Document: 377 U.S. 360 84 S.Ct. 1316 12 L.Ed.2d Lawrence W. BAGGETT et al., Appellants,v.Dorothy BULLITT al. No. 220. Argued March 24, 1964. Decided June 1, Arval A. Morris and Kenneth MacDonald, Seattle, Wash., for appellants. Herbert H. Fuller, appellees. Mr. Justice WHITE delivered the opinion of Court. 1 Appellants, approximately 64 in number, are members faculty, staff student body University Washington who brought this class action asking a judgment declaring unconstitutional two statutes requiring execution different oaths by state employees an injunction against enforcement these appellees, President University, State Board Regents Attorney General. 2 The under attack Chapter 377, Laws 1955, 103, 1931, both which require to take prescribed as condition their employment. 1931 legislation applies only teachers, who, upon applying license teach or renewing existing contract, required subscribe following: 3 'I solemnly swear (or affirm) that I will support constitution laws United States America Washington, precept example promote respect flag institutions reverence law order undivided allegiance government States.' Wash.Laws c. 103. 4 oath requirements 1955 Act, applicable all employees, incorporate various provisions Subversive Activities Act 1951, provides generally '(n)o subversive person, defined act, shall be eligible employment in, appointment any office, position trust profit government, administration business, state, county, municipality, other political subdivision state.' Wash.Rev.Code § 9.81.060. term 'subversive person' is follows: 5 "Subversive means person commits, attempts commit, aids commission, advocates, abets, advises teaches attempt aid commission act intended overthrow, destroy alter, assist destruction alteration of, constitutional form States, either them revolution, force, violence; with knowledge organization described subsections (2) (3) hereof, becomes remains member foreign organization.' 9.81.010(5). 6 goes on define at similar length terms organization' 'foreign declare Communist Party membership therein activity.1 7 On May 28, 1962, some four months after Court's dismissal appeal Nostrand v. Little, 368 436, 82 464, 426, also challenge oath,2 President, acting pursuant directions Regents, issued memorandum notifying they would oath. Oath Form A3 requires teaching personnel set out above, aver have read, familiar understand defining 1951 disclaim being organization. B4 above except Both forms provide statements pertinent thereto made subject penalties perjury. 8 Pursuant 28 U.S.C. §§ 2281, 2284, three-judge District Court was convened trial had. That court determined underlying statutory did not infringe First Fourteenth Amendment freedoms were unduly vague. In claims unconstitutionally vague its face, held although raised substantial issue, adjudication proper absence proceedings courts might resolve avoid issue. dismissed. 215 F.Supp. 439. We noted probable jurisdiction because public importance type recurring serious questions it presents. 375 808, 60, 11 46. reverse. I. 9 Appellants contend based invalid face language vague, uncertain broad. agree contention therefore, without reaching numerous contentions pressed us, confine our considerations particular question.5 10 Cramp Public Instruction, 278, 275, 285, invalidated teachers had never lent 'aid, support, advice, counsel, influence Party' lacking 'terms susceptible objective measurement' failed inform what commanded forbade. statute therefore fell within compass those decisions holding forbidding conduct so men common intelligence must necessarily guess meaning differ application violates due process law. Connally General Construction Co., 269 385, 46 126, 70 L.Ed. 322; Lanzetta New Jersey, 306 451, 59 618, 83 888; Joseph Burstyn, Inc. Wilson, 343 495, 777, 96 1098; Cardiff, 344 174, 73 189, 97 200; Champlin Refining Co. Corporation Comm. Oklahoma, 286 210, 52 559, 76 1062. suffers from infirmities. A teacher he person: one commits advises, teaches, abets advocates another commit overthrow alteration, force violence. engages assists activities alter Government violence has purpose such acts. declared organization, is, i presumed does engage Government.6 Persons may quite reasonably conclude known advice now future date Party. Teaching advising clearly acts, cannot confidently assert his aid, adds resources, rights activities, tells us furtherance stated overthrowing put equal asked here. Does reach endorsement candidates office? lawyer represents journalist defends anyone supports cause likewise supported Communists Party? susceptibility forswearing undefined variety 'guiltless knowing behavior' condemned Cramp. This statute, like issue Cramp, vague.7 additional