town castle rock colorado gonzales individually next best friend deceased minor children gonzales et argued march decided june respondent filed suit alleging petitioner violated fourteenth amendment due process clause police officers acting pursuant official policy custom failed respond repeated reports several hours estranged husband taken three children violation restraining order ultimately husband murdered children district granted town motion dismiss en banc majority tenth circuit reversed finding respondent alleged cognizable procedural due process claim colorado statute established state legislature clear intent require police enforce retraining orders thus intent order recipient entitlement enforcement therefore ruled among things respondent protected property interest enforcement restraining order held respondent due process clause purposes property interest police enforcement restraining order husband pp due process clause procedural component protect everything might described government benefit property interest benefit person must legitimate claim entitlement board regents state colleges roth entitlements created existing rules understandings stemming independent source state law ibid pp benefit protected entitlement officials discretion grant deny see kentucky dept corrections thompson inappropriate defer tenth circuit determination colorado law gave respondent right police enforcement restraining order therefore proceeds analysis pp colorado law created personal entitlement enforcement restraining orders appear state law truly made enforcement mandatory tradition police discretion long coexisted apparently mandatory arrest statutes cf chicago morales backdrop true mandate police action require stronger indication colorado statute direction use every reasonable means enforce restraining order even arrest seek warrant colorado officer likely discretion determine despite probable cause believe restraining order violated violation circumstances competing duties counsel decisively enforcement particular instance practical necessity discretion particularly apparent case suspected violator actually present whereabouts unknown circumstances statute appear require officers arrest seek warrant however entitlement nothing procedure basis property interest pp even statute said make enforcement mandatory necessarily mean respondent entitlement enforcement alleged interest stems common law contract state statutory scheme given statutory entitlement expect see indication statute although statute spoke protected person respondent connection matters right enforcement importantly spoke directly protected person power initiate contempt proceedings order issued civil action contrasts tellingly conferral power merely request initiation criminal contempt proceedings even dramatically complete silence power request much less demand arrest made pp even think otherwise colorado creation entitlement clear individual entitlement enforcement restraining order constitute property interest due process purposes right ascertainable monetary value arise incidentally new species government benefit service function government actors always performed arresting people probable cause benefit indirect nature fatal due process claim town nursing center simple distinction government action directly affects citizen legal rights action directed third party affects citizen incidentally provides sufficient answer cases finding services entitlements pp reversed scalia delivered opinion rehnquist kennedy souter thomas breyer joined souter filed concurring opinion breyer joined stevens filed dissenting opinion ginsburg joined town castle rock colorado petitioner jessica gonzales individually next best friend deceased minor children rebecca gonzales katheryn gonzales leslie gonzales writ certiorari appeals tenth circuit june justice scalia delivered opinion decide case whether individual obtained restraining order constitutionally protected property interest police enforce restraining order probable cause believe violated horrible facts case contained complaint respondent jessica gonzales filed federal district case comes us appeal dismissal complaint assume allegations true see swierkiewicz sorema respondent alleges petitioner town castle rock colorado violated due process clause fourteenth amendment constitution police officers acting pursuant official policy custom failed respond properly repeated reports estranged husband violating terms restraining restraining order issued state trial several weeks earlier conjunction respondent divorce proceedings original form order issued may served respondent husband june commanded molest disturb peace respondent child remain least yards family home times en banc appendix dissenting opinion bottom form noted reverse side contained important notices restrained parties law enforcement officials ibid emphasis deleted preprinted text back form included following warning knowing violation restraining order crime violation also constitute contempt may arrested without notice law enforcement officer probable cause believe knowingly violated order preprinted text back form also included notice law enforcement officials read part shall use every reasonable means enforce restraining order shall arrest arrest impractical circumstances seek warrant arrest restrained person information amounting probable cause restrained person violated attempted violate provision order restrained person properly served copy order received actual notice existence order ibid june state trial modified terms restraining order made permanent modified order gave respondent husband right spend time three daughters ages alternate weekends two weeks summer reasonable notice dinner visit modified order also allowed visit home collect children parenting time majority opinion according complaint tuesday june respondent husband took three daughters playing outside family home advance arrangements made see daughters evening respondent noticed children missing suspected husband taken called castle rock police department dispatched two officers complaint continues officers arrived showed copy tro requested enforced three children returned immediately officers stated nothing tro suggested respondent call police department three children return home app pet cert approximately respondent talked husband cellular telephone told three children amusement park denver ibid called police asked someone check husband vehicle amusement park put points bulletin husband officer spoke refused telling wait see husband returned girls approximately respondent called police said children still missing told wait midnight called midnight told dispatcher children still missing went husband apartment finding nobody called police told wait officer arrive none came went police station submitted incident report officer took report made reasonable effort enforce tro locate three children instead went dinner approximately respondent husband arrived police station opened fire semiautomatic handgun purchased earlier evening police shot back killing inside cab pickup truck found bodies three daughters already murdered ibid basis foregoing factual allegations respondent brought action rev stat claiming town violated due process clause police department official policy custom failing respond properly complaints restraining order violations tolerate restraining orders police officers app pet cert complaint also alleged town actions taken either willfully recklessly gross negligence indicate wanton disregard deliberate indifference respondent civil rights ibid answering complaint defendants filed motion dismiss federal rule civil procedure district granted motion concluding whether construed making substantive due process procedural due process claim respondent complaint failed state claim upon