Document: 476 U.S. 898 106 S.Ct. 2317 90 L.Ed.2d 899 ATTORNEY GENERAL OF NEW YORK, Appellantv.Eduardo SOTO-LOPEZ et al. No. 84-1803. Argued Jan. 15, 1986. Decided June 17, Syllabus The New York Constitution and Civil Service Law grant a civil service employment preference, in the form of points added to examination scores, residents who are honorably discharged veterans Armed Forces, served during time war, were when they entered military service. Appellee Army veterans, long-time residents, passed City examinations but denied veterans' preference because not joined Army. They then brought an action Federal District Court, alleging that requirement have been violated Equal Protection Clause Fourteenth Amendment their constitutional right travel. Court dismissed complaint. Appeals reversed. Held: judgment is affirmed. 755 F.2d 266, Justice BRENNAN, by MARSHALL, BLACKMUN, POWELL, concluded prior resident laws violates appellees' constitutionally protected travel equal protection law. Pp. 901-912. (a) includes freedom enter reside any State, state law implicates it actually deters such travel, impeding its primary objective, or when, as here, uses classification penalizes exercise right. When latter involved, heightened scrutiny required determine constitutionality, State must come forward with compelling justification. 901-906. (b) has met burden proving selected means pursuing interest does impinge unnecessarily on interests. justifications offered support residence requirement—encouraging join helping war reestablish themselves, inducing return York, employing "uniquely valuable class public servants" possess useful experience acquired through service—fail withstand scrutiny. could accomplish these purposes without penalizing awarding special credits all qualified veterans. 907-911. Chief BURGER invalid fails meet rational-basis test under Clause. Zobel v. Williams, 457 55, 102 2309, 72 672; Hooper Bernalillo County Assessor, 472 612, 105 2862, 86 487. 912-916. WHITE denies employs irrational. P. 916. J., announced delivered opinion, which JJ., joined. BURGER, C.J., post, p. 912, WHITE, 916, filed opinions concurring judgment. STEVENS, dissenting O'CONNOR, REHNQUIST joined, 918. Robert Hermann, Albany, N.Y., for appellant. Kenneth Kimerling, City, appellees. BRENNAN opinion Court. 1 question presented this appeal whether opportunities solely lived at rights outside 2 * Constitution, N.Y. Const., Art. V, § 6, Law, N.Y.Civ.Serv.Law 85 (McKinney 1983 Supp.1986), grants United States service.1 This may be exercised only once, either original hiring one promotion. 6. 3 Appellees, Eduardo Soto-Lopez Eliezer Baez-Hernandez, York. Both men claim eligibility criteria except Baez-Hernandez examinations, Commission Puerto Rico military. Appellees sued city Attorney General intervened defendant. 4 complaint, holding Court's summary affirmance August Bronstein, 417 901, 94 2596, 41 208 (1974), aff'g 369 F.Supp. 190 (SDNY), case three-judge panel upheld against right-to-travel challenges same sections issue instant action, compelled result. Second Circuit Comm'n, 266 (1985). It August, supra, had implicitly overruled our more recent decision 672 (1982), held offends both remanded various instructions, including direction permanently enjoin defendants from denying bonus otherwise We noted probable jurisdiction 473 903, 3523, 87 648 affirm. II 5 " '[F]reedom throughout long recognized basic Constitution.' Dunn Blumstein, 405 330, 338, 92 995, 1001, 31 274 (1972) (quoting Guest, 383 745, 758, 1170, 1178, 16 239 (1966)). See, e.g., Passenger Cases, 7 How. 283, 492, 12 L.Ed. 702 (1849) (Taney, dissenting); Crandall Nevada, 6 Wall. 35, 43-44, 18 744 (1868); Paul Virginia, 8 168, 180, 19 357 (1869); Edwards California, 314 160, 62 164, 119 (1941); Kent Dulles, 116, 126, 78 1113, 1118, 1204 (1958); Shapiro Thompson, 394 618, 629-631, 634, 89 1322, 1328-1329, 1331, 22 600 (1969); Oregon Mitchell, 400 112, 237, 91 260, 321, 27 272 (1970) (separate JJ.); id., 285-286, S.Ct., 345 (Stewart, part part, whom joined); Memorial Hospital Maricopa County, 415 250, 254, 1076, 1080, 39 306 (1974). And clear 'freedom abide Union.' Dunn, U.S., 1001 285, 345). textual source or, precisely, free interstate migration, though, proved elusive. variously assigned Privileges Immunities IV, see, Zobel, supra 71, 2318 (O'CONNOR, judgment), Commerce Clause, see 173-174, 166-167, Amendment, 177-178, 168-169 (Douglas, concurring). also inferred federal structure government adopted Constitution. 