criminal cases. Act of September 24,1789, chap. | mulgated as Rule 36 of this court, and which 20, § 33; 1 Stat. at L. 91; Rev. Stat. at § L. 1014; embraces, also, the power to admit the defendBeers v. Haughton, above cited; United States ant to bail after the citation is served." 140 v. Knight, 39 U. S. 14 Pet. 301 [10: 465]; U. S. 205, 207, 308 [35: 411, 412]. United States v. Rundlett, 2 Curt. 41

"

By that rule, which was promulgated May 11, 1891, the same day on which that judg ment was delivered, “An appeal or a writ of error from a circuit court or a district court to this court," in the cases provided for in sections 5 and 6 of the Act of 1891, "may be allowed,

this court, or by any circuit judge within his circuit, or by any district judge within his district, and the proper security be taken and the citation signed by him, and he may also grant a supersedeas and stay of execution or of proceedings, pending such writ of error or appeal. And by paragraph 2 of the same rule, "Where such writ of error is allowed in the[284 case of a conviction of an infamous crime, or in any other criminal case in which it will lie under said sections 5 and 6, the circuit court, or district court, or any justice or judge thereof, shall have power, after the citation is served, to admit the accused to bail in such amount as may be fixed." 139 U. S. 706, 35:

By section 4 of the Act of March 3, 1891, chap. 517, the review, by appeal, writ of error, or otherwise, of judgments of the circuit courts or district courts, can be had only in this court or in the circuit courts of appeals, according to the provisions of this Act. By sec-in term time or in vacation, by any justice of tion 5. "appeals or writs of error may be taken from the circuit courts or district courts "direct to" this court "in cases of conviction of a capital or otherwise infamous crime," as well as in certain other classes of cases. 26 Stat. at L. 827. And by section 11, "all provisions of law, now in force, regulating the methods and system of review, through appeals or writs of error, shall regulate the methods and system of appeals and writs of error provided for in this Act in respect of the circuit courts of appeals, including all provisions for bonds or other securities to be required and taken on such appeals and writs of error." 26 Stat. at L. 829. But as to the methods and system of review, through appeals or writs of error including the citation, supersedeas, and bond or other security, in cases, either civil or criminal, brought to this court from the circuit court or the district court, Congress made no provision in this Act, evidently considering those matters to be covered and regulated by the provisions of earlier statutes form-1 Black, 522, 526 [17: 180, 182]; The Lottaing parts of one system.

By those statutes, upon writs of error from this court to the circuit courts or district courts of the United States, as well as upon writs of error from this court to the courts of the sev283] eral states, any justice of this courtnot necessarily the justice assigned to the circuit in which the other court is held-may, in or out of court, allow the writ of error, sign the citation, take the requisite security for the prosecution of the writ of error, and grant a supersedeas when the writ of error does not of itself operate as a stay of proceedings, as it does if filed and security given within sixty days after the judgment complained of. Rev. Stat. § 999, 1000, 1002, 1003, 1007; Sage v. Central R. Co. of Iowa. 96 U. S. 712 [24: 641]; Hudgins v. Kemp, 59 U. S. 18 How. 530 [15: 511]; Peugh v. Davis, 110 U. S. 227 [28: 127].

This court cannot, indeed, by rule, enlarge or restrict its own inherent jurisdiction and powers, or those of the other courts of the United States, or of a justice or judge of either, under the Constitution and laws of the United States. Poultney v. La Fayette, 37 U. S. 12 Pet. 472 [9: 1161]: Meyer v. Tupper, 66 U. S.

wanna, 88 U. S. 21 Wall. 558, 576, 579 [22: 654, 662, 663]. Nor has it assumed to do so.

On the contrary, the rule in question was adopted by this court under and pursuant to its powers to make rules, prescribing the forms of writs and process, and regulating the practice upon appeals or writs of error; and was so framed as to give effect to the appellate jurisdiction conferred by the Act of 1891, in the manner most consistent with the provisions of the various acts of Congress concerning the same matter.

There can be no doubt, therefore, that under the acts of Congress,, the decision of this court in Re Claasen above cited, and the first paragraph of Rule 36, Mr. Justice White, although not the justice of this court assigned to the eighth circuit, was authorized to allow the writ of error, to operate as a supersedeas, and to sign the citation.

The next question is of the validity of his order, so far as regards admitting the prisoner to bail pending the writ of error.

