# U n i t e d S t a t e s C o u r t o f A pp e a l s

For the Eig hth Circu it

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

No . 1 8 -1 7 53

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

Lawren ce W i l l s o n

ll l l l l l l l l l l l l l l l l l l l Pl a in t i

f f - Ap p el l an t

v

.

Ci t y o f Bel -No r, M i s s o u ri

l l l l l l l l l ll l l l l l l l l l l Def

en da n t - Ap

p el l ee

_ __ _ _ __ _ __ _ _
Ap p eal fro m

Un i t ed St at es Di s t ri ct Co u rt
fo r t he Eas t ern Di s t ri ct o f M i s s o u ri - St . Lo u i s

_ __ _ _ __ _ __ _ _

Su b m i t t ed : J an u ary

1 5

, 2 0 1 9
Fi l ed : M ay

2 0 , 2 01 9

_ __ _ _ __ _ __ _ _

Befo re BENTON, M ELLOY, an d KELLY, Ci rcu i t J u d ges

.

_ __ _ _ __ _ __ _ _

BENTON, Ci rcu i t J u d g e.

Lawren ce W i ll s o n m o v ed t o p rel i m i n ari l y en jo i n en fo rcem en t of a Bel -No r

o rd i n an ce res t ri ct i n g th e n u m ber o f s i g n s d i sp l ay ed o n p ri v at e p ro p ert y

. Th e d i s t ri ct

co u rt d en i ed t h e m o t i o n

. Hav i ng ju ri s d i ct i o n u nd er § 1 2 92 (a)(1 ), t h i s co u rt rev ers es

an d rem an ds

.W i l l s o n h as t h ree s t a k e

- m o un t ed

, frees t an d i n g s i g n s i n t h e fro n t y ard o f h i s

res i den ce i n Bel -No r, M i s s o u ri

. He h as d i s p l ay ed “ Cl i n t o n Kai ne” an d “ Ja son K an d er

U.S. Sen at e” s i gn s s i n ce 2 01 6

, an d a “ Bl ack L i v es Mat t er” s i gn si n ce 2 0 1 4

. In

Decem b er 2 0 1 7

, h e recei v ed an i n fo rm at i o n an d su m m o n s ch arg i n g h i m wi th

v i o l at i n g Bel -No r Ord in an ce 9 8 3

.

M o n t h s earl ier, t h e Bel -No r Bo ard o f Al d erm an p as s ed Ord in an ce 9 8 3,

co d ifi ed as Bel -No r M u n i ci p al Co d e § 4 00 .1 2 0 ( E )

. Th e Ord i n an ce p erm i t s “ each

i m p ro v ed p arcel ” o f p ri v at e p ro p ert y “ t o po s t o n e s tak e-m ou n t ed an d s el f-s u p p o rt i n g

frees t an di n g s i g n ” an d “ N o t m o re t h an o ne (1 ) fl ag .” It i ncl u d es s ev eral req ui rem en t s

fo r t h e s i ze, p l acem en t , an d feat u res o f p erm i s s i b l e s i g n s an d fl ag s

.

W i l l s o n s o u g h t p rel i m i n ary i n ju n ct i v e rel i ef

, a r guing O r dina

n c e 9 8 3 is c o n t en t

b as ed

, vag ue, an d ov erb ro ad i n v i o l at i o n o f t he Fi rs t Am en d m en t ’ s Fr e e S p e ech

Cl au se. Th e d i s t ri ct co u rt d en i ed t h e m o t io n

. “ A d i s t ri ct co u rt co n si d eri ng i n ju n ct i v e

rel i ef ev al u at es t he m o v an t ’ s l i k el ih o od o f s u cces s on t h e m eri t s , th e t h reat o f

i rrep arab l e h arm

t o t he m o v an t , t h e b al an ce o f t h e eq ui t i es b et ween t h e p art i es , an d

wh et h er an i n

ju n ct i o n i s in t h e p u b l i c in t eres t .” Gr es ha m v. Swa ns o n , 8 6 6 F.3 d 8 5 3,

8 5 4 (8 th Ci r. 2 0 17 ). “ W hen a p l ai n t i ff h as s h o wn a l i k el y v i o l at i o n o f h is o r h er Fi rs t

Am en d m en t ri g h t s, t h e o t her req u i rem en t s fo r o bt ai n i n g a p rel i m i n ary i n ju n ct i o n are

g en eral l y d eem ed t o h av e b een s at i s fi ed .” M i nnes o t a Ci t i z ens Co ncer ned fo r Li

fe,

I nc. v. Swa ns o n , 6 9 2 F.3 d 8 6 4

, 8 7 0 (8 t h Ci r. 2 0 1 2 ) (en b an c). T h e d is t ri ct co u rt h el d

t h at W i ll s o n was u n l i k el y to s u cceed o n t h e m eri t s o f hi s Fi rs t Am en d m en t ch al l en ge.

