Document: 444 U.S. 252 100 S.Ct. 540 62 L.Ed.2d 461 Cyrus VANCE, Secretary of State the United States, Appellant,v.Laurence J. TERRAZAS. No. 78-1143. Argued Oct. 30, 1979. Decided Jan. 15, 1980. Rehearing Denied March 3, See 445 920, 1285. Syllabus Section 349(a)(2) Immigration and Nationality Act provides that "a person who is a national States whether by birth or naturalization, shall lose his nationality . taking an oath making affirmation other formal declaration allegiance to foreign state political subdivision thereof." 349(c) party claiming such loss citizenship occurred must "establish claim preponderance evidence" commits any act expatriation "shall be presumed have done so voluntarily, but presumption may rebutted upon showing, evidence, acts committed performed were not voluntarily." Appellee, was citizen both Mexico at birth, subsequently obtained certificate Mexican after executing application in which he swore expressly renounced citizenship. Thereafter, Department issued nationality, Board Appellate Review affirmed. Appellee then brought suit for District Court concluded had proved evidence appellee knowingly voluntarily taken thus relinquishing pursuant § 349(a)(2). The Appeals reversed remanded, holding Congress no power legislate evidentiary standard contained Constitution required proof merely "clear, convincing unequivocal evidence." Held: 1. In establishing citizenship, Government prove intent surrender just voluntary commission expatriating as swearing nation. does general take away American citizen's without "assent," means relinquish expressed words found fair inference from conduct. specified 349(a) cannot treated conclusive indispensable assent citizen. trier fact end conclude only prescribed statute, also intended Cf. Afroyim v. Rusk, 387 253, 87 1660, 18 757. Pp. 258-263. 2. However, permits prescribe proceedings. specific provided invalid under either Citizenship Clause Fourteenth Amendment Due Process Fifth Amendment. Although imposes requirements beyond criminal involuntary commitment contexts, nevertheless proceedings are civil nature do threaten liberty, did exceed its powers requiring intentional evidence. 264-267. 3. Nor voluntariness constitutionally infirm. While statute statutory acts, if proved, been it direct has with matter remains burden legislative history make clear preferred ordinary rule duress affirmative defense asserting it, invalidate here would give far more scope this context than relevant circumstances into being suggest appropriate. 267-270. 577 F.2d 7, remanded. Allan A. Ryan, Jr., Washington, D. C., appellant. Kenneth K. Ditkowsky, Chicago, Ill., appellee. Mr. Justice WHITE delivered opinion Court. 1 (Act), 66 Stat. 267, 8 U.S.C. 1481(a)(2), conduct rebuttably presumed. 349(c), added, 75 656, 1481(c).1 issues case whether, respect providing 1481(c). 2 * Laurence Terrazas, born country, son He acquired fall 1970, while student Monterrey, Mexico, age 22, executed "adherence, obedience, submission laws authorities Republic" "expressly renounc[ing] well submission, loyalty government, especially America, ." App. Brief Appellant 5a.2 certificate, on April 1971, recited Terrazas sworn adherence "has all rights inherent those recognized him national." Id., 8a. read understood receipt. Juris. Statement 21a. 3 A few months later, following discussion officer Consulate instituted determine lost obtaining nationality. denied had, December 1971 31a. State, full hearing, affirmed As permitted 360(a) Act, 273, 1503(a), against Trial de novo. 4 first sentence Amendment,3 construed 268, 1668, 757 (1967), " 'protect[s] every Nation congressional forcible destruction citizenship' 'a constitutional right remain unless relinquishes citizenship.' 25a. dual said, "will held expatriated himself when shown whereby unequivocally States." Ibid. Specifically, "knowingly understandingly connection Application Certificate Nationality," id., 28a, "[t]he renunciation country [sic ] condition precedent law issuance Nationality." "proved knowingly, took concurrently States," 29a, therefore "voluntarily relinquished Act." 5 accompanying findings conclusions, observed acted renouncing 25a, "knew repudiating through actions." court relying quoting Matheson, 400 F.Supp. 1241, 1245 (S.D.N.Y.1975), aff'd, 532 809 (CA2), cert. denied, 429 823, 97 75, 50 185 (1976), "the conjunction renunciatory language 'would leave room ambiguity applicant.' 