Document: 535 U.S. 425 CITY OF LOS ANGELESv.ALAMEDA BOOKS, INC., ET AL. No. 00-799. Supreme Court of the United States. Argued December 4, 2001. Decided May 13, 2002. CERTIORARI TO THE UNITED STATES COURT APPEALS FOR NINTH CIRCUIT Based on its 1977 study concluding that concentrations adult entertainment establishments are associated with higher crime rates in surrounding communities, petitioner city enacted an ordinance prohibiting such enterprises within 1,000 feet each other or 500 a religious institution, school, public park. Los Angeles Municipal Code § 12.70(C) (1978). Because ordinance's method calculating distances created loophole permitting concentration multiple single structure, later amended to prohibit "more than one business same building." (1983). Respondents, two openly operate combined bookstores/video arcades violation 12.70(C), as amended, sued under 42 U. S. C. 1983 for declaratory and injunctive relief, alleging ordinance, face, violates First Amendment. Finding was not content-neutral regulation speech, District reasoned neither nor report cited Hart Book Stores v. Edmisten, Fourth Circuit case upholding similar statute, supported reasonable belief multiple-use produce secondary effects asserted justifications prohibition. Subjecting strict scrutiny, court granted respondents summary judgment because it felt had offered evidence demonstrating prohibition necessary serve compelling government interest. The Ninth affirmed different ground that, even if were content neutral, failed present upon which could reasonably rely demonstrate designed substantial interest reducing crime. therefore held invalid Renton Playtime Theatres, Inc., 475 41. Held: is reversed, remanded. 222 F. 3d 719, reversed 1 Justice O'Connor, joined by Chief Justice, Scalia, Thomas, concluded may ban multipleuse serves Pp. 433-443. 2 (a) study's central component Police Department indicating from 1965 1975, for, e. g., robbery prostitution grew much faster Hollywood, city's largest establishments, whole. police department's conclusions regarding patterns overcome judgment. In finding contrary focused effect — operations establishment misunderstood implications. While reveals areas high rates, also operations, albeit separate establishments. It consistent findings, thus reasonable, infer neighborhood, whether large establishment, will reduce rates. Neither dissent provides any reason question theory. If this accept their view, would effectively require provide only supports claim important interest, but does support approach specifically refused set bar municipalities want address merely protected speech. there municipality "reasonably believed be relevant" connection between speech substantial, independent S., at 51-52. This say can get away shoddy data reasoning. municipality's must fairly rationale ordinance. plaintiffs fail cast direct doubt rationale, either furnishing disputes factual meets standard. succeed casting manner, burden shifts back supplement record renewing theory justifies See, Erie Pap's A. M., 529 277, 298. very early stage process. arrives motion defended complaints fails prove justification necessarily correct. Therefore, city, litigation, has complied Renton's evidentiary requirement. 433-442. 3 (b) need resolve parties' dispute over judgment, respondents' alternative argument time, place, manner regulation, video subjected scrutiny. 442-443. 4 JUSTICE KENNEDY Court's precedents allow impose exercise zoning authority, not, least, foreclosed 444-453. 5 Under 41, decrease blight businesses exercising power, time leave quantity accessibility substantially undiminished, no Amendment objection, measure identifies problem outside reference inside is, based. On hand, regulate suppressing itself. For example, content-based fee tax, see Arkansas Writers' Project, Inc. Ragland, 481 221, 230, purports justify effects, Forsyth County Nationalist Movement, 505 123, 134-135. That issue more typical land-use restriction law suggested fact limited expressive activities, extends, massage parlors, found cause undesirable effects; also, just part elaborate web regulations intended promote social value land whole without some activities favoring others. Thus, so suspect scrutiny laws demand instances. Rather, calls intermediate held. 445-447. 