Document: 351 U.S. 536 76 S.Ct. 861 100 L.Ed. 1396 Kendrick M. COLE, Petitioner,v.Philip YOUNG et al. No. 442. Argued March 6, 1956. Decided June 11, [Syllabus from pages 536-537 intentionally omitted] Mr.David I. Shapiro, New York City, for petitioner. Mr. Donald B. MacGuineas, Washington, D.C., respondents. Opinion of the Court by Justice HARLAN, announced BURTON. 1 This case presents question meaning term 'national security' as used in Act August 26, 1950, giving to heads certain departments and agencies Government summary suspension unreviewable dismissal powers over their civilian employees, when deemed necessary 'in interest national security United States.'1 2 Petitioner, a preference-eligible veteran under § Veterans' Preference 1944, 58 Stat. 387, amended, 5 U.S.C. 851, U.S.C.A. held position classified civil service food drug inspector District Food Drug Administration, Department Health, Education, Welfare. In November 1953, he was suspended without pay his pending investigation determine whether employment should be terminated. He given written statement charges alleging that had 'a close association with individuals reliably reported Communists' maintained 'sympathetic association' with, contributed funds services to, attended social gatherings an allegedly subversive organization. 3 Although afforded opportunity do so, petitioner declined answer or request hearing, right do. Thereafter, Secretary Welfare, after study all documents (petitioner's) case,' determined petitioner's continued not 'clearly consistent interests ordered termination employment. Petitioner appealed discharge Civil Service Commission, which accept appeal on ground Act, claimed appeal, inapplicable such discharges. 4 thereafter brought action Columbia seeking declaratory judgment invalid Commission improperly refused entertain order requiring reinstatement former position. The granted respondents' motion pleadings dismissed complaint. 125 F.Supp. 284. Appeals, one judge dissenting, affirmed. 96 U.S.App.D.C. 379, 226 F.2d 337. Because importance questions involved field employment, we certiorari. 350 900, 181. Section 14 390, 863, provides preference eligibles may discharged only 'for cause will promote efficiency service' and, among other procedural rights, 'shall have Commission', whose decision is made binding employing agency. Respondents concede if controlling. They contend, however, courts below, authorized supra, eliminates Commission. Thus sole 1950 Act. 6 material part that, notwithstanding any personnel laws, head agency applies 7 'may, absolute discretion security, suspend, pay, officer employee (his agency) * *. concerned may, following review deems necessary, terminate whenever shall advisable States, determination conclusive final: *.' 8 expressly applicable Departments State, Commerce, Justice, Defense, Army, Navy, Air Force, Coast Guard, Atomic Energy National Security Resources Board, Advisory Committee Aeronautics. provides, extended 'to President time time, deem best security', has this authority Government.'2 While validity extension depends upon are many respects common those determining Secretary's exercise thereby her,3 restrict our consideration latter issue assume, purposes decision, validly been apply 9 authorizes dismissals 'necessary security.' That requires evaluation risk injury employee's retention would create, turn seem necessarily function, character likelihood misconducting himself, but also nature occupies its relationship is, it must misconduct affect That, course, were sense so broad activities Government, then follow very fact For reasons set forth conclude (1) definite limited relates directly Nation's safety, distinguished general welfare; (2) no affected security,' It follows hence violated 10 interpreting important note only, nor even primary, source dismiss employees. laws—the Lloyd-LaFollette4 Acts—5 authorize 'such service', basis here—a reasonable doubt loyalty—was recognized 'cause' procedures early 1942.6 Indeed, President's so-called Loyalty Program, Exec.Order 9835, 12 Fed.Reg.1935, 631 note, prescribed standard loyalty met employees regardless position, established pursuant three years prior remained effect nearly passage.7 there want substantive grounds, here can grounds extent available case. 11 As noted above, turns defined think clear statute whole intended comprehend protection Nation internal subversion foreign aggression, contribute strength through impact welfare. Virtually narrow Congress enough include power Government. Instead, specified named apply, reveals, doubt, purpose