FI LED U. S . COURT OF AP PE ALS E L E V E N T H C IR C U IT A ugus t 17, 2006 T HOM AS K. KAHN CL E RK [ DO NO T P UB L I S H] I N THE UN I TE D STATE S C OU RT OF APPE ALS F O R T H E E L E V E N T H C IR C U IT

________________________ N o. 05- 11100 N on -A rgum entC al endar

________________________ D . C . D ocketN o. 01 -013 76 -C V -W B H -1 G R A N I T E S T A T E O U T D O O R A D V E R T I S I N G , I N C ., P la in tif f - A p p e lla n t, v ersu s C O B B C O U N T Y , G A , ap o litic a l subd i vi si on of the S t at e of G e o r g ia , B I L L B Y RN E , a n i ndi vi dua l a nd i n hi s c apa c i tya s C ha i rm a n o f th e C o u n tyC o m m is s io n , R O B H O S A C K , a s a n in d iv id u a l an di n h i s cap aci ty as D ir e c to ro f

C o m m u n ityD e v e lo p m e n t, S H E R L I N E A D A M S , a s an i ndi vi dua l a nd in h e rc ap a c itya s C o d e E n f o r c e m e n t O f f ic e r , M A R G I E V A Z Q U E Z , a s a n i ndi vi dua l a nd in h e rc ap a c itya s C o d e E n f o r c e m e n t O f f ic e r , D e f e n d a n ts - A p p e lle e s .2 ________________________ A pp ea l fr om the U ni t ed S t at es D i stri ctC ou rt f o rth e N o rth e rn D is tr ic t o f G e o r g ia

_________________________ ( A u gu s t 17, 2006) B efo re M A R C U S , W IL S O N an dP R Y O R , C i rcu i tJu d g es. P E R C U R I A M: G r a ni t e S t a t e O ut doorA dve rt i s i ng, I nc . , appe a l s the s um m a ryj udgm e nt agai nsti t s c om pl ai ntthatthe C ob b C ou nty S i gn O rdi nance vi ol at es the fr ee spee ch gua r a nt e e s of

both the F i r s tA m e ndm e ntof the U ni t e d S t a t e s C ons t i tut i on a nd the the G eorgi a C on st i tut i on . S ee C obb C ounty , G a. , O ffi ci al C ode of Countyof C obb, A rt . V I §§ 134- 311 t o - 375 [her ei naft erSi gn O r di nance ] . G r ani t e St at e appl i ed for p e rm its to e re c t se v e ra l o f f -p re m ise s o u td o o r a d v e rtisin g sig n s, w h ich a re c a teg o ric a lly b a n n e d u n d e r th e S ig n O rd in a n c e . S e e id . § § 1 3 4 -3 1 1 , -3 1 3 (p )( 1 7 ). G r a n ite S ta te ar gu es thatthe di stri ctcourterre d w hen i t(1) c on cl ud ed thatthe ban o f offpr e m i s e s out doora dve rt i s i ng s i gns doe s notvi ol a t e the F i r s tA m e ndm e nt ; ( 2) c onc l ude d tha tG r a ni t e S t a t e l a c ke d s t a ndi ng t o c ha l l e nge s e ve r a l othe rpr ovi s i ons o f th e S i g n O rd i n an ce th atd o n o tp ert ai n t o o ff-p rem i ses o u t d o o r ad v ert i si n g si g n s; a n d( 3 ) f a ile dto c o n s id e rw h e th e rth e S ig n O r d in a n c e v io la te dth e G e o r g ia C o n s t i tu t i o n . We a f

f i rm th e s u m m a ryj u d g m e n tr e g a r d i n g th e f i r s ttwo3

c o n c lu s io n s , b u t w e v a c a te a n dr e m a n din p a rt b e c au s e th e d is tr ic t c o u rt f a ile dto p r o v id e ar a tio n a le f

o rits d is m is s a l o f

th e c la im s u n d e rs ta te la w . I . B AC KG RO UN D T he S i gn O r di na nc e r e gul a t e s the pe rm i tt i ng, l oc a t i on, num be r , m e thods of c ons truc t i on, s i z e , he i ght , a nd m a i nt e na nc e of s i gns w i thi n C obb C ounty . S i gn O r d in a n c e § § 1 3 4 - 3 1 1 to - 3 7 5 . C o b b C o u n tye n a c te dth e S ig n O r d in a n c e to

“ pr ot e c t [ ] the he a l th, s a f e tya nd w e l f

a r e of r e s i de nt s , vi s i t or s a nd bus i ne s s e s i n the c ounty ” be c aus e s i gns c oul d c r e a t [ e ] tr a f f i c ha z a r ds ” a nd “ ne ga t i ve l yi m pa c t [ ] the g e n e r a l ap p e a r a n c e o f

a n a r e a .” I d . § 1 3 4 - 3 1 2 . T h e S ig n O r d in a n c e s ta te s th a t it

