Legal Document

440 U.S. 93 99 Supreme Court Reporter 939 59 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 171 Cyrus R. VANCE, Secretary of State, et al., Appellants,v.Holbrook BRADLEY al. Number 77-1254. Argued Nov. 27, 1978. Decided Feb. 22, 1979. Syllabus Section 632 the Foreign Service Act 1946, which requires persons covered by retirement system to retire at age 60, though no mandatory is established for Civil employees, including those who serve abroad, held not violate equal protection component Due Process Clause Fifth Amendment. Pp. 95-112. (a) The standard rationality, rather than strict scrutiny, be used in determining whether this statute violates protection. Massachusetts Board Retirement versus Murgia, 427 307, 96 2562, 49 520. 96-97. (b) Congress has recognized distinctive requirements associated with conduct country's foreign relations and provided personnel policies Service, a relatively small, homogeneous, particularly able corps, separate apart from system. One differences, earlier officers specified § 632, operates conjunction statutory "selection out" provisions as part an integral plan create "a correctly balanced [Foreign] that [was] constructed so size various classes would correspond distribution work load Service," selection out operating primarily lower, compulsory higher, levels. 98-102. (c) also furthers congressional purpose removing are sufficiently old they may less dependable younger facing rigors overseas duty. Since attached special importance high performance our relations, it was rational avoid risks having older employees engaged such activity, while tolerating involved when abroad. 103-106. (d) Another reason equating situation respect serving about 60% small group latter category posts any one time, whereas only 5% service time mainly on voluntary basis. 106-108. (e) Even if classification issue here some extent both underinclusive overinclusive, perfection required satisfy standards, imperfection exists can rationally related secondary objective legislative convenience. 108-109. (f) Appellees have satisfied burden demonstrating had reasonable basis believing conditions generally more demanding country 60 or before many begin decline. 109-112. 436 F.Supp. 134, reversed. Sol. Gen. Wade Haw. Hawai‘i KFH45 A2 McCree, Jr., Detroit, Mich., appellants. Zona Federal KF105 F3 Hostetler, Washington, D. C., appellees. Mr. Justice WHITE delivered opinion Court. 1 presented Amendment's Clause1 requiring federal disability but A three-judge District convened hear challenge constitutionality appellees, former present participants Treating case submitted cross motions summary judgment, examined affidavits allegations sides, distinction invalid, gave judgment 134 (DC 1977).2 We noted probable jurisdiction, 903, 98 2230, 56 400 (1978), now reverse. 2 * provision under attack, Statutes-at-Large 1015, amended, 22 Code KF62 1002, mandates system.3 That State Department, been expanded include Reserve unlimited tenure,4 career Staff employees,5 Information staff International Communication Agency,6 certain Agency Development.7 Unlike these presently face age8 and, suit brought, were until 70.9 3 suggested between over other age10 burdens suspect fundamental interest; cases where considerations absent, courts quite reluctant overturn governmental action ground denies laws.11 Constitution presumes that, absent infer antipathy, even improvident decisions will eventually rectified democratic process12 judicial intervention unwarranted matter how unwisely we think political branch acted. Thus, unless varying treatment different groups unrelated achievement combination legitimate purposes conclude legislature's actions irrational. parties agreement should determined stated 520 (1976), similar cases; thus section valid "rationally furthering state interest." Id., 312, 2566. 