Document: 331 U.S. 549 67 S.Ct. 1409 91 L.Ed. 1666 RESCUE ARMY et al.v.MUNICIPAL COURT OF CITY LOS ANGELES. No. 574. Argued Feb. 6, 7, 1947. Decided June 9, Appeal from the Supreme Court of State California. Mr. Robert H. Wallis, Los Angeles, Cal., for appellants. John L. Bland, appellees. Justice RUTLEDGE delivered opinion Court. 1 On merits this appeal presents substantial questions concerning constitutional validity ordinances City Angeles governing solicitation contributions charity. First and Fourteenth Amendment grounds are urged as nullifying them chiefly in view that they impose prior restraints upon unduly abridge appellants' rights free exrcise t heir religion. Those rights, claimed, to engage soliciting donations charity a part their religion ordinances' restrictions. 2 Similar, but also distinct, were involved Gospel Army v. dismissed today jurisdictional reasons. 543, 1428. This case, however, arose procedurally different fashion, so it is not subject same defect. And procedural difference important, merely our jurisdiction determining propriety exercising special circumstances presented by appeal. 3 The California heard determined case several months advance one. It sustained regulations both instances, filing separate opinions each case. 27 Cal.2d 232, 163 P.2d 704; 28 460, 171 8. But attack city covered much wider range than here, court's principal was rendered cause. Hence disposed overlapping issues reference fortiori its 'approval' challenged provisions opinion. 4 As will more fully appear, mode treatment, together with interlacing relationships between here others has combined necessitated dismissal create us difficult problems exactly how regulatory scheme approved opinion, hence decision, must be taken having been incorporated disposition By virtue method we largely without benefit judgment these matters, including possible severability. Consequently, fact, postures which cases reach Court, would force determine those independently before undertaking any decision on merits. 5 That necessity difficulties tendered extricating problem raise appropriate, unusual situation, made In order present fair degree precision, necessary state some detail nature two proceedings, other, well differences. I. 6 suit one writ prohibition. Court's denying application such writ. They instituted District Appeal, Second Appellate District, Division Three, Its object test respondent Municipal proceed pending criminal prosecution against Murdock, who an officer Rescue Army. court he had charged violating three ordinances, twice convicted, convictions reversed Superior County.1 7 While after second reversal, appellants filed petition cause Appeal. Alleging threatening third trial charges, set forth held sufficient under procedure adjudication question jurisdiction. at pages 462—467, 8 denied Thereupon trnsferred own docket issued alternative prohibition determination there. seven justices dissenting, decided therefore writ, time discharging short effect insofar involved, other objections raised them. Probable duly noted assigned argument immediately following 130. 9 Apparently Murdock sections Code. These §§ 44.09(a), 44.09(b), 44.12 Article 4, Chapter IV.2 Sections 44.09(a) (b) formed basis first count Murdock.3 Colloquially speaking, § 44.09 'tin-cup' ordinance. summary, subdivisions, (a) (b), prohibit solicitations specified public places or adjacent areas 'by means box receptacle' except, (a), express written permission Board (of Social Service Commissioners)'; 'without Department Service) 'notice intention' required Sec. 44.05' and, literally, obeying further command 'every person all respects comply Article.'4 full text section margin.5 10 violation exhibiting reading persons solicited information card Commissioners. Section general place manner solicitation. fllowing wo rds: 11 'No shall solicit unless exhibits Information Card provided 44.03 reads said his perusal, allowing him opportunity read same, accepting contribution solicited.' 12 Obviously neither 44.09(b) nor self-contained. Each incorporates code. Thus, take into account, 44.05 requiring omnibus requirement compliance 'in * Article'; 44.12, requirements issuance card. Enforcement does refer specifically sections, necessarily involves consideration whatever may relate securing board's permission. 