6 description Angeles' "content neutral," 48, something fiction. These ordinances based, should described. Nevertheless, holding sound. 448-449. 7 (c) applying promise like costs roof, requiring them have results: One move elsewhere close. premise cannot latter. those always been roof most disperse rather shut down, total significantly reduced. As sufficient proposition, consistently latitude experiment, least outset, little required. Renton, supra, Here, proposition shown common experience showing correlation Assuming original dispersal analysis follows. To issue, own better next door, knocking down wall ameliorate proximity another. first justified, therefore, then second too. 449-453. 8 (d) these considerations seem well enough established law, survives P. 453. 9 O'CONNOR, J., announced delivered opinion, REHNQUIST, SCALIA THOMAS, JJ., joined. SCALIA, filed concurring post, p. 443. KENNEDY, opinion 444. SOUTER, dissenting STEVENS GINSBURG, joined, BREYER, Part II, 10 Michael L. Klekner argued petitioner. With him briefs James K. Hahn, Rockard J. Delgadillo, Claudia McGee Henry, Anthony Saul Alperin, Jeri Burge. 11 John H. Weston respondent. G. Randall Garrou.* 12 O'CONNOR CHIEF JUSTICE, JUSTICESCALIA, THOMAS join. 13 (1983), prohibits "the maintenance building, structure portion thereof." operated bookstore arcade suit Rev. Stat. 1979, (1994 ed., Supp. V), seeking relief. respondents, Appeals affirmed, grounds. contentneutral Specifically, link negative effects. 41 (1986), interpreting case. 723-728 (2000). We reverse remand. conducted years before enacting version 14 * 1977, comprehensive prostitution, robbery, assaults, thefts communities. See App. 35-162 (Los Dept. City Planning, Study Effects Concentration Adult Entertainment Establishments (City Plan Case 26475, Council File 74-4521-S.3, June 1977)). Accordingly, enlargement, transfer ownership arcade, bookstore, cabaret, motel, theater, parlor place sexual encounters another enterprise 15 There intent council when distinct housed buildings, structure. 29 Proposed Ordinance Prohibit Establishment More Business Single Location 82-0155, Jan. 1983)). enacted, however, directed "[t]he distance shall measured straight line ... closest exterior structural business." 12.70(D) Subsequent enactment, realized 16 Concerned allowing adult-oriented department store replace strip defeat goal adding defines "Adult Business" encounters, notes "shall constitute conjunction establishment." 12.70(B)(17). uses term "business" refer certain types goods services sold Relevant purposes definitions bookstores arcades. An Bookstore" operation "has stock-in-trade offers sale" printed matter videocassettes emphasize depiction specified activities. 12.70(B)(2)(a). where, "for form consideration," five fewer patrons together view films 12.70(B)(1). 17 Alameda Books, Highland operating Angeles. located park, school. Each occupies less 3,000 square feet. Both rent sell sexually oriented products, including videocassettes. Additionally, both booths where fee. Although operates retail sales rental commercial space located. physical distinctions entrance. 3d, 721. Respondents concede they code, amended. Brief 7; Petitioner 9. 18 After building inspector 1995 regulations, relief prevent enforcement At count I complaint, alleges facial cross-motions 19 Central California initially denied motions issues I, "a genuine combination viewing leads harmful urban area." 255. reconsideration, Pet. Cert. 51. 612 2d 821 (CA4 1979) (upholding North Carolina statute banned establishments), produced 34-47. proceeded subject did offer issued permanent injunction enjoining against respondents. Id., 20 although determined reach decision based because, "designed serve" challenged 723-724. certiorari, 532 902 (2001), clarify standard determining supra. II 21 considered validity municipal prohibited movie theater locating residential zone, family dwelling, church, Our three steps. First, we theaters altogether, required distanced sensitive locations. properly analyzed, regulation. 46. neutral presumptively Simon & Schuster, Members N. Y. State Crime Victims Bd., 502 105, 115, 118 (1991); 230-231 (1987). held, aimed theaters, community, namely, property values, quality neighborhoods. deemed neutral. 47-49. Finally, given finding, stated upheld long showed avenues communication remained available. 