“ shal l no tre gu l at e the spec i fi c c on t entof si gn s. A ny si gn , di spl ayor devi ce a l l ow e d unde rthi s a rt i c l e m a yc ont a i n c om m e r c i a l ornonc om m e r c i a l c opy , e xc e pt thatsuch copy shal l no tcont ai n” m at er i al s thatar e obsce ne or advert i se i l l egal a c tiv ity . I d . § 1 3 4 - 3 1 3 ( q ) . A l l si g n s i n C o b b C o u n ty “ req u i re a p erm i tu n l ess sp eci fi cal l y ex em p t ed b y” the S i gn O rdi nance. Id. §§ 13 4-31 3(b), -371 . T o rec ei ve a s i gn perm i t , an appl i cantm ustsubm i tan appl i ca t i on , i d. § 1 34 -373 (c ), and p aya perm i tfe e “ as e s t abl i s he d bythe boa r d of c om m i s s i one r s f

r om t i m e t o t i m e , ” i d. § 134- 375. T he S i gn O r di na nc e pr ovi de s tha t“ the c ounty. . . s ha l l e xa m i ne a nd pr oc e s s the ap p l i c a t i o n w i th i n ar e a s o n ab l e a mo u n to f t i me . Th o u g h al o n g e rp e r i o do f t i me4

m a ybe r e a s onabl e . . . , f i ve bus i ne s s da y s s ha l l be c ons i de r e d ar e a s onabl e a m ount of t i m e i n m os tc a s e s . ” I d. § 134- 373( d) . I f the C ountyde ni e s the pe rm i t , “ the appl i c a nts ha l l be gi ve n w r i tt e n not i c e s t a t i ng the r e a s on f orthe de ni a l w i thi n 15 d a y s ” a n dth e ap p lic a n t m a yap p e a l th e d e c is io n . I d . § 1 3 4 - 3 7 3 ( e ) . T h e C o u n tyc o n s id e r s th e typ e o f s ig n th e ap p lic a n t p r o p o s e s to c o n s tru c t to d et erm i n e w h eth er t o i ssu e a p erm i t . “ O n -p rem i se si g n s, ” w h i ch are d efi n ed as a

“ si gn w hi ch i dent i fi es ” s om ethi ng “ sol d, offe re d o r c on du ct ed on the prem i se s w h e r e th e s ig n is lo c a te d ,” m u s t c o m p lyw ith th e r e s tr ic tio n s in s e c tio n 1 3 4 - 3 1 4 . Id. § 1 34 -314 . “ O ff

-pre m i se s s i gn s, ” w hi ch i s a“ si gn w i th a no ncom m er ci al m e s s a ge , ” i d. § 134- 311, a l s o r e qui r e ape rm i ta nd m us tc om pl yw i th s e c t i on 134- 315. I d. § 134- 315. “ T e m por a rys i gns ” a r e r e s tr i c t e d ba s e d on l oc a t i on, s i z e , a nd l en g th o f t i m e. Id . § 1 3 4 -3 1 6 . “ E l ectro n i c si g n s m ay o n l y b e u sed t o ad v ert i se ac t i vi t i es ac tual l y c on du ct ed on the prop erty . . . or t o p re se ntpu bl i c s ervi ce in f o rm a tio n .” I d . § 1 3 4 - 3 1 3 ( o ) . “A n ya c tiv ityo rb u s in e s s w h ic h o f f e r s a s its pri m ary busi ness pu rpose t ou ri sm or pu bl i c r ec re at i on al ac t i vi ty” m ayappl y f or a “d ir e c tio n a l s ig n ” w ith th e C o u n tyB o a r do f C o m m is s io n e r s . I d . § 1 3 4 - 3 1 7 . S om e s i gn s do n otre qu i re a perm i t . E . g. , i d. § 1 34 -373 (b)( 1)–(21 ). “N o n c o m m e r c ia l s ig n s ” th a t a r e “3 2 s q u a r e f e e t o rle s s ” a r e a llo w e dw ith o u t a perm i t . Id. § 1 34 -372 (b)( 6). T he C ou nty e xem pt s s i gn s “ tra di t i on al l y a ss oci at ed5

w i th ahol i da y ” a s l ong a s the yc ont a i n anonc om m e r c i a l m e s s a ge . I d. § 134- 372( b) ( 7) . T he C ountya l s o e xe m pt s w a rni ng orr e gul a t orys i gns , i d. § 134- 372( b) ( 17) , a nd pol i t i c a l s i gns tha tc om pl yw i th c e rt a i n r e s tr i c t i ons on l oc a t i on a nd s iz e , id . § 1 3 4 - 3 7 2 ( b ) ( 2 1 ) . S o m e si g n s are co m p l et el y b an n ed b y th e S i g n O rd i n an ce. “ O ff-p rem i se ou t do or advert i si ng si gn s, ” def i ned as “ off- prem i se si gn [s ] w i th a com m er ci al m e s s a g e ,” a r e p r o h ib ite d . I d . § § 1 3 4 - 3 1 1 , - 3 1 3 ( p ) ( 1 7 ) . N o s ig n s m a y“c o n ta in nu di ty, se xu al cond uct , ob sc ene or porno graphi c m at er i al or advert i se an i l l egal a c tiv ity .” I d . § 1 3 4 - 3 1 3 ( q ) ; s e e id . § § 1 3 4 - 3 1 3 ( p ) ( 1 2 ) , - 3 1 3 ( p ) ( 8 ) . G r a ni t e S t a t e buy s orl e a s e s pr ope rtyt o c ons truc tc om m e r c i a l a nd nonc om m e r c i a l s i gns . B y2001, G r a ni t e S t a t e ha d s i gne d l e a s e s w i th di f f e r e nt pr ope rtyow ne r s t o pos ttw e l ve s i gns i n C obb C ountya nd s ubm i tt e d tw e l ve appl i c a t i ons t o C obb C ountys e e ki ng pe rm i t s . T he C ountyde ni e d the appl i c a t i ons the sam e daybecause the S i gn O rdi nance prohi bi t ed bi l l bo ar ds as “ off- prem i se s o u td o o ra d v e rtis in g s ig n s .” S e e § § 1 3 4 - 3 1 1 , - 3 1 7 ( p ) ( 1 7 ) . O n M a y29, 2001, G r a ni t e S t a t e f i l e d ac om pl a i nta ga i ns tC obb C ountya nd i n d i v i d u al C o b b C o u n ty o ffi ci al s th atal l eg ed th e S i g n O rd i n an ce v i o l at ed th e F i rst A m e ndm e ntof

