Document: 457 U.S. 102 S.Ct. 2339 72 L.Ed.2d 707 UNITED STEELWORKERS OF AMERICA, AFL-CIO-CLC, Petitionerv.Edward SADLOWSKI, Jr., et al. No. 81-395. Argued March 31, 1982. Decided June 14, Rehearing Denied Oct. 4, See 459 899, 103 199. Syllabus Petitioner union amended its constitution to include an "outsider rule" which prohibits candidates for office from accepting campaign contributions nonmembers and creates a committee enforce the rule, committee's decisions being final binding. Respondents, including member who had been unsuccessful candidate before adoption of outsider rule received much financial support his sources outside union, filed suit against petitioner in Federal District Court, claiming that prohibited nonmember finance campaign-related litigation thus violated § 101(a)(4) Labor-Management Reporting Disclosure Act 1959 (LMRDA), provides may not limit rights members institute action any court or administrative agency. The Court found respondents. Appeals affirmed, agreeing 101(a)(4). It also accepted respondents' argument, first raised on appeal, "freedom speech assembly" provision 101(a)(2) LMRDA giving every right assemble freely with other express at meetings views about elections business properly meeting. rejected petitioner's argument was protected by 101(a)(2)'s proviso, gives authority adopt "reasonable" rules regarding members' responsibilities. Held : 1. Petitioner's does violate 101(a)(2). Although it interfere Congress intended protect, is rationally related legitimate purpose, sheltered proviso. Pp. 108-119. (a) In light legislative history, cannot be read as incorporating entire body First Amendment law so require scope protections afforded statute coincide Constitution political election candidate's freedom receive contributions. Union are valid under long they reasonable; need pass stringent tests applied context. 108-111. (b) adopted assembly order promote democracy, particularly through fostering vigorous debate during campaigns. affect somewhat ability insurgent wage effective incumbent officers, practical matter impact substantial. record shows challengers have able defeat incumbents administration-backed candidates, despite absence nonmembers. 111-115. (c) purpose adopting ensure would unduly influence affairs leadership remain responsive membership. policies underlying show this meant protect. Nor invalid asserted ground because could simply established contribution ceilings, limited relatives friends, required reveal their funds. reasonable basis decision impose broad ban seeking eradicate threat influence. 115-119. 2. 101(a)(4)'s right-to-sue provision. apply where uses funds outsiders litigation. Neither rule's language nor debates leading up passage indicate such Moreover, rule-enforcement issued opinion stating limitations "do financing lawsuits non-members asserting legal connection elections." 119-121. 207 U.S.App.D.C. 189, 645 F.2d 1114, reversed remanded. Michael H. Gottesman, Washington, D. C., petitioner. Joseph L. Rauh, Justice MARSHALL delivered Court. 1 case, we confront question whether 73 Stat. 522, 29 U.S.C. 411(a)(2), precludes membership United States Columbia Circuit held 1114 (1981). We granted certiorari, 454 962, 500, 70 376 (1981), now reverse. 2 * A. 3 Steelworkers America (USWA), labor organization 1,300,000 members, conducts president top officers four years. these decided referendum vote 1977 election, hotly contested, two ran president: respondent Edward Sadlowski, Director USWA's largest District, Lloyd McBride, another Director.1 Both Sadlowski McBride headed slate positions. 4 endorsed leadership, substantial staff. hand, union. During campaign, should accept persons were vigorously debated. contended participation USWA dangerous App. 27, n. 2, 298. id., 129, 398; see generally 40-48. ultimately defeated fairly wide margin—57% 43%. won similar margins. 5 After elections, continued campaigns desirable. This finally resolved 1978, when biennial Convention. Convention, consists approximately 5,000 delegates elected local unions, highest governing body. At 1978 several unions submitted resolutions recommending amendment prohibiting union's International Executive Board recommended Acting recommendations, Convention's Committee proposed Convention rule. floor delegates, margin roughly 10 1, voted Constitution. Id., 35-36, 81-105. 