Document: 529 U.S. 217120 S.Ct. 1346146 L.Ed.2d 193 NOTICE: This opinion is subject to formal revision before publication in the preliminary print of United States Reports. Readers are requested notify Reporter Decisions, Supreme Court States, Washington, D. C. 20543, any typographical or other errors, order that corrections may be made goes press.BOARD OF REGENTS THE UNIVERSITY WISCONSIN SYSTEM, PETITIONERv.SCOTT HAROLD SOUTHWORTH et al. No. 98 1189. SUPREME COURT UNITED STATES Argued November 9, 1999 Decided March 22, 2000 CERTIORARI TO APPEALS FOR SEVENTH CIRCUIT Syllabus Petitioner, Board Regents University Wisconsin System (hereinafter University), requires students at University's Madison campus pay a segregated activity fee. The fee supports various services and extracurricular student activities. In view, such fees enhance students' educational experience by promoting activities, stimulating advocacy debate on diverse points enabling participation administrative activity, providing opportunities develop social skills, all consistent with broad mission. Registered organizations (RSO's) engaging number expressive activities eligible receive portion fees, which administered government approval. parties have stipulated process for reviewing approving RSO applications funding viewpoint-neutral fashion. RSO's also obtain through referendum. Respondents, present former students, filed suit against University, alleging, inter alia, violates their First Amendment rights, must grant them choice not fund engage political ideological expression offensive personal beliefs. granting respondents summary judgment, Federal District declared program invalid under Abood v. Detroit Bd. Ed., 431 209, Keller State Bar Cal., 496 1, enjoined from using speech. Agreeing this Court's compelled speech precedents control, Seventh Circuit concluded was germane mission, did further vital policy, imposed too great burden respondents' free rights. It added protecting those rights heightened concern following Rosenberger Rector Visitors Univ. Va., 515 819, because if could discriminate distributing funds, extended requiring used engaged expression. Held: 1. permits public university charge its an facilitate speech, provided viewpoint neutral. exacts issue sole purpose facilitating open exchange ideas by, among, students. Objecting however, insist upon certain safeguards respect they required support. forum cases instructive here close analogy. Because complaining subsidize find objectionable, even offensive, acknowledged implicated. cases, held service paid nonunion employees union, Abood, supra, 213, lawyers who were join state bar association, Keller, 13 14, organizations' purposes but own While these identify protesting interests, standard unworkable context gives insufficient protection both objecting itself. Even union context, has encountered difficulties deciding what not. becomes more unmanageable setting, particularly where, as here, undertakes stimulate whole universe ideas. To asking would contrary very goal seeks pursue. vast extent permitted underscores high potential intrusion students'First it inevitable will some objectionable offensive. A protect allowing optional refund system, system constitutional requirement. If determines mission well served means dynamic discussion range issues, impose mandatory sustain dialogue. provide however. proper measure, principal requirement neutrality allocation obligation given substance concerned student's right use already place. instant case considers antecedent question whether require creates mechanism first instance. dimensions programs operational principle. There symmetry then holding Rosenberger. Pp. 9 14. 2. respects principle neutrality, basic structure found Amendment. decision makes no distinction between off-campus activities; ought taken imply when agents, employees, faculty speak, analysis controls case. 15 16. 3. developed record, referendum aspect appears permit defunding majority vote body. substitutes determinations undermine requires. 16 17.151 F.3d 717, reversed remanded. Kennedy, J., delivered Court, Rehnquist, O'Connor, Scalia, Thomas, Ginsburg, JJ., joined. Souter, concurring Stevens Breyer, Opinion Justice Kennedy Court. 1 For second time recent years we consider questions arising designed university. Respondents group Wisconsin. They brought challenge petitioner part support object organizations. Relying our members unions associations being Appeals invalidated program. contends appropriate 2 We reverse. do sustain, program, exaction violation As remand proceedings. 