Document: 413 U.S. 601 93 S.Ct. 2908 37 L.Ed.2d 830 William M. BROADRICK et al., Appellants,v.State of OKLAHOMA al. No. 71—1639. Argued March 26, 1973. Decided June 25, Syllabus Appellants, state employees charged by the Oklahoma State Personnel Board with actively engaging in partisan political activities (including solicitation money) among their coworkers for benefit superior, alleged violation § 818 merit system Act, brought this suit challenging Act's validity on grounds that two its paragraphs are invalid because overbreadth and vagueness. One paragraph provides no classified service employee 'shall directly or indirectly, solicit, receive, any manner be concerned soliciting receiving assessment . contribution organization, candidacy other purpose.' The such shall belong to 'any national, local committee a party' an officer member club, candidate paid public office, take part management affairs party campaign 'except exercise his right as citizen privately express opinion vote.' District Court upheld provisions. Held: Section statute is not unconstitutional face. CSC v. Letter Carriers, 548, 2880, 796. Pp. 607—618. (a) statute, which gives adquate warning what it proscribes sets forth explicit standards those who must apply it, impermissibly vague. 607—608. (b) Although appellants contend reaches constitutionally protected well not, clearly constitutional applied conduct they substantially overbroad cannot challenge ground might unconstitutionally others, situations before Court. Appellants' falls squarely within proscriptions 818, deals has ample power regulate, United Public Workers America Mitchell, 330 75, 67 556, 91 L.Ed. 754; supra, operation been administratively confined activity. 608—618. 338 F.Supp. 711, affirmed. John C. Buckingham, City, Okl., appellants. Michael Dennis Martin, appellees. Mr. Justice WHITE delivered 1 Oklahoma's Merit System Administration Okla.Stat.Ann., Tit. 74, 801 seq., restricts State's civil servants much same Hatch Act federal employees. Three Corporation Commission subject seek have declared face enjoined asserted vagueness overbreadth. After hearing, provisions denied relief. 711. We noted probable jurisdiction appeal, 409 1058, 550, 34 510, so appellants' claims could considered together counterparts States Civil Service National Association AFL—CIO, affirm judgment 2 was enacted 1959 when first established Administration.1 section serves roughly function analogous 49 States,2 patterned 9(a) Act.3 Without question, broad range proscribed section. Paragraph six, one contested portions, '(n)o shall, seven, challenged paragraph, party, nomination election office.' That further prohibits from 'tak(ing) campaign, except cast As complementary proscription (not lawsuit) person 'in way' being 'favored discriminated against respect employment opinions affiliations.' Responsibility maintaining enforcing 818's vested Director, appointed Board. Violation results dismissal possible criminal sanctions limited ineligibility. §§ 819. 3 Appellants do question place even-handed restrictions freely concede serve valid important interests, particularly attracting greater numbers qualified people insuring job security, free vicissitudes elective process, protecting them 'political extortion.'4 See 99—103, 569—571, 754 (1947). Rather, maintain however permissible, even commendable, goals may be, language vague prohibitions too sweep, failing distinguish between permitted. For these reasons,5 assert sixth seventh void toto enforced anyone else.6 4 held today little doubt similarly 'men common intelligence necessarily guess at meaning.' Connally General Construction Co., 269 385, 391, 46 126, 127, 70 322 (1926). Grayned City Rockford, 408 104, 108 114, 92 2294, 2298—2302, 33 222 (1972); Colten Kentucky, 407 110—111, 1953, 1957—1958, 32 584 Cameron Johnson, 390 611, 616, 88 1335, 1338, 20 182 (1968). Whatever problems there all but frivolous suggest fails give adequate set out 'explicit standards' it. U.S., 108, S.Ct., 2298. In plainest language, 'an member' 'partisan club' It forbids contributions 'for purpose' taking campaign.' Words inevitably contain germs uncertainty and, disputes over meaning terms 'partisan,' 