Document: 377 U.S. 95 84 S.Ct. 1082 12 L.Ed.2d 152 UNITED STATES, Appellant,v.William C. WELDEN. No. 235. Argued Feb. 27, 1964. Decided April 20, Irwin A. Seibel, Washington, D.C., for appellant. George H. Lewald, Boston, Mass., appellee. Mr. Justice GOLDBERG delivered the opinion of Court. 1 This appeal presents question whether a person who has testified under subpoena before congressional committee investigating operation Antitrust Acts in 'proceeding, suit, or prosecution said Acts' thereby acquiring immunity from Act February 25, 1903, 32 Stat. 854, 904.1 2 The facts are undisputed. On September 6, 1962, appellee, along with other individuals and corporations, was indicted on charges conspiring to fix milk prices defraud United States, violation § Sherman Act, 26 209, as amended, 15 U.S.C. 1, Conspiracy 62 701, 18 371. Appellee moved dismiss indictment ground, inter alia, that barred provision because he had previously subcommittee House Select Committee Small Business concerning matters covered by indictment. Government opposed motion contending extends only judicial proceedings not hearings committees.2 District Court Massachusetts, rejecting Government's contention, dismissed against appealed dismissal directly this pursuant Criminal Appeals 844, 3731. Probable jurisdiction noted. 375 809, 63, 11 46. 3 We hold, reasons stated below, applies persons testifying proceedings, committees subcommittees Congress. 4 enacted part an appropriations act which declared: 5 'That enforcement provisions entitled 'An regulate commerce,' approved fourth, eighteen hundred eighty-seven, all amendatory thereof supplemental thereto, protect trade commerce unlawful restraints monopolies,' July second, ninety, sections seventy-three, seventy-four, seventy-five, seventy-six reduce taxation, provide revenue Government, purposes,' August twenty-seventh, ninety-four, sum five thousand dollars, be immediately available, is hereby appropriated, out any money Treasury heretofore expended direction Attorney-General employment special counsel agents Department conduct suits, prosecutions courts States: Provided, That no shall prosecuted subjected penalty forfeiture account transaction, matter, thing may testify produce evidence, documentary otherwise, proceeding, * *' 903—904. (Emphasis added.) 6 By common-sense reading statute, words ' ny proviso plainly refer phrase 'proceedings, States,' previous clause. 'under confirmed limited brought 'under' specific existing acts, such Commerce Act. Congressional investigations, although they relate generally so restricted purpose scope spoken being these Acts.3 7 In Hale v. Henkel, 201 43, 370, 50 L.Ed. 652 decided three years after passage construed accordance plain meaning its follows: 8 'While there some doubt examination witnesses grand jury suit prosecution, we have it 'proceeding' within proviso. word should receive wide construction necessary witness his disclosures, whenever disclosures made pursuance inquiry, inquiry instituted jury, upon trial found them.' Id., at 66, 375, 652. 9 conclude, therefore, proceedings.4 10 does really dispute this. His basic accepted member Court,5 1906 statute6 amended extend nonjudicial well proceedings. He contend terms, 1903 offers following interpretation events leading up enactment statute support contention implication case States Armour & Co., 142 F. 808, Northern Illinois held certain defendants been immunized Laws giving unsubpoenaed unsworn testimony investigation conducted Commissioner Corporations,7 official Labor.8 reaction decision immediate adverse, four months Congress statute.9 specifically statutes oath obedience subpoena.10 contends enacting remedy objectionable features decision, since did 'remedy' court's holding could obtained follows regard objectionable. asks us used must now read include argument erroneously assumes rested prosecution' 1903. A reveals, however, primarily Labor contained grant admittedly nonjudicial, Corporations.11 deciding case, court felt 'necessary look into purp ses passing labor order determine what will best carry legislative intent.' 819. After detailed analysis history, concluded dispositive were thereunder. Following conclusion, judge added brief paragraph said, without analyzing (or even quoting) language history 'of opinion' would also well. 826.12 very next paragraph, again described resting 'the here given law *.' Ibid. controversial feature one interested remedying, came purposes wanted anticipating immunize themselves volunteering give testimony.13 There nothing about result Corporations, granted investigation. 13 It significant, Congress, while 'remedying' voluntary, investigations Corporations. 14 manifest intent enlarge reach define type proceeding thich immunity, statutes, obtained. Its sole asked do President Theodore Roosevelt message recommending legislation became statute. said: 'It hitherto supposed conferred laws who, subpoenaed, produced evidence *. 