Document: 444 U.S. 348 100 S.Ct. 594 62 L.Ed.2d 540 Harold R. BROWN, Secretary of Defense, et al., Petitioners,v.Albert Edward GLINES. No. 78-1006. Argued Nov. 6, 1979. Decided Jan. 21, 1980. Syllabus Air Force regulations require members that service to obtain approval from their commanders before circulating petitions on bases. Respondent Reserve officer was removed active duty for distributing an base Members Congress and the which complained about grooming standards, without having obtained commander as required by regulations. then brought suit in District Court challenging validity That court granted summary judgment respondent, declaring facially invalid, Appeals affirmed. Held: The are not invalid face. Pp. 353-361. (a) Such do violate First Amendment. Greer v. Spock, 424 828, 96 1211, 47 505. They protect a substantial Government interest unrelated suppression free expression—the maintaining respect discipline so vital military effectiveness restrict speech no more than is reasonably necessary such interest. Since charged with morale, discipline, readiness, he must have authority over distribution materials could affect adversely these essential attributes effective force. 353-358. (b) Nor 10 U.S.C. § 1034, proscribes unwarranted restrictions serviceman's right communicate Member Congress. As 1034's legislative history makes clear, enacted statute ensure individual member Armed Services write his elected representatives sending communication through official channels, circulation collective within base. Permitting serviceman submit petition directly any serves purpose unnecessarily endangering commander's ability preserve morale good order among troops. 358-361. 586 F.2d 675, reversed. Kent L. Jones, petitioners, pro hac vice, special leave Court. David M. Cobin, respondent. Mr. Justice POWELL delivered opinion 1 This case involves challenges United States first question whether second prohibiting unauthorized violates 2 * recognize personnel other public officials. Reg. 30-1(9) (1971). regulations, however, prohibit "any person facility" [Air Force] . uniform or foreign country" soliciting signatures obtaining authorization appropriate commander. Ibid.1 also provide "[n]o will distribute post printed written material installation permission ." 35-15(3)(a)(1) (1970). can deny only if determines would result "a clear danger loyalty, Forces, interference accomplishment mission. Id., 35-15(3)(a)(2).2 3 Albert Glines captain Reserves. While at Travis Base California, drafted several Defense complaining Force's standards.3 Aware needed command solicit base, circulated outside During routine training flight Anderson Guam, gave sergeant seeking gathered eight authorities halted distribution. Glines' promptly him duty, determined had failed meet professional standards expected officer, reassigned standby reserves. Northern California claiming requiring prior violated Amendment 1034.4 motion declared invalid. Wade, 401 F.Supp. 127 (1975).5 4 Ninth Circuit affirmed finding facial invalidity. 675 (1978).6 Following its decision earlier involving Congress, 1034.7 prohibits restricting "unless unlawful regulation security States." against petitioning did satisfy statutory standard, concluded, because shown restraints servicemen Guam were national security. F.2d, 679. 1034 cover next considered acknowledged requirements justify otherwise impermissible speech. It held, unconstitutionally overbroad they might allow suppress "virtually all controversial material." 681. restrictions, "exceed anything government's interests." Ibid. We certiorari, 440 957, 99 1496, 59 769 (1979), we now reverse. II 5 In 840, 1218, 505 (1976), STEWART wrote "nothing Constitution disables acting avert what perceives be troops under command." case, civilians who wished political literature challenged Army substantially identical issue. See id., 831, n. 2, S.Ct., 1214, 2. claimed unconstitutional restraint speech, disagreed. recognized may prevent threat readiness 837-839, 1217-1218. therefore sustained regulation. 840,8 1218. For same reasons, uphold regulations.9 6 These like expression. Procunier Martinez, 416 396, 413, 94 1800, 1811, 40 224 (1974). is, "by necessity, specialized society separate civilian society." Parker Levy, 417 733, 743, 2547, 2555, 41 439 Military ready perform whenever occasion arises. To always capable performing mission reliably, services "must insist upon counterpart life." Schlesinger Councilman, 420 738, 757, 95 1300, 1313, 43 591 (1975); see Department Rose, 425 352, 367-368, 1592, 1602, 48 11 (1976). 