Document: 343 U.S. 341 72 S.Ct. 699 96 L.Ed. 988 MADSENv.KINSELLA. No. 411. Argued Jan. 8, 1952. April 28, [Syllabus from pages 341-342 intentionally omitted] Mr. Joseph S. Robinson, New York City, for petitioner. Robert W. Ginnane, Washington, D.C., respondent. Justice BURTON delivered the opinion of Court. 1 The principal question here is whether a United States Court Allied High Commission Germany had jurisdiction, in 1950, to try civilian citizen States, who was dependent wife member Armed Forces, on charge murdering her husband violation § 211 German Criminal Code. homicide occurred October, 1949, within Area Control Germany. For reasons hereafter stated, we hold that such court jurisdiction. 2 present proceeding originates with petition writ habeas corpus filed by petitioner, Yvette J. Madsen, District Southern West Virginia, seeking release Federal Reformatory Women Virginia where she serving sentence imposed She contends confinement invalid because which convicted and sentenced no jurisdiction do so. Court, after hearing based exhibits agreed facts, discharged remanded petitioner custody respondent warden reformatory. 93 F.Supp. 319. Appeals affirmed. 4 Cir., 188 F.2d 272. Because importance novelty jurisdictional issues raised, granted certiorari. 342 865, 115. 3 I. Petitioner's status Germany.—Petitioner native-born lawfully entered American Zone Occupied 1947 husband, Lieutenant Madsen Air Force. In resided there, him, house requisitioned military use, furnished maintained authority. permitted use facilities Army there persons its service those or accompanying Forces. brief, Forces were then occupying October 20, following fatal shooting at their residence Buchschleg, Kreis Frankfurt, Germany, arrested Force Military Police. On day, before 'United Government Court,'1 charged murder Code.2 February, tried 'The Fourth Judicial District.'3 That composed three civilians, two whom been appointed as district judges one magistrate under authority Governor Control.4 adjudged guilty 15 years Alderson, elsewhere Secretary might direct. May, 'Court Courts Germany,' five civilians Area,5 affirmed judgment but committed Attorney General his authorized representative. Director Bureau Prisons designated place confinement.6 5 II. Both courts-martial, Commissions tribunals nature commissions, 1949—1950 against her. Petitioner does not attack merits conviction nor claim any non-military her.7 It parties this regularly convened general court-martial would have however, contends, denies, her, also other words, courts-martial's concurrent occupation courts, whereas it exclusive courts. 6 key issue be found history commissions8 courts commissions. Since our nation's earliest days, commissions constitutionally recognized agencies meeting many urgent governmental responsibilities related war.9 They called commonlaw war courts.10 taken forms borne names.11 Neither procedure has prescribed statute. adapted each instance need forth. See re Yamashita, 327 1, 18—23, 66 340, 349—351, 90 499. 7 absence attempts Congress limit President's power, appears that, Commander-in-Chief Navy he may, time war, establish prescribe territory occupied States. His sometimes survives cessation hostilities.12 President infinite responsibility only combating enemy governing force arms.13 policy refrain legislating uncharted area imply lack power legislate. evident restraint contrasts traditional readiness 'make Rules Regulation land naval Forces; * *.'14 Under clause enacted repeatedly revised Articles War prescribed, particularity, courts-martial. 8 Originally gave courts-martial over members rendering functional camp field.15 Similarly first dealt nonmilitary crimes surrendering accused civil authorities. Art. 33, 1806, Winthrop's Law Precedents (22d ed. 1920 reprint) 979. However, 1863, latter enlarged include 'committed are *.'16 Still did cover who, like merely 9 Finally, 1916, when revise so extend offenders expressly preserved 'military provost tribunals' all existing adding new Article read part follows: 10 'II. COURTS-MARTIAL. 11 'C. JURISDICTION. 12 'Art. 15. Not exclusive.—The provisions these articles conferring upon shall construed depriving respect offenses law may triable tribunals.' 39 Stat. 651, 652, 653.17 13 thus forestalled precisely contention now being made certain provisions, added 1916 extending offenses, automatically deprived whatever they offenses. 12, together, extended 'all armies without territorial *.'18 Act increased could courts-martial.19 15, completely disposes contention. states unequivocally August 29, 1916. 653, 670. 499, Ex parte Quirin, 317 63 87 3. 