Glazier v. Hackel, 26106.

• Decision Date: 31 March 1971
• Docket Number: No. 26106.,26106.
• Parties: Richard D. GLAZIER, Plaintiff-Appellant, v. Capt. James G. HACKEL, Company Commander, et al., Defendants-Appellees.
• Court: U.S. Court of Appeals — Ninth Circuit

440 F.2d 592 (1971)

Richard D. GLAZIER, Plaintiff-Appellant, v. Capt. James G. HACKEL, Company Commander, et al., Defendants-Appellees.

No. 26106.

United States Court of Appeals, Ninth Circuit.

March 31, 1971.

William Samsel (argued), Donald A. Jelinek, Berkeley, Cal., for plaintiff-appellant.

Steven Kazan, Asst. U. S. Atty. (argued), James L. Browning, Jr., U. S. Atty., San Francisco, Cal., for defendants-appellees.

Before HAMLIN, BROWNING, and WRIGHT, Circuit Judges.

BROWNING, Circuit Judge:

Pursuant to Army Regulation 600-200, Richard D. Glazier, an enlisted member of the United States Army, applied for classification as a conscientious objector to combatant training and service (Class I-A-O), and for assignment to noncombatant duty. The Department of the Army disapproved his application. Glazier then filed a petition for habeas corpus alleging that the Department had failed to comply with its own regulations and that its decision was arbitrary and without basis in fact. The district court dismissed the petition on the ground that "the reclassification of the plaintiff to the class sought will not accomplish his discharge, and therefore does not entitle him to any relief under habeas corpus." We reverse.¹

As the government concedes, habeas corpus is the accepted vehicle for judicial review of a military department's administrative denial of a serviceman's application for classification as a conscientious objector to both combatant and noncombatant training and service (Class I-O), and for discharge. The watershed opinion is that of Judge Kaufman in Hammond v. Lenfest, 398 F.2d 705 (2d Cir. 1968). The Supreme Court recently reviewed the merits of such an administrative determination by the Department of the Army in a habeas corpus proceeding in Negre v. Larsen, consolidated with Gillette v. United States, 91 S.Ct. 828 (1971). Cases from this court expressly or tacitly approving the use of habeas corpus for this purpose include Parisi v. Davidson, 435 F.2d 299 (1970); Zemke v. Larsen, 434 F.2d 1281 (1970); Johnson v. Laird, 435 F.2d 493, 496 (1970); Jarrett v. Resor, 426 F.2d 213, 217 n. 6 (1970); Quinn v. Laird, 421 F.2d 840 (1970); Sertic v. Laird, 418 F.2d 915 (1969); Negre v. Larsen, 418 F.2d 908 (1969); Krieger v. Terry, 413 F.2d 73 (1969); and Schwartz v. Franklin, 412 F.2d 736, 738-39 (1969).²

The government argues that the present case is distinguishable because Glazier did not claim conscientious objection to both combatant and noncombatant training and service (Class I-O) but only to combatant training and service (Class I-A-O), and because he did not seek discharge but only assignment to noncombatant duty. In United States ex rel. Tobias v. Laird, 413 F.2d 936 (1969), the Court of Appeals for the Fourth Circuit held that habeas corpus is equally appropriate for review of the administrative rejection of such a claim and we agree.

There are two possible arguments against this result.

I

The first, upon which the district court relied, is that habeas corpus is available only to obtain release from unlawful detention — and not, it is sometimes added, to test the conditions of lawful custody.

Certainly the writ's great purpose is to test the lawfulness of restrictions upon personal freedom, and both the jurisdictional statute (28 U.S.C. § 2241) and the history of habeas corpus require that the petitioner be "in custody" when the application is filed. United States ex rel. Carafas v. La Vallee, 391 U.S. 234, 238, 88 S.Ct. 1556, 20 L.Ed.2d 554 (1968); Peyton v. Rowe, 391 U.S. 54, 58-59, 88 S.Ct. 1549, 20 L. Ed.2d 426 (1968). The "custody" requirement is satisfied, however, by the restraints incident to military service. This is necessarily implicit in the cases cited above sustaining use of habeas corpus to challenge a military department's administrative rejection of a request for discharge as a Class I-O conscientious objector. See particularly Hammond v. Lenfest, supra, 398 F.2d at 712; Jarrett v. Resor, supra, 426 F.2d at 217 n. 6.

