Document: 395 U.S. 411 89 S.Ct. 1843 23 L.Ed.2d 404 Roderick JENKINS, Appellant,v.John Julien McKEITHEN et al. No. 548. Argued March 25, 1969. Decided June 9, Rehearing Denied Oct. 13, See 90 35. [Syllabus from pages 411-413 intentionally omitted] J. Minos Simon, Lafayette, La., for appellant. Ashton L. Stewart, Baton Rouge, appellees. Mr. Justice MARSHALL announced the judgment of Court and delivered an opinion in which CHIEF JUSTICE WARREN BRENNAN join. 1 This case involves constitutionality a 1967 Louisiana statute, known as Act 2, creates body called Labor-Management Commission Inquiry. La.Rev.Stat.Ann. §§ 23:880.1—23:880.18 (Supp.1969). The stated purpose this is 'the investigation findings facts relating to violations or possible criminal laws state United States arising out connection with matters field labor-management relations * *.' Preamble, (1967 Extra.Sess.) La.Acts 3. Appellant, member labor union, filed suit District Eastern challenging 2 certain actions taken by officials administration otherwise. He sought both declaratory injunctive relief. A three-judge court was convened that ultimately granted appellees' motion dismiss complaint. Jenkins v. McKeithen, 286 F.Supp. 537 (D.C.E.D.La.1968). We noted probable jurisdiction appeal brought under 28 U.S.C. § 1253.1 reverse. Since decided on dismiss, rather detailed examination structure allegations complaint necessary. I. 3 impetus formation preamble Act. 2. It cited 'unprecedented conditions' construction industry, it particularly 'allegations accusations federal should be thoroughly investigated public interest Id., at additional investigative facilities were thought necessary 'supplement assist efforts activities several district attorneys, grand juries other law enforcement agencies Ibid. 4 composed nine members appointed Governor. 23:880.1 empowered act only upon referral Governor when, his opinion, there substantial indication are may 'widespread continuing existing laws' affecting relations. 23:880.5 Upon Governor, proceed hearing ascertain pertaining alleged violations. 23:880.6 In order carry function, has power make appropriate rules regulations, employ investigators, staff members, compel attendance witnesses, examine them oath, require production books, records, evidence. 23:880.8 can enforce its orders petition courts contempt proceedings. 23:880.9 5 scope Commission's authority explicitly limited laws. 'The commission shall have no power, investigate, hold hearings seek any reports recommendations strictly civil aspects problem B (Supp.1969).2 Further, participate manner proceeding, except, course, limitation further reinforced provision allowing Commission, request assign investigatory forces police latter their activities. C 6 required determine, findings, whether cause believe occurred. 23:880.7 Its making these recommendations: 7 binding adjudication respect such violation violations; however, may, discretion, include conclusions specific individuals action governor deems appropriate.' 8 matter record, 23:880.15 (Supp.1969), although they not used prima facie presumptive evidence guilt innocence law, report proper authorities if finds occurred, file charges. Finally, refer State Attorney General asking exercise prosecutions instituted. D Nothing makes preparation submission legislature explicit legislative action. Indeed, itself clear supplement State's one narrowly defined area. 9 As indicated above, witnesses. witness given notice general subject before being asked appear testify. 23:880.10 right presence advice counsel, 'subject reasonable limitations impose prevent obstruction interference orderly conduct hearing.' Counsel question client relevant matters, ibid., but counsel witnesses limited: cross-examine he submit proposed questions appearing commission, ask inquiry.' 10 With exception discussed below, neither nor private party call anyone testify Commission. 11 Although must base testimony hearings, does provide executive session when appears 'may tend degrade, defame incriminate person.' 23:880.12 allow person who might degraded, defamed, incriminated opportunity heard, number behalf. However, decide heard hearing, regardless effect particular person. case, affected 'voluntary witness' 'pertinent' statements others. list subpoenas will issued discretion Ibid.; see also II. 12 Appellant's named defendants Lous iana six presented, inter alia, provisions violated Due Process Equal Protection Clauses Fourteenth Amendment. Appellant trial agency 'aimed conducting trials concerning violations,' function publicly condemn. asserted 13 'in said Act, singled Teamsters Local special class persons repressive willfully punitive furtherance deliberate effort been made continues destroy current union aforesaid 14 More specifically, appellees agents, acting color conspiracy, procured false initiate baseless proceedings against appellant, intimidated coerced into filing prosecuting charges knowingly, willfully, purposefully judges having consideration legal controversies involving These acts allegedly deprived appellant all others similarly situated 'rights, privileges immunities secured Constitution States.' intended continue deprive him rights 'plain, adequate efficient remedy law.' 15 prayed convened, temporary restraining issue, declared unconstitutional, permanently restrained, unspecified relief granted. 