Legal Document

392 U.S. 309 88 Supreme Court Reporter 2128 20 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 1118 Reuben K. KING, Commissioner of the State Dept. Pensions and Security, Alabama, et al., Appellants,v.Sylvester SMITH al. Number 949. Argued April 23, 1968. Decided June 17, [Syllabus from pages 309-310 intentionally omitted] Mary Lee Stapp, Asst. Atty. Gen. Montgomery, Ala., for appellants. Martin Garbus, New York City, appellees. Mr. Chief Justice WARREN delivered opinion Court. 1 together with every other State, Puerto Rico, Virgin Islands, District Columbia, Guam, participates in Federal Government's Aid to Families With Dependent Children (AFDC) program, which was established by Social Security Act 1935.1 49 Statutes-at-Large 620, as amended, 42 Code KF62 §§ 301 1394. This appeal presents question whether a regulation Alabama Department employed that Department's administration State's federally funded AFDC is consistent Subchapter IV Act, 601—609, Equal Protection Clause Fourteenth Amendment. At issue validity Alabama's so-called 'substitute father' denies payments children mother who 'cohabits' or outside her home any single married able-bodied man. Appellees brought this class action against appellants, officers, members Board Middle under § 1983,2 seeking declaratory injunctive relief. A properly convened three-judge Court3 correctly adjudicated merits controversy without requiring appellees exhaust state administrative remedies,4 found be inconsistent Clause.5 We noted probable jurisdiction, 390 903, 821, 19 869 (1968), and, reasons will appear, we affirm reaching constitutional issue. I. 2 The program one three major categorical public assistance programs 1935. See Advisory Commission Report on Intergovernmental Relations, Statutory Administrative Controls Associated Grants Public Assistance 5—7 (1964) (hereafter cited Report). category singled out welfare 'dependent child,' defined 406 629, 606(a) (1964 ed., Supp. II), an age-qualified6 'needy child * has been deprived parental support care reason death, continued absence physical mental incapacity parent, living with' several listed relatives. Under provision, insofar relevant here, aid can granted only if 'a parent' needy continually absent home.7 considers man qualifies its nonabsent parent within federal statute. therefore otherwise eligible basis his substitute not home. 3 regulation, 'able-bodied man, single, considered father all applicant mother' different situations: (1) 'he lives child's natural adoptive purpose cohabitation'; (2) visits (the home) frequently cohabiting mother'; (3) does frequent but cohabits elsewhere.'8 Whether actually irrelevant. It also irrelevant he legally obligated children, fact contribute their support. What determinative simply mother.9 4 testimony below officials responsible establishes 'cohabitation,' used means essentially woman have 'frequent' 'continuing' sexual relations. regard how continual these relations must be, conflicting. One official testified applied parties had sex at least once week; another thought months would suffice; still believed six sufficient. itself provides pregnancy baby age prima facie evidence father. 5 Between 1964, when became effective, January 1967, total number recipients declined about 20,000 persons, 16,000 22%. As case, caused termination appellees, Mrs. Sylvester Smith four minor children. 6 ages 14, 12, 11, 9, reside Dallas County, Alabama. For years prior October 1, 1966, they received program. By notice dated were removed list persons receive such aid. taken County authorities pursuant ground Williams came weekends her. 7 Three Smith's since father's death 1955. fourth left 1963, then. All live mother, except are family receiving type assistance, living, payments, salary between $16 $20 per week she earns working 3:30 a.m. 12 noon cook waitress. 8 Williams, alleged nine own wife family, whom dependent upon him He obligated, law, children.10 Further, willing able them. His required work help household. II. 9 based scheme cooperative federalism. generally Report, supra, 59. financed largely Government, matching fund basis, administered States. participate those desire take advantage substantial funds available distribution submit plan approval Secretary Health, Education, Welfare (HEW). 627 (1935), 601, 602, 603, 604. 21—23.11 conform requirements rules regulations promulgated HEW. 627, 602 II). HEW, Handbook Administration, pt. IV, 2200, 2300 Handbook).12 10 statutory 'aid families shall furnished reasonable promptness individuals *.' 64 550, 602(a)(9) above, 406(a) defines child' 'parental' absence, 'parent.' In combination, two provisions clearly require participating furnish home, respects eligible. Handbook, 2200(b)(4). 