Document: 459 U.S. 87 103 S.Ct. 416 74 L.Ed.2d 250 Ted W. BROWN et al., Appellantsv.SOCIALIST WORKERS '74 CAMPAIGN COMMITTEE (OHIO) al. No. 81-776. Argued Oct. 4, 1982. Decided Dec. 8, Syllabus Held: The disclosure provisions of the Ohio Campaign Expense Reporting Law requiring every candidate for political office to report names and addresses campaign contributors recipients disbursements, cannot be constitutionally applied appellee Socialist Workers Party (SWP), a minor party that historically has been object harassment by government officials private parties. Pp. 91-102. (a) First Amendment prohibits State from compelling disclosures will subject those persons identified reasonable probability threats, harassment, or reprisals. Buckley v. Valeo, 424 1, 74, 96 612, 661, 46 659. Moreover, parties must allowed sufficient flexibility in proof injury. Ibid. These principles safeguarding interests their members supporters apply not only compelled but also disbursements. 91-98. (b) Here, District Court, upholding appellees' challenge constitutionality provisions, properly concluded evidence hostility toward SWP its establishes disclosing them 98-101. Affirmed. Gary Elson Brown, Columbus, Ohio, appellants. Thomas D. Buckley, Jr., Cleveland, appellees. Justice MARSHALL delivered opinion Court. 1 This case presents question whether certain requirements Law, Rev.Code Ann. § 3517.01 seq., can Party, which statute requires In 659 (1976), this Court held show "reasonable probability" "threats, reprisals." Id., at S.Ct., 661. Employing test, three-judge Southern is unconstitutional as Party. We affirm. 2 * ("SWP") small with approximately sixty Ohio. states constitution aim "the abolition capitalism establishment workers' achieve socialism." As found, does advocate use violence. It seeks instead social change through process, regularly run public office. SWP's candidates have had little success polls. 1980, example, United States Senate received fewer than 77,000 votes, less 1.9% total vote. contributions expenditures averaged about $15,000 annually since 1974. 3 1974 appellees instituted class action1 Northern challenging Law. seq. file statement identifying each contributor recipient disbursement funds. 3517.10.2 "object purpose"3 disclosed. lists are open inspection least six years. Violations punishable fines up $1,000 day violation. 3517.99. 4 On November 6, 1974, entered temporary restraining order barring enforcement against pending determination merits.4 was then transferred an identical February 1975.5 Accordingly, disclosed otherwise complied statute. A district court convened pursuant 28 U.S.C. 2281 (1976). Following extensive discovery, trial 1981. After reviewing "substantial both governmental supporters," under appellees.6 II 5 Constitution protects associations beliefs. Such "can seriously infringe on privacy association belief guaranteed Amendment." supra, U.S., 64, 656, citing Gibson Florida Legislative Comm., 372 539, 83 889, 9 929 (1963); NAACP Button, 371 415, 328, 405 Shelton Tucker, 364 479, 81 247, 231 (1960); Bates Little Rock, 361 516, 80 412, 480 Alabama, 357 449, 78 1163, 1488 (1958). "Inviolability group may many circumstances indispensable preservation freedom association, particularly where espouses dissident beliefs." 462, 1172. right one's beliefs yield "subordinating interest [that is] compelling," 463, 1172 (quoting Sweezy New Hampshire, 354 234, 265, 77 1203, 1219, 1311 (1957) (concurring opinion)), if there relation between information sought [an] overriding state interest." 546, 893. 6 Valeo upheld reporting imposed Federal Election Act 1971. 431 60-74, 654-661. found three general justify concerning expenditures:7 enhancement voters' knowledge candidate's possible allegiances interests, deterrence corruption, contribution limitations.8 stressed, however, balance exempting disclosures. government's "diminished" 70, Minor "usually represent definite publicized viewpoints" well known public, improbability winning reduces dangers corruption vote-buying. At same time, potential impairing substantially greater: "We unmindful damage done associational independents could significant. movements likely sound financial base thus more vulnerable falloffs contributions. some instances fears reprisals deter point movement survive. suffers result comes pass, consequent reduction free circulation ideas within without arena." 71, (footnotes omitted). 7 diminished furthered greater threat values. 8 set forth following test determining when disclosures: "The offered need party's contributors' either Government parties." 10 acknowledged "unduly strict impose heavy burden" emphasized "[m]inor injury." 11 include, specific past present due ties, directed organization itself. pattern threats manifestations sufficient. no history upon draw able offer individuals organizations holding similar views." 12 Appellants concede governs contributors, they contend application disbursements.9 assert substantial preventing misuse funds.10 They argue funds significant impact rights, because, unlike contribution, mere receipt money commercial services affirmatively express support. 