Full opinion text
KING, Chief Judge: Plaintiffs sued several Texas state officials, asserting violations of the Medicaid statute, the Americans with Disabilities Act, and the Rehabilitation Act. Relying in part on state-sovereign immunity, Defendants moved the district court to dismiss Plaintiffs’ claims. The district court denied Defendants’ motion in part, concluding that the doctrine of Ex parte Young, 209 U.S. 123, 28 S.Ct. 441, 52 L.Ed. 714 (1908), provided jurisdiction over this official-capacity suit seeking prospective relief against state officers. Disappointed, Defendants filed this interlocutory appeal, seeking to vindicate their Eleventh Amendment immunity from suit. We agree with the district court that state officers, sued in their official capacities for prospective relief, are proper defendants under Title II of the Americans with Disabilities Act and are not immune under the Eleventh Amendment. Further, we hold that Defendants’ other contentions on appeal relate to the merits of this controversy, not the Eleventh Amendment; therefore, these arguments are beyond the scope of this interlocutory appeal. We affirm. I. Background Plaintiffs are twenty-one mentally disabled Texas residents (most of whom sue through their next friends) and the Arc of Texas (a nonprofit organization that advocates for the rights of individuals with mental disabilities). In September 2002, they brought this action, on behalf of themselves and all others similarly situated, against Defendants. Defendants are three Texas state officers sued in their official capacities as Commissioners of the Texas Health and Human Services Commission, the Texas Department of Human Services, and the Texas Department of Mental Health and Mental Retardation. Plaintiffs allege that Defendants are not adequately providing community-based living options to individuals, like themselves, with mental retardation and other developmental disabilities. The programs to which Plaintiffs seek access are offered by Texas as part of its Medicaid plan. Title XIX of the Social Security Act established Medicaid, a cooperative federal-state program that provides federal funding to states that furnish medical services to needy individuals. See 42 U.S.C. §§ 1396-1396v (2000); Frew v. Hawkins, 540 U.S. 431, 124 S.Ct. 899, 901, 157 L.Ed.2d 855 (2004). While state participation is voluntary, if a state elects to join the program, it must administer a state plan that meets federal requirements. See 42 U.S.C. § 1396a(a) (describing the required contents of a state plan); Frew, 124 S.Ct. at 901. States can, however, obtain certain waivers, which allow them to deliver experimental services under a relaxed set of regulatory strictures. One such waiver permits states to offer home and community-based services for disabled individuals who would otherwise require institutional care. See 42 U.S.C. § 1396n(c)(l). Under a § 1396n(c) waiver, certain obligations that otherwise attach to states’ provision of Medicaid services are waived, and participating states may obtain federal reimbursement for services that would not normally be reimbursable under the Medicaid program. See id. § 1396n(c)(3) (detailing the requirements that may be waived under a § 1396n(c) waiver); id. § 1396n(c)(4)(B) (explaining the services that may be provided under a § 1396n(c) waiver). Plaintiffs’ claims center on two § 1396n(c) waiver programs offered by Texas for mentally disabled individuals. First, the Home and Community-Based Waiver Services program (the “HCS” program) provides services that enable individuals with mental retardation to remain at home, live independently, or live in small home-like settings. The HCS program thereby helps those individuals avoid institutional living environments. Second, the Community Living Assistance and Support Services waiver program (the “CLASS” program) provides similar assistance to individuals with other developmental disabilities. II. Proceedings in the District Court Plaintiffs’ second amended complaint alleges that Defendants have denied them access to the HCS and CLASS programs. According to Plaintiffs, this denial of access violates several provisions of federal law — namely, (1) four subsections of the federal Medicaid statute, including its due process provision (i.e., § 1396a(a)(3)), and its implementing regulations; (2) Title II of the Americans with Disabilities Act of 1990, 42 U.S.C. §§ 12131-12165 (2000), and its implementing regulations; (3) § 504 of the Rehabilitation Act of 1973, as amended, 29 U.S.C.A. § 794(a) (West 1999 & Supp.2004), and its implementing regulations; and (4) the Due Process and Equal Protection Clauses of the Fourteenth Amendment. Plaintiffs assert causes of action under 42 U.S.C. § 1983, Title II, and § 504, and they seek declaratory and injunctive relief. Defendants moved to dismiss under Rule 12(b)(6) and Rule 12(b)(1), contending that several of Plaintiffs’ claims failed to state a claim upon which relief could be granted and asserting Eleventh Amendment immunity from the entire suit. In May 2003, the district court granted Defendants’ motion in part and denied it in part. The district court dismissed, for failure to state a claim, Plaintiffs’ Due Process and Equal Protection claims. Similarly, the court dismissed, for failure to state a claim, all but one of Plaintiffs’ § 1983 claims regarding alleged infringements of the Medicaid statute, concluding that only the due process provision in § 1396a(a)(3) was enforceable under § 1983. Concerning Plaintiffs’ Title II and § 504 causes of action, the court ruled that Plaintiffs’ complaint did state actionable claims under each statute. Further, since Plaintiffs sued state officers for prospective relief, the court relied on the doctrine of Ex parte Young in holding that the Eleventh Amendment did not bar Plaintiffs’ Title II and § 504 claims. In sum,' the district court allowed three of Plaintiffs’ causes of action to proceed: (1) their § 1983 claim based on violations' of the due process provision of the Medicaid statute (§ 1396a(a)(3)); (2) their Title II claim; and (3) their § 504 claim. Defendants appeal from that portion of the district court’s May 2003 order that denied their motion to dismiss on the basis of Eleventh Amendment immunity. Under the collateral order doctrine, this court has jurisdiction over an interlocutory appeal from a denial of a motion to dismiss asserting Eleventh Amendment immunity. See P.R. Aqueduct & Sewer Auth. v. Metcalf & Eddy, Inc., 506 U.S. 139, 144-45, 113 S.Ct. 684, 121 L.Ed.2d 605 (1993). In November 2003, this court granted the United States’s unopposed motion to intervene on behalf of Plaintiffs. III. Standard of Review This court reviews denials of Eleventh Amendment immunity de novo. Cozzo v. Tangipahoa Parish Council — President Gov’t, 279 F.3d 273, 280 (5th Cir.2002). IV. Texas’s Entitlement to Eleventh Amendment Immunity From Suit The Eleventh Amendment has been interpreted by the Supreme Court to bar suits by individuals against noncon-senting states. Bd. of Trs. of the Univ. of Ala. v. Garrett, 531 U.S. 356, 363, 121 S.Ct. 955, 148 L.Ed.2d 866 (2001). In addition, the principle of state-sovereign immunity generally precludes actions against state officers in their official capacities, see Edelman v. Jordan, 415 U.S. 651, 663-69, 94 S.Ct. 1347, 39 L.Ed.2d 662 (1974), subject to an established exception: the Ex parte Young doctrine. Under Ex parte Young, “a federal court, consistent