It fo u n d O rd i n an ce 9 8 3 co n t en t -n eu t ral an d n arro wl y -t ai lo red to ad d res s Bel -No r’ s

s i gn i fi can t i n t eres ts i n aes th et i cs an d traffi c s afet y

. It reject ed W i l l s o n ’ s o v erb read th

ch al l en g e.

Th i s co u rt rev i ews t he d en i al of a p rel i m in ary i n ju n c t i o n fo r ab u s e o f

d i s cret i o n

. S

ee Gr a nd Ri ver Ent

er

. Si x Na t i o ns , Lt d

. v. Beeb e , 4 6 7 F.3 d 6 9 8

, 7 0 1
(8 t h Ci r. 2 0 0 6 )

. Th i s co u rt rev i ews Fi rs t Am en d m en t cl ai m s d e n o v o an d “ m ak e[s ]

-2

-a fres h ex am i n at i on o f cru ci al fact s .” Jo hns o n v. M i nnea p o l is Pa r k & Recr ea t

i o n

Bd

. , 7 2 9 F.3 d 1 0 9 4

, 10 9 8

, 1 1 0 1

– 0 2 (8 t h Ci r. 20 1 3 ) (rev ers i n g den i al o f m o t i o n fo r

p rel i m i nary i n

ju n ct i on b ecau s e p l ai n t i ff was l i k el y t o s u cceed on t h e m eri t s o f h i s

Fi rs t A m en d m en t cl ai m , an d g o v ern m en t reg ul at i o n was n o t n arro wl y t ai l ored ).

I.

Th e Fi rs t Am en dm en t

, ap p l i cab l e t o t he s t at es t hro u g h th e Fo u rt een th

Am en d m en t

, p ro h i b i t s l aws “ ab ri d g i n g t h e freed o m o f s peech .” U.S. Co ns t. a m end.

I

. “ Un d er t h at Cl au s e, a g o v ern m en t

, i n cl u d i n g a m u n i ci pal g o v ern m en t ves t ed wi th

s t at e au t h o ri ty

, h as n o po wer t o res t ri ct ex pres s i o n b ecau s e o f i t s m es s ag e, i t s i d eas , i t s s u b ject m a t t er, o r i t s co nt en t .” Reed v. To wn o f Gi l b er t

, 1 3 5 S. Ct

. 22 1 8

, 2 2 2 6
(2 0 1 5). “ Co n t en t -b as ed l aws

— t h o s e t hat t arg et s peech bas ed o n i t s co m m u n i cat i v e

co n ten t

— are p res u m

p t i v e l y un co n s t i t u t i o n al an d m ay b e ju st i fi ed o n l y i f t h e

g o v ern m en t p ro v es t h at th ey are n arro wl y t a i l o r e d to s erv e co m p el l i n g s t at e

i n t eres t s .” I

d.

W i l l s o n arg ues th at Ord i n an ce 9 8 3 i s co n t en t -b as ed b ecau se i ts fl ag ex em p t i o n

i m p o s es di fferen t res t ri ct i o n s o n s i g n s d ep en d in g on t hei r co n t en t

. T h e d is t ri ct co u rt

h el d t h at W i l ls o n l ack s st an d i n g t o ch al l en g e t he fl ag ex em pt i o n b ecau s e t h ere was

n o e v i d en ce t h at i t affect ed W i l l so n

. Th i s was erro r. W i l l s o n has s t an d i n g to

ch al l en g e t he Ord i n an ce’ s “ d efi n i t io n al s ect io n s

. ” N ei g hb o r ho o d Ent

er ., I nc. v. Ci t y

o f St . Lo ui s , 6 4 4 F.3 d 7 28

, 7 3 5 (8 t h Ci r. 2 0 1 1). In Nei g h b o r h o o d

En t er p r i s es , t h i s

co u rt rev ers ed a d i s t ri ct co u rt h ol d i n g t h at p l ai n t i ffs d en i e d a n ap p l i cat i o n to

co m m i s s io n a m

u ral “ m ay o n ly ch al l en g e t h o s e p ro v i s i o n s o f [a ci t y Si gn Co d e]

wh i ch were act u al ly ap pl i ed t o t h em .” Nei g hb o r ho o d Ent

er ., I nc. v. Ci t y o f St

. Lo ui s , 7 1 8 F. Su p p

. 2 d 1 0 2 5

, 1 0 3 6 n .7 (E.D. M o

. 2 0 1 0 ), r ev’d

, 6 4 4 F.3 d at 7 35

. “ Th e

Ci t y ’ s d es i g n at i o n o f [ t h e p l a i n t i ffs ’ ] p u rp o rt ed m u ral as a ‘ s ig n ’ es s en t i al l y

ack n owl ed ges t h at th e al l eg ed s i g n fi ts n o co nt en t ex em p t io n u n der [t h os e p ro v i s i on s

o f t he co d e ch al l en g ed b y p lai n t i ffs b u t n o t ci t ed ag ai n s t t hem ] .” Nei g hb o r ho o d

