ziglar abbasi et argued january decided june immediate aftermath september terrorist attacks federal government ordered hundreds illegal aliens taken custody held pending determination whether particular detainee connections terrorism respondents six men arab south asian descent detained periods three six months federal facility brooklyn release removed filed putative class action petitioners two groups federal officials first group consisted former attorney general john ashcroft former federal bureau investigation director robert mueller former immigration naturalization service commissioner james ziglar executive officials second group consisted facility warden assistant warden dennis hasty james sherman wardens respondents sought damages constitutional violations implied cause action theory adopted bivens six unknown fed narcotics agents alleging petitioners detained harsh pretrial conditions punitive purpose violation fifth amendment petitioners actual apparent race religion national origin violation fifth amendment wardens subjected punitive strip searches violation fourth fifth amendments wardens knowingly allowed guards abuse violation fifth amendment respondents also brought claim forbids certain conspiracies violate equal protection rights district dismissed claims executive officials allowed claims wardens go forward second circuit affirmed respects wardens reversed executive officials reinstating respondents claims held judgment reversed part vacated remanded part reversed part vacated remanded part justice kennedy delivered opinion except part concluding limited reach bivens action informs decision whether implied damages remedy recognized pp congress provided specific damages remedy plaintiffs whose constitutional rights violated state officials congress provided corresponding remedy constitutional violations agents federal government background recognized bivens implied damages action compensate persons injured federal officers violated fourth amendment prohibition unreasonable searches seizures following decade allowed remedies twice fifth amendment case davis passman eighth amendment cruel unusual punishments clause case carlson green cases approved implied damages remedy constitution pp bivens davis carlson decided time prevailing law assumed proper judicial function provide remedies necessary make effective statute purpose case borak since adopted far cautious course clarifying deciding whether recognize implied cause action determinative question one statutory intent alexander sandoval statute evince congress intent create private right action asserted touche ross redington action created judicial mandate similar caution must exercised respect damages actions implied enforce constitution bivens law context expanding bivens remedy considered disfavored judicial activity ashcroft iqbal party seeks assert implied cause action constitution principles central analysis question whether congress courts decide authorize damages suit bush lucas often congress bivens extended new context factors counselling hesitation absence affirmative action congress carlson supra sound reasons think congress might doubt efficacy necessity damages remedy part system enforcing law correcting wrong courts must refrain creating kind remedy alternative remedial structure may also limit judiciary power infer new bivens cause action pp considering relevant special factors remedy extended claims challenging confinement conditions imposed respondents pursuant formal policy adopted executive officials wake september attacks detention policy claims include allegations petitioners violated respondents due process equal protection rights holding restrictive conditions confinement allegations wardens violated fourth fifth amendments subjecting respondents frequent strip searches detention policy claims include claim warden hasty pp proper test determining whether claim arises new bivens context follows case different meaningful way previous bivens cases decided context new meaningful differences may include rank officers involved constitutional right issue extent judicial guidance official conduct risk disruptive intrusion judiciary functioning branches presence potential special factors considered previous bivens cases respondents detention policy claims bear little resemblance three bivens claims approved previous cases second circuit thus held new bivens context performed special factors analysis allowing damages suit proceed pp special factors indicate congress courts decide whether damages action allowed regard executive officials bivens action proper vehicle altering entity policy correctional services malesko designed hold officers responsible acts subordinates see iqbal supra even action confined executive officers discrete conduct call question formulation implementation executive policy burdens litigation prevent officials properly discharging duties see cheney dist litigation process might also implicate discussion deliberations led formation particular policy requiring courts interfere sensitive executive branch functions see clinton jones special factors counsel extending bivens cover detention policy claims petitioners claims challenge major elements government response september attacks necessarily require inquiry issues policy however prerogative congress president courts reluctant intrude upon authority absent congressional authorization department navy egan thus congress failure provide damages remedy might mere oversight silence might inadvertent schweiker chilicky silence also relevant telling congress nearly years extend kind remedies sought respondents done respondents also may available alternative forms judicial relief minneci pollard including injunctions habeas petitions proper balance situations like deterring constitutional violations freeing high officials make lawful decisions necessary protect nation times great peril one congress undertake judiciary second circuit thus erred allowing respondents detention policy claims proceed bivens pp second circuit also erred allowing prisoner abuse claim warden hasty go forward without conducting required special factors analysis respondents prisoner abuse allegations warden hasty state plausible ground find constitutional violation bivens remedy implied first question whether claim arises new bivens context claim significant parallels carlson extended bivens cover failure provide medical care prisoner claim nevertheless seeks extend carlson new context constitutional right different carlson predicated eighth amendment claim predicated fifth judicial guidance available warden respect supervisory duties less developed might alternative remedies available congress provide standalone damages remedy federal jailers enacted prison litigation reform act years carlson given expressed caution extending bivens remedy context must regarded new one pp petitioners entitled qualified immunity respect respondents claims pp assuming respondents allegations true well pleaded question whether reasonable officer petitioners position known alleged conduct unlawful conspiracy inquiry turns objective legal reasonableness official acts harlow fitzgerald assessed light legal rules established time action taken anderson creighton clear reasonable officer alleged conduct unlawful situation confronted saucier katz defendant officer entitled qualified immunity reasonable officer might known conduct unlawful officer entitled qualified immunity pp reasonable officials petitioners positions known sufficient certainty prohibited joint consultations resulting policies two reasons first conspiracy alleged among officers department federal government clearly established law issue whether agents executive department distinct enough conspire one another within meaning second open discussion among federal officers encouraged help officials reach consensus department policies reasonable argument liability extend cases like one considerations indicate question whether federal officials said conspire kinds situations sufficiently open officials suit known applied discussions actions follows reasonable officers petitioners positions known certainty alleged agreements forbidden statute pp kennedy delivered opinion respect parts ii iii roberts thomas alito joined opinion respect part roberts alito joined thomas filed opinion concurring part concurring judgment breyer filed dissenting opinion ginsburg joined sotomayor kagan gorsuch took part consideration decision cases opinion notice opinion subject formal revision publication preliminary print reports readers requested notify reporter decisions washington typographical formal errors order corrections may made preliminary print goes press nos et al et al et al et al et al writs certiorari appeals second circuit june justice kennedy delivered opinion except part september terrorist attacks country response deaths destruction dangers caused government ordered hundreds illegal aliens taken custody held pending determination whether particular detainee connections terrorism custody harsh conditions described continued many instances custody lasted days weeks stretching months later aliens detained filed suit leading cases complaint named defendants three high executive officers department justice two wardens facility detainees held claims alleging various constitutional violations sought damages implied cause action theory adopted bivens six unknown fed narcotics agents another claim complaint based upon statutory cause action authorized created congress rev stat statutory cause action allows damages persons injured conspiracies deprive equal protection laws suit commenced district eastern district new york decision ashcroft iqbal fourth amended complaint filed complaint considered motions dismiss fourth amended complaint denied defendants granted others rulings subject interlocutory appeals appeals second circuit dissenting opinion judge raggi respect decision panel second unsigned dissent declining rehear suit en banc joined judge raggi five judges appeals ruled complaint sufficient