67, 2316 (BRENNAN, concurring); Shapiro, 631, 1329; 757-758, 1177-1178. However, light unquestioned historic acceptance principle important role played transforming many into single Nation, we felt impelled locate definitively particular provision.2 630, 1329. Whatever origin, migrate firmly established repeatedly cases. n. 2866, 487 (1985); 60, 2312, 6; Jones Helms, 452 412, 418, 101 2434, 2439, 69 118 (1981); supra; 757-759, A 46; 629, 1328, 62, 9, 2314, 9; 628-631, 'any serves penalize right.' 340, 1002 1331). Our right-to-migrate cases principally involved latter, indirect manner burdening More particularly, dealt that, classifying according residence, resulted unequal distribution benefits among bona fide residents.3 Hooper, (1982); Sosna Iowa, 419 393, 95 553, 42 532 (1975); Hospital, (1972); supra. Because creation different classes raises concerns, relied upon Whenever infringes right, undertake intensified Cleburne Living Center, Inc., 432, 440, 3249, 3254, 313 Martinez Bynum, 461 328, 7, 103 1838, 1842, 75 879 (1983); Plyler Doe, 202, 216-217 2382, 2394-2395 786 258, 262, 1082, 1084; San Antonio Independent School Rodriguez, 411 1, 39, 30-32, 40, 93 1278, 1287 1295-1296, 1300, 36 (1973); Police Dept. Chicago Mosley, 408 92, 101, 2286, 2293, 33 212 335, 342, 999, 1003; 1331. Thus, several cases, asked expressly distinction drawn between older newer burdens migrate. Where found burden, In other where contested classifications did survive even rational basis scrutiny, no occasion inquire enhanced was appropriate. analysis however, informed guiding principle—the protects being disadvantaged, treated differently, simply timing similarly situated residents.4 2866 261, 1083; 1328-1329. 9 York's requirements conditions benefit past individual's life. favors those fixed point over lives. similar methods favoring "prior" "newer" ones, limiting resided date, granting incrementally greater each year conditioning certain completion period warrant careful judicial review.5 But, State's 'operates persons . migration' triggered. quoting 238, 321 JJ.). 10 task case, then, first restriction Forces while residing operates If find does, appellees prevail unless can demonstrate necessary interest. 1331.6 III 11 previous temporary deprivations very operate migration. For example, recently arrived indigent deprived life's necessities durational welfare assistance free, nonemergency medical care, respectively, available poor residents. new establishing vote. fact offset conclusions so severe worked serious inequities effectively penalized recently, Bernalillo, (1985), struck down created permanent distinctions based length State. At Mexico statute granted tax exemption Vietnam before May 8, 1976. concerned Alaska mineral income dividend unit subsequent 1959. employed face directly operated Nonetheless, conclusion migration determination "the will tolerate program 'creates fixed, concededly how State.' 623, 2869 59, 2312). See 64, 2314-2315. 13 significant entry While sought here rise level importance life vote, unquestionably substantial. award mean difference winning losing employment, attendant job security, decent pay, good benefits.7 Brief 27-28. Guardians Assn. Dept., Inc. 630 79, (CA2 1980), cert. denied, 940, 3083, 954 Andrade Nadel, 477 1275, 1279 (SDNY 1979). Furthermore, seek. As observed: "The veteran's ability satisfy fixed. He his initial induction he not; cannot earn change status." F.2d, 275. Such deprivation benefit, nonresidence time, clearly exercising B 14 offers four interests justification requirement: (1) encouragement Services; (2) compensation themselves coming home; (3) inducement after wartime service; (4) Appellant 15. All fail common ground—each asserted promoted fully would still encouraged services. Veterans compensated. And, former Yorkers serving thus providing larger pool potentially servants. 