11 argues 'parent' s Act. submits legitimate way allocating limited resources it reduces caseload social workers increased benefits assistance. Two interests asserted allocation achieved regulation: first, discourages illicit relationships illegitimate births; second, puts there informal 'marital' relationship part ordinary marital relationship, because latter sort assistance.13 think well note outset what involved case. There no considerable latitude resources, each free set standard need14 determine level amount devotes program.15 30—59. regular actual contributions child, including kind person calls father, into account determining needy.16 words, man's contribution, financial need, ineligible rule. however, meet need requirements; makes contribution support; denied solely regulation. unrelated situation existence 13 Also case general power deal conduct regards immoral problem illegitimacy. raises may problems manner here—by flatly denying 14 argument discouraging immorality illegitimacy quite time history However, subsequent developments establish presently justifications disqualification. Insofar similar interest behavior illegitimacy, plainly conflicts law policy. 15 significant characteristic during last half 19th century country preference 'worthy' poor. Some poor worthy others unworthy supposed 'moral regeneration.' Haw. Hawai‘i KFH45 A2 Leyendecker, Problems Policy 45—57 (1955); Wedemeyer & Moore, American System, 54 Calif.L.Rev. 326, 327—328 (1966). worthy-person concept characterized mothers' pension programs,17 precursors AFDC. W. Bell, 3—19 (1965). Benefits programs, accordingly, customarily restricted widows morally fit. 7; 53. 16 context surprising both House Senate Committee 1935 indicate impose eligibility relating character' applicants. H.R.Rep. 615, 74th Cong., 1st Sess., 24 (1935); S.Rep. 628, 36 (1935). 79 Cong.Rec. 5679 (statement Representative Jenkins) During following years, many plans included making 'suitable homes.' 29—136 applied, suitable disqualified mothers. Ibid.18 17 1940's, increasing attack. Critics argued, example, disqualification undermined mother's confidence authority, thereby promoting dependency; forced destitute mothers earning money; habitually disguise systematic racial discrimination; senselessly punished impoverished behavior, while inconsistently permitting them remain allegedly unsuitable homes. 1945, predecessor HEW produced letter arguing recommending abolition. 51. Although abolished decade, numerous retained Ibid. 18 1950's, matters further complicated pressures disqualify Attempts made enact laws excluding siblings' birth status. 72—73. attempts failed pass legislatures, successful bills vetoed governors involved. 1960, agency strongly disapproved disqualifications. 73—74. Nonetheless, Louisiana enacted legislation requiring, condition precedent eligibility, 'suitable,' specifying born receipt unsuitable. Acts, 251 (1960). summer approximately 23,000 dropped Louisiana's rolls. 137. disapproving legislation, then Flemming issued now known Ruling, stating July 1961, 'A deny respect conditions unsuitable, continues efforts being either improve make arrangements elsewhere.'19 21 Congress quickly approved extending until September 1962, compliance. 75 77, 604(b).20 same time, acted implement ruling providing, temporary could placed foster homes after court determination former were, stated, 'unsuitable negligent parent.' 165, 87th (1961), U.S.Code Cong. Admin.News Page 1721. 76, 608.21 22 permanent provision entended coverage include child-care institutions. 76 180, 185, 193, 196, 207, 608. 1589, (1962), Admin.News, 1943. modified Ruling amending 404(b) statute permits homes, provided 'adequate assistance.' 189, 604(b). 23 Thus, 1961 1962 amendments permitted remove judicially determined so 'be contrary child.' 608(a)(1). terminate provide adequate (1962). precludes discourage births. most recent congressional corroborate policy rests considerably more sophisticated enlightened than 'worthy-person' earlier times. rehabilitative improving correcting 402(a), amended 201(a)(1)(B), 81 877, 602(a)(14) III); 406, 201(f), 880, 606 voluntary planning services reducing births, 201(a)(1)(C), 878, 602(a)(15) establishing paternity securing them, 602(a)(17) III). 25 sum, should dealt through measures rather punish protection paramount goal AFDC.22 light 1968 inconceivable, recognized,23 device absolute methods But method chosen III. 26 second justification 'there undertaking payment parents married, marriage.' couples long fair husband treated similarly. difficulty fails circumstance fathers very position cohabit men fathers: legal duty him, not. believe intended term 606(a), 27 broad legislative counteract depression. deeply concerned dire straits Nation themselves.24 agreement President's Economic declared, 'the core designed plight unemployment fathers. planned relief revival private industry' employment stated: 'Many present providing breadwinner family.' Implicit statement assumption supported 'breadwinner.' 