13 issue therefore, concerns us, turns reference; appeal, only relative solely federal prohibitions, light interpretation, extent have incorporated. Moreover arises substantially demurrer since power face, applied proven circumstances, called question.6 14 hand, injunction suit, projected broad front regulation embody whole. For reason attacked suit. indirectly through relation directly, numerous IV, outside it. article, above, consists Code 44.01-44.19, entitled 'Charities Relief,' thus includes many 15 setting dovetailed legislative enactments judicial decisions creates primary disposition. interrelations, involve, better understood summary scheme. II. 16 regulates charitable solicitations, pawnbrokers, secondhand dealers, junk etc. affecting dealers lie became pertinent because organization's activities collecting, repairing, selling giving away used articles.7 None regulations, appears here.8 far can now ascertain, exclusively consequently comprehended within 4.9 We relieved taking account code article. 17 comprehends interrelated subdivisions. provide general, though highly detailed integrated, plan regulating Angeles. integral parts plan. 18 designed primarily, exclusively, secure maximum publicity public. seeks make available soliciting, causes organizations behalf act, uses put. undertakes, ways, assure responsibility, moral financial, individuals agencies; see funds collected appropriate purposes. 19 Machinery executing created establishment Commissioners, administrative powers.10 Comprehensive definitions affected correlative prohibitions prescribed, various exemption. Violation generally require punishable sanctions. 20 More narrowly, relevant association desiring purpose11 file department, least ten days beginning solicit, 'Notice Intention.' 44.05. is, substance, 'Information Card' 44.03(d). recalled expressly requires notice. directly issue, exhibition lawfully place. 21 notice form furnished department contain 'complete information' margin.12 authorized, among things, investigate statements contained cards 'to solicitors.'13 44.03. show matters below.14 Ibid. board empowered publish results investigations 44.0315 exercise powers, endorsing association, waiving requirements, recalling correction.16 44.02, A fee four cents per charged, when issued, twenty-five event becomes cent 22 foregoing apply, face ordinance, conditions precedent, made. There become applicable during act One 44.15, commands tender contributor receipt containing information.17 s 44.14 every solicitor thirty 'the close solicitation' demand, report showing secured 'exactly what manner' 'were disbursed.' 23 moreover, classifies groups, primary, namely, 'promoters' 'solicitors.' 'Solicitors,' subdivided classes. bearing promoters onerous touching solicitors 44.19, itself subdivisions.18 24 exact definitive distinction promoters, either institutions individuals, clear given ordinance,19 indeed court.20 But, gather, promoter differs solicitor, rate, being engages business managerial supervisory capacity over acting paid direction pursuant program charge.21 25 44.19 relations associated forbidden 44.19(9)(a) permit compensation receive instigation, control employment, registered Board.' next subsection prove good character reputation honesty, $500 bond, pay $1.00 registration fee. 44.19(9)(b), (d). 26 apparently effective classes solicitors, unregistered, solicitors; establishes burdensome lawful registered. Finally, elaboration, addition interwoven relating types govern charities whose made.22 perhaps comprehensive intricately making up find context setting. Some no doubt could independently, example 44.09(a).23 istinct pr ovisions specify essential constituent elements. instances imported suggest still additional ones. article fact web dovetailing references cross-references. 29 respect turn forces 44.05, specifies fulfillment compel resort provisions. process gone 44.09(b). while verbally intention, card, sections. doubtful, whether complying authorized alone waiting ten-day period (§ 44.05) undergoing prescribed actually procuring card.24 30 necessary, complete environment somewhat dealt related This, best deferred point, legal principles think controlling III. 31 technical, nevertheless law more, contemplates proceedings court. Consequently final purposes meaning 237(a) Judicial Code, U.S.C. 344(a), U.S.C.A. 344(a). 