'take in,' 'affairs of' parties. But said 578—579, 2897, applicable here: 'there limitations English both specific manageably brief, seems us although satisfy intent finding fault cost, ordinary exercising sense can sufficiently understand comply with, without sacrifice interest.'7 Moreover, if outermost boundaries imprecise, relevance here, where 'hard core' statute's much.8 Dombrowski Pfister, 380 479, 491 492, 85 1116, 1123—1124, 14 22 (1965); Dairy Products Corp., 372 29, 83 594, 9 561 (1963); Williams States, 341 97, 71 576, 95 774 (1951); Robinson 324 282, 286, 65 666, 668, 89 944 (1945); Wurzbach, 280 396, 50 167, 74 508 (1930). 5 Shortly commenced action Court, were patent violations 818.9 According Board's charges, participated 1970 re-election Commissioner, superior. All three allegedly asked (individually groups) work referrals persons help campaign. Most requests made district offices Commission's Oil Gas Conservation Division. Two money Commision also distributing posters bulk. context type obviously covered conduct, statement Holmes appropriate: 'if difficulty will time enough consider raised someone whom concerns.' 399, 169. 6 construed applying expression wearing buttons displaying bumper stickers.10 did engage They activities—including money—among concede—and correctly so, see supra—that would conduct.11 nevertheless purports reach protected, unprotected therefore struck down incapable application. believe doctrine appropriately invoked here. 7 Embedded traditional rules governing adjudication principle heard conceivably See, e.g., Austin Aldermen, Wall. 694, 698—699, 19 224 (1869); Supervisors Stanley, 105 305, 311—315, 26 1044 (1882); Reardon, 204 152, 160—161, 27 188, 190—191, 51 415 (1907); Yazoo & M.V.R. Co. Jackson Vinegar 226 217, 219—220, 40, 41, 57 193 (1912); Wurbach, 169; Carmichael Southern Coal Coke 301 495, 513, 868, 874, 81 1245 (1937); Raines, 362 17, 80 519, 524 (1960). A closely related rights personal vicariously. McGowan Maryland, 366 420, 429—430, 1101, 1106—1107, 393 (1961). These principles rest more than fussiness judges. reflect conviction under our courts roving commissions assigned pass Nation's laws. Younger Harris, 401 37, 52, 746, 754, 669 (1971). Constitutional judgments, Chief Marshall recognized, justified only necessity adjudicating particular cases litigants Court: 8 'So law opposition constitution; constitution case, court either decide case conformably law, disregarding constitution, law; determine conflicting governs case. This very essence judicial duty.' Marbury Madison, Cranch 137, 178, 60 (1803). past, recognized some exceptions principles, most 'weighty countervailing policies.' 23, 523—524.12 exception individuals parties stand lose outcome yet effective avenue preserving themselves. Eisenstadt Baird, 405 438, 444—446, 1029, 1033—1035, 31 349 NAACP Alabama, 357 449, 78 1163, 1488 (1958). Another carved area First Amendment. 10 long Amendment needs breathing space statutes attempting restrict burden narrowly drawn represent legislative mode way compelling society. Herndon Lowry, 242, 258, 732, 739, 1066 Shelton Tucker, 364 488, 247, 252, 231 (1960); 116—117, 2303—2304. corollary, altered standing permit—in area—'attacks overly requirement making attack demonstrate own regulated requisite narrow specificity.' 486, 1121. Litigants, therefore, permitted violated, prediction assumption existence cause others refrain speech expression. 11 Such facial entertained involving which, terms, regulate 'only spoken words.' Gooding Wilson, 518, 520, 1103, 1105, (1972). Cohen California, 403 15, 1780, 29 284 (1971); Street New York, 394 1354, 572 (1969); Brandenburg Ohio, 395 444, 1827, 23 430 Chaplinsky Hampshire, 315 568, 62 766, 86 1031 (1942). cases, harm society permitting go unpunished outweighed possibility muted perceived grievances left fester inhibitory effects statutes. Overbreadth attacks allowed thought association ensnared result burdening innocent associations. Keyishian Regents, 385 589, 87 675, 17 629 (1967); Robel, 389 419, Aptheker Secretary State, 378 500, 84 1659, 12 992 (1964); supra. Facial statutes, purport time, place, expressive communicative 114—121, 