Document: 378 U.S. 500 84 S.Ct. 1659 12 L.Ed.2d 992 Herbert APTHEKER et al., Appellants,v.The SECRETARY OF STATE. No. 461. Argued April 21, 1964. Decided June 22, John J. Abt, New York City, and Joseph Forer, Washington, D.C., for appellants. Abram Chayes, appellee. Mr. Justice GOLDBERG delivered the opinion of Court. 1 This appeal involves a single question: constitutionality § 6 Subversive Activities Control Act 1950, 64 Stat. 993, 50 U.S.C. 785. Section provides in pertinent part that: 2 '(a) When Communist organization1 * is registered, or there effect final order Board requiring such organization to register, it shall be unlawful any member organization, with knowledge notice that so registered has become final— 3 '(1) make application passport, renewal issued renewed by under authority United States; 4 '(2) use attempt passport.'2 5 became effective, respect appellants, on October 20, 1961, when directing Party States register 7 Act. The registration had been upheld earlier 1961 this Court's decision UnitedStates v. Board, 367 1, 81 1357, 625. Prior issuance both who are nativeborn citizens residents States, held valid passports. Subsequently, January 1962, Acting Director Passport Office notified appellants their passports were revoked because Department State believed would violate 6. Appellants also right seek administrative review revocations regulations. requested received hearings respective hearing examiners concluded 'the reason believe (appellants are) within purview 6(a)(2) as result thereof passport violation law.' On basis conclusion recommended sustained.3 Both appealed Appeals which affirmance revocations. Secretary subsequently approved recommendations Board. stated he 'relied solely evidence record' that, his decision, he: 'specifically adopted own (Board's) finding fact 'at all material times members) required Act." 8 thereupon filed separate complaints seeking declaratory injunctive relief District Court Columbia. complaints, have considered together, asked judgments entered declaring unconstitutional ordering issue Each appellant-plaintiff alleged was inter alia, 'a deprivation without due process law plaintiff's constitutional liberty travel road, Fifth Amendment Constitution States.'4 conceded an adequate they members action revoking proper if constitutional. parties agreed remedies exhausted futile, indeed criminal offense, either appellant apply while remaining Party. 9 three-judge Court, convened question, rejected appellants' contentions, sustained Act, granted Secretary's motion summary judgment. 219 F.Supp. 709. court 10 enactment Congress section 6, prohibits these plaintiffs from obtaining long organization—in case Attorney General exercise power protect preserve our Government against threat posed world movement regulatory scheme bears reasonable relation thereto.' Id., at 714. 11 noted probable jurisdiction. 375 928, 332, 262. attack its face applied, guaranteed Bill Rights. Government, conceding protected Amendment, contends Due Process Clause does not prevent regulation danger presents national security. Alternatively, argues 'whether denial some might deemed reasonably related security, surely applied top-ranking leaders involved here.' 13 We hold, reasons below, too broadly indiscriminately restricts thereby abridges Amendment. I. 14 In 1958 Kent Dulles, 357 116, 127, 78 1113, 1119, 1204, declared abroad 'an important aspect citizen's 'liberty" 15 'The 'liberty' citizen cannot deprived Freedom across frontiers direction, inside well, heritage. Travel abroad, like country may close heart individual choice what eats, wears, reads. basic values.'5 U.S., 125—126, S.Ct., 1118. 16 Kent, however, conferred upon deny beliefs associations. Therefore, although travel, did examine extent can curtailed.' 1119. referring only passed expressly curtailing Communists borders yet effective.' 130, 1120. Two years later supra, reviewed requirement pass 'various consequences Party's members,' id., 70, 1397, because: 17 'It wholly speculative now foreshadow whether, conditions, future government defense-facility labor-union employment, or, being alien, party naturalization denaturalization proceeding. None things happen. If do, appropriate judicial procedures will available test applications particular sections persons situations. Nothing justifies previsioning those issues now.' 79, 1401. (Emphasis added.) 