Document: 481 U.S. 465 107 S.Ct. 1862 95 L.Ed.2d 415 Edwin MEESE, III, Attorney General of the United States and Joseph E. Clarkson, Appellantsv.Barry KEENE. No. 85-1180. Argued Dec. 2, 1986. Decided April 28, 1987. Syllabus The Foreign Agents Registration Act 1938 (Act) requires registration, reporting, disclosure by persons engaging in propaganda on behalf foreign powers. uses term "political propaganda" to identify those expressive materials subject its requirements, defines as, inter alia, any communication intended influence States' policies. Appellee, a member California State Senate, wished show three Canadian films identified Department Justice (DOJ) as under Act, but did not want be publicly regarded disseminator propaganda." He therefore brought suit Federal District Court enjoin application films. granted injunction, holding that risk damage appellee's reputation established his standing challenge constitutionality use propaganda," such violated First Amendment. According Court, public believes which applies have been "officially censured," are rendered unavailable people like appellee because being seen an unfavorable light public. In Court's view, conscious pejorative label was unnecessary invalid abridgment speech. Held: 1. Appellee has Act's violation Pp. 472-477. (a) That identification question threatens cause cognizable injury is uncontradicted affidavits indicating exhibition would substantially harm chances for reelection adversely affect community. Even if he could minimize these risks providing viewers with statement about high quality reasons agreeing them, ineffective among citizens who shunned Moreover, need take affirmative steps itself constitute appellee. 472-476. (b) can traced appellants' conduct, since it stems from DOJ's P. 476. (c) Granting requested relief at least partially redress complained-of injury, judgment declaring unconstitutional eliminate choose between exhibiting incurring reputation. 476—477. 2. constitutional. contrary erroneously rests potential misunderstanding effect rather than what actually says, requires, or prohibits. 477-485. As defined only includes slanted, misleading advocacy popular, sense, also encompasses completely accurate merit highest respect. 477-478. Since neither inhibits access nor prohibits, edits, restrains distribution applies, places no burden protected expression. To contrary, simply disseminators make additional disclosures better enable evaluate material's impact, allows them add further information they think germane, thereby fosters freedom It is, fact, injunction wrongfully withholds information—the fact deemed propaganda"—on paternalistic assumption will misunderstand misuse information. 480-483. Although definition existed 1942, there evidence fear thereof interfered significant number foreign-made 483-484. (d) neutral, evenhanded, without connotation, constitutionally permissible. 484—485. 619 F.Supp. 1111 (1985), reversed remanded. STEVENS, J., delivered opinion REHNQUIST, C.J., WHITE, POWELL, O'CONNOR, JJ., joined. BLACKMUN, filed dissenting part, BRENNAN MARSHALL, joined, post, p. ----. SCALIA, took part consideration decision case. Donald B. Ayer, Sacramento, Cal., appellants. John G. Donhoff, Jr., Mill Valley, STEVENS Court. 1 1938, 52 Stat. 631-633, amended 1942 1966, 22 U.S.C. §§ 611-621 (Act), must comply filing, requirements. underlying requirements validity characteristics used define regulated category issue this concluded, however, Congress Amendment using statutory name 2 attorney does regard him political propaganda, wishes exhibit motion picture so identified.1 films, distributed NFBC,2 deal subjects nuclear war acid rain.3 Eastern March 24, 1983, On May 23, denied dismiss preliminary injunction. prohibited appellants designating subjecting labeling reporting Act. court issued findings conclusions law September 7, 1983. Keene v. Smith, 569 1513. held Keene's statute's "propaganda," had entitlement injunction.4 3 12, 1985, summary permanent against enforcement portion incorporates 1111. opined "propaganda" semantically slanted word reprobation; denigrating renders American wish means personal expression; compelling state interest justify label, unnecessary, invalid, October 29, limiting 4 We noted probable jurisdiction General's appeal 28 § 1252, 475 1117, 106 1632, 90 178 (1986), we now reverse. 