Legal Document

350 U.S. 179 76 Supreme Court Reporter 281 100 L.Ed. 185 UNITED STATES of America, Petitioner,v.Abraham MINKER. Salvatore FALCONE and Joseph Falcone, Petitioners, versus Harold E. BARNES, Officer in Charge Immigration Naturalization Service. Nos. 35, 47. Argued Nov. 14, 15, 1955. Decided Jan. 16, 1956. Number 35: Mr. Marvin Frankel, Washington, D.C., for the United States. Jacob Kossman, Philadelphia, Pa., respondent Minker. 47: George Morris Fay, Falcone. Justice FRANKFURTER delivered opinion Court. 1 Because conflicting constructions by Courts Appeals Second Third Circuits § 235(a) Nationality Act 1952, 66 Statutes-at-Large 163, 198, 8 States Code Annotated KF65 U5 §§ 1101 et seq., 1225(a), we brought these cases here. 349 904, 75 582; 927, 774. They were heard sequence, and, since minor differences their facts are irrelevant to problems now before us, they may be disposed one opinion. 2 Section 235(a)1 provides that any immigration officer 'shall have power require subpena attendance testimony witnesses officers * relating privilege person enter, reenter, reside in, or pass through concerning matter which is material relevant enforcement this administration Service, end invoke aid court States.' The controlling issue presented whether section empowers an subpoena a naturalized citizen who subject investigation where purpose determine if good cause exists institution denaturalization proceedings under 340(a) Act.2 3 In District Director Service at accordance with 340.11 Service's regulation,3 instituted aforementioned purpose. furtherance inquiry into legality Minker's naturalization subpoenaed him give offices Prior required date his appearance, he moved quash Eastern Pennsylvania upon ground, inter alia, it was unauthorized Act. This motion denied, re Minker, 118 F.Supp. 264, no appeal taken. When thereafter failed obey subpoena, Court, on application Director, ordered appear testify. He disregarded order. After hearing adjudged contempt so doing fined $500. Circuit reversed, holding while available investigations directed toward proceedings, as putative defendant such proceeding not 'witness' within meaning section, was, therefore, without him.4 217 Federal Reporter, 2nd Series 350. 4 47, each petitioner served issued charge Syracuse, New York. subpoenas commanded petitioners' appearance testimony, them produce specified documents. appeared documents ordered, but refused sworn Thereupon order compliance made Northern York; court, denying authority, compel petitioners testimony. Application Barnes, 116 464. On appeal, Circuit, judgment reversed. 219 137. held permitted regulations. decision assumed, although did discuss question, petitioner, even though investigation, 235(a).5 5 brings us examination scope 235(a). It had its genesis 16 1917, 39 874, 885, dealt entering aliens With respect provided: 'Any commissioner inspector shall also said inspectors production books, papers, touching right alien States, *.' Obviously, provision strictly defined purposes could witnesses. aids investigating potential offenses. 6 1952 retained substance language 16. But word 'alien' changed 'person,' additional extended 'any Service.' If clause, following portion 'relating States', merely read 'and other relevant,' doctrine ejusdem generis would appropriately invoked limit pertaining questions admission deportation. comprehensive addition clause 'or Service', precludes narrowing reading. 'Act' encompasses full range subjects covered statute. together statute previously atomized immigration, nationality naturalization. unqualified use 235(a), ordinary English, embraces all itself title 'the heading cannot plain Brotherhood Railroad Trainmen Baltimore & Ohio R. Co., 331 519, 528 529, 67 1387, 1391—1392, 91 1646. Throughout given significance. entire statute.6 hand, when only particular referred to, designated such, reference employed.7 No justification appears treating 'section.' Thus far agreement. 7 We come then question two part ways construction namely, Falcone case Abraham Minker other, regulations, 'witnesses' officer' 'by witnesses' officers. answer depended whether, allowable English usage, fairly describe position Falcones, denied readily deemed cover persons not. short, patently ambiguous: can applied anyone gives proceeding, immediately potentially involves party, restricted another's case. 9 pertinent note breadth type ('any Act'), member empowered it. granted officer,' turn 101(a)(18) employee class employees Attorney General, individually regulation, perform functions thereof.' extensive delegated authority reinforces considerations inherent nature sought exercised make restrictive reading Janus-faced 'witness.' 