28 unmet breadwinners. protect '(o)ne distinguishable group children.' composed 'breadwinner,' 'wage earner,' 'father,' repeated use terms throughout Committee,25 Hearings26 Reports27 floor debates28 perfectly clear. To describe mind, word 629 606(a). deceased, incapacitated absent. 29 decision here regarded deprive despite circumstances: did child; child. observes cannot determinative, fail presence render On before cogent answer. answer clear: meant individual owed state-imposed 30 clear, noted, expected 'breadwinners' secured expectation reasonably explained mind beyond paramour deserted benefit 31 parity reasoning, notwithstanding impropriety. economic security expect breadwinners.29 apparent neither nor some meaningful 32 view us assume Congress, arbitrarily leave entirely protection. told, told look food obliged Such interpretation intent unreasonable, decline adopt it. 33 Our sections Section 402(a)(10) requires that, effective 1952, must: 34 'provide prompt appropriate law-enforcement furnishing abandoned 602(a) (10). (Emphasis added.) 35 reported enforcement surely whose desertion first place. And obviously intend duties referred (as recognize),30 referrals institute non-support proceedings. 8100—8149.31 Whatever doubt might over proposition completely dispelled develop program: '(i) wedlock secure 37 '(ii) (or liable support) Another States, 1969, report 'parent order maintenance (dependent) by' court, payments. 211(a), 896, 602(a)(21) Still amendment cooperate locating petition filed compliance 897, 602(a)(22) 38 pattern clearer. Every effort locate child.32 underlying consistency dictate 406(a). seek lieu where owe unprotected provisions. 'parent,' 406(a), him. Consequently, believes necessary support, arguments addressed Court.33 IV. 39 written invalid 606(a).34 breached imposed obligation conclusion unnecessary consideration appellees' equal-protection claim, intimate views. 40 well, concluding, emphasize defected announce today. protected means, subject limitations, participation programs. Its economically undisputed taking 41 governmental agencies today recognize enormity pervasiveness ills poverty. causes cures poverty currently much debate. hold determination: fatherless transparent fiction Affirmed. 43 DOUGLAS (concurring). 44 follows route result N Dec. Immigration Nationality Decisions reach grounds. is, course, traditional our disposition cases should, possible, grounds, unless construction insurmountable. E.g., Harmon versus Brucker, 355 579, 581, 78 433, 434, 503. 45 do have, long-standing approves containing man-in-the-house provision.1 Certainly early construction, far ascertain one, entitled great weight. Power Reactor Development company International Union Electrical, Radio Machine Workers, 367 396, 408, 1529, 1535, 924. 46 balked reached nonmarital just house.2 Since distinguish categories, question.3 47 describes situations relief, none blame. hence turns 'sin' mother.4 48 First, purposes cohabitating her, cast outer darkness. Second, fate. 50 Third, likewise wholly cut off considering aiding financially so, so. 'sin,' paramour's wealth indigency 51 aimed punishing age, mother.5 52 day comparable held Amendment barred discrimination cause conceived invidious discrimination. Levy Louisiana, 391 68, 1509, 436. precisely here. say rational connection 53 judgment fully elaborated King, 277 F.Supp. 31, 38—40. APPENDIX TO OPINION OF MR. JUSTICE DOUGLAS, CONCURRING. 55 which, according 'man-in-the-house' policies Federal-State Children. Status revisions 56 date submitted 57 incorporation plan. 58 Revision 1964 59 60 Letter Nov. 13, pending 61 approval. 62 Arizona 1963 Latest revision incorporated May 63 24, 1967. Arkansas Aug. 1959 Jan. 1955 27, 65 Columbia. 66 1961; 67 District's manual 68 revised resubmitted 69 plan, 70 "man-in-the-house" 71 accepted 72 73 Florida Georgia 1952 74 Indiana previously Sept. 77 80 Kentucky Revised 82 1965. 83 Revisions 84 85 Michigan Apr. 2, 86 4, 1963. 87 Mississippi Feb. 1954 1966 subsequently 89 Missouri Oct. 1951 Hampshire 1948 90 Mexico page 91 92 16, North Carolina 93 Oklahoma 94 95 Mar. 96 correction clerical error 97 changed 98 sense 99 South 1956 100 Tennessee revisions, beginning 101 Texas 102 Virginia 103 originally 'Aid Children.' 