Judge's Immunity
PIERSON ET AL.
vs.
RAY ET AL.
No. 79
SUPREME COURT OF THE
UNITED STATES
386 U.S. 547, 87 S. Ct. 1213, 18 L. Ed. 2d 288
April 11,
1967, Decided*
SYLLABUS
Petitioners,+ members of a group of white and Negro clergymen on a "prayer
pilgrimage" to promote racial integration, attempted to use a segregated
interstate bus terminal waiting room in Jackson, Mississippi, in 1961. They were
arrested by respondent policemen and charged with conduct breaching the peace in
violation of § 2087.5 of the Mississippi Code which this Court, in 1965, held
unconstitutional in Thomas v. Mississippi, 380 U.S. 524, as applied to similar
facts. Petitioners waived a jury trial and were convicted by respondent
municipal police justice. On appeal one petitioner was accorded a trial de novo
and, following a directed verdict in his favor, the cases against the other
petitioners were dropped. Petitioners then brought this action in the District
Court for damages (1) under 42 U. S. C. § 1983, which makes liable "every
person" who under color of law deprives another person of his civil rights, and
(2) at common law for false arrest and imprisonment. The evidence showed that
the ministers expected to be arrested on entering a segregated area. Though the
witnesses agreed that petitioners entered the waiting room peacefully,
petitioners testified that there was no crowd at the terminal, whereas the
police testified that a threatening crowd followed petitioners. The jury found
for respondents. On appeal the Court of Appeals held that (1) respondent police
justice had immunity for his judicial acts under both § 1983 and the state
common law and (2) the policemen had immunity under the state common law of
false arrest if they had probable cause to believe § 2087.5 valid since they
were not required to predict what laws are constitutional, but that, by virtue
of Monroe v. Pape, 365 U.S. 167, they had no such immunity under § 1983 where
the state statute was subsequently declared invalid. The court remanded the case
against the officers for a new trial under § 1983 because of prejudicial
cross-examination of petitioners, but ruled that they could not recover if it
were shown at the new trial that they had gone to Mississippi in anticipation
that they would be illegally arrested. Held :
1. The settled common-law
principle that a judge is immune from liability for damages for his judicial
acts was not abolished by § 1983. Cf. Tenney v. Brandhove, 341 U.S. 367. Pp.
553-555.
2. The defense of good faith and probable cause which is available
to police officers in a common-law action for false arrest and imprisonment is
also available in an action under § 1983. Monroe v. Pape, supra, distinguished.
Pp. 555-557.
3. Though the officers were not required to predict this
Court's ruling in Thomas v. Mississippi, supra, that § 2087.5 was
unconstitutional as applied, and the defense of good faith and probable cause is
available in an action under § 1983, it does not follow that the count based
thereon should be dismissed since the evidence was conflicting as to whether the
police had acted in good faith and with probable cause in arresting the
petitioners. Pp. 557-558.
4. Petitioners did not consent to their arrest by
deliberately exercising their right to use the waiting room in a peaceful manner
with the expectation that they would be illegally arrested. P. 558.
PRIORHIST
CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR THE FIFTH CIRCUIT.
COUNSEL
Carl Rachlin argued the cause for petitioners in No. 79 and for
respondents in No. 94. With him on the briefs was Melvin L. Wulf.
Elizabeth
Watkins Hulen Grayson argued the cause for respondents in No. 79 and for
petitioners in No. 94. With her on the brief was Thomas H. Watkins.
JUDGES
Warren, Black, Douglas, Clark, Harlan, Brennan, Stewart, White,
Fortas
AUTHOR: WARREN
OPINION
{*548} MR. CHIEF JUSTICE WARREN delivered the opinion of Court.
These
cases present issues involving the liability of local police officers and judges
under § 1 of the Civil Rights Act of 1871, 17 Stat. 13, now 42 U. S. C. § 1983.1
Petitioners {*549} in No. 79 were members of a group of 15 white and Negro
Episcopal clergymen who attempted to use segregated facilities at an interstate
bus terminal in Jackson, Mississippi, in 1961. They were arrested by respondents
Ray, Griffith, and Nichols, policemen of the City of Jackson, and charged with
violating § 2087.5 of the Mississippi Code, which makes guilty of a misdemeanor
anyone who congregates with others in a public place under circumstances such
that a breach of the peace may be occasioned thereby, and refuses to move on
when ordered to do so by a police officer.2 Petitioners3 waived a jury trial and
were convicted of the offense by respondent Spencer, a municipal police justice.
