Document: 456 U.S. 45 102 S.Ct. 1523 71 L.Ed.2d 732 Carl W. BROWN, Petitionerv.Earl J. HARTLAGE. No. 80-1285. Argued Jan. 30, 1982. Decided April 5, Syllabus Petitioner, the challenger, in a general election, for respondent's office as Commissioner of Jefferson County, Ky., committed himself, at televised press conference, to lowering Commissioners' salaries if elected. Upon learning that such commitment arguably violated provision Kentucky Corrupt Practices Act (§ 121.055), petitioner retracted his pledge. On its face, § 121.055 prohibits candidate from offering material benefits voters consideration their votes. After won respondent filed suit state court, alleging had and seeking have election declared void. Although finding that, under reasoning an earlier decision Court Appeals construing 121.055, statute by promising reduce salary less than "fixed law," trial court concluded been "fairly elected" refused order new election. The reversed. Held: Section was applied this case limit speech violation First Amendment. Pp. 52-62. (a) States legitimate interest preserving integrity electoral processes, when State seeks restrict directly candidate's offer ideas voters, Amendment requires restriction be demonstrably supported not only interest, but compelling one, operate without unnecessarily circumscribing protected expression. 52-54. (b) application cannot justified prohibition on buying Petitioner's statements, which were made openly subject criticism political opponent scrutiny very different character corrupting private agreements solicitations historically recognized unprotected There is no constitutional basis upon pledge may equated with promise pay privately support own pocketbook. A confer some ultimate benefit voter, qua taxpayer, citizen, or member public, does lie beyond pale protection. 54-59. (c) If designed further State's ensuring willingness persons serve public remuneration make gratuitous service sine non plausible candidacy—resulting independent wealth ability being chosen over those who, though better qualified, afford reduced salary—it chose means unacceptable fear might ill-advised choice provide justification limiting speech. It government's function select issues are worth discussing course campaign. P. 59-60. (d) Nor can here interests prerogatives respect factual misstatements, asserted ground bars promises official has law" cannot, therefore, delivered. Erroneous statement inevitable free debate, it must freedoms expression "breathing space" they need survive. Nullifying petitioner's victory would inconsistent atmosphere robust debate required showing he disputed other good faith knowledge falsity, reckless disregard whether false not. Moreover, promptly after determining false. 60-62. Ky.App., 618 S.W.2d 603, reversed remanded. Fred M. Goldberg, Louisville, L. Stanley Chauvin, Jr., amicus curiae judgment below. Justice BRENNAN delivered opinion Court. 1 question presented Amendment, through Fourteenth declaring void because victorious announced during campaign intended law." 2 * This involves challenge Act. parties opposing candidates 1979 County Commissioner, "C" District. Brown, challenger; respondent, Earl Hartlage, incumbent.1 August 15, 1979, campaign, Brown held conference together Bill Creech, "B" District same party ticket. charged complicity form fiscal abuse: 3 "There . three part-time county commissioners. With law authority responsibility legislation ., clear jobs simply $20,000 year each. ludicrous commissioners nevertheless see fit themselves amount paid full-time judge. mere fact allows outrageous levels itself justify payments. At meeting 1976, Hartlage led surprise move more double commissioners! His actions demonstrated unmistakable disrespect chief executive utter disdain spirit laws govern our system. [U]sing gray fringes personal gain, funnel tax dollars into commissioners' pockets." App. 1-2. 4 behalf himself running mate, Creech pledged taxpayers relief: 5 "We abhor salaries. And prove strength convictions, one first acts will lower realistic level. We salaries, saving $36,000 term office, $3,000 each year." Id., 2.2 6 Shortly learned 19, issued joint retracting pledge: 7 men enough admit we've mistake. 8 discovered there decisions Attorney General opinions indicate elected illegal. 9 10 ". [W]e do hereby formally rescind instead seek corrective next session Assembly, correct silly Law." 4-5. 11 In November 6, defeated 10,151 votes.3 defeated. 12 then action Circuit Court, District, vacated Brown. based claim, provides: 13 "Candidates prohibited making expenditure, loan, promise, agreement, contract elected, vote.—No nomination any state, county, city district shall expend, pay, loan become pecuniarily liable way money thing value, either indirectly, person vote financial moral person. No agree particular individual, measure, primary nominating convention, require agreement contract." Ky.Rev.Stat. (1982).4 14 Sparks v. Boggs, 339 480 (1960), candidates' yearly $1, distribute savings specified charitable organizations, where instant case, found Brown's prospective fixed Sparks, Nevertheless, light retraction, defeat who joined pledge, presumption people revealed process, elected." 