Legal Document

347 U.S. 612 74 Supreme Court Reporter 808 98 L.Ed. 989 UNITED STATESv.HARRISS et al. Number 32. Argued Oct. 19, 1953. Decided June 7, 1954. Mr. Oscar or Haw. Hawai‘i Reports KFH45 A2 Davis, Washington, D.C., for appellant. Messrs. Burton K. Wheeler, Hugh Howell, Atlanta, Ga., appellee. Chief Justice WARREN delivered the opinion of Court. 1 The appellees were charged by information with violation Federal Regulation Lobbying Act, 60 Statutes-at-Large 812, 839, 2 United States Code KF62 §§ 261—270, Annotated KF65 U5 261—270. Relying on its previous decision in National Association Manufacturers versus McGrath, 103 F.Supp. 510, vacated as moot, 344 804, 73 313, 97 627, District dismissed ground that Act is unconstitutional. case here direct appeal under Criminal Appeals 18 § 3731, 3731. Seven counts are laid 305, which requires designated reports to Congress from every person 'receiving any contributions expending money' purpose influencing passage defeat legislation Congress.1 One such count charges Farm Committee, a Texas corporation, failure report solicitation and receipt influence would cause rise price agricultural commodities commodity futures decline those prices. remaining six 305 charge defendants Moore Harriss expenditures having same single purpose. Some alleged consist payment compensation others communicate face-to-face members Congress, at public functions committee hearings, concerning affecting prices; other relate largely costs campaign induce various interested groups individuals letter legislation. 3 two 308, 'who shall engage himself pay consideration attempting legislation' register make specified disclosures.2 These allege considerable detail Linder hired express certain views prices do so, pursuant this undertaking, without registered required s they arranged have contacted behalf these views, either directly their own emissaries through an artificially stimulated campaign.3 4 We not concerned sufficiency criminal pleading. Our review limited 'invalidity' statute based.4 In making decision, we judge face. See Petrillo, 332 1, 6, 12, 67 1538, 1541, 1544, 91 1877. asserted three grounds: (1) 307, 308 too vague indefinite meet requirements due process; (2) violate First Amendment guarantees freedom speech, press, right petition Government; (3) penalty provision 310(b) violates people Government. I. 5 constitutional requirement definiteness violated fails give ordinary intelligence fair notice his contemplated conduct forbidden statute. underlying principle no man be held criminally responsible he could reasonably understand proscribed.5 6 On hand, if general class offenses directed plainly within terms, will struck down even though marginal cases put where doubts might arise. 1541. Cf. Jordan De George, 341 223, 231, 71 703, 707, 95 886. And can made constitutionally definite reasonable construction statute, duty construction. This was course adopted Screws States, 325 91, 65 1031, 89 1495, upholding Civil Rights Act.6 7 appropriate here. key section entitled 'Persons Whom Applicable'. Section 307 provides: 8 'The provisions title apply (except political defined Corrupt Practices duly organized State local committees party), who himself, agent employee persons manner whatsoever, indirectly, solicits, collects, receives money thing value used principally aid, principal accomplishment following purposes: 9 '(a) States. 10 '(b) To influence, States.' 11 modifies substantive including 308. words, unless 'person' falls category established disclosure inapplicable.7 Thus coverage committees) solicit, collect, receive value, then only aid aims set forth 307(a) (b). event, solicitation, collection, prerequisite Act. 12 Government urges much broader construction—namely, must does provided 307.8 Such construction, believe, violence language well legislative history.9 If urged become law, accomplish further 13 now turn vagueness purposes As Rumely, 345 41, 47, 543, 546, 770, involved interpretation similar language, believe should construed refer "lobbying commonly accepted sense"—to communication pending proposed federal history makes clear that, very least, sought pressures, exerted lobbyist themselves hirelings campaign.10 It likewise intended operate narrower basis, application organizations seeking propagandize permissible.11 14 There remains our meaning 'the purpose' 'to aid.' indicates term 'principal' merely exclude scope 'incidental' legislation.12 Conversely, 'principal contribution substantial part whose activities Congress.13 it otherwise—if organization, example, exempted because lobbying one main activities—the large measure reduced mere exhortation against abuse process. construing narrowly avoid doubts, also seriously impair effectiveness coping problem designed alleviate. 