Document: 415 U.S. 61 94 S.Ct. 937 39 L.Ed.2d 166 Arthur F. SAMPSON, Administrator, General Services Administration, et al., Petitioners,v.Jeanne M. MURRAY No. 72—403. Argued Nov. 14, 1973. Decided Feb. 19, 1974. Syllabus Upon being notified that she was going to be discharged on a specific date from her position as probationary Government employee, respondent filed this action claiming the applicable Civil Service regulations for discharge of employees had not been followed, and seeking temporary injunction against dismissal pending an administrative appeal Commission (CSC). The District Court granted restraining order, after adversary hearing at which declined produce discharging official witness testify reasons dismissal, ordered injunctive relief continued. Appeals affirmed, rejecting Government's contention no authority grant in class cases, holding within permissible bounds Court's discretion. Held: While is totally without interim nevertheless under standards must govern issuance such here cannot sustained. Pp. 68—92. (a) review agency action, v. Dulles, 354 363, 77 1152, 1 1403, does come into play until it may authoritatively said administrativedecision employee fact fail conform regulations, has become final, court say did or regulations. Here authorized, basis, CSC neither considered nor authorized—the mandatory reinstatement position. Scripps-Howard Radio, Inc. FCC, 316 4, 62 875, 86 L.Ed. 1229; FTC Dean Foods Co., 384 597, 1738, 16 802, distinguished. 71—78. (b) Considering disruptive effect likely have process, view historical denial all equitable by federal courts disputes involving employees; well-established rule widest latitude handling its own internal affairs; traditional unwillingness equity enforce personal service contracts, erred routinely applying governing more orthodox 'stays,' very least show irreparable injury sufficient kind degree override foregoing factors. 78—84. (c) Viewing order issue preliminary injunction, suggesting stage proceeding need concluded there actually injury, intimating that, alleged respondent's unverified complaint, either loss earnings damage reputation might afford basis finding injury. 84—92. 149 U.S.App.D.C. 256, 462 F.2d 871, reversed. Keith A. Jones, Washington, D.C., petitioners. Thomas J. McGrew, respondent, pro hac vice, special leave Court. Mr. Justice REHNQUIST delivered opinion Respondent Public Buildings Administration (GSA). In May 1971, approximately four months employment with GSA began, advised writing Acting Commissioner Service, W. H. Sanders, would 29, 1971. She then United States Columbia, temporarily enjoin pursuit Commission. extended favor testified about dismissal. 2 A divided Columbia Circuit affirmed,1 whatever particular case We certiorari, sub nom. Kunzig Murray, 410 981, 93 1494, 36 177 (1973). agree but conclude judged we hold relief, 3 * hired program analyst previous Defense Intelligence Agency. Under Commission, career conditional appointment subject one-year period.2 Applicable provided during initial term probation, could dismissed afforded greater procedural advantages available permanent competitive service.3 underlying dispute between parties arises over whether limited requirements were satisfied petitioners case. 4 protections accord most are limited. Commonly dismiss found unqualified continued simply 'by notifying him why he separated effective action.'4 More elaborate procedures specified when ground terminating 'for conditions arising before appointment.'5 cases require receive 'an advance written notice stating reasons, specifically detail, proposed action'; given opportunity respond furnish affidavits support his response; 'consider' any answer reaching decision; agency's decision earliest practicable date.6 contends termination based part activities while course Agency, therefore entitled file latter provision. 5 letter received Commissioner, discharge, stated reason 'complete follow office procedure accept direction (her) supervisors.' After receipt letter, counsel met personnel officer discuss situation and, meeting, shown memorandum prepared upon Sanders apparently terminate employment. contained both discussion conduct job Relying inclusion information concerning employment, requested detailed statement charges reply—the if This request denied. 