with the Elev enth Amendment, may enjoin state officials to conform their future conduct to the requirements of federal law.” Quern v. Jordan, 440 U.S. 332, 337, 99 S.Ct. 1139, 59 L.Ed.2d 358 (1979). Here, the district court relied on the Ex parte Young exception in ruling that the Eleventh Amendment does not bar Plaintiffs’ claims. A. The Parties’ Contentions Texas maintains that a plaintiff may not proceed under Ex parte Young unless she asserts a violation of a federal right that arises from a valid federal law that is enforceable against the defendant state. In Texas’s view, Plaintiffs’ § 1983, Title II, and § 504 claims do not satisfy these prerequisites to an Ex parte Young action because none alleges a violation of a valid federal right that is enforceable against Defendants. Texas presents four arguments on appeal. First, Texas contends that the district court incorrectly determined that Plaintiffs can enforce the due process provision of the federal Medicaid law, § 1396a(a)(3), under § 1983. Second, Texas asserts that an action cannot be brought under Ex parte Young to enforce Title II of the ADA, since a state officer is not a proper defendant under Title II. Third, the State argues that Congress lacked the power under either § 5 of the Fourteenth Amendment or the Commerce Clause to enact the substantive requirements in Title II and that Title II violates the Tenth Amendment. Fourth, Texas maintains that § 504 of the Rehabilitation Act is unconstitutional as applied to Defendants because it violates the relatedness requirement imposed on Spending Clause legislation in South Dakota v. Dole, 483 U.S. 203, 207, 107 S.Ct. 2793, 97 L.Ed.2d 171 (1987). Accordingly, Texas contends that state-sovereign immunity bars Plaintiffs’ suit because Plaintiffs have not alleged a violation of any valid federal law. Plaintiffs and the government respond that Texas is attempting impermissibly to broaden the scope of this interlocutory appeal. By articulating these “prerequisites” to an Ex parte Young suit, they assert, the State invites this court to reach the merits of Plaintiffs’ claims and Defendants’ defenses to liability. Instead, Plaintiffs argue, this court must limit its review to whether the district court correctly concluded that Texas’s Eleventh Amendment immunity from suit does not bar it from hearing Plaintiffs’ § 1983, Title II, and § 504 claims. Accordingly, Plaintiffs and the government maintain that this court should refuse to consider all but one of Texas’s arguments, i.e., its contention that an Ex parte Young suit cannot be brought to enforce Title II. Since Plaintiffs and the government concede that Texas’s second contention is an appropriate subject of consideration in this interlocutory appeal, we address this argument first. B. Whether state officers are proper defendants under Title II Title II provides in relevant part that “no qualified individual with a disability shall, by reason of such disability, be excluded from participation in or be denied the benefits of the services, programs, or activities of a public entity, or be subjected to discrimination by any such entity.” 42 U.S.C. § 12132 (2000). The State asserts that the district court erred in denying it Eleventh Amendment immunity from Plaintiffs’ cause of action under Title II because a claim cannot be brought under Ex parte Young to enforce that statute. Texas maintains that a state officer is not a proper defendant under Title II; only public entities can be sued under the statute. Thus, since Ex parte Young only allows suits against state officers, Texas reasons that Plaintiffs’ Title II claims must be dismissed. In response, Plaintiffs and the government argue that Title II can be enforced through suits for prospective relief against state officers, even though the substantive requirements of the statute apply only to public entities, because a suit against a state officer in her official capacity is really a suit against the state agency itself. Texas’s contention presents an issue of first impression in this circuit. The State relies primarily on the Seventh Circuit’s opinion in Walker v. Snyder, 213 F.3d 344 (7th Cir.2000). In Walker, the court held that a plaintiff could not bring an Ex parte Young suit to enforce Title II because the only proper defendant “is the public body as an entity.” Id. at 347. But Walker, decided in 2000, has been undermined by the Supreme Court’s subsequent statement in Garrett that Title I of the ADA could be enforced in an Ex parte Young action. Garrett, 531 U.S. at 374 n. 9, 121 S.Ct. 955. Indeed, the Seventh Circuit has disavowed Walker’s holding on this issue, concluding that it “did not survive” Garrett. Bruggeman v. Blagojevich, 324 F.3d 906, 912-13 (7th Cir.2003). Even though Walker has been abrogated, Texas still contends this court should follow that decision, since the remark from Garrett that the Bruggeman court relied on was dictum. Although the Court’s comment in Garrett was not essential to the judgment, the courts of appeals have been unanimous in rejecting arguments that state officers cannot be sued for prospective relief in their official capacities for violations of Title II. In addition to this substantial authority from other circuits, Supreme Court precedent makes clear that “a suit against a state official in his or her official capacity is not a suit against the official but rather is a suit against the official’s office.” Will v. Mich. Dep’t of State Police, 491 U.S. 58, 71, 109 S.Ct. 2304, 105 L.Ed.2d 45 (1989); accord Kentucky v. Graham, 473 U.S. 159, 165-66, 105 S.Ct. 3099, 87 L.Ed.2d 114 (1985) (“Official-capacity suits ... generally represent only another way of pleading an action against an entity of which an officer is an agent. As long as the government entity receives notice and an opportunity to respond, an official-capacity suit is, in all respects other than name, to be treated as a suit against the entity. It is not a suit against the official personally, for the real party in interest is the entity.” (citations and internal quotation marks omitted)). Only for the purposes of the Eleventh Amendment are “official-capacity actions for prospective relief ... not treated as actions against the State.” Graham, 473 U.S. at 167 n. 14, 105 S.Ct. 3099 (citing Ex parte Young). We thus join the Second, Sixth, Seventh, Eighth, and Ninth Circuits in holding that Plaintiffs’ Ex parte Young suit to enforce Title II can proceed; Defendants have been sued in their official capacities and are therefore representing their respective state agencies (which are proper Title II defendants) for all purposes except the Eleventh Amendment. C. Texas’s other arguments on appeal When stripped of their Eleventh Amendment gloss, Texas’s three remaining arguments essentially target the merits of Plaintiffs’ claims, rather than Plaintiffs’ reliance on the doctrine of Ex parte Young to establish jurisdiction. As we will see, these defenses to liability are beyond the scope of this interlocutory appeal from a denial of Eleventh Amendment immunity from suit. See P.R. Aqueduct & Sewer Auth., 506 U.S. at 144, 113 S.Ct. 684 (explaining that the Eleventh Amendment “confers an immunity from suit”). 