Legal Document

496 U.S. 356 110 S.Ct. 2430 L.Ed.2d 332 Mark HOWLETT, a Minor, By and Through Elizabeth His Mother, Natural Guardian Next Friend, Petitionerv.Scott ROSE, as Superintendent of Schools for Pinellas County, Florida, et al. No. 89-5383. Argued March 20, 1990. Decided June 11, Syllabus State well federal courts have jurisdiction over suits brought pursuant to 42 U.S.C. § 1983, which creates remedy violations rights committed by persons acting under color state law. Petitioner, former high school student, filed 1983 suit in Florida Circuit Court seeking damages injunctive relief against, inter alios, the local board, alleging, among other things, that his constitutional were violated when car was searched on premises violation Fourth Fourteenth Amendments Federal Constitution he suspended from classes without due process. The court held it lacked board dismissed complaint against with prejudice, citing Hill v. Department Corrections, 513 So.2d 129, Supreme ruled Florida's statutory waiver sovereign immunity applied only state-court tort actions conferred blanket governmental entities civil court. District Appeal affirmed dismissal, holding availability action is matter law, that, Hill, did not apply. Held: A state-law "sovereign immunity" defense available otherwise has such would be if forum. Pp. 361-383. (a) Since defendant agency protected Eleventh Amendment, see Quern Jordan, 440 332, 341, 99 1139, 1145, 59 358, thus "person" within meaning Will Michigan Dept. Police, 491 58, 109 2304, 105 45, actual disposition, its language reasoning, comports Will, established arms State, traditionally enjoyed Amendment immunity, are subject either or However, construing extend absolute but also municipalities, counties, districts might court, Appeal's decision raises concern may evading law discriminating causes action. adequacy ground support judgment precluding litigation claim question, this reviews de novo. See, e.g., James Kentucky, 466 348-349, 104 1830, 1835-1836, 80 346. 361-366. (b) Under Supremacy Clause, concurrent duty enforce according their regular modes procedure. Claflin Houseman, 93 130, 136-137, 23 L.Ed. 833. Such deny right, parties controversy properly before it, absence "valid excuse." Douglas New York, N.H. & H.R. Co., 279 377, 387-389, 49 355, 356-357, 73 747. An excuse inconsistent violates valid excuse: Clause forbids dissociate themselves because disagreement content refusal recognize superior authority source. Mondou 223 1, 57, 32 169, 178, 56 327. exist refuses neutral rule judicial administration, see, Douglas, supra, unless pre-empted Felder Casey, 487 131, 108 2302, 101 123. 367-375. (c) entertain boards Clause. If amounts adoption substantive agencies liability directly makes defendants liable 1983. St. Louis Praprotnik, 485 112, 121-122, 915, 922-23, 107. Conduct wrongful cannot immunized even though cause being asserted Martinez California, 444 277, 284, n. 8, 100 553, 558, 62 481. If, hand, meant claims excluded category could hear no less violative Cf. Atlantic Coast Line R. Co. Burnette, 239 199, 201, 36 75, 76, 60 226. constituted general jurisdiction, entertains common-law variety capacities, individual officials. policy declines one discrete claims, yet permits similar defendants, can based rationale should violations. Thus, there like petitioner's. 375-381. (d) There merit respondent's argument power compel lacks fact denominated jurisdictional does provide an avoid obligation reflect concerns person competence rules designed protect. Also meritless contention creature long-established legal principles Congress intend abrogate enacting take into account in, excluding States definition "person," rely own heritage exempt subjected liability. 381-383. 