Document: 408 U.S. 753 92 S.Ct. 2576 33 L.Ed.2d 683 Richard G. KLEINDIENST, Attorney General of the United States, et al., Appellants,v.Ernest MANDEL al. No. 71—16. Argued April 18, 1972. Decided June 29, Syllabus This action was brought to compel grant a temporary nonimmigrant visa Belgian journalist and Marxian theoretician whom American plaintiff-appellees had invited participate in academic conferences discussions this country. The alien been found ineligible for admission under §§ 212(a)(28)(D) (G)(v) Immigration Nationality Act 1952, barring those who advocate or publish 'the economic, international, governmental doctrines world communism.' declined waive ineligibility as he has power do § 212(d) Act, basing his decision on unscheduled activities engaged by previous visit States when waiver granted. A three-judge District Court, although holding that no personal entry right, concluded citizens country First Amendment right have him enter hear him, enjoined enforcement 212 alien. Held: In exercise Congress' plenary exclude aliens prescribe conditions their into country, Congress 212(a)(28) delegated conditional Executive Branch. When, case, decides legitimate bona fide reason not statutory exclusion an alien, courts will look behind weigh it against interests would personally communicate with Pp. 761—770. 325 F.Supp. 620, reversed. Daniel M. Friedman, Washington, D.C., appellants. Leonard B. Boudin, New York City, appellees. Mr. Justice BLACKMUN delivered opinion Court. 1 appellees framed issue here follows: 2 'Does appellants' refusing allow scholar attend meetings violate rights scholars students him?'1 3 Expressed terms, question is whether (G) (v) 212(d)(3)(A) 66 Stat. 182, 8 U.S.C. 1182(a)(28)(D) 1182(d)(3)(A), providing certain 'shall be receive visas shall excluded from States' unless General, discretion, upon recommendation Secretary State consular officer, waives inadmissibility approves admission, are unconstitutional applied they deprive freedom speech guaranteed Amendment. 4 challenged provisions statute are: 5 'Section 212(a). Except otherwise provided following classes States: 6 '(28) Aliens are, at any time been, members classes: 7 '(D) within other paragraph communism establishment totalitarian dictatorship . .. '(G) write dictatorship; 9 '(d) 10 '(3) subsection, (A) applying known believed officer such one more paragraphs enumerated subsection (a) may, after approval admitted temporarily despite inadmissibility, granted may discretion ..' 11 Section 212(d)(6) provides make detailed report case which exercises authority (3) behalf excludable (9), (10), (28) 12 * Ernest E. Mandel resides Brussels, Belgium, citizen. He professional editor-in-chief Left Socialist weekly La Gauche. author two-volume work entitled Marxist Economic Theory published 1969. asserted applications member Communist Party. described himself, however, 'a revolutionary Marxist.'2 does dispute, see 624, advocates governmental, international communism.3 13 1962 again 1968. On first came working journalist. second accepted invitations speak number universities colleges. each occasion, apparently then aware it, followed finding 212(a)(28), General's admit temporarily, State, permits. 14 September 8, 1969, Consul Brussels October six-day period, during conference onTechnology Third World Stanford University.4 Standford Graduate Student Association there. invitation stated John Kenneth Galbraith present key note address expected ensuing panel discussion give major day. University, through office its president, 'heartily endorse(d)' invitation. When Mandel's intended became known, additional lectures participations faculties Princeton, Amherst, Columbia, Vassar, groups Cambridge, Massachusetts, others. One conference, sponsored jointly Bertrand Russell Peace Foundation Scholars Conference; assigned subject there 'Revolutionary Strategy Imperialist Countries.' filed application proposing extensive itinerary stay greater duration. 