Document: 374 U.S. 109 83 S.Ct. 1828 10 L.Ed.2d 778 Edward YELLIN, Petitioner,v.UNITED STATES. No. 35. Reargued Dec. 6, 1962. Decided June 17, 1963. [Syllabus from pages 109-110 intentionally omitted] Victor Rabinowitz, New York City, for petitioner. Archibald Cox, Solicitor Gen., respondent. Mr. Chief Justice WARREN delivered the opinion of Court. 1 This contempt Congress case, stemming investigations conducted by House Committee on Un-American Activities, involves, among others, questions whether Activities failed to comply with its rules and such a failure excused petitioner's refusal answer Committee's questions. 2 Petitioner Yellin was indicted in Northern District Indiana five counts willfully refusing put him Subcommittee (hereafter Committee) at public hearing. He convicted, under U.S.C. § 192, four counts. sentenced concurrent terms imprisonment, each one year, fined $250. The Court Appeals Seventh Circuit affirmed. 7 Cir., 287 F.2d 292. Since case presented constitutional continuing importance, we granted certiorari. 368 816, 82 84, 23. However, because view take action, which variance rules, do not reach raised.1 3 factual setting is most part dispute. engaged, 1958, an investigation so-called colonization Communist Party basic industry. One inquiries forcused upon steel industry Gary, Indiana, where petitioner employed. Having information that Communist, decided call question rather than executive session. then subpoenaed January 23, 1958. His attorney, sent telegram general counsel, Tavenner, Thursday, February asked session 'testimony needed legislative * purposes can be secured without exposing witnesses publicity.' Tavenner had left Washington, D.C., answered Staff Director. reply read: 4 'Reurtel (Re your telegram?) requesting lieu open Nicholas Busic. Your request denied. 5 'Richard Arens Director' 6 According Congressman Walter, Chairman Committee, did have authority action. Petitioner's counsel also sought bring matter attention when it commenced hearing following Monday, 10, efforts telegrams read into record were cut short Walter.2 Rabinowitz would been justified continuing, since permit only advise witness, engage oral argument Committee. Rule VII(B). In any event, Walter interested discussing content telegrams. From his sometimes conflicting testimony trial, appears he even know what said.3 And though said consider make record, whatever action taken knowledge telegrams' contents.4 8 It against this background own must judged. has long settled, course, committees are judicially cognizable. Christoffel v. United States, 338 69 1447, 93 L.Ed. 1826; States Smith, 286 52 475, 76 954; Ballin, 144 1, 12 507, 36 321. committee held observance supra, just as, more frequently, agencies been. See, e.g., Vitarelli Seaton, 359 535, 79 968, 1012; Service Dulles, 354 363, 77 1152, 1403. 9 particular involved, IV, provides part: 'IV—Executive Public Hearings: 11 'A—Executive: '(1) If majority or Subcommittee, duly appointed as provided Representatives, believes interrogation witness might endanger national security unjustly injure reputation, reputation other individuals, shall interrogate Executive Session purpose determining necessity advisability conducting thereafter 13 'B—Public 14 All hearings public.' (Emphasis added.) 15 rule quite explicit requiring injury witness' considered, along danger third parties, deciding hold 16 At threshold met IV written provide guidance alone designed confer right act, either own, according standards set forth rule. seems clear, structure practice, case. 17 few number brief—all little six record. Yet throughout dominant theme definition rights privileges. II requires subject announced 'relevant germane subject.' III 'a reasonably sufficient time advance' allow them chance prepare employ counsel. VI makes available transcript testimony—though expense. VII gives every privilege having during VIII reasonable get if original removed rules. X detailed provision those persons who named subversive, Fascist, etc., another witness. Such given opportunity present rebuttal 'accorded same privileges appearing before Committee.' XIII permits keep out range television cameras. Finally, XVII 'shall furnished' copy these work benefit. They show instances intended assure fair treatment, viz., advice protection undue publicity, photographed providing protective import. being protected, logical person enforce protections himself. 18 practice reinforces conclusion. testified 'always' gave due consideration requests sessions.5 Weight should construing 33, 477, 954. That entertained, always does entertain, sessions conclusion give individual some protect reputation. 