1. The constitutionality of Title II and § 50k We first turn to Texas’s contentions that Congress lacked the power to enact the substantive provisions of Title II and § 504. The State provides no authority for its assertion that a federal court must determine the constitutionality of a federal law in the course of determining the applicability of the Ex parte Young exception. Instead, the State misleadingly quotes the Supreme Court’s opinion in Gonzaga University v. Doe for the proposition that, “[a]s a prerequisite to bringing a Young suit, ... ‘a plaintiff must assert the violation of a federal right, not merely a violation of federal law.’ ” Texas Br. at 13 (quoting Doe, 536 U.S. 273, 282, 122 S.Ct. 2268, 153 L.Ed.2d 309 (2002)). But this passage in Doe involved the prerequisites for stating a claim under § 1983, not the requirements for avoiding an Eleventh Amendment defense to suit through the vehicle of an Ex parte Young action. Texas relies heavily on this misinterpretation of Doe in contending that Plaintiffs cannot proceed under Ex parte Young unless this court first determines that their claims rely on federal laws that are both constitutional and enforceable against the State. But Texas simply provides no support for its contention that a court must determine the validity of a plaintiffs cause of action in the course of deciding whether an Ex parte Young suit can proceed in the face of a state’s Eleventh Amendment defense. Texas’s broad understanding of the scope of this interlocutory appeal is not only unprecedented, more importantly, it flies in the face of the Supreme Court’s reasoning in Verizon Maryland, Inc. v. Public Service Commission, 535 U.S. 635, 122 S.Ct. 1753, 152 L.Ed.2d 871 (2002). There, Verizon brought suit in federal district court, seeking relief from an order of the Maryland Public Service Commission. Id. at 640, 122 S.Ct. 1753. Verizon alleged that the Commission’s order violated federal law. Id. In ruling that the district court lacked jurisdiction to hear Verizon’s action, the Fourth Circuit held, inter alia, that the Eleventh Amendment did not permit Verizon to sue individual commissioners in their official capacities. Id. In the words of the Supreme Court, the “Fourth Circuit suggested that Verizon’s claim could not be brought under Ex parte Young, because the Commission’s order was probably not inconsistent with federal law after all.” Id. at 646, 122 S.Ct. 1753. The Court swiftly rejected this reasoning, noting that “the inquiry into whether suit lies under Ex parte Young does not include an analysis of the merits of the claim.” Id. (emphasis added). On the contrary, the Court explained that “[i]n determining whether the doctrine of Ex parte Young avoids an Eleventh Amendment bar to suit, a court need only conduct a ‘straightforward inquiry into whether [the] complaint alleges an ongoing violation of federal law and seeks relief properly characterized as prospective.’ ” Id. at 645, 122 S.Ct. 1753 (quoting Idaho v. Coeur d’Alene Tribe of Idaho, 521 U.S. 261, 296, 117 S.Ct. 2028, 138 L.Ed.2d 438 (1997) (O’Connor, J., concurring in part and concurring in the judgment)) (alteration in original); see also Coeur d’Alene, 521 U.S. at 281, 117 S.Ct.2028 (“An allegation of an ongoing violation of federal law where the requested relief is prospective is ordinarily sufficient to invoke the Young fiction.” (emphasis added)). Thus, the Court made clear that analyzing the applicability of the Ex parte Young exception should generally be a simple matter, which excludes questions regarding the validity of the plaintiffs cause of action. Texas attempts to distinguish Verizon, asserting that its arguments contesting the constitutionality of Title II and § 504 are appropriate for consideration in this interlocutory appeal, even though an argument that it has not violated those statutes would not be. We are not persuaded. Like other defenses to liability, the State’s arguments do not challenge the district court’s power under Ex parte Young to adjudicate Plaintiffs’ claims. Rather, the State seeks to have Plaintiffs’ Title II and § 504 claims dismissed on the merits on the ground that the statutes’ substantive provisions are unconstitutional; such a disposition would not be a determination that the Ex parte Young exception is inapplicable or that the Eleventh Amendment bars a federal court from hearing Plaintiffs’ action. In other words, resolution of the constitutional questions urged by Defendants is irrelevant to the question whether Texas’s Eleventh Amendment immunity from suit has been infringed. Moreover, our refusal to consider the constitutional issues in this interlocutory appeal comports with the rationale for allowing an interlocutory appeal from denials of Eleventh Amendment immunity. Unlike a State’s entitlement to Eleventh Amendment immunity from suit, the constitutionality of Title II and § 504 can be reviewed effectively on appeal from a final judgment. Cf. P.R. Aqueduct & Sewer Auth., 506 U.S. at 144-45, 113 S.Ct. 684 (explaining that the question of state-sovereign immunity is (1) conclusively determined by the denial of a motion to dismiss, (2) completely separate from the merits of the action, and (3) “effectively unreviewable on appeal from a final judgment”). We consequently follow the teaching of Verizon and hold that the constitutionality of the substantive provisions of Title II and § 504 is beyond the scope of this appeal. 2. The enforceability of § lS96a(a)(S) under § 1983 Finally, we consider Texas’s assertion that the Eleventh Amendment bars Plaintiffs’ surviving § 1983 claim because the due process provision of the Medicaid statute, § 1396a(a)(3), does not create a federal right enforceable under § 1983. Although couched in terms of sovereign immunity, the State’s argument on this score is entirely devoted to attacking the district court’s ruling that Plaintiffs can state an actionable claim under § 1983 to enforce § 1396a(a)(3). Even more so than Defendants’ constitutional contentions, this argument centers on the merits of Plaintiffs’ § 1983 claim, not their use of Ex parte Young to seek injunctive relief despite the Eleventh Amendment. Moreover, other than their misinterpretation of Doe (which we exposed above), Defendants provide no support for the notion that, to determine the applicability of the Ex parte Young exception, we must review the district court’s conclusion that a § 1983 action can be brought to enforce § 1396a(a)(3). On the contrary, at least one court of appeals has refused to broaden this type of interlocutory appeal to encompass the question whether alleged transgressions of the Medicaid statute can be vindicated under § 1983. See Rosie D. ex rel. John D. v. Swift, 310 F.3d 230, 233-34, 238 (1st Cir.2002) (opining that the issue of enforceability under § 1983 was not ripe for review). Similarly, we will confine ourselves to the question whether Plaintiffs have properly demonstrated jurisdiction under Ex parte Yoimg. D. The applicability of the Ex parte Young exception to Eleventh Amendment immunity Left to address the simple question whether the district court correctly found that Plaintiffs properly have proceeded under Ex parte Yoimg, we agree with the district court. Plaintiffs allege that Defendants’ failure to admit them to the HCS and CLASS programs violates § 1396a(a)(3), Title II, and § 504. Further, they seek injunctive and declaratory relief. Thus, the “complaint alleges an ongoing violation of federal law and seeks relief properly characterized as prospective.” Verizon, 535 U.S. at 645, 122 S.Ct. 1753 (internal quotation marks omitted). Plaintiffs have therefore satisfied the Supreme Court’s “straightforward inquiry,” and we hold that the Eleventh Amendment does not apply to this suit. See P.R. Aqueduct & Sewer Auth., 506 U.S. at 146, 113 S.Ct. 684 (“Young and its progeny render the [Eleventh] Amendment wholly inapplicable to a certain class of suits.”). V. Conclusion Accordingly, we AFFIRM the order of the district court denying that portion of Defendants’ motion to dismiss that relies on the defense of Eleventh Amendment immunity. . Plaintiffs filed a motion for class certification, which is still pending in the district court. . We also refer to Defendants collectively as "Texas” or "the State.” . According to this subsection, a state’s Medicaid plan must "provide for granting an opportunity for a fair hearing before the State agency to any individual whose claim for medical assistance under the plan is denied or is not acted upon with reasonable promptness.” 