In Re Claasen, 140 U. S. 200 [35: 409], it was adjudged, upon full consideration, that by the Act of 1891 a writ of error from this court to the circuit court, in the case of a convic- Recurring once more to Rule 36, and to the tion of a crime infamous but not capital, was decision in Re Claasen, which were considered a matter of right, without giving any security; and promulgated together, and mutually serve that the citation might be signed by a justice to explain each other, the matter stands thus: of this court, under Rev. Stat. § 999; that a The first paragraph of the rule, embracing all supersedeas might be granted, not only by cases, civil or criminal, of which this court has this court, under $716, but by a justice thereof, appellate jurisdiction under the Act of 1891, under $1000; and that, if the justice signing provides that the writ of error may be allowed, the citation directed that it should operate as in term time or vacation, "and the proper sea supersedeas, the supersedeas might be obcurity be taken," the citation signed, and a tained by merely serving the writ within the supersedeas granted, "by any justice of this time prescribed in § 1007. Mr. Justice Blatch court." In Re Claasen, it was held that, in the ford, in delivering the unanimous judgment of case of an infamous crime, the writ *of [285 the court accordingly said: "To remove all error was a matter of right, and that no security, doubt on the subject, however, in future cases, such as is necessary in a civil case, was rewe have adopted a general rule, which is pro-quired. The only "proper security," then in

under

a criminal case, is security for the appearance by this court "upon a writ of error, of a prisoner admitted to bail. Within the such rules and regulations as said court may very terms of the rule, therefore, any justice prescribe;" and that every such writ of error of this court, although not assigned to the should "be allowed as of right, and without particular circuit, would seem to have the the requirement of any security for the prospower to permit bail to be taken. But the ecution of the same, or for costs;" and should power rests upon broader grounds. "during its pendency operate as a stay of proceedings upon the judgment, in respect of which it is sued out," and might be immedi ately filed in this court; but should not be sued out or granted, except upon a petition filed, with the clerk of the court in which the trial was had, during the same term, or within sixty days after its expiration. 25 Stat. at L. 656.

The statutes of the United States have been framed upon the theory that a person accused of crime shall not, until he has been finally adjudged guilty in the court of last resort, be absolutely compelled to undergo imprison ment or punishment, but may be admitted to bail, not only after arrest and before trial, but after conviction and pending a writ of error.

Although that Act expressly recognized the

The statutes as to bail upon arrest and before trial provide that "bail may be admit-power of this court to make rules regulating ted" upon all arrests in other criminal cases; the proceedings upon writs of error in capital and may be taken in capital cases by this cases, yet, as by its terms the writ was to be court, or by a justice thereof, or by a circuit allowed as of right, without requiring any secourt, a circuit judge or a district judge, and curity, and was of itself to operate as a stay of in other criminal cases by any justice or judge proceedings, no rule upon the subject was conof the United States or other magistrate named. sidered necessary, and none was made by this Rev. Stat. § 1014-1016. court. It can hardly be doubted, however, that Congress intended that the allowance of the writ of error and stay of *proceedings, while [287 suspending the execution of the sentence, should neither have the effect of discharging the prisoner from custody, nor of preventing his being admitted to bail, upon sufficient cause shown, pending the writ of error; and, no special provision upon the subject of bail in a capital case after conviction having been made by Act of Congress or rule of court, it would seem that it might be taken by the jus tice or judge who allowed the writ of error.

Under the Act of March 3, 1879, chap. 176, upon writs of error from the circuit court to review judgments of the district court upon convictions in criminal cases, the justice of this court assigned to the circuit, or the circuit judge that is to say, any member of the appellate court, except the district judge, presumably the judge who rendered the judgment below-might allow the writ, to operate as a supersedeas, and might take bail for the defendant's appearance in the circuit court. 20 Stat.at L.354; United States v. Whittier, 11 Biss. 356. And upon a writ of error from this court to the highest court of a state to review a decision against a right claim under the Constitution and laws of the United States, and which lies both in criminal and in civil cases, and operates as a supersedeas under the same circumstances in the one as in the other, bail may be taken pending the writ of error; but, because of the relation between the two govern286]ments, in *the court of the state only, it being enacted by the Act of July 13, 1866, chap. 184, 69, in accordance with the practice previously prevailing in some states, that the plaintiff in error, if charged with an offense bailable by the laws of the state, should not be released from custody until final judgment upon the writ of error, "or until a bond, with sufficiant sureties, in a reasonable sum, as ordered and approved by the state court, shall be given;" or, if the offense was not so bailable, until such final judgment. 14 Stat. at L. 172; Rev. Stat. § 1017; Cohens v. Virginia, 19 U. S. 6 Wheat. 264 [5:257]; Worcester v. Georgia, 31 U. S. 6 Pet. 515, 537, 562, 567 [8: 483, 492, 501, 503]; Bryan v. Bates, 12 Allen, 201. By these statutes, bail after conviction was provided for in every class of writs of error pending in the courts of the United States in cases of bailable offences; for, when they were enacted, no writ of error lay from this court to the circuit court or district court in any criminal case.