25. thus declined 26. 15 603. That agreed Commissioners law,5 proscribed construed supra.6 also held, however, erred failing 34-35. retraction offending "of consequence state," id., 35, mistaken believing possessed discretionary balance gravity against disenfranchisement electorate result void, ibid. claims, view "[t]o hold compensation immune regulation provisions United Constitution open door arguments statements involve self-expression." 36. quoted approvingly maxims "[a] punish abuse freedom utterances inimical welfare, tending corrupt morals, incite crime, disturb peace," "it never deemed abridgement conduct illegal merely part initiated, evidenced, carried out language." 36-37, quoting 16A Am.Jur.2d, Constitutional Law §§ 409, 507 (1979). "statement constitutionally protected." 37. 16 denying motion rehearing, pointedly addressed arguments. fairness elections compelling, could insist conducted corruption bribery. 39. restated considered attempt buy votes bribe voters. Ibid. Finally, rejected argument supra, "unconstitutionally broad." appeal "[i]f logical extreme increase efficiency cost government likewise votes," controlled disposition suggested reconsideration Supreme Kentucky. 39-40. denied review. 41. granted petition certiorari. 450 1029, 101 1737, 68 223 (1981). II 17 begin analysis acknowledging processes. Just take steps ensure governing institutions officials properly discharge responsibilities maintain trust confidence, upholding process itself. But uphold restricting speech, limitations imposed manifestly implicated. 18 core certain basic conceptions about manner discussion representative democracy should proceed. As we noted Mills Alabama, 384 214, 218-219, 86 1434, 1436-1437, 484 (1966): 19 "Whatever differences exist interpretations practically universal major purpose protect governmental affairs. 20 includes discussions candidates, structures forms government, operated operated, all matters relating processes." 21 exchange provides special vitality traditionally heart American democracy—the "[I]f conceded 'fashioned assure unfettered interchange bringing social changes desired people,' hardly doubted guarantee fullest most urgent precisely campaigns office." Monitor Patriot Co. Roy, 401 265, 271-272, 91 621, 625, 28 35 (1971) (citation omitted). lose protection declares office. Quite contrary: 22 "The candidate, person, right engage vigorously tirelessly advocate candidates. Indeed, importance opportunity views known so intelligently evaluate qualities positions vital before choosing among them day. Mr. Brandeis' observation country 'public duty,' Whitney California, 274 357, 375 [47 641, 648, L.Ed. 1095] (1927) (concurring opinion), applies force Buckley Valeo, 424 1, 52-53 [96 612, 651, 46 659] (1976) (per curiam). 23 When surely III 24 votes, and, conversely, accepting payments function. placed entirely obvious gloss concerning running, barring already consider constitutionality proscription evident face statute, particularized concerns gloss. discern bases conceivably justified: first, votes; second, facilitating candidacy lacking wealth; third, misstatements. these possible justifications turn. A. 25 sentence giving, give, anything value voter support. many applications, appear present little difficulty, prohibit body politic worthy called entrusts selection leaders auction barter. giving things support, declare unlawful embodying intention exchange. undoubtedly possess element association, ban trenching association necessarily takes words it, underlying conduct, immunities extends while solicitation enter crosses sometimes hazy line distinguishing pure solicitation, even impact arena, remains essence invitation profit, prohibited. See Hoffman Estates Flipside, Estates, Inc., 455 489, 496, 1186, 1192, 362 (1982); Central Hudson Gas & Electric Corp. Public Service Comm'n, 447 557, 563-564, 100 2343, 2350, 65 341 (1980); Pittsburgh Press Human Relations 413 376, 388, 93 2553, 2560, 37 669 (1973). 26 plain kinds elicited difficulty. equally limits power Some universally acknowledged legitimate, indeed "indispensable decisionmaking democracy," National Bank Boston Bellotti, 435 765, 777, 98 1407, 1416, 55 707 (1978); "maintenance end responsive obtained lawful fundamental principle system." Stromberg 283 359, 369, 51 532, 535, 75 1117 (1931). Candidate commitments enhance accountability whom represent, assist predicting effect vote. find self-interest reflected place reach insisted franchise exercised taint individual benefit; indeed, tradition pluralism partly predicated expectation pursue summation pursuits collective welfare.7 So long hoped-for achieved normal processes arrangement, always been, remains, reputable cast one's ballot. 27 determine standards distinguish between "private arrangements" democratic assurances promote foundation hesitate attempting formulate test legitimacy: precise nature conditions given, circumstances made, size audience, group benefited, might, instance varying extents, bear assessment. difficulty rendering concise formulation, recognizing possibility borderline cases, disable us identifying cases far troublesome border. Notably, openly, comment think full offers strong indication contained nothing fundamentally odds shared ethic. 