Legal Document

393 U.S. 268 89 Supreme Court Reporter 518 21 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 474 Joyce C. THORPE, Petitioner,v.HOUSING AUTHORITY OF the CITY DURHAM. Number 20. Argued Oct. 23, 1968. Decided Jan. 13, 1969. James M. Nabrit, III, New York City, for petitioner. Daniel K. Edwards, Durham, N.C., respondent. Mr. Chief Justice WARREN delivered opinion of Court. 1 This case raises question whether a tenant federally assisted housing project can be evicted prior to notification reasons eviction and without an opportunity reply those reasons, when such procedure is provided in Department Housing Urban Development (hereinafter HUD) circular issued after proceedings have been initiated. 2 On November 11, 1964, petitioner her children commenced month-to-month tenancy McDougald Terrace, assisted, low-rent owned operated by Authority City North Carolina. Under lease, entitled automatic renewal successive one-month terms, that family composition income re ain unchanged she does not violate terms lease.1 The lease also provides, however, either or may terminate giving notice at least 15 days before end any monthly term.2 3 August 10, 1965, was elected president Terrace tenants' organization called Parents' Club. very next day, explanation, executive director notified would canceled as 31.3 After receiving notice, attempted through attorneys, phone letter, find out eviction.4 Her inquiries went unanswered, refused vacate. 4 September 17, brought action summary Durham Peace Court, which, three later, ordered removed from apartment. appeal Superior County, alleged being because organizational activities violation First Amendment rights. trial de novo,5 affirmed eviction, Carolina affirmed.6 Both appellate courts held under Authority's terminating petitioner's were immaterial. December 5, 1966, we granted certiorari7 consider denied due process refusal state afford hear ng which could contest sufficiency reasons. 5 February 7, 1967, while pending this HUD directing instituting proceeding local authorities operating all projects should inform 'in private conference other appropriate manner' give him 'an make explanation he wish.'8 Since application directive render decision on constitutional issues raised unnecessary, vacated judgment remanded 'for further light 7 Development.'9 6 remand, apply reaffirmed its upholding eviction. Analogizing rule statutes are presumed act prospectively only, court hat since '(a)ll critical events'10 had occurred date '(t)he rights parties matured determined * *' date.11 We again certiorari.12 reverse hold public must evicting still residing decision.13 In support judgment, makes arguments: (1) intended advisory, mandatory; (2) if mandatory, it unauthorized unconstitutional impairment both annual contributions contract with HUD14 agreement between petitioner; (3) even within HUD's power, constitutional, issued. reject each these contentions. I. 8 Pursuant general rulemaking power § Act 1937,15 has Low-Rent Management Manual,16 contains requirements supplement provisions applicable management.17 According HUD, 'are minimum considered consistent fulfilling Federal responsibilities' Act.18 Changes manual initially promulgated circulars. These circulars, yet physically incorporated into manual, temporary additions modifications manual's 'have same effect.'19 contrast, various 'handbooks' 'booklets' contain mere 'instructions,' 'technical suggestions,' 'items consideration.'20 9 Despite incorporation Manual October contends face purports only advisory. places particular emphasis circular's precatory statement 'believes' followed. addition overlooking significance subsequent Manual, argument based upon simple misconstruction language actually used. import language, characterizes new 'essential,' becomes apparent contrasted one superseded. earlier circular, May 31, stated: '(W)e strongly urge matter good social policy, Local Authorities tenants who given (termination) notices action.'21 (Emphasis added.) Manual. 