32 particular infirmity. judgment, course, rule Bandini Petroleum Co. 284 8, 52 103, 76 136, 78 A.L.R. 826, proceeding independent prosecution, 'and finally disposing it,' did 'is Code.' page 14, 105, 826.25 33 like one, brought equity Director Natural Resources enjoin alleged unreasonable waste natural gas, Oil Gas Conservation Act preliminary sought restrain enforcement order, Act, due equal protection grounds. denied, hearing Upon statute,26 jurisdiction, adversely contentions. 34 ruling settled.27 Apparently, single Plessy Ferguson, 537, 1138, 41 256, discussion. close, seem complete, analogy found Bryant, People New York ex rel. Zimmerman, 278 63, 49 61, 73 184, 62 785. Bryant criminally courts state's so-called anti-secret organization statute, custody charge. He habeas corpus courts, ground warrant arrested detained statute unconstitutional.' 65, 62, denial justice dissenting entertained valid. 35 Although inquiry, conducted corpus, unlike cause, wholly verbal inquiry similar prohibition.28 procedures, historic differences, availability specific function, common law. wen ar e utilized, authorization, identical purpose questioning statutes constitution, determinative prosecutions based acts, review determinations. assumes, reviewed name disposes proceeding. 36 unable conclude there compelling reasons exist 37 From Hayburn's Case, Dall. 409, 436, Alma Motor Timken-Detroit Axle Hatch term,29 followed policy strict issues. earliest exemplifications, too known repeating history refusal render advisory applications drawn controversy limitation. U.S.Const. Art. reflected continuously rules appliable reasonable clarity definiteness, timeliness, raising presenting questions.30 Indeed most implement certiorari conferred Congress. E.g., 237, 240, 344, 347. 38 policy, limited For, addition, (has) developed, governance confessedly series avoided passing large pressed decision.'31 listed support statement quoted, legislation friendly, nonadversary proceedings; deciding them; broader terms precise facts applied; if record of; instance fails injured statute's operation, availed himself benefits; construction fairly avoided.32 39 Some, all, 'most varied applications.'33 reluctance, refusal, undertake important delicate functions, notwithstanding conceded until compels performance duty. 40 essence dependent applicability diversities procedure, inferior Rather substance,34 grounded considerations transcend limitations. Like limitation entertaining political questions,35 basic system structure.36 origin andin practic al effects, technical corollary offshoot rule. often line applying very thin.37 work, respective technically distinct areas, achieve practical adjudication, closely considerations. 42 policy's ultimate foundations, sustain limitation, goes unique character, scheme, governmental action constitutionality. delicacy particularly consequences stemming roots; comparative finality consequences; repositories scope authority; necessity, government function constitutionally, keep power, courts; inherent limitations process, arising especially negative resources enforcement; withal paramount importance system. 43 All others, transcending united policy. execution continuous choice obvious advantages produces functioning coordinate real disadvantages, assurance deferring entails. hand altogether speculative contrary accelerated might do greater harm security private attaining benefits tolerance harmony authorities premature relatively abstract likely promote, rendering uncertain insecure. 44 long since. Time experience sanction. verified wisely Any put end seriously impaired distinctively American institution review.38 whole, spite inevitable exceptions, worked finding preservation individual rights. 45 Most recently phases operation exemplified declaratory proceedings.39 Despite seemingly widespread misconceptions,40 introduction spheres modified effects.41 46 aspect application, noted, presence decision. alternatives absent, rest shaped presented. 