No. 97-1472
In the Supreme Court of the United States
OCTOBER TERM, 1998
MICHAEL A. HADDLE, PETITIONER
v.
JEANETTE G. GARRISON, ET AL.
ON WRIT OF CERTIORARI
TO THE UNITED STATES COURT OF APPEALS
FOR THE ELEVENTH CIRCUIT
BRIEF FOR THE UNITED STATES
AS AMICUS CURIAE SUPPORTING PETITIONER
SETH P. WAXMAN
Solicitor General
Counsel of Record
BILL LANN LEE
Acting Assistant Attorney
General
BARBARA D. UNDERWOOD
Deputy Solicitor General
MATTHEW D. ROBERTS
Assistant to the Solicitor
General
DAVID K. FLYNN
TIMOTHY J. MORAN
Attorneys
Department of Justice
Washington, D.C. 20530-0001
(202) 514-2217
QUESTION PRESENTED
Whether an at-will employee who alleges that he was dismissed from his employment
in furtherance of a conspiracy to retaliate against him for his appearance
in federal court and to deter him and others from testifying in subsequent
federal court proceedings states a valid claim for damages under the Civil
Rights Act of 1871, 42 U.S.C. 1985(2) and (3).
In the Supreme Court of the United States
OCTOBER TERM, 1998
No. 97-1472
MICHAEL A. HADDLE, PETITIONER
v.
JEANETTE G. GARRISON, ET AL.
ON WRIT OF CERTIORARI
TO THE UNITED STATES COURT OF APPEALS
FOR THE ELEVENTH CIRCUIT
BRIEF FOR THE UNITED STATES
AS AMICUS CURIAE SUPPORTING PETITIONER
INTEREST OF THE UNITED STATES
This case presents the question whether an at-will employee has a cause
of action for damages under the Civil Rights Act of 1871, 42 U.S.C. 1985(2)
and (3), when he is dismissed from his job pursuant to a conspiracy to deter
him and others from appearing or testifying in federal court or to retaliate
against him for so appearing or testifying. The United States often seeks
the cooperation of employees in investigations and court proceedings relating
to actions that may violate federal law. A decision clarifying the protection
afforded by 42 U.S.C. 1985(2) to employees who cooperate in those investigations
and proceedings will likely affect the ability of the United States to obtain
such cooperation in the future.
STATEMENT
1. Petitioner Michael A. Haddle has alleged that he was employed by respondent
Healthmaster, Inc. (Healthmaster), from 1986 to 1995. Amended Compl. _ 7.
Respondents Jeanette G. Garrison, Dennis Kelley, and G. Peter Molloy have
all served in various capacities as officers and directors of Healthmaster.
Id. _ 10.
According to petitioner's complaint, on March 8, 1995, a federal grand jury
returned a 133-count indictment charging Garrison, Kelly, and Healthmaster
with fraud. Amended Compl. _ 12. Molloy was not named in the indictment.
Id. _ 13. Petitioner cooperated with federal agents in the investigation
that preceded the indictment. Id. _ 14. Petitioner also appeared to testify
before the grand jury, pursuant to a subpoena, although his testimony was
not presented. Ibid. Respondents were aware of petitioner's cooperation
and were aware that he would likely be a witness at the criminal trial.
Id. __ 16, 18.
Petitioner alleged that, as a result of the indictment, the operations of
Healthmaster were transferred to its wholly owned subsidiary, Healthmaster
Home Health Care, Inc. (HHHC), which was placed under the protection of
the bankruptcy court. The bankruptcy court barred Garrison and Kelly from
any participation in HHHC. Amended Compl. __ 8, 15. Molloy became the president,
and petitioner became an employee, of HHHC. Id. __ 8, 16.
According to petitioner's complaint, after the indictment and the transfer
of Healthmaster's operations, respondents Molloy, Garrison, and Kelly agreed
to bring about petitioner's termination from his new position at HHHC. Amended
Compl. _ 18. Respondents intended this termination as "retaliation
against [petitioner] for his cooperation with federal agents and his testimony
under subpoena to the federal grand jury." Ibid. In addition, respondents
intended through petitioner's termination to intimidate petitioner and other
Healthmaster employees from cooperating with federal agents or testifying
in any criminal matters involving respondents. Ibid. At the time they made
the agreement, respondents Garrison and Kelly were not employees of HHHC.
Id. _ 33. Pursuant to the conspiracy, and at the direction of respondents
Garrison and Kelly, Molloy caused petitioner to be terminated from his position
on June 21, 1995. Id. _ 16.
2. Petitioner brought suit in the United States District Court for the Southern
District of Georgia, asserting a federal claim under 42 U.S.C. 1985 and
various state law claims. Section 1985, in pertinent part, prohibits conspiracies
either to deter, by force, threat, or intimidation, any party or witness
from attending or testifying freely, fully, and truthfully in a federal
court or to injure any party or witness in his person or property because
he attended or testified in federal court. See 42 U.S.C. 1985(2) (clause
i).1 The statute provides a remedy in damages to anyone who is injured in
his person or property or deprived of a federal right or privilege as a
result of an act in furtherance of a conspiracy prohibited under any part
of Section 1985, including clause one of Section 1985(2). See 42 U.S.C.
1985(3) (clause iii).
Petitioner alleged that his employment was terminated in furtherance of
respondents' conspiracy to retaliate against him for cooperating in the
federal investigation and testifying before the grand jury and to deter
him and others from testifying in the criminal proceedings, in violation
of Section 1985(2). Amended Compl. __ 18, 20. Petitioner further alleged
that he was "injured in his person and property" by respondents'
actions. Id. _ 21.
Respondents moved to dismiss the suit for failure to state a claim upon
which relief can be granted. See Pet. App. 3a-4a. The district court granted
the motion on the authority of Morast v. Lance, 807 F.2d 926 (11th Cir.
1987). Pet. App. 5a-6a. In Morast, the Eleventh Circuit held that an at-will
employee who is dismissed pursuant to a conspiracy proscribed by 42 U.S.C.
1985(2) has no cause of action. See 807 F.2d at 930. The Morast court explained
its holding as follows:
[T]o make out a cause of action under _ 1985(2) the plaintiff must have
suffered an actual injury. Because Morast was an at will employee, see 12
U.S.C. _ 24 (Fifth); O.C.G.A. _ 34-7-1 (1981), he had no constitutionally
protected interest in continued employment. Therefore, Morast's discharge
did not constitute an actual injury under this statute.
807 F.2d at 930 (emphasis added). Because petitioner conceded that he was
an at-will employee, the district court ruled that Morast required that
his Section 1985 claim be dismissed. Pet. App. 4a-6a. The district court
also dismissed petitioner's state claims. Id. at 6a.
Petitioner appealed to the United States Court of Appeals for the Eleventh
Circuit, which affirmed in a three- sentence opinion, holding that petitioner's
arguments were foreclosed by Morast. Pet. App. 1a-2a. The court of appeals
denied petitioner's suggestion for hearing en banc. Id. at 2a n.1.
SUMMARY OF ARGUMENT
The court of appeals erred in holding that petitioner must have suffered
an injury to a constitutionally protected interest to maintain an action
under Section 1985(2) (clause i). The statute does not require injury to
a federal interest apart from the interest in the integrity of federal judicial
proceedings that is protected by the first clause of Section 1985(2) itself.
Requiring injury to an independent constitutional or other federal interest
conflicts with the statute's plain language and has no support in its legislative
history.
Section 1985(2) (clause i) protects the integrity of federal judicial proceedings
by proscribing conspiracies to deter a witness from attending or testifying
in federal court or to injure a witness in his person or property for having
done so. Section 1985(3) (clause iii) provides a remedy in damages to anyone
"injured in his person or property" or deprived of a federal right
or privilege as the result of a conspiracy proscribed by Section 1985(2)
(clause i).
