Document: 533 U.S. 525121 S.Ct. 2404150 L.Ed.2d 532 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.LORILLARD TOBACCO CO. et al.v.REILLY, ATTORNEY GENERAL OF MASSACHUSETTS, al.* No. 00-596. SUPREME COURT THE UNITED STATES Argued April 25, 2001Decided June 28, 2001 Syllabus After Attorney General Massachusetts (Attorney General) promulgated comprehensive regulations governing advertising and sale cigarettes, smokeless tobacco, cigars, petitioners, a group tobacco manufacturers retailers, filed this suit asserting, among things, Supremacy Clause claim cigarette pre-empted by Federal Cigarette Labeling Advertising Act (FCLAA), which prescribes mandatory health warnings for packaging advertising, 15 U.S.C. 1333 pre-empts similar state regulations, 1334(b); violate First Fourteenth Amendments Constitution. In large measure, District upheld regulations. Among its rulings, court held restrictions on location were not FCLAA, neither prohibiting outdoor within 1,000 feet school playground nor sales practices restricting distribution products violated Amendment. The ruled, however, point-of-sale requiring indoor placed no lower than five from floor invalid because had provided sufficient justification restriction. Circuit affirmed Court's rulings FCLAA do Amendment under Central Hudson Gas & Elec. Corp. v. Public Serv. Comm'n N. Y., 447 557, but reversed court's invalidation concluding better suited courts determine what necessary. Held: 1. Massachusetts' advertising. Pp. 9-23. (a) FCLAA's pre-emption provision, 1334, prohibits packages bear "statement relating smoking health, statement required by" 1333, (b) "requirement prohibition based ... imposed law with respect promotion cigarettes labeled conformity with" 1333. analysis begins statute's language. Hughes Aircraft Co. Jacobson, 525 432, 438. interpretation aided considering predecessor provision context current language was adopted. See, e.g., Medtronic, Inc. Lohr, 518 470, 486. original simply prohibited [Act's] provisions." Without question, provision's plain much broader. Cipollone Liggett Group, Inc.,505 504, 520. Rather preventing only "statements," amended reaches all "requirement[s] prohibition[s] State law." And, although former statute reached statements "in advertising," governs "with promotion" cigarettes. At same time Congress expanded it enacted electronic media altogether. 10-15. like General's they would upset federal legislative choices require specific impose ban address concerns about health. holding does nullify concentrated whether to" promotion, content also reasoned form zoning, traditional area power, and, therefore, presumption against applied, see California Div. Labor Standards Enforcement Dillingham Constr., A., Inc., 519 316, 325. rejects notion promotion. There question an indirect relationship between advertising: expressly target such Id., at 324-325. argument "based health" since involve health-related content, instead youth exposure unpersuasive because, bottom, concern intertwined concern. Also unavailing govern location, content/location distinction cannot squared language, "requirements" "prohibitions" "imposed A reconciled Congress' own location-based restriction, bans media, elsewhere. assertion complete did intend preclude local control zoning finds support whose warnings, restrictions, make little sense if locality could 15-21. (c) restrict States' localities' ability enact generally applicable size advertisements apply equal terms products, see, Metromedia, San Diego, 453 490, 507-508, regulate conduct as relates use minors, 42 300x-26(a)(1), 300x-21, well common inchoate offenses attach criminal conduct, solicitation, conspiracy, attempt, cf. Hudson, supra, 563-564. 21-22. (d) Because issue decided below, declines reach petitioners' that, pre-empted, then must invalidated severed provisions. 22-23. 2. cigars Amendment, three constitutional. 23-41. Under Hudson's four-part test analyzing commercial speech, (1) expression protected (2) asserted governmental interest substantial, (3) regulation directly advances asserted, (4) more extensive necessary serve interest. U.S., 566. Only last two steps here. has assumed summary judgment purposes protects speech none whom contests importance State's minors. third step requires government demonstrate harms recites real restriction will fact alleviate them material degree. Edenfield Fane, 507 761, 770-771. fourth reasonable fit legislature's ends means chosen accomplish those ends, narrowly tailored achieve desired objective. E.g., Florida Bar Went For It, 515 618, 632. 23-26. cigar 26-38. Those satisfy advancing justify them. detailed review record reveals ample documentation problem underage cigars. addition, disagrees there evidence targeted campaigns limiting decrease products. On below posture judgment, concluded decision effort combat minors mere "speculation conjecture." Edenfield, 770. 