16 'But Judge Humphrey (the district case) holds if Corporations (and therefore Interstate Commission), course prescribed questions person, called witness, officer corporation, action corporation subject subsequently arise, then fact having operates bar own misdeeds. Such comes measurably near making farce, I recommend pass declaratory stating real intention.' H.R.Doc. 706, 59th Cong., 1st Sess. 17 apparent response Senator Knox, manager bill Act,14 statement Daniel, ritic legislation. Daniel 'I suppose consideration reads those responding body right enforce answer witness.15 19 like much hear patron present state benefits derived bill.' Knox responded 20 'Mr. President, clear, range broad. intended cover disputed rights circumstances, except enumerated itself. 21 whole thought defined read, say, but say more clearly emphatically, subpoenaed books papers testimony. essence lies 18, 19, page 2, provisions—only interstate act, general citizen enjoys merely relation two great bureaus Government—'shall natural person.' is, benefit provisions, they—shall subpoena, produces oath.' 40 Cong.Rec. 7657—7658.16 22 Monia, 317 424, 429—430, 63 409, 411, 412, 87 376, recognized purpose' limit 'who, oath,' appropriate 'Government officials,' rather than private citizens indictment.17 23 not, either expressly implicitly, simply subpoena. 24 Our today based solely relevant enactments. extended careful safeguards, situations involved.18 Where done here, immunity. 25 erred, appellee's him prosecution. judgment dismissing reversed remanded conformity opinion. ordered. Judgment remanded. 27 BLACK, whom DOUGLAS joins, dissenting. 28 appellee conspiracy1 Act2 shortly appeared alleged ground Anti-trust Immunity 1903,3 1906.4 provides: 29 '* (n)o (Interstate Antitrust5) 30 application 'only gives 'applies proceedings.' narrow grudging my judgment, justified 31 appears find comfort Act's appropriating funds Attorney General 'to Antitrust) States.' itself appended appropriation 'Provided.' But utilized vehicle substantive form 'Provided' separate dis inct enactment, program aid compelling broad statutory promise Government.6 complete itself, independent provision. fact, provision, codification 32, dropped altogether, majority's effort provision's strained. Therefore 1906, unless decree—stands lasting obligation testifies 'in 'suit, Acts.' 'proceeding,' enough federal agency antitrust violations. historical setting shows, think, beyond shadow doubt, deliberately chosen violations investigatory agencies wholly nonjudicial. During month passed including rovisions established (an Labor) powers possessed Commission. 825, 828. See 847, 848. Soon passed, officers Company voluntarily company later 1905, 808 (D.C.N.D.Ill.), directed verdict individual gave both question) supra. As applicability us, 33 'If 14, establishing Labor, allows conditions urged government, viz., resisted until regularly sworn, can fairly clause contended unconditional am entitled.'7 34 latter cannot dismissed, tempts do, calling 'dictum.' 35 subsequent treatment supports Humphrey's only. caused concern their though put oath. prompted send requesting respect. President's showed want take away oath—that compelled testify. Showing objection holding, told Congress: 36 necessary, Constitution laws, prosecution.'8 37 Without attempting kinds earn promised followed suggestion provided 1966 amendment apply thorough scrutiny agreeing Roosevelt, move change flatly applied 'judicial And unnoticed, Congressman Littlefield, presented Representatives General's request House: 38 'Perhaps ought that, largely ruling relating commerce, Commission nor creating Bureau probably resolution $500,000, loosely drawn authorized decision; controlled conclusion appropriation, was, broader interstate-commerce Labor.'9 39 Senate debate amendment, expressed understanding questioned: witness.'10 41 Senate, thereupon explained detail, never contradicting point. Neither suggested altering proceedings—none, ever questioned it—because inferred, orrectly almost identifical earlier.11 42 From day seems doubted correct. 1942 obviously same way 376. Monia another claimed inquiring laws. fully considered majority Roberts dissenting Frankfurther. Not intimation only, opinions went precisely opposite assumption. asserted Fifth Amendment privilege himself, speaking treated covering 'proceedings' 1893,12 Moreover, dissent Frankfurter referred length various governmental Securities Act,13 Public Utility Holding Motor Carrier Act,15 Fair Standards Act,16 others. 431, Surely cited belief related bodies assumption whatever did, bodies, them matters. 43 time when fear often impossible obtain impeding friendly frustrate help them.17 Whether wise or, unwilling constitutionally legitimate18 means use seeking goal issue case. Wise unwise, solemn think keep, just keep Secretary Shotwell Mfg. Co. 371 341, 367, 83 448, 463, 357 (dissenting opinion). long hard strong reached, makes terms reasonable rely, seek doubts resolved favor taken word. Important believe be, important still room anyone promise, keeps it. Cf. Federal Power Comm'n Tuscarora Indian Nation, 362 99, 124, 80 543, 557, 584 44 affirm judgment. 