relief granted panel appeals affirmed rejection substantive due process claim found respondent alleged cognizable procedural due process claim rehearing en banc divided reached disposition concluding respondent protected property interest enforcement terms restraining order town deprived due process police never seriously entertained request enforce protect interests restraining order granted certiorari ii fourteenth amendment constitution provides state shall deprive person life liberty property without due process law amdt congress created federal cause action deprivation rights privileges immunities secured constitution laws respondent claims benefit provision ground property interest police enforcement restraining order husband town deprived property without due process policy tolerated nonenforcement restraining orders appeals recognized left similar question unanswered deshaney winnebago county dept social another case undeniably tragic facts local officials failed protect young boy beatings father left severely brain damaged held substantive component due process clause requir state protect life liberty property citizens invasion private actors noted however petitioner properly preserved argument thus decline consider whether state child protection statutes gave receive protective services accordance terms statute entitlement enjoy due process protection procedural component due process clause protect everything might described benefit property interest benefit person clearly must abstract need desire unilateral expectation must instead legitimate claim entitlement board regents state colleges roth entitlements course created constitution rather created dimensions defined existing rules understandings stem independent source state law paul davis quoting roth supra see also phillips washington legal foundation cases recognize benefit protected entitlement government officials may grant deny discretion see kentucky dept corrections thompson appeals case determined colorado law created entitlement enforcement restraining order restraining order specifically dictated terms must enforced state statute command ed enforcement order certain objective conditions met probable cause believe order violated object order received notice existence see also respondent contends obliged give deference tenth circuit analysis colorado law whether entitlement enforcement restraining order tr oral arg course defer tenth circuit ultimate issue whether colorado law given respondent constitutes property interest purposes fourteenth amendment determination despite underpinnings ultimately one federal constitutional law although underlying substantive interest created independent source state law federal constitutional law determines whether interest rises level claim entitlement protected due process clause memphis light gas water div craft emphasis added quoting roth supra cf ex rel tva powelson resolution federal issue begins however determination state law provides context present case central question whether colorado law gave respondent right police enforcement restraining order point respondent call deference tenth circuit relevant said presumption deference given views federal law state within jurisdiction phillips supra presumption overcome however see leavitt jane per curiam think deference inappropriate tenth circuit opinion reversed colorado district judge draw upon deep well expertise consisted primarily quoting language restraining order statutory text transcript see texts moreover say nothing distinctive colorado use mandatory language shall discuss appears many state federal statutes case law cases restraining orders appeals relied upon decisions federal district courts ohio pennsylvania state courts new jersey oregon tennessee moreover simply accept appeals conclusion necessarily decide conclusively federal constitutional question whether entitlement constituted property due process clause whether petitioner customs policies provided little process protect proceed analysis whether colorado law gave respondent right enforcement restraining critical language restraining order came part order signed trial judge directed restrained party respondent husband preprinted notice personnel appeared back order see supra notice effectively restated statutory provision describing peace officers duties related crime violation restraining order time conduct issue case provision read follows whenever restraining order issued protected person shall provided copy order peace officer shall use every reasonable means enforce restraining order peace officer shall arrest arrest impractical circumstances seek warrant arrest restrained person peace officer information amounting probable cause restrained person violated attempted violate provision restraining order ii restrained person properly served copy restraining order restrained person received actual notice existence substance order making probable cause determination described paragraph subsection peace officer shall assume information received registry accurate peace officer shall enforce valid restraining order whether record restraining order registry rev stat lexis emphases added appeals concluded statutory provision especially taken conjunction statement legislative another statute restricting criminal civil liability officers making established colorado legislature clear intent alter fact police enforcing domestic abuse retraining orders thus intent recipient domestic abuse restraining order entitlement enforcement result said render domestic abuse restraining orders utterly valueless last statement sheer hyperbole whether respondent right enforce restraining order rendered certain otherwise lawful conduct husband criminal contempt see creation grounds arrested criminally prosecuted held contempt hardly valueless even prospect sanctions ultimately failed prevent committing three murders suicide believe provisions colorado law truly made enforcement restraining orders mandatory well established tradition police discretion long coexisted apparently mandatory arrest statutes every state statutes terms seem preclude nonenforcement police however number reasons including legislative history insufficient resources sheer physical impossibility recognized statutes interpreted literally hey clearly mean police officer may lawfully decline make arrest third parties statutes simply effect significance diminished aba standards criminal justice commentary pp ed footnotes omitted nature discretion even presence seemingly mandatory legislative commands illustrated chicago morales involved ordinance said police officer persons disperse certain circumstances rejected hand possibility mandatory language ordinance afford ed police discretion proclaimed simply common sense police officers must use discretion deciding enforce city ordinances ibid emphasis added backdrop true mandate police action require stronger indication colorado legislature shall use every reasonable means enforce restraining order even shall arrest seek warrant language perceptibly mandatory colorado statute long told municipal chiefs police shall pursue arrest person fleeing justice part state shall apprehend person act committing offense forthwith without warrant bring person competent authority examination trial rev stat lexis hard imagine colorado peace officer discretion determine despite probable cause believe restraining order violated circumstances violation competing duties officer agency counsel decisively enforcement particular practical necessity discretion particularly apparent case one suspected violator actually present whereabouts unknown cf donaldson seattle app vast difference mandatory duty arrest violator scene mandatory duty conduct follow investigation locate absent violator mandatory duty investigate completely