Betty Wade v. Georgia Correctional Health, LLC
U.S. Court of Appeals for the Eleventh Circuit
Betty Wade v. Georgia Correctional Health, LLC
Opinion
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[PUBLISH]
In the
United States Court of Appeals
For the Eleventh Circuit
____________________
No. 21-14275
____________________
BETTY WADE,
in her capacity as Personal Representative of the Estate of David
Henegar,
Plaintiff-Appellant,
versus
CINDY MCDADE, et al.,
Defendants-Appellees.
____________________
Appeal from the United States District Court
for the Northern District of Georgia
D.C. Docket No. 4:18-cv-00192-AT
____________________
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2 Opinion of the Court 21-14275
Before WILLIAM PRYOR, Chief Judge, and WILSON, JORDAN,
ROSENBAUM, JILL PRYOR, NEWSOM, BRANCH, GRANT, LUCK, LAGOA,
BRASHER, ABUDU, and TJOFLAT,∗ Circuit Judges.
NEWSOM, Circuit Judge, delivered the opinion of the Court, in
which WILLIAM PRYOR, Chief Judge, WILSON, JORDAN, ROSENBAUM,
JILL PRYOR, BRANCH, GRANT, LUCK, LAGOA, BRASHER, ABUDU and
TJOFLAT, Circuit Judges, joined.
JORDAN, Circuit Judge, filed a concurring opinion, in which
ROSENBAUM, JILL PRYOR, and ABUDU, Circuit Judges, joined.
ROSENBAUM, Circuit Judge, filed a concurring opinion in which JILL
PRYOR and ABUDU, Circuit Judges, joined.
NEWSOM, Circuit Judge, filed a concurring opinion.
NEWSOM, Circuit Judge:
We granted rehearing en banc to resolve a question that,
while simply stated, has bedeviled panels of this Court for the bet-
ter part of the last three decades: “What is the standard for estab-
lishing liability on an Eighth Amendment deliberate-indifference
claim?” For reasons we’ll explain, we now hold, in accordance with
the Supreme Court’s decision in Farmer v. Brennan, that in addition
to an “objectively serious” deprivation, a deliberate-indifference
plaintiff must show that the defendant acted with “subjective
∗ Senior Circuit Judge Gerald B. Tjoflat elected to participate in this decision
pursuant to 28 U.S.C. § 46(c).
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21-14275 Opinion of the Court 3
recklessness as used in the criminal law,” 511 U.S. 825, 839 (1994),
and that in order to do so, the plaintiff must demonstrate that the
defendant actually knew that his conduct—his own acts or omis-
sions—put the plaintiff at substantial risk of serious harm. We add
the caveat, likewise prescribed by Farmer, that even if the defendant
“actually knew of a substantial risk to inmate health or safety,” he
cannot be found liable under the Cruel and Unusual Punishments
Clause if he “responded reasonably to th[at] risk.” Id. at 844.
I
Because we took this case en banc solely to clarify our incon-
sistent precedent and to answer a discrete question of law, and be-
cause we will remand for application of the Eighth Amendment
standard that we adopt, we needn’t belabor the particular facts of
this case. It will suffice for present purposes to say that over a four-
day period in August 2016, during his incarceration at Walker State
Prison in Georgia, an inmate named David Henegar failed to re-
ceive his daily seizure medication, Dilantin, which he had been pre-
scribed to treat epilepsy. Late on the fourth day, Henegar suffered
two seizures that he said caused him permanent brain damage. See
Wade v. McDade, 67 F.4th 1363, 1366–69 (11th Cir. 2023), vacated
and reh’g en banc granted, 83 F.4th 1332 (11th Cir. 2023).
Proceeding under 42 U.S.C. § 1983, Henegar sued five prison
employees—two corrections officers and three nurses—arguing
that by failing to ensure that he got his Dilantin they had exhibited
“deliberate indifference” to his medical needs in violation of the
Eighth Amendment. The district court granted summary
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4 Opinion of the Court 21-14275
judgment to all defendants on the ground that they were entitled
to qualified immunity. In particular, the court held that even if one
or more of the defendants had violated the Constitution, the law in
August 2016 was insufficiently “clearly established” to give them
fair notice of the unlawfulness of their conduct: “Assuming De-
fendants’ conduct here constituted deliberate indifference to a seri-
ous medical need in violation of Plaintiff’s Eighth Amendment
rights, Plaintiff has failed to point to any law applicable to the cir-
cumstances presented in this case that clearly established the al-
leged violation of Plaintiff’s rights.” Doc. 168 at 31.
Shortly after the district court rendered its decision, Henegar
died from causes unrelated to the seizures that he suffered while in
prison. Betty Wade—Henegar’s sister and the personal representa-
tive of his estate—assumed responsibility for his suit, and on appeal
she contended that the district court had erred in granting the de-
fendants summary judgment. A panel of this Court affirmed the
district court’s decision on the ground that Wade hadn’t shown
that the prison officials violated Henegar’s Eighth Amendment
rights, without reaching the question whether those rights were
sufficiently “clearly established” to defeat qualified immunity. See
Wade, 67 F.4th at 1374–78. Importantly for present purposes, in
the course of so doing, the panel noted a deep and entrenched in-
tracircuit split concerning one of the necessary elements of an in-
mate’s deliberate-indifference claim. In particular, the panel ob-
served that “[f]or more than 25 years now, our case law regarding
a deliberate-indifference claim’s mens rea element has been hope-
lessly confused, resulting in what we’ll charitably call a ‘mess.’” Id.
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at 1371. More particularly still, the panel explained that our deci-
sions had “flip-flop[ped] between two competing formulations”—
one requiring an inmate to show that a prison official acted with
“more than mere negligence,” and the other requiring proof that he
acted with “more than gross negligence.” Id. Applying its best un-
derstanding of the prior-panel-precedent rule, the panel held that a
deliberate-indifference plaintiff must demonstrate, among other
things, that the defendant “acted with more than gross negligence.”
Id. at 1374.
A majority of the active judges of this Court subsequently
voted to vacate the panel’s opinion and rehear the case en banc.
See Wade v. McDade, 83 F.4th 1332 (11th Cir. 2023). We instructed
the parties “not [to] concern themselves with the application of the
‘prior panel precedent rule’” and directed them instead to address
the following question of law: “What is the standard for establish-
ing liability on an Eighth Amendment deliberate-indifference
claim?”
Sitting as a full Court, we now answer that question.
II
In relevant part, the Eighth Amendment forbids the “in-
flict[ion]” of “cruel and unusual punishments.” U.S. Const. amend
VIII. The Supreme Court first held in Estelle v. Gamble that the
Cruel and Unusual Punishments Clause should be understood to
prohibit government officials from exhibiting “deliberate indiffer-
ence to [the] serious medical needs of prisoners.” 429 U.S. 97, 104–
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05 (1976). In Farmer v. Brennan, the Court later clarified that “a
prison official violates the Eighth Amendment only when two re-
quirements are met.” 511 U.S. 825, 834 (1994). As an initial matter,
the Court said, “the deprivation alleged must be, objectively, ‘suf-
ficiently serious.’” Id. (citation omitted). Separately, the Court ex-
plained, “[t]o violate the Cruel and Unusual Punishments Clause,
a prison official must have a ‘sufficiently culpable state of mind”—
i.e., “deliberate indifference.” Id. (citations omitted). All here agree
that Henegar’s unmedicated epilepsy presents an objectively seri-
ous medical need and, therefore, that Farmer’s first requirement is
satisfied. This case requires an assessment of Farmer’s second, “de-
liberate indifference” requirement.
For decades, our own precedent has been marred by internal
inconsistency regarding the showing that a prison inmate must
make to demonstrate that prison officials were deliberately indif-
ferent in violation of the Eighth Amendment. We have typically
subdivided Farmer’s deliberate-indifference requirement into three
sub-requirements. First, we have said, the inmate must prove that
the official was subjectively aware that the inmate was at risk of
serious harm. See, e.g., Hoffer v. Sec’y, Fla. Dep’t of Corr., 973 F.3d
1263, 1270 (11th Cir. 2020). Second, we have held that the inmate
must show that the official disregarded that risk. See, e.g., id. And
third—enter the dissonance—we have said that the inmate must
demonstrate that the official acted with more than some requisite
level of negligence. With respect to this third sub-requirement, our
precedent reflects a persistent split between cases holding that the
inmate must prove that the official’s conduct reflected “more than
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mere negligence” and those holding that the inmate must demon-
strate that the official acted with “more than gross negligence.” See
Wade, 67 F.4th at 1371.
