Document: 349 U.S. 331 75 S.Ct. 790 99 L.Ed. 1129 John P. PETERS, Petitioner,v.Oveta Culp HOBBY et al. No. 376. Argued April 19, 1955. [DLQ!]] Decided June 6, [Syllabus from pages 331-332 intentionally omitted] Messrs. Thurman Arnold, Paul A. Porter, Washington, D.C., for petitioner. Mr. Warren E. Burger, Asst. Atty. Gen., respondent. Chief Justice WARREN delivered the opinion of Court. 1 This action was instituted by petitioner in District Court Columbia. The principal relief sought is a declaration that petitioner's removal and debarment federal employment were invalid. Prior to trial, granted respondents' motion judgment on pleadings. affirmed, one judge dissenting, Appeals Columbia Circuit, relying its decision Bailey v. Richardson, 86 U.S.App.D.C. 248, 182 F.2d 46, sustained here an equally divided vote, 341 918, 71 669, 95 1352. We certiorari, 348 882, 124, because case appeared present same constitutional question left unresolved this Court's supra. I. 2 basic facts are undisputed. Petitioner professor medicine, specializing study metabolism, at Yale University. For several years prior 1953, his eminence field medical science, he employed as Special Consultant United States Public Health Service Federal Security Agency. On 10, functions Agency transferred Department Health, Education, Welfare, headed respondent Hobby. Petitioner's duties required presence Washington four ten days each year, when called upon Surgeon General, render advice concerning proposals grant assistance various research institutions. work not confidential or sensitive character did entail access classified material. compensated specified per diem rate actually worked. At time removal, under appointment expiring December 31, 1953. 3 March 21, 1947, Executive Order 9835 issued President.1 It provided head department agency Branch Government 'shall be personally responsible effective program assure disloyal civilian officers employees retained agency.' Toward end, directed establishment within more loyalty boards 'for purpose hearing cases arising such making recommendations with respect any officer employee * grounds relating *.' order also central Loyalty Review Board Civil Commission. Board, addition supervisory functions, authorized 'to review involving persons recommended dismissal board standard prescribed whether, 'on all evidence, reasonable exist belief person involved States.' amended 28, 1951.2 As amended, applied "on there doubt States." 4 In January 1949, Joseph McElvain, Chairman Inquiry Employee Agency, notified derogatory information had been received. Accompanying McElvain's letter detailed interrogatory associations affiliations. promptly completed form returned it. Shortly thereafter, McElvain advised determined no existed disloyal. 5 May 1951, following amendment 9835, Seccretary should reopened readjudicated pursuant standard. Three months later, Acting informed panel considered it remanded hearing. Board's recommendation, sent charges. Sixteen charges specified, alleged membership Communist Party, sponsorship certain petitions, affiliation organizations, association Communists sympathizers. reply, made oath, denied ever member Party set forth other 6 2, 1952, conducted New Haven, Connecticut. sources bearing identified available counsel cross-examination. identity informants furnishing information, but informants, known Board. only evidence adduced presented He testified oath never against him. refuse answer testimony supported eighteen witnesses affidavits statements some forty additional persons. 23, that, loyalty. 7 Thereafter, conduct 'post-audit' determination and, 'hold reach own decision.'3 held 12, before consisting respondents Hessey, Amen, King. Once again, previous hearing, testimony, discussed political beliefs motives engaging activities which subject charges, answered questions put him support five stated their long acquaintance firm conviction loyalty.4 record contained supplied whose disclosed more, all, these given oath. record, Dr. Peters' 8 By 22, finding. further Hobby 'been barred service period three 18, pending applications existing eligibilities cancelled.' behalf Commission, composed Young, Moore, Lawton.5 Following after unsuccessful attempt obtain rehearing, brought instant suit, naming defendant. II. 9 complaint, contends taken 'in violation Constitution contention violated Order, makes allegation, among others, 'exercised power beyond make advisory agency', defined Part III, § 1a level, complains chiefly denial opportunity confront cross-examine secret accusers. alleges deprived 'of liberty property without due process law they branded country, arbitrarily, basis fact, fair procedure hearing.' addition, 'The imposition penalty ineligibility government constituted prohibition bills attainder ex post facto laws punishing plaintiff declaring ineligible serve judicial trial administrative Finally, debarment, solely opinions, right freedom speech. 