Document: 524 U.S. 11118 S.Ct. 1777141 L.Ed.2d 10 FEDERAL ELECTION COMMISSION, Petitioner,v.James E. AKINS, Richard Curtiss, Paul Findley, Robert J. Hanks, Andrew Killgore, and Orin Parker. No. 96-1590. Supreme Court of the United States Argued Jan. 14, 1998. Decided June 1, Syllabus * The Federal Election Campaign Act 1971 (FECA) seeks to remedy corruption political process. As relevant here, it imposes extensive recordkeeping disclosure requirements upon "political committee[s],'' which include "any committee, club, association or other group persons receives'' more than $1,000 in "contributions'' "which makes'' "expenditures'' any given year, 2 U.S.C. §431(4)(A) (emphasis added), "for purpose influencing election for office,'' §§431(8)(A)(i), (9)(A)(i). Assistance help a particular candidate will not count toward "expenditure'' ceiling if takes form "communication'' by "membership organization corporation'' "to its members''-as long as is "organized primarily [any individual's] nomination . election.'' §431(9)(B)(iii). Respondents, voters with views often opposed those American Israel Public Affairs Committee (AIPAC), filed compliant petitioner Commission (FEC), asking FEC find that AIPAC had violated FECA and, among things, order make public information demands committees. In dismissing complaint, found AIPAC's communications fell outside FECA's membership exception. Nonetheless, concluded, was committee'' because, an issue-oriented lobbying organization, major candidates. District granted summary judgment when reviewed determination, but en banc Appeals reversed on ground FEC's test improperly interpreted definition committee. case presents this two questions: (1) whether respondents standing challenge decision, (2) falls because "its purpose'' "the candidates.'' Held: 1.Respondents, seeking they believe entitles them, have decision bring enforcement action. Pp. ____-____. (a) Respondents satisfy prudential requirements. specifically provides " [a]ny person'' who believes has been may file complaint FEC, §437g(a)(1), party aggrieved'' such party's seek district court review dismissal, §437g(a)(8)(A). History associates word "aggrieved'' congressional intent cast net broadly-beyond common-law interests substantive statutory rights "prudential'' traditionally rested. E.g., FCC v. Sanders Brothers Radio Station, 309 470, 60 693, 84 L.Ed. 869. Moreover, respondents' asserted injury-their failure obtain information-is injury kind address. (b) also constitutional Their inability that, claim, requires meets genuine "injury fact'' requirement helps assure adjudicate [a] concrete, living contest between adversaries.'' Coleman Miller, 307 433, 460, 59 972, 985, 83 1385 (Frankfurter, J., dissenting). Richardson, 418 166, 94 2940, 41 678, distinguished. fact harm at issue widely shared does deprive Congress power authorize vindication federal courts where concrete. See Citizen Department Justice, 491 440, 449-450, 109 2558, 2564-2565, 105 377. informational directly related voting, most basic rights, sufficiently satisfied remaining requirements: "fairly traceable'' can "redress'' injury. (c) Finally, explicitly indicates alter traditional view agency decisions are subject judicial review. Heckler Chaney, 470 821, 832, 1649, 1656, 714, P. ____. 2.Because unusual complex circumstances arises, second question presented cannot be addressed must remanded. After determined many belonging were "members'' under regulations, overturned regulations another case, part thought defined organizations too narrowly light organization's First Amendment right communicate members. new organization'' rules could significantly affect interpretative Question Two. Thus, should proceed determine expenditures qualify communications'' rules, thereby fall scope committee.'' If decides here do qualify, then lower still evaluate significance communicative context arises. If, hand, matter become moot. 101 F.3d 731, vacated BREYER, delivered opinion Court, REHNQUIST, C. STEVENS, KENNEDY, SOUTER, GINSBURG, JJ., joined. SCALIA, dissenting opinion, O'CONNOR THOMAS, Seth Waxman, Washington, DC, petitioner. Daniel M. Schember, respondents. Justice BREYER Court. 