Document: 540 U.S. 93 McCONNELL, UNITED STATES SENATOR, ET AL.v.FEDERAL ELECTION COMMISSION AL. No. 02-1674. Supreme Court of United States. Argued September 8, 2003. Decided December 10, 2003* 1 The Bipartisan Campaign Reform Act 2002 (BCRA), which amended the Federal Election 1971 (FECA), Communications 1934, and other portions States Code, is most recent nearly a century federal enactments designed "to purge national politics what [is] conceived to be pernicious influence `big money' campaign contributions." v. Automobile Workers, 352 U. S. 567, 572. In enacting BCRA, Congress sought address three important developments in years since this Court's landmark decision Buckley Valeo, 424 (per curiam): increased importance "soft money," proliferation "issue ads," disturbing findings Senate investigation into practices related 1996 elections. 2 With regard first development, prior FECA's disclosure requirements source amount limitations extended only so-called "hard money" contributions made for purpose influencing an election office. Political parties candidates were able circumvent by contributing money"— money as yet unregulated under FECA—to used activities intended state or local elections; mixed-purpose such get-out-the-vote (GOTV) drives generic party advertising; legislative advocacy advertisements, even if they mentioned candidate's name, so long ads did not expressly advocate defeat. second circumvented FECA using ads" that specifically affect results, but contain "magic words," "Vote Against Jane Doe," would have subjected restrictions. Those detailed 1998 Committee Report summarizing elections, concluded soft-money loophole had led meltdown finance system; discussed potential reforms, including ban restrictions on sham issue nonparty groups. 3 enacted many committee's proposals BCRA: Title I regulates use soft political parties, officeholders, candidates; II primarily prohibits corporations unions from general treasury funds communications are to, effect of, outcomes; Titles III, IV, V set out requirements. Eleven actions challenging BCRA's constitutionality filed. A three-judge District held some parts BCRA unconstitutional upheld others. law referred here plaintiffs, those who intervened support intervenor-defendants. 4 Held: judgment affirmed part reversed part. 5 251 F. Supp. 2d 176, 948, 6 JUSTICE STEVENS O'CONNOR delivered opinion with respect II, concluding statute's two principal, complementary features—Congress' effort plug its regulation electioneering communications—must main. Pp. 133-224. 7 1. New § 323 survives plaintiffs' facial First Amendment challenge. 133-189. 8 (a) evaluating 323, applies less rigorous standard review applicable contribution limits progeny. Such subject "closely drawn" scrutiny, see S., at 25, rather than strict because, unlike expenditures, "entai[l] marginal restriction upon contributor's ability engage free communication," e. g., id., 20-21. Moreover, grounded governmental interests preventing "both actual corruption threatened large financial eroding public confidence electoral process through appearance corruption." E. Comm'n National Right Work Comm., 459 197, 208. shows proper deference Congress' weigh competing constitutional area it enjoys particular expertise, provides sufficient room anticipate respond concerns about circumvention regulations protect process' integrity. Finally, because Congress, lengthy deliberations leading enactment, properly relied progeny, stare decisis considerations, buttressed Legislative Judicial Branches owe one another, provide additional powerful reasons adhering analysis has consistently followed Buckley. rejects argument type speech associational burdens imposes fundamentally different accompanied Buckley's limits. 134-142. 9 (b) 323(a)—which forbids committees their agents "solicit, receive, ... direct ..., spend any [FECA's] limitations, prohibitions, reporting requirements," C. A. §§ 441i(a)(1), (2)—does violate Amendment. 142-161. 10 (1) interest underlying 323(a)—preventing apparent officeholders—constitutes sufficiently justify That limited elimination quid pro quo, cash-for-votes exchanges, Buckley, supra, 28, extends also "undue officeholder's judgment, influence," Colorado Republican 533 431, 441 (Colorado II). These themselves, laws Id., 456. While quantum empirical evidence needed satisfy heightened judicial scrutiny judgments varies novelty plausibility justification raised, Nixon Shrink Missouri Government PAC, 528 377, 391, idea can corrupt create officeholders neither novel nor implausible, see, 38. There substantial these cases determination give rise corruption. For instance, record replete examples committees' peddling access exchange donations. 143-154. 11 (2) Section 323(a) impermissibly overbroad subjects all raised spent hard-money limits, including, purely elections no office stake. demonstrates close relationship between well means traded relationship, suspect, regardless how ultimately used. Government's strong corruption, particularly appearance, thus subjecting donations source, amount, limitations. 154-156. 12 (3) Nor 323(a)'s prohibition parties' soliciting directing substantially overbroad. prohibition's reach limited, bars solicitations officers acting official capacities; themselves remain solicit hard own behalf contribute candidates. Plaintiffs argue unpersuasively solicitation ban's overbreadth demonstrated 323(e), allows amounts individual donors certain circumstances. differences 323(e) without significance, Work, 210, reflecting reasonable expert functions interactions officeholders. 157-158. 13 (4) rights minor though latter may slim prospects success. It require follow same rules U.S., 34-35. nascent struggling bring as-applied challenge prevents amassing resources necessary effective advocacy. 21. 158-159. 14 (5) Plaintiffs' unconstitutionally interferes associate unpersuasive hinges unnaturally broad reading statutory terms "spend," "receive," "direct," "solicit." Nothing face sitting down plan advise raise money, do personally spend, direct, money. 159-161. 15 (c) On face, new 323(b)—which affecting 441i(b)—is closely drawn match appearance. 161-173. 16 Recognizing ties soon render anticorruption measures ineffective remained available conduit donations, 323(b) prevent nonfederal help "Federal activity," defined encompass voter registration activity during 120 days before election; identification, GOTV, "conducted connection [federal] candidate... appears ballot"; "public communication" "refers clearly identified candidate" "promotes," "supports," "attacks," "opposes" candidate; services committee employee dedicates more 25% his her compensated time "activities election," 431(20)(A)(i)-(iv). All fall within definition must funded 441i(b)(1). Levin carves exception rule, allowing pay activities—namely, falling categories above either refer "a candidate office," or, involve broadcast communications, "solely State §§441i(b)(2)(B)(i)-(ii)—with allocated ratio "Levin funds." regulation, First, contributor donate $10,000 per year single account. 441i(b)(2)(B)(iii). Second, both portion spends them, team up national, state, portion. 441i(b)(2)(B)(iv), 441i(b)(2)(C). 161-164. 17 addressing committees, drew conclusion prediction. money's corrupting insinuates itself function alternate avenue precisely forces. Indeed, already ask reached limit committees. prediction, based history was react just indebted contributors been formerly contributed parties. Preventing shifting wholesale thereby eviscerating qualifies interest. 164-166. 18 that, serves legitimate interest, unjustifiably burdensome cannot considered objectives. P. 166. 19 (i) Although captures campaigns offices, covered Commission's (FEC) pre-BCRA allocation rules, affected As practical matter, merely codifies FEC's regime principles while justifiably adjusting formulas order restore efficacy longstanding By limiting activities," narrowly focused regulating directly benefit pose greatest risk activity"—voter efforts conducted election—clearly capture confer getting like-minded voters polls. If drive does mention candidate, take advantage Amendment's higher relaxed abundantly third category communication[s]" promote attack affects participating, application §323(b)'s caps address. 323(b)'s justifies requirement fourth activity" connected election. 166-171. 20 (ii) burden association among forbidding transfers fund allocable joint fundraising preserving freedom important, every otherwise unrestrained dimension. See 450, n. 11. Given delicate interconnected regulatory scheme here, imposed far outweighed need entire scheme. 171-173. 21 (iii) supporting speculative. proves extraordinarily flexible adapting abilities. mere fact reduce largely inconsequential. question whether over previous cycles reduced, reduction radical sound recipient's voice below level notice. Missouri, 397. make showing, challenges available. 173. 22 (d) 323(d)—which "solicit for, donations" 501(c) tax-exempt organizations expenditures election, 527 "other committee, State, district, party, authorized 441i(d)—is facially invalid. 174-181. 23 323(d)'s valid anti-circumvention measure. Absent provision, significant incentives mobilize formidable apparatuses, service conduct benefiting attendant operation apparatuses follow. squared engaged activities, persuasive. valid, rendered chose regulate another group stringently might have. 210. Furthermore, difference provisions explained officers, nonprofit capacities. 323(e)'s tight content, review, greater allowances 174-178. 24 qualifying anticircumvention measure insofar compliance FECA. restriction, could accomplish antisolicitation them doing indirectly—raising sums launder engaging activities. raises read restrict party's account—i. e., limitations—these sustained, given obligation construe statute, possible, way avoid questions, Crowell Benson, 285 22, 62. Because compel "donations" include account, infirmities interpretation raise, construes apply 178-181. 25 (e) 323(e)—which, exceptions, transfer, spend" 441i(e)(1)(A), 441i(e)(1)(B)—does No seriously questions agents. severing link donor, measures. Even passage, solicited organizations, own, party's, cause. 458. will increase I's raising spending addresses accommodating 181-184. 26 (f) §323(f) — communications" candidates, U.S.C. 441i(f) provision. section places cap activity, but, rather, draw impact And, communications," focuses principal arguments against vague overbroad; appear rejected. 184-185. 27 2. Several plaintiffs exceeds Clause authority "make alter" governing Const., Art. I, 4, violates federalism impairing States' examining Acts Tenth infirmity, officials commandeered carry schemes. See, Printz States, 521 898. contrast, private conduct, imposing officials. pre-empt legislation, leaves enforce financing. policed absolute boundaries Article power, Morrison, 529 598, offer reason believe overstepped Elections power BCRA. found, ground exercise power. 186-187. 28 3. Also rejected equal protection discriminating favor special groups, registration, GOTV mailings, advertising (other communications). actually favors ways, receive exceeding More importantly, fully entitled consider salient, real-world groups when crafting system, legislature vastly group's. Taken seriously, call much pre-existing structure. 187-188. 29 4. Accordingly, §§323(e) 323(f) invalidated 323(a), 323(b), 323(d). 188-189. 30 5. extent §304 relating $1,000 more, §304(f)(5). 189-202. 31 §201 comprehensively amends §304, requires file periodic reports FEC. narrowing construction adopted advocating defeat adopts term, "electioneering encompasses "broadcast, cable, satellite identifies office, airs specific period (e. 60 primary), targeted relevant electorate. U.S.C.A. §434(f)(3)(A)(i). persons (and 203 316(b)(2) extend labor unions). 32 term's disclosures arguing constitutionally mandated line express advocacy, speakers inviolable right speech. However, plain Massachusetts Citizens Life, Inc., 479 238 (MCFL), product interpretation, command. Both concept class magic words born problems vagueness statute Court. Consistent principle rule should never formulated broadly required facts applied, MCFL language boundary forever fixed permissible scope campaign-related notion erects rigid barrier recognition presence absence meaningfully distinguish true ad. aided combat real correct flaws found. components §304(f)(3)'s easily understood objectively determinable, objection persuaded inapposite here. 189-194. 33 phrase correctly submission unnecessarily names paying communication, erred finding 304(f)(5) invalid mandates executory contracts aired. providing electorate information, deterring avoiding gathering data substantive full amply supports 304's range communications." forecloses 304 provision segregated calendar communications. Under proof, establish requisite probability harm plaintiff members resulting compelled disclosure. rejection foreclose possible future applications requirement. 34 This unpersuaded §304(f)(5)'s regarding contracts. person makes disbursements totaling relatively short timeframes made, assuring information significant. Yet fixing deadline filing statements date aggregate exceed open advance requirement, supporters preelection slated run campaign's final weeks simply making downpayment $10,000, balance payable after contains little flow requirement's enforcement, speculation outweigh ensuring takes place. 194-202. 35 6. advanced basis §202, §315(a)(7)(C) coordinated treated by, §441a(a)(7)(C). clarifies §315(a)(7)(B), cooperation, consultation, concert with, request suggestion constitute contributions. pre-empts claim term "expenditure" 315(a)(7)(B) narrow limitation there why treat treats expenditures. 202-203. 36 7. 316(b)(2), section. 