Legal Document

345 U.S. 461 73 Supreme Court Reporter 809 97 L.Ed. 1152 TERRY et al.v.ADAMS al. Number 52. Argued Jan. 16, 1953. Decided May 4, Rehearing Denied June 15, See 1003, 1128. Mr. Judge Edwin Smith, Houston, Tex., and James M. Nabrit, Jr., Washington, D.C., for petitioners. Messrs. Edgar E. Townes, Clarance Federal KF105 F3 McFarlane, respondents. Justice BLACK announced the judgment of an opinion in which DOUGLAS BURTON join. 1 In Smith versus Allwright, 321 649, 64 757, 88 987, we held that rules Democratic Party Texas excluding Negroes from voting party's primaries violated Fifteenth Amendment. While no state law directed such exclusion, our decision pointed out many party activities were subject to considerable statutory control. This case raises questions concerning constitutional power a county political organization called Jaybird Association or exclude its on racial grounds. The Jabirds deny their exclusions violate They contend Amendment applies only elections under regulation, association is not regulated by at all, it but self-governing voluntary club. District discriminations invalid entered accordingly. 90 F.Supp. 595. Appeals reversed, holding there was congressional bar admitted discriminatory exclusion because Jaybird's any extent controlled. 193 Reporter, 2nd Series 600. We granted certiorari. 344 883, 180. There evidence that: 2 organized 1889. Its membership then always has been limited white people; they are automatically members if names appear official list voters. It run like other parties with executive committee named county's precincts. Expenses paid assessment candidates office primaries. Candidates offices submit Committee accordance normal practice followed regular all over country. Advertisements posters proclaim these running action primary. legal compulsion successful enter have nearly done so few exceptions since 1889 won without opposition general followed. Thus dominant group organization, having endorsed every county-wide elected 3 apparent follow plan purposefully designed same time escape Amendment's command right citizens vote shall neither be denied nor abridged account race. These purposes according following testimony president: 4 'Q. * Now Adams, will you tell me specifically what specific purpose carrying this do? Atlantic Good government. 5 & N Dec. Immigration Nationality Decisions ask whether policy carry good government must negro citizens? Well, when started still way, think. 6 And one your negroes voting, isn't it? Yes. 7 policy? 8 you, reason hold election rather than July, 9 Because July would abide statutes letting them vote? do July. 10 yours too, wouldn't they? Why sure. 11 won't to? don't ours can anybody want to. 12 But answering my question. My question let vote, you? 13 purpose? 14 intention? 15 population can't right? That's right. 16 That whole Association? 17 Yes.' 18 found party; majority voters generally results support persons primaries; chief object voice part Fort Bend County officials. 19 facts findings bring squarely within reasoning Fourth Circuit two recent decisions about South Carolina. Rice Elmore, Cir., 165 387, Baskin Brown, 174 391.1 Carolina had repealed trace control did hope thereafter 'Clubs' free continue practices against as contention mere private groups; here group. invalidating answered formalistic arguments machinery could sustained effect race effective governmental affairs country, state, community. doing relied principle supra, page 664, 765, discrimination '* nullified through casting electoral process form permits election.' 20 cases accord commands laws passed pursuant it. provides follows: 21 'The United States State race, color, previous condition servitude.' bans both nation. thus establishes national policy, obviously applicable discriminated determine public policies select officials, national, local. Shortly after adoption Chief Waite speaking said: 22 'It follows amendment invested new protecting Congress. exemption exercise elective franchise Reese, 92 214, 218, 23 563. Other reemphasized grant right.2 Not content rest protect necessary proper clause Constitution, framers added § 2, reading: Congress enforce article appropriate legislation.' 24 Miller declared should kept pure enactments whenever necessary.' Ex parte Yarbrough, 110 651, 665, 152, 159, 28 274. also see Bradley's circuit Cruikshank, Fed.Cas.No.14,897, Woods 308, 314—316, 320 323. Acting second section 1870 provided 25 'All who otherwise qualified people State, Territory, district, county, city, parish, township, school municipality, territorial subdivision, entitled allowed elections, distinction servitude; constitution, law, custom, usage, regulation authority, contrary notwithstanding.' Code KF62 31, Annotated KF65 U5 31. 