18 present case, therefore, first called consider restrictions imposes travel. 19 substantiality doubted. given existing domestic foreign laws, severe restriction upon, prohibition against, world-wide Present laws regulations crime outside Western Hemisphere Cuba passport. By plain import effectively anywhere 'Communist organization'—including 'Communist-action' 'Communist-front' organizations.6 restrictive legislation gainsaid emphasizing, seems registering could recapture freedom simply good faith abandoning membership organization. Since association itself First Amendment,7 imposed dismissed asserting fully exercised yield up association. 20 Although previous cases statutory well-established principles whethe here consistent It familiar principle, recently reaffirmed NAACP Alabama, 377 288, 307, 1302, 1314, governmental purpose control activities constitutionally subject state achieved means sweep unnecessarily invade area freedoms.' See, e.g., Button, 371 415, 438, 83 328, 340, 405; Louisiana ex rel. Gremillion NAACP, 366 293, 1333, 301; Shelton Tucker, 364 479, 488, 247, 252, 231; Schware Bar Examiners, 353 232, 239, 77 752, 756, 796; Martin City Struthers, Ohio, 319 141, 146—149, 63 862, 864—866, 87 L.Ed. 1313; Cantwell Connecticut, 310 296, 304—307, 60 900, 903—904; Schneider State, 308 147, 161, 165, 146, 150, 152, 155. applying principle referred criteria enunciated 252: 21 '(E)ven though legitimate substantial, pursued stifle fundamental personal liberties end more narrowly achieved. breadth legislative abridgment must viewed light less drastic achieving same purpose.' 22 requires we congressional underlying Act.8 emphasizes question flows, statute declares, desire That safeguard Nation's security obvious unarguable. Cf. Kennedy Mendoza-Martinez, 372 144, 159—160, 554, 562—563, 644. As said 'while protects invasions rights, suicide pact.' 160, 563. At time powers 'must not, attaining permissible end, unduly infringe' freedom. 304, 903. 23 ordered commits attempts obtain applies act 'with notice' order. 'Notice' specifically defined 13(k). publication Federal Register r 'shall constitute final.' Thus terms whether actually knows believes associated one operating further aims 'to establish totalitarian dictatorship countries throughout *.' 987, 781(1). provision therefore sweeps knowing unknowing members. contexts occasion relationship between group where, here, made sole criterion limiting individual's Wieman Updegraff, 344 183, 73 215, 97 216, guarantee violated bar disloyal individuals employ, excluded organizational memberships regard concerning organizations belonged. 'Indiscriminate classification innocent activity fall assertion arbitrary power.' 191, 219. 24 renders irrelevant member's degree commitment purpose. These factors, knowledge, bear likelihood person attended type sought control. elsewhere noted, 'men adhering political other notoriously do subscribe unqualifiedly platforms asserted principles.' Schneiderman 320 118, 136, 1342, 1796. vein 246, 760, even '(a)ssuming illegal engaged activities, automatically inferred shared evil purposes participated conduct.' establishes irrebuttable presumption specified will, passports, engage inimical States.9 25 addition absence linking bare commitment, excludes considerations closely relate legislation. regardless wishes Under no ified visit sick relative, receive medical treatment, purpose.10 determining Amendment's liberty, recognize punishing 'for adherence lawful purposes, unprotected necessarily share.' Noto 290, 299—300, 1517, 1521—1522, 836; Scales 203, 229—230, 1469, 1486, 782. security-sensitivity areas result, relative Ireland, read rare manuscripts Bodleian Library Oxford University, applicant guilty crime; whereas, Canada Latin America carry directed free prohibitive reach 26 'less drastic'11 objective safeguarding 252. Employee Loyalty Program, before Joint Anti-Fascist Refugee Comm. McGrath, 341 123, 71 624, 95 817, example. Executive Order 9835, U.S.Code Cong.Service 1947, p. 1997, conclusive but factor weighed loyalty employee.12 relevant note than month after President Eisenhower sent message stating 'Any limitations tolerated overriding requirements substantive procedural guaranties.' Message President—Issuance Passports, H. Doc. 417, 85th Cong., 2d Sess.; 104 Cong.Rec. 13046. proposed more, disqualification S. 4110, H.R. 13318, Sess. Irrespective views validity proposals, demonstrate conviction Branch adequately which, compared discriminately tailored individuals. 