4 In arguing easily satisfies standard, appellants submit their substantial goals recruit train assure professional competence, well mental physical reliability, corps public servants hold positions critical often overseas, frequently difficult conditions, must ready assignments time. Neither nor appellees dispute validity goal. end two principal ways: first, designed predictable promotion opportunities spur morale stimulate superior ranks; second, equipped duty Service. rejected each submissions view erred instance. II 5 At least since enactment Rogers 1924, created reorganizing diplomatic consular services into single entity, general Among subject true 6 continued give attention passed 999, which, amendments, still effect. reorganized new structure, revised its intention produce "disciplined mobile trained men . through entry bottom competitive examination advancement merit command." H.R.Rep.No. 2508, 79th Cong., Sess., (1946).13 furtherance "the principle"14 id., 5, found "[t]he insure rapid ability responsibility elimination reached ceilings performance." 2-3. initial classified based individual abilities regularly boards. Those failing measure up expected class failed win within allotted "selected out." aim retain capable conducting themselves manner widely around world. 7 It 1946 most lowered 65 60. This provision, grouped selection-out sections Act.15 Together "prescribe criteria length determine selected retired," supra, 90, "to pyramid promotion." Ibid. workload Service." Selection lower levels Service; top pyramid. then-highest category,16 ministers, next-highest, 1, ages respectively. These Act,17 expressly accomplish desired result insuring turn-over class." 91.18 8 nevertheless justification stating conclusory fashion "recruiting promoting people solely because youth inherently discriminatory cannot provide scheme." F.Supp., 136. Whether sound legal proposition, mischaracterized operates. intent rewarding qua youth, stimulating highest ranks assuring available despite limits number Aiming hardly characterized illegitimate, equally untenable suggest providing process early does play acceptable role process. As previously observed structure naval officers, model scheme "results flow promotions commensurate Navy's current needs serves motivate qualified commissioned realistically look forward higher Schlesinger Ballard, 419 498, 510, 95 572, 578, 42 610 (1975). 9 "there obvious why [it] apply But criticism ignores evident conviction great pains quality occupying post-war world.19 plainly intended officers. thought tasks performed important Nation necessary pursue rigorous ensure excellence then applicable Government. There example; rigorous; there far wider variations nature personnel. Perhaps someday attempt devise regime all employ connection what deems few See Reform 1978, Public Law 95-454, §§ 3(6), 401-415, 92 1113, 1154-1179 (creating Senior Executive Service). do departments policy, kind constitutional system, ordinarily "fixed acting elected representatives." Firemen Chicago, I. & Pacific KF135 P2 Co., 393 129, 138, 89 323, 328, 21 289 (1968). place value proper affairs said constitutionally impermissible, refuse accept it.20 III 10 involves extended hazardous wear tear members comes filled persons. Mandatory retirement, said, minimizes risk poor health loss vitality. respect, accurately reflect record, without doubt articulates maintaining competent relationship 11 indicated, 65, relevant sufficient 70 years age. Choosing considered choice.21 sponsor legislation identified retiring military employees: 12 "I analogy officer Army much complete civil-service employee Washington. 13 "The foreign-service going hither yon world, giving fixed places abode, rendering prime States. 14 15 call gentleman fact render Tropics; very unsettling changes mode life. consensus better off them, rule, 65." Cong.Rec. 7564-7565 (1924) (Rep. Rogers). 16 intervening years, Government repeated concern first raised 1924.22 retained expanding coverage reach others obviously reaffirmed own just did 1978 repealed left intact rule system.23 17 deny legitimacy vigorous reject proposition could deemed end. assumed stateside invalidated discriminate against vis-a-vis comparable nearly long yet forced Only percentage civilians working countries scope according Court, "patently arbitrary irrational" impose disadvantage upon few. 138. 