Legal Document

352 U.S. 567 77 Supreme Court Reporter 529 1 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 563 UNITED STATES of America, Appellant,v.INTERNATIONAL UNION AUTOMOBILE, AIRCRAFT AND AGRICULTURAL IMPLEMENT WORKERS OF AMERICA (UAW-CIO). Number 44. Argued Dec. 3 and 4, 1956. Decided March 11, 1957. Solicitor General Judge Lee Rankin, Washington, D.C., for the appellant. Mr. Joseph L. Rauh, Jr., appellee. Justice FRANKFURTER delivered opinion Court. The issues tendered in this case are construction and, ultimately, constitutionality 18 Code KF62 § 610, Annotated KF65 U5 an Act Congress that prohibits corporations labor organizations from making 'a contribution or expenditure connection with' any election federal office. This is a direct appeal by Government judgment District Eastern Michigan dismissing four-count indictment charged appellee, organization, with having made expenditures violation law. Appellee had moved to dismiss on grounds (1) it failed state offense under statute (2) provisions 'on their face as construed applied' unconstitutional. district judge held did not allege statutory he was therefore required rule upon constitutional questions presented. 138 F.Supp. 53. came here, 351 904, 76 697, 100 L.Ed. 1440, Criminal Appeals 1907, amended, 3731, 3731. 2 It desirable at outset quote its entirety: 'It unlawful national bank, corporation organized authority law Congress, make political office, primary convention caucus select candidates whatever, organization which Presidential Vice electors Senator Representative in, Delegate Resident Commissioner be voted for, foregoing offices, candidate, committee, other person accept receive prohibited section. 4 'Every makes section shall fined more than $5,000; every officer director corporation, who consents may be, accepts receives contribution, section, $1,000 imprisoned one year, both; if willful, $10,000 two years, both. 5 'For purposes 'labor organization' means kind, agency employee representation committee plan, employees participate exist purpose, whole part, dealing employers concerning grievances, disputes, wages, rates pay, hours employment, conditions work.' taken June 23, 1947, 61 Statutes-at-Large 136, 159. 6 Appreciation circumstances begot necessary understanding, understanding adjudication legal problems before us. Speaking broadly, what involved here integrity our electoral process, less, responsibility individual citizen successful functioning process. thus raises less basic democratic society. 7 concentration wealth consequent industrial expansion post-Civil War era profound implications American life. impact abuses resulting gradually itself felt rising tide reform protest last decade nineteenth century. Sherman Law, 15 §§ 1—7, note response threat economic freedom created enormous combines. income tax 1894, 28 509, reflected congressional concern over growing disparity between many few. 8 No lively, although slower evoke action, popular feeling aggregated capital unduly influenced politics, influence stopping short corruption. matter exaggerated leading historians: 9 'The nation fabulously rich but gravitating rapidly into hands small portion population, power threatened undermine Republic.' Morison Commager, Growth Republic (4th ed. 1950), 355. 10 In '90's passed laws requiring office committees public sources amounts contributions campaign funds recipients expenditures. theory behind these spotlight publicity would discourage thereby end control party policies. But either became dead letters were found futile. As early soberminded Elihu Root saw need effective legislation. He urged Constitutional Convention State New York prohibit corporations: 11 idea prevent * great railroad companies, insurance telephone aggregations using corporate funds, directly indirectly, send members legislature halls order vote protection advancement interests against those public. strikes constantly evil has done shake confidence plain people country institutions practice ever obtained since foundation Government. And & N Immigration Nationality Decisions believe time come when something ought put check giving $50,000 $100,000 toward debt it.' Quoted Hearings House Committee Elections, 59th Cong., 1st Sess. 12; see Root, Addresses Citizenship (Bacon Scott 1916), 143. 