537 706 (App.2d Dist.1989), reversed remanded. STEVENS, J., delivered opinion unanimous Court. Gardner W. Beckett, Jr., Petersburg, Fla., petitioner. Charles Rothfeld, respondents. Justice STEVENS 1 Section Civil Rights Act 1871, Rev.Stat. 1979, now codified law.1 cases. question case whether had been 2 * naming School Board County three officials defendants. He alleged assistant principal made illegal search while parked wrongfully five days. Contending subsequent suspension provisions Constitution, prayed order expunging any reference records. 3 Defendants motion dismiss various grounds, including failure exhaust administrative remedies.2 contended claims—but waiver-of-sovereign-immunity statute App. 13-14. requiring challenges first presented 129 (1987). 19. 4 Second dismissal petitioner's board.3 It apply rejected maintained wrote: 5 "[W]hen section sole decided basis waived common extent necessary allow holds so immunity. We therefore do reach appellant's second issue case, i.e., immune state, beneficiaries immunity." 706, 708 (1989) (emphasis original). 6 acknowledged our 481 (1980), immunize official injuries compensable held, however, State's invocation "state use those courts" raised "purely law." at 708. denied review. 545 1367 In view importance Appeal, we granted certiorari. 493 963, 403, 107 369 (1989). II 7 stems Court's case. plaintiff sought negligence false imprisonment Corrections conduct probation supervisors. argued department responsible supervisor, Fla.Stat. 768.28 (1989).4 That provides subdivisions, municipalities boards, 768.28(2), circuit "in same manner private circumstances," 768.28(5).5 Although terms read narrowly restrict proprietary capacity, interpretation.6 16 cases arising sued respondeat nondiscretionary duties exercise authority. entertained performance activities, roadside stop arrest driving expired inspection sticker,7 negligent maintenance city employees storm sewer system,8 caseworker detect prevent child abuse,9 county swimming pools warn correct known dangerous conditions,10 protect prison inmate inmates dangerous.11 just joined duties, violate Constitution. See Owen City Independence, 445 622, 649-650, 1398, 1414-1415, 63 673 (1980). 8 trial Hill's entered jury's verdict favor claims. On appeal, claim. certified permitted 490 118 (1986). 9 answered negative. (1987), cert. denied, 484 1064, 1024, 98 989 (1988). Without relying solely analogy decisions States, So.2d, 133. stated: "While liberty waive actions, done so. recovery ceilings intended commenced 1983." Ibid. allowed stand. 10 facts, disposition appear unexceptional. Amendment. 358 (1979) (§ "override traditional States").12 As last Term 45 (1989), entity anomaly identified Court, cited,13 forced fully met Will. establishes 11 reasoning precise holding, went further. further step completed construed extended itself review Johnson Mississippi, 486 578, 587, 1981, 1987, 575 (1988); 346 (1984); Hathorn Lovorn, 457 255, 263, 102 2421, 2426-27, 72 824 (1982); Barr Columbia, 378 146, 149, 84 1734, 1736, 12 766 (1964); NAACP Alabama ex rel. Patterson, 357 449, 455, 78 1163, 1168, 1488 (1958); Rogers Alabama, 192 226, 230-231, 24 257, 258-259, 48 417 (1904); Inadequate Ground, 65 Colum.L.Rev. 943, 954-957 (1965). Whether petitioner " 'given recognition [Court Appeal] [petitioner is] entitled invoke judgment, [he has] appropriate way. province inquire right express terms, substance effect, putting forward nonfederal grounds fair substantial support.' Staub Baxley, 355 313, 318-319, 280-281, 302 (1958) (quoting Ward Love Comm'rs, 253 17, 22, 40 419, 421, 64 751 (1920)).14 III enforceable determined burdened more convenient forum—although both true—but laws passed much legislature. "the supreme Law Land," charges coordinate responsibility "The United several binding citizens thereof are. . two together form system jurisprudence, constitutes land State; jurisdictions foreign each other, nor treated such, country, having partly different concurrent." 