Legal Document

487 U.S. 131 108 S.Ct. 2302 101 L.Ed.2d 123 Bobby FELDER, Petitionerv.Duane CASEY et al. No. 87-526. Argued March 28, 1988. Decided June 22, Syllabus Nine months after being allegedly beaten by Milwaukee police officers who arrested him on a disorderly conduct charge that was later dropped, petitioner filed this state-court action against the city and certain of under 42 U.S.C. § 1983, alleging beating arrest were racially motivated violated his rights Fourth Fourteenth Amendments to Federal Constitution. The (respondents) moved dismiss suit because petitioner's failure comply with Wisconsin's notice-of-claim statute, which provides, inter alia, before may be brought in state court or local governmental entity officer, plaintiff, within 120 days alleged injury, must notify defendant circumstances amount claim plaintiff's intent hold named liable; then has grant disallow requested relief; plaintiff bring six receiving notice disallowance. denied motion as 1983 claim, Wisconsin Court Appeals affirmed. Supreme reversed, holding while Congress establish procedural framework claims are heard federal courts, States retain authority Constitution prescribe procedures govern actions their own tribunals, including vindicate congressionally created rights. Held: Because statute conflicts both its purpose effects 1983's remedial objectives, enforcement will frequently predictably produce different outcomes litigation based solely whether is asserted court, it pre-empted pursuant Supremacy Clause when court. Pp. 138-153. (a) Unlike lack statutes limitations civil laws—which led borrowing state-law periods for personal injury claims—the absence any provision not deficiency requiring importation such into scheme. Notice-of-claim rules neither universally familiar nor sense indispensable prerequisites litigation, there thus no reason suppose intended courts apply rules, significantly inhibit ability actions. With regard pre-emption (as opposed adoption) law, application requirement burdens exercise right forcing victims seek redress absent from courts. Moreover, takes place 139-141. (b) undermines unique remedy bodies officials conditioning recovery so minimize liability. also discriminates right, since State affords victim an intentional tort two years recognize compensable nature her given only four appreciate he she been deprived constitutional statutory right. operates, part, exhaustion claimants satisfaction first instance defendant. never those injured wrongdoers could required, condition recovery, submit government responsible injuries. 141—142. (c) chosen, through legislative scheme governing citizens' sue State's subdivisions, expose subdivisions large liability defense costs, made concomitant decision impose conditions assist controlling costs. subject violations rights, however, choice made, override. That hear entire cause once complies does alter fact precise type created. 142-145. (d) While prompt investigation inures benefit governments, enacted primarily defendants, afford defendants opportunity prepare stronger case. Sound notions public administration support requirement, but policies necessarily clash purposes laws. 145-146. (e) Patsy v. Board Regents Florida, 457 496, 102 2557, 73 172, held plaintiffs need exhaust administrative remedies instituting suits inapplicable theory, Court, extend far permit vindication meant provide individuals immediate access did contemplate sought required very whose hostility precipitated There merit respondents' contention imposed essentially de minimis settlement period entails none additional expense undue delay typically associated remedies, claimant's full compensation suit. extent designed sift out "specious claims" stream complaints can inundate governments immunity, policy inconsistent aims legislation. 146-150. (f) Application cannot approved matter equitable federalism. Just constitutionally obligated law claims, imposes duty proceed manner all substantial parties protected. A alters outcome depending they obviously interest intrastate uniformity. 150-153. 139 Wis.2d 614, 408 N.W.2d 19, reversed remanded. BRENNAN, J., delivered opinion WHITE, MARSHALL, BLACKMUN, STEVENS, SCALIA, KENNEDY, JJ., joined. concurring opinion, post, p. ---. O'CONNOR, dissenting REHNQUIST, C.J., joined, Steven H. Steinglass, Cleveland, Ohio, petitioner. Grant F. Langley, Milwaukee, Wis., respondent. Justice BRENNAN Court. 