-3

-Ent

er

. , 6 44 F.3 d at 73 5

. Li k e t h e Nei g h b o r h oo d En t er

p r i s es p lai n t i ffs

, W i l l s o n “ h as

s t an d i n g t o ch al l en g e t h o s e po rt io n s o f t h e Si g n Co d e wh ich p ro v i d e th e b as i c

d efi n i t i o n al s t ru ct u re fo r t h e t e r m s u s ed i n t h e vi o l at ed s ect i on s an d wh i ch m o re

g en eral l y d efi n e t he sco p e o f s i g n s al l o wed b y t he vi ol at ed s ect i on s .” I d

. W h en Bel

N o r ch arg ed W i l l s o n wi t h v i o l at i n g Ord i nan ce 9 8 3

, i t ack no wl ed g ed t h at h i s s i g n s

d i d n o t fi t t h e fl ag ex em

p t i o n

. Th e co u rt “ m ay ‘ t ak [e] i n t o acco u n t o t h er p ro v i s i o n s ’ ”

o f t h e Ord in an ce “ t h at m ay affect t h e co n s t i t u t i o n al i t y o f t h o s e p ro v i s i o n s ” ap p l i ed

t o W i l ls o n

. I

d

. , q u o t i n g Ca

fé Er o t i ca o f Fl a ., I n c

. v

. S t

. J ohns Cnt y. , 3 6 0 F.3 d

1 2 7 4

, 1 2 7 8

– 7 9 (1 1 t h Ci r. 2 0 0 4 ) (al t erat i o n s i n ori g i n al ). W i l l s o n has s tan d i n g to

arg u e t h at Ord in an ce 9 8 3 i s co n t en t -b as ed

.

“ Go v ern m en t reg ul at i o n o f s p eech i s co n t en t b as ed i f a l aw ap p l i es t o p art i cu l ar

s p eech becau s e o f th e to pi c d i s cu s s ed o r t h e id ea or m es s ag e ex p res s ed .” Reed

, 1 3 5

S. Ct

. at 22 2 7

. Ord i n an ce 9 8 3 i s co n t en t -b as ed b ecau s e i t “ d efi n [es ] reg u l at ed s p eech

b y p art i cu l ar s ub

ject m at t er.” I

d

. Un d er t h e Ord i n an ce, each i m pro v ed p arcel m ay

h av e u p t o o ne s t ak e-m o u n t ed

, frees t an di n g s i g n . A s i g n i s:

An y p o s t er, o b

ject , d ev is e [s i c] , o r di s p lay

, s i t u at ed o u td o o rs , wh i ch i s

u s ed t o ad vert i s e, i d en t i fy

, d i s p lay

, d i rect or at t ract at t en t i on t o an

o b ject

, pers o n , i ns t it u ti o n , o rg an i zat i o n , b u s i n es s, p ro d u ct

, s erv i ce,

ev en t

, i d ea, b el i ef o r l o cat i o n b y an y m ean s , i n cl u d i ng b u t n o t l i m i t ed t o

wo rd s , l et ters

, fi gu res , d es i g n s , s y m b o l s , co l o rs , l og o s , f

ixtur e s , c a r

toons

o r i m ag es

.

In ad d i t i o n t o o n e s i g n , t h e Ord in an ce al lo ws each i m pro v ed p arcel “ [n ] o t m o re

t h an o ne (1 ) fl ag .” A fl ag i n cl ud es :

an y fab ri c o r b u n t in g co n t ai n i n g di s t i n ct iv e co l ors , p at t ern s o r s y m b o l s

u s ed as a s y m

b o l o f a g o v ern m en t o r i n s t i t u t io n

.

Un d er t h is s ect i o n o f t h e Ord i n an ce, “ fl ag s s h al l n o t b e co n s id ered ‘ si gn s .’ ”

-4

-Th es e d efi n i t i o n s sh o w t h at th e co n t en t o f a fl ag o r s i g n d et erm i n es wh et h er i t

i s a fl ag o r s i g n

. Fo r ex am p l e, ap p l y i n g t h e o r d i n ary m ean i n g o f “ g o v ern m en t o r

i n s t i t u t i o n ,” a fab ri c wi t h a Card i n a l s l o go i s a “ si g n , ” wh i l e a fab ri c wi t h an Arm y

l o g o i s a “ fl ag .” Th i s i n q ui ry i s co n t en t -b as ed b ecau s e wh et h er a fab ri c i s a s i g n o r

a fl ag —an d wh et h er i t i s p ro h i b i t ed b y th e O r d i n a nce— d ep en d s o n t h e “ t h e t o p i c

d i s cu s s ed o r t h e i dea o r m es s ag e ex p res s ed .” Reed

. , 1 3 5 S. Ct . at 2 2 2 7.