833 (1876); Minneapolis Bombolis, 241 211, 222, 595, 598, 961 (1916) ("[T]he governments Nation [are not] strange broad sense word, [are] all orbit lawful charged safeguard every citizen particular arisen, comes generally scope government creating them"); Hart, Relations Between Law, 54 489 (1954) ("The governs daily living single law"); Tafflin Levitt, 469, 792, 800, 887 (1990) (SCALIA, concurring).15 Alexander Hamilton expressed principle classic passage: 13 "[I]n they expressly future acts national legislature, [state courts] will course cognizance give birth. This I infer nature judiciary power, genius system. looks beyond municipal laws, lays hold subjects between dispute relative most distant part globe. 14 Those Japan, than furnish objects discussion courts. When addition consider governments, truly are, light kindred systems, parts ONE WHOLE, inference seems conclusive, Union, where prohibited." Federalist 82, p. 132 (E. Bourne ed. 1947) added). 15 Three corollaries follow proposition "federal" "Law Land" State: 1. 387-388, 747 (1929) (Holmes, J.).16 existence implication it." 327 (1912); Testa Katt, 330 386, 67 810, 91 967 (1947); Missouri Louis, B. M.R. Taylor, 266 200, 208, 47, 48, 69 247 (1924); Robb Connolly, 111 624, 637, 544, 551, 28 542 (1884).17 17 2. suggestion act harmony free decline quite inadmissible presupposes what contemplation exist. Congress, exertion confided adopted act, spoke people thereby all. [the State] emanated respected accordingly State." Mondou, U.S., S.Ct., 178; Miles Illinois Central 315 698, 703-704, 827, 830-831, 86 1129 (1942) ("By virtue states must remain open litigants springing source"); McKnett San Francisco 292 230, 233-234, 690, 691-692, 1227 (1934); (1916); cf. FERC 456 742, 776, 2126, 2146, 532 (1982) (opinion O'CONNOR, J.) (State discriminate action). 18 3. regarding administration courts, utmost caution deciding obligated Southern Mayfield, 340 71 95 (1950); Georgia Rail Road Banking Musgrove, 335 900, 407, 435 (1949) (per curiam); Herb Pitcairn, 324 117, 459, 89 789 (1945); (1929). requirement competent treat necessarily include create presented. rule, "bottomed deeply belief control procedure, takes finds them." Colum.L.Rev., 508; Southland Corp. Keating, 465 33, 852, 869-70, 79 (1984) (O'CONNOR, dissenting); 774, 2145 Powell, J.). great latitude establish structure Herb, supra; Lewis, 30-31, 25 (1880). addition, procedural 123 348, 1835. 19 These fundamental federalism share application enforcement example, Employers' Liability (FELA) "may enforced, prescribed adequate occasion." 59, 179. Connecticut declined FELA "not accord State," "inconvenient confusing" Id., 55-56, 177-178. noted, some significance, attempted "to enlarge regulate affect procedure," id., 56, found wrongful-death court's "appropriate occasion," 178. creat[ed] it," overcome Act, 20 McKnett, refused corporation injury suffered another State. "[w]hile prohibits refusing 691-692 (citation omitted). Because "general class here belongs, situated bar," 232, 691, discrimination 234, 692, 21 unanimously reaffirmed these Katt. Rhode Island treble Emergency Price Control "adequate 394, 815. distinguished "penal statute," Full Faith Credit argument. observed enforced "same type claim" double 814-15. concluded "jurisdiction adjudicate action." Ibid.18 labeling "penal." considered prevailing state" refuse 'because conceptions impolicy want wisdom called play powers.' 393, 814 598). 22 occasions Each them involved administration. (1929), discretionary neither resident forum State.19 arose outside territorial jurisdiction. "because one," evidence "construed venue discriminatory fashion." 123, 462. Finally, doctrine non conveniens bar adjudication "enforces impartially involve suits." 