1 (FEC) (AIPAC) 1971, 86 Stat. 11, amended, §431(4) (FECA), reason, refused require disclosures regarding membership, contributions, would otherwise require. We hold respondents, voters, Commission's determination court, we remand further proceedings. our disposition necessary describe procedural background some detail. commonly understood, actual perceived process several important ways. limits amounts individuals, corporations, committees'' (including action committees), parties contribute office. §§441a(a), 441a(b), 441b. amount these individuals entities spend coordination candidate. (It treats "contributions to'' purposes Act.) §441a(7)(B)(i). originally written, set total his own money, independent candidate-though certain last-mentioned limitations Amendment. Buckley Valeo, 424 39-59, 96 612, 644-654, 46 659 (1976) (per curiam); Comm'n National Conservative Political Action Comm., 480, 497, 1459, 1468-1469, 455 (1985); cf. Colorado Republican Comm. Comm'n, 518 604, 613-619, 116 2309, 2314-2318, 135 795 (1996) (opinion J.). 3 This concerns extend beyond better-known contribution expenditure limitations. groups within Act's Those register appoint treasurer, keep names addresses contributors, track disbursements, reports lists donors giving excess $200 per year (often, group's members), expenditures, disbursements irrespective their purposes. §§432-434. 4 use calls mind term committee,'' "PAC,'' normally refers corporations trade unions might establish making contributions prohibit. §§431(4)(B), But, fact, much broader scope. states includes year. added). 5 broad definition, however, less universally encompassing first seem, later definitional subsections limit defines key terms "contribution'' covering only made office.'' sets forth detailed categories loans, assistance-in-kind "expenditure,'' even election-related §§431(8)(B), (9)(B). particular, assistance qualifies election, individual.'' 6 arises out effort AIPAC, persuade treat stating qualifying became Record, Exh. B, p. 4. They added provisions requiring committee[s]'' about members, just referred. Id., 2, 9-17. claimed §441b FECA, prohibits corporate campaign "contribution[s]'' "expenditure[s].'' 16-17. asked Act, 33-34. 7 dismiss complaint. described itself maintain friendship promote goodwill Israel. App. 120; see Brief Amicus Curiae (AIPAC Brief) 3. conceded lobbies elected officials disseminates candidates 43, 6. But responding charge, denied kinds (i.e., make, exceed $1,000, committee''). 8 To put specifically: focused election-related, costs meetings candidates, introduction members distribution position papers. said spending activities, amounted, 164-166, exempts from "expenditures,'' view, therefore did violate §441b's prohibition. Doc. 19, pp. 2-6. (And, right, towards transform ordinary issue-related into §431(4)). 9 General Counsel concluded 1983 1988, indeed funded sort described. related, amounted advocating defeat 106-108. He "likely crossed threshold.'' 146. At same time, closed door invocation "communications'' although "close question,'' communications, exception applies belonged Act. Pet. Cert. 97a-98a; 170-173. Still, closeness issue, exercised discretion decided respect "corporate contribution'' violation. 98a. effectively foreclosed claim determining Since activities exception, invoke way escaping provisions, triggers. 11 nonetheless held requirements, different reason. "major Cf. U.S., 79, S.Ct., 663. added, fundamentally campaign-related hence regardless. consequently dismissed 12 petition §§437g(a)(8)(A), 437g(a)(8)(C). divided panel affirmed. 66 348 (C.A.D.C.1995). reversed, 731 (C.A.D.C.1996). Government's certiorari, contained following 13 "1.Whether case. 14 "2.Whether spends coordinated calendar neither controlled nor committee' meaning [Act].'' Petitioner I. 15 shall answer questions, second. II 16 Solicitor argues lack against AIPAC. claims failed insisted. See, e.g., Credit Union Admin. Bank & Trust Co., 522 ----, 118 927, 933, 140 (1998) (NCUA); Association Data Processing Service Organizations, Inc. Camp, 397 150, 153, 90 827, 829-830, 25 184 (1970) (Data Processing). adds shown "suffe[r] fact,'' favor "redres[s]'' Bennett Spear, 520 154, ---------, 117 1154, 1160-1161, 137 281 (1997) (internal quotation marks omitted); Lujan Defenders Wildlife, 504 555, 560-561, 112 2130, 2136-2137, 119 351 (1992). meet Article III's demand "case'' "controversy.'' 