Document: 385 U.S. 589 87 S.Ct. 675 17 L.Ed.2d 629 Harry KEYISHIAN et al., Appellants,v.The BOARD OF REGENTS the UNIVERSITY STATE NEW YORK al. No. 105. Argued Nov. 17, 1966. Decided Jan. 23, 1967. [Syllabus from pages 589-591 intentionally omitted] Richard Lipsitz, Buffalo, N.Y., for appellants. Ruth V. Iles and John C. Crary, Jr., Albany, appellees. Mr. Justice BRENNAN delivered opinion of Court. 1 Appellants were members faculty privately owned operated University became state employees when was merged in 1962 into State New York, an institution higher education by York. As their continued employment conditioned upon compliance with a York plan, formulated partly statutes administrative regulations,1 which utilizes to prevent appointment or retention 'subversive' persons employment. 2 Hochfield Maud Assistant Professors English, appellant Keyishian instructor Garver, lecturer Philosophy. Each them refused sign, as regulations then effect required, certificate that he not Communist, if had ever been communicated fact President notified his failure sign would require dismissal. Keyishian's one-year-term contract renewed because certificate. whose contracts still time run, continue teach, but subject proceedings dismissal constitutionality plan is sustained. has voluntarily resigned therefore no longer standing this suit. 3 Appellant Starbuck nonfaculty library employee part-time English. Personnel classification required answer writing under oath question, 'Have you advised taught member any society group advocated doctrine Government United States political subdivisions thereof should be overthrown overturned force, violence unlawful means?' question result dismissed. 4 brought action declaratory injunctive relief, alleging program violated Federal Constitution various respects. A threejudge federal court held constitutional. 255 F.Supp. 981.2 We noted probable jurisdiction appellants' appeal, 384 998, 86 1921, 16 1012. reverse. I. 5 considered some aspects 15 years ago Adler v. Board Education, 342 485, 72 380, 96 L.Ed. 517. That litigation arose after passed Feinberg Law added § 3022 Education Law, McKinney's Consol. Laws, c. 16.3 The enacted implement enforce two earlier statutes. first 1917 law, now 3021 'the utterance treasonable seditious word words doing act' ground public school system. second 1939 law 12—a Civil Service decided and, amended, 105 Consol.Laws, 7. This disqualifies civil service educational system person who advocates overthrow government violence, means, publishes material advocating such organizes joins doctrine. 6 charged Regents duty promulgating rules providing procedures disqualification removal violate are ineligible law. further directed make list, notice hearing, organizations, defined organizations advocate means. Finally, provide its membership listed organization constitute prima facie evidence office position schools State. 7 thereupon promulgated containing followed appointing authorities discover violation also announced intention list requisite provided date listing regarded constituting disqualification, prior presumptive continued, absence showing terminated good faith. Under regulations, official forbidden until inquired applicant's former employers other ascertain whether applicant disqualified appointment. In addition, annual inquiry must made determine appointed ceased qualified retention, report findings filed. 8 judgment suit Court held, effect, there constitutional infirmity 12-a on faces they capable application. But contention urged case both unconstitutionally vague heard decided. Section challenged vague, challenge pleadings lower courts, consider it. U.S., at 496, S.Ct., 386. Nor grounds vagueness 1(a) (b) Law.4 Subdivision 1958. timely asserted below unconstitutionality all these sections properly before us decision. Moreover, extent sustained provision forceful pertinent doctrines have since rejected premises conclusion rested. dispositive issues we decide case. II. 9 1953 amendment extended application personnel college subdivisions. same year, Regents, Communist Party 'subversive organizations.' 1956 each renewal so-called 'Feinberg Certificate' declaring read Rules understood constituted terms employment, Party, University. appellants Hochfield, Maud, Keyishian, Garver sign. 10 June 1965, shortly trial case, Certificate rescinded it employed deemed 'solely' lieu certificate, informed assuming duties statutes, §§ part contract. He particularly flowed organization. 