4, IV disagree proper characterization decision. Petitioner argues Respondents, stressing "opened state," 708, argue simply involves conclude framed pre-emption assume action, respondents enjoy above already provided elements of, defenses to, defined Monessen Southwestern Morgan, 330, 335, 1837, 1842, 349 Chesapeake Ohio Kuhn, 284 44, 46-47, 52 45-46, 76 157 (1931). not, whom Moor Alameda, 411 693, 698-710, 1785, 1789-1796, 596 (1973). word exclude defendant. Conversely, since corporations "persons," Monell York Social Services, 436 658, 663, 2018, 2021-22, 611 (1978); 69, 9, 2311, 9; Mt. Healthy Bd. Education Doyle, 429 274, 97 568, 572-573, 50 471 (1977), entertaining adhere interpretation. "Municipal defenses—including assertion immunity—to course, controlled 647, 30, 1413, 30. "By 'persons' Congress—the matters law—abolished whatever vestige municipality possessed." 647-648, 1413-14 (footnote California purported public parole release "even [was] courts." 558. explained: 26 'Conduct 1985(3) construction controlling effect transmute basic guarantee illusory promise; supremacy clause insures enforced. McLaughlin Tilendis, 398 F.2d 287, 290 (7th Cir.1968). law.' Hampton Chicago, 602, 607 (CA7 1973), 415 917 [94 1414, 39 471]." Id. 8. 27 followed Wisconsin notice-of-claim effectively shortened limitations imposed exhaustion insofar actions. After observing lower exception, statutes inapplicable stated consensus demonstrated "enforcement interfer[ed] frustrat[ed] created." 151, 2313. concluded: subdivisions choice Legislature, made, override." 143, 2309. While consistent foregoing extension flatly holdings Felder. 922-924, (1978). interpreted make absolutely statute. To reflects violations, override dictates "Congress surely assign legislatures conclusive role formative function defining characterizing essential Wilson Garcia, 261, 269, 1938, 1943, 85 254 (1985). 29 226 (1915). present questions require capacity authorize service process who jurisdiction.20 jurisdiction.21 exercises (including boards), size here, enter them. officers22 remedies requires. Sullivan Little Hunting Park, Inc., 396 229, 238, 90 400, 405, 386 (1969). complied procedures invoking 30 mere respondents' amici, unlawful addresses "are likely frivolous suits," Brief Washington Legal Foundation Amici Curiae clearly sufficient justification reasons never board. More importantly, kind excuse" upon activity understand way saying disagrees Sovereign turns claim—whether allegedly breached discretionary—not dispute. ranging schooling protection individuals using parking lots,23 suit. reject chosen, reasons, render liable. 'refuse Testa, 31 amici predicated entitlement limited resources warrants little response. adopt discourage kinds, long relieve congestion declaring whole frivolous. Until proved merit, up make. Respondents offered entities. officer adequately police lot officers arresting roadside, reason, direct simple V 33 offer final arguments Appeal.24 First, oral argument—but brief—they Second, set aside find contentions. 34 settled parallel term "jurisdiction." First Nat. Bank Chicago Air Lines, 342 396, 96 441 (1952); Hughes Fetter, 341 609, 611, 980, 982, 1212 (1951); Broderick Rosner, 294 629, 642-643, 55 589, 592-593, 1100 (1935); Kenney Lodge, Loyal Order Moose, 252 411, 371, 638 (1920). "escape validly created device removing compe tent." Hughes, 982.25 Similarly, evade strictures Privileges Immunities denying competent. Angel Bullington, 183, 188-189, 657, 660-661, 832 (1929); White Wall. 646, 653-654, 685 (1872) (Contract Clause). establishes, true respect obligations Clause.26 force weak evaded mention Indeed, overrule (1988), amending failed required notice. requires that. 35 Respondents' ancient argument, slightly dress, redefine providing certain forms qualified Wood Strickland, 420 308, 992, 43 214 (1975); Scheuer Rhodes, 416 94 1683, (1974); Pierson Ray, 547, 87 1213, 288 (1967), person, (1989); Ngiraingas Sanchez, 495 182, 1737, 163 (1990); (1979). But liability, heritage. uphold opportunity mantle "persons" then nullify legislative behalf People. reversed, remanded proceedings opinion. 