Legal Document

351 U.S. 345 76 Supreme Court Reporter 919 100 L.Ed. 1242 Cecil Reginald JAY, Petitioner,v.John Pacific KF135 P2 BOYD, District Director, Immigration and Naturalization Service. Number 503. Argued May 3, 1956. Decided June 11, [Syllabus from pages 345-346 intentionally omitted] MessersWill Maslow, New York City, John Caughlan, Seattle, Wash., for petitioner. Mr.John V. Lindsay, respondent. Mr. Justice REED delivered the opinion of Court. 1 Petitioner brought this habeas corpus proceeding to test validity denial his application under §§ 244(a)(5) 244(c) Nationality Act 1952, 66 Statutes-at-Large 215, 216, 8 United States Code KF62 1254(a)(5) 1254(c), Annotated KF65 U5 § 1254(a)(5), (c), discretionary suspension deportation. He contends that was unlawful because based on confidential, undisclosed information. The denied writ, holding, so far as pertinent here, that, 'after complying with all essentials due process law in deportation hearing determine eligibility deportation, (the Attorney General may) consider confidential information outside record formulating decision.'1 Appeals affirmed, concluding, inter alia, petitioner not 'denied consideration use information.' 222 Federal Reporter, 2nd Series 820, 820—821, rehearing 224 957. We granted certiorari, 350 931, 303, CFR, Rev.1952, 244.3, General's regulation which provides: 2 's 244.3 Use In case an alien qualified * section 244 determination whether shall be or (whether such is made initially appeal) may predicated upon without disclosure thereof applicant, if officer Board making would prejudicial public interest, safety, security.' 3 Following a hearing, fairness unchallenged, ordered deported 1952 pursuant (1946 ed., Supp. V) 137—3. That provided any 'who at time entering States, has been thereafter,' member Communist Party States.2 Petitioner, citizen Great Britain, last entered 1921. At he admitted having voluntary 1935 through 1940. attacked order courts below ground there 'no lawful power Constitution ow laws States' deport one who 'at no violated condition imposed entry.' But point abandoned, effect concedes deportable. See Galvan versus Press, 347 522, 74 737, 98 911; Harisiades Shaughnessy, 342 580, 72 512, 96 586. 4 1953, motion petitioner, withdrawn purpose allowing seek relief Act. filed thereon held before special inquiry Service.3 found deportation4—that is, met statutory prerequisites favorable exercise relief.5 decided did 'warrant action' view certain 'confidential information.'6 dismissed appeal, basing its decision 'Upon full evidence light available.'7 Thus, considering appeal reviewed well open record. then commenced present action. 5 As previously noted, provides 'may discretion' suspend deportable meets requirements relating moral character, hardshop period residence within States. If does provision, must file, 244(c), 'a complete detailed statement facts provisions 'case Congress, giving 'the reasons suspension.' So finally cancels only Congress affirmatively approves by concurrent resolution specified time. There express grant right For purposes effectuating these provisions, adopted regulations delegating authority officers;8 apply during hearing;9 putting burden applicant establish suspension;10 alien-applicant submit support application;11 requiring bearing applicant's relief;12 'written decision' discussion alien's granting denying application.'13 also promulgated attack see Page 2, supra, providing officers ruling applications safety security. 6 note suggest receive fair respect fact, recognizes favor issues those findings were Appeals.14 This favorably disposed petitioner's deportation—the first step procedure. we have here admittedly following unchallenged accorded another respecting qualifications 7 It urged invalid inconsistent claim, argues implicitly requires give said nullified rendered illusory challenged regulation, therefore invalid. nothing language base belief required spread considerations bear eligible relief. Assuming statute action, claim issues. Moreover, though assume issues, it follow exists ultimate decision—the discretion Eligibility involved governed specific standards provide eligibility. However, determining who, among applicants suspension, should left sound General. says aliens, 'may, deportation.15 restrict relied procedure exercised. Although aliens given cf. ex rel. Accardi 260, 499, 681, manifestly matter circumstances, but rather cases grace. Like probation criminal