2302—2306; 617—619, 1338—1339; Zwickler Koota, 241, 249—250, 396—397, 444 Thornhill 310 88, 736, 1093 (1940), required official approval laws delegated standardless discretionary functionaries, resulting virtually unreviewable prior restraints rights. Shuttlesworth Birmingham, 147, 935, 162 Cox Louisiana, 379 536, 553—558, 453, 463—466, 13 471 Kunz 340 290, 312, Lovell Griffin, 303 58 82 949 (1938). consequence departure enforcement thus placed issue totally forbidden until unless limiting construction partial invalidation narrows remove seeming threat deterrence Application is, manifestly, strong medicine. employed sparingly last resort. statute. 491, 1123; 312 569, 61 762, 1049 (1941); Thirty-Seven Photographis, 402 363, 1400, 28 822 cf. Breard Alexandria, 622, 920, 1233 (1951). Equally important, claims, all, curtailed sought conduct. Cantwell Connecticut, 296, 900, L.Ed.1213 Jesse Cantwell, Jehovah's Witness, convicted common-law breach peace playing phonograph record attacking Catholic Church men new Haven street. reversed affirming Cantwell's conviction, 'considered light guarantees,' punished 'the offense question.' Id., 311, 906 (footnote omitted). hold 'known peace' fall capable applications, fact, seemingly envisioned continued use 'a great variety destroying menacing order tranquility.' 308, 905. Garner 368 157, 202—203, 205, 248, 271—272, 273, 207 (1961) (Harlan, J., concurring judgment). Similarly, reviewing statutory breach-of-the-peace convictions involved Edwards South Carolina, 229, 680, 697 (1963), 544-552, 458—463, detail evidence each concluded itself On basis, judgments reversed.13 International Brotherhood Teamsters, Local 695 Vogt, Inc., 354 284, 77 1166, 1347 (1957). Additionally, scrutiny generally somewhat less rigid regulating shadow Amendment, doing neutral, noncensorial manner. Harriss, 347 612, 808, 98 989 (1954); v CIO, 335 106, 68 1349, 1849 (1948); Red Lion Broadcasting FCC, 367, 1794, 371 Pickering Education, 391 563, 565 n. 1, 1731, 1733, 811 (1968); Eastern Railroad Presidents Conference Noerr Motor Freight, 365 523, 464 remains 'matter difficulty' properly 'such summary action' inappropriate. Coates Cincinnati, 617, 1686, 1689, 214 (1971) (opinion Black, J.). plain import least, practice function, outset, attenuates otherwise behavior sanction moves 'pure speech' toward conduct—even expressive—falls scope legitimate interests comprehensive controls harmful, laws, broadly worded, deter unknown extent, comes point effect—at best prediction—cannot, confidence, justify invalidating prohibiting admittedly proscribe. Cf. Alderman 165, 174—175, 961, 966—967, 176 (1969). To put matter another way, merely involved, we real, substantial well, judged relation plainly sweep. view whatever exist should cured through case-bycase analysis fact sanctions, assertedly, applied.14 Unlike breach-of-the regulatory acts, directed, engaged private Fourteenth Amendments. censorial directed groups viewpoints. rather, seeks activity neutral indicted, past exacting scrutiny. regulates spectrum manifestly regulation trespass. unhesitatingly reaffirmed Under decision least insofar from: candidates, parties, purposes; becoming members state, committees officers clubs, candidates office; party's campaign; serving delegates alternates caucauses conventions parties; addressing active rallies meetings; votes assisting voters polls helping effort get polls; participating distribution literature; initiating circulating nominating petitions; riding caravans candidate. 15 taken Rules interpretive circular, authoritative Attorney General. proscriptions. 16 goes farther prohibitions. appellants, tied tightly relegate expressing views 'privately.' Board, however, 'private' include campaigning,15 General, interpreted 'clearly activity' only.16 Surely expected ignore pronouncements determining breadth Law Students Research Council Wadmond, 154, 162—163, 720, 726—727, 749 purporting stickers. impermissible susceptible improper applications. But, presently construed, discarded persons' arguably caught chilled 18 ordered. Affirmed. DOUGLAS, dissenting. 21 my governed considerations I dissent Carriers p. 595, 2905, par. 7, states: 'No (Emphasis supplied.) 