In light of the intracircuit split, we granted rehearing en banc
to clarify “the standard for establishing liability on an Eighth
Amendment deliberate-indifference claim.” Having reconsidered
the issue, we now repudiate our dueling “more than” formulations
and hold instead that a deliberate-indifference plaintiff must prove
that the defendant acted with “subjective recklessness as used in
the criminal law,” Farmer, 511 U.S. at 839, and that in order to do
so, the plaintiff must show that the defendant was subjectively
aware that his own conduct put the plaintiff at substantial risk of
serious harm—with the caveat that, in any event, a defendant who
“respond[s] reasonably” to a risk, id. at 844, even a known risk,
“cannot be found liable” under the Eighth Amendment, id. at 837.
A
We lost our way—and bollixed our caselaw—by straying
from Farmer, so we begin with a detailed review of the Supreme
Court’s decision there. It was in Farmer that the Court first set out
to explain the “deliberate indifference” standard that it had earlier
adopted in Estelle. The Court held that even if the Eighth Amend-
ment was originally understood to apply only to “punishments”
imposed as part of a criminal conviction and sentence, the caselaw
had since “settled that the treatment a prisoner receives in prison
and the conditions under which he is confined are subject to scru-
tiny under” that provision. Id. at 832 (quotation marks omitted).
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The Court clarified, however, that not every injury suffered by an
inmate at the hands of his jailors violates the Constitution. Rather,
the Court said, “a prison official violates the Eighth Amendment
only when two requirements are met.” Id. at 834. To satisfy the
first, the Court explained, the inmate must establish that the depri-
vation he allegedly suffered was “objectively, ‘sufficiently serious.’”
Id.(quoting Wilson v. Seiter,501 U.S. 294, 298
(1991)). “The second
requirement,” the Court emphasized, “follows from the principle
that ‘only the unnecessary and wanton infliction of pain implicates
the Eighth Amendment.’” Id.(quoting Wilson,501 U.S. at 297
).
Focusing its attention on this second requirement, the Farmer
Court held that “[t]o violate the Cruel and Unusual Punishments
Clause, a prison official must have a ‘sufficiently culpable state of
mind”—namely, it said, “‘deliberate indifference.’” Id. (citation
and internal quotation marks omitted). Accordingly, the Court
clarified, “[t]he question under the Eighth Amendment is whether
prison officials, acting with deliberate indifference, exposed a pris-
oner to a sufficiently substantial ‘risk of serious damage to his fu-
ture health.’” Id. at 843 (citation omitted).
Importantly for our purposes, the Farmer Court then “un-
dert[ook] to define” the “proper test for deliberate indifference.”
Id. at 834. The Court began by observing that, on the one hand,
“deliberate indifference describes a state of mind more blamewor-
thy than negligence” but, on the other, “is satisfied by something
less than acts or omissions for the very purpose of causing harm or
with knowledge that harm will result.” Id. at 835. The Court noted
that “[w]ith deliberate indifference lying somewhere between the
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poles of negligence at one end and purpose or knowledge at the
other,” the lower courts had “routinely equated deliberate indiffer-
ence with recklessness.” Id. at 836. That was correct as far as it
went, the Farmer Court said, but it didn’t “fully answer the . . . ques-
tion about the level of culpability deliberate indifference entails”
because, the Court explained, “the term recklessness is not self-de-
fining.” Id. The “civil law generally calls a person reckless who
acts or (if the person has a duty to act) fails to act in the face of an
unjustifiably high risk of harm that is either known or so obvious that
it should be known.” Id. (emphasis added). By contrast, the “crimi-
nal law . . . generally permits a finding of recklessness only when a
person disregards a risk of harm of which he is aware.” Id. at 836–37
(emphasis added).
The Farmer Court expressly “reject[ed] . . . [the] invitation to
adopt an objective test for deliberate indifference” of the sort em-
ployed in the civil law and held instead that the Eighth Amendment
requires proof of “subjective recklessness as used in the criminal
law.” Id. at 837, 839. A subjective-recklessness standard, the Court
repeatedly emphasized, “comports best with the text of the
Amendment as our cases have interpreted it.” Id. at 837. In partic-
ular, the Court said, “[t]he Eighth Amendment does not outlaw
cruel and unusual ‘conditions’; it outlaws cruel and unusual ‘pun-
ishments.’” Id. “[A]n official’s failure to alleviate a significant risk
that he should have perceived but did not, while no cause for com-
mendation, cannot under our cases be condemned as the infliction
of punishment.” Id. at 838. “[A] subjective approach,” the Court
stressed, “isolates those who inflict punishment,” and thus
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“ensure[s] that only inflictions of punishment carry liability.” Id. at
839, 841.
Having settled on and explained the subjective-recklessness
standard, the Farmer Court then appended a coda of sorts: Even a
“prison official[] who actually knew of a substantial risk to inmate
health or safety may be found free of liability if [he] responded rea-
sonably to the risk, even if the harm ultimately was not averted.”
Id. at 844. Put slightly differently, a “prison official[] who act[s] rea-
sonably cannot be found liable under the Cruel and Unusual Pun-
ishments Clause.” Id. at 845.
B
Helpfully, the parties here agree on several key points. First,
they agree that Farmer adopted a criminal-recklessness standard,
which requires the plaintiff inmate to prove that the defendant
prison official actually knew of a substantial risk of serious harm, not
just that he should have known. See, e.g., Br. of Appellant at 12 (ob-
serving that Farmer prescribes a “criminal recklessness standard”);
Br. of Appellee 2 (“criminal recklessness”); Reply Br. of Appellant
at 2 (“The parties agree . . . [that] the standard to prove deliberate
indifference is criminal recklessness.”). Second, and relatedly, the
parties agree that we should scrap our confusing negligence-based
formulations—whether “more than mere” or “more than gross”—
in favor of a return to Farmer’s criminal-recklessness benchmark.
See, e.g., Br. of Appellant at 26–32; Br. of Appellee at 2, 19, 32. Fi-
nally, they agree that even if a prison official had the requisite sub-
jective awareness of the risk to the inmate, he cannot be held liable
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under the Eighth Amendment if he responded reasonably to that
risk. See, e.g., Br. of Appellant at 26; Br. of Appellee at 34–36.
The parties’ key disagreement pertains to the identification
of the “risk” of which the prison officials must have been subjec-
tively aware. Is it sufficient, as Wade contends, that the official
knew that the inmate faced a substantial risk of serious harm, what-
ever its cause or origin? Or, as the state insists, must the inmate
show instead that the official knew that his own conduct—his own
acts or omissions—caused a substantial risk of serious harm to the
inmate?
Wade maintains that she need only show here that the
prison officials knew “that Mr. Henegar faced a substantial risk of
serious harm because he was not receiving his seizure medication”
and then failed to take reasonable steps to secure it for him. Br. of
Appellant at 37; accord, e.g., Reply Br. of Appellant at 5 (arguing that
a prison official need only “be aware that the inmate was not re-
ceiving medication necessary to manage [a] medical condition”).
So, for instance, Wade asserts that it is enough that the corrections
officers were “aware that Mr. Henegar’s Dilantin was missing” and,
similarly, that two of the nurses “were aware that Mr. Henegar was
not receiving his medication.” Br. of Appellant at 38, 40; see also,
e.g., id. at 41 (asserting that two nurses “were aware of the missing
medication”).
For its part, the state insists that Wade’s position “analyzes
the subjective awareness of a serious risk of harm at far too high a
level of generality.” Br. of Appellee at 23. “A generalized
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awareness of a medical need,” the state contends, “is not enough.”
Id. at 19. Rather, the state says, “to make out a deliberate indiffer-
ence claim” under Farmer’s criminal-recklessness standard,” the
“risk of which an official must be subjectively aware is a risk based
on his own action or inaction.” Id. at 20 (second emphasis added);
id. at 30 (“[A] general awareness of a problem is not sufficient—
there needs to be a specific awareness that the problem requires the
officer’s action.”). Accordingly, the state contends, in a case like
this one, which alleges that various prison officials neglected to do
something, Farmer requires proof that the “prison official [was] sub-
jectively aware . . . that his inaction will cause an excessive risk of
harm.” Id. at 2 (emphasis added); accord, e.g., id. at 4 (“[A]n official
must know that by failing to perform some act, he or she is putting
the inmate at a substantial risk of serious harm.” (emphasis added));
id. at 6 (“The question is whether an official knows that his specific
decision not to act will cause or maintain an exceedingly high risk of
injury.” (second emphasis added)).
For several reasons that we’ll explain in turn, we hold that a
deliberate-indifference plaintiff must show that the defendant offi-
cial was subjectively aware that his own conduct—again, his own
actions or inactions—put the plaintiff at substantial risk of serious
harm.
1
The first and most important reason for requiring a deliber-
ate-indifference plaintiff to show that the defendant subjectively
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knew that his own conduct caused a substantial risk of serious
harm is that Farmer is best understood to adopt that rule.
