Legal Document

457 U.S. 830 102 Supreme Court Reporter 2764 73 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 418 Sheila RENDELL-BAKER, et al., Petitionersv.Sandra KOHN al. Number 80-2102. Argued April 19, 1982. Decided June 25, Syllabus Respondent school is a privately operated for maladjusted high students. In recent years, nearly all of the students have been referred to by city committees under Massachusetts statute or state agency. When are committees, these cities pay students' education. The also receives funds from number and federal agencies. Public recently accounted at least 90% school's operating budget. To be eligible tuition funding statute, must comply with variety regulations, but regulations impose few specific personnel requirements. Similarly, contracts State generally do not cover policies. Petitioners, former vocational counselor teachers school, brought separate actions in Federal District 42 Code KF62 § 1983, claiming that they had discharged violation their First, Fifth, Fourteenth Amendment rights. court dismissed counselor's action denied motion dismiss teachers' action, reaching conflicting conclusions as whether acted color law so subject liability 1983. On appeal cases were consolidated, Appeals held it was error conclude law, since, although regulated State, dominated especially respect decisions involving discharge personnel. Held : did act when petitioner employees, hence petitioners stated claim relief Pp. 837-843. (a) ultimate issue determining person suit 1983 same question posed arising Amendment: Is alleged infringement rights fairly attributable State? 837-838 (b) receipt public does make acts State. Cf. Blum versus Yaretsky, 991, 2777, 534. fundamentally different many private corporations whose business depends primarily on government, become government reason significant even total engagement performing contracts. decision compelled influenced any regulation, fact performs function educating its action. Moreover, since fiscal relationship contractors services there no "symbiotic relationship" between Burton Wilmington Parking Authority, 365 715, 81 856, 6 45, distinguished. Pp 839-843. 641 Reporter, 2nd 14 (C.A.1 1981) affirmed. Zachary R. Karol, Boston, Mass., petitioners. Matthew Haw. Hawai‘i KFH45 A2 Feinberg, respondents. Chief Justice BURGER delivered opinion Court. 1 We granted certiorari decide income derived sources which authorities, certain employees. 2 * Atlantic 3 Kohn director New Perspectives School, nonprofit institution located owned property Brookline, Massachusetts. founded board directors, none whom officials chosen officials. specializes dealing who experienced difficulty completing schools; drug, alcohol, behavioral problems, other special needs. Brookline Boston School Committees, Drug Rehabilitation Division Department Mental Health. issues diplomas certified Committee. 4 Chapter 766 Acts 1972, Committees those education.1 90%, one year 99%, respondent There approximately 50 years paid tuition.2 5 766, common schools. has issued detailed concerning matters ranging recordkeeping student-teacher ratios. Concerning policies, require maintain written job descriptions statements describing standards procedures, result funding. By contract Committee, refers "contractor," agree carry out individualized plan developed each student See n. 1, supra. specifies employees employees.3 7 Division. Like agreement "contractor." It provides reimbursement provided Division, includes requirements provided. Except general requirements, such an equal employment opportunity requirement, 8 While five six Rendell-Baker hired grant Law Enforcement Assistance Administration, distributed through Committee Criminal Justice. As condition grant, approve initial hiring decisions. purpose this requirement insure hires counselors meet qualifications described proposal Committee; interview applicants positions. B 9 January 1977, 1978. Rendell-Baker's resulted dispute over role student-staff council making A arose some presented petition directors December 1976, seeking greater responsibilities council. Director opposed proposal, supported advised board. 13, notified Justice, funded position, she intended employ someone else. her dismissal 1977. 10 then without due process because exercised First She demanded reinstatement hearing. agreed apply new policy, calling appointment grievance committee, consider claims. complained asked provide explanation discharge. After complied, responded satisfied explanation, would backpay damages award might obtain told authority order hearing, refuse another if disregarded procedure case. At point objected composition proceedings apparently never went forward. filed July 1977 alleging Amendments. 11 spring 1978, staff voiced objections Kohn's than Rendell-Baker, wrote letter urging dismissal. affirmed confidence Kohn, picketed home president threatened suspension; local newspaper ran story about controversy school. response story, editor thought prohibition picketing unconstitutional. day appeared, forming union. next day. They against sought Amendments violated. Contract 12 16, 1980, Massachusetts, 488 F.Supp. 764, defendant's summary judgment Rendell-Baker. may only defendant "under color" law.4 took standard " 'whether sufficiently close nexus challenged entity latter treated itself,' quoting Jackson Metropolitan Edison Co., 419 345, 351, 95 449, 453, 477 (1974). Noting that, ways, imposed conditions concluded discharging could considered Commonwealth 13 Nine days earlier, 7, judge reached contrary conclusion case His stressed dependency regulation numerous entities. noted education uniquely function, serve adolescents emotional problems. Court, following guidelines 722, 860, 45 (1961), performed "public function," Jackson, supra, 352, S.Ct., 454. Accordingly, defendants dismiss. However, noting substantial ground disagreement holding, immediately appealable pursuant 28 1292(b). Defendant Circuit consolidated two actions. funding, show managed relatively little involvement matters. erred concluding law. 15 separately position directly rejected claim, power control therefore Court's (1981). 