Petitioner alleged sufficient injury to sustain an action under those provisions.
A plaintiff is "injured in his person or property" if he has suffered
loss or damage of a type compensable in a common law tort action. The loss
need not involve bodily injury or destruction of tangible property. Damages
resulting from termination of employment, such as lost earnings, fall within
the ambit of the statute.
The fact that the terminated employment was "at will" does not
disqualify the resulting injuries. Section 1985(2) (clause i) grants prospective
witnesses a substantive federal right to be free of conspiracies to deter
or retaliate against them for their attendance at federal court proceedings.
Employees do not lose their right to be free of retaliation in violation
of federal law because their employment is at will under state law. This
Court generally avoids interpreting federal statutes in a way that makes
federal rights depend on the vagaries of state law. That principle has particular
force here, because Congress enacted Section 1985 based on a belief that
state authorities were unwilling or unable to preserve civil order in the
South during the Reconstruction.
Respondents attempt to limit the coverage of Section 1985(2) (clause i)
to actions involving force or the threat of force, but that construction
is not supported by either the statute's language or its legislative history
and would undermine the statute's purpose. By its terms, the statute fixes
clear limits on its reach and does not require any additional limitation
by judicial implication.
ARGUMENT
The district court dismissed petitioner's complaint for failure to state
a claim. A reviewing court must therefore assume that the allegations in
the complaint are true and may affirm the dismissal only if petitioner clearly
could prove no set of facts that would entitle him to relief. See Hartford
Fire Ins. Co. v. California, 509 U.S. 764, 811 (1993). In affirming the
dismissal, the court of appeals held that termination of at-will employment
may never cause an injury sufficient to support suit under Section 1985(2)
(clause i). Pet. App. 2a. Because that conclusion rested on an erroneous
interpretation of the statute, the judgment of the court of appeals must
be reversed.
I. THE COURT OF APPEALS ERRED IN HOLDING THAT PETITIONER HAS NO CAUSE OF
ACTION UNDER SECTION 1985(2) BECAUSE HE DID NOT ALLEGE INJURY TO A CONSTITUTIONALLY
PROTECTED INTEREST
The first clause of Section 1985(2), under which petitioner brought his
action, provides in relevant part:
If two or more persons in any State or Territory conspire to deter, by force,
intimidation, or threat, any party or witness in any court of the United
States from attending such court, or from testifying to any matter pending
therein, freely, fully, and truthfully, or to injure such party or witness
in his person or property on account of his having so attended or testified
* * * .
42 U.S.C. 1985(2) (clause i). That clause must be read in conjunction with
the third and final clause of Section 1985(3), which provides the remedy:
[I]n any case of conspiracy set forth in this section, if one or more persons
engaged therein do, or cause to be done, any act in furtherance of the object
of such conspiracy, whereby another is injured in his person or property,
or deprived of having and exercising any right or privilege of a citizen
of the United States, the party so injured or deprived may have an action
for the recovery of damages occasioned by such injury or deprivation, against
any one or more of the conspirators.
42 U.S.C. 1985(3) (clause iii).2
Nothing in the above language supports the holding of the court of appeals
that petitioner's cause of action turns on whether he has suffered an injury
to a constitutionally protected interest. Nor does the language provide
any support for respondents' variation on that holding (Resp. Garrison,
et al. Br. in Opp. 10-12, 13-15)-that petitioner can only maintain an action
if he can show injury to a federal right or interest independent of his
right to be free from a conspiracy proscribed by the statute.
Section 1985(2) (clause i) protects the strong federal interest in the integrity
of federal judicial proceedings by creating a substantive right to be free
from conspiracies to interfere with federal witnesses, parties and jurors.
See Kush v. Rutledge, 460 U.S. 719, 724 (1983) (the statute proscribes "conspiracies
that interfere with * * * the administration of justice in federal courts");
id. at 726 (referring to a "violation" of "rights under the
first clause of _ 1985(2)"); Irizarry v. Quiros, 722 F.2d 869, 872
(1st Cir. 1983). The statute does not require that the prohibited conspiracies
infringe any constitutional or federal right apart from the right to participate
in federal judicial proceedings that is protected by the statute itself.
Indeed, in describing the proscribed conspiracies, Section 1985(2) (clause
i) does not use the terms "constitutional right," "federal
right" or any similar language.
Section 1985(3) (clause iii), which specifies the remedy for conspiracies
proscribed by Section 1985(2) (clause i), and for conspiracies proscribed
by the other provisions of Section 1985, does refer to a "right or
privilege of a citizen of the United States." However, that reference
refutes, rather than supports, the contention that deprivation of a federal
right is a necessary element of an action for damages under the statute.
The remedy clause authorizes a cause of action for damages if the plaintiff
is either "injured in his person or property, or deprived of having
and exercising any right or privilege of a citizen of the United States."
42 U.S.C. 1985(3) (clause iii) (emphasis added). The use of the disjunctive
makes clear that the remedy provided by the statute is not limited to situations
in which a plaintiff is deprived of a federal right or privilege. See, e.g.,
Reiter v. Sonotone Corp., 442 U.S. 330, 339 (1979) (terms connected by a
disjunctive should generally be given separate meanings). The remedy also
encompasses any situation in which the plaintiff is "injured in his
person or property" by a conspiracy prohibited by Section 1985(2) (clause
i). And, as explained above, neither those conspiracies nor the resulting
injuries necessarily entail deprivation of an independent federal right.
The court of appeals may have been misled because other provisions of Section
1985 do limit their prohibitions to conspiracies involving deprivation of
an independent federal right. Those provisions-which are not aimed at protecting
federal courts, officers, or elections, and are not at issue in this case-prohibit
conspiracies to deny persons the "equal protection of the laws"
or "equal privileges and immunities under the laws."
For example, Section 1985(3) (clause i) provides a cause of action against
two or more persons who "conspire or go in disguise on the highway
or on the premises of another" for the purpose of depriving persons
of "equal protection of the laws" or "equal privileges and
immunities under the laws." This Court has held that the equal protection
language in Section 1985(3) (clause i) imposes two limitations on claims
brought under that provision. First, the plaintiff must prove that "some
racial, or perhaps otherwise class-based, invidiously discriminatory animus
[lies] behind the conspirators' action." See Bray v. Alexandria Women's
Health Clinic, 506 U.S. 263, 268 (1993) (quoting Griffin v. Breckenridge,
403 U.S. 88, 102 (1971)). Second, the equal protection language makes clear
that Section 1985(3) (clause i) creates no substantive rights. The plaintiff
must identify elsewhere a right to which the conspiracy sought to deny equal
access. See United Bhd. of Carpenters & Joiners v. Scott, 463 U.S. 825,
833 (1983); Great American Fed. Sav. & Loan Ass'n v. Novotny, 442 U.S.
366, 376 (1979). See also 42 U.S.C. 1985(2) (clause ii) (prohibiting conspiracies
to deny equal protection by interfering with state courts).
The provisions of Section 1985 that prohibit conspiracies to interfere with
federal courts, officers and elections, however, do not contain equal protection
language. See Kush, 460 U.S. at 724-725. The absence of that language is
not an accident. As the Court explained in Kush, the sponsors inserted the
equal protection language into selected portions of the Civil Rights Act
of 1871 (such as Section 1985(3) (clause i)) in order to address constitutional
objections that the "enormous sweep of the original language"
improperly extended federal authority and displaced state control over private
conduct. See Kush, 460 U.S. at 726 (quoting Griffin, 403 U.S. at 99-100);
see also Cong. Globe, 42d Cong., 1st Sess. H. 477 (1871) (Rep. Shellabarger);
id. at H. 485 (Rep. Cook). Congress included equal protection language to
make clear that private conduct that did not directly threaten federal interests
would be proscribed only when it was aimed at rights that were otherwise
protected by federal law.