37 ordered. Title relevant part: "Every who, statute, ordinance, regulation, custom, usage, ., subjects, subjected, deprivation rights, privileges, immunities secured shall party injured equity, proceeding redress." call board's potential if, delegated decisionmaking area principal. 924, (1988) brief, address, 5; 1-2. expanded respects narrowed others. Cauley Jacksonville, 403 379 (Fla.1981). Before passage 768.28, cast serious doubt. previously noted led abrogation immunity: seminal Hargrove Town Cocoa Beach, 130 (1957), spawned 'a minor avalanche repudiating immunity,' which, conjunction resulted consequence handful still cling old functions." 28, (1980) "jurisdictional." Schmauss Snoll, 245 112 (App. 3d Dist.1971). enactment jurisdictional, Kaisner Kolb, 509 1215, 2d Dist.1987), rev'd 543 732 Sebring Utilities Comm'n Sicher, 968, 969 Dist.1987); Highway Safety Motor Vehicles Kropff, 1252, 1254, Dist.1986), least come opposite conclusion, Hutchins Mills, 363 818, 821 1st Dist.1978); Penthouse, Inc. Saba, 399 456, 458, Dist.1981) ("Discretionary rise tortious. definition, discretion act"). officer, employee, agent employment, personally named "acted bad faith malicious purpose exhibiting wanton willful disregard human safety property." 768.28(9)(a) Counsel represented Tr. Oral Arg. 16. Health Rehabilitative Servs. Yamuni, 529 258, 261 (Fla.1988) ("We recede Reddish activities performed persons. making planning level"); Commercial Carrier Indian River 371 1010, 1016-1017 (Fla.1979) (citing Towing 350 61, 64-65, 122, 124-125, (1955)). Dunagan Seely, 533 867, 869 Dist.1988). (Fla.1989). statements Everton Willard, 468 936, 938 (Fla.1985) special relationship exists entity, care owed individual. illustrated situation accept assisted prosecution criminal danger assistance. reasonable arise"). Slemp North Miami, 256 261. Avallone Commissioners, 1002 (Fla.1986) (negligent pool); Transportation Webb, 438 780 (Fla.1983); Perez Transportation, 830 Petersburg Collom, 419 1082 A.L. Lewis Elementary Metropolitan Dade 376 (Fla.App. Dist.1979). defects road install traffic devices regulated "inherent overall plan." Neilson, 1071, 1077-1078 (Fla.1982); Ingham 1081 Harrison Escambia Bd., 434 316, 320 (Fla.1983) words 'most reasonably safe locations available' fixed readily ascertainable location bus level decision"). 867 Dist.1988); Green Inman, 539 614 4th Dist.1989); Hutchinson Miller, 548 883 5th Whaley, 531 723 Dist.1988) juvenile delinquent). supervise staffs conditions lots facilities. Daniele 375 Dist.1979); Kennedy, 1210 Dist.1983) (maintenance sidewalk); Pitts 374 996 Dist.1978) (negligence failing attacked third party). preserves judgment. 936 (Fla.1985); Smith, 929 Trianon Park Condominium Assn., Hialeah, 912 (Fla.1985). duties. 919 branch interfere [legislative] functions provision ") Prior Appeals waiver-of-immunity constitute consent Gamble Servs., 779 1509 De Bleecker Montgomery Md. 498, 513, A.2d 1348, 1356, Kapil Association Pennsylvania College University Faculties, 68 Pa.Commw. 448 717 (1982), 504 Pa. 92, 470 482 (1983); Karchefske Mental Health, 143 Mich.App. 9-10, N.W.2d 876, 881-882 (1985); Kristensen Strinden, 343 (N.D.1983); Ramah Navajo Board, Revenue, N.M. 302, 720 P.2d 1243 (App.), 479 940, 423, 373 (1986); Woodbridge Worcester Hospital, 384 Mass. 38, 44-45, 7, 423 N.E.2d 782, 786, (1981). remand explanation. reason believe rested unstated Employment Division, Human Resources Ore. 660, 673-674, 1444, 1451-1452, 753 independent ascertain defeating rests "fair support" (1969); 454, 1167-68, Broad Power South Carolina Daniel, 281 537, 540, 401, 402-03, 74 1023 (1930). rest nothing ultimate "any title, privilege, specially claimed Constitution." 