Document: 360 U.S. 167 79 S.Ct. 1025 3 L.Ed.2d 1152 Albertis S. HARRISON, Jr., Attorney General of Virginia, et al., Appellants,v.NATIONAL ASSOCIATION FOR THE ADVANCEMENT OF COLORED PEOPLE, a Corporation, and NAACP Legal Defense Educational Fund, Incorporated. No. 127. Arged March 23, 24, 1959. Decided June 8, Messrs. J. Segar Gravatt, Blackstone, Va., David Mays, Richmond, for appellants. Mr. Thurgood Marshall, New York City, appellees. Justice HARLAN delivered the opinion Court. 1 In this case three-judge District Court was convened pursuant to 28 U.S.C. § 2281, U.S.C.A. hear federal constitutional challenges against five Virginia statutes. It declared three invalid under Fourteenth Amendment, permanently enjoined appellants from enforcing them appellees; other two statutes it found vague ambiguous accordingly retained jurisdiction pending construction by state courts. 159 F.Supp. 503. Only former disposition appealed. The appeal raises questions: First, whether in circumstances should have abstained adjudication, retaining cause while parties, through appropriate proceedings, afforded courts an opportunity construe light requirements. Second, if such abstention not called for, Court's holdings were correct. Because our views upon first question we do reach second. 2 National Association Advancement Colored People (NAACP) Incorporated (Fund), appellees herein, are organizations engaged furthering rights colored citizens. Both membership corporations organized laws York, registered as foreign doing business within State. NAACP's principal relevant activities appearing before legislative bodies commissions support of, or opposition to, measures affecting status Negro race State, furnishing assistance Negroes concerned litigation involving their rights. Fund performs functions similar those field litigation, but is precluded its charter attempting influence legislation. revenues derived both dues general contributions, entirely contributions. brought action number Commonwealth officials, declaratory injunctive relief with respect Chapters 31, 32, 33, 35 36 Acts Assembly, passed 1956. 4 Va.Code, 1958 Supp., §§ 18 349.9 18—349.37; 7 1958, 54—74, 54—78, 54—79. complaint, alleging irreparable injury on account these enactments, sought declaration that each infringed assured Amendment injunction enforcement. Jurisdiction predicated civil statutes, 42 1981, 1983, 1343, diversity citizenship, 1332, presence question, 1331, 1331. his codefendants moved dismiss ground, among others, 'exercise enjoin enforcement which been authoritatively construed courts.' Court, recognizing 'the necessity maintaining delicate balance between concept separate sovereigns,' stated constitutionality requiring special competence interpretation local law be determined advance reasonable parties seek adjudication court,' considered granted where statute free ambiguity there remains no will render * *.' at pages 522, 523. On basis, court, one judge dissenting, held unconstitutional, Fund. 33 36, hand, court unanimously ambiguous. Chapters, without reaching constitutionality, allowing complaining time obtain interpretation. 5 defendants, proceeding 1253, appealed lower court's 35. We noted probable jurisdiction. 358 807, 53. did 36. 6 us lengthy, detailed, sweeping. 31 32 registration Chapter deals rendering financial litigation. proscribes public solicitation funds, expenditure funds whatever source derived, commencement further prosecution 'original proceeding,' any person, broadly defined include entities, neither party nor possessed 'pecuniary right liability' proceeding, unless detailed annual filing made State Corporation Commission. If person corporation, must things, (1) certified copies by-laws; (2) 'a list names addresses officers, directors, stockholders, members, agents employees persons acting (its) behalf;' (3) statement sources income, however including contributors donors required Commission; (4) corporation's expenditures preceding year, objects thereof, information relative thereto may (5) 'counties cities proposes does finance maintain party.' Correspondingly broad disclosures individuals who fall statutory proscription. Violation punishable misdemeanor individuals, fine more than $10,000 corporations, plus mandatory denial revocation authority corporation. An individual 'acting agent employee' corporation entity activity violative deemed guilty misdemeanor. And 'those responsible management control affairs' jointly severally liable fines might imposed it. 8 relating passage racial legislation, advocacy 'racial integration segregation,' also raising connection Declaring 'continued harmonious relations races essential welfare, health safety people Virginia,' finds 'vital interest' Commission 'persons, firms, partnerships, associations whose causing interracial tension unrest.' Specifically, Chapter, filings 9 '(e)very firm, partnership, association, agents, servants, employees, voluntary workers associates, engages promoting opposig i n manner legislation Assembly behalf color, has advocating segregation tend conflicts violence, expending employment counsel payment costs 10 extent comparable 31. so furnished matter record, 'be open inspection citizen during regular hours of' 11 Failure register subjects punishment misdemeanor, exceeding $10,000. Like makes 'responsible' corporate fines. Further, '(e)ach day's failure file shall constitute offense he punished such.' applicable carry proscribed qualify second-class mail United States mails, radio television, political campaign. 