action proceed named officials us see turkmen hasty panel decision turkmen hasty en banc decision granted certiorari consider rulings officials must defend suit merits ruling appeals petitioners former detainees seek relief fourth amended complaint respondents various claims theories advanced recovery grounds asserted dismissal insufficient matter law addressed turn given present procedural posture suit accepts true facts alleged complaint see iqbal weeks following september terrorist attacks worst american history federal bureau investigation fbi received tips members public see tips based suspicion terrorist activity many others may based fear arabs muslims fbi agents questioned people suspected links september attacks particular terrorism general ibid investigating tips including less substantiated ones fbi encountered many aliens present country without legal authorization result individuals arrested detained immigration charges ibid fbi designated alien interest investigation processed according normal procedures words alien treated example arrested border illegal entry however fbi designated alien interest investigation doubts proper designation particular case alien detained subject policy aliens held without bail respondents among aliens subject policy detained metropolitan detention center mdc brooklyn new york held administrative maximum special housing unit unit mdc complaint includes allegations conditions unit harsh pursuant official bureau prisons policy detainees held cells hours day lights cells left hours detainees little opportunity exercise recreation forbidden keep anything cells even basic hygiene products soap toothbrush removed cells reason shackled escorted four guards denied access forms communication outside world strip searched often time moved well random cells harsh conditions unit imposed pursuant official policy according complaint prison guards engaged pattern physical verbal abuse ibid guards allegedly slammed detainees walls twisted arms wrists fingers broke bones referred terrorists threatened violence subjected humiliating sexual comments insulted religion respondents six men arab south asian descent five muslims illegally country arrested course september investigation detained administrative maximum special housing unit periods ranging three eight months released respondents removed respondents sued behalf behalf putative class seeking compensatory punitive damages attorney fees costs respondents seems fair conclude arguments presented acknowledge ordinary course aliens present without legal authorization detained period time challenge conditions confinement reasons motives imposing conditions gravamen claims government reason suspect connection terrorism thus legitimate reason hold long harsh conditions relevant respondents sued two groups federal officials official capacities first group consisted former attorney general john ashcroft former fbi director robert mueller former immigration naturalization service commissioner james ziglar opinion refers three petitioners executive officials petitioners named complaint mdc warden dennis hasty associate warden james sherman opinion refers two petitioners wardens seeking invoke decision bivens respondents brought four claims constitution first respondents alleged petitioners detained harsh pretrial conditions punitive purpose violation substantive due process component fifth amendment second respondents alleged petitioners detained harsh conditions actual apparent race religion national origin violation equal protection component fifth amendment third respondents alleged wardens subjected punitive strip searches unrelated legitimate penological interest violation fourth amendment substantive due process component fifth amendment fourth respondents alleged wardens knowingly allowed guards abuse respondents violation substantive due process component fifth amendment respondents also brought claim forbids certain conspiracies violate equal protection rights respondents alleged petitioners conspired one another hold respondents harsh conditions actual apparent race religion national origin district dismissed claims executive officials allowed claims wardens go forward appeals affirmed respects wardens though held prisoner abuse claim sherman associate warden dismissed executive officials however appeals reversed reinstating respondents claims ibid noted judge raggi dissented held prisoner abuse claim hasty go forward opinion concurring part judgment dissenting part appeals declined rehear suit en banc noted judge raggi joined second dissent along five judges granted certiorari ii first question discussed whether petitioners sued damages bivens ensuing cases defining reach limits precedent congress passed statute later codified rev stat entitles injured person money damages state official violates constitutional rights congress create analogous statute federal officials indeed years leading bivens congress provide specific damages remedy plaintiffs whose constitutional rights violated agents federal government background decided bivens held even absent statutory authorization enforce damages remedy compensate persons injured federal officers violated prohibition unreasonable search seizures see acknowledged fourth amendment provide money damages many words noted however congress foreclosed damages remedy explicit terms special factors suggested judiciary hesitat face congressional silence accordingly held authorize remedy general principles federal jurisdiction see citing bell hood decade followed recognized come called implied cause action two cases involving constitutional violations davis passman administrative assistant sued congressman firing woman held fifth amendment due process clause gave damages remedy gender discrimination carlson green prisoner estate sued federal jailers failing treat prisoner asthma held eighth amendment cruel unusual punishments clause gave damages remedy failure provide adequate medical treatment see three cases bivens davis carlson represent instances approved implied damages remedy constitution understand bivens two cases implying damages remedy constitution necessary understand prevailing law decided century followed different approach recognizing implied causes action follows ancien regime alexander sandoval assumed proper judicial function provide remedies necessary make effective statute purpose case borak thus routine matter respect statutes imply causes action explicit statutory text see allen state bd elections sullivan little hunting park existence statutory right implies existence necessary appropriate remedies statutory decisions place bivens recognized implied cause action remedy constitutional violation background bivens decision held courts must adjust remedies grant necessary relief federally protected rights invaded quoting bell supra see also harlan concurring discussing cases recognizing implied causes action federal statutes light interpretive framework possibility keep expanding bivens became substantial equivalent kent damages different bivens national security cal rev later arguments recognizing implied causes action damages began lose force cases decided bivens statutory implied cases bivens relied upon adopted far cautious course finding implied causes action two principal cases statutes declined find implied cause action see piper industries cort ash later cannon university chicago allow implied cause action cautioned congress intends private litigants cause action far better course congress confer remedy explicit terms following expressed caution clarified series cases deciding whether recognize implied cause action determinative question one statutory intent sandoval statute displa intent create private remedy cause action exist courts may create one matter desirable might policy matter compatible statute see also transamerica mortgage advisors lewis karahalios federal employees held judicial task instead limited solely determining whether congress intended create private right action asserted touche ross redington statute provide private cause action created judicial mandate see transamerica supra decision recognize implied cause action statute involves somewhat different considerations question whether recognize implied cause action enforce provision constitution congress enacts statute specific procedures times considering terms proper means enforcement logical assume congress explicit intends create private cause action respect constitution however single specific congressional action consider interpret even significant step principles determine authority judicial power create enforce cause action damages federal officials order remedy constitutional violation determining whether traditional equitable powers suffice give necessary constitutional protection whether addition damages remedy necessary number economic governmental concerns consider claims federal officials often create substantial costs form defense indemnification congress substantial responsibility determine whether extent monetary liabilities imposed upon individual officers employees federal government addition time administrative costs attendant upon intrusions resulting discovery trial process significant factors considered analogous context congress fair assume weighed concerns deciding substitute government defendant suits seeking damages constitutional violations see providing certain provisions federal tort claims act apply claim federal employee brought violation constitution reasons expressed caution implied causes actions congressional statutes led similar caution respect actions bivens context action implied enforce constitution indeed light changes general approach recognizing implied damages remedies possible analysis three bivens cases might different decided today sure congressional enactment disapproved decisions must understood opinion intended cast doubt continued force even necessity bivens context arose bivens vindicate constitution allowing redress injuries provides instruction guidance federal law enforcement officers