19 acknowledged, complete protection. may required avoid unjust Assuming decides session, need so 'for hearing.' By inclusion word 'necessity' contemplate cases will proceed despite risk probability reputation.6 20 questioned public, after held, mean, however, freed considering possible least undertaken it, discretion nevertheless decide two respects carry undertaking Yellin's 21 First, appear Walter's considered calling session: 22 'Q. (By RABINOWITZ) sessions, doesn't it? 23 'A. WALTER) Yes. 24 considerations uses sessions? 25 usually fearful lest mention name somebody whom there no sworn testimony, order prevent mentioned sure active conspiracy, isn't effect, 26 Are circumstances held? 27 I don't other, except adduced could harmful defense. We about witnesses.' 28 admission, holds three specified i.e., party security. Injury himself factor. Consequently initial decision publicly, made serving subpoena, IV. 29 Secondly, act express session.7 Director, lacked so, acted stead. addressed alter specify addressed. But inferred appropriate addressee. IX, file prepared statements 'counsel parties A person, notified named, feels adversely affected directed '(c) ommunicate As footnote rule, said: 'All invited investigators prior hearings.' Also noted Director's telegraphed response misleading appearance finality. now allowed say disregarded received Chairman's staff instead renewed Chairman, 'this happened'—especially tried brusquely off. 30 Thus exercise discretiion considered. position similar ex rel. Accardi Shaughnessy, 347 260, 74 499, 98 681. ordered deported. Concededly valid. applied Board Immigration suspension order. This, Attorney General, permitted 19(c) Act 1917, 39 Stat. 889, amended, (1946 ed., Supp. V) 155(c). (The successor section 1952 244, 66 214, s 1254.) General regulation final decisions applications discretionary relief, certain exceptions involved Accardi's Shortly appealed Board, published list 'unsavory characters,' including petitioner, claimed knew list, full delegated it. Its predetermined. 31 General's regulations. Although recognized well lose, ignored unsavory characters, nonetheless 32 result obtain bar. prevail, takes note entitled follow adopted 33 point, similarity ends. traditional remedy, writ habeas corpus relied, redress loss rights. ignores highly improbable injunction exposure. See Pauling Eastland, U.S.App.D.C. 342, 288 126, cert. denied, 364 900, 81 233, 194. Nor administrative remedy pursue fail To publicly seek answer. For thing, cause seeks avoid; pain perjury, cannot artful dissimulation evade revealing wishes remain confidential. another, recover damages, U.S.Const., Art. I, 6; Kilbourn Thompson, 103 168, 201—205, 377. Cf. Tenney Brandhove, 341 367, 377, 71 783, 788, 95 1019. Even Fifth Amendment protection, many things discredit subjecting criminal prosecution. avenue actually took. refused testify. 34 last obstacle, Government argues forfeited clear testify based departure Whatever merits immediately apparent deviations involved,8 application here. unable, hearing, tell actions violated. So far knew, Director agent, announcing results deliberations. initially accordance until attorney first searching examination, became violating 35 assumed expressly rested violation proceeded, acquittal, able prove Otherwise, convicted notwithstanding deprived protecting Certainly created illusory. Of mistaken but good-faith belief violated, mistake law Watkins 178, 208, 1173, 1189, 1273; Sinclair 279 263, 299, 49 268, 273, 73 692. submit correctness court law. 37 judicial review discovers trial especially leads misplaced reliance When reading distributed XVII, expectation purports do, adhere foreclose defense simply deceived regularity, fair. groundwork prosecution meticulously. too exacting require equally meticulous obeying 38 Reversed. WHITE, CLARK, HARLAN STEWART join, dissenting. 40 stands refused, 192,1 Representatives. year count, sentences run concurrently, fine affirmed unanimously, 41 Pursuant Representatives Rules XI2 XII,3 resolved inquire activities industry.4 Gary Four days responded day denied request. 42 appeared date began proceedings above-quoted resolution stating further inquiry.5 organizer high official 1930 1950, begun policy infiltrating industry, 'colonizers' coordinate industries, collonizers mainly young men colleges universities. These colonizers, continued, misrepresent their backgrounds applying jobs conceal educational qualifications gain alongside less-educated workers casting suspicion motives. 