Document: 478 U.S. 328 106 S.Ct. 2968 92 L.Ed.2d 266 POSADAS DE PUERTO RICO ASSOCIATES, Condado Holiday Inn, Appellantv.TOURISM COMPANY OF RICO. No. 84-1903. Argued April 28, 1986. Decided July 1, Syllabus Puerto Rico's Games of Chance Act 1948 (Act) legalizes certain forms casino gambling in licensed places order to promote the development tourism, but also provides that "[n]o room shall be permitted advertise or otherwise offer their facilities public Rico." Implementing regulations prohibit advertising parlors Rico permit restricted through publicity media outside Rico. Appellant, a partnership franchised operate Rico, was fined by appellee corporation which is authorized administer Act, for violating restrictions and regulations. Appellant then filed suit against Superior Court, seeking declaratory judgment regulations, both facially as applied appellee, impermissibly suppressed commercial speech violation First Amendment equal protection due process guarantees Federal Constitution. The court held had been unconstitutionally appellant's past conduct, adopted narrowing construction declaring they prohibited local addressed inviting residents visit casinos, not tourists even though it might incidentally reach attention residents. that, based on its laws, statute were constitutional. Supreme Court dismissed appeal ground "d[id] present substantial constitutional question." Held: 1. This has jurisdiction review Court's decision pursuant 28 U.S.C. § 1258(2), authorizes an this from favor validity challenged being repugnant Appellant's federal claims adequately raised at every stage proceedings below, under law appellant right case involved decided question Thus, dismissal want constituted merits affected late filing, Rules Civil Procedure, notice since filing requirement nonjurisdictional, failure dismiss timeliness grounds must viewed waiver requirement. P. 337-339 2. In reviewing facial constitutionality abide constructions announced approved sub silentio Court. would rule originating one 50 States, status Commonwealth dictates application same rule. 339. 3. construed do violate Amendment. pass muster four-pronged test Central Hudson Gas & Electric Corp. v. Public Service Comm'n New York, 447 557, 100 2343, 65 341 (1980). First, particular kind issue concerns lawful activity misleading fraudulent, least abstract, thus entitled limited form protection. Second, interest restricting reduce demand protect health, safety, welfare, constitutes "substantial" governmental interest. Third, "directly advance" government's interest, are underinclusive simply because other kinds may advertised And fourth, no more extensive than necessary serve since, affect aimed tourists, apply only Carey Population Services International, 431 678, 97 2010, 52 675 (1977); Bigelow Virginia, 421 809, 95 2222, 44 600 (1975), distinguished. There merit argument having chosen legalize residents, legislature using accomplish goal reducing such gambling. Pp. 340-347. 4. properly concluded Even assuming vague, requirements, with respect bare statutory language, nevertheless bound statute. Viewed light, particularly interpretive assistance modified vague. 347-348. Affirmed. REHNQUIST, J., delivered opinion BURGER, C.J., WHITE, POWELL, O'CONNOR, JJ., joined. BRENNAN, post, p. 348; STEVENS, 359, dissenting opinions, MARSHALL BLACKMUN, Maria Milagros Soto, Hato Rey, P.R., appellant. Lino J. Saldana, Santurce, appellee. Justice REHNQUIST 1 we address Posadas de Associates, doing business Inn Hotel Sands Casino, Tourism Company San Juan Section. sought Company, United States Constitution.1 conduct. But construction, We postponed consideration until hearing merits. 474 917, 244, 88 253 (1985). now hold have hear appeal, affirm restrictions. 2 1948, Legislature legalized 221 May 15, (Act), playing roulette, dice, card games "gambling rooms." 2, codified, amended, P.R.Laws Ann., Tit. 71 (1972). Bingo slot machines later added list chance Act. See June 7, 21, (bingo); 30, 1974, pt. (slot machines). legislature's intent set forth Act's Statement Motives: "The purpose contribute tourism means authorization customary recreation great tourist centers world, establishment strict surveillance said government, ensure best possible safeguards, while time opening Treasurer additional source income." 