going forward settled law bivens common recurrent sphere law enforcement undoubted reliance upon fixed principle law powerful reasons retain sphere given notable change approach recognizing implied causes action however made clear expanding bivens remedy disfavored judicial activity iqbal accord observation consistently refused extend bivens new context new category defendants correctional services malesko indeed refused past years example declined create implied damages remedy following cases first amendment suit federal employer bush lucas suit military officers chappell wallace substantive due process suit military officers stanley procedural due process suit social security officials schweiker chilicky procedural due process suit federal agency wrongful termination fdic meyer eighth amendment suit private prison operator malesko supra due process suit officials bureau land management wilkie robbins eighth amendment suit prison guards private prison minneci pollard party seeks assert implied cause action constitution party seeks assert implied cause action federal statute principles central analysis question decide whether provide damages remedy congress courts bush answer often congress issue host considerations must weighed appraised committed write rather interpret ibid quoting gilman instances precedents instruct legislature better position consider public interest imposing substantive legal liability schweiker supra quoting bush supra result urged caution extending bivens remedies new context malesko supra precedents make clear bivens remedy available factors counselling hesitation absence affirmative action congress carlson quoting bivens defined phrase special factors counselling hesitation necessary inference though inquiry must concentrate whether judiciary well suited absent congressional action instruction consider weigh costs benefits allowing damages action proceed thus special factor counselling hesitation factor must cause hesitate answering question affirmative necessarily judicial function establish whole categories cases federal officers must defend personal liability claims complex sphere litigation burdens benefits others true equitable remedies prove insufficient damages remedy might necessary redress past harm deter future violations yet decision recognize damages remedy requires assessment impact governmental operations systemwide matters include burdens government employees sued personally well projected costs consequences government tort monetary liability mechanisms legal system used bring proper formulation implementation public policies considerations may make less probable congress want judiciary entertain damages suit given case sometimes doubt case arises context congress designed regulatory authority guarded way making less likely congress want judiciary interfere see chappell supra military stanley supra meyer supra public purse wilkie supra federal land sometimes doubt feature case difficult predict advance causes pause acting without express congressional authorization sum sound reasons think congress might doubt efficacy necessity damages remedy part system enforcing law correcting wrong courts must refrain creating remedy order respect role congress determining nature extent jurisdiction article iii related way alternative remedial structure present certain case alone may limit power judiciary infer new bivens cause action congress created alternative existing process protecting injured party interest may amoun convincing reason judicial branch refrain providing new freestanding remedy damages wilkie supra see also bush supra recognizing regulations provided alternative means relief malesko recognizing state tort law provided alternative means relief minneci supra iii appropriate turn first bivens claims challenging conditions confinement imposed respondents pursuant formal policy adopted executive officials wake september attacks refer claims detention policy claims detention policy claims allege petitioners violated respondents due process equal protection rights holding restrictive conditions confinement claims allege wardens violated fourth fifth amendments subjecting respondents frequent strip searches term detention policy claims include respondents claim alleging warden hasty allowed guards abuse detainees claim considered separately point question whether considered relevant special factors whole context detention policy claims extend remedy claims allowing respondents detention policy claims proceed bivens appeals perform special factors analysis reason said special factors analysis necessary plaintiff asks bivens remedy new context appeals view context new determine whether bivens context novel appeals employed test first asked whether asserted constitutional right issue previous bivens case second asked whether mechanism injury mechanism injury previous bivens case appeals approach answer questions yes context new special factors analysis required ibid approach inconsistent analysis malesko decided case approved bivens action eighth amendment federal prison officials failure provide medical treatment see carlson malesko plaintiff sought relief private prison operator almost parallel circumstances cases right issue eighth amendment right free cruel unusual punishment cases mechanism injury failure provide adequate medical treatment thus approach followed appeals correct one held cases arose context obviating need special factors inquiry however controlling analytic framework malesko even though right mechanism injury carlson held contexts different explained special factors counseled hesitation bivens remedy therefore unavailable similar reasons holding appeals instant suit inconsistent analytic framework chappell davis decided cautionary instructions respect bivens suits see supra held claim congressman proceed action davis chappell however cautionary rules applicable result similar discrimination suit military officers allowed proceed chappell framework controls appeals erred holding suit present new bivens context proper test determining whether case presents new bivens context follows case different meaningful way previous bivens cases decided context new without endeavoring create exhaustive list differences meaningful enough make given context new one examples might prove instructive case might differ meaningful way rank officers involved constitutional right issue generality specificity official action extent judicial guidance officer respond problem emergency confronted statutory legal mandate officer operating risk disruptive intrusion judiciary functioning branches presence potential special factors previous bivens cases consider present suit respondents detention policy claims challenge confinement conditions imposed illegal aliens pursuant executive policy created wake major terrorist attack american soil claims bear little resemblance three bivens claims approved past claim fbi agents handcuffing man home without warrant claim congressman firing female secretary claim prison officials failure treat inmate asthma see bivens davis chappell appeals therefore held new bivens context done recognized special factors analysis required allowing damages suit proceed considering special factors necessarily implicated detention policy claims holds factors show whether damages action allowed decision congress make courts respect claims executive officials must noted bivens action proper vehicle altering entity policy malesko supra furthermore bivens claim brought individual official acts acts others purpose bivens deter officer meyer bivens designed hold officers responsible acts subordinates see iqbal government officials may held liable unconstitutional conduct subordinates theory respondeat superior even action confined conduct particular executive officer discrete instance claims call question formulation implementation general policy turn necessarily require inquiry discovery whole course discussions deliberations led policies governmental acts challenged consequences counsel allowing bivens action executive officials burden demand litigation might well prevent precise future officials like devoting time effort required proper discharge duties see cheney dist noting paramount necessity protecting executive branch vexatious litigation might distract energetic performance constitutional duties closely related problem noted discovery litigation process either border upon directly implicate discussion deliberations led formation policy question see federal open market comm merrill noting disclosure executive branch documents inhibit free flow advice including analysis reports expression opinion within agency allowing damages suit context like context circumstances require courts interfere intrusive way sensitive functions executive branch see clinton jones recognizing ven branch arrogate power doctrine requires branch impair another performance constitutional quoting loving considerations also counsel allowing damages claim proceed executive officials see cheney supra noting special considerations control case implicates executive branch interests maintaining autonomy office safeguarding confidentiality communications addition special factor applies claims executive officials three special factors apply well detention policy claims petitioners first respondents detention policy claims challenge standard law enforcement operations challenge well major elements government whole response september attacks thus necessity requiring inquiry sensitive issues national security inquiry allowed private suit damages bivens action assume dimensions far greater present bivens either two cases indeed putative bivens case yet come policy prerogative congress president see art art ii judicial inquiry realm raises concerns separation powers trenching matters committed branches christopher harbury concerns even pronounced judicial inquiry comes context claim seeking money damages rather claim seeking injunctive equitable relief risk personal damages liability likely cause official difficult necessary decisions