Document: 431 U.S. 801 97 S.Ct. 2132 53 L.Ed.2d 1 Louis J. LEFKOWITZ, Attorney General of the State New York, Appellant,v.Patrick CUNNINGHAM et al. No. 76-260. Argued Feb. 29 March 1, 1977. Decided June 13, Syllabus A York statute provides that if an officer a political party subpoenaed by grand jury or other authorized tribunal to testify concerning conduct his office refuses waive immunity against subsequent criminal prosecution, term shall terminate and he be disqualified from holding any public for five years. Appellee, attorney, was divested state offices pursuant this when, in response subpoena, appeared before refused constitutional immunity. He then brought suit Federal District Court, which granted him declaratory injunctive relief enforcement on ground it violated Fifth Fourteenth Amendment rights. Held: The appellee's right free compelled self-incrimination under Amendment. Pp. 804-809. (a) Government cannot penalize assertion privilege imposing sanctions compel testimony has not been immunized. 804-806. (b) coercive appellee because threatened with loss powerful forfeiture those would diminish general reputation community, would, as economic consequences, harm professional standing practicing lawyer bar years, impinge First participate private, voluntary associations. 807-808. (c) State's overriding interest preserving confidence integrity its process is insufficient justify forcing citizens incriminate themselves. P. 808. (d) dilemma being forced choose between accounting from, prosecution of, created own transactional law, whereas more limited use required permit without forfeiting opportunity prosecute witness basis evidence derived sources. 808-809. 420 F.Supp. 1004, affirmed. Irving Galt, City, appellant. Michael E. Tigar, Washington, D.C., appellees. Mr. Chief Justice BURGER delivered opinion Court. This appeal presents question whether can removed position barred years office, self-incrimination. 2 (1) 3 Under § 22 Election Law,1 may occupies. If answer question, declines later immediately terminates prohibits period 4 In December 1975, Patrick Cunningham (hereafter appellee) appear special investigate held, consisted four unsalaried elective positions Democratic Party York.2 Appellee moved quash subpoena courts, arguing part federal self-incrimination; motion denied. re v. Nadjari, 51 A.D.2d 927, aff'd, 39 N.Y.2d 314, 383 N.Y.S.2d 590, 347 N.E.2d 915 (1976). On April 12, 1976, subpoena. sign waiver form have waived himself.3 Because self-executing, refusal automatically all activated five-year ban office. 5 following day, commenced action United States Court Southern York. After hearing, Judge entered temporary restraining order 22. three-judge court convened, permanent We noted probable jurisdiction, 429 893, 252, 50 176 affirm. 6 (2) 7 begin proposition protects witnesses give used convict them proceeding. See, e.g., 181, 186-187, 1814, 1818-1819, 52 238. Moreover, since test might subject available civil proceeding, well defendant prosecution. Malloy Hogan, 378 11, 84 1489, 1495, 12 653 (1964). either situation "refuse unless until protected at least answers therefrom case defendant." Lefkowitz Turley, 414 70, 78, 94 316, 322, 38 274 (1973). 8 Thus, when compels threatening inflict potent surrendered, obtained violation declarant Garrity Jersey, 385 493, 87 616, 17 562 (1967), example, police officers investigation were told they declined potentially incriminating questions but did could held statements given such circumstances made involuntarily crime. 9 Similarly, our cases established impose substantial penalties elects exercise himself. Gardner Broderick, 392 273, 88 1913, 20 1082 (1968), appearing investigating official corruption discharge answer, immunity, asked him. When refused, employment terminated, discharged solely forfeit rights guaranteed Amendment; abide "attempt, regardless ultimate effectiveness, coerce confers penalty employment." Id., 279, 1916. Accord, Uniformed Sanitation Men Ass'n. Commissioner Sanitation, 280, 1917, 1089 (1968). At same time, provided effectuation important securing employees their trust. Public constitutionally refusing duties surrender Gardner, supra, 278-279, 10 affirmed teaching recently where two architects who occasional work contracting practices. law contractor jury, existing contracts canceled, future saw no distinction discharging employee depriving independent secure contracts; both had sought sanction price invoking right. 