priority duration intensity dissent correctly points specific context domestic violence statutes found mandatory traditional statutes post opinion stevens colorado statute mandating arrest offense different related one issue includes similar though identical phrasing see rev stat lexis peace officer determines probable cause believe crime offense involving domestic violence committed officer shall without undue delay arrest person suspected commission even context however unclear paradigm applies cases offender present arrested dissent explains post much impetus statutes policies derived idea better police officers arrest aggressor incident attempt mediate dispute merely ask offender leave scene options available course offender present scene see hanna right choose mandated victim participation domestic violence prosecutions harv rev clear trend police practice arrest batterer scene emphasis added one cases cited dissent post recognized situations arrest possible alleged abuser home donaldson wash emphasis added case held washington statute required arrest cases offender scene id create mandatory duty conduct investigation locate offender colorado statute appears contemplate similar distinction providing arrest impractical likely case whereabouts respondent husband unknown officers statutory duty seek warrant rather arrest respondent specify precise means enforcement colorado statute assertedly mandated whether interest lay police arrest husband seek warrant arrest use every reasonable means including arrest enforce order terms brief respondent indeterminacy hallmark duty mandatory someone safely deemed entitled something identity alleged entitlement vague see roth much less basis property interest see post souter concurring warrant sought remains within discretion judge whether grant granted remains within discretion police whether execute respondent assured nothing seeking warrant sort entitlement property interest created even statute said made enforcement restraining orders mandatory context underlying statute necessarily mean state law gave respondent entitlement enforcement mandate making actions government employees obligatory serve various legitimate ends conferral benefit specific class people see sandin conner finding constitutionally protected liberty interest prison regulations phrased mandatory terms part uch guidelines set forth solely benefit prisoner serving public rather private ends normal course criminal law criminal acts besides injury individuals strike society possibly subsist actions sort suffered escape impunity blackstone commentaries laws england see also huntington attrill principle underlies example colorado district attorney discretion prosecute domestic assault even though victim withdraws charge see people cunefare bender concurring part dissenting part dissenting part judgment respondent alleged interest stems state statutory scheme restraining order authorized tracked precisely statute appeals relied assert contractual entitlement enforcement given statutory entitlement expect see indication statute although colorado statute spoke protected person respondent connection matters right enforcement said protected person shall provided copy restraining order issued law enforcement agency shall make reasonable efforts contact protected party upon arrest restrained person agency shall give protected person copy report submits issued order perhaps importantly statute spoke directly protected person power initiate contempt proceedings restrained person order issued civil action request prosecuting attorney initiate contempt proceedings order issued criminal action protected person express power initiate civil contempt proceedings contrasts tellingly mere ability request initiation criminal contempt proceedings even dramatically complete silence power request much less demand arrest made creation personal entitlement something vague novel enforcement restraining orders simply without saying post stevens dissenting conclude colorado created entitlement even think otherwise concerning creation entitlement colorado means clear individual entitlement enforcement restraining order constitute property interest purposes due process clause right course resemble traditional conception property although alone disqualify due process protection roth progeny show right restraining order enforced ascertainable monetary value even cases implicitly required merrill landscape constitutional property rev perhaps radically alleged property interest arises incidentally new species government benefit service function government actors always performed wit arresting people probable cause believe committed criminal indirect nature benefit fatal due process claim residents town nursing center held withdrawal direct benefits financial payments medicaid certain medical services triggered due process protections true indirect benefit conferred medicaid patients government enforced minimum standards care facilities indirect incidental result government enforcement action amount deprivation interest life liberty property ibid case simple distinction government action directly affects citizen legal rights action directed third party affects citizen indirectly incidentally provides sufficient answer respondent reliance cases found services entitlements expressly noted distinction direct indirect benefits distinguished memphis light gas water div craft one cases dissent relies post iii conclude therefore respondent purposes due process clause property interest police enforcement restraining order husband accordingly unnecessary address appeals determination town custom policy prevented police giving due process deprived alleged interest see american mfrs mut ins sullivan light today decision deshaney benefit third party may receive someone else arrested crime generally trigger protections due process clause neither procedural substantive manifestations result reflects continuing reluctance treat fourteenth amendment font tort law parratt taylor quoting paul davis mean powerless provide victims personally enforceable remedies although framers fourteenth amendment civil rights act stat original source create system police departments generally held financially accountable crimes better policing might prevented people colorado free craft system state law cf deshaney judgment appeals reversed town castle rock colorado petitioner jessica gonzales individually next best friend deceased minor children rebecca gonzales katheryn gonzales leslie gonzales writ certiorari appeals tenth circuit june justice souter justice breyer joins concurring agree jessica gonzales shown violation interest protected fourteenth amendment due process clause join opinion emphasizes traditional public focus law enforcement reason doubt particular legal requirements provide police services however unconditional form presuppose enforceable individual rights certain level police protection ante also notes terms colorado statute involved recognize preserve traditional discretion afforded law enforcement officers ante gonzales claim property right thus runs police discretion face individual demand enforce discretion ignore individual instruction enforce say domestic reconciliation one argue beneficiary colorado order like one authorized control contempt power order police refrain arresting considerations argue inferring guarantee level protection safety understood object legitimate claim entitlement board regents state colleges roth nature property arising colorado law consequently classic predicate federal due process protection interests state law missing gonzales implicitly recognizes makes following argument gonzales alleges denied process laid statute police consider request timely fashion instead repeatedly required call station several hours statute promised