Document: 363 U.S. 603 80 S.Ct. 1367 4 L.Ed.2d 1435 FLEMMING, Secretary of Health, Education, and Welfare, Appellant,v.Ephram NESTOR. No. 54. Argued Feb. 24, 1960. Decided June 20, Mr. John F. Davis, Washington, D.C., for appellant. David Rein, appellee. Justice HARLAN delivered the opinion Court. 1 From a decision District Court Columbia holding § 202(n) Social Security Act (68 Stat. 1083, as amended, 42 U.S.C. 402(n), U.S.C.A. 402(n)) unconstitutional, Welfare takes this direct appeal pursuant to 28 1252, 1252. The challenged section, set forth in full margin,1 provides termination old-age, survivor, disability insurance benefits payable to, or certain cases respect of, an alien individual who, after September 1, 1954 (the date enactment section), is deported under 241(a) Immigration Nationality (8 1251(a), 8 1251(a)) on any one grounds specified 202(n). 2 Appellee, alien, immigrated country from Bulgaria 1913, became eligible old-age November 1955. In July 1956 he was 241(a)(6)(C)(i) having been member Communist Party 1933 1939. This being benefit-termination deportation 202(n), appellee's were terminated soon thereafter, notice given his wife, who had remained country.2 Upon failure obtain administrative reversal decision, appellee commenced action Court, 205(g) (53 1370, amended 405(g), 405(g)), secure judicial review.3 On cross-motions summary judgment, ruled appellee, unconstitutional Due Process Clause Fifth Amendment that it deprived accrued property right. 169 F.Supp. 922. prosecuted and, subject jurisdictional question hereinafter discussed, we case down plenary hearing. 360 915, 79 1433, 3 1532. preliminary whether 2282, applicable, therefore required be heard below before three judges, rather than by single judge, was. Section 2282 forbids issuance, except three-judge 'interlocutory permanent injunction restraining enforcement, operation execution Congress repugnance Constitution * *.' Neither party requested court below, both parties argue inapplicability 2282. If provision applies, cannot reach merits, but must vacate judgment remand consideration See Federal Housing Administration v. Darlington, Inc., 352 977, 77 381, 363. Under decisions could, did, draw constitutionality See, e.g., Anniston Mfg. Co. 301 337, 345 346, 57 816, 820, 81 L.Ed. 1143. However, did no more. It not seek affirmatively interdict statutory scheme. A would put federal statute restraint equity decree; indeed, apart its effect doctrine stare decisis, have other result require payment benefits. these circumstances think what said International Ladies' Garment Workers' Union Donnelly Co., 304 243, 58 875, where dealt with analogous situation, controlling here: 5 '(The predecessor 2282) does provide validity act merely drawn question, albeit decided, only there application interlocutory restrain enforcement Congress. Had intended *, judges appeal, apply whenever involved, naturally used familiar phrase 'drawn question' Id., at page 250, 879. 6 We hold jurisdiction over properly exercised merits. I. 7 erred 'accrued right.' F.Supp., 934. Appellee's right considered order. general purposes underlying expounded Cardozo Helvering 619, 640—645, 904, 908—911, 1307. issue here, however, requires some inquiry into scheme which those are sought achieved. Payments based upon wage earner's record earnings employment self-employment covered Act, take form inuring earner (known 'primary beneficiary'), benefits, including survivor named dependents ('secondary beneficiaries') wage-earner. Broadly speaking, eligibility depends satisfying conditions (1) (see 210(a), 410(a), 410(a)); (2) requisite number 'quarters coverage'—i.e., three-month periods during less stated sum earned—the depending generally age §§ 213—215, 413—415, 413—415); (3) attainment retirement 216(a), 416(a), 416(a)). 202(a), 402(a), 402(a).4 Entitlement once gained partially totally lost if beneficiary earns more annual sum, unless she least 72 years old. 203(b, e), 403(b, e). Of special importance fact amount such do true sense depend contribution program through taxes, primary beneficiary. 9 financed payroll tax levied employees employment, their employers. rate, fixed percentage first $4,800 employee income, scale will increase year year, presumably keep pace rising benefit costs. I.R.C. 1954, 3101, 3111, 3121(a), 26 3121(a). proceeds paid Treasury 'as internal-revenue collections,' I.R.C., 3501, each equal appropriated Trust Fund, expenses paid. 201, 401, 401. evidently contemplated receipts greatly exceed disbursements early system, surplus funds invested government obligations, income returned Fund. Thus, made expected increasing costs program. 