Legal Document

521 U.S. 811117 S.Ct. 2312138 L.Ed.2d 849 Frederick D. RAINES, Director, Office of Management and Budget, et al., Appellants,v.Robert C. BYRD al. No. 96-1671. Supreme Court the United States Argued May 27, 1997. Decided June 26, Syllabus* Appellees, Members 104th Congress, voted "nay'' when Congress passed Line Item Veto Act (Act), which gives President authority to cancel certain spending tax benefit measures after he has signed them into law. The day went effect, they filed suit against appellants, Executive Branch officials, challenging Act's constitutionality. District denied appellants' motion dismiss, finding that appellees' claim diluted their Article I voting power was sufficient confer III standing; ripe, even though had not yet used cancellation authority, because found themselves in a position unanticipated unwelcome subservience before votes on appropriations bills. court then granted appellees summary judgment, holding violated Presentment Clause, Art. I, §7, cl. 2, constituted an unconstitutional delegation legislative President. Held: Appellees lack standing bring this suit. Pp. ____-____. (a) federal courts have jurisdiction over dispute only if it is case or controversy. III, §2. In order meet element case-or-controversy requirement, must allege personal injury particularized, concrete, otherwise judicially cognizable. Lujan v. Defenders Wildlife, 504 555, 561, 112 2130, 2136-2137, 119 351; Allen Wright, 468 737, 751, 104 3315, 3324-3325, 82 556. This insists strict compliance with jurisdictional see, e.g., id., at 752, S.Ct., 3325, its inquiry especially rigorous reaching merits would force decide constitutionality action taken by one other two branches Federal Government. (b) never occasion rule question presented here. are helped Powell McCormack, 395 486, 496, 512-514, 89 1944, 1959-1960, 23 491, held Congressman's challenge his exclusion from House Representatives been singled out for specially unfavorable treatment as opposed respective bodies, but causes type institutional damages all equally. And based loss political power, something personally entitled, such seats constituents elected them. (c) Appellees' also does fall within Court's Coleman Miller, 307 433, 59 972, 83 L.Ed. 1385, upheld legislators claiming injury. There, state who locked tie vote defeated State's ratification proposed constitutional amendment, alleged were nullified Lieutenant Governor broke casting ratification, "a plain, direct adequate interest maintaining effectiveness votes.'' Id., 438, 975. contrast, specific bill, there pass bill nonetheless deemed defeated. Act, given full effect; simply lost vote. To uphold here require drastic extension Coleman, accepting argument changed "meaning'' "effectiveness'' bills, vast difference between level nullification issue abstract dilution allege. (d) Historical practice cuts well. Several episodes our history show analogous confrontations both Houses Branch, no brought basis claimed official power. If sustained, presumably several Presidents Tenure prevented removal presidential appointee without Congress' consent; Attorney General could challenged one-House veto provision rendered provisional rather than final; Ford Election Campaign appointment provisions struck down Buckley Valeo, 424 1, 96 612, 46 659; Member validity Coolidge's pocket sustained Pocket Case, 279 655, 49 463, 73 894. While system granting be irrational, Constitution's regime contemplates more restrictive role courts. See Richardson, 418 166, 192, 94 2940, 2954, 41 678 (Powell, J., concurring). (e) Some importance attached fact authorized represent action, indeed actively oppose addition, conclusion reached neither deprives remedy-since may repeal exempt bills reach-nor forecloses someone suffers cognizable resulting it. P. 2322. 956 F.Supp. 25, vacated remanded. REHNQUIST, C.J., delivered opinion Court, O'CONNOR, SCALIA, KENNEDY, THOMAS, GINSBURG, JJ., joined. SOUTER, concurring STEVENS, BREYER, dissenting opinions. Walter Dellinger, Washington, DC, Appellants. Alan B. Morrison, Appellees. Chief Justice REHNQUIST Court.** 1 Columbia declared unconstitutional. On appeal, we hold suit, therefore judgment complaint dismissed. 