15 23 informed orally refused. confirmed writing 30. Consul's letter advised 1962, waivers year 1968, current denial waiver. It said, another request being forwarded Washington connection visa. Department dated November Bureau Security Consular Affairs attorney, earlier condition conform limit purposes trip, but 1968 beyond purposes.5 For reason, 'was sought application.' went say, now learned might limitations attached issuance, that, view assurances purposes, reconsidering case. December 16 fact recommended waived respect application. Naturalization Service, acting 28 510, February 13, 1970, counsel determined while 'went far basis authorized represented flagrant abuse opportunities afforded express views country.' favorable warranted authorized. 17 meeting transatlantic telephone. 18 March six instituted State. two remaining soon lawsuit amendment complaint. All joined university professors various fields social sciences. They persons forums colloquia so complaint alleged, 'they engage free open exchange.' 19 Plaintiff-appellees claim statutes face plaintiffs Fifth rights. Specifically, these prevent them hearing person discussions, contravention Amendment; denies equal protection permitting 'rightists' 'leftists' same section deprives procedural due process; delegation congressional because broad lack standards, prescribed procedures; 'arbitrary capricious' concluding ineligible, rational denying once ineligible. Declaratory injunctive relief sought. 20 district court duly convened. tried pleadings affidavits exhibits. Two judges held explain seek defend views. entered declaratory judgment 212(a) were invalid void insofar invoked defendants find admission. implementing enforcing deny visitor. 620 (E.D.N.Y.1971). Judge Bartels dissented. Id., 637. Probable jurisdiction noted. 404 1013, 670, 30 660 (1972). II 21 Until 1875 migration unrestricted. 3, 1875, 477, barred convicts prostitutes. Seven years later passed general immigration statute. Aug. 1882, 22 214. Other legislation followed. revision laws effected Mar. 1903, 32 1213. made 'anarchists, believe overthrow force violence Government all government forms law.' By Oct. 16, 1918, 40 1012, expanded subversive aliens. Title Alien Registration 1940, 54 671, amended 1918 bar who, time, advocated affiliated organizations violent Government. followed, investigation numerous reports committees, Party v. Subversive Activities Control Board, 367 1, 94 n. 37, 81 1357, 1409 625 (1961), Internal 1950, 64 987. dispensed requirement 1940 Party, party did These carried forward 1952. We thus almost continuous attention part since problems excludability defined pattern generally increasing control particular attention, 70 now, anarchists communist affiliation III 24 clear personally, unadmitted nonresident constitutional otherwise. ex rel. Turner Williams, 194 279, 292, 719, 723, 48 L.Ed. 979 (1904); Knauff Shaughnessy, 338 537, 542, 309, 312, 317 (1950); Galvan Press, 347 522, 530—532, 74 737, 742—743, 98 911 (1954); Harisiades 342 580, 592, 72 512, 520, 96 586 (1952). 25 concede this. Brief Appellees 33; Tr. Oral Arg. 28. Indeed, assert sue enforce rights, individually public, none alien.' 14. 'Dr. sense plaintiff symbolic problem,' 22. 26 therefore, comes down narrow confers appellee professors, wish hear, speak, debate person, ability determine should permitted or, words, IV 27 variety contexts Court referred 'receive information ideas': 'It well established Constitution protects ideas. 'This (of press) necessarily Martin City Struthers, 319 141, 143, 63 862, 863, 87 1313 (1943) Stanley Georgia, 394 557, 564, 89 1243, 1247, 542 (1969). 29 Thomas Collins, 323 516, 65 315, 430 (1945). labor organizer's workers 'to what say,' id., 534, 324, both abridged state law requiring organizers register before soliciting union membership. very different situation, White, speaking unanimous upholding FCC's 'fairness doctrine' Red Lion Broadcasting Co. FCC, 395 367, 386—390, 1794, 1804—1807, 371 (1969), said: purpose preserve uninhibited marketplace ideas truth ultimately prevail public suitable access social, political, esthetic, moral, experiences crucial here. That constitutionally either FCC.' 390, S.Ct., 1806. 