405 U.S.

676
92 S.Ct. 1332
31 L.Ed.2d 593

Jonathan O. COLE, Superintendent, Boston State Hospital, et

al., Appellants,
v.
Lucretia Peteros RICHARDSON.
No. 7014.
Argued Nov. 16, 1971.
Decided April 18, 1972.

Syllabus
Appellee's employment at the Boston State Hospital was terminated when
she refused to take the following oath required of all public employees in
Massachusetts: 'I do solemnly swear (or affirm) that I will uphold and
defend the Constitution of the United States of America and the
Constitution of the Commonwealth of Massachusetts and that I will
oppose the overthrow of the government of the United States of America
or of this Commonwealth by force, violence, or by any illegal or
unconstitutional method.' Appellee challenged the constitutionality of the
oath statute. A three-judge District Court concluded that the attack on the
'uphold and defend' clause was foreclosed by Knight v. Board of Regents,
390 U.S. 36, 88 S.Ct. 816, 19 L.Ed.2d 812, but found the 'oppose the
overthrow' clause 'fatally vague and unspecific' and thus violative of the
First Amendment. In response to a remand from this Court, the District
Court concluded that the case was not moot, and reinstated its earlier
judgment. Held: The Massachusetts oath is constitutionally permissible.
Pp. 679687.
(a) The oath provisions of the United States Constitution Art. II, 1, cl. 8,
and Art. VI, cl. 3, are not inconsistent with the First Amendment. Pp. 681
682.
(b) The District Court properly held that the 'uphold and defend' clause, a
paraphrase of the constitutional oath, is permissible. P. 683.

(c) The 'oppose the overthrow' clause was not designed to require specific
action to be taken in some hypothetical or actual situation but was to
assure that those in positions of public trust were willing to commit
themselves to live by the constitutional processes of our government. Pp.
683685.
(d) The oath is not void for vagueness. Perjury, the sole punishment,
requires a knowing and willful falsehood, which removes the danger of
punishment without fair notice; and there is no problem of punishment
inflicted by mere prosecution, as there has been no prosecution under the
statute since its enactment nor has any been planned. Pp. 685686.
(e) There is no constitutionally protected right to overthrow a government
by force, violence, or illegal or unconstitutional means, and therefore there
is no requirement that one who refuses to take Massachusetts' oath be
granted a hearing for the determination of some other fact before being
discharged. Pp. 686 687.
Reversed and remanded.
Walter H. Mayo, III, Asst. Atty. Gen., Boston, Mass., for appellants.
Stephen H. Oleskey, Boston, Mass., for appellee, pro hac vice, by special
leave of Court.
Mr. Chief Justice BURGER delivered the opinion of the Court.

In this appeal we review the decision of the three-judge District Court holding a
Massachusetts loyalty oath unconstitutional, 300 F.Supp. 1321.

The appellee, Richardson, was hired as a research sociologist by the Boston

State Hospital. Appellant Cole is superintendent of the hospital. Soon after she
entered on duty Mrs. Richardson was asked to subscribe to the oath required of
all public employees in Massachusetts. The oath is as follows:

'I do solemnly swear (or affirm) that I will uphold and defend the Constitution
of the United States of America and the Constitution of the Commonwealth of
Massachusetts and that I will oppose the overthrow of the government of the
United States of America or of this Commonwealth by force, violence or by any
illegal or unconstitutional method.'1

Mrs. Richardson informed the hospital's personnel department that she could

not take the oath as ordered because of her belief that it was in violation of the
United States Constitution. Approximately 10 days later appellant Cole
personally informed Mrs. Richardson that under state law she could not
continue as an employee of the Boston State Hospital unless she subscribed to
the oath. Again she refused. On November 25, 1968, Mrs. Richardson's
employment was terminated and she was paid through that date.
5

In March 1969 Mrs. Richardson filed a complaint in the United States District
Court for the District of Massachusetts. The complaint alleged the
unconstitutionality of the statute, sought damages and an injunction against its
continued enforcement, and prayed for the convocation of a three-judge court
pursuant to 28 U.S.C. 2281 and 2284.

A three-judge District Court held the oath statute unconstitutional and enjoined
the appellants from applying the statute to prohibit Mrs. Richardson from
working for Boston State Hospital.2 The District Court found the attack on the
'uphold and defend' clause, the first part of the oath, foreclosed by Knight v.
Board of Regents, 269 F.Supp. 339 (S.D.N.Y.1967), aff'd, 390 U.S. 36, 88
S.Ct. 816, 19 L.Ed.2d 812 (1968). But it found that the 'oppose the overthrow'
clause was 'fatally vague and unspecific,' and therefore a violation of First
Amendment rights. The court granted the requested injunction but denied the
claim for damages.

Appeals were then brought to this Court under 28 U.S.C. 1253. We remanded
for consideration of whether the case was moot in light of a suggestion that
Mrs. Richardson's job had been filled in the interim. 397 U.S. 238, 90 S.Ct.
1099, 25 L.Ed.2d 275 (1970). On remand, the District Court concluded that
Mrs. Richardson's position had not been filled and that the hospital stood ready
to hire her for the continuing research project except for the problem of the
oath. In an unreported opinion dated July 1, 1970, it concluded that the case
was not moot and reinstated its earlier judgment. Appellants again appealed,
and we noted probable jurisdiction. 403 U.S. 917, 91 S.Ct. 2224, 29 L.Ed.2d
694 (1971).