47 cannot reduced formula catalogue. said, applicable, differing degree. To usual timeliness maturity, concreteness, certainty, adversity interests affected, added coming involving construction, essentially law, remain unresolved ambiguous. include, incorporation severability, involves. Necessarily depend uncertainty exists respects. inevitably vary varying presentations. 48 Accordingly presentation, factors enough enough, sort thing precisionists abhor constantly requires. kind judgments facilitated consequence dictates greatest care seeing utilized Much Indeed, procedures identical, review. Here relief neiter needed beyond issue. only, declaration variety shape underlying reached presents, think, insuperable obstacles 50 comprise prematurity abstractness parties questions. include growing out uncertainties resulting volume possibly intricate them, treatment considerable accentuated course here. Because dictating action, follows. IV. 51 place, come form. prohibition, arise charges bare allegations unconstitutional, assignments, solicitations. precision afforded proof conduct trial. Moreover, even literal charges.42 summarized pleadings leaves or, offenses charged.43 allege 44.12. Yet equally clearly counts. rested, sure latter, conjunctively alternatively. 53 purported deal both. discuss anomaly count. Nor decide intended charge subdivision, commission alternatively, offense possibly, anticipate contingencies proof. 54 assume accordingly. Perhaps tenable assumption rather confronted allegation. this, conjunction count, substantial; matter purposes, entirely law; last resolve. areunwilling clarifying ambiguity. avoiding clarity, certainty. 55 complementary receptacles, where fulfilled differences substantial, nominal technical.44 With possibility provision proceeding, pleading simply jury's Murdock's conviction stage constitutionality either. unwilling both, part, consistently should await alternatively subsections 56 Other conclusion. give guide section's concluding clause, Article.' Whether court, treating do,45 regard incorporate latter many, light. questions, determination, ours. 57 moreover substantial. shown, varied. Presumably, certainly, ones language so, violation. And, event, conceivably convicted failure license fees, bonds, otherwise explicit intention indeed, 44.19. 58 ones, depends clause literally applied, disregarded entirely,46 construed way extremes. certainly proper task interpretation. Apart invading mass, severability arise, formidable. discharged result performed issus prese nted, interpretation aside favor another. 59 hardly clarification charge, unnecessary. assured trouble expense another inconveniences, concededly outweigh strong functions once foreign 60 Somewhat less obviously, dealing card.47 Simply ordinance (Article 4), construe excluding licensing articles, junk, etc.,48 seems exclude (without clause) restricted 44.01—44.18 Presumably also, range, excluded solicitation, keeping records reports received, 44.09, 44.14, cf. 44,08, (as 44.12)49 tendering 44.15. Possibly limited, provisions, 44.03, themselves extensive detailed, gather 61 Apart, adding arisen particular, enlighten effects opinion: 'The cards, permits automatically payment authority withhold met, abuse 'If petitioner 44.05), whimsically arbitrarily refused permit, then recourse unjust arbitrary action." 238, 239, 709. 63 So construing asserting 'designed primarily assist judging worthiness insure presentation prospective donors,' concluded: 'We nothing provisions.' 708. 64 Nevertheless, say least, despite indicating 'automatically card,' asserted 'may intention.' point said: disallow proposed methods conducting solicitation; inspect whom made, findings deems interested.'50 65 qualifications questionable using 'automatically' quoted context, meant mere information, Rather, holding that, 'either arbitrarily' applicant; meet conditions, outcome investigations, discretion refuse 66 probably apparent unwillingness dispense meeting connection applicant's financial responsibility established bond filed. deny licenses, reasonably evidence presented.' 249, 714.51 68 differene views conception nearly akin 'mere identification' forbid; comprehend receiving identifying information.52 'automatic type, quite involve officials ruling. 