5 Before discuss issue, briefly describe scheme determine 6 * statute explains basic purpose regulatory scheme. enacted: 7 "[T]o protect national defense, internal security, relations requiring activities other governments, parties, principals Government may informed identity appraise their statements actions associations activities." 56 248-249. 8 See Viereck States, 318 236, 244, 63 561, 564, 87 L.Ed. 734 (1943). 9 all agents file detailed registration statements, describing nature business activities. requirement comprehensive, applying equally friendly, unfriendly governments. Thus, New York office NFBC registered agent 1947 agency government. classifies produced Film Board contain material policies reasonably adapted used. 10 When principal disseminates 611(j), mails channels interstate commerce, she provide copy report extent dissemination.5 addition, recipient form prescribed General.6 seeks disseminate material, first certain information, agent's identity, whom acts. standard reads follows: 11 "This prepared, edited, circulated (name address registrant) Justice, Washington, D.C. principal). Dissemination reports film where required available inspection. indicate approval contents Government." App. 16, 59. 12 should appear form. 13 14 "(j) 'political propaganda' oral, visual, graphic, written, pictorial, expression person (1) to, disseminating same will, intends prevail upon, indoctrinate, convert, induce, way section within reference interests, policies, government country party promote racial, religious, social dissensions, (2) advocates, advises, instigates, promotes social, political, religious disorder, civil riot, conflict involving force violence republic overthrow subdivision violence." 611(j). II 15 determining whether litigant governmental action Amendment, demonstrate "a claim specific present objective threat future harm." Laird Tatum, 408 1, 14, 92 2318, 2326, 33 154 (1972). Laird, plaintiffs alleged intelligence-gathering operations Army "chilled" exercise rights feared defendants might, future, unlawful data gathered. found lacked standing; Army's system threaten plaintiffs. While direct rights, held, caused Id., 12-13, S.Ct., 2325. " 'distinct palpable.' Allen Wright, 468 737, 751, 104 3315, 3324, 82 556 (1984) (citations omitted). 16 Appellee's allegations establish situation fits squarely guidelines. sure, interested showing rights; prevent obtaining recognized, "[w]hether constitutes abridgement plaintiff's speech course, irrelevant analysis." F.Supp., 1118. allege unable receive all, relies circumstance "deterred characterization propaganda.' 1515. If merely appellation deterred exercising chilling seek invalidation. supra, U.S., 13-14, 2325-2326. 17 find, demonstrated more "subjective chill"; establishes injury. stated "if were while bore characterization, personal, professional suffer ability obtain re-election practice profession impaired." support claim, submitted affidavits, including one results poll7 another containing views experienced analyst,8 supporting conclusion classified uncontradicted. 18 ruling judgment, correctly determined supported impairment career. "puts plaintiff Hobson's choice foregoing exposition own suffering reputation." 1120. reduces attend showings, see Brief 15, n. cites "the much larger audience constituency influenced disseminated characterized power." Ibid. Tr. Oral Arg. 36 (the "raises hackles suspicion audience"). established, substantial detriment candidacy. 19 possible minimized appropriate concerning pictures—one won "Oscar" award Academy Motion Picture Arts Sciences best documentary 1983—and positions advocated producer rain. assumption, avoid course This case similar Lamont Postmaster General, 381 301, 85 1493, 398 (1965), petitioner hold "communist originating abroad release addressee unless individual made written request Post Office delivery material. directed affected just Keene. necessity going record requesting literature constituted rights. Likewise, undifferentiated bystander claims indistinguishable general public, argues; each formation association might mitigate members do view shun propaganda."9 20 Our cases recognize mere sufficient "fairly traceable defendant's allegedly conduct likely redressed relief." 