Document: 380 U.S. 479 85 S.Ct. 1116 14 L.Ed.2d 22 James A. DOMBROWSKI et al., Appellants,v.James H. PFISTER, etc., al. No. 52. Argued Jan. 25, 1965. Decided April 26, [Syllabus from pages 480-481 intentionally omitted] Leon Hubert Jr., New Orleans, La., and Arthur Kinoy, York City, for appellants. John E. Jackson, Jack N. Rogers, Baton Rouge, appellees. Mr. Justice BRENNAN delivered the opinion of Court. 1 Appellants filed a complaint in District Court Eastern Louisiana, invoking Civil Rights Act, Rev.Stat. § 1979, 42 U.S.C. 1983 (1958 ed.) seeking declaratory relief an injunction restraining appellees Governor, police law enforcement officers, Chairman Legislative Joint Committee on Un-American Activities Louisiana—from prosecuting or threatening to prosecute appellants alleged violations Louisiana Subversive Communist Control Law Propaganda Law.1 Appellant Southern Conference Educational Fund, Inc. (SCEF), is active fostering civil rights Negroes other States South. Dombrowski its Executive Director; intervenor Smith, Treasurer; Waltzer, Smith's partner attorney SCEF. The alleges that statutes their face violate First Fourteenth Amendment guarantees securing freedom expression, because over-breadth makes them susceptible sweeping improper application abridging those rights. Supported by affidavits written offer proof, further threats enforce against are not made with any expectation valid convictions, but rather part plan employ arrests, seizures, prosecution under color harass discourage supporters asserting attempting vindicate constitutional Negro citizens Louisiana. 2 A three-judge district court, convened pursuant 28 2281 dismissed complaint, one judge dissenting, 'for failure state claim upon which can be granted.' 227 F.Supp. 556, 564. majority were view allegations, conceded raise serious issues, did present case threatened irreparable injury federal warranted cutting short normal adjudication defenses course criminal prosecutions; rather, held, this was appropriate abstention, since possible narrowing construction courts would avod unnecessary decision questions. In accordance court withdrew initial determination unconstitutional face. F.Supp., at 562—563. Postponement consideration issues until review here adverse thought especially concerned State's 'basic right self-preservation' 'imbued * aura sedition treason acts designed substitute different form local government than lawful means *'; interference such 'truly massive emasculation last vestige dignity sovereignty.' 559, 560. We noted probable jurisdiction order resolve seeming conflict our later Baggett v. Bullitt, 377 360, 84 1316, 12 377, settle important questions concerning injunctions prosecutions constitutionally protected expression. 976, 1881, 745. reverse. I. 3 Ex parte Young, 209 123, 441, 52 L.Ed. 714, fountainhead prosecutions, characterized power proper exercise broad terms: it justified where officers '* threaten about commence proceedings, either nature, parties affected act, violating Federal Constitution *.' U.S., 156, S.Ct., 452. Since decision, however, considerations federalism have tempered equitable power,2 has recognized good-faith administration laws peculiarly inconsistent framework. It generally assumed prosecutors will observe limitations as expounded Court, mere possibility erroneous standards usually amount necessary justify disruption orderly proceedings. Douglas City Jeannette, 319 157, 63 877, 87 1324, example, upheld court's refusal enjoin city ordinance religious solicitation, even though very day held so applied conviction it. Murdock Commonwealth Pennsylvania, 105, 870, 1292. injunctive looks future, Pennsylvania fail respect ruling, found nothing injunction. And variety contexts no special circumstances warrant prosecution.3 cases does appear plaintiffs 'have been incidental every proceeding brought lawfully good faith, equity withdrawing guilt could rightly afford petitioners protection they secure prompt trial appeal pursued Court.' supra, 164, 881. 4 But allegations depict situation defense assure adequate vindication They suggest substantial loss impairment freedoms expression occur if must await disposition ultimate determination. These true, clearly show injury. 