6 pursuant provisions CFR § 315.806(c), alleging 315.805 effected accordance section.7 undecided, action. Her complaint failed appropriate prospective deprive income cause suffer embarrassment wrongfully discharged, removal determination appeal. time filing set application following week. 7 At expressed desire hear testimony person, refused resolve controversy affidavit offered furnish. When continued, 'Plaintiff immediate can consider Plaintiff's claim.'8 Government, desiring test enter produced awarded continues time. 8 On Circuit, affirmed. Although recognizing 'Congress presumably remove jurisdiction Courts light remedies available,'9 power absence explicit prohibition Congress. decided acted discretion requiring appear testify,10 continuing Government. II 9 doubtless intellectually neater completely separate question behest proper, do believe questions thus bifurcated two watertight compartments. our best illuminated taking up various arguments urge us. 10 Petitionrs point out, below recognized, Congress express statutory authorization 'stays' cases. often conferred so desired—for example, enabling statutes establishing NLRB,11 FTC,12 FPC,13 SEC14—the silent question.15 rules promulgated broad likewise make provision interlocutory judicial intervention. 11 district stays Commenting reversal below, stated: 12 'It asserted exclusive jurisdiction. But, noted initially, stay discharge. Prior Act certainly relief. statute explicitly take away, implicitly conferring CSC; still exercise established circumstances.'16 13 If turn solely earlier decisions examining intervene governmental think assumption wrong. Keim States, 290, 20 574, 44 774 (1900), held Claims award damages who claimed employer.17 White Berry, 171 366, 18 917, 43 199 (1898), sought employer dismissing office, violate regulations.18 assumed issued prohibiting defendant interfering plaintiff's duty "until shall removed therefrom proper proceedings civil act, made thereunder, law . .."19 Discussing principle "a will not, restrain executive making wrongful subordinate appointee,"20 'the circuit court, sitting equity, asked.'21 14 Respondent's case, then, succeed, all, despite principles regarding intervention tenure employees, because them. Much water flowed dam since 1898, 1403 (1957), cited establish claim effectuating followed regulations.22 however, commenced remedy unsuccessfully pursued.23 now ultimately type supra, more, create lacking supra. 15 affirmance 1229 (1942). licensee Cincinnati radio station petitioned FCC vacate permitting Columbus change frequency increase broadcasting power. also hearing. denied petition, conjunction docketing appeal, asked decision. Appeals, departing longstanding policy issuing stays,24 certified Court.25 stay, analogizing appellate inferior court's decision: 17 always held, therefore, equipment administration justice,[*] enforcement judgment outcome appeal.'26 But losing party final review.27 long progression empowered jurisdiction, writs aid jurisdiction.28 19 All Writs Act, first enacted Judiciary 1789, confirmation authority.29 same governed charged decisions, exists even though expressly confers Scripps-Howard, course, instant regulations.30 Until obtained brought asking her, employer's only merits. 21 characterized 'stay,' retention served provide extensive conceivably obtain It well should agreed version prohibit separation unless followed. full attendant tension superiors intended avoid her. payment benefits employment.31 accommodate conflicting claims directing reply affidavit, ordering backpay period prior completion required 22 recognized certain forms properly courts. contrasted license denial, effect: 23 'Of applicant refused. 24 No enable go air so. denying nature things nothing. operate affirmative authorize.'32 25 Surely conclusion vary depending started initiative cease. Yet authorize, reviewing stays, provides scant here. 26 relied 802 (1966), There closely having ultimate orders Federal Trade might, Commission's application,33 preserve agency. alleged,34 accepted,35 refusal result practical disappearance one entities whose merger challenge. disappearance, turn, mean agency, entrusted decision, incapable implementing their duties fashioning Thus invocation preservative appropriate. 