3 * corporation See Wis. Stat. §36.07(1) (1993 1994). law defines terms: "to human resources, discover disseminate knowledge, extend knowledge application beyond boundaries campuses serve society developing intellectual, cultural humane sensitivities sense purpose." §36.01(2). Some 30,000 undergraduate 10,000 graduate professional attend campus, ranking among Nation's largest institutions higher learning. Students come renowned 50 72 foreign countries. Last year marked 150th anniversary; celebrate distinguished history, sponsored series research initiatives, forums workshops, historical exhibits, lectures, reaffirming commitment explore 4 responsibility governing vested board regents. §36.09(1). same empowers share aspects governance. One functions administer By statute "[s]tudents consultation chancellor final confirmation [of regents] shall disposition constitute substantial activities." §36.09(5). so, large government, called Associated (ASM), ASM subcommittees. maintains undertaken many controversy. 5 seems since founding full-time enrolled nonrefundable App. 154. 1995 1996 academic year, commenced, amounted $331.50 per year. tuition charge. Once collected, deposited into accounts Id., 9. drawn "enhance experience" "promot[ing] activities," "stimulating view," "participa[tion] activity," participa[tion] "opportunities skills," 154 155. 6 regents classifies allocable nonallocable portions. approximates 80% total covers expenses health services, intramural sports, debt service, upkeep operations facilities. 13. commits 37. 7 endeavors pursued registered RSO's. qualify status organize not-for-profit group, limit membership primarily agree undertake related life campus. 15. During school 623 groups had 255. name few, included Future Financial Gurus America; International Socialist Organization; College Democrats; Republicans; American Civil Liberties Union Campus Chapter. one expect, content, displaying posters circulating newsletters throughout hosting debates guest speakers, can best described lobbying. 8 three ways. Most so seeking Student Government Activity Fund (SGAF), ASM. SGAF moneys issued events, travel "central organization." 18. alternative, apply General Services (GSSF), ASM's finance committee. received GSSF funding. These tutoring center, radio station, environmental gay bisexual community legal office, AIDS network, women's Public Interest Research Group (WISPIRG). 17. acknowledges that, addition (e.g., counseling), GSSF-funded Brief Petitioner 10. GSSF, SGAF, consists originating funding, "[t]he allocations fashion," 14 15, does "advocating particular point 39. 10 provides third record sparse feature inform us body either approve disapprove assessment RSO. resulted $45,000 WISPIRG during At oral argument, counsel operate defund veto October 1996, example, voted terminate national organization belonged. 215. Both confirmed argument stipulation regarding program's process. Tr. Oral Arg. 19, 29. 11 With committee initial decisions. session, interested meetings discussed. results Approval pro forma, advised "voluntarily views th[e] binding." approves application, forwards review 18, 19. Approximately 30% 12 RSO's, general rule, lump-sum cash distributions. Rather, reimbursement basis submitting receipts invoices University. Guidelines reimbursement. Permitted expenditures include, main, costs printing, postage, office supplies, facilities equipment. Materials printed contain disclaimer expressed reimburses "other non-profit organizations." 251. policy establishes expended. "[g]ifts, donations, contributions," "[a]ctivities politically partisan religious nature." 251 252. (The give examples prohibited expenditures.) separate statement states "does orientation (i.e. group)." 238. adds "shall [student fees] lobbying purposes." Ibid. brief suggest prohibition "politically partisan" renders 31. view fact entered outset litigation, again reiterated Organization Handbook guidelines regulating conduct obligating adhere rules regulations, establish procedures authorizing complain noncompliance. An extensive investigative place evaluate remedy violations. includes sanctions noncompliance, including probation, suspension, termination status. manner distinct others WISPIRG. reasons clear receives distributions informed distribution reduced pool. full uses puts funds unclear. know, on-campus events homelessness consumer issues. 348. coordinated food drives spent efforts parent internships aimed influencing legislation. 344, 347. respondents, each whom attended still Western alleged, imposition violated exercise contended injunctive declaratory relief. On cross-motions ruled favor, declaring 209 (1977), (1990). decided disagree" freedom association. Pet Cert. 98a. court reach claim. 17 affirmed part, vacated part. Southworth Grebe, 151 717 (1998). done, controlling. After examining three-part test outlined Lehnert Ferris Faculty Assn., 500 507 (1991), much "[L]ike Abood," reasoned, interest contribute whose conflict F.3d, 731. "of concern" 819 (1995), "[i]f cannot disbursement imperative only way individual's rights." F.3d., 730, n. 11. 735. 