2 * six four whom served Senators Congressmen (1995-1996).1 March 1996, Senate entitled 69-31. All appellee "nay.'' 142 Cong. Rec. S2995. next day, identical 232-177. Both H2986. April 4, (Act) Pub.L. 104-130, 110 Stat. 1200, codified U.S.C.A. §691 seq. —(Supp.1997). effect January §5. Secretary Treasury Director alleging 3 do use term "veto.'' Instead, "cancel'' Specifically, provides: 4 " [T]he may, respect any joint resolution law pursuant section 7, Constitution States, whole- (1) dollar amount discretionary budget authority; (2) item new spending; (3) limited benefit; President- 5 (A) determines will- (i) reduce deficit; (ii) impair essential Government functions; (iii) harm national interest; 6 (B) notifies transmitting special message . five calendar days (excluding Sundays) enactment [to applies].'' §691(a) (some indentations omitted). 7 President's "cancellation'' under takes "special message'' notifying received Senate. With amounts "discretionary authority,'' means "to rescind.'' §691e(4)(A). "new spending'' items "limited benefit[s],'' relevant legal provision, obligation, "prevent[ed] having effect.'' §§691e(4)(B), (C). 8 establishes expedited procedures consideration "disapproval bills,'' §691d, resolutions which, enacted familiar set §7 Constitution, render "null void,'' §691b(a). "Disapproval bills'' sentence long read follows enacting clause: "That disapproves cancellations _______ transmitted ______ regarding ________.'' §691e(6)(C). (The blank spaces correspond reference numbers message, date public number relates, respectively. Ibid.) 9 provides [a]ny individual adversely affected [this Act] Columbia, declaratory injunctive relief ground part violates Constitution.'' §692(a)(1). [t]he I'' Constitution. Complaint ¶17. "unconstitutionally expands power,'' "violates requirements bicameral passage presentment President, acting alone, "cancel' thus law.'' Ibid. They injured "directly concretely capacities'' three ways: 10 "The alter[s] practical cast containing separately vetoable items, divest[s] [appellees] legislation, balance powers Legislative Branches, matters coming Congress.'' ¶14. 11 Appellants moved dismiss jurisdiction, (among things) lacked sue ripe. sides motions merits. 10, 1997, motion, 25. As standing, noted Appeals "has repeatedly recognized Members' affect constitutionally prescribed lawmaking powers.'' 30 (citing, Michel Anderson, 14 F.3d 623, 625 (C.A.D.C.1994); Moore Representatives, 733 F.2d 946, 950-952 (C.A.D.C.1984)). F.Supp., 31 (" endorsed [Court Appeals'] analysis cases''). "dilute[d] power'' standing: [Appellees'] mean different what meant before, good ill, perceive latter "injured' sense whenever comes up vote, whatever ultimately Under dynamic fundamentally altered. Compromises trade-offs lawmakers take account item-by-item looming end product.'' 12 ripe him Act: "Because now find satisfied, accede directive address cloud swiftly possible.'' 32 (referring §692(a)(1), right court). merits, 33, 35, 37-38. 13 direct, appeal Court. §692(b) (direct Court); §692(c) ("It shall duty advance docket expedite greatest possible extent disposition [suit constitutionality] [§3(a) Act]''). 18, eight issued order, appellants statement asking us note probable 21, memorandum response agreeing should jurisdiction. 23, did so. 520 ----, 117 1489, 137 699 (1997). We established briefing schedule heard oral 27.2 II §2 "case'' "controversy.'' "bedrock requirement.'' Valley Forge Christian College Americans Separation Church State, Inc., 454 464, 471, 102 758, 70 700 (1982). said Simon Eastern Ky. Welfare Rights Organization, 426 37, 1917, 1924, 48 450 (1976), "No principle fundamental judiciary's proper government limitation federal-court actual cases controversies.'' 15 One requirement appellees, complaint, establish sue. 351 (1992) (plaintiff bears burden establishing standing). focuses whether plaintiff party Simon, supra, 38, although "often turns nature source asserted,'' Warth Seldin, 422 490, 500, 95 2197, 2206, 45 343 (1975). [a] fairly traceable defendant's allegedly unlawful conduct likely redressed requested relief.'' 