Document: 520 U.S. 651117 S.Ct. 1573137 L.Ed.2d 917 Jon E. EDMOND, Petitioner,v.UNITED STATES.Jake A. LAZENBY, STATES.Michael B. LEAVER, STATES.James LEONARD, STATES.Robert J. NICHOLS, STATES.Donald H. VENABLE, STATES. No. 96-262. Supreme Court of the United States Argued Feb. 24, 1997. Decided May 19, Syllabus * The Coast Guard Criminal Appeals (formerly Military Review) hears appeals from decisions courts-martial, and its are subject to review by for Armed Forces. Under Article 66(a) Uniform Code Justice (UCMJ), judges may be commissioned officers or civilians. During times here relevant, court had two civilian members, both whom were originally assigned General Counsel Department Transportation. In anticipation possible invalidation these assignments under Appointments Clause, II, §2, cl. 2, Secretary Transportation issued a memorandum "adopting'' Counsel's earlier judicial as appointments his own. Ryder v. States, 515 177, 115 2031, 132 136, this overturned conviction that been affirmed, before secretarial appointments, Review panel included it was conceded not validly appointed pursuant Clause. present case concerns validity six convictions affirmed (or predecessor), with one participating, after appointments. Forces convictions, relying on holding remand in Secretary's valid cured defect previously existed. Held: at issue valid. Pp. ____-____. (a) Congress has authorized appoint members Appeals. Petitioners' argument those invalid because lacks power 49 U.S.C. §323(a) is rejected. Although does specifically mention such judges, plain language authorizes "appoint fix pay employees Department.'' This rejects petitioners' assertion default statute superseded express UCMJ giving Judge Advocate each military branch exclusive authority judges. Conspicuously absent any "appointment.'' Instead, refers only "who Appeals'' (emphasis added). fact found distinction significant Weiss 510 163, 171-172, 114 752, 757-758, 127 1, suggests appointment but their assignment. A contrary interpretation would render unconstitutional, Clause could give Advocates "appoint'' even inferior States. (b) authorization constitutional. gives President select principal advice consent Senate, "vest Appointment . Officers Heads Departments.'' Despite importance responsibilities question bear, they "inferior Officers'' Generally speaking, officers'' whose work directed supervised some level others who presidential nomination Senate's consent. See, e.g., 1 Stat. 28, ch. 4, §§1, 2. Supervision divided between (who subordinate Secretary) See Arts. 66(f), 67(a), UCMJ. Significantly, have no final decision behalf unless permitted do so other executive officers, hence within meaning II. Morrison Olson, 487 654, 671-672, 108 2597, 2608-2609, 101 569, Freytag Commissioner, 501 868, 111 2631, 764, distinguished. 45 M.J. 19 (first judgment), 44 273 (second, third, fifth, sixth judgments), 272 (fourth affirmed. SCALIA, J., delivered opinion Court, which REHNQUIST, C. STEVENS, O'CONNOR, KENNEDY, THOMAS, GINSBURG, BREYER, JJ., joined, SOUTER, joined Parts I filed an concurring part judgment. Alan Morrison, Washington, DC, petitioners. Malcolm L. Stewart, respondent. SCALIA Court. We must determine whether Appeals, if so, constitutional 2 known intermediate justice system. It four Courts Appeals; exist Army, Air Force, Navy-Marine Corps. Appeals).1 3 Appellate bar, Art. 66(a), 10 §866(a). relevant case, Chief Joseph Baum Associate Alfred F. Bridgman, Jr. These serve Transportation, is, ex officio, Guard, 1(1), UCMJ, §801(1). Subsequent events, however, called into assignments. 4 (1994), we considered assignment without reappointment held trial appellate — Id., 170, S.Ct., 757. upheld officer, serving active duty commission time he court. noted, "allowing civilians Review, being obviously presents quite different question.'' n. 757, 4. 5 our Weiss, sent requesting Secretary, capacity department head, reappoint constitutionally beyond doubt. Senior, 36 1016, 1018 (C.G.C.M.R.1993). On January 15, 1993, "as my own.'' then listed names " [t]hose presently me,'' including Bridgman. Addendum Brief Petitioners A6. 