Document: 475 U.S. 41 106 S.Ct. 925 89 L.Ed.2d 29 CITY OF RENTON, et al., Appellantsv.PLAYTIME THEATRES, INC., al. No. 84-1360. Argued Nov. 12, 1985. Decided Feb. 25, 1986. Rehearing Denied April 21, See 1132, 1663. Syllabus Respondents purchased two theaters in Renton, Washington, with the intention of exhibiting adult films and, at about same time, filed suit Federal District Court, seeking injunctive relief and a declaratory judgment that First Fourteenth Amendments were violated by city ordinance prohibits motion picture from locating within 1,000 feet any residential zone, single- or multiple-family dwelling, church, park, school. The Court ultimately entered summary city's favor, holding did not violate Amendment. Appeals reversed, constituted substantial restriction on Amendment interests, remanded case for reconsideration as to whether had governmental interests support ordinance. Held: is valid response serious problems created satisfies dictates Cf. Young v. American Mini Theatres, Inc., 427 50, 96 2440, 49 310. Pp. 46-55. (a) Since does ban altogether, it properly analyzed form place, manner regulation. "Content-neutral" regulations are acceptable so long they designed serve interest do unreasonably limit alternative avenues communication. 46-47. (b) found Renton City Council's "predominate" concerns secondary effects surrounding community, content themselves. This finding more than adequate establish pursuit its zoning was unrelated suppression free expression, thus "content-neutral" speech 47-50. (c) while allowing reasonable A attempting preserve quality urban life, here, must be accorded high respect. Although enacted without benefit studies specifically relating Renton's particular problems, entitled rely experiences of, produced by, nearby Seattle other cities. Nor there constitutional defect method chosen further interests. Cities may regulate dispersing them, effectively concentrating Renton. Moreover, "underinclusive" failing kinds businesses, since no evidence that, time enacted, business located in, contemplating moving into, 50-53. (d) As required Amendment, allows respondents argue general "commercially viable" theater sites limited area land left open such ordinance, fact fend themselves real estate market, an equal footing prospective purchasers lessees, give rise violation which compel Government ensure theaters, speech-related will able obtain bargain prices. 53-54. 748 F.2d 527 (CA9 1984), reversed. REHNQUIST, J., delivered opinion BURGER, C.J., WHITE, POWELL, STEVENS, O'CONNOR, JJ., joined. BLACKMUN, concurred result. BRENNAN, dissenting opinion, MARSHALL, joined, post, p. 55. E. Barrett Prettyman, Jr., D.C., appellants. Jack R. Burns, Bellevue, Wash., appellees. Justice REHNQUIST Court. 1 involves challenge appellant Appellees, Playtime Sea-First Properties, action United States Western Washington permanent injunction against enforcement. ruled favor denied injunction, but Ninth Circuit reversed reconsideration. (1984). We noted probable jurisdiction, 471 1013, 105 2015, 85 297 (1985), now reverse Circuit.1 2 In May 1980, Mayor approximately 32,000 people just south Seattle, suggested Council consider advisability enacting legislation dealing entertainment uses. No uses existed time. Upon Mayor's suggestion, referred matter Planning Development Committee. Committee held public hearings, reviewed cities, received report Attorney's Office advising developments Council, meanwhile, adopted Resolution 2368, imposed moratorium licensing "any . has primary purpose selling, renting showing sexually explicit materials." App. 43. resolution contained clause explaining businesses "would have severe impact upon residences." Id., 42. 3 1981, acting basis Committee's recommendation, Ordinance 3526. prohibited "adult theater" one mile Juris. Statement 79a. term defined "[a]n enclosed building used presenting films, video cassettes, cable television, visual media, distinguished characteri[zed] emphasis depicting, describing 'specified sexual activities' anatomical areas' observation patrons therein." 78a. 4 early 1982, acquired existing downtown using them exhibit feature-length films. proscribed At previously mentioned lawsuit challenging grounds, relief. While federal pending, amended several respects, adding statement reasons enactment reducing minimum distance school feet. 5 November Magistrate whom respondents' been recommended entry preliminary enforcement denial motions dismiss judgment. Magistrate's recommendations began their Shortly thereafter, parties agreed submit final decision should issue record already developed. 