7 " 'Speech protected civil population undermine response command.' supra, U.S., 759, 2563, quoting Priest, 21 U.S.C.M.A. 564, 570, 45 C.M.R. 338, 344 (1972). Thus, while entitled protections Amendment, "the different character community requires application those protections." 758, 2563. rights men yield somewhat 'to certain overriding demands .' 744, 2556, Burns Wilson, 346 137, 140, 73 1045, 1047, 97 L.Ed. 1508 (1953) (plurality opinion).10 Speech likely interfere prerequisites excluded 1218; 841, 1219 (BURGER, C. J., concurring); 848, 1222 (POWELL, concurring). 8 Like upheld governmental supra. Both implement policy set forth (DOD) Directive 1325.6 (1969).11 directive advises servicemen's "right expression maximum extent possible, consistent security." ¶ II. both interfering posing morale. 35-15(3)(a)(2) (1970); 210-10, 5-5(c) DOD Dir. 1325.6, III(A)(1) (1969). Indeed, specifically halting merely criticize policies. 35-15(3)(a)(4) III(A)(3) Under whatever magazines newspapers regular outlets exchange newsstands. (1969).12 "[d]istribution publications mail. prevents notify superiors decision. 5-5(d) Spock held limited 9 established secure 840,13 Without opportunity review dispersed throughout possible disruptions force.14 "[T]he accuracy effect superior's depends critically specific customary reliability [his] subordinates, just instinctive obedience subordinates unquestioned superior." 368, 1602. Because obey ordinarily go unquestioned, this long ago possess discretion internal discipline. See, e. g., (1974); (1953); Orloff Willoughby, 345 83, 534, 842 re Grimley, 137 147, 54, 34 636 (1890). found constitutional infirmity determine particular pose troops.15 issue here Spock. conclude III novel bars says armed force communicating unless (Emphasis added.) contends law protects well forwarding communications. find contention unpersuasive. Section introduced floor amendment Universal Training Service Act 1951 problem. debating Act, Congressman Byrnes Wisconsin learned young constituent hardship discharge Navy "had been told commanding direct prohibited [that] it make subject court-martial." Cong.Rec. 3776 (1951). When made inquiry imposing restriction, informed letter naval affects Naval Establishment [to] sent channels." Ibid.16 proposed pending legislation outlaw requirement. 12 Byrnes' "to permit man inducted sit down take pencil paper Senator." Ibid.17 entire measure focuses providing avenue grievances. Chairman Committee succinctly summarized understanding. amendment, said, intended let every privilege writing Senator does deal some secret matter." 3877. channels.18 13 accord flexibility dealing matters Middendorf Henry, 25, 37-40, 43, 1281, 1288-1290, 1291, 556 (1976); 49-51, 1294-1295 756, 2561; 93-94, 539-540.19 construing touches matters, therefore, courts careful "circumscribe never Congress." Huff Navy, 188 U.S.App.D.C. 26, 35, 575 907, 916 (1978) (TAMM, concurring part dissenting part), rev'd, 453, 606, 607. unrestricted imperil assume risk indication contemplated result.20 decide IV 14 neither nor hold Accordingly, 15 Reversed. 16 MARSHALL took consideration case. 17 BRENNAN, dissenting. 18 I join my Brother STEWART's dissent grounds Nos. 78-599, 607 78-1006, 348, 594, 540. Court, express view questions presented. believe Amendment; accordingly, them unconstitutional, affirm judgments two Courts Appeals. 19 Two sets challenged. Respondents (No. 607) attack Marine Corps officers origination, distribution, ships, aircraft, installations, "anywhere country." Fleet Pacific Order 5370.3 540) parallel posting nonofficial signature.1 Regs. (1971) 35-15(3)(a) authorize withholding "clear danger" "[m]aterially interfere" duties.2 explicitly declare, solely ground critical policies officials." 