Document: 407 U.S. 551 92 S.Ct. 2219 33 L.Ed.2d 131 LLOYD CORPORATION, LTD., Petitioner,v.Donald M. TANNER et al. No. 71—492. Argued April 18, 1972. Decided June 22, Syllabus Respondents sought to distribute handbills in the interior mall area of petitioner's large privately owned shopping center. Petitioner had a strict no-handbilling rule. Petitioner's security guards requested respondents under threat arrest stop handbilling, suggesting that they could resume their activities on public streets and sidewalks adjacent but outside center, which did. Respondents, claiming action violated First Amendment rights, thereafter brought this for injunctive declaratory relief. The District Court, stressing center is 'open general public' 'the functional equivalent business district,' relying Marsh v. Alabama, 326 501, 66 276, 90 L.Ed. 265, Amalgamated Food Employees Union Local 590 Logan Valley Plaza, 391 308, 88 1601, 20 603, held policy prohibiting handbilling within respondents' rights. Court Appeals affirmed. Held: There has been no dedication operated use so as entitle exercise rights therein are unrelated center's operations; property did not lose its private character right protection Fourteenth merely because generally invited it purpose doing with tenants. facts case significantly different from those Marsh, supra, involved company town 'all attributes' municipality, Valley, labor picketing designed convey message patrons particular store, located enclave preclude other reasonable access store patrons. Under circumstances present case, where was any activity adequate alternative means communication, courts below erred holding decisions controlling. Pp. 556—570. 446 F.2d 545, reversed remanded. 1 Page 552 George Black, Jr., Portland, Or., petitioner. Carl R. Neil, respondents. djQ Mr. Justice POWELL delivered opinion Court. This presents question reserved by Inc., 603 (1968), prohibit distribution when operations. Relying primarily 265 (1946), United States Oregon sustained an asserted issued permanent injunction restraining petitioner interfering such right. 308 F.Supp. 128 (1970). Ninth Circuit affirmed, 545 (1971). We granted certiorari consider contention decision 2 553 violates protected Fifth Amendments. 404 1037, 703, 30 728 (1972). Lloyd Corp., Ltd. (Lloyd), owns large, modern retail Oregon. Center embraces altogether about 50 acres, including some acres open covered parking facilities accommodate more than 1,000 automobiles. It perimeter almost one one-half miles, bounded four streets. crossed varying degrees several streets, all have sidewalks. land buildings Center, except these 60 commercial tenants, small shops major department stores. embodies relatively new concept design. stores single multi-level building complex sometimes referred 'Mall.' Within complex, addition stores, there facilities, malls, sidewalks, stairways, escalators, gardens, auditorium, skating rink. Some directly most malls. both. or enclosed entirely landscaped portions occurred They distinctive feature serving both utilitarian esthetic functions. Essentially, private, promenades 10-foot strip feet wide flowers shrubs planted, statutary, fountains, benches, amenities located. vehicular traffic An archi- 3 554 tectural expert described malls follows: 'In order make easy pleasant, help realize goal maximum sales (for Center), grouped special pedestrian ways Here shopper isolated noise, fumes, confusion distraction he normally finds along city controlled, carefree environment provided . ..'1 Although close at customary hours, physically closed, window encouraged hours.2 employs 12 guards, who commissioned Portland. police authority wear uniforms similar worn police, licensed carry handguns. employed subject control Lloyd. Their duties ones, shoplifting surveillance security. At few places signs embedded sidewalk state: 'NOTICE—Areas In Used By 4 555 Public Are Not Ways But For Use Of Tenants And Transacting Business With Them. Permission To Said Areas May Be Revoked Any Time. Corporation, Ltd.' public, considerable effort being made attract shoppers prospective shoppers, create 'customer motivation' well customer goodwill community. respect pursues policies comparable centers across country, although affords superior purposes. Groups organizations permitted, invitation advance arrangement, auditorium facilities. Rent charged certain civic charitable organizations, Cancer