43 Petitioner, all foregoing, called second thereafter. After answering preliminary address requested exchange concerning question: 44 'Mr. Yellin, you reside September 1957?' (Count 1.) 45 conferring question. cited Sweezy Hampshire, 234, 1203, 1311, asserted congressional investigate areas protected First personal conscience, authorizing unduly vague resulting denial process pertinent legislation. specifically disclaimed self-incrimination. indicate pertinency question, stated learn anything regarding area, necessary over period time. statement, again grounds above stated. 46 state formal education student College City York, and, answer, added: refuse already stated; occurs me knows things, can't see asking they known fact. Furthermore, kind line questioning merely trying create impression expose sake leading valid purpose.' response, stated: 'I farthest intention anybody committee, never, mere exposing, question.' 47 thereupon evidence copies college records showing transferred University Michigan 1948 employment mill 1949. continued unproductive questioning, asked: 48 'Will please, incidents came unions 2.) Following undertook explain question.6 Again declined reasons given. vein, good two: 50 'Were member 23d 1949, filed Gary?' 3.) 51 1957 colonizers Party?' 4.) various called, Joseph E. LaFleur joined 1942 Federal Bureau Investigation worked mills times inquiry. identified participated organizing Gary. 53 Upon report recommendation designated count numbers. sole government find how serious propaganda infiltration particularly wanted subject, stated, amend Acts fact, members introduce several bills around hearings.7 Prior while Michigan, disclosing employed 54 Counsel emphasized summoned hope cooperate believed witnesses. 'We nothing actual plants shortly LaFleur, (at hearings), my recollection got 1950. people, University, come down Gary.'8 55 With respect follows: 56 Rabinowitz.) Then why session? 57 Counsel.) membership, recommended—I this—I recommended asked, heard 58 Why not? 59 Because information, to. 60 You Party? 61 62 Many years before? 63 64 didn't still was? 65 told me, now, man considerable wants give, involves ought thoroughly investigated certainly never indicated willing anything. though, I? 67 way giving testimony. 68 feel advisable My sitting side, beginning offer suggestion character investigating telling truth, not.' 70 Representative Pennsylvania, recall, opening pointed departed arrived. neither nor pass raised 'it late raise telegram.' explain, 'Well, passed hear discussed, applicable investigator—and Collins, former F.B.I. developed entire matter, accept story proposed testimony.' Collins' story, 'that Communist; international employer; furthermore, within category people experiencing great deal difficulty finding colonization.' 'didn't inform contends telegrams,' him, acknowledged interrupted function solely explained: 'This done aware worth occasionally very pleasantly surprised us value drafting legislation.' 72 challenge conviction predicated upon, matters,9 claim improperly one. I. ground private entitled, stage, rely alleged apply him. courts repeatedly objection relied committee. Bryan, 339 323, 332—333, 724, 731, 94 884; Fleischman, 349, 352, 739, 741, 906; Barenblatt 360 109, 123—125, 1081, 1091—1092, 1115; McPhaul 372, 138, 136; Eisler 315, 170 273; Hartman 290 460 (C.A.9th Cir.); Kamin, 136 F.Supp. 791. technical quibble, compelling pursued serves administration justice objections seasonably errors corrected earliest court, Wigmore (3d ed. 1940) 18, 322, objecting afford claim. 'The withholding helpful (hearing). prevents correction error profits concealed defect exploit.' 344, 737 (concurring opinion). Accordingly, damage demanding decent (he) (his) *. deny itself obstruction processes.' Id., 731. 75 There telegram10 substantial demand contains unsupported who, knowing extent direction investigation, insists founded, assertions light facts potential Indeed, difficult understand request, anticipated unlikely like employee working irrespective affiliation relate observed work. Question, ante, p. 129. Moreover, wire grant entirely unfamiliar contents Wire. occurred time, margin,11 hardly construed sure, off immediately, terminating discussion making counsel's argue help so. up ensuing reveals,12 principally grounded IV—A, 78 More once took pains ascertain precise occasion expanded enlarged IV—A injured Quite contrary, point 'see fact purpose,' assured inquired: 'And ask you: What mean you? Exposing what?' unresponsive. exposed launched academic freedom. loyalty questioned,' 'Isn't best place clarify atmosphere? am eliminate