Document: 345 U.S. 41 73 S.Ct. 543 97 L.Ed. 770 UNITED STATESv.RUMELY. No. 87. Argued Dec. 11, 12, 1952. Decided March 9, 1953. Mr. Oscar H. Davis, Washington, D.C., for petitioner. Donald R. Richberg, respondent. Justice FRANKFURTER delivered the opinion of Court. 1 The respondent Rumely was Secretary an organization known as Committee Constitutional Government, which, among other things, engaged in sale books a particular political tendentiousness. He refused to disclose House Select on Lobbying Activities names those who made bulk purchases these further distribution, and convicted under R.S. § 102, amended, 52 Stat. 942, 2 U.S.C. 192, U.S.C.A. which provides penalties refusal give testimony or produce relevant papers 'upon any matter' congressional inquiry. Court Appeals reversed, one judge dissenting. It held that committee before furnish this information had no authority compel its production. 90 U.S.App.D.C. 382, 197 F.2d 166. Since thus took view committee's contrary adopted by citing contempt, we granted certiorari. 344 812, 16. This issue—whether authorized exact witness withheld—must first be settled may consider whether Congress power confer upon it claimed. Although are here dealing with resolution Representatives, problem is much same confronts when called construe statute carries seeds constitutional controversy. potential questions have farreaching import. We asked recognize penetrating pervasive scope investigative Congress. reach claimed indicated Woodrow Wilson's characterization it: 3 'It proper duty representative body look diligently into every affair government talk about what sees. meant eyes voice, embody wisdom will constituents. Unless use means acquainting itself acts disposition administrative agents government, country must helpless learn how being served; unless both scrutinize things sift them form discussion, remain embarrassing, crippling ignorance very affairs most important should understand direct. informing function preferred even legislative function.' Wilson, Congressional 303. 4 indispensable 'informing Congress' not minimized, determination 'rights' implies illustrates common juristic situation defined Holmes: 'All rights tend declare themselves absolute their logical extreme. Yet all fact limited neighborhood principles policy than right founded, become strong enough hold own certain point reached.' Hudson County Water Co. v. McCarter, 209 349, 355, 28 529, 531, 828. President Wilson did write light history events since he wrote; more particularly context First Amendment. And so, would 'blind' Court, against Chief Taft admonished famous passage, Bailey Drexel Furniture (Child Labor Tax Case), 259 20, 37, 42 449, 450, 66 817, does see '(a)ll others can understand' know there wide concern, out Congress, over some aspects exercise investigation. 5 Accommodation contending principles—the underlying investigate, at basis limitation imposed Amendment—is until after construed Representatives gave Activities. pertinent portion August 1949, reads: 6 'The directed conduct study investigation (1) lobbying activities intended influence, encourage, promote, retard legislation; (2) agencies Federal Government legislation.' H.Res. 298, 81st Cong., 1st Sess. 7 controlling charter powers. Its call production documents found language. speak itself, put gloss time passage. Nor help from purpose Buchanan Committee, known, try 'find well (the Regulation Act 1946, 60 839, 261 et seq.) worked.' 96 Cong.Rec. 13882. That section definitions, but define terms 'lobbying' 'lobbying activities' Act, them. Accordingly, phrase given meaning fairly attributed it, having special regard principle adjudication makes decisive choice fair alternatives construction raise serious avoided another. In long series decisions acted principle. words Taft, '(i)t our interpretation federal statutes conclusion avoid doubt constitutionality.' Richmond Screw Anchor United States, 275 331, 346, 48 194, 198, 72 Again, has written, said through (then Justice) Stone, 'must eye possible limitations so doubts validity.' Lucas Alexander, 279 573, 577, 49 426, 428, 851. As phrased Hughes, 'if constitutionality raised, cardinal ascertain question avoided.' Crowell Benson, 285 22, 62, 285, 296, 76 598, cases cited. 8 Patently, Court's issue, if possible, applies merely legislation technically speaking also action way resolution. See Trade Comm. American Tobacco Co., 264 44 336, 68 696. Indeed, needlessly projecting delicate issues judicial pronouncement applicable resolutions formal legislation. hardly gainsaid secure passage casually less responsibly, main, do enactments requiring presidential approval. 