69 conception. resolve meaning, adds stated, sum preclude resolved, undertakes pronounce removed yet 70 unmindful burden substantial.53 Were confronting number, resolving inconvenience justify exerted tenders clean-cut concrete form, unclouded serious questioned stte courts. 71 Our prejudice determination. reservation consistent, record, adherence long-observed decline 72 Accordingly, dismissed, future Federal Constitution BLACK concurs result. 74 MURPHY, DOUGLAS dissenting. 75 me believe ambiguous blurred powers discernment. below acted appellant violated Now true interconnected serve complicate picture somewhat. thereby me. are: (1) Does violate guarantee freedom religious boxes receptacles except officials? (2) Is infringed display 77 properly passed ripe supply answers. register dissent. reversal finally, resulted remanding reception incompetent evidence; second, insufficiency violations question. Appellants Ordinance 77,000. According appellee's brief, 77,000 'revision codification penal Code,' contains nine chapters, I—IX, divisions numbering excess 2000. brief states: portion (Charities Relief) IV (Public Welfare) nineteen numbered 44.01 inclusive. However, number herein, although mention sections.' Appellants' view, validity. conjunctively. See infra, Part note 43; 42. 2. 44.09. '(a) No receptacle, street, sidewalk way, park publicly owned controlled Board. '(b) contribution, purpose, receptacle abutting open public, room, hallway, corridor, lobby entranceway, accessible resort, contention unconstitutionally them: relied contention, answer proceeding.' 473, 16. 826; infra. operations Gspel Army' industrial department. details 704. dealers; explicitly seem, implication, activities. Not located purport placed. notes 13, 16, defines 'charitable' 'include words philanthropic, social service, benevolent, patriotic, actual purported.' 'Contribution' defined alms, food, clothing, money, property guise loan money property.' 'Solicitation' broadly oral requests, requests distributing, mailing publishing 'any handbill,' press announcement, radio, telephone events, offering sell advertising, book, chance, etc., appeals. use solicited; statement, supported available, figures, need '(c) conducted; '(d) expenses salaries items, any, regardless payable; '(e) What declared Notice Intention '(f) received calendar year preceding Intention. expenditures contributions, names addresses associations salaries, wages, compensation, commissions emoluments amounts thereof; '(g) officers directors made; '(h) copy resolution, authorizing certified original resolution '(i) signers familiar engaged solicitation.' department's follows: Intention, reports; access copies books, papers person, Cards show' 14. '(1) endorsement; '(2) may, 34982, omit above endorse association; '(3) Article; (See supra.) '(4) obtained assistance made.' 13. 44.02. 44.02 follows, (e) brevity summarized: investigation subdivisions (c) deemed interested; waive whole 44,05, 44.06, 44.10, 44.11, 44.13, excepting sub-section, extraordinary emergency calamity; request return completion expiration valid; '(Subsection authorizes recall amend correct which, renders inaccurate it.) Inforation authorization campaign drive otherwise, (25) proved satisfaction informs Card.' amount contribution,' 'substantially' aided; 'general purposes' thereof stated'; perusal contribution. donation placing locked previously board. secure, 44.19(1); $25.00 fee, 44.19(4); $2000 conditioned 44.19(3); satisfy applicant 'of reputation' 'sufficient carry obligations incident make.' 44.19(5). ordinary permit; cost card; generally, heretofore outlined 'promoter' mean pecuniary solicits holds corporation, institution, conducts, manages carries agrees conduct, manage conducting, managing carryig d rive purpose. *' (Emphasis added.) 44.01, 'Definitions,' definition 'solicitor,' 'solicitation' broadly, indicated supra. 'solicitor' left gathered definitively 'solicit' pertinent. word 'solicits,' italicized 'for person' organization, voluntary Carter's expressed dissent 266, indicate becoming promoters. 44.19(9). 20. receives services shows percentage basis. workers paid. opinions, appear treat groups direct Specific expenditures, matters. 44.08, 44.14. Written corporately authenticated authorizations issued. 