difficulties vagueness grounds. if himself specified acts but aiding third yet fourth government. Supreme said read into every provision we accept construction. Balmer, 53 Wash.2d 460, 483—484, 335 P.2d 10, 24; 58 111, 123—124, 361 551, 559. But professor 'know'? Must know used aided requisite guilty intent sufficient knows useful others Government? Is activity, example, attend participate international conventions mathematicians exchange views scholars countries? What about editor scholarly journal analyzes criticizes manuscripts submitted publication? selecting outstanding countries visiting professors advising, teaching, consulting activity Communists, regardless affiliations, regularly students Party, definition dedicated 13 beyond It extends 'revolution' which, unless wholly redundant ordinary distorted, includes rapid fundamental change. Would, supporting, advocating peaceful far-reaching amendments engaged activity? Could repeal Twenty-second participation country world government?8 II. 14 offends vagueness. exacts promise affiant will, Washington. range deemed inconsistent very wide indeed. refused salute advocated refusal religious beliefs well accused breaching promise. Cf. West Virginia Education Barnette, 319 624, 63 1178, 87 1628. Even criticism design color scheme unfavorable comparison sister could disrespectful violative And 'institutions' purposes oath? 'practice, law, custom, etc., material persistent element life culture organized social group' 'established society corporation,' 'establishment, esp(ecially) character?'9 prevent criticizing judicial system institution review. Or proscribe abolition, Civil Rights Commission, House Committee Un-American Activities, aid. 15 difficult ascertain done transgressing 'promote * unreasonable serious-minded oath-taker should dispense lectures voicing old new policy followed States. He find questionable ally interest group opposing current Federal Government, did, placing loyalty 16 Indulging presumption narrow construction oath, consistent, however, English language, say ascertainable standard more than command guarantees Amendments. 17 As '(t)he vice further aggravated where, here, question operates inhibit exercise individual affirmatively protected Constitution.' 287, 281. dealing indefinite whose terms, even narrowly construed, abut sensitive areas basic freedoms. meanings oath-taker—teachers servants—to 'steer far wider unlawful zone' Speiser Randall, 357 513, 526, 78 1332, 1342, 1460, boundaries forbidden marked. Those conscientious regard affirm, perils posed oath's risk loss employment, perhaps profession, restricting unquestionably safe. Free speech inhibited.10 Smith California, 147, 80 215, 205; Stromberg 283 359, 369, 51 532, 535, 75 1117. See Herndon Lowry, 301 242, 57 732, 81 1066; Thornhill Alabama, 310 88 60 736, 1093; Winters York, 333 507, 68 665, 92 840. III. 18 labels fanciful suggested possible coverage oaths. correct, emphasizes statutes; do behavior suggested, specific cover? Where possibility end begin? 19 prosecutor's sense fairness Constitution successful perjury prosecution seemingly embraced sweeping definitions. hazard prosecuted guiltless nevertheless remains. 'It blinking reality acknowledge there among always ready affix label ideas violently oppose. experience prosecutors too human.' supra, 286—287, 280. Well-intentioned safeguards neutralize Nor encourage casual taking upholding discharge exclusion scrupulous undertakings. 20 argued, that, notwithstanding uncertainties based, offend vagaries contained conduct, breach conviction Without criminal sanctions, said, need fear whether understands can comply mandate, understood. ignores effect honestly prevarication reservation, believe written says. contains oaths, expressly signer 'understand statement perjury.' Moreover, 9.72.030 '(e)very orally writing knowingly falsely concerning matter whatsoever' second degree. sustained, gainsaid. choose between subscribing broad thereby incurring likelihood prosecution, conscientiously refusing consequent particularly where 'the free dissemination loser.' 7, 151, 218. penalty itself invalid, exaction obedience rule really no all.' Comm'n 243, 568; cf. Small American Sugar 267 233, 45 295, 69 589. IV. 21 examine because, books over three decades, been interpreted courts. argument ever since Railroad Pullman 312 496, 61 643, 85 971, many occasions ordered abstention tribunals thought appropriate resolution complex unsettled local A.F.L. Watson, 327 582, 66 761, 90 873; Spector Motor Service McLaughlin, 323 101, 65 152, 89 101; Harrison NAACP, 167, 79 1025, 1152. Because ordinarily accepts given presumes construed way presented, Fox 236 273, 35 383, 573; Poulos Hampshire, 345 395, 760, 1105, interpretation light eliminate necessity deciding 22 persuaded. doctrine automatic applied whenever federal faced doubtful law; rather involves discretionary court's equity powers. Ascertainment exist 'special circumstances,' Propper Clark, 337 472, 1333, 93 1480, prerequisite case-by-case basis. 