Legal Document

445 U.S. 507 100 Supreme Court Reporter 1287 63 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 574 Peter BRANTI, as Public Defender of Rockland County, Petitioner,v.Aaron FINKEL and Alan Tabakman. Number 78-1654. Argued Dec. 4, 1979. Decided March 31, 1980. Syllabus Respondents, both Republicans, brought suit in Federal District to enjoin petitioner, a Democrat, who had recently been appointed N. Y., by the Democrat-dominated county legislature, from discharging respondents their positions Assistant Defenders. Finding that satisfactorily performing jobs selected for termination solely because they were Republicans an assistant public defender is neither policymaker nor confidential employee, held petitioner could not terminate respondents' employment consistent with First Fourteenth Amendments, granted injunctive relief. The Appeals affirmed. Held: Amendments protect discharge political beliefs. Pp. 513-520. (a) To prevail this type action, there no requirement dismissed government employees prove they, or other employees, have coerced into changing, either actually ostensibly, allegiance. Rather, it was sufficient here about be discharged "solely reason affiliated sponsored Democratic Party." Elrod versus Burns, 427 347, 350, 96 2673, 2678, 49 547. 513-517. (b) issue whether label "policymaker" "confidential" fits particular office question, but rather hiring authority can demonstrate party affiliation appropriate effective performance office. Here, manifest continued cannot properly conditioned upon his allegiance control government. primary, if only, responsibility represent individual citizens controversy State. Whatever policymaking occurs must relate clients' needs any partisan interests. Similarly, although bound obtain access information arising out various attorney-client relationships, has bearing on concerns. Under these circumstances, would undermine, than promote, defender's make tenure dependent dominant party. 517-520. 598 Reporter, 2nd 609, Marc L. Parris, New City, petitioner. David MacRae Wagner, Nanuet, respondents. Mr. Justice STEVENS delivered opinion Court. 1 question presented Constitution job 2 Aaron Finkel Tabakman, commenced action Southern York order preserve defenders York.1 On January 1978, basis showing them entered temporary restraining preserving status quo. After hearing evidence eight days, detailed findings fact permanently enjoined2 terminating attempting "upon sole grounds beliefs."3 457 F.Supp. 1284, 1285 (1978). affirmed unpublished memorandum opinion, judgment reported at 609 (CA2 1979) (table). 3 critical facts summarized briefly. County Legislature term six years. He turn appoints nine assistants serve pleasure. two served since respective appointments 1971 September 1975; are Republicans.4 4 Petitioner Branti's predecessor, Republican, 1972 Republican-dominated Legislature. By 1977, legislature shifted Democrats also replace incumbent when expired. As soon formally 3, he began executing notices then Respondents among those terminated. With one possible exception, retained all legislators town chairmen determined caucus.5 5 found Tabakman thus did necessary sponsors: 6 "The attempted removal plaintiffs plaintiffs' beliefs differed ruling majority made bases." F.Supp., 1293. 7 court rejected petitioner's belated attempt justify dismissals nonpolitical grounds. Noting Branti predecessor described "competent attorneys," expressly "satisfactorily duties Defenders." Id., 1292. 8 Having concluded beliefs, discharges permissible under Court's decision 547, only policymaking, may affiliations. clearly fall within category. Although recognizing broad responsibilities respect cases assigned them, "very limited, any, responsibility" overall operation They "act advisors formulate plans implementation goals office" and, decisions context specific cases, "they do orientation which work." 1291. 9 argument character work justified conditioning occupy relationship process, documents influenced deliberations. product office's clients; extent such shared defender, formulation policy. 10 In light factual findings, Amendments. appeal, panel Second Circuit, affirmed, specifically holding adequately supported record. That expressed "no doubt" "was correct concluding employee." We certiorari, 443 904, 99 3095, 61 871, now affirm. 