Bel -No r d en ies t h at Ord i n an ce 98 3 ’ s fl ag ex em p ti o n i s co nt en t

- b a s ed

. It

ad v an ces an “ ex cep t i o n al l y b ro ad ” d efi n i t io n o f “ i n s t i t u t i o n ,” en co m p as si n g “ [a] ny

s i gn i fi can t p ract ice, rel at i o n s h ip o r o rg an i zat io n i n a s o ci et y o r cu l t u re.” A cco rd i n g

t o B e l

- N o r, t h e Card i n al s are an i n s t i t u t i o n , m arri ag e i s an i n s t i t u t i o n , an d ev e n a

“ Bl ack Li v es M at t er” s i g n m ay b e a “ fl ag ” u nd er t h e Ord i n an ce. Bel -No r co n cl u d es :

“ Hen ce, i t i s d iffi cu l t t o i m ag i n e an y fl ag t h at wo u l d n o t b e p erm it t ed .”

Co n trary to Bel -No r’ s s u g g es t i on , i t i s n o t “ d i ffi cu l t t o i m a g i n e ” a m es s ag e

o m it t e d b y t h e O rd i nan ce’ s d efi n i t i o n o f a fl ag as “ a sy m bo l o f a g o v ern m en t o r

i n s t i t u t i o n .” S

ee Uni t ed St a t e s v

. St evens , 5 5 9 U.S. 4 60

, 4 7 4– 7 5 (2 01 0 ) (ap p l y i n g

“ o rd i n ar y m e a n i n g ” o f wo rd s in s t at u t e in s t ead o f Go vern m en t’ s s t rai ned read i n g ).

Ev en if Bel -No r were t o en fo rce t h e Ord i n an ce w i t ho u t d i s ti n g u i sh i n g b et ween fl ag s

an d s ig n s b as ed o n co n ten t

, t h i s co urt wi l l “ n o t u p ho l d an u nco n s t i t u ti o n al s t at u t e

m erel y b ecau s e t h e Go v ern m en t p ro m i s e[s ] to u s e it res p o n s i b l y .” I d

. at 4 8 0

, ci t i n g

W hi t m a n v. Am er ica n T

r uck ing As s ’ n s , 5 3 1 U.S. 4 5 7

, 4 7 3 (2 00 1 ). As wri t t en , Ord in an ce 9 83 “ draws d i s t in ct i o n s b as ed o n t h e m e s s a g e a s peak er co n v ey s .”

J o s ep hi ne Ha vl

a k Pho t o g r a p her , I nc. v. V i l la g e o f Twi n Oa ks

, 8 6 4 F.3 d 9 0 5 , 9 1 4
(8 t h Ci r. 2 0 1 7 ), q uo t i n g Reed , 1 3 5 S.Ct . at 2 2 2 7

.

As a co n t en t -b as ed res t ri ct i o n , Ord i n an ce 9 8 3 m u s t s at i s fy s t ri ct s cru ti n y

. See

Reed

, 1 3 5 S.Ct

. a t 22 27

. Bel -No r m u st s ho w t h at t h e o n e-s i g n l i m i t “ fu rt h ers a

co m p el l i n g g o v ern m en t al i nt eres t an d i s n arro wl y t ai l o red t o t h at en d

. ” I d

. at 2 2 3 1.

If t h e r e s t ri ct i o n i s n o t n arro wl y t ai l o red t o ach i ev e a co m p el l i ng i n t eres t

, i t i s an

-5

-“ u n co n st i t u t i on al res t rai n t [] o n free s p eech .” W hi tt o n v. Ci t y o f Gl a d s t o ne , 5 4 F.3 d

1 4 0 0 , 1 4 0 9 (8 t h Ci r. 1 9 95 ) (i n v al i d at i n g o rd i nan ce p ro h i bi t i n g p o li t i cal s i g n s m o re

t h an 3 0 d ay s b e f

o r e el ect io n an d req u i ri n g s i g n rem o v al wi t h in 7 d ay s of el ect i o n,

b ecau s e co n t en t -b as ed res t ri ct i o n n o t n arro wl y t ai l ored to m e e t ci t y ’ s aes th et i c an d

t raffi c s afet y co n c e r n s ). Bel -No r arg u es t h e Ord i n an ce i s j u s t i fi ed by t raffi c s afet y

an d aes t h et i cs

. Th es e i n t eres t s h ere are no t co m p el l i n g

. S

ee N ei g hb o r ho o d Ent

er

. , 6 4 4 F.3 d at 7 3 7

– 3 8 (s i g n co d e fai l s st ri ct s cru t i n y b ecau s e “ m

u ni ci p al i t y ’ s as s ert ed

i n t eres t s i n t raffi c s afet y an d aes t h et i cs , wh i l e s i g n i fi can t, h av e n ev er been h el d t o b e

co m p el l i n g ” )

. Lack i n g a co m p el l i n g i n teres t

, Ord i n an ce 98 3 can n o t s at i s fy s t ri ct

s cru t in y

.