26 Amendment, enactment make explicit rule conduct elections. Together show meaning 'elections.' Clearly includes issues decided officials selected.3 Just clearly excludes social business clubs. statute shows mandate conducted community, Size standard. 27 significant precisely qualifications those prescribed entitling electors county-operated adopted sole single proviso—Negroes excluded. Everyone concedes proviso unconstitutional. brings into being holds kind seeks prevent. When produces equivalent prohibited election, damage done. For permit duplication processes flagrant abuse defeat use primary ratify result merely compounds offense. violates circumvention, borders device election. 29 counted more fifty years Jaybirds become perfunctory ratifiers choice already made immaterial does leaves manage. integral part, indeed determines govern county. procedure, plus forbids—strip vestige influence selecting local matters intimately touch daily lives citizens. 30 reverse Appeals' reversing Court. affirm Court's combined Jaybird- Democratic-general deprived petitioners color. remanded orders decrees jurisdiction retained 2202, 2202. exercising jurisdiction, left hearings consider provisions essential afford Negro full protection future Jaybird-Democratic-general deprive rights 31 Reversed remanded. 32 FRANKFURTER. 33 Petitioners claim similarly situated County, Texas, respondent association, Association. until present selected, first mass meetings some ballot members, whom indorses office. never permitted participate selection indorsed; balloting open vote. declaratory saying although 'vainly holding' 'outworn outmoded' (193 605) practices, 'action color law' therefore violation federal law. 34 evidence, summarized formal stipulation, themselves Executive Committee. Membership, defined Association, consists entire shown poll lists prepared balloting, primaries, set day early each year. expenses officiating personnel, places, determination winner aspects exclusively controlled regulating Vernon's Tex.Stat.1948 (Rev.Civ.Stat.) Tit. 50, chapter 13, now revised, Tex.Civ.Stat., 1952, 13. action, either way legislative recognition authorization, wholly wanting. 35 compliance regard, file individually fourth Saturday No mention filing listing indorsees. fact conveyed word mouth, newspapers, means. restriction anyone else candidate primary, 36 sixty Association's existence, ultimately man indorsed Indeed, almost continuous success period practically electorate barring Negroes. 37 means difficulty. Whenever draws line between permissive forbidden bound arise side other. dubious situations disclose utility figure speech, 'line,' Drawing 'line' necessarily judgment, however confined conscientious may bounds provisions, course decisions, presuppositions judicial process. If main fruitful tool dividing sheep goats, forgotten figurative place relation cannot ascertained externally matter mind. 38 Close analysis prohibits before determined relevant situation presented case. Fourteenth, outlawed basis respect Concretely, course, attempts folk. U.S.Const., Amend. XV, 1. denial abridgment individual States. Therefore, enforcement involve State. assailed pertains To find guaranteed colored solely colored, hand 39 situations, mean clothed authority position affords. application prohibition 'any State' translated jargon read 'State action.' phrase gives rise false direction implies impressive deliberative normally associated orators call sovereign state. vital requirement responsibility—that somewhere, somehow, extent, infusion panoplied power, scheme colored. 40 As practical instrument small politically active—the and, assume, politics, charged duty assuring eligible opportunity primary—the leaders communities—participate join community proceeding elaborate formality, respects parallel procedures dictated itself, express preferences effort withdraw significance State-prescribed subvert operation formally 41 tested which, endeavor screen effectively exertion preventing franchise, pierced various manifestations astuteness. last series, 'required directions agency far participants Id., 663, 765. Alternative routes suggested concluding 'so slight change form', id., 661, 764, differ substance Allwright. legislation administration parties; said avoid different date utilizing methods statutes. 42 Whether nondiscrimination, is, claims, legislation, failing attempt comply number requirements, particularly 'primary,' instance court. know say. An court satisfy come definition; long-accepted customs habits generate 'law' surely declaration, indeed, sometimes even face See, e.g., Nashville, Chattanooga St. Louis R. company Browning, 310 362, 369, 60 968, 972, 84 1254. party, say fixed statute. inadmissible intervention judiciary remedy derived finding devised courts. reason, 'primary' Allwright apply. 