Society Boy Girl Scouts. also allows limited American Legion sell poppies disabled veterans, Salvation Army Volunteers America solicit Christmas contributions. denied organizations. Political forbidden, presidential candidates parties allowed speak auditorium.3 operation eight years litigation commenced. Throughout period policy, strictly enforced, against No exceptions were considered likely annoy customers, litter, potentially disorders, 5 556 be incompatible atmosphere preserved. On November 14, 1968, distributed handbill invitations meeting 'Resistance Community' protest draft Vietnam war. distribution, walkways five young people, quiet orderly, littering. complaint customer. Security informed trespassing would arrested unless stopped distributing Center.4 suggested literature complex. left premises 'to avoid arrest' continued outside. Subsequently suit instituted seeking I emphasizing 'is public,' found district.' F.Supp., 130. That court then Lloyd's 'rule Mall rights.' 131. per curiam opinion, bound 'factual determination' concluded 6 557 compelled affirmance.5 Chickasaw, wholly Gulf Shipbuilding Corp. Chickasaw 'Except (ownership corporation) characteristics town. consists residential buildings, system sewers, sewage disposal plant 'business block' situated. A deputy Mobile County Sheriff, paid company, serves town's policeman. Merchants service establishments rented block uses post office six carriers deliver mail people area. surrounding neighborhood, can distinguished anyone familiar lines, thickly settled, according indications residents regular do so, now, many years, company-owned paved street alongside fronts enter leave office. Intersecting roads each end lead into four-lane highway runs parallel distance thirty feet. nothing 7 558 coming onto upon arrival traveler may free available there. short district accessible freely used distinguish them fact title belongs corporation.' U.S., 502 503, S.Ct., 277. Jehovah's Witness undertook religious near charge. infringed, emphasized town, anachronism long prevalent southern now rarely found.6 extended rationale peaceful known Walley Mall, Altoona, Pennsylvania. Weis Markets, Inc. (Weis), original tenant, opened supermarket larger employing nonunion staff. 10 days after opened, members (Union) began Weis, carrying stating market employees receiving union wages benefits. picketing, conducted nonemployees, carried out 8 559 parcel pickup immediately adjoining lot. peaceful, number pickets 13. obtained picketing. required confined areas appeal Pennsylvania Supreme affirmed issuance injunction, certiorari. framing question, stated: 'The squarely whether Pennsylvania's valid rules trespass applied bar petitioners premises.' 315, 1606. noted answer clear 'if instead constituted municipality.' Id., 1607. latter situation, often publicly parks historically associated purposes exercising cannot absolutely. Lovell Griffin, 303 444, 58 666, 82 949 (1938); Hague CIO, 307 496, 59 954, 83 1423 (1939); Schneider State, 147, 146, 84 155 Jamison Texas, 318 413, 63 669, 87 869 (1943). that: here clearly Marsh.' 318, 1608. careful go further say 9 560 analogous facilities: 'All we decide community 'and passing through,' State 508, 279, delegate power, through laws, exclude wishing manner consonant actually put.' 319—320, 1609. scope limited, expressly judgment type issue presented case: directed specifically Market conveyed concerned operated. are, therefore, called could, consistently Amendment, justify thus related 320 n. 9, took specific note Union's 'directed solely establishment center,' 321, 1610, berms 'from 350 500 away store.' 322, 1610. difficult communicate (with) Weis' limit (the) effect (of 561 picketing) only.' 323, 1611.7 decided basis factual different. II critical inquiry district.'8 phrase first genesis Marsh. what decided. As above, economic anomaly past, town.' One must seen towns understand 'functionally' municipalities size. developed Deep South meet conditions, especially existed following Civil War. Impoverished States, backward thereof, needed influx industry capital. Corporations attracted natural resources abundant willing assume role local government. Quite literally, 11 562 built capital services utilities afforded municipal state government: lighting, fire protection, areas, churches, postal schools. short, Black said, 502, simply interests substituting performing functions government, freedoms exercised Indeed, entire privately, exercised. situation context setting, only language unnecessary decision, key focus whenever become equivalents facilities.9 Black's dissent emphasized, incorrect interpretation Court's Marsh:10 'Marsh never intended apply kind situation. dealt very 563 complete alleys, residences, everything else goes which, stated Corporation situated.' Again toward does function differently 279. think fair rested encompassed practical turned town; attributes exactly like Alabama.' 