Document: 484 U.S. 518 108 S.Ct. 818 98 L.Ed.2d 918 DEPARTMENT OF the NAVY, Petitioner,v.Thomas E. EGAN. No. 86-1552. Argued Dec. 2, 1987. Decided Feb. 23, 1988. Syllabus Title 5 U.S.C., Ch. 75, provides a "two-track" system for undertaking "adverse actions" against certain Government employees. An employee removed "cause," §§ 7511-7514, has right of appeal to Merit Systems Protection Board (Board), § 7513(d), that includes hearing. The reviews such removals under preponderance evidence standard. 7701. is also subject summary removal based on national security concerns. Such not appealable Board, but specified procedural rights, including hearing by an agency authority. 7532. Respondent was from his laborer's job at submarine facility after Navy denied him required clearance. Without clearance, respondent eligible any facility. Upon respondent's Board's presiding official reversed Navy's decision, holding had authority review merits underlying security-clearance determination and failed show it reached reasonable warranted decision this question. full sustained action, Court Appeals remanded, that, since chosen remove 7512 rather than 7532, 7513 applied, determination. Held: In pursuant 7513, does have substance in course reviewing adverse action. Pp. 526-534. (a) grant or denial clearance particular sensitive inherently discretionary judgment call committed law appropriate Executive Branch having necessary expertise protecting classified information. It reasonably possible outside, nonexpert body judgment, cannot be presumed merely because statute expressly preclude it. 526-530. (b) statute's express language structure confirm confer broad determinations. A one enumerated are review, nothing Act directs empowers go beyond determining whether "cause" existed, fact denied, transfer nonsensitive position feasible. application 7701's standard determinations would inevitably alter "clearly consistent with interests security" normally applied making involve second-guessing agency's determinations, result extremely unlikely Congress intended. Respondent's argument availability alternative 7532 procedure compels conclusion reviewability, anomalous situation otherwise exist whereby more "drastic" remedy actually entitle greater protections—particularly preremoval trial-type hearing—than unpersuasive. Section harsh drastic both head, who must act personally suspending removing employee, thereunder, even as envisioned respondent, amounted "more" protection received 7513. procedures two sections anomalous, different. 530—534. 802 F.2d 1563, reversed. BLACKMUN, J., delivered opinion Court, which REHNQUIST, C.J., STEVENS, O'CONNOR, SCALIA, JJ., joined. WHITE, filed dissenting opinion, BRENNAN MARSHALL, joined, post, p. ___. KENNEDY, took no part consideration case. Louis R. Cohen, Washington, D.C., petitioner. William J. Nold, Louisville, Ky., respondent. Justice BLACKMUN Court. 1 Thomas M. Egan lost Trident Naval Refit Facility Bremerton, Wash., when he narrow question presented case (Board) deny revoke ruled Federal Circuit, divided vote, We granted certiorari importance issue its relation 481 1068, 107 2459, 95 868 (1987). 2 * new hire began work November 29, 1981. He served veteran's-preference-eligible civilian provisions Civil Service Reform 1978 (Act), U.S.C. 1201 et seq. 3 mission provide quick-turn-around repair, replenishment, systems check-out over extended operating cycle. nuclear-powered carries nuclear weapons. been described most sophisticated weapon arsenal playing crucial our Nation's defense system. See Concerned About v. Schlesinger, 400 F.Supp. 454, 462-466 (DC 1975), aff'd rev'd part, 180 U.S.App.D.C. 345, 555 817 (1977). As consequence, all positions sensitive. Thus, shown Standard Form, condition precedent Egan's retention employment "satisfactory completion medical reports." April 1982, gained "noncritical-sensitive" laborer leader.1 Pending outcome investigation, however, performed only limited duties permitted board submarine. 