3 provided 8, 77 4 Economic Development Administration enforce implementing various provisions 7(a), 76a Appellee corporation, assumed regulatory powers 1970. 18, 1970, 10, 17, codified 23, 671p (Supp.1983). two originally issued 1957 contained 8 Regulation 76-218 basically reiterates language 8. 15 R. R.P.R. 76a-1(7), amended 1971, pertinent part: 5 "No concessionaire, nor his agent employee our hereby newspapers, magazines, radio, television subject prior editing approval advertisement submitted draft Company." 76a-1(7) 6 1975, organized laws Texas, obtained franchise began name Casino.2 1978, twice protested fines series letters Company. On February 16, 1979, all holders memorandum setting following interpretation restrictions: 7 "This prohibition includes use word 'casino' matchbooks, lighters, envelopes, inter-office and/or external correspondence, invoices, napkins, brochures, menus, elevators, glasses, plates, lobbies, banners, flyers, paper holders, pencils, telephone books, directories, bulletin boards any hotel dependency object accessible App. 7a. Pursuant administrative interpretation, assessed ordered pay outstanding total $1,500 March renewed. continued protest fines, ultimately paid them without judicial 1981, again Faced another threatened nonrenewal franchise, $500 fine protest.3 9 action Section, declaration violated rights Secretary appeared defending After trial, "[t]he [sic] capricious, arbitrary, erroneous unreasonable, produced absurd results contrary law." Juris. 29b. therefore determined "override deficiency save statute." reviewed history concluded: 10 ". . assume legislator worried about participation what date experiment. Therefore, he gaming rooms announcing themselves offering public—which reasonably infer bona fide [W]hat foresaw invitation play casinos campaigns resident He wanted him." Id., 32b. 11 Based view intent, statute, "the contracted agency, consideration, attract bet card, roulette bingo tables." 33b-34b. 76a-1(7): 12 Advertisements casinos. 13 * 14 "We allow, within invite casino, announcements hands resident. Within ads allowed regulation figure, illustrative purposes only, distributed placed landed airplanes cruise ships jurisdictional waters areas travelers international airport docks where arrive principal objective make transit aware availability amenity; magazines distribution primarily tourist, including official guide 'Que Pasa Rico' facility available movies, television, newspapers trade published, taped, filmed exterior promotion exposed circulated For example: York Times, CBS reaches us Cable TV, whose main potential tourist. authorize mass communication country, used contain reference never alone specified. Among allowed, way illustration, identified special vacation packages activities hotel, invitations, 'billboards,' bulletins programs sponsored hotel. name, hotel's facade, does exceed proportion size rest utilization lights colors will if regarding complied with; tableware, glassware items well calling cards, envelopes letterheads identification. 16 direct premises hotels allowed. In-house guests clients receive type information location schedule procedure souvenirs, stirrers, matchboxes, chips, T-shirts, hats, photographs, postcards similar world. 17 "Since clausus enumeration unforeseeable, situation incident relating legal restriction measured light policy promoting tourism. If passes scrutiny." 38b-40b. 18 entered Company's restrictions, unconstitutional could sustained, "modified guidelines date."4 42b. 19 1a. P.R. Laws 4, 37(a) (1978). Treating submission petition writ review, see §§ 37(b), (g), denied petition. One judge dissented. 20 A specifically "where drawn Constitution, treaties, validity." careful record reveals below. letter 24, 1982, suit, warned absent reinterpretation "we choice challenge Regulations." 6h. complaint, claimed "violat[ed] petitioner protected Constitution .[,] guarantee [and] law. ." 4i. bill Constitution," id., 5c, along "due guaranteed Constitution" laws," 6c. 21 Under law, "involv[ed] decid[ed] States." "a question" Tumey Ohio, 273 510, 515, 47 437, 438, L.Ed. 749 (1927). situation, 1258(2). 