The legislative concern that motivated the limitation on Section 1985(3)
(clause i) does not apply to the portions of Section 1985 that prohibit
interference with federal courts, officers and elections. Kush, 460 U.S.
at 726. Neither opponents nor proponents of the bill questioned Congress's
authority to prohibit interference with witnesses, parties and jurors in
the federal courts. See Kush, 460 U.S. at 727 (citing Cong. Globe, 42d Cong.,
1st Sess. H. 486 (1871) (Rep. Cook); id. at S. app. 220 (Sen. Thurman)).
That interference necessarily implicates federal interests, and the limiting
language was therefore deemed unnecessary. See Kush, 460 U.S. at 725; see
also McCord v. Bailey, 636 F.2d 606, 616 (D.C. Cir. 1980) (Section 1985
requires "violations of an explicit federal interest" for "obstruction
of justice in state courts," but, for "acts interfering with the
operation of federal courts, no limitation was made"), cert. denied,
451 U.S. 983 (1981).
In requiring that the plaintiff show an injury to a separate constitutional
interest in his employment, the Eleventh Circuit improperly imported the
requirements of Section 1985(3) (clause i) into Section 1985(2) (clause
i) and ignored important differences in the language and purposes of the
two provisions. This Court rejected that approach in Kush, supra. In that
case, the Court held that the district court improperly required a plaintiff
suing under Section 1985(2) (clause i) to prove that the conduct he challenged
was motivated by racial or other class-based animus, proof that would have
been required in a suit under Section 1985(3) (clause i). The Court explained
that the textual basis for the race or class-based animus requirement-the
equal protection language in Section 1985(3) (clause i)-does not appear
in Section 1985(2) (clause i). Kush, 460 U.S. at 724-725. The reasoning
in Kush applies with equal force here.
II. PETITIONER ALLEGED SUFFICIENT INJURY TO MAINTAIN AN ACTION UNDER SECTION
1985(2) BY ALLEGING THAT HE WAS "INJURED IN HIS PERSON OR PROPERTY"
BY THE TERMINATION OF HIS EMPLOYMENT
Petitioner's allegation that he was "injured in his person or property"
by the termination of his employment in furtherance of a conspiracy proscribed
by Section 1985(2) (clause i) is sufficient to support his cause of action.
A plaintiff is "injured in person or property" within the meaning
of the statute if he suffers any loss or damage of a type compensable in
a tort suit at common law. Damages such as lost earnings that result from
termination of employment fall clearly within the ambit of the statute.
The fact that the terminated employment was "at will" does not
disqualify the resulting harm from being an "injur[y] in person or
property."
A. A Plaintiff Is Injured In His Person Or Property If He Suffers Loss Or
Damage Of A Type Compensable In Tort
The statute provides a remedy in damages to anyone who has been "injured
in his person or property" as a result of an act in furtherance of
a conspiracy proscribed by Section 1985(2) (clause i). As several courts
of appeals have recognized, the requirement of "injury" to "person
or property" demands only that a plaintiff have suffered some loss
or damage of the type compensable in a tort suit at common law. See Irizarry,
722 F.2d at 871 (term "property" in Section 1985 "must include
any economic damage that would be recognized in an ordinary tort suit");
accord Portman v. County of Santa Clara, 995 F.2d 898, 910 (9th Cir. 1993).
At the time Congress enacted the Civil Rights Act of 1871, the term "injured"
had much the same meaning that it has today: harmed, hurt, or damaged in
any way. A leading dictionary of the day offered the following definitions:
"To do harm to; to impair the excellence and value of; to hurt; to
damage." N. Webster, An American Dictionary of the English Language
694 (rev. ed. 1870).3 That dictionary went on to explain that "injure"
was "used in a variety of senses," including:
(a.) To hurt or wound, as the person; to impair soundness, as of health.
(b.) To damage or lessen the value of, as goods or estate. (c.) To slander,
tarnish, or impair, as reputation or character. (d.) To impair or diminish,
as happiness. (e.) To give pain to, as the sensibilities or the feelings;
to grieve; to annoy. (f.) To impair, as the intellect or mind.
Ibid. The first edition of Black's Law Dictionary also broadly defined injury
as "[a]ny wrong or damage done to another." Black's Law Dictionary
(1st ed. 1891).4
The statute also requires that the harm or damage a plaintiff suffers be
"in his person or property." At the time that Section 1985 was
enacted, that phrase broadly encompassed all harms compensable in a tort
suit. Blackstone used the phrase to distinguish actions in tort from actions
in contract:
Personal actions are such whereby a man claims a debt or personal duty,
or damages in lieu thereof; and, likewise, whereby a man claims a satisfaction
in damages for some injury done to his person or property. The former are
said to be founded on contracts, the latter upon torts or wrongs.
* * * * *
Of the former nature are all actions upon debts or promises; of the latter
are all actions for trespasses, nuisances, assaults, defamatory words, and
the like.
4 Blackstone's Commentaries 117 (Tucker ed. 1803). Blackstone distinguished
generally between rights of person and rights of property, which he referred
to as "rights of things." The former are rights that the individual
obtains by virtue of his personhood. The latter are rights that the individual
obtains through his possession or ownership of property. See id., Vol. 2,
at 122; id., Vol. 3, at 1. As the Georgia Supreme Court noted in summarizing
the classifications used by Blackstone and others:
At common law, absolute personal rights were divided into personal security,
personal liberty, and private property.
* * * * *
No provision has been made for any middle class of injuries between those
to person and those to property, and the great body of wrongs arrange themselves
under the one head or the other.
Johnson v. Bradstreet Co., 13 S.E. 250 (Ga. 1891); accord Hoover v. Palmer,
80 N.C. 313, 314 (1879); Thompson v. Judy, 169 F. 553, 555-556 (6th Cir.
1909). See also 1 J. Bouvier, A Law Dictionary Adapted to the Constitution
and Laws of the United States of America 636 (11th ed. 1862) (noting that
legal injuries can be divided into injuries to person and injuries to personal
and real property); Md. Const. of 1867, Art. 19, Declaration of Rights (dividing
injuries for which the law ought to provide a remedy into injuries to "person"
and "property"). In essence, every type of damage for which the
courts may provide compensation in a tort suit may be classified as an injury
either to a person or to his property.
B. Injury In Person Or Property Is Not Limited To Bodily Injury and Damage
to Tangible Property
Respondents' suggestion (Resp. Garrison, et al. Br. in Opp. 18-19) that
"injur[y] in person or property" embraces only bodily injuries
or destruction of tangible property is untenable. Respondents' argument
is contradicted by numerous court decisions confirming that "injuries
to the person" encompass non-physical harms and "injuries to property"
include various monetary losses. Moreover, the construction of the phrase
proposed by respondents would frustrate the purpose of the statute.
1. Courts in the nineteenth and early twentieth century routinely ruled
that tort actions complaining of adultery,5 seduction of a minor,6 alienation
of spousal affec-
tions,7 breach of promise of marriage,8 defamation,9 malicious prosecution10
and legal malpractice11 should be considered actions for "injuries
to the person," even though they involved no bodily injury.12 Those
courts reasoned that injuries such as mental anguish, injury to reputation,
and other intangible harms are properly classed as injuries to the person.
