Document: 462 U.S. 367 103 S.Ct. 2404 76 L.Ed.2d 648 William C. BUSH, Petitionerv.William R. LUCAS. No. 81-469. Argued Jan. 19, 1983. Decided June 13, Syllabus Petitioner, an aerospace engineer employed at the George Marshall Space Flight Center, a facility operated by National Aeronautics and Administration (NASA), made number of public statements to news media highly critical Center. Subsequently, respondent Director Center demoted petitioner for making on ground that they were false misleading. The Federal Employee Appeals Authority upheld demotion, but Civil Service Commission's Review Board, upon reopening proceeding petitioner's request, found demotion had violated his First Amendment rights. NASA accepted Board's recommendation be restored former position retroactively he receive backpay. While administrative appeal from was pending, filed action against in Alabama state court, seeking recover damages violation Respondent removed District Court, which granted summary judgment respondent. Court affirmed, holding no cause under retaliatory view available remedies Commission regulations. Held: Because claims arise out employment relationship is governed comprehensive procedural substantive provisions giving meaningful United States, it would inappropriate this supplement regulatory scheme with new nonstatutory remedy. Pp. 374-390. (a) federal courts' statutory jurisdiction decide questions confers adequate power award victim constitutional even if Congress has not expressly authorized such When provides alternative remedy, may indicate its intent should exercised. In absence congressional directive, courts must make kind remedial determination appropriate common-law tribunal, paying particular heed, however, any special factors counselling hesitation before authorizing litigation. 374-380. (b) Government's protecting civil servants arbitrary supervisors employees who ave been unfairly disciplined comments about their agencies. Given history development service nature currently available, question case what remedy court provide wrong otherwise go unredressed, whether elaborate system constructed step step, careful attention policy considerations, augmented creation judicial issue. This declines create because better or interest served creating it. 380-390. 647 F.2d 573, affirmed. Harvey Elrod, Jr., petitioner. Kenneth S. Geller, Washington, D.C., Justice STEVENS delivered opinion Court. 1 Petitioner asks us authorize whose rights are superiors. we conclude 2 Bush major Alabama. Lucas 1974 reorganized twice reassigned positions. He objected both reassignments sought formal review Commission.1 May 1975, while some appeals statements, including two televised interviews, agency. quoted him as saying did have enough work keep busy, job "a travesty worthless," taxpayers' money being spent fraudulently wastefully His reported local television, newspaper, national press release appeared newspapers least three other States.2 3 1975 respondent, response reporter's inquiry, stated conducted investigation regarding "no basis fact." App. 15. August adverse personnel initiated remove position. charged "publicly mak[ing] intemperate remarks misleading often false, evidencing malicious attitude towards Management generating environment sensationalism demeaning Government, thereby impeding Government efficiency economy adversely affecting confidence service." also informed conduct undermined morale caused disharmony disaffection among fellow employees.3 opportunity file written oral presentation agency officials. then determined justify removal, lesser pen lty "first offense." approved reduction grade GS-14 GS-12, decreased annual salary approximately $9,716. 4 exercised right Authority. After three-day hearing, charges concluded justified. It specifically that, reasons, "exceeded bounds expression protected Amendment." First, stem interest, desire abolished so could take early retirement law school. Second, conveyed erroneous impression deliberately wasting funds, thus discrediting employees. Third, there legitimate abolishing position.4 5 Two years after Authority's decision, requested Board reopen proceeding. reexamined claim and, detailed record applicable authorities, applied balancing test articulated Pickering v. Education, 391 563, 88 1731, 20 811 (1968). On one hand, acknowledged evidence tending