15 summarize, therefore, there prerequisites 307: solicited, collected, received contributions; 'person,' contributions, been Congress; method accomplishing Congress. since necessity narrow case. covered 307; when so covered, all Similarly, (with stated exceptions14) who, addition, valuable Construed way, meets definiteness.15 II. 16 construed, freedoms guaranteed Amendment—freedom speak, publish, 17 Present-day complexities individual cannot expected explore myriad pressures regularly subjected. Yet full realization American ideal government elected representatives depends small extent ability properly evaluate pressures. Otherwise voice may easily drowned out special interest favored treatment while masquerading proponents weal. evil help prevent.16 Toward end, has prohibit modicum hire attempt collect spend funds wants know being hired, putting up money, how much. acted spirit passing Act—to maintain integrity basic governmental Burroughs 290 534, 545, 54 287, 290, 78 484. 19 Under circumstances, least bounds it, require activities. deny power self-protection. restricted end. conclude applied offend Amendment. 20 suggested, however, respect than practical matter act deterrent exercise rights. Hypothetical borderline situations conjured choose remain silent fear possible prosecution comply precluding fears, calculated restraint. But, assuming some effect, restraint most indirect resulting self-censorship, comparable many ways libel laws.17 hazard remote striking face otherwise area congressional safeguard vital national interest. III. 21 attack That 22 addition penalties subsection (a), convicted misdemeanor therein prohibited, period years date conviction, appearing before support opposition legislation; shall, upon conviction thereof, guilty felony, punished fine more $10,000, imprisonment five years, both imprisonment.' 23 section, argue, patent speech 24 find unnecessary pass contention. Unlike judged face, yet appellees, never found innocent them. Wurzbach, 280 396, 399, 50 167, 168, 508; 1542, 25 Moreover, provides separability invalid.18 ultimately declared unconstitutional, elimination still leave defining specific duties providing duty. prohibition expressly 'In (a) * *'; misdemeanor, punishable both. Consequently, seem obstacle giving effect clause 310(b), ever prove necessary. Compare Electric Bond & Share company Securities Exchange Commission, 303 419, 433—437, 58 678, 682—684, 82 936. 26 judgment below reversed remanded proceedings inconsistent opinion. 27 Reversed. 28 CLARK took 29 DOUGLAS, whom BLACK concurs, dissenting. 30 N Dec. Immigration Nationality Decisions am sympathy effort save My inclinations way end oral argument. But study changed my mind. convinced formula dangerous use. ensnare done rights assembly, press. 31 deal validity use test Connally General Co., 269 385, 391, 46 126, 127, 70 322, question whether 'either forbids doing terms men common necessarily guess differ application'. vague, think is, standards process law. determining consider Lanzetta New Jersey, 306 451, 453, 59 618, 619, 83 888. 32 'If challenged repugnant clause, specification details offense serve validate it. accusation prescribes rule govern warns transgresson. No peril life, liberty property speculate penal statutes. All informed what commands forbids.' 33 see Winters York, 333 507, 515, 68 665, 670, 92 840. 34 therefore nor proof be. itself sufficiently precise warning. 35 contended applies 36 —to present hearings letters communications Congressmen 37 38 adopts view, minor limitation places Act—that included. 39 difficulty rewritten words actually added subtracted produce result. 40 applicable anyone 'directly indirectly' aid' 41 —the 'passage 42 —'To 43 start all-inclusive definition 'legislation' contained 302(e). means, 'bills, resolutions, amendments, nominations, matters House includes subject action House.' What 'any action' Congress? include but legitimate domain 44 'principally defeat' When retained legislation'? 45 addresses trade union repeal labor law certainly hopes So manufacturers' association runs ads newspapers sales tax. 47 farm group undertakes raise educational program conducted newspapers, magazines, radio television, showing need revision attitude world trade. 48 (4) oil companies puts agents Nation's capital sound alarm hostile legislation, exert work Hill laws favorable interests. 