10 Court, urges us decide issues. These issues, if reached would obviously serious far-reaching problems reconciling fundamental guarantees procedures used determine personnel. Compare Wieman Updegraff, 344 183, 73 215, 97 216; Lovett, 328 303, 66 1073, 90 1252; Joint Anti-Fascist Refugee Committee McGrath, 123, 624, 817. And note division find, however, can decided reaching 11 From very early date, has declined anticipate advance necessity deciding Proprietors Charles River Bridge Bridge, Pet. 420, 553, 773. See Alma Motor Co. Timken-Detroit Axle Co., 329 129, 136, 67 231, 233, 91 128. Applying rule case, we must outset whether effected accord 9835. consideration question, conclude so patently Order—in delegated jurisdiction Order—that constitutionality itself does come into issue.6 III. 12 adjudicate individual specifically III Order: 13 shall have authority thereon employing agency. Such may referred either agency, concerned.' 14 Similarly, II, prescribes followed provides: 15 'A recommendation appeal affected, concerned Commission's hereinafter for, recommendation.' 16 thus conferred limited 'cases And, even cases, undertake motion; dismissal, could refer 17 failed limitations. twice cleared hence fall category 'persons Moreover, Instead, acting motion, undertook decision.' both grounds, plainly unless provision Order. Section 18 'b. rules regulations, inconsistent provisions order, deemed necessary implement statutes orders 19 'c. also: 20 '(1) Advise departments agencies 21 '(2) Disseminate pertinent programs. 22 '(3) Coordinate policies agencies. 23 '(4) Make reports submit Commission transmission President maintenance program.' 24 subsection (b), promulgated 14, elaborating powers Order.7 regulations distinguished between two types proceedings cases. first dealt appeals adverse decisions.8 second, described Regulation claimed different function.9 provided:10 25 'Post-audit files. (a) executive committee shall, time, cause post-audits files regional board. 26 '(b) duly right, discretion call up board, though taken. Any panel, affirm procedural method taken, remand appropriate instructions determine. 27 '(c) If reviews post-audit reaches conclusion below fully recognize 'vital importance' 'that complete unswerving States,' then reverse original decision. Nevertheless, always remembered while important maximum protection afforded infiltration ranks employees, equal loyal unfounded accusations disloyalty.' 28 undertaking decision' relied source authority. 29 regulation, valid 'not order.' function, survey operation insure uniformity boards, might well justified 'Advise loyalty' 'Coordinate agencies.' But regulation restrict function coordination. Rather, purported allow taken' hold new 'after (to) do precisely what permitted Although rulings, asserted over favorable rulings well; although motion. To extent fall. See, e.g., Addison Holly Hill Fruit Products, 322 607, 616—618, 64 1215, 1220—1222, 88 1488, Communications American Broadcasting 347 284, 296—297, 74 593, 600—601, 98 699. 30 Our interpretation language confirmed Report President's Temporary Loyalty, released simultaneously Four before, established inquire standards, procedures, organizational investigation who applicants employment, (b) disqualification subversive person.'11 conducting investigation, suggestions 50 selected replies revealed general agreement employees.'12 substantial number indicated:13 31 independent over-all centralized matter employees; (2) de novo; (3) only.' 32 Of proposals, flatly rejected instead urged combining elements second third. thought 'imperative program.'14 hand, 'so operative properly coordinated *,' recognized created definite responsibilities connection program.'15 'advisory responsibilities' envisaged 'similar those clearing house.'16 But, decisions agency.17 Nowhere report remotely