Document: 360 U.S. 72 79 S.Ct. 1040 3 L.Ed.2d 1090 Willard UPHAUS, Appellant,v.Louis C. WYMAN, Attorney General, State of New Hampshire. No. 34. Argued Nov. 17, 18, 1958. Decided June 8, 1959. Rehearing Denied Oct. 12, See 80 40. Messrs. Royal W. France and Leonard B. Boudin, York City, for appellant. Mr. Louis Wyman, Manchester, N.H., appellee. Justice CLARK delivered the opinion Court. 1 This case is here again on appeal from a judgment civil contempt entered against appellant by Merrimack County Court affirmed Supreme It arises out appellant's refusal to produce certain documents before Hamphir e legislative investigating committee which was authorized directed determine, inter alia, whether there were subversive persons or organizations present in Upon first Hampshire court, 100 N.H. 436, 130 A.2d 278, we vacated judgment, 355 16, 78 57, 2 22, remanded it consideration light Sweezy v. Hampshire, 1957, 354 234, 77 1203, 1311. That court reaffirmed its former decision, 101 139, 136 221, deeming not control issues instant case. For reasons will appear, agree with As Sweezy, General who had been constituted one-man Joint Resolution Legislature,1 conducting probe activities State. In course his investigation called appellant, Executive Director World Fellowship, Inc., voluntary corporation organized under laws maintaining summer camp Appellant testified concerning own activities, but refused comply two subpoenas duces tecum production corporate records years 1954 1955. The information sought consisted of: (1) list names all camp's nonprofessional employees those seasons; (2) correspondence carried came as speakers; (3) attended during same periods time. Met refusal, accordance state procedure, N.H.Rev.Stat.Ann., c. 491, §§ 19, 20, petitioned call require compliance subpoenas. information. He claimed that Smith Act,2 construed this Com. Pennsylvania Nelson, 1956, 350 497, 76 477, L.Ed. 640, Congress so completely occupied field States without power investigate area. Additionally, he contended Due Process Clause precluded enforcement subpoenas, first, because resolution operate vague and, second, relevant inquiry. Finally, argued would violate rights free speech association. 4 sustained objection employees. took no ruling, us. Appellant's objections guests overruled, ordered them. adjudged committed jail until should have complied order. On demand thereto, trial made ruling transferred question court's action regard guest list. Concerning requested correspondence, order, remand 'may exercise discretion respect entry an order enforce command subpoena correspondence.' at page 448, 287. No having yet effected, has acted upon phase case, final requiring letters. We therefore do treat question. 28 U.S.C. § 1257, U.S.C.A. 1257. Radio Station WOW Johnson, 1945, 326 120, 123—124, 65 1475, 1477—1478, 89 2092. now pass sole us, namely, validity seasons addition arguments urges 'indefinite sentence' imposed him constitutes such cruel unusual punishment be denial due process. 5 vigorously contends Subversive Activities Act 19513 creating superseded Act, amended.4 support position cites supra. argument involved prosecution sedition law, held 'Congress intended occupy sedition.' (350 505, 481.) rule contended, embrace investigations pursuant effort Legislature inform itself presence subversives within possibly enact field. sweeps too broad. Nelson said 'precise holding * prohibits knowing advocacy overthrow Government United force violence, supersedes enforceability Sedition proscribes conduct.' (Italics supplied.) 499, 478, 640. basis thus rejects notion stripped right protect themselves. All proscribed race between federal prosecutors courthouse door. clear could proceed prosecutions itself; can legitimately area follows fortiori. supra, where contention identical denied sub silentio. Nor did our hold activity protection either actual threatened 'sabotage attempted violence kinds.' footnote 8 pointed full deal internal disturbances. Thus registration Statutes, quo warranto proceedings corporations, instigation riots host other subjects directly affecting security furnish grist State's mill. Moreover, papers state-chartered inquiry determine violative policy is, course, touched today stands unimpaired, opinion. 6 capsuled into single facts here, compelling Fourteenth Amendment. Let us away some underbrush necessarily surrounding setting. 7 First, academic political freedoms discussed are pr esent degree, since Fellowship neither university nor party. Next, questions authority act Dreyer People Illinois, 1902, 187 71, 84, 23 28, 32, 47 79, accept controlling Court's conclusion '(t)he history makes beyond reasonable doubt (the Legislature) does desire answer these questions.' 