3324; Valley Forge Christian College Americans Separation Church State, Inc., 454 464, 472, 102 752, 758, 70 700 (1982). Because Justice's employs conclude traced" conduct. Simon Kentucky Welfare Rights Organization, 426 26, 41, 96 1917, 1925, 48 450 (1976). 21 enjoining words reputational complains. argues sought, constituents others continue react negatively once labeled propaganda". However, occurs placed legitimate criminal powers behind A perception declared intent "to periodically permanently enjoined classifying propaganda'." Declaration Barry Regards Having Exhibited Three Films, 110. threatened complaint "likely favorable decision." Forge, cited ibid., 9. III begin our examination noting two meanings. popular parlance many assume serious attention proceeds concern advancing narrow interests speaker devotion truth. See, e.g., Newman, Correspondent NBC News, 107-108. Casualty enemy belligerents, example, often dismissed nothing "propaganda." kind. But closest Standard works include both broad, neutral definitions consistent statute,10 narrower, definition.11 23 even broad recognized meaning Classic Example Content-Based Regulation Core-Value Protected Speech."12 notes, expressly conditioned upon finding public-policy content. 24 accept argument. whole inform recipients aegis source materials" (emphasis deleted), gainsaid kind serves disserves Amendment.13 prohibits censors dissemination principals. 25 argument accepted effect. Simply text materials, assumed attach "unsavory connotation," 1125, thus believe censured denigration makes appellee, otherwise distribute scheme.14 attached attempt place beyond pale discourse," id., 1126, find unpersuasive, indeed, untenable, reasons. 26 First, "beyond discourse." Unlike invalidated interfering addressee's "an official act (viz., returning reply card) limitation unfettered rights." 305, 1495. physical detention designation offending element "se[t] administrative officials astride flow mail inspect it, write await response before dispatching mail." 306, 1496. case, hand, pose obstacle exhibit. prohibit, edit, restrain ostensible effort conversion, confusion, deceit. 27 import propaganda.15 prohibit advising officially way. Disseminators go germane public's viewing materials. By some permitting more, approach recognizes remedy inaccurate contained fair, truthful, generally Whitney California, 274 357, 377, 47 641, 649, 71 1095 (1927) (Brandeis, concurring) ("If time expose through discussion falsehood fallacies, avert evil processes education, applied speech, enforced silence"). prospective harbor unreasoning prejudice arguments agents, combat bias explaining—before, during, after film, wholly separate context—that Canada's consequences rain necessarily undermine integrity persuasiveness advocacy. Ironically, entered suppressed fall judged strategy protecting followed Virginia Assembly, enacted ban advertising prescription drug prices pharmacists. Pharmacy Bd. Citizens Consumer Council, 425 748, 1817, 346 sought preventing aggressive price competition result unlimited advertising" "loss stable pharmacist-customer relationships" comparison shopping basis price. rejected justifications, predicated assumptions reactions obtained "wrong" proscribed pharmacy items, rationale considers "propaganda": 29 "[O]n close inspection State's protectiveness large measure advantages kept ignorance. directly standards other. affects free information." 769, 1829. 30 despite absence interfere Bd., zeal "too information" withstand scrutiny: 31 "There alternative highly approach. harmful, perceive well enough informed, end open them. . precisely choice, dangers suppressing freely available, us." 770, 32 Linmark Associates, Inc. Willingboro, 431 85, 96-97, 97 1614, 1620, 155 (1977). Second, reasoning contradicted history. books over four decades.16 presume understanding know one.17 Given long history, seems obvious disclosed record. unrebutted predictions potentially adverse standing, far short proving perceptions impact There suspect, suspicion—to degree exists—has censorship. 34 Third, Congress' lead us suspend respect normally owe Legislature's power terms legislation. occasion here decide permissible scope "right speak";18 particular language, statutorily evenhanded manner, constitutional provision making. Nor agree assertion gratuitous step designed express materials." 