process restraining order given vitality careful prompt consideration enforcement request denial process drained value property interest restraining order brief respondent argument unconventional benefit claims federal procedural protection variety procedural regulation set rules followed officers exercising state executive power use reasonable means enforce arrest upon demonstrable probable cause get warrant see ante argument understood unconventional sense reason appears rejecting call apply roth reason apply even statutory mandates police absolute leaving police discretion beneficiary protective order insists upon enforcement due process clause extends procedural protection guard unfair deprivation state officials substantive property rights entitlements federal process protects property created state law gonzales claims property interest process argument odds rule rocess end constitutional purpose protect substantive interest individual legitimate claim entitlement olim wakinekona see also doe fein district columbia cadc per curiam doe nelson milwaukee county putting rest notion scope otherwise discernible property interest limited related procedures observed categories substance procedure distinct defined procedures provided deprivation cleveland bd ed loudermill state diminish property right conferred attaching less generous procedure deprivation neither state create property right merely ordaining beneficial procedure unconnected articulable substantive guarantee say state rules executive procedure may provide significant reasons infer articulable property right meant protected say identified property procedure state rules executive procedure however important may nothing rules executive procedure thus every instance property recognized calling federal procedural protection property distinguishable procedural obligations imposed state officials protect whether welfare benefits goldberg kelly attendance public schools goss lopez utility services memphis light gas water div craft public employment perry sindermann professional licenses barry barchi property interest recognized cases always existed apart state procedural protection recognized constitutional claim protection federal process accede gonzales argument therefore work sea change scope federal due process seeks federal process substitute simply state process seeks damages rev stat denial process claimed federal right articulable distinction object gonzales asserted entitlement process desires order protect entitlement amount certain steps taken police protect family gonzales claim thus take us beyond roth recognized theory fourteenth amendment due process collapsing distinction property protected process protects federalize every mandatory direction executive officers whose performance job vitally significant individuals affected procedural directions involved presuppose enforceable substantive entitlement roth raise federally enforceable status name due process town castle rock colorado petitioner jessica gonzales individually next best friend deceased minor children rebecca gonzales katheryn gonzales leslie gonzales writ certiorari appeals tenth circuit june justice stevens justice ginsburg joins dissenting issue presented us much narrower suggested arguments parties amici neither tragic facts case importance according proper deference law enforcement professionals divert attention issue issue whether restraining order entered colorado trial june created property interest protected arbitrary deprivation due process clause fourteenth amendment perfectly clear one hand neither federal constitution federal statute granted respondent children individual entitlement police protection see deshaney winnebago county dept social assume colorado statute create entitlement ordinary citizen hand equally clear federal law imposes impediment creation entitlement colorado law respondent certainly entered contract private security firm obligating firm provide protection respondent family respondent interest contract unquestionably constitute property within meaning due process clause colorado statute enacted benefit valid order entered colorado judge created functional equivalent private contract granting respondent entitlement mandatory individual protection local police force right also qualify property entitled constitutional protection understand majority rule foregoing propositions although express doubts see ante means clear individual entitlement enforcement restraining order constitute interest moreover majority contest see ante respondent cognizable property interest case deprivation interest violated due process notes respondent alleged presented police copy restraining order issued colorado requested enforced ante response contends officers effectively ignored allegations true federal statute rev stat provides remedy petitioner even colorado law see cleveland bd ed loudermill central question case therefore whether matter colorado law respondent right police assistance comparable right possessed service government private firm might undertaken provide see board regents state colleges roth property interests course created constitution rather created dimensions defined existing rules understandings stem independent source state law rules understandings secure certain benefits support claims entitlement benefits time tradition judicial restraint led defer judgment qualified tribunals seeking correct answer difficult question colorado law unfortunately although majority properly identifies central question case whether colorado law gave respondent right police enforcement restraining order ante chosen ignore settled practice providing answer question identifying flaws ruling merits shall briefly comment past practice majority decision plunge ahead analysis colorado law imprudently departs longstanding policy paying deference views federal law state within jurisdiction phillips washington legal foundation see also bishop wood collecting cases policy efficient reflects belief district courts courts appeal better schooled able interpret laws respective brockett spokane arcades hillsborough cromwell endorsing great deference views judges courts familiar intricacies trends local law accordingly declined show deference rare cases appeal resolution state law clearly wrong otherwise seriously deficient see brockett per curiam unfortunately even attempt demonstrate en banc majority clearly wrong interpretation colorado domestic restraining order statute showing made certainly plausible construe shall use every reasonable means enforce restraining order shall arrest rev stat lexis emphases added conveying mandatory directives police particularly statute times tellingly employs different language suggests police discretion see peace officer authorized use every reasonable means protect peace officer may transport emphases added moreover unlike today decision appeals attentive legislative history statute focusing statement statute sponsor colorado house ante quoting statement took emphasiz importance police mandatory enforcement domestic restraining orders en banc far overlooking traditional presumption police discretion appeals diligent analysis statute text purpose history led conclude colorado legislature intended precisely abrogate presumption specific context domestic restraining orders conclusion eminently reasonable believe worthy ii even good reason doubt appeals determination state law judgment far wiser course certify question colorado powerful considerations support certification case first principles federalism comity favor giving state high opportunity answer important questions state law particularly questions implicate uniquely local matters law enforcement might well require weighing policy considerations correct see elkins moreno sua sponte certifying question