Yet “ ev en if

. . . [t h e ci t y ’ s ] p ro ffered i n t eres t s i n aes t h et i cs o r t raffi c s afet y

were ad eq u at e ju s t i fi cat i o n fo r co nt en t -b as ed s i g n reg u l at i o ns , t h e s i g n co d e can n ot

wi t h s t an d s t ri ct s cru t in y b ecau s e i t i s n o t n arro wl y d rawn t o acco m p l i sh t h o s e en d s .”

I d

. at 7 38

, q u o t in g So l

a nt i c, LLC v. Ci ty o

f Nep t une Bea ch

, 4 10 F.3 d 1 2 50

, 1 2 6 7
(1 1 t h Ci r. 2 0 0 5 ). “ Th i s n a r r o w t a i l o ri n g req u i rem en t m ean s

. . . t h at t he fact u al

s i tu at i o n d em o n s t rat es a real n eed fo r t h e g o v ern m en t t o act to p ro t ect i t s i n t eres t s .”

J o hns o n , 7 2 9 F.3 d at 1 09 9

. S ee a l s o M cCul l en v. Co a k l

ey , 57 3 U.S. 4 6 4

, 4 9 3 (2 0 1 4 )
(ci t y -wi d e o rd i n an ce n ot n arro wl y -t ai l o red t o ad dres s a p ro b l em t h at ci t y ’ s ev i d en ce

i n d i cat es o ccu rs i n on e l o cat i o n o n ce a w e e k )

. Here, Bel -No r d i d n o t ci t e an y

ev i d en ce t h at Ord i n an ce 9 8 3 fu rt h ers i ts s t at ed i n t eres t s

. S ee J o hns o n , 7 2 9 F.3 d at

1 1 0 0 (res t ri ct i o n no t n arro wl y -t ai l o red b ecau s e g o v ern m en t “ p res en t ed l i t t l e

ev i d en ce” t h at t h e res t ri ct i o n fu rt h ered s t at ed i n teres t s ); Whi t t o n , 5 4 F.3 d at 1 4 0 8
(res tri ct io n n o t n arro wl y -t ai l o red b ecau s e g o vern m en t “ h as n ot p res en t ed su ffi ci en t

ev i d en ce” t h at t he Ord i n an ce is t h e l eas t res t ri ct i v e m ean s t o fu rt h er s t at ed i n t eres t s

an d “ n o ev i d en ce t h at en fo rcem en t o f t h es e ex i st i ng p ro v i s i o n s i s i n s uffi ci en t ”).

Bel -No r s tres s es th e tes t im on y o f it s M ay o r Pro -Term W i l l i am Ho o k t h at Bel

No r is a s m al l ci t y wi t h m an y s ch o o l s , s m a l l h o u si n g l o ts

, an d n arro w s t reet s

. He

t es t i fi ed t h at Bel -No r i s co n cern ed a b o u t d i s t ract ed d ri v in g , an d Ord i n an ce 9 8 3

-6

-refl ect s t he ci t y ’ s in t eres t in p u b l i c s afet y

. “ [I] t i s n ot en o u g h fo r t h e [Go v ern m en t ]

t o reci t e an i n teres t t hat i s s i g n i fi can t i n t h e ab s t ract ; t h ere m u s t be a g en u i n e n ex u s

b et ween t h e reg u l at i o n an d t h e i n t eres t i t s eek s to s erv e.” J o hns o n , 7 2 9 F.3 d at 1 0 9 9,

ci t i n g U ni t ed St a t es v. Gr ace , 4 6 1 U.S. 1 7 1, 1 8 2

– 8 3 (1 9 8 3 ). Bel -No r h as n o t p ro v ed

t h e req ui red n ex us

. Ord in an ce 9 8 3 i s n o t n arro wl y -t ai l ored to ach i ev e a co m p el l i n g

g o v ern m en t i n t e r e s t

. I t fai l s s tri ct s cru t i n y

. S ee Reed

, 1 3 5 S. Ct

. at 2 2 3 2
(i nv al i d at i n g l aw b ecau s e Go v ern m en t “ has no t m et i t s bu rd en t o p ro v e t hat i t s Si g n

Co d e i s n arro wl y t ai l o red t o fu rt h er a co m p el l in g g ov ern m en t i nt eres t ”).

II.