12 Concern size source so actively entered presidential 1904 crystallized sentiment action purge politics conceived pernicious 'big money' contributions. A few days after 1904, defeated candidate presidency said: 13 greatest moral question now confronts us is, Shall trusts prevented contributing money aid controlling elections?' Quoted, Hearings, supra, 56. 14 President Theodore Roosevelt quickly responded mood. his annual message December 5, 1905, recommended that: 'All purpose should forbidden law; directors permitted use stockholders' such purposes; moreover, prohibition kind far went, method evils aimed corrupt practices acts.' 40 Cong.Rec. 96. 16 Grist added reformers' mill investigation life companies conducted Joint Legislature, Armstrong Committee, guidance Charles Evans Hughes. Committee's report, filed 1906, revealed company alone contributed almost given substantial preceding campaigns. concluded: 17 'Contributions strictly forbidden. Neither executive officers nor allowed moneys paid support platforms. Whether supporting views desire obtain have been wholly unjustifiable. sought impose constituency divergent convictions, they guilty serious morals. frank admission campaigns expectation aided exposed both solicited them severe just condemnation.' Report Senate Assembly Appointed Investigate Affairs Life Insurance Companies, 397 (1906). Less month later Elections Representatives began considering number proposals designed cleanse Some bills certain classes corporations; some merely disclosure contributions; others bribery elections crime. articulate groups hearing Committee. Perry Belmont, leader nation-wide advocating bill, stated: 19 '* thing breaking point. We enough it. don't want secret purchase organizations, nullifies platforms, utterances pledges leaders out Congress.' 12. 20 view strong testimony Samuel Gompers, Federation Labor, said, respect bill: 21 'Whether bill meets all needs questioned; open discussion; necessity subject patent man hopes maintenance we live. doubtful my mind vast sums nominations offices can continue increase without endangering endurance purity essence. 22 If corruption elections, surely must those, large class people, whom convenience term wageworkers. 23 'I am mood, never am, indulge denunciations criticism, does me sometimes reasons absence legislation liberal sympathetic character, affects interest wage earners fairly well traced growth influences operation during *. impression patience workingmen about exhausted— 24 (If) really determined free lavish accounting conscience will pass measure kind.' Id., 28—31. 25 Roosevelt's 1906 listed first item business prohibiting corporations. 41 22. Shortly thereafter, provided: 26 'That also whatever Vice-Presidential Senator.' 34 864. 27 historical background indicates, aim subversion Its underlying philosophy sustain active, alert democracy wise conduct government. 1907 concrete manifestation continuing 'free money.' (See statement supra.) 1909 witnessed unsuccessful attempts amend proscribe anything value extend application legislatures. 1910 translated demand further curbs operating results report disbursements identify contributors sums. That persons spent $50 annually influencing through committee. 36 822. At next session extended require detailed reports nominating amendment placed maximum limits could spend seeking nomination election, forbade promising employment obtaining support. 37 25. 1918 offer solicit voting. 1013. 29 Court's decision Newberry versus States, 256 232, 469, 65 913, invalidating regulation led Federal Corrupt Practices 1925, 43 1070, 241 et seq., comprehensive revision existing debates Act's passage reveal attitude important course Thus, Robinson, Senate, 30 'We know apparent hold parties seek reason Many association individuals aiding winning expect, demand, occasionally, least, receive, consideration beneficiaries infrequently harmful general interest. unquestionably dealt with, intelligently effectively.' 9507—9508. 31 One chosen deal 313 1925 Act, strengthened changing phrase 'money contribution' 'contribution' (§ 302(d) defined broadly); extending Delegates Commissioners; (3) penalizing recipient contributor. 32 When, 1940, Hatch 53 1147, process deemed accompany civil administration, reforming zeal place restrictions potentialities wealth. Section amending 'political committee,' $3,000,000 amount calendar year. 'for person, aggregate excess $5,000, behalf elective office' candidate. 'person' include association, group persons. 