50. met burden, 51-54. 22 applied evaluate complete sort 723. turned step analysis, draw about explained demonstrate, third noted primary relied planning department. found, "`suppor[t] [the] [of] type asserted.'" 724. reasons, rejected attempt health conditions described Stores, 23 provided Department. indicated during period robberies increased times Hollywood citywide. 124-125. 24 contains reports directly staff Planning examine relationship values. reports, inconclusive. Not surprisingly, parties focus find report's drawn report. 25 inference greater levels criminal activity pointed out treated bookstore/arcades separate-standing arcade. 26 implications study. findings study, suppose correlated locale draws, consumers density attracts generates activity. assumption behind having number draws dense foot traffic close proximity, minimalls stores similarly attract crowds consumers. 28. rational 27 Appeals, particular, do competing theory, let alone data, explains why elevated neighborhoods attributed entirely presence walls between, entrances to, individual operation. certainly bears providing bear rules every inconsistent own. 28 error made attracting customers, minimall does, consequence expansion include increase" "produce identified Study." 726. limits inventory simply replaced many size crowds. Appeals' correct, make sense. makes theories implicitly requires plausibly explain refute logic. logical suggest multiuse raise force relocate businesses. Respondents' assumes proves all businesses, near generate plausible reading results compelled reading. Nor refutes interpretation balance nevertheless speculation, 30 51-52; Barnes Glen Theatre, 501 560, 584 (1991) (Souter, judgment) (permitting use nude dancing likely effects). forth Renton. 298 (2000) (plurality opinion). conclude requirement 31 SOUTER faults relying stores, minimalls, customers crime, freestanding single-use 460-462 (dissenting effect, asks appeal sense, empirical successfully lower cases never showing, actual convincing contrary. Barnes, 583-584 (SOUTER, judgment). Such go too far undermining our settled position "`reasonable opportunity experiment solutions'" 52 (quoting Young American Mini 427 50, 71 (1976) opinion)). A considering innovative solution efficacy proposal would, definition, implemented previously. banning solution. contend independently bookstores. But arcades, treatment group compare control comparison strike leaves means concerned. 32 deference presented product careful interests. "obligation rights implicated." Turner Broadcasting System, FCC, 512 622, 666 (1994) opinion); Landmark Communications, Virginia, 435 829, 843-844 acknowledge Judiciary gather local problems. Turner, 665-666; Erie, 297-298 guided receive 48-50. concerned discriminate unpopular 298-299. 33 us rethink balance, indeed entire framework. distinguished inquiry into unreasonably limit communication." 47-54. former courts verify "predominate concerns" motivating "were [speech], [speech]." 47 (emphasis deleted). latter goes further regulated motivated adoption Only contemplate concerning 50-52. merge inquiries neutrality, pass. His logic verifying actually reduces ensure disguise. 457-458. 34 think unwise. none request depart encompassed presented, focuses sorts governmental i. Second, suggesting difficulty primarily looking connecting case, yet assumed sake inappropriate neutrality pass it. meet he require. easy "common experience" assumptions" incorrect, 459, difficult know ahead condition met. Municipalities will, general, understanding follow courts. "`reasonably relevant'" seek address. 296. III 35 argues poor here. 2d, 828-829, n. argue examined current 12.70(C). 21. note, moreover, unsanitary persist regardless buildings as, say, Ibid. 36 Stores. Unlike (1983) foreign studies 37 Before concluding, argue, basis sustain explain, exists bookstore. 12-13. hold appears theme Kennedy's concurrence. He contends "[a] assert proportion." Post, 449 (opinion consider unobjectionable reformulation warrants ban. petition review determination. 38 granting remand proceedings. 