11 advances principal arguments reversal:6 First, Burns limited situations pledging voluntarily support does apply simple employee power; second, that, even sponsorship unconstitutional condition clerks, deputies, janitors, acceptable defender. 12 * newly elected Sheriff Cook Ill., violated constitutional rights certain non-civil-service "because members Party failed its leaders." U.S., 351, S.Ct., 2679. separate opinions. 13 Writing plurality, BRENNAN identified interrelated reasons supporting conclusion prohibited analyzed impact patronage system7 freedom belief association. retain jobs, Sheriff's required pledge Party, contribute party's candidates, sponsor, inevitable tendency system coerce compromising true beliefs.8 conclusion, practice rule like Board Education Barnette, 319 624, 1178, 87 L.Ed. 1628, condemning use governmental power prescribe what citizenry accept orthodox opinion.9 14 Second, apart potential formation expression stated effect imposing receipt benefit therefore came likePerry Sindermann, 408 593, 92 2694, 33 570. Perry contractual right engaging constitutionally protected speech, stated: 15 "For least quarter-century, clear though person 'right' valuable deny him number reasons, some rely. It infringes interests—especially, interest speech. For speech associations, exercise freedoms penalized inhibited. This allow 'produce result [it] command directly.' Speiser Randall, 357 513, 526, 78 1332, 1342, 1460. Such interference impermissible. 16 17 "Thus, respondent's lack re-employment 1969-1970 academic year immaterial free claim. Indeed, twice before, nonrenewal nontenured school teacher's one-year contract predicated Amendment rights. Shelton Tucker [364 479, 81 247, 231]; Keyishian Regents [385 589, 675, 629]. reaffirm holdings here." 597-598, 2697-2698. 18 If protects based said, believes.10 line analysis, unless "an overriding interest," 368, 2687, "of vital importance," id., 362, 2684, requiring person's private conform authority, depriving employment. 19 STEWART's concurring avoided comment first branch BRENNAN's relied same passage Sindermann quoted above. 20 argues should read prohibit resulting employee's failure capitulate coercion. Thus, so long asked change impunity—even proper dismissing sponsorship. interpretation surely emasculate principles set forth Elrod. While perhaps eliminate more blatant forms coercion Elrod, necessarily flows knowledge sponsor one's job.11 More importantly, require repudiate entirely STEWART prohibits dismissal 21 sum, sufficient, holds, 2678. II 22 Both opinions recognize types interfere duties, yield State's maintaining effectiveness efficiency. 366, 2686. employees—the chief deputy process division sheriff's office, server another bailiff security guard Juvenile County—were character, were, stated, "nonpolicymaking, nonconfidential" employees. 375, 2690.12 23 noted always easy determine position legitimate factor considered. 367, appropriately considered character. obvious example, election laws precincts supervised judges different parties, Republican judge legitimately changing registration. depend finding involved participation policy information. simply rest membership essential responsibilities. 24 equally relevant every position. coach state university's football team formulates policy, seriously claim better coaches Democrats, vice versa, matter hand, Governor State believe official help write speeches, explain views press, communicate performed effectively persons share commitments. ultimate inquiry position; rather, involved. 25 framed issue, State.13 we observed commenting counsel indigent defendants federal criminal proceedings: 26 "[T]he primary parallels privately counsel. serves pursuant statutory authorization furtherance insuring representation defendants, duty large, except general way. His undivided interests client. indispensable element ability act independently oppose adversary litigation." Ferri Ackerman, 444 193, 204, 402, 409, 62 355. 27 whatever clients whatsoever party.14 28 Accordingly, entry injunction against purely 29 Affirmed. 30 STEWART, dissenting. 31 & N Immigration Nationality Decisions joined my view "a nonpolicymaking, nonconfidential can[not] . ground beliefs." 2690. present case "nonconfidential" 32 lawyers, Defender. analogy firm lawyers sector close one, think few occupational relationships instinct necessity mutual confidence trust kind professional appointment Defender, compelled enter association wish so.