5 statute regulating involves imponderables contingencies themselves may inhibit full freedoms. See, e.g., Smith People State California, 361 147, 80 215, 205. When also overbroad sweep, alleged, hazard precious critical. For cases, lend too readily denial assumption ample unfounded cases. See 379, 1326. '(t)he threat sanctions deter almost potently actual sanctions. *' NAACP Button, 371 415, 433, 83 328, 338, 9 405. Because sensitive nature we required all subject regulations risk test free expression—of transcendent value society, merely exercising rights—might loser. Cf. Garrison 379 64, 74 75, 209, 216, 13 125. consistently allowed attackes overly requirement person making attack demonstrate his own conduct regulated drawn requisite narrow specificity. Thornhill Alabama, 310 88, 97—98, 60 736, 741—742, 1093; 432—433, 337—338; cf. Aptheker Secretary State, 378 500, 515—517, 1659, 1668—1669, 992; United Raines, 362 17, 21—22, 519, 522—523, 524. fashioned exception usual rules governing standing, see danger tolerating, area freedoms, existence penal application.' 338. If rule otherwise, contours regulation woudl hammered out case—and tested only hardy enough determine properscope regulation. U.s., 147—148, 448—449. By permitting invalidity these without regard permissibility some facts particular have, effect, avoided outcome protracted litigation. Moreover, improbability successful different. chilling effect derive fact prosecution, unaffected prospects success failure. 432 378—379, 1326; Bush Orleans School Board, D.C., 194 182, 185, affirmed sub nom. Tugwell Bush, 367 907, 81 1926, 6 1250; Gremillion States, 368 11, 82 119, 7 75. Appellants' offers proof outline initiated case. Early October 1963 appellant intervenors Waltzer arrested charged two statutes. Their offices raided files records seized.4 Later quashed arrest warrants based cause, discharged Subsequently, granted motion suppress seized evidence ground raid illegal. officials continued, appellants, who thereupon action November. Shortly after convened, grand jury summoned Parish hear looking indictments individual On appellants' Judge Wisdom issued temporary pending hearing Following over Wisdom's dissent, dissolved and, same time, handed down dismissing complaint. Thereafter returned appellants.5 events, together repeated announcements organization subversive Communist-front organization, whose members register prosecuted statutes, allege, frightened off potential contributors. Anti-Fascist Refugee McGrath, 341 71 624, 95 817. Seizures documents paralyzed operations exposure identity adherents locally unpopular cause. ex rel. Patterson, 357 449, 78 1163, 1488. Although seizure courts, continuing presecution portends arrests cause inconvenience worse. Freedman Maryland, 51, 734, struck picture censorship solely regulatory scheme sufficiently exhibitors judicial resolution claims. interest immediate claims surely less allegedly seriously inhibiting Not allege far more 'injury faith,' statutory provisions brought. there prospect final sections if, indeed, certainty presented—a series provide satisfactory issues. 8 follows erred holding fails sufficient relief. should abstain authoritative interpretation might hold apply SCEF, abstention doctrine inappropriate where, unlike justifiably attacked purpose discouraging activities. 10 First, faith enforcing claiming invoked, continue invoke, process hope success, 1983, believe do, Beauregard Wingard, 230 167 (D.C.S.D.Calif.1964); Bargainer Michal, 233 270 (D.C.N.D.Ohio 1964), ultimately put irrelevant. rendering inapplicable SCEF mean prevail courts. alter impropriety appellees' bad impose harassment activities, doing do. 11 Second, challenged vague already seen here, actually threatened, challenge, frivolous, establish traditional doctrines equity. reasons preclude acceptable construction. considering whether granted, consider time hypothetical future date. proscribed adequately defined deterrent contained within limits constructions illuminating otherwise prohibition. As observed 378, 1326, cannot satisfactorily done through dealing inevitably portion prohibition contributing materially articulation standard. entitled burdens defending however expeditious, aimed hammering structure piecemea, likelihood obviating similar uncertainty others. Here, apparent suggests itself vehicle rehabilitating single must, invoke sought, assume burden obtaining permissible noncriminal proceeding6 before seek