Document: 452 U.S. 61 101 S.Ct. 2176 68 L.Ed.2d 671 James F. SCHAD et al., Appellants,v.BOROUGH OF MOUNT EPHRAIM. No. 79-1640. Argued Feb. 25, 1981. Decided June 1, Syllabus Appellants operate an adult bookstore in the commercial zone of appellee borough, and store contains licensed coin-operated devices that display films. When appellants added a mechanism permitting customer to watch usually nude live dancer, complaints were filed against them charging exhibition dancing violated ordinance restricted uses permitted zone, they convicted. Rejecting appellants' defense based on First Fourteenth Amendments, trial court, while recognizing is protected by Amendment, held Amendment guarantees not involved, since case involved solely zoning under which entertainment, whether dance or some other form presentation, was use any establishment borough. The Appellate Division New Jersey Superior Court affirmed, Supreme denied further review. Held : Appellants' convictions are invalid Amendments for failed justify exclusion entertainment from broad range Pp. 65-77. (a) question, as construed courts exclude including dancing, throughout prohibits wide expression has long been be within protection Amendments. An program may prohibited because it displays human figure, without its official regulation. P. 65-66. (b) requires sufficient justification category uses, none appellee's asserted justifications withstands scrutiny. Its would conflict with plan create area catering only residents' "immediate needs," patently insufficient. As selectively excluded avoid problems associated such parking, trash, police protection, medical facilities, presented no evidence poses this nature more significant than those various interests could met restrictions less intrusive forms expression. And claimed question reasonable "time, place, manner" restriction, does identify making all but allow variety incompatible uses. 67-77. Reversed remanded. Robert E. Levy, Ocean, N. J., appellants. Arnold Fishman, Camden, appellee. Justice WHITE delivered opinion Court. 1 In 1973, began operating Borough Mount Ephraim Camden County, J. sold books, magazines, Amusement licenses shortly issued install virtue sit booth, insert coin, film. 1976, introduced additional nude, performing behind glass panel. Complaints soon bookstore's § 99-15B Ephraim's ordinance, described zone,1 located, follows: 2 "B. Principal land buildings. 3 "(1) Offices banks; taverns; restaurants luncheonettes sit-down dinners drive-in facilities; automobile sales; retail stores, limited food, wearing apparel, millinery, fabrics, hardware, lumber, jewelry, paint, wallpaper, appliances, flowers, gifts, stationery, pharmacy, liquors, cleaners, novelties, hobbies toys; repair shops shoes, jewels, clothes appliances; barbershops beauty salons; cleaners laundries; pet stores; nurseries. may, addition, group four (4) stores provided offices do exceed equivalent twenty percent (20%) gross floor stores. 4 "(2) Motels." Code 99-15B(1), (2) (1979).2 5 Section 99-4 Borough's code "[a]ll expressly chapter prohibited." 6 found guilty Municipal fines imposed. Appeal taken County Court, where de novo record made again guilty. first rejected claim being improperly enforced establishments offering zones.3 Those establishments, court held, permitted, nonconforming had existed prior passage ordinance. response recognized "live Amendment" view "First involved" "involves ordinance" "[l]ive simply establishment" presentation. App. Juris. Statement 8a, 12a. Reliance placed statement Young v. American Mini Theatres, Inc., 427 50, 62, 96 2440, 2448, 49 310 (1976), "[t]he mere fact exploitation material subject licensing requirements reason invalidating these ordinances." affirmed per curiam "essentially reasons" given 14a. review, 82 N.J. 287, 412 A.2d 793. Id., at 17a, 18a. 7 appealed Their principal imposition criminal penalties prohibiting nonobscene, their rights free guaranteed United States Constitution.4 We noted probable jurisdiction, 449 897, 264, 66 127 (1980) now set aside convictions. 