29 analogized bribe. however persuasive analogy matter law, valid claim did payment funds. declaration exercise powers within what believed (albeit erroneously) framework least outward appearances, fully accord understanding activity body. Before implicit monetary taxpayer realized, officials—among them, course, himself—would approve accordance duties. incorrect suggesting lawfully reduced, itself, transform politically arrangement. 30 addition, despite courts' characterization "to pro tanto taxes pecuniary gain," 33, impossible generalized outside realm unequivocal affords Not source promised fisc, extend ballots citizens. Even sense "offer," scarcely contemplated acceptance quid quo honored, "if elected"; conditioned majority's 31 sum, donation support; acceptable class expressed individualized felt likely beneficiaries restraint, significance. policy accrue undifferentiated "public," individuals groups. Like taxes, service, inviting kind arrangement appearance avoiding. U.S., 27, 96 S.Ct., 638. 32 approval work institutions, base assertions fitness respecting intend welfare. B 33 relied candidacy.8 legitimately emphasis salary. chooses Amendment.9 issue, runs contrary premises guardian democracy. embodies choose bad, "select debating," Police Department Chicago Mosley, 408 92, 96, 92 2286, 2290, 212 (1972), C 34 Amicus points Of demonstrable falsehoods truthful statements. Gertz Robert Welch, 418 323, 340, 94 2997, 3007, 41 789 (1974). "erroneous 'breathing space' 'need survive,' " New York Times Sullivan, 376 254, 84 710, 721, 686 (1964), NAACP Button, 371 415, 433, 83 328, 338, 405 (1963). afforded requisite space." Commonwealth provided forfeits errs announcing will, courts liability error absolute: voided quickly repudiated. chilling absolute misstatements incompatible context campaigns. (1971); Ocala Star-Banner Damron, 295, 628, 57 (1971). protecting distortions caused untrue inaccurate somewhat defamatory falsehoods, principles remain paramount. Whenever compatible stake, regime "we depend correction conscience judges juries competition ideas." 339-340, 3006-3007. blunder unlikely escape notice of, by, erring opponent. preferred remedy "more enforced silence," 377, 47 1095 (Brandeis, J., concurring), force. Cf. 344, 3009. discovering Under circumstances, nullifying IV 36 Because conclude reverse remand proceedings opinion. ordered. 38 THE CHIEF JUSTICE concurs judgment. 39 REHNQUIST, concurring result. 40 I discussed impermissibly Amendments Constitution. facts give weight preventing elections, am unable join Court's defamation laws. (1966), ample reaching arrives, rely precedents efforts regulate process. brief opposition writ certiorari, file merits. Esq., submitted argued below curiae. echoed mate's call restraint: These two proposals—cutting reorganizing commissioner's staff, save $172,000 aware occupy set tone type be. "Under guidance, extravagance expense past, watchwords, Progress Cooperation theme." 3. received total 83,675 93,826 Certificate Election, 7. 1980, amended replace word "demand" last clause "require." 1980 Ky.Acts, ch. 292, equity contest maintained 25% number successful candidate. 120.155, 120.165 (1982). identifies proper contest, [of Act] contestant others knowledge, appears, appears contestee, contestee void." 120.015 "salaries officers popular 'not later Monday May officer changed term. .' act legally do." 32-33 (quoting 64.530(4) (1980)). Ky.Const. 161, 246. following extract describing rationale statute's Brown's: ' "An duties lesser treasury, illegal, elective taxation, makes gain." [quoting 43 Am.Jur., Officers 374, p. 159 (1942)]. 'It conclusion reduction gratis, advanced induce candidacy, vicious tendency constitute Act.' 33. Federalist 10. Madisonian extolled system "the every sentinel rights." 51, 324 (H. Lodge ed. 1888). perceive according good: "In extended republic States, great variety interests, sects embraces, coalition majority whole society seldom justice good." 327. explained Appeals: "To otherwise permit various offices filled purchase thereto extravagant bid. method supplant test. Eventually occupied opulent, ambitious, pittance honor attached designing grafter, obtain methods scrutiny. certainly vanish subdivision state." S.W.2d, 484. Other similar views. For example, passage Brewer Kansas, ex rel. Elting, Kan. 397, 402 (1883): 'The theory offices. Personal fitness—and included character, intellectual ability, standing, habits life, convictions—is single recognize. throws considerations scale, extent tends weaken fitness, tolerated. turn away thought paramount mind deposits least, bribery, insidious, therefore dangerous, grosser voter.' 483-484. Clements Humphreys, 74 Tex. 466, S.W. 99 (1889). address concern prohibiting official's done here. n. supra. Such offend note, passing, along proposed Articles ratification became Constitution, others, II, ratified. Article provided: "No services Senators Representatives effect, until intervened."

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