Document: 483 U.S. 203 107 S.Ct. 2793 97 L.Ed.2d 171 SOUTH DAKOTA, Petitioner,v.Elizabeth H. DOLE, Secretary, United States Department of Transportation. No. 86-260. Argued April 28, 1987. Decided June 23, Syllabus Title 23 U.S.C. § 158 (1982 ed., Supp. III) directs the Secretary Transportation to withhold a percentage otherwise allocable federal highway funds from "in which purchase or public possession . any alcoholic beverage by person who is less than twenty-one years age lawful." South Dakota, permits persons 19 old older beer containing up 3.2% alcohol, sued in Federal District Court for declaratory judgment that violates constitutional limitations on congressional exercise spending power under Art. I, 8, cl. 1, Constitution and Twenty-first Amendment. The rejected State's claims, Appeals affirmed. Held: Even if Congress, view Amendment, might lack impose directly national minimum drinking (a question not decided here), 158's indirect encouragement state action obtain uniformity States' ages valid use power. Pp. 206-212. (a) Incident power, Congress may attach conditions receipt funds. However, subject certain restrictions, including it must be pursuit "the general welfare." Section consistent with such restriction, since means chosen address dangerous situation—the interstate problem resulting incentive, created differing ages, young combine driving—were reasonably calculated advance welfare. also restrictions that, desires condition funds, do so unambiguously, enabling their choice knowingly, cognizant consequences participation; grants related concern (safe travel here). 206-209. (b) Nor invalidated limitation conditional grant independently barred other provisions (the Amendment Such prohibition achievement objectives empowered achieve directly, but, instead, used induce engage activities would themselves unconstitutional. Here, Dakota were succumb Congress' blandishments raise its 21, violate anyone's rights. Moreover, relatively small financial inducement offered here—resulting loss only 5% obtainable programs—is coercive as pass point at pressure turns into compulsion. 209-212. 791 F.2d 628 (CA 8 1986), REHNQUIST, C.J., delivered opinion Court, WHITE, MARSHALL, BLACKMUN, POWELL, STEVENS, SCALIA, JJ., joined. BRENNAN, J., post, p. ----, O'CONNOR, filed dissenting opinions. Roger A. Tellinghuisen, Pierre, S.D., petitioner. Louis R. Cohen, Washington, D.C., respondent. Chief Justice REHNQUIST Court. 1 Petitioner alcohol. S.D.Codified Laws 35-6-27 (1986). In 1984 enacted III), State seeking Constitution. Eighth Circuit 2 this parties direct most efforts defining proper scope Relying our statement California Retail Liquor Dealers Assn. v. Midcal Aluminum, Inc., 445 97, 110, 100 937, 946, 63 233 (1980), "Twenty-first virtually complete control over whether permit importation sale liquor how structure distribution system," asserts setting clearly within "core powers" reserved Amendment.1 Brief 43-44. 158, petitioner usurps core response simply implicated 158; plain language confirms broad beverages but does confer them sales seeks prohibit. Respondent 25-26. That reasoning, prevent affirmatively enacting more restrictive provided various laws; follow fortiori involved here compatible 3 These arguments present questions meaning bounds have escaped precise definition. Bacchus Imports, Ltd. Dias, 468 263, 274-276, 104 3049, 3056-3058, 82 200 (1984); Craig Boren, 429 190, 206, 451, 461, 50 397 (1976). Despite extended treatment parties, however, we need decide case prohibit an attempt legislate age. has acted indirectly encourage ages. As explain below, find legislative effort even regulate directly. 4 empowers "lay collect Taxes, Duties, Imposts, Excises, pay Debts provide common Defence Welfare States." 