By the Act of February 6, 1889, chap. 113, § 6. it was enacted that final judgments of any court of the United States upon conviction of a crime punishable with death might, upon the application of the defendant, be reviewed

But, however it may be in a capital case, it is quite clear, in view of all the legislation on the subject of bail, that Congress must have intended that under the Act of 1891, in cases of crime not capital, and therefore bailable of right before conviction, bail might be taken, upon writ of error, by order of the proper court, justice or judge. And we are of opinion that any justice of this court, having power, by the acts of Congress, to allow the writ of error, to issue the citation, to take the security required by law, and to grant a supersedeas, has the authority, as incidental to the exercise of this power, to order the plaintiff in error to be admitted to bail, independently of any rule of court upon the subject; and that this authority is recognized in the first paragraph of Rule 36.

Having the authority to order bail to be taken, the same justice might either himself approve the bail bond; or he might order that such a bond should be taken in an amount fixed by him, the form of the bond and the sufficiency of the sureties to be passed upon by the court whose judgment was to be reviewed, or by a judge of that court; or he might leave the whole matter of bail to be dealt with by such court or judge.

Upon a writ of error in a civil case, the requisite security is ordinarily taken by the justice or judge who allows the writ and signs the citation. Jerome v. McCarter, 88 U. S. 21 Wall. 17 (22:515]. But where the bond taken is insufficient in law, this court, in the exercise of its inherent jurisdiction as a court of error, may direct that the writ be dismissed, unless the plaintiff in error gives security suf

Wall. 188 [18:676]. But in the case before us, the district judge has not exercised any discretion in the matter, but has declined to act at all, and has refused to approve the bond, solely because, in his own words, "it is found by" him that the order of Mr. Justice White was made without authority of law, and that the bond, if approved, would be void.

ficient in this respect, to be taken and approved | Ex parte Milwaukee & M. R. Co. 72 U. S. 5 by any justice or judge who is authorized to allow the writ of error and citation. Catlett v. Brodie, 22 U. S. 9 Wheat. 553, 555 [6:158, 159]; O'Reilly v. Edrington, 96 U. S. 724 [24: 659]. 288] *This court, in the lawful exercise of its power to prescribe the forms of process and to regulate the practice upon writs of error, has said, in paragraph 2 of Rule 36, that, in the case of a conviction of an infamous crime, "the circuit court, or district court, or any justice or judge thereof, shall have power, after the citation is served, to admit the accused to bail in such amount as may be fixed."

The necessary consequence is that that part of the order of Mr. Justice White, which required "the defendant to furnish bond in the sum of five thousand dollars, conditioned according to law, subject to approval by the district judge," was a valid exercise of his authority to order bail, in an amount fixed by him, to be taken by the district judge, leaving the form of the bond, and the sufficiency of the sureties, to be passed upon by the latter.

As the district judge, in so refusing to approve the bond, appears to have acted under a misunderstanding of the powers of this court and of its justices, and of his own duty in the premises, and as in his return he expresses his readiness to enforce any decision of this court, it appears to us to be more just to him, as well as more consistent with the maintenance of the rightful authority of this court, to sustain this petition, and enable bail to be taken before him in accordance with the order heretofore made, than to dismiss these proceedings, and to deal with the matter over his head, as it were, by having the petitioner admitted to bail by this court, or by the justice thereof assigned to the eighth circuit.

the petitioner, his counsel may move for the writ at any time. The present order will be petitioner entitled to writ of mandamus to the district judge to admit the petitioner to bail on his giving bond in proper form and with sufficient sureties.