show motive might personal gain, disruption agency's day-to-day routine. noted society well individual free speech, disclosure information how tax dollars functioning government apparatus, promotion government, maintenance atmosphere freedom scientists engineers responsible planning implementation nation's space program." though somewhat exaggerated, "were wholly without truth, properly stimulated debate." Thus extent proven operations "justify abrogation exercise speech."5 recommended position, November 30, back pay. That accepted. received $30,000 6 defamation lawsuit States Northern Alabama, respondent's motion judgment. held, first, maintained because, Barr Matteo, 360 564, 79 1335, 1434 (1959), absolutely immune liability defamation; second, deprivation maintained.6 Fifth Circuit 598 958 (1979). We vacated court's judgment, 446 914, 100 1846, 64 268 (1980), directed reconsider light our intervening decision Carlson Green, 14, 1468, 15 (1980). again affirmed adhered previous conclusion "that plaintiff regulations." 574 (1981). explained between factor recognition Constitution context. 7 assume purposes action.7 asserts, effective remedy8 fully compensate harm suffered.9 further propositions undisputed. provide. precluded declaring existing statutes exclusive mode redress. 8 Thus, assume, provided less than complete wrong. If writing clean slate, answer either quite simple ways. adopt approach causes hold province judiciary fashion every can proved over jurisdiction.10 Or start premise limited powers do extend beyond granting relief Congress.11 Under approach, obviously prevail; latter, equally clear lose. 9 Our prior cases, although sometimes emphasizing other, unequivocally rejected extremes. They establish grant statute, remind relevant determinations Congress. therefore first cases establishing violations consider bearing precise issue presented case. 10 * firmly established. 28 U.S.C. § 1331 (1976), all "aris[ing] Constitution, laws, treaties States." jurisdictional only authority plaintiff's injured Bell Hood, 327 678, 684, 66 773, 776, 90 L.Ed. 939 (1946), choose order vindicate fashioned wide variety officials.12 most problem those held itself supports private official. Bivens Six Unknown Fed. Narcotics Agents, 403 388, 91 1999, 29 619 (1971); Davis Passman, 442 228, 99 2264, 60 846 (1979); 11 alleged agents, warrant probable cause, arrested searched home manner causing great humiliation, embarrassment, mental suffering. claimed theory Fourth independent relief. sufficiency complaint, rejecting argument tort trespass why obstacle damages: 12 "That obtained injuries consequent officials hardly seem surprising proposition. Historically, regarded ordinary invasion interests liberty. See Nixon Condon, 286 73 [52 S.C . 484, 984] (1932); Herndon, 273 536, 540 [47 446, 71 759] (1927); Swafford Templeton, 185 487 [22 783, 46 1005] (1902); Wiley Sinkler, 179 58 [21 17, 45 84] (1900); J. Landynski, Search Seizure Supreme et seq. (1966); N. Lasson, History Development 43 (1937); Katz, Jurisprudence Remedies: Constitutional Legality Law Torts 117 U.Pa.L.Rev. 1, 8-33 (1968); cf. West Cabell, 153 78 [14 752, 38 643] (1894); Lammon Feusier, 111 17 [4 286, 337] (1884). Of course, does many words enforcement consequences violation. But 'it settled where legal invaded, statute general sue invasion, use good done.' U.S., 684 [66 S.Ct., 776] (footnote omitted). present involves affirmative dealing 'federal fiscal policy,' Standard Oil Co., 332 301, 311 [67 1604, 1609, 2067] (1947)." 395-396, 2004. 13 explicit declaration persons officer's instead remitted another Congress." Id., 397, 2005. 14 separate concurring opinion, Harlan thought vindication placed exclusively Congress' hands. 401-402, 2007. Instead, reasoned, real "whether afford type opposed rather criteria govern power." 406, 2009. resolving suggested range considerations into account broad legislature respect expressed authorization traditional remedy." 407, 2010. weighing policies agreed Court's advanced substantial consideration recognizing (1979), petitioner, deputy assistant Member Congress, she discharged her sex, equal protection laws. Due Process Clause gave official discrimination action. reaching emphasized fact form available.13 Not "it nothing"; persuaded concerns ordinarily militate allowing recovery legislator reflected defense based Speech Debate Constitution. 