16 certiorari, 454 891, 385, 70 205 (1981), we affirm. II 17 Petitioners discharges discriminatory Title VII Civil Rights Act 1964. Nor unfair labor practices National Labor Relations Act. Rather, allege respondents violated see 4, them exercise right free speech Amendment. Although govern parties decisions, fundamental prohibits governmental speech. Amendment, states denying constitutional guarantees process, applies states, persons Cases, 109 3, 11, 18, 21, 27 L.Ed. 835 (1883); Shelley Kraemer, 334 68 836, 842, 92 1161 (1948).5 And enacted Congress enforce interference 18 Price, 383 787, 794, 86 1152, 1157, 267 (1966), stated: 19 "In 'under color' consistently thing 'state action' required Amendment." 20 also, Classic, 313 299, 326, 61 1031, 1043, 85 1368 (1941). "fairly State?" Lugar Edmondson Oil 922, 937, 2744, 2754, 482. core adequate procedural protections, can seen action.6 If our inquiry ends. 21 534, analyzed nursing homes actors regarding transfers patients attributed subjected involved made physicians administrators, move "skilled facilities" less expensive "health related facilities." U.S., 1005, 2786. operated. Id., 1003, 2785. Relying Flagg Brothers, Incorporated Brooks, 436 149, 98 1729, 56 185 (1978); (1974); Moose Lodge 107 Irvis, 407 163, 1965, 32 627 (1972); Adickes S. Kress 398 144, 90 1598, 26 142 (1970), "a normally responsible coercive encouragement, either overt covert, choice deemed State." 1004, transfer factors here 22 homes, like depended funds; subsidized capital costs medical expenses more patients. 1011, 2789. Here virtually strongest factor support F.2d, 24. But similar dependence administrators 23 build roads, bridges, dams, ships, submarines government. 24 analogous defender found actor Polk County Dodson, 312, 445, 509 defender, client "identical existing lawyer client." 318, 449. changed pays 25 second Yaretsky extensive indirectly primary goal regulating keep down transferring intensive treatment centers facilities possible. Both encouraged appropriate. 1007-1008, 1009-1110, 2787-2789. extensively ways well. relied where "extensive detailed," 350, utility's regulation. Indeed, contrast generally, various regulators showed interest most intrusive promulgated agencies counselors. Such sufficient discharge, management, 6, third asserted function." holdings clear relevant simply group serving "traditionally exclusive prerogative 353, 454; quoted 2789 (emphasis added). doubt beginning inquiry. 1972 demonstrates intends expense. That legislative policy way makes province until undertaken served traditional 26. serves action.7 Fourth, argue (1961). reject here. Burton, refusal restaurant parking garage Negroes constituted rent contributed garage. 723, 860. argument restaurant's profits, State's financial suffer discriminate, profited conduct. viewed should charged No symbiotic existed exists 29 hold 1983; accordingly, 30 Affirmed. 31 WHITE, concurring judgments. home's Medicaid patient satisfies state-action satisfy basis rule responsible. enough takes decision. implicated appears nothing judgment. This import majority's "decisions ultimately turn judgments according professional established State," 1008, 2788, & N Dec. Immigration Nationality Decisions agree. 33 allegations 80-2102 [457 830, 2764, 418], fail requirement. case, focuses respects. For me, critical absence allegation itself based upon conduct put forth majority "in matters." Ante, 841. remains, therefore, 34 concur 35 MARSHALL, BRENNAN joins, dissenting. 36 cases, criticized commenced today holds suits According majority, cannot regarded 37 my view, holding justified. delegated statutory duty educate children almost heavily regulated. dissent. 38 facts deserve restatement. Mass.Gen.Laws Ann., ch. 71B, §§ 1-14 (West 1981), needs entitled suitable publicly supervision governments. committee every city, town, district identify who, physical disability, educational prepare program tailored needs, arrange implementation program. offer programs schools, schools implement programs. decides place child bear associated placement; parents need tuition. 39 closely monitor child's progress. Every three months determine transferred restrictive environment, 603 Mass.Regs. 28, &Par; 502.4(i), 804.2 (1979). general, environment ¶ 322.2. object placement remain unless he disruptive dangerous. Parents own choice. so, however, 40 enrolled behavioral, placed town None graduate, receive diploma Town 41 entirely 1975-1976, 91% 1976-1977, 99% received money Health, Youth Services, Family Children's Office Children, Administration. 