Document: 421 U.S. 491 95 S.Ct. 1813 44 L.Ed.2d 324 James O. EASTLAND et al., Petitioners,v.UNITED STATES SERVICEMEN'S FUND al. No. 73—1923. Argued Jan. 22, 1975. Decided May 27, Syllabus The Senate Subcommittee on Internal Security, pursuant to its authority under a resolution make complete study of the administration, operation, and enforcement Security Act 1950, began an inquiry into various activities respondent organization, determine whether they were potentially harmful morale United States Armed Forces. In connection with such it issued subpoena duces tecum bank where organization had account, ordering produce all records involving account. two members then brought action against Chairman, Senator Members, Chief Counsel Subcommittee, enjoin implementation First Amendment grounds. District Court dismissed action. Appeals reversed, holding that, although courts should hesitate interfere congressional actions even rights are implicated, restraint not preclude judicial review no alternative avenue relief is available, that if was obeyed respondents' would be violated. Held: individual Senators, fall within 'legitimate legislative sphere,' since determined case, those protected by absolute prohibition Speech or Debate Clause Constitution being 'questioned in any other Place' hence immune from interference. Pp. 501-511. (a) applicability private civil supported absoluteness term 'shall questioned' sweep 'in Place.' P. 503. (b) Issuance subpoenas as one question legitimate use Congress power investigate, may exercised committee acting, here, behalf Houses. 503-505. (c) Inquiry sources funds used carry suspected subcommittee have potential for undermining Forces sphere. 505-507 (d) There distinction between Subcommittee's Members insofar immunity issuance concerned, because 'essential legislating,' their aides share immunity. 507. (e) cannot held subject questioning alleged ground works invasion privacy, legislating.' 508. (f) Nor can outside protection speech debate motive investigation improper, determining legitimacy motives prompted considered. 508-509. (g) view terms protection, mere allegation infringed does warrant 509-511. 159 U.S.App.D.C. 352, 488 F.2d 1252, reversed remanded. Herbert J. Miller, Jr., Washington, D.C., petitioners. Jeremiah S. Gutman Nancy Stearns, New York City, respondents. Mr. Justice BURGER delivered opinion Court. 1 We granted certiorari decide federal court directs which claims privilege status equivalent confidential membership lists. Columbia Circuit compliance 'would invade constitutional rights' available prevent subpoena. 2 * early 1970 given broad 'make continuing . 1950 ..' S.Res. 341, 91st Cong., 2d Sess. (1970). encompassed discovering 'extent, nature effect subversive States,' specifically directed concerning 'infiltration persons who domination foreign government. .' Ibid. See also 366, 81st (1950). Pursuant mandate Servicemen's Fund, Inc. (USSF). 3 USSF describes itself nonprofit corporation contributions.1 Its stated purpose 'to further welfare served presently serving military.' To accomplish declared has engaged activities2 at servicemen. It established 'coffeehouses' near domestic military installations, aided publication 'underground' newspapers distribution American installations throughout world. coffeehouses meeting places servicemen specialized publications dealt issues concern Through these operations attempted communicate philosophy attitudes involvement Southeast Asia. became 'the focus dissent expressions opposition toward war (Southeast Asia).'3 4 course USSF, concluded prima facie showing been made need investigation, resolved appropriate subpoenas, including could issued. Petitioner Eastland, Senator, is, he then, Chairman Subcommittee. On 28, above authority, signed tecum, commanded June 4, 1970: 5 'any appertaining account accounts Such comprehend papers, correspondence, statements, checks, deposit slips supporting documentation, microfilm thereof (the bank's) control custody (its) means produce.' 6 From record appears never actually bank.4 event, before return date, this tecum. 7 complaint named defendants nine bank.5 charged authorizing resolutions implementing them unconstitutional abuse inquiry, 'sole purpose' force 'public disclosure beliefs, opinions, associations citizens unorthodox unpopular,' 'harass, chill, punish deter (USSF members) exercise duties particularly stifle freedom press association guaranteed amendment'.6 rather than members, claimed, order deprive (them) protect records, contributions, entitled do directly.' claimed financial support obtained exclusively through contributions individuals, disclosed 'much will withdrawn unable continue constitutionally activities.'7 8 For respondents, sought permanent injunction restraining trying enforce contempt complying subpoena.8 Respondents declaratory judgment declaring void Constitution. No damages claim made. 9 Since date 1970, three days after begun, stayed9 avoid mootness possible irreparable injury. hearings took testimony matter. That ultimately held10 respondents sufficient injury injunction. purported strike balance interest asserted rights, NAACP v. Alabama, 357 449, 78 1163, 1488 (1958). valid existed pursuing functions, Art. I, § 8, raising army, 'scrutiniz(ing) closely infiltration elements directly affects armed forces country.'11 Relying Barenblatt States, 360 109, 79 1081, 1115 (1959), must prevail over denied motions preliminary injunctions. petitioner Senators concluding immunizes suit. Dombrowski 387 82, 87 1425, 18 577 (1967). 