10 That mandatory confirmed unequivocally letters written Assistant Secretary Renewal Assistance22 Counsel.23 As stated Bowles versus Seminole Rock Co., 325 410, 414, 65 1215, 1217, L.Ed. 1700 (1945), construing administrative regulation, 'a necessarily look construction regulation meaning words used doubt. (T)he ultimate criterion interpretation, controlling weight unless plainly erroneous inconsistent regulation.'24 Thus, treatment superseded there no doubt more recent merely advisory contended Authority. II. 11 Finding not, course, determine validity imposes.25 our remanding applicability, pointed pursuant rule-making 1937,26 authorizes HUD27 'from time (to) make, amend, rescind rules regulations necessary carry Act.'28 argues authorization limited Act's express policy 'vest(ing) agencies maximum amount responsibility administration program, including establishment rents eligibility (subject approval (HUD)), consideration accomplishing objectives effecting economies.'29 But policy. Its minimal effect 'responsibility administration' aptly attested own description what require: 12 'It purport change Authorities, nor take away legal ability evict complying pertinent State law relating evictions. It deal acceptable *. Moreover, Circular clearly say cannot term cause lease.'30 13 imposes requirement: comply tenants. Given admittedly insubstantial requirement basic discharges management responsibilities, contention violates congressional allowing retain control over financed untenable. 14 Due Process Clause Fifth powerless impose obligations except mutually agreed contract.31 If so limited, argues, free impair contractual unilateral action. case, impaired Authority, but contracts, 'by renders them invalid, releases extinguishes (or law) destroying (the) contracts derogate(s) substantial rights.'32 neither. respective remain unchanged. Each provision enforceable now issuance circular.33 Although supplements sense additional obligation contained contract, imposed wholly independent power. 16 Likewise, remains inviolate. Petitioner pay rent lease; and, itself acknowledges, subject eviction.34 type precede eviction; '(i)n modes forms enforce legislature control, enlarge, limit, alter them, deny remedy embarrass conditions restrictions seriously value right.'35 17 argue proscribed than Clause, remaining inquiry reasonably related purposes enabling legislation promulgated.36 One specific federal acts provide decent home suitable living environment every American family'37 lacks financial means providing governmental aid. A requiring explain why they apparently among people need assistance certainly furthers goal. therefore bear reasonable relationship authorized. III. 18 urges upheld theory relied Carolina: issuance. rule, decision.38 concerned embodied plicability governed law. Marshall explained 150 years ago follows: 19 '(I)f court, intervenes positively changes governs, obeyed, denied. & N Dec. Immigration Nationality Decisions know obligation. true cases individuals, will ought struggle hard against will, retrospective operation, affect parties, great national concerns decide according existing laws, set aside rightful rendered, law, aside.'39 20 reasoning applied where constitutional,40 statutory,41 judicial.42 Surely applies equal force made agency acting legislative authorization. Exceptions prevent manifest injustice,43 case. To contrary, particularly here. concedes extent engaging constitutionally protected activity;44 considerable difficulty effectively defending illegal disclose reasons.45 hand, infringe rights, constitute imposition. admitted during oral already begun circular.46 refuses simply decided vacated, fail see distinction. conclude, therefore, petitioner, designed insure fairer general, prescribed essential remove serious impediment successful protection IV. 22 holding establish guidelines hearing comports process. do sit, 'to abstract, hypothetical contingent questions advance necessity *.'47 able justify lease. event, vacate voluntarily contesting right removed. And challenges offered, well full insists essential.48 hearing, reason believe once told challenge their whatever courts. posture, claims premature.49 23 Reversed remanded. 24 BLACK, concurring. 25 here uses cannon dispose calls popgun. stated, brief argument, fully concerning possible issue Mrs. Thorpe, whom started effective memorandum housing, result judicial stays. agree, Nothing else decided. 'This shall automatically renewed month rental last entered acknowledged below Provided, hereof. event tenant, premises conform rates established approved current schedule adopted operation Project *.' terminated Tenant writing termination day term. fifteen (15) paragraph construed method forth lease.' construes authorize required violated his changed. Petitioner, government agency, all, unreasonable, arbitrary capricious Brief 27. reach See n. 49, infra. text 'Your Dwelling Lease provides cancelled notice. notify you your occupy.' attempts 1. affidavit filed members met police detective investigating conduct. attorney representatives request informed information uncovered investigation bearing All facts stipulated including: 'that S. Oldham, Executive Director present duly sworn testifying, testify been, any, Thorpe group organized specifically 1965 267 N.C. 431, 148 South Eastern Reporter, 2nd 290 (1966). 