modification permit prosecutions.7 'vagueness' doctrine, serves legitimate speech properly face, reach limiting anticipated result sort 'hardcore' obviously prohibited circumstances, uncertainties vagaries whereas vagueness demand prior save statute. war purposes demands regardless expeditious prosecutions. today prosecute, upheld, dictate awaiting judgments settled retain modify light changed circumstances. System Federation 91, Ry. Emp. Dept., AFL—CIO Wright, 364 642, 368, 349; Chrysler Corp. 316 62 1146, 86 1668; Swift & Co., 286 106, 460, 76 999. Our operation modifying subsequent clarifying conduct. conclude well effective safeguards justified. II. Each indicated 364(7)8 failing member organization. indicted 'of front known National Lawyers Guild, said cited committees sub-committees Congress 'a essentially Human Welfare, Welfare (has) 364(4),9 acting Director Treasurer respectively wit, being 15 definition organization' 359(5)10 incorporated offense created s 364(4), substantially identical Washington considered 362, 363, n. 1, 1318. There used requiring employees take oath condition employment. definition, thereon, denied due unduly vague, uncertain broad. Where, association similarly involved, controlling distinction standard criminality contents oath. This creates 'danger zone' inhibited. Speiser Randall, 513, 526, 1332, 1342, 1460. So long remains available real one. Even dispels Quantity Copies Books Kansas, 205, 1723, 809; Bantam Books, Sullivan, 372 58, 631, 584; Marcus Search Warrants Property, 717, 1708, 1127; supra. 364(4) intimately bound up invalid reasoning reasons. 16 find registration 364(7) invalid. That section 359(3),11 'the officially identified Attorney General Board Subcommittee communist shall presumptive factual status organization.' compliance procedural demanded supra.12 17 designation resting minimum insure rationality presumptions absence, cast impermissible organizations fronts. 'Where certainly requires bear persuasion engaged speech.' 1342. 364(7), presumption, face.13 III. 18 precise terms scope enjoined cannot, course, determined conducts remand. record suffices, that, benefit construction, founded void face; obtained, activities whatever be. brief appellee Garrison, official having responsibility indictments, concedes discharge judge, jury. merits, remand need decide basis attacks Law, both decide. 19 judgment reversed remanded proceedings consistent opinion. include framing decree ordering return papers seized, prohibiting addition, determination, remaining raised ordered. 20 Judgment directions. 21 BLACK took STEWART 23 HARLAN, whom CLARK, joins, dissenting. 24 basic marks significant departure wise principle spare system premature grounds. abolishes suits attacking First-Fourteenth considers prime maintain federal-state relationships working order, I subscribe displays insensitivity system. incompatibility between finds exist kind. 25 practical Court's longer carry challengeable 'First Amendment' grounds approval questioned (and few, least colorably, cannot) then instituted commencement action,1 halted authorities obtain turn presumably monitoring proceed. 26 me paralyzing processes advances support. High premium placed be, do think prevents testing availability medium review. 27 Underlying major premise affecting thereof seems unarticulated prone promptly effectively. Such indulged absence showing apt given No kind made. contrary, refused uphold books. Ante, pp. 487 488. equally diligent construing question relevant decisions Court.2 determination.' p. 486. obviated traveling route approved here. progress litigation always swift like falls outside construed limits, deem protected. argument respecting hardly sits Act core Dennis 494, 857, 1137; Yates 354 298, 77 1064, 1356; Scales 203, 1469, 782. 29 Term virtually one, dispositive decided context what amounted academic loyalty oath, applicable college professors (those tenure) grave doubt remedy constitutionality dismissal reason extend thwart enforcement.3 30 Had enactment had willing pass validity action, stricken first exposing effort much possible. 502, 863, 1137. Yet give declined opportunity Fox Washington, 236 273, 35 383, 59 573; Poulos Hampshire, 345 395, 73 760, 97 1105. thus pro tanto goes doom interpretation, despite room leaves Dennis, Yates, Scales, supra heavy-handed treatment order. 