22 argues, however, timely Clerk Rico,5 Rule 53.1 Procedure. According flaw fatal seek agree. clerk nonjurisdictional. Morales Mendez Mas, 109 P.R.R. 1136 case, did grounds, so can waived requirement, power do. jurisdiction. 23 Before turning claim, preliminary matter. Although heretofore squarely context think obvious certainly States. Ferber, 458 747, 769, n. 102 3348, 3361, 73 1113 (1982); Kingsley International Pictures Regents, 360 684, 688, 79 1362, 1365, 1512 (1959). believe Calero-Toledo Pearson Yacht Leasing Co., 416 663, 672-673, 94 2080, 2086-2087, 40 452 (1974) (noting decisions lower courts holding deemed "sovereign over matters ruled Constitution"); Wackenhut Aponte, F.Supp. 401, 405 (PR 1966) (Puerto "should primary opportunity determine intended scope own legislation"), aff'd, 386 268, 87 1017, 37 (1967).6 24 Because involves pure "no propose transaction," Virginia Pharmacy Board Citizens Consumer Council, Inc., 425 748, 762, 96 1817, 1825, 48 346 (1976),7 analysis guided general principles Zauderer Office Disciplinary Counsel, 471 626, 637-638, 105 2265, 2274-2275, 85 652 Hudson, receives long fraudulent. Once applies issue, substantial, directly advance asserted U.S., 566, S.Ct., 2351. 25 here, namely, abstract. proceed three remaining steps whether run afoul first these assessment strength speech. stake reduction acknowledged existence 2h ("The legislators flock gamble, people"). brief before explains belief "[e]xcessive among produce serious harmful effects safety welfare Rican citizens, disruption moral cultural patterns, increase crime, fostering prostitution, corruption, infiltration crime." Brief Appellees 37. These some very concerns, course, motivated vast majority difficulty concluding Legislature's citizens Cf. Renton Playtime Theatres, 475 41, 54, 925, 932, 89 29 (1986) (city "preserving quality life community large"). 26 last involve "fit" between ends those ends. Step asks instant answer clearly "yes." obviously believed, when enacted product advertised. reasonable one, fact litigate indicates shares view. supra, 569, 2353. ("There immediate connection electricity. contest ban unless believed sales"); cf. Metromedia, Inc. Diego, 453 490, 509, 101 2882, 2893, 69 800 (1981) (plurality J.) (finding third prong satisfied legislative "not manifestly unreasonable"). 27 horse racing, cockfighting, lottery misplaced reasons. not, chance. 511, 2894 ("[W]hether onsite offsite related stated objectives traffic esthetics. altered ordinance permits advertising"). previously identified, necessarily chance, "picas," small fiestas, "have traditionally part Rican's roots," flexible authorizing sophisticated widely people." 35b. words, felt Ricans risks associated significantly greater traditional Rico.8 view, separate classification gambling, ban, satisfies step analysis. clear beyond peradventure satisfy fourth analysis, infra; Oklahoma Telecasters Assn. Crisp, 699 F.2d 501 (CA10 1983), rev'd nom. Capital Cities Cable, 467 691, 104 2694, 81 580 (1984). contends, requires suppressing encourage promulgating designed discourage it. reject contention. up decide "counterspeech" effective advertising. conclude, apparently already yet induced widespread engage potentially Broadcasting Co. Mitchell, 333 582, 585 (DC 1971) (three-judge court) ("Congress convincing evidence Labeling 1965 materially reduced incidence smoking"), summarily aff'd Acting Attorney General, 1000, 1290, 31 472 (1972); Dunagin City Oxford, Miss., 718 738, 751 (CA5 1983) (en banc) ("We less restrictive time, place manner restriction, disclaimer warning dangers alcohol, effective. state's concern unaware alcohol. instead unduly alcohol consumption despite known dangers"), cert. denied, 1259, 3553, 82 855 short, conclude each test. rejected claim.9 30 constitutionally defective (1977), (1975). Carey, struck down "advertisement display" contraceptives, 700-702, 2024-2025, Bigelow, reversed criminal conviction abortion clinic. ignores crucial distinction case. underlying conduct State. Here, hand, surely altogether. completely lesser hence inapposite. makes disagree. backwards. As noted preceding paragraph, precisely government wholesale permissible take intrusive allowing It Pyrrhic victory owners gain recognition thereby force into banning just strange doctrine concede authority totally activity, deny forbid stimulation behalf who profit