suggested cases; contrary, already noted, expressly disapproved proposal. recommendations, slight changes language, adopted designating Board.18 33 While involve criminal sanctions, limitation determinations keeping deeply rooted principle verdict guilty appealable acquittal not.19 safeguard few, perhaps most important, accused Its effect leave initial co-workers department—to peers, were—who knew about actions duties. assured fate appointees vulnerable pressures heated public opinion. sanction abrogation through face Order's report, law-lessness. Agencies, statute course free give scope terms conferring ignore plain limitations Wickersham, 201 390, 398, 469, 472, 798. 34 urged, failure express disapproval constitute acquiescence this, contended impliedly expanded cannot indulge fanciful speculation. Nothing short explicit Presidential justify eliminated. No our attention. There is, practice 27, weeks intention knowledge hardly imputed view relatively small 20—in reversed 6-year life.20 10450, revoking establishing program.21 10450 take until later heard during 30-day evidences approval 14.22 11, than date authorize thereafter. recommend dismissal; reconsideration. With date—such petitioner's—s surely affords divining disregard previously jurisdictional boundaries. Particularly where, here, rights affecting lives citizens stake. 'a badge infamy' attaches found 191, 218, 216. impose tenuous theory pressed us. 35 Nor adjudication despite unwarranted assumption cancelling eligibility 'the service' years, act Rule V, 5.101(a), bars competitive final disqualified *.'23 extended employment.24 'final determination' wait recommendation. wrote nearly took remove position. haste understood announced deprive accepted.25 IV. 36 remains relief. Initially entitled declaratory directing members expunge records finding ruling reason His prayer reinstatement, granted, since appears term expired wholly apart grounds. 37 entry decree conformity 38 Reversed. 39 BLACK, concurring. 40 I prefer Douglas necessarily involved. 1252. my dissents Dennis States, 494, 579—581, 857, 902—903, 1137; Ass'n Douds, 339 382, 445—453, 70 674, 707—711, 94 925. concurring 142—149, 633 637, agree generally better adequately disposed non-constitutional accepted treated inflexible inexorably circumstances. Youngstown Sheet & Tube Sawyer, 343 579, 584—585, 72 863, 865—866, 96 1153. Here, think justifiably construed denying exercised case. join wish distinctly grave Act Congress. That others associated embody broad, espionage employees. look like legislation me carry out clear command Congress delegate attempted here. confer lawmaking President. 41 add issue having sub silentio. 42 DOUGLAS, 43 deference, avoid 44 said ambiguous. construction Attorney General buttressed history practice, being reviewed precise manner one. settled neither nor Peters absence It, therefore, becomes issue. 45 condemned faceless informers, whom Some informers None them Peters. So far know, psychopaths venal people, Titus Oates, revel informers. They bear old grudges. Under cross-examination stories disappear bubbles. Their whispered confidences turn yarns conceived twisted minds people who, sincere, poor faculties observation memory. 46 Confrontation essential, ideal remain vital force life. deal reputation men work—things precious itself. system where condemns man suspect class outer darkness, rudiments trial. using apparently spread vast domain. get rid Government, private firms contracts Government.1 touched countless hundreds women ruined many. un-American condemn. deprives 'liberty' meaning Fifth Amendment, man's liberties work. When process. suffer bill attainder, outlawed Constitution. An agency—the creature Congress—certainly exercise asserting. Black 144—146, 634 635, 817.2 47 Those see position counter saying Government's protected, campaign subversives successful. plain. need protection, kept secret. once destroy 'liberty,' test law. use war concept. relax standards accommodate informer, violate ape tactics despise. 48 REED, BURTON joins, dissenting. 49 DOUGLAS annulling discharge sound. reasons him, find factors me, strengthen However, ultimately faced aspects proper. 1947. rule-making powers. 