Document: 456 U.S. 25 102 S.Ct. 1510 71 L.Ed.2d 715 Caspar W. WEINBERGER, Secretary of Defense, et al., Petitionersv.Anthony M. ROSSI al. No. 80-1924. Argued Feb. 22, 1982. Decided March 31, Syllabus In 1968, the President entered into an agreement with Republic Philippines providing for preferential employment Filipino citizens at United States military bases in Philippines. 1971, Congress enacted § 106 Pub.L. 92-129, which prohibits discrimination against on overseas unless permitted by "treaty." Thereafter, respondent residing were notified that their jobs a naval base there being converted local national positions accordance 1968 agreement. After unsuccessfully pursuing administrative remedy, respondents then filed suit Federal District Court, alleging provisions violated 106. The Court granted summary judgment petitioners, but Appeals reversed. Held: word "treaty" as used includes executive agreements, such one involved here, and is not limited to those international agreements concluded advice consent Senate pursuant Art. II, 2, cl. Constitution. Pp. 28-36. (a) view fact has been consistent various other Acts distinguishing between II treaties forms it dispositive term without specifically including are treaties. But case statute touches upon States' foreign policy, particularly justifiable reason construe Congress' use include well Cf. B. Altman & Co. v. States, 224 583, 32 593, 56 L.Ed. 894. To otherwise would mean intended repudiate 13 existing this case, hiring nationals. 28-32. (b) legislative history provides no support attributing intent Congress, rather discloses was primarily concerned financial hardship American servicemen resulted from bases. 32-36. 206 U.S.App.D.C. 148, 642 F.2d 553, reversed remanded. Barbara E. Etkind, Philadelphia, Pa., petitioners. Mott, Washington, D. C., respondents. Justice REHNQUIST delivered opinion Court. 1 Section 85 Stat. 355, note following 5 U.S.C. 7201 (1976 ed., Supp.IV), question whether host country, or This issue solely statutory interpretation. 2 * 1944, authorized President, "by means he finds appropriate," acquire, after negotiation Philippines, "he may deem necessary mutual protection Philippine Islands States." 58 626, 22 1392. Pursuant statute, 1947 99-year Military Bases Agreement (MBA), Mar. 14, 1947, 61 4019, T.I.A.S. 1775.1 MBA grants facilities It does not, however, contain any regarding nationals base. two nations negotiated Base Labor (BLA), May 27, [1968] 19 U.S.T. 5892, 6542, supplement MBA. BLA, inter alia, Philippines.2 3 case.3 At time enacted, 12 addition BLA effect overseas. Since four more have concluded.4 None these submitted its 4 1978, respondents, all Naval Facility Subic Bay they be discharged Navy. Columbia, violated, Rossi Brown, 467 F.Supp. 960 (1979), 553 (1980). We turn reverse Appeals. Simply because presented entirely construction necessarily admits easy answer. Chief Marshall long ago observed "[w]here mind labours discover design legislature, seizes every thing aid can derived. . ." Fisher, Cranch 358, 386, 304 (1805). More recently, stated: 6 "Generalities about help us little. They rules law merely axioms experience. do solve special difficulties construing particular statute. variables render problem unique." Universal Corp., 344 218, 221, 73 227, 229, 97 260 (1952) (citations omitted). 7 naturally begin language 106, relevant part follows: 8 "Unless prohibited treaty, person shall discriminated Department Defense officer employee thereof, civilian personnel facility installation operated country citizen dependent member Armed Forces Supp.IV) (emphasis added). 9 awkwardly worded form double negative, we agree "[r]eplacing phrase '[u]nless by' either words 'unless provided convey precisely meaning think awkward phrasing bears congressional selecting 'treaty.' " U.S.App.D.C., 153, n. 21, F.2d, 558, 21. Discrimination country. Our task determine did separately define word, done enactments. Infra, 30. must therefore ascertain best refer "Treaties"—those Senate—or also BLA. 10 than meaning. Under principles law, ordinarily refers sovereigns, regardless manner brought force. 151, 556.5 Constitution, course, far restrictive Article instrument "shall Power, Advice Consent Senate, make Treaties, thirds Senators present concur."6 11 agreements. For example, Case Act, 112b(a) required State "transmit text agreement, party" later 60 days "such force."7 Similarly, explicitly referred Fishery Conservation Management Act 1976, 16 1801 seq. ed. Supp.IV),8 Arms Control Disarmament 2551 Supp.IV).9 On hand, only 39 407(a), Postal Service, "negotiate conclude postal conventions." A requires treaty. Thus imparted precise recognized 894 (1912). There construed Circuit 1891, ch. 517, 26 826, under authorization. U.S., 601, S.Ct., 597. held jurisdictional extended saying: "If technically treaty requiring ratification, nevertheless compact proclaimed authority President. Act. Ibid. way affected policy since dealt jurisdiction touch even Supra, 27. Thus, if limit "treaty exception" treaties, affect practices One expect aware represent quid pro quo : rights exchange, See 17, infra. 