24 If business commercial matters Court's citation 322, apt. crime contractors pay workmen 'current rate per diem wages locality performed.' muster penal measure. test fall. provision bars 'part 25 problem here concerns commerce 'privately' opinion. discourse included; emphasis tolerated emphasizes tolerated. how government deprive speak, write, assemble, petition once office closed home own. discussion local, international grist mill. Our decisions emphasize debate, uninhibited discussion, robust wide-open controversy, multitude tongues, pressure ideas clear across pattern freedoms. emphasized York Times Sullivan, 376 254, 272, 710, 722, 686, neither injury 'to reputation' nor 'factual error' repression speech, demands lowered barriers libel actions charges misconduct improprieties. indeed fundamental, 'we people' sovereigns, sit seats mighty. voice ultimately say; fence off group, bar dialogue, interest loser. Those into regime direct projects federally financed now amount about five half million. number included, added, estimated* scrubwomen, janitors, typists, file clerks, chauffeurs, messengers, nurses, orderlies, policemen policewomen, night watchmen, telephone elevator operators, kind administrative, executive, work. There touch banned. illegal procedures wiretapping, burglary, mailing politically salacious letters beyond pale. deep tradition: forming ad hoc lobby measures council body; organizing protective associations protect takes, rivers, islands wilderness, neighborhood; preparing petitions signatures support reforms; protest marches picketing statehouse cause—these passing literature, watching polls, radio TV appearances, parks auditoriums, intense process mobilizing measures, shaping opinion, getting X rather Y elected, on. bureaucracy alert, vigilant, alive efficient quiet submissive. makes alive. suppression creates faceless, nameless bureaucrats inert localities submissive master's voice. High values ride today's Carriers. allow Federal deprived Their certainly sector sector. Government watered-down So far goes, keep plane people. 30 reverse below. BRENNAN, STEWART MARSHALL join, one's desirability constitutionality efforts employees, regard upholding Act1 wholly unjus tified retreat fundamental previously well-established principles. purposes decision, assumes—perhaps concedes—that sweeps broadly, barring announced (1947), reiterated Nevertheless, rejects contention face, reasoning 'where case-by-case applied.' Ante, 615—616. conclusion finds previous effectively overrules just Terms ago remain convinced decided, respectfully dissent. Oklahoma, agency, Act. designates certain agencies, including Commission, barred dismissing suspending reasons. At authorizes dismiss suspend engages prohibited specifically employee's 'as vote,' (1) fund raising purpose; (2) membership club; (3) (4) participation Commissioner Ray Jones, formally then 42 U.S.C. 1983 three-judge Western seeking injunction rejected contentions overbroad, affirms determination. 35 are, course, similar 7324(a)(2). whether correct, means controlling questions us. Certain differences should, clear. 36 '(1) authority influence purpose interfering affecting election; campaigns.' recognizing critical phrase, campaigns,' hardly ambiguity, defined reference complex network regulations developed many years comprehensively restated 1970. CFR 733. make retained employee, notwithstanding contrary '(e)xpress individual publicly subjects candidates'; '(d)isplay picture, sticker, badge, button'; '(b)e organization .'; '(m)ake financial organization.' 733.111. By contrast, phrase Act—no campaign'—is almost undefined. While does declare 'privately,' nowhere defines part' 'management' 'affairs.' reservation could, moreover, mean forbidden. Of can, like counterpart, viewed conjunction administrative regulations. marked contrast elaborate define pertinent scant shed intended recite Act.2 third offers guidance general exhortation 'pursue good, impartial, act endanger impartiality occasion distruct impartiality.'3 fourth resign position 'prior filing accepting appointment party'—again, tracking Act.4 fifth, Rule 1641, clarifying major thrust contention. rule declares '(a)n wear button, emblem, display sticker sign automobile operated him control.'5 Even concedes ban stickers 'impermissible.' 