1, subd. b, Exec. promulgation included motion' 'even taken.' Fed.Reg. 255 (adopted 17, 1947). Thus, outset, reviewing part program. Furthermore, 1948 Annual Reports results unmistakably recorded.1 submitted statutory requirement.2 stating annual data (more 5,000 1952), clearly indicated rehearing present, employee.3 places emphasis handled, seems relevant fact indisputably conveyed reader doing, 100. 51 thereunder. easy majority analogize congressional Acts Acts. Certain differences immediately apparent. traditionally handle internal administration way. legality intra-executive operations completely doubt. construing does, statute, contemporaneous promulgating allowing practices thereunder continue notice reports, lead correctly interpreted long-continued respected courts. heretofore.4 52 comparison show, opinion, 'inconsistent with' Rather supplemental prescribes. Therefore merely implementation 340, 795. Neither parties otherwise valid. 53 Undoubtedly approved Regulation. shown specific recognition 1953 Order.5 controlling directly, become employee. amounts 14. am therefore compelled rendering 54 imply, another 'unwarranted power,' erroneously separated service. appear Secretary she heads, worked, regard reference apt mislead, nothing Department's Peters, validity 55 erroneous. 5.101(a),6 years. board.7 acts 5.101(a) effective. notifies disqualification. Assuming erroneously. amounted nullity lost nothing. undisputed Service, subordinate Hobby, 'notified separation Consultant.'8 notification effectively complaint wrongful discharge. 56 Limiting myself issues majority, dissent. Fed.Reg.1935, U.S.C.A. 631 note. 10241, 3690, U.S.Code Cong. Adm. p. 1028. Authority purportedly based 631. five—a former University, dean Medical School, circuit judge—had similar CFR (1954 Supp.) 5.101(a). was, request argued briefed. 132, 232, 253 seq. Id., 255, 210.9. 255. 1948. 9366, 210.14. 9806, 13863, Cong.Service 1946, 1874. officials Departments Justice, State, Treasury, War, Navy. (1947) 15. 26. 27. 35—36. Bontecou, Loyalty-Security Program (1953), 29. supra, 30: enough innocent will purview disloyalty criteria. Every mature invoked afford safeguarding ill-advised 30, undertaken 58 below. Commission: (p. 18), 1949 37), 1950 (pp. 33—34), 1951 36), 1952 56), 31). resulted reversal determination. Report, n. 1. 12—including petitioner's—arose fiscal year preceding 31. remaining cases—those determination—either affirmed resigned scheduled Thus hearings scheduled, affirmance cancelled resignation. Ibid. 2489, provides part: 'On accept findings review, otherwise. accordance amended. acted whenever Italics added. Approximately 15% excepted service.' 1954 10. himself 'Schedule A,' exempt category. 6.101(n); 6.1(d). 1948, directive, 'Legal recommendations,' covered expects policies, uniformly agencies, responsibility coordinating assuring placed section Veterans' Preference 1944 (5 863) mandatory, judged standards. Therefore, attained follow cases.' (Italics added.) 9372, 220.4(d). 54—55. Kutcher Gray, 266, 199 783. Berle, 20th Century Capitalist Revolution (1954), pp. 92—93, traces impact corporations Government: 'To begin, let situation powerful corporation contract duty government, it, fire decline hire individuals designated possible security risks. mean reason, authorities (of corporation). Things happen rapidly. All knows office day told discharged—or best less desirable job. ban complete, cities preponderant employer, consequences extreme. main avenue closed move city job can. Since probably plant engaged defense orders, going rough. young man, winds recognizably marginal job, dishwashing unskilled labor. middle life, end industrial scrap heap. Probably discovers exactly hit personnel confide action.' op. cit. 98. 18); 37—38); 33—34); 36); 56). U.S.C. 633(5), 633(5). During post-audited 5,335 favorably boards. closing 5,259 proper followed. processing ensure compliance civil-service regions. merits offered hear One incomplete resigned. Action completed; type appeal, section, shows received Board.' 69th (1952), 56. Cf. Trucking Ass'ns, 310 534, 549, 60 1059, 1067, 84 1345; Bowles Seminole Rock Sand 325 410, 413—414, 65 1217, 89 1700; Crop Insurance Corp. Merrill, 332 380, 68 92 10; Norwegian Nitrogen Products 288 294, 313, 315, 350, 357, 358, 77 L.Ed 796; Helvering Winmill, 305 79, 83, 59 45, 83 52. Exec.Order Set 798, 22. 'Persons appointment. Provided, admitted examination, CFR, ed. Cum.Supp.) II: '1. branch '2. appoint loyalty, prescribe '3. A head, herinafter 1: 'a. (Review) *'

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