54 767. offering floor Bankhead 33 chief only obligation contributors, pay way legislation, used conducting expensive newspapers radio; publication sorts literature, true untrue; paying expenses campaigners sent spread propaganda, untrue.' 86 2720. unprecedented mobilization propelled World II enormously stimulated soon aroused consciousness outside ranks. Wartime gave rise fears new represented gains trade unionism. belief grew that, huge governmental inaction, whether consciously unconsciously, powerful unions pursuing similar course, same untoward consequences 1943, Smith-Connally secure defense production work stoppages, contained therein provision duration war, Act. 57 163, 167. Congressman Landis, author measure, subcommittee Labor dominant evoked it: 35 fact granted high tribute ability recognize undergoing change. thinks, right think, unions, institutions, rights no greater group. My seeks exactly basis, insofar financial activities concerned, years. matters sensed taking stand opposite handling organizations. rumors war chests being maintained fees dues extorted workers, clubs head officials. much trouble today coal strike situation ill-advised another day (referring, apparently, reported $400,000 Mine Workers 1936 Campaign, S.Rep.No. 151, 75th Sess.). activity (sic) force made, Nation, better off.' Subcommittee H.R. 804 1483, 78th 1, 2, 4. 38 Despite 313's wartime advised outlays said 1944. Senate's Special Campaign Expenditures investigated, inter alia, role Political Action Industrial Organizations. 'no clear-cut part Committee' ground local primaries, apply, limited participation 'expenditures,' distinguished 'contributions' committees. S.Rep.No.101, 79th 23. complaint Taft, Ohio C.I.O. Council's distribution 200,000 copies pamphlet opposing reelection Taft rival. C.I.O.'s assertion proscribed 'expenditure own position world, exercising speech *.' requested Department bring test facts. 59. extension cover conventions. 81. minority Senators Ball Ferguson, advocated 'expenditures' avoid possibility emasculation policy narrow judicial 'contributions.' 83. 39 1945 expressed devoting politics: scale operations impressive. Without exception, operate Nation-wide basis; affiliated budget 'educational' approximating $1,500,000, among things regularly supplies 500 radio stations 'briefs broadcasters.' Another, $300,000 'education,' distributed 80,000,000 pieces including quarter million article. representing membership 5,000,000, raised $700,000 union 'education' months, expended organizations.' H.R.Rep. 2093, 3. Like primaries conventions, id., 9, noted existence controversy scope 'contribution.' 11. following year study attempting outcome elections. Brotherhood Railway Trainmen employed professional organizers, sponsored partisan programs literature. 2739, 37. concluded 42 intent act assumed 'making related donating excluded herein shown engaged extensively. Of avail yet permit behalf? firmly convinced, thorough act, legislative history same, pending House, intended expenditures.' 40. Accordingly, evasion policy, attached recommendation permanent additional proposal 44 'be clarified specifically provide salaries time, constitute violations knowledge consent candidates.' 46. (Italics omitted.) 45 Early 1947 Senatorial 1946 Ellender 'plug loophole,' S.Rep. Part 80th 38—39, introduced effect. 46 again acted protect corroding effect power. 304 Hartley like embodied changes Committees Expenditures. 'expenditure' 'any contribution,' coverage Education considered approved summarized 304, 245, 46, little debate House. See 93 3428, 3522. Because consider until adopted Conference explaining colleagues, conferees, 47 say words investigated election. instance somewhat changed plug up loophole obviously developed, which, courts advantage it, fact, absolutely destroyed advertising mean 'expenditure,' then friends publish advertisement him do think contemplated thing, claimed did, least applied So doing plugging hole bill.' 6439. 48 After considerable debate, conference version subsequently despite President's veto. reach alleged indictment. 49 On review court basis interpretation, take judge. Borden Co., 308 188, 60 182, 84 181. below allegations opinion: 50 'Here specific charge selection senator representatives 1954 defendant treasury fund Luckoff Wayburn Productions, Detroit, Michigan, defray costs television broadcasts Union commercial station WJBK. 51 endorsed included expressions advocacy electorate affect 52 Union's dues, voluntary subscriptions Union, sales.' 