Document: 354 U.S. 363 77 S.Ct. 1152 1 L.Ed.2d 1403 John S. SERVICE, Petitioner,v.John Foster DULLES et al. No. 407. Argued April 2 and 3, 1957. Decided June 17, [Syllabus from pages 363-364 intentionally omitted] Mr. C. Edward Rhetts, Washington, D.C., for the petitioner. Donald B. MacGuineas, respondent. Justice HARLAN delivered opinion of Court. On December 14, 1951, petitioner, Service, was discharged by then Secretary State, Dean Acheson, his employment as a Foreign Service Officer in United States. This case brings before us validity that discharge. At time discharge had been some sixteen years, during ten which, 1935—1945, he served various capacities China. In 1945, shortly after return to this country, became involved so-called Amerasia investigation through having furnished one Jaffe, editor magazine, copies certain reports. Two months later, Jaffe others were arrested charged with violating Espionage Act,1 but grand jury, August refused indict Service. He thereupon restored active duty which on leave absence since arrest, returned Far East. 3 From Service's loyalty standing security risk under recurrent review number governmental agencies provisions Executive Order 9835,2 establishing President's Loyalty Program, otherwise. accorded successive 'clearances' State Department each years 1946 1947,3 fourth clearance 1949 Department's Security Board, however, directed Review Board Civil Commission, when examined it 'post-audit,'4 prefer charges against conduct hearing thereon. done, October 6, 1950, extensive hearings, concluded 'reasonable grounds do not exist belief * is disloyal Government States *,' '* does constitute State.' These findings approved Duputy Under acting pursuant authority delegated him Secretary.5 Again, post-audit, remanded further consideration.6 Such consideration had, more stringent standard established 10241,7 amending earlier 9835, again July 31, decided favorably determination likewise Deputy Secretary. However, new itself, resulted Board's finding there reasonable doubt loyalty, its advising 13, 'should be forthwith removed rolls State' 'the should approve adopt proceedings' Board.8 same day notified discharge, effective at close business following day. 4 The basis upon acted discharging petitioner are set forth an affidavit later filed Acheson present litigation, states: 5 '2. I received letter Chairman Commission submitting me opinion, dated 12, officer plaintiff action. 6 '3. considered what action taken light recognizing whatever would utmost importance administration Employees Program. understood responsibility vested make necessary both amended, Section 103 Public Law 188, 82d Congress, take. 7 '4. Acting exercise amended 10241, also Congress (65 Stat. 575, 581), made terminate services 8 '5. solely result my Board. making determination, did read testimony proceedings Commission. any independent own whether evidence submitted those boards loyalty. no judgment record case. There nothing incompatible responsibilities act it. deemed appropriate advisable determining consider legally bound or required take such contrary, merely advisory recommendation free terminated so judgment.' Congress,9 thus relied, McCarran Rider, first enacted rider Appropriation Act 1947, provided: 9 'Notwithstanding other law, may, absolute discretion, employee whenever shall deem termination interests *.'10 10 Similar re-enacted subsequent appropriation until 1953.11 11 After attempt secure administrative proved unsuccessful, brought action, sought declaratory invalid; order directing respondents expunge their records all written statements reflecting because loyalty; reinstate former grade full restoration property rights payment accumulated salary. 12 While cross-motions summary pending District Court, Court rendered decision Peters v. Hobby, 349 331, 75 790, 99 L.Ed. 1129, holding review, determinations favorable employees department agency authorities, adjudicate individual cases motion. decision, declared respecting nullity, But petitioner's removal rested only sustained valid 'absolute discretion' conferred latter provision, granted favor respects.12 Appeals affirmed, 98 U.S.App.D.C. 268, 235 F.2d 215, certiorari, 352 905, 147, 115, questions federal administrators alike. 13 Petitioner here attacks two separate grounds: First, contends Secretary's discretion invalid alone acted, void, they without jurisdiction13 based procedures assertedly contrary due process law. Even conceding powers Rider state urges, cannot stand fact rely invalid. See Securities Exchange Chenery Corp., 318 80, 63 454, 87 626; Perkins Elg. 307 325, 59 884, 83 1320. Second, subject attack principles Court's ex rel. Accardi Shaughnessy, 347 260, 74 499, 681, namely, regulations validly prescribed government administrator binding well citizen, principle holds even discretionary nature. Regulations relating 'loyalty employees' promulgated Secretary, asserts, intended govern discharges effected violated case, claims, dismissal stand. Since, reasons discussed hereafter, we have second contention must sustained, reach first. 