concerning policy reasons courts shown deference executive branch determined national security winter natural resources defense council indeed courts traditionally reluctant intrude upon authority executive military national security affairs unless congress specifically provided otherwise department navy egan congress provided otherwise limitations course power executive article ii constitution powers authorized congressional enactments even respect matters national security see hamdi rumsfeld plurality opinion whatever power constitution envisions executive times conflict assuredly envisions role three branches individual liberties stake boumediene bush liberty security reconciled system reconciled within framework law concerns must become talisman used ward inconvenient claims label used cover multitude sins mitchell forsyth even heightened given difficulty domestic cases ibid quoting dist eastern dist even question whether congressionally uninvited intrusion inappropriate action judiciary take stanley factors discussed suggest congress failure provide damages remedy might mere oversight congressional silence might inadvertent schweiker possibility counsels hesitation absence affirmative action congress bivens furthermore inquiry respecting likely probable intent congress silence congress relevant silence telling almost years since september federal government responses terrorist attack well documented congressional interest frequent intense schweiker supra interest directed conditions confinement issue indeed congress behest department justice office inspector general compiled report documenting conditions mdc great detail see opinion raggi noting usa patriot act required department inspector general review report congress identified abuses civil rights civil liberties fighting terrorism nevertheless point congress choose extend person kind remedies respondents seek lawsuit schweiker silence notable likely policies attract attention congress thus congress fails provide damages remedy circumstances like much difficult believe congressional inaction inadvertent central importance case like bivens davis damages nothing bivens supra harlan concurring judgment davis unlike plaintiffs cases respondents challenge individual instances discrimination law enforcement overreach due nature difficult address except way damages actions fact respondents instead challenge policy decisions concerning conditions confinement imposed hundreds prisoners address kinds decisions detainees may seek injunctive relief addition left open question whether might able challenge confinement conditions via petition writ habeas corpus see bell wolfish leave another day question propriety using writ habeas corpus obtain review conditions confinement preiser rodriguez prisoner put additional unconstitutional restraints lawful custody arguable habeas corpus lie remove restraints making custody illegal indeed habeas remedy necessity required use provided faster direct route relief suit money damages successful habeas petition required officials place respondents conditions immediately yet damages suit remains unresolved years later bell preiser need determine scope availability habeas corpus remedy question briefed argued sum respondents available alternative forms judicial relief minneci alternative methods relief available bivens remedy usually see bush schweiker supra malesko minneci supra persisting concern course absent bivens remedy insufficient deterrence prevent officers violating constitution circumstances like presented however stakes sides argument far higher past cases considered bivens liability imposed high officers face personal liability damages might refrain taking urgent lawful action time crisis already noted costs difficulties later litigation might intrude upon interfere proper exercise office side balance fact executive actions sweeping potential affect liberty many reason consider proper means impose restraint provide redress injury therefore balance struck situations like one deterring constitutional violations freeing high officials make lawful decisions necessary protect nation times great peril cf stanley supra noting analysis case turned much occasional unintended impairment military discipline one willing tolerate proper balance one congress judiciary undertake reasons appeals erred allowing respondents detention policy claims proceed bivens iv one respondents claims bivens requires different analysis prisoner abuse claim mdc warden dennis hasty allegation warden hasty violated fifth amendment allowing prison guards abuse respondents warden argues initial matter complaint claim relief plausible face iqbal quoting bell atlantic twombly applying precedents appeals held substantive standard sufficiency claim whether warden showed deliberate indifference prisoner abuse parties appear agree standard purposes case assumes correct complaint alleges guards routinely abused respondents warden encouraged abuse referring respondents terrorists prevented respondents using normal grievance procedures stayed away unit avoid seeing abuse made aware abuse via inmate complaints staff complaints hunger strikes suicide attempts ignored direct evidence abuse including logs official records took action rectify address situation abuse resulted injuries described see supra allegations assumed true subject proof later stage plausibly show warden deliberate indifference abuse consistent opinion every judge case considered question including dissenters appeals concludes prisoner abuse allegations warden hasty state plausible ground find constitutional violation bivens remedy implied warden hasty argues however bivens extended instance alleged prisoner abuse noted first question must ask case like one whether claim arises new bivens context whether case different meaningful way previous bivens cases decided supra true case significant parallels one previous bivens cases carlson green allow bivens claim prisoner mistreatment specifically failure provide medical care allegations injury compelling issue carlson especially true given complaint alleges serious violations bureau prisons policy see cfr providing prison staff may use force last alternative reasonable efforts resolve situation failed staff may use amount force necessary ensure prison safety security incidents involving use force must carefully documented requiring warden investigate certain complaints inmate abuse yet even modest extension still extension case seek extend carlson new context noted case present new context bivens purposes implicates different constitutional right judicial precedents provide less meaningful guide official conduct potential special factors considered previous bivens cases see supra constitutional right different since carlson predicated eighth amendment claim predicated fifth see judicial guidance available warden respect supervisory duties less developed long made clear standard claims alleging failure provide medical treatment prisoner deliberate indifference serious medical needs estelle gamble standard claim alleging warden allowed guards abuse detainees less clear precedents case also certain features considered previous bivens cases might discourage authorizing bivens remedy noted existence alternative remedies usually precludes authorizing bivens action supra might alternative remedies available example writ habeas corpus wolfish injunction requiring warden bring prison compliance regulations discussed form equitable relief furthermore legislative action suggesting congress want damages remedy factor counseling hesitation see supra years carlson decided congress passed prison litigation reform act made comprehensive changes way prisoner abuse claims must brought federal see seems clear congress specific occasion consider matter prisoner abuse consider proper way remedy wrongs said dicta act exhaustion provisions apply bivens suits see porter nussle act provide standalone damages remedy federal jailers argued suggests congress chose extend carlson damages remedy cases involving types prisoner mistreatment differences claim one carlson perhaps small least practical terms given expressed caution extending bivens remedy however inquiry easily satisfied differences course trivial suffice create new bivens context differences identified least meaningful ones thus allowing claim proceed bivens appeals performed special factors analysis analyzed whether alternative remedies available sound reasons think congress might doubt efficacy necessity damages remedy suit like one supra although perform analysis first instance briefs concentrated almost efforts elsewhere given absence comprehensive presentation parties fact appeals conduct analysis declines perform special factors analysis better course vacate judgment allowing appeals district remand one issue remains addressed claim petitioners subject liability civil conspiracy unlike prisoner abuse claim discussed claim implicates activities petitioners executive officials well wardens creating conditions confinement issue prohibition contained enacted significant part civil rights legislation passed aftermath civil war see carpenters scott detailing legislative history griffin breckenridge great american fed sav loan assn novotny powell concurring describing civil war era remedial statute statute imposes liability two persons conspire purpose depriving person class persons equal protection laws instant suit respondents allege petitioners violated statute agreeing implement policy respondents detained harsh conditions race religion ethnicity national origin assuming allegations true well pleaded question whether petitioners entitled qualified immunity qualified immunity rule seeks proper balance two competing interests one hand damages suits may offer realistic avenue vindication constitutional guarantees harlow fitzgerald hand permitting damages suits government officials entail substantial social costs including risk fear personal monetary liability harassing litigation unduly inhibit officials discharge duties anderson creighton one