14 maxim decision Murray Charming Betsy, 64, 118, 208 (1804), "an act congress ought never violate nations, possible remains. McCulloch Sociedad Nacional de Marineros Honduras, 372 10, 20-21, 83 671, 677-678, 547 (1963), principle applied avoid National Relations contrary regulations, had implications. relied proposed "well-established rule law." Id., 677-678. While considerations apply less force terms designed conditions enclaves outside territorial limits statutes couched general sought extraterritorial way, nonetheless case. 15 enactment concluded, none consent. some affirmative expression abrogate obligations order what available fairly attributed Congress. seems indicate principally As Conference Committee Report explains: 17 "The purpose [§ 106] correct situation exists bases, Europe, where favor dependents contributed families enlisted men whose effectively prevented obtaining employment." H.R.Conf.Rep.No. 92-433, p. 31 (1971). 18 Report, silent scope exception. mention whatsoever conclusion President's discriminate who seek contrary, brief debates provision limiting enter ad hoc decisionmaking commanders early Brig. Gen. Charles H. Phipps, Commanding General European Exchange System, issued memorandum encouraging recruitment instead system's stores. nationals, Phipps reasoned, result lower wage costs turnover rates.10 Senator Schweiker, sponsor complained Phipps' policy.11 20 Both debates12 economic hardships endured Germany. regard, noted existence country—Iceland.13 Between Parties North Atlantic Treaty Organization Regarding Status Their Forces, June 19, 1951, [1953] 1792, 2846,14 governs provide treatment interests expressly further subject type 21 heavily statement Hughes, "are denied opportunity work countries located, forced live poverty." 117 Cong.Rec. 16126 Taken out context, remark certainly supportive respondents' position. altogether clear "agreements" Hughes referring. Immediately prior remark, Cook explained unable obtain anything tourist visas, thus precluding them working economy: "On my inquiry Department, understanding through NATO organization, young wives, tourists could get permit circumstances." 23 indicated above, 34. referring precluded economy. Be may, suffices say isolated single Senator, ambiguous when examined insufficient establish kind evidence agreements.15 24 Finally, rely postenactment "firmly reiterate[s] Congressional nationals." Brief Respondents 23. particular, offer examples Committees urging renegotiate containing local-national provisions.16 Such post statements entitled much weight. Consumer Product Safety Comm'n GTE Sylvania, Inc., 447 102, 13, 100 2051, 2061, 64 766 If anything, cut argument eliminate owing By assume validity very contend abrogated 106.17 free doubt, exception contained extends reversed, remanded proceedings opinion.18 so ordered. amended periodically, most recently January 7, 1979. [1978-1979] 30 863, 9224. part, I provides: "1. Preferential Employment.—The fill needs employing citizens, except needed skills found, consultation Labor, locally available, reasons security management needs, cases employed. pertinent part: Petitioners 5-6, nn. 3-4. Vienna Convention Law 23, 1969, ¶ 1(a), reprinted 63 Am.J.Int'l L. 875, 876 (1969); Restatement Foreign Introductory Note 3, 74 (Tent. Draft 1, Apr. 1980) ("[I]nternational distinguish designated 'treaties' agreements"). recognized, certain binding complying formalities Clause compromises commercial claims power. See, e.g., Dames Moore Regan, 453 654, 101 2972, 69 918 (1981); Pink, 315 203, 62 552, 86 796 (1942); Belmont, 301 324, 57 758, 81 1134 (1937). Even though appropriate circumstances similar areas domestic law. logical should Submission ratification already defined "any fishery within section article Constitution." 1802(23). "[N]o action taken chapter will obligate disarm reduce armaments making power Constitution legislation 2573. 14395 (1971) (remarks Sen. Schweiker). "I heard ridiculous life. actually send our GI's Europe poverty wages. pay wives there. beg borrow money. over there, bring own expense, cannot go Army Service job, sent says going give involved." another point, Schweiker commented: "Here saying canteen service exchange spend money, right German 16128. id., Schweiker); Cook); ibid. Hughes). Concerning Personnel Property (Annex), 8, States-Iceland, [1951] 1533, 2295. contemporaneous remarks controlling analyzing history. (1980); Chrysler Corp. 441 281, 311, 99 1705, 1722, (1979). H.R.Rep.No. 95-68, (1977); 97-410, 54 (1981). Although ascribe weight, deleted qualified available. provision's deletion, Percy place violation obligations, 127 S14110 (Nov. 30, 1981). He argued: "Some might 777 material breach entitling open negotiations terminating, redefining restricting U. S. basing rights. Nations could, retaliate suspending reducing current engage routine operations aircraft transits." found unnecessary instant Title VII Civil Rights 1964, 42 2000e Supp.IV). 156, 36, 561 36 Because neither raised petition certiorari nor reached Appeals, consider it.

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