316(b)(2)'s corporate union funds. §441b(b)(2). entities still organize administer funds, PACs, on, expression. Beaumont, 539 146, 162. consideration expanded overinclusive underinclusive informed distinction compelled. Thus, examines degree expression evaluates compelling burden. carried proving §316(b)(2) They justifications adequately quantities encompassed definition. fails 30- 60-day periods preceding primary functional equivalent equally purpose, vast majority do. §316(b)(2)'s segregated-fund print Internet advertising. reflects virtual torrent televised election-related period. remedial legislation stanch 304(f)(3)(B)(i), excludes news items commentary definition, wholly consistent applied media. 203-209. 37 8. §316(c)(6), organizations. §204, adds §441b(c)(2), similar except formed promoting ideas, shareholders, established business corporation union, accept entities, MCFL, 264. applying necessarily force §316(c)(6). 316(c)(6) not, exempt invalidate it. presumes legislators aware MCFL-type concedes not. construed, plainly valid. 209-211. 38 9. found 201's contract constitutional, 212, added 304(g), 434, essentially moot. 211-212. 39 10. 213, 315(d)(4) choose independent postnomination, §441a(d)(4). unlimited burdened therefore small protection. requiring §315(d)(4). cast choice outright constitutional. 213-219. 40 §214, §315(a)(7)(B)(ii), §441a(a)(7)(B)(ii). §315(a)(7)(B)(i) provided controlled candidate. 214(a) parties; §§214(b) FEC promulgate "require agreement formal collaboration coordination," §441a(a) note. §315(a)(7) (B)(ii) permits coordination agreement. always wink nod coordinated. §315(a)(7)(B)(ii) vague. An §315(a)(7)(B)(i), uses survived almost decades. chilled speech, attempt explain fear intrusive politically motivated investigations. 214(b) ripe allege statute. 219-224. 41 THE CHIEF miscellaneous III IV provisions, affirmed. 224-233. 42 §305, §307, millionaire nonjusticiable. 224-230. 43 McConnell lack standing 305, 1934 45 stations sell air qualified "lowest unit charge," 47 315(b). 305's amendment, turn, denies charge specified §§315(b)(2)(A), (C). Senator McConnell's testimony he plans critical opponents past too remote temporally demonstrate "injury fact" "actual imminent," Whitmore Arkansas, 495 149, 155, 158, lowest until primary, current expire 2009, therefore, earliest day §305 2008 224-226. 44 Adams Paul 307, 315(a)(1) index inflation Neither injury alleged voters, standing. assertion 307 deprives participate economic status plaintiff's invasion concrete particularized legally protected Lujan Defenders Wildlife, 504 555, 560, "free trade" marketplace exactly resources, e.g., 238, 257 (MCFL). plaintiffs-candidates' contention puts "fundraising disadvantage" compared wish meet "fairly traceable" Lujan, 562, inability compete stems 307's operation, personal inadequate purposes congressional traditional press §307's together 315's action impose editorial control violation Freedom Press Clause. show likelihood requested relief remedy fact, Vermont Agency Natural Resources ex rel. Stevens, 765, 771, since, strike increases indexes, ask, exemption institutional media unchanged. 226-229. "millionaire provisions," 304, 316, 319, series staggered contribution-to-candidate opponent triggering eliminate expenditure injuries fail cognizable fairly traceable Additionally, none conjectural assume ever be. 229-230. 46 upholding 311's expansion 318(a) mandatory electioneering-communications-disbursements inclusion bears "shed[ding] light publicity" financing, 81. Assuming, must, §318 begin §311's amendments electioneering-communications inclusion, unconstitutional. 230-231. 318 individuals "17 old younger" 441k minors, Tinker Des Moines Independent Community School Dist., 393 503, 511-513. individual's impinge freedoms association, 20-22, limitation, asking justified "sufficiently interest" unnecessary abridgment Amendment, post, 136 (joint O'CONNOR, JJ.). offers scant protects i.e., parents children parents. convincing case claimed evil, attenuated withstand scrutiny. 391. assuming, arguendo, advances overinclusive, shown adoption tailored approaches. 231-232. 48 standing, intervenor-defendants, whose position identical FEC's, granted intervention pursuant inter alia, §403(b). Clinton City York, 524 417, 431-432, 19. 233. 49 BREYER broadcasters keep publicly records broadcasting requests, 315(e) invalidating violative reversed. 233-245. 50 504's "candidate request" requests "made . candidate," 315(e)(1)(A) upheld. virtually contained Commission (FCC) regulation. intolerably invasive FCC estimated licensee comparatively administrative supported verifying licensees comply obligations allow "equal time," 315(a), §315(b); processing evenhanded fashion assure fairness, §315(a); messages, 434; independently compiled candidates' ibid. cannot, present record, find unconstitutional, embodies blocking agency repeal 234-238. 51 "election message" serve incremental (made anyone) "message[s]" "legally "any §§315(e)(1)(B)(i), well. 238-240. 52 §504's "national importance," 315(e)(1)(B)(iii), "political matter 315(e)(1)(B) survive recordkeeping seem likely determine fulfilling FCC's afford opportunity discussion conflicting views issues heavily entertainment, affairs broadcasts. above-quoted unpersuasive, roughly comparable litigation. Whether disproportionate depend interprets them. interpreted regulations, applied. Without provide, say provisions' great, minimal, warrant Similarly, purchasers disclose revealing strategies 240-246. 53 JJ., SOUTER, GINSBURG, BREYER, joined. REHNQUIST, C.J., SCALIA, KENNEDY, joined, STEVENS, joined THOMAS, J., 403(b), p. 224. V, filed concurring dissenting 247. 311 318, result 311, Parts II-A, II-B, upholds §323(e) §213, 286. SCALIA 350. GINSBURG 363. 54 APPEAL FROM DISTRICT COURT FOR OF COLUMBIA 55 Kenneth W. Starr Floyd Abrams argued cause below, Mitch et al., appellants 02-1674 cross-appellees Nos. 02-1676 02-1702. briefs Edward Warren, Susan Brian Markley, Kathleen M. Sullivan, Valle Simms Dutcher, L. Lynn Hogue, Jan Witold Baran, Lee Goodman, G. Hunter Bates, Jack N. Jerianne Timmerman. 56 Bobby R. Burchfield below. him 02-1727, California Democratic Party 02-1753, Libertarian Committee, 02-1733, Thomas O. Barnett, Richard Smith, Lance H. Olson, Deborah B. Caplan, Joseph Sandler, John Hardin Young, Charles Bell, Jr., J. Josefiak, Benjamin Ginsberg, Eric Kuwana, Michael Carvin, James Bopp, Coleson, Marzen. 57 Solicitor General Olson Deputy Clement defendants al. Assistant Attorney Keisler, Malcolm Stewart, Gregory Garre, Douglas Letter, Dana Martin, Terry Henry, Lawrence Norton, Bader, David Kolker. 58 Seth Waxman intervenor-defendants McCain Randolph D. Moss, DuMont, Q. Wolfson, Roger Witten, Burt Neuborne, Frederick Schwarz, Curtis, Harth, Bradley Phillips, Joshua Rosenkranz, Alan Scott Nelson, Mogilnicki, Leffel, Fred Wertheimer, Alexandra Edsall, Trevor Potter. 59 Laurence Gold American Federation Labor Industrial Organizations 02-1755 appellees Jonathan Hiatt, Trister, Larry Weinberg. Jay Sekulow Emily Echols brief Henderson, Sr., Stuart Roth, Colby May, Joel Thornton, Walter Weber, 61 Briefs 02-1675 Rifle Association Cooper, Thompson, Hamish Hume, Koukoutchos, Cleta Mitchell. 62 02-1733 plaintiffs-appellants/cross-appellees Life 63 02-1734 appellant Civil Liberties Union Mark Lopez, Steven Shapiro, Gora. 02-1740 Victoria Jackson Gray Bonifaz, Bonita Tenneriello, Lisa Danetz, Brenda Wright, Wilson. 64 02-1747 Congressman Ron William Miles, Herbert Titus, Gary Kreep. 65 02-1756 Chamber Commerce Stephen Bokat, Amundson.† 66 II.* 67 116 Stat. 81, (FECA Act), 86 11, amended, 431 seq. (main ed. 2003), 1088, 315 607 (Supp. 510-511 challenged cases.1 we discuss JUSTICE, 224, discusses 233, V. 68 * ago "sober-minded Elihu Root" advocated prohibit "`the great aggregations wealth, indirectly,'" elect "`vote advancement public.'" 571 (1957) (quoting Root, Addresses Citizenship 143 (R. Bacon & eds. 1916)). Root's opinion, "`strik[e] constantly growing evil done shake people country our institutions practice obtained foundation Government.'" 571. repeatedly endorsing judgment. 69 enactment Justice Frankfurter responded President Theodore Roosevelt's "`to purpose.'" Ibid. Cong. Rec. 96 (1905)). annual message 1905, Roosevelt stated "`directors permitted stockholders' money'" purposes, recommended "`a prohibition'" "`would be, went, method stopping evils aimed acts.'" 1907 completely banned "money with" Tillman Act, ch. 420, 864. place "maximum seeking nomination election." 575-576. 70 1925 "contributions" `anything value,' acceptance giving crime." 209 (1982) (citing Corrupt Practices 1925, §§301, 313, 1070, 1074). During debates characterized hold seek sometimes obtain liberal contributions'" "`one time.'" 576 9507-9508 (1924)). We challenge, observing "[t]he Vice being clear, end presents addressed Congress." Burroughs 290 534, 547 (1934). 71 historical concern potentialities wealth" "untoward consequences democratic process," 577-578, beyond shortly World War reacted "enormous outlays" 579. restricted Hatch 610,2 later prohibited "union altogether." Disputes (Smith-Connally Anti-Strike 144, 9, 167). subsequently cover unions' contributions, broadened coverage Management Relations 1947 (Taft-Hartley 136. 578-584. measures, voiced 3428, 3522 (1947); H.R. Rep. 245, 80th Cong., 1st Sess. 1, Sess., pt. 2093, 78th (1945). noted unanimous recalling history, "careful adjustment laws, `cautious advance, step step,' account legal attributes warrants considerable deference." (citations omitted). 72 early 1972 continued steady improvement FECA, enacted, $100 year. 11-19. name person, 19, contractors, ratified earlier separate (commonly known PACs) 12-13.3 Pipefitters 407 385, 409-410 (1972). 73 presidential however, passage deter unseemly practices. Evidence enact Amendments 1974, 88 1263. Reviewing amendments, Appeals Columbia Circuit described "by comprehensive reform [ever] passed concerning President, Vice-President 519 F.2d 821, 831 (1975) (en banc) curiam). 74 1974 closed allowed number receipts disbursements. overall $25,000 contributor; ceilings conventions; limits; legislation. 831-834. 75 entirety.4 clear integrity sustaining Act. 841. court's facilitated officials5 methods evading enabled massive 837-841.6 76 establishing theory viewed 840-841 O'Brien, 391 367, 376-377 (1968)). Court, each serious—though different—concerns 14-23 (1976) restraints observed communication." Considering "deeply examples" Appeals' determined served protecting "the system representative democracy." 26-27. end, Act's actuality contributions" limitation." 26. 77 prefaced "`relative candidate.'" 608(e)(1) (1970 ed., IV)). To construed "communications office." 42-44. concluded, narrowed, dangers quo arrangements, eschew remaining want views." 45. attempts posed 46-47. heavy imposed. 78 appeal vindicated interests: supporters; discouraging improper purposes; facilitating enforcement prohibitions 66-68. problem, placed context candidate." 80 (footnote 79 Our individuals, unions. noted, form purposes. 28-29, 31; 3, supra. Three further role corporations, unions, wealthy play process. preface comment briefly Soft Money 81 "federal" "hard" defines "contribution," gift anything value 431(8)(A)(i) (emphasis added). Donations solely unaffected prohibitions. result, maximum "nonfederal money"—also money"—to 82 Shortly decided, arose treatment literal "contribution" ruled activities—including advertising—in money.7 1995 defray costs "legislative advertisements," Advisory Op. 1995-25. 83 expanded, exponentially. Of major total spending, accounted 5% ($21.6 million) 1984, 11% ($45 1988, 16% ($80 1992, 30% ($272 1996, 42% ($498 2000.8 transferred larger percentage rules.9 2000, example, diverted $280 million—more half money—to 84 Many dramatically top five gave, total, $9 million committees.10 cycle $300 million—60% fundraising—from 800 donors, minimum $120,000.11 largest often parties.12 corroborate indicating desire disadvantage relative contributors, ideological parties.13 85 Not gain themselves. Candidates directed legislator running reelection supporter advising "`contributed maximum'" program federal, party.14 uncommon.15 solicitation, Issue Advertising 87 requirements, omission words" "Elect Smith" Doe" marked bright separating "express advocacy" advocacy." 44, 52. Express financed words, sponsor treasuries. So-called ads, hand, aired disclosing identity about, sponsors. "issue" seemed neat theory, advertisements proved functionally respects. eschewed words.16 Little existed, ad urged viewers "vote condemned Doe's exhorting "call Doe tell you think."17 professionals testified like commercials products Coca-Cola, should, did, words.18 results confirmed immediately election.19 Corporations hundreds millions dollars ads,20 attractive reach, enabling work friendly money.21 89 sponsors misleading conceal identity. "Citizens Better Medicare," grassroots organization citizens, suggest, instead platform drug manufacturers.22 And "Republicans Clean Air," ran 2000 Presidential consisting individuals—brothers $25 favored candidate.23 90 sponsorship indicates were. former knew friends "`sometimes suggest[ed] ads."'"24 availability quota advocacy.25 Investigation 91 Governmental Affairs issued six-volume report extensive gave attention elected officials' granting return 92 forth majority's report, minority consensus, central propositions. agreed loophole" "meltdown" corporate, process."26 One hearings overwhelming twin loopholes bogus destroyed leaving us pile rubble."27 promised senior White House coffees rewarded Clinton,28 courtesies international businessman named Tamraz, candidly acknowledged $300,000 DNC gaining oil-line project Caucasus.29 promotional materials RNC's donor programs, "Team 100" "Republican Eagles," "special high-ranking officials, governors, senators, representatives."30 letter recited chairman RNC escorted appointments "`turned very utility holding companies'" hero industry.'"31 94 began highly problematic reasons. Since accomplished (which lawfully money), protections provide. ostensibly campaigns.32 95 emphasized 40% advertising, percentages purposes.33 reason, "state `generic activities' benefit[ed] remain[ed] committees." allow[ed] treasury, system."34 levels groups.35 expressed view effectively candidate-specific money.36 similarly "reforms masquerading ads."37 97 proposed reforms. increasing outcome 98 403 provisions. 