W i l l s o n al s o arg u es t h at Ord i n an ce 9 8 3 i s faci al l y o v erb ro ad

. “ In t h e Fi rs t

Am en d m en t co n t ex t

, . . . a l aw m ay be in v al i d at e d as o v erb ro ad i f a s u b s t an t i al

n u m b er o f i t s ap p l i cat io n s are u n co n s t it u t i o n al

, ju d g ed in rel at i o n t o t h e s t at u t e’ s

p l ai n l y l eg it i m at e s weep .” St evens , 5 5 9 U.S. at 4 7 3. “ O r d i n a ri l y , a p art y m ay n ot

faci al l y ch al l en g e a l aw o n t h e g ro u n d t h at i t wo u l d b e u n co n st it u t i o n al i f ap p l i ed to

s o m eo n e el s e.” J

o s ep hi ne H

a v l a k

, 8 6 4 F.3 d at 9 1 1

. Ho wev er, Fi rs t Am en d m en t

o v erb read t h d o ct ri n e “ w as des ig n ed as a d ep art u re fro m t rad i t i o nal ru l es o f s t an d i n g

t o en ab l e p ers o n s wh o are th em s el v es u n h arm ed b y t he d efect i n a st at ut e n ev ert h el es s

t o ch al l en g e t h at s t at u t e o n t h e g ro u n d t h at i t m ay c o n c e i v ab l y b e ap p l i ed

u n co ns t it u t i o n al l y t o ot hers

, i n o t h er s i t u at i o n s n o t b efo re t h e C o u r t .” Bo a r d o f

Tr us t ees o f St at e Uni v. o f N.Y

. v. Fo x , 49 2 U.S. 46 9

, 4 8 4 ( 1 9 8 9 ). T h i s co u rt m ay

en t ert ai n W i l l s o n ’ s faci al ch al l en g e b ecau s e t h ere i s “ a real i s t i c d an g er t h at t h e s t at u t e

i t sel f wi ll s i g n i fi can t l y c o m pro m i s e reco gn i zed Fi rs t Am en d m en t pro t ect i o n s o f

p art i es n o t b efo re t h e co u rt .” J o s ep hi ne Ha vl a k , 8 6 4 F.3 d at 9 1 2

.

“ ‘ Th e fi rs t s t ep i n o v erb read t h an al y s i s i s t o co n st ru e th e ch al l en g ed s t at u t e; i t

i s im p o s s i b l e t o d et erm i n e wh et h er a s t a t u t e reach es t o o far wi t h o ut fi rs t k n o wi n g

wh at t he s t at u t e co v ers .’ ” Sni der v

. C i t y o f Ca p e Gi r a rd

ea u , 7 5 2 F.3 d 1 14 9

, 1 1 5 8
(8 t h Ci r. 2 0 1 4 ), q u o t i n g Uni t ed St a t es v. W i l l i a m s , 5 5 3 U.S. 2 85

, 2 9 3 (2 00 8 ). “ Aft er

-7

-co n st ru i n g t h e s t at u t e, t h e s eco n d s t ep i s t o ex am in e wh et h er t h e s t at u te cri m i n al i zes

a ‘ su b s t an t i al am o u n t ’ o f ex p res s i v e act i v it y .” Id

. , ci ti n g W

i l l i a m s , 5 5 3 U .S. at 2 9 2.

Ord in an ce 9 83 res t ri ct s each i m p ro v ed p arcel t o n o m o r e t h a n o ne st ak e-m o u n t ed

, frees t an di n g s i g n an d o n e fl ag

. Th e Ord in an ce’ s ex p an s i v e d efi n i t i o n o f a s i g n,

co m b i ned wi t h i t s s t ri ct s ig n res t ri c ti o ns , ap pl i es t o a s u b s t an t i al am o u nt of ex p res s i v e

co n du ct

. W i l l s o n o ffers ex am p l es o f e x p res s i v e co n du ct t h at are p ro h i b i t ed b y t h e

Ord in an ce:

- “ t ack i n g u p a ‘ W el co m e Ho m e’ ban n er o n t he g arag e” (“ No s i gn s h al l b e

affi x ed t o an y

. . . g arag e

. . . ; [t ] h e fo l l o wi ng

. . . t y p es of s i g n s are p ro h i b i t ed

. . . an y m at eri al t h at fl u t t ers ”);

- “ s t i ck i n g an ADT Secu ri ty wi nd o w cl i n g t o t h e fro nt w i n d o w” (“ [n ] o s i g n

s h al l b e d is p lay ed fro m

t h e i n t eri o r o f an y

wi nd o w ”);

- “ d i s pl ay i n g Ch ri s t m as l i g h t s ” (Ord i n an ce 9 8 3 p ro hi b i t s an y “ o b j ect

. . . . u s ed

t o at tract at ten t i o n t o an

. . . ev en t

. . . b y an y m ean s , i n cl u d i n g

. . . co l o rs ,” an d

“ [i ] l l u m i n at i on i n an y

m an n er i s p ro hi b i ted ”);

- ty i n g a “ Hap p y Bi rt h day ” bal l o on t o a fro n t do o r on t h e day of a b i rt h d ay

p art y (“ Th e fo l l o wi n g m at eri al s

. . . are pro h i bi t ed

. . . [t ] h e u s e of bal l o o n s ”).