49 (5) business, labor, farm, religious, social, racial, raises contact request write Congressman get repealed modified, passed, propose Are Act? included why others? apparently excludes kind listed categories (1), (2), (5)—those entail contacts 51 course, seems me insuperable. warrant drawing line, does, between 'direct Congress' one, other. 52 raising whatever tactics used. strikes whole 'indirectly'—but substitutes new concept group—to 'directly.' 'directly' number methods—for nationwide radio, television advertising programs promoting particular measure, 'button holing' Congressmen. latter excluding former rewrite 53 distinct types 'lobbying' specifically proscribed another different loose, broad uncertain. Here meaning, terminal points are. Judging used, type activity enumerated another. importance emphasized reason fact 'Congress abridging press; redress grievances.' 55 Can writes article, files advertisement, appears existing, pending, legislation? pose Amendment, Thomas Collins, 323 516, 315, 430, indicates. mean intimate real principals behind come (or so) speak represent interest, undisclosed groups. mention emphasize statutes touching field 'narrowly drawn prevent supposed evil,' Cantwell Connecticut, 310 296, 900, 905, 84 1213, cast cloud Stromberg California, 283 359, 369, 532, 535, 75 1117; Thornhill Alabama, 88, 97—98, 736, 741—742, 1093; 509, 667, 840; Joseph Burstyn, Inc., Wilson, 343 495, 504—505, 72 777, 781—782, 96 1098. 56 relaxed, impose registration rights, saving courts salvage good bad, meanwhile causing possibly peril, seeks consequence applying paid hole' expend moneys so. read gloss court placed order vagueness. Fox 236 273, 277, 383, 384, 573. 57 publishes article distributes literature things close prohibited line. today retroactively confronted did acts them criminal. Pierce 314 306, 311, 62 237, 239, 86 226. Since touches evils, evils continuous effective JACKSON, Several reasons lead withhold assent decision. clearest feature begins mischievously enforcement important assumptions rejected Court's interpretation. leaves country like passed Of us, easy strike down. recall few gone far rewriting 61 appear solicit lobbying, lobbying. eliminates last suppose serious lobbyists obtain indictments, exclusively failures rest receipts. Also, enacted reach spending indirectly. entirely deletes 'indirectly' narrows Congress.' constructions practices deemed sinister. 63 Finally, compensate deletions expands phrase refers 'in part' 64 agree, liberal interpretations Acts, punish traditionally recognized morally 'wrong.' Whoever kidnaps, steals, kills, commits bound inviting retribution society, define long-established crimes perhaps vague. dealing novel normal basis. criminality dealt Though abuses pursuit purpose, corruption. defendants, indicted failing prices, corruption, bribery, deception, improper action. selfish business best interests nation whole, legal formulae permit. abridge consistent given confers immunity persons, organizations, classes government. conflicting claims propaganda confusing, annoying times, doubt, deceiving corrupting. forget system allow greatest access press interests, acting arbiter demands conflicts. 66 nature, wise impinging petition, dependent judicial limitations. Judicial statutory, always hazards reconstruction. rely today's later expand include, accordance excludes. recently happened anti-trust laws, cites similarly Court, case, sustained indictment admittedly changing repeated statutory interpretations. South-Eastern Underwriters Ass'n, 322 533, 1162, 88 1440. ex post facto Constitution protect citizen retroactive change decisional prejudicial long stands books, contingent threat rules out, contingency hereafter constituted. presupposes, disagree, regulate profession disclose principals, activities, However, cutting into difficult delicate task gives little guidance. doubt permit applications clear, safe workable channels maintained. point defects limitations condemn clearly sustain written, After all, experience professional Every receiving subparagraph (b) file Clerk first tenth day each calendar quarter, statement containing complete next preceding filing— '(1) name address $500 mentioned report; except filed contain title; '(2) total sum during year paragraph (1); '(3) year; '(4) expenditure items aggregate amount year, $10 person, amount, date, expenditure; '(5) (4); '(6) year. statements commulative relate, item reported carried forward.' 