They were each given the maximum sentence of four months in jail and {*550} a
fine of $ 200. On appeal petitioner Jones was accorded a trial de novo in the
County Court, and after the city produced its evidence the court granted his
motion for a directed verdict. The cases against the other petitioners were then
dropped.
Having been vindicated in the County Court, petitioners brought
this action for damages in the United States District Court for the Southern
District of Mississippi, Jackson Division, alleging that respondents had
violated § 1983, supra, and that respondents were liable at common law for false
arrest and imprisonment. A jury returned verdicts for respondents on both
counts. On appeal, the Court of Appeals for the Fifth Circuit held that
respondent Spencer was immune from liability under both § 1983 and the common
law of Mississippi for acts committed within his judicial jurisdiction. 352 F.2d
213. As to the police officers, the court noted that § 2087.5 of the Mississippi
Code was held unconstitutional as applied to similar facts in Thomas v.
Mississippi, 380 U.S. 524 (1965).4 Although Thomas was decided years after the
arrest involved in this trial, the court held that the policemen would be liable
in a suit under § 1983 for an unconstitutional arrest even if they acted in good
faith and with probable cause in making an arrest under a state statute not yet
held invalid. The court believed that this stern result was required by Monroe
v. Pape, {*551} 365 U.S. 167 (1961). Under the count based on the common law of
Mississippi, however, it held that the policemen would not be liable if they had
probable cause to believe that the statute had been violated, because
Mississippi law does not require police officers to predict at their peril which
state laws are constitutional and which are not. Apparently dismissing the
common-law claim,5 the Court of Appeals reversed and remanded for a new trial on
the § 1983 claim against the police officers because defense counsel had been
allowed to cross-examine the ministers on various irrelevant and prejudicial
matters, particularly including an alleged convergence of their views on racial
justice with those of the Communist Party. At the new trial, however, the court
held that the ministers could not recover if it were proved that they went to
Mississippi anticipating that they would be illegally arrested because such
action would constitute consent to the arrest under the principle of volenti non
fit injuria, he who consents to a wrong cannot be injured.
We granted
certiorari in No. 79 to consider whether a local judge is liable for damages
under § 1983 for an unconstitutional conviction and whether the ministers should
be denied recovery against the police officers if they acted with the
anticipation that they would be illegally arrested. We also granted the police
officers' petition in No. 94 to determine if the Court of Appeals correctly held
that they could not assert the defense of {*552} good faith and probable cause
to an action under § 1983 for unconstitutional arrest.6
The evidence at the
federal trial showed that petitioners and other Negro and white Episcopal
clergymen undertook a "prayer pilgrimage" in 1961 from New Orleans to Detroit.
The purpose of the pilgrimage was to visit church institutions and other places
in the North and South to promote racial equality and integration, and, finally,
to report to a church convention in Detroit. Letters from the leader of the
group to its members indicate that the clergymen intended from the beginning to
go to Jackson and attempt to use segregated facilities at the bus terminal
there, and that they fully expected to be arrested for doing so. The group made
plans based on the assumption that they would be arrested if they attempted
peacefully to exercise their right as interstate travelers to use the waiting
rooms and other facilities at the bus terminal, and the letters discussed
arrangements for bail and other matters relevant to arrests.
The ministers
stayed one night in Jackson, and went to the bus terminal the next morning to
depart for Chattanooga, Tennessee. They entered the waiting room, disobeying a
sign at the entrance that announced "White Waiting Room Only -- By Order of the
Police Department." They then turned to enter the small terminal restaurant but
were stopped by two Jackson police officers, respondents Griffith and Nichols,
who had been awaiting their arrival and who ordered them to "move on." The
ministers replied that they wanted to eat, {*553} and refused to move on.
Respondent Ray, then a police captain and now the deputy chief of police,
arrived a few minutes later. The ministers were placed under arrest and taken to
the jail.