27 view, foregoing compel face. section, judged control, widely supported tenuous proscribe. broad enveloping plainly activity, places patently 'narrowly drawn supposed evil,' cf. 905, elsewhere, precision touchstone affecting freedoms, 340. II. 28 alternatively urges face, should nevertheless 'surely here.'13 disputed leaders: Appellant Aptheker editor Political Affairs, 'theoretical organ' Flynn chairman Party.14 29 remembered '(a)lthough often strain construe save attack, point perverting *' judicially rewriting it. 211, 1477. To put matter another way, abstract enacted instead ask enact permissibly construction rendering defects. 30 clarity preciseness impossible narrow cast overly scope substantial rewriting. situation different National Dairy Products Corp., 29, 594, 561, where content allegedly vague language. Here, contrast, 'construe' probe recesses core inject element vagueness into statute's application; words thus uncertain meaning courts proceeded case-by-case out coverage. course proper, desirable, dealing severely curtails liberty. 31 Rights, approach 405, Thornhill 88, 736, 1093. Button 32 '(I)n appraising inhibitory hesitated take account possible statute, factual besides bar. 97—98, 1093; Winters York, 333 (507), 518—520, 68 (665) 671—672 (92 840). Staub Baxley, 355 313, 277, 302. objectionable quality overbreadth depend fair criminally accused unchanneled delegation powers, tolerating, existence penal susceptible sweeping improper application. Marcus Search Warrant, 717, 733, 1708, 1717, 1127. freedoms dilicate vulnerable, well supremely precious society. sanctions deter almost potently actual sanctions.' 432—433, 337. 33 For essentially Alabama face: 34 'An accused, arrest (on unconstitutionally abridging speech), sustain burden demonstrating written specific covering disclosed charge introduced him.' 98, 742.15 35 Similarly, since rights speech association, assume prohibiting travel.16 36 Accordingly judgment reversed cause remanded proceedings conformity opinion. 37 Reversed remanded. 38 BLACK, concurring. 39 makes felony 'Communist,' 'Communist-action,' for, use, abroad. I concur holding unconstitutional, ground standing alone, confers people will. Without reference provisions, has, my judgment, regulate commerce nations. Clauses Fourteenth Amendments mean me, neither nor agent anything else except accordance 'law land' pursuant dissenting 137, 1431, 625, think whole including law, sets comprehensive plan violates (1) constitutes 'Bill Attainder,' Art. I, 9, forbids pass; (2) penalizes punishes fact-findings subversives, traitors country, giving them benefit trial according process, jury independent judge, indictment, protections Fourth, Fifth, Sixth Amendments; (3) denies speech, press, guarantees. 40 designed 'internal security.' offers Framers thought (and agree) best way promote internal religion assembly, away groups whose most detest jeopardizing others views, popular today, themselves detested tomorrow. 41 DOUGLAS, 42 While join add few indicate problem us. 43 126, 1118, 'freedom movement,' internally 'deeply engrained' history. suppose Communist, indigent, barred traveling interstate. anyone else, right. Being certainly increase events happening, alive. If, think, move freely privilege immunity hip (see Edwards California, 314 178, 62 164, 169, 86 119), none exercising it, uses commit punished. But remains sacrosanct, conduct punishable. 44 Free dangerous tyrant expression ideas assembly controlled interests why riding boxcars carries extreme penalties lands. ticketing identification papers routine matters regimes, abhorrent States. 45 movement, home job business opportunities—for cultural, political, social activities—for commingling gregarious man enjoys. Those mischievous purposes. true many enjoy. place them, restraint, risk abusing give rise punishable price pay 46 kin abridged, De Jonge Oregon, 299 353, 57 255, 278; 449, 460—462, 1163, 1170—1171, 1488, sense. 47 War serious curtailment Absent war, see keep unless detain him. Ex parte Endo, 323 283, 65 208, 89 243. And exists convicted issuing warrant standards Fourth very essence society, setting us apart. Like meaningful—knowing, studying, arguing, exploring, conversing, observing thinking. Once curtailed, suffer, just curfew detention placed person. 