sentence, 'comes act grace', Escoe Zerbst, 295 490, 492, 55 818, 819, 79 1566, 'cannot demanded right', Berman 302 211, 213, 58 164, 166, 82 204.16 And unfettered analogous Parole's powers release federal prisoners parole.17 Even offer their applications, similarity between vested 244(a) hand, judicial executive parole other leads conclusion gives kind contemplates into decision. Clearly request after conviction courts.18 Nor parole.19 Since, hold, limited suggested requirement, cannot 9 consequent going decision, implicit 244(a). Section will recalled, file facts' granted, 'with mandate not, however, report denied. actually emphasizes fact right. interested limiting grants minimum. evidenced interest could opportunity accept reject administrative decisions. way suggests apprised suspension. 10 points 235(c) Act, 1225(c), specifically authorizes some circumstances excludable 'on basis nature.'20 argued had intended permit rulings expressly used 235(c). difficulty argument exception 236(a) 1226(a), determinations admissibility 'based produced inquiry.' No and, therefore, provision needed normally contemplated broad 11 next even 244(a), nevertheless Emphasizing terms authorize procedure, construed construction consistent 'tradition principles free government.'21 On face attractive argument. urges severity result flowing interpret resolving doubts favor. Cf. Minker, 179, 187—188, 281, 286, 287. adopt plain meaning statute, however severe consequences. 528, 741, 911. already stated, right, congressional direction, dispensed according combination factors are constrained construe permitting decisions matters record, least when action reasonable. 12 interpreted every involving where compelling reason refuse disclose application, contemplate arbitrary secrecy. limits instances where, Appeals, permits withholding alien, reasonable class power.22 13 Our strongly supported prior both Knauff 338 537, 70 309, 94 317, Shaughnessy Mezei, 206, 73 625, 97 956, upheld calling exclusion determined information, interest.23 again, statutes ruling. true resident constitutional protections unavailable nonresident seeking entry militate against construing ambiguous authorizing proceeding. Kwong Hai Chew Colding, 344 590, 472, 576. issue deportable, whether, gratuitous nature relief, more clearly than Mezei cases. 14 Concluding look related governing procedures. considered part 'hearing' deportability. 242.53(c) 242.54(d); 242.5. entitled 'submit believes officer.' 242.54(d). deportability, considered, 'fair impartial hearing.' 242.53(b). contain application.' 242.61(a). 15 conclude although none above-mentioned transgressed. While application,' merely evidentiary plea make unlike 'statement' 'information mitigation punishment' convicted defendant Rule 32(a) Rules Criminal Procedure sentence imposed.24 situation different taken up impartial' 'hearing.' precludes necessarily circumstances. read body procedures effect, possible, provisions. Lawson Suwannee Fruit & S.S Co., 336 198, 69 503, 93 611. 16 same rationale us requirement containing 'reasons' fully complied 'without applicant.' Reading follows reliance constitutes disclosed need be, former mandate, certainly comprehends latter satisfied invocation provision. 17 general plan dealing obtained citizenship residence. Since readily unusual hardship extenuating hold properly exercised affirm judgment below. 18 ordered. 19 Affirmed. 20 Chief WARREN, dissenting. 21 conscience, N Dec. Decisions agree majority. sacrifices form too much American spirit play our processes. 22 humanity, relieve harshness immigration laws, gave do believe 'an discretion,' stated opinion. manner use. General, recognizing this, rightfully discretion. numerous subordinate might, spite establishing deny if, 'confidential' 'prejudicial Such sense term. hearing. 23 Yet, 40 years tearing relatives friends country fought sustain,* shows offended bears good reputation, suffer great deported. Due Process Clause protects 'persons.' To me, process. sanction confirmed reasoning, recognized principle extended citizens myriad ways. 24 am unwilling write departure impute intention absence clearer here. 25 BLACK, 26 strange dedicated founders maintenance liberty law. Jay, being banished His membership violate political organization candidates many state elections. Jay's ended Congress. 64 1006—1008. past membership, wholly legal existed, Jay deported.1 27 can invoke suspended. 163, 214—216, (c). 