The suit there was brought by a male-to-female transgender
inmate complaining about the dangers posed by the inmate’s place-
ment in the general population of a men’s prison. See 511 U.S. at
829–30. The Supreme Court summarized the inmate’s operative
complaint as follows: “[R]espondents either transferred petitioner
to [a different prison,] USP-Terre Haute or placed petitioner in its
general population despite knowledge that the penitentiary had a
violent environment and a history of inmate assaults, and despite
knowledge that petitioner, as a transsexual who ‘projects feminine
characteristics,’ would be particularly vulnerable to sexual attack
by some USP-Terre Haute inmates.” Id. at 830–31; see also id. at
849 (reciting the plaintiff’s contention that “each defendant showed
reckless disregard for my safety by designating me to said institu-
tion knowing that I would be sexually assaulted”). Significantly,
the inmate’s allegations—and thus the Court’s decision concerning
those allegations—were trained not just on the risks of violence
and assault that exist in a prison’s general population, but rather on
the risks that the prison officials created by placing the inmate in a
particular prison’s general population.
Against the backdrop of the inmate’s allegations, it’s unsur-
prising that, on balance, the Farmer Court couched its analysis in
terms of an assessment of the prison officials’ subjective awareness
of the particular risk posed by their own conduct. True, the
Court’s opinion at times refers generically to the risk that an inmate
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“face[s].” Id. at 843, 847. Notably, though, the Court framed “[t]he
question under the Eighth Amendment” more precisely:
“[W]hether prison officials, acting with deliberate indifference, ex-
posed a prisoner to a sufficiently substantial ‘risk of serious damage
to his future health.’” Id. at 843 (emphasis added) (citation omit-
ted). Other passages of the Court’s opinion likewise emphasize the
inextricable link between a prison official’s conduct and his
knowledge of the risk created thereby. See, e.g., id. at 842 (“Under
the test we adopt today, an Eighth Amendment claimant [must]
show . . . that the official acted or failed to act despite his
knowledge of a substantial risk of serious harm.”); id. at 845 (“[T]he
subjective factor, deliberate indifference, should be determined in
light of the prison authorities’ current attitudes and conduct.” (ci-
tation omitted)). The Court’s focus, it seems to us, was on whether
the official knew that his own conduct—again, his own acts or
omissions—put the inmate at risk, not just whether the inmate
confronted a risk in the abstract. Cf. Cox v. Quinn, 828 F.3d 227, 236
(4th Cir. 2016) (interpreting Farmer to require proof that “in addi-
tion to subjectively recognizing [the] substantial risk, the prison of-
ficial must also subjectively be aware that his actions were inappro-
priate in light of that risk” (citations and internal quotation marks
omitted)).
Any doubt about Farmer’s import, we think, is resolved by
the Supreme Court’s persistent emphasis on the language of the
Eighth Amendment and the strictures that its terms impose. The
Cruel and Unusual Punishments Clause, of course, regulates only
the “inflict[ion]” of “punishment,” U.S. Const. amend. VIII, and the
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Court repeatedly stressed the limited scope of the text’s prohibi-
tion, see, e.g., 511 U.S. at 837–39, 841, 844. So, for instance, as al-
ready noted, the Court observed that “[t]he Eighth Amendment
does not outlaw cruel and unusual ‘conditions’” but only “cruel
and unusual ‘punishments,’” id. at 837, and, to that end, stressed
that the governing liability standard should “ensure[] that only in-
flictions of punishment carry liability.” Id. at 841; accord, e.g., Wil-
son, 501 U.S. at 300) (“The infliction of punishment is a deliberate
act intended to chastise or deter. This is what the word means to-
day; it is what it meant in the eighteenth century.” (citation and
internal quotation marks omitted)). Indeed, the Court emphasized
that the whole point of adopting a “subjective approach” to deliber-
ate indifference—which, underscoring a defendant’s individual cul-
pability, it imported from the criminal law—was to “isolate[] those
who inflict punishment” within the meaning of the Eighth Amend-
ment. Farmer, 511 U.S. at 839. Absent a particularized focus on a
prison official’s subjective awareness of the risk created by his own
conduct, there is a danger that he could be held liable for conduct
that does not remotely resemble the “inflict[ion]” of “punish-
ment[.]”
2
Separately, only a rule trained on a prison official’s subjec-
tive awareness of the risk caused by his own conduct—rather than
some preexisting risk—can account for, and sensibly apply to, the
full range of deliberate-indifference cases.
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Needless to say, there’s only one Eighth Amendment, and
only one deliberate-indifference standard. But deliberate-indiffer-
ence claims come in different varieties. Some, like this one, give
rise to what might be called “inaction” cases—they challenge
prison officials’ failure to do something. So, for instance, Wade’s
principal allegation is that the guards and nurses at Walker exhib-
ited deliberate indifference to Henegar’s medical needs when,
knowing that he suffered from epilepsy, they neglected to ensure
that he received his Dilantin, and thus “failed to provide him any
proper medical care or access to medical care.” Doc. 129 at 22. 1
Other deliberate-indifference claims, by contrast, give rise to what
we’ll call “action” cases—they target prison officials’ affirmative
misconduct. Imagine, for instance, a guard who, fed up with an
inmate’s noncompliance, fires his gun toward the ceiling, only to
have the bullet ricochet off a pipe and kill another prisoner. Or a
warden who requires inmates to clean the prison yard in subzero
temperatures, resulting in an otherwise-healthy prisoner’s sickness
and eventual death. Or an official who orders an inmate to clean a
latrine with a mixture of bleach and ammonia, which causes per-
manent respiratory damage. Cf. Hope v. Pelzer, 536 U.S. 730, 738
(2002) (holding that prison guards acted with deliberate
1 Pure “inaction” cases—in which a deliberate-indifference defendant is alleged
to have done literally nothing—will likely be few and far between, and indeed,
Wade at times frames her own case in “action” terms. See, e.g., Oral Arg. at
7:43 et seq. (arguing that the prison officials here “decided to take an action” in
response to Henegar’s condition but faulting that action as constitutionally in-
adequate).
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indifference when they handcuffed an inmate to a “hitching post”
and thereby “knowingly subjected him to a substantial risk of phys-
ical harm”); Taylor v. Rojas, 592 U.S. 7, 7–10 (2020) (holding that
guards exhibited deliberate indifference toward an inmate’s health
and safety when they “confined him in a pair of shockingly unsan-
itary cells”).
In a case that, like this one, can be framed in “inaction”
terms, it’s tempting to focus, as Wade does, on some preexisting
risk that the inmate plaintiff faced, without regard to its origin or
cause—here, for instance, the risk of epileptic seizure. Wade’s po-
sition, though, misses two important nuances. For starters, even
in a so-called “inaction” case, the relevant “risk” will rarely, if ever,
exist in a vacuum; it will almost always result from something a
prison official either does or doesn’t do. To use this case as an ex-
ample, all seem to agree that the substantial risk to Henegar’s
health resulted not from epilepsy itself, but rather from the fact that
his epilepsy went untreated. 2 And according to the allegations here,
Henegar’s epilepsy went untreated because the prison officials at
Walker failed to procure his Dilantin—that is, because the officials
misstepped. So even here, where the deliberate-indifference claim
2 See, e.g., Oral Arg. at 2:15 et seq. (Wade: “Petitioner here is not arguing for a
standard in which a prison official could be liable if he is simply aware that an
inmate has a medical condition; there’s not necessarily a risk there. The risk
attaches when an inmate who has a medical condition is uncontrolled—it’s
the lack of medication, it’s the lack of care, that creates the risk.”).
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can be cast in “inaction” terms, the relevant risk is inextricably tied
to the defendants’ own conduct.
More fundamentally, Wade’s focus on preexisting risk can’t
possibly apply to “action”-based deliberate-indifference cases. In
those, the reviewing court must assess the defendant’s knowledge
by reference to the risk created by his own conduct—for the simple
(and obvious) reason that there was no preexisting risk of which a
prison official might have been subjectively aware; by definition,
the risk didn’t materialize until the official acted. And that’s a prob-
lem for Wade’s proposed rule. In view of the fact that the same
Cruel and Unusual Punishments Clause provides the source of con-
stitutional protection in both the “action” and “inaction” contexts,
the Farmer Court repeatedly observed that the deliberate-indiffer-
ence standard applies similarly in both kinds of cases. See 511 U.S.
at 836 (“acting or failing to act”), 837 (“act or omission”), 842
(“acted or failed to act”). Accordingly, if the deliberate-indifference
inquiry in an “action” case necessarily focuses on the official’s sub-
jective awareness of the risk created by his own conduct, as it most
certainly does, it follows that the inquiry must retain the same fo-
cus even in cases, like this one, that can be framed in “inaction”
terms.