31 What decides suffers infirmity. Interwoven standing. defendant avoid simply others unconstitutional.4 To follow practice asked would, require try advance forum, Cleary Bolger, 392, 385, 390; Stefanelli Minard, 342 117, 123—124, 72 118, 121—122, 96 138, procedure disruptive recognize persons included narrowest reading statutes—what called 'hard-core' conduct—could invalidated today, able assert defense. 7, 491-492. Thus, conspiring stage forcibe coup d'etat them. know, fall them, now immunized vaccination prosecution. make standing party wins race forum choice repudiate 'considerations federalism' (ante, 484) pays lip service. 32 While for, action. retained affording event go forward bona fide manner. Harrison NAACP, 360 167, 79 1025, 1152. La.Rev.Stat. §§ 14:358 14:374 (Cum.Supp.1962). 14:390 14:390.8 2283 provides that: 'A grant stay except expressly authorized Congress, aid jurisdiction, protect effectuate judgments.' issue sought. predecessors institution bar stays instituted. Warren, Interference, 43 Harv.L.Rev. 345, 366—378 (1930); Note, Power Enjoin Proceedings, 726, 728—729 (1961). obtained filing sought interlocutory permanent relief, 'proceedings' intendment 2283. intervention 'proceeding' Nor subsequently precluded erroneously invoked therefore come 'expressly authorized' Compare Cooper Hutchinson, 184 F.2d 124 (C.A.3d Cir.1950), Village Lansing, 241 856, 859 (C.A.7th Cir. 1957). 738 Beal Missouri Pac. R. Corp., 312 45, 61 418, 577 (mere prosecution); Spielman Motor Sales Dodge, 295 89, 55 678, 1322 (same); Watson Buck, 313 387, 962, 1416 (no infirmity statute); Fenner Boykin, 271 240, 46 492, 70 927 (same). difficult accused bring halt while certain rendered inadmissible Amendment. 138. set forth dissenting opinion: 'At gunpoint homes ransacked trustees House Detention direct supervision staff director counsel Committee. home office Fund raided. Among dangerous articles removed Thoreau's Journal. truckload files, membership lists, subscription lists SCEF's newspaper, correspondence, office, destroying capacity function. At Pfister, Committee, announced press raids resulted 'racial agitation'.' 573. Prosecution Thirty-seven including adopted Uniform Declaratory Judgments Act. version, La.Civ.Proc.Code Ann., 1960, Arts. 1871—1883, former remedy. indicate once occurring 1105; Cox 569, 762, 1049; Winters York, 333 507, 68 665, 92 840, provided affords fair warning defendants, Lanzetta Jersey, 306 451, 618, 888; 179, 1031, Section provides: 'It felony knowingly wilfully (f)ail R.S. 14:360 contains material false statement omission.' (a)ssist formation participate management contribute support foreign knowing 359(5) "Subversive engages advocates, abets, advises, teaches, engage advocate, abet, advise, teach intended overthrow, destroy, assist overthrow destruction political subdivision revolution, force, violence unlawful means, seeks illegal destroy place responsible people Louisiana.' 359(3) "Communist Front Organization' shall, act infiltrated controlled way aforementioned Lawyears Guild instructive. 1953, proposed designate subversive. His proposal revised regulations, promulgated Order 10450 comply establishing notice Fed.Reg. 2619; 1954 Annual Report General, 14. Columbia procedures. summary favor exhaust administrative remedies sustained certiorari, Brownell, U.S.App.D.C. 252, 225 552, cert. denied, 351 927, 778, 100 1457. After Hearing Officer interrogatories propounded answered, another Action 1738—58, July 2, 1958. September 1958, rescinded Guild. 1958 251. 12, moot instance reciting recission stating 'concluded merits meet strict guide character.' wighout according hearing. 1950, 13, 64 Stat. 998, 50 792 Party Bd., 1357, 625. read Garrison's conceding concession seizure, Law. 390.6 authorizes '(a)ll propaganda discovered Louisiana' violation 390.2 disseminate material. 'Communist propaganda' 390.1, presumption record, constitutionality, applied, sufficiency law. first, ed.). unlikely construe obviate problems 1292, ante, 485. pursuing conduct, comes 'bulk (where) unsettled principally applicability manner eliminate terminate litigation.' 376—377, 1325—1326. indistinguishable 1152, Albertson Millard, 242, 600, 983, explained Baggett, 376, 13. 1325. Void-for-Vagueness Doctrine Supreme 109 U.Pa.L.Rev. 67, 96—104 (1960).

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