42 U.S.C. § 1396a(a)(3). . While the district court did not expressly discuss Defendants' Eleventh Amendment-immunity defense to Plaintiffs’ surviving § 1983 claim (for violation of § l396a(a)(3)), since this claim was not dismissed, the court must have rejected that defense, probably believing that this claim was also permissible under Ex parte Young. On appeal, Defendants do not complain about this omission from the district court’s opinion. . We refer to the United States as "the government” in this opinion. . Texas also cites Lewis v. N.M. Dep’t of Health, 94 F.Supp.2d 1217 (D.N.M.2000). There, the court held that an Ex parte Young action could not be maintained under Title II because state officials are not proper defendants under the statute. Id. at 1230. Without engaging in much analysis, the court relied on one circuit court opinion involving state officers sued in their individual capacities, see Alsbrook v. City of Maumelle, 184 F.3d 999, 1005 n. 8 (8th Cir.1999) (en banc), and several district court decisions. Lewis, 94 F.Supp.2d at 1230. While the Lewis court's judgment was upheld on appeal, the Tenth Circuit did not pass on this holding, since the plaintiffs had dropped their ADA claim. Lewis v. N.M. Dep't of Health, 261 F.3d 970, 975 (10th Cir.2001). . See Henrietta D. v. Bloomberg, 331 F.3d 261, 288 (2d Cir.2003) (refusing to “embrace the state defendant's statutory claim that an individual sued in his or her official capacity under the doctrine of Ex parte Young is not a 'public entity' subject to liability” under Title II and explaining that, "[t]he real party in interest in an official-capacity suit is the government entity. As a result, it is irrelevant whether the ADA would impose individual liability on the officer sued; since the suit is in effect against the 'public entity,' it falls within the express authorization of the ADA.” (citation omitted)); Miranda B. v. Kitzhaber, 328 F.3d 1181, 1187-88 (9th Cir.2003) (following "the Sixth, Seventh, and Eighth Circuits in holding that Title II’s statutory language does not prohibit [the plaintiff's] injunctive action against state officials in their official capacities”); Bruggeman, 324 F.3d at 912-13; Carten v. Kent State Univ., 282 F.3d 391, 396-97 (6th Cir.2002) (holding that "an official who violates Title II of the ADA does not represent ‘the state' for purposes of the Eleventh Amendment, yet he or she nevertheless may be held responsible in an official capacity for violating Title II”); Randolph v. Rodgers, 253 F.3d 342, 348 (8th Cir.2001) (citing Garrett’s dictum and refusing to accept the contention that "because the statutory language of the ADA provides only for 'public entity' liability, an Ex parte Young claim against the state officials in their official capacities, premised upon an ADA violation, must fail”). . Texas, relying on Seminole Tribe of Florida v. Florida, 517 U.S. 44, 116 S.Ct. 1114, 134 L.Ed.2d 252 (1996), also suggests that Title II’s use of the phrase "public entity” evidences Congressional intent to preclude Ex parie Young actions to enforce the Act. But Seminole Tribe provides no comfort to the State. There, the Court merely explained that, "where Congress has prescribed a detailed remedial scheme for the enforcement against a State of a statutorily created right, a court should hesitate before casting aside those limitations and permitting an action against a state officer based upon Ex parte Young." Id. at 74, 116 S.Ct. 1114 (emphasis added). Here, Plaintiffs do not seek under Ex parie Young any remedies that have been limited by the terms of Title II. In addition, at least two other circuits have specifically rejected arguments, based on Seminole Tribe, that Congress intended to preempt Ex parte Young actions to enforce Title II. See Henrietta D., 331 F.3d at 289 ("In our view, Seminole Tribe does not bar Ex parte Young relief under Title II against a state official in her official capacity. Neither § 504 nor Title II displays any intent by Congress to bar a suit against state officials in their official capacities for injunctive relief, nor does either create a remedial scheme so elaborate that it could be thought to preclude relief under Ex parte Young.")-, Miranda B., 328 F.3d at 1188-89. . The full sentence from the opinion reads, “We emphasized: ‘[T]o seek redress through § 1983, ... a plaintiff must assert the violation of a federal right, not merely a violation of federal law.’ " Doe, 536 U.S. at 282, 122 S.Ct. 2268 (quoting Blessing v. Freestone, 520 U.S. 329, 340, 117 S.Ct. 1353, 137 L.Ed.2d 569 (1997)) (alterations in original) (first emphasis added). Of course, Plaintiffs' Title II and § 504 claims do not arise under § 1983; both Title II and § 504 are enforceable directly through private causes of action. See Barnes v. Gorman, 536 U.S. 181, 185, 122 S.Ct. 2097, 153 L.Ed.2d 230 (2002). . Defendants do not contend that the relief sought by Plaintiffs could have an impermissi-bly retroactive effect.
EMILIO M. GARZA, Circuit Judge, concurring in part and dissenting in part: The majority opinion incorrectly concludes that the constitutionality of the federal law underlying an Ex parte Young suit is not properly considered as part of an Eleventh Amendment immunity analysis. To sustain a Young suit a plaintiff must allege an ongoing violation of valid, constitutional federal law. As I believe that Title II of the ADA was enacted beyond Congress’s legislative authority, I would hold that the plaintiffs in this case (“the Plaintiffs”) have failed to establish a valid Young suit against the defendant commissioners (“Texas”) under Title II of the Americans with Disabilities Act (“ADA”) and that Texas is entitled to Eleventh Amendment immunity as to that claim. However, because I believe § 504 of the Rehabilitation Act is valid Spending Clause legislation, I would hold that the Plaintiffs have properly alleged a Young suit under that statute. Further, I agree with the majority opinion that Texas’s claim that the Medicaid Act does not provide for an individual cause of action is beyond the scope of this appeal and should not be considered. Accordingly, I respectfully concur in part, and dissent in part. I This is an interlocutory appeal of an order denying Texas’s claim of Eleventh Amendment immunity. See Puerto Rico Aqueduct & Sewer Auth. v. Metcalf & Eddy Inc., 506 U.S. 139, 147, 113 S.Ct. 684, 121 L.Ed.2d 605 (1993) (authorizing an interlocutory appeal of an order denying Eleventh Amendment immunity). As there is no final order in this case, we are limited to considering the question of whether Texas is entitled to Eleventh