Legal Document

128 S. Ct. 831 (2008) Abdus-Shahid M. ALI, Petitioner, v. FEDERAL BUREAU OF PRISONS et al. No. 06-9130. Supreme Court of United States. Argued October 29, 2007. Decided January 22, 2008. *833 Paul D. Clement, Solicitor General, Counsel Record, Peter Keisler, Assistant Attorney Edwin Kneedler, Deputy Kannon K. Shanmugam, to the Mark B. Stern, Eric Fleisig-Greene Attorneys, Department Justice Washington, D.C., for Respondents. Stris, Radha Pathak, Whittier Law School, Costa Mesa, CA, Shaun P. Martin, University San Diego School Law, Diego, Jean-Claude Andre, Sarah E. Ivey, Smith & Ramirez, Los Angeles, Michael G. Smith, Brendan Maher, Dallas, TX, Petitioner. *834 THOMAS delivered opinion Court. This case concerns scope 28 U.S.C. § 2680, which carves out certain exceptions States' waiver sovereign immunity torts committed by federal employees. Section 2680(c) provides that does not apply claims arising from detention property "any officer customs or excise any other law enforcement officer." Petitioner contends this clause applies only officers enforcing laws, and thus affect his claim against Federal Bureau Prisons (BOP). We conclude broad phrase officer" covers all officers. Accordingly, we affirm judgment Appeals upholding dismissal petitioner's claim. I M.S. Ali was a prisoner at States Penitentiary in Atlanta, Georgia, 2001 2003. In December 2003, petitioner scheduled be transferred Big Sandy (USP Sandy) Inez, Kentucky. Before being transferred, he left two duffle bags containing personal Atlanta prison's Receiving Discharge Unit inventoried, packaged, shipped USP Sandy. arrived some days later. Upon inspecting property, noticed several items were missing. The staff Sandy's told him had been given everything sent, if things missing could file Many purportedly religious nostalgic significance, including copies Qur'an, prayer rug, magazines. estimated worth $177. filed an administrative tort denying relief, agency noted that, signature on receipt form, certified accuracy inventory listed thereon thereby relinquished future relating damaged property. then complaint alleging, inter alia, violations Tort Claims Act (FTCA), §§ 1346, 2671 seq. BOP maintained barred exception District agreed dismissed FTCA lack subject-matter jurisdiction. appealed. Eleventh Circuit affirmed, agreeing with Court's interpretation 2680(c). 204 Fed.Appx. 778, 779-780 (2006) (per curiam). rejecting arguments, relied 2680(c)'s "detention" Kosak States, 465 U.S. 848, 854-859, 104 1519, 79 L. Ed. 2d 860 (1984), decisions Courts Appeals, its own decision Schlaebitz Dept. Justice, 924 F.2d 193, 195 (1991) curiam) (holding Marshals, who allegedly negligent releasing parolee's luggage third party, "law officers" under 2680(c)). See Fed. Appx., 779-780. granted certiorari, 550 ___, 127 2875, 167 1151 (2007), resolve disagreement among as *835 2680(c).[1] II FTCA, Congress waived 1346(b)(1). As relevant here, authorizes "claims money damages ... injury loss caused wrongful act omission employee Government while acting within office employment." Ibid. exempts categories claims. 2680(a)-(n). Relevant here is subsection (c), 1346(b) shall "[a]ny respect assessment collection tax duty, goods, merchandise, turns whether lost qualify "other officer[s]" meaning 2680(c).[2] argues they do because includes capacity. Noting referenced activities both language issue preceding 2680(c), entire focused preserving those laws. Petitioner's argument inconsistent statute's language.[3] suggests meaning. (emphasis added). have previously "[r]ead naturally, word `any' has *836 expansive meaning, is, `one indiscriminately whatever kind.'" Gonzales, 520 1, 5, 117 1032, 137 132 (1997) (quoting Webster's Third New International Dictionary 97 (1976)). considered provision imposed additional sentence firearms used drug trafficking crimes provided such concurrent term imprisonment." U.S., 4, 1032 18 924(c)(1) (1994 ed.) deleted)). Notwithstanding subsection's initial reference crimes, held "any" absence restrictive "no basis text limiting" imprisonment" sentences. 