the U ni t e d S t a t e s C ons t i tut i on a nd the f r e e s pe e c h pr ovi s i ons of the G e or gi aC ons t i tut i on. G r a ni t e S t a t e r e que s t e d a n i nj unc t i on a ga i ns tthe6

e n f o r c e m e n t o f

th e S ig n O r d in a n c e a n dd a m a g e s . S e e 4 2 U .S .C . § 1 9 8 3 . O n J u ly 6 , C o b b C o u n tym o v e dto d is m is s , a n dth e d is tr ic t c o u rt c o n v e rte dth e m o tio n to di s m i s s i nt o am ot i on f

ors um m a ryj udgm e nt . G r a ni t e S t a t e c r os s - m ove d f or s u m m a ryju d g m e n t. I n s upportof

i t s m ot i on, G r a ni t e S t a t e s ubm i tt e d ac e rt i f i e d c opyof

the S i gn O r di na nc e ; a n a f

f i da vi tof W a y ne C ha r l e s , the P r e s i de ntof G r a ni t e S t a t e ; a nd s e v e r a l c o u rt d e c is io n s r e g a r d in g s ig n o r d in a n c e s . C h a r le s te s tif ie dth a t G r a n ite S ta te h a de n te r e din to le a s e s w ith o w n e r s o f r e a l p r o p e rtie s in C o b b C o u n tyto constructsi gn s. H i s a ff

i davi tdi d n otcont ai n any i nform at i on abou tthe m es sa ges o n th e p ro p o sed si g n s. O n M a r c h 26, 2002, the di s tr i c tc ourtdi s m i s s e d the c l a i m s a ga i ns tthe i ndi vi dua l de f

e nda nt s a nd gr a nt e d the m ot i on f ors um m a ryj udgm e nti n f a vorof G rani t e S t at e. T he di stri ctcourtconcl ud ed thatthe S i gn O rdi nance grant ed u n b r id le dd is c r e tio n to C o u n tyo f f ic ia ls b e c au s e it “f

a il[ e d ] to im p o s e r e a s o n ab le t i m e l i m i t s on the deci si on m aker . ” S ee S i gn O rdi nance § 13 4-37 3(d); se e F r e e d m a n v . M a ry la n d , 3 8 0 U .S . 5 1 , 5 7 , 8 5 S . C t. 7 3 4 , ( 1 9 6 4 ) . A ft erthe di stri ctcourti ss ued i t s opi ni on , bu tbefore i ti ss ued a fi nal j udgm e nt , w e de c i de d G r a ni t e S t a t e O ut doorA dve rt i s i ng, I nc . v. C i tyof C l earw at er , 35 1 F . 2d 11 12 (11th C i r. 20 03 ). B ec ause of thi s dec i si on , on O ct ob er7

15 , 20 04 , the di stri ctcourtvaca t ed the grantof sum m ary j ud gm entand g rant ed s u m m a ryju d g m e n t in f

a v o ro f C o b b C o u n ty . T h e d is tr ic t c o u rt r e lie do n G r a n ite C l e a rw a t e rt o c onc l ude tha tG r a ni t e S t a t e ha d s t a ndi ng t o c ha l l e nge pr ovi s i ons of the S i gn O r di na nc e tha tc aus e d pe r s ona l ha rm t o the G r a ni t e S t a t e . S e e S i gn O r di na nc e §§ 134- 313( p) ( 17) , 134- 311. T he di s tr i c tc ourtc onc l ude d tha ts e c t i ons 13 4-31 3(p)(17) and 1 34 -311 w er e c on st i tut i on al . T he di stri ctcourtre as on ed that because the ordi nance “ al l ow s f or no ncom m er ci al si gn s anyw here a c om m er ci al si gn coul d b e l ocat ed, ” the ordi nance di d n otfavo r c om m er ci al spee ch ov er nonc om m e r c i a l s pe e c h. T he di s tr i c tc ourta l s o c onc l ude d tha tthe r e s tr i c t i ons on c om m e r c i a l s pe e c h i n the S i gn O r di na nc e m e tthe r e qui r e m e nt s i n C e ntr a l H uds on G a s , 447 U . S . 557, 100 S . C t . 2343, be c aus e C obb C ounty ’ s a s s e rt e d purpos e s of a e s the t i c s a nd tr a f