1 provides giving rise liable. further requires that, order consider relief, claimant refrain filing providing notice. Failure these requirements constitutes grounds dismissal action. In present case, applies 1983. we conclude reverse. 2 * On July 4, 1981, stopped Felder questioning searching neighborhood armed suspect. interrogation proved hostile apparently loud, attracting attention family neighbors, succeeded convincing man sought. According reports, directed return home, continued argue pushed one them, thereby precipitating conduct. Petitioner alleges course beat about head face batons, dragged across ground, threw him, partially unconscious, back paddy wagon first, view neighbors. Shortly afterwards, response alderman members Police Department arrived scene began interviewing witnesses arrest. Three later, wrote directly chief requesting incident. Petitioner, black, various responded request conspiring cover up misconduct arresting officers, whom white. took disciplinary City Attorney subsequently dropped 3 incident, County Circuit unprovoked motivated, United He 1983,1 well attorney's fees statute. maintained subdivision, agency, officer unless either written demonstrates relevant had actual prejudiced Wis.Stat. 893.80(1)(a) (1983 Supp.1987).2 party seeking itemized statement relief subdivision relief. 893.80(1)(b). Finally, disallowed. Ibid. 4 trial granted officers' causes remaining claims. affirmed basis earlier decisions reversed. 19 (1987). Passing question time, reasoned tribunals. Accordingly, chooses abide procedures. Requiring compliance determined, frustrate deterrent laws limits recover violation precludes possibility altogether. Rather, reasoned, advances legitimate interests protecting stale fraudulent facilitating valid identifying correcting inappropriate employees officials. Turning concluded lodged neighbors letter submitted failed satisfy statute's standard, communications recited facts injuries revealed 5 We certiorari, 484 942, 326, 98 354 (1987), now II 6 No disputes general unassailable proposition relied upon below procedure By same token, where entertain federally action, "federal defeated forms practice." Brown Western R. Co. Alabama, 338 294, 296, 70 105, 106, 94 L.Ed. 100 (1949). us today, therefore, pre-emption: consistent goals laws, instead " 'stan[d] obstacle accomplishment execution objectives Congress' "? Perez Campbell, 402 637, 649, 91 1704, 1711, 29 233 (1971) (quoting Hines Davidowitz, 312 52, 67, 61 399, 404, 85 581 (1941)). Under Constitution, "[t]he relative importance material conflict law," "any however clearly acknowledged power, interferes contrary yield." Free Bland, 369 663, 666, 82 1089, 1092, 8 180 (1962). at issue here 7 Section creates species favor persons wielding authority. As have repeatedly emphasized, "the central objective Reconstruction-Era . ensure abridged damages secure injunctive relief." Burnett Grattan, 468 42, 55, 104 2924, 2932, 36 (1984). Thus, "a uniquely incursions secured Nation," Mitchum Foster, 407 225, 239, 92 2151, 2160, 32 705 (1972), accorded sweep broad language." Price, 383 787, 801, 86 1152, 1160, 16 267 (1966). Any assessment applicability light This arises possess concurrent jurisdiction over actions, see 506-507, 2562-2563, 172 (1982), federal-court where, fail thought essential orderly adjudication occasionally called borrow law. See immunizes otherwise preempted, even immunity would thwart congressional remedy, Martinez California, 444 277, 284, 553, 558, 62 481 (1980), already immunities e.g., Davis Scherer, 183, 3012, (1984); Stump Sparkman, 435 349, 1099, 1099 (1978); Imbler Pachtman, 424 409, 96 984, 47 128 (1976). Similarly, disapproved adoption limitation truncated time file suit, inadequately accommodate complexities compensatory aims. Burnett, supra, U.S., 50-55, S.Ct., 2929-2932. And lower cases "most unlikely applicable ever was, be, fixed [by forum State] way discriminate respect." Wilson Garcia, 471 261, 279, 105 1938, 1949, 254 (1985). 9 Although passed question, all, exception, provisions States, 239 U.S.App.D.C. 345, 356, n. 6, 742 F.2d 1498, 1509, (1984) (en banc) (collecting cases); Cardo Lakeland Central School Dist., 592 F.Supp. 765, 772-773 (SDNY 1984). These unlike among aspects considered justice, entirely reasonable assume intend create enforceable perpetuity. provisions, contrast, "significantly actions." U.S.App.D.C., 354, F.2d, 1507. 