We conclude that the Massachusetts oath is constitutionally permissible, and in

light of the prolonged litigation of this case we set forth our reasoning at greater
length than previously.

A review of the oath cases in this Court will put the instant oath into context.
We have made clear that neither federal nor state government may condition
employment on taking oaths that impinge on rights guaranteed by the First and

Fourteenth Amendments respectively, as for example those relating to political

beliefs. Law Students Civil Rights Research Council v. Wadmond, 401 U.S.
154, 91 S.Ct. 720, 27 L.Ed.2d 749 (1971); Baird v. State Bar of Arizona, 401
U.S. 1, 91 S.Ct. 702, 27 L.Ed.2d 639 (1971); Connell v. Higginbotham, 403
U.S. 207, 209, 91 S.Ct. 1772, 1774, 29 L.Ed.2d 418 (1971) (Marshall, J.,
concurring in result). Nor may employment be conditioned on an oath that one
has not engaged, or will not engage, in protected speech activities such as the
following: criticizing institutions of government; discussing political doctrine
that approves the overthrow of certain forms of government; and supporting
candidates for political office. Keyishian v. Board of Regents, 385 U.S. 589, 87
S.Ct. 675, 17 L.Ed.2d 629 (1967); Baggett v. Bullitt, 377 U.S. 360, 84 S.Ct.
1316, 12 L.Ed.2d 377 (1964); Cramp v. Board of Public Instruction, 368 U.S.
278, 82 S.Ct. 275, 7 L.Ed.2d 285 (1961). Employment may not be conditioned
on an oath denying past, or abjuring future, associational activities within
constitutional protection; such protected activities include membership in
organizations having illegal purposes unless one knows of the purpose and
shares a specific intent to promote the illegal purpose. Whitehill v. Elkins, 389
U.S. 54, 88 S.Ct. 184, 19 L.Ed.2d 228 (1967); Keyishian v. Board of Regents,
supra; Elfbrandt v. Russell, 384 U.S. 11, 86 S.Ct. 1238, 16 L.Ed.2d 321 (1966);
Wieman v. Updegraff, 344 U.S. 183, 73 S.Ct. 215, 97 L.Ed. 216 (1952). Thus,
last Term in Wadmond the Court sustained inquiry into a bar applicant's
associational activities only because it was narrowly confined to organizations
that the individual had known to have the purpose of violent overthrow of the
government and whose purpose the individual shared. And, finally, an oath
may not be so vague that "men of common intelligence must necessarily guess
at its meaning and differ as to its application, (because such an oath) violates
the first essential of due process of law." Cramp v. Board of Public Instruction,
368 U.S., at 287, 82 S.Ct., at 280. Concern for vagueness in the oath cases has
been especially great because uncertainty as to an oath's meaning may deter
individuals from engaging in constitutionally protected activity conceivably
within the scope of the oath.
10

An underlying, seldom articulated concern running throughout these cases is

that the oaths under consideration often required individuals to reach back into
their past to recall minor, sometimes innocent, activities. They put the
government into 'the censorial business of investigating, scrutinizing,
interpreting, and then penalizing or approving the political viewpoints' and past
activities of individuals. Law Students Civil Rights Research Council v.
Wadmond, 401 U.S., at 192, 91 S.Ct., at 740 (Marshall, J., dissenting).

11

Several cases recently decided by the Court stand out among our oath cases
because they have upheld the constitutionality of oaths, addressed to the future,

promising constitutional support in broad terms. These cases have begun with a
recognition that the Constitution itself prescribes comparable oaths in two
articles. Article II, 1, cl. 8, provides that the President shall swear that he will
'faithfully execute the Office . . . and will to the best of (his) Ability preserve,
protect and defend the Constitution of the United States.' Article VI, cl. 3,
provides that all state and federal officers shall be bound by an oath 'to support
this Constitution.' The oath taken by attorneys as a condition of admission to
the Bar of this Court identically provides in part 'that I will support the
Constitution of the United States'; it also requires the attorney to state that he
will 'conduct (himself) uprightly, and according to law.' Bond v. Floyd, 385
U.S. 116, 87 S.Ct. 339, 17 L.Ed.2d 235 (1966), involved Georgia's statutory
requirement that state legislators swear to 'support the Constitution of this State
and of the United States,' a paraphrase of the constitutionally required oath. The
Court there implicitly concluded that the First Amendment did not undercut the
validity of the constitutional oath provisions. Although in theory the First
Amendment might have invalidated those provisions, approval of the
amendment by the same individuals who had included the oaths in the
Constitution suggested strongly that they were consistent. The Court's
recognition of this consistency did not involve a departure from its many
decisions striking down oaths that infringed First and Fourteenth Amendment
rights. The Court read the Georgia oath as calling simply for an
acknowledgment of a willingness to abide by 'constitutional processes of
government.' 385 U.S., at 135, 87 S.Ct., at 349, 17 L.Ed.2d 235. Accord,
Knight v. Board of Regents, 390 U.S. 36, 88 S.Ct. 816, 19 L.Ed.2d 812 (1968)
(without opinion). Although disagreeing on other points, in Wadmond, supra,
all members of the Court agreed on this point. Mr. Justice Marshall noted there,
while dissenting as to other points,
12

'The oath of constitutional support requires an individual assuming public

responsibilities to affirm . . . that he will endeavor to perform his public duties
lawfully.' 401 U.S., at 192, 91 S.Ct., at 740.