437h note 2003). promptly went March 2002. 403, heard court. docket expedite disposition extent." court received voluminous embodied two-judge curiam separate, opinions, careful issues. 176 (2003). judges unanimity differed many. Their entered May 2003, 948. 99 losing appeals days. June 5, probable jurisdiction ordered expedited briefing schedule oral hearing 911. simplify presentation, proceed issues, prevailed Mindful 403's instruction order. turn 100 loophole. cornerstone soliciting, receiving, directing, 441i(a) 2003).38 short, business. 101 reinforce 323(a). shift prohibiting 441i(b). activit[ies]," 301(20)(A), regulated regime. 431(20)(A). 323(d) reinforces donating 441i(d). restricts 441i(e). 441i(f). 102 mount Clause, federalism, component Due Process turn. 103 subsequent cases, closer 161 (2003); 387-388 (2000); recognized 20; also, 161; 386-388. said: 104 "A views, communicate support. quantity communication perceptibly size contribution, rests undifferentiated, symbolic act contributing. At most, rough intensity involves restraint evidenced infringe transformation debate someone contributor." 105 communicative inheres mainly facilitate recipients, said serious low "preven[t] 106 bear "more speak," 388, affiliate "enabl[e] pool resources," 22. Unlike "preclud[e] associations amplifying adherents," "leave become member assist association's candidates," "overall effect" dollar "merely persons." 21-22. involving "`significant interference'" nevertheless satisfies "lesser demand" "`closely drawn'" "`sufficiently interest.'" 162 387-388).39 107 freedoms. underlie limits—interests 208; 440-441 (2001) II.) implicate process, and, less, responsibility citizen successful functioning process.'" 208 570). "means society democratically translates action," 401 (BREYER, concurring), tangibly participation debate. reviewing "there presumption constitutionality, sort thought accompany `strict scrutiny.'" 400 concurring). (Buckley's scrutiny) expertise. 108 criticism colleagues. 405-410 (KENNEDY, dissenting); 410-420 (THOMAS, Comm. Comm'n, 518 604, 635-644 (1996) I) dissenting). above. mindful Considerations decisis, decided. Hilton South Carolina Public Railways 502 202 (1991).40 109 Like 323's 161. Complex main, 110 contend outside But determining irrelevant demand supply side. 206-211 (upholding restricting PACs' funds). inquiry mechanism implement limit, 111 receiving spend. 441i(a), Rather, limitations.41 112 leave ample opportunities 323(d), enacts blanket organizations' PACs. purpose. infra, 180-181 (construing account). (d). 113 "due reality characteristically intertwined informative perhaps persuasive causes Schaumburg Environment, 444 620, 632 (1980). now PAC alters impairs "intertwined" solicitation. Cf. Riley Blind C., 487 781, 795 (1988) (treating fundraisers content-based "necessarily alter[ed] content speech"). chill solicitations, Schaumburg, tends dissemination forcing wider array donors. speech.42 114 merit internal processes Jones, 530 573-574 (2000). argument, greatly exaggerate contending precludes way. candidates." modest occasion None suggest analysis; application, choice, appropriate scrutiny.43 115 mind, evaluate 323. concerns, separately. mindful, integrated whole vindicate Restrictions Committees core committee[s] solicit, donation, transfer thing value, Act." 441i(a)(1) officer agent entity indirectly established, financed, maintained, committee." 441i(a)(2). 117 main goal modest. part, effects approved subverted creation regime, combination 123-125, Consequently, elections.44 put stop practice. Interests Underlying 118 defends involvement prevention constitutes exchanges. antibribery restrictive alternative noting "deal[t] blatant action." 28. "[i]n speaking `improper influence' `opportunities abuse' addition `quid arrangements,' [have] confined bribery extending broader threat politicians compliant wishes contributors." 389; (acknowledging explicit agreements judgment"). 119 "almost equal" combating perception engendered 27; 390; Conservative Action 470 480, 496-497 (1985). Take away undue cynical assumption tune jeopardize willingness governance." ignore "candidates, test law," 457, 456 ("[A]ll Members agree corruption"). "The vary raised." least, implausible. years, premise behind been, continues aid threaten sense obligation. yearly "quite evasion limitation" things, "huge party"). enjoy unity affiliation unique position, "whether not," "agents produce obligated officeholders." 452; 406 dissenting) ("[Respondent] asks usually funneled parties" added)). resist role, actively embraced 121 common confirm belief above, 7, invited widespread plausible, likely, feel grateful exploit gratitude.45 122 alike exploited loophole, debt serving willing intermediaries. despite commonly asked "`solely campaigns,'" own. 2d, 472 (Kollar-Kotelly, J.) declaration Wade Randlett, CEO, Dashboard Technology ¶¶ 6-9 (hereinafter Randlett Decl.), App. 713-714); 471-473, 478-479 J.); 842-843 (Leon, J.). Parties kept tallies officeholder, Member raise[d] affect[ed] g[a]ve Member's campaign." 474-475 Donors credited obliged, irrespective soft. 477-478 824, 847 teamed preferred 478 847-848 1286 (Krasno Sorauf Expert (characterizing "in rais[e] races")). participating fundraising, identities donors: distribute lists generosity 487-488 ("[F]or know she knowledge themselves"); 853-855 123 lobbyists, CEOs, admitted grounds, securing lobbyist partner lobbying firm Washington, declaration: 124 "`You somebody [soft money] donation appreciate Ordinarily, inclined reciprocate favors. Do bigger is, write check reciprocate. my experience, overt rarely exchanged understandings.'" 493 Robert Rozen, partner, Ernst Young ¶ 14; 8-R Defs. Exhs., Tab 33).46 125 Particularly telling influence, retaliation, ideology. 508-510 Mann Tbls. 5-6); 509 ("`Giving Republicans Democrats, unless feels buying access'" Sen. Dale Bumpers 15, 175)).47 126 officeholders' perspective similar. purchased follows: 127 "`Too often, Members' believe, fundraising. Who, all, $100,000 alter thinks quite possibly votes issue? When don't piper finances your campaigns, get piper. mother's milk politics, situation.'" 481 Simpson 811); 851 (same). 128 489 ("`The reasons, influential Members'" Hickmott Decl., Exh. A, 46)). bringing together, "[p]arties instruments object across board, sake issue, obliged 451-452. 129 instance officeholder switched vote (or, presumably, where believes switched), exists contrary. connects manipulations calendar, failure enact, tort reform, tobacco 482 852 390-394 (declaration 8-11 Decl.)); 811 (Simpson Decl. 10) ("Donations industry scuttled trial lawyers Democrats stopped reform"); 805 Simon 13-14). change outcomes surely misunderstands 130 conceive narrowly. firmly simple curbing influence." 441. cited 27, episodes buying, various high-level government 839-840, 36; nn. 5-6, secure certainly "appearance 441; 838. 131 492-506 it: 132 "`Special achieve access. Sitting Senators time, schedules representatives idle chit-chats philosophy democracy.... pressed benefactors introduce amend block way.'" 496 Warren Rudman 742); 858 133 So pervasive six furnish menus would-be prices DCCC options, starting $10,000-per-year Business Forum program, going $100,000-per-year Finance Board program. entitles bimonthly conference calls leadership chair DCCC, complimentary invitations events, dinners ranking Members, retreats leader Telluride, Colorado, Hyannisport, Massachusetts. 504-505 506 (describing offered meetings donations); 502-503 programs); 503-504 (same NRSC); 500-503 DSCC); NRCC). programs holders grow larger, highest donors." (finding, further, holds prospect attract encourages donors); accord, 860-861 134 Despite KENNEDY "inherent in" behest Post, 292, 298. Regulation size, unabashed intent purchase would, according bounds. crabbed ignores precedent, sense, realities exposed litigation.48 135 Kennedy's powerless subtle dispiriting forms Just troubling democracy classic danger decide merits desires constituencies, valued officeholder. occurs occasionally, manifest. straight transactions, detected criminalize. best identify remove temptation. sampling reams disquieting convincingly Kennedy likewise He asserts transactions potential," again inference "that stem 297-298.49 view, isolation context. sure, favoritism alone insufficient demonstrates, manner sold influence. Implicit (and, shows, explicit) sale buys surprise then unabashedly admit unwarranted conclude selling gives 137 sum, Restriction Spending Receiving 138 stake.50 353-354 (REHNQUIST, asserts, "little 353 (dissenting opinion). observation beside point. remainder suspect. 139 "`[t]here meaningful separation them.'" 468-469 29). composed four entirely nexus prompted framers conclude: 140 "Because operate level, inextricably funding [soft-money] problem parties." 148 H409 (Feb. 13, 2002) (statement Shays). 141 alignment interests, indebtedness 142 Access valuable use, exert 1196-1198 (Expert Donald Green, Yale University) Green Report) ("Once enter environment parties-in-government crucial success caucuses assignments"); 1298 (indicating significantly influenced attitudes leadership). Either way, buy preferential ends eventually put. grounds associated FECA.51 Soliciting Directing prohibition, limited. behalf, candidates.52 accordance furthermore, capacities, capacity. Fed. Reg. 49083 (2002). 144 follows sensibly observations approve former. favorably recipient entity. accords elsewhere laws. 201(b)(2) (prohibition "demand[ing] [or] seek[ing] ." added)); CFR 2635.203(f)(2) (2003) (restriction gifts employees "[g]iven charitable organization, designation, recommendation, specification employee"). 145 over-breadth ban. point Compare 441i(e) significance. `differing structures purposes' `may process,'" steps 258, (1986) (MCFL); 105. reflect played superior knowledge. Application Minor 146 stricken infringes which, owing few sources, DNC. minor-party exclude independents en masse overlooks win elective relevance manages elect. Congress. 147 add nothing pooling start party. 289 part). Only gained status, carries benefits members, proscriptions apply. then, "amassing Associational Burdens assert Victory Plans, whereby acts joint, full-ticket programs. 693, 694-697 Peschong, Western Dir. Plans)). outlaws Plans table collective decisionmaking solicited, received, spent. burdens, argue, bear. 149 wide planning activity. Intervenor-defendants, drafters proponents concede much. Brief Intervenor-Defendants ("BCRA coordinate goals another"). definitions view. 300.2(m) (2002) (defining "solicit" person" 300.2(n) "direct" intermediary" 300.2(c) (laying factors committee). 150 straightforward meaning incorrect "[a] strategic ballot initiative" assistance developing Levin-money risks "`indirect control'" criminal penalties. 289. participate, money; unofficial 151 reject Local 152 constructing coherent rapidly donations.53 sharply regulation: activity." 441i(b)(1) distinct electioneering: regularly scheduled (GOTV), activity54 communication"55 office" office; explicitly several definition: candidates;56 candidates;57 cost bumper stickers 431(20)(B). 153 323(b)(2), rule. refinement mix types funds"—that person. 441i(b)(2). Except 323(b)(2) States.58 154 ways. activity—namely, identification drives, 441i(b)(2)(A). qualify: office"; 441i(b)(2)(B)(i)-(ii). 155 441i(b)(2)(B)(iv). expenditure. generally can, jointly 156 Its conclusion, it, insinuate forces.59 committees.60 least —and effect—of officeholders.61 promotes confronting 157 Having taught lesson scrambling "neither implausible," "must accord predictive Congress," Turner Broadcasting System, Inc. FCC, 512 622, 665 (1994) (plurality opinion), when, predictions rooted sense. Tailoring 158 provision's contentions proposition. federalizes conceivable appearing points a. Activity 159 represents brand state-focused goes disagree. 160 offices. sorts 106.5 longtime restriction—approved eroded —on 431(8)(A), 441a(a)(1)(C); committees); cf. Medical Assn. 453 182 (1981) $5,000 multicandidate committees). rest premised capable putting contributor, poses kind corruption: directly. Further, reasonably tailored, temporal focus served. countering efforts, 301(20)(A)(i), 301(20)(A)(ii), Common dictates, "undisputed" register sympathetic 460 reap rewards registered go polls.62 ("`[The evidence] mobilizes residents precinct harvest voting candidate.... [G]eneric elections'" 14)). Representatives "`transfe[r] non-federal and/or for'" "`[t]hese candidates.'" 459, 461 163 converted GOTV-type efforts. thanking CDP's "`increase Californian Congress'" "`deliver California's votes'" candidate). 164 creates response risk. subset candidates: 441i(b)(2)(B)(i)-(ii) 301(20)(A)(ii) target occur ballot." 431(20)(A)(ii). Appropriately, implementing subsection, categorically excluded runup stake.63 301(A)(20)(i) 301(A)(20)(ii) 165 "Public office—the 301(20)(A)(iii)—also undoubtedly dramatic prime motivating passage. 4535 (additional Collins) ("[T]he rubble"). attacks participating. score scarcely abundant. tendency carefully 301(20)(A)(iii), address.64 166 301(20)(A)(iv), salary full-time electioneering, expedient dividing workload multiple employees. suggested "deference [the] [this] prophylactic rule." 500. b. Imposed 167 recognize, past, 567 Eu San Francisco County Central 214 (1989). 168 initial altogether forgoing option electing event, justifiable readily choice.65 undergirds "all hands" individual, divided case, letter, 323(b)(2)'s thwarted: large, visible fundraisers, ready 169 323(b)(2)(B)(iv)'s question. 441i(b)(2)(B)(iv) leveraging wrest purported weak, polices behavior. 441i(a)(2) (extending insubstantial de minimis. dedicate "homegrown" relying infringement. c. Impact Parties' Ability Engage Effective Advocacy 170 Judge Kollar-Kotelly revenues "speculative analysis." 