31 And Lamont Postmaster 381 301, 85 1493, 398 (1965), hold 'communist political propaganda' arriving mails abroad addressee affirmatively requested placed unjustifiable burden addressee's right. recognized 'nowhere vital' than our schools universities. Shelton Tucker, 364 479, 487, 247, 251, 231 (1960); Sweezy Hampshire, 354 234, 250, 77 1203, 1211, 1311 (1957) (plurality opinion); Keyishian Board Regents, 385 589, 603, 675, 683, 629 (1967). See Epperson Arkansas, 393 97, 266, 228 (1968). majority held: 'The concern non-resident alien's individual interest entering heard, views; Garrison (v. Louisiana, 379 64, 209, 125 (1964)) observe, essence self-government.' F.Supp., 631. 34 disputes conclusion grounds. First, argues involves restriction restricted 'only action—the coming Appellants 29. Principal reliance Zemel Rusk, 1271, 179 where Government's refusal validate passport travel Cuba upheld. applicant himself. ancillary inform himself about outweigh substantial 'foreign policy considerations affecting citizens' backdrop Cuban missile crisis, characterized 'weightiest national security.' 1279. here, some contrast, academics debates, States. light Court's decisions concerning 'right information,' we cannot realistically say problem facing us disappears entirely nonexistent mode regulation bears directly physical movement. registration concerned only action. Lamont, too, dealt undisputed mail Robel, 389 258, 263, 88 419, 423, 508 35 also suggests inapplicable books speeches, 'technological developments,' tapes telephone hook-ups, readily supplant presence. argument overlooks qualities inherent sustained, face-to-face debate, questioning. While alternative means relevant factor called balance regulatory interests—a unnecessary follows Part V—we loath record existence alternatives extinguishes altogether form access. V 36 Recognition implicated, dispositive inquiry accord ancient principles nation-states, Chinese Exclusion Case, 130 581, 609, 623, 631, 1068 (1889), Fong Yue Ting 149 698, 1016, 37 905 (1893), broadly, describes, appellants 20, 'inherent sovereignty, necessary maintaining normal relations defending foreign encroachments dangers—a exercised exclusively branches Since reaffirmations principle legion.6 without exception sustained 'plenary rules possess characteristics forbidden.' Boutilier 387 118, 123, 1563, 1567, 661 '(O) ver conceivable legislative complete over' Oceanic Navigation Stranahan, 214 320, 339, 676, 53 1013 (1909). Lem Moon Sing 158 538, 547, 967, 970, 39 1082 (1895), Harlan congress terms come declared regard enforced executive officers, judicial intervention, settled adjudications.' 38 Frankfurter ably articulated history (1954), deportation can better. After suggesting, 530, 742, 'much could said view' process places area 'were clean slate,' continued: 'But slate clean. As extent review, merely page history, whole volume. Policies pertaining remain peculiarly conduct government. policies, Branch must safeguards process. But formulation policies entrusted become firmly embedded tissues body politic aspect 'We prepared deem ourselves wiser sensitive human predecessors, especially most zealous protecting civil liberties Constitution, therefore system recognize dealing 531—532, 743. 41 inclined context reconsider line cases. appellees, contrast amicus, ask so. many precedents. seeking sustain below, enact blanket prohibition falling class (G)(v), override decision. 16. contend procedure, clearly provision appropriate 'for humane reasons interest.' S.Rep.No. 1137, 82d Cong., 2d Sess., argue Executive's implementation mandate limited like position prevail, least advances justification failing point vast cases.7 42 Appellees' prove too much. every instance probably meet him. influential Mandel, nor audience numerous, planned impressive. protect articulate, popular. Were endorse proposition withhold yield whenever talk unsatisfactory results ensue. Either discretionary becomes nullity, required strength audience's applicant, according yet undetermined standard. dangers undesirability making determination factors size probity speaker's obvious. precisely has, properly, hands Executive. 