [ICS's] jurisdiction.''' Ibid. demolishes supposed books.'' Ibid.; 62 find brief constructs, destructs. find, 21-24, follows. tried persuade "Complaints actions.'' 21. Notice Removal Petitioner 1587 (ND Ill.), ("it plaintiffs' complaint''). chosen bypass invoking instead, 22-24. Had so, "plenary scope'' "confined record.'' 24. path. proceeded review.'' 22. crucial,'' argued. 63 sum, start finish, accurately portray resistance "federaliz[ing],'' congressional instruction "garden-variety decisions,'' 3, inextricably intertwined State's] scheme,'' 4. Not ever touched made, trained impropriety Far "read books,'' §1367 conceived there. What convey, obscures: fail[ed] cite assumed appeal.'' 24, 11. maintaining thrust party, given ultimate reluctance "articulat[e] standards'' guidance puzzling. Strickland Washington, 466 668, 698, 104 2052, 2070, 80 674 (1984) (after "articulat[ing] standards judging ineffectiveness counsel] claims,'' "useful apply facts th[e] illustrate principles''). guidance, "allud[e] to'' extraordinary course. points retention keep it. "Illinois opportunity interpret.'' [ICS] Land use generally, designations particularly, implicate "local policies'' concerns.'' Yet willing claims.'' expresses [further] view.'' 65 disposed pages 63-page 33a-46a, devoted 46a-89a. wrote greatest length conclusions "Against Manifest Weight Evidence.'' 73a-89a. Finally, "affirm[ed] decisions.'' 89a. recalled, federal-claims-first "fundamental restraint'' "will advance necessity them.'' Three Affiliated Tribes Fort Berthold Reservation Wold Engineering, C., 467 138, 157, 2267, 2279, 113 (1984). potentially dispositive challenges, cleared first. Hagans Lavine, 415 546-547, 94 1372, 1383-1384, 577 (1974). 66 official contested grounds, particularly issue, stand threshold. prevailed, ripened. §1367(c) "enumerat[es] [to] [supplemental jurisdiction],'' reports: [judicial comity] __.5 mentions, abstractly, applies.'' 67 1367(c), will utility where, exists, "decline.'' pronouncements "less pellucid.'' Fallon, D. Meltzer, Shapiro, Hart Wechsler's System 1247, 1251 (4th ed.1996). Which "various principles,'' consult affirm, modify, reverse, denial? dispel confusion comity, endeavor fashion-and eventually declare-a doctrine? Given resorted, there, 26-35, 76-77, clear: granted, comprehend suggesting acted normal V Ankenbrandt Richards, 504 689, 112 2206, 119 468 (1992), divorce, alimony, child custody §1332 bringing Historically, decrees terminating marriages wholly domain. Barber Barber, How. 226 (1858). understanding, noted Ankenbrandt, prevailed "for nearly century half.'' 694-695, 2210. "Given passage time expression dissatisfaction,'' reaffirmed custody. 703, 2214-2215. explained "supported sound policy [S]tate eminently suited type close association organizations dedicated handling [the] [involved].'' 703-704, 2214-2215.6 71 Finley 490 545, 547-548, 2003, 2005-2006, 593 (1989): 72 remains rudimentary "[a]s regards inferior tribunal, create appellate. capacity act supplied taken, dormant.''' Mayor Cooper, Wall. 247, 252, 851 (1867)). adverts await direction down road. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber Lumber 321, 337, 282, 287, 499. third approval development Michigan Lakefront Code 194B (1973), restricts modification §5/3-110 (Supp.1997) provides: "Every convenient speed. hearing extend presented No additional support opposition finding, prima facie correct.'' assumes, expressly provide, section covers originating Although briefed, assumption. Steinman, Supplemental Jurisdiction Removed Cases: An Unsurveyed Frontier Congress' Handiwork, Ariz. L.Rev. 305, 308-310 (1993) (observing arguments weak''). statement: "When reached invoked, becomes 294. statement, carry weight. suggestion incorrect, [o]nly defendant.'' 2429, (1987). state, opposed local, consents Pennhurst Hospital Halderman, 465 89, 900, (1984), Eleventh entertain, consent, officials carrying responsibilities.'' 121, 919. "this commented Pennhurst: [I]t difficult greater intrusion sovereignty instructs how conform 911. citation (IDEA), unpersuasive reasons. IDEA provision, concern 1367. §615 Amendments 1997, Pub.L. 105-17, 111 Stat. 92, §1415(i)(3)(A); Zobrest Catalina Foothills 509 4, 2462, 2464, 125 (1993). Second, regime. defer legislation. cf. 122, 32, 920 [A]llowing foster policies "judicial fairness litigants,' (1966), founded. obtained, often uncertain ephemeral. oversight program likely extensive. Duplication effort, inconvenience, uncertainty result.''). clarified illustrated "that domestic relations issuance decree''; kind traditionally adjudicated tort excepted context. 704, 2215. Violence Against Women 1994, Stat.1916, §13931 seq., reinforced construed, confer establishment distribution martial property, decree.'' §13981(e)(4). History tug strongly well. surely "expression dissatisfaction'' near-unanimous Circuits [t]he [state] law'' "prim[e] responsibilit[y] judiciary.'' 2037.

Classification Label: 8