A writ of error, allowed out of court, is We do not anticipate that there will be any neither considered as brought, even for the pur- occasion for the actual issue of a writ of perpose of computing the time of limitation of emptory mandamus; but, should it become necsuing it out, nor does it operate as a super-essary to do so in order to secure the rights of sedeas, until it has been filed in the clerk's office of the court to which it is addressed. Credit Co. v. Arkansas Cent. R. Co. 128 U. S. 258, 260 [32: 448, 449], and cases cited; Foster v. Kansas, 112 U. S. 201 [28:629]. By the order of Mr. Justice White, the allowance of the writ of error, to operate as a supersedeas, was not to take effect until the approval of the bond by the district judge; and when the bond was presented to the district judge for approval, the writ of error had been filed in the clerk's office of the district court, and the citation had been issued and served. The objection that the petitioner could only be admitted to bail after citation served has therefore no application to this case.

The discretion of a judge, indeed, in a matter intrusted by law to his judicial determination, cannot be controlled by writ of mandamus. But if he declines to exercise his discretion, or to act at all, when it is his duty to do so, a writ of mandamus may be issued to compel him to act. For instance, a writ of mandamus will lie to compel a judge to settle and sign a bill of exceptions, although not to control his discretion as to the frame of the bill. Ex parte Bradstreet, 29 U. S. 4 Pet. 102 [7:796]; Ex parte 289]* Crane,30 U.S. 5 Pet. 190 [8:92]; Re Chateaugay Ore & Iron Co. 128 U. S. 544, 557 [32: 508, 513]. See also Ex parte Morgan, 114 U. S. 174 [29:135]; Ex Parte Parker, 120 U. S. 737, [30:818]; Re Parker, 131 U. S. 221 [33:123]; Virginia v. Paul, 148 U. S. 107, 123, 124 [37:386,392].

If, as suggested in the return, the petitioner is also in custody under a subsequent conviction for another offence, that custody will not be affected by admitting him to bail in this

case.

Were the question here only as to what persons should be accepted as sureties on the bond, or as to their sufficiency, there would be no ground for issuing a writ of mandamus. Ex parte Taylor, 55 U. S. 14 How. 3 [14:302];

Mr. Justice White took no part in the decision of this case.

*Mr. Justice Brewer dissenting:

[290

I am unable to concur in all the views expressed in the opinion of the court. Agreeing that this court has power to admit to bail in criminal cases pending proceedings in error, I reach this conclusion in a different way, and deduce the right to let to bail solely from the grant of jurisdiction over the proceedings in error. As said in Ex parte Dyson, 25 Miss. 356–359: “The right of a prisoner to bail, after conviction, is not regulated by the Constitution or by statute, and is governed by the rules and practice of the common law. It seems to be fully and clearly established that the Court of King's Bench could bail in all cases whatsoever, according to the principles of the common law; the action of that court not being controlled by the various statutes enacted on the subject of bail, but regulated and governed entirely by a sound judicial discretion on the subject. 2 Hale, P. C. 129; 4 Co. Inst. 71; 2 Comyn, Dig. 6, title (f. 3); 1 Bacon, Abr. 483493; 2 Hawk. P. C. 170; Rex v. Rudd, Cowp. 333. In the exercise of this discretion the court in some instances admitted to bail, even after verdict, in cases of felony, whenever a special motive existed to induce the court to grant it. 1 Bacon, Abr. 489-490; 2 Hawk. P. C. 170."

So, when jurisdiction is given over proceedings in error in criminal cases, that jurisdiction carries with it, by implication, the power to make all orders necessary and proper not merely for bringing up the record, but also for

the custody of the defendant pending the thorizing bail before trial, or that provision hearing of his allegations of error. But that for bail in cases brought to this court from jurisdiction is vested in this court as a court, conviction in state tribunals, or that authorand not in any single justice. izing bail in cases taken from the district to the circuit court, the evidence of a settled policy on the part of Congress that bail should be allowed in all cases, capital or otherwise, brought here on error from a final judgment of the circuit or district court. Indeed, with reference to this matter of policy it was well said in Hadden v. Barney, 72 Ú. S. 5 Wall. 107, 111 [18: 518, 519]: "What is termed the policy of the government with reference to any particular legislation is generally a very uncertain thing, upon which all sorts of opin. ion, each variant from the other, may be formed by different persons. It is a ground much too unstable upon which to rest the judgment of the court in the interpretation of statutes.'

