Document: 350 U.S. 497 76 S.Ct. 477 100 L.Ed. 640 COMMONWEALTH OF PENNSYLVANIA, Petitioner,v.Steve NELSON. No. 10. Argued Nov. 15, 16, 1955. Decided April 2, 1956. Rehearing Denied May 14, See 351 934, 785. Messrs. Frank F. Truscott, Philadelphia, Pa., Harry Stambaugh, Pittsburgh, for petitioner. Herbert S. Thatcher, Washington, D.C., respondent. Louis C. Wyman, Manchester, N.H., the State of New Hampshire, amicus curiae by special leave Court. Charles Barber, Mr. Chief Justice WARREN delivered opinion 1 The respondent Steve Nelson, an acknowledged member Communist Party, was convicted in Court Quarter Sessions Allegheny County, Pennsylvania, a violation Pennsylvania Sedition Act1 and sentenced to imprisonment twenty years fine $10,000 costs prosecution sum $13,000. Superior affirmed conviction. 172 Pa.Super. 125, 92 A.2d 431. Supreme recognizing but not reaching many alleged serious trial errors conduct court infringing upon respondent's right due process law,2 decided case on narrow issue supersession state law Federal Smith Act.3 In its opinion, stated: 2 'And, while statute proscribes sedition against either Government United States or it is only with which instant concerned. Out all voluminous testimony, we have found, nor has anyone pointed to, single word indicating seditious act even utterance directed Pennsylvania.'4 3 precise holding court, that before us review, Act 1940,5 as amended 1948,6 prohibits knowing advocacy overthrow force violence, supersedes enforceability same conduct. 4 Many Attorneys General Solicitor appeared amici petitioner, several briefs were filed behalf Because important question federal-state relationship involved, granted certiorari. 348 814, 75 58, 99 642. 5 It should be said at outset decision this does affect enforce their laws times when occupied field protecting entire country from condut. distinction between two situations clearly recognized below.7 Nor limit jurisdiction where Constitution Congress specifically given them concurrent jurisdiction, done under Eighteenth Amendment Volstead Act, 27 U.S.C.A., v. Lanza, 260 377, 43 141, 67 314. Neither protect itself any time sabotage attempted violence kinds.8 prevent prosecuting constitutes both federal offense police power, Fox Ohio, How. 410, 46 12 213, Gilbert Minnesota, 254 325, 41 65 287, relied petitioner authority herein. neither those cases did impinge jurisdiction. case, counterfeiting. defrauding person whom spurious money passed. Court, upholding enforcement statute, proscribing would "interfere discourage enlistment men military naval forces Minnesota", treated relating 'the raising armies national defense, rules regulations government arms (a constitutionally exclusive power). (was) simply local measure * *.'9 6 Where, stated whether are otherwise free legislate,10 different criteria furnished touchstones decision. Thus, 7 '(t)his considering validity light touching subject, made use following expressions: conflicting; contrary to; occupying field; repugnance; difference; irreconcilability; inconsistency; violation; curtailment; interference. But none these expressions provides infallible constitutional test yardstick. final analysis, there can no one crystal clear distinctly marked formula.' Hines Davidowitz, 312 52, 67, 61 399, 404, 85 581. 8 And see Rice Santa Fe Elevator Corp., 331 218, 230 231, 1146, 1152—1153, 91 1447. think each tests met. 9 First, '(t)he scheme regulation (is) so pervasive make reasonable inference left room supplement it.' page 230, 1152. determined 1940 necessary re-enter antisubversive legislation, had been abandoned 1921. year, enacted government—federal, local—by organization membership group advocates.11 Conspiracy commit acts punishable general criminal conspiracy provisions 18 U.S.C. § 371, U.S.C.A. 371. Internal Security 1950 aimed more directly organizations.12 distinguishes 'Communistaction organizations' 'Communist-front organizations,'13 requiring such organizations register file annual reports Attorney giving complete details officers funds.14 Members Communist-action who registered must individuals.15 Failure accordance requirements Sections 786—787 than offending five individual offender—each day failure constituting separate offense.16 imposes certain sanctions 'action' 'front' members.17 Control 1954 declares 'that Party States, although purportedly political party, fact instrumentality States' 'its role agency hostile foreign power renders existence present continuing danger security States.'18 also contains legislative finding "Communist-action' organization' within meaning 'knowing' members 'subject penalties' Act.19 furthermore sets up new classification 'Communist-infiltrated organizations'20 imposition them. 10 We examine Acts determine congressional plan. Looking aggregate, conclusion inescapable intended occupy sedition. Taken whole, they evince plan makes it. Therefore, superseded regardless purports law. As Holmes Charleston & Western Carolina R. Co. Varnville Furniture Co., 237 597, 604, 35 715, 717, 59 1137: 11 'When taken particular subject-matter hand, coincidence ineffective opposition, declared help because attempts go farther seen fit go.' Second, statutes 'touch interest dominant system (must) assumed preclude subject.' 