14 legislative strengthens Government's position. During consideration proposed War, Judge Advocate Crowder sponsored authoritative testimony supra, page 19 note, 65, 67—71, 350, 371—374. Before Senate Subcommittee Affairs said: 'Article new. We included article subject number trial commission. A commission court. statutory existence, though statute law. As long embraced them designation 'persons law,' provided court-martial, I afraid having special provision held operated exclude trials courts; introduced. *' 16 'It just saves makes commander field will liberty employ either form happens convenient.' S.Rep.No. 130, 64th Cong., 1st Sess. 40.20 17 'by (Emphasis supplied.) 41 790, U.S.C. 1486, U.S.C.A. 1486. 'law war' connection includes least nations defines powers duties beligerent pending establishment government.21 exercised examples previously mentioned crimes, violence, felt necessary suppress. case quotation said, 'By recognizing order preserve combatants unimpaired Articles, sanction, contemplated common war.'22 therefore 18 III. were, petitioner's case, conforming Constitution laws States.—Under conquered allies, system us developed gradually. designed especially meet needs enforcement relation Those directed apply Code largely theretofore force. (See Appendix, infra, 711 et seq., entitled 'Chronology Establishment Their Jurisdiction Over Civilians 1945 1950.') President, Navy, established, through Commanding European Theater, Control. Courts, Government. By alleged offense known Courts. vested enforce occurred. September 21, effect. acting Commissioner He 'authority, immediate supervision State (subject, consultation ultimate direction President), exercise functions (other than command troops) *.' Executive Order 10062, June 6, 22 901 Fed.Reg. 2965, 713; Office Staff Announcement 714. Transitional Provisions Commission, 3, 5, 7458, 714, preexisting legislation applied appropriate Finally 2086, 715, effective January name Germany' changed Germany.' derived areas still troops. Although local government longer 'Military Government,' an depended continuing occupancy territory. 20 passed control Department Defense State. continued important administered Commander remained orders take measures, request Commissioner, maintenance action required support supra. 21 served thereafter office constitutional stem President. Chief Presiding panel case. volume business, size area, affected, duration establishing confidence emphasized propriety character.23 With purpose, substantially establishment, less character courts-martial.24 1948, appointment substantial legal experience. rights individuals safeguarded code criminal dealing warrants, summons, preliminary hearings, trials, evidence, witnesses, findings, sentences, contempt, review cases appeals.25 This subjected same procedures exhibited fairness procedures.26 suggested took effect crime expired place. Such necessarily expire hostilities even, purposes, treaty peace. continue enough permit discharge fully. Santiago v. Nogueras, 214 260, 29 608, 53 989; Neely Henkel, 180 109, 124, 302, 307, 45 448; Burke Miltenberger, Wall. 519, 158; Leitensdorfer Webb, How. 176, 891; Cross Harrison, 164, 889.27 23 IV. came assigned Ordinance 31, 18, 7, 126, p. 712, 'criminal except persons, military, air forces Nations.' excepted men women 2(d) further defined 'any person law' including *.'28 24 31 provided, 'No brought authorization Commander-in-Chief, Command.' 712. official correspondence relating Wilma B. Ybarbo. written endorsement proper authority, dated December 11, covering Ybarbo 'of 713. 25 applicability springs express adoption General, Proclamation 2, 19, 1945, stated abrogated, suspended modified Council 'the applicable Occupation 6997, 711.29 Section accordingly 1949. rather VI(i)(c) (d), 2191, 2192, II(2)(iii), 2190—2191, 711. 26 affirming 27 Affirmed. 28 APPENDIX. Chronology 1945—1950. 30 supplied throughout headings.) 1. 1945.—Allied Powers assumed 'supreme possessed Government, Command state, municipal, assumption, purposes above, said annexation Declaration Generals representing Soviet Union, Great Britain French Provisional THE AXIS IN DEFEAT—A Collection Documents Policy Toward Japan, published State, 63. 32 2. July 14, 1945.—Commanding Europe, established Occupation—Military Government—United Control, 6997. 33 proclaimed: 34 Except heretofore Occupation, until repealed by, superseded hereby constituted competent authority.' 35 4. 1946.—Military distinguished given territory, 36 '* II; (1) Supreme Commander, Expeditionary Force, Nations. 37 '(2) over: 38 '(i) All offences usages war. '(ii) proclamation, law, ordinance, notice issued 40 '(iii) thereof.' 2190 2191. 5. 1946.—German denied cases, involving national Nations 42 VI; limintations Law, ordinance regulation, Land, assert classes (of) cases: 43 involving: 44 '(a) Any Nations, '(b) 46 '(c) them, 47 '(d) 2192. 48 6. 1948.—United established. 