See, e.g., McDonald v. Brown, 51 A. 213, 214 (R.I. 1902); Wade v. Kalbfleish,
58 N.Y. 282, 285 (1874).13
Similarly, "injury to property" has long been construed to include
monetary losses, not simply the destruction of tangible property. Thus,
this Court has held that consumers who allegedly paid higher prices as a
result of anti-competitive activity had suffered an injury to property within
the meaning of the Clayton Act. Reiter, 442 U.S. at 339. Similarly, this
Court has also held that conversion is an injury to property within the
meaning of the Bankruptcy Act. McIntyre v. Kavanaugh, 242 U.S. 138, 141
(1916). See also Crawford v. Johnson, 6 F. Cas. 777, 778 (Cir. Ct. D. Ore.
1868) (No. 3369) (debt arising from embezzlement of funds is an injury to
property). As this Court noted in Reiter, "the word 'property' has
a naturally broad and inclusive meaning. In its dictionary definitions and
in common usage, 'property' comprehends anything of material value owned
or possessed. Money, of course, is a form of property." 442 U.S. at
338 (citation omitted).
2. Restricting Section 1985(2) to injuries involving bodily harm or destruction
of tangible property would deny full effect to Congress's purpose in enacting
the statute. Congress passed the Civil Rights Act of 1871 (popularly known
as the Ku Klux Klan Act) in response to widespread lawless activity and
resistance to federal authority in the South. Although that lawlessness
and resistance to authority often involved bodily harm or physical destruction
of property, it was also manifested in other ways.
Members of Congress were concerned that perjury, jury nullification, witness
intimidation, and other abuses were rendering the state court justice system
ineffective.14 Few perpetrators were being convicted, even when the evidence
of their guilt was clear.15 Members of the Ku Klux Klan and their sympathizers
were expected to give perjured testimony to exonerate Klan members who were
accused of a crime. If selected to be on the jury, Klan members were expected
to acquit, regardless of the strength of the evidence.16
In response to those problems, Congress enacted Section 1985(2) to protect
witnesses, parties and jurors in federal courts from intimidation and retaliation.
See Cong. Globe, 42d Cong., 1st Sess. S. 567 (1871) (Senator Edmunds). Congress
framed the language of the statute broadly, to address the breadth of the
problem it confronted. Those Members who discussed the provision at issue
in this case also described it in broad terms. See id. at H. 486 (Rep. Cook)
("Now, if there be any combination of men who shall combine and conspire
together for the purpose of preventing * * * a witness from testifying in
a court of the United States * * * or to punish a witness for testifying
truthfully, that combination is an offence against the United States.");
id. at S. 568 (1871) (Senator Edmunds) (Section 2 "gives a civil action
to anybody who shall be injured by the conspiracy."). Thus, the statutory
language as well as its purpose refute any contention that "injur[y]
in person or property" is limited to physical harm.
C. Loss of At-Will Employment Entails Injury In Person Or Property
1. Damages caused by the termination of employment are "injur[y] in
person or property" within the meaning of Section 1985(3) (clause iii).
Termination of employment results in monetary losses such as lost wages
and lost benefits. Usually, the terminated employee also incurs expenses
to find substitute employment. Loss of employment may also give rise to
intangible injuries such as emotional distress, loss of self-esteem, and
diminished professional reputation.
All of those harms were routinely compensated in tort actions in the second
half of the nineteenth century. See, e.g., Beckwith v. Bean, 98 U.S. 266,
276 (1878) (damages may include "direct expenses incurred by the injured
party, his loss of time, his bodily sufferings, under some circumstances
his mental agony, his loss of reputation, the degree of indignity involved
in the wrong done, and the consequent public disgrace attending the injury");
Harris v. Union Pacific R., 13 F. 591, 592, 594 (Cir. Ct. D. Col. 1882)
(McCrary, C. J.) (allowing damages for loss of wages based on plaintiff's
claim that he was "injured in his person" by defendant's negligence).
Courts in the early twentieth century readily concluded that harms caused
by loss of employment were injuries to person or property. 17 And courts
today continue to hold that loss of employment results in injuries to person18
and property.19
Respondents contend (Resp. Garrison, et al. Br. in Opp. 19) that the 1871
Congress never expressly contemplated that the statute would apply to retaliatory
discharges. As this Court has noted, however, the fact that a statute applies
"in situations not expressly anticipated by Congress does not demonstrate
ambiguity. It demonstrates breadth." Pennsylvania Dep't of Corrections
v. Yeskey, 118 S. Ct. 1952, 1956 (1998). Congress could have chosen to limit
the language of its corrective legislation to the southern States, to the
Ku Klux Klan, or to the precise types of outrages persons had testified
were occurring in 1871. Legislation, however, often addresses specific problems
in more general ways. See Stern v. United States Gypsum, Inc., 547 F.2d
1329, 1335 (7th Cir.), cert. denied, 434 U.S. 975 (1977). And it cannot
be doubted that intimidating witnesses by discharging employees who testify
in federal court proceedings threatens corruption of the judicial process
of the type Congress feared when it enacted Section 1985(2).
Congress in 1871 saw the problem of witness intimidation and retaliation
as a severe threat to the administration of justice in the federal courts,
and it enacted Section 1985(2) to address that problem. The methods of witness
intimidation most prevalent today may or may not be the same as those in
common use in 1871, but Congress used language broad enough to reach the
wide variety of methods by which witnesses can be subjected to intimidation
and retaliation, including methods that it may not have contemplated at
the time. That broad language must be respected. See Brogan v. United States,
118 S. Ct. 805, 809 (1998).
2. The fact that petitioner was employed "at will" does not mean
he could not be "injured in person or property" by the termination
of his employment. As a general matter, an employee does not forfeit his
rights under federal law because his employment is at will under state law.
As one Georgia court noted in explaining the interaction between the doctrine
of at-will employment and federal statutes, "an at-will employee whose
employment is 'wrongfully' terminated in violation of the public policy
that is established by specific state or federal statutes may pursue his
applicable statutory remedy without being barred by the proposition that
an employer otherwise incurs no liability for discharging an at-will employee."
Borden v. Johnson, 395 S.E.2d 628, 629 (Ga. Ct. App. 1990). At-will status
simply means that an employee may be discharged for any reason that does
not violate state or federal law. It does not mean that an employer, or
others, may ignore state and federal protections extended to the employee.20
This Court has consistently affirmed that principle. For example, public
employees who are discharged in retaliation for exercising their First Amendment
rights may have a valid cause of action under 42 U.S.C. 1983 (1994 &
Supp. II 1996), even if they are defined as at-will employees under state
law. See Rankin v. McPherson, 483 U.S. 378, 383-384 (1987); Mt. Healthy
City Sch. Dist. Bd. of Educ. v. Doyle, 429 U.S. 274, 283-284 (1977). Government
contractors enjoy similar protection, even if their contracts are terminable
or non-renewable at-will. See Board of County Comm'rs v. Umbehr, 518 U.S.
668, 684-685 (1996). Similarly, the courts of appeals have uniformly held
that Title VII of the Civil Rights Act of 1964, 42 U.S.C. 2000e et seq.,
protects at-will employees from discriminatory discharge. See, e.g., Mardell
v. Harleysville Life Ins. Co., 31 F.3d 1221, 1233 (3d Cir. 1994), vacated
on other grounds, 514 U.S. 1034 (1995); Washington v. Lake County, 969 F.2d
250, 256 (7th Cir. 1992). So too, Section 1985(2) (clause i) protects at-will
employees from discharge to prevent or to retaliate against them for the
exercise of the right to be a federal witness.21
Exempting at-will employees from the protection of Section 1985(2) would
make the vindication of important federal interests depend on the vagaries
of state law. This Court avoids that result if possible whenever Congress
has created a federal statutory right, because "federal statutes are
generally intended to have uniform nationwide application." See Mississippi
Band of Choctaw Indians v. Holyfield, 490 U.S. 30, 43 (1989).