state law one state governments highest interest cf arizonans official english arizona certification novel unsettled questions state law authoritative answers state highest federal may save energy resources hel build cooperative judicial brackets original second certifying potentially dispositive issue adhere wise policy avoiding unnecessary adjudication difficult questions constitutional law see elkins citing constitutional avoidance factor supporting certification third certification promote judicial economy fairness parties colorado ultimate authority meaning colorado law later litigation disagree provisional holding efforts wasted respondent deprived opportunity claims heard authoritative view colorado law unique facts case serve emphasize importance employing procedure provide correct answer central question state law see brockett concurring speculation federal meaning state statute absence prior state adjudication particularly gratuitous case state courts stand willing address questions state law certification federal iii three flaws rather superficial analysis merits highlight unwisdom decision answer question de novo first places undue weight various statutes throughout country seemingly mandate police enforcement generally understood preserve police discretion result gives short shrift unique case mandatory arrest statutes domestic violence context passed wave statutes unmistakable goal eliminating police discretion area second formalistic analysis fails take seriously fact colorado statute issue case enacted benefit narrow class persons beneficiaries domestic restraining orders order issue case specifically intended provide protection respondent children finally simply wrong assert citizen interest government commitment provide police enforcement certain defined circumstances resemble traditional conception property ante fact citizen property interest commitment concrete worthy protection interest important service government private firm undertaken provide colorado general assembly passed omnibus legislation targeting domestic violence part legislation issue case mandates enforcement domestic restraining order upon probable cause violation another part directs police officers shall without undue delay arrest suspect upon probable cause believe crime offense domestic violence committed adopting legislation colorado general assembly joined nationwide movement took aim crisis police underenforcement domestic violence sphere implementing mandatory arrest statutes crisis underenforcement various causes least perception police departments police officers domestic violence private family matter arrest used last resort sack battered women state struggle future domestic violence policy rev hereinafter sack cases considered noncriminal police assigned domestic violence calls low priority often respond several hours ignored altogether response realities emboldened experiment minneapolis police many enacted mandatory arrest statutes police officer must arrest abuser officer probable cause believe domestic assault occurred protection order violated developments law legal responses domestic violence harv rev purpose statutes precisely counter police resistance arrests domestic violence cases removing restricting police officer discretion mandatory arrest policies increase police response reduce batterer recidivism sack thus colorado passed statute joined ranks mandated arrest domestic violence offenses mandated arrest domestic restraining order violations see developments law harv noting statutes miller institute law justice law enforcement prosecution perspective http visited june available clerk case file listing colorado among many currently mandatory arrest statutes given specific purpose statutes doubt colorado legislature used term shall advisedly domestic restraining order statute shall probably best read mean may colorado statutes seemingly mandate enforcement cf rev stat lexis police shall suppress riots disturbances breaches peace shall apprehend disorderly persons city emphases added clear elimination police discretion integral colorado fellow solution problem underenforcement domestic violence since text colorado statute perfectly captures legislative purpose hard imagine mind insists stronger indication colorado legislature ante colorado case law speak question instructive state courts interpreting analogous statutes held eliminate police traditional discretion refuse enforcement also recognized create rights enforceable police state law example nearing weaver en banc held although common law negligence support suit police failing enforce domestic restraining order statute mandatory directive formed basis suit specific duty imposed statute benefit individuals previously identified judicial order matthews pickett county certification sixth circuit confirmed statute mandated arrest violations domestic restraining orders held public duty defense negligence action unavailable defendant police officers restraining order created special duty protect plaintiff see also campbell campbell super domestic restraining order statute allows discretion regard arrest duty imposed police officer ministerial donaldson seattle app generally officer legal grounds make arrest considerable discretion regard domestic violence rule reverse officer legal grounds arrest pursuant statute mandatory duty make arrest extent colorado agree views courts course open question seem rather brazen majority assume colorado repudiate consistent line persuasive authority indeed fails come terms wave domestic violence statutes provides crucial context understanding colorado law concedes specific context domestic violence statutes found mandatory traditional statutes ante serious understatement difference matter degree kind wave statutes legal rule one discretion shows traditional general mandatory arrest statutes always understood mandatory name see ante innovation domestic violence statutes make police enforcement mandatory simply mandatory says existence protected entitlement turns whether government officials may grant deny discretion ante new mandatory statutes undeniably create entitlement police enforcement restraining orders perhaps recognizing point glosses dispositive question whether police enjoyed discretion deny enforcement focuses different question precise means enforcement ante called case question red herring statute directs upon probable cause violation peace officer shall arrest arrest impractical circumstances seek warrant arrest restrained person rev stat lexis regardless whether enforcement called case arrest seeking arrest warrant answer question probably changed course night respondent gave police information husband whereabouts crucial point statute police required provide enforcement lacked discretion suggests fact enforcement may encompass different acts infects entitlement enforcement indeterminacy ante objection also unfounded cases never required object entitlement mechanistic unitary thing suppose state entitled every citizen whose income certain level receive health care state clinic provision health care unitary thing doctors administrators must decide tests called procedures required decisions often involve difficult applications judgment credibly said citizen lacks entitlement health care simply content entitlement every given situation similarly enforcement restraining order amorphous indeterminate thing statute police probable cause violation occurred enforcement consists either making immediate arrest seeking warrant executing arrest traditional tasks law enforcement officers perform every similarly errs speculating colorado legislature may mandated police enforcement restraining orders various legitimate ends conferral benefit specific class people ante see also ibid noting serving public rather private ends normal