* 34 POWELL whom REHNQUIST joins, joins Part I, 35 today continues evisceration practices begun 547 (1976). scarcely glance almost 200 years American tradition, further limits relevance selection retention Many previously filled national parties staffed accordance constitutionalized civil service standard will affect federal, state, local governments. Governmental thought legislative executive discretion subjected judicial oversight. Today's lawmaking THE CHIEF JUSTICE wrote dissent, "represents significant intrusion area concerns." dissent. 36 contends Amendment. reaching largely ignores substantial patronage. Patronage long-accepted practice1 never eliminated totally regulations. flaw lies application principles, see Parts II-IV, infra, promulgation new, substantially expanded, determining affiliation.2 37 three Members plurality nonpolicymaking affiliation. 2686 (opinion BRENNAN, J., WHITE MARSHALL, JJ., joined). Two stating dismissed. 2690 BLACKMUN, Notwithstanding purported reliance ante, 512, n. 6, limitations inherent views. rejects role recognized policymakers Ante, 518-520. And refuses reasons. 520, 14; Page 520 (STEWART, dissenting). broad, new articulated follows: 38 'policymaker' 'confidential' involved." 518. 39 gives examples illustrate standard. Election chosen affiliation; college not. Ibid.3 decides attorneys "whatever interests." 519. 40 vague sweeping language create vast uncertainty. Elected officials levels receive guidance laws, longer know consideration filling Legislative bodies final delicate line-drawing embodied laws. Prudent individuals requested consider predecessors threaten oust through legal action. 41 One example level illustrates nature magnitude problem created today's holding. President customarily removing appointing attorneys. Given key law enforcement play administration Department Justice, Attorneys General concluded, surprisingly, used indicator loyalty.4 42 Yet, difficult say, standard, "partisan" concerns attorney. " '[t]he prosecutor administered courage independence.' Imbler Pachtman, 424 423, 984, 991-992, 47 128 (1976), quoting Pearson Reed, Cal.App.2d 277, 287, 44 Pacific 592, 597 (1935). Nevertheless, selects top ranking officials. Attorney General, Court, charged enforcing administering Justice. vague, overbroad cast serious doubt propriety attorneys, well thousands government, party.5 43 A uncertain impervious personnel. arbiters governments employ. view, responsible efficient governance errs fundamentally criterion employees.6 makes inapplicable precedents. suggests mandated principle "prescribe shall politics, nationalism, religion, matters ." Barnett, 642, 1187, 1628 (1943). relies 570 (1972), Regents, 385 629 (1967). 514-515; 358-359, 2682 J.). But questioned addressed cases. 45 faculty educational institutions views.7 Keyishian, reviewed statute permitted "treasonable seditious" utterances acts. special concern Amendment, tolerate pall orthodoxy over classroom." 603, 683. Because ambiguity language, unconstitutionally vague. Communist automatically disqualify university. 606, 685. Perry, university professor retaliation 598, 2698. suggest traditionally regarded positions. correctly infringement presents quite Perry. 46 constitutionality depends No violation exists sufficiently important tangential burdening See Buckley Valeo, 1, 25, 612, 637, 659 resolved reference discussed. Nor answered principled manner without identifying weighing III build stable offering rewards assume tasks functioning organizations. "As concerned naturally operate placing supporters power. Thus nothing derogatory saying function patronage." Judge Jupp, Political Parties 25-26 (1968). benefits organization derive merely Many, most, involve functions.8 fill builds loyalty avoids "splintered unrestrained factionalism [that might] damage fabric government." Storer Brown, 415 724, 736, 94 1274, 1282, 714 (1974). 