Document: 346 U.S. 441 74 S.Ct. 190 98 L.Ed. 179 UNITED STATESv.FIVE GAMBLING DEVICES, LABELED IN PART 'MILLS,' AND BEARING SERIAL NOS. 593—221, ETC. STATES v. DENMARK. BRAUN. Nos. 14, 40, 41. Argued Oct. 12, 1953. Decided Dec. 7, Mr. Robert L. Stern, Acting Sol. Gen., Washington, D.C., for appellant. Shelby Myrick, Savannah, Ga., appellees Denmark and Braun. No appearance appellee in No. 14. Justice JACKSON announced the judgment of Court an opinion which FRANKFURTER MINTON join. 1 These cases present unsuccessful attempts, by two different procedures, to enforce view Department as construction Act January 2, 1951,1 prohibits shipment gambling machines interstate commerce but includes incidental registration reporting provisions. Two indictments charge Braun severally with engaging business dealing devices without registering Attorney General sales deliveries. Both were dismissed. The other proceeding is a libel forfeit five seized Federal Bureau Investigation agents from country club Tennessee. It also was 2 three cases, here on Government appeals, are similar features led their dismissal raise constitutional issues. do not allege that accused dealers, since effective date or matter at any time, have bought, sold moved commerce, involved unreported have, ever would so. does show club's time transported way affect interestate commerce. 3 Section transportation except state exempts itself its subdivision law.2 requires every manufacturer dealer annually register his name monthly file detailed information each device delivered during preceding month.3 6 provides criminal penalties failure violation section,4 § 7 authorizes forfeiture Act.5 4 requirements expressly limited persons engaged transactions occurring conditioned connection therewith. Neither specific terms direct application such we here. 5 Appellees contend, first, should be construed reach unless shown some relation commerce; second, construed, otherwise, exceeds power delegated Congress under Commerce Clause Constitution; third, statute unconstitutionally vague. answers, statute, literally read, reaches all dealers possession reference make prohibition may constitutionally require intrastate transactions; and, while Congress, oversight, left inappropriate confusing phrase Act, defect fatal inasmuch has supplement regulations will cure indefiniteness.6 We intimate ultimate answer appellees' questions than observe they cannot dismissed frivolous, nor unimportant nature our federation. precedent this sustains enact legislation penalizing report concerning acts in, mingled with, found course decision relied analysis falls short holding asked us Indeed, find no instance where attempted impose duties penal sanction question posed these proceedings.7 apparent Government's pleadings raise, doubt intended far-reaching extent congressional over matters internal individual states. 8 Of course, possesses only regulate among several states inexact 'To Laws shall necessary proper carrying into Execution' enumerated powers. In instances administrative body, Interstate Commission National Labor Relations Board, decide case-to-case basis whether particular activity affects so warrant exercise affairs.8 Decisions type give support, determination required asserts finding anyone necessary. statutes set up economic lay hold activities include intermingled therewith separation impractical impossible.9 decisions upholding requiring aid taxing power10 afford support here, because penetrates permeates activity, interstate, within Nation. While general statements, out contexts, might bear upon subject one another, it precise tendered now settled prior decision. 9 principle old deeply imbedded jurisprudence construe manner serious if statutory language leaves reasonable alternative. United States Rumely, 345 41, 73 543. This avoid postpone difficult decisions. predominant consideration sure intentionally put issue before undertake pronouncement consequences powers reserved To withhold passing until certain knowingly precipitated great injury, once recognized question, can purpose explicit thereby necessitate question. Judicial abstention especially wholesome considering statute. Our policy reinforced long tradition sound reasons admonish against enlargement interpretation. 10 accord strong presumption constitutionality Acts Congress. mere polite gesture. deference due deliberate majorities Houses execution power. rational practical force maximum when appears point been considered explicitly deliberately resolved.11 But little realism responsible committees leaders, managing bill, told bill invoked cover. 