10 system may accurately described social insurance, enacted Congress' power 'spend money aid 'general welfare," supra, 640, 908, whereby persons gainfully employed, employ them, taxed permit retired disabled, dependents. Plainly expectation many members present productive work force turn become beneficiaries supporters But worker's though flowing contributions national economy while actively dependent degree called support taxation. apparent noncontractual interest soundly analogized holder annuity, whose bottomed contractual premium payments. 11 hardly profitable engage conceptualizations regarding 'earned rights' 'gratuities.' Cf. Lynch United States, 292 571, 576—577, 54 840, 842, 78 1434. 'right' 'earned,' entire rests legislative functioning justly call economy, later years, protection 'the rigors poor house well haunting fear lot awaits them when journey's end near.' 641, 909. practical effectuation has necessity highly complex interrelated structure. Integrated treatment manifold specific problems presented demands generalization. That designed function indefinite future, provisions rest predications economic inevitably prove wholly accurate, judgments preferences proper allocation Nation's resources evolving modify. 12 To engraft concept deprive flexibility boldness adjustment everchanging demands. Wollenberg, Vested Rights Social-Security Benefits, 37 Ore.L.Rev. 299, 359. doubtless out awareness need included original since retained, clause expressly reserving '(t)he alter, amend, repeal provision' Act. 1104, 49 648, 1304, 1304. makes express implicit institutional needs Analysis System, Hearings Subcommittee Committee Ways Means, House Representatives, 83d Cong., 1st Sess., pp. 920—921. enacted. 13 conclude person payments make every defeasance 'accrued' interests violative Amendment. II. 14 say, exercise modify free all constitutional restraint. sufficient substance fall within arbitrary governmental afforded Clause. judging permissibility cut-off standpoint, our authority determine Congressional expressed section sound equitable, comports ill 'Whether wisdom unwisdom resides Title II, us say. answer inquiries come Congress, courts. Our concern often, power, wisdom.' 644, 910. Particularly deal withholding welfare this, recognize can thought interpose bar manifests patently classification, utterly lacking rational justification. 15 Such here. beneficiary's residence abroad—in deportee, residence—can obvious relevance eligibility. One accrue increased over-all purchasing resulting taxation elements might otherwise destitute nearly so, spend comparatively large advantage residing abroad. For purposes, is, course, constitutionally irrelevant reasoning underlay coes extend whom postulated rationale logic apply.5 States Petrillo, 332 8—9, 67 1538, 1542—1543, 91 1877; Steward Machine 548, 584—585, 883, 889—890, 1279; cf. Carmichael Southern Coal & Coke 495, 510—513, 868, 872—874, 1245. Nor, deemed irrational concluded public purse should utilized contribute statute. 16 go further find conclusion condemned so justification offend due process. III. 17 remaining, most insistently pressed, objections Art. I, 9, cl. 3, III, s 2, Constitution, Sixth Amendment.6 amounts punishing him without trial, see Wong Wing 163 228, 41 140; constitutes imposition punishment act, rendering bill attainder, Lovett, 328 303, 66 1073, 90 1252; Cummings Missouri, Wall. 277, 18 356; exacted imposed past conduct unlawful engaged in, thereby violating prohibition ex post facto laws, Ex parte Garland, 333, 366.7 Essential success contentions characterizing 'punishment' determining legislation bases disqualification happening event imposes punishment, discern objects focused. Where source activity status barred, even bear harshly affected. contrary aimed class disqualified. earliest relies, clergyman successfully state barring profession—and professions offices—all swear they never manifested sympathy cause Confederacy. supra. thus aims enactment: 19 'The oath could means ascertaining qualified respective callings trusts charged. order person, calling. exacted, notion several acts designated indicated unfitness callings, because deserved 320. (Emphasis supplied.) 