1152, citing supra.21 devised all-embracing program resistance various forms totalitarian aggression. Our external defenses strengthened, internal subversion appropriated vast sums, our own protection, strengthen freedom throughout world. charged Bureau Investigation Central Intelligence Agency responsibility intelligence concerning activities Government, denominated part world conspiracy. accordingly proscribed nation—national, local. steps 'to provide common preserve sovereignty independent nation, guarantee republican form *.'22 having thus matter vital concern, sense problem. below: 13 'Sedition offense. crime Nation. such, prosecuted punished courts defendant now sentence.23 prosecutions exclusively control *.'24 14 Third, presents conflict administration program. Since 1939, order avoid hampering uniform sporadic prosecutions, urged authorities intervene matters, turn over immediately unevaluated information subversive activities. President request September 6, he placed charge investigation field: 15 'The requested me instruct Department take investigative work matters espionage, sabotage, violations neutrality regulations. 16 'This task conducted comprehensive effective manner basis, carefully sifted out correlated confusion irresponsibility. 17 'To end I officers, sheriffs, other promptly nearest representative obtained counterespionage, laws.'25 addressing Federal-State Conference Law Enforcement Problems National Defense, held August 1940, few weeks after passage Director said: 19 overlooked meeting spy, saboteur subverter problem handled nation-wide basis. An isolated incident middle west may little significance, fitted into pattern similar incidents, lead revelation activity. reason citizens enforcing agencies report complaints dealing essence. unfortunate efforts individuals fully acquainted far-flung ramifications interject superstructures FBI sift what might information, delaying immediate reference FBI. This cannot be, if best served. red tape amateur handling matters. There direct flow contact job spy experienced enforcement.'26 20 Moreover, Statute peculiar interference For, below observed: 21 'Unlike administered acting official capacities, indictment initiated private individual. opportunity indulgence personal spite hatred furthering some selfish advantage ambition need mentioned appreciated. Defense Nation law, less arms, public undertaking. punitive promulgated central governmental supervision review authority's judiciary. If done, will detected punished, less, wherever speak freely without fear, criticism government, protected.'27 22 his brief, states forty-two plus Alaska Hawaii prohibit violent established government. These entitled anti-sedition statutes, anarchy laws, syndicalist etc. Although primarily uniform. attention called successfully attempt destroy Some studiously drawn purport fundamental rights appropriate definitions, standards proof orderly procedures keeping avowed purpose it, people.' Others vague almost wholly safeguards. punish mere do registration fulfilled.28 23 When confronted like situation labor-management relations, Jackson wrote: 24 'A multiplicity tribunals diversity quite apt produce incompatible conflicting adjudications substantive law.'29 25 Should permitted exercise area, encounter difficulties Jackson, added engendered offenses. 26 find exclusion parallel precludes intervention, operation plan, convinced unassailable. unmindful risk compounding punishments created power. view reach double multiple punishment overt sanction.30 compelling indication contrary, assume permit possibility punishment. Cf. Houston Moore, Wheat. 1, 31, 75, 19; Jerome 318 101, 105, 63 483, 486, 87 640. 28 judgment affirmed. 29 Affirmed. 30 Appendix. 31 Penal Code 207, P.S. 4207. 32 'sedition,' used section, shall mean: 33 'Any writing, publication, printing, cut, cartoon, utterance, conduct, individually connection combination person, intent is: 34 '(a) To cause outbreak demonstration States. '(b) encourage measures engage overthrowing destroying attempting destroy, show threat force, 36 '(c) incite bringing contempt. 