11 literal capable broad, unlimited urged Government. enacted unitary system government, appropriate. must assume implications limitations federal constitute major premise legislation, though repeatedly recited therein. Against background say lower courts, held purely matters, made permissible interpretation.12 text unmistakable intention implicit effort apply most extreme impact affairs normally 12 Judges differ value legislative history construction, often relies sustain interpretation statutes. However, case conspicuously meager unenlightening.13 On hand, what worth, much reported said proponents antigambling-device indicate did intend issues presented aware doing For example, Senator Johnson, sponsor eventually became declared '* * keeps State local police powers; official going become enforcement officer locality.'14 committee handling reported: 'On desires emphasize law field substitute field.'15 entered slot had whatever. If substituting enforcement, know how could accomplished. A more act hardly conceivable. sustained, substantially take unto entire pursuit device. 13 anticipated this, then informed committee, agreement view, 'Actually those people who gamble use wrongfully States, officials, there absolutely part Government, express anything accompanies it, get era.'16 impossible reconcile statements kind, placed reliance, Act. 14 As indicated, framed form expansive All construction. think explicitness drafted cases. ground alone, affirm judgments below. 15 Judgments affirmed. 16 BLACK, whom DOUGLAS joins, concurring. 17 I concur judgment, regret my inability agree affirmance expressed JACKSON. charges rest 'all deliveries *.' nothing history, indicates me hitting sales,' including ones. situation feel liberty read even avoided.* 18 'his trade name, address principal place business, addresses places district.' (Emphasis supplied.) Thereafter reports inventories, 'places business' district. 'such district' bound leave bewildered. Does refer compelled papers? Or simply him tell 'district' he maintains 'places'? able solve puzzle, district'? gives hint person locate it. never describes 'district.' Yet comply unascertainable punishable fine $5,000, imprisonment years, both. punishment, least, certain. established rule 'a either forbids vague men common intelligence necessarily guess meaning violates first essential process law.' Connally Construction Co., 269 385, 391, 46 126, 127, 70 322. 19 Nor too valid saved additions General. prescribed reasonably accessible designated Cf. Eaton, 144 677, 764, 36 591. this. promulgate clarifying regulation purported authority R.S. *s 161, U.S.C. 22, U.S.C.A. 22. That authorization heads departments prescribe governing departments, officers, clerks, records, papers, etc. There certainly sufficient specificity grant routine departmental General's attempt infuse life unenforceable vagueness. vital omission supplied branch judgments. 20 CLARK, CHIEF JUSTICE, REED BURTON concur, dissenting. I. 21 BLACK means just says: 'every devices' JACKSON'S 'this alternative.' agree; statute's mandate, 'every' qualification. Sullivan, 1948, 332 689, 68 331, 92 297, dealt highly analogous situation; 'A restrictive given merely giving effect employed court face question.' page 693, 334. 22 otherwise persuasively word plain meaning, likely consider evidence interpreting See Boston Sand & Gravel Co. 1928, 278 48, 49 52, 53, 170. almost totally unenlight ening.1 available perhaps strongest furnished resulting reading section. passed discussion, pursuant resolution 'crime conference' consisting leading national officials others interested cooperation Justice. conference's unanimous 'Resolved, conference endorse idea prohibit illegal. Further, States.'2 shortly thereafter Department, filing manufacturer. section changed apparently discussed 23 Concedely, provision affords far respect sections suggested interpretations applied.3 24 am unable solution offered II. 25 26 specified times district', filed 'an inventory record close calendar month 27 mean suggest provisions models clarity; words exemplary draftsmanship results. function discipline dot i's cross t's. rather conduct sufficiently clear sanctions ignoring violate law. 28 ask 'where patently ambiguous unclear equivocal render denial process'; argue conviction 'no peril life, property speculate statutes,' entitled commands forbids, citing Lanzetta New Jersey, 1939, 306 451, 453, 59 618, 619, 83 888. speculation required, seeks compliance law; them assure bona fide successful. 