course criminal law concern bite faced broadly drawn statute directing example police shall suppress riots little doubt statute issue case conferred benefit specific class people namely recipients domestic restraining orders respondent applied granted restraining order colorado trial judge found risk irreparable injury found physical emotional harm result husband excluded family home appendix dissent noted earlier restraining order required husband molest disturb peace respondent daughters ordered limited exceptions husband stay least yards away family home also directed police use every reasonable means enforce order arrest seek warrant upon probable cause violation terms statute order issued respondent daughters became person person means person persons identified restraining order person persons whose benefit restraining order issued statute criminalized knowing violation restraining order already discussed statute well order mandated police enforcement statute guarantee police enforcement triggered operates reference judge granting restraining order favor identified person simply room suggest person received merely benefit see ante one state put domestic restraining order statutes identify precision circumstances police protection must afforded legislative purpose requiring police enforce individual restraining orders clearly protect named persons whose protection order issued protect community large general law enforcement activity nearing doubt whether colorado statute created entitlement protected person fail take seriously purpose nature restraining orders fails account decisions state courts see supra recognize statutes restraining orders create individual rights police action iv given colorado law quite clearly eliminated police discretion deny enforcement respondent correct much unilateral expectation restraining order enforced rather legitimate claim entitlement enforcement roth see also perry sindermann roperty interests subject procedural due process protection limited rigid technical forms rather denotes broad range interests secured rules thus cases found property interests number benefits services including welfare benefits goldberg kelly disability benefits mathews eldridge public education goss lopez utility services memphis light gas water div craft government employment cleveland bd ed loudermill well entitlements defy easy categorization see bell burson due process requires fair procedures driver license may revoked pending adjudication accident claim logan due process prohibits arbitrary denial person interest adjudicating claim state commission police enforcement restraining order government service less concrete less valuable government services relative novelty recognizing type property interest explained relative novelty domestic violence statutes creating mandatory arrest duty innovation unfettered discretion characterized police enforcement defeated citizen legitimate claim entitlement service novel respondent claim finds strong support principles underlie due process jurisprudence case colorado law guaranteed provision certain service certain defined circumstances certain class beneficiaries respondent reasonably relied guarantee observed roth purpose ancient institution property protect claims upon people rely daily lives reliance must arbitrarily undermined surely respondent contracted private security firm provide daughters protection husband apparent possessed property interest contract colorado undertook comparable obligation respondent restraining order hand justifiably relied undertaking respondent claim entitlement promised service less legitimate claims cases upheld less concrete hypothetical agreement private fact based statutory enactment judicial order entered special protection rather formal contract provide principled basis refusing consider property worthy constitutional respondent property interest enforcement restraining order state officials deprive interest without observing fair description police behavior case department callous policy failing respond properly reports restraining order violations clearly alleges due process violation least due process requires relevant state decisionmaker listen claimant apply relevant criteria reaching failure observe minimal procedural safeguards creates unacceptable risk arbitrary erroneous deprivation mathews process afforded police constituted nothing pretense joint refugee comm mcgrath frankfurter concurring accordingly respectfully dissent footnotes petitioner claims respondent complaint allege ever notified police contention husband actually violation restraining order brief petitioner complaint allege however respondent showed police copy temporary restraining order tro requested enforced app pet cert stage litigation may assume reasonably implied order violated see steel citizens better environment unclear complaint immaterial decision whether respondent showed police original tro also permanent modified restraining order superseded june three police officers also named defendants complaint appeals concluded entitled qualified immunity en banc respondent file challenging aspect judgment cases cited appeals appeared footnotes declaring irrelevant involved substantive due process nn statutes without restraining orders colorado government immunity act appeals concluded applies state tort law claims analysis likewise unaffected immunity act way colorado dealt substantive due process cases involve restraining orders something approach dissent simultaneously thus unpersuasively contends certify question colorado post opinion stevens also defer tenth circuit certify question post party case requested certification even alternative disposition see tr oral arg petitioner counsel disfavor ing certification counsel arguing certification oral argument fact respondent counsel declined justice stevens invitation request appeals quoted one lawmaker description bill really attack domestic violence entire criminal justice system must act consistent manner occur police must make probable cause arrests prosecutors must prosecute every case judges must apply appropriate sentences probation officers must monitor probationers closely offender needs sentenced entire system must send message violence criminal hope house bill starts us road quoting tr colorado house judiciary hearings house bill emphases omitted rev stat lexis peace officer arresting person violating restraining order otherwise enforcing restraining order held civilly criminally liable unless acted bad faith malice violated rules adopted colorado respondent fact concedes officer may properly decide enforce restraining order officer deems technical violation immaterial justify arrest respondent explains determination probable cause brief respondent think however determination probable cause believe violation occurred quite different determination violation insignificant pursue respondent characterizes entitlement various ways see brief respondent receive protective services interest police enforcement action specific government benefit consisting government service enforcing objective terms order protecting children abusive husband restraining order mandated arrest gonzales specified circumstances minimum required use reasonable means enforce order see post entitlement police protection post entitlement mandatory individual protection local police force ibid right police assistance post citizen interest government commitment provide police enforcement certain defined circumstances post respondent property interest enforcement restraining order post service protection husband post interest enforcement restraining order dissent asserts police lack discretion execution warrant post cites statute mandating immediate execution general colorado statute governing arrest provides police may arrest