330—331, 1614. dependent suggestion equivalent, purposes, municipally expansive reading necessary appropriate. carefully phrased involved, 'directly put,' 1609, consequence opportunities audience available. 13 564 Neither elements before A. relation used.11 nevertheless argued that, since owner enforce restriction premises. thrust argument considerably broader Valley. requires relationship, direct indirect, between expressive street, sidewalk, park, Respondents' argument, even if otherwise meritorious, misapprehends public. come true meetings 14 565 various promotional activities. obvious purpose, recognized widely legitimate responsible activity, bring potential favorable impression, generate goodwill. open-ended however whom serve. WHITE, dissenting public: sense parts dedicated .. maintain shop products sold. lot, zone, adjunct shopping. lot place park his car while elsewhere work. driveways lanes auto offered thoroughfares leading another. Those spaces parades, meetings, used.' 338, 1619. noteworthy based Center's country. customers enter. terms differences 15 566 degree—not principle—between free-standing one, elaborate landscaping. B fact, distinguishing deprived opportunity center.12 notably central surrounded totaling linear blocks. All persons cross either foot When moving 16 567 lots, automobiles law stop. Handbills conveniently pedestrians, occupants automobiles, moved unwarranted infringement require yield avenues communication exist. Such accommodation diminish without enhancing speech. ordering III basic respondents, contrary wishes enforced handbilling. addressing issue, remembered Amendments safeguard speech assembly limitations action, nondiscriminatorily only. Due Process Clauses relevant case. provide '(n)o person shall life, liberty, property, due process law.' proscription taking 'private use, just compensation.' accommodations values three nec- 17 568 essary, properly shown solicitude guarantees trespasser uninvited guest Even necessarily speaking, communicative speaking Adderley Florida, 385 39, 242, 149 (1966), said: less power preserve lawfully dedicated. reason merit petitioners' constitutional stay over jail custodian's objections, 'area chosen civil demonstration 'reasonable' particularly appropriate .' unarticulated premise assumption want propagandize protests views wherever please. vigorously forthrightly rejected two cases rely on, Cox Louisiana, (379 536), 555, (85 453, 471) 559), 563—564, 476, 487). reject again. Constitution forbid own lawful nondiscriminatory purpose.' 47—48, 247. contend, however, same district' therefore types 18 569 use. functionally customarily municipalities. not, reaches too far. attenuated doctrine closest theory, enterprise state-created municipality semiofficial State.13 effect, full spectrum powers stood shoes State. instant power. Nor designated Few argue abutting space assumes significant size alone controlling factor. essentially change virtue clustered exist government regula- 19 570 tion citizens arising diversity facility will be, example, problems health safety vary degree response, depending building, sports arena, owners, citizens, respected protected. Framers certainly fundamental society other. situations them, drawing lines assure both, easy. clear. hold Accordingly, reverse remand directions vacate injunction. ordered. Judgment MARSHALL, DOUGLAS, BRENNAN, Mustice STEWART join, dissenting. Donald Tanner, Betsy Wheeler, Susan Roberts (respondents) 571 our recent relief requested. Today, reverses attempts my view, distinction sees read attack longstanding (1946). dissent. Sprawling land, offers businesses professional offices. 850,000 square offstreet space—enough vehicles. Bounded miles. Four running east-west north-south traverse least run partly around it. These owned. principal portion occupied Covering approximately 25 having four-fifths mile, Maul, words multilevel sub-malls, elevators, es- 21 572 calators, bridges, contains rink, statues, murals, directories, information booths, visitors comfortable.' 