'is capable oppressive use, especially indiscriminately returnable judicial officer. True, there penalty incurred enforcement. form official command, improvidently has some coercive tendency, either because ignorance rights those whom purports command natural what reluctance test subpoena's validity litigation.' Cudahy Packing Limited Holland, 315 357, 363—364, 62 651, 654—655, 86 895. 10 These concerns, ambiguously worded power, emphatically constitute first step calculated bring about citizens. See Schneiderman 320 118, 63 1333, 87 1796; Baumgartner 322 665, 64 1240, 88 1525. result 'loss both property life, makes life worth living.' Ng Fung Ho White, 259 276, 284, 42 492, 495, 938. situation doubt must resolved citizen's favor. Especially sensitive nonjudicial '(t)he difference security over administrative action supra, page 285, 495. 11 policy, determined Court's decisions requiring against adjudication citizenship deportation defining heavy criterion proof exacted lower courts from Government decreeing denaturalization, important guides reaching coherence law assumed congressional presuppositions, unless appropriate explicitness lawmakers inapplicable. Cf. Bell 81, 83, 620, 622. does bespeak depreciation zeal, nor disinterestedness, conclude compulsory ex parte examinations, untrammelled safeguards public adversary afford too ready opportunities unhappy consequences prospective defendants suits. 12 general find specific reinforcement provisions Act, wherein particularity. most striking example found 335 legislative history pertains petitions 335(b) provides: 'The General designate conduct preliminary examinations *. For hereby authorized take way affecting admissibility naturalization, administer oaths, including oaths petitioner's petition witnesses, Contrast 335(b)'s predecessor, 333(a) 1940, 54 1137, 1156: '* examiner oath witnesses.'8 Other examples Congress' careful differentiation between witness is, 236(a),9 242(b)10 336(d)11 13 All converge conclusion Congress provided sufficient clarity extends investigations; therefore done impliedly. Since so, called consider employer secure evidence, himself denaturalization. 35 affirmed; 14 Affirmed reversed respectively. 15 BLACK, concurring. States.1 traditional word, testifies quasi-judicial kind. summoning judge 'grand jury' kind, time acting capacity. Oliver, 333 257, 68 499, 92 682. broad follow up clues information might useful later civil criminal prosecutions suspected violating laws. See, e.g., 287, 233, KF62 1357, 1357; Regulations 287.1—287.5. object interrogate officer's private chambers try elicit possible seeking revocation (Minker's) *' Information obtained used circumstances away American convict perjury crime.2 capacity precisely same policeman, constable, sheriff, Bureau Investigation agent interrogates person, perhaps suspect, connection murder crime. Apparently never attempted vest FBI agents inquisitorial power. Indeed, construed enactments designed safeguard questioning behind closed doors. McNabb 318 332, 608, 819; Upshaw 410, 69 170, 93 100. And frequently set aside state convictions denial due process suspects prosecutors chambers. Watts Indiana, 338 49, 1347, 1801; Harris South Carolina, 68, 1354, 1815; Chambers Florida, 309 227, 60 472, 84 716. Yet persons, suspects, themselves Department claims less true federal 'aid' subjecting summoned questioning. 1225(a). after order, before, go him, out prosecution A aliens, much citizens, police practice dangerous individual liberty should absence clear unequivocal mandate. N Dec. Decisions think relied here read. hold wholly statutory summon not, testify matters. reason concur 17 finds sweeping 235 1101, 1225, 1225. That codification laws entry, exclusion, domestic control, aliens; rules procedures denaturalizing Primary responsibility vested chiefly subordinates 103, 173, 1103, 1103. 18 drawn sharp highly distinctions constitutional bar exclude strip citizens citizenship. Former country. Ju Toy, 198 253, 25 644, 49 1040; Harisiades Shaughnessy, 342 580, 72 512, 96 586; Shaughnessy rel. Mezei, 345 206, 73 625, 97 956. citizenship, acquired birth taken trial carries burden. 938; 1525; Gonzales Landon, 920, 210. Congress, apparently taking basic distinctions, divided different 'Titles' 'Chapters.' 