12 'barratry' statute. Barratry stirring up litigation.' A 'barrator' thus organization 'stirs Stirring means 'instigating,' turn 'means bringing about all part expenses paid barrator,' those, plaintiffs, concert him, 'unless instigation justified.' 'justified' when instigator related blood marriage plaintiff whom instigates, entitled share money property subject direct interest ('personal pecuniary liability') occupies position trust relation plaintiff; duly constituted legal aid society approved Bar offers advice kinds matters members come unable because poverty pay fees.' 13 Individuals barratry 'shall' licenses 'to practice profession revoked period provided law.' Corporations and, they foreign, Moreover, 'person aids abets barrator giving services use benefit committing host exceptions provided;1 none far asserted include, capable including, 14 majority below 322 unconstitutional grounds, centering treatment around material provisions already set forth, page 1028, supra. essence infringe that, taken conjunction requirements statute, clause opposing invaded speech restricted lobbying activities;3 directed 'integration segregation' had same infirmity supported compelling some clear present danger;4 referring tending violence too indefinite satisfy requirements;5 aimed unduly burdened access courts, serve could disclosure demanded.6 15 35, offend due process, legitimate regulation preventing continuing 'their operations.' addition, violate equal protection unjustifiably discriminating efforts 'approved' societies. 16 These context findings well presently us, Legislature nullify possible effect decision Supreme Brown v. Board Education, 347 483 (74 686, 98 L.Ed. 873) parts plan massive resistance schools decrees.' 511, 515. view take appellants' objections findings. 17 According every consideration below, nevertheless deciding merts issues tendered it, afford question. words, think dealing followed course This now well-established procedure avoidance unnecessary interference proper validly administered concerns, balanced working system. To minimize possibility 'scrupulous regard rightful independence governments times actuate courts,' Matthews Rodgers, 284 521, 525, 52 217, 219, 76 447, 'contribution Railroad Texas Pullman Co., 312 496, 501, 61 643, 645, 85 971. service doctrine, applied many different contexts, principle consistent expression adjudicate enactments fairly until pass them. See, e.g., supra; City Chicago Fieldcrest Dairies, Inc., 316 168, 62 986, 86 1355; Spector Motor Service, McLaughlin, 323 101, 65 152, 89 101; American Federation Labor Watson, 327 582, 66 761, 90 873; Shipman DuPre, 339 321, 70 640, 94 877; Albertson Millard, 345 242, 73 600, 97 983; Government & Civic Employees Organizing Committee, C.I.O. Windsor, 353 364, 77 838, 894. not, course, involve abdication jurisdiction, only postponement exercise; serves policy comity inherent doctrine abstention; spares adjudication. See supra, 172—173, 988. 19 case, view, calls application principle, since agree terms leave room avoid whole least materially change nature problem. 20 certainly cannot said require As here read 'stirring up' conventional common-law sense, addition 'unjustified' expenses. Were read, then even apply evidence 'uncontradicted initial steps led institution suits prospective plaintiffs help.' 533. Further 'personal right' component 'direct definition (see supra) lend itself would embrace nonparty expense, relationship members. Cf. Alabama, 357 449, 78 1163, 1488. 21 limiting interpretation, characteristic ignored. Committee C. I.O. 'advocacy' example, incitement violence. Yates States, 354 298, 1064, 1356. Similar employed influencing 'in manner,' cf. Harriss, Rumely, 41, 543, 770. And, contributor note contains separability clause, Appeals treats acts separable, possible, absence express provision. Woolfolk Driver, 186 Va. 174, 41 S.E.2d 463. 22 intimate slightest what determinations validity All hold exposed asked decide judgment based something complete product enactment phrased legislature highest court. procedure, 1950, 8—578 585, pursuing reference provides expeditious avenue here. assume full duty judging 23 findings, amply evidence, existence threatened worked great immediate appellees, proceeded assumption 'that defendants continue cooperate, past, withholding final reached 534. given assurances understand intention never proceed pendency While reason suppose honored officials possesses ample action, supplemental proceedings initiated, protect goes forward. 