43 assuming, think must, State-regulated nonetheless decide respondents ground precise us play. 44 comprehensive including chosen. secure observance State's interest 'fair fair expression' nominees. Cf. Waples Marrast, 108 Tex. 5, 12, 184 Southwestern KF135 S79 180, 183, L.R.A. 1917A, 253. share subversion, divest help scheme. Unlawful 'by extrinsic showing design favor class another inferred itself,' Snowden Hughes, 1, 8, 397, 401, 497; here, aid subversion trustees, helping 45 occasional efforts strength. Nor boss-control, crudely subtly exercised. spontaneous votes continued fraction participated condoned voting. Though proscribed role 'within reach (T)hey together parts plan. unlawful.' Holmes, Court, Swift Company States, 196 375, 396, 276, 279, 49 518. 46 it, excluded unconstitutional bars, emphasized nomination tantamount meaningful participation up accidental, unsought consequence civic common viewpoint count. design, very arrangement whereby entrusted discharge functions designed. 47 follow, however, relief below proper. Since vice itself discriminatorily becomes, fact, virtue acquiescence authorities, require evil abdication go procedure predetermines legally regulate primary; use. equity lawful combination subverts capacity function. What rid unlawful 'usage,' R.S. 2004, asserts itself. 48 CLARK, CHIEF JUSTICE, REED, JACKSON join, concurring. issue secured On March 1950, behalf instituted officers Association.1 complaint, substance, duly party. Contending transgressed Constitution States,2 sought injunctive relief.3 Respondents insisted ruled invalid.4 Judgment accordingly refused injunction further relief.5 reversed; view reached terms enactments.6 50 old pattern guise revealed record.7 founded promote 'good government' post-Reconstruction period. During life span restricted whites. earlier years, forthcoming Subsequently developed system closely paralleling structure Party. governed twenty-two persons, precinct year sets differs state-regulated mainly consecutive holders, absence pledge officially ticket balloting. half century adhered guiding principle: 51 Appeals, largely deemed 'the settled culminating Collins Hardyman, 341 71 937, 95 1253, individual, Fourteenth Amendments §§ (8 43, 47), were, are, directed.'8 dealt box 'a lawless brawl, precipitated handful citizens.' 662, 942. event, adjudicated narrow conspiracies Civil Rights Statutes included conspiracy particular complaint; expressly refraining questions, ibid., controlling here.9 52 view, misconceived thrust decisions. secures exercised 1944, perforce conducting racially By case, 'part choosing officials' becomes Constitution's restraints. There, took 'voluntary association' unofficial character. functioned state's machinery, limitations 53 agree Kennery party10 whose fall self-executing ban. Guinn 1915, 238 347, 363, 926, 930, 59 1340; Myers Anderson, 368, 379 380, 932, 934—935, 1349.11 club, league candidacies conform restrictions parties. Certainly large area freedom peaceable assembly concerted separately alike. More, involved here. 54 record discloses operates parcel Party, existing auspices law.12 Each maintains basic qualification membership: eligibility Although longer restrict whites, bars ranks. conducts full-scale campaigns his candidacy linking together. After gaining endorsement, winners publicity reveals 3,910 listed presidential 1944; though 2,032 banner, 3,790 voted 1946, off-year numbered 4,460; polled 3,309 votes, 2,996. while 1948, again year, 3,856 mustered total 4,055, compared 3,108 Significantly, exception record,13 ran unopposed invariably subsequent 55 Quite evidently auxiliary nominees using destroying weight ballots County. sure, nominally elector. empty real made. Jaybird-indorsed nominee meets minority's stage where bargaining interplay rival forces 56 device, result, strikes core viewed separate adjunct decisive recognized Over emerged locus choice. Consonant broad lofty aims Framers, 'refers exertions forms.' Shelley Kramer, 334 20, 68 836, 845, 1161. Accordingly, structures apparatus devolves upon uncontested whatever disguise, takes attributes draw safeguards 765; cf. Classic, 1941, 313 299, 324, 61 1031, 1042, 85 1368; Lane Wilson, 1939, 307 275, 872, 876, 83 1281. 57 sum, believe laid down supra. 58 MINTON, dissenting. am concerned least happens unworthy says Constitution. For, redress wrong earliest cases. unanimous Kraemer, 842, 1161, stated 'Since Cases, 1883, 109 3, 18, 835, firmly embedded inhibited fairly erects shield conduct, wrongful.' (Emphasis supplied.)1 understand BLACK's opinion, he alone. praiseworthy position, seems shown. 