All witnesses including the police officers agreed that the
ministers entered the waiting room peacefully and engaged in no boisterous or
objectionable conduct while in the "White Only" area. There was conflicting
testimony on the number of bystanders present and their behavior. Petitioners
testified that there was no crowd at the station, that no one followed them into
the waiting room, and that no one uttered threatening words or made threatening
gestures. The police testified that some 25 to 30 persons followed the ministers
into the terminal, that persons in the crowd were in a very dissatisfied and
ugly mood, and that they were mumbling and making unspecified threatening
gestures. The police did not describe any specific threatening incidents, and
testified that they took no action against any persons in the crowd who were
threatening violence because they "had determined that the ministers was the
cause of the violence if any might occur,"7 although the ministers were
concededly orderly and polite and the police did not claim that it was beyond
their power to control the allegedly disorderly crowd. The arrests and
convictions were followed by this lawsuit.
We find no difficulty in agreeing
with the Court of Appeals that Judge Spencer is immune from liability for
damages for his role in these convictions. The record is barren of any proof or
specific allegation that Judge Spencer played any role in these arrests and
convictions other than to adjudge petitioners guilty when their cases came
before his court.8 Few doctrines were more solidly {*554} established at common
law than the immunity of judges from liability for damages for acts committed
within their judicial jurisdiction, as this Court recognized when it adopted the
doctrine, in Bradley v. Fisher, 13 Wall. 335 (1872). This immunity applies even
when the judge is accused of acting maliciously and corruptly, and it "is not
for the protection or benefit of a malicious or corrupt judge, but for the
benefit of the public, whose interest it is that the judges should be at liberty
to exercise their functions with independence and without fear of consequences."
(Scott v. Stansfield, L. R. 3 Ex. 220, 223 (1868), quoted in Bradley v. Fisher,
supra, 349, note, at 350.) It is a judge's duty to decide all cases within his
jurisdiction that are brought before him, including controversial cases that
arouse the most intense feelings in the litigants. His errors may be corrected
on appeal, but he should not have to fear that unsatisfied litigants may hound
him with litigation charging malice or corruption. Imposing such a burden on
judges would contribute not to principled and fearless decision-making but to
intimidation.
We do not believe that this settled principle of law was
abolished by § 1983, which makes liable "every person" who under color of law
deprives another person of his civil rights. The legislative record gives no
clear indication that Congress meant to abolish wholesale all common-law
immunities. Accordingly, this Court held in Tenney v. Brandhove, 341 U.S. 367
(1951), that the immunity of legislators for acts within the legislative role
was not abolished. The immunity of judges for acts within the judicial role is
equally well established, and {*555} we presume that Congress would have
specifically so provided had it wished to abolish the doctrine.9
The common
law has never granted police officers an absolute and unqualified immunity, and
the officers in this case do not claim that they are entitled to one. Their
claim is rather that they should not be liable if they acted in good faith and
with probable cause in making an arrest under a statute that they believed to be
valid. Under the prevailing view in this country a peace officer who arrests
someone with probable cause is not liable for false arrest simply because the
innocence of the suspect is later proved. Restatement, Second, Torts § 121
(1965); 1 Harper & James, The Law of Torts § 3.18, at 277-278 (1956); Ward
v. Fidelity & Deposit Co. of Maryland, 179 F.2d 327 (C. A. 8th Cir. 1950). A
policeman's lot is not so unhappy that he must choose between being charged with
dereliction of duty if he does not arrest when he has probable cause, and being
mulcted in damages if he does. Although the matter is not entirely free from
doubt,10 the same consideration would seem to require excusing him from
liability for acting under a statute that he reasonably believed to be valid but
that was later held unconstitutional, on its face or as applied.
The Court
of Appeals held that the officers had such a limited privilege under the common
law of Mississippi,11 and indicated that it would have recognized a similar
privilege under § 1983 except that it felt compelled to hold otherwise by our
decision in Monroe v. Pape, 365 U.S. {*556} 167 (1961). Monroe v. Pape presented
no question of immunity, however, and none was decided. The complaint in that
case alleged that "13 Chicago police officers broke into petitioners' home in
the early morning, routed them from bed, made them stand naked in the living
room, and ransacked every room, emptying drawers and ripping mattress covers. It
further allege[d] that Mr. Monroe was then taken to the police station and
detained on 'open' charges for 10 hours, while he was interrogated about a
two-day-old murder, that he was not taken before a magistrate, though one was
accessible, that he was not permitted to call his family or attorney, that he
was subsequently released without criminal charges being preferred against him."
365 U.S., at 169. The police officers did not choose to go to trial and defend
the case on the hope that they could convince a jury that they believed in good
faith that it was their duty to assault Monroe and his family in this manner.