500, 645, 971; NAACP Bennett, 471, 1192, 1375.11 special circumstances present doubt, first place, provisions, challenge, fundamentally litigation. Chicago Atchison, T. & S.F.R. 77, 1063, 1174. bulk cases Court,12 including few issue,13 principally concerned applicability challenged certain course manner terminate Here turn choice several alternative statute. open interpretations, number. There uncertainty appellants raise permits definable activities. Rather complaint they, promise, future, want forswear doing literally arguably purview terms. see how abstract precept, allegiance, institutions, like, declaratory fictional anything less extensive adjudications, impact factual situations, bring bounds permissible certainty. Abstenti n this. 23 Other militate court, abstractly reference concrete, particularized situations necessary focus constitutionally association, Ashwander Tennessee Valley Authority, 297 288, 341, 56 466, 480, 688 (Brandeis, J., concurring), hold little hope eliminating likely pose issues decision, result serving abstention-justifying avoiding adjudication. 24 ignore piecemeal courts, England Louisiana Medical Examiners, 411, 461, 440, delaying ultimate merits undue time. England, supra; Spector, Civic Employees Organizing Windsor, 353 364, 77 838, 894,14 constly Indeed continuous least 1957, 463, 12, before Remitting litigants protract proceedings, already pending almost years, case, years later, return decision identical herein decided. 84, 1067, Utilities Ohio Fuel 317 456, 396.15 Meanwhile, deters V. 25 power measures safeguarding service disloyal conduct. purport disloyalty allow servants disloyal. 'The fact compelled office possibly excuse barring him stateimposed criteria Torcaso Watkins, 367 488, 495—496, 1680, 1684, 982. 26 Reversed. 27 CLARK, whom HARLAN joins, dissenting. strikes down, Acts first, employee affirm defined. second, taken void benefit court. dissent both, merits, latter, refuses afford opportunity interpret own 29 says 'unduly broad.' points 'swear violence.' finds declares From premises, then reasons 'any 'at date' reasoning continues assertion 'one interrogates itself: 'endorsement members? (defense the) of) Party?' Apparently concluding answers unclear, void, citing 285 (1961). Let up reverse order. 30 First, apposite. majority recognize much broader scope instant case: involved 'that lend my counsel *.' replete defects Stewart pointed Cramp: 31 here question, noted, nothing advocacy violent over-throw affiliation past present. completely measurement.' At U.S., 280 32 These factors caused Washington's proscribes abetting when passed cured 33 strange profoundly trouble presented Gerende Supervisors Elections, 341 56, 71 565, 95 745. There, constitutionality Maryland's Ober Law, affirmed unanimous same unfortunate overruled quickly. risks violation German, English, history included curriculum college degree, sit. To extract sunbeams cucumbers Gulliver's mad scientist. conjure ridiculous questions, negative, build whimsical farcical straw man grim Grimm. 34 addition Law found using An unavoidable upheld landmark case Dennis 494, 857, 1137 (1951). critical again words Act. 'Whoever willfully duty, necessity, desirability, propriety destroying 2385. (Emphasis supplied.) 36 uses discussing claim: 37 'We neat, mathematical formulary. Like verbalizations score indefiniteness. think (the statute) serves indicate advocate prohibited line go—a full intend takes appreciate understand.' 515—516 870 38 appears me clear Still down. leave Act? 39 make claims. They association guaranteed Konigsberg Bar 366 36, 997, 105 (1961); re Anastaplo, 82, 978, 135 Adler Education, 342 485, 72 380, 517 (1952); Garner Works, 716, 909, 1317 (1951); Communications Ass'n Douds, 339 382, 674, 94 925 (1950), claim frivolous. Likewise view highest tenured entitled hearing, 131, 563, foundation. conclusion apply tenure, hearing Rev.Code Wash. 41.04 seq., Administrative Procedure 34.04.010 seq. 40 afforded so. said: 41 granting withholding equitable relief suits seek limit control committed sound discretion Accordingly, concrete showing plaintiff classes represented suffered actual injury reason (Chapter 1931) decline render advance authoritative Court.' 439, 455. 42 For reasons, dissent. advocate, abet, advise, them, 9.81.010(2). "Foreign directed, dominated controlled directly indirectly teach, establish place thereof direction vested exercised under, domination individual.' 