It is clear from recent Supreme Court decisions that it is not a bar to habeas corpus that a ruling favorable to the petitioner will not result in his release, for, as the statute states, the habeas court is broadly empowered to "dispose of the matter as law and justice require." 28 U.S.C. § 2243. See United States ex rel. Carafas v. La Vallee, supra, 391 U.S. at 239, 88 S.Ct. 1556; Peyton v. Rowe, supra, 391 U.S. at 66-67, 88 S.Ct. 1549; Dowd v. Cook, 340 U.S. 206, 71 S.Ct. 262, 95 L.Ed. 215 (1951). In Orloff v. Willoughby, 345 U.S. 83, 73 S.Ct. 534, 97 L.Ed. 842 (1953), discussed in some detail below, the Court considered the merits of a habeas corpus petitioner's claim that he was entitled to be placed in a particular classification or category for military duty purposes even though he requested discharge only in a conditional sense — only if the Army did not assign him to duties within his proper classification. Thus Orloff is authority that habeas corpus is appropriate even though the petitioner does not seek, nor would a favorable decision grant, release from all "custody." Similarly, in Johnson v. Avery, 393 U.S. 483, 89 S.Ct. 747, 21 L.Ed.2d 718 (1969), and Ex Parte Hull, 312 U.S. 546, 61 S.Ct. 640, 85 L.Ed. 1034 (1941), the Court examined prison regulations on their merits and held them invalid in habeas proceedings initiated by prisoners, although the regulations' invalidity did not result in the prisoners' discharge. See also Developments in the Law, Federal Habeas Corpus, 83 Harv.L.Rev. 1038, 1079-87, 1238-52 (1970); cf. United States ex rel. Accardi v. Shaughnessy, 347 U.S. 260, 74 S.Ct. 499, 98 L.Ed. 681 (1954).

II

The government's second argument is that the Army's decision denying Glazier's application for classification as a conscientious objector to combatant training and service (Class I-A-O) was a decision concerning assignment of military personnel to duties within the service and that, without regard to the form of the judicial proceedings, the Supreme Court held in Orloff v. Willoughby, supra, that such decisions are not reviewable by the courts.

Drawing the line between reviewable and nonreviewable agency action in this area requires an accommodation of the individual's right to compel government to adhere to the rule of law in its dealings with him and the need of the military establishment for a large measure of autonomy in the control of daily military operations, particularly in the procurement and management of military manpower. Sherman, Judicial Review of Military Determinations and the Exhaustion of Remedies Requirement, 55 Va.L.Rev. 483, 495, 521-22, 527-28 (1969); Comment, God, the Army, and Judicial Review, 56 Calif.L.Rev. 379, 444-45 (1968). We agree with the government that the side of the line upon which this case falls can be determined with reasonable assurance from the decision in Orloff v. Willoughby, supra. We differ with the government, however, as to which side of the line that is.

Dr. Orloff filed a petition for habeas corpus requesting discharge from the Army unless he was assigned duties as a doctor and commissioned as an officer, as required, he contended, by the Doctors Draft Act, 50 U.S.C. App. § 454(i) (1) (A), under which he was inducted. In the lower courts the government argued "that under the statute doctors could be drafted and used for any purpose the Army saw fit, that duty assignment for such inductees was a matter of military discretion." 345 U.S. at 87, 73 S. Ct. at 537. When the case reached the Supreme Court, the government conceded that Dr. Orloff was entitled to be assigned to duties as a "medical specialist" but contended that the particular duties to which he had been assigned, those of a laboratory technician, fell within that category.

Despite the government's concession, the Supreme Court reviewed the merits of the issue of statutory construction and held that the Army was obligated to classify Dr. Orloff within the "medical specialist" category. 345 U.S. at 87-88, 73 S.Ct. 534. The Court also made a sufficient examination of the facts to satisfy itself that the laboratory technician duties to which Dr. Orloff had been assigned fell within the "medical specialist" category. 345 U.S. at 92, 73 S.Ct. 534.

The Court then went on to state: "while the duties must be within this category, a large area of discretion as to particular duties must be left to commanding officers." 345 U.S. at 92, 73 S.Ct. at 539 (emphasis added). The Court pointed out that every doctor in the Army could not be allowed to choose his own duties within the medical specialist category and that selecting the particular assignment in which Dr. Orloff's skills would best serve the Army's needs required the resolution of kinds of issues that courts were neither competent nor authorized to decide. 345 U.S. at 92-93, 73 S.Ct. 534.³

The analogies to be drawn to the present case seem reasonably clear. Under Department of Defense regulations, the Army was required to classify Glazier as a conscientious objector to combatant training and service if he met the standards for that classification, and the courts may review the Army's refusal to do so by habeas corpus.⁴ On the other hand, the courts may not review Glazier's particular duty assignment within the noncombatant category — nor have they been asked to do so, for no such assignment had been made.

This analysis is supported by the structure of the regulations and by the rationale of the Orloff case.

The Department of Defense has undertaken by appropriate directive to respect bona fide conscientious objection to participation in war in any form.⁵ To implement this policy, the Department has adopted both the criteria for exemption set forth in section 6(j) of the Military Selective Service Act of 1967, 50 U.S.C. App. § 456(j) (1964 ed., Supp. IV),⁶ and the classification system employed by the Selective Service System.⁷ See Gillette v. United States, supra, 91...