11 These settle government It true, appellant points out, earlier concerned having impact. But touchstone compulsion, direct imprisonment are only capable forbids. (3) Section confronted grave consequences self-incriminating testimony. therefore indistinguishable provisions we struck down Men, Turley. Appellee's carry prestige influence, giving voice recommending selecting candidates decisions. widely positions, power prerequisites, inherently coercive. Additionally, these posts diminishes community. 13 There also consequences; suffer removal circumstances. Further, bars Many compensation. Appellant argues enforceable property neither Turley claim contracts. Nevertheless, found disqualification eligibility burden. assessing coercion exerts, must take into account potential benefits realistically likely attainment. Prudent persons weigh heavily legally unenforceable prospects making decisions; extent, constitutes coercion.4 14 yet another reason: requires one exercising another. See Simmons States, 390 377, 394, 967, 976, 19 1247 As private party, far different policymaking pleasure President Governor. By offices, impinges That aspect freedom consistently entitled protection. Kusper Pontikes, 51, 303, 260 (1973); Williams Rhodes, 393 23, 89 5, 21 24 15 even violative rights, justifies infringement. already rejected notion themselves serves governmental need. g., U.S., 78-79, S.Ct., 322-323. compelling interests maintaining honest force service, infringement Garrity, alternative methods promoting aims apparent than here.5 16 (4) be, contends, "(a) intolerable position." Brief 12-13. York's immunizes transaction about testify. crime guilty connection Once proper granted, contempt powers Accordingly, judgment 18 Affirmed. REHNQUIST took consideration decision case. BRENNAN, whom MARSHALL joins, concurring part. I join Court's judgment, reasons stated Parts (1), (2), opinion. cannot, however, Part (4), continue believe "the jurisdiction man himself grant absolute laws revealed testimony." Piccirillo 400 548, 562, 91 520, 527, 27 596 (1971) (Brennan, J., dissenting). Kastigar 406 441, 462, 92 1653, 1665, 32 212 (1972) (Douglas, dissenting); id., 467, 1668. (Marshall, assumption lesser sufficient satisfy requirements Amendment, propriety suggestion Legislature's additional protection somehow contrary best interests. STEVENS, dissenting. 23 individual's speak accordance dictates conscience. believes peace speaks out strong military, decide nominate Secretary Defense. occupies comparable remove result fact Constitution does mean speaker's "right" hold high office.1 remain silent. central purpose compulsory avoid unfair trials. expression conviction presumed innocent, burden proving guilt resorting inquisition accused.2 25 Just speech disclose valid reason terminating employment, so silence provide certain sensitive positions. Thus person nominated filled consent Senate during questioning committee, doubt Senate's withhold very reason. Nor there President's White House aide assert charge conceal wrongdoing solicit illegal campaign contributions. 26 see why should greater governor's appointed member personal staff asserts accusations influence peddling government.3 And limitation "government," ante, 806, applies equally legislature executive, statutory restriction objectionable executive order. My comments thus related officials seek occupy exact counterpart sector economy. democracy, govern ultimately dependent upon, citizenry serve. Their performance standards competence efficiency inspire leadership.4 For reason, conditions appropriately attached entirely inappropriate vast majority whose significantly performed sector.5 28 decided past workers sanitation men employed state-chartered municipality livelihood self-incrimination.6 Neither decision, nor line,7 controls rules protect jobs fundamentally areas society applicable government.8 (hereinafter occupying chairman Committee Bronx County Executive Committee. virtue performs several York.9 "heed realities life, (he of) instruments becomes living thing." Nixon Condon, 286 73, 84, 484, 485, 76 L.Ed. 984. leaders major "are acting matters merely concern like directors agents business corporations. They interest, intimately connected capacity functions unbrokenly smoothly." 88, 487. 