13 reject appellants' unduly narrow view exemption recognized Buckley. Appellants' attempt limit laws inconsistent rationale stated supporting weaker parties, while values greater. Both these considerations 14 Although appellants disbursements necessary prevent concededly legitimate force context federal law considered like issue here, required committees identify §§ 432(c) (d), 434(a) (b). "by exposing large light publicity," "ten[d] 'prevent corrupt affect elections.' " 67, 657 (emphasis added), quoting Burroughs States, 290 534, 548, 54 287, 291, L.Ed. 484 (1934). concluded, because unlikely win elections, "deterring 'buying' elections" "reduced" 659.11 15 understate rights would disclose Expenditures often consist reimbursements, advances, wages paid members, workers, supporters, whose activities lie very core Amendment.12 Disbursements go who choose support unpopular cause providing rendered scarce suspicion.13 Should involvement publicized, connection solely financial.14 Even receive "merely" transactions deterred enmity attending publicity, seeking harass disrupt basis expenditure information.15 Because individual enters into transaction purely reasons lacks any ideological commitment party, such even risk harassment.16 Compelled therefore cripple ability operate effectively thereby reduce See 250-251, 1211-1212, (plurality opinion) ("Any interference simultaneously adherents."). 16 hold, therefore, announced applies III 17 facts case. supporters." Appellees introduced incidents four years preceding trial. incidents, occurred neighboring states, included threatening phone calls hate mail, burning literature, destruction members' property, police candidate, firing shots There 12-month period before 22 including were fired membership. two firings politically motivated, amply supports Court's conclusion "private make it difficult maintain employment." 18 SWP. FBI surveillance "massive" continued until 1976. conducted counterintelligence program Young Alliance (YSA), youth organization. One aims "SWP Disruption Program" dissemination designed impair YSA function. "disclosing press criminal records candidates, sending anonymous letters spouses, employers."17 Until 1976, employed various covert techniques obtain SWP, sources nature expenditurers. specifically interfered State.18 limited FBI. Civil Service Commission gathered YSA, routinely distributed reports Army, Navy Air Force Intelligence, Secret Service, Immigration Naturalization Service. 19 reprisals.19 numerous recent other states.20 considerable harassment. relevance efforts curb official misconduct. Notwithstanding efforts, suggests ingrained continue. All relied IV 20 supporters. Ohio's 21 judgment affirmed. BLACKMUN, concurring part judgment. 23 I join Parts I, III, agree much what said Part II. But agree, partial dissent, we should reach standard different ante, 94, n. 9; post, 112-113, 7.1 did suggest standards might apply. Nor raised jurisdictional brief merits Consequently, merely assume purposes our decision—as apparently assumed throughout litigation clearly assumed—that flexible rule equally forced expenditures. leave another day, squarely presented, courts below, adequately briefed now divides 24 Rule 15.1(a) states: "Only questions fairly therein Court." presented single question: 25 "Whether, Sections 3517.10 3517.11 Revised Code, require committee full making receiving committee, consistent Fourteenth Amendments minority establish isolated during years." Juris. Statement i. 26 assumes applicability entire case, asks decide court's satisfied. 27 Absent extraordinary circumstances, issues beyond agreed review. Mayor Educational Equality League, 415 605, 623, 94 1323, 1334, 39 630 (1974); Bass, 404 336, 339, 92 515, 518, 30 488 (1971); General Talking Pictures Co. Western Electric Co., 304 175, 178-179, 58 849, 851-852, 82 1273 (1938). According established 'fairly included' presented." Ante, 9. failure oversight phrasing question. That invoke jurisdiction review proper apparent arguments merits. statement, heading Question Substantial," stated: governing resolution actions involving challenges [96 659] relief action '. . parties.' 661]." 10. 29 went injury "disclosure requirements." 12-13. Similar assertions Brief ("Summary Argument"); id., ("While refusing grant blanket requirements, .") Thus, exclusive theme initial presentation here erred finding inapplicable, differently, requirements. reply brief, submitted eight after suit time opportunity respond writing, inject new Irvine California, 347 128, 129, 381, 98 561 (1954) Jackson, J.). my view, simply "fairly included" statement. 31 "[w]here neither nor [by below], ordinarily consider them." Adickes S.H. Kress & 398 144, 147, 2, 90 1598, 1603 142 (1970); Lawn 355 362-363, 16, 311, 324-325, 321 address developed reason conceded "flexibility injury" applicable governed post-trial memorandum, hint govern identities Instead, quoted granted "evidence plaintiffs cases instant one." Defendants' Post-Trial Memorandum 4-5. 