37 '(d) persons injury harm officer damage property position. 38 'sedition' include: 39 '(e) actual destruction of, official, perpetrated owner occupant 40 '(f) Any advocates teaches duty, necessity, propriety engaging crime, terrorism, means accomplishing reform change '(g) sale, gift distribution prints, publications, books, papers, documents, written form, advocates, furthers hereinbefore defined. 42 '(h) Organizing helping organize becoming assembly, society, group, policies purposes thereof felony. Whoever guilty shall, conviction thereof, pay exceeding ten thousand dollars ($10,000), undergo (20) years, both.' 2385, 2385. 44 'Whoever knowingly willfully abets, advises, desirability, State, Territory, District Possession subdivision therein, assassination government; 45 'Whoever, publishes, edits, issues, circulates, sells, distributes, publicly displays printed advocating, advising, teaching so; organizes helps assembly teach, advocate, violence; becomes affiliates with, persons, thereof— 47 'Shall fined imprisoned both, ineligible employment department next conviction.' 48 REED, BURTON MINTON join, dissenting. 49 problems approached varied viewpoints focus security. jurisdictional importance involves asserted limitation applied Government. recurring problem, explain dissent. 50 not, sedition, barred And, read majority that, absent bar Nation.1 limits try charges 51 relies pervasiveness legislation embodied 1950, 64 Stat. 987, 1954, 68 775. asserts aggregate mean 'field sedition' 'occupation field' argument developed Commerce Clause thereunder partitioning locally erected trade barriers. ruled conflicts regulatory Cloverleaf Butter Patterson, 315 148, 786, 62 491, 86 754. cited support broad treatment subject bars supplemental action nature. apposite Act. dealt interstate commerce making originating carrier liable holder bill lading caused property. section through nonoriginating damages penalty occurring another line. pertinent 595, 7, expressed controlling policy commerce. warehouses. area conferred 'shall respect securing license' pages 224 233, 1148, 1149, 1153, 52 distinct willful State.' proscribe activity creating statutory administrative regulation. is, consequently, upset coinciding plan.2 circumstances reads void acts.3 Marshall 53 interfere penal sole object country, very measure, supposed adopt lightly, inconsiderately. deliberately, intention unequivocally expressed.' Cohens Commonwealth Virginia, 264, 443, 257. 54 apparent since keenly aware magnitude existing validly mandate Congress.4 55 agree character indicate action. 56 Secondly, touch 'in dominant' subject. concept suggested comment 581, Davidowitz alien registration. teach nothing provided integrated aliens' (with fingerprinting, scheduling activities, continuous residence), bore relations evident system.5 57 look provision incitements Nation, either.6 Such carries, think, dominancy powers attributed affairs coinage, example.7 governments themselves 'dominant interest.' wherein reside dependent strength liberties. Both enact mutual protection unless provided. 287. keep permitting Minnesota interfered enlistments (id., 326, 125), though identical 553. understand majority. alternatively 331, 127. unlawful advocate enlist States.' contended, 327—328, 126, "conferred withheld States." contention, saying: 58 'An army, course, raised Congress; regulate restrain exertion baleful influences promptings patriotic duty detriment welfare nation state. usurp power; render service people, *.' Id., 330—331, 127.8 Thirdly, finds ground abrogating Pennsylvania's antisedition because, Court's view, State's hamper Quotations inserted statements Roosevelt Hoover, Investigation, reading quotations leads conclude gain prompt knowledge evidence could advised. suggestion source officials alert ferret subversion. attitude seems Legislative Executive Departments. advised kept current spread.9 No declaration exclusiveness followed. every appears brief Justice, curiae. summarizes point: 60 course fifteen existed side side, embarrassed, impeded significance absence appreciated realized period included stress wartime principal regional leaders.'10 30—31. Mere fear possible seem valid ousting Those determination. Finally, point decisive, reversing Title Code, codifies laws. Section 3231 provides: 'Nothing title away impair thereof.' That springs recognizes maintenance fairness rests first 1825 successively time.11 interpreted explicit contrary. Sexton People California, 189 319, 324—325, 543, 545, 833. majority's position reconciled authorization Congress. stands governments. Freedom speech allows full play processes reason. bodies legislated allow widest participation respective told powerless nominally Courts interfere. reverse Pennsylvania. Pa.Penal Purdon Pa.Stat.Ann. text set Appendix 510, 484. constitutionality (c) basis four counts twelve-count indictment, punishes utterances '(intended to) contempt.' Winters York, 333 507, 665, 840. strangely reminiscent 1798, 596, 'with defame house Congress, President, bring contempt disrepute; excite good people 377 Pa. 104 133. 