*1 change consider Court remand the circumstances, we
parties’ case to it.22
Remanded. NORTON, Appellant, L.
Cliffоrd Appellees. al., et John MACY No. 21625. Appeals States United Columbia Circuit. District Argued Jan. July Decided Rehearing Denied Petition 20, 1969. Oct. Tamm, Judge, dissented. guard- significantly, and, perhaps See 28 U.S.C. § inal reported the court ian litem ad property personal at all. no he discovered
review of his for “immoral possessing personality conduct” and for traits render him for “unsuitable employment.” further As a Government preference eligible, could be veterans he only for as will “such cause ^dismissed ''promote of the service.” sug- Since the reсord before us does gest any reasonable connection between the evidence effi- him and the cieney service, we conclude
unlawfully discharged. was he
I grew Appellant’s dismissal out of his arrest for a traffic violation. In early morning 22, 1963, he October driving vicinity was his car in Lafayette pulled Square. He th'e over to curb, picked up one Madison Monroe Procter, drove him once around Square, dropped and him off starting point. The two men then drove separate Squad off in cars. Two Morals having sequence officers, observed this Grаves, Mr. R. with Whom Mr. Glenn events, gave chase, traveling speeds Washington, Karr, C.,D. was John W. up per park to miles hour. brief, appellant. for ing lot of Southwest Wash Greilsheimer, Atty„ De Mr. James G. ington apartment building, told Procter Justice, partment of the bar leg police appellant his had felt York, pro Supreme hac Court of New during Lafayette their brief circuit of ap vice, court, by special for leave Square ap and had then him to invited . Atty. pellees L. Edwin Asst. Gen. pellant’s apartment for a The of drink. filed, Weisl, brief Jr. at the time the was ficеrs arrested both men took them Bress, Atty., at David U. S. Messrs. G. “to Morals a traffic Office issue Q. filed, Prank the time the Nebeker, was brief violation notice.” Atty. time at the Asst. U. S. Pending issuance traffic sum- Eldridge filed, C. the brief was John mons, police interrogated appellant Attys., Kopp, Department E. and Robert concerning Procter two hours brief, Justice, appel were on the evening and their activities Johnson, S. A. Asst. U. lees. Mr. Julius Meanwhile, pursuant sexual histories. appearance ap Atty., also entered an arrangement, to an of the Mor- head pellees. Security Squad telephoned als Judge, BAZELON, Chief Before Fugler, the scene Chief arrived on who TAMM, Judges. WRIGHT last a. in time to hear the 3:00 m. interrogation. Fugler was then Judge: BAZELON, Chief shown the officers’ arrest confidential budget Appellant, permitted former in- GS-14 record cognito to monitor and was analyst interrogation ap- Aeronautics National a 20-minute (NASA), pellant especially seeks Space Administration held for his benefit. (1964), recodified in 5 2. The leaves § 1. 5 U.S.C. record unclear whether 7512(a) (Supp.1965-68). were before or after Procter’s § arrested U.S.C. statement. steadfastly Throughout, appellant denied conduct.” It also determined Fug- advance he had made a homosexual basis his own admissions ler, subsequently clarified, ap- even as to Procter. pellant possesses of character and “traits given his traffic last, At personality which render [him] Fugler him- then identified summons. *3 unsuitable for further em- Government appellant him down and invited to self ployment.” Appeals A Civil Ex- Service There, in a second- to for a talk. NASA Appeals aminer and the and Board “Tempo L” floor offiсe of the deserted ap- upheld Review these conclusions. building, Fugler colleague inter- a and pellant's reinstatement, action for rogated a. m. Dur- him until after 6:00 granted appellee’s District Court motion alleged- interrogation, ing appellant this summary judgment. for engaged in mu- ly he conceded that had males in other tual masturbation with college, high he some- that school and II desires experienced homosexual times Congress provided pro that has drinking, he rare occasions that on while tected civil servants shall not dis- bе undergone temporary af- a blackout had except missed “for such as cause drinking, occa- that on two such and ter will} promote the of the service.”/ suspected en- he he sions regula The Civil Service Commission’s gaged activ- of homosexual some sort provide appointee may tions that an exper- ity. he had said that He also removed, alia, inter for “infamous Procter, he met a ienced blackout when * * *, notoriously immoral, or recalling only he invited that had graceful “any conduct”3 and for up a man fоr drink. disqualification other which makes reply to a Subsequently, in his formal individual for the service.” We unfit dismissal, appellant proposed notice of appellant think —and does not strenuous homo- specifically was a that he denied ly deny the evidence was suffi —that ad- sexual, he made an indecent that had charge that, cient to con sustain the Procter, he had know- that to and vance sciously not, or he made a homosexual ingly ac- engaged in homosexual Accordingly, advance to Procter. Procter, during tivity life. his adult question presented is whether such however, in a written state- confirmed advance, appellant’s personality or traits gave police story he ment-the record, as disclosed are “such “it that and stated
time of his arrest
re
cause” for
removal as the statute
to be able
idiot
would take an
quires.