29 Appellees' complaint, according brief, file, things apparent: (1) registrant someone designating one; (2) devices; (3) done General—for clearest 'shall name' etc., inventory' that, aside 291, seat knowledge located D.C. sent amount compliance. desired 'district,' Attorneys representing throughout country. through At rate room receive information. Subsequent passage General, acting provided exception manufacturers Illinois (apparently center affected industry), directed District there. information, whereabouts purposes crystal clear. 30 Constitution allow citizen ascertain follow himself safely bounds supra. forgotten provide quibbling; lawyer looking litigation, whose client law, paint picture uncertainty frustrated fathom unfathomable intent regulations, honestly seeking inevitably succeeded, undue mental strain determining import chances remaining certainty Due Process tested would-be violator's standpoint; test adequate guidance law-abiding. Musser Utah, 333 95, 97, 397, 398, 562. met prescribes good faith recognize presence transform trap unwary about one's person, business. III. 31 exceeded not. 32 embarked deemed action possible eliminate sources income organized crime, same yielding Nevada few legal underworld's control profit correspondingly minimized. exempt themselves 3, sets issue, designed enforceable ban. thought transfer machine after enable across lines violated Unless reported, easy conceal identity transporter resorting straw-man transactions, cover-up 'sales' shipment, like. tie-up between 'Nation-wide crime syndicates,'4 stringent methods accomplish ban needed presumed law-abiding citizens kept accurate books accounts. net considerations clearly establish necessary, appropriate, probably enforcing devices. 33 presented, then, empowered appropriate concededly devices, activity. affirmative dictated Court; but, important, precludes answer. previously decided scheme utilized heretofore attempted. novelty suggests unconstitutionality. 34 body decisional defining scope Congress' regard regulated fairly 'affect' goods commingled destined commerce.5 purposes, least immune related controlled 35 occasions stated 'extends attainment legitimate end, granted Commerce.'6 accurately sale elusive object being controlled. empowers Execution foregoing Powers McCulloch Maryland, 1819, Wheat. 316, 421, 579, cited interprets follows: 37 'Let end legitimate, let constitution, plainly adapted prohibited, consist letter spirit constitutional.' 38 added leeway 423, 579. 39 brief attack solely machines. believe reasonableness necessity already adequately demonstrated. None contrary conclusion. Act's ruse invade areas states, 'naturally of' power.7 40 sought less regulate; conceded transportation. distinction substantial. Goodrich Transit 1912, 224 194, 211, 436, 439, 56 729.8 41 described requirement effectuate transporting interstate. open possibilities widespread encroachment out, exclusively vested remains there; unique: commodity peculiarly tied illegal majority actively assist them, supplant enforcement. reverse judgments.9 64 Stat. 1134, U.S.C.(Supp. V) §§ 1171—1177, 1171—1177. pertinent part: 'It unlawful transport State, Columbia, outside possession: Provided, providing exemption section, *' 1172, 1172. 'Upon 1st day July year, last mark number identifying article together buyer consignee thereof carrier. Duplicate bills invoices, complete respects, used individually identifiable. sale, delivery, unassembled form, separately components assembled sell, deliver, ship marked numbered identification herein provided; manufacture, recondition, repair, having registered inventories records deliveries.' 1135, 1173, 1173. 'Whoever 4, fined $5,000 imprisoned both.' 1176, 1176. 'Any transported, delivered, shipped, manufactured, reconditioned, repaired, sold, disposed of, received, possessed, forfeited States. relating seizure, summary judicial forfeiture, condemnation vessels, vehicles, merchandise, baggage customs laws; disposition proceeds thereof; remission mitigation forfeiture; compromise claims award compensation informers forfeitures seizures incurred, alleged insofar applicable inconsistent hereof: imposed collector seizure laws performed agents, authorized General.' 1177, 1177. ambiguity arose following facts: originally submitted Senate, S. 3357, began: revenue district carried on, (etc.). ' added.) 