6 Two Terms ago, 136 (1995), 1993. Government see O.T. 1994, 94-431, p. 9, argued Ryder's should notwithstanding defect. disagreed, "entitled hearing properly of'' Review. U.S., ----, ---- (slip op., 10). did consider 7 Each petitioners convicted court-martial. sentence whole part, predecessor participated decision, Bridgman involving Ryder, 9 (1996), Transportation's sought consolidated petition Court's Rule 12.4, granted certiorari, 519 117 416, 328 (1996). II 8 argue reasons: first, court; second, principal, inferior, therefore Senate. contentions turn. established service armed forces that, except war (when operates Navy), 14 §§1-3. broad over "promulgate regulations orders deems appropriate carry out provisions [Title 14] law applicable Guard,'' §633. Commandant required "carry duties powers prescribed Transportation,'' "reports directly Secretary.'' §108(b). Most provides: "The prescribe powers.'' dispute Thus, although appears them. argue, statute, where otherwise provided specific officers. contend §866(a), respective That provision reads follows: 11 "Each shall establish composed more panels, less than three civilians, member bar Federal highest State. designate chief judge him. panels will act senior panel.'' 12 Were accept providing "appointment'' intended means might prove persuasive. Ordinarily, conflicts general one, governs. Busic 446 398, 406, 100 1747, 1752-1753, 64 381 (1980). difference "assign'' particular task merely stylistic. courts "appointed'' designated position requiring reappointment. 176, 760. noted consistently used word respect positions separate appointment, rather using terms "assign'': "Congress repeatedly distinguished office require "assigned' "detailed' superior officer.'' 172, 758. sections relating "speak explicitly exclusively "detail' "assign'; nowhere made appointment.'' analysis 13 Moreover, way interpret make consistent Constitution. States; can conferred upon President, heads, law. asking us manner clearly unconstitutional-which course avoid doing there another reasonable available. NLRB Catholic Bishop Chicago, 440 490, 500, 99 1313, 1318-19, 59 533 (1979); Blodgett Holden, 275 142, 48 105, 72 L.Ed. 206 (1927). respond reading permit causes unnecessarily reach since vest head. But confronted order preserve, possible, congressional enactment unnecessarily. conclude judges; so; turn III 15 Constitution 16 [The President] nominate, Advice Consent Ambassadors, public Ministers Consuls, Judges supreme all herein for, Law: Law Officers, think proper, alone, Law, Const., 17 As recognized Buckley Valeo, 424 125, 96 612, 685, 46 659 (1976), matter "etiquette protocol''; among structural safeguards scheme. By vesting (noninferior) prevents encroachment Executive Judicial Branches. id., 128-131, 686-688; supra, 183-185, 763-765 (SOUTER, concurring); 904, 2652, 764 (1991) (SCALIA, concurring). disposition also designed assure higher quality appointments: Framers anticipated vulnerable interest-group pressure personal favoritism collective body. sole undivided responsibility man naturally beget livelier sense duty, exact regard reputation.'' Federalist 76, 387 (M. Beloff ed. 1987) (A. Hamilton); accord, Story, Commentaries 374-375 (1833). President's left unguarded, further requires "Advice Senate.'' serves curb abuses power, 376-377, "to promote judicious choice [persons] filling offices union,'' 386-387. joint participation ensure accountability making bad rejection good one. Hamilton observed: 18 blame fall president singly absolutely. censure rejecting lie entirely door senate; aggravated consideration having counteracted intentions executive. If ill made, nominating, senate approving, participate, though degrees, opprobrium disgrace.'' 77, 392. 375 ("If [the surrender patronage hands profligate men, low adventurers, impossible him long retain favur.'') 20 [B]ut,'' continues, "the provision, sometimes referred "Excepting Clause,'' added proposed last day Grand Convention, little discussion. M. Farrand, Records Convention 1787, pp. 627-628 (1911 ed.). early opinions suggests, obvious purpose administrative convenience, Germaine, 508, 510, 25 482 (1879)-but convenience deemed outweigh benefits cumbersome procedure Officers.'' Section 323(a), confers applied 21 Our cases set forth criterion distinguishing purposes. Among district clerk, Ex parte Hennen, 38 (13 Pet.) 225, 229, (1839), election supervisor, Siebold, 371, 397-398, 717 (1880), vice-consul charged temporarily consul, Eaton, 169 331, 343, 374, 379, 42 767 (1898), "United commissioner'' proceedings, Go-Bart Importing Co. 282 344, 352-354, 51 153, 156-157, 75 374 (1931). recently, 569 (1988), independent counsel created Ethics Act 1978, 28 §§591-599, officer. reaching conclusion, relied several factors: removal officer (the Attorney General), she performed limited duties, her jurisdiction narrow, tenure limited. 2608-2609. 22 correct conclusions hold here. "limited tenure,'' phrase describe "appoint[ment] essentially accomplish single [at end which] terminated.'' 672, 2609. Nor jurisdiction,'' refer investigate prosecute individuals, crimes, scope special appointing panel. 