Document: 339 U.S. 33 70 S.Ct. 445 94 L.Ed. 616 WONG YANG SUNGv.McGRATH, Attorney General of the United States, et al. No. 154. Argued Dec. 6, 1949. Decided Feb. 20, 1950. Judgment Modified March 13, See 908, 564. Mr. Irving Jaffe, Washington, D.C., for petitioner. Robert W. Ginnane, respondents. [Argument Counsel from page 34 intentionally omitted] Justice JACKSON delivered opinion Court. 1 This habeas corpus proceeding involves a single ultimate question—whether administrative hearings in deportation cases must conform to requirements Administrative Procedure Act June 11, 1946, 60 Stat. 237, 5 U.S.C. § 1001 seq., U.S.C.A. seq. 2 Wong Yang Sung, native and citizen China, was arrested by immigration officials on charge being unlawfully States through having overstayed shore leave as one shipping crew. A hearing held before an immigrant inspector who recommended deportation. The Acting Commissioner approved; Board Immigration Appeals affirmed. 3 Sung then sought release custody proceedings District Court Columbia, upon sole ground that not conducted conformity with §§ 11 Act.1 Government admitted noncompliance, but asserted did apply. court, after hearing, discharged writ remanded prisoner custody, holding inapplicable hearings. 80 F.Supp. 235. 84 U.S.App.D.C. 419, 174 F.2d 158. Prisoner's petition certiorari opposed and, because question presented has obvious importance administration laws, we granted review. 338 812, 66. I. 4 supra, is new, basic comprehensive regulation procedures many agencies, more than few which can advance arguments its generalities should or do include them. Determination questions coverage may well be approached consideration purposes disclosed background. Multiplication federal agencies expansion their functions adjudications have serious impact private rights been dramatic legal developments past half-century.2 Partly restriction statute, partly judicial self-restraint, necessity—from nature multitudinous semilegislative executive tasks—the decisions tribunals were accorded considerable finality, especially respect fact finding.3 conviction developed, particularly within profession, this power sufficiently safeguarded sometimes put arbitrary biased use.4 6 Concern over impartiality response growing discontent reflected Congress early 1929, when Senator Norris introduced bill create separate court.5 Fears dissatisfactions increased grew number jurisdiction, succession bills offering various remedies appeared Congress.6 Inquiries into practices state tended parallel follow pattern, instituted several states, some studies noteworthy thoroughness, vision resulted.7 7 Executive Branch Federal also became concerned whether structure procedure these bodies conducive fairness process. President Roosevelt's Committee Management 1937 complete separation adjudicating personnel those investigation prosecution.8 1939 directed name 'a committee eminent lawyers, jurists, scholars, administrators review entire process departments recommend improvements, including suggestion any needed legislation.'9 8 So strong demand reform, however, await Committee's report passed what known Walter-Logan bill, rigid prescription standardized agencies.10 vetoed Roosevelt December 18, 1940,11 veto sustained House.12 But President's message made no denial need reform. Rather it pointed out task Committee, whose objective 'to suggest improvements make workable just,' had proved 'unexpectedly complex.' said, 'I desire recommendations approving measure complicated field.'13 9 devided views both majority minority submitted bills14 1941. subcommittee Senate Judiciary exhaustive three proposed measures,15 but, gathering storm national emergency war, problem aside. Though subject reappeared 1944,16 they attract much attention. 10 McCarran-Sumners evolved present Act, 1945.17 Its agency interests, painstaking. All invited submit writing. tentative revised prepared interested parties again criticisms.18 named representatives Department canvass criticisms, favorable finally revised.19 It Houses without opposition signed Truman 1946.20 thus represents long period study strife; settles long-continued hard-fought contentions, enacts formula opposing social political forces come rest. contains compromises doubt, ambiguities. Experience reveal defects. would disservice our form government itself if courts fail, so far terms warrant, give effect remedial where evils aimed at appear. II. 12 Of cured minimized, only two are relevant issues us today. One purpose introduce greater uniformity standardization practice among diverse customs departed widely each other.21 We pursue further note exception find applicability tend defeat purpose. 13 More fundamental, curtail change embodying person duties prosecutor judge. voiced theme which, variations language, reiterated throughout legislative history Act. report, transmitted his approval great document permanent importance,'22 said: 14 '* * independent commission obliged carry under conditions threaten impartial performance work. discretionary work administrator merged Pressures influences properly enough toward officers responsible formulating administering policy constitute unwholesome atmosphere adjudicate rights. mixed commissions render escape subversive impossible. 15 'Furthermore, same men serve prosecutors judges. undermines fairness; weakens public confidence fairness. Commission affecting conduct lie suspicion rationalizations preliminary findings commission, role prosecutor, itself.' Report Management, 36—37 (1937). 