23a. 6 reversed. 7 (1978). law—and there appears dispute these basic Courts state, demonstrate appellee's part renounce elements evidence; that, "[a]ssuming proper [evidentiary] standards applied, we convinced record fully supports court's findings." 10. ruled, however, supra, 1481(c) F.2d, 11. remanded further proceedings.4 appeal 28 1252. Because invalidation posed substantial issue, noted probable jurisdiction. 440 970, 99 1532, 59 786. II urges erred "specific U. S. citizenship" "before mere could result individual's expatriation." 11.5 His position need act, nation, "is inherently inconsistent continued retention accord natural consequences, i. e., nationality." 24. We disagree. 9 401(e) 1940, 54 1168-1169, [v]oting election state," contravened naturalized lived Israel 10 years. voted election. consequence stripped Consistently Perez Brownell, 356 44, 78 568, 603 (1958), sustained 401(e), expatriate regardless This Court, overruling Perez, "reject[ed] idea aside Amendment, power, express implied, assent." U.S., 257, S.Ct., 1662. continued: "most reasonably defining keeps it." 262, 1665. argues stand proposition before relinquished. It enough, urges, establish one 1481(a) because declared each But emphasized requires 1662, addition act. difficult understand "assent" mean anything less regard overturned proposition. be, maintains, requirement poses difficulties performance essential task determining Nevertheless, among things, define citizenship; interpreted Afroyim, definition coexist specify work even absent renounce. last analysis, depends will rather assessment 11 dissent said Court's adopted, spoke o contrary undivided actor should code word majority opinion, reach neither nor implicitly limited Perez. Furthermore, dissent, Chief Warren, speaking fundamentally saying instances "Government simply giving recognition inevitable own citizenship." 69, 581. suggests Justice's conception "actions derogation country," 68, 581, entail element assent. 12 event, confident treat equivalent "Of course," "may highly persuasive particular purpose abandon Nishikawa Dulles, 129, 139, 612, 618, 659 (1958) (Black, J., concurring). 13 understanding little different Attorney General 1969 explaining impact case. 42 Op.Atty.Gen. 397. An "act manifest transfer abandonment "cannot made basis 400. Voluntarily relinquishment "not confined written renunciation," "can manifested actions expatriative [A]ct, country." Even cases, issue deemed open; and, once raised, occurred. "In case," stated, administrative judgment, based individual comes within terms provision 401. advice, concedes, departments applied require ultimate finding expatriate. 56-57, n. 28.6 14 Accordingly, now us, citizenship: consideration complete record, view appellant's concurrent repudiation compelling 50a. same view—that ascertained reflected States' response petition certiorari 809, (1976).7 Insofar advised, remained official until 15 support accompanied terminate holding, unprepared reconsider it. III 16 With principal authority cases fundamental disagreement conclusions. 17 American-born citizen, temporarily Japan, drafted Japanese Army. later claimed 401(c) 1169, serving armed forces agreed Nishikawa's army service involuntary. contended voluntary, urged overcoming usual voluntariness. unavailable soon followed; evident aim supplant Nishikawa.8 "sets up rules rest Government. proposed rebuttable—similarly—by H.R.Rep. 1086, 87th Cong., 1st Sess., 41, U.S.Code Cong. & Admin.News, p. 2985 (1961). 19 see invalidating prescriptions rooted Constitution. noted, moreover, acting absence guidance. 135, 616. agree devoid impose govern since 1961, address advert section; surely construe exclude traditional federal courts. conferred Art. 1, 8, cl. 9, create inferior courts, undoubted frequently sustained. See, e. g., Usery Turner Elkhorn Mining Co., 428 31, 96 2882, 2899, 49 752 (1976); Hawkins 358 74, 78, 79 136, 138, 125 (1958); Tot 319 463, 467, 63 1244, L.Ed. 1519 (1943). 