39 ordered. Notes: Briefs ofamici curiae urging reversal Ohio et al. Betty D. Montgomery, Attorney General Ohio, David M. Gormley, Solicitor, Elise W. Porter, Attorneys respective jurisdictions follows: Bill Pryor Ala bama, Janet Napolitano Arizona, Ken Salazar Colorado, Richard Blumenthal Connecticut, Jane Brady Delaware, Robert Butterworth Florida, Alan Lance Idaho, Carla Stovall Kansas, Steven Rowe Maine, Thomas Reilly Massachusetts, Mike Moore Mississippi, McGrath Montana, Don Stenberg Nebraska, Frankie Sue Del Papa Nevada, Roy Cooper Carolina, Herbert Soll Commonwealth Northern Mariana Islands, Fisher Pennsylvania, Charles Condon South Mark Barnett Dakota, Cornyn Texas, Shurtleff Utah, Christine O. Gregoire Washington, Darrell V. McGraw, Jr., West Gay Woodhouse Wyoming; Association Scott Bergthold; Capitol Resource Institute Ackerman Gary Kreep; Morality Media, Paul McGeady Robin Whitehead; Conference Mayors Ruda I. Crowley. amici affirmance Booksellers Foundation Free Expression Bamberger; DKT Liberty Project Julie Carpenter; Lawyers B. Tigue Bradley Shafer. 40 concurring. join plurality represents correct application jurisprudence "secondary effects" pornographic said elsewhere, traditions quite unnecessary. Constitution communities wish regulating, suppressing, pandering sex. 310 (SCALIA, judgment); FW/PBS, Dallas, 493 215, 256-261 (1990) part). 43 Speech tangible consequences. change minds. prompt actions. signify power necessity free unrelated impact audience. newspaper factory pollution, billboard obstruct view. consequences immune though 44 governments damage integrity neighborhood. measurable; real. ignore way "interest attempting preserve life accorded respect." 45 tangible, adverse separating roof. my authority. concur 46 statement seems me necessary, reasons. agree designation imprecise. plurality's might subtle expansion, concur. while material consequent sordidness not. challenge leaving former, possible, untouched. traditional objection. sense 48 tax. 230 (1987) ("[O]fficial publications imposing tax incompatible Amendment's guarantee freedom press"). true 134-135 (1992). Though inexorable permissible strategy. purpose 49 significant trivial documented character neighborhood worse. Those spread across deleterious causes close, externalities diminished 50 calculus familiar planners, externalities. Factories, cost externality restricting factories pollution productive work continue. protect controlling side outside. 51 might, restriction, based." slaughterhouses specific treatment, particularly remote town. Without knowing more, hardly presume business, seeks help favored group. presume, rather, targets particular noxious cf. Slaughter-House Cases, Wall. (1873). valued enterprise; nevertheless, causes, warrant special treatment. singling impermissible discrimination; sensible planning. Cf. Village Euclid Ambler Realty Co., 272 365, 388 (1926) ("A nuisance right thing wrong pig instead barnyard. legislative classification debatable, allowed control"). True, protects slaughterhouses. contexts, discrimination strong. equally strong targeted activity, discrimination. blind suppress 53 §§ 12.70(B)(8) (1978), 12.70(B)(17) Angeles, 12.02 ("The article consolidate coordinate existing provisions plan order encourage appropriate health, safety, general welfare ..."). All suggests nature 54 employ usual rigorous covert attack so. language doctrine 55 began noting restriction. "by terms [was] trade, maintain generally protec[t] preserv[e] [the city's] neighborhoods, districts, life, expression views." (internal quotation marks omitted). premise, designated neutral." 56 appeared recognize, fiction, which, perhaps, kept phrase quotes. all, face it; describes And "treat[ed] specialize differently kinds theaters." 47. fiction neutral" perhaps confusing helpful, demonstrates, 457 commanded adherence. Chicago Park Dist., 534 316, 322, (2002) (suggesting licensing scheme targeting purveying explicit neutral). call 57 reasons discussed above, sound: Generally, restrict content, exceptions rule. 126-127 (Kennedy, automatically specter discrimination, prima facie legitimate purpose: use. experience, newspapers. context built-in rebuts presumption restrictions unconstitutional. reason, apply 58 narrow "because combinations judicially approved statutory precedent jurisdictions." questions. what advance secondary-effects ordinance? how proposition? skips gives answer; attention first. 59 identify show intact. shorthand identifying proportion. point, SOUTER. 457. 60 somewhat different. (1) activity"; (2) "having proximity"; (3) "reducing rates." Ante, 436. 