Harris v. McDonnell

988 F. Supp. 2d 603, 2013 WL 6835145, 2013 U.S. Dist. LEXIS 179449
CourtDistrict Court, W.D. Virginia
DecidedDecember 23, 2013
DocketCivil Action No. 5:13cv077
StatusPublished

This text of 988 F. Supp. 2d 603 (Harris v. McDonnell) is published on Counsel Stack Legal Research, covering District Court, W.D. Virginia primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Harris v. McDonnell, 988 F. Supp. 2d 603, 2013 WL 6835145, 2013 U.S. Dist. LEXIS 179449 (W.D. Va. 2013).

Opinion

MEMORANDUM OPINION

MICHAEL F. URBANSKI, District Judge.

Plaintiffs Joanne Harris and Jessica Duff, an unmarried same-sex couple living in the Western District of Virginia, and Christy Berghoff and Victoria Kidd, a same-sex couple married under the laws of the District of Columbia and also living in the Western District of Virginia, brought this action against defendants Robert F. McDonnell, in his official capacity as the Governor of Virginia, Janet M. Rainey, in her official capacity as the State Registrar of Vital Records (collectively “the State Defendants”), and Thomas E. Roberts, in his official capacity as the Staunton Circuit Court Clerk (“Roberts”). Plaintiffs allege that the Commonwealth of Virginia’s refusal to permit same-sex marriages within the Commonwealth violates the Due Process and Equal Protection Clauses of the Fourteenth Amendment to the United States Constitution. Plaintiffs also challenge Virginia’s refusal to recognize same-sex marriages performed under the laws of other states.

The State Defendants assert that the Governor is shielded from suit by the Eleventh Amendment to the United States Constitution and have filed a Motion to Dismiss on Sovereign Immunity Grounds as to him. (Dkt. No. 24).1 Roberts has filed a Motion to Dismiss the claims against him pursuant to Federal Rules of Civil Procedure 12(b)(1) and 12(b)(6). (Dkt. No. 32). The issues have been extensively briefed, and the court heard argument on October 29, 2013. Having studied the issues, the court will grant the State Defendants’ motion to dismiss the Virginia Governor on sovereign immunity [606]*606grounds and deny Roberts’ motion to dismiss.

I.

The Eleventh Amendment provides that “[t]he judicial power of the United States shall not be construed to extend to any suit in law or equity, commenced or prosecuted against one of the United States by Citizens of another State, or by Citizens or Subjects of any Foreign State.” U.S. Const, amend. XI. While the Eleventh Amendment by its terms makes no mention of suits against a state by its own citizens, it is well established that “an unconsenting State is immune from suits brought in federal courts by her own citizens as well as by citizens of another State.” Edelman v. Jordan, 415 U.S. 651, 663, 94 S.Ct. 1347, 39 L.Ed.2d 662 (1974) (citations omitted). State officers acting in their official capacity are also entitled to Eleventh Amendment protection, because “a suit against a state official in his or her official capacity is not a suit against the official but rather is a suit against the official’s office.” Will v. Michigan Dept. of State Police, 491 U.S. 58, 71, 109 S.Ct. 2304, 105 L.Ed.2d 45 (1989) (citation omitted).

The Supreme Court recognized an exception to this rule in Ex parte Young, 209 U.S. 123, 28 S.Ct. 441, 52 L.Ed. 714 (1908), which allows suits against state officers for prospective equitable relief from ongoing violations of federal law. “In Ex parte Young, the Supreme Court began with the premise that states are incapable of authorizing unconstitutional conduct, and created the fiction that a state officer engaging in unconstitutional conduct is no longer acting as a state agent — and, thus, is no longer protected by the Eleventh Amendment.” Lytle v. Griffith, 240 F.3d 404, 408-09 (4th Cir.2001). The Ex parte Young exception is directed at “ ‘officers of the state [who] are clothed with some duty in regard to the enforcement of the laws of the state, and who threaten and are about to commence proceedings ... to enforce against parties affected [by] an unconstitutional act.’” McBurney v. Cuccinelli, 616 F.3d 393, 399 (4th Cir.2010) (quoting Ex parte Young, 209 U.S. at 155-56, 28 S.Ct. 441). The Ex parte Young Court reasoned:

In making an officer of the state a party defendant in a suit to enjoin the enforcement of an act alleged to be unconstitutional, it is plain that such officer must have some connection with the enforcement of the act, or else it is merely making him a party as a representative of the state, and thereby attempting to make the state a party.