anybody's mind, mine, activities?' decline discuss invitation manner testifying public. sifted bona fide assertion ground, consistently sweep away much established practical significance. central thesis repeated responding Amendment. firmly clearly difference willingness 80 situation 884, connection There, her produce excusable quorum present, unavailable she 'Testimonial compulsion intensely matter. (T)he respondent is, estimation, immaterial one, shown failing records. She deny, perfectly complied subpoenas constituted time.' Explaining analogous Hale Henkel, 201 43, 370, 652, Bryan Hale, 'having compliance lower later complain meaningless act—to additional gather papers event. Here (Bryan) go through empty formality summoning solemn conclave honor demands.' 334, 732.13 represented experienced believe supporting reasons. Rather, likely preferred include seeking exposure's sake. 187, 200, 1185, 1311; NAACP Alabama Patterson, 357 449, 1163, 1488. weakened destroyed plainly intact. diligence relaxed here deliberating private. standing acted, matters direct explanation correction, suffer reputational interest Compare 1273, specific sustained vigorously obliged demands Quinn 349 155, 668, 99 964. surely reciprocal obligation silence. II. not, contends, 84 Article 5, cl. 2, Constitution 'Each determine Proceedings.' role play adjudicating involving house limited chooses business ordinarily raises justiciable controversy. Field Clark, 143 649, 495, 294; 321; Leser Garnett, 258 130, 137, 217, 505; cf. Flint Stone Tracy Co., 220 107, 143, 345, 389. construction directly affects house, 'the one.' 478, 1826. controversy presented, narrow 'With power. constitution empowers proceedings. ignore restraints violate fundamental rights, relation between mode method proceeding attained. limitations determination impeachment better, accurate just.' 509; supra. 85 pursuant enabling resolutions rule-making power, promulgated procedure, issue here: 86 87 88 89 '(2) Attendance Sessions Members staff, whose presence requested, consented 90 '(3) kept secret released used approval 91 benefit 'interrogation reputation' individuals. contention wholly substance. 92 understanding implicate reliable held. afforded 'might individuals.' otherwise closed adequate individuals mention, 'unjustly injured' verified 'Certainly,' testified, operates testifying. Opinion Court, 116, n. 5. both effect. furnished reliable. Measured plain proof back asked. 'unjust injury' Yellin. Publicly interrogating foundation rests rumor falls area revelation truth not. foregoing placed true generally entering holding 'usually' considerations. remark best, ambiguous supplemented previous decision, appraisal indication persons. underlying peculiar view, adequate, therefore urges, element determined While doubt our resolve presumption favor applies courts, houses Congress, acting authority.' Barry el. Cunningham, 597, 619, 452, 457, 867. McGrain Daugherty, 273 135, 179—180, 319, 330, 580; re Chapman, 166 661, 670, 677, 680, 1154. 378, 789, Due regard branch considerably clearer offered long-time 96 weight. 'To (Congress) different delicate power.' 48, 483. Here, deem brought pursuance purpose. bizarre, irrational keeping history prefer XI(m), which, contrasted Revised Statutes, 193 '(n)o privileged tend disgrace render infamous.' problems inhere statute, heralds break tradition affording privacy fishing expedition inquiry permitting unvarnished truth. commits (House) power rules; better.' 97 substance erroneously telegraphic Under motion, transmitted, prejudice disregarding totally secret, room complaint deliberated Once assessment, here, discharged imposed. III. '(t)estimonial matter' '(e)very exemption producing thus presupposes real protected,' U.S., 332, S.Ct., really beside point. questions, constituting separate indictment. found guilty counts, concurrently. stand unjustified. Claassen 142 140, 147, 169, 170, 966; Hirabayashi 320 81, 85, 1375, 1378, 1774; 115, 1087, 1115. was: respond obvious probably lead' disclaiming grounds. Count independently indeed ascribe reality compelled, pursuit purpose, residence Oversight procedures frivolous 100 support, dissent. infringed unconstitutionally statute. addition, judge erred excluding expert factors interrupted. RABINOWITZ. (Mr. Tavenner), wonder myself witness's CHAIRMAN. Go ahead. appear. care want occurred. increase revenue company. Well, whatver reason was, otherwise, May state— Do bother. often enough. anybody. ahead, Tavenner.' Consider, example, Walter: telegrams, weren't sufficiently talking about; right? exactly that, Rabinowitz. knowing. How that? telegram; least, that's started talk about. hearing? Isn't about? today. seen actually. them, haven't minute.' added). testimony: sent, Later think less nature postpone, grounds, Committee; impressed it.' Rabinowitz' examination you, would? clear; reached properly made. Didn't testify, Congressman, minutes ago, stand, stand? That's right. discussed whole hearings, said? them? *' 'But wasn't been? communicated Washington consideration—we have, do—we today.' 