Amendment immunity from the Plaintiffs’ suit. All other issues are beyond the scope of this appeal. As part of this appeal, Texas challenges the constitutionality of both Title II of the ADA and § 504 of the Rehabilitation Act. Texas does not independently challenge the constitutionality of these statutes, which would be beyond the jurisdiction of this appeal. Instead, it challenges their constitutionality as part of its assertion of Eleventh Amendment immunity and its argument that the Plaintiffs have not properly alleged a suit under Ex parte Young. Texas argues that because the permissibility of a Young suit is premised on the assumption that the defendant state official is engaging in an ongoing violation of federal law, the question of the validity of that federal law is a proper subject of an Eleventh Amendment immunity analysis. I agree. Under the Eleventh Amendment, “an unconsenting State is immune from suits brought in federal court by [its] own citizens as well as by citizens of another state.” Edelman v. Jordan, 415 U.S. 651, 663, 94 S.Ct. 1347, 39 L.Ed.2d 662 (1974). The Eleventh Amendment provides states with immunity from “the indignity” of being subjected to the “coercive process of judicial tribunals at the instance of private parties.” Metcalf, 506 U.S. at 146, 113 S.Ct. 684 (citing Ex parte Ayers, 123 U.S. 443, 505, 8 S.Ct. 164, 31 L.Ed. 216 (1887)). The Supreme Court has held that the rule that “a State may not be sued without its consent is [such] a fundamental rule of jurisprudence ... that the entire judicial power granted by the Constitution does not embrace authority to entertain a suit brought by private parties against a State without consent given.... ” Pennhurst State Sch. & Hosp. v. Halderman, 465 U.S. 89, 99, 104 S.Ct. 900, 79 L.Ed.2d 67 (1984) (quoting Ex parte State of New York, 256 U.S. 490, 497, 41 S.Ct. 588, 65 L.Ed. 1057 (1921)) (emphasis omitted). Eleventh Amendment immunity extends to suits against state officials in their official capacities. See id. at 101, 104 S.Ct. 900 (A suit against a state official “is in fact against the sovereign if the decree would operate against the latter.”). Therefore, “a suit against [a] state official! ] that is in fact a suit against a State is barred regardless of whether it seeks damages or injunctive relief.” Id. at 102, 104 S.Ct. 900. One exception to this general rule is that “a suit challenging the constitutionality of a state official’s action is not one against the State.” Id.; see Ex parte Young, 209 U.S. 123, 28 S.Ct. 441, 52 L.Ed. 714 (1908). Under Ex parte Young, “an unconstitutional enactment is ‘void’ and therefore does not impart to the officer any immunity from responsibility to the supreme authority of the United States.” Pennhurst, 465 U.S. at 102, 104 S.Ct. 900 (internal quotations omitted). The Supreme Court has recognized that there is some “irony” in the fact that “an official’s unconstitutional conduct constitutes state action under the Fourteenth Amendment” but does not under the Eleventh Amendment. Id. at 105, 104 S.Ct. 900. It, however, has concluded that the Young doctrine is “necessary to permit the federal courts to vindicate federal rights and hold state officials responsible to ‘the supreme authority of the United States.’ ” Id. The Supreme Court, however, has sought to balance the need to hold state officials responsible to the “supreme authority of the United States” with states’ “fundamental” right to immunity from private suit. To achieve this balance it has thus limited the scope of the Young exception. For example, a Young suit can only be brought to require a state official to “conform his future conduct of office to the requirements of’ federal law, but may not be applied retroactively. Edelman, 415 U.S. at 664, 94 S.Ct. 1347; see Verizon Maryland Inc. v. Pub. Serv. Comm’n of Maryland, 535 U.S. 635, 645, 122 S.Ct. 1753, 152 L.Ed.2d 871 (2002) (A Young suit requires the plaintiff allege “an ongoing violation of federal law and seek[] relief properly characterized as prospective.”). In crafting this limitation, the Supreme Court has noted that the “distinction between prospective and retroactive relief fulfills the underlying purpose of Ex parte Young while at the same time preserving to an important degree the constitutional immunity of the States.” Pennhurst, 465 U.S. at 106, 104 S.Ct. 900. Further, it has noted the importance of consciously balancing these two important interests when applying the Young doctrine. See, e.g., id.; Idaho v. Coeur d’Alene Tribe of Idaho, 521 U.S. 261, 270, 117 S.Ct. 2028, 138 L.Ed.2d 438 (1997) (noting that application of Young requires an “understanding of its role in our federal system”); see also Verizon, 535 U.S. at 649, 122 S.Ct. 1753 (Kennedy, J., concurring) (“Ex parte Young jurisprudence requires careful consideration of the sovereign interests of the State as well as the obligations of state officials to respect the supremacy of federal law.”). In Pennhurst State School & Hospital v. Halderman, the Supreme Court held that a plaintiff cannot vindicate state rights as part of a Young suit. Pennhurst, 465 U.S. at 106. After reviewing the policy justifications for the Young doctrine and noting the importance of balancing the competing interests outlined above, the Court concluded: “This need to reconcile competing interests is wholly absent, however, when a plaintiff alleges that a state official has violated state law. In such a case the entire basis for the doctrine of Young .. disappears.” Id. (emphasis omitted). It further concluded, “[a] federal court’s grant of relief against state officials on the basis of state law ... does not vindicate the supreme authority of federal law.” Id. (emphasis added); see Saahir v. Estelle, 47 F.3d 758, 761 (5th Cir.1995) (noting that “the only legitimate basis for federal court intervention, consistent with the Eleventh Amendment is the vindication of federal rights”). The Supreme Court has thus made it clear that if there are no federal rights for the plaintiff to vindicate then the justification for the Young exception is not present in the case and the state’s right to Eleventh Amendment immunity should be honored. See Pennhurst, 465 U.S. at 106, 104 S.Ct. 900. The justification for a Young suit is also absent when the plaintiff alleges the ongoing violation of unconstitutional or otherwise invalid federal law. In such a case, there are no federal rights to vindicate and there can be no prospective relief under Young. Therefore, before we can determine whether a plaintiff seeks to vindicate “the supreme authority of the law” and before we can possibly balance the “sovereign interests of the State ... [with the] obligation^ of state officials to respect the supremacy of federal law,” we must first determine whether the plaintiff seeks to vindicate valid federal rights, and by implication whether the federal law underlying the Young suit is constitutional. The majority opinion concludes that if we were to address the constitutionality of the statutes underlying the Plaintiffs’ Young suit we would be impermissibly addressing the merits of their claims. The Supreme Court has specifically held that “the inquiry into whether a suit lies under Ex parte Young does not include an analysis of the merits of the claim.” Verizon, 535 U.S. at 646, 122 S.Ct. 1753, see Coeur d’Alene, 521 U.S. at 281, 117 S.Ct. 2028 (“An allegation of an ongoing violation of federal law ... is ordinarily