13

The Court has further made clear that an oath need not parrot the exact
language of the constitutional oaths to be constitutionally proper. Thus in
Ohlson v. Phillips, 397 U.S. 317, 90 S.Ct. 1124, 25 L.Ed.2d 337 (1970), we
sustained the constitutionality of a state requirement that teachers swear to
'uphold' the Constitution. The District Court had concluded that the oath was
simply a "recognition that ours is a government of laws and not of men," and
that the oath involved an affirmation of 'organic law' and rejection of 'the use of
force to overthrow the government.' Ohlson v. Phillips, 304 F.Supp. 1152
(Colo.1969).

14

The District Court in the instant case properly recognized that the first clause of
the Massachusetts oath, in which the individual swears to 'uphold and defend'
the Constitutions of the United States and the Commonwealth, is
indistinguishable from the oaths this Court has recently approved. Yet the
District Court applied a highly literalistic approach to the second clause to
strike it down. We view the second clause of the oath as essentially the same as
the first.

15

The second clause of the oath contains a promise to 'oppose the overthrow of
the government of the United States of America or of this Commonwealth by
force, violence or by any illegal or unconstitutional method.' The District Court
sought to give a dictionary meaning to this language and found 'oppose' to raise
the specter of vague, undefinable responsibilities actively to combat a potential
overthrow of the government. That reading of the oath understandably troubled
the court because of what it saw as vagueness in terms of what threats would
constitute sufficient danger of overthrow to require the oath giver to actively
oppose overthrow, and exactly what actions he would have to take in that
respect. Cf. Ohlson v. Phillips, 304 F.Supp., at 1154 and n. 4.

16

But such a literal approach to the second clause is inconsistent with the Court's
approach to the 'support' oaths. One could make a literal argument that 'support'
involves nebulous, undefined responsibilities for action in some hypothetical
situations. As Mr. Justice Harlan noted in his opinion concurring in the result
on our earlier consideration of this case,

17

'Almost any word or phrase may be rendered vague and ambiguous by

dissection with a semantic scalpel. . . . (But such an approach) amounts to little
more than verbal calisthenics. Cf. S. Chase, The Tyranny of Words (1959); W.
Empson, Seven Types of Ambiguity (1955).' Cole v. Richardson, 397 U.S. 238,
240, 90 S.Ct. 1099, 1101, 25 L.Ed.2d 275 (1970).

18

We have rejected such rigidly literal notions and recognized that the purpose
leading legislatures to enact such oaths, just as the purpose leading the Framers
of our Constitution to include the two explicit constitutional oaths, was not to
create specific responsibilities but to assure that those in positions of public
trust were willing to commit themselves to live by the constitutional processes
of our system, as Mr. Justice Marshall suggested in Wadmond, 401 U.S., at
192, 91 S.Ct., at 740. Here the second clause does not require specific action in
some hypothetical or actual situation. Plainly 'force, violence or . . . any illegal
or unconstitutional method' modifies 'overthrow' and does not commit the oath
taker to meet force with force. Just as the connotatively active word 'support'

has been interpreted to mean simply a commitment to abide by our

constitutional system, the second clause of this oath is merely oriented to the
negative implication of this notion; it is a commitment not to use illegal and
constitutionally unprotected force to change the constitutional system. The
second clause does not expand the obligation of the first; it simply makes clear
the application of the first clause to a particular issue. Such repetition, whether
for emphasis or cadence, seems to be the wont of authors of oaths. That the
second clause may be redundant is no ground to strike it down; we are not
charged with correcting grammar but with enforcing a constitution.
19

The purpose of the oath is clear on its face. We cannot presume that the
Massachusetts Legislature intended by its use of such general terms as 'uphold,'
'defend,' and 'oppose' to impose obligations of specific, positive action on oath
takers. Any such construction would raise serious questions whether the oath
was so vague as to amount to a denial of due process. Connally v. General
Construction Co., 269 U.S. 385, 46 S.Ct. 126, 70 L.Ed. 322 (1926); Cramp v.
Board of Public Instruction, 368 U.S., at 287, 82 S.Ct., at 280, 7 L.Ed.2d 285
(1961).

20

Nor is the oath as interpreted void for vagueness. As Mr. Justice Harlan
pointed out in his opinion on our earlier consideration of this case, the oath is
'no more than an amenity.' 397 U.S., at 240, 90 S.Ct., at 1100. It is punishable
only by a prosecution for perjury3 and, since perjury is a knowing and willful
falsehood, the constitutional vice of punishment without fair warning cannot
occur here. See American Communications Assn. v. Douds, 339 U.S. 382, 413,
70 S.Ct. 674, 691, 94 L.Ed. 925 (1950). Nor here is there any problem of the
punishment inflicted by mere prosecution. See Cramp v. Board of Public
Instruction, 368 U.S., at 284, 82 S.Ct., at 279, 7 L.Ed.2d 285. There has been
no prosecution under this statute since its 1948 enactment, and there is no
indication that prosecutions have been planned or begun. The oath 'triggered no
serious possibility of prosecution' by the Commonwealth. Cole v. Richardson,
397 U.S., at 241, 90 S.Ct., at 1101. Were we confronted with a record of actual
prosecutions or harassment through threatened prosecutions, we might be faced
with a different question. Those who view the Massachusetts oath in terms of
an endless 'parade of horribles' would do well to bear in mind that many of the
hazards of human existence that can be imagined are circumscribed by the
classic observation of Mr. Justice Holmes, when confronted with the prophecy
of dire consequences of certain judicial action, that it would not occur 'while
this Court sits.' Panhandle Oil Co. v. State of Miss. ex rel. Knox, 277 U.S. 218,
at 223, 48 S.Ct. 451, at 453, 72 L.Ed. 857 (dissenting).