3
The capper, it seems to us, is that focusing on a prison offi-
cial’s subjective awareness of the risk posed by his own conduct—
rather than more vaguely on some allegedly preexisting risk—best
squares with how courts and commentators have historically
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21-14275 Opinion of the Court 19
understood and explained criminal recklessness, even outside the
Eighth Amendment context. A leading criminal-law treatise, for
instance, reports that “‘[r]ecklessness’ in causing a result exists
when one is aware that his conduct might cause the result, though it
is not substantially certain to happen.” Wayne LaFave, Substantive
Criminal Law § 5.4(f), at 507 (2018) (emphasis added). The Supreme
Court has likewise underscored that criminal recklessness denotes
a state of mind marked by one’s subjective awareness of a risk that
results from his own conduct. In Voisine v. United States, for in-
stance, the Court described “reckless behavior” as comprising “acts
undertaken with awareness of their substantial risk of causing injury”
and explained that one acts “recklessly” when he consciously disre-
gards “a substantial risk that [his] conduct will cause harm to another.”
579 U.S. 686, 691, 694 (2016) (emphasis added). So too, in her re-
cent plurality opinion in Borden v. United States, Justice Kagan ex-
plained that “[a] person acts recklessly, in the most common for-
mulation, when he ‘consciously disregards a substantial and unjus-
tifiable risk’ attached to his conduct, in ‘gross deviation’ from ac-
cepted standards.” 593 U.S. 420, 427 (2021) (emphasis added) (cita-
tion omitted); accord, e.g., Counterman v. Colorado, 600 U.S. 66, 79
(2023) (similar); cf. U.S.S.G. § 2A1.4 cmt. 1 (defining the term “reck-
less” as “a situation in which the defendant was aware of the risk
created by his conduct and the risk was of such a nature and degree
that to disregard that risk constituted a gross deviation from the
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20 Opinion of the Court 21-14275
standard of care that a reasonable person would exercise in such a
situation” (emphasis added)). 3
* * *
For all these reasons, we hold that in order to show that a
defendant acted with “subjective recklessness as used in the crimi-
nal law,” Farmer, 511 U.S. at 839, a deliberate-indifference plaintiff
must demonstrate that the defendant was actually aware that his
own conduct caused a substantial risk of serious harm to the plain-
tiff.
III
So, in sum, to the question we posed to the parties, “What
is the standard for establishing liability on an Eighth Amendment
deliberate-indifference claim?”, we answer as follows:
3 For that matter, even civil recklessness—which, unlike criminal recklessness,
entails an objective “should have known” gloss—focuses on the defendant’s
awareness of the risk posed by his own conduct:
The actor’s conduct is in reckless disregard of the safety of an-
other if he does an act or intentionally fails to do an act which
it is his duty to the other to do, knowing or having reason to
know of facts which would lead a reasonable man to realize,
not only that his conduct creates an unreasonable risk of physical
harm to another, but also that such risk is substantially greater
than that which is necessary to make his conduct negligent.
Safeco Ins. Co. of Am. v. Burr, 551 U.S. 47, 69 (2007) (quoting Restatement (Sec-
ond) of Torts § 500 (1964)) (emphasis added).
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21-14275 Opinion of the Court 21
1. First, of course, the plaintiff must demonstrate, as a
threshold matter, that he suffered a deprivation that was, “objec-
tively, ‘sufficiently serious.’” Id. at 834 (citation omitted).
2. Second, the plaintiff must demonstrate that the defendant
acted with “subjective recklessness as used in the criminal law,” id.
at 839, and to do so he must show that the defendant was actually,
subjectively aware that his own conduct caused a substantial risk
of serious harm to the plaintiff—with the caveat, again, that even
if the defendant “actually knew of a substantial risk to inmate
health or safety,” he “cannot be found liable under the Cruel and
Unusual Punishments Clause” if he “responded reasonably to the
risk.” Id. at 844–45.
We remand to the panel for application of this standard to
the facts of this case.
REMANDED.
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21-14275 JORDAN, J., Concurring 1
JORDAN, Circuit Judge, joined by ROSENBAUM, JILL PRYOR, and
ABUDU, Circuit Judges, Concurring.
Judge Newsom’s opinion for the en banc court correctly sets
out the subjective component of the deliberate indifference stand-
ard announced by the Supreme Court in Farmer v. Brennan, 511 U.S.
825 (1994), and goes some way in bringing clarity to our Eighth
Amendment jurisprudence. I therefore join the opinion.
I write separately on four matters. Three are doctrinal and
the fourth is practical.
First, our decision today does not make deliberate indiffer-
ence completely subjective on the defendant’s part. As the court
explains, “a plaintiff must demonstrate that the defendant acted
with ‘subjective recklessness as used in the criminal law,’ [Farmer,
511 U.S.] at 839, and to do so he must show that the defendant was
actually, subjectively aware that his own conduct caused a substan-
tial risk of serious harm to the plaintiff—with the caveat, again, that
even if the defendant ‘actually knew of a substantial risk to inmate
health or safety,’ he ‘cannot be found liable under the Cruel and
Unusual Punishments Clause’ if he ‘responded reasonably to the risk.’
Id. at 845–46.” Maj. Op. at 21 (emphasis added).
We have held that the reasonable response component of
deliberate indifference is objective and not subjective: “Deliberate
indifference ‘has two components: one subjective and one objec-
tive. [A] plaintiff must show both that the defendant actually (sub-
jectively) kn[ew] that an inmate [faced] a substantial risk of serious
harm and that the defendant disregard[ed] that known risk by
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2 JORDAN, J., Concurring 21-14275
failing to respond to it in an (objectively) reasonable manner.’”
Mosley v. Zachary, 966 F.3d 1265, 1270 (11th Cir. 2020) (citation
omitted). And we have consistently recognized and confirmed this
duality over the last two decades. See Bowen v. Warden, Baldwin
State Prison, 866 F.3d 1312, 1320 (11th Cir. 2016); Caldwell v. War-
den, FCI Talladega, 748 F.3d 1090, 1099 (11th Cir. 2014); Rodriguez v.
Sec’y, Dep’t of Corr., 508 F.3d 611, 617 (11th Cir. 2007); Cottone v.
Jenne, 326 F.3d 1352, 1358 (11th Cir. 2003).
The objective component makes sense, for it is part of crim-
inal recklessness, the standard the Supreme Court adopted in
Farmer. See, e.g., Model Penal Code § 2.02(2)(c) (Am. Law Inst.
1985) (“A person acts recklessly with respect to a material element
of an offense when he consciously disregards a substantial and un-
justifiable risk that the material element exists or will result from
his conduct. The risk must be of such a nature and degree that,
considering the nature and purpose of the actor’s conduct and the
circumstances known to him, its disregard involves a gross deviation
from the standard of conduct that a law-abiding person would observe in
the actor’s situation.”) (emphasis added); Nelson E. Roth & Scott E.
Sundby, The Felony-Murder Rule: A Doctrine at Constitutional Cross-
roads, 70 Cornell L. J. 446, 453 n.40 (1985) (“Reckless behavior un-
der the Model Penal Code involves both subjective and objective
elements. The actor must ‘consciously disregard . . . a substantial
and unjustifiable risk,’ and such disregard must constitute a ‘gross
deviation from the standard of conduct that a law-abiding person
would observe in the actor’s situation.’”) (quoting § 2.02(c) of the
Model Penal Code). Moreover, in other constitutional scenarios
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21-14275 JORDAN, J., Concurring 3
reasonableness is generally an objective assessment. See, e.g., Ash-
croft v. al-Kidd, 563 U.S. 731, 736 (2011) (“Fourth Amendment rea-
sonableness ‘is predominately an objective inquiry.’”) (citation
omitted). Today’s opinion focuses on the subjective component of
deliberate indifference, but does not address the objective compo-
nent.
Second, a defendant’s subjective knowledge need not be es-
tablished by direct evidence or admissions. As with knowledge in
other areas of the law, subjective awareness of a substantial risk of
harm can be proven (or an issue of material fact created) through
circumstantial evidence. See, e.g., Regalado Cuellar v. United States,
553 U.S. 550, 567 n.8 (2008) (“In many cases, a criminal defend-
ant’s knowledge or purpose is not established by direct evidence
but instead is shown circumstantially based on inferences drawn
from evidence of effect. See, e.g., 1 W. LaFave, Substantive Criminal
Law § 5.2(a), p. 341 (2d ed. 2003). Specifically, where the conse-
quences of an action are commonly known, a trier of fact will often
infer that the person taking the action knew what the consequences
would be and acted with the purpose of bringing them about.”).