Th es e ex am

pl es i l l u s t rat e t h at Ord in an ce 98 3 creat es a “ p ro h i b i t i o n o f al arm i n g

b read t h .” St

eve ns , 5 5 9 U.S. at 4 7 4 (i n v al i d at i n g fed eral s t at u t e cri m in al i zi n g t h e

co m m erci al creat i o n , s al e, o r p o s s es s i o n o f d ep i ct i on s o f an i m al cru el t y as

s u b s t an t i al l y ov erb ro ad an d faci al l y i n v al i d). Bel -No r’ s i nt eres t s i n t raffi c s afet y an d

a e sthe tic d o not j ustif

y s uc h a br o ad res t ri ct i o n of res id en t s ’ co n s t i t ut i o n al l y -p ro t ect e d

co n du ct

. Ord i n an ce 9 8 3 is o v erb ro ad an d faci al ly in v al i d b ecau s e “ t h e i m p erm i s s i b l e

ap p li cat io n s o f t h e l aw are s ub s t an t i al wh en ju d g ed i n rel at io n t o th e s t at u t e’ s p l ai n l y

-8

-l eg i t i m at e sweep .” Sni d er , 7 5 2 F.3 d at 11 5 7

, c i t i n g Br o a d r ick v. Ok l

a ho m a , 4 1 3

U.S. 6 0 1

, 6 1 5 (1 9 7 3 ).

Bel -No r arg u es t h at “ th e r e i s no ri sk o f s ub s t an t i al l i m i t at i o n o f Fi rs t

Am en d m en t ri g h t s” b ecau se “ [r] es i d en t s o f Bel -No r are ab l e t o d is p l ay o ne s i g n wi th

t wo s i g n faces an d are ab l e t o ro t at e t h es e s i g n s as o ft en as t h ey wi s h [] .” A cco rd i n g

t o Bel -No r, two s i g n faces an d a fl ag o ffer “ a t ot al o f t h ree (3 ) d ifferen t m an n ers o f

co m m u n icat in g th o u g ht s an d i d eas .” E v en co ns i d eri n g a t wo -s i d ed s i g n an d o n e fl ag ,

a o n e-s i g n l im i t i s to o res t ri ct i v e u nd er Fi rs t Am en d m en t d o ct ri n e. S ee Ar l i ng t o n

Ct y. Rep ub l i ca n Co m m

. v. Ar l

i ng to n Ct y. , 9 8 3 F.2 d 5 87

, 59 4 (4 t h Ci r. 19 9 3) (fi n d i n g

t h at a two -s i g n l i m i t i n fri ng es o n spe e ch “ b y prev en t i n g ho m eo w n ers fro m ex p res s i n g

s u p p o rt fo r m o re th an t wo can d i d at es wh en t h ere are n u m ero us co n t es ted el ec t i o n s

. . . . [ a n d ] t wo v o ters l i v i ng wi t h i n t h e s am e h o u s eh o l d [m ay ] s u p p o rt o p p o s i n g

can d id at es .”).

Las t l y , Ord i nan ce 9 8 3 ’ s s ev ere res t ri ct i o n s d o no t “ l eav e o p en am p l e

al t ern at i v e ch an n el s f

o r co m m u n icat i o n o f t he i n fo rm at i on .” Cl a r k v. Cm t y. fo r

Cr ea t i ve No n-V

i o lence

, 4 6 8 U.S. 2 8 8, 2 9 3 (1 9 8 4 ) (u p h o l d i n g reg ul at i o n o f

ex p res s i v e co n d u ct in p art b ecau s e i t l eav es o p en am p l e al t ern at i v e m et h o d s o f

co m m u n icat in g t h e i n t en d ed m es sag e). “ Wh i l e t h e Fi rs t A m en d m en t d o es n ot

g u aran tee th e ri gh t t o em p l o y ev ery co n cei v ab l e m et h o d o f c o m m un i cat i o n at al l

t i m es an d i n a l l pl aces , a res t ri ct i o n o n ex p res s i v e act i vi t y m ay b e i nv al i d i f t h e

rem ai n i n g m o d es of co m m un i cat i o n are i n ad eq u at e.” M em b er s o f Ci t y Co unci l o

f

Lo s Ang el

es v. Ta x p a yer s fo r V i ncent , 4 6 6 U.S. 7 8 9 , 8 1 2 (1 9 8 4 ).

“ [R] es id en t i al s ig n s h av e l o n g b een an i m p o rt an t an d d i st i n ct m ed i u m o f

ex p res s i o n .” Ci t

y o f La d ue v. Gi l l eo , 5 1 2 U.S. 4 3

, 55

, 5 4 (1 9 9 4 ) (i n val i d at i n g

o rd i n an ce p ro h i b i t i n g h o m eo wn ers fro m di s p lay ing a ny signs on t he ir pr opert y ex cep t

“ res i d en ce i d en t ifi cat i o n ” s i g n s, “ fo r sal e” s i g n s , an d s i g ns warn i n g o f safet y h azard s

-9

-b ecau s e i t “ al m o s t co m p l et el y fo recl o s ed a v en erab l e m ean s o f co m m u n i cat i o n t h at

i s b o t h u n i q u e an d i m

p o rt an t ”).

