Document: 390 U.S. 17 88 S.Ct. 682 19 L.Ed.2d 799 Herbert SCHNEIDER, Appellant,v.Willard SMITH, Commandant, United States Coast Guard. No. 196. Argued Dec. 12 and 13, 1967. Decided Jan. 16, 1968. Leonard W. Schroeter, John Caughlan, Seattle, Wash., for appellant. S. Martin, Jr., Washington, D.C., appellee. Mr. Justice DOUGLAS delivered the opinion of Court. 1 Appellant, who has served on board American-flag commercial vessels in various capacities, is now qualified to act as a second assistant engineer steam vessels. But between 1949 1964 he was employed trades other than that merchant seaman. In October applied Commandant Guard validation permit or license which evidences his ability engineer. 2 Under Magnuson Act, 64 Stat. 427, 50 U.S.C. § 191(b), President authorized, if finds 'the security endangered by * subversive activity,' issue rules regulations 'to safeguard against destruction, loss, injury from sabotage acts' all 'vessels' territories waters subject jurisdiction States.1 3 Truman promulgated Regulations, 33 CFR, pt. 6, give authority grant withhold any evidencing right seaman serve vessel States. 6.10—3. He directed not such unless satisfied character habits life person are authorize belief presence individual would be inimical States.' 6.10—1. 4 The questionnaire, appellant application required submit, contained following inquiry answered: 5 'ITEM 4. Do you advocate, have ever advocated, overthrow alteration Government force violence unconstitutional means? 6 'Answer: No.' 7 questionnaire inquiries related membership participation organizations were special list Attorney General authorized Executive Order 10450, 18 Fed.Reg. 2489: 8 5. Have submitted material publication listed Item below? 'Answer. 9 6. Are now, been, member of, affiliated associated with way, set forth (There followed more 250 organizations.) 10 Yes. 11 'If your answer 'yes,' full details 7. (Use this space explain Items through Attach separate sheet there enough here.) 13 I been many political & social organizations, including several named list. 14 'I cannot remember names most them could specific about any. 15 'To best my knowledge, participated activities these ten years.' 16 Upon receiving returned appellant, advised him information sufficient answers further interrogatories necessary.2 reply, speaking counsel, admitted had Communist Party well General's subscribed People's World. said joined because personal philosophy idealistic goals, but later quit it due fundamental disagreement methods techniques. beyond 'it woudl obnoxious truly free citizen kinds questions under compulsion require.' declined process further, relying upon CFR 121.05(d)(2), authorizes hold abeyance an applicant fails refuses furnish additional information. Appellant thereupon brought action declaratory relief provisions Act question Commandant's actions thereunder unconstitutional, praying approve enjoined interfering appellant's employment flying American flag. A three-judge court convened complaint dismissed. 263 F.Supp. 496. case here appeal, 28 1253. We postponed merits. 389 810, 53, 62. 20 agree, does appellee, one heard threejudge accordingly we appeal. For did raise whether statute vagueness abridgement First Amendment rights also questioned power install screening program validly delegated. proper. Baggett v. Bullitt, 377 360, 84 1316, 377; Zemel Rusk, 381 1, 85 1271, 179. 21 gives no express up personnel As respects 'any foreign-flag vessels' control those 'go remain board' clear. 191(a). our own ships, exists only found 'safeguard' waterfront facilities 'sabotage acts,' is, 191(b). Solicitor argues exclude persons 'clearly implies establish procedure determining shall allowed board.' 191(a) which, noted, applies 'foreign-flag vessels,' while, said, tendered must find footing 191(b).3 22 agree District Court keeping marine saboteurs within purview Act. Our much narrower one. 23 Regulations prescribe standards judge 'character life' employee determine 'presence 'inimical States': 24 '(a) Advocacy means. 25 '(b) Commission attempts preparations commit, espionage, sabotage, sedition treason, conspiring with, aiding abetting another commit act. 26 '(c) Performing, attempting perform, duties otherwise acting so interests government detriment 27 '(d) Deliberate unauthorized disclosure classified defense '(e) Membership in, affiliation sympathetic association foreign domestic organization, association, movement, group, combination designated pursuant amended.' 121.03. 29 If assume arguendo type at 'membership' 'sympathetic association,' problem raised kin presented Shelton Tucker, 364 479, 81 247, 231, where teacher hired public school Arkansas submit affidavit 'listing time belongs belonged during past five Id., 481, S.Ct., 248. 30 held touching narrowly drawn precise evil exposed; unlimited indiscriminate search employee's interferes associational freedom unconstitutional. 487—490, 251—253. 