means accommodate two objectives held government officials entitled qualified immunity respect discretionary functions performed official capacities ibid doctrine qualified immunity gives officials breathing room make reasonable mistaken judgments open legal questions ashcroft cases provide additional instruction define implement immunity whether qualified immunity invoked turns objective legal reasonableness official acts harlow supra reasonableness official action turn must assessed light legal rules clearly established time action taken anderson supra internal quotation marks omitted see also mitchell requirement official loses qualified immunity violating clearly established law protects officials accused violating extremely abstract rights anderson supra fourth amendment provides example qualified immunity functions respect abstract rights plain terms amendment forbids unreasonable searches seizures yet may difficult officer know whether search seizure deemed reasonable given precise situation encountered see saucier katz sometimes difficult officer determine relevant legal doctrine excessive force apply factual situation officer confronts reason dispositive question violative nature particular conduct clearly established mullenix luna per curiam slip quoting ashcroft supra necessary course action question previously held unlawful anderson supra officer might lose qualified immunity even reported case directly point ashcroft supra light law unlawfulness officer conduct must apparent anderson supra subject officers broader liability disrupt balance cases strike interests vindication citizens constitutional rights public officials effective performance duties davis scherer practical legal matter difficult officials reasonably anticipate conduct may give rise liability damages ibid light concerns held qualified immunity protects plainly incompetent knowingly violate law malley briggs determine whether given officer falls either two categories must ask whether clear reasonable officer alleged conduct unlawful situation confronted saucier supra defendant officer must either incompetent else knowing violator law thus entitled qualified immunity however reasonable officer might known certain conduct unlawful officer immune liability principles must concluded reasonable officials petitioners positions known predicted prohibited joint consultations resulting policies caused injuries alleged least two aspects complaint indicate petitioners potential liability statutory offense known anticipated reasonable officials position first conspiracy recited complaint alleged among officers branch government executive branch department department justice second discussions preface outline general policy fact officers department analogous principle discussed context antitrust law instructive precedent indicates unlawful conspiracy officers within single corporate entity consult among adopt policy entity see copperweld corp independence tube principle sometimes called doctrine agreement among agents legal entity agents act official capacities unlawful conspiracy ibid rule derived nature conspiracy prohibition conspiracy requires agreement particular agreement unlawful act among two separate persons two agents legal entity make agreement course official duties however practical legal matter acts attributed principal follows agreement two separate people see analogizing multiple team horses drawing vehicle control single driver sure given approval doctrine specific context see great american division courts appeals moreover respecting validity correctness doctrine reference conspiracies see hull shuck white dissenting denial certiorari discussing circuit split bowie maddox cadc detailing longstanding split whether doctrine applies civil rights conspiracies nothing opinion interpreted either approving disapproving doctrine application context alleged violation might determine later case different considerations apply conspiracy respecting equal protection guarantees distinct conspiracy antitrust context yet fact courts divided whether conspiracy arise official discussions among agents entity demonstrates law point well established courts divided issue central cause action alleged reasonable official lacks notice required imposing liability see wilson layne noting unfair subject officers damages liability even judges disagree reichle howards addition concern agents legal entity distinct enough conspire one another sound reasons conclude agreements among federal officials department subject private cause action damages state claim plaintiff must first show defendants conspired reached agreement one another see carpenters stating elements claim include conspiracy thus claim federal officials necessity implicates substance official discussions indicated respect claims suit open discussion among federal officers encouraged reach consensus policies department federal government pursue see supra close frequent consultations facilitate adoption implementation policies essential orderly conduct governmental affairs discussions resulting policies basis private suits seeking damages officials individuals result chill interchange discourse necessary adoption implementation governmental policies see cheney discussing need confidential communications among executive branch officials merrill considerations suggest officials employed governmental department conspire speak one another work together official capacities whether contention prevail need decided suffices say question sufficiently open officials suit certain applicable discussions actions thus law respondents seek invoke clearly established follows reasonable officers petitioners positions known certainty alleged agreements forbidden law see saucier petitioners entitled qualified immunity respect claims facts alleged complaint true happened respondents days following september tragic nothing opinion read condone treatment contend subjected question however whether petitioners alleged conduct proper whether gave decent respect respondents dignity whether keeping idea rule law must inspire us even times crisis instead question respect bivens claims whether allow action money damages absence congressional authorization reasons given answers question negative detention policy claims prisoner abuse claim briefs concentrated issue remands allow appeals consider claim light bivens analysis set forth question respect claim whether reasonable officer petitioners position known alleged conduct unlawful conspiracy reasons given answers question negative judgment appeals reversed claims except prisoner abuse claim warden hasty judgment appeals respect claim vacated case remanded proceedings ordered justice sotomayor justice kagan justice gorsuch took part consideration decision cases opinion thomas nos et al et al et al et al et al writs certiorari appeals second circuit june justice thomas concurring part concurring judgment join opinion except part write separately express view decision remand respondents claims bivens six unknown fed narcotics agents concerns qualified immunity precedents respect respondents bivens claims join opinion extent reverses second circuit ruling correctly applies precedents hold bivens supply cause action petitioners alleged fourth fifth amendment violations also correctly recognizes respondents claims petitioner dennis hasty seek extend bivens new context see ante concur judgment vacating appeals judgment regard claims hasty ante previously noted relic heady days assumed powers create causes action wilkie robbins concurring opinion quoting correctional services malesko scalia concurring thus declined extend bivens even reasoning logically applied thereby limiting bivens progeny precise circumstances involved ibid internal quotation marks omitted cases mean reversal judgment appeals order however order controlling judgment suit concur judgment vacating remanding claims petitioner hasty disposition closest preferred approach ii respondents claims join part opinion holds respondents entitled qualified immunity correctly applies precedents party asked us reconsider write separately however note growing concern qualified immunity jurisprudence civil rights act frequently litigated originally part established causes action plaintiffs seek money damages government officers violated federal law see stat although act made mention defenses immunities read harmony general principles tort immunities defenses rather derogation malley briggs internal quotation marks omitted done ertain immunities well established presume congress specifically provided wished abolish buckley fitzsimmons accord briscoe lahue immunity thus available statute historically accorded relevant official analogous situation common law imbler pachtman unless statute provides reason think congress preserve defense see tower glover contexts conducted inquiry statute requires see wyatt cole kennedy concurring example concluded legislators judges absolutely immune liability official acts immunity well established common law see tenney brandhove legislators pierson ray judges similarly looked common law holding prosecutor immune suits relating judicial phase criminal process imbler supra burns reed see kalina fletcher scalia joined thomas concurring arguing imbler misunderstood rules although suits relating prosecutor advice police officers burns supra developing immunity doctrine executive officers also started applying rules pierson held police officers absolutely immune claim arising arrest made pursuant unconstitutional statute common law never granted arresting officers sort immunity rather concluded police officers assert defense good faith probable cause claim unconstitutional arrest defense available analogous torts false arrest imprisonment common law elaborating doctrine qualified immunity executive officials however diverged historical inquiry mandated statute see wyatt supra kennedy concurring accord britton scalia joined thomas dissenting decisions following pierson completely reformulated qualified immunity along principles embodied