45 DOUGLAS, BLACK concurs, 46 inclined construe harmony literal Court; nature modern committee. trial-nature argues strongly probing full glare today's hearing methods. 47 evolved, practice grave far liberties concerned. 'trials' witness; televised broadcast; orderal.1 problem deal concerns particular generalized 48 Courts enjoin questioning palpably unconstitutional bill. Nelson 93 U.S.App.D.C. 208 F.2d 505. courts, knowing manner operate, properly alert denying legal effect taking steps protective accused.2 U.S.App.D.C., 22, 513. reason why import ambiguities disadvantage accused. 49 view Welden trenching power proceed Legislative Reorganization 1946, 60 812, Rules Regulations House, Special Resolution. investigate administered need new Watkins 354 178, 187, 77 1173, 1179, 1273. allowable, were, pertained operating effective They repeatedly exposes exposure's sake 'conducted personal aggrandizement investigators 'punish' investigated (is) indefensible.' U.S., 117 , agency; entrusted Executive. Judiciary. Some elements 'fair' (Yellin 374 109, 1828, 778); constitutional requirements. First unable abridge freedom speech press, probe (cf. Rumely, 345 41, 73 97 770), publisher chose editorial policy another. Since make 'prohibiting free exercise' religion, enter field through minds go church confessional regularly, one, etc. Self-Incrimination Clause Amendment, refuse questions. Quinn 349 155, 75 668, 99 964; Emspak 190, 687, 997; Bart 219, 712, 1016. 51 limitations. 'The instance, compel whose avowed impeached, impeach. force decide guilt already treaty ratified, entrusts functions Senate. determining State New York determination reserved Legislature State.' Snee, Televising Hearings, Geo.L.J. (1953). 52 ways, fenced in. Yet tendency trench rights. Braden 365 81 584, 653; Wilkinson 399, 567, 633; Barenblatt 360 79 1081, 1115; Gibson Florida Comm., 372 539, 889, 929. committee, him. Today, invoke threshold minutely examined, apparently see how many times forced it.3 Hearings indeed become spectacle,4 succinctly experienced Chairman Operations, head Permanent Investigations, McClellan Arkansas: 53 'First let me primary actually legitimate purpose, flows opportunity disseminate information f value advantage public. Because public you premise it—upon fits Now position been, those, I'm sure, disagree me, hold Those opportunity, conveniently attend everything occurs—the press reporting occurs—radio produced—I good barring television. too media communication, sometimes most effective, witnessing occurred. So always present, radio coverage given, television privileges. lights distraction—I turned off observed where man fifth amendment. If he's card, light helps script card don't turn off.'5 54 'spectacles' bounds: 55 '1. publicity bears substantial Yet, constitutes restraint liberty witness. Hence exceeds bounds power; attempt so, fortiori punishment R.S. 102 (1875), 192 (1946 ed.) denial due process Amendment. 56 '2. creates atmosphere normally unfair guaranteed placed jeopardy. media, necessity, procedural Amendment.'6 57 Truman condemned kind. Kefauver 1951: 58 seriously trouble television, cameras 40,000,000 people less charged public, untrained evaluating presentation guilty charged. 59 negation process, acting prosecutor defense jury.'7 Alan Barth reviewed 'legislative trial': 61 carries sanctions severe order. begin with, unimpeded limitations; error committed 1930s judged 1950s—and allowance altered changed political climate. Defendants double triple jeopardy, tried different deed. punishments meted uninhibited sort criminal code. Persons convicted suffer imprisonment, likely subjected, addition loss reputation, black-listing effectively deny gaining livelihood.'8 goes say: serves distinct purposes: (1) punish criminal; (2) supposedly absence requisite conviction law; (3) drive trap suspected 'disloyalty' committing collateral crime perjury contempt proceeding.'9 Benjamin V. Cohen shown place our system: 64 'There excuse 'people's courts' totalitarian patterns. 65 'Legislative trials, Socrates, odious history. trials combine accused impartial influence partisanship, passion prejudice. trials. Let remember past justice tended degenerate mob injustice.'10 66 'trial' phenomenon Cain once 'running wild,' becoming 'victims wave emotion created, over control.'11 67 wisdom kind 'trial committee,' speak, prosecutors competing victims. awesome government ruin people, life, brand forever undesirable, deeper feel measures needed. speak power, read. incline freely runs gantlet 'tried' again. portion set forth infra, 96-97. concedes rules regulations resolution. H.Res. 51, 86th Sess., 105 1785. codified, 32. codification, positive law, eliminates June 30, 1904. change. 