8 * courts—a construction binding upon us—"live entertainment," "not Ephraim. By excluding Borough, protections Entertainment, well political ideological speech, protected; motion pictures, programs broadcast radio television, musical dramatic works fall guarantee. Joseph Burstyn, Inc. Wilson, 343 495, 72 777, L.Ed. 1098 (1952); Schacht States, 398 58, 90 1555, 26 44 (1970); Jenkins Georgia, 418 153, 94 2750, 41 642 (1974); Southeastern Promotions, Ltd. Conrad, 420 546, 95 1239, 43 448 (1975); Erznoznik City Jacksonville, 422 205, 2268, 45 125 Doran Salem Inn, 922, 2561, 648 (1975). See also California LaRue, 409 109, 118, 93 390, 397, 34 342 (1972); supra, 61, S.Ct., 2447-2448. Nor figure. "[N]udity alone" place otherwise outside mantle Amendment. U.S., 161, 2755. supra; 211-212, 213, 2274. Furthermore, state recognized, Salem, supra. 9 Whatever should extended film, however, Borough: property principally used production plays, concerts, musicals, dance, entertainment.5 Because claims rooted entitled rely impact expressive activities others own. "Because overbroad laws, like vague ones, deter privileged activit[ies], our cases firmly establish appellant's standing raise overbreadth challenge." Grayned Rockford, 408 104, 114, 92 2294, 2302, 33 222 (1972). II 10 there one Borough. appear face itself ambiguous respect permitted: purports specify "principal" listing nonexclusive; yet, declares forbidden.6 least partially resolved ambiguity declaring impermissible use. doing so, whose adopted sought meet issue restriction contained dancing. 11 power local governments control undoubtedly proper exercise essential aspect achieving satisfactory quality life both urban rural communities. But infinite unchallengeable; "must exercised constitutional limits." Moore East Cleveland, 431 494, 514, 97 1932, 1943, 52 531 (1977) (STEVENS, concurring judgment). Accordingly, judicial review; most often case, standard review determined right assertedly threatened rather specific limitation Thomas Collins, 323 516, 529-530, 65 315, 322, 89 430 (1945). 12 Where adversely affected zoning, generally have emphasized breadth municipal sustained regulation if rationally related legitimate concerns deprive owner economically viable his property. Agins Tiburon, 447 255, 260, 100 2138, 2141, 106 (1980); Village Belle Terre Boraas, 416 1536, 39 797 Euclid Ambler Realty Co., 272 365, 395, 47 121, 71 303 (1926). fail even 520, 1946 judgment); Nectow Cambridge, 277 183, 48 447, 842 (1928). 13 Beyond that, true ordinances, when law infringes liberty, must narrowly drawn sufficiently substantial government interest.7 Schneider State, 308 147, 60 146, 84 155 (1939), example obligation assess substantiality offered significantly impinged freedom speech: 14 "Mere legislative preferences beliefs respecting matters public convenience support directed personal activities, insufficient diminishes so vital maintenance democratic institutions. 15 arise, delicate difficult task falls weigh circumstances appraise reasons advanced enjoyment [First Amendment] rights." 150.8 16 Similarly, Schaumburg Citizens Better Environment, 444 620, 637, 826, 836, 63 73 (1980),9 governmental determine served means activity Amendment: 17 "The serve interests, regulations designed unnecessarily interfering freedoms. Hynes Mayor Oradell, 425 [610] 620 [96 1755, 1760, 243]; National Bank Boston Bellotti, 435 765, 786 [98 1407, 1421, 55 707] (1978). 'Broad prophylactic rules suspect. Precision touchstone. . .' NAACP Button, 371 415, 438 [83 328, 340, 405] (1963)." POWELL said much same thing addressing validity 499, 1935; intrudes liberties Due Process Clause "this examine carefully importance extent challenged regulation." limits communicative we scrutinize chosen interests. 18 initial matter, controlled decision relied Although stated merely regulates location movie theaters imposed minimal burden speech. 2448. did affect number city; dispersed them. imply municipality ban theaters—much dancing—from districts citywide.10 Moreover, Detroit Common Council indicated concentration areas led deterioration surrounding neighborhoods,11 concluded city justified incidental resulting dispersing, excluding, theaters. 