'sure happened, Rabinowitz) me.' Note Tavenner: (Rule IV) operate ever called? Certainly.' Although, later, realized that: story? '(b)ecause to.' knowledge, concluded suffer. appropriate. Any untimely accepted. intervened service subpoena delivery offices Washington. significance Gyurko, strict standard timeliness urged. Gyurko noon Saturday, 8, Tuesday, 11, expressed deliberately waited hours Saturday send even-handedly eleventh hour requests, plead untimeliness process, asks lose fails timely objection. Deutch 367 456, 468 469, 1587, 1593—1594, 963; 123—124, 1091, 214—215, 1193, 1273. rejected objection, 379, 142, 460, 467. 'Every House, joint Houses default, appeared, refuses inquiry, deemed misdemeanor, punishable $1,000 $100 imprisonment common jail month twelve months.' 'Rule XI 'Powers Duties Committees '(q) (1) Activities. '(A) activities. subcommittee, authorized (i) extent, character, objects un-American (ii) diffusion subversive instigated foreign countries domestic origin attacks principle form guaranteed Constitution, (iii) thereto aid remedial (or Clerk session) together recommendations deems advisable. 'For subcommittee thereof, sit places sitting, recessed, adjourned, attendance production books, papers, documents, necessary. Subpenas issued signature chairman chairman, served member.' XII 'Legislative Standing 'Sec. 136. assist appraising laws developing amendments related legislation necessary, Senate continuous watchfulness execution concerned laws, jurisdiction committee; study reports data submitted Government.' enumerated inquiry: '1. use Section H.R. 9352, relating amendment Control 1954, prescribing penalty knowingly becoming remaining objective adding overall informed enact internal exigencies '2. Execution Law 637, 83d (68 775) 'Communist 1954,' eligibility National Labor Relations labor organizations Subversive Communist-infiltrated organizations. 1954 require. '3. conduct designate.' 'Under provisions 601, 79th (60 812), investigative duties duty exercising framework broad objectives, receiving techniques tactics industries. importance standpoint security, overemphasized. Without impossible Congress. 'In mandate constant surveillance existing legislation, constantly surveying operation Internal Security Foreign Agents Registration Act, espionage statutes, administered recommending amendments. carried recently formulated Omnibus Bill, represents comprehensive effort field bill combines numerous proposals empowering combat aspects conspiracy dealt adequately laws. obtained assistance bill. desirous obtaining willingly thereof.' 'It middle courses deep-seated plan strengthen chairman's statement industries colonizing Flint, Michigan; Colorado, Fort Colorado (sic), reside; places. operations fully practices, methods connective reasoning 2369, 86th Cong., 1st Sess., sponsored redefine 'organize' Smith Act; 3693, introduced Scherer, guard strategic facilities espionage, sabotage subversion; 85th omnibus 1950; 8121, 2d program contractors employees. . (W)ill had, hoped get? stating, University. City; plants. made, steel, companies 'Now, felt position, infiltrate building grass roots level, plans bright leaders thing colonizing. in, correct single identified—who identified—as colonizer mentioned, admitted colonizer.' questions: Did securing answers indictment outweigh free ideas? (2) Was thereof? (3) err proffered balancing interests? (4) statute vague? (5) Were formed basis Counts support indictment? (6) shown, proper issuing petitioner? 'Undersigned On behalf Testimony publicity. Rabinowitz.' TAVENNER. Will sir. YELLIN. accompanying please identify record? York. Where born, Yellin? July 1927, Bronx, reside? Colorado. SCHERER. Where? lived Colorado? '57. '50? to— Counsel, 'Go 1957? '(The conferred counsel.) words Just let lead freedom beliefs, then: privilege— Tavenner? 1957. honestly confronted prosecution, that. mean? are? are— ahead.' Loubriel 807, 808: shifts subterfuges powerless end trifling. themselves incapable dealing actualities surer sign feeble fumbling timidity penetrating substance.'

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