35-15(3)(a)(4). added.)3 20 contend impermissibly petition. finds solid support doctrine explicated variety settings decisions plainly establish essentially discretionary regime censorship arbitrarily deprives respondents precious communicative rights. indisputably activity. Petitioning bundle related rights: ideas, see, Street New York, 394 576, 593, 89 1354, 1366, 22 572 (1969); Martin City Struthers, 319 141, 143, 63 862, 863, 87 1313 (1943), exposed ideas expressed others, Stanley Georgia, 557, 1243, 1247, 542 Lamont Postmaster General, 381 301, 85 1493, 398 (1965); 308, 1497 (BRENNAN, government, Edwards South Carolina, 372 229, 235, 83 680, 683, 697 (1963); cf. Hague CIO, 307 496, 513, 954, 963, 1423 (1939) (Roberts, J.), associate others opinion, Buckley Valeo, 1, 15, 612, 632, 46 659 Healy James, 408 169, 181, 92 2338, 2346, 33 266 (1972); NAACP Alabama, 357 449, 460, 78 1163, 1170, 1488 (1958).4 especially suited exercise vehicle communication; classic means affiliation opinions; peaceful yet method amplifying views signers. traditionally favored participation. Cruikshank, 542, 552-553, 23 588 (1876); J. Story, Commentaries 619-620 (Cooley ed., 1873); White Nicholls, How. 266, 289, (1845). officials has expressly secured Amendment.5 Bridges 314 252, 277, 190, 201, 86 192 (1941). shield breached least three ways us. First. By mandating subjected approval, impose restraint.6 865, 1230, (1976) dissenting); Southeastern Promotions, Ltd. Conrad, 546, 1239, 448 Times Film Corp. Chicago, 365 45-46, 81 391, 392-393, 403 (1961). Although bar absolute, Nebraska Press Assn. Stuart, 427 539, 590, 2791, 2817, 49 683 judgment), repeatedly emphasized justified most compelling interests, 558-559, 2802; York Co. States, 713, 714, 91 2140, 2141, 29 822 (per curiam opinion); Organization Better Austin Keefe, 402 415, 419, 1575, 1577, (1971); Bantam Books, Inc. Sullivan, 58, 70, 631, 639, 584 Near Minnesota ex rel. Olson, 283 697, 715-716, 51 625, 630-631, 75 1357 (1931). Thus far, averting virtually prospect imminent, severe injury Nation time war generally sufficiently weighty constitutionally speech.7 Times, 726 -727, 2147-2148 730, 2149 (STEWART, instant reasons far less urgent serious, peril citizens. maintenance efficiency undeniably important, but always, situation, regarded host interests insufficient warrant censorship. supra; Tinker Des Moines School District, 393 503, 731 Moreover, terms amorphous "discipline" "morale" invite latitudinous interpretation intolerably disadvantages 415-416, 1812, very cases illustrate, perceived often correlate officer's personal biases.8 infra, 615-616. 24 Second. command-approval procedure implementing seriously flawed. Time again, underscored principle hedged procedures guarantee infringement eliminate play epitomizes arbitrary 558-562, 1246-1248; Blount Rizzi, 400 410, 416-417, 423, 428, 27 498 Carroll President & Comm'rs Princess Anne, 175, 347, 351, 325 (1968); Freedman Maryland, 380 51, 734, 649 70-71, 639; Schneider Jersey, 308 60 146, 84 155 (1939). identified safeguards indispensable system avoid pitfalls. include (1) requirement burden justifying fall censor, 2141; (2) condition administrative speedy judicial review, 417, (3) rule whose stake given notice heard during proceedings, 181-183, 351-352; 417-419, 1814. 25 None present scheme. There rests authorities. Not own determination suppress, provision prompt review.9 And search vain affording appear censoring argue approval. utterly fail even minimum procedural dictates rather, designed, countenance nonneutral petition.10 26 Third. demonstrably serve offered justification, reason alone If interest, precisely further interest; where stake, important ends sustain mismatched means. 563-567, 569, 2804-2806, 2807; 1811. respect, founder. posited prevention incitement disorder. But necessitates clearance messages, logical mandate preclearance disseminated orally. oral discussion preliminary censorship, doubt raised urgency efficacy when words, inasmuch content petition, there single out content-preclearance rational basis disparate treatment presence peculiar process petitioning. differs simple element physical conduct. Insofar poses greater disruption verbal expression, recourse content-neutral time, place, manner surely sufficient alternative suppression. ordering petitions, excessive distinctive problems Even cannot unduly burdens liberties. Shelton Tucker, 364 479, 488-490, 247, 252-253, 231 (1960). 