27 Neither similarly frustrated remitting remedy. Certainly able weigh contentions necessary injunction. direct contrast effectively defeated argued interferes normal processes.36 And see nothing record suggest doctrine Dulles manner Foods. 28 unpersuaded justified dealing availability those injunctions review. upheld, elsewhere. III 29 observed '(t)he search significance silence too mirage,' U.S., 11, S.Ct., 880, 1229, observation carries force scheme grants regulatory careful relevant legislative history persuaded nullify court,37 noted, particular, allowed other processed through FCC38 similar undertaking unexpected shift policy.39 end spectrum, Arrow Transportation Co. Southern R. 372 658, 83 984, 52 (1963), congressional ICC suspend rate modifications precluded extending suspension true traditionally revoke statute.40 said: 30 'The plausible inference meant foreclose interfere timing changes out harmony uniformity levels fostered primary jurisdiction.'41 31 overall falls nealty these precedents. Unlike practice lends little sort here, precedents quite unfavorable respondent. Transportation, structure far creature statute. wholly divested customary extent Appeals. merely factors bereft them mean, appeared believe, dispensed regard considerations they nonetheless great weight balancing process attends 32 substantive protections,42 less comprehensive procedures. Title U.S.C. 3321, derived original Pendleton Act,43 requires creation classification: 33 President prescribe provide, nearly good warrant, probation becomes absolute.' 34 clear framework expected fewer rights than service. For preference eligibles,44 commonly veterans, persons completed 'a trial period.'45 Persons suspended national security expanded protection period.46 35 consistent statutes. These authorized §§ 1301—1302.47 Part 752, adverse actions, safeguards but, above, exempts 'employee(s) currently serving period.'48 Such remitted subpart H 315,49 752.202 retained active-duty status 30-day-notice period, additional stays.50 prevent determining Reasonably, active preceding improper Back Pay 194851 supplemented basic Lloyd-LaFollette 1912 person unjustifiably later restored work. including 1966.52 eligible compensation section. 37 As claim, violated Those further heard merits, remain effect. Respondent, fully utilizing scheme. 38 Court, exercising powers, bound give serious obviously process. couple consideration 'dispatch affairs,' Cafeteria Restaurant Workers Union, Local 473, A.F.L.—C.I.O. McElroy, 367 886, 896, 81 1743, 1749, 1230 (1961), contracts 5A Corbin, Contracts (1964), 1204, wrong 'stays.' See Virginia Petroleum Jobbers Assn. FPC, 104 106, 259 921 (1958).53 foreclosed granting showing cutting general issue, Appeals' treatment it. IV opinion: 'Without passing merits Mrs. Murray's harm sought-for-relief (a task here), note 'irreparable harm' Reeber Rossell, (D.C., 91 F.Supp. 108) (1950), bar. amount harm, validity Commission.'54 40 another opinion, 41 'As felt motion testify, continue quo hearing.'55 42 supplemental petition rehearing aspect case: hold, judge yet inherent role.'56 form entered us continuation originally court.57 construed finally settled way time, Fed.Rule Civ.Proc. 65 play. That Rule states, part: 45 '(b) oral attorney (1) clearly appears facts verified loss, opposition .. Every define state notice; expire terms entry, exceed days, fixes, fixed shown, like whom directed consents longer period.' 