single out defense custody information compromise might endanger country's 'sensitive' agencies. Thus, agencies, military operations weapons development, 3, international relations, stock-piling strategic materials. Nor conclusion vitiated grant President, extend Rather, indicates required extension. Aware difficulties attempting exclusive enumeration undesirability rigid classification face changing circumstances, simply enumerated making similar determination, add were, became, 'sensitive.' contemplated exercised 'from time' confirms allow circumstances require selective judgment, implying applied less than all-inclusive one. 13 limitation particularly significant light establishing full at passage Order, expressed view 'vital importance' 'complete unswerving loyalty' minimum normal procedures. Had considered objective insuring 'unswerving matter effectuated rather desirable policy implemented procedures, surely selected Presumably, therefore, meant something more 'interest 'nonsensitive' We find justification rejecting implication inferring unlimited contended Where applicable, summarily suspend finally being subject appeal. There obvious where could serious damage during delay incident preparation charges. Likewise, who bear responsibility committed final say deciding repose trust access information. On hand, difficult justify suspensions positions thus situated they bring about discernible adverse effects security. absence immediate threat harm fully adequate disappears. stigma attached persons need safeguards seems greater cases, lightly assume take away some overriding necessity, exists handling secrets. 15 itself reflects Congress' concern rights desire limit scope protecting A proviso seek department Government,' determines eligible removing presence security'; review, him effort preserve maximum possible hardly intent define terms indefinite virtually respondents contend. 16 Moreover, said result though form exception utilized effectively supersede laws. why merely loyal trustworthy industrious efficient? job same, demonstrated inadequate performance because inefficiency incompetence present surer welfare, mere loyalty. 17 Finally, draw amply supported legislative history 18 first place, constantly emphasized bill, introduced S. 1561 80th passed H.R. 7439 81st Congress, applied, extended, imply Nation.8 Senate Armed Services, reporting S.1561, stated: 19 'This bill indiscreet disloyal employed areas sensitive standpoint 20 '(Section permit) additional authorities contained bill. 21 'Insofar (addition 3) concerned, witnesses within various now, future become, deeply now equal believed make finding concerning Executive place act.'9 22 House Post Office 'The provisions vital matters affecting Nation.'10 committee reports next similarly referred granting agencies.11 these references relate primarily covered agency, both same—in 'interests security'—and statements clearly indicate restricted used. short, activities. 23 Secondly, makes positions. Throughout hearings, reports, debates, described designed provide 'security risks.'12 turn, examples what risk' always entailed having materials; risks posed intentional inadvertent disclosure confidential information.13 Larkin, representative requested drafted explicit: 24 'They material. But material, why, notion States. material.'14 25 'A person accused disloyal, cleared board, evidence against him. If job, further us. willing view, while misgivings loyalty, cannot prejudice does top secret material.'15 26 clear, history, sense, refer condition precedent occupied examination show II. 27 dismissing taken Exec. Order 10450, Fed.Reg. 2489,16 promulgated April 1953 uniform standards prescribes dismissal, notice contained, 'is security.'17 Despite verbal formula whatever categories petitioner—that reflect read enjoins duty discharging doubtful irrespective satisfy requirements more. 28 opening preamble recites, things, 'the require' 'all' 'of complete loyalty.' consistent' unless 'clearly' loyal—that And 8(a) Order. section develop 'as employment) facts 'such' relate. category, 8(a)(1), includes nonloyalty-oriented which, general, reliability, trustworthiness, susceptibility coercion, dishonesty, drunkenness, sexual perversion, mental defects, believe influence coercion. 8(a)(1) relevant 'depending relation remaining 'loyalty,' acts espionage, advocacy violent overthrow sympathetic advocate, organizations. 8(a)(2)—(8). Significantly, wholly absent categories—under framed—any qualification relevance dependent inference cases irrelevant, 'loyalty' sufficient ex proprio vigore discharge. 