627. bears title. name Services Needy Children,' 185. Throughout opinion, 'Every who, color statute, ordinance, custom, usage, Territory, subjects subjected, citizen jurisdiction thereof deprivation rights, privileges, immunities Constitution laws, party injured suit equity, proper proceeding redress.' sought restraining appellant enforcement, operation, execution statewide unconstitutionality, 2281. Service commission Southern R. Co., 341 341, 343, n. 3, 762, L.Ed. 1002 (1951). Lime Avocado Growers Jacobsen, 362 73, 568, 568 (1960); Allen Grand Central Aircraft 347 535, 745, 933 (1954). Jurisdiction conferred 1343(3) (4). holds views circumstances suits challenging courts. Note, Judicial Review Practices, Col.L.Rev. (1967). reject appellants' remedies bringing action. Pursuant requirement grant applicants 'an opportunity hearing agency,' 602(a)(4) review denials. Manual Administration Assistance, I, II, Pages V—5 V—12. Court, plaintiff Civil Rights 1983, 1343, remedies, challenge sufficiently substantial, convening court. Damico California, 389 416, 526, 647 McNeese 373 668, 1433, 622 (1963); Monroe Pape, 365 167, 180—183, 473, 480—482, 492 (1961). discussion courts practices, see (D.C.M.D.Ala.1967). qualify 18, student, 422, 606(a)(2)(A) (B) consider unemployed discussed infra, certain 607, chapter VI. appears father,' burden proving discontinued resumed. claim discontinuance 'corroborated acceptable references know. Examples are: officials; ministers; neighbors; grocers.' aid, review. statutes, 'natural parent,' 'legally acquired custody of' though lawful wedlock.' Ala. Code, Tit. 34, 89, 90; Ala.Code, 12(1), 12(4) (1965 Supp.). Law 238 428, 191 KF135 S69 803 (1939). interpreted 'publicly acknowledged own, parenthood' irrespective real 430, 803, 805 seems even stepfather 'voluntary parenthood.' Chandler Whatley, 206, 189 751 (1939); Englehardt Yung's Heirs, 534, 540 (1884); Nicholas Ala.App. 574, So.2d 422 (1946). emphasized intention requisite finding parenthood, 'should slightly (sic) hastily inferred (1884). has, correspondence concerning infra. Unless implementation. 601. partially 'in (state) failure comply substantially section title plan.' 245, 918, 604 61—80. Commencing subchapter grants ablebodied 'deprived 607. Participation obligatory advised participate. HEW's 3120, that: (under AFDC) income sufficient assure security, State. act recognizes depends existing State.' clear 'needy' Thus Ways Means Finance 'means.' Sess. debates Congress' intent. Vinson 'need law.' 5471 formula funding contained 603. discretion, varying percentage expenditures levels vary greatly average $224 Jersey, $221 York, $39 Mississippi, $53 Hearings H.R. 12080 Finance, 90th 296—297 Harvith, Albany L.Rev. 210, 226—227 Indeed, 'shall relative claiming 602(a)(7) Regulations comport restrict 'that are, fact, recipient current excludes merely assumed individual. 3131(7). 3123, 3124, 3131(10), 3131(11). Judge Brown, Relief 1929—1939, 26—32 (1940). Bell quotes record, displeased worker required, sign affidavit 'I hereby promise agree rescinded, male callers coming my meeting me elsewhere improper conditions.' 48. 452, Bureau Welfare. follows: 'The administering Act—aid children—that 30, terminated affected. your committee's bill become took described, action, 61st end session legislature, enactment section. affected sessions legislatures accordingly safeguarded withholding modify statutes involved.' 1720. Ribicoff Cohen relation 10032 Means, 294—297, 305 307 new emphasis began Kennedy Administration. President Kennedy, message observed communities attempted down arbitrary cutbacks met little success, 'communities tried road—the road recommended today—have demonstrated done creative prevention rehabilitation.' 10606 109 insight mood matter exchange House. Gross inquired Mills, Chairman Committee, status After brief Mills looking Hoffman asked 'these innocent born, necessities life.' replied, 'Oh, no; all,' agreed Hoffman's approach attempt prevent 107 3766 152—173. Both corresponded frequency policies. 1959, stated home' proposed raised questions conformity seemed births family. again August rejected Negotiations continued, responded newest proposal homes; later, denial remained assistance,' soon King's appointment Commissioner, undertook study led adoption When 604(b) proposals. Additional ensued, never H.R.Rep.No. 9—10 (1935) (characterizing tragic victims depression'); S.Rep.No. 16—17 (declaring 'heart child'). H.R.Doc.No. 81, 4—5, 29—30 4120 158—161, 166, 174, 262—264 S. 1130 102, 181, 337—338, 647, 654 17—18 5468, 5476, 5786, 5861 'will benefited industry.' state: 'Report law. These includes wedlock, established. apply stepparent.' 36. give 'under abandonment.' 8131(2). And, 10, bar appellee 3412(4) (providing stepparent parent). cooperation Internal Revenue missing 'parents.' 410, 897. whatsoever constitutionality hypothetical proposal. course controlling prohibition, money allotments disbursed, extent invalid. Ivanhoe Irrigation McCracken, 357 275, 295, 1174, 1185, 1313 (1958); Comm'n, 330 127, 143, 544, 553, 794 (1947). equally Appendix opinion. 36—38. Moreover, Court's resolve presented. having violation Amendment, unconditional injunction. revive chooses alone constitutionally (compare Glona Guarantee Liability Insurance 1512, 1515, 441) removing unfitness-action contemplated record indicates—there assist ensuring benefit. penalizing sins reminiscent archaic corruption blood, form attainder, recently context. George Campbell Painting Corporation Reid, 286, 289, 1978, 1980, 1094 (dissenting opinion).

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