possess warrant commanding arrest rev stat lexis dissent suggests interest restraining order enforced ascertainable monetary value one may contract private security firm provide protection one family post course precise analogy public private schooling dissent invokes post respondent probably hired private firm guard house prevent husband coming onto property perhaps even search husband discovered children missing alleged entitlement however consist abstract right protection according dissent enforcement restraining order arrest husband seeking warrant arrest gave police probable cause believe restraining order violated private person power arrest circumstances crime occurred presence rev stat lexis needless say private person power obtain arrest warrant contexts explained private citizen lacks judicially cognizable interest prosecution nonprosecution another linda richard simply address whether process adequate respondent property interest dissent correct note contest point post course accept either colorado general statutory immunity government employees apply act omission causing injury willful wanton rev stat lexis respondent complaint allege police officers actions taken either willfully recklessly gross negligence indicate wanton disregard deliberate indifference civil rights app pet cert state cases cited dissent afford cause action police failure enforce restraining orders post vindicate state statutory tort claims procedural due process claims federal constitution see donaldson seattle app city liable circumstances per se negligence failing meet statutory duty arrest matthews pickett county county liable tennessee governmental tort liability act restraining order created special duty campbell campbell super rejecting four specific defenses new jersey tort claims act negligence action individual officers sorichetti new york city breached duty care arising special relationship police victim nearing weaver statutory duty individual plaintiffs arising independently duty care footnotes claim protected liberty interest footnotes appeals also looked provisions statute inform analysis particular reasoned provision gave police officers qualified immunity connection enforcement restraining orders see rev stat lexis supported inference colorado legislature intended mandatory enforcement see en banc declines show deference odd reason view appeals draw upon deep well expertise ante rather examined statute text legislative history distinguished arguably relevant colorado case law see ante rationale makes mockery traditional practice precisely state law point presumption circuits local expertise plays useful role circuit resolution novel question state law grounded concededly complete review pertinent materials decision entitled deference additionally noted case appeals district disagreed relevant issue state law rather courts disagreed extent determination requires exercise discretion compare app pet cert district opinion see rule app proc colorado may answer questions law certified another federal questions may determinative cause appears certifying controlling precedent decisions colorado see city westminster dogan constr en banc interpreting ambiguous statute colorado consider legislative history consequences particular construction ibid also presume legislation intended reasonable effects must construe statutes accordingly apply ensure additionally possible colorado better access greater facility relevant pieces legislative history beyond us may also choose give certain evidence legislative intent greater weight customary see brief peggy kerns et al amici curiae support respondent bill sponsor explaining colorado general assembly intent passing domestic restraining order statute citing similar considerations second circuit certified questions state law connecticut faced procedural due process claim involving statute arguably mandated removal children upon probable cause child abuse see sealed sealed connecticut accepted certification held provision discretionary mandatory see teresa ragaglia correct take approach ante question decides issue colorado law case options favor deferring circuit interpretation barring certifying colorado recognize comparative expertise another tribunal questions state law options offer efficiencies contrast somewhat overconfident us approach lacks cogent justification fact neither party requested certification certainly sufficient reason dismissing option abstention considerations weigh favor certification comity constitutional avoidance judicial efficiency desire settle correctly recurring issue state law transcend interests individual litigants rendering imprudent cast gatekeepers procedure see elkins moreno certifying issue absent request parties aldrich aldrich per curiam see also wright miller cooper federal practice procedure ed ordinarily order certification motion see fuller stansberry legislature strengthens domestic violence protective orders lawyer colorado legislative session produced several significant domestic abuse bills strengthened civil criminal restraining order laws procedures victims domestic violence although many law enforcement jurisdictions already take proactive approach domestic violence arrest procedural policies vary greatly one jurisdiction another mandates arrest domestic violence perpetrators restraining order violaters repeals requirement protected parties show copy restraining order enforcing officers past failure provide copy restraining order led hesitation police enforce order fear illegal arrest new statute also shields arresting officers liability expected reduce concerns enforcing mandatory arrest requirements footnotes omitted see sack movement strengthen arrest policies bolstered publication results study mandatory arrest domestic violence cases conducted minneapolis study police handled randomly assigned domestic violence offenders using one three different responses arresting offender mediating dispute requiring offender leave house eight hours study concluded comparison two responses arrest significantly greater impact reducing domestic violence recidivism findings minneapolis study used attorney general report issued recommended among things arrest domestic violence cases standard law enforcement response footnotes omitted see also zorza criminal law misdemeanor domestic violence crim tracing history mandatory arrest laws noting first law implemented oregon see also brief international municipal lawyers association national league cities national sheriff association county sheriffs colorado amici curiae support petitioner colorado alone mandating arrest persons violate protective orders require arrest police officer probable cause believe orders violated collecting statutes see note mandatory arrest step toward eradicating domestic violence enough rev describing problems attend discretionary arrest regime even probable clause present police officers still frequently try calm parties act mediators three studies found arrest rate range decision arrest left police discretion another study found police made arrests cases victim visible injuries police officers often employ irrelevant criteria abuse severity victim injuries making decision arrest officers may feel strongly police interfere family arguments lovers quarrels attitudes make police much likely investigate intent provocation consider mitigating factors responding domestic violence calls types cases see also walsh mandatory arrest law police reaction pace rev cf sack mandatory arrest policies significantly increased number arrests batterers domestic violence crimes new york city time mandatory arrest policy instituted felony domestic violence arrests increased misdemeanor domestic violence arrests rose arrests violation orders protection footnotes omitted oregon noted widespread refusal failure