Legal Document

411 U.S. 693 93 Supreme Court Reporter 1785 36 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 596 David MOOR et al., Petitioners,v.COUNTY OF ALAMEDA al. Number 72—10. Argued Feb. 27, 1973. Decided May 14, Rehearing Denied June 18, See 412 963, 2999. Syllabus Petitioners Moor and Rundle brought damages actions in the District against respondents, several law enforcement officers Alameda County. Against County they alleged federal causes of action under Civil Rights Act 1871, 42 Code KF62 §§ 1983 1988, pendent state claims tort statute, federal, as well state, being grounded on theory that was vicariously liable for officers' acts. Both petitioners jurisdiction 28 § 1343 Moor, additionally, diversity grounds. The moved to dismiss each case, contending that, claims, it not a suable 'person' Monroe versus Pape, 365 167, 81 473, 5 492; absent claim which there exists an independent basis jurisdiction, application doctrine with respect would be inappropriate; Moor's suit 'citizen' purposes. granted motions dismiss, Appeals affirmed. Held: 1. Section is clear from its legislative history, does independently create cause violation civil rights, apply provision here by imposing vicarious liability upon contravene holding supra, Congress' intent exclude State's political subdivision 1983. Pp. 698—710. 2. Even assuming, arguendo, had judicial power exercise over petitioners' require new party defendant, could federally cognizable claim, addition individual defendants whom assert such court did abuse discretion exercising view unsettled questions have been called resolve likelihood jury confusion resulting special defenses county available law. 710—717. 3. erred rejecting petitioner County, California has status, citizenship, since extends simply arm or alter ego State, Cowles Mercer 7 Wall. 118, 19 L.Ed. 86. 717—722. 458 Federal Reporter, 2nd 1217, affirmed part, reversed remanded. Ronald M. Greenberg, Los Angeles, Cal., petitioners. Peter W. Davis, Oakland, respondents. Mr. Justice MARSHALL delivered opinion Court. 1 This case raises three distinct concerning scope jurisdiction. We are decide whether lies municipality 1988 violate individual's rights where subject In addition, we must whether, municipality's police officers, may refuse based liability, State citizen purposes 2 February 1970, Rundle1 filed separate Northern seeking recover actual punitive injuries allegedly suffered them result wrongful discharge shotgun California, deputy sheriff engaged quelling disturbance.2 their complaints, named sheriff, plus other deputies, defendants. complaints both action. 3 were allegations conspiracy deprive constitutional free speech assembly, secure deprivation life liberty without due process These arise under, inter alia, 1985, asserted exist 1343. 4 As predicated contention Tort Claims 1963, Cal.Govt.Code 815.2(a), acts deputies committed Act.3 1988,4 thus also these argued before authority hear who Illinois his complaint citizenship.5 Initially, answered denying although admitted consented sued.6 Thereafter, arguing lack all suit. relied this Court's decision 187—191, 484—486, 492 (1961), having resolved within meaning 1983, alone considered barred. Moreover, Rundle, no existed inappropriate it. 6 agreed County's arguments motion It, however, postponed ruling pending consideration possible case. Subsequently, sought dismissed While pending, reconsideration order dismissing Following argument jurisdictional issues, entered incorporating reference again rejected arguments. Upon request petitioners, Court, finding 'no just reason delay,' intered final judgment suits Fed.Rule Civ.Proc. 54(b), thereby allowing immediate appeal decisions.7 two cases then consolidated appeal, Ninth Circuit issues raised cases, 1217 (1972). existence disagreed particular established created violated rights. Because importance decided Appeals, certiorari. 409 841, 66, 34 80 For reasons stated below, now affirm portion Appeals' held failed establish trial properly refused claims. reverse, 8 * consider first 1988. Petitioners' thesis is, essence, made conduct sheriffs violates Acts8 context authorizes adoption into render Acts fully effective, creating 9 reads, relevant follows: 10 'The . matters conferred district courts (the Acts) ., protection persons vindication, shall exercised enforced conformity laws States, so far suitable carry same effect; but adapted object, deficient provisions necessary furnish remedies common law, modified changed constitution statutes wherein held, inconsistent Constitution extended govern said disposition ..' 