f i c s a f e tyw e r e “ s ubs t a nt i a l gove rnm e nti nt e r e s t s ” tha tw e r e “ no m ore e xt ensi ve than n ec es sary . ” G rani t e S t at e app ea l ed the deci si on of the di stri ctcourt . A ft erthe part i es f i l e d the i ri ni t i a l br i e f

s , w e r e que s t e d s uppl e m e nt a l br i e f s tha ta ddr e s s e d the i nt e rve ni ng de c i s i ons i s s ue d byourC ourti n T a nne rA dve rt i s i ng G r oup L L C v. F ay ett e C ou nty, 45 1 F . 3d 77 7 (11 th C i r. 20 06 ) ( en banc), and C A M P L egal D e f e n s e F u n d , I n c . v . C ityo f A tla n ta , 4 5 1 F .3 d1 2 5 7 ( 1 1 th C ir . 2 0 0 6 ) .8 I I . STA N D A R D O F R EVI EW W e r evi ew st andi ng det erm i nat i on s de nov o. B ochese v. T ow n o f P on ce I nl e t , 405 F . 3d 964, 975 ( 11th C i r . ) , c e rt . de ni e d, ___ U . S . ___, 126 S . C t . 377 (2 0 0 5 ). W e rev i ew g ran t s o f su m m ary j u d g m en td e n o v o . S t at e F arm F i re & C as. C o . v . S t e i n b e r g , 3 9 3 F . 3 d1 2 2 6 , 1 2 2 9 ( 1 1 th C i r . 2 0 0 4 ) ( c i t i n g I r a o l a& C I A, S . A. v . K im b e r ly - C la rkC o rp ., 3 2 5 F .3 d1 2 7 4 , 1 2 8 3 ( 1 1 th C ir . 2 0 0 3 ) ) . I I I . DI S CUS S I ON G r a ni t e S t a t e pr e s e nt s thr e e a r gum e nt s . F i r s t , G r a ni t e S t a t e a r gue s tha tthe di stri ctcourterroneou sl y c on cl ud ed thatse ct i on s 134 -311 and 1 34 -313 (p)( 17 ), w h i ch b an o ff-p rem i ses o u t d o o r ad v ert i si n g si g n s, d o n o tv i o l at e th e F i rst A m e n d m e n t. S e e S ig n O r d in a n c e § § 1 3 4 - 3 1 1 , - 3 1 3 ( p ) ( 1 7 ) . S e c o n d , G r a n ite S ta te cont ends thatthe di stri ctcourterre d w hen i tconcl ud ed thatG rani t e S t at e l ac ked s t a ndi ng t o c ha l l e nge s e ve r a l othe rpr ovi s i ons of the S i gn O r di na nc e tha tdo not pe rt a i n t o of

f - pr e m i s e s out doora dve rt i s i ng s i gns . S e e S i gn O r di na nc e §§ 134- 3 1 3 ( a ) , - 3 1 3 ( o ) , - 3 1 3 ( p ) ( 8 ) , - 3 1 3 ( p ) ( 1 2 ) , - 3 1 4 , - 3 1 5 , - 3 1 8 ( a ) , - 3 7 1 , - 3 7 2 ( b ) ( 6 ) , - 37 2(b)(7), -372 (b)( 21 ), -372 (b)( 17 ). T hi rd, G rani t e S t at e c on t ends thatthe di stri ct c ourte rr e d be c aus e i tf

a i l e d t o c ons i de rw he the ra nypr ovi s i on of the S i gn O r di na nc e vi ol a t e s the G e or gi aC ons t i tut i on. W e c ons i de re a c h a r gum e nti n turn.9

A . Se c t i o n s 1 3 4 - 3 1 1 a n d 1 3 4 - 3 1 3 (

p ) ( 1 7 ) o f th e S i g n Ord i n a n c e Do N o t V io la te th e Firs t A m e n dm e n t. G rani t e S t at e c on t ends thatthe di stri ctcourterroneou sl y c on cl ud ed that s e c t i ons 134- 311 a nd 134- 313( p) ( 17) , w hi c h j oi nt l ypr ohi bi t“ of f - pr e m i s e s out door a d v e rtis in g s ig n s ,” a r e c o n s titu tio n a l. T he di s tr i c tc ourtrul e d tha tthe pr ovi s i ons di d notf a vorc om m e r c i a l ove rnonc om m e r c i a l s pe e c h a nd s a t i s f i e d the s t a nda r ds f o rr e s tr i c t i o n s o n c o mme r c i a l s p e e c h i n Ce n tr a l H u d s o n G a s , 4 4 7 U . S. 5 5 7 , 1 0 0 S. C t. 2 3 4 3 ( 1 9 8 0 ) . W e a g r e e w ith th e d is tr ic t c o u rt. S ec t i on s 134 -311 and 1 34 -313 (p)( 17 ) do n otfavo r c om m er ci al spee ch ov er nonc om m e r c i a l s pe e c h. S e c t i on 134- 313( p) ( 17) pr ohi bi t s “ of f - pr e m i s e s out door a dve rt i s i ng s i gns , ” w hi c h a r e de f i ne d a s s i gns “ w i th ac om m e r c i a l m e s s a ge . ” S i gn O r d in a n c e § 1 3 4 - 3 1 1 , - 3 1 3 ( p ) ( 1 7 ) . B e c au s e th is p r o h ib itio n d o e s n o t ap p lyto s ig n s th a t h a v e an o n c o m m e r c ia l m e s s a g e , th e e x p r e s s io n o f c o m m e r c ia l s p e e c h is m o r e r e s tr ic te dth a n n o n c o m m e r c ia l s p e e c h in th e S ig n O r d in a n c e . G rani t e S t at e c on t ends thatthe proh i bi t i on do es no tdi re ct l y a dv ance a s ubs t a nt i a l gove rnm e nti nt e r e s ta nd i s m or e e xt e ns i ve tha n ne c e s s a ry . B e c aus e the p r o h ib itio n o n “o f