638, 204(a), declares Code establishes 'prima facie permanent titles text therein contained, Court, construing facie' prevail Statutes Large inconsistent.' Stephan 319 423, 426, 1135, 1137, 1490. Even 'change arrangement, portions originally single section separated regarded enactment. For inferred revising consolidating effect, intention expressed.' Fourco Glass Transmirra Corp., 353 222, 227, 787, 791, 786, quoting Anderson Pacific Coast S.S. 225 198 199, 626, 630, 1047. Certainly where, arrangement' codifier approval weight. (of law) recourse original themselves.' Murrell Western Union Tel. Cir., 160 788. Accordingly, Appropriations context entire 'arrangement' selected codifier. MR. JUSTICE post, 113, note 11. 9. reached acquittal. arose creation Departments Commerce. 'Be America assembled, Commission,' forth, eleventh, ninety-three, six establish Labor,' fourteenth, nineteen three, further foreign nations among nineteenth, legislative, executive, expenses fiscal year ending thirtieth, four, twenty-fifth, 798, 33. discussion 428—429, To Labor' part: 'In accomplish declared foregoing section, exercise authority respect joint stock companies combinations hereof, 'Act commerce' amendments thereto common carriers applicable, attendance production administer oaths. All requirements, obligations, liabilities, immunities imposed section.' 11, 1893, provides excused attending producing books, papers, tariffs, contracts, agreements documents Commission, signed issued Commissioners, cause growing entitled, required him, tend criminate forfeiture. matter thing, testify, them, proceeding: exempt testifying.' 443—444. Although Littlefield dictum version bill, 8738, intimate applicable applicable. contrary, sworn moreover, 'criminal by) *,' assure 'person offer behalf thereof.' 8739. language, context, seem inclaude members Committees H.R.Rep. 3797, Furthermore, assume arguendo hesitant accept failure overrule resulted implication. Amendments implication, repeals favored. Sutherland, Statutory Construction (3d 365—366 (citing cases). Jones Liberty 332 524, 534, 68 229, 234, 92 142: 'We expect affirmative every lower indulges erroneous interpretation. short, speaks louder action.' supra, 429, prevailed conference adopted. 5049, Daniel's supposition 'applies' amending reference, 9, 333 that: examined superseded 1954 745, 3486. ln* limiting correct suggesting little, any, commonly subpoenaed. involved investigation, officials' subordinates. designate officials, involved, infra. true opinion, raised claim self-incrimination co dition obtaining undisputed standardized types privileged standardize alter) 1954, 1. 904, 379, §§ 1—27, 41—43, 301—327, 1—7, Wilson Tariff 1894, 73—76, 509, 570, 8—11. identical 828, incorporating reference Compulsory Testimony 1893 443, 46, Elkins 3, 848, 41—43. 826. Message p. 2. 8738. 7657 (emphasis supplied). agree 'manifest Ante, 104. pointed above, enlargement; 'proceedings,' judicial. 74, 87, 77v(c). 803, 832, 79r. 550, 305(d). 1060, 1065, 209. 411—419. debated id., 989—990. Compare Ullmann 350 422, 440, 76 497, 507, 100 511 Respondent's Subcommittee Business, 2d Pt. IV, pp. 665—700. analogous instances alertness pretrial publicity, Irvin Dowd, 366 717, 1639, 751; Rideau Louisiana, 373 723, 1417, 663. Administration Financial Interests Officers Employees 88th 1337 1363 (Robert G. Baker); Improper Activities Management Field, 85th 1511—1578, 1654—1684, 2038—2047, 2374—2405 (Dave Beck); Beck 369 541, 583—587, 82 955, 977—979, 98 Barth, Investigation (1955), 81; Rogge, (1960), 204; American Bar Association, Report Investigations (1954). Metropolitan Broadcasting, 'Opinion Capital,' Interview John McClellan, March Kefauver, 9777 et seq. White Press Release, quoted Chicago Daily News, 1951, 49, col. 5, Magee A1145: televising Of cases develop lurid obscene unfit print. air waves. Many despair viewed bad timid face small courtroom spectators; worse knew she spied addicts Nation. conducive clear expression. thi needless procedure. idea inane repulsive. bring low level esteem. dignity memory sacred portals testing future Faye Emersons Jimmie Durantes.' Gossett, TV, A.B.A.J. (1952); Yesawich, Broadcasting Trials, Cornell L.Q. 701 Arnold, Mob Television, Fed.Com.B.J. (1951); Klots, Trial Harper's, October 90; Rep.A.B.A., 607 (1952). Telecasting broadcasting banned House. 1334—1335, 1443, 1567—1571, 1689 1691, 1949—1952, 5394—5395, A1152—A1153, A1176, A1180, A1196, A1227; 108 267—269. Op.cit., 4, 82. 83. When Men Fear Speak, Freedom Withers Vine, Address, Indiana B'nai B'rith Convention, Sept. 1953. Delaney 199 107, aside 'This pre-trial damaging material, tending indicate defendant, dug initiative enterprise newspapers. Here department, open pending indictment, stimulated massive nationwide scale. indicative Delaney's offenses admissible forthcoming trial, derelictions misconduct outside None heard ran gauntlet cross-examination. Nor published tempered, challenged, minimized offered accu ed.' 9768.

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