police officers remove persons involved episodes domestic violence presented legislature main reason tightening law require enforcement restraining orders mandatory arrest custody nearing reading statute police officer probable cause mandated seek arrest warrant arrest impractical circumstances enjoys unfettered discretion deciding whether execute warrant ante unlikely reading given statute motivated profound distrust police discretion domestic violence context motivated desire improve protection given holders domestic restraining orders benefit authoritative construction colorado law think estranged husband harassed wife violation restraining order absconded called police statute obligate police seek arrest warrant also obligate execute making arrest event respondent allegations time police informed husband whereabouts arrest practical statute terms mandatory wonders paradigm applies cases offender present arrested ante questions scope obligation provide enforcement far afield key issue whether exists entitlement enforcement event speculations first case like donaldson seattle app restrained person violated order left scene husband violate restraining order coming within yards family home continued violate order abduction daughters persisted restraining order prohibited molest ing disturb ing peace daughters see appendix dissent scene violation wherever husband currently holding daughters case implicate question officer duties arrest person left scene longer violation restraining order second extent arresting husband initially impractical circumstances whereabouts unknown colorado statute unlike statutes expressly addressed situation required police seek arrest warrant third wrong suggest case falls outside core situation types statutes meant address one cases contributed passage statutes involved facts similar case see sorichetti new york city police officers police station essentially ignored mother pleas enforcement restraining order estranged husband made threats daughter hours later mother persisted pleas daughter found mutilated father attacked fork knife attempted saw leg note noting sorichetti development mandatory arrest statutes see also sack citing police failure respond domestic violence calls impetus behind mandatory arrest statutes singularly odd suppose passing sweeping omnibus domestic violence legislation colorado legislature mean require enforcement case abduction children violation restraining order order also stated violate order thinking party child named order given permission wrong arrested prosecuted terms order changed agreement party child ren change order appendix dissent concern pervades statute example statute provides peace officer may transport obtain transportation alleged victim shelter upon request protected person peace officer may also transport minor child protected person emancipated minor shelter find neither surprising telling cf ante statute requires restraining order contain capital letters bold print notice informing protected persons demand request respectively civil criminal contempt proceedings legislature may thought legal remedies popularly understood person right demand request police enforcement restraining order simply goes without saying given nature order language indeed holder restraining order read order emphatic language likely come quite shock learn right demand enforcement event violation suggest protected person right posit lacuna protected person rights officer duties result hard reconcile colorado legislature dual goals putting end police indifference empowering potential victims domestic abuse see also matthews pickett county order protection case issued public protection general order protection specifically identified matthews issued solely purpose protecting cf ezell cockrell statute prohibiting drunk driving specify individual undertakes protect public general intoxicated drivers sorichetti protective order evinces preincident legislative judicial determination holder accorded reasonable degree protection particular individual mistakenly relies town nursing center explaining means clear individual entitlement enforcement restraining order constitute interest purposes due process clause ante question essentially whether certain regulations provided residents entitlement continued residence home choice concluded regulations created entitlement suggestion congress create one wanted words address situation underlying law created entitlement nevertheless refused treat entitlement property interest within meaning due process clause analogy private security contract demonstrates person interest police enforcement ascertainable monetary value ante cf merrill landscape constitutional property rev remarking regard property interest recognized goss lopez parent contemplated sending children private schools knows public schooling monetary value analogy private security contract need precise useful point likely incorrect stating private security guards arrested husband circumstances see ante husband ongoing abduction daughters constitute knowing violation restraining order see supra therefore crime statute see private person scene aware circumstances abduction authority arrest see person peace officer may arrest another person crime committed arrested person presence person making arrest cases course never recognized requirement property interest possess ascertainable monetary value regardless assume respondent paid police arrest husband possible least entitlement monetary value sense according justice souter respondent asserted property interest merely process ante opinion concurring part concurring judgment rather substantive guarantee ibid misunderstands respondent claim putting aside inartful passage respondent brief justice souter relies upon ante clear respondent fact asserting substantive interest enforcement restraining order brief respondent enforcement restraining order tangible substantive act estranged husband violates restraining order abducting children police succeed enforcing order person holding restraining order undeniably received substantive benefit procedural due process cases respondent arguing police officers failed follow fair procedures ascertaining whether statutory criteria trigger obligation provide enforcement outstanding order plus probable cause violated satisfied case cf carey piphus discussing analytic difference denial fair process denial substantive benefit justice souter respondent makes mistake collapsing distinction property protected process protects ante justice souter also errs suggesting respondent property interest enforcement authorized instruct police refrain enforcement event violation ante right insist provision service separate right refuse service example compulsory attendance laws deny minors right refuse attend school nevertheless recognized minors property interest public education school officials must therefore follow fair procedures seek deprive minors valuable benefit suspension see goss end justice souter overlooks core purpose procedural due process ensuring citizen reasonable reliance frustrated arbitrary government action see logan zimmerman brush legislature may elect confer property interest may constitutionally authorize deprivation interest conferred without appropriate procedural safeguards see fuentes shevin hen person opportunity speak defense state must listen say substantively unfair simply mistaken deprivations property interests prevented emphasis added bell burson proposition hardly seems need explication hearing excludes consideration element essential decision whether licenses nature involved shall suspended meet standard due process goldberg kelly decisionmaker conclusion recipient eligibility must rest solely legal rules evidence adduced hearing cf ibid course impartial decision maker essential