A conclusion that the rights created by Section 1985(2) turn on state law
would be particularly inappropriate. Congress enacted the Civil Rights Act
of 1871 precisely because it believed that a federal solution was necessary
to the disorder and anarchy that plagued the southern United States at that
time. Many Members of Congress expressed concern that state authorities
were unwilling or unable to act effectively to prevent unlawful conduct.
See, e.g., Cong. Globe, 42d Cong., 1st Sess. S. 158 (1871) (Sen. Sherman);
id. at H. 320-321 (Rep. Stoughton); id. at S. app. 109 (Sen. Pool); id.
at H. 394 (Rep. Rainey); id. at S. app. 252 (Senator Morton). For example,
one Member of Congress noted an incident in Florida in which a Florida court
had ruled that Florida law provided no remedy for victims whose home had
been invaded by armed men. See id. at H. 447 (Rep. Butler). Given the congressional
skepticism about state authorities and processes that prompted enactment
of Section 1985(2), this Court should not impute to Congress the intent
to make the statute's protection depend on the very state law mechanisms
that Congress found inadequate in the first place.
III. THE ALTERNATIVE GROUNDS FOR AFFIRMANCE PROFFERED BY RESPONDENTS LACK
MERIT
A. Section 1985(2) Is Not Limited To Conduct Involving Force Or The Threat
Of Force
Contrary to respondents' suggestion (Garrison, et al. Br. in Opp. 23-25),
Section 1985(2) is not limited to conspiracies that involve force or the
threat of force. The limitation advocated by respondents is unsupported
by the statute's language and legislative history, would undermine the statute's
purpose, and has not been adopted by the courts of appeals.
Respondents attempt to ground a requirement of force or the threat of force
in the statutory provision that proscribes conspiracies to deter testimony
by "force, intimidation, or threat." 42 U.S.C. 1985(2) (clause
i). However, "force" is only one of the three alternate means
of deterrence prohibited by the statute. Neither "intimidation"
nor "threat" requires force or threat of force.
In 1871, "intimidation" included any action that reasonably inspires
fear in another.22 See N. Webster, supra, at 710 (defining "intimidate"
as "to make timid or fearful; to inspire with fear; to dishearten;
to abash."). At that time, courts frequently used the words "intimidate"
or "intimidation" to refer to actions that did not involve the
use or threat of force, but involved economic coercion. See, e.g., United
States v. Castillero, 67 U.S. (2 Black) 17, 91 (1863) (threat to expose
legal documents); Mendenhall v. Carter, 17 F. Cas. 12, 14 (W.D.N.C. 1872)
(No. 9426) (threat to file proceedings in bankruptcy court); Pitzer v. Russell,
4 Or. 124, 127 (1871) (accumulation of costs in legal proceedings). In the
ensuing decades, a number of courts held explicitly that statutes proscribing
"intimidation" were not limited to actions involving the use or
threat of force but also applied to economic coercion. See, e.g., Vegelahn
v. Guntner, 44 N.E. 1077 (Mass. 1896) (intimidation not limited to threats
of violence or physical injury); Baldwin v. Escanaba Dealer's Ass'n, 130
N.W. 214, 219 (Mich. 1911) (same); Lohse Patent Door Co. v. Fuelle, 114
S.W. 997, 1004 (Mo. 1908) (same); Barr v. Essex Trades Council, 30 A. 881,
888 (N.J. Ch. 1894) (same).23
The term "threat" is also not limited to threat of force or violence.
See N. Webster, supra, at 1378 (defining threat as "denunciation of
ill; declaration of an intention or determination to inflict punishment,
loss, or pain on another; a menace"); Random House Dictionary of the
English Language 1975 (2d ed. 1987 unabridged).
In any event, the statute prohibits not only conspiracies to deter participation
in federal court proceedings by "force, intimidation, or threat"
but also conspiracies to injure a person "in his person or property"
on account of the person's testifying in or attending federal court. As
explained above, injury to person or property need not necessarily result
from the use or threat of force. See pp. 15-17, supra.
When Congress has wanted to limit the reach of a statute proscribing interference
with federally protected rights to actions involving "force or threat
of force," it has done so expressly. See, e.g., 18 U.S.C. 245(b) (interference
with federally protected activities); 18 U.S.C. 248(a)(1)-(3) (access to
clinic entrances); 42 U.S.C. 3631 (interference with fair housing rights).
Indeed, another provision of Section 2 of the Civil Rights Act of 1871 prohibited
a conspiracy "by force to seize, take, or possess any property of the
United States contrary to the authority thereof." 17 Stat. 13 (emphasis
added). The absence of any such limitation in Section 1985(2) (clause i)
strongly indicates that Congress did not intend to limit the statute's prohibition
to actions involving force or the threat of force.
The legislative history of the proposed Sherman Amendment to the Civil Rights
Act of 1871 supports that conclusion. The Sherman Amendment, which was approved
by the Senate, would have made cities, counties, and parishes liable for
certain injuries caused by mob violence. Unlike most other provisions of
the Civil Rights Act of 1871, the Sherman Amendment would have applied only
to actions that resulted in the destruction of tangible property or bodily
injury by "force and violence."24 See Cong. Globe, 42d Cong.,
1st Sess. S. 755 (1871). The Sherman Amendment was not approved by the House,
and the final bill eliminated it in favor of a different provision that
was ultimately codified at 42 U.S.C. 1986. See id. at H. 804. The language
of the Sherman Amendment, however, illustrates that when legislators in
1871 wanted to reach only conduct that involved "force and violence"
and destruction of tangible property, they thought it feasible and necessary
to state that limitation expressly. Congress could have included similar
language in Section 1985(2) had it intended to limit that Section to acts
involving force or threat of force, and it did not do so.
Limiting the reach of the statute to intimidation or retaliation that involves
force or the threat of force would frustrate the statute's broad purpose.
As described above, Congress's concerns in passing Section 1985 were not
limited to curbing violence. Congress was also concerned with the corruption
of the state judicial system through such non-violent means as jury nullification
and perjury by persons who were sympathetic to the lawless conduct of the
Ku Klux Klan. See pp. 17-18, supra. The threat of terminating employment
and other acts of economic coercion are just as likely to foster the corruption
of the judicial process that Congress sought to eliminate as the threat
of violence.
It is thus not surprising that no court of appeals has endorsed respondents'
crabbed viewed of the protection afforded by Section 1985(2) (clause i).
The courts of appeals have sustained actions under the statute based on
a variety of conspiracies that did not involve force or the threat of force.
See, e.g., Irizarry, supra (failure to rehire); Portman, supra (retaliatory
discharge); Wright v. No Skitter, Inc., 774 F.2d 422 (10th Cir. 1985) (conspiracy
to defeat low bidder on contract); McCord, supra (misconduct by attorney);
cf. Windsor v. The Tennessean, 719 F.2d 155 (6th Cir.) (defamation causes
injury sufficient to support action under Section 1985(1)), cert. denied,
469 U.S. 826 (1984); Stern, supra (same).25
B. Limiting Section 1985(2) Is Not Necessary To Avoid Creating A General
Federal Tort Law
Respondents' suggestion (Resp. Garrison, et al. Br. in Opp. 15) that Section
1985(2) (clause i) must be given a narrow interpretation to avoid creating
an open-ended federal tort law has already been rejected by this Court.
As the Court explained in Kush, 460 U.S. at 726, the concerns that caused
Congress to narrow the scope of Section 1985(3) (clause i) are not implicated
by Section 1985(2) (clause i). See p. 10, supra. Because 1985(2) (clause
i) makes actionable only conspiracies to interfere with the federal courts,
there is no danger of federalizing tort law. See Kush, 460 U.S. at 723,
726. Nor is there any need to constrain the scope of the statute to avoid
doubts about Congress's authority to enact the provision. See Kush, 460
U.S. at 727; McCord, 636 F.2d at 614 n.12, 617.