f - p r e m is e s o u td o o ra d v e rtis in g s ig n s ” e x te n d s o n lyto com m er ci al spee ch, w e r evi ew the chal l enge t o these prov i si on s und erthe four-part t estart i cu l at ed b y th e S u p rem e C o u rti n C en tral H u d so n G as:10

A tthe ou t se t , w e m ustdet erm i ne w hether the express i on i s prot ec t ed by the F i rs tA m endm ent . F or com m er ci al spee ch t o com e w i thi n that pr ovi s i on, i ta tl e a s tm us tc onc e rn l a w f ul a c t i vi tya nd notbe m i sl ead i n g . N ex t , w e askw h eth er th e assert ed g o v ern m en t al i n t erest i s su b st an t i al . If b o th i n q u i ri es yi el dp o si t i v e an sw ers, w e m u st det erm i ne w hether the re gu l at i on di re ct l y a dv ance s the go vernm ent al in te r e s t a s s e rte d , a n dw h e th e rit is n o t m o r e e x te n s iv e th a n is n e c e s s a ryto s e rv e th a t in te r e s t. 4 4 7 U .S . a t 5 6 6 , 1 0 0 S . C t. a t 2 3 5 1 . B oth p rovi si on s pas s c on st i tut i on al m ust eras pri or re stra i nt s on com m er ci al s p e e c h . F ir s t, n e ith e rp a rtyd is p u te s th a t th e m e s s a g e s o f G r a n ite S ta te c o n s titu te p ro t ect ed sp eech . S eco n d , th e S i g n O rd i n an ce w as en act ed “ t o p ro t ectag ai n st tr a f f ic h a z a r d s a n dto r e d u c e th e a d v e r s e im p a c t o n th e c o u n ty ’s a e s th e tic qu al i t i es , ” s ee S i gn O rdi nance § 13 4-31 2(a) , bo th o f w hi ch ar e s ub st ant i al gove rnm e nti nt e r e s t s , s e e M e tr om e di a , I nc . v. C i tyof S a n D i e go, 453 U . S . 490, 40 7– 08 , 10 1 S . C t . 28 82 , 28 92 (198 1). T hi rd, the S up re m e C ou rthas s t at ed that

“ the pr ohi bi t i on of

of f s i t e a dve rt i s i ng i s di r e c t l yr e l a t e d t o the s t a t e d obj e c t i ve s of tr a f f i c s a f e tya n de s th e t i c s . ” I d . a t5 1 1 , 1 0 1 S. Ct . a t2 8 9 4 . Fo u rth , th e Su p r e me C ou rthas a l so st at ed thata prohi bi t i on of off- si t e a dv ert i si ng go es “ no further than n e c e s s a ry ” to f

u lf ill th e g o a ls o f

tr a f f ic s a f e tya n da e s th e tic s . I d . a t 5 0 8 , 1 0 1 S . C t. a t2893. T he di s tr i c tc ourtc orr e c t l yc onc l ude d tha ts e c t i ons 134- 311 a nd 134- 313( p) ( 17) a r e c ons t i tut i ona l r e s tr i c t i ons on c om m e r c i a l s pe e c h.11

B . G r ani te State H

as Standi ng to Chal le nge O nl yP r ov is i ons T

hat G ov e rn I t s A c t i v i t yof E r e c t i ng O

f f - P r e m is e s O utdoorA dv e r t is i ng S i g n s. G r a n ite S ta te a r g u e s th a t th e d is tr ic t c o u rt e rr o n e o u s lyc o n c lu d e dth a t it l ac ked st andi ng t o chal l enge se vera l prov i si on s of the S i gn O rdi nance. In i t s i ni t i al b r ie f , G r a n ite S ta te a r g u e s th a t th e S ig n O r d in a n c e g r a n ts u n b r id le dd is c r e tio n to C ou nty off

i ci al s throu gh the l ac k o f proce du ra l sa fe gu ar ds, se e S i gn O rdi nance § 13 4-37 3, the proh i bi t i on on “ nu di ty, se xu al cond uct , [o] r obsce ne” c on t ent , se e S i gn O r di na nc e §§ 134- 313( q) , 134- 313( p) ( 8) , a nd the pr ohi bi t i on on the a d v e rtis e m e n t o f

“ille g a l a c tiv ity ,” s e e id . § 1 3 4 - 3 1 3 ( q ) , - 3 1 3 ( p ) ( 1 2 ) . G r a n ite S ta te a l s o a r gue s tha tthe di s tr i c tc ourte rr one ous l ydi s m i s s e d i t s c ha l l e nge s t o pr ovi s i ons of the S i gn O rdi nance thatal l egedl y i m po se un const i tut i on al pri or re stra i nt s. S ee i d. §§ 13 4-37 2(b)(1)–(21), -315 , -316 , -317 , -318 (a ), -371 . W e c on si der e ac h a r gum e nti n turn.