48 Until today, believed importance self-evident. many ways patronage, variety allows candidates muster donations time money capture attention electorate. Particularly growing expensive television advertisements, candidate wealthy capable attracting contributions rely workers bring message voters.9 contests less visible offices, method appealing voters enlists efforts seek reward system. Insofar electorate, our democratic weakened.10 Strong aid after campaigns end. appointees hold similar carry policies administer programs. Patronage—the select personnel "faithful"—serves facilitating endorsed electorate.11 casts shadow time-honored appears goal some, all, replaced 1295.12 often cooperation posts. commentator written: "What forgets work, just policymaking. how wise chief, Indians transform ideas get done."13 growth already politicians change. immune pressure "can resist changes suffering loss cut salary."14 effects follow withhold tips balance between nonpatronage positions, imposes unnecessary constraints govern policies. 50 Executive Branches Government independent law, impossible cooperate enforce Over decades history, furthered—if assured—a measure Branches. strong implement programs working organization. owe little tend leadership. dispersion influence inhibit enacting law.15 sustain discipline, level, traced inability successful offer officials.16 51 breakdown discipline handicaps electorate choose wisely candidates. Voters seeking guide choosing decline stability, able blame credit Our assumption for, nominate office.17 52 decrease accountability denigrate parties. comes increasing observers continue effectively.18 Broad-based supply coherence flexibility scene. coalitions combine goals. strength inevitably enhance groups whose too votes single issue. quality debate, indeed capacity interest, suffer officeholders forced responsive narrow unrepresentative overarching issues domestic foreign reasonable hamper IV 53 impair structure Consideration form N.Y., demonstrates anti-democratic decision. 54 elect body. Among give 1972, respondent defenders. Not Republicans. 1976, legislature. majority, turn, Defenders approved legislators. 509-510, 5. 55 instead delegating officials.19 Certainly preclude voters, "hiring authority," membership. voters' choice yet viewed inhibition speech; democracy. contend re-elect impermissible words, precisely today. 56 assistants, given representative proxy appoint delegated assistants. Presumably adopted course facilitate Of course, instituted continuation reflects electorate's 57 way please. Now basis.20 certainly ties, perceive prohibiting V 58 place sensitive left representatives people. displaces fiat. incorporate reverse Appeals. Jurisdiction Code KF62 § 1983 1343(3). Pursuant Rule 65(a)(2) Rules Civil Procedure, plenary trial consolidated preliminary injunction. explained prior full privileges employees: "[C]ompliance herein defendant permit Assistants pay normal Assistant's salary. Mere payment salary constitute compliance herein; right, upheld herein, Defendant infringe impunity mere expedient paying sum money." 1285-1286, changed registration Democrat 1977 apparent hope chances being reappointed appointed. despite Finkel's formal registration, times. 1285, 2. "An examination employed arriving name each 1978 shows practical purposes, chairpersons procedures decided caucus, save Sanchez, excluded Party. Moreover, sought recommended caucus." 1288. arguments. showed event due competence See, Mt. Healthy City Ed. Doyle, 429 274, 97 568, 471. contention foreclosed fact, settled accepting, absent most exceptional determinations district appeals concurred, review erroneous. Graver Mfg. company Linde Co., 336 271, 275, 69 535, 537, 93 672; Ceccolini, 435 268, 273, 98 1054, 1059, 268. relying testimony assistant's expires expires, treat involving "failure reappoint" result, stringent knew hired, expectation rehired waiver 360, 13, 2683, 547; 380, 2692 (POWELL, Unlike post, 526-532, ask us reconsider included definition system, including available discharges, granting lucrative contracts, giving favored wards improved services. case, this, however, 353, 2679; 374, presented, occasion address compelling vacancies member out-party maintains own risk losing job. works espouses risk. financial campaign assistance induced provide furthers advancement detriment ultimately assessment tantamount belief. 19, 634-635, Even party, however ostensible, compromise individual's Since average hardly another, lend according associate others persuasion constrained, diminished." 355-356, 2681. indicated indirectly, distorting electoral process. increasingly pervasive employment, starve opposition commanding support, otherwise, "Regardless inducement, denial (1943), teacher students, '[i]f fixed star constellation, high petty, force confess word faith therein.' 1187." 