49 31; Germany; creation courts—(a) 1; judicial system. *. 50 3; 51 '(3) Each consist more Judges Magistrates sit singly subparagraph (5) paragraph. 52 '(5) Magistrate hear decide and, latter, impose lawful death. majority it, death unanimous decision '(8) Where limited penal 54 'JURISDICTION OF COURTS 55 '(g) cases. No Command. Mission, visiting official, country Governor. 56 57 Offenses Council; 58 Legislation; 59 Court.' 125, 126. 60 7. 1948.—The addressed Attorney, Germany: 61 'Authorization employee unless, particular headquarters Martial.' Resp.Ex. 4, R. 71. 62 8. May 1949.—Occupation promulgated Governors Commanders-in-Chief Western Zones become later date. declared that— '1. period (the powers) desire intend people enjoy self-government maximum possible degree consistent occupation. participating Laender (states) have, limitations Instrument, full legislative, executive accordance Basic respective constitutions. 64 '2. ensure accomplishment basic occupation, fields specifically reserved 65 '(e) Protection, prestige, security forces, dependents, employees representatives, immunities satisfaction costs requirements; 7457. 9. 1949.—Executive 10062 Establishing Position 67 hereinafter referred supreme troops), representation Mission meaning Foreign Service 1946. 68 '4. event assume prior date terminated, during interval report Defense, Army, thereof international agreements.' 2965. 69 10. 1949.—Council 7456. 70 11. 1949.—United residing 71 agency exercised. Its organization shown attached charts (including Appeals, Courts), among constituent elements set forth separate issuances, date.' 67, 68. 12. 1949.—The announced (and pursuant 31) 'form independent unit responsible directly Commissioner. integrated provides magistrates level associate Appeals.' 69. Similar announcement Counsel Attorney. 70. 73 13. 1949.—'Allied Forces' Commission: 74 'In indication contrary, 75 '3. expression 'Allied include— 76 Authorities. 77 members. 78 Non-German nationals, 79 Members families non-German subparagraphs (a)(b) (c) paragraph.' 80 14. 1949.—Transitional proclaimed adapting 'ARTICLE 81 'References entry into Statute Council, authorities shall, context requires admits, deemed refer exercising legislation.' 7458. 82 November 25, 1949.—Judicial reserved, bringing 83 enacts 84 85 'Except authorized, generally specific located, jurisdiction: 86 '(a)(i) allied 13, 1056. 16. 1949 (Effective 1950).—Occupation changed. 88 89 Germany', amended changing last 91 "The created Germany." 92 94 eight Associate Justices." 95 'Wherever term terms 'Chief Judge' 'Associate Judges' used regulations force, shal Justices respectively.' 2086. 97 BLACK, dissenting. 98 Petitioner, citizen, fifteen-year husband. At crime, living lieutenant active duty judged Congress. officers presidential edicts violating, away liberty. 99 very begins saying 'All herein Congress' contains authorizing create citizens. Whatever scope Fighting armed think if citizens present-day should 124—128. statement facts states: reads follows English translation: "Murder—Mord "211. (As 1941). Whoever kills human killing accomplished premediation, punished 1941, RGBI I, 549). murderer "A out morbid kill (Mordlust); "For sexual desire; cupidity (Habgier) base motives; "In treacherous cruel manner means causing danger, make conceal another offense. "If, exceptional penalty suitable (angemessen), punishment life penitentiary imposed." translation §§ providing reduction circumstances 715. 127. notes 1084—1085, 1452, since 1951, see Uniform Justice, (Supp. IV) 639, 639. There enjoyed immunity nationals forces. VI (1), 712; 7457, 714; 1056—1057, practice dating 1847 renewed firmly Civil adopted simply resorted reason creatures statute, restricted can go unpunished provisional forum offenders. (Their) competency acts Congress, proclamations, rulings opinions Attorneys General. employed several thousand cases; Howland, Digest Opinions Judge-Advocates (1912), 1066—1067. speaking occasion commission, Colonel William Winthrop, work (2d reprint), says 831: empower 'declare 'raise armies,' which, initiation authorize employment due prosecution, tribunal derives original sanction. making waging martial instrumentality efficient execution Commander-in-chief some instances war-court, thereby offences. general, left commanders require, investigation violations cognizable court- martial. arises principally fact proper, almost exclusively code. acts, peculiar war; different required. Hence, distinctive essentially distinct war.' text Scott's 287, 17, 1847, Mexico, Birkhimer, Martial rev. 1904), App. 581—582. also, Duncan Kahanamoku, 304, 606, 688; 499; Mechanics' & Traders' Bank Union Bank, 276, 279 871; Grapeshot, 129, 132, 651; 190, 889; II Halleck, International (3d 1893), 444—445. example Louisiana, 1862, reviewing court, Reiter, Fed.Cas.No.16,146, 768. While explaining reference Crowder, 'A common-law law.' S.Rep.No.130, 40. Tribunal, Provost Conciliation, Arbitrator, Superior Appellate And op. cit. 803—804. recognized, even peace declared, complete government. 