62 FRANKFURTER recognizes enough constitute participates follow. clear everything person representative However, nothing participating 63 CLARK recognize He finds assumption, facts. searched vain iota sufficient anemic inference forms cooperates manner calls understandable Texas. gratuitous assumption 'Quite County.' stipulation unsubstantiality statement just quoted CLARK's opinion. quote stipulation: 'There receives indorsement office, event indorsee desire so; himself Chairman pay fee Neither files placed 65 indicate appearing thereon 66 name applicant unless complies Association; makes required pays requisite 67 'No member candidate, Party.' avails conforms record: 69 designation 'Jaybird Party'. At times 1889, Texas'. Said 1938, not: (a) Have organization; (b) Follow Article 3163 Revised reference elections; (c) Hold convention 'primary election' day, to-wit: August, year; (d) preceding day; (e) chairman committee, otherwise, certify Clerk thereof, Republican nominations indorsements (f) Have, cause be, printed column headed used, in, (nor name, indication special occasions, alone); (g) Make, made, written printing, signed sworn 3% cast 70 officer certifies state-wide organization. 'In offered Some 72 not, have, limits offices, except preference seeking Primaries expense accounts official, Board.' 74 stipulations complete practice, cooperation Even organizations, 3163. 75 Does failure act prevent individuals amount action? venture not. 76 agrees Kennerly paragraph, admits Surely faith economic belief caucuses. bodies A depending authorize ban shows, covering quasi-legislative body ever Negroes, 77 So sense poll. 78 cited relating stipulated trial 'conducts nominating prints General Elections distributed Election precincts choose ballow Carolina.' Finding 19: available giving respective candidates.' stated: 'During past offices.' 79 seen furnished accepted ballot, Clearly, Party's action. cooperated two-step procedure. 80 taken files, certifies, supplies anything contest received opposition, contests Commissioner, Peace Constable. requires elsewhere. 81 controlling. agent Of therefrom quotation case: 82 'Primary authority. selects district committees, respectively, canvass returns. committees inclusion certified 'We character duties imposed statutes; performed party.' 764. supplied.) Democrats, white, black, male, female, native-born foreign, royalists workingmen, caucus straw individuals, apart receive endorsement offices. seeing nominated elected. true numbers effectiveness. Often minority stockholders corporation. axiom corporate management small, cohesive control, especially larger corporations holdings widely diffused. somehow several defeated Usually Jaybird-endorsed instant unrelated activities. appointed censors Apparently succeeded convincing most instances supported win. little places north Mason-Dixon line, areas obtain approval religious localities, carefully selected give Jew, Protestant Catholic, certain posts considered possession ethnic groups. propriety something courts sensibly bad electorate. influenced sorts pressures pressure labor unions, National Manufacturers, Silver Shirts, Advancement Colored People, Ku Klux Klan others. Far groups properly labeled 86 pass groups, causes bad, highly so-so. difficult how believed approved candidates. 'Bible Belt' church stamp Anti-Saloon League put lose 87 cognizance treats apparently disdain condemnation members. group's work conclusion ascertain. derives dislike goals dislike. fail affirm. crucial said, Here nominees; own form, appropriate: 'Such variation influences anew validity resulted Texas.' attempted 'two-step' 'three-step' supra (92 U.S.) 214 (23 563) fifteenth right, servitude. From appears suffrage attribute citizenship; &c, is. comes States; been.' 542, 555—556, 588. effect, 664—665, 158, 274; Logan 144 263, 286, 617, 623, 429. 'self-executing.' 362—363, 1340. mystify thing. take plain words obvious interpretation, coming understanding meaning. seek. surface, profound depths speculation.' Siebold, 100 371, 393, 717. Fed.Rules Civ.Proc. 23, rested claims Amendments, XIV. 'Section All born naturalized wherein reside. abridge privileges immunities life, liberty, property, due law; equal laws.' XV. 2. 31: (Supp. V) 1331, 2201, 2201. abandoned money damages, grounded 47, 47. D.C.S.D.Tex.1950, conclusions 3163, Statutes: 'Art. Parties 'Any desiring nominate therefor title composed delegates therein conventions hours eight a.m. ten p.m. Saturday. clerk taking certified, column, provided, printing judge, three per cent provision substantially recodified 13.54, (1952). 'Further based decree granted, reasonable notice hearing, adverse judgment.' persons; four defendants Nixon Herndon, 1927, 273 536, 446, 759; Condon, 1932, 286 73, 484, 984; 987. 602. 605. deem independent applicability need now. 1876, 563; Bowman, 1903, 190 127, 678, 979, 1884, 274, 379, 934, 1349. 987; 88—89, 487, 984. note Neal Delaware, 1881, 103 370, 389—390, 567; comprises concise facts, additional pages directly testimony. Obviously underlay determinations below, appellate review Charles Schultz victorious Judge. triumphed 2,025 Mike Dornak. 1948. prohibiting Baker judgeship. Schultz, lost 2,209 803. 34, 79. reveals, quite consistently successful. only.

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