1965 announcement provides: 'Should arise course candidate may request * personal interview. Refusal relevant officer shall sufficient refuse recommend appointment.' brochure given new applicants. It outlines explains briefly legal invites about possible covering concludes 'a prospective appointee does believe himself need take affirmative action. No disclaimer required.' 11 change procedure wise moots questions raised context refusal abandoned Certificate. substance statutory regulatory complex remains outset basic claim aggrieved III. 12 requires 'treasonable seditious' utterances acts. 1958 subdivision section, acts also.5 wording used statutes—that act acts' removal. vital difference between laws. define section; contrast, provides mean 'treason' Penal 'seditious 'criminal anarchy' Law. 13 Our experience Sedition Act 1798, Stat. 596, dangers fatal First Amendment freedoms inhere 'seditious.' See Times Co. Sullivan, 376 254, 273—276, 84 710, 722—724, 686. And 'treasonable,' left undefined, less dangerously uncertain. Thus becomes important whether, despite omission similar reference 3021, section meaning only what Or more broadly 'seditious' 'treasonable' so purposes 105? 14 Even 105, subd. meaning, uncertainty hardly removed. definition presents particular problem. difficulty centers equates term Is Consol.Laws 40, 160, defining criminal anarchy organized force assassination executive head officials government, means'? ends sentence 'The advocacy either mouth felony.' Does draw 161, proscribing 'advocacy anarchy'? If so, scope virtually limit. For one commits felony '* publicly displays book advocating, advising teaching means.'6 teacher carries copy Manifesto street thereby anarchy? say statute applied cannot gainsay potential obscure 'those conscientious scrupulous regard undertakings.' Baggett Bullitt, 377 360, 374, 1316, 1323, 377. certain referred solely indefinite. know extent, any, transcend mere statement abstract doctrine, intended tend indoctrinate incite furtherance crucial consideration can just where line drawn nonseditious Other provisions defect vagueness. bars 'by wilfully deliberately advocates, advises teaches doctrine' government. plainly susceptible sweeping improper well prohibit merely without attempt others, others aims.7 Herndon Lowry, 301 242, 57 732, 81 1066; Yates States, 354 298, 77 1064, 1356; Noto 367 290, 1517, 836; Scales 203, 1469, 782. prohibiting 'advising' 'doctrine' existence another support doctrine? Since 'advocacy' separately prohibited, 'teaching' 'advocate' it? informs class precepts Marxism Declaration Independence prohibition? Similar arises 1(b) subsection involved distribution written 'containing overthrow, 'advocates, advises, teaches, embraces duty, necessity propriety adopting contained therein.' Here again, apparently included.8 prohibition matter 'containing' bar histories evolution Marxist tracing background French, American, Russian revolutions? additional requirement, participating alleviate exacerbates Like language 1(a), reasonably construed cover expression belief. example, university librarian recommends reading materials 'advocate therein'? do benefit judicial gloss courts enlightening complicated plan.9 light intricate machinery enforcement, surprising. very intricacy proscriptions highly efficient terrorem mechanism. bold stay far might jeopardize living enmeshing him machinery. proscribed increases caution means says.' supra, 1324. stifle 'that free play spirit teachers ought especially cultivate practice *.'10 probability enhanced requiring review every his, inside classroom out, came within sanctions memorandum warns activities form '(t)he articles, pamphlets, endorsement speeches articles performed others,' reminds primary district positive eliminate guilty subversive activity. School obligation proceed immediately conclusively case.' 18 There doubt legitimacy York's interest protecting subversion. 'even though governmental purpose legitimate substantial, pursued fundamental liberties end narrowly achieved.' Shelton Tucker, 364 479, 488, 247, 252, 231. principle inapplicable legislation aimed keeping subversives out ranks. De Jonge Oregon, 299 353, 365, 255, 260, 278, said: 19 greater importance safeguarding community incitements our institutions imperative preserve inviolate rights speech, press assembly order maintain opportunity discussion, responsive will people changes, desired, obtained peaceful Therein lies security Republic, foundation government.' Nation deeply committed academic freedom, transcendent value concerned. freedom special concern Amendment, tolerate laws cast pall orthodoxy over classroom. vigilant protection nowhere than American schools.' 