3324, 556 (1984) (emphasis added). For purposes, italicized words quotation key ones. consistently stressed plaintiff's "personal stake'' dispute, suffered particularized him. See, Lujan, U.S., 560-561 n. 2136 (to "particularized'' injury, "the way''); Bender Williamsport Area School Dist., 475 534, 543-544, 106 1326, 1332, 501 (1986) (school board member stake outcome litigation'' standing); 39, 1925 ("The necessity seeks invoke judicial stand profit some remains requirement''). 16 legally requires, among things, "an invasion protected concrete particularized,'' 560, 2136, "traditionally thought capable through process,'' Flast Cohen, 392 83, 97, 88 1942, 1951, 20 947 (1968). Allen, 3325 ("Is too abstract, appropriate, considered cognizable?''). 17 always insisted requirement. e.g, ibid. (under "federal exercise "in last resort, necessity''') (quoting Chicago & Grand Trunk R. Co. Wellman, 143 339, 345, 400, 402, 36 176 (1892)); Muskrat 219 346, 356, 250, 253, 55 246 (1911) [F]rom earliest [C]ourt declined those strictly nature''). Bender, 542, 1331-1332; Forge, 473-474, 759-760. built single basic idea-the idea separation light overriding time-honored concern about keeping Judiciary's sphere,3 put aside natural urge proceed directly important "settle'' sake convenience efficiency. carefully inquire met personal, 18 here.4 1950-1951, 491 (1969), (and consequent salary) But help appellees. First, bodies. Their (the diminution power), necessarily infra. Second, deprived entitled-such Rather, private right, make concrete. Unlike Congressman Adam Clayton Powell, capacity solely Congress. ¶14 (purporting capacities''). retire tomorrow, longer claim; possessed successor instead. runs (in sense) Member's seat, seat holds (it quite arguably said) trustee constituents, prerogative Federalist 62, p. 378 (J. Madison) (C. Rossiter ed. 1961) misfortune incident republican government, less degree governments, administer forget obligations prove unfaithful trust''). 19 (albeit legislators) 1385 (1939). relying heavily case, they, like "have votes,'' 975, standing. Kansas' 40 State ratify "Child Labor Amendment'' deadlocked 20-20, amendment ordinarily ratified. However, Governor, presiding officer Senate, deciding favor ratified (after it). joined 21st Senator Members, Kansas seeking writ mandamus compel appropriate officials recognize legislature amendment. That members ruled 436-437, 974-975. affirmed. By 5-4, standing.5 explaining holding, emphasized these (who suing bloc) correct validity: 21 "Here, plaintiffs include twenty senators, whose overridden virtually naught contentions defeat ratification. think senators 975 22 qualified votes, governor excluded being purpose, decisive defeating ratifying resolution. '' 441, 976 [W]e departure recognizing instant least contention controversy treated entertaining questions, give review decision.'' 446, 979 24 It obvious, then, stands (at most, see 8, infra) proposition (or enact) act goes go effect), completely nullified.6 25 equally obvious understood. effect. vote.7 Nor can will nullify future same way nullified. future, majority reject bills; process. bill) Act; again, little meaningful precedent argument.8 26 Nevertheless, rely applies (assuming Act) "effective'' "integrity'' changed. Brief 24, 28. follows. Before sure for, passed, included funds Project X, things happen: become projects listed none Either way, package inextricably linked. After however, includes X different. Now, addition possibilities above, third option: X.9 27 Even taking word change subject pulls far moorings. link stretches beyond There Coleman. unwilling step. 28 Not support precedent, historical appears cut evident Andrew Johnson 1867, thorn side succeeding until finally repealed behest Grover Cleveland 1887. generally W. Rehnquist, Inquests: Historic Impeachments Samuel Chase 210-235, 260-268 (1992). provided office required confirmation removed consent 430, ch. 154. 1868, War, Edwin M. Stanton. Within week, impeached Johnson. Trial Johnson, Impeachment High Crimes Misdemeanors (1868). principal charges Stanton Act. 6-8. At trial acquitted 487, 496-498. Surely stronger result present case. Indeed, appear ever firing cabinet member, grounds altered calculus nominate cabinet. Yet entertained adjudicate immediately improperly unnecessarily plunged bitter battle waged 29 Succeeding Presidents-Ulysses S. Grant Cleveland- urged Cleveland's plea heeded 353. occurred might court. Eventually, traditional opportunity contained A sort mini-Tenure covering Post Department 1872, 284, 335, §2, remained books Woodrow Wilson administration, Albert Burleson, Wilson's Postmaster General, came believe Frank Myers, Portland, Oregon, committed fraud course duties. When Myers refused resign, direction sued Claims recover salary. 