524. anything, reduces cycles, "so [the recipient's] notice." indeed 171 accordingly Solicitations Tax-Exempt 172 subsidiaries, "solicit[ing] mak[ing] direct[ing] Internal Revenue Code66 office."67 441i(d) struck face. reverse uphold construing section's 173 reasonable. law." 457. candidates.68 regarded Yet, third-party 348 (Henderson, declarations demonstrating contributions); 174 Experience hypothetical. created 4013 ("In helped coalition's organizations"); 5983 (minority views) ("Tax-exempt `issue advocacy' conduits systematically laws"); 517 848 begun "politician 527s," fronts promotion interests. ("`Virtually group. Citizen 527s'" Watch, Congressional Leaders' Accounts Show Need Bills, Feb. 26, 2002, 6)); 849-850 527s 519-520 (finding industries donated politician 10-11)); 850 tighter increase. 175 surrogates. Though phrased expressive obviously, "mak[ing] 441i(d)(1) partisan 441i(d)(2); 527(e). 501(c)'s qualify PACs.69 Third, endorse ways administering 180-181. "an committee" renew restrictions: 441i(e)(4). 210; Katzenbach Morgan, 384 641, 656-657 (1966). accommodate lending 177 donatio[n]" indirectly—namely, collecting greater. disturb robust 517-518 (Kollar-Kotelly); 848-849 178 doing, values espoused complete "general support" represents. 179 group's accepted rationale, flat diminished control. 180 sustain restriction. "When validity question, doubt cardinal ascertain avoided." (1932); Boos Barry, 485 312, 331 (1988); York Ferber, 458 747, 769, (1982). problems, animating generally, specifically, abuses 4565 ("The fueling investigated Committee.... supplied activities"); 4568-4569 "egregious exampl[e]" misuse $4.6 Americans Tax Reform, "direct mail phone bank operations counter anti-Republican advertising"). concerned prohibit, exclusive expect meant questionable effect, explicitly. compels decline Officeholders 181 "solicit[ing], receiv[ing], direct[ing], transfer[ing], spend[ing]" 441i(e)(1)(A). 441i(e)(1)(B).70 admits exceptions. "attend, speak, featured guest" event. 441i(e)(3). activit[ies]" specify spent, 441i(e)(4)(A); $20,000 441i(e)(4)(B); carrying 441i(e)(4)(B). 183 agents, narrowest put, 184 Large evident itself. sources explaining "`you campaign,' `you assisting Party'"); 479-480 (surveying parties); (same); nonprofits purposes); 849 so, 185 Rather 323(e)(4) allowance accommodates active 323(e)(1)(B) 323(e)(3) preserve colleagues 441i(e)(1)(B), 323(f)'s 186 323(f). 301(20)(A)(iii) opposes 441i(f)(1); 431(20)(A)(iii). Exempted 441i(f)(2). 187 188 64, KENNEDY'S contrary notwithstanding, 316-317, endorsement.71 189 litigation driven explosion. money: labored regime; favorable ratios; production ads. upset eminently prediction avenues longer available, next challenge.72 B 190 federalism. infirmity commandeer 898 (1997); 505 (1992). whatsoever financing campaigns. tactics indirect uncommon Oakland Cannabis Buyers' Cooperative, 532 483 (2001). conflict inevitable areas concerns. marker infirmity. Ex parte Siebold, 371, 392 (1880). 191 course, maintaining envisioned Founders, commandeering I. 598 514 549 (1995). chosen. turns finding, (respect owed branches "demands showing exceeded bounds"). C 192 Fifth discriminates Association, Union, Sierra Club. earlier, numerous abilities prominent. Interest disparate offend Constitution. 193 Most committees; whereas addition, 441a(d) 194 select slates leadership, caucuses. Legislature hardly surprising relationships salient differences. structure arguments. 195 affirm 196 "Noncandidate Expenditures," subtitles: "Electioneering Communications" "Independent Coordinated Expenditures." subtitles Definition 197 201, amendment coins replace 198 "(I) refers 199 "(II) 200 "(aa) general, special, runoff 201 "(bb) preference convention caucus nominate "(III) electorate." 434(f)(3)(A)(i) 2003).73 304(f)(3)(C) "`targeted electorate'" "can 50,000 persons" district seeks represent. 434(f)(3)(C). 204 setting context: (BCRA 203, 316(b)(2)) corporations' contexts. 205 possess maintain, "communications" 206 misapprehends decisions, endpoint law. then-18 IV), candidate,'" to'" 40-42. deficiencies "be avoided candidate."74 43. for,' `elect,' `support,' `defeat,' [and] `reject,'" 52, 207 431(f) "`expenditur[e]'" assets "`for influencing'" 77. Finding "ambiguity phrase" "constitutional problems," ibid., "obligation legislature's shoals vagueness," 77-78 "To insure reach" "not broad, construe[d] `expenditure' 608(e)—to contexts, command.75 overbreadth, nowhere toe line. (1986), understanding construction.76 concomitant infirmities. NLRB Catholic Bishop Chicago, 440 490, 500 (1979) Murray Schooner Charming Betsy, Cranch (1804)). "`rigidly adhered'" tenet "`never formulate precise applied,'" Raines, 362 17, (1960) (citation omitted), nature constrains us," Beam Distilling Co. Georgia, 501 529, (1991) (Blackmun, principle, decisions us; 210 persuaded, precedents, unmistakable litigation, agreed, magic-words meaningless. 303-304 534 875-879 advertisers evade eschewing seldom permitted.77 although urge viewer election.78 line, existing system. 211 Finally observe 304(f)(3)'s drove identifying period, audience listeners. determinable. Grayned Rockford, 408 104, 108-114 Disclosure Requirements 212 differently whenever producing airing statement pertinent sharing 434(f)(2)(A), (B), (D) corporation's union's account,79 collected others, 434(f)(2)(E), (F). hours "disclosure date" dates person's undisclosed expenses 434(f)(1), (2), (4). Another subsection execution disbursement 434(f)(5). 213 failed improperly paid mandating latter, 304(f)(5), governs Relying severability provision,80 invalidation 242 thereof, BCRA.81 authors elections: 215 factual abuse concealing public. reveal disdain surprising. sixty needs `uninhibited, robust, wide-open.' Br. Times 376 254, 270 (1964)). Curiously, hiding dubious like: `The Coalition-Americans Working Real Change' (funded opposed organized labor), `Citizens Medicare' pharmaceutical industry), `Republicans Air' brothers Sam Wyly). Findings 51, tactics, satisfactorily answer wide-open' hide 44. striking precious trampled citizens choices marketplace." F.Supp.2d, 237. 216 NAACP Alabama Patterson, 357 449 (1958),82 Nevertheless, obtaining minimal infringing substantial. NAACP, reprisals physical threats disclosures. 69-70. arise future, proof apply: 217 "We recognize unduly burden, necessary. flexibility fair claim. contributors' threats, harassment, 74. 218 resolve Ohio's "threats, reprisals," "reasonable probability" result.83 Brown Socialist Workers '74 (Ohio), 87, 219 evidentiary contrast members. "lack concerns." 247 agree, refusal 220 communications: "Contracts disburse 221 "For shall having executed disbursement." 434(f)(5) 222 advance. mandate contents curious unquestionably week down-payment advertiser waited completely. 223 304(f)(5)'s "advance" speculated performed, lead confusion unclear forces operating 241 frequency nonperformance contracts, advertisement.84 television station insisted payment contract. possibility (rather ad) trigger 224 observed, "`d[o] anyone speaking.'" Opposition 02-582 (DC), 112). perform informing day.'" Opposition, 112) original). 304(f)(5). 202's Treatment "Coordinated Contributions 225 315(a)(7)(C) 441a(a)(7)(C) 2003).85 315(a)(7)(B), states "expenditures concert, of" 441a(a)(7)(B)(i)-(ii). 40-44, (addressing candidate'"). counted 190-193, "no unconstitutional." 250. 203's Prohibition Corporate Disbursements Electioneering 226 treasuries embedded 441b view,86 227 previously 304(f)(3), 441b(b)(2) 2003).87 "simply wrong" "complete ban" Beaumont: 228 temptation odds sentiments shareholders lets disclosure, [2 U.S.C.] 432-434, jeopardizing members." 229 Austin Michigan Commerce, 494 652, 658 (1990). 230 operates restraint, underinclusive. light, examine 657. answered "represent `legislative characteristics regulation.'" 209-210). sustained corrosive distorting immense wealth accumulated correlation public's ideas." Austin, 660; 154-155; 209-210. permissibly hedge "`circumvention [valid] limits.'" 456, 18.) 231 contest involved After guarantee fullest urgent Monitor Patriot Roy, 265, 272 (1971), "[a]dvocacy policy legislation." 48. 232 voters' effect. timespans dispute 307-312 583-587 796-798 Annenberg 13-14; 1330-1348 Report); 573-578 826-827 whatever genuine reference doubtful fund.88 233 Broadrick Oklahoma, 413 601, 613 (1973). assumed inhibit "justify enforcement" substantial, law's applications." Virginia Hicks, 113, Far pure strongly conclusion. 234 Internet. 434(f)(3)(A) developed choice. 569-573 799 4465, 4474-4481; 7521-7525. "reform phase seems acute mind." (internal quotation marks citations unregulated. line-drawing. 235 underinclusive, companies. 304(f)(3)(B)(i) "communication story, commentary, distributed facilities station, owned 434(f)(3)(B)(i) rein companies resort 304(f)(3)(B)(i)'s narrower suggest. excepts only; carte blanche principles. regular imparting public." 668. Numerous statutes ensure "does hinder publishing editorials newsworthy events." omitted); 431(9)(B)(i) (exempting stories, commentaries, "expenditure"); 1801-1804 (providing antitrust newspapers); 315(a) (excepting newscasts, interviews, documentaries office).89 236 316(b)(2); 204's Nonprofit 237 316(c)(6), not-for-profit corporations.90 Prior (2003), subcategory "MCFL organizations," (1986).91 316(c)(6). entities. features holding: 239 "First, events denominated ensures affiliated earnings. disincentive disassociating disagree 240 "has statute" embrace Broadrick, 613; books presume drafted validly Bowen Massachusetts, 879, 896 Cannon University 677, 696-697 (1979). 661-665 (holding carve status). 212's Reporting Requirement Expenditures 20-day 304(g) goods contract.92 304(f)(5): postpone performance 243 "provid[ing] exact seek" declining `publi[c] disseminat[ion].'" 251, curiam) 404, 452 (codified 109.10(c), (2003))). purporting circumstances speech-burdening enforced nonjusticiable (concededly broader) separately ruling 194-202, renders 213's Choose Between Nominating Candidate 244 period.93 blush, text 315(d)(4)(A) nominees. 388 650-651 J.), 805-808 complexities issue. 245 sets 315(a)(2) 441a(a)(2). 315(a)(7) 441a(a)(7) 315(d), "[n]otwithstanding contributions," "expenditures" formula keyed voting-age population home 441a(d)(1)-(3) 2003).94 ranging $33,780 $67,650 races, $1.6 races. 439, 315(d) decision, replacing generous prescribed 315(d)(1)-(3). 246 adding paragraph nominates options. option, "makes (as [301(17)])" barred subsection." 441a(d)(4)(A)(i) "this subsection" 315. consequence expenditure: 315(d)(1)-(3), 315(a)(2). right. converse first. "under (i. ordinary limit) [301(17)]) 441a(d)(4)(A)(ii). 301(17) "`independent expenditure'" mean noncoordinated "expressly 431(17)(A).95 Therefore, stark initially appears: expenditure, forfeiture 189-194, tiny fraction defeating campaign. Regardless choose, words. 248 appears. nominee forced forgo small, 44-45, 315(d)(4), "core expression," 48, loss years. 249 evaded: "So Any belied election-influencing woefully capturing recognition, 315(d)(4)'s 250 argues (or cap) voluntary benefit. Whatever abstract, 315(d)(4)(B), provides: paragraph, maintained (including committees) subordinate committee) 441a(d)(4)(B) 252 exercising taking Instead, resides hands mover, bind chosen option.96 thing, odd undermines 253 214's Changes Provisions Covering 254 Ever settled noncandidate "controlled campaign" 46. 315(a)(7)(B)(i) 441a(a)(7)(B)(i) 315(a)(7)(B)(ii) party." 441a(a)(7)(B)(ii).97 Sections regulations98 dealing "coordinated Subsection "regulations coordination." 441a(a) 255 permit liability deemed stress "coordination" hinge "precise guidance" demands. Appellant 02-1756, admit, reaches calling 256 truly independent. totally campaign," 47, "impose association" "fail[ing] stemming 47-48. 613-614 (striking consultation nominees). Buckley: "Unlike prove counterproductive. prearrangement alleviates commitments 47. 258 rationale affording everything "are poor leverage spender duplicative counterproductive view." 446. "wink nod" "as useful cash." 442, "at coordinated.99 agreeing "`virtually indistinguishable [a] contributio[n],'" 444-445. cooperation notwithstanding 259 (B)(i), concer[t] "delineates understanding." Cameron Johnson, 390 611, 616 (1968). surprisingly, insulate undermine Reno 844, 874 (1997) (noting expression). speculate investigations coordination, solve problem. adduced 27-year late 1990's sides aisle. meager "foster `arbitrary discriminatory application.'" 41, 108-109). "fair notice whom [it] directed," Douds, 339 382, 412 (1950), 260 promulgated 214(c). 109.21 explained, appropriately pursued proceeding. 261 rejecting 262 "[t]o pass safeguard deny nation vital self protection." 545. abide conviction considering confine ill aggregated illusion last matter. Money, water, outlet. What arise, respond, day. features: II. 263 ordered. Notes: Together 02-1675,National 02-1676, McConnell, Senator, 02-1702, McCain, 02-1734, 02-1740, 02-1747, Paul, Congressman, 02-1755, &#x2020; amici curiae urging reversal Commonwealth Jerry Kilgore, Virginia, Craig Engle, Attorneys respective Wasden Idaho, Steve Carter Indiana, Phill Kline Kansas, Jon Bruning Nebraska, Wayne Stenehjem North Dakota, Jim Petro Ohio, Henry McMaster Carolina, Long Shurtleff Utah, affirmance Center Studies Hasen; Grant Christopher Wright Timothy Simeone. Iowa Miller, Iowa, Andrews, General, Sorrell, Vermont, Bridget Asay, Blumenthal, Connecticut, jurisdictions Goddard Arizona, Ken Salazar Albert Chandler Kentucky, Ieyoub Louisiana, Rowe Maine, Reilly Mike Minnesota, Moore Mississippi, Jeremiah (Jay) McGrath Montana, Eliot Spitzer Drew Edmondson Anabelle Rodríguez Puerto Rico, Patrick Lynch Rhode Island, Christine Gregoire Peggy Lautenschlager Wisconsin, Iver Stridiron Virgin Islands; Allen Temple Baptist Church Martin Glick; Rights Armor Peter Ferrara; Former Randy Dryer Bailey; Student Research Group, Wilson; Cato Institute Erik Jaffe; Responsive Politics Noble Sanford, Economic Development Reiss, Bruce Rich, Bloom; Cause Simon, Daniel Kohrman, Schuster; Leaders Norman Dorsen Lieberman; Interfaith Alliance Foundation Evan Davis; League Women Voters Ortiz; Delaware Representative Castle Briffault, Tiefer, Cuneo; Honorable Dennis Hastert Evans Stefan Passantino; Dr. Moshman Kevin Theriot; Ornstein Teresa W Roseborough Judith O'Brien; Rodney Smith Clark Bensen; Thompson Frederick. Souter, Ginsburg, Breyer join entirety 221-226 (DC 2003)(per clarity, "plaintiffs," referring defense "intervenor-defendants." expend July 1940, 640, 767. Bankhead, offering floor, "`We chief conducting expensive newspapers radio; publication literature, untrue; campaigners sent spread propaganda, untrue.'" 