129. face form perimeter, possible Other reached using walkways. entered inviting nondisruptive, litter-free. approached indicated permit materials persisted Center. wore virtually identical Portland possessed authority. Believing departed subsequently filed lawsuit.1 incidents ownership 22 573 forms property. words, gives unfettered discretion determine forum. though owned, treated held, Amendment. member Witnesses sect convicted violating Alabama's criminal statute she downtown permission owner. reasoned '(t)he owner, advantage, opens up general, circumscribed statutory it.' Supra, 506, 278. Noting stifling produced ban expression community's imposed 'When balance Constitutional owners enjoy freedom press religion, here, remain mindful occupy preferred position. before, liberties safeguarded 'lies foundation men' 'weigh appraise reasons support regulation view circumstance deprivation place, others suffi- 23 574 cient State's permitting corporation govern restrict enforcement restraint application statute.' (Footnotes citations omitted.) 509, 280. relied heavily deciding supra. formative stages contained store. staff composed employees. Members Union, 590, picket market's thereto. 311, 1604. part relegate earthen center.2 Finding see 'no why should constitutionally re- 24 575 quired, functioning ownership.' 319, Thus, B. meaning finding, overwhelmingly supported record. Plaza respects: bordered roads, entrances roads; contain store; unrestricted range nonprofessional much intertwined Also, given hired, fired, 1954, acquired vacated ordinance accomplishing vacation sets forth city's function: 'WHEREAS Council vacations 576 development said district; develop unit contemplated Ltd., above mentioned ..' (Emphasis added.) Ordinance 101288, Nov. 10, App. 202. 1954 indicates aware developed, build take steps flow engender. 202, 208—209. 1958, emergency passed giving extension time conditions made. council viewed projected offering 'opportunity employment' 'necessary immediate preservation health, peace Portland.' 107641, March 20, 196. sum, integral From inception, depended supply much-needed employment opportunities. insure success integrated pattern already established planned future plain, Plaza. agrees proper treat 26 577 residences. Brief states pages 9—10 '(a) falls somewhere extremes residence, neither absolutely nor engage 'Each resolution conflicting contends struck interests. made, accepts. pointed nondisruptive; involve traditionally acceptable modes Why result here? topics interest—the war draft—whereas difference dimensions. agree. explicitly 'property con- 27 578 sistently (or handbilling) But, believe errs concluding faced observed invites schools football rallies, give speeches, Veterans Day ceremonies permits Army, America, funds Mall. activities, excluded leaflets enamored substance position extending deliberately broad done finding. apparently concedes lower correct, prevail. 19. concession is, mandated 'generally 320, If excluded. 28 579 Day, parade flags, drummers, color guard units speaker address valor solidiers. Presidential permitted issues day, presumably include peace. annually believes 'veterans deserves (sic) comfort States.'3 light facts, perceive depriving attend points expressed privileged forum parading ideas symbols. correctly put. occasion extended. takes concludes activity. agree point, reach complaining 29 580 itself, insulate conduct logical subjects remember striking—a speak, hierarchy values, competing fairly weighed, favor able doctors, dentists, lawyers, bankers, travel agents, countless buy anything need completely satisfy wants goods services. itself recognizes this. 1964 director relations President Vice political boasting 'that convenient location setting largest (the candidates) Oregon.' 187. television, radio, newspapers, mass media, way express themselves concern picket, handbill, utilize 581 inexpensive communication. hope effectively fellow found. equivalent.5 tremendous interests, hand, pale comparison. urges disturb customers. undisputed disturbed regardless object. evidence 31 582 indicate impair motivation put, contrary, common deter consumers purchasing subject. Moreover, acknowledges 'leaflet' me leafletting disturbing find patently frivolous inordinate difficulties removing litter Assuming, arguendo, continue might resulted, apparent suggested, problem recipients areas. remove litter. amount substantially increased assuming increased, sufficient barring See, e.g., New Jersey, (1939). truly accept previous prosecute 32 583 throw away, purposes.6 162, 151. plainly C. grounds denying quickly. assertion regulate inside permissible deny drove parked safely Hence, patrons.7 point 584 litigation, attempted assert entitled ground Selective Service laws. merit. 