21

Appellee mounts an additional attack on the Massachusetts oath program in that

it does not provide for a hearing prior to the determination not to hire the
individual based on the refusal to subscribe to the oath. All of the cases in this
Court that require a hearing before discharge for failure to take an oath
involved impermissible oaths. In Slochower v. Board of Education, 350 U.S.
551, 76 S.Ct. 637, 100 L.Ed. 692 (1956) (not an oath case), the State sought to
dismiss a professor for claiming the Fifth Amendment privilege in a United
States Senate committee hearing; the Court held the State's action invalid
because the exercise of the privilege was a constitutional right from which the
State could not draw any rational inference of disloyalty. Appellee relies on
Nostrand v. Little, 362 U.S. 474, 80 S.Ct. 840, 4 L.Ed.2d 892 (1960), and
Connell v. Higginbotham, 403 U.S. 207, 91 S.Ct. 1772, 29 L.Ed.2d 418 (1971),
but in those cases the Court held only that the mere refusal to take the particular
oath was not a constitutionally permissible basis for termination. In the
circumstances of those cases, only by holding a hearing, showing evidence of
disloyalty, and allowing the employee an opportunity to respond might the
State develop a permissible basis for concluding that the employee was to be
discharged.
22

Since there is no constitutionally protected right to overthrow a government by

force, violence, or illegal or unconstitutional means, no constitutional right is
infringed by an oath to abide by the constitutional system in the future.
Therefore, there is no requirement that one who refuses to take the
Massachusetts oath be granted a hearing for the determination of some other
fact before being discharged.

23

The judgment of the District Court is reversed and the case is remanded for
further proceedings consistent with this opinion.

24

Mr. Justice POWELL and Mr. Justice REHNQUIST took no part in the
consideration or decision of this case.

25

Mr. Justice STEWART and Mr. Justice WHITE, concurring.

26

All agree that the first part of this oath, under which a person swears to 'uphold
and defend' the Federal and State Constitutions, is wholly valid under the First
and Fourteenth Amendments. But if 'uphold' and 'defend' are not words that
suffer from vagueness and overbreadth, then surely neither is the word 'oppose'
in the second part of the oath.

27

When the case was here before, Mr. Justice Harlan expressed the view that '(t)
his oath does not impinge on conscience or belief, except to the extent that oath

taking as such may offend particular individuals.' Cole v. Richardson, 397 U.S.
238, 241, 90 S.Ct. 1099, 1101, 25 L.Ed.2d 275 (concurring in result). We
agree. And as to such individuals, the Massachusetts law clearly permits an
affirmation rather than an oath. Mass.Gen.Laws, c. 264, 14.
28

On this basis we join the opinion and judgment of the Court.

29

Mr. Justice DOUGLAS, dissenting.

30

The part of the oath that says 'I will oppose the overthrow of the government of
the United States of America or of this Commonwealth by force, violence or by
any illegal or unconstitutional method' is plainly unconstitutional by our
decisions. See Board of Education v. Barnette, 319 U.S. 624, 634, 63 S.Ct.
1178, 1183, 87 L.Ed. 1628.

31

Advocacy of basic fundamental changes in government, which might popularly

be described as 'overthrow,' is within the protection of the First amendment
even when it is restrictively construed. In Brandenburg v. Ohio, 395 U.S. 444,
89 S.Ct. 1827, 23 L.Ed.2d 430, a case involving criminal syndicalism, this
Court ruled that a State may not 'forbid or proscribe advocacy of the use of
force or of law violation except where such advocacy is directed to inciting or
producing imminent lawless action and is likely to incite or produce such
action.' Id., at 447, 89 S.Ct., at 1829. The same idea was put in somewhat
different words in Noto v. United States, 367 U.S. 290, 297298, 81 S.Ct.
1517, 1521, 6 L.Ed.2d 836 that 'abstract teaching' of overthrow is protected
activity as contrasted to 'preparing a group for violent action and steeling it to
such action.' And see Yates v. United States, 354 U.S. 298, 318, 77 S.Ct. 1064,
1076, 1 L.Ed.2d 1356.

32

The present oath makes such advocacy a possible offense under a restrictive
reading of the First Amendment.