increased demand. Legislative products harmful, cigarettes, alcoholic beverages, varied outright see, e.g., Cal. Penal Code Ann. 647(b) (West Supp.1986) (prohibiting soliciting engaging act prostitution), legalization Nev.Rev.Stat. 244.345(1), (8) (authorizing licensing houses prostitution except counties 250,000 population), 201.430, 201.440 "[i]n theater, streets city town, highway," "in [a] business").10 To out latter, intermediate response require find 32 final opposition particular, argues "to facilities," Rico," sufficiently defined requirements process. term "anunciarse," appears controlling Spanish version actually broader English advertise," mean known." 33 foregoing reasons, affirmed.11 34 ordered. 35 whom BLACKMUN join, dissenting. 36 Section prohibits "advertis[ing] offer[ing] neither applicable define offer[ing gambling] found arbitrary confusing manner. ameliorate problem, avoid unconstitutionality advertisements offerings directed listed examples considered I doubt assure unreasonable applications longer occur.1 However, nonarbitrary manner, suppress truthful activity. settled protects unwarranted regulation. 761-762, 1817-1825-1826, (1976). "Commercial expression serves economic speaker, assists consumers furthers societal fullest dissemination information." 561-562, 2348-2349, Our recognized, 'common-sense' proposing transaction, occurs area regulation, varieties speech." Ohralik Ohio State Bar Assn., 436 447, 455-456, 98 1912, 1918-1919, 56 444 "accords safeguarded expression." Bolger Youngs Drug Products Corp., 463 60, 64-65, 103 2875, 2878-2879, 469 (1983). ordinarily content communicated message, regulate prevent false, deceptive, misleading, 638, 2274, (1985); Friedman Rogers, 440 14-15, 99 887, 896-897, 59 (1979); Ohralik, 462, 1921, proposes illegal Pittsburgh Press Human Relations, 413 376, 93 2553, 669 (1973). have, consistently invalidated deprive accurate services legally offered sale. Bates Arizona, 433 350, 2691, 53 810 (1977) (lawyer's services); (contraceptives); Linmark Willingboro, 85, 1614, 155 (housing); Board, supra (pharmaceuticals); (1975) (abortions). 38 reason why should afforded types where, seeks concerning Commercial different advertisers suited evaluate accuracy messages lawfulness activity," 564, 6, 2350, "commercial speech, offspring self-interest, hardy breed 'particularly susceptible crushed overbroad regulation.' " Ibid. (quoting Bates, 381, 2707); Friedman, 894; 772, 1830, 24. differences, held, "justify permissive approach protecting deception coercion, differences explain doctrines 'chilling' inapplicable 578, 2357 (BLACKMUN, concurring judgment); 98, 1621; 1831, justify extensively manipulate private behavior depriving activities. 39 "Even 'commercial' involved, [this restriction] strikes heart covert attempt choices persuasion needed free choice. [T]he State's insulated visibility scrutiny entail molded chooses give them." 574-575, 2355-2356 judgment). Note, Constitutional Protection Speech, Colum.L.Rev. 720, 750 (1982) ("Regulation influence violates basic [First Amendment] viewpoint- public-agenda-neutrality"). Accordingly, nonmisleading activities, fear recipients provided, scrutiny. II 41 rather applying scrutiny, evaluates relaxed standards normally standards, correctly recognizes fraudulent." Ante, ----. precedents, restrict Commonwealth's Zauderer, 2275; re R.M.J., 455 191, 203, 929, 937, 64 2350. While tipping hat little defer perceives determination reasonable. protection, giving unprecedented eviscerate expression. 42 asserts legitimate discouraging '[e]xcessive crime.' ---- 37). Neither face thought harm result gambling;2 indeed, suggests exactly opposite. patronize them. permitting "serious effects" led Residents variety activities—including lottery—all freely residents.3 Indeed, farfetched suppose chose "evils" preferred spend dollars lottery. event, encouraged how characterized "substantial," which, not. 715, 2709, (1984) (Oklahoma's selective liquor "suggests limits substantiality interests asserts"); 532, 2905, (BRENNAN, judgment) ("[I]f billboards banned further contemplated likely, commitment improving physical environment doubt"). 43 sustains seriously citizens. ----.4 reasoning long-established jurisprudence. When upon implies today, speculate valid reasons enacting Rather, bears burden justifying incumbent prove real substantial. 