common law anderson creighton discussing harlow fitzgerald instead asking whether common law accorded immunity officer tort analogous plaintiff claim instead grant immunity officer whose conduct violate clearly established statutory constitutional rights reasonable person known mullenix luna per riam slip internal quotation marks omitted taylor barkes slip government official liable act precedent placed statutory constitutional question beyond quoting ashcroft apply clearly established standard across board without regard precise nature various officials duties precise character particular rights alleged violated anderson supra internal quotation marks omitted attempted locate standard common law existed however evidence supports conclusion immunity existed looked quite different current doctrine see generally baude qualified immunity unlawful cal rev forthcoming manuscript online https last visited june analysis longer grounded backdrop congress enacted act longer engaged interpret ing intent congress enacting act malley supra see burns supra qualified immunity precedents instead represent precisely sort freewheeling policy choice previously disclaimed power make rehberg paulk internal quotation marks omitted see also tower supra license establish immunities suits brought act interests judge sound public policy acknowledged fact clearly established standard designed protec balance vindication constitutional rights government officials effective performance duties reichle howards internal quotation marks omitted harlow supra explaining recognition qualified immunity defense reflected attempt balance competing values constitution assigns kind balancing congress courts today decision continue path precedents marked ask whether clear reasonable officer alleged conduct unlawful situation confronted ante internal quotation marks omitted rather whether officers petitioners positions accorded immunity common law claims analogous respondents even ultimately reach conclusion consistent rules prevailing mere fortuity shift focus inquiry whether immunity existed common law continue substitute policy preferences mandates congress appropriate case reconsider qualified immunity jurisprudence breyer dissenting nos et al et al et al et al et al writs certiorari appeals second circuit june justice breyer justice ginsburg joins dissenting bivens six unknown fed narcotics agents held fourth amendment provides damages remedy federal officials injured result unconstitutional search seizure davis passman held fifth amendment provides damages remedy individual dismissed employer member congress basis sex violation equal protection component amendment due process clause carlson green held eighth amendment provides damages remedy prisoner died result prison official deliberate indifference medical needs violation amendment prohibition cruel unusual punishment well established federal law provides damages actions least similar contexts claims constitutional violation arise congress ratified bivens actions plaintiffs frequently bring courts accept scholars defend importance see pfander constitutional torts war terror canvassing history bivens cataloguing cases moreover courts order avoid deterring federal officials properly performing work developed safeguards defendants including requirement plaintiffs plead plausible claims ashcroft iqbal well defense qualified immunity frees federal officials threat liability involvement lawsuit unless plaintiffs establish officials violated established constitutional rights quoting harlow fitzgerald reluctant extend bivens liability new context new category defendants iqbal supra quoting correctional services malesko made clear narrow bivens existing scope see fdic meyer guarding evisceration bivens remedy deterrent effects lost plaintiffs us today seek damages unconstitutional conditions confinement alleged federal officials slammed walls shackled exposed nonstop lighting lack hygiene like based upon invidious discrimination without penological justification see ante view claims state violations clearly established law fall within scope longstanding bivens law reasons affirm judgment appeals shall discuss length believe important point disagreement view wrong hold permitting constitutional tort action extend bivens applying new context contrary fear holding significantly shrink existing bivens contexts diminishing compensatory remedy constitutional tort law offers harmed individuals shall explain believe suit falls well within scope traditional constitutional tort law agree arguments contrary recognize write separately strongest arguments namely fact plaintiffs claims concern detention took place soon serious attack concern actions government officials facts may affect substantive constitutional questions conditions legitimate scope defense extinguish bivens action may paraphrase justice harlan concurring bivens wartime well peacetime important civilized society judicial branch nation government stand ready afford remedy flagrant patently unjustified unconstitutional abuses official power opinion concurring judgment cf boumediene bush majority opinion well summarizes particular claims plaintiffs make suit concern conditions confinement began soon september attacks lasted days weeks stretching months ante point plaintiffs allege defendants knew nothing september attacks continued detain anyway harsh conditions official government policy defendants became aware plaintiffs innocence led plaintiffs held tiny cells hours day lights continuously left shackled moved often strip searched denied access forms communication outside world ante internal quotation marks omitted defendants detained plaintiffs conditions basis race religion without justification moreover prison wardens aware deliberately indifferent certain unofficial activities prison guards involving pattern physical verbal abuse slam ming detainees walls twist ing arms wrists fingers breaking bones subjecting verbal taunts ibid internal quotation marks omitted plaintiffs complaint alleges defendants department justice officials prison wardens alike directly responsible official confinement policy aspects mentioned violated due process equal protection components fifth amendment complaint adds insofar prison wardens deliberately indifferent unofficial conduct guards violated fourth fifth amendments hold complaint properly alleges constitutional torts bivens actions damages holdings bivens carlson davis rest upon four basic legal considerations first bivens referred longstanding precedent stating suggesting constitution provides federal courts considerable legal authority use traditional remedies right constitutional wrongs precedent begins marbury madison cranch effectively placed upon deny existence effective legal remedy burden showing case special chief justice john marshall wrote essence civil liberty lies right every individual claim protection laws whenever receives injury chief justice referred blackstone commentaries stating general indisputable rule legal right also legal remedy settled invariable principle laws england every right withheld must remedy every injury proper redress cranch chief justice wrote government emphatically termed government laws men deserve high appellation laws furnish remedy violation vested legal right ibid concluded must something peculiar special case warrants exclu ding injured party legal redress placing within class cases come description damnum absque injuria loss without injury cf placing political questions latter special category much later bell hood wrote federally protected rights invaded rule beginning courts alert adjust remedies grant necessary relief see also bivens citing opinions justices cardozo holmes similar effect bivens reiterated principles confirmed appropriate remedial adjust ment case award money damages remedial mechanism normally available federal courts justice harlan agreed adding since congress general statutory grant jurisdiction authorized courts grant equitable relief cases arising federal jurisdiction courts likewise authority award damages traditional remedy law order vindicate interests individual protected bill rights opinion concurring judgment second cases recognized congress silence subject indicates willingness leave matter courts bivens noted argument favoring conclusion absence explicit congressional declaration persons injured federal officer violation fourth amendment may recover money damages agents similarly davis passman stressed evidence congress meant foreclose damages remedy carlson went observing sign congress meant bivens remedy also clear evidence congress intended preserve third bivens cases acknowledge constitutional tort may lie special factors counse hesitation congress provided adequate alternative remedy relevant special factors cases included whether faced question fiscal policy bivens supra risk deluging federal courts claims davis supra internal quotation marks omitted carlson acknowledged additional factor damages suits might inhibit federal officials efforts perform official duties concluded qualified immunity accorded federal officials existing law provides adequate protection fourth recognized later carlson bivens remedy needed cure without amount constitutional anomaly long incorporated many bill rights guarantees see amar bill rights fourteenth amendment yale federal civil rights statutes afforded damages remedy person state official deprived federal constitutional right see monroe pape describing history federal statutory law provide damages remedy person federal official deprived right even though bill rights time founding primarily aimed constraining federal government thus person harmed unconstitutional search seizure might sue city mayor state legislator even governor person sue federal agent national legislator justice department official identical offense design wrote stood head federal officials face least liability state officials guilty constitutional transgression carlson supra quoting butz economou bivens also recognized previously inferred damages remedies caused