sufficient. ...”). Verizon, however, does not address the relevance of the constitutionality of the federal law underlying the Young suit. In Verizon, the Maryland Public Service Commission (“the Commission”) argued that it was not subject to discipline under the provisions of the federal statute (The Telecommunications Act of 1996) underlying Verizon’s Young suit. See Verizon, 535 U.S. at 646, 122 S.Ct. 1753. It did not argue that the law underlying the Young suit was unconstitutional or was otherwise not valid federal law. The Supreme Court held that the Commission had improperly argued the merits of the underlying claim — whether the Commission had violated the dictates of the Telecommunications Act — as part of its assertion of Eleventh Amendment immunity. Id. However, the proposed constitutional inquiry in this case is not a review of the merits of the Plaintiffs’ substantive claims — whether Texas violated either Title II of the ADA or § 504 of the Rehabilitation Act. Rather, it is part of the inquiry into whether the Plaintiffs seeks to vindicate valid federal rights. Further, the majority opinion fails to heed the Supreme Court’s warning not to be held captive to the “mechanics of ... pleadings” and forget that our application of “the Young exception must reflect a proper understanding of [the doctrine’s] role in our federal system and respect for state courts instead of a reflexive reliance on an obvious fiction.” Coeur d’Alene, 521 U.S. at 270, 117 S.Ct. 2028. As the Court noted, to do so “would be to adhere to an empty formalism and to undermine the principle ... that the Eleventh Amendment immunity represents a real limitation on a federal court’s federal question jurisdiction.” Id. In blindly applying Verizon to this case, the majority opinion ignores the policy justifications behind the Young exception and needlessly subjects Texas to a suit in federal court without first determining whether the Plaintiffs seek to vindicate valid federal rights. Additionally, there is no reason to delay resolving these issues. The Supreme Court has emphasized the importance of quickly resolving Eleventh Amendment claims because “the value to the States of their Eleventh Amendment immunity ... is for the most part lost as litigation proceeds past motion practice.” See Metcalf, 506 U.S. at 145, 113 S.Ct. 684. This suggests that resolving the constitutionality of the federal law underlying the Young suit should be completed sooner rather than later. This is particularly true here because there is no policy reason for delaying the resolution of these issues. The constitutionality of these statutes is a purely legal question that can be resolved without the aid of either discovery or trial. Compare Mitchell v. Forsyth, 472 U.S. 511, 528, 105 S.Ct. 2806, 86 L.Ed.2d 411 (1985) (authorizing interlocutory review of denials of qualified immunity because “[a]ll [the court] need determine is a question of law”) and Johnson v. Jones, 515 U.S. 304, 317, 115 S.Ct. 2151, 132 L.Ed.2d 238 (1995) (“[Ijmmunity appeals interfere less with the final judgment rule if they are limited to cases presenting neat abstract issues of law.”), with Metcalf, 506 U.S. at 147, 113 S.Ct. 684 (holding that “factual complexities” provide no excuse for refusing to resolve a claim of Eleventh Amendment immunity). Further, appellate courts routinely resolve constitutional issues in interlocutory appeals as part of determining whether Congress has validly abrogated states’ Eleventh Amendment immunity pursuant to their authority under § 5 of the Fourteenth Amendment. See e.g., Reickenbacker v. Foster, 274 F.3d 974, 979 (5th Cir.2001) (finding that Congress went beyond its § 5 powers by abrogating states’ Eleventh Amendment immunity under Title II of the ADA). It is similarly appropriate to resolve these constitutional issues during this appeal. The Government suggest that if we were to decide that the constitutionality of these statutes is properly part of an Eleventh Amendment immunity analysis we should remand to the district court so that it may consider and address these issues. The Supreme Court, however, has held that an “Eleventh Amendment defense sufficiently partakes of the nature of a jurisdictional bar [] that it need not be raised in the trial court.” See Edelman, 415 U.S. at 678, 94 S.Ct. 1347 (ruling on an Eleventh Amendment immunity claim raised for the first time in the appellate court). Further, as these are purely legal questions which would be reviewed de novo in a future appeal there is no reason to remand for a ruling by the district court. Accordingly, I would hold that a challenge to the constitutionality of a statute underlying a Young suit is a proper subject of an Eleventh Amendment immunity analysis and that consideration of such a challenge is within the scope of an interlocutory appeal from the denial of a claim of Eleventh Amendment immunity. Texas challenges the constitutionality of both Title II of the ADA and § 504 of the Rehabilitation Act. As I believe these constitutional challenge are within the scope of this appeal, I will address the merits of Texas’s contentions. II Texas challenges the constitutionality of Title II of the ADA. It argues that Title II was enacted beyond the scope of Congress’s authority under both § 5 of the Fourteenth Amendment and the Commerce Clause. See 42 U.S.C. § 12101(b)(4) (invoking both Congress’s § 5 authority and Commerce Clause power in enacting the ADA). Texas also argues that Title II improperly impedes on state authority in violation of the Tenth Amendment. A Texas first argues that we should extend our ruling in Reickenbacker v. Foster, 274 F.3d at 976 (holding that Title II of the ADA was enacted beyond Congress authority under § 5 for purposes of abrogating states Eleventh Amendment immunity), to this case and hold that Congress acted beyond its § 5 authority in enacting Title II. Plaintiffs and the Government argue that Reickenbacker is not controlling because in that case we did not engage in a full § 5 analysis. See id. at 982 n. 60 (refusing to consider Congressional findings of discrimination by local entities in § 5 abrogation analysis because local entities cannot assert sovereign immunity). Further they argue that our decision in Reickenbacker has been, at least partially, superseded by the Supreme Court’s recent decision in Tennessee v. Lane, — U.S. -, 124 S.Ct. 1978, 1992, 158 L.Ed.2d 820 (2004) (finding that “extensive record of disability discrimination” by states justified “prophylactic legislation”), and- argue that, in light of Lane, Title II’s accommodation requirement is a “congruent and proportional” response to irrational discrimination against the disabled by state and local public entities. By its own terms, Reickenbacker cannot simply be extended to this case. In Reickenbacker, we held that Title/II of the ADA was enacted beyond the7 scope of Congress’s § 5 powers for purposes of abrogating states’ Eleventh Amendment immunity. See Reickenbacker, 274 F.3d at 982-83 (finding that because Congress never established that states engaged in unconstitutional discrimination against the disabled Title II’s “affirmative accommodation obligation on the part of public entities” was enacted beyond Congress’s § 5 authority); cf. Bd. of Trustees of Univ. of Alabama v. Garrett, 531 U.S. 356, 367-68, 121 S.Ct. 955, 148 L.Ed.2d 866 (2001) (“States are not required by the Fourteenth Amendment to make special accommodations for the