641, 2276-2277; 205-206, 938-939; 896. shown gamble opposite true. appellees failed show supports B supported end inquiry constitutionality. 94, 1619; 766, 1828. still demonstrate advances allegedly proclaims "obviously advertised." effectively residents' patronage casinos,5 associates unclear crime. actively promotes problems likely persist gamble. Absent showing way. C 45 Finally, "cannot 570, 2354. Rather expression, specific harms continue carefully monitor operations guard vigorously statutes combat crime prostitution." establish level betting, promulgate "disruption patterns," ibid., excessive Such measures avoiding 46 fails acknowledge wide range alternatives addresses claim choose "promulgating it." rejects alternative, asserting "it 'counterspeech' advertising." commands Where important stated, "up legislature" measures. sufficient interests, sustained burden. 206, 939; 571, nothing ever efficacy More importantly, there alternative inadequately safeguard circumstances, Amendment.6 believes obtaining effect fears have. "[i]t information, misuse available, us." 770, 1829. "[T]he people democracy entrusted responsibility judging evaluating relative conflicting arguments." National Bank Bellotti, 435 765, 791, 1407, 1423, 55 707 presupposes "people perceive enough informed, open channels communication, close "[I]f danger cannot Framers Amendment." 792, 1424; 562, 2349 ("[T]he presumes better all"). entirely merely keep ignorant. allow dramatically shrinking officials respectfully dissent. 49 concludes gambling." 345-346. Whether prohibit—such marijuana liquor—is elegant appropriate bizarre restraints plainly forbidden "ban blatantly discriminates punishment depending publication, audience, words employed. Moreover, prohibitions, courts, regime restraint articulate standard hopelessly vague unpredictable. 51 With publisher, stark, unabashed favors identifiable publications disfavors others. publication (or medium) favored indeed. "Within figure tourist." 38b-39b. native however—the Star, instance—it far rigid system controls (casino ads) carried pages. Unless prepared uphold Illinois subjects Times Chicago Tribune another, understand willing Star. newly discriminate terms listener reader. Casino "addressed tourists." 38b. "invite casino." poses reverse privileges immunities problem: singled disfavored treatment comparison Americans.1 fancy required recognize problem audience discrimination. imagine forbade "addressed" advertiser communicate message visitors commuters; forbids language—"casino"—and opprobrium. Use suspicious six-letter 39b. explicitly include provision— "that specified." (The meaning "specified"—perhaps italicization, boldface, capital letters—is presumably left subsequent case-by-case adjudication.) Singling sanctions raises grave utterly disfavor held. 54 restraint, establishes censorship. section include, ante, 335, explained: media, [chance] previous text ad, Provided, pictures 38b (emphasis added). difficult imagine. 57 vagueness, yields predictable suppression Part lies delineation addressed. "provided resident." At oral argument, counsel 95% circulation—perhaps Star—might permissible, "is residents." Tr. Oral Arg. 26. Then again, maybe Maybe ad considerable uncertainty nature "address." concerned precise oddly announcing. noted: tourism." 40b. passage chill, would-be speakers, well, expressly immutable supposedly limiting saving speech: "These guide-regulations future enforcing agency changing needs accordance resolved herein." 42b.2 58 proposition advanced today—that altogether—bears resemblance grotesquely flawed case.3 frank discrimination publications, audiences, words. Nor unpredictable haphazardous roll dice casino. Speech Clause, Balzac Porto 258 298, 314, 343, 349, 66 627 (1922), Due Process Clause either Fifth Fourteenth Amendment, 668-669, 5, 2084-2085, (1974), Examining Flores Otero, 426 572, 599-601, 2264, 2279-2281, generally Torres 442 465, 468-471, 2425, 2428-2430, 61 (1979). purchased 1983 Williams Electronics Corporation, Delaware Plaza Casino. News levy reached Jersey Gaming Commission, caused Commission consider denying parent company addition declared 76a-4(e) (1972), male patrons wear dinner jackets described jacket "basically condition sex" "has warrant dissimilar classification" sex. 35b-36b. Clerk's p.m. 30th day docketing judgment. 