Farmer itself makes this very point when discussing deliberate in-
difference under the Eighth Amendment:
Whether a prison official had the requisite knowledge
of a substantial risk is a question of fact subject to
demonstration in the usual ways, including inference
from circumstantial evidence, and a factfinder may
conclude that a prison official knew of a substantial
risk from the very fact that the risk was obvious. Cf.
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4 JORDAN, J., Concurring 21-14275
[1 W.] LaFave & [A.] Scott, [Substantive Criminal
Law] § 3.7, p. 335 [(1996)] (“[I]f the risk is obvious, so
that a reasonable man would realize it, we might well
infer that [the defendant] did in fact realize it; but the
inference cannot be conclusive, for we know that peo-
ple are not always conscious of what reasonable peo-
ple would be conscious of ”). For example, if an
Eighth Amendment plaintiff presents evidence show-
ing that a substantial risk of inmate attacks was
“longstanding, pervasive, well-documented, or ex-
pressly noted by prison officials in the past, and the
circumstances suggest that the defendant-official be-
ing sued had been exposed to information concerning
the risk and thus ‘must have known’ about it, then
such evidence could be sufficient to permit a trier of
fact to find that the defendant-official had actual
knowledge of the risk.”
511 U.S. at 842–43 (some internal citations omitted).
Especially on summary judgment, where we must construe
the evidence in the light most favorable to the nonmoving party
and draw all reasonable inferences in her favor, see Marbury v. War-
den, 936 F.3d 1227, 1232 (11th Cir. 2019), circumstantial evidence of
the obviousness of the risk can create an issue of fact and/or sup-
port a decision in the plaintiff’s favor. See, e.g., Brown v. Hughes, 894
F.2d 1533, 1538–39 (11th Cir. 1990) (finding that a genuine issue of
material fact precluded summary judgment when the plaintiff
claimed that the prison official was present when his foot began to
“swell severely” the plaintiff told the official that “his foot felt as
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21-14275 JORDAN, J., Concurring 5
though it were broken,” and the official never called for medical
help); Goebert v. Lee Cnty., 510 F.3d 1312, 1328–29 (11th Cir. 2007)
(holding that a reasonable jury could conclude that a prison captain
was deliberately indifferent in failing to respond to an inmate for a
week, where the inmate complained that she was leaking amniotic
fluid and that she had miscarried in a similar way before). Moreo-
ver, because we cannot make credibility determinations or weigh
the evidence at summary judgment, see Baker v. Upson Regional Med-
ical Center, 94 F.4th 1312, 1317 (11th Cir. 2024), testimony by a de-
fendant that he was unaware of the plaintiff’s medical condition or
of the risk created by his own inaction does not warrant summary
judgment his favor when that testimony is rebutted by evidence
that the condition and associated risk of inaction were apparent.
See, e.g., Brown, 894 F.2d at 1538–39 (finding that a genuine issue of
material fact precluded summary judgment on the issue of defend-
ant’s subjective awareness, even when the defendant denied seeing
the inmate’s broken foot or being told that his foot was broken);
Goebert, 510 F.3d at 1328–29 (finding that a genuine issue of mate-
rial fact precluded summary judgment on the issue of defendant’s
subjective awareness, despite the defendant’s stated belief that the
inmate was lying).
Third, today’s opinion does not concern the Eighth Amend-
ment deliberate indifference standard for municipalities under Mo-
nell v. Department of Social Services of the City of New York, 436 U.S.
638(1978), and City of Canton v. Harris,489 U.S. 378
(1989). Farmer
set out the deliberate indifference standard for individuals who are
sued for Eighth Amendment violations, and today’s opinion does
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6 JORDAN, J., Concurring 21-14275
the same. In setting out the standard for individuals, the Supreme
Court in Farmer explained that the deliberate indifference standard
for municipal liability is objective, and then rejected the use of that
standard for individuals. See Farmer, 511 U.S. at 841 (“It would be
hard to describe the Canton understanding of deliberate indiffer-
ence, permitting liability to be premised on obviousness or con-
structive notice, as anything but objective. Canton’s objective
standard, however, is not an appropriate test for determining the
liability of prison officials under the Eighth Amendment as inter-
preted in our cases.”).
Our cases view the Eighth Amendment deliberate indiffer-
ence standard for municipalities as objective. See, e.g., Young v. City
of Augusta, 59 F.3d 1160, 1172 (11th Cir. 1995) (alleged denial of
medical care for inmate with mental illness: “Before it may be said
that a municipality has made a deliberate choice among alternative
courses of action, its policymakers must have had ‘actual or con-
structive notice that the particular omission is substantially certain
to result in the violation of the constitutional rights of their citi-
zens.’” (emphasis added) (citing Canton, 489 U.S. at 396 (O’Connor,
J., concurring in part and dissenting in part), which was in turn
cited with approval in Farmer, 511 U.S. at 841). And so do commen-
tators. See 1 Sheldon H. Nahmod, Civil Rights and Civil Liberties
Litigation § 3:32 (2023–24 edition) (“The Farmer Court’s emphasis
on the essentially subjective nature of deliberate indifference in a
prison setting with respect to individual liability bears repeating,
especially since the Court sharply distinguished it from what it
termed the objective nature of the deliberate indifference inquiry
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21-14275 JORDAN, J., Concurring 7
in a local government failure to train context where the focus, pur-
suant to City of Canton v. Harris, is on the state of mind of a govern-
mental entity. According to the Court, the City of Canton inquiry
into deliberate indifference focuses on liability based on obvious-
ness or constructive notice.”) (emphasis in original and footnote
omitted); Barbara Kritchevsky, A Return to Owen: Depersonalizing
Section 1983 Municipal Liability Litigation, 41 Vill. L. Rev. 1381, 1436
(1996) (“Farmer categorizes Canton’s deliberate indifference stand-
ard as objective� � � � � �
Fourth, there remains an important practical point. What is
one to do with our post-Farmer cases using the “more than mere
negligence”/“more than gross negligence” formulations that we
now discard? Despite today’s opinion, district courts and attorneys
will, out of necessity, continue to turn for guidance to our deliber-
ate indifference cases from the last 30 years. They will not be able
to pretend that Eleventh Circuit jurisprudence constituted a vast
Eighth Amendment lacuna during that period. For example, they
will look to earlier cases to try to figure out whether a right was
clearly established for purposes of qualified immunity. My sugges-
tion, for whatever it might be worth, is that courts and attorneys
look carefully at prior Eleventh Circuit cases to see if they are con-
sistent with the subjective component of deliberate indifference set
out in Farmer. If they are consistent, then they should continue to
be cited as binding precedent. If they are not, then they probably
have been abrogated to at least some degree by today’s decision.
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21-14275 ROSENBAUM, J., Concurring 1
ROSENBAUM, Circuit Judge, joined by JILL PRYOR, and ABUDU, Cir-
cuit Judges, Concurring:
A state eliminates all expenditures for prisoners’ medical
care—not to punish the prisoners but instead simply to use the
money for something else. As a result, a father in prison dies of
rheumatic fever, brought on by an untreated strep throat he caught
from another prisoner. A mother who’s not up to date on her vac-
cinations dies from tetanus after cutting herself on a rusty piece of
metal in the prison. And an eighteen-year-old kid dies of MRSA he
picked up in his cell. Of course, the state recognized when it erad-
icated the prison medical budget that, because of its actions, at least
some prisoners were likely to needlessly die or suffer life-changing
illnesses and conditions. But it never intended to punish prisoners
by eliminating medical treatment.
The Newsom Concurrence’s interpretation of the Eighth
Amendment allows all of this because the state didn’t intend to
punish prisoners when it eradicated medical care. See Newsom
Concurrence.
That’s just wrong. It fails to account for two independent
aspects of the Eighth Amendment’s text.
First, the Newsom Concurrence does not fully reckon with
the nature of “punishment.” Prison, for instance, is not some ab-
stract idea—it necessarily comes with a set of living conditions.
And so it is pure sophistry to divorce, at the very least, any life-
threatening or human-rights-threatening aspects of those living
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2 ROSENBAUM, J., Concurring 21-14275
conditions from the punishment of “prison” if the state knows of
those conditions when it requires a person to stay in a prison.
And second, the Newsom Concurrence reads “cruel and un-
usual” out of the Eighth Amendment. After all, even a punishment
that is not intended to be cruel and unusual may become so when
the state knows that the conditions that necessarily attend the sen-
tence disintegrate below “the minimal civilized measure of life’s
necessities,” Rhodes v. Chapman, 452 U.S. 337, 347 (1981)—whether
the state intends those conditions to be part of the punishment or
not. So a simple sentence of prison may not, in theory, violate the
Eighth Amendment. But it can become cruel and unusual if, for
instance, the state knows that prisoners will receive no medical
treatment for life- or limb-threatening illnesses, diseases, or condi-
tions and instead will have to suffer until they die or become disa-
bled from a treatable condition.