figure
[appellant]
wanted
he
that
he
said
on me.” Procter
have sex act
The
Fifth Circuit Court
appellant
before
that
had never
seen
Appeals recently
a
refused to consider
night.
substantive
attack on
dismissal
аppellant
private
conduct, apparently
did
that
concluded
believing
authority
on
it
re
advance
that
had no
make a homosexual
fact
act amounted
a Civil
de
this
view
merits
Service
October
disgraceful
“immoral,
indecent, and
termination
of unfitness.5
The courts
(1968).
discharge.
731.201(b)
be the
basis
That conten
§
3. 5 C.F.R.
accepted by
tion is not.
this
See
Court.
731.201(g)
(1968).
4. 5
§
C.F.R.
Hargett
Summerfield,
U.S.App.
v.
(5
Anonymous
D.C.
and we do not understand
out further
if
immoral
jurisdiction
purports
employee
is
to do so. Its
or
acts of
indecent
an
things
are
on
confined
some ascertainable deleterious effect
least
range
efficiency
of
Caesar’s,
standard
of
avowed
the service. The
“immorality”
pre
might
no more than "the
is
of conduсt which
to af
be said
society.”
vailing
prevailing
front
mores
our
mores is so broad and
(1963);
Hodges,
sion,
Society
Wash-
2d 749
Pelicone
to The Mattachine
brief,
U.S.App.D.C.
p.
ington,
In his
Feb.
3.
says:
appellee
supra
States,
15.
v. United
Carter
little
There can be
doubt
the Commis-
U.S.App.D.C.
F.2d at
properly
Nor-
sion could
determine that
Homo-
conduct was “immoral.”
ton’s
Supra
commonly
considered
sexual conduct
prevailing
under
mores
“immQral”
17. Id.
society, as
ob-
our
the Commission
at 752.
[i.e.,
policy
in a 1966
statement
served
Macy, supra]
Macy, Jr.,
from
from Chairman
Lеtter
John TV.
Chair-
the letter
subsequent
man,
here.
States
United
Civil Service Commis-
issued
its decision
event,
hardly
authority
was,
of what
in
varied that we can
arrive at
holding.25
reference to
such conclusion without
specific
a narrow
Thus,
conduct.
we think
em-
The homosexual conduct
an
sufficiency
charges
appel-
of the
ployee
bear on the
in
of the
lant must be evaluated
terms
ways.
Be-
the service
a number
par-
on
of what
effects
the service
blackmail,
potential
it
cause
he has done or has been shown might
security
(ticular
jeopardize the
of classi-
(cid:127)
likely to
to be
do.19
fied communications. As
acknowl-
we
edged
Halaby,
it
in some
Dew v.
unstable
IV
circumstances be evidence
an
personality
for certain
unsuited
kinds
Halaby,
upheld
over
Dew v.
employee
If
work.
makes offensive
strong
dissent the dismissal of
air
job,
if
overtures while on the
or
his con-
predicated
part
traffic
controller
notorious,
of other
duct is
employees
the reactions
homosexual acts he had committed some
public
whom
and of
with
years
not con
befоre.20 That case does
performance
in contact in the
he comes
controversy,
present
trol
since
taken in-
his official functions
special
posi
tested on
demands
poten-
or not such
account. Whether
entailing continuing responsibility
tion
removal,
justify
consequences
tial
many
lives21
fact that
broadly
to “the
relevant
are at
employee
“new
was a
hide,”
with
of the service.”
something
not an established
employee
subjected
peculiar
dis-
who had
to a
The
feature
been
investigation. Moreover,
missal,
on none
however,
it rests
mid-career
granted
Supreme
possible
in of
on the service.
these
effects
certiorari
him,
fired
Mr.