29 Arguably, avoided developed head. mean consider derogatory No true sensitivity smaller doubts termination; undoubtedly leaves open stricter others, depending strongly independent potential person's 30 Other confirm inferences drawn 8(a). 3(b) directs each designate occupant about, virtue By definition, admittedly effect. Nevertheless, distinction conducted, limiting 3(a) explicit. appointment depend degree event' minimum. determination. requirement appointed implies employee, second 'Whereas' clause recites 'all privileged (by should) adjudged mutually standards', meet held, recited preamble. 31 Confirmation reading found history. amended 10241, 3690, Program positions, 'reasonable doubt' revoked indication, standard. negatived remarkable similarity preambles two Orders kinds ultimate determinations.18 still least standard, new afford 32 therefore interpret involved, service, continuance recognize interpretation rests chain explicit provisions. guide power, failure state explicitly determinations choice most drawn. practical dictated awkward fault Any ambiguities resolved burden assumption head, stating formal subsidiary 33 From assumed created inferred, for, interpreted support action.19 34 holdings adversely reaching conclusion, confronted problem reviewing discretion, since conformity Act.20 Since Appeals reversed remanded proceedings inconsistent opinion. 35 Reversed remanded. Appendix Court. 36 'Executive 10450. 37 (18 2489, 10491, Oct. 13, 6583.) 38 'Whereas reliable, trustworthy, good conduct character, States; 39 American tradition receive fair, impartial, equitable treatment hands privilege governing Federal service: 40 'Now, Therefore, vested me Constitution statutes including 1753 Revised Statutes States (5 631); 1883 (22 403; 632, seq.); 9A act 2, 1939, 53 1148 118j); 64 476 22—1, seq.), deeming hereby follows: 41 'Sec. 1. addition 10237 1951, 42 2. responsible maintaining effective program insure 43 3. (a) investigation. instance according sought filled event check (including fingerprint files Bureau Investigation), inquiries appropriate local law-enforcement employers supervisors, references, schools investigation: Provided, respect per-diem, intermittent, temporary, seasonal aliens outside Should stage indicating conducted investigation, enable 44 '(b) designate, designated, designated whom conducted: occupying continue occupy completion order: provided further, emergency period preappointment completed finds interest, records 45 4. reviewed, officers 9835 21, 1947, appropriate, re-adjudicate, re-adjudicated, accordance adjudicated commensurate order. 46 5. Whenever received forwarded representative, who, employee. 47 6. immediately 1950. 48 7. terminated relating reinstated restored reemployed same reinstatement, restoration, reemployment agency: except 49 8. investigations investigated Such relate, limited, following: 50 '(1) Depending security: 51 '(i) behavior, activities, associations tend individual reliable trustworthy. 52 '(ii) deliberate misrepresentations, falsifications, omissions facts. '(iii) criminal, infamous, dishonest, immoral, notoriously disgraceful conduct, habitual use intoxicants excess, addiction, perversion. 54 '(iv) An adjudication insanity, neurological disorder satisfactory cure.*' 55 '(v) furnish reason subjected influence, pressure contrary 56 '(2) sabotage, treason, sedition, attempts thereat therefor, conspiring aiding abetting, another commit attempt sedition. 57 '(3) Establishing continuing saboteur, spy, traitor, seditionist, anarchist, revolutionist, espionage agent nation, nation inimical advocates force violence government alternation unconstitutional means. '(4) Advocacy alteration 59 '(5) Membership in, affiliation domestic organization, association, movement, group, combination totalitarian, Fascist, Communist, subversive, adopted, shows, advocating approving commission deny whch seeks alter 60 '(6) Intentional, unauthorized disdisclosure information, prohibited law, willful violation disregard regulations. 61 '(7) Performing perform duties, otherwise acting, serve 62 '(8) Refusal individual, constitutional self-incrimination, testify before congressional regarding alleged disloyalty misconduct. 63 10. Nothing construed eliminating modifying way law. 11. date Review Board findings otherwise. 65 12. revoked. hereof regional boards exist function hundred twenty days order, paragraph Part III 66 15. become thirty hereof. 67 'Dwight D. Eisenhower. 68 White House, 69 'April 27, 1953.' 70 CLARK, REED MINTON join, dissenting. 