17 agree "prudential standing'' claim. provided person violation occurred, Commission.'' §437g(a)(1). It aggrieved petition'' dismissal. Scripps-Howard Radio, FCC, 316 4, 62 875, 1229 (1942); 869 (1940); Office Communication Church Christ 359 F.2d 994 (C.A.D.C.1966) (Burger, J.); Associated Industries New York State Ickes, 134 694 (C.A.2 1943) (Frank, Administrative Procedure §702 (stating "suffering legal wrong'' "adversely affected statute'' action). 18 plaintiff ""arguably [falls] zone protected regulated statute question.''' NCUA, supra, 933 (quoting Processing, 829-830). complain-their Buckley, 66-67, 657-658 ("political disclose contributors understand financial support). nothing suggests intended exclude benefits restrict standing, say, parties, 19 Given language nature injury, conclude Congress, intending protect suffering suit. Consequently, Raines Byrd, 521 n. 3, 2312, 2318, 138 849 (explicit grant authority suit "eliminates lessens risk unwanted conflict Legislative Branch''). 20 Nor dissent lacks lawsuit. III, course, Congress' "cases'' "controversies.'' That limitation means show, fact''-a "pass abstract, intellectual problems,'' "concrete, contest[s] (1939) dissenting); Bennett, 1163; Lujan, 2136-2137. suffered fact.'' 21 consists information-lists (who are, according expenditures-that, law, public. There no reason doubt them (and others whom it) office, especially received role play specific election. Respondents' seems concrete particular. Indeed, previously suffers fails publicly disclosed pursuant statute. 449, 2564, 377 (1989) (failure Advisory "constitutes distinct provide sue''). Havens Realty Corp. Coleman, 363, 373-374, 102 1114, 1121-1122, 71 214 (1982) (deprivation housing availability constitutes "specific injury'' permitting standing). 22 678 (1974), sought (details Central Intelligence Agency expenditures) which, he said, Constitution's Accounts Clause, Art. I, §9, cl. 7, entitled him. there lacked III standing. 179-180, 2947-2948. says Richardson "indistinguishable.'' Post, __. parties' briefs suggest-for mention -that control outcome here. 23 's CIA nonpublic "a regular Statement Account Receipts Expenditures all Money published time time.'' 167-169, 2942-2943. "no "logical nexus' [plaintiff's] status taxpayer Executive supply report [CIA's] expenditures.'' 175, 2946; id., 174, 2945 Flast Cohen, 392 83, 102, 88 1942, 1953, 947 (1968), proposition "taxpayer cases, logical nexus adjudicated''). 24 nexus'' inquiry relevant. Here, provision demonstration "nexus'' believed Flast. Rather, pointed out, __, say suffered, i.e., failing receive activities. 178, 2947, 11. 171-178, 2943-2947, voter places greater distance before us. suggesting, implies, post, come differently sue voter, rather taxpayer. Faced assertion, simply consider Framers ever imagined general directives [of Constitution] individual citizen.'' since (like Richardson) rested significant Court's All logic critically Richardson's beside point 26 strongest argument contention lawsuit involves "generalized grievance.'' (Indeed, all, discussion matter, 176-178, 2946-2947, rationale.) points (their information) one ""shared substantially equal measure large class citizens.''' 28 Warth Seldin, 422 490, 499, 95 2197, 2205, 45 343 (1975)). adds, grievance[s]'' harms confer 28; 573-574, 2143-2144; Allen Wright, 468 737, 755-756, 104 3315, 3326-3327, 82 556 (1984); Valley Forge Christian College Americans Separation State, Inc., 454 464, 475-479, 752, 760-762, 70 700 (1982); 2946-2947; Frothingham Mellon, Massachusetts 262 447, 487, 43 597, 601, 67 1078 (1923); Ex parte Levitt, 302 633, 634, 58 493 (1937) curiam). Whether styled sometimes numbers suffer alike, process, appropriate grievance. Warth, 500, 2205-2206; Schlesinger Reservists Stop War, 208, 222, 2925, 2932-2933, 706 (1974); 179, 2947-2948; 188-189, 2952-2953 (Powell, concurring); Flast, 131, 1968-1969 (Harlan, 27 points, invariably appears cases shared, abstract indefinite nature-for example, "common concern obedience law.'' L. Singer Sons Pacific R. 311 295, 303, 61 254, 258, 85 198 Allen, 754, 3326; Schlesinger, 217, 2930. 