235, relies here, Chapter IV Title II. II whole contains 'Immigration' 'Provisions Relating Entry Exclusion.' context officers, 'including special officers', indicates apply relation 'entry exclusion' matters entry exclusion. Such fit carefully devised pattern II, deals Even limited exclusion invalid. powers claimed more nearly defended, defended all, confining field treatment 19 Limitation investigatory control strengthened consideration III covers 'Nationality Naturalization.' cases, adequate reliance 235. adequate, measure inconsistent procedure. Looking procedure 332—336, 252—258, 1443—1447, meticulous care cases. sections provide own examining Without mentioning investigations, etc., carried General. An applicant witnesses.3 335(b), 255, 1446(b), subpoena. reports findings recommendations views examiner, conflict, reported consideration. persuades me actually conflict 332—335, 252—257, 1443—1446, 335.11—335.13. 20 seems clearer officers' applicable 340 260, 1451, Responsibility initiating placed district attorneys 'upon affidavit showing therefor Many grounds felony prosecutions. Under surprising expressly instituting attorneys, leaving manner grand juries courts. been authorize Nation's chief prosecuting government secret conduct, associations beliefs. Some countries officials. hoped country will. 21 DOUGLAS, 22 While agree reached do comparable controversies rege investigative support action. company 895 Morton Salt 632, 70 94 401. followed, denaturalized. contained 1952. 1451. canceling certificate ground procured concealment fact willful misrepresentation.' 340(a). Suit cause.' whose challenged days 'in answers 340(b). There pretrial governing One search vain suggestion supplemented So 60-day period 'empty words,' Judge Foley ruled 464, 469. As Hastie, writing below case, said, consistent proceedings. Cir., 350, 352. view would, s 23 another narrowly. deal tread ground. dignity status born save eligibility Presidency. community included protection guarantees Constitution. Those imperiled prior compelled furnish mouth evidence denaturalize him. proceed regard notions Due Process protect every vital eitizen. inspection, than physical mental examination, (including crewmen) readmission passing conducted except otherwise arriving ports examined discretion regulations prescribe. board vessel, aircraft, railway car, conveyance, vehicle believe being officer, believes through, necessary, written record evidence. Any coming comes, length intends remain permanently alien, become thereof, items will determining national latter, belongs excluded classes enumerated 212. jurisdiction inquiries may, event neglect refusal respond subsection demanded, testify, failure punished 'It duty respective districts, therefor, institute (a) 310 bringing suit, revoking setting admitting misrepresentation, effective original certificate, respectively: Provided, often years committee subversive activities, convicted refusal, person's having misrepresentation. Columbia last residence.' 'Investigation report. Whenever grant director known place residence. satisfied prima facie exist, report Commissioner recommendation instituted. violation 1425 Code, 1425, thereto prosecution.' irrespective court's raised. Mine Workers 330 258, 677, 884. Fifth view. Lansky Savoretti, 220 906. E.g., 215(g): 'Passports, visas, reentry permits, considered permits enter section.' 241(a)(2): shall, deported who—* entered inspection 290(a): 'There established office Commissioner, agencies central index, contain names heretofore admitted therefrom, insofar existing records hereafter sponsors record, any, proper Act.' 284: 'Nothing limit, restrict, deny, affect departure Armed Forces uniform of, bears identifying Forces, departing orders permit Forces: nothing confer privileges, rights, benefits, exemptions, immunities specifically 'While (§ 1940 Act) (naturalization) calling subpenaing petitioner. subcommittee feels proposed bill requirement attend hearings recommending.' S.Rep. 1515, 81st Cong., 2d Sess. 739. 236(a) 'A present receive interrogate, examine, cross-examine witnesses.' 242(b) deportability determinations, deportation.' 336(d) cross-examining produced call opposition favor granting proceedings.' 35. raise questions, say applies Falcones. 348, 267, 1459, 1459; 1621, 1621. 210, reversing 215 955. see Boyd 616, 524, 29 746; majority dissenting opinions Feldman 487, 1082, 1408; Adams Maryland, 347 179, 74 442, 98 608. General's 335.11—335.13, represented counsel counsel, assist introducing Furthermore based inadmissible emphasize obtain show completely independent procedures. 235(c), 236(a), 292, 199, 200, 1225(c), 1226(a), 1362, 1362; 235.15, 236.11—236.16.

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