There have been five separate enactments of Congress in reference to the letting to bail and the review of judgments in criminal cases. First, for bail before trial. Sections 1014, 1015, and 1016, Rev. Stat. These sections name the judicial officers by whom bail may be taken. Second, in respect to judgments in criminal cases in the State courts, brought here on error. Rev. Stat. § 1017. In this section there 291] is *specific provision in reference to the matter of bail. Third, the Act of March 3, 1879, providing for a review by the circuit court of judgments in the district court in criminal cases. 20 Stat. at L. 354. In this Act express authority is given for bail, and the of ficers named by whom such bail may be taken. Fourth, the Act of February 6, 1889 (25 Stat. at L. 656) granting a writ of error from this court to bring up the judgments of any inferior courts of the United States in capital cases. Nothing is said in this Act in respect to the matter of bail, but the allowance of the writ is made to operate as a stay of proceedings. Fifth, the Act of March 3, 1891 (26 Stat. at L. 827) -the Act under which this controversy has arisen-which provides for a review by this court of the final judgments of circuit or district courts in cases of "convictions of capital or otherwise infamous crimes." In this statute also there is no mention of bail.

Nevertheless, I agree with the majority, that this court has power to prescribe by rule all matters of detail in respect to procedure which are not in terms fixed or denied by statute. It has exercised such power and passed a rule concerning the letting to bail in which, as I have hitherto supposed, it determined the whole matter.

It is idle to say that there is no difference between the supersedeas of a judgment and the letting to bail. When a sentence of death is stayed by this court, it does not follow, as a matter of course, that the party sentenced is to be discharged from custody and permitted I fail to appreciate the argument that be to go where he pleases; and the same is true cause Congress has made specific provision for in case of a sentence to confinement and hard bail in criminal cases before conviction, it is labor in the penitentiary. The stay of executo be assumed that it intended that bail should tion simply prevents the hanging or the relikewise be allowed in all cases after convic-moval of the party to the penitentiary. But tion; or that, because in two statutes, contem- it is unnecessary in view of the language of plating review of judgments in criminal cases, this court to make any argument to show that it made like specific provision in respect to let the two things are different. In *Re Claa-[293 ting to bail, it intended the same grant of sen, 140 U. S. 200, 208 [35: 409, 412] the court power in two other and later statutes granting said: "We hold, therefore, that the allowance a right of review-in which it said nothing in of the supersedeas in the present case was respect to bail. In other words, an omission proper, and we deny the motion to set it aside. apparently made ex industria implies the same To remove all doubts on the subject, however, intention as an express provision fully stated. in future cases, we have adopted a general On the contrary, as I understand it, the logic rule, which is promulgated as Rule 36 of this of all differences in substantial provisions court (see 139 U. S. 706) [31: 1128a] and which between earlier and later statutes is indica-embraces also the power to admit the defendant tive of difference rather than identity of purpose. ■

"Indeed, the words of a statute, when unambiguous, are the true guide to the legislative will. That they differ from the words of a prior statute on the same subject, is an intimation that they are to have a different and not the same construction." Rich v. Keyser, 54 Pa. 86, 89.

"Where the later of two acts upon limited partnership omitted the infliction, prescribed by the earlier, of a penalty for the omission of certain matters required by both, the court said: 292]*'We must presume that the (earlier) act and the decisions under it were well known to the law makers at the time the (later) was passed. The omission to prescribe the penalty is good reason for concluding that no such liability was in tended.' Endlich, Interpretation of Statutes, § 384; Eliot v. Himrod, 108 Pa. 569, 573.

act

Neither can I gather from the legislation au

to bail after the citation served."

The rule there indicated, was put in two paragraphs one of which provides among other things for a supersedeas and the other for admitting to bail. This court then, certainly, understood that there was a difference between the two, and did not add a second paragraph to regulate a matter which was fully regulated by the first. It is also true that in the first paragraph provision is made for the taking of security, but taking security is not technically letting to bail, and the provision in reference to security evidently refers to those cases in which the sentence of the trial court directs the payment of a fine. In respect to such a sentence, security is an apt and suitable word.

Now, the idea of a rule is that it makes full provision for everything within the scope of its general purpose, and when this court, by the second paragraph, named certain judicial officers as the ones to admit to bail, it was a

declaration, first, that this court had power to | independently of the rule or by virtue of the first paragraph, why in this second paragraph mention the justices of the circuit? I confess my inability to see any reason therefor.

Can there be any doubt as to the meaning of the second paragraph? It says: "The circuit court or district court, or any justice or judge thereof." Surely, that does not mean any circuit court or district court, or any Argued and Submitted Dec. 14, 1893. Decided justice or any judge thereof, but the court in which the case was tried. If it was intended