20 note Black who, concurring Nishikawa, question determined facts provide 618. respect, Black; enforce untenable hold whatsoever itself manner 21 unable true contexts Mullaney Wilbur, 421 684, 95 1881, 44 508 (1975); Addington Texas, 441 418, 1804, 60 323 (1979). stressed importance evinced decided preference expatriation. supra. liberty. Moreover, purport ruling, similar rulings related areas. Woodby INS, 385 276, 285, 483, 487, 362 (1966) (deportation); Schneiderman 320 118, 125, 1333, 1336, 1779 (1943) (denaturalization). None involved present here, sufficient protection interest retaining Contrary Secretary's position, heavy burden, exceeded IV 22 discuss separately validity By section Congress, effectively foreclosed use voluntariness, remand Circuit. indicated, places suits wholly accepted otherwise 23 "any performs, performed, provisions chapter enacting 1481(c), alleged there, army—must insist benefit out 24 important juncture presumption. voluntarily. That understood, provision.9 25 referred "ordinary defense" duress. 134, Justices Frankfurter Burton, result, "ordinarily controlling principles [that] individual, peculiarly equipped clarify meaning outward events proving what mind was." 141, 619. And Harlan, Clark, pointed "general consciously voluntary" Federal Rule Civil Procedure 8(c), treats defense. 144, 621. Yet consequences denationalization drastic" nothing indicating carry 133-138, 615-617.10 26 enacted subsequently, history, 40-41 (1961), SeeHartsville Oil Mill 271 43, 49-50, 46 389, 391-392, 70 822 (1926); Towson Moore, 173 17, 23-24, 332, 334, 43 597 (1899); Savage 92 382, 387-388, 660 (1876). "Duress, defence action charge Mason Wall. 67, 564 (1873).11 rationality procedural claims involuntariness doubted. To disagree flatly balance struck between assume demonstrating constitutionalize Thus included continuing vitality. V 27 sum, expatriation, presume actor. If succeeds, can fails, satisfied necessary judgment reversed, consistent opinion. 29 So ordered. 30 STEWART dissents reasons stated Part BRENNAN's dissenting joins. 31 MARSHALL, part. 32 I specifically concur adoption saving construction 1481 (a)(2) statutorily designated 33 cannot, accept majority's conclusion so. "prescribe courts," ante, 265, beginning, end, inquiry. impinge rights. my Brother Stevens indicates, casual dismissal withstand scrutiny. locked prison dispose Warren over years ago: 34 "[T]he 35 "This punishment offensive cardinal stands. subjects fate ever-increasing fear distress. knows discriminations established him, proscriptions directed cause existence native land terminated. subject banishment, universally decried civilized people. stateless, deplored international community democracies. answer disastrous bear stateless person. threat makes obnoxious." Trop 86, 102, 590, 599, 596 (plurality opinion) (footnotes omitted). 36 For understand, much accept, suggestion "expatriation liberty." Ante, 266. Recognizing ultimately 'reflects value society places' stake, 425, 1809, 372 37 STEVENS, 38 today unanimously reiterates principle set forth 757, deprive will, effectuate intention certain may, example, normally thereby 39 agree, permissible 1481(a)(2). Since government necessarily written, fairly unambiguously states 40 by— 41 "(2) There imply attempt so, explain how intent.1 deprived showing physical greater Such reasoning construes concept "liberty" too narrowly. 45 House Report 1961 amendment Naturalization 1952 refers dignity priceless H.R. Rep. Sess. 2985. characterization repeated appraisal quality stake proceeding.2 person's aspect due process law. comparable 372, essentially THE CHIEF JUSTICE's unanimous case, 425-427, 431-433, 1809-1810, 1812-1813, believe met deprivation occur. BRENNAN, whom joins II, dissenting. 47 holds reversing Appeals, correct properly acquires virtue U.S.Const., Amdt. 14, formally accused dissent. 48 governed (1967). emphasizing crucial 1668. way himself." 