15 Dunn: "[I]f there other, reasonable ways achieve [a purpose] lesser activity, choose way interference. acts all, 'less drastic means.' 343, 1003 Shelton Tucker, 364 479, 488, 81 247, 252, 231 (1960)). 263, 1084. promote system incorporates requirement. Two additional weaknesses. First, availability inductees well enlistees undercuts contention most credit encourage enlist Second, limited immediately following casts doubt purpose easing transition civilian life,8 for, presumably, veteran Korean War take receive tomorrow, 30 years homecoming. Cf. 621, 2868. failure limit returned strongly suggests principal rewarding country. 17 Compensating sacrifices them advantages nonveteran citizens long-standing policy Governments. Regan Taxation Representation Washington, 540, 551, 1997, 2003, 76 129 Personnel Administrator Massachusetts Feeney, 442 256, 279, 25, 99 2282, 2296, 60 870 (1979). policy, if deemed compelling, Members serve Nation whole. serviceperson's home doubtlessly derives her service, equally contributions national security made personnel. "Permissible discriminations persons" correlated "their relevant characteristics." 70, tenuous relation, any, receives personnel, goal IV sum, provisions 85, do heavy Consequently, conclude Once establish "become 'own' discriminated [the date of] arrival State." Vlandis Kline, 412 441, 449-450, 2230, 2235, 37 63 632-633, 1330; How., 492 dissenting). chooses offer requires regard services.9 Accordingly, 20 Affirmed. 21 relying (1982). Shortly Appeals' issued, Mexico's property used preferences failed pass result, reach issues violated. 60-61, 2312-2313, 23 grounds remarkably here; therefore, appear controlling. plurality instead begins addressing "right migrate." Ante, ----. Moreover, determining challenged analysis. But observed reiterated last Term "[r]ight examined, terms, newcomers longer term residents." follows "[i]n reality, refers little than application analysis." 24 I believe appropriate framework reviewing scheme dictated followed —both "[t]his involves State," just "we [must] subject survives statutory minimum rationality test, inquiry ends." Id., 2866. Under seems provision grounds. 25 proffers classification. claims encourages times war. rests entirely characterization prospective self-executing nature. plainly retrospectively definitive legislature; legislative fix "war" commenced ended. 26 entering idea she entitled successful tour duty honorable discharge. beginning era legislation "time war" some three hostilities commenced. legislature 1973 later declared "end" (which never Congress) March 29, 1973, amended finding expand coverage retroactively again until 1975. 9-10. happened Conflict, indeed, end World intent 7-8. applies servicemen legislatively defined period, regardless enlisted voluntarily inducted result draft. Providing "bonus" draftees hardly boon intended "encourage" enlist. Hence, "encouragement enlist" sharply "differs local 'bounty' enacted era, paid cash bonuses enlisting." 622, 12, 2868, 12. 28 argues provides partial rejected retroactive rewards targeting acknowledged "State veterans," 620, 2867, "it difficult grasp [New York] suffered served, deserve bestows service." 29 Third, contends permissible past-resident settle ends. might indeed return, simultaneously effect discouraging settling aware appointments hard obtain. 619-620, "[t]he separation likely persuade [residents] welcomes wants stay." 9. "selective incentive" "would encounter barrier faced Mexico] statute's newly 619, 2867 8. Finally, asserts targeted group knowledge affairs skills learned military, therefore make exceptional "special attributes" undeniably possessed currently Indeed, irrationality highlighted appellee Baez-Hernandez' experiences. current serviceman day. applying position—and considerably "local knowledge" returning veterans—can preference. two called reserve status active duty, remained partially disabled. "in obtaining residency. Yet qualify despite endowed desired attributes." 