Document: 496 U.S. 334 110 S.Ct. 2418 L.Ed.2d 312 Rudy PERPICH, Governor of Minnesota, et al., Petitionersv.DEPARTMENT OF DEFENSE, al. No. 89-542. Argued March 27, 1990. Decided June 11, Syllabus Since 1933, federal law has provided that persons enlisting in a State National Guard unit simultaneously enlist the United States, part Army. The enlistees retain their status as members unless and until ordered to active duty revert state upon being relieved from service. authority order was limited periods national emergency 1952, when Congress broadly authorized orders "to or for training" without any requirement, but such could not be issued consent governor concerned. After two Governors refused training missions abroad units, gubernatorial requirement partially repealed 1986 by "Montgomery Amendment," which provides cannot withhold with regard outside States because objection location, purpose, type, schedule duty. Minnesota (hereinafter collectively referred Governor) filed complaint injunctive relief, alleging, inter alia, Montgomery Amendment had prevented him withholding his 1987 mission Central America certain Guard, violates Militia Clauses Article I, § 8, Constitution, authorize provide (1) calling forth militia execute law, suppress insurrections, repel invasions, (2) organizing, arming, disciplining, governing may employed service, reserving appointment officers power train according discipline prescribed Congress. District Court rejected Governor's challenge, holding Federal created pursuant Congress' raise support armies; fact units also have an identity does limit plenary it sees fit is called service; that, accordingly, Constitution neither required veto nor prohibited its withdrawal. Appeals affirmed. Held: I's plain language, read whole, establishes purposes either declaration emergency. Pp. 347-355. (a) unchallenged validity dual enlistment system means lose duty, and, if mission, performed During periods, second Clause no longer applicable. 347-349. (b) This view constitutional issue presupposed Selective Draft Law Cases, 245 366, 375, 377, 381-384, 38 159, 160, 161, 162-163, 62 L.Ed. 349, held do constrain powers common defense, armies, make rules governance Armed Forces, enact necessary proper laws purposes, additional grants 349-351. (c) interpretation merely recognizes supremacy military affairs area significantly affect State's basic responsibility ability rely on own situations. 351-352. (d) In light exclusivity over many aspects affairs, see Tarble's Case, 80 (13 Wall.) 397, 20 597, allowed existing statutes are significant. 353-355. (e) Thus, inconsistent Clauses. original constitutionally compelled, partial repeal valid. 354-355. 880 F.2d 11 (CA 8 1989), STEVENS, J., delivered opinion unanimous Court. John R. Tunheim, St. Paul, Minn., petitioners. Solicitor Gen. Kenneth W. Starr, Washington, D.C., respondents. Justice STEVENS 1 question presented whether President during peacetime 2 A been enacted 19521 provides: "The described subsections withheld (in whole part) territories, possessions, duty."2 3 this litigation Governor), challenge constitutionality amendment. contends Constitution.3 4 alleged statute organized "are Air Army 'National States')." App. 5. further January 1987, prayed injunction against implementation similar consent. 5 Judge challenge. He explained consists "two overlapping, legally distinct, organizations. Congress, under 'raise armies' organization comprised guard members." 666 F.Supp. 1319, 1320 (Minn.1987).4 these maintain Guards, Art. "as service." Id., at 1324. therefore concluded "the found §§ 672(b) 672(d) required. Having accommodation states, rather than mandate, withdraw violating Constitution." Ibid. 6 divided panel Eighth Circuit reached contrary conclusion. It preserving membership "determined there some sort exigency extraordinary need exert power." Pet. Cert. A92. Only event army dissipate reserved 7 response petition rehearing en banc, vacated decision affirmed judgment Over dissent judges, banc court agreed Court's conclusion "Congress' exclusive" did conflict congressional armies defense control reserve forces. 17-18 (1989). Because manifest importance issue, we granted certiorari. 493 1017, 715, 107 735 (1990). end, conclude language I requires affirmance Appeals' judgment. We believe, however, brief description evolution present statutory scheme will help explain holding. 9 * Two conflicting themes, developed Constitutional Convention repeated debates policy next century, led compromise text later enactments. On one hand, widespread fear standing posed intolerable threat individual liberty sovereignty separate States,5 while, other recognition danger relying inadequately trained soldiers primary providing defense.6 both organize Militia." early years Republic, neither. 1792, pass purported establish "an Uniform throughout States," detailed command every able-bodied male citizen between ages 18 45 enrolled therein equip himself appropriate weaponry7 virtually ignored more time proved decidedly unreliable fighting force.8 finally 1901.9 year Theodore Roosevelt declared: "Our obsolete worthless."10 process transforming several States" into effective force then began. 10 Dick Act class citizens age "organized militia" known remainder "reserve militia," termed "unorganized militia." table conforming Regular Army, funds instructors should used members.11 undisputed acting passing Act. Moreover, legislative history indicates contemplated services would "be rendered only soil Territories." H. Rep. 1094, 57th Cong., 1st Sess., 22 (1902). 