140, pages 221—222. assume, deciding, Uphaus sufficient standing assert any whose identity seeks determine. National Association Advancement Colored Alabama, 1958, 357 449, 1163, 1488. interest their associational privacy asserted, decision public interests overbalance conflicting private ones. Whether 'justification' turns 'substantiality' Hampshire's obtaining when weighed individual asserts. What State? commissioned5 if persons6 obvious starting point learn what requests relate Legislature's interest, i.e., State, announced resolution. burdensome; time, only few months each involved; place, conducted Corporation; lists names, included about 300 year. 9 valid reason believe speakers might meaning Act. found Uphaus' contrary 'unrelated reality.' Although evidence nexus may conclusive, sufficiently General's action. definition born determination Communist movement posed serious threat record reveals participated 'Communist front' '(n)ot less than nineteen invited talk members Party connections affiliations one more cited controlled list.' 442, 283. While designed limited purpose determining fitness employment, Wieman Updegraff, 1952, 344 183, 73 215, 97 216, guilt association remains thoroughly discredited doctrine, investigation—not criminal here. Certainly investigatory need constricted subversion gathered justify institution proceedings. 10 disclosed furnished adequate justification review. persons, statutorily defined view toward Party, was, therefore, undertaken self-preservation, 'the ultimate value society,' Dennis States, 1951, 341 494, 509, 71 857, 867, 95 1137. governmental outweighs which, however real circumstances, cf. tenuous best. operating one, furnishing both board lodging applying therefor. them, law requires Maintain register, open inspection sheriffs police officers.7 'circulated throughout states Generals cross-indexed files, name mentioned kind proceeding immediately becomes suspect, even place residence.' Record, p. 7. however, report requirements recognize, result exposing fact therein named Fellowship. But long must parent, exposure—in sense disclosure—is inescapable incident And self-preservation subordinate who, least extent statute, inception they wish keep private. conclude 'pressed, instance, come fatal collision overriding' constitutionally protected represent. Cantwell Connecticut, 1940, 310 296, 307, 60 900, 905, 84 1213. 11 reach sentence. orders confined produces himself admitted although hand, failed bring them that, further, intention producing vew unjustified think proper one. Green 356 165, 197, 632, 650, 672 (dissenting opinion): 12 'Before going perhaps emphasized concerned courts impose conditional imprisonment person obey Such coercion, defendant carries keys freedom willingness directive, essentially remedy benefit parties quite properly exercised centuries secure judicial decrees.' 13 concluded committee's ligitimate one; valid. impugn good faith assertion believed rights. three disagreed interpreting If chooses abide adjudication courts, face jail. If, continues disobey, find constitutional traditional compliance. 14 Affirmed. 15 BRENNAN, whom THE CHIEF JUSTICE, BLACK DOUGLAS join, dissenting. 16 holds assembly represent subordinated because, applied demands him, rationally connected discernible purpose. With my Brothers' views, I showing requisite record. Exposure purely sake exposure subordinating Watkins 178, 187, 200, 1173, 1179, 1185, 1273; 1311; N.A.A.C.P. record, think, fails reveal rights, affirmatively shows objective impermissible exposure's sake. dissent 17 fully appreciate delicacy task questioning workings investigation. A primacy function field, broad scope achieve ends, constrain judiciary indulge every intendment favor However, frame government also imposes another duty judiciary, protecting improper invasion, national legislatures. supra; Where invasion discloses, entitled reversal. 18 Judicial recent development law. often examined Federal Constitution statutes executive imposing sanctions conduct alleged guarantees assembly. role state-imposed imprisonment, fines prohibitory injunctions limitations First Amendments canvassed fully, beginning early Gitlow York, 268 652, 45 625, 69 1138; Near Minnesota, 283 697, 51 75 1357. action, deprivation employment admission profession, recognized being subject restraints Constitution. See, e.g., 216; Schware Board Bar Examiners N.M., 353 232, 752, 796. 19 recently required begin exploration impact freedoms.1 Here introduced weightly investigation, aid power, see adjudicate disputes, vital functioning governments collides guaranteed freedoms, inevitable limitations, delicate always difficult accommodation minimum sacrifice hard ultimately 20 logical adverse effects unwanted publicity exposure—as concomitants recognized, invading offending inhibitions actions. era mass communications opinion, international tensions domestic anxiety, group identification unpopular dissident views fraught consequences inevitably inhibit seriously expression make free. Cf. Speiser Randall, 513, 526, 1332, 1342, 1460. gave truism Alabama: 'This relationship associate one's associations. Inviolability many circumstances indispensable preservation association, particularly espouses beliefs.' 