11 starting point (1961). There derived Ku Klux Klan April 20, 17 Statutes-at-Large 13, intended provide private parties abuses official resulted privileges, immunities.9 At time, Id., at 484—486. do squarely take issue status public entities Instead, argue construction placed municipalities effectively restricts injured recovery defendants, section cannot 'adapted' 'deficient remedies' view, personal practical matter, inadequate because frequently judgment-proof.10 Thus, contend appropriate adopt municipalities—that 'common held.' Having introduced through 1343(4). 1343(4) grants any 'commenced person (t)o equitable relief Congress providing .,' say, 'Act Congress.' 12 asking us substantive direction. Standard Oil Co., 332 301, 67 1604, 91 2067 (1947); cf. Gilman, 347 507, 74 695, 98 898 (1954). It rather, mandated California's course, uncommon direct used fill interstices law.11 But circumstances our function necessarily limited. assigned implication task selecting rules supplement restricted those contexts fact authorized resort law.12 Cf. Richards 369 1, 7—8, 82 585, 589—590, (1962). Considering perspective, unable conclude section, standing alone, authorize borrow entire 13 First, completely overlooks full language statute. enjoy stature rights,' Rather, plain face complement various rights.13 specifies '(t)he criminal chapter (Civil Rights) Title States.' inevitably existing will cover every action.14 proceeds courts, unsuited insufficient 'to remedies,' look principles altered long States. 14 role scheme legislation amply illustrated Sullivan Little Hunting Park, Inc., 396 229, 90 400, 24 386 (1969). Sullivan, confronted question availability discrimination property pursuant 1982 makes express remedy.15 concluded statutory right implies id., 239, S.Ct., 405, proceeded construe provides governing standard mean 'that utilized, whichever better serves policies expressed statutes. rule damages, drawn sources, responsive need whenever impaired.' 240, 406.16 Properly viewed, then, instructs what arising believe more, meant wholesale importation action17—not even one purportedly designed 15 confirmed history enacted 9, 1866, 31, 27. source 1982, Sullivan. initial hear, among things, enforce went should deficient.18 Considered context, latter 3, become applicable generally, obviously nothing more than explain applied Act, including 1.19 To hold otherwise tear loose roots 1866 Act. do. 16 yet another why reliance fail. statute expressly limits instances 'is Yet if municipalities, do, claim. Such seem less consistent prior U.S., intend municipal corporations See, e.g., Brown Town Caliente, 392 546 (CA9 1968); Ries Lynskey, 452 172, 174—175 (CA7 1971); Ames, 346 F.Supp. 1173, 1176 (Minn.1972); Wilcher Gain, 311 754, 755 (ND Cal.1970). argue, inconsistency between interpretation s here. They suggest involved susceptibility surrendered common-law immunity law; was, premised assumption muncipality deprived immunity. And Congress, reach this, lost immunity, introduction 18 effect, whatever factual premises Monroe, find seek impose 'persons' untenable. examining evolution pointed out Senator Sherman amendment added Although passed Senate,20 House,21 version included Conference Committee report.22 proposal encountered strongly views House part supporters opponents,23 root proposal's difficulties stemmed serious concern subdivisions States.24 20 occasion 'reach make individuals.' 191, 486. interpreting mistaken 1871 municipalities; light impressions act, see F.2d, 175. respect, doubted arrived firm conclusion lacked thus, according Representative Poland, Senate Conferees informed 'section towns counties go fail agree.'25 save given up.26 pose minds legislators problems caused defeat proposal. nevertheless toto, infer congressional municipalities—regardless lifted law—from 1983.27 unavailable insofar sue limitation contained it, accomplish clearly enacting 21 Accordingly, II 22 23 rely principally Mine Workers Gibbs, 383 715, 725, 86 1130, 1138, 218 (1966), eschewed 'unnecessarily grudging' approach Hurn Oursler, 289 238, 53 586, 77 1148 (1933), Gibbs contractor secondary boycott imposed union. support Nevertheless, deciding indicated considered. requisite 'power' 25 'whenever 'arising (the) Constitution, Laws Treaties made, Authority U.S.Const., Article III, 2, relationship permits comprises 'case.' substance sufficient confer matter court. derive nucleus operative fact. if, regard character, plaintiff's he ordinarily expected try proceeding, assuming substantiality whole.' 