48 sovereign; her sovereignty woven international web family ties continents close—commercially culturally. Our concerns planetary, beyond sunrises sunsets. Citizenship implicates problems perplexities, ones. enjoy citizenship perspective abroad; curb unless, said, detain. 49 CLARK, whom HARLAN joins WHITE part, dissenting. refuses Elizabeth Gurley Flynn, Chairman Aptheker, organ,' Affairs. Instead, declares invalid contrary long-prevailing practice Raines, 362 17, 20—21, 80 519, 522, 524 (1960): 51 foundation federal declare Acts lies duty decide controversies properly them. patent power—'the gravest delicate perform.' (Holmes, J., lodgett Holden, 275 142, 148, 276 105, 107, 72 206.) Marbury Madison, Cranch 177—180, 60. courts, 'has jurisdiction pronounce void, irreconcilable constitution, adjudge legal litigants controversies. jurisdiction, bound two rules, rigidly adhered: one, never anticipate advance necessity deciding it; other, formulate rule broader precise facts applied.' Liverpool, & Philadelphia S.S. Co. Commissioners Emigration, 113 33, 39, 352, 355, 899. Kindred rules heard impliedly taken situations unconstitutional. Wurzbach, 280 396, 167, 74 508; Heald Columbia, 259 114, 434, 435, 66 852; Yazoo Mississippi Valley R. Jackson Vinegar Co., 226 217, 40, 193; Collins Texas, 223 295—296, 286, 56 439; People Hatch Reardon, 204 160—161, 188, 190—191, 415. Voeller Neilston Warehouse 311 531, 537, 61 376, 379, 85 322; Carmichael Southern Coal Coke 301 495, 513, 868, 874, 1245; Virginian System Federation, 300 515, 558, 592, 605, 789; Blackmer 284 421, 442, 52 257, 76 375; Roberts Schaefer Emmerson, 271 50, 54—55, 375, 376—377, 70 827; Jeffrey Mfg. Blagg, 235 571, 576, 59 364; Tyler Judges Registration, 179 206, 252; Ashwander Tennessee Authority, 297 347—348, 466, 483—484, 688 (concurring opinion).' Indeed, last Term 36, 599, 561 (1963): 53 'In connection 'vagueness' governing followed arising There concerned 'on face' *. (In statute) 54 says apposite, citing 1093, 405. cases, based 1204 (1958). Consequently apposite here. 55 prosecution top dignitaries, clearly objections finds language applicable: (of Party) organization'; *." Let discuss seriatim: here—not attack—that Mrs. 'was active, participating continuous active affairs organization; still principal officials.' Likewise finding—not attack—as '(Aptheker) quite clear 1939 proud whatever goals Party.' record shows witnesses behalf proceeding resulted Communist-action 625 (1961). addition, Smith See Cir., 216 F.2d 354 (1954). view circumstances, say truth know fact, claims lack section. aimed establishing world, findings 1950 (the petitioners testified 1954 instrumentality conspiracy overthrow States,' 775; policies programs secretly prescribed ibid.; country,' world,' 987; accomplished 'action organizations' various governments means,' 988. Congress, Examiner binding supra. said: 58 reexamine reject Harisiades Shaughnessy, 342 580, 590, 512, 96 586. They product extensive investigation Committees over decade half. Nebbia 291 502, 516, 530, 505, 507, 940. dismiss unfounded irrational imaginings. Galvan Press, 347 529, 737, 741, 98 911; American Communications Ass'n., C.I.O. Douds, 339 382, 388—389, 674, 678 679, 94 925. 94—95, 1409. is, difficult me how rationally appellants—top functionaries supra—did 'associated How escape? 'sweeps members.' 'unknowing members' Neither contests findings. All imaginings: wish University claim asserted. soon enough comes Nor face.' prohibit life, property. Here Barenblatt 360 109, 127—128, 79 1081, 1115 (1959): 'That wide legislate field County, investigations aid thereof, hardly debatable. questioned analysis rests self-preservation, ultimate value society,' Dennis 494, 509, 857, 867, 1137.' absolute. ample Americans belonging Passports denied Soviet Revolution until early 30's then again 40's. determined, 'is prerequisite carrying movement.' members: enabled Union orders comrades exchange vital secrets well; facilitated training experts sabotage Moscow; gave closer central movement; and, utmost importance, provided secret agents espionage purposes.* afforded rational restraint outweighed dangers existence. remedy accomplish every endanger worthy trust? secret, conspiratorial rigid discipline Moscow, merely determined wise entailed. class harmful invalid. Westfall 274 256, 259, 629, 1036 (1927); North Securities Exchange Comm'n, 327 686, 710—711, 785, 798—799, 90 945 (1946); Assn. 406, 688, 925 (1950). 