462, 1171, 21 Of considerations entering weighing different problem evaluating regulatory statute areas. appropriate appears rational connection lawmaking process, processes adjudication, essential functions. stage example, specific means chosen implement almost precisely start inquiry, allowance accordingly made. Also, evaluated judicially sanction, taken account differences state-inflicted pains penalties. True line universal subordination asserted defintion; reghtly turned back alternative interests, define best can. nature calling case-by-case principles various permutations conflict appear. guide lines marked courts. giving substantive content, legally enforced, Clause, Court.' 267, 1220, 1311 (concurring opinion). demonstrably clearly outside wide limits conceded though exposure. demonstration turn detailed examination requires. 22 Uphaus, runs discussion program stay. Various primarily political, economic social matters. appellee reports third movements, followed line,' signed amnesty petitions amicus curiae briefs, similar sort viewed hostilely suspiciously Americans. strain pacifism through thinking, apparently seek drawn therefrom inference harm institutions; conjectures, officially, so-called peace crusade achieving quicker cheaper occupation Soviet Union Communism.' There violates punished went camp. assemblage oriented citizens. expounded obviously minority views. face, purposes give incursion powers government. 249—251, 1211—1212. 1953 Court, N.H.Laws 1953, extended enactment 1955, N.H.Laws, 197. (appellee here) 'full complete investigation' 'violations 1951'2 'subversive presently located state.' Under (who ordinarily chief law-enforcement official State) committee. individuals dissolution violation 1951 seem discarded, passage Resolution, sanction provision providing confidentil t reatment material reflecting individuals' loyalty inapplicable conduct, sweeping terms details fruits day 1955 session; extension 1957 session.3 Efforts obtain disclosures relative controversy began period covered review occurred extension. 24 comprehensive volume January 5, extremely relates case; indication fact, stated assigned General. renewed characterizing divided numerous sections. series general introductory essays authors 'Pertinent Aspects Communism Today.' Essays discuss 'The Nature Russian Threat'; Role Front Organizations'; 'Some Important Marxism Marxism-Leninism'; Test Organization'; 'Communism s. Religion.' descriptive matter follows. hardly needs focus attention whole 'Communism' regardless later named. Next comes section titled Influence Field Education' replete biographical individuals; Labor'; generically captioned 'Organizations,' organization, others associated presented. Last 'Individuals' sketches 25 volume, put mildly, showed consciousness practical effect change reported groups charged 'subversive' 'substantially Communist-influenced.' Virtually entire 'Letter Transmittal' addressed discussing used disclosing individuals. drew significant distinction disclose: 'Persons past membership affiliation substantially Communist-influenced provided assistance felt exist listing cooperative witnesses categories.' 'Foreword' declared '(t)his deals controversial subject,' concentrating contained extensive addresses, miscellaneous associations attributed several disclaimers. considered indictment individual, suitably pointing grand jury formal indictment. inquisition. witness ever, treated courteously.' stressed reporting herein NOT (nor reader) constitute charge witness.' observed 'facts *. Conclusions opprobrium while privilege personal recommended encouraged phraseology report.' well contain innocent people, implied permissible, believed, interpreted goes far felonious intention. ignorant membership, *.' 26 certainly suggested quoted parts foreword. expressed person' statute. disclose indictments person. Its recommendations legislation evidentiary trials 'subversive,' cannot really fruit copied then Congress,4 law's standard guilt, immunity measure calculated facilitate future investigations. report, once itro ductory done with, contains assorted descriptions persons. most cases, caveat understood indicating say least, well-taken, ascribed Many summaries strike discerning analyst very mild stuff indeed. positive diligence demonstrated efforts add render Scotch verdict 'not proven' vivid example relating group, After pages, memberships, associations, advocacies, signings letters part 'identified' generally Others influenced,' 'front,' 'officially cited' groups. Some deportations, criticized Bureau Investigation, given medical treatment officials, like. Finally addresses remainder speakers: 'Information easily available office indicate causes people. burden work staff House Committee Un-American thousands received over country, possible check thoroughly. Inasmuch agency hope files guarantee following backgrounds. Therefore, necessary identities explanation based able assemble, appear time usual contingent 'dupes' unsuspecting surround venture instigated propelled 'perennials' articulate apologists Communists chicanery, certain. include