572-578, 2142-2146 (injury interest seeing procedures followed sufficient standing); Frothingham, 488, 601 (party merely assert "he common people generally''); Perkins Lukens Steel 310 113, 125, 869, 876, 1108 (1940) (plaintiffs show own, distinguished public's administration law''). harm-for law obeyed-deprives specificity characterized controversies Westminster,'' 985 today prevents obtaining what would, effect, advisory opinion. Aetna Life Ins. Co. Haworth, 300 227, 240-241, 57 461, 463-464, 81 617 (1937). Often go hand hand. invariable, though Citizen, 2564-2565 (" [T]he citizens after unsuccessfully demanding lessen [their] injury''). Thus forum readily available (while counseling against, interpreting conferring standing) not, itself, automatically disqualify Such interest, conclusion particularly obvious (to hypothetical example) (say, widespread mass tort), interference voting conferred law. 572, 2142-2143; Shaw Hunt, 517 899, 905, 1894, 1900-1901, 207 (1996). similarly, courts. 29 complain. Of 29-31, possible agreed exercise produce information. 98a (deciding prosecutorial discretion, 714 (1985), "take action'' allegation AIPAC). destroy "causation,'' know way. Agencies take Yet adversely discretionary generally complain based improper ground. Abbott Laboratories Gardner, 387 136, 140, 87 1507, 1510-1511, 681 (1967) (discussing presumption reviewability action); Citizens Preserve Overton Park, Volpe, 401 402, 410, 91 814, 820-821, 136 (1971). reviewing agrees misinterpreted aside agency's case-even jury mistrial) later, lawful reach result SEC Chenery Corp., 318 80, 63 454, 626 (1943). exercising powers lawfully. For similar reasons, 30 deny undertake action-an area 23, 29. Heckler, noted "ha[ve] "committed discretion,''' intend tradition enacting APA. 1656; §701(a) (courts actions "statutes preclude review,'' "agency committed deal contrary. 31 sum, both declaration dismissal unlawful. 32 certiorari satisfies thus said: 33 [T]o fulfill [the committee'] need encompass candidate.'' 34 reiterated Life, 479 238, 252, 6, 107 616, 625, 93 539 (1986): 35 [A]n entity regulation either "under candidate.''' 36 narrowing wherever applied. And, purpose.'' 37 disagreed FEC. read construction turning problems "independent expenditures'' "an expressly clearly identified without cooperation consultation candidate,'' §431(17)). F.3d, 741. prior apply special expenditure'' problem exist. 742-743. 38 across board. squarely address mentioned, considered question, namely, exempt prohibition grounds so-called involved statute's regulation. acknowledged, question.'' 98a; 144-146, 170-171. policies 39 A few months defining "members,'' "First "members.''' Chamber Commerce 69 600, 605 subsequently issued proposed redefining "members.'' Under quite belong so, apparently turn test. Fed.Reg. 66832 (proposed CFR Parts 100 114). 40 consequence consideration Two now interpretive question. saying interpretation reflected concerns, 741, broadly evaluation constitutionally driven context. General's (reflected Buckley's interpretation) present whenever disclosure. event, difficult decide considering CIO, 335 106, 121, 68 1349, 1356-1357, 92 1849 (1948) (describing relation association). exemption enacted helpfully inform upshot, permit address, instance, advantage expertise, allowing develop precise rule dispose minimum, aid reaching informed conclusion. communications,'' despite courts, reconsidering arguments, 42 vacated, remanded proceedings consistent so ordered. 44 THOMAS join, dissenting. extraordinary one, private ability compel third party. Despite liberality, allow suits, deemed §701(a)(2); 827-835, 1653-1658, (1985). commonplace, Branch system separated equilibrated greatly reduced, Judiciary expanded. Because extraordinary, careful expand fair meaning. my that. expands Constitution permits. 47 clear filing complaints rejection complaints. evident permits occurred,'' §437g(a)(1) accords relief party,'' §437g(a)(8)(A) gives latter deprives almost limiting force. Any registration "aggrievement'' deprivation access whose consequences registration. 