577-578 2720 (1940)). PACs outsiders. §§441b(b)(4)(A), (C); seeFederal 198-199, overbroadBuckley 832 (CADC 1975) (invalidating 437a V)). taken holding. found: "Large do, Mathias describes corollary, feeling big produces reaction average process." F.2d, 838 (footnotes noted: "Congress furthering conversely, tended contributors. 93-689, 93d 4-5; 108, 110, 118, 170." 838, 32. Citing explained: illegal included executives `calling card, something door heard,' Hearings Select Activities, 5442 (1973) (Ashland Oil Orin Atkins, Chairman) `in pressure competitive result,' id. 5495, 5514 (American Airlines George Spater, chairman); 159-64." 839, 37. intricate Milk Producers, example lengths duty disclose: "Since producers, advice, worked $2500 evolved procedure, November 1970 raisers, break [their $2 donation] smaller President's campaign, producers disclosure." 36. meeting price supports." 1977 allocate "on basis" accounts containing 102.6(a)(2). advisory opinions 1978 1979, accounts. 1978-10; 1979-17. 195-197(per 1990 clarified promulgating rates. (1991). (RNC) (DNC) 60% (65% years) 106.5(b)(2). offices State's ballot, 106.5(d)(1), proportion 198-199 Tbl. (report Mann, Chair Sr. Fellow, Brookings Institution Report)); 197-201 26; cycle, 6; J.);id., 785, executive "Business leaders disappointed colleagues, shun disfavor contributed. Equally, refuse (enough), generously key matters company union." 283, Gerald Greenwald, Greenwald Decl.)). Amici Curiae attest "coerced bottom, commercial" nature, "[b]usiness increasingly freed grip adverse refusing fill coffers 480 842 Seeid., Court: "`Once you've (assuming contributions), advertisement campaign.'" 532-537 organization's "`It foolish separates sand windy 536-537 Tanya K. Metaksa, Opening Remarks Consultants Session "Issue Advocacy," Jan. 1997, 2); 878-879 part); undisputed ads—whether groups—used advocacyId., 303 4% words; 5%. 1334 Krasno, University, Frank Sorauf, pp. 53-54 Krasno 2, 53-54). 564, Goldstein, Wisconsin-Madison, 16; 3-R 7); Tr. Oral Arg. 202-203; 305 climbed decade. $135 $150 broadcasts (1997-1998), 423 $270 $340 million. $500 1,100 Two attributable groupsId., Policy Center, 1999-2000 Cycle 1-15 22); 879 AFL-CIO Memorandum Weeks Klein, Electronic Buy Illinois (Oct. 1996), 005244); 886 Pharmaceutical Manufacturers America (PhRMA)Id., 232-233. Other mysterious "Voters Truth," "Aretino Industries," "Montanans Sense Mining Laws," "American Seniors, Inc.," Family Voices," 1355 71-77), "Coalition Make Voices Heard," Supp.2d, 538 Some actors frankly "`in it's Heard" men women AFL-CIO."'" Magleby, Brigham 18-19 Magleby Report), 1484-1485). 518-519 Hickmott, Senior P., Smith-Free Group Decl.); 6-R 8). 105-167, vol. 4611 (1998) 5id., 7515. 3id., Collins). 1id., 41-42, 195-200. memorandum written suggesting "overnights" "quality time" guests $26.4 194, 196. 2913-2914, 2921. Tamraz's background foreign attended President. 2920-2921. Kojima's $500,000 1992 Dinner, wife head Mrs. Bush. Kojima administration embassy 5418, 5422, 5428. $100,000, years; $15,000. 7968. 7971. 49; 3997-4006. 4466. 4468-4470, 4480-4481, 4491-4494. 4492. 6id., 9394. are: RNC; DNC; Senatorial (NRSC); (NRCC); (DSCC); (DCCC). 468 accuses sleight hand conflating "unseemly speech" adverting "corporate linchpin case."Post, 290-291 (opinion incorrect. assessing articulated progeny speech—including speech." inBuckley, 23-36 (applying candidate); 182, 195-196 opinion) multi-candidate 208-211 buttressing limit); 161-162 limits). structured fornonfederal burdening misreadsBuckley. impacts latter. 20-22. weighty overcome countervailing (2000) ("While [in Buckley] parse distinctions standards bore speak. consequently proceeded surviving well, satisfied review" omitted)). untrue "burdens necessitate review." 312. piece campaign-finance times severe scrutinyPost, 311. 161, case. himself acknowledges, "significant interference" "protected 162; inconsistent post-1990 explosion clamp (culminating, BCRA) underscores intended. Cantor, Service Congress: Legislation 101st (1990) (9 bills introduced); CRS 102nd (10 103d (1993) (16 bills); 104th (18 201-206(per (discussing curb 105th Congresses). contends plurality's inColorado "establish[es] that" corrupting. 301 616, 617-618 (1996)). dictum bearing cases. namely, facts. frozen 1990's. 839 1448, 1451 (Colo. 1993). agreed. board CEO toy "`Many world .... convinced publicized cheaply. gotten business.'" 491 Hassenfeld, Hasbro, 17). emeritus airline opined: "`Though checks doors Administration.... experience good shape derives parties.'" 498 12, 283-284); 858-859 "`[I]f you're lot side, side knows. economically-oriented staff indicate noticed. They'll basically asks: "Are sure side? Don't aisle?" anger aisle, suffer penalty give.... [D]uring 1990's, became acceptable someone, saying saw opponent.'" 510 715); 868 see,e. arrangements); 389 (same), KENNEDY's There, meaningless Likewise, (1981), pass-throughs non-coordinated otherwise-easy-to-remedy exploitation contributions) point, describing "flawed reasoning," "create... officeholders."Post, 299-300. formulation claim, 2001, $15.6 (30% year) spending. 102-103 counsel Burchfield); 336-337 464-465 830 answers JUSTICE's bespeaks principlePost, 355-356 desiring (d), (f), rely uniquely positioned talk hosts newspaper editors sole conferred 355 illusory one, accounts, preclude Cal. Fair Pol. Practs. A-91-448 (Dec. 16, 1991), 1991 WL 772902; Colo. XXVIII, 2(3); Code 56.5A Ohio Rev. Ann. 3517.10(J) (Anderson 2002). maintain combines impossible solicitations. handful interfere ineffective." Constitution Reform: 522 Rules Administration, 106th Burchfield, Partner, Covington Burling) Generic 431(21) 2003) broadcast, newspaper, magazine, outdoor facility, mass mailing, telephone public, advertising." 431(22) 431(20)(B)(i) Unless earmarked 431(20)(B)(ii) ratio. 441i(b)(2)(A); 300.33(b) ratios) "`The helps it; solved all. enormous exist; made; are; beholdenness arise; distortions occur; cynicism erode foundations democracy—except worse mind perceived undercut once system.'" 467 746). E.g., ("`It interested touch RNC, party'" Chief Counsel 68, 308)); Allard's Aug. campaign,'" 454 ("`Both accompanying smoothly, acknowledge "pass throughs" vendors mail'" 37, 1510-1511)). tostate arranged 43-44; 2907-2931; 7519. Native tribes operated casinos sizable 44-46; 3167-3194; (Weisskopf, Busy Back-Door Men, Time, Mar. 31, 40). precondition obviously primaries, January even-numbered 100.24(a)(1) 323(b). regulations' constitutionality. claims overbreadth. SeeBroadrick "promote," "oppose," "attack," "support" confines "provide them" "give intelligence prohibited."Grayned 108-109 presumed "need "are, related"). guidance, clarification, 437f(a)(1), "remove Letter Carriers, 548, 580 doubts seemingly complex inBuckley 6, supra (setting officials). exempted taxation Code. 501(a). 501(c)(3) educational 501(c)(4) social welfare organizations" are, "party, fund, (whether incorporated) accepting expenditures" "influencing attempting selection, nomination, appointment Federal, 527(e) sophisticated waging attacking large-scale drives. NAACP's Voter Fund 200,000 people, promoted hot-line, mailings. 348-349 turned African-American turnout 22% 50% Florida, 140% MissouriIbid. effort, $10 million, $7 anonymous donor. 349 cross-examination 15-20, 3; Refiling Trs. Pub. Record); (stating Abortion Reproductive (NARAL) $7.5 mobilized 2.1 pro-choice Mary Gallagher, Exec. NARAL 271-272, 24)); Notably, 323(d)(2) state-registered 300.37(a)(3)(iv) committee"—at committees—was fundamental 49106 tightly analogous come sources. doubles 441i(e)(2) S2143 (Mar. 20, Feingold) (Section "spending non-Federal [state candidates] endorsed support, attack, oppose candidate") faults "unwillingness" confront "Title look[s] incumbency plan," citing officersPost, 306, 307. But, minimally roles. Supra, 183; opportunistically self-serving transaction disagreed basic expertise assess 465 (joining THOMAS proposition "Buckley overruled" omitted)); "backup" "held herein." 434(f)(3)(A)(ii). backup circumvented. Concluding 608(e)(1)'s justified, provisionBuckley, 45-48. doctrines. SeeBroadrick, Grayned, 108-114. inMCFL (1982 ed.) moneys, with'" 241. "`expenditure'" overbreadth." 248. construction" constrained major-party consultant testified, "`it advisable clumsy for" against."'" Bailey, founder, Deardourff Assoc. 1-2, 24, 3). "`All understand leads throat.'" academics anachronism. 531 Raymond Strother, Pres., Strother/Duffy/Strother 40); Unsealed Vol., 1334-1335 called Reform" sponsored Montana race, Bill Yellowtail stated: "`Who Yellowtail? preaches family took swing wife. Yellowtail's response? slapped her. "her nose broken." talks convicted felon. children, child payments voted enforcement. Call Yellowtail. Tell values.'" 6305 views). strains credulity. below,infra, 203-209, treasuries, "separate fund" 441b(b)(2). "If ., circumstance, holding." somewhat version $200. 434(c)(2)(C) (2000 ed.). more. (F) contempt Alabama. uncontroverted occasions revelation rank-and-file ha[d] reprisal, employment, coercion, manifestations hostility." 462. "affect adversely" members' pursue foster beliefs admittedly advocate." 462-463. circumstances, Alabama's 464-466. `substantial hostility toward harassment [Socialist (SWP)] supporters.' Appellees introduced incidents SWP trial. incidents, occurred neighboring threatening hate mail, burning destruction property, police firing shots 12-month fired membership. firings motivated, `private difficult employment.' SWP." 98-99 (paragraph judge occur, description contractual govern speculation,post, 321, advertiser. reads "[I]f "(i) makes, make, (within 434(f)(3) title); "(ii) committee; "such contracting 441a(a)(7)(C). 441b(a). section, `separate fund[s],' `utilized purposes.' 441b(b)(2)(C). unlawful `stockholders families personnel families.' 441b(b)(4)(A)." 201-202. straightforward. 316(a) "unlawful whatever, 441b(a) "contribution expenditure" emphasizes dissent,post, 326-328, apparently underlies correct, indeed, Nat. Bank Boston Bellotti, 435 765 (1978), unusually Bellotti "[p]reserving `sustain[ing] active, alert wise government' importance." 788-789 footnote "Preservation citizen's government," added, "is important." 789. fidelity imperatives apart banning distribution McIntyre 334 speakers' Amdt. lacks complex. "Rules Relating Communications," 203(c)(2) (adding 316(c)(2)) designated "Exception "Notwithstanding (1), `applicable communication' 527(e)(1) 26) 434(f)(2)(E) title exclusively nationals permanent residence 1101(a)(20) sentence, `provided individuals' section." 441b(c)(2) 204, 316(c) "targeted exception. 316(c)(2) "shall described" 316(b)(2). 441b(c)(6)(A). Subparagraph (B) canceled 316(c)(2). 804 ("Section cancels 203"). "[A] inNational think today, here." 163. "Time "(1) aggregating "(A) Initial 20th day, hours, hours. "(B) Additional "After files subparagraph (A), relates." 434(g) versus "On 431(17) title) cycle; cycle. committee. "(C) Transfers assign from, intends 441a(d)(4) exempting 441a(d)(1), following substitute spending: "(2) cents multiplied age certified section). "(3) Representative, section); $20,000; Delegate, Resident Commissioner $10,000." 441a(d)(2)-(3). `independent expenditure' agents." 1976, presumably 475. text, broadly: State" States" suggests grouped grouping choice) interpretive puzzle, tie italicized partial "(B)(i) Pre-BCRA "[a]t party; "exercised decision-making timing, location, mode, audience, volume distribution, placement"; produced "[a]fter negotiation" agreement." 100.23(c)(2) Contrary contention, framework inBuckley. "authorized (Emphasis added.) "guidance differentiating expenditures," "independent" "`completely agen[t].'" 46-47, (1974)). 264 REHNQUIST IV.* 265 266 (Communications Act) 315(b), period," 315(b)(1). "provides certification candidate) 305(a)(3), herself approves broadcast. 315(b)(2)(A), (C) 267 305. 268 "judicial power" resolution "cases" "controversies." element "bedrock" case-or-controversy sue. Raines Byrd, 811, 818 (1997). occasions, reiterated "`irreducible minimum'" 771 fact," "concrete," "distinct palpable," imminent." citation causal complained `fairly trace[able] defendant, th[e] [of] court.'" 560-561 (1992) Eastern Ky. Welfare Organization, 426 41-42 (1976)). "`substantial likelihood' fact." 771. 269 time. 2008. Whitmore, ("A impending Los Angeles Lyons, 95, (1983) (A injunctive "`immediately injury' result" conduct). dismissal 487, indexes Again, 271 representing injuries, cognizable, outlawing discrimination 31. deprive status. 560. "[a]lthough depends illegal, asserted." Warth Seldin, 422 diffuse asserted plaintiffs. reliance misplaced. nondiscriminatory single, voter. Lubin Panish, 415 709 (1974) ballot-access fee vote); Harper Bd. Elections, 383 663, 666-668 (1966) poll tax denied vote). 273 denial vote. curtailment "[p]olitical `free trade' resources." (1986); (rejecting "equalizing elections" presented 274 plaintiffs-candidates suffered injury. "do BCRA" "[t]hey unequal Complaint 53. disadvantage," 56. 275 first: consequently, diminished. 562. "wish" 276 press. 315, media, periodical publication, expenditure), 277 [their] removing controls indexed adjudicate banc appeals, 437h, convened 403(a). hear favor, redress injury, Steel 523 83, 105-110 (1998). 278 319 279 315A, collectively funds.1 circumstances.2 280 "none chooses `conjectural' be." F.Supp.2d (case below) part) 560). 281 "authorized" authorized, payor announce authorization. 441d 201. 282 along Assuming 283 324, provision; minors. agree. 