Di s p l ay in g a s i g n fro m o n e’ s o wn res i d en c e o f t e n carri es a m es sag e

q u i t e d i s t in ct fro m p l aci n g t h e s am e s i g n s o m ep l ace el s e, o r co n v ey i n g

t h e s am e t ex t o r pi ct u re b y o t h er m ean s

. . . . Res i d en t i a l s i g n s are an

u n u s u al l y ch eap an d co n v en i en t fo rm of co m m u n i cat i o n

. . . . [an d ] m ay h av e n o p ract i cal s ub s t i tu t e. A s p eci al res p e c t fo r i n di v i d u al l i b ert y i n

t h e h o m e h as l o n g b een p art o f o u r cu l t u re an d o u r l aw; t hat p ri n ci pl e h as s p eci al res o nan ce wh en t h e g o v e r n m en t s eek s t o co ns t rai n a

p ers on ’ s ab i l i t y t o s p eak t h ere.

I d

. at 5 6

– 5 8

. Du e t o t h e s p eci al s i g n ifi can ce o f t he ri g ht t o s pe a k f r o m o n e ’s o wn

h o m e, s ev ere res tri ct i o n s o f t h i s ri g h t d o n o t affo rd ad eq u at e al t ern at i ves

. See

Ar l i ng t o n Ct y. Rep ub l i ca n Co m m

. , 9 8 3 F.2 d at 5 9 4 –9 5 (i nv al i d at i n g t wo -s i g n l i m i t

an d reject i n g g o v ern m en t arg u m en t t h at p u b l i c s peec h e s , d o or-t o -d o o r an d p u b l i c

can v as si n g , di s t ri bu t i n g h an d b i l l s , ap p eari n g at ci ti zen g ro u p m eet i ng s , ad v ert i s i n g,

an d p o s t i n g s i g n s in l o cal b u s i n es s es an d au t o m o b i les

, are v iab l e al t ern at iv es t o s i gn s

at p ri vat e res i den ces ).

“ Th e s h o w i n g t hat a l aw p u n i s h es a ‘ s u b s t an t i al ’ am o u n t o f p ro t ect ed free

s p eech

, ‘ ju d g ed i n rel at i o n to t h e s t at ut e’ s pl ai nl y l eg it i m at e s we e p , ’ s u ffi ces to

i n v al i d at e al l e n fo rcem en t of t h at l aw, ‘ u nt i l an d u n l es s a l i m it i ng co n st ru ct i o n o r

p a r t i al i nv al i d at io n s o n arro w s i t as t o rem o ve th e s eem i n g th reat o r det erre n c e t o

co n st i t u t io n al l y p ro t ect ed ex pres s i o n .’ ” Sni d er , 7 5 2 F.3 d at 1 1 5 8

, q u o t i n g

Br o a d r i ck

, 4 1 3 U.S. at 6 1 5

, 6 1 3

, a n d c i t in g V ir g i ni a v. Bl

a ck

, 5 3 8 U.S. 3 4 3

, 3 6 7
(2 0 0 3). Co u rt s “ m ay i m

p o se a l i m it i n g co n s t ru ct i o n o n a s t at u t e o n l y i f i t i s read i l y

s u s cep t i b l e t o s u ch a co n s t ru ct i o n .” St evens , 5 5 9 U.S. at 48 1

. Ord i n an ce 9 8 3 i s n ot

read i l y s u s cep t i b l e t o a l i m i t i n g co n s t ru ct io n

. Th i s co u rt “ wi l l n ot r e w r i t e a l aw to

co n fo rm i t t o co n s t i t u t i o n al req u i rem en t s .” I d

. “ Li m i t i n g co n s t ru ct i o n s o f st at e an d

-1 0

-l o cal l eg i s l at i o n are m o re ap p r o p r i at el y d o ne b y a s t at e co u rt o r an en fo rcem en t

ag en cy .” W

a ys v. Ci t y o f Li nco l n , 2 7 4 F.3 d 5 1 4 , 5 1 9 (8 t h Ci r. 2 0 01 ).

W i l l s o n i s l i kel y t o s ucceed o n t h e m eri ts o f h i s Fi rs t Am en d m en t ch al l en ge.

Th e p rel i m i n ary

i n j u n ct i o n s h o u l d b e g ran t ed

.

* * * * * * *

Th e ju d gm en t i s rev ers ed

, an d th e cas e rem an d ed fo r f u r t h e r p ro ceed i ng s

co n si s t en t wi t h t h i s o p i ni on

.

__ _ _ _ _ __ _ _ __ _ _ __ _ __ _ _ _ _ _ __ _ _ _ _

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