209 U.S. at 157, 28 S.Ct. 441.

The Fourth Circuit has read Ex parte Young to require “a ‘special relation’ between the state officer sued and the challenged statute to avoid the Eleventh Amendment’s bar.” Waste Mgmt. Holdings, Inc. v. Gilmore, 252 F.3d 316, 331 (4th Cir.2001). “General authority to enforce the laws of the state is not sufficient to make government officials the proper parties to litigation challenging the law.” Id. (quoting Children’s Healthcare is a Legal Duty, Inc. v. Deters, 92 F.3d 1412, 1416 (6th Cir.1996)). “ ‘[S]pecial relation’ under Ex parte Young has served as a measure of proximity to and responsibility for the challenged state action.” S.C. Wildlife Fed’n v. Limehouse, 549 F.3d 324, 333 (4th Cir.2008) (emphasis in original).

This “special relation” requirement ensures that the appropriate party is before the federal court, so as not to interfere with the lawful discretion of state officials. Ex parte Young, 209 U.S. at 158-59, 28 S.Ct. 441. Primarily, the requirement has been a bar to injunctive actions where the relationship between [607]*607the state official sought to be enjoined and the enforcement of the state statute is significantly attenuated.

Id. at 332-33. “The special-relation requirement protects a state’s Eleventh Amendment immunity while, at the same time, ensuring that, in the event a plaintiff sues a state official in his individual capacity to enjoin unconstitutional action, ‘[any] federal injunction will be effective with respect to the underlying claim.’ ” McBurney, 616 F.3d at 399 (quoting IAmehouse, 549 F.3d at 333).

Plaintiffs argue that the Governor bears a special relation to the provisions of the Virginia Constitution and Code challenged in this lawsuit,2 warranting application of the Ex parte Young exception. The powers of the Governor are set forth in Article V of the Virginia Constitution and in the Virginia Code. The Governor is the chief executive officer of the Commonwealth. See Va. Const, art. V, § 1. He must “take care that the laws be faithfully executed.” Va. Const, art. V, § 7. Further, plaintiffs rely upon the Governor’s authority to formulate executive branch policies and his role as chief officer for personnel administration and planning and budget for the Commonwealth. See Va.Code § 2.2-103. Plaintiffs also cite the Governor’s authority to appoint (and remove) certain officers of the Commonwealth, such as agency heads and members of certain boards, commissions, etc. See id. § 2.2-106 (appointment of agency heads; severance); id. § 2.2-107 (appointment of members of commissions, boards, and other collegial bodies); id.

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Related

Ex Parte Young
209 U.S. 123 (Supreme Court, 1908)
Edelman v. Jordan
415 U.S. 651 (Supreme Court, 1974)
Kentucky v. Graham
473 U.S. 159 (Supreme Court, 1985)
Papasan v. Allain
478 U.S. 265 (Supreme Court, 1986)
Will v. Michigan Department of State Police
491 U.S. 58 (Supreme Court, 1989)
McBurney v. Cuccinelli
616 F.3d 393 (Fourth Circuit, 2010)
Doe v. Obama
631 F.3d 157 (Fourth Circuit, 2011)
Shell Oil Company v. Philip W. Noel
608 F.2d 208 (First Circuit, 1979)
Horace Luckey, III v. Joe Frank Harris, Governor
860 F.2d 1012 (Eleventh Circuit, 1988)
Clapper v. Amnesty International USA
133 S. Ct. 1138 (Supreme Court, 2013)
Doe v. Virginia Department of State Police
713 F.3d 745 (Fourth Circuit, 2013)
South Carolina Wildlife Federation v. Limehouse
549 F.3d 324 (Fourth Circuit, 2008)
Townes v. Jarvis
577 F.3d 543 (Fourth Circuit, 2009)
Lytle v. Doyle
197 F. Supp. 2d 481 (E.D. Virginia, 2001)
Women's Emergency Network v. Bush
214 F. Supp. 2d 1316 (S.D. Florida, 2002)
Lytle v. Griffith
240 F.3d 404 (Fourth Circuit, 2001)

Cite This Page — Counsel Stack

Bluebook (online)
988 F. Supp. 2d 603, 2013 WL 6835145, 2013 U.S. Dist. LEXIS 179449, Counsel Stack Legal Research, https://law.counselstack.com/opinion/harris-v-mcdonnell-vawd-2013.