132, 163, 172, 1340, 1355, 1359, 1796 (1943), indicated exclude entering country. Hawker 170 189, 573, 1002 (1898), preventing felons practicing medicine; similarly, aliens pool halls, Ohio Clarke Deckebach, 392, 396—397, 630, 631, (1927). More onerous burdens found union officers (whose enjoying privileges Labor Relations Act), offices livelihood regard) Likewise, authorizing deportation 586 (1952); 911 vesting hold bail pending determination deportability. Carlson Landon, 524, 525, 547 (1952). realm power, Maryland permitted require candidates oath force violence, Gerende Supervisors, 56, 565, 745 (1951); Los Angeles allowed employees non-Communist penalty discharge, Garner Public Works, 716, 909, 1317 similar public school approval, Adler Education, 485, 380, 517 discharge teachers 'security agency' refused answer questions affiliations, Beilan 399, 1317, 1414 (1958); Lerner Casey, 468, 1311, 1324, 1423 California Illinois admission applicants Konigsberg Bar, 997, 105 (1961), re Anastaplo, 82, 978, 135 loose generalization guilt conclusively presumed One isolation based. 782 intention 'active' having intent.' 228, 1486. course, carried stricter standards. And, requirement, laid down Scales, mandate. interpreting directly come terms. membership, (1952), cited majority, dealt General's list subversive groups. condemned employee listed knew listed; furthermore, proscribed past organizations. proof necessary entry required. Finally, avoid Act's nctions terminating Wieman. rebuttable objectives. opportunity rebut circumstances had, strength warranted much disability loss employment. reasons, affirm. 67 dissent therein affirm Paragraph 'For subchapter (t)he term organization' C mmunist-action Communist-front Communist-infiltrated organization.' 990, amended, 777, 6(b) 'When officer to, renew of, havinb violations 15(c) 5, title shall, punished each fine $10,000 imprisonment five years, imprisonment.' 1003, 794(c). law. Greene McElroy, 474, 1400, 1377. complaint as: '(b) abridgement press (c) plaintiff trial, bill attainder, Article Constitution, (d) III, 2, clause (e) imposition cruel unusual punishment Eighth Amendment.' disposition unnecessary contentions. Bolling Sharpe, 497, 499—500, 693, 694, 884, 'Although assumed define great precision, confined mere bodily restraint. Liberty extends full range pursue, restricted objective.' E.g., Brotherhood Railroad Trainmen Virginia 1113; Gibson Florida Legislative Investigation Comm., 539, 889, 929; Bates Little Rock, 361 412, 480; Patterson, 1488; 2. 781. found, generally 2(1), 'exists treachery, deceit, infiltration *, espionage, sabotage, terrorism, necessary, through medium worldwide 2(15) States' action. adopting 2(8): 'Due nature affiliated constituent elements working toward common objectives members, representatives, facilitates communication cannot, admits, limited interpretation analogous so-called 'membership clause' 782, interpreted include "active' explicitly 'that defendant organization's advocacy.' 221, 1482. intimately connected With concedes, 'neither history suggests denying aboard. supports implicit irrelevant. Appellants, 'He desires Europe study recreation, observe social, economic conditions thereafter write, publish, teach lecture about observations. He attend meetings learned societies fulfill invitations abroad.' '(She) recreation study, publish observations.' 'drastic' than, distinguishable from, i Douds 9(h) amended Taft-Hartley 159(h), trade-union access facilities submission affidavits union. undoubtedly discouraged unions choosing election affect work membership. Assistant Peyton Ford, expressed predicated disloyalty Ford 'A difference exists, standpoint sound policy validity, making, would, designated felony, recognizing program, piece pointing disloyalty. brand felon, membership; program enables respond charges him show, manner concepts justice fairness, reflect loyalty. '* appear, possible, bill. comments represent Department, mind subversion.' Hearings 3903 7595 House Committee Un-American 81st Sess., 2125. recognizes, 'Membership, leadership, crime.' Brief Petitioner Petition Writ Certiorari, 11, cert. denied, 968, 1646. leged traveling, 10, Freund, Supreme pp. 67—69; Note, Harv.L.Rev. 1208 (1948); 109 U.Pa.L.Rev. 67, 75—85 (1960). exposed violating belief officer, prohibited. led traveled business, indoctrinated trained strategy acted couriers Parties countries.

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