16 Temporary denied impanelled hear case. Appellees answered moved dismiss. They lacked standing failed Thereafter, 'Supplemental Amending Petition' alleged, some detail, had continued course described original After dismissed supra. 17 court, relying largely Supreme Martone Morgan, 251 La. 993, 207 So.2d 770, dismissed, 393 12, 46, 21 (1968) (petition rehearing pending), held Court's decision Hannah Larche, 363 420, 80 1502, 1307 (1960), dispositive issue ruled claim 1981, 1983, 1988 Title 42, Code. Rather, raised merely potential defenses pending basis prosecution those appellant's Rule Federal Rules Civil Procedure.3 did rule challenge 18 presents two review Court: Whether constitutional otherwise states 42 1988. III. 19 met outset assertion lacks attack argument based i part unconstitutional because denies 'a compelled (the) Commission' effective assistance confrontation, compulsory process allege expected called, assert denial do appear. See, e.g., Tileston Ullman, 318 44, 63 493, 87 L.Ed. 603 (1943). argue cannot demonstrate been, be, 'injured' operation challenged statute. agree. 20 present contested below reference standing. But since goes jurisdiction, Flast Cohen, 392 83, 94—101, 88 1942, 1949—1953, 947 (1968), we even though passed over without comment. Cf. For purposes material admitted. Walker Equipment, Inc. Food Machinery & Chemical Corp., 382 172, 174—175, 86 347, 348—349, 247 (1965). And, liberally construed favor plaintiff. Fed.Rule Civ.Proc. 8(f); Conley Gibson, 355 41, 78 99, (1957). unless could 'prove set support would entitle relief.' supra, 45—46, 102. mind, turn 22 true, assert, alleges deprivations fails If extent allegations, agree mentioned 'executive agency' whose designed find guilty laws, injuring destroying member. 'said Inquiry exercises (a) accusatory (b) duty responsible violations, (c) advertise (d) serve 24 appellees, concert actually engaged brand criminals, including, 25 Thus, inartfully drawn, take future thus sufficient give creating think are. 26 concept sue, 'is surrounded same complexities vagaries inhere (the of) justiciability' general. 98, 1952. Nevertheless, outlines certainty. indispensable requirement is, seeking 'such personal stake outcome controversy assure concrete adverseness sharpens presentation issues so depends illumination difficult questions. *' Baker Carr, 369 186, 204, 82 691, 703, 663 (1962); supra; Joint Anti-Fascist Refugee Committee McGrath, 341 123, 151, 71 624, 637, 95 817 (1951) (concurring opinion). sense, focuses relief, than precise nature sought. 99—100, decisions something more 'adversary interest' confer There addition between official legally protected 101—106, 1953—1955. 27 possesses adversary insure facing court. His indicate carried series injure various ways. own reputation economic wellbeing guarantee proceeding one. Act's direct injury interests accord validity presented collateral consequence body. 443, 1515; cf. Sinclair States, 279 263, 295, 49 268, 272, 73 692 (1929); McGrain Daugherty, 273 135, 179—180, 47 319, 330, 580 (1927). very violating procedural safeguards, publicize findings. Moreover, consequences flow meet prove redressable injury. Those certainly actionable caused Greene McElroy, 360 474, n. 22, 79 1400, 1411, 1377 (1959); 140—141, 632 (opinion Burton, J.); id., 151—160, S.Ct., 637—642 (Frankfurter, J., concurring). answer tried sanctions appellant; enough impact him. Columbia Broadcasting System, 316 407, 62 1194, 1563 (1942); NAACP Alabama, 357 449, 460—463, 1163, 1170—1172, 1488 (1958). circumstances regard defend Los Angeles S.L.R. Co., 299, 413, 651 go beyond normal publicity attending prosecution; concerted attempt trial. unsuccessful attempts secure againsth im. 29 contains IV. 30 reach merits contention unconstitutional. long drawn; many wrongdoing officials. aspect constitutional, either face applied. Many contention, involve properly defense place. deal final section opinion. 31 Appellees, like rely heavily Hannah, upheld Rights challenges similar involved drafted mind powers here F.Supp., 540; agree, controls crucial differences Hannah. 32 appellants subpoenaed complaints about voting rights. objected nondisclosure complainants confront consistent Clause Fifth 33 "(d)ue process' elusive concept. exact boundaries undefinable, content varies according factual contexts. requires obtain complexity factors. involved, burden considerations account.' U.S., 442, 1515. 34 rejecting appellants' procedures, placed great emphasis Commission: 35 '(I)ts purely fact-finding. adjudicate. determine anyone's liability. orders. Nor indict, punish, sanctions. determinations depriving life, liberty, property. short, affirmative affect individual's existence subsequently action.' 