385 967, 87 515, 432. DEPARTMENT HOUSING AND URBAN DEVELOPMENT Washington, D.C. 20410 2—7—67 Office For Assistance To: Regional Administrators HAA Division Branch Heads FROM: Don Hummel SUBJECT: Terminations Tenancy Projects Within past year increasing dissatisfaction expressed practices projects. During period number suits throughout generally challenging advising manner, wish. informing reason(s) proposed action, maintain record housing. Such records available review following information: Name identification unit occupied. 2. Date 3. Specific example, undesirable actions, detail actions resulted determination instituted. 4. notifying conferences names participants. 5. final taken. above PHA Commissioner, dated Circular. s/ 386 670, 673—674, 1244, 1246, 394 (1967). 271 468, 471, 157 147, 470, 149. 390 942, 88 1045, 1130 (1968). stayed execution decision. result, 10(a) 1937, 50 Statutes-at-Large 891, amended, 42 Code KF62 1410(a) (1964 ed., Supp. III), enter authorities. guarantees certain money years. 1408 III). Administration, Id., o (preface) (April 1962). Ibid. 100.2, (Sept. 1963). Commission r Marie McGuire Directors, Central Heads, 1966. binding form manual. intends fullest ability. Letter Charles Ralston NAACP Legal Defense Educational Fund, Inc., July 25, 1967. Counsel 'views expressed' Hummel. Joseph Burstein Ralston, Aug. Accord, Udall Tallman, 380 1, 85 792, 616 (1965). Zemel Rusk, 381 1271, 179 supra. 26 673, 4, 27 transferred Public Administration 5(a) Act, 79 669, 3534(a), 1964 28 broad powers numerous bodies substantially language. See, e.g., 72 743, 49 1324(a) (Civil Aeronautics Board); 647, 1302 (Department Health, Education, Welfare); 52 830, 717o (Federal Power Commission). 29 Section 888, amended 501 1959, 73 679, 1401. 30 Respondent 21, 23. 31 prohibition U.S.Const., Article States, '(v) alid property, obligor individual, municipality, States. Rights arising Amendment.' Lynch 292 571, 579, 54 840, 843, 78 1434 (1934). 32 Home Bldg. Loan Assn. Blaisdell, 398, 231, 237, 413 statute challenged supra, fell first two categories. repealed 'all laws granting pertaining yearly renewable (War Risk term) insurance U.S., 575, S.Ct., 842. 33 far different presented party suit arguing repudiate failed circular. Cf. 34 425, 231. 35 Penniman's Case, 103 714, 720, 602 (1881). El Paso Simmons, 379 497, 508, 577, 583, 446 (1965); consistently affects E.g., placed limit reinstate claim previously forfeited lands; East N.Y. Sav. Bank Hahn, 326 230, 66 69, 90 suspending mortgage foreclosures 10th succession; Blaisdell extended mortgagors' redemption time. There principles making Permian Basin Area Rate Cases, 747, 779—780, 1344, 312 (1968), order limiting 'escalation clauses' sale natural gas; Regulations §§ 1.1—1.12 proscribe wide range racially discriminatory interests receive pre-existing contract. Civil 252, 2000d directs administers way grant, loan, guaranty effectuate section 601 (which prohibits racial discrimination program assistance) issuing rules, regulations, orders applicability achievement authorizing connection taken.' 36 FCC Schreiber, 279, 289—294, 1459, 1467—1469, 383 Trucking Assns., Incorporated 344 298, 307, 97 337 (1953). 37 1949, 63 413, 1441. Government 'having powers, functions, duties respect exercise declared 38 'A nisi prius requires changed law.' Ziffrin, 318 73, 78, 465, 469, 621 (1943). Vandenbark Owens-Illinois Glass 311 538, 61 347, 327 (1941); Chambers, 291 217, 434, 763 39 Schooner Peggy, Cranch 103, 110, (1801). 40 41 Carpenter Wabash R. 309 60 416, 84 558 (1940). 43 Greene 376 149, 615, 576 (1964), recover lost wrongful discharge 'vested' McElroy, 360 474, 1400, 1377 (1959), 'final' 'favorable' determination, 159, 621, wrongfully deprived employment. 44 'We contend that, leases purpose effective; thereby affected.' 11. 45 674—681, 1246—1251, (1967) (Douglas, J., concurring). 46 Transcript Argument 28. admission, counsel insisted require compliance id., 26—27, 28, 30—32, 48—49. He expressly suggested depart 'without violating kind 48. 47 Alabama Federation Labor McAdory, 450, 461, 1384, 1389, 1725 (1945). 18—20, 1281—1282, 179; Fruehauf, 365 146, 81 547, 476 (1961). 48 followed proves inadequate, hearing. detailed complaints program. considerations lead us conclude equally premature arbitrarily. appropriately fact

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