48 me stretch. borne complained refusal possession disclosed. furnish-one compliance Freedom Information example-can reasonably being it. What suit, information, (for allegedly reason) commence person. plainly render differentiate "person'' subsection (a)(1) "party (a)(8). each elevated requested (if successful) others, placing possession, along everyone else world, unlikely effect-both secondary immediately seek, affects particularity virtually entire population-would meant apart respondent (as rejected complainant) 49 strengthened citizen-suit years I discuss length below, gave every voter's helpful franchise inadequate plaintiff's Government unlawfully depriving him needed "properly obligations member electorate voting'' "surely generalized grievance'' state controversy. 176, 2946. 50 And finally, narrower reading supported doctrine doubt, counsels us interpret statutes, possible, fashion avoid grave questions. ex rel. Attorney Delaware Hudson 213 366, 408, 527, 535-536, 53 836 (1909); Edward DeBartolo Florida Gulf Coast Building Constr. Trades Council, 485 568, 575, 108 1392, 1397-1398, 99 645 (1988). discuss, entertainment violates III. Even disagrees judgment, close ought 51 precisely here: unlawful place domain. difference, aggrievement direct, already whereas challenged (CIA), alleged requirement, nonjusticiable impact [plaintiff] undifferentiated public.'' 176-177, 2946 citations omitted). 52 Constitution, statute-but course "there absolutely basis source right.'' 576, 2144, distinguishes basis-a reduces landmark holding curio. According "Richardson standing.'' Ante, addition silly distinction, weighty governmental underlying prohibition-viz., "something Athenian democracy England town meeting oversee conduct lawsuits courts,'' 2947-this distinction went eliminate. true enough narrow ""[w]hether standing,''' 167, 2942, 1. only, suggests, established (1968).* ""a electorate,''' capacity well. treated fairly included taxpayer-standing least indistinguishable it: "The respondent's expenditures-and activities-he intelligently follow Executive, properly national 54 "This surely grievance (citations internal omitted) 55 left voter-standing unaffected, marvel unaccustomed ineptitude Civil Liberties Foundation, litigated refiling explicit allegation. Fairly read, applying understanding purposes, 56 asserts disapproving grievances "invariably nature.'' "Often,'' says, fact.''' Ibid. so-if particularized grievances) OK, bad-one wonder why developed superfluous all. wrong think concerned abstract. One prove that-unless event disposed noticeably lacking generalized-grievance jurisprudence reference words figured prominently: "particularized'' "undifferentiated.'' 177, 560, 2136, "Particularized'' personal way.'' effect "undifferentiated public,'' omitted), pursued means. These explain gross oversimplification reduce concept grievance] shared,'' ante, enabling principle examples "large suffer[ing] law,'' ibid. exemplified injuries sure, differentiated harm. tort victim burnt leg, arm-or arms arms. franchise, hers. With grievance, undifferentiated. caused Mr. disregard Statement-of-Accounts Clause else: unavailability description expenditures. Just (more indirect) Akins enforce line demarcation presupposes type sustain "case controversy'' citizenry President, primary responsibility Care Laws faithfully executed,'' II, §3. affirmed complained-of differentiated, electorate. When directed instance way-and (here, inseverable larger scheme-there occurred shift branch designed rights. "To convert executive officers' "individual right' vindicable transfer President Chief Executive's duty '' 577, 2145. today's correct, interested manage (through courts) piece paper. had, desire. *** direction prosecutions, unconstitutionally transfers §3, respectfully dissent. syllabus prepared Reporter Decisions convenience reader. Detroit Timber Lumber 200 321, 337, 282, 287, 499. inescapable since, handed down day, applicable taxing challenged'' not). 225, 15, 2934, (1974).

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