Section 1985(2) (clause i) does not prohibit all interference with the federal
courts. First, the statute reaches only conspiracies and does not cover
unilateral action. See Irizarry, 722 F.2d at 872.26 Second, the statute
requires proof that the purpose of the conspiracy was improper-either to
deter someone from participating in federal court proceedings or to injure
someone in retaliation for his participation. Proof of the required motive
will ordinarily be difficult unless the injury or threatened injury posed
by the alleged conspiracy is sufficiently severe that a reasonable person
would feel compelled not to attend court or to testify untruthfully. Finally,
the plaintiff must establish either the deprivation of a federal right or
privilege, or damage of a type compensable in a common law tort suit. See
pp. 12-17 & note 13, supra.
The alleged conspiracy in this case falls squarely within the prohibition
of the statute. Conspiracies to discharge employees in retaliation for testifying
truthfully in federal court present precisely the type of threat to the
integrity of federal judicial proceedings that Section 1985 was intended
to address. The loss of earnings suffered by petitioner as a result of the
termination of his employment is a concrete, economic harm of the type routinely
compensated at common law and is substantial enough to support an action
under the statute.27
CONCLUSION
The judgment of the United States Court of Appeals for the Eleventh Circuit
should be reversed, and the case remanded with instructions to reinstate
the complaint.
Respectfully submitted.
SETH P. WAXMAN
Solicitor General
BILL LANN LEE
Acting Assistant Attorney
General
BARBARA D. UNDERWOOD
Deputy Solicitor General
MATTHEW D. ROBERTS
Assistant to the Solicitor
General
DAVID K. FLYNN
TIMOTHY J. MORAN
Attorneys
JULY 1998
APPENDIX
1. Section 1985 of Title 42, United States Code, provides:
(1) Preventing officer from performing duties
If two or more persons in any State or Territory conspire to prevent, by
force, intimidation, or threat, any person from accepting or holding any
office, trust, or place of confidence under the United States, or from discharging
any duties thereof; or to induce by like means any officer of the United
States to leave any State, district, or place, where his duties as an officer
are required to be performed, or to injure him in his person or property
on account of his lawful discharge of the duties of his office, or while
engaged in the lawful discharge thereof, or to injure his property so as
to molest, interrupt, hinder, or impede him in the discharge of his official
duties;
(2) Obstructing justice; intimidating party, witness, or juror
[Clause i] If two or more persons in any State or Territory conspire to
deter, by force, intimidation, or threat, any party or witness in any court
of the United States from attending such court, or from testifying to any
matter pending therein, freely, fully, and truthfully, or to injure such
party or witness in his person or property on account of his having so attended
or testified, or to influence the verdict, presentment, or indictment of
any grand or petit juror in any such court, or to injure such juror in his
person or property on account of any verdict, presentment, or indictment
lawfully assented to by him, or of his being or having been such juror;
[Clause ii] or if two or more persons conspire for the purpose of impeding,
hindering, obstructing, or defeating, in any manner, the due course of justice
in any State or Territory, with intent to deny to any citizen the equal
protection of the laws, or to injure him or his property for lawfully enforcing,
or attempting to enforce, the right of any person, or class of persons,
to the equal protection of the laws;
(3) Depriving persons of rights or privileges
[Clause i] If two or more persons in any State or Territory conspire or
go in disguise on the highway or on the premises of another, for the purpose
of depriving, either directly or indirectly, any person or class of persons
of the equal protection of the laws, or of equal privileges and immunities
under the laws; or for the purpose of preventing or hindering the constituted
authorities of any State or Territory from giving or securing to all persons
within such State or Territory the equal protection of the laws; [Clause
ii] or if two or more persons conspire to prevent by force, intimidation,
or threat, any citizen who is lawfully entitled to vote, from giving his
support or advocacy in a legal manner, toward or in favor of the election
of any lawfully qualified person as an elector for President or Vice President,
or as a Member of Congress of the United States; or to injure any citizen
in person or property on account of such support or advocacy; [Clause iii]
in any case of conspiracy set forth in this section, if one or more persons
engaged therein do, or cause to be done, any act in furtherance of the object
of such conspiracy, whereby another is injured in his person or property,
or deprived of having and exercising any right or privilege of a citizen
of the United States, the party so injured or deprived may have an action
for the recovery of damages occasioned by such injury or deprivation, against
any one or more of the conspirators.
2. Section 2 of the Civil Rights Act of 1871, ch. 22, 17 Stat. 13, provides:
That if two or more persons within any State or Territory of the United
States shall conspire together to overthrow, or to put down, or to destroy
by force the government of the United States, or to levy war against the
United States, or to oppose by force the authority of the government of
the United States, or by force, intimidation, or threat to prevent, hinder,
or delay the execution of any law of the United States, or by force to seize,
take, or possess any property of the United States, contrary to the authority
thereof, or by force, intimidation, or threat to prevent any person from
accepting or holding any office or trust or place of confidence under the
United States, or from discharging the duties thereof, or by force, intimidation,
or threat to induce any officer of the United States to leave any State,
district, or place where his duties as such officer might lawfully be performed,
or to injure him in his person or property on account of his lawful discharge
of the duties of his office, or to injure his person while engaged in the
lawful discharge of the duties of his office, or to injure his property
so as to molest, interrupt, hinder, or impede him in the discharge of his
official duty, or by force, intimidation, or threat to deter any party or
witness in any court of the United States from attending such court, or
from testifying in any matter pending in such court fully, freely, and truthfully,
or to injure any such party or witness in his person or property on account
of his having so attended or testified, or by force, intimidation, or threat
to influence the verdict, presentment, or indictment, of any juror or grand
juror in any court of the United States, or to injure such juror in his
person or property on account of any verdict, presentment, or indictment
lawfully assented to by him, or on account of his being or having been such
juror, or shall conspire together, or go in disguise upon the public highway
or upon the premises of another for the purpose, either directly or indirectly,
of depriving any person or any class of persons of the equal protection
of the laws, or of equal privileges or immunities under the laws, or for
the purpose of preventing or hindering the constituted authorities of any
State from giving or securing to all persons within such State the equal
protection of the laws, or shall conspire together for the purpose of in
any manner impeding, hindering, obstructing, or defeating the due course
of justice in any State or Territory, with intent to deny to any citizen
of the United States the due and equal protection of the laws, or to injure
any person in his person or his property for lawfully enforcing the right
of any person or class of persons to the equal protection of the laws, or
by force, intimidation, or threat to prevent any citizen of the United States
lawfully entitled to vote from giving his support or advocacy in a lawful
manner towards or in favor of the election of any lawfully qualified person
as an elector of President or Vice-President of the United States, or as
a member of the Congress of the United States, or to injure any such citizen
in his person or property on account of such support or advocacy, each and
every person so offending shall be deemed guilty of a high crime, and, upon
conviction thereof in any district or circuit court of the United States
or district or Supreme court of any Territory of the United States having
jurisdiction of similar offences, shall be punished by a fine not less than
five hundred nor more than five thousand dollars, or by imprisonment, with
or without hard labor, as the court may determine, for a period of not less
than six months nor more than six years, as the court may determine, or
by both such fine and imprisonment as the court shall determine. And if
any one or more persons engaged in any such conspiracy shall do, or cause
to be done, any act in furtherance of the object of such conspiracy, whereby
any person shall be injured in his person or property, or deprived of having
and exercising any right to privilege of a citizen of the United States,
the person so injured or deprived of such rights and privileges may have
and maintain an action for the recovery of damages occasioned by such injury
or deprivation of rights and privileges against any one or more of the persons
engaged in such conspiracy, such action to be prosecuted in the proper district
or circuit court of the United States, with and subject to the same rights
of appeal, review upon error, and other remedies provided in like cases
in such courts under the provisions of the act of April ninth, eighteen
hundred and sixty-six, entitled "An act to protect all persons in the
United States in their civil rights, and to furnish the means of their vindication."