Dew.23
The
official who
writ was dismissed
agreement
Garbarini,
appellant was a
parties
testified that
FAA
when the
good”
doing “very
“competent employee”
*6
Administrator rescinded his
ac
adverse
fact,
appellant,
was “not wor-
tion
work.
Garbarini
reinstated
appel-
granted
any possible
him,
effect on
pay.24
ried” about
him
If
and
back
performance,
to
went
far as
lant’s
and
so
these
not
official actions
be deemed
inquire
personnel
“if
error,
history
of
officers
there
a confession
of
prob-
any way
this kind
around
case at least casts considerable doubt on
contrary
ground
experience
say,
U.S.App.D.C.
Macy,
to
and
19. See
121
Scott
agency’s judgment,
207-208,
182,
efficien-
184-185
removing
promoted by
cy
will not be
by
post
was held
one from such a
as
Supra
appellant
20.
had ad-
note 13.
questioned
appellant, when his
“conduct
committing
mitted
at least four unnatural
past
or'capacity”
did not demon-
malеs,
sex
for
acts with
some
them
stability,
character,
qualities of
strate
years
age.
pay, when he was
or 19
responsibility.
and
marijuana
He
also
had
smoked
on several
176-177,
Id.
weighs
par-
of a
loss
the service
V
competent employee.
ticular
rely
obliged
Thus, appellee
is now
appellee
In the instant case
has
solely
possibility of
on this
embarrass-i
specific
shown us no such
connection.
justify
agency
appellant’s'
ment to
most
Indeed,
the record
is at
dismissal. The assertion of such nebu-
offеnder,26
extremely infrequent
who
poses perplexing problems
lous “cause”
openly
carelessly
neither
nor
flaunts
proceeding
ac-
for a
must
review
plays
his unorthodox sexual conduct
cord broad discretion to the Commission. public.27 Thus,
potential for
even the
do not
blushes
We
doubt
the embarrassment the
fears
caught
one of
own is
whenever
unparticularized
think the
minimal. We
flagrante delictu;
possibility
if the
but
conclusion that such
and unsubstantiated
transitory
of such
institutional discom-
possible
threatens
embarrassment
accepted
uncritically
fiture must
agency’s performance
quality
“pro-
a cause for
which will
arbitrary ground
service,”
for dismissal.28
mote the
*7
position,
dispensable
Apart
duties of the
he
from the incident after which
reasonably
arrested,
suspected
determine wheth-
and then to
was
said he
applicant’s
engaged
is inconsist-
condition
homosexual
er the
he
have
in
possession
quali-
activity
grad-
of these
ent with the
on three occasions since his
rendering
college.
him unfit
ties to the extent
from
uation
position.
of the
assume the duties
to
he
ever
There is no evidence that
Times, May
1969, pp.
New York
pub-
engaged
offensive conduct
widely accepted
study
The most
light
His
came to
lic.
conduct
practices
estimates
American sexual
only through police investigative
tactics
per
the American
cent” of
“at
questionable legality.
See note
of at least
population
homo-
least one
male
have
34, infra.
experience during their
lifetime.
sexual
Pomeroy
Martin,
Kinsey,
Be-
&
Sexual
the Civil
We note that
Service Commis-
City
Human Male 623
re-
havior
sion of the
of New York has
excluding
per-
so,
policy
cently
con-
If this is
that homosexual
determined
engaged
employ-
con-
in homosexual
sons who have
is not an automatic bar to
duct
employ
government
City. Rather,
by
would dis-
the
duct from
the
Commis-
ment
public
says:
qualify
over one-third
service
sion
population.