32 Just "[s]tripped justifications, suffers flaw Zobel. Given reasons review, admonition need briefly invalidity protection, analysis: favor view care 'its own,' residence. Newcomers, become date]." 34 "own" accordingly "Neither nor precedents, permit prefer apportionment economic benefit." Ibid., 2869. 35 affirm reasoning holdings rather adding dicta concerning agree O'CONNOR sufficiently implicated require differ respect. THE CHIEF JUSTICE concur 38 dissenting. explained why erroneous. add comments explain feel constrained 40 governmental privilege minority less objectionable impose minority.1 democracy majority seldom treat itself unfairly. analysis, give attention relative dimensions favored disfavored classes.2 gave Forces. narrowly excluded Mr. Hooper. Despite seem cover well, allows me reasons. constitutionality particular, statutes condition enlistment general.3 believed controlling omit footnote note subsequently did. leave open order acceptable resolved question. 43 importance, further narrows size preferred places stress logic undergirds holding. should fighter pilots enlistment, fought Battle Midway, perhaps few received Congressional Medal Honor—would violate deny comparable moved war? think not, though supporting apply case. narrows, judge surely bound flawed successive using extension marching wrong direction. 44 respectfully dissent. 45 STEVENS join, 46 today holds unconstitutional war-time offensive free-floating migrate," 2, 47 plurality's runs generally follows: imposed limited, one-time "penalizes" subjected insufficiently tailored purposes. On strength reasoning, concludes migrate" law, ante, ----, although much sufficient violation independently violation. 48 dual rejects approach previously bothering novel use strict appropriate, doctrinally coherent. 426-427, 2443-2444, (1981) (WHITE, "impelled ['the migrate'] provision," ruling major ---- - 4. refusal amplify remarkable given overturning ago. (S.D.N.Y.), summarily aff'd, 49 finds unnecessary address proper analytical travel" believes purely matter JUSTICE's position depends assumption desire "to reward legitimate purpose," 63, anything Clause; rather, "a full reading (1969), (1973), reveals [that] objective implementation abridge migration." 72, 2319 judgment). 50 unfortunate once articulate justify reference sources rely deciding this. adhere my belief supplies evaluating like appellees', allegation impermissibly distinguishes allegedly imposing 74-75, 2320 continue compensate "neither inherently invidious irrational," undefined, substantive component 2319. presents instances recognition citizens' constitutes valid infringe interest, fundamental another 2. 2319, 1. 51 view, weathers theories propounded acknowledges "penalize[s]," "actually deters," primarily "imped[e]" imposes "penalty" migrate, likens residency essential services invalidated 52 left unclear amount impact 256-259, 1081-1082. recognizes, fair infer something negligible minimal applied. Bronstein put it, can[not] realistically travel." F.Supp., 194. 53 certainly restrict move discriminatory fees, taxes, direct restraints. (1849). deprive participate "significant" "public wide discretion framing employee qualifications." 273, 406, 560, (1975). 336-337, 341, 999-1000, 1002, (1972). Nor indirectly depriving set time. 54 choice requiring accept inferior oldtime arrival. 74, Those endeavor secure exactly vast citizens; sense regarded "second-class citizens" compared candidates compete employment. Hicklin Orbeck, 437 518, 98 2482, 57 397 (1978). To extent labor practical disability, disability share measure countless ineligible 55 arguably advantage relation discrete wartime, elected seek Even enjoy unqualified number preconditions, one, increases possibility securing appointment; guarantee it. high score exam disadvantaged program; conversely, chances low affected competitors points. benefit. requirements, bring within range appointment forced "continuous disability" comparison citizens. 