Instead, they sought dismissal of the complaint, contending principally that
their activities were so plainly illegal under state law that they did not act
"under color of any statute, ordinance, regulation, custom, or usage, of any
State or Territory" as required by § 1983. In rejecting this argument we in no
way intimated that the defense of good faith and probable cause was foreclosed
by the statute. We also held that the complaint should not be dismissed for
failure to state that the officers had "a specific intent to deprive a person of
a federal right," but this holding, which related to requirements of pleading,
carried no implications as to which defenses would be available to the police
officers. As we went on to say in the same paragraph, § 1983 "should be read
against the background of tort liability that makes a man responsible for the
natural consequences of his actions." 365 U.S., at 187. Part of the background
of tort liability, in the {*557} case of police officers making an arrest, is
the defense of good faith and probable cause.
We hold that the defense of
good faith and probable cause, which the Court of Appeals found available to the
officers in the common-law action for false arrest and imprisonment, is also
available to them in the action under § 1983. This holding does not, however,
mean that the count based thereon should be dismissed. The Court of Appeals
ordered dismissal of the common-law count on the theory that the police officers
were not required to predict our decision in Thomas v. Mississippi, 380 U.S.
524. We agree that a police officer is not charged with predicting the future
course of constitutional law. But the petitioners in this case did not simply
argue that they were arrested under a statute later held unconstitutional. They
claimed and attempted to prove that the police officers arrested them solely for
attempting to use the "White Only" waiting room, that no crowd was present, and
that no one threatened violence or seemed about to cause a disturbance. The
officers did not defend on the theory that they believed in good faith that it
was constitutional to arrest the ministers solely for using the waiting room.
Rather, they claimed and attempted to prove that they did not arrest the
ministers for the purpose of preserving the custom of segregation in
Mississippi, but solely for the purpose of preventing violence. They testified,
in contradiction to the ministers, that a crowd gathered and that imminent
violence was likely. If the jury believed the testimony of the officers and
disbelieved that of the ministers, and if the jury found that the officers
reasonably believed in good faith that the arrest was constitutional, then a
verdict for the officers would follow even though the arrest was in fact
unconstitutional. The jury did resolve the factual issues in favor of the
officers but, for reasons previously stated, {*558} its verdict was influenced
by irrelevant and prejudicial evidence. Accordingly, the case must be remanded
to the trial court for a new trial.
It is necessary to decide what
importance should be given at the new trial to the substantially undisputed fact
that the petitioners went to Jackson expecting to be illegally arrested. We do
not agree with the Court of Appeals that they somehow consented to the arrest
because of their anticipation that they would be illegally arrested, even
assuming that they went to the Jackson bus terminal for the sole purpose of
testing their rights to unsegregated public accommodations. The case contains no
proof or allegation that they in any way tricked or goaded the officers into
arresting them. The petitioners had the right to use the waiting room of the
Jackson bus terminal, and their deliberate exercise of that right in a peaceful,
orderly, and inoffensive manner does not disqualify them from seeking damages
under § 1983.12
The judgment of the Court of Appeals is affirmed in part and
reversed in part, and the cases are remanded for further proceedings consistent
with this opinion.
It is so ordered.
DISPOSITION
352 F.2d 213, affirmed in part, reversed in part, and
remanded.
DISSENT
MR. JUSTICE DOUGLAS, dissenting.
I do not think
that all judges, under all circumstances, no matter how outrageous their conduct
are immune {*559} from suit under 17 Stat. 13, 42 U. S. C. § 1983. The Court's
ruling is not justified by the admitted need for a vigorous and independent
judiciary, is not commanded by the common-law doctrine of judicial immunity, and
does not follow inexorably from our prior decisions.
The statute, which came
on the books as § 1 of the Ku Klux Klan Act of April 20, 1871, 17 Stat. 13,
provides that "every person" who under color of state law or custom "subjects,
or causes to be subjected, any citizen . . . to the deprivation of any rights,
privileges, or immunities secured by the Constitution and laws, shall be liable
to the party injured in an action at law, suit in equity, or other proper
proceeding for redress." To most, "every person" would mean every person, not
every person except judges. Despite the plain import of those words, the Court
decided in Tenney v. Brandhove, 341 U.S. 367, that state legislators are immune
from suit as long as the deprivation of civil rights which they caused a person
occurred while the legislators "were acting in a field where legislators
traditionally have power to act." Id., at 379. I dissented from the creation of
that judicial exception as I do from the creation of the present one.