6 Article V, (1978), pertinent part: 7 "Sec. 27. No (including prospective candidate) position set forth IV, Section supporter solicit support, direct indirect kind (except individual's own volunteered personal time) non-member."2 8 27 confers upon regulations necessary implement Campaign Contribution Administrative Committee, consisting three "distinguished, impartial" administer cease desist conduct breaches declare disqualified. Its B 9 October 1979, individuals3 Columbia. They claimed, inter alia, "right sue" Title I LMRDA, 101(a)(4), 411(a)(4), prohibit sides moved summary judgment. 507 F.Supp. 623, 625 further invalidate toto, portion "limits meaningful access courts . separated isolated entirety." Ibid. affirmed. agreed However, chose decide violation alone justified injunction restraining enforcement provision, injunction. reasoned statutory goal democracy achieved only if "effective challenges can made often-entrenched leadership." U.S.App.D.C., 197, F.2d, 1122. But possible outsiders. "Even without limitations, face barriers, especially electoral power staff." 196, 1121. even interfered statute, proviso 101(a)(2), responsibilities members. 198, 1123. 11 To buttress analysis, relied heavily understanding jurisprudence. stated places "essentially same limits respect unions." 195, 1120. Citing Buckley v. Valeo, 424 19, 96 612, 634, 46 659 (1976) (per curiam), suggested prevent amassing resources advocacy unconstitutional. By analogy, since campaigns, must II 12 contained "Bill Rights Members Labor Organizations." §§ 411-415. provides: 13 "Freedom Speech Assembly.—Every shall meet members; views, arguments, opinions; meeting, subject organization's pertaining meetings: Provided, That nothing herein construed impair responsibility toward institution refraining performance contractual obligations." 522. 14 individuals 15 outset, address contention case reference law. Respondents claim equivalent Amendment. argue context placed restrictions Thus, substantially restricts persuaded argument. do believe law, coincides 16 legislation evolved into introduced Senate Senator McClellan. Public Welfare reported out bill containing provisions forerunners Titles VI LMRDA. These focused specific aspects affairs: disclosure requirements trusteeships elections. S. 1555, 86th Cong., 1st Sess. (1959), U.S.Code Cong. & Admin.News 1959, p. 2318, NLRB, Legislative History pp. 338-396 (1959) (Leg.Hist.); Finnegan Leu, 456 431, 435-436, 1867, 1870-1871, 239 (1982). McClellan legislators feared did go far enough provide general protection spoke leadership. therefore he described Rights" amendment, forerunner well provisions, designed guarantee equal voting rights, free assembly, sue. 105 Cong.Rec. 6469-6493 Leg.Hist. 1096-1119. 17 hoped "bring reality some freedoms oppression enjoy citizens virtue States." 6472 1098. He stated: "[T]he desire spelled defined bill. Such basic. ought basic person, are, 6478 1104-1105. explained particular, follows: 18 "That [provision] groups, like, visit neighbors discuss affairs, say what think, perhaps done straighten promotion movement, policy believe. all punished doing it, actually happening today." 6477 1104. 19 Other Senators statements. 6483 (Sen. Curtis); 6488 Goldwater); 6489 Mundt); 6490 Dirksen); 6726 Javits); 1109, 1115, 1116, 1238. 20 47-46. 6492 1119. Shortly thereafter, Kuchel offered substitute amendment. added appears preserves remove "the extremes [McClellan] amendment," 6722 1234 Cooper), assure "unduly harass obstruct unionism." 6721 1233 Church). approved 77-14. 6717-6727 1229-1239. then taken House Representatives. bill, identical Senate, quickly approved. H.R. 8400, 628-633. 21 history reveals modeled after Bill Rights, restate principal value—the speak one's mind fear reprisal. there absolutely no indication Rather, Congress' covering refutes proposition. infringed absent compelling governmental interest. Even then, government regulation carefully tailored, needlessly impaired. Brown Hartlage, 45, 53-54, 1523, 1529, 71 732 rules, contrast, 22 determine consider interferes interest part If does, conducting inquiries, find guidance underlie particular. principles helpful, although controlling. look objectives sought achieve, avoid " 'placing great emphasis close construction words.' Wirtz Glass Bottle Blowers, 389 463, 468, 6, 88 643, 646, 705 (1968) (quoting Cox, Internal Affairs Unions Under Reform 58 Mich.L.Rev. 819, 852 (1960)); Hall Cole, 412 17, 93 1943, 1949 36 702 (1973).4 critical partially nevertheless reasonably institution. 