284 Minors 511-513 (1969). Limitations association. contribute, ante, JJ.) ("[A] interference"' `lesser demand' `"closely drawn"' `"sufficiently interest"'" (2003)). Ante, 136; 25. conduit; evasion.3 Perhaps deterrence 320 "knowingly accept[ing] another," 441f. raised"). overinclusive. variety approaches counting minors parent unit, lower young children. deciding alternatives sweeps broadly. 403(b) 286 grant Rule Procedure 24(a) FEC's. (1998); Bowsher Synar, 714, 721 (1986). Diamond Charles, 476 54, 68-69, (reserving day). 287 foregoing nonjusticiable, 288 Affirmed. O'Connor, Scalia, Kennedy, Souter entirety. joins "opposition amount," self-financed opponent, "threshold amount." 441a(i)(1)(D), 441a-1(a)(2)(A) amount" $350,000 441a(i)(1)(C)(iii), 441a-1(a)(1)(C) 588-590 V.* amending 1934. requests. Broadcasters, onerous offsetting justification, below). disagree, determination. 291 following: 292 293 315(e)(1)(B)(i), (ii). 294 315(e)(1)(B). 295 296 1938 slight modifications since. 73.1943 (2002); compare 1692 (1938) (47 36a4); 7486 (1948) 3.190(d), 3.290(d), 3.690(d)); 4711 (1952) 3.590(d)); 5949 (1954); 7817 (1958); 13593 (1963) 73.120(d)); 32796 (1978) 73.1940(d)); 73.1943). Motion Appellee Broadcasters Summary Affirmance 9-10 Opposing Affirmance). 297 "keep" "of notation granted, (if granted) includes "classes "rates charged," "spots aired." 73.1943(a) 76.1701(a) cable systems). regulation-imposed mirror challenges. 315(e)(2) (see Appendix, infra). 298 "intolerabl[y]" "burdensome invasive." Appellant/Cross-Appellee Plaintiffs). so. seven 37468 (2001); 18090; 26593 10379; 18492 (1992); 29963 (total hour system). hundred microscopic revenue advertise. 299 extension. Cf., ("No comments received"); 32794 (no comments). Indeed "CBS" "suggest[ed]" "include time." 49493 (FCC retention [two years] overly licensees"). 300 wrote context, broadcaster "`simply territory.'" 18398 (1975). records. 73.3526 (general commercial stations); 73.1202, 73.3526(e)(9)(i) (retention "written suggestions [including letters e-mail] station" years); 73.1212(e) (sponsorship records, sponsoring entity's board-level controversial importance"); 73.1840 logs); 73.1942 (candidate records); 73.2080 (equal employment 73.3526(e)(11)(i), (e)(12) ("list station's community month "brief narrative and] date, duration, title"); 73.3526(e)(11)(ii), (reports children's substantiate "compliance programming"); 73.3613(a) (network contracts); 73.3613(b), 73.3615, 73.3526(e)(5) (ownership-related reports); 73.3613(c) ("[m]anagement agreements"); 73.3613(d) ("[t]ime brokerage agreements"). Compared drop bucket. requests" again, pointed "[t]hese others verify complied 315(a). violated charge." reinforced Commission, [candidate] fashion," helping fairness. 315(a); Red Lion 395 prepared messages. 434 2003); 194-199 1971. Adventure Communications, Kentucky Registry Finance, F.3d 429, 433 (CA4 1999) verification); "necessary adequate access"). 302 note, too, broad. Lion, 380 ("broad" interest); 190, (1943) demands Morton Salt Co., 338 632, 642-643 (1950); Oklahoma Publishing Walling, 327 186, (1946); Donovan Lone Steer, 464 408, 414-415 (1984). claims. succinctly cross-referenced rules. 359-361 dissenting), Affirmance; 73-74; 132-133. succinctness cross-reference procedural 140-page contest. 186-188. 65-year-old considerations mentioned, challengers conclusions proceedings. 235-236; 222-223 based, provision). 504; public) "message" "candidate." Requests messages "election" neutral. 306 agencies opponents, intend 206-207 stringent election-time convey opposition). Insofar neutral material functions, licensing ("obligation. 73.1910 (recordkeeping community). discussed, 235-236, presented, burdens. request, requesting (name, address, contact requester "request" "supporters," (1978). Regardless, request. out, license-related promises importance. community); (collecting regulations); Office Communication Christ 707 1413, 1421-1422 1983) 1960-1981, nonentertainment programming detailing compliance). If, held, 308 importance" 315(e)(1)(B), (e)(1)(B)(iii) "obligations (2002), favoring devoted affairs, ibid.; 380. 309 74-75. broadcasters. ("political importance") 315(e)(1)(B)(iii) ("national (both 504), ("obligation "issues 317(a)(2) program" "discussion issue"); 14734 (1944) ("public issues"); chilling effect). today. 169-170, 431(20)(A)(iii) office")), 441a(a)(7)(B)(ii) (counting [a party]") "agreement" precision). 310 say. imposed, keeping "[a]ll suggestions" e-mail. 73.3526(e)(9) 236. heavier discussed. practice, specific, linguistic reach. 315(d). ameliorated Rcd. 4653, 4665, (1999) (relaxing systems fewer 5,000 subscribers); 11113, 11121-11122, 20-22 (requiring inspect send photocopies request). 312 premature strategy though, argument's sake. Nonetheless, 313 names, addresses, request; content. possible," 315(e)(3), disclosure-timing forbid. research indication "strategy-disclosure" arising expected acute. today speculations "advance disclosure" 200-201 "strategy 314 forth. says "approac[h] licensees, ignoring purchasers, affected." 359 emphasizing speakers, ignored "perspective." contrary, broadcasters' overlap. broadcasters', definite uphold. speech-related speakers) differs 242-243. opponents. said, repeat, political-strategy disappears, both. 316 adversely ways) lawfulness "ignor[e]" 317 Government, brief, proffers whole," existence "pre-existing unchallenged requirements" "compel constitutional," somehow "relieve advancing 504." 359-360, 361 Again Before justifications, acquainted regulation-related references conclusions, experience. "nothing unfairly," decades unfair unlawful. disrupting law, superficial examination reveals facially, enforcement-related serves. potentially standard, relevant. brevity determinative. unfortunate unjustified revolution dissent. 321 322 APPENDIX TO OPINION 504, 324 "Political 325 326 inspection, 328 communicates importance, 329 330 "(iii) 332 Contents 333 licensee; 335 rate charged time; 336 aired; 337 "(D) purchased; "(E) refers, applicable); "(F) treasurer 340 "(G) purchasing list directors 341 Time 342 retained years." 343 file. 344 "(a) Every inspection orderly (political file) charges any, granted. `disposition' purchased, spots aired, rates charged, classes purchased. 345 "(b) 346 "(c) absent unusual circumstances." 347 V: dissent JUSTICE; (FECA) (BCRA) part; continue curiam), wrongly II-B THOMAS. extraordinary writings sad Who imagined sternly disapproved inconsequential pornography, Ashcroft Free Speech Coalition, 535 Lorillard Tobacco Reilly, 525 (2001), illegally intercepted Bartnicki Vopper, sexually programming, Playboy Entertainment 803 (2000), smile cuts heart protect: criticize government. offensive about. governed loud voice: sort. pre-election incumbents funds; national-party "soft" offensive. 350 evenhanded: bids. everyone knows, evenhandedness evenhandedly prohibited, advantage. favored. incumbents. 351 Beyond targets harmful Is accidental, think, challengers? FEC, Financial Campaigns (Jan. 1999-Dec. 2000) (last modified 2001), http://www.fec.gov/press/051501congfinact/tables/allcong2000.xls (all visited Dec. Clerk file). Or lobbyists (who incumbents) percent contributions? (PIRG), Lobbyist's Last Laugh: How K Street Lobbyists Would Benefit McCain-Feingold (July http://www.pirg.org/democracy/democracy.asp?id2=5068. oversight, suppose, provisions" devotes do) "war chest"? 319. happenstance, estimate, funding, severely cash-strapped flush-with-hard-money incumbents? Gierzynski Breaux, Financing Role Parties, 195-200 (J. Moncrief 1998). Was unintended, chance, not? (e). fallacious propositions underlie, approach 354 20746 (remarks Boxer); S12612 14, Cleland); S2436 2001) Dodd), reviews, Constitution: Speech?, 1001 (1976), itself, scrutiny; draft cards, 367 (1968), camping Mall, Creative Non-Violence, today's opinion: one's hire gladiators, `speech proxy,' [are] property pleases." 399 (STEVENS, Until jurisprudence. dependence nonspeech exacting Amendment." cavalier attitude (the "exacting scrutiny" uttered ones dissent) frustrates economy rudimentary division labor, speaker author novel, publish himself. freelance reporter edit, print, deliver subscribers. bent suppressing mode opportunities: Control cog machine, halt apparatus. License printers, write. Restrict books, prints Predictably, repressive regimes ideas. Printing 1662, Car. 33, (punishing importers, booksellers); 1649, Ordinances Interregnum 246, authors, booksellers, buyers). threat, Bantam Books, 372 58, 65, embraces circulation ."). 356 Division mediating exchange, society, publisher pays book; assemble booksellers book market. This, repression: Instead enterprise individually, suppress works authors? deliverymen? speak exercise. singles object, such, paper printed trucks bookstore. 358 History jurisprudence out. derive British lapse regulated. Stamp 1712 levies newspapers, advertisement. Anne, 18, 113. unfavorable war coverage, "obvious[ly] pamphlets depended cheapness sensationalism." Siebert, England, 1476-1776, 309-310 (1952). succeeded killing off approximately England 1765, Parliament Colonies. Geo. colonial exactions sales revenue, 2s. advertisement, excessive, 5s. repeated insertions." Schlesinger, Prelude Independence: Newspaper Britain, 1764-1776, (1958). founding generation taxes grievous incursions Ramsay, Revolution 61-62 (L. Cohen 1990); Adams, Dissertation Canon Feudal Law (1765), reprinted Works 445, (C. 1851). Grosjean 245-249 (1936); 67-84. faith Founders' tradition selective Minneapolis Star Tribune Minnesota Comm'r Revenue, 575 (ink tax); Grosjean, (advertisement tax). illicit motive 592. press-taxation belie newspaper's anything; appropriates obtain. campaign-speech 360 exemplify 620 (1980), ordinance charities solicitors. Schuster, N.Y. Crime Victims Bd., (1991), appropriated proceeds criminals' biographies victims. Rosenberger Rector Visitors Univ. Va., 515 819 (1995), university's viewpoint. notable, perhaps, famous (1964), protection: "Any discourage `editorial advertisements' type, shut outlet promulgation ideas shackle `the widest diverse antagonistic sources.'" 16-17. appropriate. denying paid-for "shackle Amendment," 363 obvious, charity leafletters. shareholder lender, customer. 364 Pooling 365 combine fits uncomfortably Declaration "And Declaration, mutually pledge Lives, Fortunes sacred Honor." singing unison, 366 "Our built enshrined Rights. Exercise traditionally associations. interference simultaneously adherents." Button, 371 415, explicated Alabama, 449, (1958), stemmed `[e]ffective ones, undeniably enhanced association.' Subsequent Fourteenth `"freedom ideas,"'. 15. 368 "implicit Amendment" corresponding pursuit political, social, economic, educational, religious, cultural ends." Roberts Jaycees, 609, 622 "right pursuit" resources. 369 otherwise, empowered proprietorships, partnership form. obvious incomprehensible perennially threatened) speech: threatens 370 Can Be Abridged casual free-speech this: course fashion, "[b]y eighteenth familiar figure life." Cooke, Corporation, Trust Company (1951). attach referendum proposals. "[T]here practically universal First] affairs. silence indispensable democracy, comes individual. inherent worth capacity corporation, individual." 776-777 marks, footnotes, 428-429, corporation," "modes Amendments." Pacific Gas Elec. Util. Cal., 475 speaker," decisive protected. associations, `discussion, debate, ideas' foster." 373 changed 652 (1990), dissented 679, error. modern world, enables muffle voices represent segments passionately views. People overwhelmingly form; frequency, incorporation defend Imagine, wished nuclear oil gas exploration, automobile manufacturing, gun ownership, civil liberties in, benefited industries, causes, (given enough time) organizational enterprises exist, quickly across, insulated participants incorporated generate. 374 "amassed wealth"? payoffs criminalized, discoverable (like wealth) unlikely "distort" especially coming from. sheep fools, hence substance proximate ultimate source. wrong, amassed wealth. premises 375 argued, electorate, engenders bills. quid-pro-quo payoff denied, noncorporate) allies tend him). human "corruption" corruption") me. malign proclivity him, juice squeeze. Evil affluent) influences checked (so campaign-expenditure exist) politician's portrayed pocket" moneyed muzzling offset persuasion contain. That, prescribes abridging let deceived. horrible corruption," passionate floor pertained protects, analogized "crack cocaine," 1601 Daschle), "drive-by shooting[s]," 1613 Durbin), "air pollution," 20505 Dorgan). ending negative attraction "I hope distracted tenor choices. Nation's dialog." 20521-20522 McCain). assured body "[y]ou cut [attack ads]. Prohibit that. S3116 29, 2001). S2117 Cantwell) ("This bill slowing war. permeate airwaves"); Boxer) ("These name. accountability. brutal. ."); S12606-S12607 Wellstone) ("I nightmare. [By passing legislation], [w]e poison television"). 377 theme prominent "reform" politics." S3236 (Apr. Murray). flood cancer S2151 Kennedy). "[L]arge drown voter." H373 Langevin). "drowning money." H404 Menendez). expansively: 378 "Despite ever-increasing seen discourse, education. depth. complain most. 30-second spots, negativity period." S2150 Kerry). 379 detest spots—though suspect hour-long campaign-debate interruptions favorite entertainment programming. Evidently, persuade else routinely "substance" "depth" (do damaging incumbents?) abridge rest. outrageous frittered us? $2.4 $2.5 billion. Elections: Overview Estimates Flow initiatives, $3.9 billion 2-1 (D. 2002), "shattered records," last, benchmark, movie tickets ($7.8 billion); fifth cosmetics perfume ($18.8 sixth pork nongovernmental sort) ($22.8 billion). Dept. Bureau Analysis, Personal Consumption Expenditures, 2.6U (col. AS; rows 356, 214, 139). drowning swim. 381 382 Which brings me back began: many, some, "fairer" mute reelection. stipulate believed country. remains Charlie Wilson Phenomenon, Wilson, president Motors, supposed Secretary Defense "what's Motors country."* will, prescient old-fashioned, malicious, self-interested manipulation, worst, `for fairness' sake' bounds." 693 (SCALIA, abandoned abandon future. frightening assurance cosponsoring colleagues: "This step, essential exist aspect system." S2101 Feingold). 