272 52, 47 71 160 (1926), half century Johnson's impeachment, senatorial appointed 106-107, 173, 176, 22, 44, 45-46. opinion, expressed view original 44 ("This has, since manifested earnest desire avoid final settlement inevitably presented, here''). Wilson, him, likewise preventing Similarly, INS Chadha, 462 919, 103 2764, 77 317 (1983), final. parity reasoning, Gerald 659 894 (1929). nothing irrational cases; European operate another variant regime. Favoreu, Constitutional Review Europe, Constitutionalism (L. Henkin A. Rosenthal eds.1990); Wright Sheive, Central Courts Antimajoritarian Objection Judicial Review, Law Pol'y Int'l Bus. 1201, 1209 (1995); Stone, Birth Politics France 232 (1992); Kommers, West Germany: Study (1976). obviously obtained date. Our restricted courts, well (1974): irreplaceable value articulated Mr. Marshall [in Marbury Madison, Cranch 137, 60 (1803)] lies protection afforded rights liberties citizens minority groups oppressive discriminatory action. role, amorphous general supervision operations maintained esteem permitted peaceful coexistence countermajoritarian implications democratic principles upon rests.'' 2954. IV 33 sum, individuals (contra Powell), wholly widely dispersed Coleman), attempt litigate time form contrary experience. attach suit.10 supra. remedy (since reach), nor (by Act). Whether circumstances need decide. 34 sufficiently standing.11 vacated, remanded instructions 35 so ordered. GINSBURG joins, concurring. 37 —(Supp.1997), grants vests Stevens points out, essentially that, statutes, injures depriving post, __-__. precedents, debatable "personal'' "concrete'' satisfy III.1 38 is, first, difficulty applying predicated official. doctrine distinction dispositive qualify: certainly concluding capacities, holders ante, __. significance straightforward. Braxton County Virginia ex rel. Dillon, Tax Comm'rs, 208 275, 52 (1908), true, dismissed county broadly stating ""the [party relief] interest,''' 198, 276-277 Smith Indiana, 191 138, 149, 51, 52-53, 125 (1903)); accord, Joint Anti-Fascist Refugee Comm. McGrath, 341 123, 151, 624, 637-638, 817 (1951) (Frankfurter, "inapplicable'' group 3, (1939), deprivation 437-446, 974-979.2 Thus, arguable preclude 39 law, clearly cannot concreteness. hand, abide shared large provide 482-483, 763-764, (1982); Schlesinger Reservists Stop 208, 217, 220, 2925, 2930, 2931-2932, 706 (1974); Fairchild Hughes, 258 126, 129-130, 42 274, 66 499 (1922). power; factual matter tangible preservation citizenry has. Cf. (concluding "plain'' "direct'' votes); Hendrick Walters, 865 P.2d 1232, 1236-1238 (Okla.1993) legislator determine lawfully assumed due substantial interaction legislature); Colorado Assembly Lamm, 704 1371, 1376-1378 (Colo.1985) Governor's line power). alleged, continuing connection instead class suffer Congress.3 Because behooves resolve separation-of-powers underlying requirements. (1984); 188-197, 2952-2957, (1974) "our structure [does not] shrink confrontation coequal branches,'' College, 474, 759, cautioned requires restraint issues resolving implicating "last resort,'' counsel begins involving interests those, serve National model common-law cause conceptual core Comm., 150, 152, 637, 638 Although contest formally augmenting Presidential it), substance interbranch calibrating executive powers, intrabranch segments itself. Intervention risk damaging confidence vital functioning cf. 759-760 188, 2952 concurring)), embroiling nearly height tension. true outside involve allocation branches, expose lesser risk. Deciding vindicate raises specter readiness enlist tug-of-war, propriety [2 60] (1803).'' 759. just presence places Judiciary remove forces, await allows greater review. [B]y connecting censureship laws community, legislation wanton assailants, daily aggressions party-spirit.'' de Tocqueville, Democracy America 105 (Schoken ed.1961). 