6 then vacated requested court substantially restrict show specific adverse operation could purposes speech, restrictions greater necessary involved. Relying 310 (1976), O'Brien, 391 367, 88 1673, 20 672 (1968), 7 first concluded, contrary Then, standards set forth supra, improperly relied cities lieu failed adequately existence event asserted shown expression. 8 our view, this largely dictated supra. There, although five Members agree single rationale decision, we Detroit's "regulated uses" 500 Amendments. U.S., 72-73, S.Ct., 2453 (plurality joined WHITE JJ.); id., 84, 2459 (POWELL, concurring). like merely provides therefore 63, n. 18, 2448 18; 78-79, 2456 9 Describing regulation is, course, only step inquiry. restraining presumptively Carey Brown, 447 455, 462-463, 7, 100 2286, 2291, 65 263 (1980); Police Dept. Chicago Mosley, 408 92, 95, 98-99, 92 2289, 2291-2292, 33 212 (1972). On hand, so-called Clark Community Creative Non-Violence, 468 288, 293, 104 3065, 3069, 82 221 (1984); Los Angeles Taxpayers Vincent, 466 789, 807, 2118, 2130, 80 772 Heffron International Society Krishna Consciousness, 452 640, 647-648, 101 2559, 2563-2564, 69 298 (1981). 10 glance, appear fit neatly into either "content-based" category. To sure, treats specialize differently theaters. Nevertheless, aimed theatres," rather community. "predominate concerns" 31a (emphasis added). But Appeals, relying Tovar Billmeyer, 721 1260, 1266 1983), enough sustain According if "a motivating factor " exercise rights would invalid, apparently how small part played decision. F.2d, 537 original). view law rejected 382-386, 1681-1684, very said applying: "It familiar principle strike down otherwise statute alleged illicit legislative motive. 11 * 12 ". What motivates legislator make necessarily what scores others enact it, stakes sufficiently us eschew guesswork." 383-384, 1683. 13 Court's intent, undisturbed here terms prevent crime, protect retail trade, maintain property values, generally "protec[t] preserv[e] [the city's] neighborhoods, commercial districts, life," suppress expression unpopular views. 90a. POWELL observed "[i]f city] concerned restricting message purveyed tried close number circumscribe choice location." 82, 4, 2458, 4. 14 short, completely consistent definition those "are justified reference regulated speech." Virginia Pharmacy Board Citizens Consumer 425 748, 771, 1817, 1830, 48 346 (1976) added); 3069; 648, 2564. contravene fundamental underlies concern regulations: "government grant use forum whose views finds acceptable, deny wishing express less favored controversial views." 95-96, 2289-2290. 15 It understanding mind majority decided least respect purvey materials,2 ordinances combat undesirable under applicable regulations. writing plurality, concluded Detroit draw distinction between "without violating government's paramount obligation neutrality protected communication," 70, 2452, noting "[i]t th[e] effect these attempt avoid, dissemination 'offensive' speech," 71, 34, 2453, 34. concurrence, elaborated: 16 "[The] dissent misconceives insisting impermissible based nothing kind. treat certain movie because markedly different surroundings. even involving special type movie, possible result supported line cases recognizing government can tailor reaction types according degree overriding implicated. 17 See, e.g., Tinker Des Moines School Dist., 393 503, 509-511 [89 733, 737-739, 21 731] (1969); Procunier Martinez, 416 396, 413-414 [94 1800, 1811, 40 224] (1974); Greer Spock, 424 828, 842-844 [96 1211, 1219-1220, 47 505] concurring); cf. CSC Letter Carriers, 413 548 [93 2880, 37 796] (1973)." 6, 6. 18 appropriate inquiry case, then, 649, 654, 2564, 2567. clear meets standard. recognized "interest life respect." opinion); see 80, 2457 concurring) ("Nor doubt furthered both important substantial"). Exactly vital stake here. 19 ruled, however, "the needs Renton," justifications "conclusory speculative." 537. think unnecessarily rigid burden proof. reveals heavily experience Seattle. preventing caused presence given neighborhood. Northend Cinema, Inc. 90 Wash.2d 709, 585 P.2d 1153 (1978). Supreme before when question described Seattle's follows: "The amendments City's code culmination period study discussion areas City. [T]he Department made need controls scheme, comprehensive plan, around ." 711, P.2d, 1155. "[T]he [trial] heard extensive testimony regarding history ordinances. expert neighborhood children community improvement efforts. court's detailed findings, include location harmful contribute blight, record." 713, 1156. 22 replete locations neighborhoods." 719, 1159. 