9 Surely cannot denied giving contends, is, deriving inquire efforts private individuals influence public periodicals, however remote radiations they exert ultimate process, raises prohibition Prettyman, J., below views expressed here, seemly maintain fanciful factitious. were necessary, affect evanescent inform underlies policy-making function. Whenever limits drawn ought only done demonstrated full awareness stake unequivocally authorizing inquiry dubious limits. Experience admonishes us tread warily domain. loose language Kilbourn Thompson, 103 168, 26 377, weighty criticism been subjected, see, e.g., Fairman, Miller Supreme 332—334; Landis, Limitations Power Investigation, 40 Harv.L.Rev. 153, inroads case later cases, McGrain Daugherty, 273 135, 170—171, 47 319, 327, 71 580, Sinclair 263, 268, 692, strongly counsel abstention left. 10 Choice matter English, readily lends placed below, namely, commonly accepted sense,' 'representations directly members, committees', 166, 175, Chairman Buchanan's mind, attempts 'to saturate thinking community.' 13883. If cover anyone intending promote legislation, why differentiate between 'activities * influence'? Had wished authorize extensive influences opinion, used least explicit employed agencies? Certainly violence restricted scope. To such barred intellectual honesty. So interpret candid service avoiding doubt. 'Words strained need order doubt.' Holmes Blodgett Holden, 142, 148, 276 594, 105, 107, 206, concurrence Brandeis, Sanford Stone. With observing duty, recently here. States C.I.O., 335 106, 1349, 92 1849. considerations prevailed prevail this. 11 Only word debate reported refuse activities.' taken ask withheld defining measure. What 30, 1950, controversy arisen regarding usual infirmity post litem motam, self-serving declarations.* event, Rumely's answer judged his refusal. therefore ascertained enlarged subsequent 12 Grave matters properly decided inescapably come adjudication. Until then abstain marking boundaries delimiting protection guaranteed self-restraint mischief followed occasional departures profess. 13 judgment affirmed. 14 Affirmed. 15 BURTON MINTON part consideration decision case. 16 DOUGLAS, whom BLACK concurs, concurring. 17 Respondent indictment charging willful records violation 192.1 Activities, created Resolution 2982 follows: 18 19 Count charged willfully records, duly subpoenaed, (CCG), showing name address each person total $1,000 received CCG January 1, 1947, May including receipts pamphlets. six similar offense subpoena calling dates $500 purpose. seven woman Toledo $2,000 distribution Road Ahead, book written John T. Flynn. 20 background contained report H.R.Rep.No.3024, 2d appears respondent, executive, registered seq., October 7, 1946. reports registration (which protest) showed spent $2,000,000 1946 1950. basic CCG, according 'distribution printed material indirectly.' requires disclosure contributions expended indirectly, defeat §§ 264, 266, 266. enactment accepting payments $490 contributor specified funds applied term 'sale' 'contribution' Act. H.R.Rep. No.3024, supra, pp. 2. 21 Report shows while willing income reveal identity purchasers literature because 'under Bill Rights, beyond your investigate.' Id., p. 8. involved Ahead Flynn, Constitution Thomas J. Norton, Compulsory Medical Care Melchior Palyi, Why Taft-Hartley Law Irving B. McCann. Most (about percent) shipped themselves; rest told send type (e.g., 'farm leaders') receive One Palyi 15,550 libraries.3 stated report: 22 'Our indicates clearly pamphlets indirectly. sending copies books, pamphlets, materials Members indirectly distributing hundreds thousands people throughout States. 23 'Of significance Edward A. Inc., recent years devised scheme raising enormous without filing true pursuant provisions color legality method circumventing law. utilizes system outlined above whereby designated purchase transmitted direction purchaser, money recipients totally unaware subterfuge cases.' 3024, 24 insisted demanded within Resolution. said: 25 'Because financial unable determine evading violating letter spirit establishment class 'Receipts literature,' complying law amendments strengthen it. refusing accept earmarked etc., involve: Dividing large installments less, causing reflect receipt installment different date, and/or credit, several installments, various relatives associates actual contributor. Causing Government's 'Contributions' amount actually received, labeling matter. 27 amendment prevent division crediting real contributor, subterfuges.' 