20 Only day governing stated, joined four terms: 21 unpleasant consequences brought prior conduct, aim punish activity, restriction comes about relevant incident regulation qualifications profession.' De Veau Braisted, 22 144, 160, 1146, 1155 (plurality opinion). 23 struck oath—similar content involved Cummings—required attorneys seeking practice court, also Cummings, finding punitive intent drew heavily Court's first-hand acquaintance events mood then recent Civil War, fierce passions struggle aroused.' 322.8 Similarly, invalidated, forbidding conditions—the salaries employees, determination rested measure history pains spell detail. pages 308—312, S.Ct., 1075—1077. Most recently, Trop Dulles, 356 86, 590, 630, held providing expatriation sentenced court-martial dismissal dishonorable discharge wartime desertion, majority characterized punitive. commanded majority. plurality determination, part, inability alternative purpose serve. 97, 596. concurring found historical evolution compelling evidence intent. 107—109, 601—602. 24 that, criterion readily turned own particularized context. persuasive showing 'to calling,' 320, made, hampered activities sphere concern, despite often-severe effects it.9 owner fix aliens permitted enter remain country. Fong Yue Ting 149 698, 730, 1016, 1028, 905; Galvan Press, 347 522, 530—531, 74 737, 742 743, 98 911. setting State medicine, modification time time, State's protect health safety citizens, commit committed felony taken evidencing regulatory add ex-felons. Hawker New York, 170 189, 573, 1002. supra (regulation crime waterfront ex-felons union office). Mitchell, 303 391, 397—401, 632—634, 82 917, deficiencies fraud, 50 percent addition prevent, principles double jeopardy, assessment against acquitted evasion. 25 Turning, then, particular us, contend language structure nature deprivation, design. (imprisonment, hard labor up unlawfully country). Here sanction mere denial benefit. No affirmative imposed, certainly nothing approaching 'infamous punishment' imprisonment, Wing, great reliance mistakenly placed. Moreover, reasons already (363 611—612, 1372—1373), said, 319; Dent West Virginia, 129 114, 126, 231, 235, 32 623, deportees receipt lawfully bears connection desire punish. Appellee arrgues, scope motivated legislature, persuasively show lay behind agree. observe initially clearest proof suffice establish unconstitutionality ground. Judicial motives best hazardous matter, seeks objective manifestations becomes dubious affair indeed. presumption enactment, like other, lightly choose reading statute's invalidate save it. '(I)t slight implication vague conjecture legislature pronounced transcended powers, void.' Fletcher Peck, Cranch 87, 128, 162. 27 small part extensive revision originated Representatives. H.R. 9366, 2d 108. discussion Report, H.R.Rep. 1698, 5, 25, 77, say 'deported illegal entry, conviction crime, subversive 25. paragraphs 77.10 Senate rejected proposal, reason 'not opportunity give study possible implications provision, involves rights contributory survivors S.Rep. 1987, p. 23; id., 76. Conference, proposal restored modified form,11 H.R.Conf.Rep. 2679, 18. 29 argues demonstrates concerned deportation—which claimed alone justify policy system—but deportation, intent.12 impossible meagre unmistakable which, kind down. Even grounds, fact, standing alone, purpose. still far cry situations Garland 617, 1376), face individuals. record, falls short deportation. sure deportees. evident neither occurrence act. itself essential condition loss saved discretionary suspension Attorney General 244 (66 214, 1254, 1254), him. 30 referred Report embrace deported, examination omitted summarized margin.13 Inferences omission establish, certainty required, leading deportation.14 'slight conjecture' Chief Marshall warned. 128. 31 same arguments voluntarily 202(t), ante, note 5. failed consider persons; too slight, permanence voluntary abroad uncertain, warrant attendant supervision enforcement. Again, confidence reject alternatives imaginativeness bring mind, invalidation Reversed. 33 BLACK, dissenting. 34 here dissents DOUGLAS BRENNAN I agree depriving Ephram Nestor, violation Constitution. 