43 virtue waiting confirmed certainty come us. parties agree, reason question, "cancels'' conventional putative beneficiaries thereby III. 19-20, 10; 32-33. money produce "actual,'' individual,'' "legally interest,'' (internal marks omitted); assuming canceled apply entire public, "concrete,'' 573-574, 2143-2144; "fairly trace[able] the'' involved cancellation, omitted), probably "redress[able] favorable decision,'' citation Train City New York, 420 40, 839, 842-843, (1975) (suit York allotment funds). lower able claim, 489, 767-768; Schlesinger, 227, 2935; 179, 2947-2948, politics subsided boil doubts invoking interest, 153-154, 638-639 concurring) (explaining availability person calculus). conclude injuries insufficiently harm. Since conditions here, accordingly dissenting. purports procedure creation truncated versions signature. valid, deny every Representative measure survives authority. guaranteed text clear persons Moreover, impairment immediate impact my wait exercised Finally, respondents statute "Every Bill law'' either "Reconsideration'' "Objections.''1 mechanism eventually Representative. Assuming moment permissible, portions just-enacted-law, slightly way. asserted "alter[s] items'' "divest[s] the[m] legislation.'' These base rest analysis. frames related technical operation. receive sign exactly Houses, partial enacted. (Supp.1997). combination diminished initial circumvention participate subsequent repeal. looks perspective, simple denial precise caused same. right-essential legislator's office-constitutes statute. voter's elect representatives voter standing-as surely does, Baker Carr, 369 186, 204-208, 691, 703-705, 663 (1962)-the each becomes create them.2 Although, Breyer demonstrates, ante __-__ (dissenting opinion), majority's distinguish persuasive, instance. complained effectiveness. ibid.; Dyer Blair, 390 1291, 1297, (N.D.Ill.1975). alter legislators' votes; denies President.3 50 convincingly explain how immediate, constant threat palpable current choices. 23-25, 29-31. manner undertake responsibilities, institute litigation itself authorizes. §692(a)(1) 51 Given plain unambiguous me statutory eliminate invalid. Accordingly, affirm 53 54 (signed President) Ante, __, citing U.S.C. authorization "eliminates prudential limitations significantly lessens unwanted conflict Branch.'' 3. grant authorizes exercise. Hayburn's Dall. 409 (1792). "judicial Power'' States-"extend[ing] Cases, Equity'' "Controversies''-covers Const., concede truly adversary, focused. assert genuine opposing, adverse. Compare (1892). (on law) consists systematic abandonment voted, violation procedural (they say) them, impediment ability job do. __-__, __ (Stevens, dissenting); ¶14; App. 34-36, 39-40, 42-46, 54-55, 57-59, 62-64. comparable harms contexts (such purely contexts), Cf., Bennett Spear, ---------, 1154, 1163-1167, 281 (1997); Northeastern Fla. Chapter, Associated Gen. Contractors Jacksonville, 508 656, 113 2297, 124 586 (1993). (Souter, judgment). focused accompanying deciding. Munoz-Flores, 495 385, 392-396, 1964, 1969-1972, 109 384 (1990). ask upon'' "abstract, intellectual proble[m],'' living between'' "adversaries.'' 460, 985, (1939) dissenting). 56 Nonetheless, serious arises legislators. critical reason, "matters Westminster'' falls scope III's Frankfurter explained dissent saying traditionally 57 "leave intra-parliamentary controversies parliaments scrutiny assemblies-who members, requisite phases activity, counted-surely merely very essence "political' connotation "private damage.' pertain executing open sit manifold disputes engendered assemblies.'' 469-470, 989. 58 dissented because, view, "political'' legislators, placed "controversy'' rejected argument. today attempts Frankfurter's variations theme carry previously mentioned, eliminates considerations, mentioned above "intragovernmental'' aspect issue. Supra, draw absolute "official'' himself capacities. 466, 987-988 (citing Blodgett Silberman, 277 410, 72 749 (1928), Boynton Hutchinson, 291 457, 78 1048, cert. dism'd grounds, 292 601, 639, 1464 (1934)). also, Will Calvert Fire Ins. Co., 437 661, 98 2552, 2556-2557, (1978) (federal district judge appealing docket-keeping matter); Board Ed. Dist. 236, 241, 5, 1923, 1925, 1060 (1968) (indicating school where violate oath expulsion office). capacity. suggesting complain rules "denied'' "their manner,'' concedes possibility distinguishing absolute. 