69, 139. 670. (Another punishing mutiny, 2387, 2387.) 'No upheld Gitlow 1925, 268 652, 625, 69 1138, Whitney 1927, 274 357, 641, 71 1095.' 73—74, 141. judgments rendered 1920, repeal 1918, 1359, and, considered opinions. 'Nor stripped self-defense suspension entry field. books adequate coping effectively threatened civil disturbances. nationwide citizens, imbedded type interdicted act, are—all us—protected efficient consistent respects.' 70, 127, went observe: '* knew conditions existed, solicitude peace, record justifies Gilbert's remarks meeting. They resented auditors. protesting interruptions, accusations threats him, disorder, intimations violence. uncommon experience. On occasions feeling usually runs high impetuous; prompting once yielded quelled, tragedies enacted. result proper state.' 332, Petitioner subsidiary 3231, shows supersede 18. district original offenses office second sentence merely effect grant sentence. resolve questions Section. Appendix, Voorhis passed codified 2386, Foreign Agents Registration 1938, 611 et seq., seq. 781 782(3, 4). 786. 787. 794(a). §§ 784, 785, 789, 790. (1955 Supp.) 841, 841. 843. 782 (4A). worth observing providing III commonly I. II deportation aliens. involve Titles III, manifestly desire 781(15), 781(15). Mesarosh (Nelson), 116 F.Supp. 345, affirmed, Cir., 223 F.2d 449, certiorari granted, 922, 218. 76, A.2d, 142. Public Papers Addresses Franklin D. Roosevelt, 1939 Volume, pp. 478—479 (1941). Proceedings, p. 23. 74—75, E.g., compare Fla.Stat.1953, 876.02, F.S.A.: who—* (5) Becomes associated promotes anarchistic, communistic, nazi-istic fascistic organization, (s)hall felony *,' 783(f), 783(f): 'Neither constitute per se subsection (a) statute. 787 788 received statute.' Garner Teamsters, Chauffeurs Helpers Local Union, 776, 346 485, 490—491, 74 161, 166, 98 228. Grant, Lanza Rule Successive Prosecutions, Col.L.Rev. 1309. exists case. 500, 479, last paragraph, 509, 382, 142, 314; Federalist, 32. statement 44—45, 19. Hunt, Supremacy Anti-Subversive Legislation, Mich.L.Rev. 407, 427—428; Note, 83, 90. 328—333, 126—128, 287; Reid Colorado, 187 137, 92, 96, 108; Sinnot Davenport, 227, 243, 243; 432—435, 213. Forty-two along Hawaii, penalize Digest Record Communism (Fund Republic, 1955) 266 306. hearings House Judiciary Committee proposed witnesses references Hearings Subcommittee 3, Judiciary, Representatives, H.R. 5138, 76th Cong., 1st Sess., 83—85. Similar heard debates. 84 Cong.Rec. 10452. fact, patterned York Criminal Anarchy Statute, Law, McK.Consol.Laws, c. 40, 160 86, 133, 147. supra, 654—655, 626, 1138. Further notice found S.Rep. 1358, 81st 2d 9; H.R.Rep. 2980, 2; 25—46 (Un-American Activities Committee). Harv.L.Rev. 1419, 1420; Cornell L.Rev. 130, Allen-Bradley 1111, Electrical Radio Machine Workers America Wisconsin Employment Relations Board, 740, 749, 820, 825, 1154, 'In impact relations. delicacy issues posed alone grave allowing function alongside system. 'concurrent exist restricted narrowest limits'. 68, ready touched international exercising historic traditionally safety streets highways.' distinguishable grounds. Alien related undesirable conduct; consequently imperative enforcement. 102 Pa.L.Rev., 1091. considerable history behind suggests trying overburdening aliens; features expressly rejected 71—73, 406—407. Minn.L.Rev. noted great real served Boston U.L.Rev. 514, 517—518. entering treaties 953, 953 correspondence intercourse relation disputes controversies crimes. Dennis 341 494, 508—510, 857, 866—868, 95 1137. believe principle strictly exclusive, relations.' Albertson Millard, 106 635, 641. Brandeis, dissenting, emphasized ruling here applicable thus: 'Congress legislate army navy determine, among things, enlistment. express direction war vested necessarily authorized Here subject; exercised Espionage spoke words sentenced. treason indirectly vitally. arrogate pacifism legislature put category.' 336—343, 129. note 4, supra. added, 31: recently informed attorneys cooperation interest. Times, Sept. 1955, 19.' 115, 122—123; (Historical Revision Notes).

Category: 2