33

The views expressed by Mr. Justice Black and me give the First Amendment a
more expansive reading. We have condemned loyalty oaths as 'manifestation(s)
of a national network of laws aimed at coercing and controlling the minds of
men. Test oaths are notorious tools of tyranny. When used to shackle the mind
they are, or at least they should be, unspeakably odious to a free people.'
Wieman v. Updegraff, 344 U.S. 183, 193, 73 S.Ct. 215, 220, 97 L.Ed. 216
(Black, J., concurring). And see Speiser v. Randall, 357 U.S. 513, 532, 78 S.Ct.
1332, 1354, 2 L.Ed.2d 1460 (Douglas, J., concurring). We said in Brandenburg
that the protection of the First Amendment as applied to the States through the

Fourteenth does not depend on the 'quality of advocacy,' since that 'turns on the
depth of the conviction.' 395 U.S., at 457, 89 S.Ct., at 1834 (Douglas, J.,
concurring). The line between the permissible control by a State and the
impermissible control is 'the line between ideas and overt acts.' Id., at 456, 89
S.Ct., at 1834. 'The First Amendment . . . leaves the way wide open for people
to favor, discuss, advocate, or incite causes and doctrines however obnoxious
and antagonistic such views may be to the rest of us.' Yates v. United States,
supra, 354 U.S., at 344, 77 S.Ct., at 1090. (Black, J., concurring and
dissenting). This oath, however, requires that appellee 'oppose' that which she
has an indisputable right to advocate.1 Yet the majority concludes that the
promise of 'opposition'exacted as a condition of public employment2 is a
mere redundancy which does not impair appellee's freedom of expression.3
34

It is suggested, however, that because only the second portion of the oath is
unconstitutional we should sever the two clauses and uphold the first. Even on
this assumption, the entire oath must fall. This Court should, of course, base its
decisions upon local law where, in so doing, we may avoid deciding federal
constitutional questions. Here, we have been cited to no evidence of a
legislative intent to separate the two clauses of the oath. This case is thus
governed by Pedlosky v. Massachusetts Institute of Technology, 352 Mass.
127, 224 N.E.2d 414 (1967), where the Supreme Judicial Court of
Massachusetts was confronted with a two-part test oath similar in effect to the
one before us.4 'The substance of the oath (was) not confined merely to a
declaration of support of the Federal and State Constitutions. It equally
concern(ed) an undertaking by the plaintiff that 'I will faithfully discharge the
duties of the position of assistant professor of mathematics according to the
best of my ability." Id., at 128129, 224 N.E.2d, at 416. Finding the oath to be
'altogether too vague a standard to enforce judicially' and being without
evidence 'whether the Legislature would have enacted (it) without the (invalid)
provision,' the court was unable to hold that the provisions were severable, and
thus unanimously struck down the entire oath. Id., at 129, 224 N.E.2d, at 416.

35

I would follow the lead of the Supreme Judicial Court of Massachusettsthe

court which has the final word on how the statutes of that State are to be
construedand hold that the entire oath must fall.

36

I conclude that whether the First Amendment is read restrictively or literally as

Jefferson would have read it, the oath which the District Court struck down,
300 F.Supp. 1321, is plainly unconstitutional. I would affirm its judgment.

37

Mr. Justice MARSHALL, with whom Mr. Justice BRENNAN joins,

dissenting.

38

Appellee was discharged from her job with the Boston State Hospital solely
because she refused to swear or affirm the following oath:1

39

'I will uphold and defend the Constitution of the United States of America and
the Constitution of the Commonwealth of Massachusetts and . . . I will oppose
the overthrow of the government of the United States of America or of this
Commonwealth by force, violence or by any illegal or unconstitutional method.'
Mass.Gen.Laws, c. 264, 14.

40

She brought this action in the United States District Court for the District of
Massachusetts seeking declaratory and injunctive relief against enforcement of
the oath as a condition of her employment.2 The District Court found that the
oath was unconstitutionally vague and granted the relief requested by appellee.
The Court now reverses the District Court and sustains the validity of the oath
in its entirety. In my opinion, the second half of the oath is not only vague, but
also overbroad. Accordingly, I dissent.

41

The first half of the oath, requiring an employee to indicate a willingness to

'uphold and defend' the state and federal Constitutions, is clearly constitutional.
It is nothing more than the traditional oath of support that we have
unanimously uphold as a condition of public employment.

42

It is the second half of the oath to which I object. I find the language 'I will
oppose the overthrow of the government of the United States of America or of
this Commonwealth by force, violence or by any illegal or unconstitutional
method' to be impermissibly vague and overbroad.

43

It is vague because 'men of common intelligence (must) speculate at their peril

on its meaning.' Whitehill v. Elkins, 389 U.S. 54, 59, 88 S.Ct. 184, 186, 19
L.Ed.2d 228 (1967). See also Connally v. General Construction Co., 269 U.S.
385, 391, 46 S.Ct. 126, 127, 70 L.Ed. 322 (1926); Cline v. Frink Dairy Co., 274
U.S. 445, 465, 47 S.Ct. 681, 687, 71 L.Ed. 1146 (1927); Lanzetta v. New
Jersey, 306 U.S. 451, 453, 59 S.Ct. 618, 619, 83 L.Ed. 888 (1939). The most
striking problem with the oath is that it is not clear whether the last
prepositional phrase modifies the verb 'oppose' or the noun 'overthrow.' Thus,
an affiant cannot be certain whether he is swearing that the will 'oppose'
governmental overthrow by utilizing every means at his disposal, including
those specifically prohibited by the laws or constitutions he has sworn to
support, or whether he has merely accepted the responsibility of opposing
illegal or unconstitutional overthrows. The first reading would almost surely be
unconstitutional since it is well established that a State cannot compel a citizen

to waive the rights guaranteed him by the Constitution in order to obtain

employment. See, e.g., Pickering v. Board of Education, 391 U.S. 563, 88 S.Ct.
1731, 20 L.Ed.2d 811 (1968); Garrity v. New Jersey, 385 U.S. 493, 87 S.Ct.
616, 17 L.Ed.2d 562 (1967). This reading would also make the second half of
the oath inconsistent with the first half. It is far from clear to me which reading
the Massachusetts Legislature intended. A reasonable man could certainly read
the oath either way, and Massachusetts has not offered to make a binding
clarification of its purport.
44