43 soften impact analysis arguing, noted, advanced 26. reach question, urging sole unfettered given. Jay Boyd, 351 345, 357—358, 76 919, 926—927, 100 1242 (1956); Hintopoulos 353 72, 77, 618, 621, 652 (1957); Kimm Rosenberg, 363 405, 408, 80 1139, 1141, 1299 (1960). record, require so, facially fide. 44 chosen rely remains, official empowered denied abuses inappropriate again. With this, think validly (d)(3). 45 summary, long established. negatively neither test balancing communication applicant. What grounds available attacking whatsoever decide 46 Reversed. 47 DOUGLAS, dissenting. Under 1068, rendered 1889, doubt shores. accent race. Field, 'If, department, considers presence foreigners race assimilate us, dangerous peace security, stayed actual hostilities nation subjects.' 606, 630. 49 An ideological test, racial one, used neither, my view, permissible, I indicated occasions.1 Yet narrower raised teach communism' '(e)xcept Act.'2 'except' contained section3 states inadmissible 'may, officer' 'temporarily inadmissibility.' 50 Dr. 'an orthodox Trotskyist school,' twice before—once lecturer third application, University Technology World. conferences, MIT, several universities, School, Vassar. refused Department; claims need reasons, unfettered. 51 complainant. Joining represent audiences issue. seeks outside NationThe footing. learn, know. 1313; 542. 52 Can maintains earth round excluded? believes Darwinian theory admitted? promote Rule Law settle differences rather Force barred? 55 genetic biologist way create life sex alone pale? 56 exponent plate tectonics 57 taught Jesus arose Sepulcher, east (not up) teacher Hemis Monastery Himalayas? 58 put bluntly security involved. Nor infiltration saboteurs. stands astride out terminals bring people whose acceptable Even assuming, arguendo, standing complain, hope benefit traveler's do. 59 Thought competence branch Those live exposure faiths creeds further education. construe generously standard, saying permit traveler, left importation heroin, matters competence. 60 assume propagation permissible framework, undertake censor. Jackson 545, 329, (concurring), '(t) foreclose assuming guardianship mind regulating press, speech, religion. field own watchman truth, forefathers trust separate true false us.' 61 Brandenburg Ohio, 444, 1827, (which overruled Whitney California, 274 357, 641, 71 1095), forbid proscribe advocacy use violation except directed inciting producing imminent lawless likely incite produce action.' 447, 1829. involved Ku Klux Klan. teaching creed.4 But, Noto 290, 297—298, 1517, 1521: 62 '(T)he mere abstract theory, including moral propriety even necessity resort violence, preparing group steeling matter construction, conclude never undertook entrust pick choose among offerings lecturers tender platforms, allowing palatable disallowing others.5 concerns commonly Justice—national drugs, like. affirm MARSHALL, BRENNAN joins, citizen internationally famous wished debate. firm plans lectures, hosts stunned learn permission officials 'ineligible' 185, bars visits 'advocate 'who written printed matter, advocating teaching' doctrines. 212(d)(3), inadmissibility. 67 I, am proud heritage convinced Americans opportunity disapproves Therefore, dissent today's below. 68 correctly demonstrates, ideas, speak. process, Brandeis' 'reason discussion,' 375, 648, 1095 (1927) (concurring others issues—are inextricably inseparable; sides coin. coin itself thought discussion. activity speakers becoming listeners vital interchange 'means indispensable discovery spread truth.' Ibid.; Terminiello Chicago, 337 4, 69 894, 895, 93 1131 (1949). Its fundamental government.' supra, U.S., 648. thwart discussion, 'abridge' freedoms work. 308, 1497, (1965) (Brennan, J., concurring, Goldberg, Harlan, JJ., joined). There prevented Amendment.1 course, interfered appellees' develop articulate interaction Mandel. below recognized, apart interests, 'general prevention stifling utterance.' 