32 justifying deviation long practice respecting below. deviated omitted lower courts, see, e.g., Storer Broadcasting 351 192, 197, 76 763, 767, 100 1081 (1956), noticed "plain error" assigned, see Brotherhood Carpenters 330 395, 67 775, 784, 91 973 (1947). Obviously, dissent jurisdictional. Nor, persuasively demonstrates, error." Indeed, quite that, consideration, adopt wish revise disbursements—perhaps take account types covered differing impacts perhaps along lines suggested dissent. constitutional decision made so record includes data adequate inform 33 reliance Procunier Navarette, 434 555, 560, 855, 859, 55 (1978), provide deciding time. petitioner his petition certiorari all eventually decided. fact question, fully denied. Deciding questions, unwise unfair. contrast, excluded By failing raise prevented responding argument writing. observes, "our power precise terms 421, 6) supplied). designed, prudential matter, possibility tactics ill-considered decisions. one wisdom Rule. 34 assume, just contributions.2 "specific itself," trigger reprisals" contributors. basis, affirm entirety. 35 O'CONNOR, whom REHNQUIST STEVENS join, dissenting part. 36 concur sufficiently demonstrated reprisals, compel disclosure. Further, broad concerns But, failed carry burden showing themselves strong fair honest elections outweighs state's expenditure-disclosure law. 37 validity 1971, campaign. major requirements: corruption; interests; provision means detect violations statutory limitations faced, overbreadth Act's "insofar independent candidates." 68-69, 658-659 added).1 Since occasion directly expenditures, weigh adopted majority, 93, reflects limitation, contemplates assessing word considering effects party. 38 say provides guidance resolving claim. majority overstated declaring Certainly, enunciates regulating who, although win, outcome election. emphasizes sensitive Nevertheless, important differences expenditures—differences address, me conclude necessarily calibrated identically. First, contributions, decrease significantly knowing identity increase determine ideology minor-party stance usually known. Ibid.2 further "buying" reduced parties.3 40 sharp remains purpose improper influencing voters. Corruption electoral process forms: actual buying votes; "slush funds;" dirty tricks; bribes poll watchers election officials. "persuasive" worker corral voters modest fund."4 though practices successful attract enough votes elect short-term goal recognition, tempted resort impermissible methods resulting deflection candidates.5 requirement verifiable deterring practices, hide accounting sleight-of-hand.6 41 side balance, lesser 91, "[t]he never drawn distinctions 66, 657. especially sensitive, seek views privately pocketbook rather publicly means. Disclosure implicates rights. 42 arising different—and generally dimension. Many mundane intimately connected Payments things supplies, telephone service, bank charges, printing photography costs fall category. likelihood business dry remote best. Unlike silent reveal positions, perceived ideology, harassed affected 43 Other closer ties workers per diem, travel, room expenses fit 97, 12. certainly conceivable threatened conduct. Laws contribute Once openly shown close campaigning it, degree striking greatest precisely improperly influence whatever marginal arise outweighed heightened interest. 44 sum, deterrent effect demand separately focused inquiry exists itself reprisals.7 45 Turning remember flexible, carries production persuasion outweigh interests. Additionally, historical most characterized mixed fact, normally assess independently unconstitutionality applied.8 direct Rather, accurately represents visible violence headquarters loss jobs. majority's evidence, viewed entirety, linked person position suffer shows active suffer, lead presume people ideology. 47 record, read members. gave breakdown thought contain statements itemize omitting name recipient. number dollar amount, food, printing, photographs, books. virtually needed services.9 portion others ideology,10 already work. inferring thereafter working virtue inclusion later reports, danger existed, 48 plain insofar provisions. uphold portions expenditures.11 plaintiff certified treasurers, committees. defendants Secretary local administer Section relevant part: (A) Every nomination shall file, form prescribed section, full, true, itemized penalty falsification, setting detail (B) Each division section information: (4) received, include: month, date, year contribution; person, chairman treasurer thereof individual, received. filing filed finance fund-raising auxiliary. (c) description money; (d) value dollars cents (e) regardless amount except sum twenty-five activity. An activity listed separately, together incurred No continuing makes derived regular dues list dues. (5) expenditure; made, persons; made; expenditure. filed, carefully preserved If running state-wide office, secretary state; otherwise, appropriate county board elections. 3517.11(A). 3517.10(B)(5)(c). restrained "applying enforcing law, postpone beginning violation plaintiffs, decided judge panel, hereby convened." (Citations Apparently none six-year questioned extended duration conformed 65(b) Fed.Rules Civ.Proc. invalidated claim facially invalid. matter how amount. 