1. repeatedly employed "to further policy conditioning moneys upon compliance recipient statutory administrative directives." Fullilove Klutznick, 448 448, 474, 2758, 2772, 65 902 (1980) (opinion Burger, C.J.). See Lau Nichols, 414 563, 569, 94 786, 789, 39 (1974); Ivanhoe Irrigation Dist. McCracken, 357 275, 295, 78 1174, 1185, 1313 (1958); Oklahoma Civil Service Comm'n, 330 127, 143-144, 67 544, 553-554, 91 L.Ed. 794 (1947); Steward Machine Co. Davis, 301 548, 57 883, 81 1279 (1937). breadth was made clear Butler, 297 66, 56 312, 319, 80 477 (1936), where resolving longstanding debate Spending Clause, determined authorize expenditure purposes limited found Constitution." Thus, thought Article I's "enumerated fields," id., 65, S.Ct., nevertheless attained through 5 course unlimited, Pennhurst School Hospital Halderman, 451 17, n. 13, 101 1531, 1540 694 (1981), instead several articulated cases. first these derived itself: Helvering 619, 640-641, 904, 908-909, 1307 (1937); supra, 319. considering particular intended serve purposes, courts should defer substantially Congress. 640, 645, 908-909.2 Second, required "must unambiguously ., enabl[ing] participation." 1540. Third, cases suggested (without significant elaboration) illegitimate they are unrelated interest projects programs." Massachusetts States, 435 444, 98 1153, 1164, 55 403 (1978) (plurality opinion). U.S., ("[T]he Government establish reasonable relevant project over-all thereof"). Finally, noted independent bar Lawrence County Lead-Deadwood Dist., 469 256, 269-270, 105 695, 703-704, 83 635 (1985); Buckley Valeo, 424 91, 96 612, 669, 46 659 (1976) (per curiam); King Smith, 392 309, 333, 34, 88 2128, 2141, 20 1118 (1968). 6 seriously claim inconsistent three mentioned above. We can readily conclude provision designed welfare, especially light fact concept welfare opposite shaped ." 910. incentives desire drink ability drive, solution. chose situation receive moreover, could stated III). And itself, rather challenging germaneness admits "has never contended absence Amendment." 52. Indeed, imposed one main expended—safe travel. 101(b).3 This goal system had been frustrated varying among States. A Presidential commission appointed study alcohol-related accidents fatalities Nation's highways concluded "an incentive drive" because "young commut[e] border lower." Commission Drunk Driving, Final Report 11 (1983). By conditioned way impediment purpose expended. 7 remaining about validity 158—and basic disagreement between parties—is constitutes "independent bar" 702-703. Petitioner, relying prohibits regulation "Congress prohibited regulating 52-53. But show kind suggests. example, established when exercising exacting those authority held perceived Tenth affairs did concomitantly limit range legitimately placed grants. (1947), considered Hatch Act insofar applied political officials whose employment financed whole part order unless official removed invaded sovereignty violation Though finding concerned with, no regulate, local officials," "does fix terms money allotments states shall disbursed." Id., 143, 553. could, did, adopt 'simple expedient' yielding what she urges coercion. offer benefits dependent cooperation plans, assumedly unusual." 553-554 (citation omitted). 595, 894 ("There free pleasure disregard fulfill"); Mellon, 262 447, 482, 43 597, 599, 1078 (1923). 9 not, suggests, Instead, think earlier opinions stands unexceptionable proposition invidiously discriminatory infliction cruel unusual punishment here. Were doing rights anyone. 10 Our decisions recognized some circumstances "pressure compulsion." 590, 892. directed desiring lower 21 lose contends nature program evident degree success achieved. cannot conclude, sort unconstitutional reason achieving objective. When consider, moment, all adheres her suitable specified programs, argument coercion shown rhetoric fact. said half century ago Davis: 12 "[E]very rebate tax conduct measure temptation. hold motive temptation equivalent plunge law endless difficulties. outcome doctrine acceptance philosophical determinism becomes impossible. Till now guided robust sense assumes freedom will working hypothesis solution problems." 589-590, 891-892. 13 Here mild enact higher choose. enactment laws remains prerogative merely theory Accordingly, 14 Affirmed. 15 dissenting. 16 I agree O'CONNOR purchasers falls squarely ambit powers 218. Since possess manner abridges right. strikes balance authority. therefore dissent. 