10 first clearly 'through equitable powers court.' 359, 1259 (1973). Here third party expected refuse compliance; unless obtain might comply, case become moot, violation irreparable. Because noted, traditional route defenses refusing testing legal proceeding them. Ansara 143 29, 442 751 (1971). 11 Second, said: 12 'The right voluntary associations, especially meet popular favor, free having either state officials expose affiliation absent compelling clear number times. 1488; Bates Little Rock, 361 516, 80 412, 480; Louisiana ex rel. Gremillion NAACP, 366 293, 81 1333, 301 (1961); Gibson Florida Legislative Committee, 372 539, 83 889, 929 (1962); Pollard Roberts, 393 14, 89 47, 21 14 (1968), affirming three-judge district Eastern Arkansas, 283 F.Supp. 248 (1968).' U.S.App.D.C., 364, F.2d, 1264. 13 violated, held, discovery identities donors admitted goal subpoena, id., 367, 1267, information gained easily Moreover, donors' revealed, reasonably feared result, USSF's decrease substantially, already occurred merely threat posed subpoena.12 fashioned remedy deal supposed rights. ordered 'consider extent counsel properly required give evidence matters without 'legislative sphere." Id., 370, 1270.13 'be liberal granting amendment' add parties thereby better proceed decision validity subpoena.' added parties, said, presence 'unavoidable entered vindicate otherwise go unredressed.' 'preferable' coercive order.' implication authorized enter 'coercive order' context mean prevented bank. 15 One judge dissented membership-list cases distinguishable none there 'showing lists requested proper purpose.' 377, 1277. Here, hand, dissenting concluded, 'there demonstrable relationship Congress' money 'came organizations,' 378, 1277, 1278, constituted violations U.S.C. 2387(a), prohibits interference loyalty, discipline, Services; anonymity disguised complied Foreign Agents Registration 1938, 22 611 seq. Finally, noted prime investigate application 50 781 seq., too, provided interest. 16 balanced interests supra; Watkins 354 178, 198, 77 1173, 1184, 1273 (1957), struck favor investigative role Congress. He reasoned secrecy frustrate area legislation had. 378—379, 382, 1278— 1279, 1282. Absent sphere, unwarranted. 17 conclude Constitution, 6, cl. 1, therefore reverse. II question14 petitioners 'sphere activity.' If do, questioned about prohibitions absolute, Doe McMillan, 412 306, 312—313, 93 2018, 2024—2025, 36 912 (1973); Brewster, 408 501, 92 2531, 2539, 33 507 (1972); Gravel 606, 623 n. 2614, 2626, 583 Powell McCormack, 395 486, 502—503, 1944, 1954, 23 (1969); U.S., 84—85, S.Ct., 1427—1428; Johnson, 383 169, 184—185, 86 749, 757—758, 681 (1966); Barr Matteo, 564, 569, 1335, 1338, 1434 (1959). 19 Without exception, our read broadly effectuate purposes. Kilbourn Thompson, 103 168, 204, 26 L.Ed. 377 (1881); supra, 179, 754; 1953—1955; 508—509, 2535—2536; 617—618, 2623—2624; cf. Tenney Brandhove, 341 376—378, 71 783, 788—789, 1019 (1951). insure function allocates performed independently. 20 immunities written simply personal benefit Congress, but integrity process insuring independence legislators.' 507, 2535. system clause serves additional reinforcing separation so deliberately Founders.' 754. product English experience. 177—179, 753—755. Due heritage 'central role' 'prevent intimidation legislators Executive accountability possibly hostile judiciary, 181, (1966),' 617, 2623. sole Clause, however, history totally define reach Clause. Rather, 'must interpreted light experience, scheme government 508, Thus we long when applies, provides well criminal actions, individuals initiated Branch. supra. questioned,' reading said acting sphere activity 'should only consequences litigation's results burden defending themselves.' 85, 1427. Just prosecution infringes upon designed preserve, action, damages, creates distraction divert time, energy, attention tasks defend litigation. Private delay disrupt function. instituted Branch, still bear imperiled. reaffirm once sphere' bar 314, 2025. III 24 particular literal look see place session House relation business it.' 377. More specifically, 25 'an integral part deliberative communicative processes participate proceedings respect consideration passage rejection proposed jurisdiction House.' 