Document: 341 U.S. 716 71 S.Ct. 909 95 L.Ed. 1317 GARNER et al.v.BOARD OF PUBLIC WORKS CITY LOS ANGELES al. No. 453. Argued April 25, 1951. Decided June 4, Messrs. Charles J. Katz, Los Angeles, Cal., Samuel Rosenwein, New York City, for petitioners. Mr. Alan G. Campbell, respondents. Justice CLARK delivered the opinion of Court. 1 In 1941 California Legislature amended Charter City Angeles to provide in part as follows: 2 '* * no person shall hold or retain be eligible any public office employment service department thereof, either elective appointive, who has within five (5) years prior effective date this section advised, advocated taught, may, after becomes (April 28, 1941), advise, advocate teach, is now been section, effective, become a member affiliated with group, society, association, organization party which advises, advocates teaches, has, said period years, taught overthrow by force violence government United States America State California. 3 'In so far may held court competent jurisdiction not self-executing, Council hereby given power and authority adopt appropriate legislation purpose effectuating objects hereof.' Cal.Stat.1941, c. 67, p. 3409, § 432. 4 Pursuant thus conferred 1948 passed ordinance 94,004 requiring every an position city take oath January 6, 1949. relevant was 'I further swear (or affirm) that I do have beginning making affirmation, force, other unlawful means, Government am not, period, means States, will while *.' 5 The also required employee execute affidavit 'stating whether he ever Communist Party Political Association, if such member, stating dates when became, periods during was, 6 On final filing petitioners were civil employees Angeles. Petitioners Pacifico Schwartz took but refused affidavit. remaining fifteen either. All discharged cause, administrative hearing, action they sue reinstatement unpaid salaries. District Court Appeal denied relief. 1950, 98 Cal.App.2d 493, 220 P.2d 958. We granted certiorari, 1951, 340 941, 505. 7 attack violative provision Art. I, 10 Federal Constitution 'No pass Bill Attainder, (or) ex post facto Law They contend deprives them freedom speech assembly right petition redress grievances. 8 assumed provisions present similar constitutional considerations stand fall together. think, however, separate disposition indicated. 9 1. raises issue constitutionally forbidden require its disclose their past membership Association. Not before us question determine employee's disclosure political affiliation justifies his discharge. think municipal employer disabled because it agency from inquiring matters prove fitness suitability service. Past conduct well relate fitness; loyalty reasonable relationship future trust. Both are commonly inquired into determining both high low positions private industry less employment. requirement valid. 11 2. our view validity turns upon nature amendment (1941) relation (1948) amendment. Immaterial here we might insofar purported apply retrospectively five-year date. assume under valid extent bars city's persons who, subsequent adoption 1941, advocate, teach violent group doing so. operating prospectively regulation protect establishing qualification States. Cf. Gerende v. Board Supervisors Elections, 56, 565. Likewise, activity employees, reasonably designed integrity competency This Congress restrict federal purpose, Public Workers Mitchell, 1947, 330 75, 102—103, 67 556, 570, 571, 91 754, without much. 12 defined standards eligibility specifically those thereafter should comply these standards. While deprived one trial, yet terminated privilege work case engaged proscribed. 13 provided implementation imposed proscribed had identical terms sanctions 1941. extended back only 1943. 14 would punishment lawful at time in. Passing moment separation must considered punishment, clearly facto. covered same terms, effect over seven before, two embraced oath. law fact posterior. 