35 Nestor came 1913 lived continuously 43 until 1956. He At membership ground December 1936 January 1955 employers regular Government Insurance Contributions 3101—3125, 3101—3125. These went trust fund 622, 53 1362, return millions others, receive reached age. last Communist, began security fund, passed law providing, among things, 205, 1251(a)(6)(C), 1251(a) (6)(C), cut off contributed law. 68 402(n). After notified country, action, seems me, Nestor's just compensation attainder stamping him, unworthy promised pay sustaining indicates extent people willing days overlook violations perpetrated anyone ever innocently belonged Party. 36 1434, unanimously repudiate abrogate whole promises soldiers War Risk 1917, 400—405, 40 409. repudiation inconsistent 'No shall life, liberty, property, process law; nor private use, compensation.' today puts aside 'It 'gratuities." premise goes 'earned," yet Government's now idea contributors earning something, simply 'justly call' 'in near." nice words conceal tell employers' Government, paying giving something stop doing pleases. This, my reveals complete misunderstanding passing agreed, today, desirable aged nothing. An excellent statement view, quoted another connection, Senator George, Chairman Finance passed, very philosophy about: better substitute discovered American men want earn ask doles—that matter earned gratuity. 38 'Social handout; charity; relief. individual. As right, dignity self-respect.' 102 Cong.Rec. 15110. 39 able rely assurance compelled regularly due. believe entitled getting promised, terms break plighted faith case; forbade conduct. precisely thing consoles away others suffer fate saying requiring 'would demands.' People premiums usually 'flexibility boldness.' company America matured contracts policyholders good company. true, says, contained clause, force, reserves retained power. cease operate future. covering new people, obligations old contributors. quite different disappointing expectations Treasury. There 'conceptualistic' saying, Lynch, taking forbids. II opinion, throws line hope suggestion future cuts group bought possibly hypothetical violates reads affording minimal protection, groups destruction 'manifests justification.' defined little indeed compared safeguards prohibitions use compensation, imposing bills attainder. agree, interpreted subordinate dilute Bill Rights, 'due process' 'arbitrary' 'rational.' Levine 362 610, 620, 1038, 1044 (dissenting opinion); Adamson California, 46, 89—92, 1672, 1695—1696 Rochin 342 165, 174, 211, 96 183 (concurring belief quotation 910, 1307: And assumption Acts thinks foray field policy. By formula not, proponents frequently proclaim, abstain interfering congressional enters standards elastic gives irrational, violate safeguards. dissent Whether 'rational justification' was, Congress; determine, circumlocution abdicate Marbury Madison, 137, 60. 44 III holds creates collect Communists illegal. emphasis punishment. Although believing label decisive importance, impose classic sense. basic Communist. man, 69 old, driven land practically stranger, authorizing membership. 532, 533, 744, 911 opinions). Now similar deprives petty insignificant exile's daily bread, accord fashion day—that way mistake supposed associated mistake. Barenblatt 109, 1081, 1115, Uphaus Wyman, 72, 1040, 1090. 315—316, 1079, said: 45 '* acts, form, either individuals easily ascertainable inflict trial prohibited Constitution.' 46 Faithful observance holdings case, 366, 356, would, group; normal word employer moneys almost two decades; according opinions unanimous, nonetheless represent positive precedents important questions liberty explained cobwebbery refinements. going overrule adopt views previous dissenters, done clearly forthrightly. 47 infirmity pattern laws First grave danger lets handful fanatics extremist discuss ideas. fear, think, baseless. reflects lack sturdy patriotism world picture abiding strength. containing fair trials, freedom speech, press religion, free. repeat greatest lies, trusting momentary view 'patently arbitrary,' wholehearted devotion freedoms. Wieman Updegraff, 344 183, 192, 73 215, 219, 97 216 48 affirm insurance. DOUGLAS, 1955—a period years. awarded $55.60 per momth. Pursuant law, thereupon denied Benefits. 51 me example prohibits enacting. inflicts trial. 323, 356. 52 meted creditor rival enemy sending gallows. recently Irving Brant,1 smiting man slanderous words, living, you drain blood veins scratching skin. 