625, 2627. 313, 27 compulsory plainly falls definition. This often inherent laws '(a) body legislate wisely effectively absence respecting conditions intended affect change.' McGrain Daugherty, 273 135, 175, 47 319, 329, 580 (1927). Anderson Dunn, Wheat. 242 (1821); Rumely, 345 41, 46, 73 543, 546, 97 770 (1953).15 here investigate. 188, 1179. 28 '(W)here possess requisite information—which infrequently true recourse others it. Experience taught requests unavailing, volunteered always accurate complete; some compulsion essential what needed.' 329. 158, 323. Cf. 377—378, 788—789. able task assigned miserly derogation 'integrity process.' 524, 2543; 172, 751. 29 act 'of materials gathered' process. similarly indispensable ingredient lawmaking; recognition authorizing' meaningless. hold issuing authorization, contradiction denigrating I indirectly impair deliberations Gravel, 30 issue related furtherance 187, pleadings show unambiguous 'administration, grant embarked concerned 'legislation had.' 177, 329; Communist Party Control Board, 367 1357, 625 (1961). 31 propriety making scope narrow. Hutcheson 369 599, 618—619, 82 1005, 1015—1016, 137 (1962). Sinclair 279 263, 294—295, 49 268, 272, 692 (1929). beyond narrow confines committee's fairly deemed province.' 789. 316 10, 2026. Even most cursory facts presented reveals Indeed, tells us operated naval bases, facilities 'focus dissent' national policy. Whether violated statute relevant; inform know funds; authorization government,' 493, pleaded facts, discover 'may Subcommittee's) 32 draw Counsel. day-to-day work critical Members' performance treated Members') alter egos 616—617, 621, 2625. alleges 'Subcommittee staff caused Resolution thus distinguish Contrast, 84, 2625; 317, 2027. IV rely language 2625: 34 '(N)o prior executed invalid themselves carrying out illegal arrest, if, secure hearing, seized property invaded privacy citizen. Neither nor liability circumstances.' 35 argue questioning. conclusion quoted referred (1966). example, arrest Sergeant Arms unprotected Marshall Gordon, 243 521, 537, 37 448, 451, 61 881 (1917). Quite contrary routine gather Quinn 349 155, 161, 75 668, 672, 99 964 (1955). contend unpopular.' App. 16. too narrowly. Our 200, 1185; 614, 1013. protects acts occur regular motivation acts.' 525, 2544 (emphasis added). And Brandhove '(t)he unworthy destroy privilege.' 788. undertaken lift provide historically undergirding 'In times political passion, dishonest vindictive readily attributed conduct believed.' wisdom approach methodology open veto. defined produces. very function—like research—is takes searchers up 'blind alleys' nonproductive enterprises. predictable end result. deter' 16, Their theory seems Judiciary intervene rights; subscribed theory. approach, ignores protection16 construed protection. 38 'Congressmen (408 U.S.) 624—625, 2626—2627 though conduct, contexts, statutes.' 39 suggest create exception warranted language, purposes, familiar argument abuse. correct, risk conscious choice Framers' buttressed justified history. 2539. consistently construction rests belief central purpose. 40 illustrates vividly harm cause. A frustrated nearly five years, during aide obliged devote time consultation litigation, distracted inquiry. confronted 'questioning' forbid invocation challenge authority.17 V 41 When consolidated cases18 assumed 'a Senate) disposition others).' Those involved Committee banks certain organizations. As aspect organizations whose sued, alleging honored Appeals. However, complaints different involved, consequently presented. 42 Progress suspended pleading stage awaiting outcome case. them, therefore, joined. Additionally, Session expired. House, unlike Senate, body, 331; Gojack 384 702, 706—707, 1689, 1693, 870 (1966), raised. Moreover abolished H.Res. 5, 94th 1st Sess., problems, aspects briefed argued unwise attempt present 496 1951; 559, 1984 (Stewart, J., dissenting). 43 Judgment remanded entry directing dismiss complaint. directions remand consistent opinion. Reversed 45 MARSHALL, whom BRENNAN STEWART join, concurring judgment. 46 agree interference, reconsidered suit; immunize review. write today emphasize entirely position assert his comply subpoenaed (hereinafter respondent), suit counsel, declare restrain Suit Second week same venue lay Columbia. Liberation News Service 426 1379 (2 Cir. 1970). Having sued Columbia, found get service Consequently, counsel. 