1. G rani t e S t at e L ac ks S t andi ng t o C hal l enge P rovi si on s T hat

A lle g e d lyG r a n t U n b r id le dD is c r e tio n . G r a ni t e S t a t e l a c ks s t a ndi ng t o c ha l l e nge the pr ovi s i ons tha ti ta l l e ge s gr a nt un bri dl ed di sc re t i on t o C ou nty off i ci al s. “ T he S up re m e C ou rthas ‘ l on g h el d that w he n al i c e ns i ng s t a tut e a l l e ge dl yve s t s unbr i dl e d di s c r e t i on i n agove rnm e nt o f f ic ia l o v e rw h e th e rto p e rm it o rd e n ye x p r e s s iv e a c tiv ity , o n e w h o is s u b je c t to th e la w m a yc h a lle n g e it f a c ia llyw ith o u t th e n e c e s s ityo f f ir s t ap p ly in g f

o r. . . a12

lic e n s e ,’” b u t “[ t]h e c h a lle n g e dp r o v is io n s ‘m u s t h a v e ac lo s e e n o u g h n e x u s to e x p r e s s io n . . . to p o s e ar e a l a n ds u b s ta n tia l th r e a t o f th e id e n tif

ie dc e n s o r s h ip ri sks. ’ ” C A M P , 45 1 F . 3d at12 74 (quo t i ng C i ty of L akew oo d v . P l ai n D ea l er P u b ’g C o ., 4 8 6 U .S . 7 5 0 , 7 5 5

– 5 6 , 7 5 8 , 1 0 8 S . C t. 2 1 3 8 , 2 1 4 3 , 2 1 4 5 ( 1 9 8 8 ) ) . G rani t e S t at e i s notsubj ec tt o the prov i si on s thatal l egedl y grantun bri dl ed d is c r e tio n . G r a ni t e S t a t e i s nots ubj e c tt o the pr oc e dur a l r e qui r e m e nt s of the S i gn O r d in a n c e . S e e S ig n O r d in a n c e § 1 3 4 - 3 7 3 . G r a n ite S ta te d o e s n o t d e n yth a t its s i gn appl i c a t i ons w e r e f or“ of f - pr e m i s e s out doora dve rt i s i ng s i gns , ” a nd the S i gn O r di na nc e c om pl e t e l yba ns “ of f - pr e m i s e s out doora dve rt i s i ng s i gns . ” I d. § 134- 313( p) ( 17) . G r a ni t e S t a t e of f e r e d no e vi de nc e tha ti ti s e nga ge d i n a nyf orm of e xpr e s s i on tha ti s pe rm i tt e d unde rthe S i gn O r di na nc e . G r a ni t e S t a t e m a ynot c h a lle n g e th e la c ko f

p r o c e d u r a l s a f

e g u a r d s in th e p e rm it r e q u ir e m e n ts b e c au s e it is n o t s u b je c t to th e m . S e e C A M P , 4 4 4 F .3 da t 1 2 7 4 . G r a ni t e S t a t e l i ke w i s e f a i l e d t o e s t abl i s h tha ti t s s i gns a r e s ubj e c tt o the pr ohi bi t i on on m e s s a ge s tha ta r e obs c e ne ora dve rt i s e i l l e ga l a c t i vi ty . S e e S i gn O r d in a n c e § § 1 3 4 - 3 1 3 ( p ) ( 8 ) , ( 1 2 ) , - 3 1 3 ( q ) . G r a n ite S ta te c o n c e d e s th a t th e s ig n s it se eks t o con structar e c at egori ca l l y banned w i tho utre gard t o w hether the m es sa ges are o b scen e o r ad v ert i se i l l eg al act i v i ty. S ee i d . § 1 3 4 -3 1 3 (p )(1 7 ). B ecau se13

G ran i t e S t at e i s n o tsu b

j ectt o th ese p ro v i si o n s, i tl ack s st an d i n g t o ch al l en g e th ese p r o v is io n s . G r a n ite S ta te a r g u e s in its s u p p le m e n ta l b r ie f th a t th e S ig n O r d in a n c e g r a n ts u n b r id le dd is c r e tio n to a llo w s ig n s b a s e do n c o n te n t, s e e id . § § 1 3 4 - 3 1 7 , - 3 7 2 ( b ) ( 1 )

– ( 2 1 ) , b u t it h a s w a iv e dth is a r g u m e n t b e c au s e it f a ile dto r a is e th e m in its i ni t i a l br i e f