1138 (footnotes omitted). 26 '(i)t consistently recognized discretion, right. justification considerations economy, convenience fairness litigants; present hesitate though bound 726, 1139. By way explanation inform court's suggested, '(n)eedless decisions avoided comity promote justice parties, procuring surer-footed reading law,' ibid., 'reasons considerations, treating divergent legal theories relief, (may) justify separating trial,' 727, found proper discretion. 27 substantial Nor dispute involve 'a fact.' But, beyond significant difference cases. bring entirely party—a defendant—into litigation, problem 'pendent party,'28 implicated litigation only Faced distinction, below power, themselves Circuit's previous Hymer Chai, 407 136 (1969), permit joinder plaintiff. vigorously attack odds trend lower Gibbs. true numerous throughout appeals involving 'the 'case" defined Gibbs.29 stands virtually post-Gibbs appeals,30 significantly largely earlier Kataoka Department Stores 115 521 1940), predated expansion concept narrow set supra. finds analogues well-established ancillary compulsory counterclaims Fed.Rules 13(a) 13(h),31 third-party 14(a).32 counsels quick sweep limited jurisdiction—a subject, courts.33 Whether short, subtle complex far-reaching implications. difficult legitimate declined join suits. 29 indicated, agreed, least reasons. 'would legion.'34 felt 'with Calims case' tried jury, 'could unduly complicated.'35 evident 1138—1139, nature factors consider. weighed economy might achieved trying single proceedings. broad evaluating matters, say Judge struck balance improperly.36 therefore err, refusing III 30 remains, 1332(a). .petitioner Illinois, contends otherwise, however. while acknowledging body contrary authority, itself 'bound recognize adhere 'citizens' purposes,'37 Miller 341 964 1965); Lowe Manhattan Beach City School Dist., 222 258 1955). Not surprisingly, adhered precedents. 31 That proposition Postal Telegraph Cable company Alabama, 155 482, 487, 192, 194, 39 231 (1894). Minnesota Securities 194 48, 63, 598, 601, 48 870 (1904). unless State,'38 Bullard Cisco, 290 179, 54 177, 78 254 (1933); Loeb Columbia Township Trustees, 179 472, 485—486, 174, 179—180, 45 280 (1900); Chicot Sherwood, 148 529, 533—534, 697, 37 (1893); Lincoln Luning, 133 363, 33 766 (1890); original principle citizens formed, courts.39 Louisville, C. & C.R. Letson, How. 497, 588—559, 353 (1844); Barrow S.S. Co Kane, 170 100, 106, 526, 528, (1898). seminal hesitation county, 'body politic corporate' sued, Illinois.40 announced firmly rooted able last Term settled respective Milwaukee, 406 91, 97, 92 1385, 1390, 712 32 contends, unlike most corporation subdivision, agent mere itself. particular, cites 11, 1(a), Consitution divided State.' apparently believes governed rather progeny. Despite contentions, detailed examination law—beyond generalization constitution—convinces deemed California. $Most notably, 'corporate powers'41 designated corporate politic.'42 capacity, sued,43 and, suit, 'local entity'44 contrast agencies.45 appears alone,46 judgments levy taxes pay judgments.47 A sell, hold, deal property,48 contract repairs structures.49 variety services water service, flood control, rubbish disposal, harbor airport facilities.50 Financially, empowered general obligation bonds51 payable taxes.52 bonds except intervene protect bondholders fails fulfill obligations voluntarily.53 sum, stike persuasive indicia occupied relative own purposes, clearest indication counties. People ex rel. Younger El Dorado, Cal.3d 480, 96 Cal.Rptr. 553, 487 Pacific 1193 (1971), Attorney General writ mandate compel certain allotted monies. Under issued 'inferior tribunal, corporation, board, person.' Cal.Civ. Proc.Code 1085 (emphasis added). counties, said: 'While government declared quasi-corporations. Government 23003, (politic),' 23004, (a) code, states think sufficiently character issuance it.' Cal.3d, 491 n. 12, Cal.Rptr., 559 1199 35 Pitchess Superior Cal.App.3d 653, 656, 83 41, 43 lightly reject merely purposes.54 highest recent determination dictate treated reverse remand further proceedings opinion. 