Hackney v. Tarr, 15060.

• Decision Date: 02 June 1972
• Docket Number: No. 15060.,15060.
• Citation: 460 F.2d 575
• Parties: Edward June HACKNEY, Individually and on behalf of all persons similarly situated, Appellant, v. Curtis W. TARR, as Director of the Selective Service System, et al., Appellees.
• Court: U.S. Court of Appeals — Fourth Circuit

460 F.2d 575 (1972)

Edward June HACKNEY, Individually and on behalf of all persons similarly situated, Appellant, v. Curtis W. TARR, as Director of the Selective Service System, et al., Appellees.

No. 15060.

United States Court of Appeals, Fourth Circuit.

June 2, 1972.

Jeremiah S. Gutman, New York City (Levy, Gutman, Goldberg & Kaplan, New

York City, Norman B. Smith, and Smith & Patterson, Greensboro, N. C., on the brief), for appellant.

Bradley J. Cameron, Asst. U. S. Atty. (William L. Osteen, U. S. Atty., on the brief) for appellees.

Before HAYNSWORTH, Chief Judge, and BOREMAN and BRYAN, Circuit Judges.

HAYNSWORTH, Chief Judge:

The plaintiff, classified as a conscientious objector by the Selective Service System, contests the validity of his Local Board's rejection of his proposal of alternative civilian service at a university medical center in New York City, where he resides, and its order that he perform his service in a hospital in North Carolina. The action of the Local Board was concededly based on Selective Service regulations and implementing memoranda, set out in 32 C.F.R. § 1660.21(a)¹ and Local Board Memorandum No. 64 (as revised 1968).² Though the work in the New York hospital had the specific approval of the Selective Service System as appropriate for alternative civilian service, it was rejected by the Local Board "because this would not disrupt registrant's way of life."

Hackney had registered with Local Board No. 32, in Durham, North Carolina. He sought I-O classification as a conscientious objector. He obtained it when the Appeals Board unanimously reversed the Local Board's denial of it.

Hackney had acquired experience and skills in supportive medical services. Living in New York City he obtained employment as an inhalation therapist supervisor in a medical center there, and submitted that work to the Local Board as appropriate for his alternative civilian service. That center had the specific approval of the Selective Service System as an employer of conscientious objectors performing alternative civilian service, and the particular work Hackney was doing had been approved for others. Nevertheless, as indicated above, the Board rejected the suggestion for the stated reason that the New York job would not disrupt Hackney's life.

The Board then ordered Hackney to report to the Moses H. Cone Memorial Hospital in Greensboro, North Carolina for hospital work. Hackney reported there, but after three weeks, he quit and returned to his old job at the medical center in New York. He explained that his work at Cone was minimal and that it did not utilize his capabilities. The Board then ordered him to report to the Long Community Hospital in Greensboro for hospital work. Hackney did that, though protestingly, after commencing this action and unsuccessfully seeking a restraining order. It is agreed that his duties at Long were relatively menial and did not require any education or training of the sort Hackney had.

At oral argument, we were informed that Hackney had left his job at Long and had again returned to his old job at the medical center in New York. We were told he had quit because he lost his driver's license and found it impossible, or difficult, to get to and from the Long Hospital.

I

In the Military Selective Service Act of 1967,³ there is no mention of disruption of the life of anyone. It provides in § 456(j) that a conscientious objector, in lieu of induction into the armed forces, subject to such rules and regulations as the President may prescribe, shall perform for a period of two years "such civilian work contributing to the maintenance of the national health, safety, or interest as the local board pursuant to Presidential regulations may deem appropriate."⁴ The statute is our text, though, in the context of this controversy, it is not the end of the matter.

By presidential regulation⁵ it is provided:

"No registrant shall be ordered by the local board to perform civilian work in lieu of induction in the community in which he resides unless in a particular case the local board deems the performance by the registrant of such work in the registrant\'s home community to be desirable in the national interest."

In 1962 the Director of Selective Service issued a Local Board Memorandum which was amended in 1968. As amended, L.B.M. 64 provides that a position to which a registrant classified I-O is assigned "should constitute a disruption of the registrant's normal way of life somewhat comparable to the disruption of a registrant who is inducted into the Armed Forces." Obviously, L.B.M. 64 was the basis of the Local Board's reference to disruption.

It is said of the presidential regulation that it was designed to protect conscientious objectors from involuntary assignment in their home communities when there was risk that the registrant would be exposed to censure by erstwhile friends and neighbors and made to develop a sense of humiliation, unless that is, the national interest appeared to require an assignment in the registrant's home community notwithstanding the risk of such humiliation. This is derived solely from the regulation's use of the word "ordered." There is no legislative history to support that reading, however, and the apparent scheme is that every registrant classified I-O would be "ordered" to serve if his number comes up. Those satisfied with their assignments are ordered to perform the work just as those who are not.

It is provided in regulation 1660.20(a) that a registrant in Class I-O may not be called to civilian service earlier than he would have been called for induction into the Armed Forces had he been in Class I-A. Nor, under the same regulation, will such a registrant be ordered to alternative civilian service if, after an Armed Forces physical examination, he is found unfit for military service. When he is to be called up, a conscientious objector may suggest three preferences as to the type of work in the national interest he would like, but even if the Local Board accepts one of his suggestions, he is ordered to perform that service. He may even volunteer for such service, just as a registrant in Class I-A may volunteer for military service before his number is reached and he is ordered to report for induction, but the act of volunteering has the effect only of advancing the time of the order to report for civilian work.⁶ The fact is that every person who reports for a period of alternative civilian service does so pursuant to an order. Each registrant classified I-O is informed of all this through SS Form 152.

In light of this, the use of the verb "ordered" in the regulation contains none of the implications Hackney would read into it.

It is more likely that the presidential regulation is a child of history. In World War I conscientious objectors were actually inducted into the Armed Forces but were assigned to noncombatant duties. During World War II, they were not inducted into the Armed Forces but required to perform manual labor in civilian labor camps operated by pacifist organizations.⁷ Since 1951 the statutes have treated the conscientious objector with more consideration, but the established parallelism between regular military service and the noncombatant or civilian service to which conscientious objectors had been assigned has left a remnant. Some elements of the parallelism still exist in the provision that the conscientious objector be ordered to serve a period of alternative civilian service only if he otherwise would be ordered inducted into the Armed Forces, receiving no such order if his number is not reached or if he is found mentally or physically unacceptable for military service.

Though we speculate that the presidential regulation may be a remnant of harsh provisions of earlier statutes, it reasonably serves a purpose to avoid exposure of registrants already...