46 beyond treated injunctions. National Mediation Board Air Line Pilots Assn., 116 300, 323 305 (1963). analysis correct, presented comports imposing strict limitations scope orders.58 shield designating orders, rather injunctions, virtually unlimited proceeding. where strongly challenged, classification potentially seems particularly unjustified. Therefore 47 injury.59 inadequacy legal remedies,' Beacon Theatres, Westover, 359 500, 506—507, 79 948, 954, 988 (1959), itself (1958), much. indicates witnesses verified, submitted touch injury.60 somewhat puzzled 'may injury.' urged discussed elements base deprived indefinite spurious unrebutted record, presence co-workers.61 intimated relief.62 disagree.63 48 Even Jobbers, income, recovered, usually constitute injury.64 49 key word irreparable. Mere injuries, however substantial, money, energy necessarily expended enough. possibility adequate compensatory corrective date, ordinary litigation, weighs heavily harm.'65 50 premise fortified above.66 affords monetary periodic injury' suggests contemplated usual, exclusive, manager bill floor Senate, Senator Langer, commented passage: 51 '(It) department right removed, off pay roll. wins paid suspended.'67 alleges, humiliation ensue. matter impression seem significant inflicted irregularities occur corrected 53 Assuming purpose satisfactory supported damaged challenged short predicate case.68 reverse approved 54 ordered. 55 DOUGLAS, dissenting. 56 I respect narrow isolated involved litigation exposed problem not. 57 exclusively work employee. summary few grounds discrimination race, color, religion, sex, origin, 315.806. based, part, termination, supporting affidavits, 315.805. 58 1966 backpay, U.S.C 5596, concludes employee's 59 terminated appeals is, gone Nor challenging law; ruling claim; affirmed act derogation Rather, protected staying ruled 60 indicated rests informed public interest, 882, 1229. limited, Department suggests, taken. 603—604, 1742—1743, 1651, empowers "issue respective jurisdictions agreeable usages law," extends 'potential perfected.' Norton Macy, 135 214, 217, 417 1161, 1164; Dozier 473 866 (CA5). Hence stay. have, supplements curtail power, preserves quo, pass controversy, limits adjudicated appealable. misstates issue. hearing, encompass issues: antedated present (see 269, 884) restricted employee;1 (2) damage, Judge Gasch proceed decision.' Id., F.2d, 884. Both alert necessity issues. 63 meets eye. 64 Employability greatest asset people have. Once prestigious badge bars shadow cast area private available. eliminated reinstatement, many absolution never catches stigma accusation. Schwartz Covington, 341 537, 538, serviceman homosexual activity: '(A)ppellee granted. Irrespective government's recent assurance appellee reinstated prevails attached undesirable clear.' layoff due fortuitous circumstances so-called crisis, lifetime captious discriminatory attitudes superior cross carry rest life. denigrate importance one's social standing legally harm. Ah Kow Nunan, Sawy. 552, speaking Field, Chinese prisoner recover sheriff cut queue, causing mental anguish, disgrace eyes friends relatives, ostracism association members race. frontier get new start. live today society monitored. important acts, setbacks, accusations data banks instantly retrievable computer.2 An arrest goes bank turns unconstitutional mistaken identity. erasing arrests. arise area, them; entails laborious procedure.3 Moreover, generation grew age millions screened 'loyalty' 'security'; service; resigned face ordeal 'witch hunt' laid Discharge resignation fire became telltale signs undesirability. Therefore, unexplained plain enough 66 determined. hardly standard expenditure energies spend trying find error lower protect giving chance prove 67 MARSHALL, BRENNAN concurs, 68 my appelable accordingly lack 69 orders. first, captioned 'Temporary Restraining Order,' enjoined second, June 'that Temporary Order twelve o'clock p.m., 28, appearance aforesaid Sanders.' indicate anything order. During wanted town vacation. replied: 'Let me know available.' Counsel responded: 'Very well.' T.R.O. shows up. Tell appears.' Tr. 10. 70 appelable, except extraordinary circumstances, decides equivalent suit. generally C. Wright & Miller, Practice Procedure 2962, pp. 616—617 (1973), cited. 71 holds, limitation imposed 65(b), agree. 52(a) 'in refusing forth findings conclusions action.' applies valid ever issued. (1963); Sims Greene, 160 512 (CA3 1947). 72 sense Where 52(a), meaningful well-nigh impossible. highest fair compliance Rules Procedure.' Mayo Lakeland Highlands Canning 309 310, 316, 517, 520, 84 (1940). 