266, 1667. "abridge," "affect," "restrict effect of," "take away" "without rob clearly Government's strip Mexico.1 procedure citizenship.2 appellant concedes procedure.3 56. his, orders given nationality.4 another, independent line reasoning. national. father Mexican. stands having Mexico. per se, Perkins Elg, 307 325, 329, 884, 887, 83 1320 (1939),5 why already inconsistency. One owes living country. Kawakita 343 717, 733-735, 72 950, 960-961, 1249 (1952).6 adds existing therefore, affect §§ 349(a)(2), (c) amended, 1481: "(a) From effective date thereof; "(c) Whenever put proceeding commenced September 26, under, of, occurred, Except subsection (b) section, statement: "I hereby ____ ____, might subject, treaties grant foreigners; furthermore swear adherence, Republic." blank spaces statement filled "Estados Unidos" (United States) "Norteamerica" (North America), respectively. 4. reads: "All persons jurisdiction thereof, citizens wherein they reside." remanding "necessarily requir[e] new trial." 12. granting higher imposed factual determinations adequate permit another trial hearing. Appeals' submerged analysis standards. undoubtedly resulted failure contend unnecessary Indeed, jurisdictional filed presented single unconstitutional Amendment; Our 15(1)(c) "[o]nly questions comprised therein considered court." resolution essential, least advisable, predicate intelligent constitutionality some merit position: arguably statement. our appropriate addressed them. Blonder-Tongue Laboratories, Inc. University Illinois Foundation, 402 313, 320, 6, 91 1434, 1438, 788 (1971); Erie R. Co. Tompkins, 304 64, 66, 68-69, 58 817, 818, 82 1188 (1938) (parties Swift Tyson, Pet. 865 (1842), still good law). Vachon New Hampshire, 414 478, 94 664, 666 (1974); Moragne Marine Lines, 398 375, 90 1772, 330 (1970); Silber 370 1287, 798 (1962). generally Stern E. Gressman, Supreme Practice, 6.27 7.14 (5th ed. 1978). apparent below, Secretary, represented Solicitor General, changed decision Appeals; odds 397, Rusk guided Service. important, parties briefed brief, 57, 28, "both Service adopted guidelines ascertain statements act." Department's guideline evidences quite here: light General's Interpretation decision, meaningful allegiance. meaningfulness merits case." Foreign Affairs Manual 224.2, (1970) (emphasis original). Service, Interpretations 349.1(d)(2), 6976.4 (characterizing "that flow though intend citizenship"). Contemporaneous academic commentary seeking Comment, Expatriation Enigma: B.U.L.Rev. 295, 298 (1968); Note, Acquisition Citizenship: Limits Cornell L.Rev. 624, 624-625 (1969); Court: 1966 Term, 81 Harv.L.Rev. 126 (1967); Ohio St.L.J. 797, 801 (1968). argued "Afroyim broadly objective automatically Opposition Matheson O.T.1976, 75-1651, 8. maintained, "there decedent's prompted her 7. Thus, concluded, place. 2950, clear, 617. quoted approval Harlan's : 'Although recognizes [citations omitted], alters placing Government, relieving citizen-claimants duty their presumably actually 'One prime imposing lies possession. 'I find myself compelled squared well-established governing duress.' 2984 (quoting 144-145, order forestall erosion designed preserve uphold attendant obligations, [§ 1481(c)] sets Government." 41. describing rebuttable asserts survive scrutiny 26. assertion seems presumes did, presuming insofar departure normal rely handed down. 1957 77, 166, 171 (Nishikawa extended include shown. runs counter defense"). pleaded attempting established. where plaintiff's complaint improperly contains allegations seek avoid defeat potential defense, "it inappropriate shift anticipated plaintiff 'sanction' failing follow pleading structure adopting fiction anticipation 'assume' C. Wright Miller, Practice 1276, 327 (1969). On defenses generally, 1270, 289 et seq. perhaps derived creates (a) "voluntarily." term "voluntary" conceivably stretched one's retain lack intent, bringing proceeding. apparently willing salvage inasmuch rejects argument applicable 268. assumption contradicted treatment statute. Like (a)(5) performing act: voting correct, invalidated statute; rather, strong belief reformed today. Kennedy Mendoza-Martinez, 160, 554, 563, report 'one most valuable world today.' 267-268, 1667-1668, 757; 92, 593, 596. father's Title 1481(a)(6) diplomatic consular form State." procedures CFR 50.50 225.6 (1972). 1481(a)(7). Therefore, argue 1481(a)(6). n.2, concerning Rogers Bellei, 401 815, 1060, 499 (1971), contrary. Bellei's 833, 835, 1070, 1071, Bellei satisfy subsequent accorded lives abroad paramount 734-735, 961.

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