3517.10(B)(4)(e). contended absence monetary threshold invalid nominal lack nexus claimed 82-84, 664-665, unreported. 432, 438 keep detailed available public. completely inapplicable imposes believe us. Throughout maintained invalidating aspects (1) standard, permits (2) appealed below review: think correctness holdings Sup.Ct. 15.1(a). 559, 858, (1978) ("[O]ur presented."). supra. do enhancing evaluate limitations, nevertheless gain recognition. Post, 109-110. relies WHITE's separate he pointed out "unlimited tempts spend buy election." 748 original). examination WHITE observation indicates why insubstantial. addressing ceilings candidates. His "could play role unethical practices." resources serve built-in ceiling minimizes expend amounts activities. For far having money," average roughly fifteen thousand efforts. Most typically pay ordinary fixed conducting campaigns, fees, travel expenses, publishing distributing literature maintaining offices. Thus "financing illegal low organization's priority list," 748, apposite funding tricks 110. impact. Furthermore, unfair infringement channel divert contenders, noted 110, 5, occasionally outcomes distorting entirely absent entitled similarly hold well. percentage entries designated rental, on. easy recipients. "[F]inancial person's activities, associations, 657, California Bankers Assn. Shultz, 21, 78-79, 1494, 1525-1526, 812 (1974) (POWELL, J., concurring). 1976 investigated kept track payees checks. exposed detract serious exercise exposed. dissent's assertion subjected hostility. 111-112. Apart work variety ways publicizing involvement, results dramatic exposure. Under affiliation recorded document wishes examine 3517.10(B). unorthodox affiliations increases above faces worked See, Attorney General, 458 F.Supp. 895, 904 (SDNY 1978) (FBI arrangements speaker hall rental), vacated grounds, 596 F.2d (CA2), cert. denied, 444 903, 217, 62 141 (1979). hard vote-buying payments routine services. Final Report Special Master Judge Breitel al 73 Civ. 3160 (TPG) 1980), detailing Government's admissions existence following: possesses 8,000,000 documents relating 1960 300 informants and/or 1,000 non-member informants. Cleveland Cincinnati field offices member Approximately branch Three ran elective files $358,648.38 expenses." (Footnotes concluded: "[T]he totality create she enjoined recipients' names. expressly refer passage evident Some episodes outside Anti-SWP occurrences places Chicago (SWP vandalized) Pittsburgh (shot building) public's attitude "[n]ew Surely experiences chapters espousing philosophy. 1980 Illinois Board Elections, 531 915, 921 (N.D.Ill.1981). linking statute's rejected proof" favor "come forward witnesses too fearful testify fears" prove "chill [are] attributable sought." While appears 112-113 7, "separately inquiry," 112, reality chill requirement. agrees decided, reasoning endorse proof. infra. says "this expenditures." 7. so, proof, likewise find particular creates requisite based understand inquiry" "plainly result," 113, possibly "appellees provisions," 115 —unless, despite uncertain disclaimer, "separate focus" alters Buckley's "flexible Of course, challenged Act, "for communications defeat candidate." 80, 664. challenge, true instance. readily discernible cursory glance literature. obviously correct noting third articulated —using expenditures—has sets them. 264-265, 747-748, (1934): feared corrosive spending blind deny unlimited [Emphasis original.] Certainly effect. oral gubernatorial 95,000 votes. Republican margin victory over Democratic 13,500 Tr. Oral Arg., 18. documented. Hesseltine, Third-Party Movements (1962). disagree suggestion, 98-99, improprieties occur services, ensure other, hidden accounts. us." declares answering harassment." added). 102, characterizes assuming meet standard. assumption understandable, though, us inquire turn harm distinct guiding remain required, ultimately alter does, plainly result. Pullman-Standard Swint, 456 273, 289, 19, 102 1781, 1790, 72 66 (1982). articulate applying. "properly concluded" 100, seems independent-review admitted Exhibit 129 copy Findings Fact 1977 National Committee Jennings, 74-1338 (D.D.C., stipulated Jan. 3, 1979). FEC analyzed affidavits documentary 126, accepted proposed 1971 landlady San Francisco apartment, visited warned her 127, evicted apartment. explained, "they told you," "they" were. are, place, difficulty space. engage FBI's ended, Select Study Operations Respect Intelligence Activities, S.Rep. 755, 94th Cong., 2d Sess., Vol. 4-5, 3-4 Congress rigorous intelligence 50 413 (Supp. 1980). inference obtaining space tenuous, disclosure," 72, 660. notes, 12, forms rental. 1978, diem Apparently, treasurers payments. caused named persons, indeed highly exposure applied, sever unless Legislature intended 'those power, .,' 108, 677 (severing face), Champlin Refining Corporation 286 210, 52 564, 1062 (1932). Clearly, severed instance, analytically practically distinct.

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