. “ U nde rthe e s t abl i s he d l a w of thi s C i r c ui t , ‘ i s s ue s tha tc l e a r l ya r e not de s i gna t e d i n the i ni t i a l br i e f or di na r i l ya r e c ons i de r e d aba ndone d. ’ ” T a nne r , 451 F . 3d at78 7 (qu ot i ng H art sf i el d v . L em ac ks, 50 F . 3d 95 0, 95 3 (11 th C i r. 19 95 )) . In i t s i ni t i a l br i e f

, G r a ni t e s t a t e a r gue d tha tthe s e e xe m pt i ons w e r e c ont e nt - ba s e d pr i or r e s tr a i nt s of

s pe e c h, notgr a nt s of

unbr i dl e d di s c r e t i on. G r ani t e S t a t e c a nnotnow a r g u e th a t th e s e p r o v is io n s g r a n t C o u n tyo f f ic ia ls u n b r id le dd is c r e tio n . 2 . G r a n ite S ta te L a c k s S ta n d in g to C h a lle n g e A lle g e d ly

U n co n st i tu t i o n al P ri o r R estrai n t s. G r a n ite S ta te a r g u e s th a t th e d is tr ic t c o u rt e rr o n e o u s lyd is m is s e dits c ha l l e nge s t o s e ve r a l pr ovi s i ons of the S i gn O r di na nc e a s unc ons t i tut i ona l pr i or r e s tr a i nt s on s pe e c h. S e e S i gn O r di na nc e §§ 134- 372( b) ( 1) –( 21) , - 315, - 316, - 317, -318 (a ), -371 . W e have s t at ed that“ [i ] n a chal l enge of a pri or re stra i nton spee ch the pl a i nt i f

f m us te s t abl i s h tha tthe c ha l l e nge d pr ovi s i on pe rt a i ns t o i t s a c t i vi ty , a nd no tm er el y thati ti s ‘ subj ec tt o the l aw . ’ ” C A M P , 4 4 4 F .3 da t 1 2 7 6 ( q u o tin g C ity o f L a k e w o o d , 4 8 6 U .S . a t 7 5 5

– 5 6 , 1 0 8 S . C t. a t 2 1 4 3 ) . B ec ause i t s c hal l enges14

w e r e di s m i s s e d on am ot i on f ors um m a ryj udgm e nt , G r a ni t e S t a t e “ m us t‘ s e tf orth’ bya f f i da vi torothe re vi de nc e ‘ s pe c i f i c f a c t s ’ t o pr ove s t a ndi ng. ” L uj a n v. D e f e n d e r s o f W i l d l i f e , 5 0 4 U . S. 5 5 5 , 5 6 1 , 1 1 2 S. Ct . 2 1 3 0 , 2 1 3 7 ( q u o t i n g Fe d . R. C iv . P . 5 6 ( e ) ) . N o n e o f th e p r o v is io n s th a t G r a n ite S ta te c h a lle n g e s p e rta in s to its a c tiv itie s . G rani t e S t at e l ac ks st andi ng t o chal l enge the re stri ct i on s on “ t em po rary s ig n s ,” id . § 1 3 4 - 3 1 6 , d ir e c tio n a l s ig n s f o rth e p u rp o s e o f

to u r is m o rp u b lic re cr ea t i on , se e i d. § 1 34 -317 , and “ off- prem i se s s i gn s, ” s ee i d. § 1 34 -315 (a ). B e c au s e th e r e is n o e v id e n c e in th e r e c o r dth a t th e s ig n s G r a n ite S ta te in te n d e dto c ons truc ts i gns gove rne d bya nyof the s e r e gul a t i ons , G r a ni t e S t a t e doe s notha ve s t a ndi ng t o c ha l l e nge the m . T he r e c or d s how s tha tthe onl yi nt e nde d a c t i vi tyof G r a ni t e S t a t e i s out doora dve rt i s i ng, w hi c h i s c a t e gor i c a l l yba nne d. I d. §§ 134- 316, - 317. G r a ni t e S t a t e a l s o l a c ks s t a ndi ng t o c ha l l e nge the e xe m pt i ons i n the S i gn O r d in a n c e , s e e S ig n O r d in a n c e § 1 3 4 - 3 7 2 ( b ) ( 1 )

– ( 2 1 ) , o rth e p e rm it r e q u ir e m e n t, s e e id . - 3 7 1 . T h e in

ju ryth a t G r a n ite S ta te s u f f e r e df r o m b e in g d e n ie dap e rm it unde rthe c a t e gor i c a l ba n on of f - pr e m i s e s out doora dve rt i s i ng w oul d notbe re dres se d b y achal l enge t o these prov i si on s. S ee L uj an v. D ef enders of W i l dl i fe , 504 U . S . 555, 561, 112 S . C t . 2130, 2136 ( 1992) ; s e e a l s o D i m m i ttv. C i tyof15