61 propositions inferences sensible. syllogism capture inquiry. fare discussed, suffice inconvenience lead reasoning easily tax: Increased prices demand, mean justified manner. 221 (1987); 123 trick audience; indirectly attacking 62 few cutting half probably proportionately. again, promised proportional reduction suffice. Content-based taxes achieve impermissible. 63 down. conundrum. Souter writes, claims proliferation establishments." 461. claim, split statute. 64 after proved ask presented: this, 51-52 conduct new already generated cities, whatever relies relevant addresses"); Young, ("[T]he solutions admittedly serious problems"); 300-301 matter, secondguessing fact-bound assessments planners. knows streets do. 665-666 (1994); entitled knowledge; appear conclusion. 65 experience. shows Two critical mass unsavory characters, rate increase result. sought here, assume constitutional. 66 posit door 100 per day. apart each. (Two patrons, discouraged separation relatively small speech.) dramatic, mass. Depending economics vice, potential customers/victims coterie thieves, prostitutes, ne'er-do-wells; all. so, great Indeed, absence audience speech; people who two-stop shopping, encouraged hospitable surroundings. eliminated whatsoever, speaker interests served. 67 remains door. conclusion Dispersing little. IV 68 policies examined, face. assumptions unsound trial, withstand survive ordered 69 whom GINSBURG join, BREYER joins dissenting. 70 studied sections low catering market erotic. location depressed basis, followed examples cities adopting dispersion constitutional adopted, see, (1976), valid today.1 subsequently forbid clusters address, mall. has, turn, taken amendment proprietor doing combines selling books, magazines, videos, consisting open booths, purchasers videos 72 From policy dispersing moved dividing two. claimed remains, survey, supplemented authority decided regulating State. infra, 461-462, survey breakup policy. Its insufficiency emphasis principal respectfully today. 73 stands falls speak contrasted demanding expression. variants middle-tier tests cover grab bag restrictive statutes, corresponding variety justifications. spoken uniformly calling strict, receives mid-level raises risk worth being clear, then, get, care. 74 applies said, carries imposed message disagreeable listeners readers, government. Consolidated Edison Co. Public Serv. Comm'n Y., 447 530, 536 (1980) ("[W]hen action scrutinized carefully officials disapprove speaker's views" omitted)). tailoring it, States Playboy Group, 803, 813 (2000); since protecting offense government, Cohen California, 403 15, 24-25 (1971), survivors. 75 comparatively softer reserved message, straightforward going relaxed. No disagree loudspeaker morning, Kovacs Cooper, 336 77 (1949); sentiment provoke, blasted sound sleep does. "narrowly tailored leave[s] ample channels information." Clark Community Creative Non-Violence, 468 288, 293 (1984). through otherwise nonexpressive purposes, best known example destroying draft cards act protest, O'Brien, 391 367 (1968); here passes muster "if furthers suppression expression" "no essential furtherance interest," id., 377. mentioned already, responding principally declining values (1986).2 76 called 46, equating mere jumps difference them. loudspeakers obvious substance broadcast, obviously burdened clearly products content. recognized kind limbo full-blown, contentbased said. give label own, correlated, describe keep alert poses. lies selectively precisely identified, censorship. refers reflecting favorable sex practices depicts; turning viewpoint, disapprove. 78 viewpoint simple safeguard, however. combating devaluation truly possible exist, caused zoning, expected enhance capacity combat (say, concentrating area), practical problems eliminating excuse speaking akin regulations. 79 examining causal relationships (distinct disagreement), mitigation stress needs placed demonstration Metromedia, San Diego, 453 490, 510 (1981) ("[J]udgments defying objective evaluation determine rationalization purpose"); 84 (Powell, concurring) ("[C]ourts possibility using zone pretext expression"). weaker facts disapproval "adult" likelihood nothing condemnation drives regulation.3 80 Equal point anything Herculean. muggings, readily observable, often untrained eye officer planner. harms statistics, value, available distilled experiences comparable 51; 55. 