'in 'proves' preceding person character exceptional hardship. plainly 'prove' things can. course means asked allowed proof proved satisfaction passed it. information' refused appeal. 28 now 65 age. came England permanent 1914. remained since except served army ally Canada First World War. Despite Government's far-flung investigative network able dig single incident misconduct entire willing produce court.2 enforced exile work 'exceptional extremely hardship' officer. 29 CHIEF JUSTICE, FRANKFURTER DOUGLAS others like him alleged anonymous beyond majority holds otherwise. makes necessary constitutionality purpose. Footnote states, somewhat aside, herein difficulty.' easy fashion disposes challenge banish people allegedly persons whose names revealed statements (if made) shrouded darkness surrounds 30 What meant information'? According Service 'merely received off street'; 'what might termed hearsay evidence, gotten *'; position detrimental interests person's name 'such things, perhaps, income-tax returns, maybe witness didn't want disclosed, endanger life, something *.'3 nation remain ideal homes destroyed lives blasted slurs unseen unsworn informers. possible contest truthfulness accusations. supposed accuser neither identified nor interrogated. most worthless irresponsible community. malicious, untrue, unreliable, inaccurately reported. court triers listent gossip, less decide trifling 31 today content gossip. condemned 'unfettered subject review Appeals. Of refers participation fiction. Note personally Therefore, subjects Service, reviewable Under system government life freedom individual 'unfettered' or, accurately, 'arbitrary' another. Article III Bill Rights intend people4 valuable rights privileges away them unless deprivation occurs witnesses confronted questioned know individuals protected. 32 Unfortunately, recent approved take vital people.5 what done saying stay proves grace,' 'probation sentence.' come crime. Williams People State York, 337 241, 1079, 1337. Here Government resources prove ever committed crime kind. get character. Viewed realistically integral deciding 33 amount reasoning rationalization devised disguise country. Unfortunately think save techniques tyranny. One technique always maintain absolute totalitarian governments obnoxious rulers.6 connection this7 referred Roman Emperor Trajan Pliny Younger around end Century. Rome prosecuting Christians subversive activities. expressed best method handling prosecutions. wrote Trajan, 'An laid me charge several persons, examination they Christians, so. *' replied, 'You course, my dearest Secundus, investigating charges you. Anonymous informations ought sort prosecution. introducing very dangerous precedent, quite foreign age.'8 34 brave age birth comprehensive safeguards trials. defendant's fate independent judges juries hear presence accused.9 how departed carefully conceived safeguard liberty. pays lip service review, officer's condemnation final unreviewable. defiance testimony given, rests exclusively claims unrevealed sources. unusual—it manifests popular days fear. Legal rationalizations10 contrived shift trials temporary removable appointees Jay.11 accused rises defend himself 'We you guilty something, tell what, evidence.' If, taking seriously complains, impatient rejoinder jeopardized trial commands.12 core never shortcuts, with. grave danger. fact. Prosecution still dangerous, just rejected nearly two thousand ago. Those prize ponder this. 35 FRANKFURTER, 36 Oct. 16, 1918, 1012, 137, amended, 1006, 1008, 137—3, automatically Entrusted relaxing dire consequence suspending 214, 1254(a)(5). authorized ten grounds arose, finally, would, 'result hardship.' Finds three conditions satisfied, deportation.' feature obviously designed drastic turn out misdeed, often unthinking foolishness, long genuine repentance evolution worthy society. 37 By responded dictates humanity. But, utmost severity, appropriately define mode alleviation. seen fit agent quality mercy, discretion.' dispensation can, doubt, withhold accounting anyone, recourse review. evidently leave conscience chief Government, head Department Justice, carrying humane protection interest. 38 desire expose day impart stake, thereby innocent family, leaves invest subordinates over men. 39 unmindful burdened vast range duties, he, too, twenty-four hours day. sure, predecessors administration President Taft's Secretary Commerce Labor, examined lodged. Alfred E. Smith Governor records hundreds each year clemency. wisdom devises responsibility discretion, delegate (That delegated preclude see, e.g., Canadian case, Attorney-General Brent, (1956) D.L.R.