18 Our difficulty conclusion already pointed out—namely, legislated separately gone lengths reliable respects. If positions, seems us did, connected tolerate judges agree assessment, it. 19 Putting aside sustaining however, error reasons invalidating hardships retirement. compose relativelys furnishing professionalism Approximately them Almost assignment condition employment.24 Each person assigned reassigned regularity spends portion his overseas. accepting Court's trying faced experienced performing freely interchangeable employees. appear sensible take steps itself some, capability satisfying 20 same approximately main matter.25 unwilling useful device maintain adopt insisting choose seek service. order date, otherwise invalid denial hence line drawn imperfect, like "perfection means required." Phillips Chemical company Dumas School Dist., 361 376, 385, 80 474, 480, 384 (1960); accord, San Antonio Dist. Rodriquez, 411 51, 1278, 1306, 36 (1973). "does offend simply 'is made mathematical nicety .' " Dandridge Williams, 397 471, 485, 90 1153, 1161, 25 491 (1970), quoting Lindsley Natural Carbonic Gas 220 61, 78, 31 337, 340, 55 L.Ed. 369 (1911).26 increasing brings susceptibility difficulties, apparently willing assume, perform past invalidate truth undercut 50 uniformed police Murgia. Because competence objective, makes difference hardship lands. turn packages benefits, requirements, restrictions purposes. When decided other, judgments light amalgamations factors. entitled share characteristics posts, positions. chose examine exactly likely enough locales warrant Rather abandoning primary completely, unnecessarily means, drew pertinent objective. we, unwise choosing precisely irrelevant. Califano Jobst, 434 47, 56-58, 95, 100-102 (1977); New Orleans Dukes, 297, 303, 2513, 2516, 511 (1976). IV 23 Despite this, urge affirm relied Court: relation taxing arriving insufficient reduced potential.27 24 rely particular posture case—cross judgment. They point comfortable safe States; problems; fill fair posts; diseases ailments commonly linked life seem believe empirical proof energy tend decline somewhat offer perusal sustained.28 Such evidence course argue powerfully statute, see U.S., 314-315, n. 7, S.Ct., 2567, 7. case, recurringly do, contained statute. ordinary civil litigation, question party shown disputed historical true. type, challenging convince court facts reasonably conceived decisionmaker. 78-79, 340; Schilb Kuebel, 404 357, 364, 479, 484, 30 502 (1971); Maryland Savings-Share insurance Corp., 4, 6, 91 16, 17, 27 (1970); seeMcGinnis Royster, 410 263, 274, 1055, 1061, 35 282 (1973) (finding legislature "could concluded that" true); Williamson Lee Optical 348 483, 487, 75 461, 464, 563 (1955). slightly context: 26 making 'findings fact' certainly authorize resolve conflicts convincing statistics record support it, viewpoint constitutes nothing 'pure speculation.' 138-139, 2567. Consequently, demonstrate something reliability. requirements. say pleasant healthy not.29 admit toll, perhaps chosen cutoff. Brief 76-77; Tr. Oral Arg. 21-24, 27. And common-sense aging—almost definition inevitably wears down.30 315, All "[i]t argued given modern societal facts," 76. admission arguable immunizes attack represented statute: 28 "It effect opposed argument serious strength. competency arbitrate contrariety." Rast Van Deman Lewis 240 342, 370, 374, 679 (1916). 29 For reasons, appealed So ordered. MARSHALL, dissenting. 32 today finds devoid jobs N Dec. Immigration Nationality Decisions adhere my Bd. 317-327, 2568-2573, (1976) (Marshall, J., dissenting), minimal level review. withstand closer respectfully dissent. 33 person's interest employment, although "fundamental" law stands, among personal concerns affect. 322-323, 2571-2572; cf. Arnett Kennedy, 416 94 1633, 40 (1974); Regents Roth, 408 564, 2701, 2706, 548 (1972); Smith Texas, 233 630, 636, 641, 34 681, 684, 58 1129 (1914). significance "[o]nce terminated, elderly readily find alternative employment. lack economically damaging, emotionally physically draining. Deprived status community opportunity meaningful fearful becoming dependent support, lonely new-found isolation, involuntarily retired susceptible emotional direct consequence enforced idleness. Ample clinical supports poses threat expectancy ." 