merely guests. *' 36 followed.5 27 emphasis near-guilt, questionable behavior. flavor tone, disclaimers, help stimulate readers attach 'badge infamy,' 190—191, 218, it. authorizing address ascertaining persons' indicates making classifiable amorphous category, so, presenting result, public, document, Legislature, generally. main thrust behavior—violation presence, persons,' objects collection data, data peripheral reference it, explicit detail places, set doing response stated, 'A considerable amount absolutely separate wheat chaff formula involves spectrum close conduct. Only o subversive; intentionally knowingly part.' One feel, reading sentence—'A conduct'—is overstatement, citation innocence precise coloration given. still empowered conviction offenders proceedings, normal afforded defendants related expression, Constitution, apply. book relation possibility orthodox prosecution, seems acknowledge this. ancillary prosecution—to procedure. been, definite undertaken, narrowed context 464—465, 1172—1173. process parcel examining concrete alleged. issue look further ascertain end subordinated. receiving years. refusals place. already published Now wanted speakers. unlikely damning advocate (presumably Hampshire) violence. sinister behind pacifism—'the list, nonavailability commented above,6 desired. counsel, hearing rise finding review, protested want allow expose wished camp—the cooks dishwashers objected hired local labor pool trip exposure, become last inquiries allowed failure respond contemptuous. 29 First. experience difficulty standng plead withhold technically belong corporation, rather himself. permitted pleading purposes. officer will, assembled together corporation's premises. distinguish Alabama ground miss point. themselves, safeguarded never meaningfully, claim themselves 'result nullification moment assertion.' Id., 459, 1170, likely anyone deny bookseller (including bookseller) decline purchased books. Rumely, 345 41, 543, 551, 770 opinion), below 90 U.S.App.D.C. 382, 197 F.2d 166, 172.7 30 Second. compulsory recollect 31 'Effective points view, ones, undeniably enhanced remarking De Jonge Oregon, 299 353, 364, 57 255, 259, 81 278; Thomas Collins, 323 516, 530, 315, 322, 430. debate engage advancement beliefs ideas inseparable aspect 'liberty' assured Amendment embraces speech. 666, 629, Palko 302 319, 324, 58 149, 151, 82 288; 303, 1213; Staub City Baxley, 313, 321, 277, 281, 302. immaterial advanced pertain economic, religious cultural matters, curtailing closest scrutiny.' 460—461, 32 carrying 44, 545, strive 'that 'blind' Chief Taft admonished famous passage, '(a)ll understand." citizen's oe, take practical, realistic approach 33 Most unavoidably involve another. core, deliberately purposefully passed sanctions. readily susceptible applications enter danger zone. Yates 298, 1064, 1077, 1356. insofar amounted behavior States. problems subtle nature. suggest why pattern application cast restricted existing implementation choice. choice backed thought somehow offenses or, uncertain penumbra And, 248, 1210, 1311: '(T)he rooting (was) absence guilty knowledge affected.' much widely remotely 34 existence undoubtedly legislation. But, descending peak abstraction ask question: ends here? bills attainder legitimate end, naturally (though that) actually fulfilled overwhelming conduct? 35 revealed overwhelmingly predominantly roving, self-contained behavior, named, observe facts.' upheld true. 99 33, 38, 105 756, 762, 763, said: 'No sound denying effectiveness though, inquire particular violated act. When discovery specific, collateral object inquiry.' this, maintenance separation not, itself, concern 114, Crowell Benson, 285 52 285, 295, 598. standards relevance permissible shown, below, Wyman 445, bare mean test Nor, weight, conclusive. recognizes theory today, evaluate related. respect, observations bear little after decision. discloses law-evaluating submerged entirely behavior—in sort, disclaimed, process.8 trial, organ aimed upheld, meet common country established modification Kilbourn Thompson, 103 168, 195, 377. substantively proper, fair resulting binding, determination. supposed practiced framework enough say, fear to, taking shape unknown. Investigation 1185. Since fulfills responsibility charged, assembly, admit indefinitely roving matter, cumulative Even abusive totally publication, test. At continued cumulative, behvio r classic 'a fruitless affairs individuals.' 