44.11. organizational conformity individual. departmental regulation, apparently, fifty collection promotion. few referring specification Cf. 5. supplied language: conclude, subdivision read, be, entire peculiar attendant collections places, warranted discloses fraud planned interfere convenience safety.' 471, 472, unnecessary, consider stated. infra 43. circa 50. cited upon: Weston Council Charleston, Pet. 449, 464, 481; Mt. Vernon-Woodberry Cotton Alabama Interstate Power Co., 240 30, 31, .Ct 234, 35, 507; Missouri St. Louis, B. & M.R. Taylor, 266 200, 206, 47, 48, 247, 1232; Michigan Central R. Mix, 492, 494, 207, 208, 470. Referring stated: 'That injunction, erred based. appropriately adduced competent entertain concerned appeal.' 826. '* regarded, imports, valid consider.' 15, 106, 28. Holmes Jennison, 540, 579, refusing discharge prisoner reaching conclusion Taney, C.J., 481, 'decisive.' Marshall, judgment. Largent Texas, 318 418, 667, 87 873, cites rel., 329 129, 231; United Public Workers Mitchell, 330 75, 556, seq., 61h, 61o. See, e.g., appeals Rule 12(1) Revised Rules States, 354; Honeyman Hanan, 300 350, 81 476. Brandeis, J., Stone, Roberts Cardozo, JJ., concurred, Ashwander Tennessee Valley Auhority, 288, concurring 346, 466, 482, 80 688. Id., 297 346—348, 482—484, 688, cited. Coffman Breeze Corporation, 323 316, 324, 325, 298, 302, 303, 89 264. example, forbidding ground: 'Thus, grounds, question, statutory latter. Siler Louisville Nashville 213 175, 191, 451 (454), 455, 753; Light 220 523, 538, 485 (488) 570. Appeals highest challenging frequently ground. Berea College Commonwealth Kentucky, 211 45, 53, (34), 81.' 347, 483, doctrine deeply rooted ought pass unavoidable.' Spector McLaughlin, 101, 152, 154, 101. 'considered practice abstract, hypothetical contingent formulate *.' Federation Labor McAdory, 325 450, 461, 1384, 1389, 1725. 'It habit absolutely case.' Burton 196 283, 295, 243, 245, 482. Which writs error, Luther Borden, How. 1, 581; Pacific States Tel. Oregon, 223 118, 224, 377; Ohio Davis Hildebrant, 241 565, 708, 1172; Frankfurter, Colegrove Green, 328 549, 1198, 90 1432. about going does, 'which met fencing 'jurisdiction.' resolved time, intervene controversies.' Opinion 552, 1199, avoid 'case controversy' stake merits, proceedings. Labor, Metal Trades Dept. Watson, 327 582, 761, 873; 556. Compare 1725, Congress Industrial Organizations 1395, 1741, acts. significance periods exercised readily stormiest experiences. Brant, Storm Over (1936). illustrate, bring challenges array almost strategic furnishes ready vehicle pleadings, premature, states en masse. Such notion contradictory accepted, go toward dispensing asking itself, true, occasions grounding remedial avoided. sloughing off not, overcome requirement, discard limits discretionary element characteristic phase, offers convenient instrument effective, discussed above. element, convenience, necessity. it, essentially, suits injunctive relief. complaint, (sic) I thereof, II Card, failed Murdock. considered parts, Dismissal forbids expression Under invariably ejusdem generis. 138, 140, 401; Pasadena University County, 190 Cal. 786, 790, 214 P. 868; re Johnson, 167 142, 145, 138 740. supra text, (b). statement: maintain accounting recording entry disbursements. 44.08)' relates post-solicitation reports. sentences preceded following: working submit discriminate plaintiff censor beliefs, vest satisfied reputation. admission professions occupations duties fiduciary character. handling entrusted funds. covering administration.' 248, 714. Thomas Collins, 516, 539, 315, 326, 430: 'How previous identification undetermined. chiefly, tangentally, funds, Cantwell (State of) Connecticut, 310 296, 900, 84 1213, 128 1352; Schneider State, 308 147, 146, 155; streets Lovell (City Griffin, 303 444, 666, 82 949; Hague C.I.O., 307 496, 954, 83 1423, house-to-house canvassing, cases, invalid vested issuing activity involved. dictum 306, 904, 1352, mentioned.' referred 'Without protect citizens fraudulent stranger community, permitting establish identity purports represent.' (310 904). Army, appears, party appearance respect. Independent Warehouses Scheele, Recorder Township Saddle River, 70, 1062.

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