16 therefore redistribution regulatory agencies. '(I)t divided section section' 'would formulate rules, initiate action, investigate complaints *' sit impartial, body interest basis records section.' Id. 37. 17 Another distinguished Secretary Labor, jurisdiction time included Naturalization Service. Some committee's observations relevancy examination here. 'The presides formal respects comparable trial He has, minimum, function determining—subject objection alien's behalf goes written record decision ultimately based. Under existing he counsel representing moving party—he does merely admit evidence against alien; responsibility seeing such record. precise scope appropriate first considered.' Labor's Procedure, Service, 77 (Mimeo. 1940). Further: 18 'Merely provide particular different inspectors shall hear insufficient guarantee insulation independence presiding official. organization field staff gives kinds commonly tends identity viewpoint between chiefly doing other kind 19 relieved presenting case aliens confirmed (sic) entirely customary This, course, require assignment another officer perform prosecuting attorney. seem investigating who, alien, already thoroughly familiar it. 'A genuinely critical detachment, psychologically improbable impossible, once appraising strength seeking possible. Nor divorce possible duty himself assembling results investigation. 81—82. 20 And General's remedy,23 unanimous evil existed. Final 'These types commingling advocacy deciding plainly undesirable. avoidable avoided internal division labor. For disqualifications produced personal psychological ones result engaging activity; simply isolating engage activity. Creation commissioners insulated all phases will, believes, go solving level initial provided proper safeguards established assure insulation. Rep. Atty. Gen. Comm. Ad. Proc. 56 (1941), S. Doc. 8, 77th Cong., 1st Sess. (1941). 21 adopts general action. had, furthermore, urged even thoroughgoing supported cogent report. Id., 203 22 Such found disinterested competent students. facts gave impetus reform intended accomplish. plain courts, regardless wisdom construe legislation eliminate, text permits, condems. III. 23 Turning now us, perfect exemplification unanimously condemned. 24 followed uniform Service,24 inspector, called 'presiding inspector.' Except consent investigated case. C.F.R. 150.6(b).25 inspector's like cases; while today colleague, tomorrow heard passes An 'examining inspector' designated prosecution, 150.6(n), none case; event, examining prosecutive functions. present, required 'conduct interrogation alien witnesses cross-examine necessary support charges warrant arrest.' 150.6(b). become lodge additional proceed own accusation mammer. 150.6(1). Then, soon practicable, prepare summary evidence, fact, conclusions law, order. copy furnished counsel, file exceptions brief, 150.7, whereupon whole forwarded Commissioner. 150.9. 25 set up ameliorate exemplified here beyond doubt. commingling, objectionable anywhere, proceedings, frequently meet voteless class litigants lack influence citizens, strangers laws themselves involved often understand tongue accused. Nothing suggests strain exempt reforms applicable generally 26 accord weight argument apply will cause inconvenience added expense course nearly every applied. purse belongs Congress, determined price too high. unlike aliens, ready persuasive access ear error them, relief simple matter. 27 brings contentions advanced based pendency Following adverse decision,26 asked exempting legislation,27 committees reported favorably substance.28 adjourned argues knows Service construed applying 'has taken action indicating disagreement interpretation'; 'is least arguable specifically confirm construction clarifying legislation.' think draw inference incompleted steps Cf. Helvering v. Hallock, 309 106, 119—120, 444, 451, 604, 125 A.L.R. 1368. 28 On hand, inference, petitioner, admits acting wrong ratification Congress. Public requires feel free ask terminate avoid litigations. justified request failure get session debatable point weakness agency's contentions. draw, therefore, favor either Act—from Department's clarification, congressional committees' willingness consider it, Congress' enact 29 come, then, determine right contentions: first, cover proceedings; second, does, excluded virtue 7. IV. 30 5, establishes 'In adjudication statute opportunity hearing.' depends words 'adjudication statute.' contends there express requirement authorizing deportation,29 omission shields 5. Petitioner, hearings, though expressly Court,30 31 Both invoke citations meaning given key framers, advocates opponents Because original applied 'by law,'31 suggested changed 'required Constitution,'32 emerged statute,' explicit statutory granting out. Petitioner hand cites references indicate limitation creating new existed otherwise. know. conflicting ambiguous. 32 difficulty premised proposition that, constitutional authority procedural due law derives source legislate applicable, permeates valid enactment body. compulsion Constitution ago antecedent entered clandestinely illegally. 