'Today's broader tall sharp. mental place physical torture, confiscation tomorrow's bread butter instead yesterday's gold. What perfectly clear hate, prejudice play role human England frenzied mob lords, bishops shoemakers Titus Oates blacklist hangman's record. Hate, jealousy spite continue fill lists Irish Parliament ex-King James.' Bills death, penalties equally beyond 323. 55 Punishment includes 'deprivation political civil rights.' 322. priest practicing profession. excluding cutting employees' permanently service. Cutting person's livelihood denying benefits—part interests—is Here, cited, penalty punishment2—'to reprimand wrongdoer, deter others.' 96, 595, 630. 56 gratuities. They products raised alike, self-employed persons, alone. Board Nierotko, 327 358, 364, 637, 718. placed Old-Age Survivors 401(a), 401(a); related made. Stark, Security: Its Importance Lawyers, A.B.A.J. 319, 321 (1957). late long authors 'There developed feeling principle fits times—that serves vital served otherwise. 59 rightly regarded financial hazards disability. Report: 60 America's families death family provider. working occupations.' 1189, 84th Sess. 2. 61 resident get Yet requirements. 24—25; 23. concededly amend meet conditions. vindictive reasons? Could deporting confiscate home, appropriate savings accounts, send penniless? not. Any difference, it, between degree. alien's earnings, 62 deal, Folsom, appellant's predecessor, opposing enlargement category Security, convicted treason sedition. 63 'Because deprivation provided amendment considerations foreign objectives oldage program, serve precedent extension programs crimes perhaps degree, difficult distinguish principle. 64 recognizes narrowly limited exceptions3 regard attitudes, opinions, behavior, personal characteristics Amendments 1955, 1319. 65 Reports, meagre, Folsom characterization tersely 'because activity.' clear—to fiat accumulated acted embraced ideology. modern version attainder—as plain, direct, effective religious loosed employed Tories here.4 judgment. BRENNAN, THE CHIEF JUSTICE join, When quit 1939 Kessler Strecker, 307 22, 694, 83 1082. deportation.1 cost dear. expulsion years' residence—most life. begun 1955—having worked 65—and anticipate receiving stopped Amended Act.2 His predicament real—an aging live separated exiled life strangers ago. common punished severely 1950 serious violated. 531, 742, 911, 'since intrinsic close fairly Clause, applicable legislation, applied deportation.' treat permissible enact governed favor regulate immigration. escapes common-sense nexus granted furtherance 'enacted welfare.'" understand deny guarantees 70 test barred' 'is disqualified.' rejects inference 'aimed disqualified' relying constitutionality. basis inferences reasonably purposed administration limit use. Rather supportable enough satisfies necessary examine ascertain presumption. 71 acknowledge disqualified, states activity. surely harshness purpose.3 110, 630 shows sole disqualify aliens. status' 'person scales tipped toward desired aided expenditure Indeed along lines submitted proposed,4 rejected.5 Perhaps, appraisal deported. did. applies deported.6 cited describes addition, covers socially narcotic addiction prostitution. element guilty blameworthy displeasing lawmakers. 75 plainly demonstrated remaining cancellation benefits.7 Two cover charges five entry predated entry. third fails maintain nonimmigrant status. fourth reaches aids illegally. 76 Those becoming standards, worthy censure. exclusion unarticulated unfair 'other deport letting retain modicum benefits' appears fanciful, especially since, hypothesis, deportable lead existed rationally explained, context statute, blameworthy. Certainly unlikely exclusion. eventually results securing employment. Finally, reconcile continuation aiding illegally, felt reprehensible. Again rejected. Five ample qualify. Moreover five-year limitation argument reason. distinctions various kinds impels conclusion, peradventure understood strike inveighs invalidating 'implication conjecture.' strained sustain conjecture,' barred.' Today's sanctions spending legitimate hurt incurred displeasure Framers ordained worst adherence procedural written regretful retreat Garland. trial.8 dissent. follows: '(n) (after subsection) paragraph (1), (2), (4), (5), (6), (7), (10), (11), (12), (14), (15), (16), (17), (18) notwithstanding title— '(A) monthly 223 (42 423, relating 'disability benefits') individual, wages month occurring (i) (ii) thereafter admitted residence, '(B) (or alive) subparagraph (A), paid, citizen outside month, '(C) lump-sum individual's dies received, residence. 