18 Three dissented denial motion rehearing en banc. panel overlooked "crucial difference money explicitly aims exclusion viewpoints, forum, true here." 157 1124, 1129 (CA7 1998) (D. Wood, dissenting). 19 Other courts addressing challenges similar reached conflicting results. Compare Rounds Oregon Higher 166 1032, 1038 1040 (CA9 1999), Hays County Guardian Supple, 969 F.2d 111, 123 (CA5 1992), cert. denied, 506 1087 (1993), Kania Fordham, 702 475, 480 (CA4 1983), Good Wash., 86 Wash. 2d 94, 105, 542 P.2d 762, 769 (1975) (en banc), Smith Cal. 4th 843, 862 863, 844 500, 513 514 510 863 (1993). conflicts, together importance presented, led certiorari. 526 (1999). reverse judgment Appeals. II 20 adopt pursue policies within powers nevertheless profound beliefs sincere convictions citizens. valid taxes exactions binding parties. Within broader raised advocate defend policies. See, e.g., Rust Sullivan, 173 (1991); Regan Taxation Representation 461 540, 548 549 (1983). decide raise government's right, or, specific, state-controlled advance message. justification fostering challenged springs initiative alone content course endeavors. 21 having disclaimed own, traditional ensure responsible action sufficient overcome objections allow speak financed dollars officials might evaluated premise itself speaker. That us. 22 conclude Our though term despite circumstance most often involve demand access, claim exempt supporting Lamb's Chapel Center Moriches Free School Dist., 508 384 (1993); Widmar Vincent, 454 263 (1981). inconsistent 23 begin recognizing subsidies then, beginning analysis. (1977); interests implementing protections adopted decisions neither applicable nor workable 24 teachers agreement them, condition employment, equal amount dues. U.S., 211 212. alleged union's association guaranteed Fourteenth Amendments. 213. agreed teacher "prevent Union's spending candidates express unrelated duties exclusive bargaining representative." 234. principles foundation later Keller. admitted practice California "germane" association's "regulating profession improving quality services." not, 25 proposition without follows cases. enroll universities seek fulfillment aspirations potential. conditions opportunity college education, comparable joining labor become infringes individual required, recognition State's corresponding duty him her. Yet important wide 26 rule took form limiting subsidy applied unworkable, are, thought, known understood after long history regulation judicial involvement, difficulty manifested where different varying conclusions difficult define ease precision party, 27 encourage discernable limits vast, unexplored bounds. say institution 28 Just inappropriate intervention, underscore result inapplicable, argued list causes he she better protected type so. decline sort requirement, restriction disruptive expensive ineffective. put risk. 29 determine discussions philosophical, religious, scientific, social, subjects outside lecture hall. reaches conclusion, entitled dialogue ends. 30 conclude, Viewpoint gave (1995). Virginia feared newspaper advancing viewpoints violate Establishment Clause. rejected school's adherence administering prevent "any mistaken impression newspapers University." 841. place, today's question, unresolved Rosenberger: When discussion, prefer others. instance ensuring integrity operation once been collected. 31 neutrality. continue control case, 32 make Those tell us, bear relationship reason imposing instance, foster vibrant shares concerns, enact neutral restricting create tantamount limited respected. Cf. id., 829 830. principled way, matter, geographic spatial restrictions RSOs' entitlement Universities possess significant encouraging take advantage civic, cultural, available surrounding communities country. Universities, like society, finding conceptions territorial age revolutionary changes communications, information transfer, discourse. respected, affords latitude adjust accommodate advances opportunities. 33 instances agents faculty, Where speaks, officers, myriad ways faculties, likely altogether different. 540 held, suggested, speaks discussed play. 34 promote idea, is, end, accountable electorate advocacy. citizenry objects, newly elected espouse position. agents. furthermore, instructor professor considered. Rosenberger, 833 (discussing discretion matters relating mission). III 35 remains discuss point, funded defunded. unclear protection, any, there theory minority treated views. Access depend majoritarian consent. controlling here. necessary resolve point; reexamined light 36 reversed, remanded proceedings opinion. costs. 37 ordered. 38 Breyer join, judgment. 39 today validates new category protection. I scheme permissible, believe should occasion cast-iron uphold it. ante, Instead, hold claimed Southworth) simply merit anything than accorded go further.1 40 basis, assumption. thus properly cast relief specific scheme.2 Two sources considered answering question. 