1908, amended topro vide expressly Organized available service "either within territory States."12 When made plans invoke using south Mexican border, Attorney General Wickersham expressed precluded use Nation's borders.13 widening Europe, 1916 decided "federalize" Guard.14 addition greater funding guardsman take oath—to Nation well obey Governor—and draft include Army," while States,"15 drafted President, so "from date draft, stand discharged militia, shall said subject to" regulations 111, 39 Stat. 211. 12 World War exercised That power, compel civilians render upheld 349 (1918).16 Specifically, those cases, Cox v. Wood, 247 3, 421, 947 (1918), "not qualified restricted provisions clause."17 13 destroyed organization. terminated members' militiamen, restoration prewar they were mustered out problem ultimately remedied 1933 amendments Those overlapping distinct organizations" Court—the various States. 14 all who enlisted latter capacity became Enlisted Reserve Corps retained unit. Under Act, whenever declared troops excess plainly effect order: 15 "All respective Territories, Columbia long remain government applicable whose permanent retention law. maintained intact insofar practicable." 18, 48 160-161. 16 "Upon individuals thereupon status." 161. 17 "dual enlistment" since member thereby her entire period Until 1952 year, "active plan become sizable portion forces; example, 46 percent combat 28 forces Total Army."18 Apparently consents routinely obtained 1985, California 450 Honduras, Maine shortly thereafter mission. incidents enactment ensued. II 19 attack relies traditional understanding Militia" can three encompass foreign nonemergency conditions, express Authority not, create program.19 Nor claim unit—or type militia—creates immunity Forces. Indeed, ironic voluntarily enlisted, accepted commission officer, If trainee serving, temporarily disassociated. "Each Territory, Puerto Rico Columbia, case be, he duty." 32 U.S.C. 325(a). 21 change unremarkable part-time, nonprofessional force. Dunne People, 94 Ill. 120 (1879), Illinois Supreme term "militia" follows: "Lexicographers others define is, 'a body armed kept like peace.' State. men comprising come engaged stated drilling exercises, return usual avocations, call public exigencies demand it." 138. 23 Notwithstanding continue satisfy militia. sense, them now must keep hats closets—a civilian hat, hat—only worn particular time. hat worn, "drilling exercises" Congress," replaced 24 unaffected prior traditionally abroad. tradition least product political debate compromise, even compelled aspect related personnel affiliation There exists wholly different situation, suspended favor entirely 25 our (1918). Although correct pointing cases context actual war, reasoning limited. noting incorporated Defence," "raise Armies," "make Rules Government Regulation land naval Forces," "shall proper" executing powers. S.Ct., 162-163. instead far limitation powers, indicates—additional 26 first empowers Laws Union, Insurrections Invasions." assume retains "impress" purpose. did, though fought France specified purposes. Membership exempt valid perform took form duty.20 supplement broader general welfare, powers.21 27 enhances ways. First, authorizes "organizing, arming disciplining choice pool formed units. years, ways, current just permissible 1792 arm themselves. Second, Surely encompasses continued Finally, although "and respectively, turn, words "according Congress." Forces global distant lands, skies, it. subordinate right edit prescribe after argues practical nullifying important Constitution. disagree. affairs.22 funding, materiel, leadership unit, includes about 13,000 members, affected slightly few dozen, most hundred, time.23 Neither responsibility, situations, affected. interfere Guard's respond local emergencies, permit proposed mission.24 expense See 109(c). As provision remains effect, basis argument deprives entitlement own.25 29 Constitution's already mentioned, commit matters exclusive Government.26 597 (1872), occasion observe allocation realm gave rise presumption exclusive.27 Were Clauses, might possible argue grounds formation militia.28 structural inferences permission subjecting limitations.29 30 thus doing, course relative virtues choices frequently altered relationship field affairs. concerning wisdom established 1986. hold former 31 ordered. part: "Sec. 101. Act— . "(c) 'Active training' full-time purposes." 66 481. "[Section 233] At time, thereof, assigned purpose serving such, component may, competent authority, training, consent, exceed fifteen days annually: Provided, serve subsection Territory concerned, Commanding Guard. "(d) consent: State, concerned." 490. These provisions, amended, codified 672(d). 