The
congressional purpose seems to me to be clear. A condition of lawlessness
existed in certain of the States, under which people were being denied their
civil rights. Congress intended to provide a remedy for the wrongs being
perpetrated. And its members were not unaware that certain members of the
judiciary were implicated in the state of affairs which the statute was intended
to rectify. It was often noted that "immunity is given to crime, and the records
of the public tribunals are searched in vain for any evidence of effective
redress." Cong. Globe, 42d Cong., 1st Sess., 374. Mr. Rainey of South Carolina
noted that "The courts are in many instances under the control of those who are
wholly inimical to the impartial administration of law and equity." Id., at 394.
{*560} Congressman Beatty of Ohio claimed that it was the duty of Congress to
listen to the appeals of those who "by reason of popular sentiment or secret
organizations or prejudiced juries or bribed judges, [cannot] obtain the rights
and privileges due an American citizen . . . ." Id., at 429. The members
supporting the proposed measure were apprehensive that there had been a complete
breakdown in the administration of justice in certain States and that laws
nondiscriminatory on their face were being applied in a discriminatory manner,
that the newly won civil rights of the Negro were being ignored, and that the
Constitution was being defied. It was against this background that the section
was passed, and it is against this background that it should be interpreted.
It is said that, at the time of the statute's enactment, the doctrine of
judicial immunity was well settled and that Congress cannot be presumed to have
intended to abrogate the doctrine since it did not clearly evince such a
purpose. This view is beset by many difficulties. It assumes that Congress could
and should specify in advance all the possible circumstances to which a remedial
statute might apply and state which cases are within the scope of a statute.
"Underlying [this] view is an atomistic conception of intention, coupled
with what may be called a pointer theory of meaning. This view conceives the
mind to be directed toward individual things, rather than toward general ideas,
toward distinct situations of fact rather than toward some significance in human
affairs that these situations may share. If this view were taken seriously, then
we would have to regard the intention of the draftsman of a statute directed
against 'dangerous weapons' as being directed toward an endless series of
individual objects: revolvers, {*561} automatic pistols, daggers, Bowie knives,
etc. If a court applies the statute to a weapon its draftsman had not thought
of, then it would be 'legislating,' not 'interpreting,' as even more obviously
it would be if it were to apply the statute to a weapon not yet invented when
the statute was passed." Fuller, The Morality of Law 84 (1964).
Congress of
course acts in the context of existing common-law rules, and in construing a
statute a court considers the "common law before the making of the Act."
Heydon's Case, 3 Co. Rep. 7 a, 76 Eng. Rep. 637(Ex. 1584). But Congress enacts a
statute to remedy the inadequacies of the pre-existing law, including the common
law.1 It cannot be presumed that the common law is the perfection of reason, is
superior to statutory law (Sedgwick, Construction of Statutes 270 (1st ed.
1857); Pound, Common Law and Legislation, 21 Harv. L. Rev. 383, 404-406 (1908)),
and that the legislature always changes law for the worse. Nor should the canon
of construction "statutes in derogation of the common law are to be strictly
construed" be applied so as to weaken a remedial statute whose purpose is to
remedy the defects of the pre-existing law.
The position that Congress did
not intend to change the common-law rule of judicial immunity ignores the fact
that every member of Congress who spoke to the issue assumed that the words of
the statute meant what they said and that judges would be liable. Many members
of Congress objected to the statute because it imposed {*562} liability on
members of the judiciary. Mr. Arthur of Kentucky opposed the measure because:
"Hitherto . . . no judge or court has been held liable, civilly or
criminally, for judicial acts . . . . Under the provisions of [section 1] every
judge in the State court . . . will enter upon and pursue the call of official
duty with the sword of Damocles suspended over him . . . ." Cong. Globe, 42d
Cong., 1st Sess., 365-366.
And Senator Thurman noted that:
"There have
been two or three instances already under the civil rights bill of State judges
being taken into the United States district court, sometimes upon indictment for
the offense . . . of honestly and conscientiously deciding the law to be as they
understood it to be. . . .
"Is [section 1] intended to perpetuate that? Is
it intended to enlarge it? Is it intended to extend it so that no longer a judge
sitting on the bench to decide causes can decide them free from any fear except
that of impeachment, which never lies in the absence of corrupt motive? Is that
to be extended, so that every judge of a State may be liable to be dragged
before some Federal judge to vindicate his opinion and to be mulcted in damages
if that Federal judge shall think the opinion was erroneous? That is the
language of this bill." Cong. Globe, 42d Cong., 1st Sess., Appendix 217.