'Section 203(b) (c) paragraph. '(2) practicable enumerated subsection, notify notes 10, 13, post, 618, 1376, 1378. (1)(B) ante), her wife insured 202(b), 1364, 402(b), 402(b). '(g) final hearing party, irrespective controversy, review sixty mailing allow. file certified copy transcript findings complained based. enter, pleadings affirming, modifying, reversing Board, remanding rehearing. supported substantial evidence, conclusive *. manner actions.' course incurring 223, 423. Secondary tests relationship 202(b—h), 402(b—h), 402(b—h). nonresident leave voluntarily—although lose virtue 835, 402(t), 402(t)—or 8, post. 3: Attainder Law passed.' Trial Crimes, Cases Impeachment, Jury; Crimes Amend. VI: 'In criminal prosecutions, accused enjoy speedy impartial jury district wherein committed, previously ascertained informed accusation; confronted witnesses him; compulsory obtaining favor, assistance counsel defence.' adds, argues, contention Amendment, adverse stemmed 'mere membership' contention, collateral attack open Pierce Carskadon, 234, 276. Virginia suffered attachment, personally appear, petition reopening 1865 exculpatory defendant invalidated. clear, compare supra,. severity determinative character 'punishment.' Paragraphs (10) relate complying conditions; (6) (7) 'subversive' activities; remainder convictions crimes, commission narcotics example, deportee secondary records deportee. Conference ante. relies juxtaposition proposed 108 provisions, conjectural discussion. letter office, 202(u) 838, 402(u), objectives' Finance, 'present exceptions (of one) observed, speak penalty, 202(u). latter penal, case. are: institutionalized expense 'mental disease, defect, deficiency' shown arisen subsequent admission (§ 241(a)(3)); charge causes 241(a)(8)); nonimmigrants 101(a)(15), 167, 1101(a)(15), 1101(a)(15)) fail maintain, comply 241(a)(9)); (4) knowingly gain inducing aiding, attempt 241(a)(13)). Were speculation, led exclude compassionate de minimis considerations. Address 1787 Today. Review dinner published 1959 Emergency Liberties Committee, title Investigations Attainder. broad sweep follows Brant, op. cit. 9—10: 1794 excitement comparable exists today. Supporters French Revolution organized Democratic Societies—blatantly adopting title. Then Whisky Rebellion exploded western Pennsylvania. Societies blamed. motion censuring introduced 'There, 1794, division thought—on side everybody, collective resting capacity self-government; trusted restrained. 'James Madison doctrine. investigative contended, 'Opinions,' 'are subjects legislation.' Start criticizing abuse reserved rights, censure speech press. condemned? Said Madison: "It vain indiscriminate Is proposition, voted, attainder?' 'Madison won fight, resolution attainted vote next election. definition, there—a attainder—and definition foremost government.' 202(n); 1142, 2281—2288, 2281—2288; Regulation Administration, CFR 403.409—denying dependent's felonious homicide worker. Brandt, cit., 9: 'What framers aiming attainder? were, guarding disgraced Christianity Europe. 1787, typically Revolutionary assemblies rid British Loyalists. curious coincidence, Tory farm sent exile, often somebody wanted induced attaint Patriotism cloak greed religion James Second. 'But motive. During Revolution, Governor Patrick Henry pass condemning Josiah Phillips death. traitor, murderer, pirate outlaw. ratification Convention, inveighed Rights. Edmund Randolph taunted sponsorship blunder defending warranted, Socrates. shocking defense condemnation produced margin ratified.' Alien Registration 1940, 673, organization advocates overthrow violence passage Harisiades Shaughnessy, 580, 512, 586. Until Internal 1950, 1006, 1008, advocated violent Government. 'members affiliated States.' 529, annuity worth, canceled, approximately $6,000. $2,500 recognizing strongly intent, drawing 'heavily aroused." atmosphere. detachment realities scene carry far. memory emotional climate stirred communism 1950's short. 24—25. 4. 1. 13. unnecessary

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