So while I concur in today’s opinion for the Court, I disagree
strongly with the Newsom Concurrence. And I write separately to
point out the errors and dangers in that Concurrence’s theory. Sec-
tion I of this Concurrence explains why the Newsom Concurrence
fails to account for the nature of “punishment” in its Eighth
Amendment analysis. And Section II shows that the Newsom Con-
currence improperly reads “cruel and unusual” out of its Eighth
Amendment interpretation.
I.
Precedent teaches what common sense instructs: when the
state punishes a person through imprisonment, its “punishment”
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21-14275 ROSENBAUM, J., Concurring 3
includes the state’s failures to prevent certain harms to those in its
custody.
To see this, we must understand what constitutes the “pun-
ishment” of imprisonment. Imprisonment is not, as the Newsom
Concurrence seems to posit, a psychological construct defined by
the state’s “intent.” Cf. Concurring Op. at 9. Rather, imprisonment
is a concrete “deprivation of . . . liberty,” bounded by cell walls and
armed guards. Estelle v. Gamble, 429 U.S. 97, 104 (1976) (quoting
Spicer v. Williamson, 131 S.E. 291, 293 (N.C. 1926)).
This deprivation includes both compulsions and restrictions.
Prisoners are compelled, among other things, to be in particular
places at particular times—they are assigned to live in a particular
cell in a particular prison. And prisoners are restricted from engag-
ing in certain activities and obtaining some goods and services (ei-
ther through explicit prohibitions or as the practical effect of the
compulsions I’ve mentioned). In other words, prisoners are forced
to endure the living conditions of their prison and are deprived of
the independent capacity to obtain medical care. Though not all
the conditions of confinement constitute “punishment,” see Wilson
v. Seiter, 501 U.S. 294, 301 n.2 (1991), those conditions that prison
officials know about “compose the punishment.” Rhodes, 452 U.S.
at 347; see also Wilson at 301 n.2.
That said, of course, certain deprivations are not—and in-
deed, constitutionally cannot be—part of the punishment of im-
prisonment. The Supreme Court has long tied the Eighth Amend-
ment’s prohibition of “cruel and unusual punishments” to the
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4 ROSENBAUM, J., Concurring 21-14275
“evolving standards of decency that mark the progress of a matur-
ing society.” Trop v. Dulles, 356 U.S. 86, 101 (1958) (plurality opin-
ion). No wonder. The definition of what’s “cruel” depends on
these “standards of decency.” That is, we consider a punishment
to be “cruel” in no small part because it fails to comport with “stand-
ards of decency.”
Estelle recognized that these standards of decency incorpo-
rated an “obligation to provide medical care for those whom [the
state] is punishing by incarceration.” 429 U.S. at 103. That is be-
cause “the prisoner . . . cannot by reason of the deprivation of his
liberty . . . care for himself.” Id.(quoting Spicer v. Williamson,131 S.E. 291, 293
(N.C. 1926)). As Chief Justice Rehnquist wrote for the
Court, “when the State . . . so restrains an individual’s liberty that
it renders him unable to care for himself, and at the same time fails
to provide for his basic human needs . . . it transgresses the substan-
tive limits of state action set by the Eighth Amendment . . . .”
DeShaney v. Winnebago Cnty. Dep’t of Soc. Servs., 489 U.S. 189, 200
(1989). In the context of the state’s near-total control over prison-
ers’ lives, the state takes on the obligation to provide medical
care—precisely because it cannot constitutionally punish criminals by
preventing them from obtaining care. 1
1 One odd result of the Newsom Concurrence’s view is that the Cruel and
Unusual Punishments Clause could bar the state from punishing a criminal by
forbidding him from receiving any medical care while otherwise allowing him
to go free but still permit the state to imprison that person in a facility that just
so happens not to offer any way to obtain care, even though the latter punish-
ment includes and is worse than the former.
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21-14275 ROSENBAUM, J., Concurring 5
For this reason, the state’s punishment of imprisonment
does not include a prohibition on receiving medical care, because
it constitutionally cannot. But when prison officials knowingly fail
to meet the state’s obligation to provide medical care—an obliga-
tion that, once again, arises from the “state action” of imprison-
ment that prevents those behind bars from obtaining their own
care, DeShaney, 489 U.S. at 200—that failure becomes part of the
punishment of prison.
The Newsom Concurrence says that “punishment” requires
an “element of intentionality.” Concurring Op. at 2. But the state’s
“punishment” is prison, and the state very much intends prisoners
to stay there. (Watch what happens when one tries to leave.) The
Newsom Concurrence doesn’t explain why this isn’t enough intent
for known life- or human-rights-threatening conditions accompa-
nying a prison sentence to be part of the punishment.
In fact, the Newsom Concurrence never even tries to ex-
plain why the state’s punitive intent must be so specific as to extend
to its failure to try to stop medically preventable tragedies among
its wards. And why stop there? The Newsom Concurrence also
doesn’t explain why, under its theory, an even more granular no-
tion of intent would not be necessary to violate the Eighth Amend-
ment. A prison doctor punitively denies treatment for a prisoner’s
serious and festering infection, intending that the prisoner will suf-
fer overnight and the doctor will treat the infection the next day,
but the prisoner dies before morning. Is this punishment? At the
very least, the death part isn’t under the Newsom Concurrence
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6 ROSENBAUM, J., Concurring 21-14275
because the doctor didn’t intend for the prisoner to die as punish-
ment. Yet any competent doctor knows that the longer a serious
infection festers, the more life- and limb-threatening it can become.
Defining punishment solely by “intent to punish” does little to clar-
ify what mens rea is necessary for official (in)action to constitute a
punishment, let alone clarify what, generally, is a punishment.
To the extent the Newsom Concurrence’s intent require-
ment is vague, perhaps it is because it fits oddly within our system
of separated powers to think of prison officials having an independ-
ent intent to punish their wards. The legislature determines the
punishments for crimes; the judiciary determines when a punish-
ment should be imposed. At the federal level, the Bureau of Pris-
ons carries out these punishments, “ensuring that federal offenders
serve their sentences of imprisonment in facilities that are safe, hu-
mane, cost-efficient, and appropriately secure.” About Our Agency,
FED. BUREAU OF PRISONS, https://perma.cc/JSN4-PCD7. But
prison administration, collectively and individually, does not take
“vengeance” or enact “retribution” for crimes, because (unlike the
legislature and judiciary) it does not act in light of its own evalua-
tion of wrongdoing.2 To say otherwise would make prison officials
2 The exception is when a prison official determines how to sanction a prisoner
for that prisoner’s misconduct within prison. But of course, this proves the
rule: generally, prison officials are not intending to punish in the sense of hav-
ing a purpose to deter or chastise particular conduct.
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21-14275 ROSENBAUM, J., Concurring 7
judges or legislators, weighing whether a prisoner’s crimes merit
particular deprivations. 3
So perhaps it’s not surprising that precedent makes clear that
that prison officials don’t need some specific punitive intent for
their actions or inactions to be part of the “punishment” they are
administering. Instead, when government officials responsible for
carrying out punishment deliberately fail to provide prisoners with
necessary medical treatment that the state does not intend to with-
hold as punishment, that failure becomes part of the punishment.
II.
The Newsom Concurrence’s crabbed misunderstanding of
“punishment” is related to its other analytic error: reading “cruel
and unusual” out of the Cruel and Unusual Punishments Clause.
The Concurrence has little to say about the “cruel and unu-
sual” part of the Eighth Amendment. But the phrase preceding
“punishments” is critical to its meaning, not least because “cruel”
seems a more natural place to find a scienter requirement than
“punishment.”
3 Another way to conceptualize this issue is to note that the Eighth Amend-
ment incorporates an “anti-discretion norm,” stretching back to the 1689 Eng-
lish Bill of Rights. Donald A. Dripps, The “Cruel and Unusual” Legacy of the Star
Chamber, 1 J. AM. CONST. HIST. 139, 143 (2023) (emphasis in original). When
prison officials act with deliberate indifference towards prisoners’ serious med-
ical needs, they go beyond their limited discretion in administering criminal
sentences.
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8 ROSENBAUM, J., Concurring 21-14275
After all, during the Bill of Rights era, “cruel” meant
“[p]leased with hurting others; inhuman; hard-hearted; void of
pity; wanting compassion; savage; barbarous; unrelenting,” or,
“[o]f things,” “[b]loody; mischievous, destructive; causing pain.”
See 1 Samuel Johnson, Dictionary of the English Language 518 (6th ed.