4 On February 16, 1983,2 Director Civilian Personnel Command issued letter intent This upon California Washington state criminal records reflecting convictions assault being felon possession gun, further failure disclose federal earlier carrying loaded firearm. referred own statements drinking problems past final 28 days sentence alcohol rehabilitation program. informed respond proposed denial. May 6, answered intent, asserting paid debt society convictions, listed older seven years did interpret form requiring information, problem three preceding provided favorable material supervisors background character. 6 Director, response, concluded information sufficiently explain, mitigate, refute reasons based. Accordingly, denied. 7 Security effected before acted (which eventually affirming clearance). 8 hired. Reassignment there there. notice removal, placed administrative leave pending decision. reply notice. July 15, 1983, effective 22. 9 Respondent, sought Board.3 Under 7513(a), may "only cause will promote efficiency service." statute, together 7701 7513(d) specifically refers, number protections, notice, opportunity represented counsel, writing. unless nonveteran excepted service, did, sustain action if "supported evidence." 7701(c)(1)(B).4 stated meet requirements due Before argued power followed position. contended judge 10 ruling merits. She specify precise criteria used those rationally related security. App. Pet. Cert. 62a-63a. then show, evidence, employee's acts precipitating occurred, "alleged misconduct actual potentially detrimental effect interests." Id., 63a. held ultimate burden persuade appropriateness 64a. 11 determine justified submitted list employed present "conscientiously weighed circumstances surrounding [respondent's] alleged balanced security." 65a. accordingly "failed concerning propriety revocation clearance." 66a. therefore, could stand. 12 petitioned official's ruling.5 unanimous M.S.P.R. 509 (1985). observed "do address extent determinations." M.S.P.R., 514. Neither legislative history "address intended exercise revocations denials clearances Chapter 75 actions." 515. found binding legal precedent. acknowledged presence Hoska Department Army, 219 280, 677 131 (1982) (security leading dismissal reviewed merits), explained away ground court "expressly determination." 516. cases relied Hoska, see, e.g., Bogdanowicz 16 653 (1983), involved "reliance misplaced," they stood "for proposition . clearance" "now overrule[d]." went say "section exclusive basis revocations." 521. 13 7703, appealed Circuit. By removal. 1563 (1986). agreed sole F.2d, 1568. noted, thus chose "that carrie[d] section 7513," 1569, remanded stating remedy, should now rule improperly yet ripe. 1573-1575. 14 protections entitled, id., 1577-1578; majority transferring vested executive neither responsibility nor make decision; raised separation-of-powers concerns; unable remedy. 1578, 1580-1583. II 15 turn first statutory structure. United States Code entitled "Adverse Actions." Its subchapter (§§ 7511-7514) relates "cause." Subchapter IV 7531-7533) right, Board. contrast, suspended 7532(a) That 7532(c)(3). 77 7701-7703) "Appeals," 1201-1209) "Merit Special Counsel." 1205(a) shall "hear, adjudicate, adjudication matters within jurisdiction Board" "order comply order Board." litigation, claim hear adjudicate appeal. 17 apparent statutes embraces type prescribed detail Suspension entail takes straightforward inasmuch proceeded required. agrees. What disputed matter particular, pursued, examine denial, stop short point, is, position's requirement satisfactory provision requisite protections? III 18 Appeals' stated: "The absence precluding appellate creates strong presumption favor review," citing Abbott Laboratories Gardner, 387 136, 141, 87 1507, 1511, 681 (1967). 1569. One perhaps accept general law, without limit, runs aground encounters concerns security, case, where call, Branch. 