2572 (footnote omitted). affects interests dimension, heightened scrutiny appropriate. addition, careful deprivation imposed. To sure, "discrete insular minorit[y]," Carolene Products 304 144, 153 778, 784 82 1234 (1938),1 need "extraordinary majoritarian process." Rodriguez, 28, 1294, suffered discrimination generalizations inaccurate many, most, affected. Report Labor Age Discrimination Employment Under 715 Rights 1964, Older American Worker (1965) (hereinafter Report); 113 34742 (1967) (remarks Rep. Burke); 95-527, pt. Page Note, Cost Growing Old: Business Necessity Act, 88 Yale L.J. 565, 576-577 (1979), sources cited therein. stigmatize aged mentally deficient, regardless capabilities. Cf. House Select Committee Aging, Retirement: Social Human Enforced Idleness, 95th 1st 35, 37 (Comm. Print 1977) (hereafter Aging); C. Edelman Siegler, 15-17 (1978) Siegler). Particularly area significant deprivations imposed stereotypes, 621(a); 18-19; 1967, Harv.L.Rev. 380, 380-381, 383 (1976).2 Considering stake prevalence aged, glancing oversight rational-basis test fulfills obligation receive laws. require Service's "serves objectives [is] substantially objectives." Webster, 430 313, 316-317, 97 1192, 1194, 51 360 Craig Boren, 429 190, 197, 451, 457, (1976); 325, dissenting). Measured fall. 38 Before applying intermediate classifications delimits. two. distinguishes over. unequivocally claimed unconstitutional, 76-78; 26-28, concede, ante, 109-110, Nonetheless, summarily dismisses claim, finding abandoned below after issued. 39 By limiting consideration issue, majority evaded case. repeatedly "prevailing assert reviewing trial court." 475, 1156, California Bankers Assn. Shultz, 21, 71, 1494, 1522, 812 Langnes Green, 531, 538-539, 243, 246, (1931); Railway Express 265 425, 435, 44 560, 563, 68 1087 (1924).3 "violates guarantees embodied Amendment." App. Juris. Statement 9A. Appellees' contention discriminates patently affirming irrelevant purported abandonment came granted way prejudiced resurrection here. claim properly us. Undoubtedly, "professional competence" corps. 97. ways. view, psychological difficulties frequent impair persons, including, seems, exposed conditions. Hence, concludes, 60-year-olds vitality competently. creates "room top," thereby ensuring supply opportunities, "spur ranks." Ante, 98. reading us, reveals articulated scheme. Atlantic 41 successfully challenged Government's central premise pressures transient diminish capacity jobs. inherent indicate excellence. Department engage economic research, visa work, negotiations representatives governments, recruitment management, administrative functions. Dept. Agency, Officer Careers 4-8 (1978). Officers lecture cultural informational duties, management 8-10. Development (AID) employs economists, financial analysts, attorneys, auditors, accountants technical assistance countries. U. S. Comm'n, Jobs Overseas 10-11 addition cover technical, administrative, clerical, custodial work. 2104, 86th (1960).4 workers effectively spend careers abroad doing Of 58,000 1976, 4,787 136 1977). Moreover, discrete segments force, Agriculture Department's almost tenure 137. discounts figures compelling 106. However, 40% Americans agencies AID contract provisions. 136-137; 191. broad experience analogous situations, encountered age-related problems 43 Appellees, hand, introduced amount medical testimony dispelling adverse correlation job advancing age, offered introduce more. example, chief psychiatrist Peace Corps flatly "inability satisfactorily stressful cultures age." Affidavit Dr. Judge English 2. Kessler; T. Fox.5 Similarly, variety studies indicating ones types accompanying recent amendments H.R.Rep.No.95-527, (1977), noted: "Testimony committee results research findings good coworkers regard dependability, quality, volume, human absenteeism; fewer accidents job. Congressman Pepper committee: 'The variation justifies judging competency, age.' (Footnote omitted.) Aging observed: 45 "Studies Labor, late Ross McFarland Harvard Health, National Council experts field quantity workers, good, usually better, attendance records learning skills adapting changing circumstances workers." 