(2d) affirming (1955) D.L.R. 587.) devises, devised, arbitrariness ruled out. invokes aid law, agencies defy presuppositions square conscience. shelter behind appearance procedure—a law—and yet infuse basic system. See, Ohio Bell Telephone company Public Utilities Comm'n, 301 292, 300, 57 724, 728, 81 1093. 41 Eisenhower explained fundamental code. A code human Wild Hickok's Abilene, Kansas: 42 'It was: meet anyone whom disagree. You speak behind, damage him, suffering penalty outraged citizenry. took risks did, almost anything, bullet front. 43 'And today, fortune, think, Kansas, live code, your ideals qualities. country, someone dislikes you, accuses hide shadow. assassinate penalties citizenry impose.' Press remarks President, November 23, receiving America's Democratic Legacy Award dinner occasion 40th anniversary Anti-Defamation League. 44 philosophy embodied rules us. sustained put deserving family disrupted. respondent 'appears deportation,' finding upset meeting notice conspicuous instances, negligible number, turned either baseless false. illustrate hazards inherent affecting fellow men probabilities contrary. justify itself assumption ' available impregnable likely true. When scrutinizes information,' events unable carry solely whatever chooses upon, devise shifting elementary decencies advise inability extraordinary reposed subordinates. 45 reverse. 46 DOUGLAS, 47 1953 interesting Americana. Brother says, Americana highly relevant problem. said: 'In impose.'1 48 bit question word. Fairness, notions process, accusers, reply charge, accusers. assumed lively demands. 49 especially involves classical words Professor Zechariah Chafee, Jr., book Blessings Liberty (1956), 35: 50 'One important benefit confronting suspect accusers cross-examine rigorously dubious statement. old Sir Matthew Hale 'beats boults truth better.' Add old-fashioned value open. Accusers secretly confer private official couple clerks may, Hale's time, 'oftentimes deliver ashamed testify publicly.' An honest feel differently repeat story looking man harm greatly distorting mistaking facts. understand is. false witness, tribunal learn reading F.B.I. abstract story. pathological liar personal enemy longer piece paper.' 51 Peters Hobby, 349 331, 350—352, 75 790, 799, 800, 99 1129; O'Brian, National Security Individual Freedom (1955), Pages 61—63. 52 Harry Cain, Subversive Activities Control Board, recently joined endorsing play:2 53 traditional efforts protect oppression state, basically primarily confrontation cross-examination. judge minimize fullest desired extent mistakes humans make. Without means, impossible anything enemies consist malice, vindictiveness, mistaken identity, intolerance, prejudice, perverted destroy.' 54 faceless informers deprive un-American lean backwards avoid imputing 244. Judge quote Findings Fact Conclusion Law, Record 15, 17—18. similar contained 1251(a)(6)(C), 1251(a)(6)(C). submitted 242.6. 'As later 1940, elapsed status Evidence consisting affidavits acquainted respondent, together employment records, investigation satisfactorily establishes physically continuous past. check local reveals investigation, above tend immediately '* extreme separated friends, find lack funds. appears deportation' (1) arose; (2) 'proves character'; (3) 'whose petition writ alleged, belief,' officer, appeared list circulated Committee Protection Foreign Born, designated parte. claimed 'Solely (his) appearing list, prejudged *.' Return Order Show Cause, prejudged. substance 'exercised relief.' 280, 746, 1074; Marcello Bonds, 302, 757. apparently abandoned allegation certiorari Court, indirectly raises again claiming 'entitled proceedings so-called applicable established General.' direct assertion prejudgment. prejudgment n. 22, infra. further 242.61(e) 6.1(b)(2), 6.1(h)(1). 242.6 quoted supra. suggest, conclude, expected personally. doubt conferred administrator capacity such, rulemaking authority, convenience, 173, 1103, 1103. Ibid. 242.53(c). notes 5, accompanying text. 1940 adding new 1917. 672, 62 1206, 155(c). enacting added phrase may.' analysis draft legislation leading prepared assistance committees, indicate entirely committees. S.Rep. 1137, 82d Cong., 2d Sess., 3; H.R.Rep. 1365, 28. Learned Hand, 'The dispensing power, judge's execution President's pardon convict.' Kaloudis Cir., 180 489, 491. 