441, 1514. 36 adverse investigated, subjecting opprobrium, conjectural, and, 'not result Morgan 304 1, 58 773, 1129 (1938), distinguished ground '(t)hose cases adjudications rights.' 451, 1519. 37 reaffirm our view, differ examples held, adjudicate sense does, conduct, speaking, proceeding. analyzed light complaint, much akin culpability. 38 provides field. types activities.4 nothing indicates purposes. everything points fact concerned exposing individuals. clearly function; criminals public. 39 Given view Inquiry, Frankfurter, concurring Larche: 40 'Were (Civil Rights) exercising wrongful deprivation finding prosecution, rigorous protections well controlling starting point assessing protection procedure provides.' 488, 1543. 41 When viewed perspective, procedures minimal requirements obligatory Specifically, severely limits Only Cross-examination 'deems inquiry,' submitted, presumably beforehand, writing frequently emphasized fundamental due process. Willner Character Fitness, 373 96, 103—104, 83 1175, 1180, 224 (1963); 496—499, 1413—1415, cited. context, where actual individual crime, afford him, traditional Pointer Texas, 380 400, 85 1065, 923 drastically limit true 'reasonable witnesses' session, written oral , essential fair Clause. 18, 776; Baltimore Ohio R. Co. 298 349, 368—369, 56 797, 807, 1209 (1936). becomes results crime. Washington 388 14, 1920, 1019 (1967); re Oliver, 333 257, 273, 68 499, 507, 92 682 (1948). mean say restrictions substance testimony; person's left unfettered 43 argues contemplated deficient respects. particular, meaningful standards innocence. deprives counsel. have, afforded defendant less sufficient, initially remand. '(w)hether factors.' inappropriate run afoul record us, barren established facts. That best first instance adduced 44 analysis applies every function. jury, example, need guarantees applicable jury investigates reports. try.' 1518. '(t)he functions institution prerogatives rooted centuries Anglo-American history.' 489—490, 1544 result). Finally interpose independent citizens accused attorney Stirone 361 212, 218, 270, 252 (1960); Ex parte Bain, 121 11, 781, 786, 849 (1887); 497—499, 1547—1548 (dissenting Investigative bodies sanction. addition, guilt, investigate recommend. 'independent' citizens. pleasure absence 'referral' 23:880.5, 45 wish emphasize now entitled appropriate. still remains indeed prc edures fail V. 46 them, pursuant otherwise, resulted numerous related Constitution. seeks acts; prays enjoin instituted To considered determining characterized assertedly pending. 'intertwined' Relying determination then brought. 542—543. propriety passing holding determined time. Accordingly, open reconsideration reversed remanded 48 ordered. DOUGLAS concurs reasons dissenting 493—508, 1545—1553, (1960). 50 BLACK, concurring. 51 concur what prevailing I reaffirming 1307. joined dissent adhere dissent. here, my judgment, scheme nonjudicial tribunal charge, try, convict, punish people courts, juries, lawyers, witnesses—in Bill provides. reminiscent old Parliamentary Ecclesiastical took away liberty John Lilburne contemporaries law—that giving benefit accordance land. law. 52 HARLAN, whom STEWART WHITE join dissenting. 53 Swept up revolution making, tendency lose sight principles traditionally role political system. Constitutional responsibility shirk. grave extraordinary process, last resort. And legitimately avoided, performed utmost circumspection precision, lest opinions emanate radiations unintentionally, spuriously, views fully considered. 54 Over years, evolved within confines. Perhaps most fundae ntal that, controversy. Today, haste new doctrine, turns principle head, create none. respect, 55 Term, reaffirmed proposition 'when (to sue) *,' 1952, 'whether logical nexus status adjudicated.' 102, 1953. means, simply, plaintiff pursued threatened defendant, injured defendant; (or represent1) challenges. bar attacks statutory Applying way. arise of, relate to, application question. generous reading mask simple truth falls short requirement. 57 At risk wearying reader, pleadings detail. portion relied Court, IV ('Facts'), operative paragraphs. Paragraphs 1—3 identify defendants. 59 4—6 characterize agency,' outline functions. Paragraph avers performing constitutionally defective evidence, appeal, self-incrimination. Nowhere, directly indirectly, paragraphs intimate matter, else) themselves effects. quoted full: 60 'Furthermore complainant defendants, representatives employees, action, solely 5, officials, spearheaded while afforesaid belongs through experiences survival, install oriented subservient James Hoffa group clique International Brotherhood Teamsters, Chauffeurs, Warehousemen Helpers America; included circulation consumption willful falsehoods characterizing 'hoodlums' g angsters,' comparable depravity sinister Mafia gangsters underworld masking lawless behind verbal facade order, indiscriminate exists justifiable therefor concomitant exaction excessive bail bonds, intimidating officals carrying tyrannical aims dictatorial use office thereof.' 