73 suggested indefinitely remained unappealable, outset, justify appealable, appealable purposes invalid failure comply 52(a). precise taken Board, majority relies. 74 addition, courses duration complying moved dissolve 65(b) motion.1 Had issues law, meaningfully 75 Here, instead, Supreme although equities confronted issue.2 makes sound law. 76 Since persists considering some comment majority's divest longexercised exhaustion accept, proceeds away left hand what just right, precluding 'extraordinary cases,' be. different context long-recognized applied situations. (1958). Indeed, encompassed formulations. adequacy remedy, 'without irreparably injured.' 110, 925. Likewise, possible employed relates (will) substantially interested proceedings.' Idid. 78 However articulates prerequisite demonstrated likelihood apparent holding, buried deep footnote, how severely affect individual. ante, 92 n. 68. Many substantial savings, weeks' seriously impair ability themselves essentials life—e.g,., buy food, meet mortgage rent payments, procure medical services. Cf. Goldberg Kelly, 397 254, 264, 90 1011, 1018, 287 (1970). skills readily marketable outside difficult elsewhere tide lawfulness instances, alternative reduced records employers wil willing hire train knowing return former successful. Finally, 'temporary' broadest word. Not infrequently, wait several years established. See, e.g., Paroczay 369 720, Ct.Cl. 754 (1966); Paterson 319 162 675 justice evicted home himself forced resort assistance family. solace injured told plight 'normal' 'routine.' Whether common consequences prevent. 80 reputation. Murray Ante, 91. view, reflects total misunderstanding gist fails comprehend behind pretermination appointment,' empty gesture, employing preappointment conditions, decide side story. seek itself, correct believes job, hope straight, seeks save blot entails, injure 82 retain balanced interests supports Because Sanders' absence, evidence. day evidence allegation speculate. Kunzig, 871 (1972). infra, 86—88. 315.801. Compare 315.801—315.807 752.101 seq. 315.804. Section reads full: '§ Termination probationers appointment. 'When proposes whole appointment, following: '(a) Notice Employee's answer. reasonable furnishing answers, '(c) date. deliver effective. writing, inform limit 315.806(d).' 315.806(c) reads: 'A probationer section.' appearing accompanying exhibits Order, because, Defendants restrained Plaintiff 'NOW, THEREFORE, IT IS ORDERED, Sanders. 'IT FURTHER ORDERED copy Marshal forthwith.' U.S.App.D.C., 262 21, 877 21. 263—264, 878—879. 160(j), (l). 53(a). 825m(a). 77t(b), 78u(e). 705 confer section finds requires, postpone it, certiorari writ section, primarily reflect existing doctrine, fashion Courts. S.Rep.No.752, 79th Cong., 1st Sess., 27, (1945). grouped theory text. 265, 880 (footnotes omitted.) deference processes terms: clerical position, mere ministerial judgment. appointing determine fitness applicant; acts supervising 'In contrary, incident moment admitted intention Constitution offices denominated removable pleasure, made? constitutional regulation appointment.' re Hennen, Pet. 230, (10 138); Parsons 167 324 (17 185). Unless, Secretary Interior removing petitioner account inefficiency mandamus reinstate compelling salary removed.' 293—294, 575. plaintiff protested political affiliation, prohibited rules. 367—368, 917—918. went heart legislation, system large sectors 'spoils system' previously played selection employees. Kaplan, Law 1—22 374—375, 920. quoted Morgan Nunn, 551 (CCMD Tenn.1898), '(s)imilar States.' 377—378, 921. 378, 922. McCarran rider, Stat. 581, contended State departmental effecting 'dismissal stand.' 388, 1165. However, effort secure suit efforts, id., 370, 1156, 'proved unsuccessful.' ascertaining 22, pointed 'even Radio 1927 wherever appropriate, objection Commission.' 13, 881, was: "Where, 402(b) Communications 1934, taken, execution appeal?" 6, 878. wording faced 9—10, 880. herein designated asterisk, referred 1651(a), law.' reliance 261 17, 876 17. 25, situations accepted connection acceptance, below. Classen, 140 200, 735, 406 (1891) (writ Court); McKenzie, 180 536, 468, 657 (1901) (appeal Appeals). 26, each Secretary's declared system. He evident forthcoming. 