10 fully agree near-unanimous conclusion judgment dispositive here, pre-emption. Nevertheless, determination informs our analysis crucial respects. First, burden, explain below, design effect Second, reveals outcome-determinative entertaining substantive B 11 noted above, actors. accomplishes goal creating form nature, runs specific class defendants: "uniquely remedy," several interrelated ways. authorized, manifestly statute: Nor neutral uniformly rule procedure; rather, burden resulting use misuse forces think plain 12 (1) 13 part broader citizens subdivisions. earliest current forms, circumscribed waiver recoverable here. preempted Thompson Village Hales Corners, 115 289, 340 704 (1983), recognizes partial yield case attached nevertheless enforced conditions, mirror judicial replaced. Such "are defendants," Civil Actions, 564, enable "investigate early, perhaps reach early settlement." 353, 1506. unable obtain satisfactory settlement, relatively short body disallows "assure initiation litigation." Gutter Seamandel, 103 1, 308 403, 413 (1981). To sure, serves notifying proper dangerous physical unlawful conduct, allows corrective measures. Nielsen Town Silver Cliff, 112 574, 580, 334 242, 245 (1983); Binder Madison, 72 613, 623, 241 618 interest, predominant Indeed, emphasized requisite spell seeks precisely minimizing expenses it. Gutter, Wis.2d, 10-11, N.W.2d, (statute's served demands sum money); Pattermann Whitewater, 350, 355-359, 145 705, 708-709 (1966) (distinguishing notice-of-injury requirement). 14 sum, respondents explain, chosen and, choice, "assis[t] municipalities costs." Brief Respondents 12. Congress, Legislature, understandable laudable might patently incompatible legislation, means effectuate 15 incompatibility itself, operates precedent entities officers. Sambs Nowak, 158, 167, 177 144, 149 (1970). "Congress," previously noted, "surely assign legislatures conclusive role formative function defining characterizing elements action." Wilson, 269, 1943. Yet consequence what done here: although bringing unit allege complaint, Nielsen, 245, confers affirmative obligates demonstrate showing altogether unnecessary more than bar altogether, particularly grow which, necessary assertion state-created irrelevant insofar concerned, Martinez, applied control authorized. burdening moreover, natural permissible neutral, rule. true between remains law's protection extends therefore accept suggestion simply vast rooted unrelated definition particular 'the action' plaintiff." International Management Association Amici Curiae 22 (Brief ). contrary, plaintiffs—those seen, firmly much related to, provided plaintiffs. defendant-specific focus distinguish it, rather starkly, suits, service process substitution parties, cite examples penalize noncompliance dismissal. 17 (2) 18 amici suggest alike, accurate factual picture 564 (emphasis added); choosing highly fix Here, most emphatically detrimental right: wish abbreviated period. Many victims, 4-month window provision,3 barred asserting show responsible—a vividly demonstrate, easily Wisconsin. (3) 20 choose assert inasmuch violation, wait investigates attempts settle deemed theory 23. just explained, Patsy, widespread deprivations Southern inability unwillingness authorities protect punish wrongdoers. 503-505, 2561-2562; 276-277, 1947-1948, 1949. principal chose 503-504, 2561-2562, leave exclusively hands judiciary, conferred well. 2562-2563. Given evil legislation aimed, "to notwithstanding contrary," id., 504, 2561, yet contemplated injuries.4 21 indeed argument fails reasons. ignores prior dominant characteristic actions: belong court." 50, 2930 added). "These action," "exist independent other legal available They judicially instance." course, vary litigated adulterate dilute feature imposing mandatory periods, how waiting serve appear. rested history Rights Institutionalized Persons Act 1980, Stat. 1997e, established actions—those adult prisoners challenging confinement—and doing, expressly recognized working change refused engraft onto another one, imposition recognition normally 508-512, 2563-2566, concerning desirability scope turn host considerations "do invariably point direction," reason, best left "Congress' superior institutional competence." Id., 513, 2566. "[P]olicy alone," concluded, "cannot justify intent." involve lengthy expensive proceedings, caused place. dispute resolution system commend make, ago rejected utterly notion require offending 23 urged 6-month enjoy "some seemingly endless unfounded, often stale, lawsuits them." 54, 2932 (internal quotation marks omitted; citation omitted). contention, "reflects factors diversion officials' duties outweigh [claimants] ready resolve claims." 