618. 38 possible, inherent ambiguity terms. Supreme never attempted construe apparent reach. Plainly, undertake task. Photographs, 369, 1404, (1971).6 assume, gloss provided regulations,7 applications prohibit aim exercised unduly infringes 489, 250, 304, 903, 1213 (1940). failed, words, provide necessary 'sensitive tools' carry 'separation illegitimate speech.' Speiser Randall, 525, 1332, 1342, 1460 Button, 415, 433, 328, 338, (1963). 39 expressly assume badges 'impermissible,' 'may applications.' had dispute, requires Ordinarily, 'one application impliedly unconstitutional.' 21, 522, (1960).8 And apparently infringing guarantees repeatedly transcendent value deemed allowing 'attacks specificity." 521, 1005, quoting 1121, (1965).9 adhered 'delicate vulnerable, supremely precious potently actual sanctions. Smith (361 151—154, 215, 217—219, 205 (1959)).' 338. mere areas 'results continuous pervasive restraint freedom reasonably regarded purview. Where liberty concerned, special reasons observing accusation prescribes limits permissible warns transgression.' 98, 742, Note, Doctrine, Harv.L.Rev. 844, 853—854 (1970). 40 declines recognize review preventing 'chilling effect' 'attenuates conduct.' 615. henceforth 'substantial' found 41 accept analysis. 'substantial overbreadth.' conceive single application, already implicit doctrine. 858—860, 918. Whether require different showing substantiality obscure large explain why White somehow quite substantial. No conclusory assertion below line. More fundamentally, rationale that, analysis, differently equally Indeed, hard know falling distinction premise White's dissenting 620—621, 1691, (1971), conclusion—although Coates—has adopted 43 city ordinance 'three assemble sidewalks themselves annoying ..' 1687. particular, 'aimed Constitution. need lament details annoying. standard transgression. validate unconditionally assembly 1689. dissent, maintained since 'assembling 'conduct(ing)' persons,' he 'deal Cincinnati illegally infirm information defendants, judge applied. confer wide discretion circumstances irrelevant dealing core.' 1691. Thus, stood, today, proposition 'unconstitutionally punishment conduct,' 614, 1688, prosecuted narrowed statute.10 attempt Coates, implicitly conceding overruled. 44 stage, difficult estimate impact decision. inappropriate likelihood small generate likely small. hand, necessitates drawing artificial distinctions 'chill' rarely, ever, sufficient effect grave indeed. view, essential preservation guarantees. Since subsequent development persuaded me ill-founded incorrectly strength reads follows: to, demoted dismissed service, favored religious affiliations, race, creed, color national origin reason physical handicap prevent render able employed. '(2) promise use, influence, possessed anticipated, secure advantage increase position, influencing vote person, consideration; provided, inquiry, recommendation officials letter contains threat, intimidation, irrelevant, derogatory false information. '(3) statement, certificate, mark, rating, report test, certification commit fraud impartial execution hereunder. '(4) department, examiner, defeat, deceive, obstruct her examination, eligibility, certification, furnish secret effecting (sic) prospects service. '(5) give, render, pay, offer, money, valuable consideration account appointment, proposed promotion, promotion in, '(6) assessment, subscription unclassified solicit receive '(7) vote. '(8) Upon Director knowingly violate Section, notify appointing whose serves. desires, authorize submit transcript thereof, recommendation, Relevant witnesses present testify hearings. guilty employee; comply.' (1965) (paragraph enumeration added). Ala.Code, 55, 317 (1958); Alaska Stat. 39.25.160 (1962); Ariz. Rev.Stat.Ann. 16—1301 (1956), Regulations Procedures 1511 (1966); Ark.Stat.Ann. 83—119 (1947); Cal.Govt.Code 19730 19735 (1963 Supp.1973), Colo.Rev.Stat.Ann. 26—5—31 Comm'n Regulations, Art. XIV, 1; Conn.Gen.Stat.Rev. 5—266 (Supp.1969), Concerning Employees Classified 14—13; Del. Code Ann., 31, 110 (1953); Fla.Stat.Ann. 110.092 (1973); Ga. Administration, 3, 3.101—3.106; Hawaii Rev.Stat. 76—1, 76—91 Idaho 67—5311 Ill.Rev.Stat., c. 1/2, 38t Ind.Ann.Stat. 60—1341 (1962), I.C.1971, 4—15—2—40; Iowa Ann. 19A.18 (Supp.1973); Kan.Stat.Ann. 75—2953 Ky.Rev.Stat.Ann. 18.310 La.Const.Art. 14, 15(N) (1955); Me.Rev.Stat.Ann., 5, 679 Md. Grant-in-Aid Agencies 602.2; Mass.Gen.Laws 55 1—15, 56 35—36 (1958 Supp.1973); Mich.Rules Minn.Stat.Ann. 43.28 (1970); Miss. Rules, Dept. Welfare, XVI Mo.Ann.Stat. 36.150 Mont.Rev.Codes 94—1439, 94—1440, 94—1447, 94—1476 Neb.Rev.Stat. 1315 Neb. Joint System, Nev.Rules XVI, XIII N.H.Rev.Stat.Ann. 98:18, 98:19 N.J.Stat.Ann. 11:17—2 N.M.Stat.Ann. 5—4—42 (1953 Supp.1971); N.Y.Civ.Serv.Law, McKinney's Consol.Laws, 107 N.C.Gen.Stat. 126—13 126—15 (Supp.1971); N.D. Systems, XVI; Ohio Rev.Code 143.41, 143.44, 143.45, 143.46 Ore.Rev.Stat. 260.432 Pa.Stat.Ann., 71, 741.904 (Supp.1973—1974); R.I.Gen.Laws 36—4—51 36—4—53 S.C. Defense Council, S.D. Tenn.Code 8-3121 (Supp.1971), Tenn.Rules Administering 2.3 Tex.Penal Code, Arts. 195—197 (1952); Utah 67—13—13 Vt.Rules 3.02; Va.Supp. Va.Personnel 15.14(A); Wash.Rev.Code 41—06—250 W.Va.Code 29—6—19 Wis.Stat.Ann. 16.30 Wyo.Rev.Rules (For compilation regulations, Political Activity Personnel, 122 seq. (1967).) 7324(a). AFL Brief 22. claim violates Equal Protection Clause singling while leaving personnel restrictions. odd principal claim, enough. event, legislature leeway positions unregulated. faulted limit upon placed. Only lawsuit. Hereinafter, references understood paragraphs, indicate contrary. significant note create 'regulatory maze' uncertain become hopelessly lost. 604, 684, (1967). available advance permissibility 818. Tr. Rec. 237. ante, 580, 2897—2898. Oral Arg. 48—49. initially requested brief complete proceedings bringing 1983. ordered stayed pending When advised absence objections appellees, proceeded. record, proceed hearing pursuing action. Gibson Berryhill, 411 564, 574—575, 1695, 488 H. Hart Wechsler, Courts 983—985 (2d ed. 1973). 1641; 48-49. 184—214; Sedler, Standing Assert Jus Tertii Yale L.J. 599 844 Cox, end discussions, facially 238, 685; 551—552, 462—463. termed 'additional reason' reversal. 551, 463. 'additional' holdings unnecessary dispositions Member relied Cox's holding Brown 383 131, 719, 637 (1966), id., 143—150, 724—728 (Brennan, My Brother BRENNAN asserts Post, 630. welcome observation. perhaps reduces differing overbroad. insists unpersuaded stands barrier invalidate flaw concern whole. constructions accepted, rule. circular states (Tr. 237): 'The reserved persons. Note: prohibition Op.Atty.Gen.Okl., 68—356, intending permit expressions 'so channel towards success.' 716. interpretation binding authorities, constitutionality. * Statistical Abstract 1972, pp. 403, 431. part: 1630 provides: service.' 1640 club Compare 1625 'Every fulfill ability duties conferred prove himself behavior, inside outside, worth esteem requires. pursue distrust impartiality. 'A employment, enterprise determined inconsistent, incompatible, conflict duties, functions responsibilities oof Appointing Authority 'Each prescribe jurisdiction, incompatible determination which: involves gain facilities, equipment supplies; or, uniform, prestige receipt acceptance anyone, performance regular course hours (c) capacity later indirectly control, inspection, review, audit agency during duty pertain thereto, devote full attention employment.' 1209.2 'Any group 1641 'Continued material willful O.S.1961, relating pursuant statute.' Niemotko 268, 285, 325, 334, 267 (1951) (Frankfurter, (1951)): 'It formulate particularity Amendment.' addition promulgated places reliance issued assuming gauging offer real example, 617 15. second restates convey fixed meaning. given interpret persons, public.' Opinion holding, terms,' applies activity.' am loss statements clarification Raines prosecution 131 Rights 1957, charging had, blacks desired register defendants' fell importantly, suggested used punish stating defendant normally suspended 'itself 22, 523. (1912). Terminiello Chicago, 337 69 894, 1131 (1949). assertedly supra; none lack raise

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