Even assuming that the second reading were unconditionally adopted by the
appellants and communicated to prospective employees, the vice of vagueness
is still not cured, for the affiant is left with little guidance as to the
responsibilities he has assumed in taking the oath. In what form, for example,
must he manifest his opposition to an overthrow? At oral argument in the
District Court, the Commonwealth's attorney asserted that citizens have three
standards of obligation to their government to oppose overthrows:

45

'The ordinary citizen who has taken no oath has an obligation to act in extremis;
a person who has taken the first part of the present oath would have a
somewhat larger obligation, and one who has taken the second part has one still
larger.' 300 F.Supp. 1321, 1322.3

46

I agree with the conclusion of the District Court that '(t)he very fact that such
varied standards . . . can be suggested is enough to condemn the language as
hopelessly vague.' Id., at 1323.

47

Vagueness is also inherent in the use of the word 'overthrow.' When does an
affiant's undefined responsibility under the oath require action: When an
overthrow is threatened? When an overthrow is likely to be threatened? When a
threatened overthrow has some chance of success? Cf. Brandenburg v. Ohio,
395 U.S. 444, 89 S.Ct. 1827, 23 L.Ed.2d 430 (1969); Yates v. United States,
354 U.S. 298, 77 S.Ct. 1064, 1 L.Ed.2d 1356 (1957); Dennis v. United States,
341 U.S. 494, 71 S.Ct. 857, 95 L.Ed. 1137 (1951). The oath answers none of
these questions, and for that reason, if no other, cannot stand.

48

The importance of clarity and precision in an oath of this kind should not be
underestimated. Chapter 264, 14, of the Massachusetts General Laws
provides that the oath is taken subject to the pains and penalties of perjury, and
15 of that chapter specifies that the pains and penalties may amount to one
year in prison and/or a $10,000 fine.

49

In concluding that this oath is vague, I rely on Baggett v. Bullitt, 377 U.S. 360,
84 S.Ct. 1316, 12 L.Ed.2d 377 (1964). One part of the oath considered in
Baggett, like the Massachusetts oath, required that the affiant assert a
willingness to conform future conduct to the criteria set forth in an oath taken
under penalty of perjury. The Court struck down the oath in Baggett, and Mr.
Justice White's opinion for the Court explained in great detail the inordinate
difficulties employees would have in attempting to conform their actions to the
oath's criteria. Id., at 371, 84 S.Ct., at 1322. While the oath involved herein
differs somewhat from that involved in Baggett, the considerations in both
cases are the same, and the results should also be the same.

50

I would also strike down the second half of this oath as an overbroad
infringement of protected expression and conduct.

51

The Court's prior decisions represent a judgment that simple affirmative oaths
of support are less suspect and less evil than negative oaths requiring a
disaffirmance of political ties, group affiliations, or beliefs. Compare Connell v.
Higginbotham, 403 U.S. 207, 91 S.Ct. 1772, 29 L.Ed.2d 418 (1971); Knight v.
Board of Regents, 269 F.Supp. 339 (SDNY 1967), aff'd, 390 U.S. 36, 88 S.Ct.
816, 19 L.Ed.2d 812 (1968); Hosack v. Smiley, 276 F.Supp. 876 (Colo. 1967),
aff'd, 390 U.S. 744, 88 S.Ct. 1442, 20 L.Ed.2d 275 (1968); Ohlson v. Phillips,
304 F.Supp. 1152 (Colo.1969), aff'd, 397 U.S. 317, 90 S.Ct. 1124, 25 L.Ed.2d
337 (1970), with Whitehill v. Elkins, 389 U.S. 54, 88 S.Ct. 184, 19 L.Ed.2d 228
(1967); Baggett v. Bullitt, supra; Cramp v. Board of Public Instruction, 368
U.S. 278, 82 S.Ct. 275, 7 L.Ed.2d 285 (1961); Speiser v. Randall, 357 U.S. 513,
78 S.Ct. 1332, 2 L.Ed.2d 1460 (1958); Wieman v. Updegraff, 344 U.S. 183, 73
S.Ct. 215, 97 L.Ed. 216 (1952); Garner v. Board of Public Works, 341 U.S.
716, 71 S.Ct. 909, 95 L.Ed. 1317 (1951).

52

Yet, I think that it is plain that affirmative oaths of loyalty, no less than
negative ones, have odious connotations and that they present dangers. See
Asper, The Long and Unhappy History of Loyalty Testing in Maryland, 13
Am.J.Legal Hist. 97, 104 (1969); Askin, Loyalty Oaths in Retrospect: Freedom
and Reality, 1968 Wis.L.Rev. 498, 502; Note, Loyalty Oaths, 77 Yale L.J. 739,
763 (1968). We have tolerated support oaths as applied to all government
employees only because we view these affirmations as an expression of
'minimal loyalty to the Government.' American Communications Assn. v.
Douds, 339 U.S. 382, 415, 70 S.Ct. 674, 692, 94 L.Ed. 925 (1950). Such oaths
are merely indications by the employee 'in entirely familiar and traditional
language, that he will endeavor to perform his public duties lawfully.' Law
Students Civil Rights Research Council, Inc. v. Wadmond, supra, 401 U.S.