632 (1971). well.2 extraordinary interference liberty citizens? reasoning uphold exclusion? doctrine, all, restrict if compelling interest, E.g., 1497; NAACP Button, 415, 438, 83 328, 340, 405 (1963); Gibson Florida Legislative Investigation Committee, 372 539, 546, 889, 893, 929 A. Today's holds Americans' given 'facially reason' ineligibility. understand source unusual Merely 'legitimate' Moreover, demands 'facial' legitimacy good faith, 'look behind' gives. No citation kind unprecedented deference Executive, imagine (nor told) slightest rule.3 briefest peek Generalhs reveal sham. trip App. 68. already conceded counsel, (his previous) issued obtaining (Mandel) (previous) issuance.' behavior 'flagrant abuse'—or willful knowing departure—from restrictions. litigation relied justify exclusion. circumstances, possibly support remanding factual determination, declares sufficient interests. 73 declining 212(d)(3)(A), not, me, end scheme, visa, inadmissible, solely because, doctrine writings doctrine. totally secondary dependent, triggered (a)(28) generate new exclusion; roving set ad hoc standards Rather, simply effect existed; still rests determination. Thus, waiver, think, tries avoid: (28)? C. Accordingly, turn consider constitutionality excluding Mandel—that 'advocates' 'publish(es) 212(a)(28). 75 Still adhering standard how overrides Mandel.4 Unlike (a)(27) (a)(29), active threat 'welfare, safety, States.' excludes Our cases clear, stopping flow divorced incitement 1520—1521, 836 (1961); 447—449, 1829—1831, sure attained final absolute forcefully urged, contribution ongoing dialogue. represents Framers path safety lies discuss freely supposed grievances proposed remedies; fitting remedy evil counsels ones'—'more speech.' 377, 649, (Brandeis, concurring). If want advocates, intervene approve certainly selectively let nothing restraining disfavored doctrine,' 626 (1971), enactment abridgment things, repeating law. lands. propaganda fettered delivery Post Office. 1497 imposed less justification. regulated mail, detained immediately addressee. permanently argued censor content receiving unwanted mail. Here, incident objective, based beliefs. D. heart Appellants' distinguishing distinctively unreviewable '(t)he aliens.' 33. 'political' Government, Congress, 78 strongest precedents Reports, majority's baroque approach reveals reluctance completely. include milestones upheld expel midst. 79 old 'reconsidered' strike exclusion, citizens. themselves. At involved, absolute. 'When powers clashes protected Bill Rights, 'delicate difficult task' resulting tolerated.' 264, 424, Robel cases5 show, power—even war power, maintain affairs—is Rights. stake, blindly defer Branch, freedoms. though urges admitting involve defense policies. recognizes 'implicated' cases, inapplicable. Surely distinguish between pre-indictment post-indictment lineups, Kirby Illinois, 406 682, 1877, 411 (1972), mean suggest automatically prohibit interest.6 Actual threats health needs, genuine reuirements apparent surely compelling.7 claims, interest. temporary.8 His 'ineligibility' embodied desire keep circulation hardly bsis Without 'live' difference keeping Neither permitted. supra. 82 '(i)t demonstrates confidence' 'in capacity supports combat Marxism battleground ideas.' observes 'would carrying high explosives, come, only, before, public.' wryly notes '(i)n nineteenth century British ruling class, itself, Karl Marx exile England forty years.' 54. brief series scholarly lectures. progress knowledge venture. individuals differing ways cooperation governments failed. Nothing served—least community—by blocking departed basic traditions fearless acceptance deferring departs best role guardian overreaching. Principles restraint designed place visit. 