28 All offers palliate fatal infirmities series platitudes nature overwhelming importance necessity.11 353-354, 598-599. (or national) survival Robel, 389 258, 264, 88 508 (1967). concept necessity seductively broad, dangerous plasticity. invariably visage importance, temptation invoke "necessities" encroachment reason, military-security argument approached healthy skepticism: gravity counsels cautious invoked trespass 30 skepticism lay heart our States. There, urged publication so-called Pentagon Papers damage Nation's period conflict. rejected assertion. 2141. Separate opinions scrutinized argument, declined rely Government's characterization stake. 719-720, 2144. (BLACK, J.); 722-724, 2145-2146 (DOUGLAS, 726-727, 731, 2150-2151 (WHITE, J.). Similarly, 263-264, spurned deference "talismanic incantation[s]" 'war power.' Analogously, stringently viewed national-security proffered domestic warrantless surveillance. 407 297, 320, 2125, 2138, 32 752 31 sure, generals admirals, federal judges, expert needs. equally true officers, competence interpret apply context expertise great degree, tainted natural self-interest inevitably influences power control Partiality government censor censors. Larger, vaguely defined, too easily become officials' bureaucratic preferences. abdicates responsibility safeguard reflexively bows shibboleth necessity. Cf. Landmark Communications, Virginia, 435 829, 842-845, 98 1535, 1543-1544, 56 (1978). A properly detached—rather acquiescent—approach military-necessity doubtless led result. military's omission regulate suggests pointlessness controlling message embodied troubling bases, operate combat near-combat conditions. "front line" rear echelon difficult identify conditions modern warfare, difference between encampment faces imminent conflict provides staging, support, services. simply impossible credit significantly promoted installations. Finally, fundamentally, deluded into unquestioning acceptance flawed assumption enhanced various viewpoints. Properly regulated manner, useful outlet airing complaints strongly citizens rest society. forced absence creates illusion order; underlying dissension remains flow channels disobedience. sense, disserved devalued. egregiously errs holding compels validation dissented Greer, continue disagree But, event, dispositive here; indeed, governs cases, indefensible. 35 arose rejection Dr. Benjamin Spock's request Presidential campaign meeting Fort Dix. involved number expressive activities—including us now—the actual exclusion politically partisan effort. elements prompted exclusion: 36 First, relied proposition lack reservations excluded. Significantly, previous Flower 197, 1842, 653 (1972) ), distinguished leafletting taken place portion Sam Houston effectively dedicated use. 37 Second, noted stationed Dix easy access off-base fora communications others. token, although discussed provided ample standpoint speaker listeners, effected partial cutoff equivalent avenues interchange remained open. 38 claim applied biased fashion. complete "irrationa[l], invidiou[s], arbitrar[y]" confront problem discrimination placed weight "American tradition" institutionally entanglement, appearance handmaiden causes candidates." 839, 39 predicates wholly absent setting On face, activities individuals mandatorily, permissively, reservations. soldiers sailors, opposed civilians, installations "free thoughts," 838, 1217. Further, abroad sea, warship thoughts.12 contrast foreclosure mode servicemen, civilian's option depart sphere authority. differ exemplify pervasive partiality messages.13 orders refusing respondents' flowed obviously "erroneous misleading commentary," App. p. 34, "impugn[ed] innuendo motives conduct" President, 46. Far being evenhanded regulation, sort quintessentially political; suppressing "impugns" conduct innuendo," entangle themselves politics. involve discriminatory communication, Greer's neutrality—and, consequently, result—cannot govern here. Actually, "tradition neutral military," invalidation encourage deciding petitioning.14 Today's decisions, then, clash, rather comport, premises trammels uncritically accepting dubious furthered by—the form group women deserve better this. respectfully dissent. 42 STEWART, whom BRENNAN joins, used anybody forwarded "affect[ed] Establishment." 