48 points out, entertained forum objections neutral resist placing contempt. Ante, 501 14; Perlman 247 7, 12, 417, 419, 62 950 (1918); Doe, 455 753, 756 757 (CA1), vacated sub nom. Nixon, 418 683, 691, 94 3090, 3099, 1039 (1974). But court's setting necessarily quite limited invoke done here. Senators' matter ends answerable court. counsel's aid activity, employee equally shielded Compare 616—622, 2622 314—316, 2025—2026, (1973).1 applies well-settled doctrine holds fell come end. suggest, agree, constitutionality more searching For, relies demonstrate, personal. extends capacity; decisions take form Modern legislatures, wide range subjects. discharge function, informing genuinely great exclusive possession except duly subpoenaed, person shed withhold classes information. refuses testify documents invokes pertinent privilege, runs legislature cite him contempt.2 At trial basis legislature, respectedalong needs legislature. 1179, (1957): 51 Bill Rights applicable (congressional) investigations forms governmental Witnesses compelled themselves. They subjected unreasonable search seizure. freedoms speech, press, religion, abridged.' 52 Accord, Legislation Investigation (1963); (1955); Reinstein & Silverglate, Privilege Separation Powers, Harv.L.Rev. 1113, 1173—1176 53 meaningful party. arising indicate Member called objection, objection heard all. 54 assure vexatious distracting 180—182, 755—756, 512, 2537, (1972). Further, 'treated one" 'insofar latter himself.' 616, 618, 2622, insulate functionaries nonlegislative tasks. 315, 55 (1881), recover false imprisonment. afforded defendant good defense taken Kilbourn's vote Arms, answer directive; later recovered $20,000 him. MacArth. M. 401, 432 (Sup.Ct.D.C.1883). Court's not, point ante, inessential legislating. twice observed 'resolution nature. execution impinged citizen's did there. impunity arrest.' 2624 added); 315 9, 56 questions procedure, defendant, effort party.3 respondent's conceded oral argument, upheld immunity, be.4 57 DOUGLAS, dissenting. 58 affirm below. 59 basic canvassed me 381—383, 790—791, (1951) (dissenting opinion), (1967), Under regime delegates, Acts awesome people my official, how high majestic her office, process, wrongdoers normally suffer. few occasions when, merits, remedy. law rightfully name trustees vast wronged official (1957). been, listed Revenue tax-exempt charitable organization. According filed helped civilian personnel, books, newspapers, library material request. 11. 'Any Marshal' serve return, proof record. previous bank, procedural problems. Apparently, least 13. informed existence. 14. substantially identical. partially served, Tr. Oral Arg. participated 15, 19—20, 21—22. Therefore, reaches active participants. 17—18. 18. refused temporary order, stayed pending expedited honored, significance necessitated kind deliberation hearing injunction.' 22. dissented. After motion petitioners' dismiss. Afterwards both motions; again order. final consolidating appeal denial merits and, finally, Appeal apparently 31. finding failure erroneous. 1267 Fed.Rule Civ.Proc. 52(a). compel Sourwine, testimony. passed resolution, 478, Oct. 13, Sourwine public moved motion. ruled Sourwine's 'has received (and as) such, Rule 301, Manual, Document 90th Session.' 38. timely privilege. discoverable. 26(b)(1). Respondents' ruling appeals injunctive relief. 358, 1258. correctly initially. 359—360, 1259—1260. saw significant difference seeks person. former test subpoena; inquire present, 312 624, 376, 788, (1951), Although unlimited. boundaries source. 197, Thus, penetrating far-reaching enact Constitution.' 111, 1085, (1959); 291—292, 271, clear, invested "general' affairs.' 173, 328, 'on 330. situations interests, (1957); involve attempts impede raised way defense. (1953). prosecutions justify refusals inquires asserting Different problems Any reached us, seeking will. perform prosecutions, scrutinized predicates prosecutions. Watkins, 208, 1189; Flaxer 358 147, 151, 191, 193, 183 (1958); 162, 673, 676, 630—631, 1021—1022, (1962) (Warren, C.J., dissenting); 640, 1026 (Douglas, Frankfurther Watkins: 'By judiciary affirmative agency enforcing underlies contempt, brings play specific provisions relating offenses implied restrictions function.' 216, 1194. Where ongoing balancing plays part. Collateral allow 'grind halt.' 1015. 'absolved responsibility filing dismiss,' 505 25, 1956, 376—377, purposes require expeditious treatment branch Government asked halt functions coordinate branch. dismissal appeal, duty litigation swiftly resolved. Enforcement restrained while dragged courts. protracted Progressive Labor Representatives (C.A. 71—1609); National Peace Action Coalition 71—1693); Peoples 71—1717). based allegations conspiracy violate plaintiff's Fourth distinguished remanding disputed giving 'more colorable substance' him, 1427; contained Senator's rise liability. 'less applicable, applied officers employees joined causing issued, occasion Senators. system, chamber referring Attorney presentation grand jury, indictment, §§ 192—194. below, 1270 (1970); 1379, 1384 (CA2 1970); Stamler Willis, 415 1365, 1369 (CA7 1969). Court, moot.

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