61 paragraph avers, 'as specifically him,' conspired 10—14 describe detail chronology resulting (not including appellant) elicit bring appellant). usual averments requisite equitable requests order. 64 Reading re-reading averments, help struck conspicuous it, identified or, indeed, subjected processes.2 Can lacuna filled implication? not. 65 9—14 contain hint informations today suspect. assuming, contrary fact, represents besides himself arguably germane 8(a), 'deliberate union.' conspicuously omits suggestion 'falsehoods' contained 'findings'—a term repeatedly earlier description 66 complaint's utter failure injuries suffered complained not, objective accidental omission counsel's 'inartfulness'—as Brother put it. plausible inference—especially remembered represented throughout litigation—is omitted them.3 67 opinion's strained principle, quarrel, construed. entirely undermines important system procedure—that disposing unmeritorious unjusticiable claims outset, parties undergo expense time consumed evidentiary hearings. sustain dismissal shown procedures. 69 Because appellan formal assumptions. places vague position investigated' ante, 428, 429, thence proceeds discuss offer understandably reluctant commit much. read holds latent 70 Of necessity, justify remand, discussion leaves are, least, unclear. Reluctant am, merits, therefore feel views. am comport majority. articulate deem significant distinction kinds governmental bodies. sole predominant serving interest, expose names wrongdoing. determination—whether 'finding' 'adjudication'—finally affects interests, doubt accompanied adjudicatory safeguards. (1951). 72 By terms legislation, appellee sort. 'investigatory only.' 'to Louisiana.' Preamble duty, violated, 'report charged offenses' itself. innocence, whatsoever. A. bears close resemblance administrative agencies, infra, 440 page, offices attorneys. salient feature common, distinguishes simply 'expose.' None arbiter Each, rather, plays preliminary role, designed, events, subsequent enjoy full panoply reason, practicably pursue functions, follow 'adjudicatory' 74 perform discover initiation 445—448, 454—485, 1516—1518, 1521—1541, expressly condoned 'rights apprisal, cross-examination' 'nonadjudicative, fact-finding investigations.' 446, 1517. recognized, Fedea l Trade 75 'could permitted convert found suggesting governing investigations violate Constitution, understandable accorded judicial safeguards adjudicative 76 Securities Exchange 77 'Although determined, inapplicable investigations, discloses Undoubtedly, reason sterilization burdening trial-like procedures.' 446 448, 1517—1518. (Emphasis added.) least equal provided agencies. 1521—1541. analogies place daily instances, interrogating knowledge prosecutor believes committed files information indictment. reaches conclusion, intelligence obvious reasons, seriously suggested 'person investigation' 'adjudicative' stage.4 attach after initiated. Nor, conducted secrecy, keep plans prosecute confidential. disclose rests sound official. Various factors, fear suspect flee concern obtaining unbiased comes trial, militate secrecy. On hand, disclosure forth serves ancillary keeping informed.5 81 operations diffr however. formality lend greater credibility aura sanction different ready government-sanctioned opprobrium right, performance duties, rebuttal. far niggardly respect. appearance, others, circumstances, adequately neutralize effects insubstantiality unclear today. Brethren understand primarily 'exposure,' ends statutes. so—although reasonably construed—the area disagreement us small nonexistent. Before adopt roster heed carefully warning 'would shambles stifle gathering facts.' 444, Such incapacitate gainsaid, cast broad shadow long-standing employed agencies—procedures decade ago believed pending). extend (1) 'unfair practice' employment legitimate dispute law; (2) relates management practices settled parties, negotiation, arbitration, lockout strike; (3) internal affairs organizations, necessarily restricted membership policies, election matters; (4) violence threats so-called 'mass picketing,' employer bribery extortion, organizational furthering side 'labor dispute,' already regulated state, exercised Division Police; (5) business organization, policy operations, (6) cos titute combination these.' ruling error appeal. notes, 3, ever requested complains. inference supported Report which, mentioning litigation nowhere refers investigation, answering questions, stage. Cf., Mancusi DeForte, 364, 2120, 1154 (1968). intimate, majority assume, produce documents. ironic complain 'shall hearings,' plainly protect criticized secret inquisitions Star Chamber Groban, 352 337, 510, 515, 376 (1957) (Black, dissenting); Anonymous Nos. Baker, 287, 298, 1157, 1234 (1959) dissenting).

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