14 address ourselves therefore follows: (1) Were departmental applicable Rider? (2) instance? We understand dispute supra, controlling, if find indeed violated. might add concerned wise merits terminating employment. I. 15 think open serious question relies Loyalty-Security program. terms Regulations, itself proceeded very down point representations practices announced wish President effect exercised procedural safeguards designed protect personal liberties employees,' combine lead conclusion. clear these valid, far put issue 16 A. Regulations. 17 When begun, March 11, 1949, entitled 'Regulations Procedures Employees, State.'14 391 stated 'Authority General Policy' three subsections. Subsection 391.1 'highly important person employed who constitutes risk.' 391.2 related handling cases, accordance recognized 'necessity removing Federal service refusing therein persons,' 'obligation applicants unfounded accusations disloyalty.' 391.3 referred language noting right, 'to States.' 'In right,' subsection concluded, will, possible,15 afford protection provided Program.' And, see provision himself, otherwise, except unfavorable employee's him, approval Secretary.16 18 May September prior revised, § explicitly than original standards Rider. stating subsection17 adopted implement policy 'no Department18 risk,' section continues next subsections19 promulaged 26, 195020 Rider.21 phrase 'so possible,' reference authority, deleted. drew sources available purported definitively followed handling. 19 held unquestionably conducted premise instance. copy sent along charges. scheduled 395 exonerating noted, issues recommendations came twice §§ 395.6 396.7 him. Later, Commission's additional charge added stipulation parties, expressly 392.2 393.1a Indeed, suggestion entire parties 20 Representations Congress. 21 spring investigating subcommittee Senate Relations Committee comprehensive report used dealing problems. describing utilized early post-war period, continued 22 passage terminated. freed hands effective. Basically substantial resolved Government. enactment contemplate legislation people country countenance use 'Gestapo' methods harassment persecution loyal American citizens flimsy hearsay innuendo. develop fully properly rider. 23 'The series included authorized 'terminate Accordingly, 1947 fiscal year, year thereafter, problems Department. (its) view limitations. interpreted permitting reckless arbitrary whims. 24 21, governing executive branch whole. It agencies. unique continuous reenactment led promulgate encompass duties rider.'22 25 That plenary limitations deliberately adopted, decisions highest level, evidenced Truman part below. letter, advised just H.R. 7786, Act, 69 595, 768, 1213 current year. continued: 26 'I am sure you will agree exercising 1213, every effort national unduly jeopardizing within your jurisdiction. accomplish objectives 733, 81st authorizes suspension civilian officers departments Government, including State. 27 may afforded desire follow law carrying out Appropriations Act.' 28 course proceudre Department, background materials room apply accept either respondents' arguments contrary. argument, whose Appeals,23 is: 29 intent bind himself 9835 dismissing 188. power satisfied adequately protected 9835.' 30 gather lower courts though powerless grounds. so. Although unmistakable seen fit limit 377, 378, 1159, re-enact change several succeeding years.24 Cf. National Labor Gullett Gin Co., 340 361, 366, 71 337, 340, 95 337; Fleming Mohawk Wrecking 331 111, 116, 67 1132, 91 1375. Nor inconsistency between statute already discussed, 372—373, 1157, supra. Accardi, indeed, statutory broad here.25 31 agrument refer grounds, 'necessary States'—the sole standard—and hence discharges. But, has demonstrated, historical context show discharges, least extent how could seriously considered, now seem urge, affidavit,26 formal notice discharge,27 among things, unmistakably 32 turn manner consistent II. 33 Preliminarily, noted sets Regulations—those 1951—is assuming, held, govern. begun revised 1951 become effective, say, judged.28 hand, remained existence accomplished court commenced.29 unnecessary choice inconsistent both. 34 vice right dismiss unless recommended dismissal. words, instance consistently not, more, 35 conclusion appear scheme cases. outline steps: 36 filing charges, involved, accompanied adequate factual details basis, statement work pay status action.30 37 A requested employee, together forwarded review.31 38 (3) Upon empowered (i) action; (ii) decide notify writing; (iii) appeal days thereafter.32 39 (4) event appeal, further, thereafter.33 40 (5) If, adversely 'advisory' standards, prompt end. hand restore 'close case'; permit resign; 'or authority.'34 41 survey, things significance Deputy's adverse employee. final, reserving employee.35 immune rule confirmed our Third, reserved deal outside instances where, body 42 Granted, argue, gave (a) (b) follow, For, observed, Regulatiosn left functus officio respect once So clearing closed.36 Hence contravention Regulations.37 situation closely analogous obtained There, Attorney impartial subordinate board. Here, this, them. relevant ground distinction. 