38 ordered. Affirmed 40 DOUGLAS, dissenting. 41 instant arose 1969 People's Park disturbance, performing duties time behalf Acts, 1981, 1986, 810 seq. Code. deputies. subsequently sued ultimately ordered dismissed. orders Madigan, (Ca,9). provides: 'Every who, color ordinance, regulation, custom, usage, Territory, subjects, subjected, thereof immunities secured laws, equity, proceeding redress.' 492, damates, pressed 'private illegal searches seizures conspicuously ineffective afford plaintiffs responsible eradicate level.' certainly said, holds, Ibid. directly .pape explored some length Mitchum Foster, 225, 2151, 705. 44 overtones Pape equity never held. Certainly residuum seems enjoin bizarre offering classes torture. More realistically, construed injunction prosecution offender. my understanding N Dec. Immigration Nationality Decisions group asked prayed deem proper. Since threshold impossible determine grounds emerged during normal course litigation. prayer 'further relief' embrace 46 event amended peradventure. 47 Alameda, reads: punish offenses cause, nature, infliction punishment guilty.' 49 '(a) entity sued.' (Govt. 945), injury. 815. officer, generally immune, uses unreasonable force citizen, loses read Scruggs Haynes, 252 Cal.App.2d 256, 60 355. 50 allow 'are object,' 'inconsistent' 'laws States,' words arguably enlarge gives 'jurisdiction' allows Foster: 51 'This clarly conceived altering Nation rights; concerned instrumentalities realized might, fact, antipathetic vindication believed failings courts.' 242, 2162. 52 obtain kind relief. Application harmony 406, 386, means, 'deprivation laws' Named William D. Jr., guardian ad litem, Sarah Rundle. here, ease discussion refer Neither specifically Furthermore, contain ongoing conduct, irreparable injury, inadequacy remedy, similar Throughout equitable, legal, Before '(p)laintiffs Brief 4. Therefore, Brother DOUGLAS hinges dissent—namely, 1983—simply presented disputes 815.2(a) pass parties' conflicting constructions either below. 1981 1986. Hence, sections us. Petitioner citizenship. Answer Complaint, App. 12; 29. Subsequent denied defendants' or, alternative, summary judgment. Ex. Reply Petitioners. Kates Kouba, Liability Public Entities Rights, S.Cal.L.Rev. 131, 136—137, 157 (1972); Note, Philadelphia Police Practice Law Arrest, 100 U.Pa.L.Rev. 1182, 1208—1209 (1952); Lankford Gelston, 364 197, 202 (CA4 1966). extent assets insurance satisfy favorable obtain. Respondents 15; Tr. Oral Arg. 25; 50—51. adequacy ready example torts employees accordance 1346(b), 2671 2680. 6—10, 589—591, Still examples Outer Continental Shelf Lands 1331—1343, Assimilative Crimes crimes acts, maritime territorial punishable crime territory, committed, 7, 11. wholly different which, lacking expression will, fashion Yazell, 382 341, 500, 404 (1966); Bank America National Trust Savings Assn. Parnell, 352 29, 119, (1956); Holmberg Armbrecht, 327 392, 66 582, 743 (1946); Clearfield 318 63 573, 87 838 (1943); D'Oench, Duhme Deposit Corp., 315 447, 62 80, 956 (1942). 1985. 241—245. One survival death plaintiff defendant. party's extinguished himself wrongdoer, Prosser, Torts 888 891 (4th ed. 1971), survivorship Brazier Cherry, 293 401 (CA5 1961); Pritchard Smith, 153 (CA8 1961). 'All right, enjoyed white inherit, purchase, lease, convey real property.' McDaniel Carroll, 457 968 (CA6 1972), cited know otherwise. contrary, repeatedly creates Pierre Jordan, 333 951, 958 1964); Otto Somers, 699 Post Payton, 323 799, 802—803 (EDNY Johnson New York Education Dept., 319 271, 276 1970), aff'd, 449 871 (CA2 vacated remanded grounds, 75, 259, Dyer Kazuhisa Abe, 138 220, 228—229 (Haw.1956), rev'd 256 728 1958); Schatte International Alliance Theatrical Stage Employees Moving Picture Operators Canada, 70 1008 (SD Cal.1947), per curiam, 165 216 1948); re Stupp, Cases 1789:1880 296, 299 (No. 13,563) (CCSDNY 1875). Hesselgesser Reilly, 440 901, 903 Lewis Brautigam, 227 124, 128 1955), misplaced. Hesselgesser, ruled act prisoner provided liability. court, sure, incorporation acting Likewise Lewis, violations liability—a rested cited—the suggestion creation discussed enacted, read, 'That districts, have, exclusively cognizance offences also, concurrently circuit causes, criminal, affecting tribunals locality .. hereby ratification Fourteenth Amendment 1868, re-enacted change 1870, 114, 144. 