violations certain federal statutes explicitly authorize damages remedies time bivens davis carlson treat courts power derive damages remedy constitutional provision included within power find damages remedy flowing statutory cases fortiori majority opinion points recent years indicated expanding bivens remedy judicial activity ante quoting iqbal emphasis added thus held remedy available context suits military officers see chappell wallace stanley context suits privately operated prisons employees see minneci pollard malesko context suits seeking vindicate procedural rather substantive constitutional protections see schweiker chilicky context suits seeking vindicate two quite different forms important substantive protection one involving free speech see bush lucas involving protection land rights see wilkie robbins cases involved context differed bivens davis carlson respect kind defendant basic nature right kind harm suffered say explicitly stated cases fundamentally different anything recognized bivens subsequent cases malesko supra emphasis added plaintiffs asking new kind federal litigation wilkie supra emphasis added thus majority opinion says repeatedly wrote expanding scope bivens remedy ante nowhere suggested narrow bivens existing scope fact diminish ambiguity holdings set framework determining whether claim constitutional violation calls bivens remedy see wilkie supra step one must determine whether case arises new context whether involves new category defendants malesko supra presumably significantly different kind constitutional harm purely procedural harm harm speech harm caused physical property context new proceeds step two asks whether alternative existing process protecting interest amounts convincing reason judicial branch refrain providing new freestanding remedy damages wilkie none proceeds step three asks whether special factors counselling hesitation authorizing new kind federal litigation ibid precedent makes framework applicable apply get past step one suit seems arises context similar previously permitted bivens actions context new wilkie supra fundamentally different previous bivens cases malesko supra first plaintiffs civilians members military citizens constitution protects noncitizens serious mistreatment protects citizens see liens receive constitutional protections come within territory developed substantial connections country plaintiffs may illegally present fact justify physical mistreatment anyone claim fact deprives bivens right available persons citizens noncitizens alike second defendants government officials members military private persons two prison wardens three others department justice officials prison wardens defendants bivens actions government officials one defendants carlson director bureau prisons defendant davis member congress also held attorney general entitled absolute immunity damages suit arising actions related national security see mitchell forsyth third bivens perspective injuries plaintiffs claim suffered familiar ones focus upon conditions confinement plaintiffs say unnecessarily shackled confined small unhygienic cells subjected continuous lighting presumably preventing sleep unnecessarily frequently strip searched slammed walls injured physically subject verbal abuse allege suffered harms race religion defendants either turned blind eye happening introduced policies knew lead harms even though defendants knew plaintiffs connections terrorism claimed harms similar even worse harms plaintiffs suffered bivens unreasonable search seizure violation fourth amendment davis unlawful discrimination violation fifth amendment carlson deliberate indifference medical need violation eighth amendment indeed said federal prisoner bureau prisons facility alleges constitutional deprivation may bring bivens claim offending individual officer subject defense qualified immunity malesko see also farmer brennan bivens case prisoner abuse claims suit seem fill bivens bill see sell scalia dissenting bivens action available federal pretrial detainees challenging conditions confinement true plaintiffs bring deliberate indifference claim warden hasty fifth amendment due process clause eighth amendment cruel unusual punishment clause carlson latter applies convicted criminals former applies pretrial immigration detainees harm held fifth eighth amendments give rise bivens remedies difference constitutional scope consists circumstance absence conviction makes violation worse maintained difference use two amendments fundamental see city revere massachusetts hospital due process rights unconvicted person least great eighth amendment protections available convicted prisoner kingsley hendrickson slip pretrial detainees unlike convicted prisoners punished zadvydas davis kennedy dissenting detention incident removal justified punishment confinement conditions designed order punish see also bistrian levi permitting bivens action brought detainee administrative segregation thomas ashcroft detainee alleging failure provide adequate medical care magluta samples detainee solitary confinement papa due process claims arising death immigration detainee loe armistead detainee claim deliberate indifference medical need arrestee bring claim excessive force bivens convicted prisoner bring claim denying medical care carlson someone neither charged convicted crime also able challenge abuse causes need medical care congress suggested wants withdraw damages remedy circumstances like express terms prison litigation reform act plra apply immigration detainees see term means person incarcerated detained facility accused convicted sentenced adjudicated delinquent violations criminal law see also agyeman ins hold alien detained ins pending deportation within meaning plra lafontant ins cadc ojo ins fact strong evidence congress assumed bivens remedies available prisoners enacted plra congress continued permit prisoners recover physical injuries typical kinds bivens injuries see pfander constitutional torts lingering doubt claim warden hasty arises familiar bivens context made clear claims claims subject substantive standard see hudson mcmillian wilson seiter extended deliberate indifference standard applied eighth amendment claims involving medical care claims conditions confinement indeed made point bivens case alleging prison wardens deliberately indifferent inmate safety see farmer supra recognize finds significant difference fact confinement arose soon emergency namely september attacks short answer argument respect least claimed harms plaintiffs continued suffer harms eight months september attacks took place defendants knew plaintiffs connection terrorism see app pet cert believe argument strongest consider greater length see part infra context new allow plaintiffs constitutional claims proceed plaintiffs adequately alleged defendants personally involved imposing conditions confinement knowledge plaintiffs bore ties terrorism thus satisfying iqbal pleading standard see claims must plausible see also breyer dissenting clearly established unconstitutional subject detainees punitive conditions confinement target based solely race religion national origin defendants entitled qualified immunity constitutional claims see bell wolfish davis equally clear fifth amendment confers petitioner constitutional right free illegal discrimination similarly affirm judgment appeals respect plaintiffs statutory claim namely defendants conspired deprive plaintiffs equal protection laws violation see turkmen hasty agree appeals defendants entitled qualified immunity claim see ibid even wrong context fundamentally different malesko plaintiffs claims nonetheless survive step two step three framework determining whether bivens applies see supra step two consists asking whether alternative existing process protecting interest amounts convincing reason judicial branch refrain providing new freestanding remedy damages wilkie find alternative existing process claim plra provides plaintiffs remedy ante rather says plaintiffs may available relief form prospective injunction application writ habeas corpus ante neither prospective injunction writ habeas corpus however normally provide plaintiffs redress harms already suffered plaintiffs make strong claim neither available least considerable time plaintiffs allege two three months subject communications blackout prison staff permit visitors legal social telephone calls mail families attorneys know held receive visits attorneys subsequently lawyers call week defendants interfered detainees effective access legal counsel office inspector general oig report app see app pet cert incorporating oig report complaint claims make virtually impossible say elaborate comprehensive alternative remedial scheme similar schemes past found block application bivens new contexts bush allegations proved suit damages nothing bivens harlan concurring judgment alternative existing process provides convincing reason applying bivens must proceed step three wilkie supra find special factors counse hesitation authorizing bivens action turn matter next ii describes two general considerations believes argue extension bivens first majority opinion points far less likely time decided bivens imply cause action damages statute explicitly provide damages claim see ante second finds silence congress notable congress though likely aware policies involved suit choose extend person kind remedies plaintiffs seek ante internal quotation marks omitted doubt strength two general considerations first consideration view relevant concede majority concurring opinions bivens looked part support fact implied damages remedies statutes silent subject see harlan concurring judgment main argument favoring conclusion rather drew far stronger support need remedy measured constitutional history allowing traditional legal remedies necessary believed remedy necessary make effective constitution protection certain basic individual rights see opinion harlan similarly later explained damages remedy federal officials prevented serious legal anomaly previously mentioned existence