12—13, 346, 889. Hague Regulations respecting customs hostile state (1907): legitimate hands occupant, measures restore, ensure, far possible, public safety, while respecting, unless absolutely prevented, country.' 2306. sovereignty, dominates theatre branches administration. Whether army belligerent, him inhabitants, native foreign, wholly superseding subsist. ordinances be, however whole others substituted stead—in discretion 800. U.S.Const., cl. XXXII 1775 XXII XIV British 1765. suttlers retailers camp, whatsoever, continental field, inlisted soldiers, articles, rules, army.' 956, 941 950. 1806 similar. 'retainers' 'retailers.' Id., 981. slightly 1874. 63, retainers enlisted orders, according rules discipline 991 98—99. Enrollment 1863 conferred soldiers incidentally commissions: 'Sec. 30. insurrection, rebellion, murder, assault battery intent kill, manslaughter punishable punishments never inflicted committed.' 736. codification Revised Statutes 1874, incidental omitted. 234. attaches significance omission. seems clear, regardless what effect, any, attach omission service, 'in service.' section Caldwell Parker, 252 376, 388, 621. relate service. Cong.Globe, 37th 3d 988, 1256, 1377, 1384 (1863). discussion phrase service' 60, Gen. Crowder's testimony. S.Rep.No.229, 63d 2d 104. 1920, reenacted addition or' words war'. 1950. again 1951. 115, 145, 581, 581. here. disclosed exercising, Attention recent Like instant Third District. March upheld conviction, lesser charge, years' imprisonment. opinion, reviewed basis Ybarbo, U.S.M.G.Court 207. Hearings House Committee Services H.R. 2498, 81st 876, 975, 1061. Committees both Houses recommended reenactment 'This preserves gives martial.' S.Rep.No.486, 13; H.R.Rep.No.491, 17. substituted, (see note supra), 'General tribunals: 789, 629, 1483, 1483. otherwise articles; 787, 1473(d), 1473(d). expanded 'person law'. phrase, 93, 664, 805, 640, 1564, 1565, 1565. 16, substance 1912, next article, entirely new, insertion these: Mexico existence Scott, viz, council Scott survive Mexican period, subsequent wars voer 2,000 formally institution greatest preserved. somewhat amplified introduction 'Persons future past overlap arise ousted. wish perfectly plain concurrent. influenced propose (15) largely, perhaps, experience second intervention Cuba. inaugurated natives. Plainly condition courses open: First, surrender Cuban course utilize extraordinary inhered governor laws, promulgate decree creating men. followed, Spanish Should confronted necessity intervention, situation likely repeat itself.' 53, 9, 10, explicitly so, define punish sanctioning, limitations, precepts nations, particularly tribunals. Chief, invoked undertaken itself direct performance performed arm nation commission's saboteurs, charges violating 35—38, 14—15. estimates population about 17,000,000, plus refugees. 30, 34,000 dependents 4,700 5,000 dependents. Other 4,100 handling 1,000 month, civilians. account development Clay, Decision (1950), 246—248. 1946, provided— V; accused. Every entitled: To advance copy tried; trial, give evidence examine cross-examine witness; proceed permission absent, believed fugitive justice; consult lawyer conduct own defense represented choice, right debar appearing court; '(iv) imposed, officer represented; '(v) bring material witnesses wish, summoned request, practicable; '(vi) adjournment enable prepare defense; '(vii) proceedings translated, unable understand language conducted; Ordinances 128—133. Field Manual 27—5 (1947), 66, provides: governed Courts-Martial War. Experience demonstrated administering justice desirable follow similar accustomed.' Cf. Lincoln Orleans, 'court record Louisiana' as— 'a judge, hear, try, determine causes, criminal, causes equity, revenue, admiralty, belong Circuit proceedings, customary Louisiana; judgments final conclusive. These appointments (of prosecuting attorney, marshal clerk court) pleasure beyond city restoration Louisiana.' provide juries. presentment indictment grand jury federal capital Fifth Amendment Amendment, application 'cases arising prosecutions Sixth similarly limited. 40, 43—45, 18—19; Miligan, 123, 138, 281. continues inception actual till invader expelled arms, himself abandons conquest, till, peace, restored allegiance becomes incorporated domain prevailing belligerent.' 801. Dow Johnson, 100 158, 166, 632; Ketchum Buckley, 188, 473, illustrations area;

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