1125. axiomatic excludes unstated meanings term. Colautti Franklin, 439 379, 392, 10, 99 675, 684, 58 596 (1979). statute, indeed legislation, connotation.19 judges duty construe legislation read layman, understood someone it. construed consistently itself, concerns voiced disappear. 35 reversed, remanded proceedings opinion. ordered. 37 SCALIA 38 MARSHALL join, part. 39 today, fails apply long-established "principle freedoms ringed adequate bulwarks." Bantam Books, Sullivan, 372 58, 66, 83 631, 637, 584 (1963). I imposed Canada war, pursuant amended, 611-621, presents 40 negative connotation. reaches ignoring realities reaction designation. given confined inquiry, difficult understand how categorization "instigates riot violence," 611(j)(2), neutral. Indeed, legislative history indicates fully discourage communications agents. 41 grew out investigations House Un-American Activities Committee, formed 1934 investigate Nazi subversive controlled countries attacking H.R. Res. 198, 73d Cong., 2d Sess. (1934), 78 Cong.Rec. 13-14 (1934).1 mandated disclosure, censorship, goal control spread unambiguously Committee Judiciary: "We spotlight pitiless publicity serve deterrent pernicious H.R.Rep. 1381, 75th 1st Sess., (1937). 42 revised 248, ch. 263, order strengthen Government's "chief instrument controlling activity theater Hearings 6045 Subcommittee Judiciary, 77th Ser. 9, (1941) (1941 Hearings) (statement Lawrence M.C. Chief, Special Defense Unit, Justice). amendments included addition virtually identical current version explained counter secret efforts "[i]n increased attempts systematic manipulation mass attitudes international questions, adding keep nature, source, States." 25. And, original furthered desire disable types bring result.2 43 changed 45 years selected words. currently primarily policy advocacy, continues reflect purposes carry connotations. For representative recently recognized: 44 "[I]t fair say reflected perceived connection subversion. focus connotations phrases 'foreign agent' years." Oversight Hearing Civil Constitutional 98th (1983) (testimony D. Lowell Jensen, Assistant Criminal Division, purpose, "long regulations aimed proper restrict unduly Amendment." Minneapolis Star & Tribune Co. Minnesota Comm'r Revenue, 460 575, 592, 103 1365, 1375, 75 295 (1983). undertake inquiry. concludes "neutral one," ante, 479, dismisses resting "potential [the statute's] effect," 478. 46 chosen never precludes independent determination based actual FEC Massachusetts Life, 479 238, 255, 616, 626, 93 539 (1986) (plurality opinion) ("The practical characterize [it] infringement activities"). detained "neutral" here. 302-303, 1494. Yet examined effects trouble concluding "almost effect" debate. 307, reason certainly disapprobation conveyed classification: "Public officials, schoolteachers tenure, invite disaster says contains seeds treason. Apart feel inhibition sending federal condemned 'communist why analysis different, greater weight, elected categorized 49 asked, answered, wrong question. argue argues, instead, common unreliable trusted, bolstered added weight authority accorded classification all-pervasive Government. determines discourse 50 speculate rely assessment raises. testimony expert study declaration Leonard W. Doob, Sterling Professor Emeritus Psychology Yale University: "[T]he book pejorative, stigmatizing [A]s last seventy suggests, call something assert communicates hidden deceitful ideas; concealed involved; unfair insidious methods [sic] employed; organized way." 101. 474, 8. strains credulity classification. 51 expression." Ante, 480. error neutrality leads ignore classification, create indirect result, takes unjustifiably sort violate protections. "not exhibit" "did materials," thinks restriction violation. discouragements capable coercive Communications Assn. Douds, 339 382, 402, 674, 685, 94 925 (1950), protections extend blatant censorship finds lacking restraint punishment question." (1963), struck down Rhode Island authorizing commission designate morally objectionable Commission "regulate suppress obscenity," informal sanctions, deliberately set achieve suppression publications 'objectionable' succeeded aim," 67, 637. likewise overt Lamont. argued return card publication, "only inconvenience involved." 