19 adequately activity.12 None articulated First, contends caters needs" residents enable purchase few items occasionally forgot buy Borough.13 No below assertion, reconcile characterization zones provisions 99-15A states purpose creating provide "local regional operations." (Emphasis added.) goes far beyond providing residents. Motels, hardware lumber banks, offices, car showrooms zones. list "retail stores" nonexclusive, includes services salons, barbershops, restaurants. Virtually item service entertainment.14 20 Second, normally districts, is, facilities. evidence, immediately apparent matter experience, uses; nor authority arrived defensible conclusion unusual entertainment. Cf. 54-55, n. 6, 2444, 6.15 find self-evident theater, example, greater parking restaurant.16 Even what unique posed exhibiting connection sale books films, particularly exhibit It presently Yet respond might distinctive arising certain types clear selective approach address are. established 21 suggests restriction; yet Borough.17 (1972), stated: 22 'the pattern normal dictate kinds time, manner reasonable.' crucial basically particular time. Our make assessing reasonableness regulation, heavily communication involved; tailored State's interest." 116-117, 2303 (footnotes omitted). 23 Thus, determining "basically [in zones]." discussed above, asserts eliminate boundaries. light allows, done.18 24 To reasonable, leave open adequate alternative channels communication. 116, 2303, 2304; Kovacs Cooper, 336 77, 85-87, 69 448, 452-453, 513 (1949); see Consolidated Edison Co. Public Service Comm'n York, 530, 535, 2326, 2332, 319 Virginia Pharmacy Board Consumer Council, 748, 771, 1817, 1830, 346 (1976). Here, totally excludes nonobscene observed, purport approve total showing adult, obscene, materials. regulated situation quite different effect suppressing, greatly restricting access to, lawful speech." 71, 35, 2453, 35. 25 nevertheless general amply available close-by position argument countywide legal selected county primarily residential communities, This very true, cannot avail case. There impose own restrictions, limits. proposition kind wish reasonably nearby areas. findings; absence, constitutionally applied criminalize fined. "[O]ne liberty appropriate places abridged plea place." 163, 151. infirm, judgment reversed remanded proceedings inconsistent opinion. 27 So ordered. 28 BLACKMUN, concurring. 29 I join Court's opinion, write separately two points believe sources still emerging law. 30 emphasize presumption traditionally attends government's powers carries little, any, weight trenches order reviewing impinges speech "narrowly [to] interest," ante, 68, prepared articulate, support, reasoned basis decision. insurmountable, neither viewed minimis. evidently assumed intended land-use need survive scrutiny rational relationship test, once rationality established, then carried proving grounds. Brief Appellee 11-12. After today's decision, stake, "talismanic immunity 75, 2454, (1976) (concurring opinion). 31 My observation suggestion community nearby. Theatres dealt locational subdivision, Detroit, preserved boundaries subdivision. step conclude town legislatively prevent citizens engaging having majority's conception "decent life" locals. read reach, endorse, conclusion.* 32 Were resident Ephraim, expect my attend theater novel contingent availability opportunities "nearby" Philadelphia, decisions voice. 556, 1245, (1975) (" '[O]ne place,' " quoting 151, (1939)). Philadelphia me bookstores previously acted "entertainment." require articulation rule evaluating meaning "reasonable access" contexts. scope relevant varies widely across country, geographic configurations commerce among neighboring will doubtless case-by-case basis. For now, observe attempting accommodate locality's concern protect character life, remain attentive afford minorities "standardization ideas dominate groups." Terminiello Chicago, 337 4-5, 894, 895-896, 1131 (1979). POWELL, whom STEWART joins, agree altogether say, communities free—by ordinance—to regulate valid excluded. able limit "neighborhood" zoned area. 35 follow paths. before us and, out, overinclusive underinclusive about maintain fails justification. 36 STEVENS, judgment. 