disabled, so long as their actions towards such individuals are rational.”). We, however, noted that “Title II of the ADA could still be a valid exercise of Congress’s § 5 power, but simply not provide the ... power to abrogate” states’ Eleventh Amendment immunity. See Reickenbacker, 274 F.3d at 982 n. 60. This limiting language was premised on our refusal to review Congressional findings as to discrimination by local entities as part of that § 5 analysis because local entities cannot claim Eleventh Amendment immunity. See id.; see also Garrett, 531 U.S. at 369, 121 S.Ct. 955 (“[Local] entities are subject to private claims for damages under the ADA without Congress ever having to rely on § 5.... It would make no sense to consider constitutional violations on their part, as well as by the States themselves, when only the States are the beneficiaries of the Eleventh Amendment.”); but see Lane, 124 S.Ct. at 1991 n. 16 (suggesting that “constitutional violations on the part of nonstate governmental actors” is “relevant” to this inquiry). In contrast, “the analysis of whether Congress has the power to enact legislation requires [an] inquiry into constitutional violations by [local] entities in addition to entities entitled to Eleventh Amendment immunity.” Reickenbacker, 274 F.3d at 982 n. 60 (emphasis added) (quoting Thompson v. Colorado, 258 F.3d 1241, 1253 n. 7 (10th Cir.2001), republished at 278 F.3d 1020). This inquiry was absent from Reickenbacker and must be included here to determine whether Title II is proper § 5 legislation. Section 5 grants Congress the power “to enforce” the substantive guarantees of the Fourteenth Amendment through “appropriate legislation.” Garrett, 531 U.S. at 365, 121 S.Ct. 955. In exercising this power, Congress is not limited to remedying violations of the substantive rights guaranteed by the Fourteenth Amendment. See Katzenbach v. Morgan, 384 U.S. 641, 648-49, 86 S.Ct. 1717, 16 L.Ed.2d 828 (1966). “Congress’ power ‘to enforce’ the Amendment includes the authority both to remedy and to deter violation of rights guaranteed thereunder by prohibiting a somewhat broader swath of conduct, including that which is not itself forbidden by the Amendment’s text.” Garrett, 531 U.S. at 365, 121 S.Ct. 955 (quoting Kimel v. Florida Bd. of Regents, 528 U.S. 62, 81, 120 S.Ct. 631, 145 L.Ed.2d 522 (2000)). “In other words, Congress may enact so-called prophylactic legislation that proscribes facially constitutional conduct, in order to prevent and deter unconstitutional conduct.” Nevada Dep’t of Human Res. v. Hibbs, 538 U.S. 721, 727-28, 123 S.Ct. 1972, 155 L.Ed.2d 953 (2003). There are limits on Congress’s power to pass prophylactic legislation. Congress may not pass prophylactic legislation that is in effect a “substantive redefinition of the Fourteenth Amendment right at issue.” Id. at 728, 123 S.Ct. 1972; see City of Boerne v. Flores, 521 U.S. 507, 519, 117 S.Ct. 2157, 138 L.Ed.2d 624 (1997) (“Congress does not enforce a constitutional right by changing what the right is.”). “Accordingly, § 5 legislation reaching beyond the scope of § l’s actual guarantees must exhibit ‘congruence and proportionality between the injury to be prevented or remedied and the means adopted to that end.’ ” Garrett, 531 U.S. at 365, 121 S.Ct. 955 (quoting City of Boerne, 521 U.S. at 520, 117 S.Ct. 2157). The first step in this analysis is to identify the scope of the constitutional right to be protected. Id. The Supreme Court has concluded that “classifications based on disability violate [the Fourteenth Amendment] if they lack a rational relationship to a legitimate governmental purpose.” Lane, 124 S.Ct. at 1988; see Garrett, 531 U.S. at 367, 121 S.Ct. 955 (“States are not required ... to make special accommodations for the disabled, so long as their actions toward such individuals are rational.”). Congress thus may seek through its § 5 power to enforce a prohibition on “irrational disability discrimination.” Lane, 124 S.Ct. at 1988. The next step is to determine “whether Congress identified a history and pattern of unconstitutional ... discrimination by the States against the disabled.” Garrett, 531 U.S. at 368, 121 S.Ct. 955. The Supreme Court, in Tennessee v. Lane, appears to have resolved this question. Relying almost exclusively on federal case law, the Court concluded that “Congress enacted Title II against a backdrop of pervasive unequal treatment in the administration of state services and programs-” Lane, 124 S.Ct. at 1989. It found in the case law examples of irrational discrimination by states against the disabled in the contexts of: voting; marriage; jury eligibility; state mental institutions; zoning decisions; public education; the penal system; and access to the judicial system. Id. at 1989. The Supreme Court has thus concluded that the “inadequate provision of public services and access to public facilities [for the disabled are] appropriate subjeet[s] for prophylactic legislation.” Id. at 1992. The final step in this analysis is to determine whether Title II is a congruent and proportional response to irrational discrimination by states against the disabled as identified in Lane. See Lane, 124 S.Ct. at 1992 (“The only question that remains is whether Title II is an appropriate response to this history and pattern of unequal treatment.”); see City of Boerne, 521 U.S. at 530, 117 S.Ct. 2157. In outlining this test, the Supreme Court has counseled: “The appropriateness of remedial measures must be considered in light of the evil presented. Strong measures appropriate to address one harm may be an unwarranted response to another, lesser one.” Id. at 530, 117 S.Ct. 2157. To survive scrutiny, Title II must be tailored to remedy or prevent the “identi[fied] conduct transgressing the Fourteenth Amendment’s substantive provisions.” Coll. Sav. Bank v. Florida Prepaid Post-secondary Edu. Expense Bd., 527 U.S. 666, 639, 119 S.Ct. 2219, 144 L.Ed.2d 605 (1999); see City of Boerne, 521 U.S. at 520, 117 S.Ct. 2157 (“There must be a congruence and proportionality between the injury to be prevented or remedied and the means adopted to that end.”) (emphasis added). The Supreme Court concedes in Lane, that taken as a whole, Title II may not be permissible § 5 legislation. See Lane, 124 S.Ct. at 1992 (“[T]he fact that Title II applies not only to public education and voting-booth access but also to seating at state-owned hockey rinks indicates that Title II is not appropriately tailored to serve its objectives.”); but see id. at 1992-93 (refusing to consider the constitutionality of Title II as a whole). This conclusion is consistent with the Supreme Court’s case law. In finding that the Religious Freedom Restoration Act of 1993 was not permissible § 5 legislation the Supreme Court noted that the act’s “[sjweeping' coverage ensures its intrusion at every level of government, displacing laws and prohibiting official actions of almost every description regardless of subject matter.” City of Boerne, 521 U.S. at 532, 117 S.Ct. 2157. Title II’s coverage is just as sweeping.. It regulates, by it own terms, “any State or local government; any department, agency, special purpose district, or other instrumentality of a State or local government.” See 42 U.S.C. § 12131(1). It regulates every state, every local government, and every state or local agency in the United States regardless of whether that-entity (or one like it) has ever engaged in irrational disability discrimination. Taken