14, 1981). placements regulations. Education "Guidelines Approval Day Educational Component Private Schools 766." These aspect operations, including recordkeeping, discipline, examinations students, parent involvement, health care, subjects instruction, teacher-student ratio, records, confidentiality transportation, insurance, nutrition, food preparation, toileting facilities, classroom equipment. address set minimum training, use volunteers, teacher qualifications, evaluations. further criteria procedures dismissal, handling complaints. vacations benefits. 43 additional units requires counseling, educational, drug abusers. Under devised submit periodic reports inspection time during normal hours. Finally, bound contained Services 18. 44 clearly establish enterprise, enterprise participants joint venture, "Conduct formally 'private' entwined policies impregnated character" Evans Newton, 382 296, 486, 488, 373 (1966). (1961); 175, (1972). "can determined framework peculiar circumstances present." 726, 862. Here, examination leads inexorably State; difficult imagine closer enterprise. sources. important indicium involvement. very survival chooses, complete operations threatening withdraw considers objectionable. 46 supervised freedom decisionmaking substantially circumscribed Education's example, develop rules Almost affected regulations.1 47 providing substitute provision tasks government: ranks apex Ambach Norwick, 441 68, 77, 99 1589, 1594, 60 49 (1979).2 Of course, emphasizes, ante, 2772, performance justify treating Marsh Alabama, 326 501, 66 276, 265 (1946); Smith Allwright, 321 649, 64 757, 88 987 (1944). vital coupled demonstrating connection finding 48 deserves particular emphasis 766. children, Clearly, decided service itself, measured standards. permitted avoid delegating entity.3 delegation convert institution's significantly curtailed. provide, circumstances, appropriate treat arm supra; Terry Adams, 345 461, 469, 809, 813, 97 1152 (1953) (opinion Black, J.). solely fulfill obligations think fully reasonable actor. believed sole services. demands increased affairs, is, petitioners' true, adopted view sort refuses tolerate departures view.4 refusing intervene, effectively endorsed duties short, criticism addressed justified.5 51 repeatedly compares contractor "depends government." 840-841. readily distinguished, however. shipbuilders dambuilders, dependent funds, unlike contractors, 52 concede affecting fulfilling suggests, suggested, share narrow obligations; event, perform needs—since really just appropriately III 53 Even though myriad indicia find marks return empty formalism doctrine. Because believe given sensitive flexible interpretation offers, Mass.Acts, Supp.1981), Gen.Laws "enter into agency, necessary education" identified having recommended his elect choice; Amicus curiae Association Approved Schools, Inc., member, informs members population evenly divided guardians. Brief Curiae 3. record contain details provides: "Every ordinance, custom, usage, Territory, subjects, causes subjected, citizen within jurisdiction thereof deprivation rights, privileges, immunities secured Constitution laws, shall liable party injured equity, proper proceeding redress." provides, pertinent part: "No abridge privileges citizens States; nor deprive life, liberty, property, . ." occasions concert actors. 155-156, 1607, white company Negro students; sheriff arrested vagrancy request lunch company. conspired sheriff, actor, depriving (1978), Lugar, 482, illustrate relevance taken Brothers warehouseman sued execute lien selling goods possession 7-210 York Uniform Commercial Code. sale authorized appeared reach issue. Instead, warehouseman's threaten sell "properly York," 156, 1733, involved. Since claimed protection, offended state, stated. lessee obtained ex parte writ attachment executed sheriff. applied distinguished Brothers. 941, 2756. thus sheriff's limited played comparable Lugar. uncontradicted evidence initially review selected met application. hire specified take part Rendell-Baker; contrary, attempted leverage aid her. requested successor correctly concluded, steps. Ibid. sham arrangement attempts disguise parties. (1966) (private trustees appointed manage previously park only). argues enough, contends finding. 840-842. am both propositions. present present, well analyzing separately, considering cumulative impact, commits error. 842-843. recognized unique plays American society. Plyler Doe, 202, 221, 2382, 2397, 72 786 (1982) (public "merely 'benefit' indistinguishable forms social welfare legislation"); Wisconsin Yoder, 406 205, 1526, 1536, (1972) (education "prepare participate intelligently open political system"); Abington Schempp, 374 203, 230, 83 1560, 1575, 844 (1963) (BRENNAN, J., concurring) "most civic preservation democratic system government"); Meyer Nebraska, 262 390, 400, 625, 627, 67 1042 (1923) ("The people always acquisition knowledge supreme importance"). deliberately delegate task obligations. (1953). carefully examined acted, bad faith, reasons convenience. doctrinal exercises pose threat values. vested poses emphasized process. Givhan Western Line Consolidated District, 439 410, 693, 58 619 (1979); Pickering Board Education, 391 563, 1731, 811 (1968); Keyishian Regents, 385 589, 87 675, 629 (1967); Shelton Tucker, 364 479, 247, 231 (1960). recognizing course instruction. provide: "[T]he candidate will demonstrate she: 1. responds individual enhance self-esteem development 2. establishes constructive relationships others concerned well-being works learning favorable openness devoid ridicule." 7.04(40)(f) (1982). teacher's depend placements. student, criticizing child,

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