C l earw at er , 98 5 F . 2d 15 65 , 15 68 (11th C i r. 19 93 ). E ven i f these prov i si on s w er e decl ar ed un const i tut i on al , the S i gn O rdi nance w ou l d con t i nu e t o p rohi bi toffp r e m is e s o u td o o ra d v e rtis in g , w h ic h is th e o n lyin te n d e da c tiv ityo f G r a n ite S ta te . B ecau se G ran i t e S t at e can n o test ab l i sh th ati t s i n j u ry w i l l b e red ressed b y a fav o rab l e d eci si o n , “ th ere w o u l db e n o p o i n ti n ev al u at i n g [G ran i t e S t at e’ s] ar gu m ent s a s t o tho se prov i si on s. ” C or al Spr i ngs Str eetSy s . , I nc. v. C i tyof Sunr i s e, 371 F. 3d 1320, 1349 ( 1 1 th C ir . 2 0 0 4 ) . C . W e A r e U n a b le Me a n in g

fu llyto R e v ie w th e C la im s o f G r a n ite S ta te U n de rth e G e o r

g ia C o n s titu tio n . G rani t e S t at e argues thatthe di stri ctcourterre d w hen i tgrant ed sum m ary j udgm e ntbe c aus e the di s tr i c tc ourtf a i l e d t o c ons i de rw he the ra nypr ovi s i on of the S i gn O rdi nance vi ol at es the G eorgi a C on st i tut i on . T he di stri ctcourtdi sm i ss ed the s e c l a i m s s ub s i l e nt i o, butbe c aus e the di s tr i c tc ourt“ di d notdi s c us s the m att er [, ] [i ] tw ou l d b e di ff i cul tfor us t o revi ew the i ss ue i n thi s c on t ext . ” L ucer o v. T r os c h, 121 F . 3d 591, 598 ( 11th C i r . 1997) . T he di s tr i c tc ourtm a yha ve c o n c lu d e d , o n th e o n e h a n d , th a t th e a r g u m e n ts o f G r a n ite S ta te u n d e rth e G e o r g ia C on st i tut i on l ac ked m er i tbecause they f ai l ed un der the F i rs tA m endm ent . B utse e C A M P , 45 1 F . 3d at12 80 (“ G eorgi a c ou rt s departfr om fe dera l const i tut i on al fr ee s pe e c h a na l y s i s f

or. . . c ont e nt - ne utr a l s pe e c h . . . be c aus e G e or gi ar e qui r e s the

‘ l ea stre stri ct i ve m eans’ t o regul at e c on t ent -neutra l spee ch. ” ( qu ot i ng S t at es bo ro16

P ub l ’ g C o. v. C i ty of S yl vani a, 51 6 S . E . 2d 29 6, 29 9 (G a. 19 99 )) ). T he di stri ct c ourtm a yha ve de c l i ne d, on the othe rha nd, t o e xe r c i s e s uppl e m e nt a l j ur i s di c t i on be c aus e i t“ di s m i s s e d a l l c l a i m s ove rw hi c h i tha [ d] or i gi na l j ur i s di c t i on. ” 28 U .S .C . § 1 3 6 7 ( c ) ; s e e a ls o U n ite dM in W o rk e r s v . G ib b s , 3 8 3 U .S . 7 1 5 , 8 6 S . C t. 1 1 3 0 ( 1 9 6 6 ) . “[ I ]f

th e f e d e r a l c la im s a r e d is m is s e dp r io rto tr ia l, G ib b s s tr o n g ly e nc our a ge s ore ve n r e qui r e s di s m i s s a l of s t a t e c l a i m s . ” M e r ge ns v. D r e y f oos , 166 F . 3d 11 14 , 11 19 (11th C i r. 19 99 ) ( ci t at i on s om i tt ed). W hen a di stri ctcourt d e c l i n e s t o e x e r c i s e s u p p l e me n t a l j u r i s d i c t i o n b e c au s e o n l ys t a t e l a w c l a i ms rem ai n , th e d i stri ctco u rtsh o u l dd i sm i ss th e st at e l aw cl ai m s w i th o u tp rej u d i ce “ so tha tthe c l a i m s m aybe r e f i l e d i n the appr opr i a t e s t a t e c ourt . ” C r os byv. P aul k, 187 F . 3d 1339, 1352 ( 11th C i r . 1999) . “ A s apr a c t i c a l m a tt e r , the di s tr i c tc ourti s i n the be s tpos i t i on t o w e i gh . . . w he the ri ti s appr opr i a t e t o e xe r c i s e s uppl e m e nt j uri sdi ct i on . ” L ucer o, 12 1 F . 3d at59 8. B ec ause w e c anno tm eani ng ful l y r evi ew th e d e c is io n o f

th e d is tr ic t c o u rt r e g a r d in g th e c la im s f o rr e lie f u n d e rth e G e o r g ia C on st i tut i on , w e vac at e the di sm i ss al of tho se cl ai m s and re m and for further p r o c e e d in g s c o n s is te n t w ith th is o p in io n . I V . CONCL US I ON W e a f f i rm th e s u mma ryj u d g me n tb yth e d i s tr i c tc o u rtr e g a r d i n g th e c l a i ms f o rr e lie f u n d e rth e F ir s t A m e n d m e n t o f th e U n ite dS ta te s C o n s titu tio n . W e v a c a te17

a n dr e m a n dth e d is m is s a l o f th e c la im s f

o rr e lie f u n d e rth e G e o r g iaC o n s titu tio n . T h e su m m ary j u d g m en tb y th e d i stri ctco u rti s A F F IR M E D i n p art an d V A C A T E D an d R E M A N D E D i n p art.