1785). These definitions—all of them, but especially words and
phrases like “inhuman,” “hard-hearted,” “void of pity,” and “want-
ing compassion”—point to a particular attitude towards the suffer-
ing of others; they don’t necessarily mean proactively trying to in-
crease suffering, but rather, being deliberately indifferent to pain
that most others would seek to alleviate, if they had the power and
(especially) the responsibility to do so. This attitude, of course, is
precisely what the “deliberate indifference” touchstone for prison
medical-mistreatment claims captures. Estelle, 429 U.S. at 104.
Why deliberate indifference as the standard, rather than neg-
ligence or intent? The Supreme Court has suggested that mere ac-
cidents, the products of negligence, do not result from “the culpa-
ble state of mind necessary for the punishment to be regarded as
‘cruel.’” Wilson, 501 U.S. at 297. That’s because cruelty inheres in
not only an action’s physical effects but also its emotional content.
Everyone—and maybe especially a prisoner—knows the difference
between an accident and the type of deliberately indifferent con-
duct revealing a deep disregard for his basic wellbeing. When that
disregard comes from someone who is both responsible for and in
control of another’s health, it can only be described as cruel. In-
deed, the message sent by a prison guard who repeatedly ignores
his ward’s pleas for necessary medical attention is not unlike the
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21-14275 ROSENBAUM, J., Concurring 9
one the torturer sends to his victim upon the rack: “I see your pain
but I don’t care.” 4
But this also shows why prison officials’ actions need not be
intentional to be cruel and unusual. Imprisonment punishes by
substituting control for liberty. Ordinarily, that control is accom-
panied by some degree of care, including medical care. But when
one’s captor opts not to provide necessary and available medical
care, he turns the punishment of imprisonment into a cruel one—
regardless of his purpose or intent in not providing treatment. Af-
ter all, what difference does it make to the prisoner whether the
official who controls his wellbeing intends him to suffer or simply
does not care if he does? Either way, his outcome will be the same,
and there is little he can do to change it. And the prisoner will, by
state mandate, remain dependent for his basic needs on someone
who is at best indifferent to those needs. To impose upon someone
that sort of existential uncertainty is cruel and unusual; when the
state does it to a prisoner, it is cruel and unusual punishment.
III.
4 This also explains the Supreme Court’s adoption of the criminal law’s stand-
ard for recklessness—requiring the defendant’s subjective awareness of a sub-
stantial risk—rather than the civil law’s objective standard in deliberate-indif-
ference claims (which are, after all, civil). See Farmer v. Brennan¸ 511 U.S. 825,
837–39 (1994). A warden who knows of and ignores a substantial risk is cruel;
a warden who should have known of a risk is incompetent and hardly “com-
mend[able],” but not cruel. Id. at 838. The latter says, “I can’t care for you;”
the former, “I don’t care about you.”
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10 ROSENBAUM, J., Concurring 21-14275
Our justice system routinely asks lawbreakers to “take re-
sponsibility for their actions.” But the Newsom Concurrence’s
view of the Eighth Amendment would allow prison officials to
avoid responsibility for theirs. And by letting off the hook those
who actually administer the state’s punishments, this view seeks to
absolve all of us—judges, legislators, citizens—of responsibility for
what happens in the state-run facilities we call prisons. As today’s
decision reiterates, our Constitution demands more.
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21-14275 Newsom, J., Concurring 1
NEWSOM, Circuit Judge, concurring:
Today, the Court wisely repudiates its long-confused delib-
erate-indifference caselaw, which has for years bounced around be-
tween “more than mere negligence” and “more than gross negli-
gence” standards, and adopts instead the criminal-recklessness test
prescribed by the Supreme Court’s decision in Farmer v. Brennan,
511 U.S. 825 (1994). It’s an important step toward righting our
Eighth Amendment jurisprudence.
I’d like, though, to explore a more foundational question: Is
any negligence- or recklessness-based standard consistent with the
plain language of the Eighth Amendment, which by its terms ap-
plies only to the “inflict[ion]” of “punishments”? The answer, I
think, is pretty clearly no. Just as a parent can’t accidentally punish
his or her child, a prison official can’t accidentally—or even reck-
lessly—“punish[]” an inmate.1
I
The Eighth Amendment states that “[e]xcessive bail shall not
be required, nor excessive fines imposed, nor cruel and unusual
punishments inflicted.” U.S. Const. amend. VIII. To my mind, it is
1 In response to Judge Rosenbaum’s concurring opinion, supra, I’ll say only
this: Perhaps she has convinced some that the position I lay out here is unpal-
atable; she hasn’t convinced me, at least, that it’s wrong, as a matter of either
the Eighth Amendment’s plain text or its original understanding. Cf. Hillcrest
Prop., LLP v. Pasco Cnty., 915 F.3d 1292, 1303 (11th Cir. 2019) (Newsom, J., con-
curring in the judgment) (“Not everything that s[tink]s violates the Constitu-
tion.”).
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2 Newsom, J., Concurring 21-14275
fairly well-established that, as originally understood, the Amend-
ment’s Cruel and Unusual Punishments Clause prohibited only cer-
tain particularly objectionable methods of punishment imposed in
conjunction with a criminal defendant’s judgment of conviction. It
did not, for instance, entail a proportionality principle that empow-
ered judges to determine that a particular penalty was excessive in
relation to a particular crime, nor did it purport to regulate the con-
ditions of a prisoner’s confinement. I won’t reinvent the wheel; I’ll
simply say that I find myself persuaded by Justice Scalia’s thorough
analysis in Harmelin v. Michigan, 501 U.S. 957, 961–85 (1991) (Scalia,
J.); see also, e.g., Anthony F. Granucci, Nor Cruel and Unusual Punish-
ments Inflicted: The Original Meaning, 57 Calif. L. Rev. 839 passim
(1969). Be that as it may, the Supreme Court has moved on. It has
read the Clause more broadly, not only to embrace a proportional-
ity criterion, see Gre v. Georgia, 428 U.S. 153, 172 (1976), but also to
“appl[y] to some deprivations that were not specifically part of the
sentence but were suffered during imprisonment,” see Wilson v.
Seiter, 501 U.S. 294, 297 (1991), and, even more generally, to em-
body a fuzzy, eye-of-the-beholder “evolving standards of decency”
criterion, see Trop v. Dulles, 356 U.S. 86, 101 (1958) (plurality opin-
ion).
It remains the case, though, that the Eighth Amendment, by
its plain terms, applies only to “punishments.” And whatever the
proper understanding of the phrase-of-art “cruel and unusual pun-
ishments,” the word “punishment[]” had—and has—a settled
meaning. Samuel Johnson’s 1785 English dictionary, for instance,
defined it as “[a]ny infliction or pain imposed in vengeance of a
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21-14275 Newsom, J., Concurring 3
crime.” 2 Samuel Johnson, Dictionary of the English Language 424
(6th ed. 1785). And nearly two centuries later, Americans were still
using the term in fundamentally the same way to mean a “[p]enalty
[or a] retributive suffering, pain, or loss.” Punishment, Webster’s
New International Dictionary (2d ed. 1934). It seems undeniable
to me that both of those definitions—and others like them—de-
note an element of intentionality. And that seems all the more un-
deniable in the specific context of the Eighth Amendment, which
addresses not just “punishments” simpliciter, but their “in-
flict[ion],” a term that likewise indicates purposeful, directed con-
duct. See 1 Samuel Johnson, Dictionary of the English Language 1040
(6th ed. 1785) (defining “inflict” to mean “[t]o put in act or impose
as punishment”); accord Noah Webster, An American Dictionary of
the English Language 968 (1828) (“Inflict, verb transitive: To lay on; to
throw or send on; to apply; as, to inflict pain or disgrace; to inflict
punishment on an offender.”).
To be clear, I’m hardly the first person to make this observa-
tion about the Cruel and Unusual Punishments Clause’s text. Writ-
ing for the Second Circuit in Johnson v. Glick, Judge Friendly empha-
sized that “[t]he thread common to all [Eighth Amendment] cases
is that ‘punishment’ has been deliberately administered for a penal
or disciplinary purpose.” 481 F.2d 1028, 1032 (2d Cir. 1973). Even
more directly to the point, Judge Posner has explained, pointing to
what he called “normal meaning[],” that “[t]he infliction of punish-
ment is a deliberate act intended to chastise or deter.” Duckworth
v. Franzen, 780 F.2d 645, 651–52 (7th Cir. 1985). That, he correctly
said, “is what the word means today; it is what it meant in the
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4 Newsom, J., Concurring 21-14275
eighteenth century.” Id. at 652 (citing Samuel Johnson, Dictionary
of the English Language (1755)). And Justice Scalia, writing for the
Supreme Court in Wilson v. Seiter—citing and quoting, among oth-
ers, Judges Friendly’s and Posner’s observations and adding his own
emphasis for good measure—indicated that the Eighth Amend-
ment entails an “intent requirement” and clarified that “[t]he
source of t[hat] requirement is not the predilections of this Court,
but the Eighth Amendment itself, which bans only cruel and unu-
sual punishment.” 501 U.S. at 300. 2
The unmistakable linguistic fact that the term “punishment”
entails an intentionality element would seem to preclude any legal
standard that imposes Eighth Amendment liability for uninten-
tional conduct, no matter how negligent (whether “mere[ly]” or
“gross[ly]” so) or even criminally reckless. Negligence and reck-
lessness, after all, are expressly defined in contradistinction to inten-
tional conduct. See, e.g., Negligence, Black’s Law Dictionary (10th
2 Tellingly, even those who contend that the constitutional term “cruel”
should be understood by reference to a punishment’s effect on the punished,
rather than to the punisher’s particular motivation, acknowledge my funda-
mental point—that, by definition, “all punishment involves intent.” John F.