23 Applying form analysis here, conclude valid. deserving reducing interference affairs. 24 (1) 25 An examination indicates interests protect democracy. supra, 109-111; S.Rep. 187, Sess., H.R.Rep.No. 741, 760. recognized assured criticize critical, deserves protection, For wield power, directly approval disapproval S.Rep.No. 2-5, 7, 398-401, 403; .No. 1-7, 15-16, 759-765, 773-774.5 26 affected permitted mount weakened. Restrictions reduce number issues discussed, attention devoted each issue, size audience reached. Cf. U.S., 65-66, S.Ct., 657 curiam ) (First expression association "diluted pool money contributions, often essential 'advocacy' truly optimally 'effective' ").6 Appeals, suggest large advantage rely staff Challengers counter rank file sufficient support. seek fact, however, probably very whose earn income make 118-120. Requiring solely will raise Uncontradicted evidence7 discloses 25, 118-119.8 28 addition, undoubtedly advantages incumbency, 13, 631, respondents overstate those advantages. Staff employees forbidden 401(g) 481(g), internal time use funds, facilities, equipment purposes. 110-117; CFR 452.76 choose participate subjected discipline reprisal decision. 107-110, 115-117, 228, 384-385. Indeed, frequently involved Many successful. 108, 201-216. important respect. has using particular issues. is, focus problem. fact serve entrenched ensures never stifled. 30 (2) 31 implicate serves clearly statute. wanted might beholden allow influenced considerations than best remained 210; 61-62, 81-97, 275, 303, 304.9 32 Evidence regarded minimize provided I. On floor, argued "invaded" "infiltrated" but rather seized control 6469-6474 1097-1100. strongest "should come traditional leaders. them assaults capture And 33 "[Infiltration ended] placing ultimate hands rightfully belongs, ruled consent, [and] bring regeneration returned whom serve; left act masters. belong." 1099. 34 true concerned infiltration racketeers: situations "thugs hoodlums" over exploit pecuniary gain. 6471 1097. statements more outsiders, 35 Additional evidence maintain sections drafting VI, guided principle "operate possible." 1684, 85th 2d 4-5 (1958). believed standards imposed legislation, establishing standards, care undermine self-government. Given certain minimum "individual fully competent regulate affairs." example, regulates standards. So conform "to run 471, 648. permit intervention suggests efforts IV our conclusion purpose. 401(g), employer reflects danger employers outcome A seeks consistent goal. 403 483 (authorizing establish rules).10 37 contend, first, absolute few individual many like-minded small which, pooled, election. reasonable. significant percentage receiving mail solicitations signed prominent 128-129, 350-353. 38 contend limiting friends. Again, ban. exception family friends created loophole unenforceable: funnel 32. 53, 59, 651, 59 (Congress constitutionally nonfamily members). 39 Finally, itself, solved Candidates still requirement know possibility cast votes. influence.11 III 40 As alternative sustaining result below, ask hold impermissibly encroaches member's right, guaranteed proceedings, appropriate remedy striking down toto. unlike violates 41 "limit thereof court, proceeding agency." 411(a)(4). view, 42 contains contain most persuasive, Committee12—which given binding interpretations rule—has concerning opinion, holds elections."13 455; 456-458.14 43 expressed concern Elections Manual "does services pay fees accounting performed securing candidates," "[a]ctivities extract gain proceedings." 495. According "activities" steps proceedings themselves, assistance lawsuit brought good faith, 194, explained, cover nonlitigation activities way refer litigation, mailing flyer announcing victory, information learned discovery.15 193-194, 1118-1119.16 44 reverse below remand opinion. 45 ordered. WHITE, Chief BURGER, BRENNAN, BLACKMUN join, dissenting. 47 us passed answered identifying problem solve answer, turn, difficult discover. 48 careful hearings dealing too entrenched, corrupt leaders maintained themselves discouraged challenge means available, violence threats.1 explained: records investigations again rank-and-file dare risk opposition autocratic so, beaten, threatened, property destroyed damaged, forced job—all things happen happened." 1098 (1958) (Leg.Hist.). again, "Members better offer competition. aspire presidency secretaryship, expelled disciplined." 49 solve. stated, end "autocratic belongs masters." 