41 comprises grouped umbrella freedom.3 Such implicated proffered rationale, integral element discharge 253 (excerpt Dean Office noting "'second curriculum'"); 41, 42 44 (statement Associate UW-Madison scheme); see understanding merely liberty restraints expression, academy, idea schools about how teach. Mich. Ewing, 474 214 (1985), recognized conceptions: "Academic thrives independent uninhibited also, somewhat inconsistently, autonomous decisionmaking academy itself." 226, (citations omitted). opinions books emphasize accepted seem clothe immunity regulations obligations So, Sweezy New Hampshire, 354 234 (1957), Frankfurter, joined Harlan, explained university's ability quoting South Africa: " 'It business atmosphere conducive speculation, experiment creation. prevail "the four essential freedoms" grounds teach, taught, study.' 43 statements dispose Ewing addressed burdens university, due decisions, while stopped short absolute autonomy. 12. And Frankfurter's Sweezy, rejected, (opinion result). far dealt subjects, compel conclusion here.4 spoken terms autonomy bars legislatures (and courts) spectrum taught teaching (as recognizes, 13), never lie entirely rights.5 Thus prior one, going out order, litigated freedom. autonomy, enough shape prove consideration fees. 262 264 (Frankfurter, result); avenue Southworth's rata abolition closely circumstances resemble governmental mandates threshold plain falls afield involving controlled apart schemes. Indirectly transmitting fraction message equivalent modifying wishes express. Hurley Irish-American Gay, Lesbian Bisexual Boston, Inc., 557, 572 574 Nor personally, Wooley Maynard, 430 705, 707 let affirm moral commitment, West Ed. Barnette, 319 624, 626 629 (1943). directly offensively collecting indirectly jumble speakers' messages 45 Next, line situation significantly members. Ante, 11; First, payer ultimately attenuated. least drop coffers objection. 215; connection forced contributor ultimate direct unmediated contribution doing speaking. contributor, agency political, character agree) message.6 34, 39, 41. Indeed, disbursements, disputes finds exceptionable. Thus, loomed evident 46 Second, objection less force otherwise carry broaden noted 873 874, 3, 889 891 (1995) (dissenting opinion), tax.7 compels it; accounts; disbursed authority State. §36.09(5) 1994); Although facts fit neatly holdings expressly renounced claim),8 10, tax revenue discourse.9 Buckley Valeo, 424 (1976) (per curiam), congressional Presidential based reasoning: 47 "[The program] effort, abridge, restrict, censor rather enlarge electoral process, goals self-governing people. [the furthers, abridges, pertinent values." 92 93. 48 sphere well. PruneYard Shopping Robins, 447 74 (1980), shopping mall owner's blanket "a private property owner his others." 85 (footnote upheld individuals state-protected property, things danger 'dampe[n] vigor limi[t] variety debate.' 87, 88 (quoting Miami Herald Publishing Co. Tornillo, 418 241, 257 (1974) (alteration original)). payer's 49 Third, distinguishable legitimacy interest. No assertion value derived supported fee, 14; 2, whereas mandating collective regulatory organizations, 223 224; legitimate affirmation propositions bearer speaker agree.10 Wooley, 716 717; 640 642. Finally, weakness underscored setting inevitably personally thought constitutionally unless prepared deny over payments offerings ideologically paying professors radically odds politics Least anyone somehow offer courses satisfy 892 893, (Souter, dissenting).The need junior abroad North Korea France, instruct plutocracy democracy, teach Nietzsche St. Thomas. Since (not stay college) obviously does, stronger refund. 51 sum, administered, further, respectfully concur NOTES: my examination solely scheme; adequately Courts Appeals, 16, nothing subject. Under reasoning, accordingly. Stipulation 12, condition, ground one. Wieman Updegraff, 344 183, 195 (1952) concurring); 234, 250 (1957) (plurality opinion); Shelton Tucker, 364 479, 487 (1960); Keyishian N. Y., 385 589, 603 (1967). teachers' associations, Regents, 591 592; 487; 236; 184 185, dealing confined schools, Hazelwood Dist. Kuhlmeier, 484 260, (1988); Bethel 403 Fraser, 478 675, 677 (1986); Tinker Des Moines Independent Community 393 503, 504 (1969), schools' relation arguably counterparts education. acceptance African manifesto quoted Frankfurter) sanction codes universities. contexts act communicative element, n.11 National Endowment Arts Finley, 524 569, 611, (1998) allegation necessarily raises concerns 93 curiam). infra, True, college, real estate dividend. Unlike majority, mere disclaims takes scope jurisprudence directed generally questioned "spacious discretion" allocate funds. dissenting) (citing (1983)). Of course, promotes religion, 882 objective distinguishes objected evangelism. 868 871

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