246, 2277. o injury. 246-247, 2277-2278. 16 involved prisoner's Eighth violated. mother brought suit behalf son's estate, alleging prison death duty proper medical care suffered severe asthmatic attack. Unlike Davis, Green Tort Claims Act, 2671 (1976). As true case, completely -type directly defeated situations, neither present. discern 18-19, 1471, citing Bivens, 396, 2004, 245, foreclosing Act exclusive. n. 5, 1472 5. No declared FTCA substitute action; indeed, legislative amendments "made crystal views parallel, complementary action." 19-20, 1471-1472. 18 much established cases. may, intent, language, history, perhaps itself, 19 resolved denying seeks providing substitute.14 There is, deal employee's attempt superior "special hesitation." used illustrated meaning referring 311, 316, 67 1612, 2067 (1947), Gilman, 347 507, 74 695, 98 898 (1954). asked tortfeasor soldier, imposing hospital expenses depriving services. Although, Jackson dissent, allowance usurpation power, 318, 1613, nevertheless "the custodian purse" necessary policy.15 refused instrument determining executive arm thinks prevail situation covered traditionally liabilities." 314, 1611. 21 Similarly, rationale reject indemnity having liable negligence. noted, "The relations myriad problems dealt. gives rise import, Executive Legislative Branches." 374 509, 696. employee discipline morale, policy, service. Hence, wrote, reasons deferring Congressional more compelling Oil. 22 "Here complex agencies staffs involved. Moreover, now asserted, product passed, matter taken presents spoken. selection advantageous whole host weighed appraised. function appropriately write interpret them." 511-513, 697-698. 23 Gilman concern merits sought. Rather, related provided. begin considering prescribe scope supervisors. II 24 Un ike Nevertheless, just "federal policy" employees, ultimate characterized policy." servant discharge rights, him? 25 changed dramatically years. Originally entirely discretion. During era patronage prevailed enactment Pendleton 1883, Stat. 403, political retaliation. Indeed, support candidate opposing party office routinely discharge.16 past century, security steadily increased. 26 created merit competitive examination. Although address removals general,17 required contribute fund fired refusing so, prohibited officers attempting influence coerce actions others.18 27 politically-motivated prompted issuance Orders Presidents Roosevelt Taft forbade communicate permission supervisors.19 These "gag orders," enforced dismissal, cited several legislators reason enacting Lloyd-LaFollette 1912, 37 539, 555, 6.20 person classified shall therefrom except will promote said given writing, ."21 explicitly guaranteed "to furnish House committee member thereof, denied interfered with."22 Report explained, legislation intended protect oppression speech consult representatives."23 competing efficient management preclude extension employees.24 ensuing years, repeated conflicting security, speak freely, maintaining workforce additional legislation,25 various orders,26 promulgation regulations Commission.27 elaborate, encompasses forbidding procedures—administrative judicial—by improper redressed. apply multitude decisions daily agencies.28 challenges action, raised cognizable within system. demonstrates, costly administer, agencies.29 A "only service."30 time 1975,31 substantially similar effect, 30 days' notice proposed discharge, suspension, accompanied copy charges. examine disclosable materials formed CFR 752.202(a) (1975), statement supporting affidavits, non-evidentiary 752.202(b).32 final higher rank 752.202(f). entitled notification stating initial sustained. Ibid. 7501(b)(4) next §§ 752.203, 772.101 (1975).33 trial-type hearing witnesses, cross-examine secure attendance officials, 772.307(c),34 render 772.309(a). An FEAA judicially reviewable district Claims.35 addition, ask FEAA. 772.310. 31 process review, reinstatement retroactive seniority. 752.402. full pay, credit periodic within-grade increases pay raises during period, allowances, differentials, accumulated leave. 