37 leaves many questions unanswered outcome, judgment, depends allocation persuasion. If simple attempt small "setting tranquility," post, 85 (BURGER, C. dissenting), seem overcome usual municipality's enactments valid. prevail required show selectively, perhaps comparable "amply Borough." Ante, 76 (opinion Court). On hand, starts, does, premise "appellants' Amendment," 66, invalidity. carry ordinances furthered "a Court) (footnote 38 Neither characterizations provides business located unequivocally identified either text record. though foliage cast protective shadows over dancing,1 roots germinated serious necessarily implicated content-neutral banning 60-61, 2447, 310. One puzzling features prohibition seeks enforce hard ascertain. written except specifically listed—and listed—literally pictures inanimate well.2 indicates actually happens bear little resemblance 40 situated along Black Horse Pike, north-south artery eastern fringe Borough.3 parties relatively small; presumably, therefore, handful establishments. Among Al-Jo's, known Club Al-Jo, Dad's, Capriotti's, offer entertainment.4 Democratic Club, Spread Eagle Guiseppi's.5 isolated references Villa Picasso Millie's.6 mentioned record, apparently supports picture theater.7 reveals nothing theater. clarity present amusement license authorized patrons private booths bookstore. officials regarded compatible immediate neighborhood until July 1976 repainted exterior sign modified interior exhibition.8 42 Without information enclave know change cacophony into tranquil setting new refrain replica Place Pigalle. convinced former correct appraisal hesitation agreeing THE CHIEF JUSTICE prohibit it.9 opaque, shoulder demonstrating introduction identifiable adverse whole. presume occur categories unambiguously differentiated However, open-ended affords presumption. difficulty left speculate proceeding business, distinction between While persuade federal policy, demonstrate uniform policy exists fashion. Presumably, municipalities activity—even activity—pursuant standards; unbridled discretion official. Compare Saia 334 558, 1148, 1574, 513.10 standards involves prosecution employees engaged assumed,arguendo, Amendment.11 endorsing analysis employed concur Chief BURGER, REHNQUIST dissenting. borough Turnpike, main connecting Atlantic major cities, Philadelphia. miles distance river separates State Pennsylvania. 46 Turnpike cuts through center 250 feet side turnpike, zone. rest use, single- multi-family units permitted. Most inhabitants commute work. chose placid, "bedroom" thousand people. end, passed admittedly people are—within limits—masters environment, hold applied, At here quiet, atmosphere. employ traditional tranquility. upheld "to beautiful healthy, spacious clean, wellbalanced patrolled." Berman Parker, 348 26, 33, 75 98, 102, 99 (1954). Douglas, speaking "ample lay out family values, youth blessings quiet seclusion clean air sanctuary people." 416, 9, 1541, 50 Here variation theme. 51 depicts But, terms, mention operates "adult" bookstore, alone here. "bait" induce customers When, if, high school performance Sound Music," can deal problem. overconcern draftsmanship allowed obscure central us. passing here, meant preserve basic community. just thrusting shows community, alter damage objections. speaks directly unequivocally. violate but, us, decide it. 53 assuming "expression" manifested somehow Mini-Theatres, said: 54 imposes intrusion genuine expression; contortions logic otherwise. periphery centers acceptable. banned irrelevant. "Chilling" tiny hardly thought "message" nearby—and sophisticated—cities. 56 enjoys mean times inappropriate exercise. towns villages Nation not, be, forced mold choose shape embodies life." sometimes deciding factories, gas stations, sports stadia, bookstores, surely shows—will allowed. That willing tolerate store, station, delicatessen compel every "commercial use," pornography peddlers shows. 57 Federalist Paper 51, p. 160 (R. Fairfield ed. 1966), Madison observed: 58 "In framing administered men men, great lies this: you governed; next oblige itself." 59 expresses balancing indispensable governing, Bill Rights checks overreaching government. check sparingly expressions choice going essentially concerns. am constrained note views understandable discomfort idea denying keep doorsteps. attempted suppress point anyone stifle ideas. say sheer nonsense. enshrine notion Constitution ignores fundamental values ought protect. invoke trivializes demeans establishes three "R-1" district single-family dwellings. "R-2" dwellings, townhouses, garden apartments. "C" specified 99-15 Code. 99-7 zone: "A. Purpose. operations. recognizes strip Kings Highway Pike. intended, encourage existing redevelopment improve depth encouraging shopping-center-type development buildings each design, landscaping site planning requiring off-street ingress egress, building setbacks, buffer lines adjacent fewer locations pattern." inspector, who responsible enforcing testified music. he premises preceded enactment thus qualified "nonconforming" Munic.Ct.Tr., 21-25, 35-36, 55-59. Police testified. He knew inspector. 