7. 61 Third, views views, us, compared presents much weaker justiciability. worst, counted making unlikely 436, 974. threatens many (for example, laws) regularly frequently enacts. affects jobs. serious, pervasive, 757-758, (1982), quoting 402 (judicial ""is legitimate determination real, controversy'''). 62 finds 63 [O]ur nullified.'' 64 that-on law-their threatened too. 6, 65 suggests various distinctions arising legislature, 8. (SOUTER, arguments irrelevant, disagree. 462, 465-466 985-986, 978-979. existence potential differences determinative constitutional, prudential, considerations issue, particularly somewhat concerns specifically authorizing lawsuit. immediacy harm, later plaintiff, judgment), determinative. examples primarily lawsuits brought, (STEVENS, nonjusticiable overruling so, nature, seriousness, justiciable Coleman's absence. add decided discuss either, reserve syllabus constitutes prepared Reporter Decisions reader. Detroit Timber Lumber 200 321, 337, 282, 287, 499. ** joins opinion. Three Senators-Robert Byrd, Carl Levin, Daniel Patrick Moynihan-are still Senators. fourth-Mark Hatfield-retired Congressmen-David Skaggs Henry Waxman-remain Congressmen. Bipartisan Legal Advisory Group (made Speaker, Majority Leader, Minority Whips) brief amici curiae urging reversed states express settled erase statutorily Gladstone, Realtors Village Bellwood, 441 91, 100, 99 1601, 1608, (1979). acknowledge, though, decision particular act's (as __) brings 1162-1163, Over strong dissent, Circuit here) Kennedy Sampson, 511 435-436 (C.A.D.C.1974); 951 (C.A.D.C.1984); (Scalia, result); Barnes Kline, 759 28-29 (C.A.D.C.1985); (Bork, Holtzman 484 1307, 1315 (C.A.2 1973) (Member American military Vietnam war); Harrington 528 455, 459 (C.A.4 1975) (same). Hughes wrote styled Court.'' 435, Four Justices concurred partially 456-457, 983-984 (opinion Black, Roberts, Frankfurter, Douglas, JJ.); 985 JJ.). Two justices 470, 989-990 Butler, McReynolds, J.). Hughes's apparent discussion. Otherwise, denying controlling 544-545, 1333, dicta, hypothetically unanimous consent, took "might protect [his] vot[e],' [, 975,] [b]ut event [he] nugatory law''). Just stripped validity), unable relation colleagues). hypotheticals offered briefs discussed during applicability Reply (positing hypothetical "first-term allowed "every disqualified partiality major her own district''); Tr. Oral Arg. ("QUESTION: [Congress] Iowa hog-farming half-a-vote. Would that?''). distinguished ground, ways. instance, argued similar court, depended "treated'' senators' "as questions.'' 979. federalism eliminated reinstate bill,'' assumedly two-thirds expected bill.'' Robinson, Public Choice Speculations Veto, 74 Va. L.Rev. 403, 411-412 (1988) (political costs congressional districts limit line-item veto). 544, 1333 ("Generally speaking, collegial bodies perfect body take''); Ballin, 144 507, 509, 321 (1892) houses representing larger constituencies. Power vested individual, aggregate compose body, separate whole''). traceable'' precedents require, appellees's actions colleagues passing ("Representative [the war Cambodia] defendants [Executive officials] ineffective herein''). parties, barriers, minimums. note, thereof, seek aid Judiciary. McGrain Daugherty, 273 135, 174, 319, 328-329, 580 (1927)). And, concede, 20-21, 25-28, duly agents, Diamond Charles, 476 54, 1697, 1703, 90 (noting defend statute'' court); ICC Oregon-Washington Nav. 288 14, 25-27, 266, 268-269, 588 (1933) agency designated 441-445, 976-978, (discussing cases). explains, distinguishable further implicate raised corresponding issue). paragraph shall, States: approve it, return Objections originated, enter Journal, reconsider Reconsideration thirds agree pa ss Bill, sent, together Objections, House, reconsidered, approved Law. Cases Votes determined Yeas Nays, Names Persons entered Journal returned ten Days (Sundays excepted) Same Law, Manner unless Adjournment prevent Return, Case Law.'' §7. respondents' assertion generalized administration 754, 3326, (1984), ensured distinct citizen assert. absence earlier strike relevant. others choose precluded doing authorize Declaratory Judgment 1934, 955, 1868 entirely surprising.

Classification Label: 8