5596. pertinent read: who, timely undergone unjustified unwarranted resulted withdrawal reduction pay, allowances, differentials employee— '(1) entitled, correction equal differentials, applicable, normally earned occurred, amounts ..' 882. authorization, '(T)he entrusted, inter alia, Clayton divestiture stultify incidental ask Act.' 606, 1743. contrary felt, impossible undertake merger. frustrated. 599—600, 1740—1741. "as entity exist," 599, 1740, 'consummation agreement 'prevent devising, render extremely devise, merits." 600, 1740. affirmatively asserting inadequate. 601, confessed inability admit thing. Rather assert 31, complete occurred 11—13, 880—881. compared 402(a) 1064. Urgent Deficiencies Appropriation Oct. 1913, 208, review—with exceptions. exceptions, included stays. deliberately Act. 24, acknowledging design extinguish existed 1910 rates,' concluded: '(w)e suppose Congress, vesting backhanded approval head.' 664, 987. 668, 990. (Emphasis original.) 7501. 404. 2108(3). 7511, 7512. 7511 defines 'preference employee' Executive individual government .,' 7512 rights. 315.801 7532(c)(2). 3301 seq., promulgate Service. 1301 President, request, preparing prescribes title service.' 1302 'subject prescribed 752.103(a)(5). 752.202(d) 'Except paragraph (e) 752.202(a)(1) 'at days' notice' required. 94, 95. follows: Has strong prevail appeal? injured? (3) Would proceedings? (4) lies interest?' 263, 266, (emphasis original). 270, 885 8, Second described drastic carefully hedged protective provisions. reason, corrected, exception permit 1292(a)(1). To deny potential danger duration, adjudication involved, defeat 'We having, does, meaning intent 1292(a)(1).' Pan American World Airways, Flight Engineers' Intern. etc., 306 840, 843 (CA2 1962). (Citations omitted; emphasis Our Brother dissenting partially impede failing consequence reasoning neglects saved rule. logic convincing. Admittedly, thereby allegations pleadings demonstrates 68, infra. well. discussion, difference ordder styled entirety states: 'JEANNE MURRAY, duly sworn, deposes '1. am presently (GSA) Program Analyst, GS—13. '2. 20, five signed informing Saturday, '3. GSA's Personnel files contain Agency (DIA), seen there. '4. worked slightly year DIA, Chief Staff Rear Admiral D. E. Bergin, DIA contains derogatory me. '5. weeks, William Mulroney, someone inquiries there.' Complaint, par. 12. 262, 877. chose orally, rely appeared. doubt resolving control witness' touched. desired which, chances success proceeding, dispenses occur, proved satisfaction dealt dissimilar one. Power 'motion (the Court's) rehearing.' 109, 924. closer powers 925 N. Cong.Rec. 6681 (1948). recognize surrounding together resultant depart found. hard occurrence. insufficiency savings difficulties immediately obtaining employment—external attributable unusual actions relating itself—will wish understood foreclosing genuinely situation. Use reserved routine Wettre Hague, 396 (D.C.Mass.1947); vacated remanded grounds, 168 825 (CA1 1948). Where, obvious. Wieman Updegraff, 344 183, 192, 215, 219, 97 216, extend servant exclusion patently arbitrary discriminatory.' 538 (CA9 1965). With dossiers compiled commercial credit bureaus, local agencies, CIA, FBI, IRS, Armed Services, Census Bureau, Orwellian computer surveillance transparent world.' Computers, Data Banks Individual Privacy: Overview, Col. Human Rights L.Rev. 1, concern, avoided correction. Banks, Computers Bill Rights, Hearings Subcommittee Constitutional Senate Committee Judiciary, 92d Sess. (1971). Assault Privacy Illinois photographs, fingerprints, returned unconvicted arrestees acquittal release arrestee expunged arresting authorities. method retrieving distributed authorities individuals. Ill.Rev.Stat., c. 38, 206—5 Connecticut shortcomings. Conn.Gen.Stat.Ann. 54—90 (Supp.1971); Satter Kalom, False Arrest: Compensation Deterrence, Conn.B.J. 598, 612—613. New York's Penal acquitted criminal convictions. N.Y.Penal 516 (McKinney's Consol. Laws 40, 1909). 'On shorter prescribe, move dissolution modification event expeditiously ends require.' 65(b). evaluating 'any judge, (decided (and decide)) Murray.'

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