made basic constitutional protections individual federal government abuse bill rights war objective effective protections abuse state officials war post objective see supra second circumstance congressional silence relevant manner majority opinion describes initially saw silence indicating absence congressional hostility exercise traditional powers see bivens supra davis congress subsequent silence contains strong signs accepted bivens actions part law congress rejected proposal eliminated bivens substituting government defendant suits federal officers raised constitutional claims see pfander constitutional torts later congress expressly immunized federal employees acting course official duties tort claims except premised violations constitution see federal employees liability reform tort compensation act commonly known westfall act stated consequently crystal clear congress views federal tort claims act bivens providing parallel complementary causes action carlson see malesko similar congress even assumed existence bivens remedy suits brought noncitizen detainees suspected terrorism see granting qualified immunity absolute immunity military civilian federal officials sued alien detainees suspected terrorism majority opinion also sets forth specific list factors says bear whether case presents new bivens context ante view case might differ bivens meaningful way rank officers involved constitutional right issue generality specificity individual action extent judicial guidance officer respond problem emergency confronted statutory legal mandate officer operating risk disruptive intrusion judiciary functioning branches presence potential special factors previous bivens cases consider ante view factors make meaningful difference step one bivens framework better cast special factors relevant step three see none normally foreclose bivens action none determinative consider one one rank officers understand officer rank might bear whether violated constitution example plaintiff might need show officer willfully blind harm caused lower ranking officers officer actual knowledge misconduct understand rank might relate existence legal defense qualified even absolute immunity recognize often big plaintiff proves clear constitutional violation say fourth amendment shows defendant possess form immunity defense damages remedy harm suffered rank question namely bivens question law treat differently official local constable similarly violated constitution neither successfully assert immunity defense constitutional right issue agree factor make difference substance right distinct see wilkie land rights reasons already pointed relevant difference rights issue rights issue previous bivens cases namely rights free unreasonable searches invidious discrimination physical abuse federal custody see supra generality specificity individual action think generality specificity official action rather nature official action matters bivens apply generally applicable actions actions taken deliberately jail large group people apply highly specific actions depending upon nature actions extent judicial guidance factor may relevant existence constitutional violation defense judicial guidance lacking likely constitutional violation clearly established see anderson creighton officials protected qualified immunity unless contours right sufficiently clear reasonable official understand violates right see assuming violation clear presence absence judicial guidance relevant existence damages remedy statutory legal mandate officer operating factor may prove relevant question whether constitutional violation exists clearly established assuming understand factor relevant existence damages remedy see stanley question immunity analytically distinct question whether bivens action lie risk disruptive judicial intrusion damages actions risk disrupting degree future decisionmaking members executive legislative branches authorized bivens actions found disruption tolerable explained disruption constitutional perspective desirable see davis unless constitutional rights become merely precatory litigants allege constitutional rights violated time effective means judiciary enforce rights must able invoke existing jurisdiction courts protection malesko supra purpose bivens deter individual federal officers committing constitutional violations insofar means consideration provide reason bivens action government employee acts time security need shall discuss matter next part potential special factors since certain potential factors since specify nature consider differentiating suit previous bivens cases militating recognizing bivens action view strongest argument bivens apply actions taken times need example war emergency correctly points constitution grants primary power protect nation security executive legislative branches judiciary constitution also delegates judiciary duty protect individual fundamental constitutional rights hence protection rights determination security needs conflict role play recently made clear cases arising detention enemy combatants guantanamo bay justice wrote state war blank check hamdi rumsfeld plurality opinion boumediene reinforced point holding noncitizens detained enemy combatants entitled challenge detention writ habeas corpus notwithstanding concerns stake however answered specific question places issue bivens actions continue exist respect actions taken time war national emergency view one thing bivens action comes accompanied many legal safeguards designed prevent courts interfering executive legislative branch activity reasonably believed necessary protect national security justice jackson words constitution suicide pact terminiello chicago dissenting opinion constitution takes account public necessity thus example fourth amendment forbid government searches seizures forbids unreasonable ordinarily requires police officer obtain search warrant entering apartment officer observe woman dragged apartment act fourth amendment makes allowances exigent circumstances brigham city stuart warrantless entry justified forestall imminent injury similarly fifth amendment bars conditions confinement reasonably related legitimate governmental objective bell wolfish unreasonable illegitimate time peace may reasonable legitimate time war moreover bivens comes accompanied defense federal officials face suit violated constitutional right clearly established time acted harlow order prevent presence bivens lawsuit interfering work government official held complaint must state claim relief plausible iqbal onclusory statements hreadbare allegations suffice protected officials particular requiring plaintiffs plead official personally involved unconstitutional conduct official vicariously liable another misdeeds finally claim filed courts tailor discovery orders unnecessarily improperly interfere official work second circuit emphasized need vindicate purpose qualified immunity defense dismissing claims public officials early stage litigation iqbal hasty defendants current former senior officials government allegations knowledge personal involvement easily made district may exercise discretion way protects substance qualified immunity defense officials subjected unnecessary burdensome discovery trial proceedings make discovery subject prior approval structure limited discovery examining written responses interrogatories requests admit authorizing depositions deferring discovery directed officials discovery officials completed demonstrated need discovery higher ranks ibid word trial structure proceedings full recognition qualified immunity amounts immunity suit well immunity liability given safeguards undue interference judiciary times war emergency abolition limitation bivens actions goes far cold put sweater perhaps overcoat perhaps also turn heat set fire house time may well particular need bivens remedies government actions issue history tells us far many instances executive legislative branch took actions time war later examination turned unnecessarily unreasonably deprived american citizens basic constitutional rights read alien sedition acts thousands civilians imprisoned civil war suppression civil liberties world war see rehnquist laws one civil liberties wartime see also ex parte milligan wall decided civil war pages reports recite refusal set aside government world war ii action removing american citizens japanese origin west coast homes interning camps see korematsu action least officials knew time unnecessary see murphy dissenting irons justice war president franklin roosevelt attorney general perhaps exaggerating said constitution greatly bothered wartime president rehnquist supra respect actions taken periods rely exclusively seems suggest upon injunctive remedies writs habeas corpus retail equivalent complaints seeking kind relief typically come emergency emotions strong courts may little inaccurate information courts may well prove particularly reluctant interfere even least executive branch activity reluctance may set unfortunate precedent justice jackson pointed li like loaded weapon awaiting discharge another case korematsu supra dissenting opinion damages action however typically brought emergency emotions cooled time factual information available circumstances courts time exercise judicial virtues calm reflection dispassionate application law facts applied constitution actions taken periods war emergency see boumediene hamdi rumsfeld cf youngstown sheet tube sawyer think wisdom permitting courts consider bivens actions later granting monetary compensation wronged time follow fortiori well known lord atkins british judge wrote midst world war ii amid clash arms laws silent may changed speak language war peace liversidge anderson view say bivens action respect dissent footnotes together ashcroft former attorney general et al abbasi et hasty et al abbasi et also certiorari footnotes although first formulated clearly established standard bivens cases like harlow anderson imported standard directly act cases see pearson callahan applying clearly established standard claim