1257(a); Martin Hunter's Lessee, Wheat. 304, (1816). "To easy method avoiding court." Terre Haute Indianapolis Indiana Ketcham, 194 579, 767, 769, 1124 (1904) Georgia, Pet. 515, 571, 483 (1832) (McLean, J.): "It governments; consequently hostile thorough investigation lie foundation proceeds people, governments. "Where, legislation exclusively vested legislate enactments legislature state." oust Yellow Freight System, Donnelly, 494 820, 1566, 834 Houston Moore, 25-26, (1820). rel 1168; Eustis Bolles, 150 361, 1111 (1893); why so, need imagine contrary operated constraint judges actors, rather hypothesis, superintendence vacate judgments overturn unconstitutional executive decisions. it. Wechsler, Appellate Jurisdiction Court: Reflections Logistics Direct Review, Wash. Lee L.Rev. 1043, 1047 (1977) (describing, rejecting, alternative intrusion autonomy). Clause—which directs Judges bound thereby, Thing Laws Contrary notwithstanding" confirm consequent land. Early history, Story anticipated ordinary incidentally constitution, treaties States," Wheat., 342, decide when, pleaded replication, plaintiff's 340. adequate-state-ground accords decisionmakers honoring review, decision, Cardinale Louisiana, 394 437, 1161, Farm Mutual Automobile Ins. Duel, 154, 160-161, 573, 576-577, 812 McGoldrick Compagnie Generale Transatlantique, 309 430, 434, 670, 672-73, 849 (1940), district original alleging giving Rooker Fidelity Trust 263 413, 415-416, 44 150, 362 (1923) ("If bill actually cause, them; wrong, Unless until modified, effective adjudication"); Columbia Feldman, 460 462, 476, 483-484, 16, 103 1303, 1315-1316, 75 206 (1983), presuppose presumptively excuse. rests, presumption about congressional intent explicit intends 8-9, 13. strikingly addressed (1916), comply Seventh hearing [had] become exercising whenever right." 598. again today. Bombolis: Case embraced powers. ruling implied declared depended conception enforcing deriving States. rested, questioning diverse sources drew authority, recognized unity fealty national, constitutions, resting them, lawfully created, whose arose." 222-223, 598-599. 469-470, 800 concurring). cited code authorizing Superior fines, penalties, forfeitures. 13, 815 R.I.Gen.Laws, ch. 631, (1938)). very given discretion, competent, duty. purports Courts Cases, 57 [32 327]." 356-357. Virtually opened systems S. Steinglass, Litigation 1-3, E (listing cases). occasion address contentions National Counties 16-25; 9-15, Maine Thiboutot, 3, 2502-2503, 555 (1980); 283, 26.012(2)(a) Lloyd Ellis, 520 Skoblow Ameri-Manage, 809, aff'd Spooner 514 1077 (1987); Chapman 517 104, 105-106 Arney Resources, 1041, 1045 Dist.1983); 458-459 Dist.1981). merits applications attorney's fees 1988, boards. Hoffmeister Coler, 544 1067 Franklin Page, 540 891 Dist.1989). nn. 7-11, supra. brief arm opposition petition certiorari, here. Equalization Sierra Summit, 844, 846, 2228, 2231, 910 Canton Harris, 378, 384-385, 1197, 1204-1206, 412 Oklahoma Tuttle, 808, 815-816, 2427, 2431-32, 791 Currie, "Transitory" Cause Action, Harv.L.Rev. 268, (1959) forecloses social economic policies full credit sister state"); Substance Procedure Actions—The Converse Erie Problem?, St.L.J. 384, 410-411, 159 (1956) ("Just obliged states, obliged, Congressional directive, law" (citations omitted)); Brilmayer Underhill, Obligation Provide Forum Constitutional Claims: Discriminatory Jurisdictional Rules Conflict Laws, Va.L.Rev. 819, 819-829 (1983). Brandeis (1934): determine limits character controversies heard is, restrictions privileges substantially access citizens. Corfield Coryell, Wash.C.C. 381. Compare Canadian Northern Ry. Eggen, 553 [40 402, 713.] recovered although obnoxious policy. Fauntleroy Lum, 210 230 [28 641, 1039;] 372, 638;] Loughran Loughran, day, ante, 216[, 684, 1219]. 327] domestic corporation, occasion, Act." 233, 691-92.

Classification Label: 9