84 dissent. 1. Revolutionary Countries reprinted 54—66. Appellees, suggesting 101(a)(40), defining 'world communism,' unacceptably vague, 'do contest economic philosophy falls scope vague provisions.' 8. Entry presumably claimed non-immigrant 101(a)(15) (H) 1101(a)(15)(H), namely having residence intention abandoning (i) distinguished merit perform services exceptional nature DOUGLAS dissent, post, 773 noncompliance 'appear indicated.' 6, observed, 'On visit, trip. Counsel's affidavit motion convening issuance preliminary injunction stated: 'Mr. assured 10, 1969 appear assembly money solicited cause. response charge solicitation tour. (See Exhibit L.) 'Of just prior notice adhere forbidden appearing contributions (were) causes. George Novack, citizen, coordinated tour, event cocktail reception Gotham Art Theatre 19, addressed gathering events France May June. Later evening posters French auctioned. sent aid legal taken spring demonstrations. fund raising. Ex.L, 30, letter.)' broader engagements indicated. See, example, Nishimura Ekiu 142 651, 659, 336, 338, 1146 (1892); Fok Yung Yo 185 296, 302, 686, 688, 917 (1902); 294, 724, Keller 213 138, 143—144, 470, 471—472, 737 (1909); Mahler Eby, 264 32, 40, 283, 286, 549 (1924); Shaughnessy Mezei, 345 206, 210, 625, 628, 97 956 (1953); cf. Graham Richardson, 403 365, 91 1848, 1854, 534 states: Service 212(a)(28): 24. provides, positive officer. figures refrained recommendation. Total Number Applications Waiver Waivers "Year Granted Denied 1971 6210 6196 1970 6193 6189 4993 4984 4184 4176 1967 3860 3852 8" 598, 523, (dissenting 533, 744, opinion). 212(a)(28)(G)(v) 1182(a)(28)(G)(v). 1182(d)(3)(A). claim, ante, 762—765. argues, inasmuch gave fide' refuse ineligibility, (appellees') reveals, absolutely consciously abused privileges concedes (in 1968) (Emphasis supplied.) Second, labeled abuses' spoke Canada, Harvard, California Berkeley, Swarthmore, Notre Dame, Antioch, Michigan, three appearances Pennsylvania, keynote Conference Rutgers. 25. invent trivial community chance exchange respected scholar. 12, vested emergent deemed strictly Ideological controls congenial inferred. Twenty ago, Bulletin Atomic Scientists devoted entire scientists counterparts. editors—supported statements men Albert Einstein, Hans Bethe, Harold Urey, Arthur Compton, Michael Polanyi, Raymond Aron—was hurting continuing advance science learning, harmful prestige abroad. Vol. 7, pp. 210—217 (statement Special Editor Edward Shils). detrimental continues reported. Comment, Opening Floodgates Dissident Aliens, Harv.Civ.Rights—Civ.Lib.L.Rev. 143—149 (1970); Scientists, Dec. 1955, 367—373. availability taped substitute live, briefs exhibits essential oral Lengthy citations proposition, concedes, unnecessary. Henrik Lorenz, accepting lecture Leiden radiation Einstein observed unfinished difficulty talking face.' Quoted Developments Law—The National Interest Civil Liberties, Harv.L.Rev. 1130, 1154 Frankel significant contexts; insulate subsequent challenges faith sufficiency reasons. Frankel, Bench Warrants Upon Prosecutor's Demand: View From Bench, Col.L.Rev. 403, 414 decision.' moved affirm. ground adopted below; incorrectness successfully 16—17 brief, rejects nevertheless affirmance. 24, 25—26, 41—42. (1967), struck criminal offense employee 'defense facility' spite 'war power.' Aptheker 378 500, 1659, 992 (1964), unsuccessfully passports security. overridden security'; rejected assumption 'that deals relations, unrestricted choice.' 17, 1281. Schneider 377 163, 1187, 218 attempted inequality naturalized native-born power. Brennan urged 'justified object avoiding subsidization propaganda'; answered act 'by endanger rights.' 310, 1498. agree inquire things 'probity however. Where demonstrated sham, compelling. goes saying, admitted, (like citizen) punished incites acts commits crimes. Such 'nonimmigrants' covered quotas. Gordon & H. Rosenfield, Procedure 2.6

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