307': Any anything furtherance object, Representatives Secretary Senate officers writing oath, address, employed, works, duration employment, receive, paid, expenses, expenses Each registering continues, detailed oath expended him quarter carrying work; paid; purposes; names papers, periodicals, publications caused published articles editoriasl; employed oppose. official capacity; newspaper periodical (including owns, publishes, periodical) news items, editorials, comments, advertisements, indirectly urge newspaper, periodical, individual, engages connection compiled said Secretary, jointly, soon practicable after printed Congressional Record.' A third abated death defendant made. 5, 1540, For Government's open case.' Borden 188, 193, 182, 186, 181. 230—232, 707—708, 886; Quarles, Statutory Construction Problems Approaches Law, Vand.L.Rev. 531, 539 543; Note, Harv.L.Rev. 77. 573; Musser Utah, 95, 397, 562; aspect fairly possible, construe enactments danger unconstitutionality. Delaware Hudson 213 366, 407—408, 527, 836; Industrial Organizations, 335 106, 120—121, 1349, 1356, 1849; 770. Thus, C.I.O. supra, organization publication weekly urging candidate forthcoming election unlawful "* (congressional) *'.' (335 1350.) Rumely supra (345 547), Resolution authorizing investigation "all encourage, promote, retard legislation" cover " sense,' 'representations members, committees". 302(c) defines 'an partnership, committee, association, persons.' view based variance 305. 'solicits, receives' contributions' 'expending money'. contention 307—since reference inapplicable limits Both bill state 'This (§ 307) title. *' S.Rep.No.1400, 79th Cong., 2d Sess., Page 28; Committee Print Rep. Legislative Reorganization 1946, 34. remarks Representative Dirksen presenting House: gist antilobbying 307.' Cong.Rec. 10088. Title III Joint Organization accompanying identical 'chiefly so-called lobbyists: 'First. Those visit Capitol initiate over country, form telegrams, misinformation facts. title, cease curtail respect, sources collections methods disbursed. 'Second. second false impression powerful Members time Washington presumably exerting mysterious employers interested, carefully conceal happen presence. prohibits curtails employment compensation. 'Third. honest respectable professional, philanthropic openly frankly useful perfectly expressing concerns They employment.' 27; Pages 32—33. Senator La Follette, Chairman 6367—6368. Act's note 18, infra, invalidity affect circumstances.' '* formed efforts incidental formed.' discussion enactment, Hawkes asked bill, explanation requirement. particular, assurance multi-purposed Chamber Commerce Follette refused assurance, stating: 'So concerned, say depend character undertake. tell act. engage, concerned. (the Act) affects alike activity.' (Italics added.) 10151—10152. Dirksen's House, criterion Int.Rev.Code 23(o) (income tax), 812(d) (estate 1004(a)(2)(B) (gift 23(o)(2), 812(d), 1004(a)(2)(B), tax exemption charitable 'no propaganda, attempting, legislation.' illustrative criterion, Sharpe's Estate Commissioner, Cir., 148 Reporter, 2nd Series 179; Marshall 147 75; Faulkner 112 987; Huntington Bank, Tax KF6280 U55 760, 769. Girard Trust 122 108; Leubuscher 998; Weyl 811; Slee 184. Annotation, 138 Law 456. exceptions, 2, supra. upheld E.g., Boyce Motor Lines 342 337, 329, 330, 367 (regulation drivers motor vehicles explosives "shall avoid, practicable, and, feasible, prearrangement routes, driving congested thoroughfares, crowds assembled, street car tracks, tunnels, viaducts, crossings"); Dennis 494, 857, 860, 1137 (Smith 2385, conspire "to knowingly willfully advocate, abet, advise, teach duty, necessity, desirability, propriety overthrowing destroying force *"); 1877 (statute forbidding coercion stations employ "in excess employees needed perform actual services"); Williams 97, 576, 578, 774 deprive "any privileges, immunities secured protected States"); 74, 508 officer "contribution whatever" employee); Omaechevarria Idaho, 246 343, 323, 324, 763 pasturing sheep "on cattle range previously occupied cattle, usually grower"); 573 (state imposing sanctions "Every wilfully print, edit, issue, circulate, sell, distribute display book, paper, document, written matter, form, advocating, encouraging inciting, tendency encourage incite commission crime, breach peace, violence, tend advocate disrespect justice Nash 229 373, 780, 1232 (Sherman 'Every contract, combination trust otherwise, conspiracy, commerce among several foreign nations'). 886 deportation committed involving 'moral turpitude'). Similar twenty states. Notes, Yale L.J. 304, 313—316, Col.L.Rev. 98, 99—103. Hatch probably deters permitted nonpolitical civil service. Public Workers Mitchell, 330 75, 556, 754. 814: thereof circumstances invalid, remainder affected thereby.'

Classification Label: 2