1951, reaction enact currently reads: 44 "No 1034. Today, holds way bases addressed Specifically, precleared,1 activity occurs located noncombat area peace. reach result, necessarily concludes either "communication[s]" meaning compelled prescreening "restrict[ion]" statute. Since, view, each conclusions odds language history, "communicat[e]" acknowledges, bearing one signature "communication" Nothing logic suggest forfeits statute's protection acquiring additional signatures. indicate 1034: letters many seems "communicates" much signs third writes himself. Yet Court's appears "communications" conclusion, relies history. points out, situation attention threatened court-martial proceedings enacting predecessor wanted kind restraint. cited shows considerably broader historic matrix contains suggestion signed person.2 drawn single-signature letters. precise particularized remedied similarly circumscribed solution. chose instead broadly Clearly, myriad citizen Congressman. limiting scope think, reads mistakenly itself.3 interpreted alternatively constitute position gives unjustifiably narrow scope. An absolute ban "restrict[ion]."4 amount ban, difference. exception precleared exception, type prohibits. stated law's sponsor, send "is restriction itself." 50 clearly demonstrated facts presented Huff, contained similar denied collect denials concedes improper.5 petitions; discouraged attempts me provisions rules "unlawful" "necessary States" enforced. No respondent's "unlawful." respondent disclosed confidential Congress.6 conceivably argued that, general proposition, peace 52 should affirmed.7 53 STEVENS, 54 includes circulate me. confess think plain sparse slightly favor reading not. Nevertheless, agree STEWART'S construction reasons. doubtful remove impediments information liberally construed. potentially far-reaching consequences issue1 counsel avoidance "case fairly decided ground."2 test met provides: "Right Petition. Force, dependents employees right, common citizens, However, solicitation collection facility country authorized commander." superseded 30-1(19)(b) (1977), provisions. (1970) "(1) agency designee. copy plan submitted requested. Distribution mail outlets, libraries exchanges, "(2) required, mission, made, HQ USAF (SAFOI) notified circumstances. "(3) Mere possession unlawful. impounded Forces distributes posts installation. Impounded returned owner departing evidence crime. "(4) "(5) general, promote availability books, periodicals, media wide range viewpoints issues." example, read: "Dear Defense: "We, undersigned, American serving nation, your assistance changing Force. "We feel caused racial tension, decrease retention, loss policy. Cranston, Tunney, Jackson, Moss hope appointed help correct problem." 677, (CA9 1978). named defendants superior Defense. awarded backpay ordered restored service. F.Supp., 132. reinstatement order, vacated award monetary claims $10,000 exclusive jurisdiction Claims. 681-682. Neither exhaust remedies relief Board Correction Records. jurisdiction. 678. petitioners raise exhaustion Pet. Cert. error Appeals' resolution Mathews Eldridge, 319, 330, 893, 900, Allen Monger, 583 438, 440-442 (1978), cert. sub nom. Brown Allen, 78-1005. "not [base] conventional literature." distinct concomitant another prevented using forum views, 838-839, 848-849, 122 STEVENS' applying protect. Post, 378. covered statute, "[t]his activities." understood, itself reassignment Emerson, Toward General Theory 72 Yale L.J. 877, 935-936 (1936); Terrell, Activities Bases: FIrst Battle Rages Again, Emory 3, 5-14 (1979). adopted pursuant 607, today. allowed delay, prevent, issues commercial publication. &Par; 5-5(c), (d) 832, contain provision. distinguish plaintiffs enter distinction Our challenge person," military, 1214. Unauthorized distributions civilians. Furthermore, civilian. 749-751, 2558-2559, confronted employer government. CSC Letter Carriers, 413 548, 565, 93 2880, 2890, 796 (1973); Cole Richardson, 405 676, 684, 1332, 1337, 593 Kelley Johnson, 238, 245-248, 1440, 1444-1446, 708 dangers situations servicemen. inculcation basic preparedness Laird, 453 (CA10) denied, 914, 2436, 690 Dash Commanding 849 (SC 1969), aff'd, 429 (CA4 1970) 981, 1192, 333 (1971), combat-ready Pacific, Carlson Schlesinger, 167 325, 511 1327 (1975). Loyalty, Combat them. Services, wherever assigned, transferred called disorder disaster. supports commanders' maintain nearly installation, offend "This reluctance strike face [are] validly applied." 