Policy
result
This
would
to a
male
that with reference
of the
dictates
devastating
inherently
applicant
absurd and
commission
be both
public
per-
public
required
The
service
service.
to determine
consequenсes
protected
qualities reasonably
in-
from the
considered
is
sonal
Appellee
the eases
apparently
relies on
which have
the Civil Service Commission
invariably discharge
dismissals on account of finan-
sustained
does not
fi-
known
irresponsibility.29
delinquents:
agencies
cial
of these
Some
nancial
ex-
are
have,
indeed,
pected
good
employee’s
cases
cited the risk
to consider the
31 to
persuade
“embarrassment”
or “discredit”
faith and to make efforts to
employing agency;
pay
but the risk to
possible;
him to
his debts as soon as
special
only
unrepentant
which
refer involves
kind
inveterate and
dead-
wages
gov-
by
disciplined
embarrassment. The
beats are to be
dismissal.33
employees,
ernmental
unlike those of oth-
any doubt,
Lest there be
em
we
garnish-
employees,
subject
er
are not
phasize that we do not hold that homo
Creditors,
deprived
ment.
thus
of an
may
sexual conduct
never be cause for
security
device,
important
and collection
protected
dismissal of federal em
n
may
importune
frequently
а federal em-
ployee. Nor do
potential embarrassment
even
we
conclude
ployer
employees
pressure delinquent
from an em
impor-
paying
into
tunings
their debts.32 Such
ployee’s private
conduct
cir
no
necessarily
in themselves
cumstances affect
of the
efficiency’
some effect on the
of the serv-
say
that,
service. What
do
if the
we
is
likely
Moreover, it
ice.
that commer-
agency
any force,
statute is to have
cial
ex-
establishments would refuse to
support
promoting
cannot
a dismissаl as
many
eligible
tend credit to
otherwise
by
merely
of the service
employees
federal
without
assur-
some
turning
crying
its head and
“shame.”
employer support
ance of
for their col-
Since
conclude that
eventuality,
lection efforts. That
should
charge cannot
be sustained on
occur,
impact
would have an obvious
grounds
by
Commission,
relied on
employ
the attractiveness
federal
judgment of the District
must be
and,
turn,
gov-
quality
product.
short,
ernment’s work
anticipated
Reversed.
discredit to the
from
employee’s
delinquency
financial
TAMM,
Judge (dissenting):
specific
discredit
awith
sector of the
majority
again
once
violates
public
have an ascertainable
judicial
cloister erected
Adminis-
agency’s ability
perform
effect on the
out,
trative Procedure Act and rushes
its duties. The concern at least relates
flying,
robes
into
the forbidden area
injury
to some more concrete
to the serv-
give
administrative discretion to
kind as-
general
tarnishing
ice than a
of an
subject
sistance
it feels to
what
agency’s antiseptic public image.
highwaymаn
Fur-
tactics at the hands of
thermore,
significant
especially
it is
Civil
Commission.
Service
Sensitive
policy by
inability
plaints
identify
such
contracts”
from creditors
and/or
offending
appellant.
most
males. But we
ing in the underbrush. way quagmire of rhetoric across a reasoning, they engage in casuistic false, chide clever but the Commission delegated frustrate its function. plainly This court held in case of Summerfield, Hargett U.S.App. v. 85, 88, (1957), D.C. GOLDWASSER, Appellant, David “employee discipline removal and are al agen entirely most matters of executive cy Secretary discretion,” “that, long Air BROWN, Harold so Force, et al. compliance there with substantial [is] * * * applicable procedures ad No. re ministrative [is] determination Appeals United States good judg to the wisdom or viewable as of Columbia Circuit. District * department ment of the ex- 11, 1969. Argued June ercising (Citations discretion.” [its] Sept. omitted.) I fol- Decided have felt constrained to again, see, g., time low this view e.
dissenting opinion in Meеhan v. (No. 20,812, May decided 1969) (en banc), although in so doing I remain vox clamantis regard
deserto. to this case I am With substantially convinced that record supports action of the Commission dismissing promote this inman order to of the service and accord- ingly, I affirm. would To do otherwise implicate setting inme precedent proposition for the that off-
duty conduct, coupled with a “blackingout” capacity for intoxi- while cated, relationship bears no real functioning of an with- efficient service *9 government agency. Homosexuals, in a sadly enough, do not their leave emotions Lafayette Square regardless spiritual present Bazelon, Judge, dissented. destinies still Chief