192, 768 However, purport definitive test "inferior'' To contrary, stated: "We need attempt decide exactly line falls types view counsel] officer' side line.'' 671, 2608. 23 support principal-officer status, emphasize bear. They court-martial proceedings result most serious sentences, "in sentence, approved, extends death, dismissal , dishonorable bad-conduct discharge, confinement year more.'' 66(b)(1), §866(b)(1). court-martial's finding guilt "correct fact,'' 66(c), §866(c), includes resolution challenges. And finally, unlike defer court's factual findings, independently "weigh evidence, credibility witnesses, controverted questions fact, recognizing saw heard witnesses.'' Ibid. exercising This, true 881-882, 2640-2641, (special "significan[t] discretion'' officers). exercise "significant laws States'' marks, purposes, rather, said Buckley, non-officer. 126, 685-686. 24 term officer'' connotes relationship ranking below President: depends superior. enough identified formally maintain rank, possess greater magnitude. intention, "lesser Rather, context clause preserve political relative important government assignments, evident understanding conforms views first Congress. July 27, 1789, department, Foreign Affairs. doing, expressly "principal officer,'' subordinate, Clerk Department, officer:'' 26 "Section 1. Be enacted denominated Affairs, therein, perform execute enjoined intrusted agreeable Constitution, [matters respecting foreign affairs]; furthermore, conduct business instruct. 27 enacted, employed therein deem Affairs .'' IV. similar establishing War, referring "employed'' "shall proper,'' 49, VII. 29 Transportation) exercises oversight He "prescribe uniform rules procedure'' court, "meet periodically [with General] formulate policies cases.'' §866(f). parties remove cause. recognized, powerful tool control. Bowsher Synar, 478 714, 727, 106 3181, 3188, 92 583 (1986); Myers 52, 47 21, 71 160 (1926). 30 General's control sure, complete. influence (by threat otherwise) outcome individual 37, §837, reverse latter reside, Branch entity, Forces.2 reviews every which: death; review; (c) itself grants accused. §867(a). narrower exercised Appeals: competent evidence record element offense doubt, reevaluate facts. 67(c), §867(c); Wilson, 214 (C.M.A.1979). limitation What 31 Finally, (1991), assisting Tax closely resemble judges-who implied (according petitioners) officers-than note initially officers; case. distinctions First, Executive-Branch tribunal comparable Court; appealable Third Branch. §7482. supervises procedural rules, cause, submitted review. 32 *** 33 conformity reason supervision 34 Accordingly, affirm judgment petitioner. 35 ordered. 37 join agree reasoning Part insofar describes important, necessary, states [g]enerally [of direction] President; "inferior' superior.'' Ante, __. goes show combined them establishes necessary With conclusion agree, am prepared basis alone Because implies official superior, unexceptionable maxim instances dispositive status; might, example, lead cannot extend personally, judgments. re Sealed Case, 838 F.2d 476, 483 (C.A.D.C.1988), rev'd sub nom. (1988) (suggesting "lower federal "not supervision,'' F.2d, 483); cf. ante, __-__. 39 follow, control, Having sufficient it. 722, 2599, 2635 ("To condition status Even head officer'') dissenting). determination degree "inferior''' General, enquiry. went weigh jurisdiction, associated office, concluding Solicitor well despite statutory "inferiority'' General. §505 (directing Presidential "assist performance duties''). mere existence "superior'' dispositive. 40 persuasively shows, substantial supervisory notes, prescribes formulates martial cases, While facts met, wary treating demonstrate actually 41 go criminal claim condition, and, indeed, stage thinking matter, try derive rule sufficiency. needed, instead, detailed look reasons favoring scheme heavily contrary. tried 182, 763, repeat essay. 192-194, 768-769 (reviewing factors, tenure, removal; "hard say certainty'' deference branches' appropriate). Here add passage writing unrepentant. satisfied here, ultimate syllabus constitutes Reporter Decisions reader. Detroit Timber & Lumber Co., 200 321, 337, 282, 287, 50 499. changed, effective October 5, Pub.L. 103-337, §924, 2831. 141 §941, "is article Constitution,'' located purposes Defense.'' specify "location'' non-administrative clear judgments tribunals, 67, §867; meet annually committee Defense survey operation system, 146, §946; neglect misconduct, mental physical disability, §942(c).

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