Mr.
Lewis of Kentucky expressed the fear that:
"By the first section, in certain
cases, the judge of a State court, though acting under oath of office, is made
liable to a suit in the Federal court and subject to damages for his decision
against a suitor. . . ." Cong. Globe, 42d Cong., 1st Sess., 385.
{*563} Yet
despite the repeated fears of its opponents, and the explicit recognition that
the section would subject judges to suit, the section remained as it was
proposed: it applied to "any person."2 There was no exception for members of the
judiciary. In light of the sharply contested nature of the issue of judicial
immunity it would be reasonable to assume that the judiciary would have been
expressly exempted from the wide sweep of the section, if Congress had intended
such a result.
The section's purpose was to provide redress for the
deprivation of civil rights. It was recognized that certain members of the
judiciary were instruments of oppression and were partially responsible for the
wrongs to be remedied. The parade of cases coming to this Court shows that a
similar condition now obtains in some of the States. Some state courts have been
instruments of suppression of civil rights. The methods may have changed; the
means may have become more subtle; but the wrong to be remedied still exists.
Today's decision is not dictated by our prior decisions. In Ex parte
Virginia, 100 U.S. 339, the Court held that a judge who excluded Negroes from
juries could be held liable under the Act of March 1, 1875 (18 Stat. 335), one
of the Civil Rights Acts. The Court assumed that the judge was merely performing
a ministerial function. But it went on to state that the judge would be liable
under the statute even if his actions were judicial.3 It is one thing to say
that the common-law doctrine of {*564} judicial immunity is a defense to a
common-law cause of action. But it is quite another to say that the common-law
immunity rule is a defense to liability which Congress has imposed upon "any
officer or other person," as in Ex parte Virginia, or upon "every person" as in
these cases.
The immunity which the Court today grants the judiciary is not
necessary to preserve an independent judiciary. If the threat of civil action
lies in the background of litigation, so the argument goes, judges will be
reluctant to exercise the discretion and judgment inherent in their position and
vital to the effective operation of the judiciary. We should, of course, not
protect a member of the judiciary "who is in fact guilty of using his powers to
vent his spleen upon others, or for any other personal motive not connected with
the public good." Gregoire v. Biddle, 177 F.2d 579, 581. To deny recovery to a
person injured by the ruling of a judge acting for personal gain or out of
personal motives would be "monstrous." Ibid. But, it is argued that absolute
immunity is necessary to prevent the chilling effects of a judicial inquiry, or
the threat of such inquiry, into whether, in fact, a judge has been unfaithful
to his oath of office. Thus, it is necessary to protect the guilty as well as
the innocent.4
The doctrine of separation of powers is, of course,
applicable only to the relations of coordinate branches of the same government,
not to the relations between the {*565} branches of the Federal Government and
those of the States. See Baker v. Carr, 369 U.S. 186, 210. Any argument that
Congress could not impose liability on state judges for the deprivation of civil
rights would thus have to be based upon the claim that doing so would violate
the theory of division of powers between the Federal and State Governments. This
claim has been foreclosed by the cases recognizing "that Congress has the power
to enforce provisions of the Fourteenth Amendment against those who carry a
badge of authority of a State . . . ." Monroe v. Pape, 365 U.S. 167, 171-172. In
terms of the power of Congress, I can see no difference between imposing
liability on a state police officer (Monroe v. Pape, supra) and on a state
judge. The question presented is not of constitutional dimension; it is solely a
question of statutory interpretation.
The argument that the actions of
public officials must not be subjected to judicial scrutiny because to do so
would have an inhibiting effect on their work, is but a more sophisticated
manner of saying "The King can do no wrong."5 Chief Justice Cockburn long ago
disposed of the argument that liability would deter judges:
"I cannot
believe that judges . . . would fail to discharge their duty faithfully and
fearlessly according to their oaths and consciences . . . from any fear of
exposing themselves to actions at law. I am persuaded that the number of such
actions would be infinitely small and would be easily disposed of. {*566} While,
on the other hand, I can easily conceive cases in which judicial opportunity
might be so perverted and abused for the purpose of injustice as that, on sound
principles, the authors of such wrong ought to be responsible to the parties
wronged." Dawkins v. Lord Paulet, L. R. 5 Q. B. 94, 110 (C. J. Cockburn,
dissenting).