30 legitimate preventing actual corruption, avoiding appearance corruption10 among favors sensitive, wishes silent self-incrimination, office.11 31 recognize procedures render her exchange immunity.12 availability require us conclude highest refuse respond inquiries first pay effect erode public's government. statute, enforced, will make choice service. notice possibility accepted offices.13 unquestioned alternative. indeed difficult make. terms, difference many public-spirited once serve country publicly advanced hostile curious witness. saying officeholder officeseeker it. 33 respectfully dissent. "If shall, after lawful process, wilfully fail judge, legislative officer, board body hearing inquiry duties, appeared, relevant tenure terminate, vacant years." N.Y.Elec.Law (McKinney 1964). Law 2(9) 1964) defines "one holds election, appointment otherwise." Committee, advised resigned organization. retains offices. absence effective waiver, testified. N.Y.Crim.Proc.Law §§ 50.10, 190.40, 190.45 1971 Supp. 1976-1977). concedes, Tr. Oral Arg. 4-5, record reflects, insisted essential (1972). counsel represents presented waives "all privileges otherwise obtain York" further "consent(s) me . upon trial, investigation, proceeding." McKinney's Forms Criminal Procedure 190.45, Form (1971). 190.45. form, pressed taking oath, privilege. Of course, procedure regard required. Rather confer respect testified could, chose, specific deems incriminating, withholding validity upheld. damaged irrelevant issues case; inescapable judgments often factors. Baxter Palmigiano, 425 308, 96 1551, 47 810 (1976), contrary. involved administrative disciplinary proceeding respondent testify, chose considered inference drawn party's Respondent's number factors finder penalty, probative value facts warranted; here, leads imposition sanctions. incorrectly assumed whenever individual sufficiently receive protection, implicitly guarantees cost free. Nothing truth. representation one's choice, staggering employ selects. Insistence trial increase defense. send children school, Meyer Nebraska, 262 390, 43 625, 67 1042, exercised prepared associated tuition cost. Griswold, Today 1-8 (1955); L. Levy, Origins Amendment: Right Against Self-Incrimination (1968); Pittman, Colonial Constitutional History Privilege America, Va.L.Rev. 763 (1935). engendered great deal legal scholarship over Dean Griswold's thoughtful review literature writings Let Alone, 55 Nw.U.L.Rev. 216 (1960). Friendly, Tomorrow: Case Change, 37 U.Cin.L.Rev. 671, 706-708 e. Scott Philadelphia Parking Auth., 402 Pa. 151, 154, 166 A.2d 278, 280-281 (1960); Mitchell Chester Housing 389 328, 132 873, 880 (1957). Note, Analysis Spoils System, 57 Iowa L.Rev. 1320, 1321 n.12 (1972); Vill.L.Rev. 750, 753-754 Vand.L.Rev. 1090, 1092 line Seventh Circuit addressed nonpolicymaking employees, Indiana Employees Assn., Inc. Negley, 501 F.2d 1239 (1974); Adams Walker, 492 1003, 1007 Illinois Union, Council 34 Lewis, 473 561, 574 (1972), cert. denied, 410 928, 93 1364, 35 590; Gould 356 421 (N.D.Ill.1973). Pickering Board Education, 391 563, 570 n.3, 1731, 1735, 811. Orloff Willoughby, 345 83, 90-92, 73 534, 538-539, 842; Napolitano Ward, 457 279 (C.A.7 1972). Comm'r, 1089. 274; 1082; 562. Cf. Elrod Burns, 427 347, 367-368, 2673, 2686-87, 49 547 (plurality opinion); Sugarman Dougall, 413 634, 642-643, 2842, 2847-2848, 853; Workers Mitchell, 330 75, 115, 122-123, 556, 577, 580-581, 754 dissenting part); Myers 272 52, 240-241, 21, 66-67, 71 160 (Brandeis, Assn. supra; Mow Sun Wong Hampton, 500 1031, 1040 (C.A.9 1974), 426 95-96, 1895, 1901-1902, 48 495; Leonard Douglas, 116 U.S.App.D.C. 136, 321 749 (1963). selects nominees commissioner Elections, administers elections, 468 similar local election officers, 31, 40, 45 committees chairs designate primary 131(2), fill vacancies occur slate County, 131, 140, electors Vice 131(1). Buckley Valeo, 424 25-27, 612, 638, 46 659. To extent legitimizes Government's particularly apposite here. administration laws. do punish right, substitute punishment crimes suspected. integrity, serving governing core. Daley, 549 469, 474-477 1977). statutorily recognized deprive associate reasons, impact surely significant leaves activities capacities right-to-associate cases. present contained invalid penalty. failure tender critical missing element invalidated discharges policeman 1082, 284-285, 1919-20, 1089: appellant, policeman, specifically, directly, narrowly relating fruits thereof himself, dismissal." Broderick clear concerned. view large measure trust police, am sure joined extension largest 812 (text n.7). enacted 1949, gained chairmanships.

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