71 Believing strike down 'rests inferences,' agree reversal. opinion, enacting Summary Suspension 476, frustrated, Court's opinion raises presidential Article II entirely undecided. 72 Education charged 'established Communists.' 'maintained Nature Friends America, organization' Attorney General's list; 'by (his) own admission, donated funds' same. did replied constituted invasion private association. advised none, dismissed. entrusted her final' Court, interpretation, 'that (and) security." It, strikes (it) Act.' compels restoration service. agree. 73 again, infer interpretation. flies language plain words 'any employee', not, majority it, position.' particular job. Obviously leave honeycombed 74 assumes extending coverage reasoning fortiori unauthorized. imposes deprives force, despite whatever. done showing Government' thought advisable. Senator Byrd commented 'Section gives classify every Government.' Chapman remarked, 'I see far concerned.' Hearings Cong., 2d Sess., 7439, pp. 15—16. Also, Congressman Holifield, debates stated 'applies potentially executive ones. between regular employees.' Cong.Rec. 10023—10024. 75 ours. interprets intrude into making. this, especially ratified action. soon came up discussion Senate. properly carried expression will. 99 4511—4543, 5818—5990. addition, appropriations subsequent year investigations, etc., 'stands confirmation ratification Chief Executive.' Fleming v. Mohawk Wrecking & Lumber Co., 331 111, 116, 1129, 1132, 91 1375. expended became she She finding. implicit dismissal. Her 'evaluation security" made. decided Under 'conclusive final.' 77 sustain striking down, believes arise Constitution, Congress. avoids point faced holding inoperative.* avoid possible, Peters Hobby, 349 331, 338, 790, 793, create them. 78 stricken weapon activity realistic protected applying jobs. One never knows just sensitive. janitor prove spot securitywise building. protect laid places throughout requires, give, less. require. subverted technical them today. affirm. 'Notwithstanding 24, 1912 (37 555), 652), State; Commerce; General; Defense; Army; Navy; Force; Treasury; Commission; Chairman, Board; Director, Aeronautics, State Foreign States), respectively, several services: permit, notified notification submit affidavits official duty. Provided permanent appointment, probationary trial period, citizen him, amendment specifically considerations permit; (plus amended) affidavits; (3) request, duly purpose; (4) final; (5) head: duty, allowed compensation amount exceed difference normally earned termination, rate receiving interim net earnings person: herein Government: considering consultation either included report Committees Services Congress.' §§ 22—3, 22—3. 1, Appendix, 874. Folsom, substituted respondent Hobby. 555, 652, 652. 14, 863. War Regulations, 18.2(c)(7), September 1942, CFR, Cum.Supp., 18.2(c)(7). Employees entitled Commission's satisfying See Kutcher Gray, 266, 199 783. reluctance indicated legislation. At times statutes, duration, enacted, obviously departments, 1053, 987, 1023, Department, 458. permanent, flexibility permitting H.R.Rep. 2330, p. 3; S.Rep. 1155, 2—4. 2264, 2—5; 2158, E.g., 2: increase engaged example, Murray, Chairman Service, gave illustration debate House: 'For instance, working highly doing confidential, work goes gets too much liquor unintentionally unwittingly, condition, confide someone department. bad discharged.' 10017. Hearings, 67. Id., 72. portions stood discharge, printed formally 'termination,' adopts statute, 7, reinstated' nonreinstatement equivalent apparent controlling 8, 3(a). case, contends, onerous advisable' loyalty'; 10450 listed six factors connection disloyalty', Pt. V, subd. 2; repeated substantially identical 8(a)(2), (4), (5), (6), (7) 'information (the retention) confirmed concession 'did secrets Respondents' Brief, 3—4; Record, 40. contention sustained argument event, intend override statutory limitations solely implementation purports 1950', 4, 5, course weakened inclusion 'Constitution,' well Acts, omnibus list Preamble Order; derives implement all. When confines limits authority, respect, ever assert After 10548, Aug. 1954, 4871, read: illness, competent medical defect reliability due regard transient illness case.' excuses pass saying powers. asserted 'if prohibit acting Act) enactment arise.' devoted eight brief point. Furthermore, (96 382, 337, 340) 'thought decide presented.' justification, contends acted directions answer, quote Order: States.' 2489. issuing invoked powers, voided presented.

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