132—133. seems abandoned event, meritless 339, 1618, White affirmance one. White, time, convinced thought nondisruptive district. earlier correct applying suspect bothersome. vote 6—3, old. am composition radically changed years. remains binding until overruled. and, results same. 34 585 While majority obviously troubled interesting none participants experienced difficulty. decided, us strike, fully complied Retail Federation amicus curiae users. urge incorrectly way. ask important recognize massive play. like, course, impact resolve. large-scale movement country's population cities suburbs accompanied growth suburban centers. response phenomenon, cites providing city. prove greatly advantageous cities. totally self-sufficient, needing financial government; if, area, reaps advantages paying them. tax base, attraction residents, stimulus growth. 35 586 surprising perform once performed governmental agencies. advantage reduced expenses base overstated. governments enterprise, decreases becomes harder citizens. Only wealthy effective adhere Alabama it,' mere shibboleth. reality. affirm Appeals. 254.2 manager testified: 'Q. Turning it's hours day; right? 'A. Well, aren't closed putting gate across, no. not—when watched. And, late night, told leave. wanted walk 3:00 morning, me? Depending officer duty supposed do. followed you doing.' 49. explaining 'We great interest. brings leave.' 51. makes unlawful Police Code § 16—613. Wolin Port York Authority, 392 (CA2 1968). commenting necessity reside information, 'Many live towns. municipalities, Just affect welfare nation. act good informed.' commented increasing proscribed areas: 'Business enterprises (on sidewalks) on-the-spot criticism (labor) practices, situated largely immunize creating cordon sanitaire lots stores.' 324—325, 1612. concurring Douglas Valley: 'Picketing regard Supermarket business.' 326, 1612.8 128, 130, 132 (Or.1970); 546 (CA9 1971). 1608, (1968).10 author analysis meaningful. comprehensive. enjoins (and active concert participation it) 'preventing non-commercial orderly times access.' limitation 'non-commercial.' Nor, indeed, participating frequency thereof. Irrespective how controversial, offensive, distracting, extensive distributions ordered allow desires undertake obstacles resulting sidewalks: 'Petitioners' entry far appears, vehicle run. Thus placards bearing seek render indecipherable—where mall—or reader via entrance cut berms. addition, placed danger forced traveled moves constantly rates speed moderate high. Likewise, task vastly greater hazardous) pass pedestrians.' 321—322, 'company town' assumed municipality. 332, 1615. (Original emphasis.) conflict testimony precisely likelihood Agreed Facts Pretrial Order refused caused finding expression. 322—323 12, 1610—1611. modicum burden barred 315—316, 1606—1607. 62 (testimony Horn, Center). Veteran's organization. See Encyclopedia Associations 997 (7th ed. 1972). knowledge poppy symbol sold finance proceeds selling lobbying military capacity States. Jones, History 330—332 record unions picketed voiced objections. 108 difficulty accepting complying evident fails grasp essence notes extremely suggests 'of principle' unimportant. files expands becomes, reality, community, proscribe diminish. somehow betrays misunderstanding holding. really Court—i.e., Plazza prevented inhibiting 'public' qualities warrant answered affirmative, pivotal factor decision. Every acutely dealing degrees, absolutes. dimension. immaterial clearer illegal action. Since laws littering, loitering past. 45 ----------7.The implies findings forums dangerous erroneous. shows impossible approach cars leaving requiring knock windows, windows rolled down distributed, offer back repeat gesture every automobile hazards pedestrians passengers. Having photographs record, idea entering cavalierly overturns below. This, exceeds appellate

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