356, Workers Mitchell, 330 75, 100, 67 556, 569, 91 754 (1947), 'Congress "enact regulation providing Jew Negro ' reaffirmed Wieman Updegraff, 344 183, 73 215, 216 (1952), establish extracting oath denying past Communists. Cafeteria McElroy, 367 886, 898, 1743, 1750, 1230 (1961), again previous party." 357-358, 2682. pointed purchased price addition declaration 355, 2680. realization very likely lead apparently overt exerted potentially coercive demonstrated futile supra. emphasized advanced governmental, partisan, interest. 2684. met expected perform extracurricular activities rewarded services funds, collected taxpayers expended compensation distribution benefits, purpose. argued employees' efficiency noting tenuous link where servers clerks concerned, small gain outweigh contrast broader prosecutor. express loyalty. Cf. Newcomb Brennan, 558 825 (CA7 1977), cert. denied, 434 968, 455 (dismissal city attorney). end justification tying affiliation: "Perhaps squarely deeply disturbing nonetheless, considerations entering rationale suggested consider, politics accused crime? 'compelling interest' insisting publicly profess (or Republicans)." 1293, 13. brief attempts absolute subordinates. dissenting point, "analogy sector." Post, 521. proposition, "mutual trust" practitioners, lacks inherited affiliations, is, them. Contrary repeated statements "private beliefs," When Thomas Jefferson became Chief succeed opposing powers. Andrew Jackson, next antagonistic administration, extensively took early days Republic played democratizing politics. 378-379, 2691-2692 Lincoln's formed enabled during War. E. McKitrick, Politics Union Confederate War Efforts, System 117, 131-133 (W. Chambers W. Burnham eds. 1967). Subsequent reform "concerned primarily corruption inefficiency induce 'professional' them." 379, efforts, placed basis. Ibid. segment remained, constraints. purports limit 7. Yet states "it affiliation." 14. latter statement perceives distinction readily apparent. "if registration." presence mandating passing chooses demonstrate, qualified impartial judge. Lemann, Case Patronage, Washington Monthly, 8. notes prosecutors "broader responsibilities" 519, suggest, breadth correlates appropriateness appear inconsistent assertion "ultimate 'POLICYMAKER' FITS PARTICULAR POSITIOn requires systems designed merit impose restrictions D. Rosenbloom, Service Constitution: Development Employment Relationship 83-86 (1971); CSC Letter Carriers, 413 548, 2880, 796 (1973). goals, continuity blend appointments, subject oversight branches lose obtained suffered 380-381, 2692-2693. assumed risks benefited, penalized, operation. bases accordingly, declared student flag Tucker, 364 231 (1960), hire dismiss established (1947). 515, 10. conduct far exceeded burden case. Costikyan, Behind Closed Doors: Interest 253-254 (1966). Television radio enable well-financed go directly homes well-organized "political machine." Broder, Party's Over: Failure America 239-240 (1972). attracts willing localities, "[t]he saw polls open be, voting machines worked." Cities Can Work, Saturday Review, Apr. 1970, Pages 20. At percentage Americans vote declining steadily, Statistical Abstract 516 (1979), citizen distributes literature, helps register transports Day performs service. addition, raise recruit train workers, liaison bureaucracies. Assistance constituents common clubhouses helped procure municipal M. Tolchin S. Tolchin, Victor : Clubhouse White House (1971). organizations means upward mobility newcomers minority groups. 382, dissenting); Lubell, Future 76-77 (1952). reasoning vestiges ensure "representative undercut tactics obstructing 2687. affiliation, 518, find thwarted replacement Constitution. hostile foot-dragging subordinate subordinate, prepared subordinate's [will] duties." 517. Peters, Kind Word Spoils System, Sept. 30. supra 11, 72-73. 8, 353-354. Herbers, Parties, Times Magazine, 9, 1979, 158, 175. 252-253. elections, candidate's salient communicated voters. study remains predominant voter low-visibility elections Murray Vedlitz, Voting Lower-Level Electoral Contests, 59 Soc.Sci.Q. 752, 756 (1979). e. g., Burnham, 1976 Election: Has Crisis Been Adjourned?, Policy 19-22 Weinberg 1978); 9; 15, 159; Pomper, Decline Elections, Pol.Sci.Q. 21, 40-41 (1977). Florida, elected. Fla.Const., Article 5, 18; Fla.Stat. 27.50 description functions 519-520.

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