1032. Similarly, Harrison PPG Industries, Inc., 446 578, 100 1889, 64 525 (1980), final action" amendments Clean Air Act. explained expanded list Environmental Protection Agency Administrator actions adding actions: specifically enumerated statutory provision, Id., 584, 1889 deleted). Focusing Congress' choice "any," "discern[ed] no uncertainty phrase, `any action,'" emphasized "expansive offer[ed] indication intended" limit similar sections. 588-589, 1889. think reasoning Gonzales equally employed use modify most naturally read mean kind.[4] repeated four times portion instances appear particular issue: (Emphasis added.) inserted immediately before officer," leaving doubt it modifies phrase. To sure, text's references "tax duty" "officer[s] excise" indicate intended preserve officer's also indicates, however, *837 there turn type enforced. would require clarify intent cover phrases "performing official function," "without limitation." But chosen more all-encompassing than express intent. reason demand write less economically repetitiously. Recent support conclusion limited Civil Asset Forfeiture Reform 2000, added subsections (c)(1)(c)(4) 2680. 3(a), 114 Stat. 211. amended, immunity, notwithstanding case, to: "[A]ny based possession officer, if "(1) seized purpose forfeiture providing upon conviction criminal offense; "(2) interest claimant forfeited; "(3) remitted mitigated (if subject forfeiture); "(4) convicted crime law." amendment govern "seized forfeiture," required paragraph (1). Nonetheless, our construction must, extent possible, ensure scheme coherent consistent. Robinson Shell Oil Co., 519 337, 340, 843, 136 808 (citing Ron Pair Enterprises, 489 235, 240, 109 1026, 103 290 (1989)). canceled exceptionand restored immunityfor seizures law. 2680(c)(1) (excepting "the property" added)). Under interpretation, laws immune prior version Thus, reading, amendment's effect restore cases officers, capacity, enforce strikes us implausible statute. If intent, apparent why civil instead simply related excise. makes sense assume went way unrelated fails demonstrate *838 ever excise, much so frequency likely singled them amendment.[5] It seems far because, view, covered amendment. Against textual structural evidence fact invokes numerous canons construction. He relies primarily ejusdem generis, principle "when general follows specific one, should understood subjects akin one enumeration." Norfolk Western R. Co. Train Dispatchers, 499 117, 129, 111 1156, 113 95 (1991). three-item list, final, catchall same nature phrases. likens recent found canon useful. Washington State Social Health Servs. Guardianship Estate Keffeler, 537 371, 375, 123 1017, 154 972 (2003), "execution, levy, attachment, garnishment, legal process" 42 407(a). Applying concluded processes listed. 384-385, 1017. department's serving representative payee benefits due children care, "legal process," did share common attribute items, viz., "utilization judicial quasi-judicial mechanism control over passes person another order discharge" debt. 385, Dolan Postal Service, 546 481, 126 1252, 163 *839 L.Ed.2d 1079 (2006), FTCA's "`loss, miscarriage, transmission letters postal matter'" mail negligently porch her slip fall. 485, 1252 2680(b)). "loss" "miscarriage" addressed "failings obligation deliver timely manner right address," 487, "negligent transmission" must similarly limited, id., 486-489, rejected Government's applied "all course delivery," 490, 1252. asserts like clauses Keffeler Dolan, "`presents textbook generis scenario.'" Brief 15 Andrews 441 F.3d 220, 224 (C.A.4 2006)). disagree. structure lend itself application canon. disjunctive, category, notlike Dolana separated commas followed collective term. undercuts inference embodied remained when Cf. Aguilar, 515 593, 615, 115 2357, (1995) (SCALIA, J., concurring part dissenting part) (rejecting canon's applicability omnibus "one distinct independent prohibitions" rather "a following command applicable"). Moreover, what connects Were determine limiting characteristic "officer excise." Jarecki G.D. Searle 367 303, 81 1579, 6 859 (1961), example, invoked noscitur sociis "`discovery'" shared "`exploration'" "`prospecting.'" 