46 1964: Research Materials 86 (1965); Siegler 27-31; L.J., 576-577, 47 closes eyes appellees' excuses producing nomadic toll determination, rested "common-sense definition—inevitably down." 950.6 "wear down," Absent concrete able, indeed, indication information enacted remitted unsubstantiated assumptions concerning white-collar 48 With sex discrimination, refused 'overbroad' generalizations" classification. Goldfarb, 199, 211, 1021, 1029, 270 (1977) (plurality opinion); 198-199, 457-458; Stanton Stanton, 421 1373, 688 (1975); Frontiero Richardson, 677, 1764, 583 113-115. While unlike sex, bear ability, showing exist. viewed predictive assume correlation, inquire accurate predictor justify 201-202, 459-460.7 adduced considerable absence contrary, result. Not insufficiently unnecessary one. operates, standards out, annual 99. Further, biennial examinations, examinations necessary, fit Record 20. scheme, then, appellants' periodically assessed. individualized procedures effect, prohibiting resort age-based jeopardize Murry, 413 508, 518-519, 2832, 2837-2838, 767 concurring); 458. B upholds function "stimulating 101. 52 justification, me, limited high-level Indeed, acknowledges rationale personnel, designated elite cadre nonetheless 99-100, 15. flaw analysis ends begins inquiry articulating goal Trimble Gordon, 762, 769, 1459, 1464, (1977). fails whether, balance, 53 answer apparent, promotional deprives talents admitted are, "its best officers." S.Doc.No. 14, 90th 118 (1967). boost productivity enhancing proffered analysis. 54 note prompted generous pension benefits private employers suggests pattern change significantly raised. Fringe Benefit Facts 16-17, Policies: Hearing (1977).8 stay "clog stream" remain performance, nonpromotion. disagree, course, legitimately "great world." Nor contend substitute appropriate submit, assess challenges accomplished designed. establish otherwise. Where individuals' livelihood, self-esteem, dignity critically affected, relieved responsibility. Accordingly, Concern fabric Fourteenth Amendment expressed directly Cong. Globe 39th 2510 (1866) Miller) (all spirit Declaration Independence); 2459 Stevens) (requirement States); 1034 Bingham, speaking original proposal clause) ("[e]very word proposed amendment to-day Constitution"). forbids E. g., Hampton Mow Sun Wong, 426 88, 100, 1895, 1904, 495 Buckley Valeo, 424 93, 612, 670, 659 Weinberger Wiesenfeld, 420 638 2, 1225, 1228, 514 Bolling Sharpe, 347 497, 500, 74 693, 695, 884 (1954). urged violated 633a, Order, regulations. nonconstitutional claims, Bradley Kissinger, 418 64 1976), appeal taken. claims. 135 1. Participation defined 1063. Recently, average per year mandatorily retired. 814. 501(a), 522(a)-(c), 834, 846-847. 31(b), 838 (including continuous service). 9, 812. 87 722-723. Amendments 5(c), 8335, factor groups, gravamen developed, originally footnote besides "also sixty younger." response complaint "stressed [they were] eschewing claiming being government generally." Plaintiffs' Memorandum Points Authorities Response Defendants' Motion Reconsideration (July accepted invitation remove sentence discussion, abandoned. Order July 1977. Opposition Dismiss or, Alternative, Summary Judgment (Nov. 24, 1976); 77; 20-22, 24. 40, 1300, Congress' shows working. 8, text. preserved being, allow international study issue. 123 30556 Senate Report's discussion identical Report. 1731, 1-10 (1946). Accord, 229, 84th (1955) (emphasizing concept; 101 3554 Richards) ("The man enters works up. Affairs wrote adopted, principle stressed" ). occasionally make lateral easier, emphasized preferred "expansion period applicants classifications." S.Rep.No. 127, (1955), U.S.Code Admin.News 1955, Pages 1866, 1873; (statement Deputy Henderson) (State prefer entrance junior level); Hearings H.R. 4941, Williams) (recognizing policy "entry basis" out. presume room resulting ripple down ranks. later "career ambassadors." 250, 4-9, 69 537. 