309, 1497 (concurring opinion). But, there, "inhibition prohibition precious government." Ibid.3 53 scheme, unfortunately permits accomplish impose directly—a Political burdened deciding individuals institutions bound calculate associated propaganda. Many, decline necessary risk. particularly accountable librarians cite examples. taints message lessening credence viewers. full exhibitor dispel skepticism flowing notion laced lies distortions. These burdens too great real ignored 54 perceives "Congress [propaganda] majority "disclosure" defensive, require her 475. inherently advance discourse. "deterrent 'chilling' enshrined expression, association." Gibson Florida Legislative Investigation Comm., 539, 557, 889, 899, 929 (1963); also, Brown Socialist Workers '74 Campaign 459 87, 100, 416, 424, 74 250 (1982) (names campaign contributors funds); Talley 362 60, 80 536, 559 (1960) (identification names addresses authors handbills); N.A.A.C.P. Alabama, 357 449, 462, 1163, 1171, 1488 (1958) (membership lists). 55 likens drugs 481-482. difference "paternalistic information," 481, disparagement "enforc[e] silence," Brandeis. here—that derogatory impermissibly expression—did ban; lifted requirement, above. Under ruling, opponents viewpoint expressed National remained point dialogue value viewpoints occur atmosphere constraint condemnation. paternalistic. Government, authority, presumed neutrality, facts, reduce effectiveness eyes Appellants attempted articulate justification saddling would-be exhibitors justified interest. 256, 627; NAACP Button, 371 415, 438, 328, 340, 405 asserted "so 249. incapable justifying slightest interpret nullifies mechanism. 57 ways fulfilled. transmitted "conspicuously marked" principal, and, second, 614(a), (b), (c), 616(a); 470, nn. 6.4 able learn opportunity examine files reading affixed film. 471.5 fulfilled process categorizing importance conveying belied position informative removed Internal Security Section, Justice. 22. After (which requirement) "has [appellee's] position, not, [appellee] disclaimer said obtains them." reasonable interpretation position" exempt only, reach audience. nullification primary purely let alone one. 59 interest, carries admitted letter regarding proposed changes legislation: 60 consider replacing propaganda,' labelled, concise definition, narrowly focused process. 'advocacy' 'information' denominate labelled." Letter, dated August 8, Honorable Robert Kastenmeier, Chairman, Courts, Liberties Administration Edward C. Schmults, Deputy 118.6 61 errs tolerating enforce respectfully dissent. January 13, Chief Unit Section Division notified (NFBC) 614. 18. (New office) NFBC, 1947, 612. Second Clarkson ¶ 4, 57. entitled You Love Planet, Acid Rain: Requiem Recovery, From Heaven. environmental war." Complaint 10. "Acid rain" when nitrogen oxides sulfur dioxide, products fossil fuel combustion, discharged into atmosphere; converted sulfates, nitrates, sulfuric acids, nitric acids various chemical reactions; then deposited precipitation. F. Grad, Treatise Environmental Law 2.09, pp. 2-578 2-579 (1986). 1518, 1522. imposes principal. 1519. Title 614(a) provides: "Every register provisions subchapter transmits causes instrumentality commerce (i) prints, (ii) being, be, shall, later forty-eight hours beginning transmittal thereof, copies statement, duly signed agent, setting forth places, times, transmittal." 614(b) "It shall transmit persons, conspicuously marked with, prefaced accompanied by, true language languages relationship transmitting causing propaganda; Columbia, together principal; that, subchapter, Justice; having due security regulation prescribe manner inclusion identifying sources appropriate." poll Gallup Study Effect Disclosures Adults' Attitudes Toward Candidates (July, 1984). 78-98. telephone survey, five questions posed sample adults. tested publicizing events candidate running legislature One surveyed "arranged [the] Dept. 'Political Propaganda.' 