23 hold "detailed findings" summarized Cinema require city, conduct new produce independent generated whatever relies reasonably believed relevant problem addresses. That affected chose remedy call identification relevance 24 also find Detroit, function appraise wisdom separated concentrated areas. allowed opportunity experiment solutions admittedly problems." opinion). "narrowly tailored" affect category unwanted effects, avoiding flaw proved fatal Schad Mount Ephraim, 61, 2176, 68 671 (1981), Erznoznik Jacksonville, 422 205, 95 2268, 45 125 (1975). 25 contend "under-inclusive," fails likely similar contention fail. There fact, October states not, present sale, rental, address potential kind way suggests "singled out" discriminatory treatment. simply assuming future, amend Williamson Lee Optical Co., 348 483, 488-489, 75 461, 464-465, 99 L.Ed. 563 (1955). 26 Finally, turning communication, note leaves some 520 acres, percent entire sites. found, dispute finding, acres consists "[a]mple, accessible estate," including "acreage all stages development raw developed, industrial, warehouse, office, shopping space criss-crossed freeways, highways, roads." 28a. 27 argue, occupied "practically none" undeveloped currently sale lease, Brief Appellees 34-37. accepted arguments,3 truly "available" land, restriction" speech. 534. 28 disagree reasoning conclusion Appeals. violation. And cautioned suppressing, greatly access to, lawful 35, 35 opinion), never compels matter, 78, ("The economic impact"). requires refrain denying operate easily requirement. sum, represents "admittedly problems" power zone pretext suppressing expression," concurring), sought available patrons, preserving large This, after all, essence zoning. Here, goals satisfying Amendment.4 30 Reversed. 31 BLACKMUN concurs 32 MARSHALL joins, dissenting. selectively imposes limitations exclusively there. constitutionality correctly applied content-neutral restrictions. fairly characterized neutral, plainly unconstitutional established decisions analysis "businesses materials," ante, 49, 2, holdings state I dissent. 34 "[A] constitutionally permissible subject Consolidated Edison Co. Public Service Comm'n N.Y., 530, 536, 2326, 2332, 319 (1980). asserts "aimed 'adult theatres,' community," original), regulation.1 misguided. cause "secondary" land-use arguably compelling reason establishments; mean, neutral. Because content, cannot accept, does, claim movies. "[W]hen scrutinized carefully communication 'merely officials disapprove speaker's views.' 2332 (quoting Niemotko Maryland, 340 268, 282, 71 325, 333, 267 (1951) (Frankfurter, concurring result)). "[B]efore deferring [Renton's] judgment, [we] convinced seriously comprehensively addressing" secondary-land associated Metromedia, San Diego, 453 490, 531, 2882, 2904, 800 (1981) (BRENNAN, judgment). language dubious belie expression." Ante, 48. A. 36 discriminates face forms content. Movie specializing pictures" Other entertainment," bars, massage parlors, bookstores, selective treatment strongly interested controlling "secondary effects" discriminating exhibit. ignores treatment, declaring "to business," 52-53, future enterprises. 53 (citing (1955)).2 However, one-step-at-a-time wholly inappropriate. "This frequently upheld underinclusive classifications sound theory legislature deal addressing it. presumption statutory validity, force classification turns '[A]bove else, means message, ideas, content.' [92 2290]." 215, 2275, 38 treating businesses. ordinance's underinclusiveness cogent B 39 commenced, provision adopting promote great protecting through effective planning." 81a. lists conclusory "findings" concerning purportedly 81a-86a. points provisions control "legislative history" otherwise. Prior amendment, indication might create. addition suspiciously coincidental timing many relate legitimate concerns. observed, "[b]oth magistrate district stated expressions dislike matter." 527, 1984).3 residents offended Terminiello Chicago, 337 1, 894, 93 1131 (1949). Some added supposed theaters.4 cannot, accept post hoc statements value. validity traditionally attends local powers carries little, any, weight where trenches Amendment." 77, 2187, (BLACKMUN, "[t]he presented thin." 536. 42 summarize hearings. none ever recorded preserved, official reported objected having unable recount schools, churches, parks, residences "protected" 190-192. conducted studies, testimony, theater, considered residents' met "restrictions intrusive Schad, 74, 2186. result, adopt locational requirements purely speculative conclusions. Such justify burdens 43 holds studying establishments. actually determining needs.5 "studies" provide assessing effectiveness ordinance.6 "justify context problems—not 536 44 circumstances suggest protected, restriction. conceal motives, reliance communities approach immunizes measures judicial scrutiny, municipality readily municipal upon, always retrospectively justifying theaters.7 Rather speculate motives measures, content-based "only [city] [it] precisely drawn serving [governmental] interest." 