487, 251. peculiarly 'marketplace ideas.' Nation's future depends leaders trained through wide exposure robust exchange ideas discovers truth 'out multitude tongues, (rather) kind authoritative selection.' Associated Press, D.C., 52 362, 372. Sweezy Hampshire, 234, 250, 1203, 1211, 1311, 20 essentiality universities almost self-evident. underestimate role democracy played those guide train youth. To impose strait jacket intellectual colleges imperil Nation. field thoroughly comprehended man discoveries yet made. Particularly true social sciences, few, principles accepted absolutes. Scholarship flourish atmosphere suspicion distrust. Teachers students always remain inquire, study evaluate, gain maturity understanding; otherwise civilization stagnate die.' 21 emphasize once again '(p)recision regulation touchstone area closely touching most precious freedoms,' N.A.A.C.P. Button, 371 415, 438, 83 328, 340, 405; '(f)or standards permissible strict expression. Because breathing space survive, regulate narrow specificity.' Id., 432—433, 337—338. scheme violates standard. When guess conduct lose position, necessarily 'steer wider zone *.' Speiser Randall, 357 513, 526, 78 1332, 1342, 1460. threat deter potently actual sanctions.' 433, 338. danger chilling exercise guarded against sensitive tools clearly inform being proscribed. Stromberg People California, 283 359, 369, 51 532, 535, 75 1117; Cramp Public Instruction, 368 82 275, 285; supra. 22 maze created wholly lacking 'terms objective measurement.' 286, 280. quality 'extraordinary ambiguity' found oaths Bullitt. '(M)en common intelligence differ 367, 1320. Vagueness aggravated prolixity profusion machinery, manifold cross-references interrelated enactments rules. 23 hold implemented pursuant unconstitutional. IV. 24 discrete 1(c) membership, such, disqualification. following organizations. was, however, emerged decision major premise. premise including surrender could abridged direct Teachers, said Adler, 'may work reasonable laid down proper choose terms, liberty retain beliefs associations go elsewhere.' 492, 385. stated denied 'is right speech assembly. His choice limited, assembly, except remote sense limitation inherent choice.' 493, 25 However, Appeals Second Circuit correctly stage theory altogether subjected conditions, regardless how unreasonable, uniformly rejected.' 345 F.2d 236, 239. Indeed, expressly series decisions Adler. Wieman Updegraff, 344 183, 73 215, 97 216; Slochower Higher 350 551, 76 637, 100 692; supra; see Schware Bar Examiners, 353 232, 752, 796; Torcaso Watkins, 1680, 982. Sherbert Verner, 374 398, 404, 1790, 1794, 965, 'It too late day religion infringed denial placing conditions privilege.' 26 validity 3022, barring developed Mere knowing specific intent aims constitutionally adequate basis exclusion positions 27 Elfbrandt Russell, 11, 1238, 321, said, 'Those join share participate surely pose threat, citizens employees.' 1241. struck statutorily binding become knowledge purpose, discharge perjury prosecution violated. '(a)ny lingering proscription 'specific intent,' run afoul set rest Aptheker Secretary State, 378 500, 1659, 992.' 16, 1240. Party's aims, warrant deprivation travel abroad. Schneiderman 320 118, 136, 63 1333, 1796, '(U)nder traditions association, men adhering party subscribe unqualifiedly platforms principles.' 'A applies intent' illegal infringes unnecessarily protected freedoms. rests 'guilt association' place here.' Elfbrandt, 19, 1242. even goals, suffice justify punishment, 1356;11 nor finding moral unfitness justifying disbarment. 796. 28 These limitations apply provision, like 1(c), blankets employees, 'sensitivity' positions. applicable primarily teachers, captive audiences young minds, favor association; stifling mind curtailing association manner manifest, documented recent studies.12 governing standard: unaccompanied goals active limitations. 29 Measured standard, sweep overbroadly presumption arising proof rebutted, (a) (c) advocacy. Lederman 276 App.Div. 527, N.Y.S.2d 466, aff'd N.Y. 476, 95 N.E.2d 806.13 nonactive rebut defeat emphasized interpretations. letter addressed appointees University, 'You note *both specifically toward elimination nonappointment 'Communist' ranks explicit: 'Anyone violent University.' (Emphasis supplied.) interpretation supported legislative preamble 1, legislature 'it essential groups, communist affiliated obtaining retaining schools, rigorously enforced.' 30 2, suffer impermissible 'overbreadth.' 