385 indeed. instinct achieved suppression witnessed scene tragedy. weaponry left intact, equipped incumbents' writing show) voluminous, detailed, complex, dare hiring advisor field, come—and always, objective reducing excessive 386 311.* 387 War. breathtaking scope, constricts "primary 410-411 `has application' (1989) (1971)), "with utmost skepticism" "strictest scrutiny." assault slightest freedoms, imprimatur unprecedented "purpose uninhibited truth prevail." competition market," 630 (1919) (Holmes, aside "corruption," Apparently, defamers, (1964); nude dancers, Barnes Glen Theatre, 560 opinion); pornographers, flag burners, Eichman, (1990); cross Black, STEVENS' O'CONNOR'S "indispensable intelligent popular destiny industrial society," Thornhill 88, (1940), respectfully BREYER'S 504. regards 403(b); concur 318; opinion. 320. "[C]ampaign scrutiny," demanding (incorrectly) limitation. reason: Missouri. 427-430 641-644 "[b]ribery [that] bar arrangements here" laws" "less Government's] curtailing 428. errors ceilings, builds expanding reason. Admittedly, pedigree, ceiling "actuality contended represented `proven suspected arrangements,'" "most 29. "laws bribes deal 27-28, "it isolate 30.1 law2 corruptly, eliminating concern. quos likelihood, Hence, root, rational ground. easy using, "prevent[ion] 394 repeats (now) $2,000 ceiling. recognizes this, "candidates intermediaries." 146. go-betweens. mostly 164-166 (§ 323(b)); 174-177 323(d)); 182-183 323(e)); 184-185 323(f)), second-order opinion's handling telling, "Congress' third-order anticipation possibly, 396 leads. behavior edges; "circumventing" prohibition. expand "circumvention," spur neverending self-justifying particular, sufficient. 397 falls terms. corruption" "[u]nregulated `soft best, attenuated." correct. however sees fit, "because spent." justifying 398 barely suffice rational-basis review. "federal own." collaborated "for 431(8)(A)(i). impossible, ineffective, difficult. "lobbyists, individuals" "donat[ed] officials." 147. consists allegations wrongdoing), ineffective. widespread, suggests, convictions, prosecutions, frequent. "connect[ing] 150. stronger switching stand (hard soft).3 declarations, opinion.4 301-303. exceedingly nonexistent. 349-352 851-853 as, Congress'] conjecture colleagues." weight parties," "leav[es] ideology." perfect opposites, policies overlap unremarkable commonsense explanation belies too-hasty innocent fact. 402 finds sparse "relatively complaisant unless, appears, abdicate role.5 "balanc[ing] freedoms," 410 arguably wrongly) `at freedoms,'" Williams Rhodes, 23, Today's trend: decrease (First scrutiny"); "Buckley's (referencing review").6 trend 404 treating pretend "contributions." illusion. framework, 467-468 II) used, party," 214(a)(2), difference" one." dissenting).7 315(a)(7)(C), "coordinated," "clarif[ying] 315(a)(7)(B)," expansive 315(a)(7)(B). 405 Court's, Congress', making. 659-660 "different "`financial quo.'": "corrosive "immense aggregations" (in expenditures) convince effects" correctness winning sign good" "reached trade ideas," truth" market." Abrams, "corruption." antithetical stands. 790 it"); Kingsley Int'l Pictures Corp. Regents Y., 684, 689 (1959) ("[I]n realm Constitution] eloquent unconvincing"). Austin's incompatible overturn via adopt suppression. peculiar variation corruption.8 unavailing. "shareholder invests volition withdraw investment reason," 794, 34. where, "equally management predetermined shareholders." differ 304(f). "historical Founding-era `freedom press.'" 334, (1995) judgment).9 outweighs condition entry," author's 342. backs stripped flimsiest justifications. plausible "information" writer omit." 348. informational admittedly, McIntyre, 355-356. distinguished [than pamphlet,]" 355; two, "Government 356—are inherently wrong. pamphlet overturned voters. 409 abridged defendants. well.10 D incorrectly decided overturned. 465; 410; 640. framework. was, definition" "backup 2003).11 411 ambiguous "`any 41. "use indefinite `relative to' mark impermissible "advocating inquiry. observed: "[T]he dissolve application. Candidates, incumbents, intimately tied actions. positions generate interest." 414 infirmities," concludes 192. narrow: limitation's effectiveness loophole-closing naively underestimate ingenuity resourcefulness difficulty devising skirted societal unscrupulous 416 saving doubt, unconstitutionality. on.12 text; strained reading. "`[A]ny better cover, "intended ha[s] effect," "equivalent" 206. deliberately adopting narrow, nonexpress strictly forbidden. 417 provision] broad." eliminated ambiguity interpretations MCFL's uncomfortable unpersuasive. `similar construction' limitation," 192, course; overbreadth," 248, perfectly lacking construction, 418 defendants' 419 bizarre (express advocacy) misses (88.6 percent) electioneering." 420 echoes stating "cannot ad." 193. differentiate "unambiguously related," (potentially regulable) parcel lawful Protected unprotected resembles reverse"). artistic entertaining sake, indistinguishable, practically, inform. Burstyn, 495, (1952); Winters 507, exposition ideas" "line elusive right," "[w]hat man's amusement, teaches another's doctrine"). (after application," FECA). express-advocacy strange obsession lines. notes 193-194. unrelated campaigns.13 421 protected, implies. 205-206. imposition implicated non-election-related 42, nonelection reasoning foresee: rationales defendants, employed exempts difficulty, impossibility, distinguishing, [nonmedia] corporations." 796 (Burger, Media procandidate nonmedia advertisements. 660, corporation.14 influential. fervently hopes endorsement people. "too influential," "slanted" "biased" stories parties? Or, easier, "circumvention" laws?15 heretofore Miami Herald Tornillo, (1974), peril. "[c]hains wire services, one-newspaper towns, dominant noncompetitive enormously manipulate 249. expressing sympathy access" encourage diversity viewpoints acted "intru[de] editors" interfering judgment." 257-258. Now, press' "capacity opinion" drumming evidence,16 outlets issuance (a pale reductio absurdum right-of-access addressed, 256). Fairness Doctrine, radio broadcasters, Broadcasting, "fairness doctrine" "requirement coverage"). 425 press," "one bulwarks liberty," Elliot, Debates (2d 1876) Island ratification Constitution),17 chopping block. strip protection, logic setting. whim Ginsburg disillusioning learn fabled quote inaccurate. "[F]or vice versa. exist." Armed Services, 83d (1953) safeguarding impropriety monetary eliminated."Buckley, 30. isolating enforced, "opportunity Arguably, unspecified "attempts action" theBuckley worried McCain's complaints defeated. evidence, See,e.g., 393-394, "parliamentary device" Sarbanes-Oxley governance bill). lost due honestly addressed. 3,supra, down, explanations 11); 805, 14). iota guise "strict SeeGrutter Bollinger, doubly transform expenditur[e]" purposesAnte, 220-223 (NRA) compellingly "[a]s thequid `gratitude' variety, PACs." NRA 02-1675, 24-25. "Defendants' witnesses perceptions Founders located "freedom press" moment, analysis, originally understood, writing."McIntyre, judgment). 212(a) 212(a), sponsor, "full-screen statement" carbon copy advertisement). covering "message down. derived byBuckley has, blow, (except, one). Clifton 3d 1309, 1312 (CA1 1997); 376, (CA2 2000); Christian Network, 1049, 1064 Moore, 187, (CA5 Williams, 963, 968-970 (CA8 1999); Responsible Govt. Davidson, 1174, 1187 (CA10 2000). Ninth Circuit. Furgatch, 807 857, 862-863 (1987). avoidance doctrine counsels constructions "avoid questions," questionsUnited Thirty-seven Photographs, 363, (1971); Hudson 366, (1909). excellent bright-line "rejected advocacy,"ante, word, issue-related abandons Burger presciently commented inFirst 796-797 (concurring omitted): "In `unfair `corporate domination process,' conglomerates describe realistic shaping [418 (1974)]. growth empires inform opinion.' 250." exploiting exemptions planned Theimer, Seeks Status News Outlet, Washington A09 (reporting looking acquire classified organization) quality relies by. Kane Preston, Fox Hot Seat, Roll Call, 2003 ("GOP Majority Leader Tom DeLay (R-Texas) labeled CNN `Communist Network' `Clinton Network'—suggesting viewpoint Clinton"); Moves Margins Mainstream, Shorenstein Harvard, Al Gore "part Party") Blackstone, Commentaries Laws (1769) liberty state") 427 guarantees trust reliable speakers. Significant constrain freedom. safe harbor mainstream press, alleviate citizens. 428 purports 137-138 JJ. majority)); majority, work, authorize shapes dialogue take. surpasses expands replaces discrete respected new, amorphous, unsound dismantle 429 reorders preferences felony punishment Ross Perot's build Party. 309(d)(1)(A), 315(a)(1)(B), 323(a)(1) (prohibiting, years' imprisonment, annually party), Perot, Houston Chronicle, 43, 11581440 $8 Party). environmental ad, protest Congressman's logging forests. 203. escalates giant profit nonprofit. (first sanctioning discrimination). 430 "steady laws." 117. mistake. neither. codification civic discourse modes choosing. beginning, freely admit: S2097 ("[P]assing whet people's appetite more"); ("[T]his be-all end-all, start"); S2152 Corzine) debated floor. explore"); S2157 Torricelli) ("Make [BCRA] beginning H442 Doggett) ("Mr. Chairman, defect, little, much"). 432 precedents teach, trusted moderate insist principled lines respect, §§201, 202, 214. TITLE AND COORDINATION PROVISIONS principally bans receipt, (new 2003)). 323(f)). concerned, full, infra. cursory obvious: shared 436 initiative. 437 initiative "indirect control" regulations. runs unopposed 438 hard, soft, 439 federally hoped exploration platform. terms, (e), (f). quasi-soft-money executing plans, 442 consolidated rationale. concern, candidates) receipt 26-27, 45-48; 291-294. analyzed classify speaker's differently: quids bans; curtailed. 659-660; 201-211 443 opens rhetoric conflation 115-118 (hearkening Root campaigning). unwarranted, se thinks. notably Referring analysis. Constitutionally Sufficient there: eliminating, preventing, 445 "It look —to —in 446 (concluding "significant" rights). 447 parallel, 47-48 process"); 45, 448 repudiated, tailored. advanced, comport Constitution, "quids" formulation. rested withstands posing demonstrable danger: 450 holders, undermined." 451 ("[A]ssuming, observation. case: [of Amendment] relates candidate: `To undermined.'" Rent Control/Coalition Housing Berkeley, 290, 26-27). (furthering candidates); defining danger, 152-153, possessing dangers, 296. distinguishing corrupt, vote-buying possessed innocently undertaken. 455 "[W]e spoke `inherent contributions' improbity." featuring potential—contributions 457 functional. confronted capped (i.e., expenditures). unsupported (independent danger. Placing yields rule: quids, corruptly Conversely, arrangements." bounds arrangements," wins goodwill quarrel 154. aim define access, undue. Access, ramifications lie path. abandoning otherwise: "More `undue influence.' [Federal II)]. `deeply examples' `appearance [Buckley 1975)]. [251 J.)]." (some 462 flowed equals tenable quick shift, breaks ground: decisions. conduct. 463 creating party-building benefit, implicating dangers. tether assumes ("[L]arge put"). basis, particular. equating dismantles moves foundation. analyses unbounded susceptible principle. loyalty purest prohibited. inquiring defer 466 cites 145, 152, successfully responsiveness bad—that quo. Favoritism avoidable politics. policies, policies. Democracy responsiveness. Quid now, bad justiciable principle: Bad pointing quid. mask extension 149-152. "interest 47-48, exists. potential, guided persons, did. ("According amici, whole, potential. clearer proved, candidates). potential; 469 From does, conclusorily Following inquire (b), 471 brush, paints complements brush fails, reviewed 101(a) 323(a): money]"). 473 interpretation. "benefit" elections) later, 314. 474 (noncandidate spent) bases flawed reasoning: "[F]ederal linked Appellee/Cross 21; 626 create, 477 parallel concurrence establishes chain logic: proxy generally. step: moneys receives (not activity) Justices, said. THOMAS' 476-477 II), announcing rebuts argument. party-candidate linkage exist. out: dearth corruption] unsurprising stance reelected, votes.' aim, achievement `does subversion process."'" grounds. 617-618; 617 ("If [party] larger) donor"); attenuated" us. confirms conceptual engender says: natural `team,'" Appellee/Cross-Appellant 33. Still, 484 forward deposition Feingold. reported unidentified colleague indicated frustration Simon's opposition "`we've got buttering bread'" "`this'" "donors way") passed. 805. Feingold, "`they [i. donor] party] $100,000.'" Government. testifying disgust giver, theory. undercuts evidence. 486 allegedly succumbed had, belonged. crucial. solicitor incident ought implicates relationships. extrapolate episode inspiring illustrate solicited. aspects infer 438-521 Government: 488 "`As experienced hand. debating bills, escort crowding halls, trying chance pitch Senator. glad extremely beholden otherwise.'" (testimony Boren; appeasing donors' 490 sections undertaken 301-302 837-840 findings, other, barring quids. 492 test. excising candidate-solicited regulable tells plain, manipulated forbid aiding deems creative partnerships illustrated traditions guarantee, insists effective. unsettling to," word "any" "funds" "soft-money funds" donations." loophole"). anti-soft-money rationale; unavoidable moreover, save harsh make: prefer construct proscribed groups' behalf. faces sever strike, altogether. answer, recognizes, no. ("[P]rohibiting officeholders"). animates legislatures). established"). 497 contemplates, begins plan. Monopoly 84-101 incumbents). impression worsened 323(e). inflexible exceptions centerpiece corruption), respects weakens 441a regime). source-and-amount restrictions, 323(e)(1)(B). characterization weakening "tightly constrain[ing]" 181, 70, unwillingness persisting lenient accorded incumbency-driven constituencies 499 "§ 185, 72. controlling challengers. regard. Name advantages advantaged upholds. skeptical Ultimately, guarantee. "candidate[s], individual[s] agent[s] follow, agents' furthers difficult, another. solicits (by Standard Review 503 speech-suppressing 134-137. 