540, 2334; 461-462, 2290-2291, 99, 2292, Only strict insure Applying standard facts patently unconstitutional. proximity effects," addressed II 46 Even treated restriction, still "[R]estrictions provided narrowly tailored significant interest, leave ample channels information." applying standard, "fails scrutiny expressive activity remains unnecessary limitations." 301, 3073 (MARSHALL, dissenting). "evidently [and wrongly] assumes balance struck [Renton] deserving deference tainted discrimination." 315, 3080. Under proper application standards, clearly "preserv[ing] life." 50. explained above, insufficient assertion. theater. Thus, distinguishable (1976). disperse throughout planners experts 55, 2445; 1153, 1154-1155 (1978), cert. sub nom. Apple Theatre, 441 946, 2166, 60 1048 (1979) (Seattle "culmination discussion"). aware complained localities These "facts" sufficient invalid sites, comprising city. much occupied, "[l]imiting Many unsuited 231, 241. Again, distinguish Theaters, opinion) situation quite speech"); Basiardanes Galveston, 682 1203, 1214 (CA5 1982) (ordinance banned 'the most unattractive, inaccessible, inconvenient city' "); Purple Onion, Jackson, 511 F.Supp. 1207, 1217 (ND Ga.1981) (proposed "unavailable, unusable, inaccessible amount locations"). Despite record, "[t]hat violation." 54. argues prices." Ibid. ask guarantee low-price seek By opportunity, borders. "greatly restrict[s] appeal taken U.S.C. § 1254(2), appellate jurisdiction behest party appeals. noted, 1254(2) review nonfinal South Carolina Electric & Gas Flemming, 351 901, 76 692, 1439 (1956); Slaker O'Connor, 278 188, 158, 73 258 (1929). Atchison, T. S.F. 357 82-83, 78 1063, 1066-1067, 1174 (1958). seeks remanding resolve certiorari 2103. done equivalent situations, El Paso Simmons, 379 497, 502-503, 577, 580-581, 446 (1965); Doran Salem Inn, 922, 927, 2561, 2565, 648 (1975), papers petition certiorari, writ certiorari. Henceforth, shall refer "petitioners" "respondents." 2452 ("[I]t manifest society's different, lesser, magnitude untrammeled political debate ."). Appeals' rejection findings stemmed belief, expressed elsewhere Bose Corp. Consumers Union States, 485, 1949, 502 (1984), courts duty de novo mixed principles. 535 correctness interpretation Corp., determine review, disturbed. "alternative basis" affirming violates Equal Protection Clause apparent preceding discussion, fare better itself. 63-73, 2448-2454. unconstitutionally vague. More particularly, buildings "used" describes continuing course [sexually films] appeals prurient 96a. reject "vagueness" argument led "used material matter]." 53, 2444. "even uncertainty litigants, unquestionably respondents." 58-59, 2446. "significant deterrent effect" invocation "overbreadth" doctrine. 59-61, 2446-2448. comfort "deny 48-49. discrimination rendered odious" distinguishes "among classes among class." Lehman Shaker Heights, 418 298, 316, 94 2714, 2724, 770 (1974) dissenting); 537, 2333, (1980) Amendment's hostility extends viewpoints, prohibition topic"). viewpoint neutral flawed. "As practical suppressed involved [here] almost invariably carry implicit, explicit, relaxed mores. restrictions, words, potent viewpoint-differential impact. viewpoint-neutral seems ignore reality." Stone, Restrictions Speech Content: Peculiar Case Subject-Matter Restrictions, U.Chi.L.Rev. 81, 111-112 explains "[t]here Renton." 52. considering For example, "finding" "[l]ocation main thoroughfares gives impression legitimacy causes loss sensitivity pornography children, family relations, marital relationship sanctity marriage relations others, concept non-aggressive, consensual relations." 86a. "Finding" uses, facilities, degradation morality. Pornographic degrading spouses." parks lead increased levels criminal activities, prostitution, rape, incest assaults vicinity uses." 83a. amendment passed intended (1979), attack. despite suspicious "Renton 'detailed findings' opinion." 51. Wash.2d, explain purports summarize, Renton's. observed: "Although copy Seattle's, solve manner. deteriorate due concentration contrast, concentrate place whole bear them. allegedly churches areas—from perceived unfavorable theater." commentator noted: "[A]nyone knowledge human nature naturally assume antipathy legislators ideas information being suppressed. logical assumption, improper motivation but, rather, human, risk consideration colored deliberative process." supra 106.

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