54. purposes, appellee sponsor To deny activity, constituted (federal) election' long series efforts calculated deleterious exercise capital. More particularly, ignore applicable indicated Congressional expenditures, embrace precisely indirect amended 'expenditures.' prove except irrelevant difference medium communication employed, virtually indistinguishable Trainmen's pamphlets oppose Taft. 'an (by union) world,' enacted, seen, loophole.' 55 Although entitled weight carefully reports, Taft-Hartley 141 confirms demonstrate. colloquy Pepper problem confronting us: 56 'Mr. Pepper. Does past apply speech? union, example, elect Democratic Party instead Republican Party, vice versa, proposed anybody express point organization? get somebody speech, violate 58 time? 59 simply not; regular business. What this: assuming owned organization. Suppose 1948 campaign, William Green, president go time. Would statute? Yes.' 62 discussion followed, while suggesting difficult might arise particular broadcast fell within statute, buttresses conclusion understood urge party.1 63 C.I.O., 335 106, 68 1349, 92 1849, presented different situation. rested reading defendants purchasers issue, Vol. 10, 28, CIO News,' weekly newspaper published issue urging unlike union-sponsored case, indicted neither directed large. house organ people. struck party. 64 Our holding committed error dismissed implies disrespect 'the cardinal construction, where language bear interpretations, equally obvious, clearly accordance Constitution preferred.' Knights Templars' Masons' Indemnity Jarman, 187 197, 205, 108, 111, 139. call application. Here interpretation derived relevant materials. invoked lurk ambiguous disregard commands. urges if, hold, embraces indictment, offends several guaranteed Constitution.2 replies actual restraint imposed narrowly exceed powers undue promote Once confronted duty mindful enter delicate adjudication. 66 impressive lesson wisdom repeated enunciation, variously admonition, self-imposed inhibition passing validity 'unless case.' Burton 196 283, 295, 243, 482.3 Observance principle minimum tension system 'Scarcely arises become, sooner later, debate.' De Tocqueville, Democracy America Am. 1843), 306. 67 refraining avoidable pronouncements most vividly demonstrated rare occasions Court, forgetting fallibility human judgment,'4 departed practice. failure Dred Sandford, How. 393, 691, 'to smooth handle sake repose' disposing solely issue' effects attempt settle agitation' familiar history.5 alone. These exceptions rightly characterized notable 'self-inflicted wounds.' Hughes, 50. Clearly 'absolutely decision,' (196 245) canvass issues. because blocked prosecution reversal judge's erroneous clears proceed. 69 Refusal anticipate peculiarly appropriate case. First all, unillumined single judge—we asked decide instance. Again, merits factual setting sharpens deliberative especially demanded decision. Finally, remanding trial, called raised. Compare Petrillo, 332 1538, 1542, 91 1877, subsequent 75 176. 70 Counsel prone shape litigation, control, rulings. counsel Such appreciate. responsibility. Matter buried abstract may, elucidation brought surface, disappear. Allegations hypothetically framed elicit ruling based misunderstanding facts survive proof. For basis? Did appellee? active electioneering record issues? election? repeatedly recognized prosecutions present fact. 585—587, 538, 539, 1. suggest questions, imply answers indicate covert 71 Enough justify withholding determination stop prematurely, reversed remanded proceedings inconsistent opinion. 72 Reversed remanded. 73 DOUGLAS, CHIEF JUSTICE BLACK join, dissenting. 74 fundamental candidates, unrestrained unfettered Congress. stake peculiar unions. associations manufacturers, retail wholesale groups, consumers' leagues, farmers' religious segment discussions. reaches very vitals Under People sovereign. final say. legislators spokesmen. determine votes destiny nation. important—vitally important—that channels restrained barred, access community. 144, 1368, Rutledge spoke importance Amendment rights—freedom expression assembly—to complete rights,' 'is essential full, fair untrammeled extent curtailed deprived information vital function.' greatly impairs rights. sustains charging broadcasting endorse States. places practices. generates environment evildoing points oppressions misdeeds haunted country. 