This is not to say that a judge who makes an honest mistake
should be subjected to civil liability. It is necessary to exempt judges from
liability for the consequences of their honest mistakes. The judicial function
involves an informed exercise of judgment. It is often necessary to choose
between differing versions of fact, to reconcile opposing interests, and to
decide closely contested issues. Decisions must often be made in the heat of
trial. A vigorous and independent mind is needed to perform such delicate tasks.
It would be unfair to require a judge to exercise his independent judgment and
then to punish him for having exercised it in a manner which, in retrospect, was
erroneous. Imposing liability for mistaken, though honest judicial acts, would
curb the independent mind and spirit needed to perform judicial functions. Thus,
a judge who sustains a conviction on what he forthrightly considers adequate
evidence should not be subjected to liability when an appellate court decides
that the evidence was not adequate. Nor should a judge who allows a conviction
under what is later held an unconstitutional statute.
But that is far
different from saying that a judge shall be immune from the consequences of any
of his judicial actions, and that he shall not be liable for the knowing and
intentional deprivation of a person's civil rights. What about the judge who
conspires with local law enforcement officers to "railroad" a dissenter? What
about the judge who knowingly turns a trial into a "kangaroo" court? Or one who
intentionally flouts the {*567} Constitution in order to obtain a conviction?
Congress, I think, concluded that the evils of allowing intentional, knowing
deprivations of civil rights to go unredressed far outweighed the speculative
inhibiting effects which might attend an inquiry into a judicial deprivation of
civil rights.6
The plight of the oppressed is indeed serious. Under City of
Greenwood v. Peacock, 384 U.S. 808, the defendant cannot remove to a federal
court to prevent a state court from depriving him of his civil rights. And under
the rule announced today, the person cannot recover damages for the deprivation.
GENERAL FOOTNOTES
* Together with No. 94, Ray et al. v. Pierson et al.,
also on certiorari to the same court.
SYLLABUS FOOTNOTES
+ See n. 3, infra.
OPINION FOOTNOTES
1 "Every person who, under color of any statute, ordinance, regulation,
custom, or usage, of any State or Territory, subjects, or causes to be
subjected, any citizen of the United States or other person within the
jurisdiction thereof to the deprivation of any rights, privileges, or immunities
secured by the Constitution and laws, shall be liable to the party injured in an
action at law, suit in equity, or other proper proceeding for redress." 42 U. S.
C. § 1983.
2 "1. Whoever with intent to provoke a breach of the peace, or
under circumstances such that a breach of the peace may be occasioned thereby:
"(1) crowds or congregates with others in . . . any hotel, motel, store,
restaurant, lunch counter, cafeteria, sandwich shop, . . . or any other place of
business engaged in selling or serving members of the public, or in or around
any free entrance to any such place of business or public building, or to any
building owned by another individual, or a corporation, or a partnership or an
association, and who fails or refuses to disperse and move on, or disperse or
move on, when ordered so to do by any law enforcement officer of any
municipality, or county, in which such act or acts are committed, or by any law
enforcement officer of the State of Mississippi, or any other authorized person,
. . . shall be guilty of disorderly conduct, which is made a misdemeanor, and,
upon conviction thereof, shall be punished by a fine of not more than two
hundred dollars ($ 200.00), or imprisonment in the county jail for not more than
four (4) months, or by both such fine and imprisonment . . . ."
3 The
ministers involved in No. 79 will be designated as "petitioners" throughout this
opinion, although they are the respondents in No. 94.
4 In Thomas various
"Freedom Riders" were arrested and convicted under circumstances substantially
similar to the facts of these cases. The police testified that they ordered the
"Freedom Riders" to leave because they feared that onlookers might breach the
peace. We reversed without argument or opinion, citing Boynton v. Virginia, 364
U.S. 454 (1960). Boynton held that racial discrimination in a bus terminal
restaurant utilized as an integral part of the transportation of interstate
passengers violates § 216 (d) of the Interstate Commerce Act. State enforcement
of such discrimination is barred by the Supremacy Clause.