81 available, reviewing wary appeals, evidence, uncritical effort illegitimate demonstration. proof varies established, appealed analogous cases, disagreed took us. 313, substituting statistics valuations, lest gathered highly debatable. point. become commonplace, neighboring used purposes. fact, unjustified 39, 45. 82 lesson lesser contentcorrelated government's failure contrary, demands Schad Mount Ephraim, 452 61, 72-74 (1981). containing isolated left By token, elimination 83 referred studies, undertaken varying degrees formality, geographical correlations enhanced 50-51; legislation fresh published investigations "reasonably" thought applicable setting, 51-52, responsibility enquiry, 35-162. mentioned, inconclusive 45, reported association 43, 1978 theaters. today, accepted render manageable way. now matter. My concern itself, conglomeration store, cluster brings about, ante, unsupported, supposed book question, break up. course, ostensible splitting once one. limiting sale such, clear disclaim intent. 54.4 85 apparently produces result town another.5 says words proffers lawfully treats one, 81-82, (as basic ordinance) degree above norm; anecdotal assumption. sheds light position, skepticism, observed. supposition, up whatever.6 86 inescapable previously effects.7 Since acceptable premises, spacious traffic, "minimalls," 436, proposes involved traditionally exemplify mall They commonly combined, itself recognizes, 438, continue turn (or send search neighborhoods), speculation marginally measurable exist place.8 87 bolstered, think, 439, " `reasonable problems,'" 52. overlooks key distinction (and 1978), municipalities' choosing strategies deal strategy tied businesses' location, effects: concentrate concentrated regulatory strategy, efforts. limitations tying owners carried beyond heavier Court. 88 lacking demonstrable control. longer accepts choose four walls, bars commercially natural, universal. 47-51, 229-230, 242. Whereas gave choice causally related today "experiment" response bookstore-arcades standing alone. experimentation displace realizing objective, policing guess enforcement, cry assurance regulation.9 89 witness involves guesswork. take enforcing presumably multiply offsetting gain obtain answer lie entail overheads one: monthly rents, electricity bills, payrolls. Every month expensive be, twice much. sounds good driving sounds, words, 90 dissent. Althoughamicus recent Amicus Curiae 21-23, reach. Limiting qualifies ends alternativesRenton, thereby glossed role infra page 457, believe soft test favor (1968), formulation quoted above. O'Brien closer relative recognized. 289 Regulation level seeCentral Hudson Gas Elec. Corp. 557, 569 (1980), instructive parallel cloak motive. Rubin Coors Brewing 514 476, 487 (1995); Edenfield Fane, 507 761 (1993). "burden satisfied conjecture," "demonstrat[ing] government] recites real alleviate degree." 770-771. unless "critical" met, Rubin, 487, ease service objectives themselves expression," Edenfield, 771. curbing bookstore-arcades. InHart (1979), county inspection several bookstore-video Wake County, Carolina. revealed salacious taking cubicles. introduces defend deter event, dispense "whatever [be] addresses," November enactment doors, setting minimum lighting, interiors fully visible entrance premises. 103.101(i), (j). un sanitary indication further. indulges stating (but ones): [which] activity."Ante, InRenton, "aimed preventing neighborhood." rise recognizing sensibility proliferate 438. contradict implicated exclusively tellingly silent bearing noted, 1,supra, amicus thing, connection. indulge "leav[e] intact."Ante, suggestion speculated content-correlated slightly turns head. filter unduly achieved 301; 2, Kennedy "substantially intact." posits separately 49. 452. follow, bookstore-arcade split, yield nearly customers. Given double outlays locations, 466, outcome stand-alone business. (Of owner could, charge, feasible rule effects.) "motive" compartmentalized proffer scheme,ante, 440-441, indulgent unrealistic degree, shows. When 1978, fair When, takes breaking affected breakup, addresses concern. eyes failings emphasizing ignores plain action.

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