43 similar reached 393.1 provides: 44 interest security. complete file, arguments, briefs, presented.' (Emphasis added.) 45 'authority 391.3,' Rider.38 affidavit39 comply Regulations,40 brief virtually concedes. 46 argue relates security," laid 1950,41 '(n)othing purports prescribe procedure States," contained 391.3, incorporated into 393.1, specifically subjected operation seems substantive section, 1950,42 requirements 'on evidence' 'after essential meaning merits. true obligated impose rigorous neither prohibited doing so, done long unchanged, proceed regard 47 being complied instance, follows doctrine stand, regardless rather case.43 48 For foregoing reversed, opinion. 49 ordered. 50 Judgment reversed directions. 51 CLARK took 15, 1917, c. 30, 217, U.S.C.A. 791—794, 2388. Fed.Reg. 1935, 631 note. Hearings Subcommittee House Bill Cong., 1st Sess. 298. 339—348, 794, 798, discussion then-existing 'post-audit' procedure. 382—386, 1162—1164 note 16, infra. 'supplementary information Bureau Investigation,' nature record. 3690, essence relation summarized press release today found Stewart Officer. 'Today's insufficient base doubt' Copies Opinions Boards attached. State's reaffirmed nor risk, post-audit 4, 1951. assumed jurisdiction 9, today's (full text attached) noted: "The membership Communist Party organization General's list States, intentional unauthorized disclosure documents confidential non-public character subparagraph d paragraph Part V, 'Standards,' amended.' Opinion stressed points above Chairman—that is, guilty disloyalty, raised while censoring (sic) indiscretions, believed experience indiscretions 1945 normally conscious. existed reversed. advise date separation request stems Orders 10241—which Program—and terminated.' 65 581. 60 458. 61 288, 62 315, 456, 64 581, 66 555. All Rider.' unreported. Actually, virtue 1946, amended. U.S.C. 801 seq., seq. 'for unsatisfactory performance duty,' id., 1007, 'misconduct malfeasance,' 1008. sections, separated 211 826, misconduct hearing. No ever vest heads employees. effecting legal Cole Young, 351 536, 543—544, 76 861, 866, 867, 100 1396. authorize observance indispensable supplement did. 376, 342—343, 795, 796, 1129. Manual (1949), 390 qualification handled, Moreover, deleted revision infra, insisted 382, 1162, using interchangeably 'Deputy Secretary' 'Assistant Secretary—Administration.' promulgated, official them official's functions apparently transferred 811a, 151c. To avoid confusion, exclusively title technical correctness particular '391.1 Policy.' (1951), Vol. I, 'Department' defined 391.3. '391.2 Authority,' '391.3 Authority.' 'Public Congress,' 476, 22—1, 22—3, over 'in Referred 'General 759, Congress.' Administrative Proceedings Case. S.Rep.No.2108, 2d Sess., 15—16 (emphasis supplied). D. Letter. 271, page 218. I.e., 19(c) Immigration amended: alien (other whom (d) applicable) deportable good moral preceding five suspend deportation ineligible naturalization ineligible, ineligibility reason race, finds economic detriment citizen resident spouse, parent, minor child alien; resided continuously seven residing 1206, (1946 ed., Supp. V) 155(c), 1254. 368, 369, 1155, read: 'My Dear Service: nonpublic Paragraph V organizations list. 'Pursuant foregoing, 82nd thereof, hereby (at the) 1951.' proper applied Vandenbark Owens-Illinois Glass 311 538, 347, 85 327, nisi prius court, requires appellate changed And Ziffrin, Inc. 73, 465, 621. argues cited 28, because, inter alia, Register 502, 307, Procedure 238, 1002, published Register. 394.13, 394.15, 395.1. 395.1, 395.53. 395.6, 396.11. 396.2, 396.3. 396.4, 396.5. indicated Press Release 247, reprinted S.Rep. 2108, 254. E. Peurifoy quoted stating, reply floor Senate: matters prepared 'Gen. George Marshall, program Acheson. subject, Since launched single overruled way Acheson.' supplied.) 'If Assistant Secretary—Administration shall, affirmatively closed, duty, suspended, decision.' means imply 'closing' irrevocably beyond hope recall. steps reopen here, conclusion, becomes respects claims contravened 375, 1158, course, precluded personally reading 'complete file' considering 'all evidence.' delegate duty. kind appears here. 20, Sections 393.2 393.3 refined defining classes persons constituting risks, listing factors account, possible mitigating circumstances. Because

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