as a whole, there can be little doubt that “the accommodation obligation imposed by Title II ... far exceeds that imposed by the Constitution” and is not a congruent and proportional response • to the findings of irrational discrimination by states as outlined in Lane. See Reickenbacker, 274 F.3d at 983. Ordinarily this would have been the end of the inquiry. Until Lane, the constitutionality of a statutory provision was considered as a whole. See e.g., Garrett, 531 U.S. at 365-74, 121 S.Ct. 955 (applying § 5 analysis to Title I as a whole); City of Boerne, 521 U.S. at 529-36, 117 S.Ct. 2157 (applying § 5 analysis to RFRA as a whole). However, in Lane, the Supreme Court took a different approach. While admitting that taken as a whole Title II may “not [be] appropriately tailored to serve its objectives,” it concluded that as-applied in some circumstances Title II is appropriate § .5 legislation. See Lane, 124 S.Ct. at 1992-93. Specifically, it held that “Title II unquestionably is valid § 5 legislation as it applies to the class of cases implicating the accessibility of judicial services.” Id. at 1993. It then refused to address the application of Title II in any other circumstance. See id. The Supreme Court has thus structured a new test involving an “as-applied analysis” whereby courts do not evaluate the constitutionality of the statute' as written, but instead posit “a hypothetical statute ... that applies only to” the relevant circumstance. See id. at 1993 n. 18 (holding that courts “need not examine the full breath of the statute at once”); see also id. at 2005 (Rehnquist J., dissenting) (acknowledging the change in approach). As this is a brand new approach to considering the constitutionality of a statute there is a dearth of precedent on which to rely in considering how to apply this test. However, Lane itself provides a ro-admap for how to appropriately determine whether Title II, as-applied to the circumstances of this case, is appropriate § 5 legislation. In Lane, the Court first referred back to its findings regarding “unequal treatment of disabled persons in the administration of judicial services.” Id. at 1993. It then concluded that Title II’s requirement that states take “reasonable measures to remove architectural and other barriers to accessibility” is appropriate legislation because as-applied it is a congruent and proportional response to the Court’s findings of irrational discrimination by states in the administration of judicial services. See id. at 1993. The Court thus identified the specific constitutional problem to be remedied (as evidenced by its findings) and then evaluated Title II as it regulates that specific problem. See id. at 1994. The Supreme Court identified eight general areas where there is a demonstrated history of irrational discrimination by states against the disabled: voting; marriage; jury eligibility; state mental institutions; zoning decisions; public education; the penal system; and access to the judicial system. See id. at 1989. The only one of these areas possibly applicable to this case is state mental institutions. The Court found that there is a “documented history” of unconstitutional discrimination by state agencies in the settings of “unjustified commitment” and “the abuse and neglect of disabled persons committed to state mental institutions.” It documented this history by citing two of its cases: Jackson v. Indiana, 406 U.S. 715, 92 S.Ct. 1845, 32 L.Ed.2d 435 (1972), and Youngberg v. Romeo, 457 U.S. 307, 102 S.Ct. 2452, 73 L.Ed.2d 28 (1982). In Jackson v. Indiana, the petitioner, Theon Jackson, had been committed to a state mental institution for an indefinite period of time on account of his incompetency to stand trial for petty burglary. Jackson, 406 U.S. at 717-20, 92 S.Ct. 1845. The trial judge ordered Jackson confined to a state mental institution until it was determined that he was competent to stand trial. Id. at 719, 92 S.Ct. 1845. Based on the evaluation of Jackson by two physicians, he would likely never be competent to stand trial and would thus be confined to a mental institution for the rest of his life. Id. The Supreme Court held that Indiana violated Jackson’s rights to equal protection and due process by condemning him to permanent institutionalization without the benefit of a civil commitment hearing applying the proper state standards governing forced institutionalization. Id. at 730-31, 92 S.Ct. 1845. In making its ruling, the Court did not question the ability of states to order institutionalization or the normal process by which states determine whether an individual should be committed. See id. at 736, 92 S.Ct. 1845 (“States have traditionally exercised broad power to commit persons found to be mentally ill.”). Instead, it concluded that the method by which Jackson had been committed violated his constitutional rights. In Youngberg v. Romeo, Nicolas Romeo, who was confined to a state mental institution pursuant to proper procedures, sued the state mental institution to recover damages for injuries caused by his own violent behavior and attacks from other residents of the facility. Romeo, 457 U.S. at 311, 102 S.Ct. 2452. The Court considered the question of whether Romeo, as an “involuntarily committed retarded person,” had a “constitutionally protected liberty interest in safety, freedom of movement and training within the institution.” Id. at 314-15, 102 S.Ct. 2452. It concluded that institutionalized persons like Romeo do have these constitutional rights and that states are obliged to protect them. Id. at 324, 102 S.Ct. 2452 However, recognizing the difficulty of operating a state mental institution and balancing the protection of these rights with the orderly operation of such a facility, the Court concluded that the decisions of the professional personnel who operate these institutions “are entitled to a presumption of correctness.” Id. While the Court delineated the rights possessed by institutionalized persons when they are in forced state custody, it did not reprimand the state mental institution for its decisions concerning the care of Romeo or other similarly situated persons. These two cases relate solely to the process by which a disabled person is committed to a state mental institution and the treatment of that person in such a facility once institutionalized. To the extent that Title II regulates the process by which disabled persons are institutionalized and their treatment in state mental institutions once they have been committed it may be a congruent and proportion response to the irrational discrimination highlighted in Jackson and Romeo Such an analysis must be left to another day because the defendant commissioners in this case neither run a state mental institution nor do they make decisions regarding forced institutionalization. They run Texas’s Home and Community-based Waiver Services program which provides home and community based services for disabled individuals. The Plaintiffs seek to participate in this program, they do not seek to overturn a decision forcing their institutionalization nor do they seek to challenge the care they receive in a state mental institution. Title IPs regulation of Texas’s decisions regarding participation in this program has nothing to do with either forced institutionalization or the treatment of disabled individuals who reside in state mental institutions. Therefore, even under the broadest understanding of these terms