1 Because Section 1985 is complex, and we refer frequently throughout this
brief to specific clauses of the statute that are not numbered in the statute
as codified, we have reproduced the statute in the appendix with roman numerals
added to indicate the provisions that we refer to as separate clauses. See
App., infra, 1a-2a.
2 The statutory provision codified as 42 U.S.C. 1985 was originally enacted
as Section 2 of the Civil Rights Act of 1871, ch. 22, 17 Stat. 13. As originally
enacted, Section 2 contained only one long paragraph. In 1874, Section 2
was reclassified as part of the consolidation and collection of all federal
statutes and laws in the Revised Statutes, 18 Stat. 347. Although minor
changes were made to Section 2 to accommodate the classification, Congress
did not intend to change its meaning. See Kush v. Rutledge, 460 U.S. 719,
724 (1983). Except for the changes made in the consolidation, Congress has
never amended Section 1985. We have reprinted the statute as originally
enacted in the appendix to this brief. See App., infra, 3a-5a.
In addition to the prohibition at issue here, Section 1985 also prohibits
conspiracies to interfere with federal officers (Section 1985(1)), equal
protection in state courts (Section 1985(2) (clause ii)), private enjoyment
of equal protection of the laws (Section 1985(3) (clause i)), and advocacy
in federal elections (Section 1985(3) (clause ii)).
3 Similarly, today "injure" is broadly defined as "to do
or cause harm or any kind to; damage; hurt; impair." Random House Dictionary
of the English Language 983 (2d ed. 1987 unabridged). The dictionary adds
that "INJURE is a general term referring to any kind or degree of damage."
Ibid.
4 The term "injury" has also sometimes been used to signify damage
caused by the violation of a legal right. See, e.g., 1 B.V. Abbott, Dictionary
of Terms and Phrases Used in American or English Jurisprudence 612 (1879);
A. M. Burrill, A Law Dictionary and Glossary 79 (2d ed. 1867). It is unlikely,
however, that Congress used the word "injured" in the remedy clause
of Section 1985 to require not only actual harm or damage but also the violation
of a right under state or federal law separate and apart from the right
protected by Section 1985(2) (clause i) itself. First, the remedy clause
becomes relevant only after a plaintiff establishes violation of a right
provided in one of the substantive clauses of Section 1985. Requiring an
additional violation would be redundant. Second, as discussed at p. 23,
infra, the historical context in which Congress enacted Section 1985 suggests
that Congress did not intend the remedy for violations of the statute to
depend on state law.
Moreover, it is a fundamental canon of statutory interpretation that words
should be given their ordinary, contemporary, common meaning. See, e.g.,
Perrin v. United States, 444 U.S. 37, 42 (1979). The legal dictionaries
of the late nineteenth century recognized that "[i]n ordinary language,"
injury "means any loss." Abbott, supra; see also Burrill, supra
("In ordinary language, this word has effectually usurped the meaning
of damnum, (damage.)"). Both legal dictionaries and courts of the time
commonly used "injury" to signify a harm that might or might not
violate a legal right or give rise to a remedy. See, e.g., 1 J. Bouvier,
A Law Dictionary Adapted to the Constitution and Laws of the United States
of America 636 (11th ed. 1862) ("There are many injuries for which
the law affords no remedy."); Sanderson v. Hunt, 76 S.W. 179 (Ky. 1903)
("An injury to one's person may be done in a number of ways. For example,
it may be done to some member of his body, it may be to his state or peace
of mind * * * . The law may not allow a recovery for all such injuries.").
5 See, e.g., Tinker v. Colwell, 193 U.S. 473 (1904); Garrison v. Burden,
40 Ala. 513, 515-516 (1867).
6 See, e.g., Hoover v. Palmer, 80 N.C. at 314-315; In re Freche, 109 F.
620, 620-621 (D. N.J. 1901); In re Maples, 105 F. 919 (D. Montana 1901).
7 See, e.g., Leicester v. Hoadley, 71 P. 318, 320 (Kan. 1903).
8 See, e.g., Wade v. Kalbfleish, 58 N.Y. 282, 287 (1874); Zabriskie v. Smith,
13 N.Y. 322, 333 (1855).
9 See, e.g., Times-Democrat Pub. Co. v. Mozee, 136 F. 761, 763 (5th Cir.
1905); McDonald v. Brown, 51 A. 213, 214 (R.I. 1902); Hutcherson v. Durden,
39 S.E. 495 (Ga. 1901); Johnson, supra; Thompson, supra.
10 See, e.g., McChristal v. Clisbee, 76 N.E. 511 (Mass. 1906).
11 See, e.g., Zabriskie v. Smith, 13 N.Y. 322, 333 (1855).
12 Courts have construed the term more narrowly only when they have found
a clear legislative purpose to limit the application of the relevant statute.
See, e.g., Engelking v. Von Wamel, 26 Tex. 469, 470-471 (1863) (slander
is not an injury to the person within the jurisdiction of justices of the
peace); Smith v. Sherman, 58 Mass. 408, 413 (1849) (nonphysical injuries
are not "damage to person" for which an action survives the death
of the victim); Ward v. Blackwood, 41 Ark. 295, 299 (1883) (relying on Smith).
A narrow construction is inappropriate here, because there is no indication
that Congress intended a meaning more limited than the ordinary meaning.
As this Court has counseled, the Reconstruction civil rights acts should
be "accord[ed] a sweep as broad as [their] language." United States
v. Price, 383 U.S. 787, 801 (1966).
13 Not all intangible harms were compensable at common law. The traditional
rule was that mental injury was not compensable unless it was real. Mere
annoyance, vexation, or inconvenience could not support an award of damages.
See, e.g., T. Sedgwick, A Treatise on the Measure of Damages _ 46a, at 74-75
(9th ed. 1912).
14 Representative Coburn's colorful language accurately conveys the view
of many Members:
The arresting power is fettered, the witnesses are silenced, the courts
are impotent, the laws are annulled, the criminal goes free, the persecuted
citizen looks in vain for redress.
Cong. Globe, 42d Cong., 1st Sess. H. 459 (1871). See also id. at S. 158
(Sen. Sherman); id. at H. 320-321 (Rep. Stoughton); id. at S. app. 252 (Senator
Morton); id. at H. 437 (Rep. Cobb); id. at H. 481 (Rep. Wilson of Indiana);
id. at S. 654 (Sen. Osborn).
15 See, e.g., Cong. Globe, 42d Cong., 1st Sess. H. 374 (1871) (Rep. Lowe);
id. at S. 505 (Senator Pratt); id. at S. 608 (Sen. Edmunds).
16 See, e.g., Cong. Globe, 42d Cong., 1st Sess. S. 158 (1871) (Sen. Sherman);
id. at H. 320-321 (Rep. Stoughton); id. at S. app. 252 (Sen. Morton).
17 See, e.g., Scott v. Prudential Outfitting Co., 155 N.Y.S. 497, 499 (N.Y.
App. Term 1915) (at-will employment); People v. Warden, 130 N.Y.S. 698 App.
Div.), affirmed, 99 N.E. 1116 (N.Y. 1912); State v. Kramer, 115 A. 8, 11
(Del. Ct. of Gen. Sess. 1921).