154, at 192, 91 S.Ct. 720, at 740 (Marshall, J., dissenting).

53

It is precisely because these oaths are minimal, requiring only that nominal
expression of allegiance 'which, by the common law, every citizen was
understood to owe his sovereign,' Knight v. Board of Regents, 269 F.Supp., at
341, that they have been sustained. That they are minimal intrusions into the
freedom of government officials and employees to think, speak, and act makes
them constitutional; it does not mean that greater intrusions will be tolerated.
On the contrary, each time this Court has been faced with an attempt by
government to make the traditional support oath more comprehensive or
demanding, it has struck the oath down. See, e.g., Connell v. Higginbotham,
supra; Baggett v. Bullitt, supra; cf. Bond v. Floyd, 385 U.S. 116, 87 S.Ct. 339,
17 L.Ed.2d 235 (1966).

54

When faced with an 'imminent clear and present danger,' governments may be
able to compel citizens to do things that would ordinarily be beyond their
authority to mandate. But, such emergency governmental power is a far cry
from compelling every state employee in advance of any such danger to
promise in any and all circumstances to conform speech and conduct to
opposing an 'overthrow' of the government. The Constitution severely
circumscribes the power of government to force its citizens to perform
symbolic gestures of loyalty. Cf. West Virginia State Board of Education v.
Barnette, 319 U.S. 624, 63 S.Ct. 1178, 87 L.Ed. 1628 (1943). Since the
overbreadth of the oath tends to infringe areas of speech and conduct that may
be protected by the Constitution, I believe that it cannot stand. See Whitehill v.
Elkins, supra; Baggett v. Bullitt, supra; Wieman v. Updegraff, supra; Shelton v.
Tucker, 364 U.S. 479, 81 S.Ct. 247, 5 L.Ed.2d 231 (1960).

55

Because only the second half of the oath is invalid, I would normally favor
severing the statute and striking only the second part. See Connell v.
Higginbotham, supra. However, when confronted with an oath strikingly
similar to that before us, the Supreme Judicial Court of Massachusetts held that
the two portions of the oath were not severable. Pedlosky v. Massachusetts
Institute of Technology, 352 Mass. 127, 224 N.E.2d 414 (1967). This Court
must bow to state courts in their construction of state legislation. Therefore, we
must bow to the decision of the state court and strike the oath in its entirety.

56

Before concluding, I add one additional word about loyalty oaths in general.
They have become so prevalent in our country that few Americans have not at
one time or another taken an oath to support federal and state governments.
Such oaths are not only required as a condition of government employment, but
often as a prerequisite to entering military service, to obtaining citizenship, to

securing a passport or an educational loan or countless other government

offerings. Perhaps we have become so inundated with a variety of these oaths
that we tend to ignore the difficult constitutional issues that they present. It is
the duty of judges, however, to endeavor to remain sensitive to these issues and
not to 'encourage the casual taking of oaths by upholding the discharge or
exclusion from public employment of those with a conscientious and
scrupulous regard for such undertakings.' Baggett v. Bullitt, supra, 377 U.S., at
373374, 84 S.Ct., at 1323.
57

Loyalty oaths do not have a very pleasant history in this country. Whereas they
may be developed initially as a means of fostering power and confidence in
government, there is a danger that they will swell 'into an instrument of thought
control and a means of enforcing complete political conformity.' Asper, The
Long and Unhappy History of Loyalty Testing in Maryland, 13 Am.J.Legal
Hist. 97, 108 (1969). Within the limits of the Constitution it is, of course, for
the legislators to weigh the utility of the oaths and their potential dangers and to
strike a balance. But, as a people, we should always keep in mind the words of
Mr. Justice Black, concurring in Speiser v. Randall, 357 U.S., at 532, 78 S.Ct.,
at 1354:

58

'Loyalty oaths, as well as other contemporary 'security measures,' tend to stifle

all forms of unorthodox or unpopular thinking or expressionthe kind of
thought and expression which has played such a vital and beneficial role in the
history of this Nation. The result is a stultifying conformity which in the end
may well turn out to be more destructive to our free society than foreign agents
could ever hope to be. . . . I am certain that loyalty to the United States can
never be secured by the endless proliferation of 'loyalty' oaths; loyalty must
arise spontaneously from the hearts of people who love their country and
respect their government.'

59

Accordingly, I would affirm the decision of the District Court.

The full text of the two relevant statutes is as follows:

Mass.Gen.Laws, c. 264, 14. Oath or affirmation; form; filing; exemptions
'Every person entering the employ of the commonwealth or any political
subdivision thereof, before entering upon the discharge of his duties shall take
and subscribe to, under the pains and penalty of perjury, the following oath or
affirmation:

"I do solemnly swear (or affirm) that I will uphold and defend the Constitution
of the United States of America and the Constitution of the Commonwealth of
Massachusetts and that I will oppose the overthrow of the government of the
United States of America or of this Commonwealth by force, violence or by any
illegal or unconstitutional method.'
'Such oath or affirmation shall be filed by the subscriber, if he shall be
employed by the state, with the secretary of the commonwealth, if an employee
of a county, with the county commissioners, and if an employe of a city or
town, with the city clerk or the town clerk, as the case may be.
'The oath or affirmation prescribed by this section shall not be required of any
person who is employed by the commonwealth or a political subdivision
thereof as a physician or nurse in a hospital or other health care institution and
is a citizen of a foreign country.'
C. 264, 15. Violation of section 14; penalty
Violation of section fourteen shall be punished by a fine of not more than ten
thousand dollars dollars or by imprisonment for not more than one year, or
both.'
2

Richardson v. Cole, 300 F.Supp. 1321 (Mass.1969).