75, 56 Certainly resident-preference programs difficulty. affirmed college tuition rates, Sturgis 414 1057, 563, 464 scholarship assistance, Spatt 1058, 465 constituted prohibitive access "important" educational opportunities. 31-32, (1973). 1-year obtain divorce courts, terminate marriage "fundamental." Boddie Connecticut, 401 371, 780, 113 (1971). theory ephemeral, completely safeguard "maintaining Union mere 'league States.' 73, ("right plays "transforming Nation"). 4, inappropriate. 58 passes muster. expression gratitude legitimacy purpose. impeach "[o]ur country longstanding compensating numerous advantages." 2004, (1983). 2286. explained, simple expressing majority's often entail hardship, hazard, family friends, vital continued adequate tangible token appreciation." 626, 2870 (dissenting). Nor, demonstrated above discussion, said burdened 59 difficulty believing rationally relate thought medal designated wars, erect memorials honor armed conflicts; irrational employ gives preferences. came wishes represented aided aiding issue. resident's to, sacrifice attempting say "thank you" personified effort "do part" Nation's efforts. individual seeking "relevant characteristic" manifest furtherance Whether tested exists trigger swallow traditional deference shown social regulation. modest choosing eventually protection. reverse Circuit. provides: "Appointments promotions divisions thereof, cities villages, shall merit fitness ascertained, far practicable, examination, which, competitive; provided, member forces therein citizen entrance released circumstances five competitive one-half promotion disabled actual performance ten No section appointment, promotion, eligible list allowed section." Civ.Serv.Law essentially restates substance defines terms. 2316, (1982) concurring): "[I]t achieves forceful context if, citable passage assign source, led independent vitality unmistakable essence document transformed loose confederation Nation." always carefully distinguished differentiate nonresidents, durational, differently migrated 325-330, 1840-1843, 255, 267, 1086, (1974); 1003, 636, 638, 21, 1332, 1333 (1969). Martinez: "A requirement, appropriately uniformly applied, furthers substantial assuring provided enjoyed [generally] person there. demanding restricted 328-329, 1842-1843. Of course, label place analysis—right protection—once standard review same. Laws cautioned, waiting periods impermissible. 258-259, 1082; 1333, 21. (1975), maintaining divorce. strong, setting terms procedures Weighing appellant's procedure temporarily delayed, sustained domicile incorporated periods, universities. Starns Malkerson, 985, 1231, 527 (1971), 326 234 (Minn.1970) (three-judge court); 368 (WD Wash.) court). 452-454, 2236-2237, concurrence, takes us asking instance what laws. initially run ask higher disagree. logical claim, usually first, 999 ("In considering [f]irst appropriate"). also, Mississippi University Women Hogan, 458 718, 3331, 73 1090 classifies race, alienage, rights, required. Cleburne, 3254; Martinez, 7; 216-217, 2394-2395, 15; District, 16, nn. & 1300; 2293; contend maintain treating Therefore, ascertain must, matter, true, suggests, follow sequence better cases—to 1979), Deputy Director Department testified: "[O]n pronounced 'bunching' (i.e., large percentage takers scores). [I]t assumed rescission 1,300 [veterans receiving probationary specific would] yet reached consequently [in losing] jobs." "bunching" phenomenon adversely passing preliminarily awarded points—5 status, service-related bringing total 87.3. Based adjusted score, 1981. rescinded days later, withdrawn discovered 268-269 1985). understand trouble effecting justified reserving [it] service" hereby overruled. Wygant Jackson Board Education, 316-317, 260 (1986) (STEVENS, 629-630, 2872, (1985) 281, 2297, (1979) Craig Boren, 429 190, 213-214, 97 451, 465-466, (1976) "Veterans' statutes, survived decided. 901 [94 208] ". [We that] ruled muster [v. [102 672] ]. docketed, consider statutes." 621-622, 11, 11.

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