5 Respondents read
the court's opinion as remanding for a new trial on this claim. The court
stated, however, that the officers "are immune from liability for false
imprisonment at common law but not from liability for violations of the Federal
statutes on civil rights. It therefore follows that there should be a new trial
of the civil rights claim against the appellee police officers so that there may
be a determination of the fact issue as to whether the appellants invited or
consented to the arrest and imprisonment." 352 F.2d, at 221.
6 Respondents
did not challenge in their petition in No. 94 the holding of the Court of
Appeals that a new trial is necessary because of the prejudicial
cross-examination. Belatedly, they devoted a section of their brief to the
contention that the cross-examination was proper. This argument is no more
meritorious than it is timely. The views of the Communist Party on racial
equality were not an issue in these cases.
7 Transcript of Record, at 347.
(Testimony of Officer Griffith.)
8 Petitioners attempted to suggest a
"conspiracy" between Judge Spencer and the police officers by questioning him
about his reasons for finding petitioners guilty in these cases and by showing
that he had found other "Freedom Riders" guilty under similar circumstances in
previous cases. The proof of conspiracy never went beyond this suggestion that
inferences could be drawn from Judge Spencer's judicial decisions. See
Transcript of Record, at 352-371.
9 Since our decision in Tenney v.
Brandhove, supra, the courts of appeals have consistently held that judicial
immunity is a defense to an action under § 1983. See Bauers v. Heisel, 361 F.2d
581 (C. A. 3d Cir. 1966), and cases cited therein.
10 See Caveat,
Restatement, Second, Torts § 121, at 207-208 (1965); Miller v. Stinnett, 257
F.2d 910 (C. A. 10th Cir. 1958).
11 See Golden v. Thompson, 194 Miss. 241,
11 So. 2d 906 (1943).
12 The petition for certiorari in No. 79 also
presented the question whether the Court of Appeals correctly dismissed the
count based on the common law of Mississippi. We do not ordinarily review the
holding of a court of appeals on a matter of state law, and we find no reason
for departing from that tradition in this case. The state common-law claim in
this case is merely cumulative, and petitioners' right to recover for an
invasion of their civil rights, subject to the defense of good faith and
probable cause, is adequately secured by § 1983.
DISSENT FOOTNOTES
1 "Remedial statutes are to be liberally construed." See generally,
Llewellyn, Remarks on the Theory of Appellate Decision and the Rules or Canons
About How Statutes Are To Be Construed, 3 Vand. L. Rev. 395 (1950); Llewellyn,
The Common Law Tradition, Appendix C (1960).
2 As altered by the reviser who
prepared the Revised Statutes of 1878, and as printed in 42 U. S. C. § 1983, the
statute refers to "every person" rather than to "any person."
3 The opinion
in Ex parte Virginia, supra, did not mention Bradley v. Fisher, 13 Wall. 335,
which held that a judge could not be held liable for causing the name of an
attorney to be struck from the court rolls. But in Bradley, the action was not
brought under any of the Civil Rights Acts.
4 Other justifications for the
doctrine of absolute immunity have been advanced: (1) preventing threat of suit
from influencing decision; (2) protecting judges from liability for honest
mistakes; (3) relieving judges of the time and expense of defending suits; (4)
removing an impediment to responsible men entering the judiciary; (5) necessity
of finality; (6) appellate review is satisfactory remedy; (7) the judge's duty
is to the public and not to the individual; (8) judicial self-protection; (9)
separation of powers. See generally Jennings, Tort Liability of Administrative
Officers, 21 Minn. L. Rev. 263, 271-272 (1937).
5 Historically judicial
immunity was a corollary to that theory. Since the King could do no wrong, the
judges, his delegates for dispensing justice, "ought not to be drawn into
question for any supposed corruption [for this tends] to the slander of the
justice of the King." Floyd & Barker, 12 Co. Rep. 23, 25, 77 Eng. Rep. 1305,
1307 (Star Chamber 1607). Because the judges were the personal delegates of the
King they should be answerable to him alone. Randall v. Brigham, 7 Wall. 523,
539.
6 A judge is liable for injury caused by a ministerial act; to have
immunity the judge must be performing a judicial function. See, e. g., Ex parte
Virginia, 100 U.S. 339; 2 Harper & James, The Law of Torts 1642-1643 (1956).
The presence of malice and the intention to deprive a person of his civil rights
is wholly incompatible with the judicial function. When a judge acts
intentionally and knowingly to deprive a person of his constitutional rights he
exercises no discretion or individual judgment; he acts no longer as a judge,
but as a "minister" of his own prejudices.
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