1242; Saia 334 558, 68 1148, 92 1574; Schneider Jersey, 308 147, 60 146, 155; Lovell City Griffin, 303 444, 58 666, 949; cf. Hague C.I.O., 307 515—516, 59 954, 963—964, 1423; generally Dombrowski Pfister, 380 486, 85 1116, 1120, 22. They seek legitimately consistently rights. Where overbroad sweep, hazard loss substantial impairment critical,' covered bound limit behavior unquestionably safe. breadth abridgment viewed drastic achieving purpose.' 31 invalid insofar proscribe 32 District reversed remanded consistent opinion. 33 Reversed remanded. APPENDIX TO OPINION THE COURT. 34 CIVIL SERVICE LAW. 35 s Subversive activities; 36 1. Ineligibility division thereof, superintendent, principal academy who: 37 means; 38 prints, publishes, edits, sells book, paper, document printed therein; helps organize 39 America city thereof. 40 2. dismissed declared four months declaration ineligibility entitled petition show cause signed justice supreme court, why hearing charges had. Until final entered, based provided, during suspended pay, determination restored pay period suspension amount compensation earned occupation unemployment insurance benefits received period. consist taking testimony open cross examination. burden sustaining fair preponderance credible making ineligibility. 41 3. Removal utterances. removable therefrom while holding position. subdivision, 'treason', penal law; 42 EDUCATION 43 3021. superintendents, 44 superintendent state, removed 45 3022. Elimination 46 board regents adopt, promulgate, superintendents three thousand twenty-one article forth twelve-a therein appropriate methods enforcement 47 shall, inquiry, appropriate, finds advocate, advise, teach embrace Such listings amended revised time. board, utilize designations agency authority authorized order, receive agencies supporting available hereof included state. 48 annually, fifteenth February, separate report, render legislature, full measures taken therewith. reports contain description surveys regents, time, enforced districts RULES REGENTS. 49 (Adopted July 15, 1949.) 50 ARTICLE XVIII. SUBVERSIVE ACTIVITIES. 244 Disqualification employes. 53 necessary put employes 12-a* 54 a. Prior employe, nominating official, addition due candidate's record, professional training, qualities, inquire employers, furnish information, known aforesaid provisions, respect accordance paragraph hereof. eligible 55 b. employ, whom designate submit later October 31, 1949, September 30th year thereafter, employe. (1) indicating employe herein to, hereof; (2) organization, dismiss specified violations 56 themselves prepare directly responsible them, designated b paragraph. d. promptly possible, event 90 days submission recommendations paragraph, prefer formal justifies action, reject e Following d institute cases indicates to. serving probation having tenure, followed. tenure hearings deem exigencies warrant, trial, representation counsel appeal scrupulously observed. Pursuant chapter 360 Laws issue Evidence tenth subsequent promulgation On December Commissioner officially adopted presiding officer, calendar ending 31st preceding. include total number employ district; and/or reported subversive; recommended include, above, (d) preferred status disposition cases; (e) concluded preferring charges; (f) determined, taken. 61 4. Immediately name transcript records charges, conducted. 62 PENAL 160. Criminal 64 felony. 161. Advocacy Any 65 By overthrowing overturning or, 66 Prints, knowingly circulates, sells, distributes document, form, 67 Openly, killing assaulting civilized nation character, crime, spread anarchy; Organizes assembles society, formed 69 punishable imprisonment ten years, fine five dollars, both. 70 RESOLUTIONS TRUSTEES 71 Resolved Resolution 65—100 May 13, hereby is, follows: 56—98 1956, incorporated Policies Trustees Title B Article XI Procedure Academic Appointments be, are, Rescinded, Further adding thereto 74 appointments. Before initial hereafter certified recommendation therefor send give prepared concisely explaining imposed thereunder, reason Regents. needed satisfy Should officers An certification recommending resolution effective appointments date. presently heretofore failed failure, reappointment day; continuance prescribed misconduct, Chief Administrative Trustees. 79 CLARK, HARLAN, STEWART WHITE join, dissenting. 