1955 well, 25-26, history indicates reversal position involuntary vacancies described "[m]ost separations occur near (for retirement) bottom, middle limited." quoted text, infra, 946-947) (Foreign "of States"); 3562 Judd) safeguard security nation. defense achieving back State"); 3560 Bentley) ("Because duties responsibilities undertake, individuals business interests, vital demand attractive get type women ranks"); 3559 Vorys) compete businesses overseas). added "vital activity" stringent 1223(a) (e). however desirable say, perform. alternatives might achieve results, assures time; know intolerable maximum designing unified presumed close 91, next categories 55, 92, young. 93. presumptions irrational move upward 5; supra. achieved departures domino creating level. is. recognized, differences greatest. supra 12. ranks, times, increasingly try draw fine distinctions extremely competent. grant annuities upper dedicated lives service, administered reduce minimum middle-aged men, expense Government." 18, 92. setting 7586 (1924). 168, 77th (1941), 389, (1941) (reprinting letter Hull) ("experience strain representing climates environments standpoint retirements authorized law, commencing age"); Policy Personnel, 89, 83d 280-281 (1954) (employees consider "Foreign compared disadvantages"); Appendix President Cabinet Systems, 112 set recognition highly stamina intellectual 300 throughout world isolated, primitive, dangerous areas"). included applies them: outside adjusting living every years. conditions." (1960), 1960, 3407, 3425. Constitution, opinion, reversing score competing important. constantly duty, 961(a). Most requirement. incomplete 1063, "officer[s] employee[s] Service" 937 (assignment employees). integration specifically increase Admin.News, 1867. assurance relative handful personnel—employees Agricultural Service—remain Many statutorily guaranteed right return 1586. "[T]he compromise hard life." Tussman tenBroek, Equal Protection Laws, Calif.L.Rev. 341, 350 (1949). amounts discriminating pressed oral argument, entirely theory. 27-29. earlier, 10, kind. informed regard, unable discern event, indicated increased assignments. unresponsive canvassed Part opinion. compelled verify logical statistical evidence." Hughes Alexandria Scrap 794, 812, 2488, 2499, allows five beyond interest," eliminating overinclusiveness. due disability, mitigates underinclusiveness. dissent, post, 122, unexpected undercutting reliability interim. insular" belong voters bear. lag effects felt efficacy safeguard. L. Tribe, Constitutional 1077 inadequate where, here, distinct segment legislators ever part. extra processes statement 81 602, 621(a), that: "(1) rising affluence, disadvantaged efforts especially regain employment displaced jobs; "(2) potential become common practice, practices persons; "(3) incidence unemployment, long-term unemployment resultant deterioration skill, morale, employer acceptability is, ages, workers; numbers growing; grave advanced affirmance greater relief below. FEA Algonquin SNG, Inc., 548, 560 11, 2295, 2302, Raines, 362 519, 526, 524 (1960). possibility establishes impermissibility 70, 76; 23-24. involve equivalent "stress functions" 311, 2565, required, inter alia, control prison disorders, respond emergencies natural disasters, apprehend criminal suspects. 310, 2565. pulmonary specialist testified appellees: "While occurs advance pathological stage interferes function. Certainly, normal seventy." Munzer overstatement refer "[c]ongressional determination" express predicated theory during 1924 debates Tropics. 7565. focus debate, salaries attract modes travel Tropics elsewhere changed considerably reliance misplaced. 153, 784, (1938). adjustments required. context recommending enjoy "advantages" permitted desired. 1960 nowhere reflects assessment Given staleness "determination" failure subsequently appropriateness extraordinary deference affords factfinding. implies "close fit" appears "sensible 107. Significantly, adverts suggesting concedes, 108, overinclusive And, demonstrated page, precise ability. fact, Chairman Commission recently: "Insofar force concerned, removal little recruiting people. turnover senior retirement."

Classification Label: 1