48(a). certificate Chief 5:06 day. deference interpretations given unique Diaz Gonzalez, 261 102, 105-106, 286, 287-288, 67 550 (1923) (Holmes, ("This many times understanding purely concern. especially true dealing inheriting brought prevails here"). ensures inhibit freedom press report aspect anyone, owners, comment publicly legislation (1985) Ohio's Dalkon Shield cases publish facts express opinions litigation"); 391, 2561, (1973) (emphasizing "nothing allows distribute commenting Ordinance, enforcement practices propriety sex preferences employment"); Jackson Jeffries, Speech: Va.L.Rev. 35, 125 (1979) (such 'political' dialogue core amendment"). intent. most half century. Code, 299, Rev.Stats. Codes (1902). 1937 made misdemeanor deal, play, carry on, open, "any game faro, monte, fantan, poker, seven half, twenty hoky-poky, played device money, checks, credit, representative value." 33, 1241 longstanding stood stark contrast early Mar. 1910, repealed, Apr. 13, 1916, 181-197 (1972 Supp.1985); 1927, 25, 80 dog 20, 1936, 1957, 231 (1972) racing); Aug. 12, 1933, 1942, 236, 292-299 lottery, J.R. 37, 14, 1934, 1938, 212, 111-128 Supp.1985). apparent discussion prongs test, fare 55, 933, (1986). adequate "rational basis" 752-753 banc), dissent, below publications. Post, 359-360. STEVENS misunderstands "[i]f [an] court's regardless nonlocal publication. Of likelihood appearing demographics newspapers' readerships, "discrimination" produces result. 1335 cigarette "on medium electronic Communications Commission"), upheld 582 1971), 1289, Fla.Stat. 561.42(10)-(12) signs sign per store windows); Mass.Gen.Laws 138:24 Alcoholic Beverages Control advertising); Miss.Code 67-1-85 (Supp.1985) advertising), supra; Rev.Code 4301.03(E), 4301.211 Liquor prohibiting off-premises beer prices), Queensgate Investment Comm'n, St.2d 361, N.E.2d 138, dism'd question, 459 807, 31, 74 Okla. Const., Art. 27, Okla.Stat., 516 storefront sign), 490 (1984); Utah 32-7-26 32-7-28 (repealed 1985) sign). creates impermissible "prior restraint" approval. 361. portion cited STEVENS. Beyond "guidelines," basis; "passes scrutiny" continues insist newspaper photograph "advertisement," taken conference called action. 48. interpret criticizing elect officials, tourists. Motives says suggestion patronizing developing ensuring safeguards producing revenue. Nothing presents might, 534, 2906, "demands rational basis preferring another"); Schad Mount Ephraim, 61, 73, 2176, 2185, 68 671 [government] presented evidence, immediately matter experience, live entertainment significant uses"). reason, Equal Clause. rejecting erroneously uses ignoring implicated Police Dept. Mosley, 408 92, 2286, 212 legitimately entirely, "less step" legalizing "surely [casino gambling]" agree intrusive" suggested unconstitutional. problems. "constitutional doctrine" bans restraint—it Unlike read here indicate itself respond appellees' capricious justifiably notwithstanding "narrowing" face. buttress noting regulated "harmful" products, reserve jurisdictions. Perhaps, somewhat ambivalently regards good thing proprietor evil patrons, poison strangers web. too much permitted, partake character censorship envisioned perhaps illustrated decision, sua sponte, 43, invalidate jackets. 337, suspicious, came during course cause action, ACAA Enrique Bird Pinero, C.A.1984 Number 46, 4(e) (15 R.R.P.R. Sec. 76-a4[e] ) requiring tropical country. Adequate informal wear, guayabera, tune climate enjoy himself extreme, unconstitutional, stay Island. improve atmosphere player forced horribly sewn jacket, taking them, point degrading man discriminatory, women formal wear. Honorable Figueroa Ferrer, stated: 'parliaments agents social change' 'when you try maintain scheme alive, preserve harmony realities duty legislate towards end, tranquility circumspection role demands, exceeding framework jurisdiction.' Law bend classification." Apparently, brand censorship, like tune" climate; obligation universal perspective. relied inappropriate major premise. reasoning, discriminatory justified permissible.

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