86. concluded event occurred, 49.1% less inclined vote candidate. Ibid.; 93-94 (sampling tolerances; 95% confidence level sampling percentage points). examining survey data, research practitioner charge "would seriously Legislature candidate's [for election] raised during campaign." Mervin Field 5, 69. declaration, "neither rebutted impeached defendants, peradventure doubt whoever runs public." 1111, 1124 (1985) (footnote fundraiser adviser Harry Bistrin, stated: "I North Coast [of California] press, adversaries, opponents, openly seize utilize government's Act] benefit portraying perhaps most citizens, ensure amendment 'boomerang' utilized deadly weapon career." Support Plaintiff's Preliminary Injunction, 30. "Designating denigrates stigmatizes advocacy' not. my knowledge extremely deter diminish and/or slant communicative value, reader viewer suspicious credit conclusions." Doob 103. declarant Senior Research Associate University. Block Meese, 253 317, 322, 793 F.2d 1303, 1308 (sole distributor Planet propaganda"; customers declined classification). Webster's Third International Dictionary 1817 (1981 ed.) ("doctrines, ideas, argument, deliberate medium one's opposing cause"). World Dictionary, Edition 1167 (1968) ("now disparagingly connote deception distortion"); Columbia Encyclopedia 2225 (1975) ("[A]lmost opinion, lobbying, commercial advertising, missionary work, broadly Generally, restricted beliefs"). 20. harm, earlier litigate merits. Whether created violates matter. crux latter paragraph: "With evidentiary question—does phrase abridge speech—the little difficulty. supplied Field, Candidates, July, 1984; Exhibit A, 3. reason, making courageous. courage, important note courage operation FARA convictions 1124-1125. An flaw satisfy "materials one, event, announcement "What emerged extended Congressional investigations, hearings deliberations method essential evaluation emanating hired countries. Senate Committees considering Bill said, 'does impair right rights.' Resting fundamental principle people, adequately trusted distinguish false, bill origin hearers readers deceived belief comes disinterested source. Such implements detracts prized guaranteed No strained frustrate purpose." 251, 568, (1943) (Black, dissenting). adopted meeting provided General. Apr. 611, states "public 611 (Policy Purpose). Report stated, "[T]hese change disclosure." Rep. 1547, (1941). again retained nonexhaustive list reported titles neutrally allies adversaries States. include, Berlin Means Business More (Berlin Economic Development Corporation); Hong Kong Style (Government Kong); Conversation Golda Meir (Consulate Israel); Ballad Soldier (Sovexportfilm). television videotape What Japan Doing About Energy? Japan) list. B, 60-63. implications judicial parsing choices discussed U.S.App.D.C., 327-328, F.2d, 1313-1314. 501(c)(3) (excluding charitable deduction organizations whose "carrying attempting, legislation"); 1304(a) (no Services Organizations "shall involve carrying attempting 4107(b)(1) (agency train employee in, non-Government facility legislation"). Like "lobbying" 1598 corruption lobbying unsavory connotation"). Lobbying 261-270, word, aware suggestion Harriss, 347 612, 808, 98 989 (1954) (construing upholding requirements). countermeasures recommended danger represented Secretary State. 153, 74th (1935). became centerpiece motivated "many representing governments groups, agencies funds foster un-American activities, external country, violating spirit law, democratic 1-2 1941 Smith) ("And Holmes champagne put left goes flat, bad cannot survive publicity"). Freedman Maryland, 380 51, 59, 734, 739, 649 (1965) (film program procedural safeguards otherwise, matter, "it prove burdensome review censor's determination"); Speiser Randall, 513, 526, 1332, 1342, 1460 (state placing taxpayers advocate device produce command directly. deterrence Constitution free"). submit distributes, relaxed pictures. Two monthly submits either filmstrip affidavit "certifying film." CFR 5.400(c) description transmitted, dates transmission, type recipient: libraries, newspapers, etc. "name station, organization, using," shown, estimated 17. willfully filing fine up $10,000 imprisonment years. 618(a)(2). Failure punishable $5,000 six months. favored altering statement. letter, Schmults said: favor amending permit simpler inferred (as, instance, approved message)."

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