67. contend them, violates due process equal arbitrarily irrationally booths. Since sustain challenge claims. counsel oral noncommercial singing Christmas carols office party. Tr. Oral Arg. 33. Apparently perform play charge admission. plays 34. stations listed 99-15B. 99-15E ("Area yard requirements") 99-15F ("Minimum parking") refer 99-15J expansion designated district. Various expressed evidentiary hearing, prosecutor suggested entertainment" (emphasis added). contrast, inspector distinguishing 20, 50. Before brief "does 21, during 40. ruled 99-15B, consider nonlive argument, referred explained 28, 38-40. (1974), "one-family" definition "family" (no unrelated persons) Constitution. 7, 1540. permissible objective. 8, MARSHALL dissented, asserting rights: "[Thus,] withstand necessary compelling interest. [T]he onus interest statute drawn, party seeking burden." 18, 1545 (citations (1977), Terre, occupancy dwelling single family. Unlike defined prevented relatives living together. joined Justices, impermissibly 1935. STEVENS test. 520-521, 1946. dissenting opinions always deferentially reviewed. Rather, Justices addressed heightened Clause. 537, 1955. (STEWART, REHNQUIST, id., 549, 1961 (WHITE, dissenting). restricts incidentally cases, scrutinized unnecessary O'Brien, 391 367, 376-377, 88 1673, 1678, 672 (1968). Several argued antileafletting littering streets. deny purpose, cities' preventing strong rights. pointed cities pursue methods littering, punishing threw papers 162, invalidated grounds solicitation contributions charitable organizations 75% receipts "charitable purposes." 'in protecting fraud, crime, undue annoyance,' 636, "only peripherally promoted 75-percent requirement measures destructive interests." Ibid. District finding compliance slight rights, "myriad locations" ordinances. 2452, POWELL'S stressed "incidental minimal." 78, 2456. suggest validly included businesses presenting similar problems. minimal, examined city's 82, 5, 2458, 5. Emphasizing problem council, acknowledged present[ed] brought shown contribute areas." 2458. 34, J.); (POWELL, concurring). interpreted reach result. "[i]f come home night your bread, milk, gift." present, somewhat lessened presence 3, These continue indefinitely, terminated period 99-24 permit undermines contention inherent exclusion. speculates undesirable. 20. explicitly sexual bars nightclubs liquor. speculation lends or, insofar reveals, LaRue after Department Alcoholic Beverage Control linked later regulated. Third, Twenty-first responded type amount parking. substitute 20-21. abandoned bans rate, inadequate bans, today unit entrusted responsibilities arguments invoked See, e. g., 932, 2568, 648; 557-558, 1245-1246, 448; 342. Code, quoted Court), lists list. extends remainder JUSTICE, dissent, relies counsel's description 'bedroom' community" thrust disruptive influence 85. assertion unsupported indeed Zoning Map containing 99-8 created "are hereby map 'Zoning Ephraim' accompanies part chapter." reveal extent, commercially developed, accepted accept degree vicinity Munic.Ct.Tr. 21-22, 35-37, 55, 58-59, street combo music stage; vocalist performs occasion. 35-36. Capriotti's dinner club/discotheque, Al-Jo's feature performances groups. 22, 36, 58-59. permits 19-20. counsel, examination trial, duties include issuance supervision licenses, unable answer questions. ibid. 38. Counsel informed operation 37-39. near east 9. According 37-39; 67, objected changes. A concerned repainting sign, dispute ultimately won courts. 5a-6a. states: "It objections." Post, 86. JUSTICE'S analysis, "the [the] 1973 deemed exhibited "peep shows," character. confidence addition dancer produced community's 2, presents opportunity discretion. has, stages litigation, interpretations prohibition. one, Ephraim; according other, prohibited. 67 , third possible interpretation. They Like 79 opinion), doubt pursuant Surely, entirely special purveyors Valley View Proffett, 221 F.2d 412, 417-418 (CA6 1955) (Stewart, J.) (zoning se invalid). municipality.

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