15 Bills attainder 'legislative acts named individuals easily ascertainable members way inflict on judicial trial Lovett, 1946, 328 303, 315, 66 1073, 1079, 90 1252. Punishment prerequisite. See concurring supra, pages 318, 324, 1080, 1083. Whether legislative curtailing previously enjoyed amounts depends 'the circumstances attending causes deprivation.' Cummings Missouri, 1867, Wall. 277, 320, 18 356. unable conclude general merely provides 16 356, Ex parte Garland, 333, 366, leading cases applying prohibitions against bills attainder, recognized guarantees intended preclude definition professional emplyment. Carefully distinguishing instance 'infliction punishment' exercise prescribe qualifications,' Garland's case: 'The legislature undoubtedly qualifications office, conform, where exclusive jurisdiction, pursuit ordinary avocations life.' 379—380, 366. also, 318—319, doctrine reaffirmed Dent West Virginia, 1889, 129 114, 231, 32 623, Field, written Garland opinions, wrote unanimous upholding statute elevating practive medicine. And Hawker People York, 1898, 170 189, 573, 42 1002, upheld forbidding practice medicine convicted felony. distinguished inapplicable establishes vocational necessary disqualifying some presently it. 17 rely heavily 1252, act effectively separating certain servants bill attainder. Unlike removed, Lovett did declare operative Rather, prohibited payment compensation individual employees. Under circumstances, viewed background, penalties trial. Nor impressed contention denies due process negation limited affiliations organizations known class. reason suppose construed courts affecting adversely innocent severed relations character became apparent, another affiant's affiliation.1 scienter implicit each clause As done nothing negative interpretation, read avoid raising difficult problems application present. Fox Washington, 1915, 236 273, 35 383, 384, 59 573. It appears correspondence record between although welcomed inquiry construction oath, interpretation proceeded explicitly called attention refusal. that, correct, give heretofore opportunity interpreted resume 19 judgment affirmed. affirmed basis felt justified assuming. 20 Affirmed. 21 FRANKFURTER, dissenting part. 22 does guarantee Nation confined securing discharge functions pertaining diverse governmental jobs. assure themselves fidelity very presuppositions scheme seek serve No unit can keep out employ violence, knowingly endeavor. 23 But all follow employment, resort keeping people cannot reach discrimination practice. doubtless unreasonable discriminations, avowed formal law, survive challenge. Surely, could exclude minority odious majority, nor say, nativeborn citizens. To describe meet problem. 24 line reasoning gives direction, believe, dealing issues us. A municipality like ought allowed adequate scope seeking elicit information about them. Due Process Clause unwarranted intrusion local affairs contex time, sufficiently dependable government, confidence electorate government. precise Madison surprised even hear suggested 'Attainder' 10, Constitution. For reasons outlined regard kind long run more harm than good. dismissed solely file Association successfully appeal 25 different presented oath: solemnly (from December 1943), America, California.' 26 judged assumption taken conscientiously. ask 'knowingly' 'to best knowledge' affiliation. Certainty implied disavowal exacted. excludes belonged (with uncertainties meaning 'affiliated') since 1943 'unlawful means' 27 vice situation recently Supervisors, There Attorney General Maryland assured advise authorities accept candidate affirmation attempt attempt. assurance matter personal relaxation legal requirement. He able Appeals Maryland, highest State, placed legislation. remotely behalf Naturally not. Nothing decisions review warrant restricted assailed ordinance.1 find criminal obvious reading statute, guilty knowledge normal ingredient responsibility. exacts condition employment; define crime. certainly open rewrite sustained courts. 28 If sustained, sanction oaths make irrational demand. bound operate real deterrent contemplating associations. How anyone sure affiliates found National official means'? hardiest hesitate join know proscription permanently disqualified These cut deep traditions people. Gregariousness friendliness among most characteristic American attitudes. Throughout history manifested 'joining.' Arthur M. Schlesinger, Sr., Biography Joiners, published 50 Historical Review 1, reprinted Paths Present, 23. 29 Giving full selective processes municipalities reliable functionaries free allegiance alien authority, consonant men asked, pain giving up something expected know. Such demand war integrity; belief BLACK, JACKSON, deemed invalid Communications Ass'n Douds, 339 382, 70 674, 94 925. 