1981. 16, 1866. directed guide action, namely, Similarly, when 'subject review error, like ninth April, eighteen hundred sixty-six ' Apr. 22, 13. Codification saw 722 Revised Statutes, to, 1977—1991. Cong.Globe, 42d Cong., 1st Sess., 704—705 (1871). proposed quoted 188 725 800—801. report 188—189 484—485. essence position taken local making whole insurers victims you safeguard arrangement can make, effective 794 (1871) (remarks Rep. Kelley). 792 Butler). opposition, 788—789 (remakrs Kerr); 791 Willard). instance, Kerr argued: 'I come inquire competent organizations all, notice? My nowhere exists; Constitution; justified rational instrument. exhausted offender property; inch compelled, very necessities surround you, invade powers essential autonomy governments, logically government.' 788. Willard explained opposition 'Now, sir, imposed, duty city, parish, people, give equal immunities. State. says deny understand declaration, prohibition, applies concerned. boundaries, control people.' 791. Poland contended: 'As national deals persons. So strict sense persons, man inhabitant towns, counties; country mass, towns. inhabitants great Republic. With them; manner whatever.' 793. 795 Blair); 798 Bingham). 804. All deleted submitted Committee, imposes 'knowledge (of) wrongs conspired done, mentioned in' 'Congress (did) intend, entity's employees,' follow preclude law.' 4—5. true. assist be, recognize, employees. UMW Pendent Jurisdiction, Harv.L.Rev. 657, 662—664 (1968). Almenares Wyman, 453 1075, 1083—1085 Leather's Best, Incorporated S. Mormaclynx, 451 800, 809 Nelson Keefer, 289, 291 (CA3 Astor-Honor, Grosset Dunlap, 441 627 F.C. Stiles Contracting Home Insurance 431 917, 919—920 1970); Beautytuft, Factory Assn., 1122, 1128 Hatridge Aetna Casualty Surety 415 809, 816—817 1969); Stone Stone, 405 94 Connecticut Life Craton, Jacobson Atlantic Hospital, 149, 153—154 Wilson American Chain 558, 564 Eidschun Pierce, 335 603, 609—610 Iowa Thomas Old Forge Coal 329 1000 (MD Pa. Newman Freeman, 262 107—109 (ED Pa.1966); Johns-Manville Sales Corporation Chicago 261 905, 907—908 Ill.1966); Morris Gimbel Brothers, 246 984 Pa.1965). On occasion, sustained ground Patrum Greensburg, 419 1300, 1302 Williams 955 1969). outside Wojtas Village Niles, 334 797 1964), preceded number relying and/or Chai. Redden Cincinnati, 1229, 1231 Ga. 1972); Payne Mertens, 343 1355, 1358 Cal.1972); Barrows Faulkner, 1190 Okl.1971); Letmate Baltimore O.R. 1059, 1060—1062 (Md.1970); Tucker Shaw, 308 9—10 Hall Maritime 281 54, 61 Cal.1968); Rosenthal Rosenthal, 259 624, 630—631 (SDNY Haw. Hawai‘i KFH45 A2 L. Peterson Applewhite, 430, 433—434 1967); Albright Gates, 362 928 1966); Union Paving Downer 468, 471 1960); Artists Masterpiece Productions, 221 213, 216—217 1955); Markus Dillinger, 191 732, 735 Pa.1961); Dewey West Fairmont Gas 123 329, 148, (1887); Moore Cotton Exchange, 270 593, 608—609, 367, 370, 750 (1926). Pennsylvania R. Erie Ave. Warehouse 302 843, 844 1962); Southern Milling 84 1959); Dery Wyer, 265 804, 807—808 Waylander-Peterson Great 201 408, 1953). Shakman, Jurisdiction Courts, Stan.L.Rev. 262, 265—266, 270—271 331 495 N. Cal.1971). Part call Given consequence Moor. affect discretionary Rundle's counsel oral 'injuries separately,' 47. considering upset complicating where, choice element inherent Appendix E Pet. Certiorari 18—19. Highway commission Wyoming Utah Construction 278 199, 104, 73 (1929). 1332(c), principal place business.' Indeed, suability Constitution,' 122, subsequent Cowles, sued. 531, 533 534, 696, (1893). 23000. 23003. 945, 23004(a). 940.4. 940.6. alone; 50171. 23004(d), 25520—25539. 23004(c), 25450—25467. 25690—26224. 29900—29929. 29922—29924. 29925—29927. bears noting, though, initially concluding 1965), effort analyze 258, school district. And, undertake analysis districts—much counties—but instead equally conclusory 16646—WM Cal.1954), reprinted questioned correctness Miller, Universal Lescher Mahoney, Arch. Eng., 340 303 (Ariz.1972); White Umatilla 247 918 (Or.1965).

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