195. satisfactory product renewal measures them; requesting renewing significantly substitute passed, 'would continuing just However content rely perfectly plain regarded faint questionably broadened, report. reports, eventuate, considered. Perhaps rejected doubts constitutionality—which would, underline am making. airy speculation, how surface appearance simple wide-ranging campaign, presents concedes, shown have. 37 admittedly competence. ascertainment foreign unlawfully Alabama's borders, qualified business manner express purpose, corporation. carefully curbing disclosure entail. analyzed concluding connection, impermissible. situation extreme; violations, suspicions raising statute.9 anomalous says vaguer laxly presumption interest. effect, expressions lead constitutional, defensible vagueness issues. argue somewhere, leisl ative classified 'legislative,' existence. announced, deference, meaning, up plausible tested. Then individual's elucidate interest; positively demonstrated, me, courts' interpretation Resolution's re-enactment, interested lieu nothing definable else. 38 underlines Fellowship's speaker publication fashion alluded. published. depth? Outside afford endeavored show except demonstrated. damaging obvious. per se, alone apparent, infirmity down 39 describes balancing interests. indicated operated, balanced. surmised, patent inquired simply get hands substantial minutiae legislation, laws, concerned. nqu iry contours known remote speculative legislation—albeit limitations. practice vehicle publishing verdict. asked carry fact-finding all, amass initial remote. McGrain Daugherty, 273 135, 176—180, 329—330, 580.10 narrow problem. areas tends repressive effect. compel disclosure. asked, context, statement 198, mere semblance Bill Rights.' counterbalance reverse 40 BLACK, decide deprived Amendments, developed Adler Education 342 485, 508, 380, 392, 96 517 opinion); Beauharnais 343 250, 284, 725, 736, 744, 919 opinions). join BRENNAN'S incarceration Art. I, provides shall bill attainder.' Lovett, 328 315—318, 66 1073, 1078—1080, 1252, cases cited; Anti-Fascist Refugee McGrath, 123, 142—149, 624, 633—636, 817 'Resolved Senate Representatives convened: 'That attorney hereby violations 307. 2385 (1956), 2385. 588, 1—16. Note 2, 1, Section 1—16, defines person': "Subversive commits, attempts commit, aids commission, advocates, abets, advises teaches, attempt commission overthrow, destroy alter, assist destruction alteration of, form subdivision force, violence; member organization organization.' 1927, Hampshire: 'All hotel keepers keeping houses, tourist camps, cabins card system cause sign legal commonly known. Said times sheriff deputies officer. 3. represents purview recorded leading earlier congressional investigate, explore contexts 377; 580. latter ibid., 175—176, 329, 193 Laws 1951. preamble, definitions, including definitions organization' 'foreign organization'; person,' provided, was: 'any breadth definition, 246—247, 1209—1210. crime sedition. 'membership clause' omitted 'clear danger' advocacy, abetting, advising teaching. Assisting formation managing contributing support, destroying papers, hiding funds, 'knowing offense, punishable twenty years' fine $20,000, both. Those remain dates, organization,' 3, liable five $5,000 fine, disqualifies convicted erects disqualification persons.' None Control 1954, 886, 68 Stat. 776, 50 814, 814. convey reproduction write-ups sections illustrative. two-page item Matter (X).' begins: 'In opposition circles. Charges made, usually accompanying scintilla evidence, 'hysteria' rules teachers afraid teach truth' 'witch hunters.' repeated ad infinitum 'Daily Worker.' arise rumors circulated teacher. proceeds: teacher (X), (Y city) school system. (X) office, testify. X appeared 'voluntarily' 'ull y' been. prepared results effectuate current probe. resigned secured state. Had decided submit resignation, taken, facilities inquiring moot problems. noting none informants anything X, concludes 'matter': 'It factions oppose se serve insuring unfounded rumor gossip.' left conjecture subscribe conclusion. An 11-page write-up story Y, Police municipality. Y 1936 till 1944, withdrew then, currently something par Hitler. Y's secret then. Pages inconclusive statements counterstatements follow, 'confrontation' Selectmen town Chief. 'situations (Y) finally 'Conclusion': 'Due conspiratorial, clandestine, underground inability testify above conflicts testimony resolved presented comment. biography shorter this; street address, forth Daily Worker 'identification' date 'front' invoked refuge self-incrimination questioned 1052, apparently, draws house conclusions lack substantiality guests' nondisclosure. cover desired rest reliance. arose. true distribute sees fit, concerned, (regardless exercises functions) tests apply adjudicatory powers. Bi-Metallic Investment Co. Equalization, 239 441, 141, 372. William T. Gossett, Vice-President Counsel Ford Motor Company Annual Brotherhood Dinner, Detroit, Michigan, November 'We urge law-makers scrupulous exactness, investigative frustrated feeling people—suspected subversives, gangsters racketeers, example—have flaunted society impunity, tempting pillory prolonged hearsay testimony, intemperate invective forms abuse. try unable convict instead safeguards tyranny arbitrary power.' Daugherty strong element wrongdoing, sure. matter—control regulation structure department—was significantly, discussion, office; inhibitory basic presents. note basically, distribution among branches Government.

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