50 What 401(e), him assembly. There question, concedes much, effectively office. Without doubt, aimed protecting speaks "specifically higher within union." 1951, (1973). major effort insure democracy." (1959). chosen instrument curbing abuses "free democratic Usery, 429 305, 309, 97 611, 614, 502 (1977). "entrenched leadership" curbed, among means, "check Hotel Employees, 391 492, 499, 1743, 1748, L.Ed. 763 (1968). "political country." 504, 1750; 614. 51 reasonableness surely judged paradigmatic situation guaranteeing elections: bent maintaining itself fair foul. characteristics led enactment clear section caused congressional response. determined discourage opposition; disposal incumbency facilities Those normally appointed staff, bureaucracy makes run. dependent totally loyal amounts built-in others more. management communication system immediate lists themselves. Obviously, eschew violence, threats, intimidation, mounting endeavor. unscrupulous be, dimensions task facing exceedingly large. help difficulties open American tradition. 52 incredible me issue restriction speak, assemble, stringency doubted. forbids supporters nonmember. family, relatives, well-wishers unless Retired Sr., contribute; neither standing. secured loan non-member standard rate goes further. acceptance "any non-member," except time.2 intends prohibit, behalf running specify: 53 "[W]hen contributed, presumption her supporters, affirmative faith dissuade providing correct effects support." 494.3 54 unable rebut disqualified, fined, suspended, expelled. Draconian How "correct support"? beyond (1976), severely expenditures well. denied exercised rights. 55 illustrates rigor contributing though elder father candidate, charter USWA, years prior retirement, receives pension, terms negotiated officers. 56 cry anticipated wholly inconsistent country. relationship between views. "[W]ithout solicitation, flow likely cease." Village Schaumburg Citizens Better Environment, 444 620, 632, 100 826, 834, 63 (1980). Schneider State, 308 147, 60 146, 84 155 (1939); Cantwell Connecticut, 310 296, 900, 1213 (1940); Virginia Pharmacy Consumer Council, 425 748, 761, 1817, 1825, 346 (1976); Bates State Bar Arizona, 433 350, 363, 2691, 2698, 810 57 Thomas Collins, 323 516, 65 315, 89 430 (1945), barred state requiring soliciting organization. Solicitation deemed intertwined required. conceded "collection funds" regulation, concluded "must applied, manner intrude assembly." 540-541, 327. Specifically regard financing, observed 634: "A amount person group spend necessarily reduces quantity restricting depth exploration, virtually communicating ideas today's mass society requires expenditure money. distribution humblest handbill leaflet entails printing, paper, circulation costs. Speeches rallies necessitate hiring hall publicizing event." (Footnote omitted.) 'contribution severe dialogue prevented committees advocacy.' 1122 quoting 21, 636. 61 saying 1.3 million spread throughout Canada war chest chance succeeding. Attempting unseat undertaking. noted 311, 615, permanent party one-party hired controlled down. full-time collectively, direction officer, constitute sole machine preservation offices power." J. Edelstein M. Warner, Comparative Democracy (1979). positions, appoints 1,500 field salaries expenses personnel totalled $37 million. 141. 62 circumstances, role challenger difficult. one keeps give iron grip willingness employ both unrealistic confine garnered Surely, limitation. Clyde Summers, field, Sadlowski: "Opposition customarily instance pockets loans gifts get sympathetic beginning campaigning appear viable begin inevitably small. Seldom really almost match incumbents." 156. 64 "In my effect gravely damage destroy international unions. "If groups getting outside, can, situations, hopes campaign." 160.4 66 addressing forbade went majority emphasizes asserts challenged true, "impositions perpetrated working people thugs muscled positions masquerade people. ." 6470 members," 1099, 67 Yet somehow finds absolute, unbending, no-contribution anticipated. This, spite availability satisfy concerns controlling financed. together ceiling corruption trampling sums honor purposes legislation: empowering contradicts values thwarts 68 respectfully dissent. divided districts, Directors. Directors district. 