307, 1579. three words conjunction "describe[d] income-producing activity oil gas mining industries." Here, contrast, appears types are charged see opposed to, commonly involved statute: taxes duties appeals interpretive principles unconvincing. reading supported sociis, according known company keeps." S.D. Warren Maine Bd. Protection, 547 370, 378, 1843, 164 625 (2006). cites applying statutes stronger contextual cues. Gutierrez Ada, *840 528 250, 254-258, 120 740, 145 747 (2000) (applying narrow election," where closely surrounded six gubernatorial elections); Jarecki, supra, 306-309, 1579 "discoveries" discoveries mineral resources contained words, oil, gas, industries conceivably industry). although mentioned twice nothing overall context exclusive focus provision. emphasis (c) sweeps broadly suggests. rule superfluities lends sparse support. adopt today necessarily render superfluous; may remove included officers." Fort Stewart Schools FLRA, 495 641, 646, 110 2043, 659 (1990) (noting "technically unnecessary" examples "inserted abundance caution"). threatens superfluous clear when, ever, capacity.[6] event, woodenly every time example along Harrison, 589, n. 6, enumerations unnecessary). end, unpersuaded attempt create ambiguity suggest none. Had reach contends, easily written capacity." Instead, unmodified, Nothing requires narrowing constructionindeed, explained, *841 statute consistent literally says. 1156 yield whole dictates different conclusion"). bears emphasis, moreover, maintaining universe "arising of" liberty rewrite reflect deem desirable.[7] give enacted: forecloses lawsuits unlawful just "some," III For reasons stated, Affirmed. KENNEDY, whom STEVENS, SOUTER, BREYER join, dissenting. Statutory beginning text. enhanced, foreclose consideration guide determining legislature's prevent analysis becoming rarefied departs how legislator she voted law, courts interpretative rules consider design. These wooden reliance themselves dispositive, but function helpful guides construing ambiguous provisions. Two these accepted together instruct series interpreted relation another. Today holds, my understanding correct, possible Placing implicit comma clause, says maxims noted, indeed recognized analysis, useful aids cannot before. respectful submission approach incorrect now us. Both analytic framework employs become binding courts, will confront operate today. So troubling result reaches employs. My disagreements lead dissent. A (FTCA) allows allege governmental *842 vast sphere seek tortious conduct. enacting 13 Act's shield suit instances. careful interference operations described. 853, 9, "unduly generous interpretations run risk defeating central statute." states, suits goods defined circumstances. excepts "claim[s] first further, close consideration, plain concerned taxes. begins dealing exclusively duties. And contains tax, making revenue salient features. 254-255, (2000). wholly impermissible without grammatical After all, stated until outset second end appear; can argued separate detentions capacity might covered. Still, ought preferred reading; between closing excise," detention. quite sufficient, continue exception. At very least, errs adopting bars sociis. consulted, overcomes position adopted seemingly constitutes residual controlled by, "enumerated recited it," encompasses objects nature. City Stores, Inc. Adams, 532 105, 115, 121 1302, 149 234 (2001). follow well clause's counters "is category," rendering inapplicable. Ante, 839. applicability, include laundry items. See, e.g., *843 ("[W]hen enumeration"). addition, often "`known their companions.'" 