25, indication grace cover Cong.Rec. 5546, 5553, 5554, 5561, 5569—5570, 5572, early proposed variously described 'clemency' 'amnesty,' compared presidential 1515, 81st 600, emphasizing compliance formal requirements. (of Parole) incompatible welfare society, prisoner parole.' (Emphasis supplied.) 4203, 4203. Anderson Anderson, 375, 376; Losieau Hunter, 90 U.S.App.D.C. 85, 193 41. sentencing place probation' 'satisfied ends justice thereby.' 3651, 3651. presentence imposition 32(c)(1), Fed.Rules Crim.Proc., about characteristics, financial behavior helpful imposing correctional treatment defendant, Court.' 32(c)(2), Crim.Proc. 'Before afford own behalf punishment.' 32(a), 1085, 1337, bar setting 'out-of-court 'If Parole proper institutional parole, probability violating 4203(a), 4203(a). 4202, 4202. upholding existence authority. contrary render unconstitutional, substantial arise. thrust liberally interpretation. event, normal rule interpretation constructions rise doubtful voided. clear meaning. E.g., Sullivan, 332 689, 693, 68 334, 92 297; Hopkins Savings Loan Association Cleary, 296 315, 334—335, 56 235, 239, 240, 80 51. difficulty. presents void 'so-called 6, revealed, arguing 244.3. concluded, finding. Nothing regulation. incorporated 1225(c). 10—11, 18, Petitioner's original 1914 War serve Armed Forces neighbor ally, Dominion Canada. conduct occurred Douglas dissented. April sent message Senator Arthur Watkins attention Jay. listing 'injustices' exist to: 'Deportation entry, irrespective ago involved, active (sic) affiliation 'subversive.' terminated conducted model American.' 4321. Included affidavit Assistant Executive Director Seattle Housing Authority employed stating: 'Mr. rated conscientious faithful employees Authority. honesty unquestioned. working additional responsibilities compensation. forthright opinions. complaint tenants relationships people.' Hearings House Subcommittee Monetary Affairs Operations: Practices Procedures Deportation Proceedings, 84th 1st Sess. 67, 138, 207. mean Constitution. Brewer protected Amendments: word 'citizen' found. descriptive 'people,' fifth broader, 'person,' sixth 'accused,' while third, seventh, eighth limitation beneficiaries word.' Fong Yue Ting 149 698, 739, 1016, 1032, 905 (dissenting). Ludecke Watkins, 335 160, 1429, 1881; 317; 956; Joint Anti-Fascist Refugee McGrath, 341 123, 71 624, 817; Carlson Landon, 524, 525, 547. Recently Nikita Khrushchev reported told 20th Stalin violated: existing norms morality Soviet laws. 'Abritrary encouraged permitted others. Mass arrests deportations thousands people, created insecurity, fear desperation. Communists slandered, accusations fabricated, revolutionary legality gravely undermined.' Release, 4, 1956, 8—9, 14; Washington Post Times Herald, cols. 1, 6. 552, 540, 547 (dissenting opinion). Harvard Classics 426—428. Toth Quarles, 1; re Oliver, 333 257, 682. Kinsella Krueger, 470, 886; Reid Covert, 487, 880. Bradley Boyd 116 616, 635, 535, '(I)llegitimate unconstitutional practices footing way, namely, silent approaches slight deviations modes obviated adhering security property construed. close literal deprives half efficacy, gradual depreciation consisted substance. duty watchful citizen, stealthy encroachments thereon. dissenting 744, 1034, 905. Accardi, 290—293, 751, 752, 1074 (dissenting); 17, 5. destruction guilt essential dictatorships. After murderous purge German Hitler reproaches asks why resort regular offenders, say this: hour responsible became supreme Justiciar people! bring objection precisely weigh measure expiation, lodge solemn protest. Germany traitor country: punished act, revealed.' Speech Reichstag July 1934, Hitler's Speeches (Baynes ed. 1942), 321—323. Russian purges 1930's directive initiated Stalin, stated: 'I. Investigative directed speed preparation acts terror. 'II. Judicial organs death sentences pertaining crimes category possibility pardon, Presidium Central USSR petitioners sort. 'III. Commissariat Internal execute criminals passage sentences.' 15; 8. B'Nai B'Rith Dinner Washington, D.C., reads follows: 'Why proud? proud, all, beginning Nation, walk upright, she upright friend enemy; suddenly thrown jail rot justice. 'I raised little town heard. West famous place. called Kansas. Marshal named Hickok. don't Westerns more. Now boy sneak Address Civil Liberties Union, February

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