9.81.010(3). 'COMMUNIST PARTY DECLARED SUBVERSIVE ORGANIZATION. communist party chapter 9.81 thereunder.' 9.81.083. Although previous instituted Professors Howard Max Savelle, Superior enjoined. section severable rest validity upheld. 10. vacated remanded determination sign explain defend refusal. 362 474, 840, 892. remand Savelle contracts rules promulgated hearing. 551. dismissed appeal, 426. dispositive bar proceedings. 'Oath 'STATE OF WASHINGTON 'Statement Faculty 'I, undersigned, order, States; certify RCW 9.81.010(2), (3), (5); 9.81.060; 9.81.070; 9.81.083, printed hereof; am contents thereof; defined; ...............at (SIGNATURE) .. ............at (TITLE AND DEPARTMENT) 'Subscribed sworn affirmed) ... day ..., ...............sw NOTARY PUBLIC IN FOR THE STATE WASHINGTON, RESIDING AT ..........IC '(To executed duplicate, copy retained individual.) 'NOTE: desiring strike 'swear' 'sworn to' substitute 'affirm' 'affirmed,' respectively.' B Staff Than 9.81.083 ................. th DEPARTMENT OR OFFICE) ..... .........., 19... ............... AN Since ground immediately affects interests academic freedom fully favor personnel, occasion pass standing suit. drafters Legislature (Communist Party) dovetailed, nation-wide program designed create unrest civil strife, impede normal processes national weakening ultimately republic facilitating avowed Soviet substituting totalitarian dictatorship.' Report Joint Legislative Fact-Finding State, 1948, p. definitions organizations Supervisors, 745, merit. forcefully argued Maryland incorporating herein. rejected approve statutes. Instead below solely basis imposed "in violence,' attempt.' Id., 56—57, S.Ct., 565 (emphasis original). 'At advise authorities affidavit satisfying requirement. Under understanding, Appeals affirmed.' 57, 565. 2385, 1137, founded misreading supra. provides: convictions sustained Dennis, 'teaching accomplishment (overthrowing government) calculated incite persons speedily permit.' 511—512, 868. connection attack, '(t)his judge. Herein lies fallacy reliance treated judgments *' 502, 863. reversing Yates 354 298, 1064, 1356, exactly al proscribe: '(T)he reaches 324, 1080. Webster's Int. Dictionary (2d ed.), 1288. maintenance discussion responsive people changes obtained lawful means, essential security Republic, principle system. permit punishment fair use repugnant guaranty liberty Amendment.' 536, '(S)tatutes restrictive purporting limits (First Amendment) drawn meet precise evil legislature seeks curb proscribed specifically affected remain secure unrestrained encompassed legislation.' Congress Industrial Organizations, 106, 141—142, 1349, 1367, 1849. (Rutledge, concurring). 'When Constitution, properly adjudication, automatically made.' Ben- nett, 1192. Livingston, 179 9, 12—13 (D.C.E.D.S.C.), aff'd, Livingston 364 281, 1611, 1719: 'Though fairly modify duty decide it.' Shelton McKinley, 174 351 (D.C.E.D.Ark.) (abstention inappropriate problems delay prejudice rights); All Airways, Village Cedarhurst, 201 F.2d 273 (C.A.2d Cir.); Sterling Drug Anderson, 127 511, 513 (D.C.E.D.Tenn.). See, e.g., Texas Fieldcrest Dairies, Inc., 316 168, 62 986, 86 1355; Service, Alabama Federation Labor McAdory, 325 450, 1384, 1725; Stainback Mo Hock Ke Lok Po, 336 368, 606, 741; Shipman DuPre, 321, 640, 877; Albertson Millard, 600, 983; Leiter Minerals, 352 220, 267; Committee, C.I.O. 894; City Meridian Southern Bell Tel. 358 639, 455, 562. Musser Utah, 95, 397, 562, convicted committing 'acts injurious morals.' time oral Court, urging polygamy rested broad-challenged provision. Michigan secretary sought enjoin grounds five days passage, registration, pain penalties, substantially Union Socialist Republics satellites, further, movement' register. lower took notice associated, part movement Union, respects. declined appellants' until suit pending, secretary, more, approach claims, vagueness, eliminated ties Stated differently, plaintiffs, questio authoritatively answered 1152, Legal Defense Fund recently enacted enjoined implementation statutes, grounds, others, finding ambiguous. constructions litigative legal passing raised. restrict Unlike turned restrictions unclear bringing complaint. Procedural Reform States' Rights, Tex.L.Rev. 211 Note, Harv.L.Rev. 1358, 1363 (1960). 'Where disposition entire controversy thus unnecessary justify abstention. ruling settle remain, litigation inordinately long time, onsiderations quickly possible.' 373. copied Marryland Act—just was—primarily approval it, void. Such dignity process. course, absurd contended crucial Gerende, review record conclusively demonstrates contrary. Further, while qualification, approved

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