'This reasonable acts question, otherwise interpreted. In interpretation ought adopted as, violence import used, bring them harmony Constitution.' Japanese Immigrant Case (Yamataya Fisher), 189 86, 101, 611, 615, 47 721. statute' exempts section's application hold regulation, rule, custom, special dispensation; compulsion. limiting read order save invalidity. less authority, authority. hardly attribute scrupulous about necessitated matter expediency. Indeed, might jeopardy. When fair one, tribunal meets currently prevailing standards impartiality. human liberty happiness upheavals lands returned, perhaps life itself. difficult justify measuring condemned unfair vital matters property stake. 35 V. 36 remaining 7(a) inspectors. provides: 37 'Sec. pursuant section— 38 '(a) Presiding Officers.—There preside taking (1) agency, (2) members comprises (3) examiners appointed Act; nothing deemed supersede specified classes part boards specially statute. 241, 1006, 1006. 39 'specially to' pertinent part, reads: inspection admission readmission privilege passing residing Act,33 inspectors, except hereinafter regard inquiry. Said administer oaths take touching enter, reenter, pass through, reside necessary, evidence; 874, 885, amended, 152, 152. 40 Certainly provides so. language direct border inspections admission. They take, record, evidence. indispensable investigations concededly competence. likewise enable preparation purposes. grant powers constituted designation 41 Section qualifies comprising leaves untouched others responsibilities provision. employees lesser source, tenure guarded assurances neutrality thought 42 purposes, judicially declaring exemption enacted resulting orders validity. Since comply requirements, sustain prisoner. 43 Reversed. 44 DOUGLAS CLARK took 45 REED, dissenting. 46 Court, seems me, disregarded certain intrusion domain justifies protest. useful call attention necessity recognizing specific rules. protest rested performing Court's discusses subdivision sections examined reader. constitutionality received Appeals. I disagree permits hearing. 48 official member examiner There requirement. reads follows: 'but 49 'inspection *. *.' me covers dealing arrest violation surely 50 reason spelled retain smoothness operation making investigatory adjudicatory functions, natural judgment. Agency They, too, duties. statutorily selected perform, probably reposed experience expertness. doubtless wish disorganize until showed placed.1 51 accept my view reach 7(a), useless undertake analysis certiorari. Particularly invoked 5(c), 240, 1004(c), part: reception unavailable agency. Save extent disposition ex parte authorized consult party issue unless notice participate; nor supervision direction officer, employee, agent engaged investigative No shall, factually related case, participate advise decision, witness proceedings. *'; 244, 1010, 'Subject civil-service inconsistent qualified assigned rotation practicable examiners. Examiners removable employed good Civil (hereinafter Commission) thereof. receive compensation prescribed independently ratings accordance Classification 1923, provisions paragraphs subsection (b) said applicable. e.g., Blachly Oatman, Legislation Adjudication (1934); Landis, Process (1938); Pound, Law (1942); Carrow, Background (1948); Agencies (N.Y.U.1947); contained (1941); Cushman, Independent Regulatory Commissions, cc. II—V Frankfurter, Task Law, 75 U. Pa.L.Rev. 614 (1927); materials cited n. 4, infra. Dickinson, Supremacy passim 11—18, 75—92; see, E.g., Root, Bar, A.B.A.Rep. 355, 368 (1916); Hughes, Aspects Development American N.Y.B.A.Rep. 266, 269 Sutherland, Private Rights & Control, 197, 205 (1917); Address Guthrie, 169, 186 (1923). After 1933, Bar Association formed Special Bar's concern traced reports. 58 407 (1933); 59 539 61 720 (1936); 62 789 5154, 70th 2d (1929). 1835, 73d 3787, H.R. 12297, 74th 3676, 75th 3d 6324, 4235, 4236, 915, 916, 76th (1939); 674, 675, 918, 3464, 4238, 4782, 4314, 5081, 5237, 2030, 78th (1944); 1203, 7, 79th (1945). Benjamin, State New York Tenth Biennial Judicial Council Governor Legislature California (1944). Fesler, Independence Handbook National Conference Commissioners Uniform Laws, 226 (1943); 63 623 (1938). quoted statement 1940, vetoing so-called bill. H.R.Doc.No. 986, Sess., 3—4 (1940). origin leading creation Appendix Report, supra. (1939). 86 Cong.Rec. 13942—3 (1940), reprinted 13953 13943; 4. These appear pp. 192 217 (1941) recommendation embodied ran April July 2, 1941, appendix, collected four parts 1,600 pages. Hearings Subcommittee 675 H.R.Rep.No. 1980, 14—15 (1946); S.Rep.No. 752, 4—5 (1945), S.Doc.No. 248, 185, 190—191, 233, 248 249, respectively. 37—45 (1945); 92 Cong.Rec.App. A—2982—5 (1946). 2167 (1946) (passage Senate); 5668 (amended version House); 5791 (House agreed 6706 (approved President). McFarland, Analysis 16, (N.Y.U.1947). House 6198, 14, 442, 1149, 2—3 71, 81 187, 191 150.1 step inspector. 150.1. issuance arrest, 150.2—150.4, incarceration, released bond. 150.5. follows. Eisler Clark, D.C.1948, 610. 2755 6652, 80th (1948). 1588, 2140, 19(a) February 1917, 889, 155(a), General, deported. ordered deported treaty, final.' Note 33, 100, 614, 721; Kwock Jan Fat White, 253 454, 459, 464, 566, 568, 569, 64 1010; Bridges Wixon, 326 135, 160, 65 1443, 1455, 89 2103 (concurring opinion). 301 195, 232—233. 1456 886, 'under Act,' although codification, former controlling. (Supp. II, 1949) 112, 204(a), 204(a). Thus warned 'be loophole avoidance system real sense, corrective necessary. That provision permit use preserve contribute something could procedure.' Cong.2d p. 216.

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