31 gave 191(b) broad construction urges, face kind present supra, can probe reading habits, philosophy, beliefs, attitudes economic issues prospective seamen 32 saboteur may, course, dangerous. charge made. Indeed, conduct before Commandant. propositions (1) plaintiff always loyal States; (2) active organization years; (3) never committed espionage Those neither contested nor conceded. took position admission evidence 'irrelevant immaterial.' loath conclude Congress, its undertook reach into area. provision question, speaks terms actions, ideas beliefs social, educational, associations. 34 purpose Constitution Bill Rights, unlike recent models promoting welfare state, take off backs people. Amendment's ban Congress 'abridging' speech, peaceably assemble petition, 'associational freedom' (Shelton 490, 247) goes creates preserve views made inviolate. This Jefferson '(t)he opinions men object ov civil government, *. (I)t rightful purposes officers interfere when principles break out overt acts peace good order *.'4 35 No charged case. 36 Rumely, 345 41, 73 543, 97 L.Ed. 770, construed statutory word 'lobbying' include direct representation members, committees, tending influence, encourage, promote, retard legislation. 47, 546. Such interpretation statute, 'in candid service avoiding serious constitutional doubt' (ibid.)—doubts view prohibition Amendment.' 46, 37 holding Rumely novel. It part stream admonishes courts construe statutes avoid questions.5 38 'Whenever limits investigative Court, ought done after demonstrated awareness what stake unequivocally authorizing dubious limits. Experience us tread warily domain.' U.S., 39 involves investigation, Branch, stemming congressional delegation. When read delegation eye problems, hesitate told ferret ideological strays maritime industry. words used—'to acts'—refer beliefs. stretch their normal meaning urges. allied cases, teach just opposite—that concerning Tucker protected Amendment. 40 Reversed. 41 BLACK, while concurring Court's judgment opinion, agrees statement FORTAS' consideration, involved, offensive 42 MARSHALL consideration decision 43 FORTAS, concurring. 44 concur Reversal dictated petitioner refused offend 231 (1960). (They pass outermost bounds reason. agency may permitted require person, heavy penalty, sworn essays 'attitude toward form States' 'full particulars,' oath, without limit, contributions functions attended respect since specifically program, impose procedures comprehensive necessarily impinging freedoms, inferred general language. fault, however, inadequate improper delegation, investigation launched. Needless say, appropriate delegate executive officials implement administer it. See Robel, 258, 419, 508 (1967). 45 STEWART, agreeing concurs judgment. 46 WHITE, whom HARLAN joins, result. 47 undertaken therefore reversed. scope constitutionally provide applicants Section 191 provides part: reason actual threatened war, invasion, insurrection, activity, disturbances international relations States, institute measures regulations— govern anchorage movement territorial inspect time, place guards thereon, and, necessary secure damage injury, prevent harbor observance obligations possession remove therefrom crew thereof, especially go thereof; acts, accidents, causes similar nature, vessels, harbors, ports, Canal Zone, territory water, continental insular, '1. With statements above, information, fully honestly ability: List belonged, location. Furnish approximate dates membership. particulars extent (number meetings/functions attended; positions offices held; classes schools made; etc.). Your discontinuing attitude objectives organizations. 'YES' Questions, provided end Interrogatories: '2. ever, Party, Subdivisions, Subsidiaries, Affiliates? '_........................._ (Answer 'Yes' 'No.') '3. subscriber 'People's World'? 'Yes,' dates. 'Have engaged behalf _........................._ details. '5. What toword Party? '6. Communism? '7. Unied States?' true Senator discussing measure stated 'will invoke same invoked World War II.' 96 Cong.Rec. 10795. And sweeping programs II. reference apparently covers vessels.' came speak said: 'It (the bill) purpose, think one: before, last stronghold activity country, least concentrated stronghold, argund waterfronts. impossible destruction come great port many, result ship coming atomic bomb biological destructive agency, some liaison ashore. instruct FBI, cooperation Guard, Navy, governmental water fronts pick people might subversives risks country. long way taking care stuation, subject, particularly large amount talk Senate few days Communists. bill protects loophole left, along shores 11321. Establishing Religious Freedom, Jeffersonian Cyclopedia 976 (1900). Delaware H. Co., 213 366, 407—408, 527, 535—536, 53 836; Harriss, 347 612, 618, n. 74 808, 812, 98 989; International Association Machinists Street, 367 740, 749, 1784, 1789, 1141; Lynch Overholser, 369 705, 710—711, 82 1063, 1067, 1068, 211; National Dairy Products Corp., 372 29, 32, 83 594, 597, 561.

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