78 Making endorsing not, however, deserve identified antisocial conduct. Until always preferred protected Amendment. usually communicate audience. seriously contend print deprives publisher press. Nor speech—whether hiring hall purchasing air—make Yet criminal expressing candidates. spokesman address platform hall, sound truck streets, bought television. each mere indictable offense. distribute literature 79 Can command abridges assembly? 80 says answer await development trial. 81 asks, 'Did appellee?' audience heretofore talks thousand. startling learn fewer 82 asks 'active electioneering' stated issues.' possible other? covers entire spectrum. protects impassioned plea orator quiet tabulations statistician economist. there innuendo spokesmen covered Amendment, sharp break heritage. 83 election?' inform incite action. Holmes dissent Gitlow York, 268 652, 673, 625, 632, 1138, incitement. offers believed unless outweighs energy stifles movement birth.' draw line informing inciting persuading give dignity irrelevance. Any speaker worth salt intends sway voters. His cannot possibly rob rights, reduce guarantee meaningless mouthings ineffective speakers. 'paid basis.' Behind school object espouse view. concerns internal management affairs. date, operated majority. Perhaps protection. indeed, burning down roast pig. All discourse banned object. 85 When tangled government regulate, refuse allow sacrificed result. insistence regulatory 'narrowly drawn' meet control. Cantwell Connecticut, 310 296, 311, 900, 906; 1213. Or Jonge Oregon, 299 353, 364—365, 255, 260, 278, speaking intervention find justification abuse. themselves curtailed.' minorities speech-making, ways reaching denying majority rights.1 87 adopts. Today's abolishes basis. Protection any, excuse. 88 too powerful, advocates unpopular ideas, lawless justifications group—labor corporate. Cf. Rumely, 345 41, 543, 97 770. heritage They dispensed withheld thinks worthy unworthy. 89 grave construe comparable situations, supra; 770; Harriss, 347 612, 808, 98 989, limit word involve rights.2 90 applied, broadside assault saved conjured reserved quite affirm Barkley. instance, Bayer aspirin, Jergens lotion, well-advertised product, employes commentator talk various things, winding suppose takes sponsorship comments opinions men women sponsoring violating law? exact If, apart commentators radio, advertisement, advertises products, weeks probably circumstances, advertise minutes votes, say, broadcast, responsible commentary says; broadcast. still law, excuse himself saying commentator? degrees. decide. happened old question. raising here. Those fact: Was Magnuson. Let teamsters. program, as, back. let AFL program. assume running ask guest advocate candidacy. Nevertheless name advertised heard thousands candidacy? provided payment speakers X Y, anything. guest. understand, air. decided. hypotheses knowing circumstances. baron supposed keep politics.' 6439—6440. Taylor. Take program corporation. CIO, other, news news. Could comment favorably unfavorably? Motors Corporation week punished, punished rule. altogether different. subtle thing. lot good harm coloring presenting guise openly. right. Is not? Possibly knock boost sometimes. argument election.' 6447. violates (i) press peaceably assemble petition; (ii) choose senators Article I, Seventeenth Amendment; (iii) creates arbitrary classification discriminates Fifth (iv) vague indefinite fails reasonably ascertainable standard guilt Sixth Amendments.' Brief Pages 2—3. Cases collected Brandeis Ashwander Tennessee Valley Authority, 297 288, 466, 482, 688. evident declare enactment void judge, conscious judgment, shrink conscientiously due regard official oath decline responsibility.' Cooley, Limitations (8th ed.), 332. letter written Catron Buchanan shortly handed reveals happily exceptional: 'Will you drop (Mr. Justice) Grier line, how is—& opportunity agitation affirmative other. occupy issue—that admitting Mo. Comp. 1820, still, domicile acquired negro Ft. Snelling, returned Missouri, free. doubt main contest, persuaded repose.' Works James 106. There alternative measures cure seen purposes. cause sympathize cured permitting withdraw activity. English dissenting member contribute Trade 1913, Geo. V, chapter 30; Disputes Unions 1927, 22; 1946, VI, 52. And, acknowledge authorship expressions. Undue influence, constitutionally form society sues campaign.

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