17 18 today upholds National Minimum Drinking Age conferred 8. justified ground. Rather, liquor, lies outside commerce My narrow issue: application principle itself. (1978); see subscribe reach "is (1936). there four separate types power: (1937), unambiguous, 1531 expenditure, legislation prohibition, (1985). Ante, 207-208. Insofar two concerned, correct wholly unobjectionable. Establishment certainly fits statute entirely unambiguous. am willing assume, arguendo, constitute condition. ante, 209-211. Court's requirement expended cursory unconvincing. ways program. 1164; 313 (1958) "reasonable thereof"); 892 ("We say valid, act laid escape operation adoption matter fairly power"). my view, establishment sufficiently construction justify appropriated purpose. support contrary conclusion, relies supposed concession counsel strong sold just regulates many commodities affect commerce. crucial therefore, amount construction. portion transcript conceded relationship point. 208—209, 3, citing Tr. Oral Arg. 19-21. counsel's statements best ambiguous. Counsel essentially he prepared argue discussed length Conference Legislatures et al. Amici Curiae. 22 Aside "concessions" counsel, reasonableness expenditure—"safe travel"—and 208. reasons wishes roads builds safely, drunken drivers threaten safety, people likely drive while influence alcohol existing uniform 21. It hardly needs saying, deter driving, far too under-inclusive. over-inclusive stops teenagers highways. under-inclusive pose driving Nation. See, e.g., 130 Cong.Rec. 18648 (1984) (remarks Sen. Humphrey) ("Eighty-four percent involving occur exceed 21"); 18651 McClure) ("Certainly, statistically, you set statistics, then mandatory ought raised least 30"); ibid. Symms) ("[M]ost studies out 21-24 worst offenders"). appropriates build highway, entitled insist safe one. change regulations areas social economic life attenuated tangential safety. rule otherwise, effectively almost area social, political, transportation somehow enhanced. If, moving capital, suppose facilitated locating governments places easily accessible highways—or, conversely, become overburdened carry traffic capital. mind, finds supports 158. Cf. (counsel conceding unicameral legislature "germaneness" requirement). 24 There place draw line permissible impermissible identified Curiae: spend delegated purposes. 25 "The appropriate inquiry, then, regulation. difference specifies spent, intent making effectuated. Clause requirements go beyond specifying spent. specification condition, regulation, regulatory powers." 19-20. 26 approach harks back last struck down granted Clause. wrote "[t]here obvious stating effective assumption contractual obligation submit enforced." 73, 322. Butler saw Agricultural Adjustment was—an regulatory, spending, error conclusion crabbed extent Commerce Katzenbach McClung, 379 294, 85 377, 290 (1964); Wickard Filburn, 317 111, 82, 87 122 (1942). 27 While Butler's questionable farm production, discussion description both power's remain sound. decision properly recognizes gravity task appropriately limiting If notion reality, given vast resources Government, gives "power tear barriers, invade states' jurisdiction, parliament people, save self-imposed." 78, 324. This, course, held, Framers' plan 28 later For CSC, upheld member Highway connection activity loans agency. viewed relating Other 10% "set aside" contracts minority business enterprises. Fourteenth 476, 478, 2775. 787, (1974) (upholding nondiscrimination schools receiving funds). 29 case, neither class. above, possible connection, nothing Rather determining expended, able liquor. 30 Of sources comes mind. price sold, Capital Cities Cable, Inc. Crisp, 467 691, 716, 2694, 2709, 580 (1984). emphasized 324 Corp. Duffy, 479 335, 356, 720, 732, 93 667 (1987) (dissenting opinion): 31 history strongly Black's return absolute trade interfere 32 lacks displace kind. Ibid. 33 immense size obscure fundamental character. enumerated powers. McCulloch Maryland, Wheat. 316, 405, 579 (1819). Because authorized errs holding land, respectfully provides: State, Territory, delivery therein intoxicating liquors, thereof, hereby prohibited." level deference recently questioned "general welfare" judicially enforceable restriction all. 90-91, 668-669, curiam). define outer "relatedness" imposition urge take occasion legitimate relates attached. Curiae 10. sought 19-21, satisfied event,

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