7. President, Secretary, Treasurer, Vice President (Administration), (Human Affairs), Districts, National Canada. plaintiffs included Samargia, potential office; retired campaigned son 1977; Leonard Rubenstein, campaign; James Miller, donated campaign. Samargia alleged 1981 Miller wish contribute future 5-6, 16. Each here. describes freely," states "reasonable institution," narrowly. already indicated, seems flexible interpretation. infra, 112-113. reason. indicated play determination reasonableness. 6719 Kuchel), 1231; Javits), 110. (1973) ("Title specifically union"). 470, 648, (Title elections). cases, solicitation advocacy. See, e.g., Against Rent Control Berkeley, 290, 434, 492 (1981); (1980); Bank Boston Bellotti, 435 765, 98 1407, (1978). cases analogous, however. potentially infringe contributors candidates. 24-25, 637 ). Here, here cross-motions reach opposite reached Appeals—that making decision, assumed true. uncontradicted. numerous affidavits. intend deny existence advantage. think observe uncontradicted demonstrating mounted nonincumbents—and partial. suggesting adverse nonincumbent relatively district testified excess $30,000 early months 121-123, 217-218. opposing evidence. allege high insulated claims. processes, favored overwhelming 105. file. 301-302. "No greater frequency different bylaws, otherwise [Title IV]." 534. argues IV. interpreted I, precisely satisfies 403, underinclusive, explains unrebutted affidavit, considered little influencing enforcing burden. 30-32. former Secretary W. Willard Wirtz; David Lewis, professor Carleton University; Eric Springer, Compliance Equal Employment Opportunity Commission Chairman Human Relations Pittsburgh, Pa. 37-38. "confined lawyers. recognizes ruling response inquiry misconstrued distorted attempt rationalize 'legal services.' deal questions whenever arise case-by-case basis." 458. bona fide secure adjudication but, rather, motivated urged deter lawsuits. 245-246. arguable unmistakable deterring misjudge motives sanctions. speculative deters justify toto time. refused construction. supported Committee's accompanying text. affirmed nonmembers' constitutional association. involve action. Weber, 443 193, 200, 99 2721, 2726, 480 summarized findings: "Prior Select ferreted widespread corruption, dictatorship racketeering Bakery Confectionary [sic] Workers' 'railroaded changes vestigial pretenses democracy.' Report [S.Rep.No. 1417, Sess.] 129 [1958]. Dave Beck, General Brotherhood Teamsters 'shamefully enriched himself [the] expense [of members] capitulated forces promoted racketeers hoodlums.' Id. 84. likewise Teamster officials joining take illegal gambling operations 'underworld combine,' id. 38-39, Textile Workers avariciously misappropriating 159. 'Democracy [was] nonexistent' Operating Engineers ruthlessly dominated 'violence, intimidation dictatorial practices.' 437. Practices 'advanced cause dictatorship.' 444. cited instances 462-page Report." 199, 1124 (1981) (footnote omitted). 'Financial Support' object foreseeable candidate. Financial includes, to: "1. Contributions money, securities, material thing value; "2. Payments subscription fund raising events (e.g. raffles, dinners, beer cocktail parties forth); "3. Discounts price cost goods services, extent commercially discounts available customers supplier; "4. Extensions credit, loans, forms finance, obtained regular course commercial lending conditions regularly institutions; "5. payment building space, supplies, advertisements media." 492. explain "[e]xamples cash turn candidate; donation travel expenses, printing clerical, secretarial, professional used conjunction service materials aid volunteer's paid staff; procuring discounts." 494. continues: obligation contact immediately contributor, reject return contribution, insist discontinued, whatever own, directed eliminate Full reports promptly." following relevant presented Mr. 152-160: Incumbents crucial advantages: "First, important, representatives agents back-bone incumbents' owe jobs orders dismissed Second, newspaper. independent press Third, ready members." names, addresses telephone numbers "The equality administration includes secretary treasurer Fourth, expenses." "These considers [T]he representatives. short, money," while started. incumbents, single source quite expect obtain jobs. marked testimonial dinners honor. Opposition successfully effort. "Union candidates' common practice. Up until last years, one, emphasize seriously anything inappropriate non-members. constitutions Only void future."

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