760, Commanders sometimes "irrationally, invidiously, arbitrarily," thus giving rise legitimate 457-458, 5, 608, 5. Glines, who—like —never requested materials, claim. 849, relevant actually imposed "[a]ll remonstrances, memorials persons Regs., art. 1248 (1948). argues including reflects intention. nothing aware full original proposal induction branch restricted "rights After pointed induct members, ibid., amended form, 3877, 3883. 1(d), 65 Stat. 78. underwent minor revisions codified 1956. Aug. 10, 1956, 70A 80. change substance intended. S.Rep.No.2484, 84th Cong., 2d Sess., 19-21, 95-96 (1956); H.R.Rep.No.970, 1st 8-10, (1955). stands marked analogous years servants "The employees, individually collectively, furnish House committee thereof, interfered denied." 7211 (1976 Supp. II). Curry Army, 194 66, 595 873 III(G) (1969), construes broadly. directive, adds Uniform Code Justice, Art. 138, 938, [of Forces] complain redress grievances actions cites statement grievance 32, 913 concluded reference implied enforced demonstrate construed otherwise. 355-356, 11. exempt published "through exchanges. guidelines effect. addition, advocates insubordination, disloyalty, mutiny, desertion, discloses classified information, obscene matter, planning acts. declaration (A)(3) "[t]he fact not, itself, prohibited." Petition Clause, contexts, enhances Clause. need, explore Clause analysis amply suffices dispose promotes interests—especially associational nature—petitioning fungible activities. "time, manner" valid Police Chicago Mosley, 92, 98, 2286, 2291, 212 touchstone permissible focus circumstances—not 99, 2292. cases—facially applied—look circulated. directed obscenity, 47-48, 393-394, (1961), "fighting words," Chaplinsky Hampshire, 315 568, 766, 1031 (1942). permitted theory censored enjoy protection. insist, aimed unprotected carefully crafted trenching comes ambit (1965). speculated direct, immediate trial 569-570, 2806-2808, (dictum). 588, 594-595, 2816, 2819-2820 judgment). efforts wield contempt assertedly jeopardized administration justice. 844-845, 1544, (1978); Wood 370 375, 82 1364, 569 (1962); Craig Harney, 331 367, 67 1249, 1546 (1947); Pennekamp Florida, 328 331, 66 1029, 90 1295 (1946); Among suppressed supporting amnesty Vietnam War resisters leaflet outlining censored, former "contain[ed] gross misstatements implications [and] impugn[ed] Commander-in-Chief Forces" ; latter transparent implication, disrespectful contemptuous superiors. pp. 46-47, 50. conceded below improper Brief Petitioners 8, 3. unnecessary consider bringing suits officers. 458-459, cured possibility commencing collateral action. 418, 429, unlikely practical matter sea soil courts. factual background instructive. "contemptuous" tone. main gate. 36, on-post/off-post requests, 44, differing leaflet. 356, 13, 600, curtailment freedoms warranted citing (1973). inapposite. predicate upholding liberty employment must, part, voluntariness accept employment. At times, compulsion. unlike freely resign unburden freedom noteworthy scheme Carriers "[s]ign individual," 577, 2896, evidently panoply Federal Government, 572-574, 587-588, 2893-2895, 2901 (appendix). restrain countries. mount appreciation theoretical posed best gained considering operation practice. state writings "may officials," (emphasis added), implication prohibition partly based indicates charge function "afford proper guidance command," 46-47. prospective determining grant documents. "[a] posting. result." admonishes Any contents dispelled occurred "gross impugning Forces. worth noting mind wording II), servants. states: Ante, 360. Contrary interests. permits promulgation regulating acquisition signatures, ever created. Permission Cranston opposing use labor disputes Representative Dellums requesting resisters, though requesters uniform, off-duty hours, away work areas included security" imparting "secret matter" 3877 demoted reserves separately nonetheless suffered demotion foreclosed practice addressing 349. "Our settled ground. 'If deeply rooted adjudication, ought pass constitutionality adjudication unavoidable.' Spector Motor McLaughlin, 323 101, 105, 152, 154, 101. issue, doctrine." University Regents Bakke, 438 265, 411-412, 2733, 2810, 57 750 (opinion J.) (footnote omitted).

Category: 2