384, (2003) Gutierrez, 255, 740). "meaning word, and, consequently, intention legislature," "ascertained context, considering question surrounding are, fact, referable subject-matter." Neal Clark, 704, 709, 24 586 (1878) (internal quotation marks omitted). proper attributes last ("any officer") discrete ("officer[s] "assessment duty"). Norton Southern Utah Wilderness Alliance, 542 55, 62-63, 124 2373, 159 (2004) "`failure act'" means "failure take original)); Servs., 1017 407(a) refers utilization mechanism, enumeration it). otherwise, likelihood drafted section tacking here. performance functions assigned including, conduct border searches. Although full-time agencies called traditional officer. Drug Enforcement Administration (DEA) Investigation (FBI) agents frequently assist officials execution Gurr, 471 144, 147-149 (C.A.D.C.2006) (FBI search financial documents border); Boumelhem, 339 414, 424 (C.A.6 2003) ("FBI cooperating Customs joint task force"); Formula One Motors, Ltd. 777 822, 824 (C.A.2 1985) (DEA performing traditionally carried searched automobile abroad still shipping container). Schoor, 597 1303, 1305-1306 (C.A.9 1979) (upholding constitutionality cooperation amongst searches). 14 89(a) grants Coast Guard plenary authority stop board American vessels inspect obvious violations. Gil-Carmona, 497 52 (C.A.1 2007) (Coast assisted Immigration *844 patrol aircraft interdicting vessel off coast Puerto Rico). detain whose violates officerswhile 2680(c)are engaging true context. 26 6321, delinquent taxpayer's forfeiture, Glass Bank 326 265, 66 108, 90 56 (1945), agent assisting Internal Revenue Service (IRS) executing cf. $515,060.42 Currency, 152 491, 1998) (IRS FBI jointly currency). work considerable way. B contrary concentrating takes single extend acts. There fundamental problems approach, addition ones already mentioned. First, squared longstanding recognition isolation King St. Vincent's Hospital, 502 215, 221, 112 570, 116 578 ("[T]he language, not, depends context"); 486, ("A outer limits definitional possibilities. Interpretation text, statute, consulting precedents authorities inform analysis"). even facially modifiers. "different depending setting," Nixon Missouri Municipal League, 541 125, 132, 1555, 158 291 (2004); Small 544 388, 125 1752, 161 651 (2005) cases), "to legislature them," Palmer, 3 Wheat. 610, 631, 4 (1818). "in election" Organic Guam, 48 1422, refer elections election Guam's Governor Lieutenant Governor. preceded references. "relentless repetition," "known [its] companions." 740. Likewise, Alvarez-Sanchez, 511 350, 357, 1599, 319 (1994), interpret respondent erred "placing dispositive weight rest statute," consulted "`the [the phrase] used.'" *845 358, 1599 Deal 508 1993, 44 (1993); alteration original). mentioned, accordance precedents, narrowly Its deals clauses, tax. 740; A-Mark, Secret Serv. Treasury, 593 849, 851 1978) (Tang, concurring) ("The dwell taxes, except law-enforcement officers"). Further, "[D]etention" nonlegal dictionaries alike "compulsory," "forced," "punitive" containment. Black's 459 (7th ed.1999) (compulsory); Heritage 494 (4th ed.2000) (forced punitive). "detained" raised case; leaves day exception's facts. ante, 835, 2. important, bear mind agents, rare voluntarily turned over, forcibly appropriated; indeed, regular business seizing forfeiting enforcement. Homeland Security, Border Enforcement, Mid-Year FY 2007Top IPR Commodities Seized (May 2007), online http://www.cbp.gov/linkhandler/cgov/ import/commercial_enforcement/ipr/ seizure/07_midyr_seizures.ctt/07_midyr_ seizures.pdf (all Internet materials visited Jan. 10, 2008, available Clerk file) (by midyear 2007, executed 7,245 commodity seizures, total $110,198,350); GAO, Security: Despite Progress, Weaknesses Traveler Inspections Exist Our Nation's Ports Entry 17 (GAD-08-219, Nov. http://www.gao.gov/ new.items/d08219.pdf ("According [U.S. Protection] CBP, fiscal year 2006, CBP 644,000 pounds illegal drugs, intercepted nearly 1.7 million prohibited agricultural $155 commercial counterfeit footwear handbags" (footnote omitted)). contexts, accurately describe action. prisoner's voluntary transfer facility, greater similarity "bailment"the delivery after prison trust, Dictionary, 134than "detention." Not mentions On hand, majority nine Compare 19 1499(a) (authorizing examine imported merchandise); 1595a(c)(3) *846 merchandise introduced law); 5311 internal containers distilled spirits, wines, beer believe applicable paid); 50 U.S.C.App. 2411(a)(2)(A) seize ports entry war national defense); 22 464 armed thereon); 981(e) Secretary be, equitable pursuant (2) forfeited appropriate local .... liable action seizure, detention, officials"); 524(c)(1) (2000 ed. Supp. V) (appropriating special fund enforced administered Justice); 31 9703(a)(1)(A) (establishing Treasury Fund pay expenses detention); 16 1540(e)(3), 3375(b) packages inspection violation governing fish, wildlife, plants). seem contemplated circumstances namely demonstrates difficult concept case-by-case majority's statutea problem alleviated Second, runs "`our duty effect, statute."'" Duncan Walker, 533 167, 174, 2120, 150 251 (2001) Menasche, 348 528, 538-539, 75 513, 99 615 (1955)). renders mere surplusage, need specified subsumed clause. 