30 needs security curbs what innocuous feelings indeed self-defeating. unjustifiable restraints individuals. productive atmosphere repression uncongenial spiritual vitality democratic society. inhibitions engender hostile conditions highmined high-spirited 31 write exact. go court, instructions reinstated unless refuse indicated opinion. BURTON, I. 33 agree 1252; 366; framed perpetual bar views preceding ordinance. leaves room change heart. calls profession promise attachment. retrospect measured amount affiant never acts. 565; 413 414, 691, 692, 34 saved reaches 1943, 432 Charter, Government. cases, supra. II. Pacific Schwartz. executed sign calling refusal permits affidavits. factual determination material candidates appointment union officers, 36 JUSTICE dissenting. 37 DOUGLAS wish emphasize objections Court: 38 Our per curiam stands principle cites today. Gerende, state "is 'in violence,' attempt." obviously limited. 39 creates considerable doubt continued three decisions; 277; 333; 303. weakens Constitution's great liberty. See, e.g., Dennis ante, 494, Breard Alexandria, 622, decided day. 40 DOUGLAS, whom BLACK joins, 41 citizens Ordinance requires subscribe included, inter alia, 'advised, California,' 'a 'whether member.' 43 effectuate provides, California, advocated, doctrine, city. Thus together plain advocacy disqualification methods enforcement policy. 44 Fifteen Two seventeen discharged—the sole ground being be. review, afforded suit thereupon instituted claiming Relief Appeal, 958; hearing Supreme Court, justices certiorari. 45 governed struck down test adopted close Civil War. involved Missouri officials classes people, including clergymen, armed hostility' States; 'by word' 'adherence cause' enemies country 'desire' triumph enemies; 'knowingly willingly harbored, aided, countenanced' enemy; 'member of, connected with, order, inimical States' guerilla warfare' inhabitants; left 'for avoiding enrollment draft military enrolled southern sympathizer. 46 Acts attorneys practicing 'voluntarily aid, countenance, counsel, encouragement 'neither sought accepted attempted whatever, pretended hostility States.' rules admission 47 Cummings, Catholic priest, indicted teaching preaching having first 48 Bar served Confederate Government, received pardon President conditioned taking customary loyalty. applied permission new 49 Article forbids 'pass Attainder' 'ex Law'. curtails providing Attainder passed.' ruled laws 'A attainder,' Field 'is inflicts trial.'1 page 323, 356; see 317, deprivation one's punishment. though generally directed individuals, whole usually declared guilt; guilt adjudged conditionally, i.e., parties preach presumption removed expurgatory That much irrevocably pronounced. penalty punishable committed. are, course, differences cases. Those condemned employees; others Here exacted single—advocacy violence. stood wider range vague uncertain. differences, seized provisions, wholly irrelevant. Deprivation man's livelihood conduct, subject committed, man, day laborer works industry, employee. nonetheless unconstitutional single series degree particlarity criterion. problem vagueness statutes. certainty cured stricken mode inflicted. 51 today, program currently espouse. 565, related cf. 623; once advocated. act, processes. put aspect invidious actually appear. here, case, albeit conditional, violates prohibition reach. 52 53 54 attempt.' 55 decisions: 857; 920. interpreting proscribing defective organizations, gone beyond literal text organization, affiliation, whose question. Steelik, 1921, 187 Cal. 361, 376, 203 P. 78, 79, conviction Criminal Syndicalism Act 1919 made felony 'is' class organizations. indictment alleged defendants 'are is' organization. defining charging offense syndicalism, belonged' (Emphasis added.) 84. decision 80, indicates own limitation there expressed. Steelik considering 'Any (o)rganizes assists organizing, organization' syndicalism Cal.Stat.1919, 188, word qualified addition 'becomes.' continued: 'If death, termed pains penalties. Within Constitution, include body, legitimate functions, exercises powers judge; assumes, language text-books, magistracy; pronounces party, forms safeguards trial; determines sufficiency proofs produced, conformable evidence otherwise; fixes accordance notions enormity offence.' England, draftsmen recent examples Revolutionary governments states. Legislative suspected Loyalist sympathies included outright attaint treason subversion (e.g., Georgia, March 1778; Pennsylvania, 1778, 49; Laws, 1779, Third Session, 25); banishment Massachusetts, Sept. Charters Gen.Laws, c, 48; Hampshire, Laws Fourth 9); confiscation Delaware, 29b; Jersey, Dec. 11, 40); numerous involving, penalties, holding professions. collected Van Tyne, Loyalists Revolution, App. B, C; generally, Thompson, Anti-Loyalist Legislation During Ill.L.Rev. 81, 147.

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