Stinneford, The Original Meaning of “Cruel”, 105 Geo. L.J. 441, 479 (2017). They
admit that under “the Eighth Amendment’s intent requirement,” “[t]o violate
the Cruel and Unusual Punishments Clause, some government official must
intend to punish”; they just deny that the Clause requires the further proof
that the official “intend[ed] to punish cruelly.” Id. at 493 (emphasis added).
Accord, e.g., John F. Stinneford, Is Solitary Confinement a Punishment?, 115 Nw.
L. Rev. 9, 17 (2020) (reviewing historical and modern definitions of “punish-
ment” and concluding that the term “involves intent to inflict pain or suffer-
ing, [just] not necessarily culpable intent”).
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21-14275 Newsom, J., Concurring 5
ed. 2015) (“[A]ny conduct that falls below the legal standard estab-
lished to protect others against unreasonable risk of harm, except
for conduct that is intentionally, wantonly, or willfully disregardful of oth-
ers’ rights.” (emphasis added)); Recklessness, id. (“Recklessness in-
volves a greater degree of fault than negligence but a lesser degree of
fault than intentional wrongdoing.” (emphasis added)).
So on a plain reading, the Cruel and Unusual Punishments
Clause applies only to penalties that are imposed intentionally and
purposefully.
II
How is it, then, that we now find ourselves grinding over
which among several negligence- or recklessness-based standards
should govern a particular species of Eighth Amendment claim?
When and where did things go so wrong? It started innocently
enough, with Estelle v. Gamble, 429 U.S. 97 (1976), in which the Su-
preme Court minted what it dubbed (and we still call) a “deliberate
indifference” claim under the Eighth Amendment. There, the
Court was pretty good about minding the line between intentional
and negligent conduct—but it sowed seeds that would later flower
into a clean break from the text’s intentionality criterion. On the
one hand, the Estelle Court made clear that ordinary negligence
does not constitute “punishment” within the meaning of the
Eighth Amendment: Neither “[a]n accident” nor “an inadvertent
failure to provide adequate medical care,” it said—even one that
would give rise to a “[m]edical malpractice” claim—crosses the
constitutional line. Id. at 105–06. And, in fact, in describing the
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6 Newsom, J., Concurring 21-14275
types of conduct that could “manifest[]” sufficiently culpable con-
duct, the Court twice adverted to purposeful actions: prison
guards “intentionally denying or delaying access to medical care or
intentionally interfering with the treatment once prescribed.” Id. at
104–05 (emphasis added). On the other hand, though, the Court
also repeated language from its “evolving standards of decency”
line of decisions asserting that the “unnecessary and wanton inflic-
tion of pain” could give rise to an Eighth Amendment claim. Id. at
103(emphasis added) (quoting Gre,428 U.S. at 173
). “Wanton”-
ness is a heightened mental state, to be sure, but it’s not the same
thing as intent or purpose.
Next came Wilson v. Seiter, to which I’ve already referred. Re-
spectfully, Wilson is an odd opinion. The question there was
whether an ordinary conditions-of-confinement claim should be
decided under Estelle’s “deliberate indifference” standard—what-
ever its precise parameters—or instead under a higher standard that
applies when “officials act in response to a prison disturbance,” in
which the complaining inmate must prove that officers acted “ma-
liciously and sadistically for the very purpose of causing harm.”
501 U.S. at 302 (quoting Whitley v. Albers, 475 U.S. 312, 320–21
(1986)). In the course of its opinion, the Court nodded strongly
toward a true intentionality criterion. As already noted, the Court
stated that the source of what it called “the intent requirement”
was “the Eighth Amendment itself, which bans only cruel and un-
usual punishment,” id. at 300, and went on to quote favorably Judge
Posner’s definition of the term “punishment” as “a deliberate act
intended to chastise or deter,” as well as Judge Friendly’s
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21-14275 Newsom, J., Concurring 7
observation that “punishment” is “deliberately administered for a
penal or disciplinary purpose,” id. (quoting Duckworth, 780 F.2d at
652, and Glick, 481 F.2d at 1032, respectively).
Strangely, though, having made the case—and a convincing
one—that “[a]n intent requirement is . . . implicit in the word ‘pun-
ishment,’” id. at 301, the Wilson Court then pivoted, in the second
part of its opinion, to decide what it (somewhat inconsistently) pre-
sented as an open question: “[I]t remains for us to consider what
state of mind applies in cases challenging prison conditions” as vi-
olative of the Eighth Amendment. Id. at 302. And in answer to
that question, the Court deferred to language in its earlier decisions
(including Estelle) rather than the language of the Constitution it-
self: “[O]ur cases say that the offending conduct must be wanton.”
Id. In particular, the Wilson Court said that the form of wantonness
to which Estelle had adverted was sufficient: In the ordinary prison-
conditions “context, as Estelle held, ‘deliberate indifference’ would
constitute wantonness.” Id.
Lastly—in the Supreme Court, anyway—came Farmer, the
basis for today’s decision. There, the Court set out to specify “the
proper test for deliberate indifference,” as adopted in Estelle and se-
conded in Wilson. 511 U.S. at 834. Canvassing its earlier caselaw,
the Court opted for a standard “lying somewhere between the
poles of negligence at one end and purpose or knowledge at the
other,” settling on one that it loosely called “recklessness.” Id. at
836. More precisely, as today’s majority opinion explains, the
Farmer Court embraced a criminal-recklessness standard, which, it
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8 Newsom, J., Concurring 21-14275
said, requires a complaining prisoner to prove that the prison offi-
cial whose conduct he challenges subjectively “kn[ew] of and dis-
regard[ed] an excessive risk to inmate health or safety.” Id. at 837.
In justifying its choice, the Court repeatedly adverted to the Eighth
Amendment’s language—noting, for instance, that it “does not
outlaw cruel and unusual ‘conditions’” but only “cruel and unusual
‘punishments.’” Id. It never explained, though, how the criminal-
recklessness standard that it embraced followed from the text itself.
Rather, the most the Court could muster was that “subjective reck-
lessness as used in the criminal law is a familiar and workable stand-
ard that is consistent with the Cruel and Unusual Punishments
Clause as interpreted in our cases”—that is, as glossed in decisions
like Estelle and Wilson. Id. at 839–40 (emphasis added). Having said
so, the Farmer Court “adopt[ed]” criminal recklessness “as the test
for ‘deliberate indifference’ under the Eighth Amendment.” Id. at
840.
With Farmer, the retreat from the Eighth Amendment’s
“punishment” requirement—and the intentionality criterion that it
indicates—was complete. And our own post-Farmer decisions only
widened the gap between text and doctrine. For nearly three dec-
ades, we messed around with negligence-based tests—“more than
mere,” “more than gross,” etc. Today, we have wisely—and fi-
nally—brought ourselves into compliance with Farmer’s criminal-
recklessness criterion. It’s an important step, but we—as what the
Constitution calls an “inferior [c]ourt”—have now gone as far as we
can go. If Eighth Amendment doctrine is to be brought into com-
pliance with the Eighth Amendment’s text, it’ll be up to the
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21-14275 Newsom, J., Concurring 9
Supreme Court. As I see it, though, there’s simply no denying that,
as a matter of both language and logic, the Amendment’s “punish-
ment” requirement demands proof of intentionality.
III
Maybe it makes sense to hold prison officials liable for negli-
gently or recklessly denying inmates appropriate medical care.
Maybe not. But any such liability, should we choose to recognize
it, must find a home somewhere other than the Eighth Amend-
ment. We—by which I mean the courts generally—have been ig-
noring that provision’s text long enough. Whether we like it or
not, the Cruel and Unusual Punishments Clause applies, as its mon-
iker suggests, only to “punishments.” And whether we like it or
not, “punishment[]” occurs only when a government official acts
intentionally and with a specific purpose to discipline or deter.
Reference
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