114, 1302. Third, though ambiguity, legislative history, virtue confirms shift attention S.Rep. 1400, 79th Cong., Sess., 33 (1946) (in discussing referring officers"); A. Holtzoff, Report Proposed Bill (1931) property-detention legislation "include liability connection excise"). Indeed, reads defeat danger warned explicit terms. Kosak, 854, 1519 (the identify "`those *847 exception'no more") Dalehite 346 15, 31, 73 956, 1427 (1953)). conceive enacted make private circumstance[s]," 32, allow circumstance accountable injured wanted say tort, perform tasks, done terms; expect least outside either history. reference, presume liberties owns lightly disregarded. 2000 conclusion. (CAFRA), operation limitation (i.e. exception) 2680(c)(1). view establishes reserved damage owner's (and conditions apply). regardless acted or, alternatively, CAFRA proposition premised assumption "enforce 838. officials, duties, routinely that. Seizures Penalties Links, http://www.cbp. gov/xp/cgov/ toolbox/legal/authority_enforce/seizures_penalties.xml (CBP "full CBP"). expressly contemplate forfeitures nonrevenue 1600 procedures [governing property] set forth [§§ 1602-1619] effected unless specifies procedures"). By currency monetary instruments Secrecy Act, 5317(c) ed., V); instruments, music recordings, Contraband 49 80302 DEA capacity) vehicles associated trade 21 *848 881; also, F.2d, 822-823. Though capacitythat conducting routine persons effects crossing international boundary. 5317(c), "unrelated cross-references requirement exporting importing 5316. 838, 5. 5316, despite "[r]elated" Currency Foreign Transactions Reporting IV), notes contraband particularly 1595a(c)(1). dispute point, goes unrefuted Court, reasonable generally. instance, 1595a(c)(1) "[m]erchandise into law," target importation restrictions. Title amended encompass "goods merchandise" "property." involving "merchandise," then, derived but, Acts. noncustoms views subsequent suspect. said "subsequent acts shape focus" FDA Brown Williamson Tobacco Corp., 529 120, 143, 1291, 146 indication, exception, broaden original immunity. SEC Capital Gains Research Bureau, 375 180, 199-200, 84 275, 11 237 (1963). rely perhaps respecting sues valued about system store, 200,000 population, Prisons, Weekly Population Report, http://www.bop.gov/news/ weekly_report.jsp (reporting 199,342 inmates 7, 2008), burden account little value substantial one. sound reasons, though, concern interpreting begin with, discussed, congressional objective comprehensive address apart revenue. *849 interprets extends trivial detentions, custody, comport observed frivolous claims, [involved management facilities]," Government. place exhausted allowed, diminishing number heard court. 1997e(a) ("No brought 1983 title, confined jail, prison, correctional facility remedies exhausted"). CFR 543.31(a) "owner (BOP) regional office; BOP, turn, authorized settle $1,000, 3723(a), prisoners. Only "dissatisfied "appropriate Court." 543.32(g). * sweeping dropped onto something afterthought. seizure raises serious people permit appropriation remedy obscure indirect. reversed. BREYER, STEVENS joins, agree KENNEDY carrying separately emphasize, KENNEDY's dissent clear, beyond Latin purely devices. many questions words. dictionary each known. Rather, scope. What boundaries intend set? apply? answers creates emphasizing "any." amendment, find counterargument convincing. 