24 Accordingly, vacated remanded instructions bring meanwhile own opinion. 25 ordered. 26 Judgment instructions. 27 DOUGLAS, CHIEF JUSTICE BRENNAN concur, dissenting. rule invoked Federal keep hands off judge-made rule. fashioned 1941 971, device needless decisions Constitution resolution questions make adjudications unnecessary. Since time, greatly expanded. indeed extended o convenient excuse hand second undertaken delaying tactic years inevitably doubles cost When used widespread, dilutes stature Courts, making secondary tribunals administration justice Constitution. 29 With deference, seems me most inappropriate withhold Congress ordained Civil Rights Act 'All sue, give enjoyed white citizens 1981. subjected suit 'Every who, color subjects, causes subjected, deprivation secured 1983; Courts jurisdiction' actions redress deprivation, law, providing 1343. latter section From implemented comprehensive 1871 thought prevailed unique utilized preserve people. Representative Dawes, debate bill, 'what method securing undisturbed enjoyment rights?' Looking eventually became answered, 'The remedy proposed bill resort States.* Is place find wrongs? power call into offender rights, privileges immunities; him there, I submit tribunal fitted, exact likely meted out temper, moderation, severity, need be, always according fact, Constitution.' Cong. Globe, 42d Cong., 1st Sess. 476 (1871). 30 plain provide remedy, Act, proved charge appellants, deprived Hague C.I.O., 307 530—532, 59 954, 83 1423. Judge Soper, speaking 'were enacted purpose impeding schools' Virginia. 503, 511. He reviewed length history (Id., 511—515) concluding 'they decision' 483, 74 349 294, 75 753, 99 1083. Id., They 'parts resistance' inaugurated decisions. Of formulation program. But interpreters bound them, frustrated. Where assault spoken defiantly citizens, reasons showing deference institutions vanish. conflict apparent; stand authoritative body schemes intended emasculate circumvent Guinn 238 347, 926, 1340, 'Grandfather Clause' Oklahoma suffrage exempting qualified vote January 1, 1866, lineal descendants, literacy test 'no discernible disregard prohibitions (Fifteenth) Amendment,' struck down positive disregard' Amendment. 363, 365, 930, 931. effects (rendered 1915) voters 1916 named 12-day period, else lost permanently. Persons voted 1914 election were, however, exempt requirement. new invalidated, noting Fifteenth barred 'sophisticated simpleminded' 'contrivances thwart equality vote.' Lane Wilson, 268, 275, 872, 876, 1281. Boswell Alabama explain satisfaction registrar. perpetuate distinctions suffrage. affirmed submission amendment see how narrow Schnell Davis, 336 933, 69 749, 93 1093, affirming D.C., 81 872. cases originated implicated evasive decisions; decided rerouting 34 evidenced 'White Primary' cases. starts Nixon Herndon, 273 536, 47 446, 71 759, prohibiting participating Democratic Party primary elections characterized obvious infringement' Amendment's Equal Protection Clause. result decision, authorizing Executive prescribe qualifications elections. Pursuant adopted voting privilege Democrats. Finding arm discharged way 'discriminate invidiously black' overturned restriction. Condon, 286 73, 89, 484, 487, 984. Smith Allwright, 321 649, 64 757, 88 987, approval convention prohibition save Terry Adams, 461, 809, 1152. war Here, again, repair not—we not—give seeks undermine paramount law. fail perform expressly judiciary so. return case: error, any, passing remitting two. 'This article attorneys contingent fee contracts clients attorney client expense annexation, zoning, bond issues, holding results referendum, pertaining possession title real personal property, regardless ownership, legality assessment collection taxes rates rtes charges common carriers utilities, criminal prosecutions, societies Bar, abate nuisances. Nothing herein derogation employ prosecute available State.' Chief Hutcheson, dissenting judge, 'abstention' issue. this, relied 612, 808, 989. cited, cases, Communications Ass'n Douds, 382, 674, 925; Schenck 249 47, 39 247, 63 470; Dennis 341 494, 857, 95 1137; Buchanan Warley, 245 60, 38 16, 149; Grosjean Press 297 233, 56 444, 80 660; Thomas Collins, 516, 315, 430; distinguished ex rel. Bryant Zimmerman, 278 63, 49 61, 184. Citing Cantwell Connecticut, 310 296, 60 900, 84 1213, Burroughs 290 534, 54 287, 484; cited 1875 gave over federal-question Stat. 470. choice 1870 utilize insure deliberate one, reflecting belief charged original normal hospitable claims Whether premise true today, fact alteration congressional intent protector Amendments Acts.

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