96 Cong.Rec. 13649; Hearings House Committee Foreign 81st Cong., 2d Sess. 2. Treasury wrote concern collection revenue, handle H.R.Rep.No.2769, 14; supra, 8—9. therefore deleted italicized above substituted 'Attorney 8—9; 13650, 14735, 15106, 15108, 16701. deletion 'in district,' appeared later referred back on. clarify issuing Order 4173, CFR, 1952 Supp., 3. He claimed reads: 'The head department government department, officers distribution performance custody, use, preservation appertaining it.' Under liquor statutes, offense unlabeled shipped E.g., 1137, amended, 1930, 390, 390 (now 1263). Blumenthal Cir., 88 F.2d 522, 524—525; Arnold 115 523, 524. marking labeling Ashurst-Sumners 494, 396c, 396c 1762), specifically prison-made 'when foreign commerce'. Kentucky Whip Collar Central R. 299 334, 344, 352—353, 57 277, 279, 282—283, 81 270, suit mandatory injunction subsequent 62 786, (Supp. III) 1762(a), 1762(a). Lacey 1900, 188, packages containing deal animals Rupert 181 F. 87, 88, 91, indictment charged shipments. preventing lottery tickets 762, III), 1301, contains labeling, marking, requirements. stolen 805, 806, 807, 63 96, 2311—2317, 2311—2317. 550, 484, 13(4), 13(4); Houston, E. W.T.R. 234 342, 357—359, 833, 838—839, 58 1341; Florida 282 51 119, 75 291; North Carolina 325 507, 511, 65 1260, 1263, 89 1760; King 344 254, 267—276, 259, 266—271. 450, 452, 454, 455, 152(6), (7), 155, 160(a), (e), (f), 61 138, 140, 146, 147—148, 152 (6, 7), 160(a, e, f); Board Jones Laughlin Steel Corp., 301 1, 31, 47, 615, 629, 893; Myers Bethlehem Shipbuilding 303 50, 459, 462—463, 82 638; Newport News Dry Dock Schauffler, 54, 57—58, 466, 467—468, 64; Santa Cruz Fruit Packing 466—468, 656, 660 661, 954; Consolidated Edison York 305 197, 223—224, 206, 214 215, 126; Denver Building Trades Council, 314 675, 683—684, 71 943, 948—949, 95 1284. Hours Service (Railroads), 1415, 45 61—64, 61—64; Baltimore O.R. I.C.C., 221 612, 621, 55 878; 584, et seq., seq.; Comm. 729; Grain Futures 42 998, amended; Commodity Exchange 1491, Trade City Chicago Olsen, 262 43 470, 67 839; (Convict-Made Goods), 396b, 1761, 1762); 270; Tobacco Inspection 731, 511a-511q, 511a—511q; Currin Wallace, 379, 441; Agricultural Adjustment 1938, 52 1281 Mulford Smith, 307 38, 648, 1092; 203, I) 1340, 1340; Wickard Filburn, 317 111, 82, 87 122; Fair Standards 1060, 201 Darby, 312 100, 657, 85 609; Oklahoma Press Publishing Walling, 327 186, 66 90 614; Marketing Agreement 1937, 50 246, 608c, 608c; Wrightwood Dairy 315 110, 86 726; Food, Drug, Cosmetic 1040, Walsh, 331 432, 1283, 91 1585; 297. Doremus, 249 86, 214, 493; Nigro 276 332, 48 388, 72 600; Sonzinsky 300 506, 554, 772; Kahriger, 510. Bekins, 304 27, 811, Ashton Cameron County Water Improvement District, 298 513, 892, 80 1309. Denmark, 119 F.Supp. 647; Braun, 646; Five Gambling Devices, D.C.Tenn.; Mills Blue Bell Machines, 74; 178 107 394. cites passages Report substantial revenues Nation-wide syndicates. 4—6. refers Congressman president company manufactures syndicates operate Union reap profits billions dollars. 10—12, 23, 28, 29, 182, 185, 191—192; 13638. 15107. see 15103, 15105. 5. Ibid. Ferguson, 15104; Representatives Rogers, 13643 13644, 16853; Bryson, Rees, 13654, Dolliver, Holding makes Consequently, own crimes. Fifth Amendment 'to witness himself.' quoted Johnson occurred debate whole particularly Apparently mention statement 'requires States.' 15106. occasioned discussion. 'prohibition era' contemplated Senators thrust gamblers, users machines, measures officials. However be, various Act—state officers—is scarcely relevant 15102. differs They state: feel, this: shipments prohibited legal. Manufacture shipping inventory.' Brief Appeals p. 8. seem circumvent self-incrimination aspects BLACK; unduly Sess., pp. 4—6; S.Rep.No.307, 82d 55, published relationship 1941, 1942, 121, 460, summarized 'Congress, adopted excluding produced conform labor standards, choose permitted involve activities. Such sustained powers, chosen, although power, nevertheless aids accomplishment admitted government. (Jacob) Ruppert, Inc., Caffey, 251 264, 141, 260; James Everard's Breweries Day, 265 545, 560, 44 628, 631, 1174; Westfall 274 256, 47 1036. Similarly inspection preventive treatment cattle disease infected area order prevent treatment. Thornton 271 414, 585, 1013. And recently grading tobacco compel auction rooms 11, (379) 441, like Rock Royal Co-op. (307 (533) 568, (993) 1010, 1446).' 118, 459; 526, 124, 88. Compare Linder 1925, 268 5, 446, 449, 69 819. 1946, 614, empower Administrator subpoenas duces tecum obtain corporation determine covered Once filing, alternative method presents additional issue. Stowell, 1890, 133 244, 555.

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