846-847. And, help whatsoever. speakers (including writers legislators) "all," "never," "none" normally *850 linguistic work. assertion universal truth, mathematician, scientist, philosopher, theologian, almost always exist. When call wife, "There isn't butter," mean, butter town." am talking contents refrigerator. That say, dictionary, sets time, place, apply. (1818) (Marshall, C.J.) ("[G]eneral words," "`any'," "be limited" them"); alone answer" "whether `convicted court' entered foreign court"); ("`[A]ny'" setting"); (1994) ("[R]espondent placing statute"). Context, course, question. offer evaluating significance Yet limited. features show suggest. 138-140, (SOUTER, dissenting) (finding "good reasons" history purposes class workers" "seamen, railroad employees, refer, transportation workers, workers kinds retail store clerks). "conclusive" "are countered maxim pointing direction." 1302 (majority opinion). crystallize English know, namely, lists (but always) group characteristics. (That cannot, comic yoke radically nouns verb, "He caught salmon, trout, cold.") feature supports location otherwise nontextual taken together, tort-liability drafting shows bill became Initially, exempted duty." 4377, 71st p. (1930). 1931, Special Alexander wrote draft *851 "or 2 report agency, sought 16. Holtzoff suggested British officials. (referring proposed Crown Proceedings Committee 11(5)(c), pp. 17-18 (Apr.1927) (Cmd.2842) proceedings lie deterioration occasioned delay release of, anything omitted such")); 857, 13, (1984) (While ideas expressed [in Holtzoff's report] great Legislature," circumstances, "it senseless ignore entirely provision's] draftsman"). Members repeatedly referred encompassing functions. H.R.Rep. 2428, 76th 3d 5 (1940); 1196, 77th 7 (1942); 2245, 10 1287, 1st (1945); (1946). insofar sought, through exceptions, preclude "adequate available," 858, 1519; 33; (setting purpose), sense; not. Other recovery plaintiffs harmed Bazuaye 83 482, 485-486 (C.A.D.C.1996) (detailing history). practical difference considerable, magnifying importance silence points, working, borders helping tens thousands tasks. estimates 100,000 members services. Statistics Bulletin, Officers, 2004, 1 (July 2006). law's indicates provision's suggesting broadly, multiply orders magnitude. canons, shed light SCALIA's pertinent remembered English-language observation *852 "does hide elephants mouseholes." Whitman Trucking Assns., 531 457, 468, 903, join NOTES [1] joined five Bramwell 804, 806-807 2003); Chapa 390 (C.A.5 curiam); Hatten White, 275 1208, 1210 (C.A.10 2002); Cheney 247, 248 (C.A.8 1992) Ysasi Rivkind, 856 1520, 1525 (C.A.Fed. 1988). Five reached conclusion, ABC DEF, 500 103, 107 2007); Dahler 473 769, 771-772 (C.A.7 227 2006); 486 (C.A.D.C. 1996); Kurinsky 594, 598 1994). [2] assume, deciding, Ali's satisfy detention" requirement. satisfied, declined raise certiorari. Appx. (C.A.11 2006) 10-11, 9. [3] case. ambiguous. Reply 4. construed bearing 853-862, resulting handling storage). issue. 852, ("We occasion decide `law-enforcement officer[s],' exception." (alteration original)). footnote concluding too reservation it. [4] Of counteract art compelled result. 115-116, (construing engaged in... commerce," 9 previous commerce" narrower meaning). made 357-358, (limiting "delay" officers), implicated sovereignty concerns, Raygor Regents Univ. Minn., 534 533, 541-542, 122 999, 27 (2002) "clear statement rule" waivers construe actions" exclude category "even exclude[d]" them). None motivated present [5] KENNEDY'S (hereinafter dissent) during searches, "routinely" Post, 847-848. assertion. maintains seizes material seq., example. derives 1595a(c)(1)(C). "assisting official" drug-related 881 "traditional assists assumption, self-evident, underscores difficulty attend define contours implied embraced "Acting capacity" self-defining concept, having provide definition. Finally, points 5317(c). hardly 5317(c)(2) reporting requirements instruments). [6] 823-824 vehicle transit overseas drugs "sufficiently agents' 2680(c)"). ordinary agents. searching car 843-844. next 89 effectively 89(b)(1) (providing "insofar engaged, section, deemed executive department administration law"). result, [7] Congress, note, claimants petitioner. 3723(a)(1) $1,000 privately owned negligence settled 1,100 years. Respondents 41, 17.

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