80 blunderbuss fashion majority couches 'its artillery words,' together morass cites obscurity hand, makes difficult grasp thrust At outset, focus basis. testing base attack were, tried, Despite proceeds striking old statement. explain dead letter. posed therefore, purely entirely speculative character. circumstances past pass questions. neither exhausted remedies, remedy stricken, 3, revision (Laws 1030, 240.15, Revised 1965.) operates appellants, save Starbuck, query Communists, advised, taught, subdivisions, All comply. nonexistent frame act. clear 'no infirmity' 1952, death blow today. Just here 'can subversion' be-all end-all' effort here. And, correctness, several 517, pieces again. reached destroy much little. (§ Law) authorizes down, discuss below. Also unconstitutional (1(a), authorize principal, establishment (1(a)); issues, matter, 'who therein' (1(b)); (1(c)). latter 1958, 'advocate, teach,' etc., obviously springs Smith Act, 2(a)(1), (3), 671, approved Dennis 341 494, 857, 1137 (1951). character Garner Works Los Angeles, 716, 909, 1317 (1951); Beilan Philadelphia, 399, 1317, 1414 (1958). Lastly stricken (3 105) servic utters act, although never disclaims applicability attempted renounces appellants? least 1951, identical ones condemns employer precluded, simply 'from inquiring matters prove fitness suitability service.' 720, 912. practically affidavit reflects sam type condemned Then It, too, action—as abstractly framed. Brother Minton wrote Court: 88 works schoolroom. shapes attitude minds towards live. this, concern. integrity schools. screen officials, ordered doubted.' 493 89 problem Burton 'By engaging petitioner did up belief, association. did, undertake obligations frankness, candor cooperation answering inquiries employing examining serve teacher.' 405, 1321. 91 Lerner Casey, 468, 1423 Harlan upheld severance concerning loyalty. my Brennan cited approval 1460 approval: 231 (1960), quoted approval, manner; likewise 285 (1961), twice approval; related discharged loyalty Nelson Angeles County, 362 494 today says rejected, i.e., Garner, Lerner. Later Konigsberg Bar, 366 Garner. re Anastaplo, 82, 978, 135 Terms White relied Cramp, turn twice. (1964). 93 view long Court's history, questioned cases, strange me 'constitutional (Adler's) premise.' With respect, I done thing. 94 them. Attorney General Lefkowitz behalf Commission, own 'public all.* Likewise inapplicable. derived 23—a books 23—a. recodified (now 3) deals divisions tells us, qualifications level service. teacher, violating seems building straw men. points careful examination Briefs casts considerable conclusion. brief, point language: issued thereunder process clause Fourteenth vagueness.' Certainly attacked 'has definite namely, violence.' 387. Significantly *' citing 1066 (1937), cases. significant opinion's last 'We find 496 387 98 obliged way. portion 1(c). orally writing. exact verbiage affected 1356. horribles printing, publishing, selling, fails personally places footing 1(a). organizes, scienter ingredient leaving Furthermore, adversary review. 99 considerations strained unbelievable suppositions poses occur. Dennis, 'we convinced borderline cases' prohibited protections seeks. 516 871 one's nature assume boards offended protection. sit done. bad 'overbroad sweep.' regret say—and deference broadside swept away rights, self-preservation. genius democracy. youth development land. one. thought, press, Party. this: who, review, advocated, printed, published, paper himself; o university? My answer, today, 'Yes'! 101 dissent. text appears Appendix initially convene three-judge 233 Circuit. 236. history loyalty-security legislation, Chamberlain, Loyalty Legislative Action, author's Gellhorn, Subversion sole 'vagueness' concerned 'subversive,' appearing caption merit suggestion advanced brief 'pertinent inquiry.' incorporates both, rendering education. One reasons convening presented 'Adler (and that) amendments, 105(3) Adler.' 238. appellees defended rendered 'Stipulation Fact,' recites: 'Section implements directs adopt barred Law.' 160—161 replaced 1967, single advocacy.' Committee Employee Security Procedures, describing noted: 'In disqualifying distinguished (18 U.S.C. 371, 2385), Supreme 'action' forcible 'abstract overthrow. 298 (77 1356) (1957).' Legis. Annual 70, n. Compare 2385, punishes 'prints, distributes, advising, necessity, desirability, of' shown 'intent destruction abstention pending 375—379, 1324—1327; 489—490, 1122—1123, 195, 221, 216 (Frankfurter, J., concurring). Whether constitutes 'punishment,' Lovett, 328 303, 1073, 1252, repressive impact substantial. Lazarsfeld & Thielens, Mind 92—112, 192 217; Biddle, Fear Freedom 155 seq.; Jahoda Cook, Measures Thought: Exploratory Study Impact Programs, Yale L.J. 295 (1952). generally, MacIver, Time; Hullfish, Educational Age Anxiety; Konvitz, Expanding Liberties 86—108; Morris, Oaths, Contemp.Prob. 487 (1963). disposition, placed coming forward rebutting impermissible. Now stipulation itself, addendum thereto, agreed record fact—not contends course, body incorporate so.

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