44-45. backdrop, limit. lesser "Complex 138. dynamics defy facile, classification. instances, instances groups; activity; classification receipts). 507 exchanges formulaic caricature once. 508 limits" directed, manner, contradicts language, contemplates prohibit[ing] campaign"); limitation[s]' [apply a] candidates"). acknowledged, deferential implied 23-24, contribution[:] Funds intermediary contribution"). ("`[C]ontributions association'" 21)). reconciled similar, imperative, once) 511 Less "significantly interfere" "markedly Unworkable advised unavoidably test: "Even `"significant association' [1] [2] employs Cousins Wigoda, [419 477, (1975)]; [371 (1963)]; Shelton Tucker, [364 479, (1960)]." 513 markedly [referring association'] caused [expenditure limits] invoking maximizing expression." 44-45.* oddly enough, accuracy, Compare: scrutiny] 138-139, with: "None 141. 516 misguided. unconventional quotations rights, rights. precedent affirming 44-45 ("[E]xacting [applies] expression"), significant, professes repudiate flatly awkward imprecise viewing lens, further. relations varied coordinating nature. strengthens impact. implies like. mistaken Few interferences cause, reordering enforcing Here, [BCRA's regulation] limitations." alters, throughout society. Strict scheme, survive. met. 520 dispositive agents; contributions; incorporates (candidates standards; events; registration)). import understood. drawn, emptied meaning. fatal analytical detail, direction odd-numbered conjunction say: slate assembly Bush's Elect D.C. taxes." 526 predictable proscribes occurring So, vagaries nonfederally overreaching Control/ Coalition (1981); tailoring options circumventing constraints faced told rates, proscribing distributing money). burdened. engages unnecessary, 323(a)(2) by" 441i 323(f), Pryor's flyers picture Pryor shaking Bush stating: "Bush appointed co-chairman host feature, swept quest dollars, net involvement. tailored; drawn; Amendment; silences sphere. Coordination alongside they, ambit coordination. institutes justiciable. 223. 214(a), define, 219. fall. explains, capped. emerges 604 (1996). implication. commands refrain 536 214(a). directs expense erroneously infra page 321-322 333-337. unhelpful whether, animated results. employ judged "persons." 537 respect: valid: satisfaction suffers instructed us, infirm parts, 401. instruction, clause 315(a)(7)(C)(ii), 441a(a)(7)(C)(ii) contracts" invalid, 212. 321-322. unlawfulness flows contours settle 215-219, raw 541 surrender 466-482 well-established stabilizing democracy. "There emergence stable two-party government." Davis Bandemer, 109, 144-145 (O'CONNOR, undermined 629 (parties selecting command offends 542 relate Contra, details, however. assures 543 contracted Advance post hoc (based ad). buyer's dissuade Plaintiff-Appellant/Cross-Appellee 44-46, 42-43. tangible flout afterwards, 200, Burdening alternative. subordinating permits. 544 ripe. 545 (to codified 109.10(c)(d)). Adoption erase uncertain arguable. moment. determination; ripe; discussing (declining ripeness 201). 546 intrusion compounds error sustains informs processes. Unions penalties "refe[r] season. vibrant voices, overrule thing: circumvent. seizes "sham really counterparts. sham, imagination, politicians, choose. label powerful. 548 pejorative obscure effect: technique potent. illegitimacy validation sustainable unfaithful backwards. suppressed, banks "materially affect" relies. participation, "would vote." "unique state-conferred structure." 660. "state-created advantages," 659, "drown view" "destroy emphatic terms: 550 vote; `protects unconvincing.' Regents, 689.... `[T]he elements enhance Amendment....' 48-49." 790-791. 551 dismissed "protec[t] shareholders" furtherance disagree." 792-793. Among overinclusive: 552 "[It] opposing proposal unanimously expenditure.... Acting protective charter, normally competent interests.... [M]inority derivative suit disbursements.... `compelling' `no effort' speaking." 794-795 (1960)). 553 Abood Detroit Ed., (1977) members). 554 holding, overlooked wealth," decade earlier. apply, Aside disregard equate grave insult for-profit alike, enriched dialogue. 555 censor ("Since law"). 695, indefensible departure dissent, majority. (O'CONNOR 679 556 675-676 (Brennan, concurring) referendum" 678 ("[T]here other"). distinction, commenting significance arbitrary 557 faulty assumption. "vast other," discussions Intervenor-Defendant ("`[The] wall advocacy... sturdy emperor's clothing. Everyone it'" (PAC) (NRA))). repudiation fiction. reexamination. "forced underground" species covert 558 refuses heed lessons perpetuates foresaw 42; "`[p]ublic draws positions, conduct.'" 50. "`[d]iscussions positive naturally inexorably elections.'" glossing opposite false different, elevates 559 defied deserving policy. haste reaffirm diminishes dictate topics discuss. Consolidated Edison Y. Serv. Continued adherence speaker. 777 individual"), warned discussion." 48-49; Police Chicago Mosley, companies, worse, better. 712 ("An corporations.... degree, not; corporations"); 690-691 ("Amassed sits astride channels Corruption (too view) busy elsewhere"). anomaly. exposed, 561 surmise appreciates Austin. invents justification. insulating debts." 88. "[E]lectioneering corporations," warns, "endea[r] corrupting." 622-623 position). 562 Were outlaw endear positions. logical debts" conflicts faceless, impersonal gratitude came CEO's pocket. 51. eviscerate "complaisant Complaisant cede pleases. 563 stand. applies; 564 unwilling characterize ban, fund. categorical corporation. 681, permitting founder candidates" corporation." 565 difficulties communicating hurdles confront: 566 "Under C.] [(1982 ed.)], [MCFL] appoint treasurer, 432(a); forwarded depending 432(b)(2); keeps excess $50, 432(c); $200 432(c), 433, custodian banks, safety deposit boxes, depositories, 433(a), (b); days, 433(c); disbursements, outstanding debts obligations, 433(d)(1). monthly schedule: quarterly 12th postelection months 434(a)(4)(A), (B). cash hand; receipts, categories; loans, rebates, refunds, dividends, $200; loan repayments refunds sum expenses, settlement retirement 434(b). `members,' 441b(b)(4)(A), (C), past." 253-254. 568 clerical disincentives compliance. spontaneous becomes pending eve Couple litany "members," substitutes unfettered 569 newly manage disseminate odds, (ACLU) minute detail ACLU thousands it," were." Reply coerces egos Forcing artificial "secondhand debases [because] PAC's interim, continuity responsibility." 708-709 "have continuity, stability, influence" "their credibility." 709. 570 articulate compulsory ventriloquism. distortion penalties, blame intermediary. meets 657-660; 238; 803, 826 ("When design latitude suppression"). 572 Once distraction 573 574 within— 577 crude geographic proxies, outset, suppose constituents care working propose unable districts. fanciful. credibility Never suppresses extent. 578 Senators, photograph, hypothetical impeccable candidacies. hotly contested districts, outcome. sweeping conventional standards. faceless nameless consign "`He Whose Cannot Spoken.'" 579 well-known biases community. sponsors, repetition synonymous censor: pain offense, comfort electorate," district. 434(f)(3)(C) Orwellian criterion, chooses, him. Kleindienst Mandel, 753, 762-765 (1972) "First shields responsible booth. 581 defending case-by-case basis. "undertake risk) vindicating litigation." "abstain speech," "har[m] deprived doctrine, bulwark shadow self. 582 looseness proffered briefs, pretense relation "may "likely "will influencing" 84, 92-93, 94; may, Settled means. causation endorses tailoring. 583 584 (regardless advocates suggestive exhortation 434f(3)(A)(ii) 585 imprecision communications— blackout segment population—are "support," "oppose" ubiquitous ends. 586 words—"promotes," defined. 39-44 ("`No $1,000'"). 587 "suggestive cure guidance uncertainty. "plausible" totality circumstances," self-censorship 588 vagueness, experts guess definition's] Connally Constr. (1926). 589 204. minimize damage Wellstone Amendment) incorporate corporations. 238. thing. concedes, prohibition." 211. inapplicable accomplish. Enacted supersede Snowe-Jeffords carved broaden issue-advocacy 65a, 67a (Sen. ("[I]ndividuals impunity" "poisonous ads." make[s] doesn't [through]"). deleting bill, inserted severability. 590 indulge legislated, frontal MCFL. unaffected. 700-701 courts legislatures"). 591 II's misunderstanding succumbs denunciation rhetorical momentum covers commentaries removed offers. 23. 592 infuses neutrality actors, Corporations, engines economy. prosperity depends. country's unprecedented. They, insights severe. misplaced budget-strapped staying sidelines identities. sanctioned citizenry. 593 vein palliative dynamic intellectual life Nation. CONCLUSION 594 underwrites experiment forms, forums, belongs prescribe 595 imprisonment discourse. pluralistic filled viewpoints, mechanisms communities grown technology evolved, concerted efficacious Americans. before. 596 597 101(a), 599 "SEC. SOFT MONEY POLITICAL PARTIES. 600 NATIONAL COMMITTEES.— IN GENERAL. party) 601 APPLICABILITY. 602 STATE, DISTRICT, LOCAL 603 GENERAL.—Except expended disbursed entity), 605 Notwithstanding (under Commission) consist (B)(iii)); 606 subsection). CONDITIONS. (A) if— 608 609 broadcasting, 610 (A)(ii) person) disbursements; 611 "(iv) local, disbursement, 612 subclause (I) (II), 614 "(IV) (II). 615 PROHIBITING INVOLVEMENT PARTIES, FEDERAL CANDIDATES OFFICEHOLDERS, STATE PARTIES ACTING JOINTLY. (e)(3)), (B)(iii) transferred, (e); 618 FUNDRAISING COSTS. 619 "(d) TAX-EXEMPT ORGANIZATIONS. agent, entity, 1986 501(a) submitted section) activity); 621 office). "(e) CANDIDATES.— 623 not— 624 Act; 625 paragraphs 627 LAW. Paragraph 628 EVENTS. (b)(2)(C), attend, guest event "(4) PERMITTING CERTAIN SOLICITATIONS. GENERAL clauses 301(20)(A)) 631 SPECIFIC individuals; 633 $20,000. 634 "(f) 635 636 EXCEPTION COMMUNICATIONS. both." 637 101(b) 301, 431(20) 638 "(20) ACTIVITY. 639 `Federal activity' 640 641 ballot); 642 identified) 643 644 EXCLUDED 645 (A)(i) (ii); 646 (A); 647 convention; 648 materials, buttons, stickers, yard signs, depict 649 (b)(1)-(2) (1997 provide: bank, electors Delegate knowingly director consent 650 "(b)(1) `labor organization' kind, representation plan, employers grievances, disputes, wages, pay, conditions work. 651 79l(h) `contribution title, payment, loan, deposit, (except banking business) stockholders subject; nonpartisan families, families; establishment, administration, utilized membership cooperative, capital stock." 202. alsoFederal [is that] `political issue' association"); ("We Proposition interest"). 653 highlight disagreement 654 implies, facto goals. 25-27 glosses breadth characterizing "do[ing] regulat[ing] Because, reality, allows, 655 §323(a), "solicit[ing]," "receiv[ing]," "direct[ing] person," "spend[ing]" 145. "[i]t gratitude." Certainly "infusions [candidates'] campaigns," (1985), regulated, 656 sidestep "close "suspect." 154-155. surrogate corruption; treasured (1989); Tashjian Conn., 208, impute closeness 156-157, knows next. irrelevant. 657 exemplars government, promote, off-year levels, 334-337 820-821 generating 185-186 Dasbach Party)). illustrate, healthy 820 fulfill band philosophy, 574; Eu, 225. 496-497; 297-298 27. 659 overinclusiveness extensively §§301(20)(A)(i)-(ii), funds1 partybuilding mentioned. §§441i(b), 431(20)(A)(i)-(ii) §323(d) counterparts, Advancement Colored (NAACP). gubernatorial elected, environment. §§441i(f), (regulating communication[s] refe[r] office"). 660 corrupted 407, 416, 779-780, 791 [nonfederal get-out-the-vote, activities] attenuated"). 167, contemporaneously restrictions,2 165-166, 174-177, 178-179, "`predictive Congress,'" opinion)). 661 says. bit "grateful," 168, coverage. endorsements elections.3 241, 247, reply" professionally assailed "abuses bias manipulative reportage" press). 662 evasion" sifted circumvents "loophole" system.4 dependent untethering touchstone 663 amorphous vaguely defined, §§323(a), nominally tailor restrictions; self-finance eliminates 664 done. response, blunt. reduced "communicates 315(e)(1) 2003).5 666 deficient purchases requirements); (opining "broad entities"); ("[W]e burdens"). untenable. impinges help" public); "recordkeeping FCC" fairness doctrine). 667 Required 64. Ibid.; requirement). whole. 668 suggestion, 669 "As government's motion summary (NAB), `involving importance.' C.F.R. 73.1212(d) 76.1701(d) cablecasting). listeners transmitted. 792 (`Identification subjected.'). 670 disclosed 315(e)(2)(G) (added Gov't Opp. Mot. NAB Summ. Aff. 4-9. rejected." 671 relieve 672 devote percentage" latter-day considered, unfairly. 812 unconnected infringement," 66. 673 transmitted.6 "request[s for] broadcasts, goal. mature viewers, competitors adversaries purchasers. noncandidate-related cry 674 315(e)(1)(A), overlaps 194-202 JJ.), pertain. overlap, purchaser's rights: purchasers' licensees' 675 justify, attempted broadcast" publicized. "requests" risks, ferret ultimately, 676 "requests," Ironically, usual deferred passes chances, influx relationship" unconvincing, seeante, 285, part), warranting am unaware "loopholes" currently accept, disclosing, activities). deserve decides 315(e), that— including— regarding— consider, plaintiff-organizations, medium 677 305.* "45 2008." 226. III's jurisdiction. asserting strategy, "`distinct,'" "actual" distant illusory. prong inquiry—whether choices†—poses unsigned opponent. normal gap pricing schemes discriminate incurring policing uniformly proposes 2008, arguable 680 entertain important—and sufficient—informational harmed complying `shed[ding] publicity' financing," invoked indirectly, withdrawing sound. 681 "viewpoint-based regulation." 67. Disagreement expresses "viewpoint," opponent's response. 682

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