2—3. submitted (96 Cong.Rec., p 13873) offered Speaker certify respondent's Attorney District Columbia. 13881. Resolution, id., 13893, 31, certified testify. 29 sentenced fine imprisonment months. reversed divided vote, majority holding creating inquiries direct contact documents. I. 30 holds 298 investigate extend contempt proceeding based. difficulty position starts 298. plain probe sources support lobbyists Congressman Sabath, sponsors included 'partial list lobby organizations expenditures quarter 1949.' 95 11386. registered, persons soliciting receiving principally 'To States.' 266(b), 266(b). Buchanan, introduced became operations Act.4 Not preceding adoption suggests delimited, restricted, confined methods collecting 31 broad authority.5 concluded 'all substantial pay constitute lobbying.' 3239, Sess., 1. 'pamphleteering' activity overshadows 'the traditional techniques persuasion.' 3. cited CCG. Id. reached vehement objections three minority members breadth exceeded infringed free speech press. Part 2, 32 posture referred testify proceedings. collection evasion pressed importance kind regulation lobbying. ratify contempt. 13886, 13887. challenged Halleck, member signed report. argued citation sought 'nothing influencing ordinary ways seeing communicating formation country.' 13888. Halleck's argument two-fold—that purview were, unconstitutional. 13887—13888. Others up issues. vote taken; passed. 13893. 33 Thus squarely earlier A narrower urged Congressmen pleaded earnestly narrow pointed that, broader taken, trenching citizens. I say, face close authority. powers granted. beginning removed repudiating emphatically affirmed, now says lacked propounded. II. 34 Of necessity questions. represents segment Some like group publishes; disapprove. These tracts essence some; philosophy anathema. ears harsh repulsive; carry hope future. publisher seeks minds hearts people. respects publishers. But differences minor. Like publishers newspapers, magazines, bids men market place ideas. aim historic struggle press establish preserve English respect doings misdoings government.' Grosjean Press 297 233, 247, 56 444, 448, 80 660. tradition behind Censorship previous restraint banned. Near State Minnesota ex rel. Olson, 283 697, 51 625, 75 1357. Discriminatory taxation outlawed. supra. privilege pamphleteering, orthodox types publications, neither licensed, Lovell City Griffin, 303 58 666, 82 949, nor taxed. Murdock Com. Pennsylvania, 319 63 870, 87 1292. Door door privileged. Martin Struthers, 141, 862, 1313. illustrative command 'Congress shall make abridging freedom speech, press' history. expresses confidence safety society depends tolerance hostile friendly criticism, community where men's free, room unorthodox views. 35 present sanctioned subjected harassment practical effect might censorship. publisher, compelled register vexatious inquiries. requirement buy indeed surveillance True, legal sanction tax, established board censors, instituted licensing system. equally severe. finger leveled omnious. Once demand disappears. Then spectre agent shoulder everyone reads. pamphlet today result tomorrow. Fear goes bookstall. subtle, imponderable pressures lay hold. fear read unpopular powers-that-be dislike. When publicity student, teacher, discouraged. critical administration, preach domestic foreign affairs, disrepute school thought suspect subject readers heavy price harassment. minor comparison menace shadow cast follow dominant party line. lady required she yesterday tomorrow, take libraries, bookstores, homes land. Through hearings, investigations, reports, subpoenas club could limited.6 Inquiry personal precluded. 190, 377; 173—174, 328, 580; 292, 271, 692. valid had. pages 194—195, page 171, 327. require demanded, step ending imprisonment. ambiguity resolution—that answers terms—is reflected prevailed. 183 175. part: 'Every summoned either House, default, who, appeared, refuses inquiry, deemed guilty misdemeanor, punishable $100 fail month twelve months.' published 'Labor Monopolies Freedom' 250,000 distributed. got copy. went People way, mint small coin distribute others.' 11. testified Frank Gannett paid distribution. 'Pressure groups ways. file expenses. budget, allocable activities. Still concerned 'Some argue principal Department says, 'principal' includes interests. Lobbies differ filed individuals.' 11389. An analysis General Interim Committee. 3138, seq. Cf. Barsky 83 127, 167 241, certiorari denied, 334 843, 1511, 1767, rehearing 339 971, 70 1001, 94 1379, Marshall 85 184, 176 473, 933, 663, 1352, 959, 976, 1369.

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