The District Court interpreted Mass.Gen.Laws, c. 264, 15, which punishes a

'(v)iolation of section fourteen,' see n. 1, supra, as 'presumably' punishing 'a
failure to 'live up' to the oath.' We see no basis for this interpretation. The clear
purpose of 15 is to punish the failure to comply with the directive aspects of
14, which requires that every person entering the employ of the
Commonwealth subscribe to the oath and file it with a certain state employee.
Section 14, which includes the oath, says that it is taken upon the penalty of
perjury but mentions nothing about a continuing criminal responsibility to 'live
up' to it.
The time may come when the value of oaths in routine public employment will
be thought not 'worth the candle' for all the division of opinion they engender.
However, while oaths are required by legislative acts it is not our function to
evaluate their wisdom or utility but only to decide whether they offend the
Constitution.

The majority makes the suggestion that 'we might be faced with a different
question' if there were 'a record of actual prosecutions or harassment through
threatened prosecutions.' Ante, at 685. Here, appellee has been discharged from
employment and denied her source of livelihood because of her refusal to

subscribe to an unconstitutional oath. If the oath suffers from constitutional

infirmities, then it matters not whether the penalties imposed for refusing to
subscribe to it were criminal or the denial of employment.
2

The Court is correct when it says 'there is no constitutionally protected right to

overthrow a government by force, violence, or illegal or unconstitutional
means,' ante, at 686, but that has no bearing on the present case. What is
involved here is appellee's right to espouse and advocate ideas which may be
unpopular to some. How we can honor that right to advocate while exacting the
promise to 'oppose,' the Court leaves unanswered.

The majority first chides the District Court for taking 'a literal approach' and
'giv(ing) (the word 'oppose') a dictionary meaning.' The majority then reads
'oppose' to be a mere 'negative implication of th(e) notion' of 'a commitment to
abide by our constitutional system' not requiring 'specific, positive action.'
Ante, at 683, 684. Having thus emasculated the word, the majority then labels
it as 'redundant' and a 'repetition,' ibid., and concludes that the oath, in its
entirety, is simply 'to abide by the constitutional system in the future.' Ante, at
686.
If the oath is void for vagueness or overbreadth, it is because the common
meaning of its words is so imprecise or so farreaching as to place a 'chilling
effect' upon constitutionally protected expression. This vicereadily apparent
in the present oathis emphasized rather than avoided by the majority's
opinion. The tortured route which the majority takes to give this oath a
supposedly constitutional interpretation merely emphasizes the unconstitutional
effect those words would have were they to be given their natural meaning.

The oath provided: 'I do solemnly swear (or affirm) that I will support the
Constitution of the United States and the Constitution of the Commonwealth of
Massachusetts, and that I will faithfully discharge the duties of the position of
(insert name of position) according to the best of my ability.'

Appellee was not requested to take the oath before she began her employment.
The reasons for the failure of the hospital officials to require the oath as a
prerequisite to employment are not readily apparent from the record. In any
event, the oath was required of all state employees at all relevant times.

Appellee also sought damages for back wages allegedly owed. It is apparent
that all back wages have now been paid. Thus, this claim is no longer in
controversy. The District Court rejected appellee's belated attempt to make a
claim for loss of wages due to termination, and this decision was well within its
discretion under Rule 15 of the Federal Rules of Civil Procedure.

It is clear that both speech and conduct are affected by this portion of the oath.
Appellants conceded as much in their brief in the court below:
'(I)n the event that a clear and present danger arose of the actual overthrow of
the government, . . . the public employee (would) be required to use reasonable
means at his disposal to attempt to thwart that effort. What he might do in such
circumstances could range from the use of physical force to speaking out
against the downfall of the government. The kind of response required would
be commensurate with the circumstances and with the employee's ability, his
training, and the means available to him at the time.' (Emphasis added.) Quoted
at 300 F.Supp., at 1322.
The final sentence of this quotation evidences the confusion that the State
confesses about the responsibilities assumed by employees in taking the oath.
In light of the arguments that the appellants make, I find it impossible to agree
with the Court that the second half of the oath adds nothing to the first. The
appellants contend, contrary to the assertions of the Court, that a citizen who
takes the first part of the oath has more of a duty to his government than one
who takes no oath, and that one who takes the second part of the oath has a still
greater duty. While the appellants are unsure as to where and how far that duty
extends, they never have suggested that it simply does not exist. The argument
is even made that the duty extends to the use of physical force.
Were we faced with merely a traditional oath of support, I would join the
Court. I share the Court's dismay at having to hold state legislation
unconstitutional, but I cannot ignore the thrust that a State would give its
statutes. Cf. Pedlosky v. Massachusetts Institute of Technology, 352 Mass. 127,
224 N.E.2d 414 (1967).