18 Baab v. AMR Serv. Corp., 811 F. Supp. 1246, 1262 (N.D. Ohio 1993) (emotional
distress arising out of constructive discharge is injury to the person);
Stringer v. Sparrow Hosp., 233 N.W.2d 698 (Mich. Ct. App. 1975) (wrongful
loss of employment causes injury to the person). Cf. Goodman v. Lukens Steel
Co., 482 U.S. 656, 661-662 (1987) (employment discrimination claims under
42 U.S.C. 1981 are analogous to claims for personal injuries for purposes
of borrowing state statute of limitations); Wilson v. Garcia, 471 U.S. 261,
277, 280 (1985) (same with respect to claims under Section 1983). It is
also worth noting that Westlaw's keynote system categorizes loss of earnings
as injury to the person. See Westlaw 115k99.
19 See, e.g., Portman, 995 F.2d at 909 (termination of at-will employment
results in injury to property under Section 1985); Irizarry, 722 F.2d at
871 (refusal to rehire causes injury to property under Section 1985(2));
Troy v. Interfinancial, Inc., 320 S.E. 2d 872, 877 (Ga. Ct. App. 1984) ("an
employee, generally, has a property right in his contract of employment
(written or verbal) (even if it is at the will of the employer) which may
not be unlawfully interfered with by another"); State v. Smith, 273
S.W.2d 143, 146 (Tenn. 1954) (threat of loss of employment is threat of
injury to property).
20 Nor can respondents credibly suggest that an at-will employee whose employment
has been terminated in violation of federal law nonetheless suffers no harm
because the employee could, theoretically, have been discharged for other
reasons. At-will employees discharged for reasons that violate federal law
may recover the economic damages sustained because of the wrongful discharge.
See, e.g., Mt. Healthy City Sch. Dist. Bd. of Educ. v. Doyle, 429 U.S. 274,
277 (1977). The defendant may attempt to prove that the employee would have
been discharged in any event for lawful reasons, but that fact must be proved.
See McKennon v. Nashville Banner Publ'g Co., 513 U.S. 352, 362-363 (1995);
Price Waterhouse v. Hopkins, 490 U.S. 228, 252-253 (1989) (plurality opinion);
id. at 260 (White, J. concurring in judgment); id. at 261 (O'Connor, J.,
concurring in judgment); Mt. Healthy, 429 U.S. at 287. The trier of fact
may not simply assume that, because an employee could have been fired for
other reasons, that necessarily would have happened. Proving that the same
decision would have been justified is not equivalent to proving that the
same decision would have been made. See McKennon, 513 U.S. at 360.
21 Respondents' reliance on Board of Regents v. Roth, 408 U.S. 564 (1972),
and Bishop v. Wood, 426 U.S. 341 (1976), is misplaced. Those decisions concern
the property interest that a public employee must demonstrate in his or
her job in order to invoke the Constitution's protection of procedural due
process. Because a cause of action under Section 1985(2) (clause i) does
not require injury to a constitutionally protected interest, see pp. 6-11,
supra, whether petitioner has been deprived of property within the meaning
of the Due Process Clause is not relevant to his claim under the statute.
Nothing in Roth or Bishop suggests that a person who lacks a property interest
protected by procedural due process because his employment is at will is
thereby deprived of compensation for injuries that he sustains when his
employment is terminated in violation of federal law. Indeed, this Court
has held to the contrary. See note 20, supra; Mt. Healthy, 429 U.S. at 277,
283-284.
22 The word has virtually the same meaning today. See Random House Dictionary
of the English Language 1000 (2d ed. 1987 unabridged) (defining "intimidate"
to mean: "1. To make timid; fill with fear; 2. To overawe or cow, as
through the force of personality or by superior display of wealth, talent;
3. To force into or deter from some action by inducing fear; to intimidate
a voter into staying away from the polls.").
23 Indeed, this Court has recognized, in a different context, that termination
of employment may constitute a means of intimidation. See NLRB v. Jones
& Laughlin Steel Corp., 301 U.S. 1, 45-47 (1937) (National Labor Relations
Act prohibits employers from discharging employees in order to "intimidate
or coerce [them] with respect to their self-organization and representation").
24 The Sherman Amendment provided in relevant part:
That if any house tenement, cabin, shop, buildings, barn, or granary shall
be unlawfully or feloniously demolished, pulled down, burned, or destroyed,
wholly or in part, by any persons riotously and tumultuously assembled together;
or if any person shall unlawfully and with force and violence be whipped,
scourged, wounded, or killed by any persons riotously and tumultuously assembled
together with intent to deprive any person of any right conferred upon him
by the Constitution and laws of the United States, or to deter him or punish
him for exercising such right, or by reason of his race, color, or previous
condition of servitude, in every such case, the county, city, or parish
in which any of the said offenses shall be committed shall be liable to
pay full com-
pensation to the person or persons damnified by such offense, if living,
or to his widow or legal representative if dead.
Cong. Globe, 42d Cong., 1st Sess. S. 755 (1871) (emphasis added).
25 Even the Eleventh Circuit in Morast v. Lance, 807 F.2d 926, 930 (1987),
did not hold that the statute only proscribes conspiracies involving force
or threat of force. The court of appeals did hold, however, that allegations
of "anger and vindictiveness, extensive questioning regarding leaks
to the press, exclusion from board meetings, and a decreased workload"
do not constitute "force, intimidation, or threat." Judge Meskill
of the Second Circuit has suggested that the phrase "force, intimidation,
or threat" should be read to "require evidence of physical force,
threats of violence, or similarly malevolent acts," Keating v. Carey,
706 F.2d 377, 392 (2d Cir. 1983) (Meskill, J., dissenting), but the Second
Circuit has not adopted that view.
26 One potential issue in some retaliatory discharge cases under Section
1985(2) is whether the intra-corporate conspiracy doctrine, which holds
that employees of a single entity cannot conspire with each other, applies
to claims brought under the statute. This Court has never addressed that
question. See Hull v. Schuck, 501 U.S. 1261 (1991) (White, J. dissenting
from the denial of the petition for certiorari). Respondents did not raise
that issue in the court of appeals, and it is not encompassed in the question
presented by the petition for certiorari. In any event, in this case, the
alleged conspirators were not all employed by the same corporation at the
time of the alleged conspiracy, so the doctrine would not be applicable.
See Irizarry, 722 F.2d at 872.
27 Respondents also urge affirmance on two grounds that are not fairly included
in the question presented by the petition for certiorari, that were not
passed on by the district court or court of appeals, and that are, in any
event, without merit. First, respondents suggest that Section 1985(2) (clause
i) provides a remedy in damages only for parties to litigation. Although
the remedy clause (Section 1985(3) (clause iii)) uses the term "party"
when it describes who may sue for damages under the statute, that term is
used as a synonym for "person" and is not intended to restrict
actions for damages to parties to a court proceeding. See Brever v. Rockwell
Int'l Corp., 40 F.3d 1119, 1125 & n.7 (10th Cir. 1994). Because the
remedy clause applies to actions based on all the conspiracies prohibited
by Section 1985, most of which do not even involve court proceedings, reading
"party" as limited to a party to a judicial proceeding would vitiate
the statute. In fact, as enacted, the statute used the word "person"
rather than "party." See 17 Stat. 14 (reprinted at App., infra,
5a). The substitution of the term "party" occurred when all federal
statutes were consolidated in the Revised Statutes, and as explained at
note 2, supra, the consolidation was not intended to change the meaning
of the statutes.
Respondents' second contention-that Section 1985(2) (clause i) is only implicated
when a witness actually testifies in court-conflicts with the plain statutory
language, which prohibits retaliation against a witness who has "attended
or testified." 42 U.S.C 1985(2) (clause i). Moreover, respondents'
limitation on the statute would frustrate its purpose by depriving plaintiffs
of a cause of action whenever a conspiracy to deter testimony is successful.
See Chahal v. Paine Webber, Inc., 725 F.2d 20, 24 (2d Cir. 1984).