2932. explained there, reaffirm "[t]hat statutes." C 24 supporting urge approve note '[t]he rule, bottomed deeply belief procedure, finds them.' Hart, Relations Between Law, 54 Colum.L.Rev. 489, 508 (1954)). Litigants presumably do advantages draw juries urban populations. Having availed themselves benefits, litigants find less liking. 25 However bitter-with-the-sweet appear abstract, analysis. them employ "impose authorized laws." 298-299, 108; Monessen Southwestern Morgan, 486 330, 336, 1837, ----, 349 (1988) (state encourage limit action). make congenial fit—not quid pro quo other, uncongenial congeniality stand goals. frustrates Clause, interest. interference, renders invalid. depend federalism rely dictate give asserts 26 Erie Tompkins, 304 64, 58 817, 1188 (1938), exercises diversity pendent should substantially same, determine if tried Guaranty Trust York, 326 99, 109, 65 1464, 1470, 89 2079 (1945). provision. Orthmann Apple River Campground, Inc., 757 909, 911 (CA7 1985). Erie, 78-79, 822-823, too [are] protected." Garrett Moore-McCormack, Co., 317 63 246, 251, 87 (1942). 27 injuries, 2929, period, 3, mere months. Unless prove simple task Wisconsin, damages, all. demanding '[w]hatever spring set endeavoring confers, plainly reasonably name practice.' Wechsler, 263 24, 44 13, 14, 68 143 (1923)). procedure: discussed entities, correctly governs Orthmann, 911. Trust, limitations, deem barred. Conversely, decline properly presented timely free underlying 28 characterized approach ensured State, comported desire uniform each State. 274-275, 1946-1947. III enacting entitled deprivations. liability, directs targets Principles federalism, 30 remanded proceedings opinion. 31 It ordered. concurring. 33 disputed included entertained limitations. observed Employers' Liability 1908, 35 65, 45 51 seq., "[i]f [a Act] found record shows lapse [A]ct says shall maintained, States." Atlantic Coast Line Burnette, 199, 201, 75, 76, 60 226 (1915). Engel Davenport, 271 33, 38-39, 46 410, 412-413, 813 (1926); McAllister Magnolia Petroleum 357 221, 228, 78 1201, 1206, 1272 (1958) (BRENNAN, concurring). 34 determined ought borrowed contains own, entertains (1985), law1 governed single supported uniformity, certainty, minimization litigation," 275, 1947, personal-injury ensuring remedy." 276, 1947. assumed Garcia timeliness See, Russell Anchorage, 743 P.2d 372, 374-375, (Alaska 1987); Ziccardi Pennsylvania Dept. General Services, 109 Pa.Cmwlth. 628, 634635, 527 A.2d 185-186 (1987); Walker Maruffi, N.M. 763, 766-769, 737 544, 547-550 (App.), cert. denied, 707, 736 985 (1987) (table); Maddocks Salt Lake Corp., 740 1337, 1338-1339 (Utah 423 South Salina Street, Inc. Syracuse, N.Y.2d 474, 486-487, 510 N.Y.S.2d 507, 513-514, 503 N.E.2d 63, 69-70 (1986), appeal dism'd, 1008, 107 1880, 95 488 Fuchilla Layman, 210 N.J.Super. 582-583, 281, 286 aff'd, N.J. 319, 537 652 (1988); Henderson 110 Idaho 308, 311, 715 978, 981, 477 907, 106 3282, 571 (1986); Frisby Education Boyle County, 707 S.W.2d 359, 361 (Ky.App.1986); Vanaman Palmer, 506 190 (Del.Super.1986); Hanson Madison Service 125 138, 141, 370 586, 588 (App.1985). likewise claim.2 effectively dismissing events 893.80 Supp.1987).3 Hence, allowed investigate (or lawyer so), three similar private party. 120-day period—or, indeed, year—to claim.4 reflects generally accepted policymakers suffered fairly expected time. 37 suit—which "in reality, 'an rights' 265, 1941 731 640, 651 (CA10 1984)(opinion below))—thus promote assure "discriminate I adverse impact articulated proscribes 38 THE CHIEF JUSTICE joins, dissenting. 39 "A 'inconsistent' merely lose Robertson Wegmann, 436 584, 593, 1991, 1996, 56 554 (1978). Disregarding self-evident principle, today holds pre-emptive force purports invoke, precedents. Relying intuitions laws," ante, fashions new unnecessarily improperly suspends perfectly said "unenacted approvals, beliefs, desires Puerto Rico Consumer Affairs Isla 485 495, 501, 1350, 1354, 99 582 (1988). Today's departs unquestionable proposition, obvious principle unexpressed 40 limited municipal officials, least important apart special litigation. helps receive wrongful practices, enables take fashion, making easier ascertain accurately meritorious without benefits come surprise adopted requirements. App. 1a-2a. Without some compellingly clear indication forbidden "pre-empted" Allusions vague concepts actually relies on, adequate substitute customarily ourselves used 41 worth recalling, vehicle enforced. Its purpose, said, 'was interpose people, guardians people's .' 