19 President, all, "Commander Chief Army States." Const., Art. II, 2. His classify control access bearing individual trustworthy occupy give person flows primarily constitutional investment President exists quite apart explicit congressional grant. Cafeteria Workers McElroy, 367 886, 890, 81 1743, 1746, 1230 (1961). recognized Government's "compelling interest" withholding unauthorized persons business. Snepp States, 444 507, 509, n. 3, 100 763, 765, 62 704 (1980). Robel, 389 258, 267, 88 419, 425, 508 (1967); Reynolds, 345 1, 10, 73 528, 533, 97 L.Ed. 727 (1953); Totten 92 (2 Otto) 105, 106, 23 605 (1876). protect falls head Commander Chief. 20 Since World War I, engaged efforts means classification graded according sensitivity. Note, Developments Law—The National Interest Liberties, 85 Harv.L.Rev. 1130, 1193-1194 (1972). After agencies, Central Intelligence Agency, Atomic Energy Commission, were entrusted gathering, protecting, creating Presidents, series Orders, ensure proper throughout delegating heads agencies. Exec. Order 10290, CFR 789 (1949-1953 Comp.); 10501, 979 11652, 678 (1971-1975 12065, 190 (1979); 12356, 4.1(a), 174 (1983). Pursuant these directives, departments agencies jobs categories: critical sensitive, noncritical nonsensitive. Different types levels required, depending sought. appointment made investigation varies degree applicant 10450, 937 Comp.). 21 obvious "right" requires affirmative discretion granting official. See, 7, 936, 938 710.10(a) (1987) (Department Energy); 32 156.3(a) Defense). equate passing individual's Instead, attempt predict future behavior assess whether, compulsion other reasons, might compromise based, sure, conduct, completely unrelated close relatives residing country hostile States. "[T]o [clearance] unspecified grounds way implies disloyalty repugnant characteristic." Molerio FBI, 242 137, 146, 749 815, 824 (1984). define actions, outside unknown influences renders "grant inexact science best." Adams Laird, 136 388, 397, 420 230, 239 (1969), cert. 397 1039, 90 1360, 25 650 (1970). 22 Predictive kind For "reasons too enlarged discussion," CIA Sims, 471 159, 170, 105 1881, 1888, 173 (1985), responsible, include Certainly, decide able prediction confidence. Nor can what constitutes acceptable margin error assessing potential risk. respect employees "there view bear custody deciding repose trust information." Cole Young, 351 536, 546, 76 861, 868, 1396 (1956). noted above, call. "the generally accepted foreign policy province Executive." Haig Agee, 453 293-294, 101 2766, 2775, 69 640 (1981). "As areas courts traditionally utmost deference Presidential responsibilities." Nixon, 418 683, 710, 94 3090, 3108, 41 1039 (1974). otherwise, reluctant intrude military affairs. Orloff Willoughby, 83, 93-94, 534, 540, 842 Burns Wilson, 346 142, 144, 1045, 1048, 1049, 1508 Gilligan Morgan, 413 1505, 52 (1973), Schlesinger Councilman, 738, 757-758, 1300, 1312-1313, 43 591 (1975); Chappell Wallace, 462 296, 103 2362, 586 feel contrary line 24 Finally, we fortified consider "express language" along scheme, objectives, history, nature involved." Block Community Nutrition Institute, 467 340, 104 2450, 2454, 270 terms actions," term, suspension days, reduction grade pay, furlough 30 less. 7512. action," force review. several statute. Nothing Act, further. Cf. Zimmer- man 755 156 (CA Fed.1985); Buriani Air Force, 777 674, Bacon Housing & Urban Development, 757 265, 269-270 Madsen VA, 754 343 Fed.1985).6 26 actions 7701(c)(1)(B). These standards seem inconsistent. difficult see how departing test. clearly indicates err, must, side denials. Placing support shift emphasis passed created 27 presses us existence grounds. 1568.7 parties litigation dispute about They assume, Circuit held, pre-empt stand separately routes There reason here for, respect, comes us. points out acknowledgment summarily thereafter considers necessary; review; appointed elsewhere consultation Office Management; personally. At same time, say, Appeals, 1572, suggests anomaly less process "compelling" factor persuaded. 29 do agree inspect relevant respond, written Until time remained full-pay status. important outlined above. determines permit," board, agency. pay outcome. agency, and, once removed, barred short, instead, employee. (b). seems come down contention prior Even assuming still doubt protection. 31 so ordered. 33 KENNEDY 34 whom MARSHALL join, dissenting. 