522 Defense Authorization Fiscal Year Pub.L. 99-661, 522, 100 3871. clauses I—clauses 8—are commonly Clause" Clauses." They provide: Power "To Invasions; Militia, Part Service Appointment Officers, n. supra, possesses following conferred 8: pay Debts Defence Welfare States; declare War, grant Letters Marque Reprisal, Captures Land Water; Armies, Appropriation Money Use Term Years; Navy; Forces; carrying Execution foregoing Powers, Powers vested Department Officer thereof." IV, 4, guarantee Union Republican Form Government, protect each Invasion; Application Legislature, Executive (when Legislature convened) domestic Violence." Virginia ratification convention, Edmund Randolph "there Convention, feel indignation" idea J. Elliot, Debates 401 (1863). Alexander Hamilton argued Federalist Papers: "Here expect told country natural bulwark, times equal defence. doctrine, substance, lost us independence. cost millions saved. facts which, experience, forbid reliance kind, too recent dupes suggestion. steady operations war regular disciplined successfully conducted same kind. Considerations economy, less stability vigor, confirm position. American late have, valor numerous occasions, erected eternal monuments fame; bravest know efforts alone, however great valuable were. things, science acquired perfected diligence, perseverance, practice." 25, pp. 156-157 (E. Earle ed. 1938). "That notified, shall, six months thereafter, good musket firelock, sufficient bayonet belt, spare flints, knapsack, pouch box contain twenty-four cartridges, suited bore cartridge quantity powder ball: rifle, shot-pouch powder-horn, twenty balls quarter pound powder; appear, armed, accoutred provided, exercise, except, company exercise only, appear knapsack." 271. Wiener, 54 Harv.L.Rev. 181, 187-194 (1940). 748, 758. "Action taken reference raising volunteer Our worthless. armament treated appropriations identical obligations duties carefully defined, method procedure advance. utterly impossible excitement haste impending satisfactorily arrangements beforehand. Provision utilizing organizations experience arms, especially selection advance raised; careful kind outbreak war." First Annual Message Dec. 1901, Messages Papers Presidents 6672. 21, 1903, 775, consist birth intention citizen, eighteen forty-five age, classes—the designations given Section 1903 regularly organized, uniformed Territories heretofore participated hereafter participate apportionment annual appropriation section sixteen hundred sixty-one Revised Statutes designated otherwise, constitute exceeding nine months. 776. 35 400. "It occasions—when States—that done." Op.Atty.Gen. 322, 323-324 (1912). meaning confer 'to Union' borders where, where exist, force, executed one. confers send existence executed." 327. Wickersham's analysis, apparently unconstitutional Governor. Of course, assumed Harv.L.Rev., 199-203. 1916, 166, Volunteer Officers' Corps, law." possession giving war; money years; regulation forces.' 8. And carry execution powers.' 8." U.S., "This result apparent face assailed commanded based propositions: derived armies. clause, hence raised limitations any, deduced clause. principles follows coterminous knew separate, incidental, irrelevant subordinate, affirm clear." 6, 422. (testimony James Webb, Assistant Secretary Affairs, before subcommittee Senate Services Committee July 15, 1986). enroll (NGUS), 101(11) (13), 591(a), 3261, 8261; 101(5) (7). essential 102. fully supports challenged concept respect." Reply Brief Petitioners (footnote omitted). 382-389, 162-165, 163-165, (1918); 422, activating including Guards 672-675 (authorizing executive officials forces, duty); 331-333 States); 3500, 8500 States). forth, through governors States." 3500. evidenced prohibition 10, states: "No Consent lay Tonnage, Troops, Ships Peace, enter Agreement Compact another Power, engage actually invaded, imminent Danger admit delay." According Governor, "only hundred" Minnesota's "will time." 41. participation 672(f). grounds. agree federalization address emergency, circumstance veto. 41; Respondents 9. residual little use. predicates argument, program minimal impact never necessary: "Minnesota approximately most, To suggest ever able assumes emergencies adequately predicted advance, persuade authorities needed overwhelming majority home." advanced parties, seems properly intrusive deprived effectively service: "Under scheme, assured legitimate simply forbidden thwart NGUS security objectives disagree." 13. satisfied persuasive. impressment appears—if indeed immunity—to consequence purely choice, obvious why alter believe resolve construction relevant question. true "may called, ordered, forces." nonetheless 331-333, distinguish "armed forces," portions "militia"—organized supra. See, e.g., cl. (Congress' war); (States treaties); peace, agreements absent invasion); II, (President receive ambassadors). Wisconsin jurisdiction writ habeas corpus inquire soldier's observed: "Now, among government, armies,' falls line duties; exclusive. determine, how raised, voluntary forced soldier received, taken, compensation allowed, assigned. what offences, punishment. No interference formation, organization, permitted greatly impairing efficiency, destroy, branch Wall., 408. Curtiss-Wright Export Corp., 299 304, 318, 57 216, 220, 81 255 (1936) ("The wage treaties, diplomatic relations sovereignties, mentioned concomitants nationality"); 23, p. 143 1938) ("[I]t admitted protection community, matter efficacy—that direction, NATIONAL FORCES"); L. Henkin, Foreign Affairs 234-244 (1972) (discussing implied restrictions policies affairs); Comment, Legality Nuclear Free Zones, 55 U.Chi.L.Rev. 965, 991-997 (1988) military). unnecessary examine stated: "[The left] sway undelegated extent away diminish curb full potentiality left requiring (the area) exertion circumscribed totally disappeared." 383, 163.

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