503, (1982) 2162, (1972)) For original version exclusive arising 1871, ch. 13. proof "Congress ago," 149, possibly operation "pre-empt" using like today. always 283, 7, (1980). Abandoning restoring tradition jurisdiction, "did behind grin cat." 1355. slightest replace majority not, cannot, evidence contrary. 43 effort fatal defect position, engages extended discussion supra. 147-149. majority's conclusion. indicating characteristics 502-507, 2560-2563, came hesitant "it seems fair infer 1871 individual compelled every [§ 1983]," 2563 Even conclusion, admitted, "somewhat precarious," ibid., able proposition—from follows fortiori—that adopts 352, ordinarily prisoner "legislative 1997e taken carving exceptions 1983." 512, 2565 finding lends concerned itself conclusively believe somehow inherently reasons, (1949), quoted majority, Brown, arose (FELA), court's interpretation allegations complaint Concluding operated "detract 'substantive FELA cases," "simply h[e]ld error [the claimant] try case." 299, (citations Moore-McCormack 249, 252-253, (1942) ("Deeply admiralty [to presumption] is, substance plaintiff's] incident procedure") diminish cognizable concedes, "will statute." Ante, 145. Unable position history, suggests "discriminates right." 141. adopt discrimination, challenged "conditio[n] [viz., officials] liability." 144—145. untenable. erects barrier anyone. Every option proceeding concedes. "discriminates" created: selected instead. "discrimination" unsupported parallel doctrine (1938). Quoting "outcome-determinative" test (1945), opines hearing obliged suits. sort upside-down attributes implications "reverse-Erie" quite clear. If seriously, follow plaintiffs, "outcome determinative." If, principles unsuccessful analogy, attenuated, today's unprecedented holding. 48 "Borrowing" 1988, cites times, little Erie. cases, sometimes fill gaps (1985); necessity supple- menting caution supplanting gaps, certainly offers 49 WHITE's concurrence argues preclude 154—154. Assuming, arguendo, mistaken treating acknowledges, delay. 155, 3. nonetheless equivalent 'actual notice' difficult satisfy." sufficiently burdensome act characterization "detailed damages" submitted; "recit[e] [indicate] injury." 630, suggested encountered difficulties doing so. lawsuit, himself capable doing. Far encountering "difficulties" complying tried. 50 outset, characterizes arrive result forced search "inconsistencies" ill-defined articulated, implied, suggested, let alone enacted. difficulty explaining problem wrongly imagines solving. rejects provided. Virtually conceivable voted feet systems, hardly ask combines gave Fortunately consulted. concept meaning respectfully dissent. Title part: "Every person who, color ordinance, regulation, custom, usage, subjects, subjected, citizen thereof deprivation privileges, liable equity, redress." stated 1985(2), conspiracy interfere treated identical "(1) Except sub. (1m), agency official, agent employe acts official capacity employment unless: "(a) Within happening event signed party, attorney employe. prejudicial employe; "(b) containing address appropriate clerk performs secretary presentation Notice disallowance registered certified mail receipt therefor, claimant, returned letter, service. date notice, contain effect." provisions. Actions Against Government, Divisions, Agencies, Officers 559-569 (W. Winborne ed. 1982) (hereinafter Actions). specify initiate Certain liberty readily common-law analogues, battery. 893.57 drastically reduces tortfeasor employee. many deprivations, involving denial due equal protection, subtle. latter, negligible, category wronged Several "even reform-minded post-Civil War era undertake reform field adjudication," perquisites courts." 16. misses mark. defects perceived lay jury factfinding processes, skewed prejudices, 506, 2562, procedure. saw future procedures, unheard enactment inflicted similarly statute-of-limitations surely decide 2-year torts, 3-year "injuries person," 893.54(1). initial "shall [governmental] defendant." "actual notice" satisfy. example, received though occurrence. 629-630, 25-26 Shapiro, Choosing Appropriate Statute Limitations Claims After U.Balt.L.Rev. 245-246 (listing potentially District Columbia); Comment, Memphis St.U.L.Rev. 127, 136-137, 74 (1986) Columbia, Rico).

Classification Label: 9