35 safeguarding secrets. ante, 527. I necessity rewrite civil service name already protects depriving into their discharge. 36 discharged "laborer leader" 7511-7514. discharge 7513(a). 7513(d). afford "a transcript kept." 7701(a)(1). 37 suggest scrutinize discharges comprehensively foreclosed examining risks. 38 If silent compelled read foregoing some restrictions scope discharges. assume inferred courts. 39 remain silent, regard Rather, carefully "necessary advisable 7532(b). statement charges him," "an answer submit affidavits," duly constituted purpose," designee," agency." 7532(c). "final." 40 sensible inference drawn Congress' enactment "in silence applicable similarly motivated guarantee every agency; 5, Yet, majority's frustrates denying meaningful cases, employing obligation hearing, need "whether [a security] feasible." Ante, 530. Hence, demand claims branded risk false allegations lack rational nexus 42 reconcile today's Court's discussion Greene 360 474, 79 1400, 1377 (1959), available contractor Communist associations sympathies: "Before asked context deprived follow profession hearings accusers confronted, clear Congress, respective powers, decided imposed authorized use. decisions assumed acquiescence non-action. explicitly assure individuals cherished rights authorized, especially doubtful constitutionality, careful purposeful responsible enacting implementing laws." S.Ct., 1419 (citations omitted). 44 far instant discharging risks sort warranted" procedure. assumes "nonaction." example, emphasizes "[n]othing [Civil Reform] further" indeed possible. likewise "go further." 45 Today's fears implications decision,1 foreclose external proceeding circumstances, internal termination. here, affording 46 notwithstanding guaranteed former latter. 533. sufficient many recognizing particularly role assuring wrongfully livelihoods significant interests. Wolff McDonnell, 539, 557-558, 2963, 2975, 935 (1974); Perry Sindermann, 408 593, 603, 2694, 2700, 570 (1972); Stanley Illinois, 405 645, 652-658, 1208, 1213-16, 551 Goldberg Kelly, 254, 269-270, 1011, 1021, 287 proceedings heard simply conducted Board.2 47 sum, absent indication either respectfully dissent. defined "[a]ccess Secret Confidential Operations Instructions (OPNAVINST) 5510.1F, ¶ 16-101-2.b (June 1981). OPNAVINST 5510.1F amended 1984 5510.1G. date significance year. 7511(a)(1)(A) defines "employee" competitive serving probationary trial period initial completed year current continuous temporary less." status meaning 7511(a)(1)(A). reads: "An taken title." note point 7532(a), "head agency," "[n]otwithstanding statutes," suspend "when complying procedures, "he Removal 7512(A). invoke 7532; presumably Solicitor General informs us, Brief Petitioner numerous petitions raising similar issues treated lead invited briefs interested organizations, others 4, supra, 49 Fed.Reg. 48623-48624 (1984); 50 2355 Prior Act's passage 1978, dismissed pursue Commission. appear old Commission never exercised fail possessed adjudicatory functions exceptions, unchanged When Senate House Committees changes gave S.Rep. 95-969, pp. (1978), U.S.Code Cong. Admin.News 2723, 2768, 2774; H.R.Rep. 95-1403, 21, (1978). issue. implication suggest, much frail conclude major change kind. But cf. Doe Weinberger, 261 96, 101, 820 1275, 1280 (1987), sub nom. Carlucci Doe, 87-751. District Columbia Circuit's (to extra option," U.S.App.D.C., 1280, 831 832 apply) pertinent dismiss conflict proceed parties' assumption thereunder. insensitive questionable often No appears Moreover, considered, expected adopt (e.g., camera inspection documents) utilized circumstances. previously adjudicated involving documented harm (1982); Gayer 160 172, 490 740 (1973); McKeand 1262 (CA9 1973). given Comp.), security," suitably deferential inquiry qualitatively different varieties routinely evaluates factors loyalty, trustworthiness, "promote "harsh drastic" contends head. asserts obtained authorize reinstatement concerned." 3571. suggested rehire require while "must personally" designee." 7532(c)(3)(D) (emphasis added).

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