550.803. these put "in same unjustified place."36 32 confront today different typical confronted court. unredressed. cannot answered simply noting plaintiff. thorough understanding structure res ective costs benefits result addition employees' 33 associated disciplinary already significant—not monetary terms, energy managerial defend decisions. argues supervisory hesitant administering discipline, ensues inevitably makes performance regular duties difficult. Brief 37-41. Whether assessment accurate, face added risk believe correct criticism agency, deterred future events, far evaluate impact species litigation developed considerable familiarity governmental inform through factfinding procedures hearings courts. 34 Nor discount ability evenhanded desirability expressing controversial views. informing Branch. demonstrated awareness lower-level valuable source information, improperly curtail subordinates' expression.37 35 permit supervisor exercising Oil, decline aid common law" 302, 1605, convinced 36 Affirmed. MARSHALL, whom BLACKMUN joins, concurring. I join agree (1971). separately emphasize my designed compensation 23, 1474, (1980); Sonntag Dooley, 650 904, 907 (CA7 1981), affords damage 39 procedure unlike action,* loss due emotional distress anguish, plainly compensatory when enacted Back Pay 1966, (Supp. V) 5596. "pu[t] place." S.Rep. 1062, 89th Cong., 2d Sess. (1966), U.S.Code Cong. & Admin.News p. 2097. H.R.Rep. 32, 1st (1965); Sampson Murray, 415 61, 82-83, 94 937, 949, 166 (1974). nothing today's foreclose pursuing injury attributable remedied scheme. 40 assertion ante, 2418. To with, respects preferable 18-21. For example, burden proof borne employee. Commission, Conducting Hearings Finfer Caplin, 344 38, 41 (CA 2), cert. denied, 382 883, 86 177, 124 Pelicone Hodges, 320 754, 756 (CADC 1963). overcome qualified immunity damages. Butz Economou, 438 478, 2894, 57 895 (1978). Finally, likely prove speedier lawsuit. advantages clearly outweighed obvious significant disadvantages procedure—that denies claimant option jury trial, see supra, 22-23, 1473-1474, trial Chandler Roudebush, 425 840, 851-853, 96 1949, 1955-1956, 48 416 emphasizes, "[t]he unredressed." Ante, 388. redressed "an considerations." unnecessary indicates reassignment second. Pet. Writ Cert. e-3 e-4. asserts previously unsuccessful attempts obtain 30. d-2 d-3 (memorandum Court); id., e-19 (opinion Authority). f-2 f-3, e-19, e-7. e-38 e-39. filing Claims, so. f-23 f-25. d-17. Competent decisionmakers reasonably disagree claim. Compare D Cert., Atlanta Field Office Employees Appeal issued 12, 1976, E, claims, July 1978, F, finding us. 20-23, 1472-1474, (1980) (factors "effective" official). contends individually, punitive adequately deter unconstitutional 27-29. attorney's fees paid uncompensated dignitary harms. 24-26. disposition need recovered Marbury Madison, Cranch 137, 162-163, (1803), Chief invoked Blackstone's Commentaries Blackstone written, indisputable rule, right, suit, law, whenever invaded. [I]t invariable principle laws England, withheld, redress." 109. 428, 2020, (1971) (Black, J., dissenting). See, e.g., Lee, 106 196, 240, 171 (1882) (ejectment enforce Takings Amendment); 58, 64-65, 20, 84 (1900) (damages officer vote election); Ex parte Young, 209 123, 441, 52 714 (1908) (injunctive Fourteenth Weeks 232 383, 398, 341, 346, 652 (1914) (exclusion criminal seized Jacobs 290 16, 54 26, 27, 142 (1933) (award principal founded Swann Charlotte-Mecklenburg Bd. 402 15-16, 1267, 1275-1276, 554 (school busing racial segregation). generally Hill, Remedies, 69 Colum.L.Rev. 1109, 1124-1127 (1969). "Moreover, since longer Congressman, equitable unavailing. And forms nothing.' [403 U.S.] 410 [91 2011] (Harlan, judgment)." reach requires judicially-fashioned underlying unless express tex ual command contrary. Cf. retaliation constitutionally adequate. pp. 386-388, infra. "Whatever conversion subject creative ours. courts, purse. By token primary arbiter affairs. comprehend, said, securing treasury financial losses however inflicted, requiring reimbursement them, filling itself." 314-315, redress new, presumably knew undoubted 315-316, 1611-1612. Committee Retrenchment submitted Senator 15, 1882, contained vivid description system, reading part follows: confessed observers commended 'to victors belong spoils;' each administration comes business distributing friends. [The President] predecessor left undone, undo others done; man up down, rewards punishments demand." 576, 47th (1882). Post Service, Merit Systems Selected Foreign Countries, 94th 26-173 supra 9; compare 1826, 1-2 (rejected bill permitting cause). Section provided, "No mentioned act promote, degrade, change employee, promise threaten do, withholding neglecting contribution thing purpose." Other sections unlawful solicit contributions from, give to, 11, premises, 12. promulgate rules providing, inter alia, obligations fund, service, prejudiced so," body." 404. 2302(b)(3) V 1981); 7321-7323 1906 President Order 1142, that: "All description, serving departments establishments, hereby forbidden, indirectly, individually associations, increase own whatever, committees, way save heads establishments serve, penalty dismissal Theodore Roosevelt." order, 1514, 1909: "It ordered bureau, office, division chief, subordinate department Army Navy Marine Corps stationed appropriations, kind, consent knowledge head department; nor respond request department. H. Taft." Cong.Rec. 4513, 5223, 5634, 5635, 10673, 10729-10730 (1912). 4513 (1912) (remarks Rep. Gregg) ("[I]t purpose wiping existence despicable 'gag rule' provision inserted. rule unjust, unfair, citizens.") bill's proponents asserted gag servants. 4653 Calder) (1912); 4738 Blackmon); 5201 Prouty); 5223 O'Shaunessy); 5634 Lloyd); 5637-5638 Wilson); 10671 Sen. Ashurst); 10673 Reed); 10793 Smith); 10799 LaFollette). affidavits. requ rements adopted McKinley 1897, enforceable. Systems, 202-203. specific guarantee membership association postal improvements wages, hours, working conditions, grievance, "shall constitute removal groups 62d Members House, originated 6, improve away discontent suspicion exists restore get best results employees." 4654 Calder); 5635 Lloyd). Senate initially took urging report 10732 (House version) omitted entirely: "As last clause section citizens grievances thereof. occupy relative citizens. Upon them citizens, petition direct. regard connected relation channels." 955, Cong.2d Bourne believed recognize matters appertaining grievances, selfish detrimental itself; destroy 10676 prevail. extended discussion floor debate concerning organize 10671-10677, 10728-10733, 10792-10804, offered compromise amendment version—guaranteeing part—which subsequently law. 10804; 555. Among Veterans Prefer nce 1944, 390 (protecting veterans extending 1912 Act's protections removals, adding orally Commission); 1948, 62 354 (extending suspended pay; awards certain categories victims reductions force); 81 203 (1967) lost affected unjustified); Reform 92 1134 (shifting adjudicative functions Protection modifying procedures, so-called "whistleblowers"). Exec. 10988, Fed.Reg. 551, 556 (1962), 11491, 22, 17605, 17614 (1969), printed note following 7301 suspension 772 (1975). suspensions days less, 7503 probationary 7511. wiretapping, warrantless searches, takings, defined 'personnel actions' empirical study quarter contested. Merrill, Procedures Adverse Actions Against Employees, 59 Va.L.Rev. 198-199 (1973). 1970, succeeded 20% 24% Before 47% appealed demotions contested successful. 204 35. Prior accorded 7501(a) (1976) (removals non-preference-eligible employees); id. 7512(a) (removals, preference-eligible employees), Orders, implemented Ser ice regulations, 752.104(a), 752.201 (1975) (adverse actions, non-preference-eligibles). 1978 retained 7513(a) supplemented specifying "prohibited practices." 2302. Various aspects discussed text times. 29, 214-218. amendments, discretionary evidentiary hearing. 7501(b) (1976); 7513(c) 752.404(g) (1983). amended representation attorney person. 7513(b)(3) 752.404(e) (MSPB). 1205, 7543(d), 7701 1981). specify carried burdens production persuasion. participants reviewing assumed 251; Johnson Stoll, Judicial Dismissals Actions, Cornell L.Rev. 178, 192-193 (1972). MSPB. 7703 Courts Improvement 1982, 127(a), Pub.L. 97-164, (to codified 1295). remarkable similarity enacted. Calder stated, "There always sides question, surely competent needs men perform actual work. anyone known unsatisfactory who, ask, lay complaints suffer grievances?" Print "Federal suppressed Since closer top testified spoken reporters, public. Mid-level programs, budgets, overall performance." Governmental Affairs, Whistleblowers, 95th (Comm.Print 1978). 95-1403, 386-387 (1978); 95-969, (1978), 2723. Halperin Kissinger, 606 1192, 1207-1208 1979), aff'd divided 452 713, 101 3132,

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