26-31. Whatever strength step. Their broad sweep indicates "carefully calculat[e] costs benefits associated burden imposed." Cincinnati Discovery Network, 410, 417. prohibit substantial portion major metropolitan areas; some areas, constitute nearly communication truthful information. geographical compounded factors. "Outdoor" includes located outside establishment, inside store visible outside. Moreover, size, term advertisement oral statements. uniformly limitation range communications restricted lack tailoring. even compelling, less true adults legal activity. unduly impinge speaker's propose transaction adult listener's opportunity obtain information failed show 31-36. indoor, 5 retail establishment fail both analysis. 5-foot rule seem advance goals using curbing demand activity Not children tall, who can look up take their surroundings. Nor blanket height construed communicative action O'Brien, 391 367, unrelated expression, Texas Johnson, 491 397, 403, attempts impact goal targeting entices children. Although restriction's very limited, de minimis exception lacks tailoring justification. 36-38. Assuming petitioners have cognizable particular displaying retailers place behind counters customers contact salesperson able handle product withstand scrutiny. demonstrated access adopted appropriately narrow See 382. unattended displays present without proper age verification law, self-service allow individual direct salesperson. It clear leave open channels. They significantly impede exercising presentation presumes vendors empty display, display actual so long accessible personnel. As indication customer unable examine prior purchase, examination takes through 38-40. (e) challenge sampling promotional giveaways That sufficiently briefed argued Court. 40-41. 218 F.3d 30, part, remanded. ON WRITS CERTIORARI TO APPEALS FOR FIRST CIRCUIT <nllfot>Notes: * Together 00-597, Altadis A. Successor Consolidated Cigar Havatampa, al. Reilly, Massachusetts, al., certiorari court. O'Connor, J., delivered Court, Parts I, II-C, II-D unanimous; III-A, III-C, III-D joined Rehnquist, Scalia, Kennedy, Souter, Thomas, JJ.; Part III-B-1 Stevens, Ginsburg, Breyer, II-A, II-B, III-B-2, IV JJ. Opinion Justice O'Connor 1 January 1999, 940 Code Mass. Regs. 21.01-21.07, 22.01-22.09 (2000). Petitioners, cigarette, claiming determined valid enforceable. Appeals part first presented our certain 79 Stat. 282, amended, 1331 seq. second 2 November 1998, along over 40 landmark agreement industry. signatory settled claims these companies exchange monetary payments permanent injunctive relief. App. 253-258 (Outline Terms National Tobacco Settlement); Master Settlement Agreement (Nov. 23, 1998), http://www.naag.org. press conference covering sign agreement, then-Attorney Scott Harshbarger announced one his acts office, he create consumer protection He explained "close holes" settlement "to stop Big recruiting new Massachusetts." 251. 3 pursuant authority prevent unfair deceptive trade, Gen. Laws, ch. 93A, (1997), purpose eliminate deception unfairness way marketed, sold distributed incidence .... [and] consumers." 21.01 packaged, [so that] consumers adequately informed risks smoking, addictive properties, false perception safe alternative [and addressed Ibid. broader scope master reaching practices, members industry covered agreement. variety transactions, transactions mail, promotions, labels 4 being challenged provide: "(2) Retail Outlet Sales Practices. Except otherwise [21.04(4)], shall act practice person sells distributes outlet engage following practices: 6 . 7 "(c) Using products; 8 "(d) Failing to- bacco out consumers, personnel." 21.04(2)(c)-(d). 9 "(5) Restrictions. [21.04(6)], manufacturer, distributor retailer 10 "(a) Outdoor including enclosed stadiums directed toward foot radius public playground, park, elementary secondary school; 11 "(b) Point-of-sale thousand school, adult-only establishment." 21.04(5)(a)-(b). still 12 "(1) [22.06(4)], 13 give-aways cigars." 21.06(1)(a). 14 16 cigars; 17 22.06(2)(c)-(d). 18 [22.06(6)], 19 20 22.06(5)(a)- (b). "advertisement" defined as: 21 "any oral, written, graphic, pictorial representation, by, behalf of, manufactures, packages, imports sale, [tobacco products], effect promote product. Advertisement includes, limitation, picture, logo, symbol, motto, selling message, graphic visual image, recognizable color pattern colors, indicia identification identical to, identifiable with, used brand product]. utilitarian items semi-permanent fixtures lighting fixtures, awnings, cases, clocks door mats, include volume 200 cubic inches less." 21.03, 22.03. 22 Before effective date February 1, 2000, sued Massachusetts. Four (Lorillard Company, Brown Williamson Corporation, R. J. Reynolds Philip Morris Incorporated), maker (U.S. Smokeless Company), several claimed many Commerce Clause, Amendments, Rev. 1979, 1983. parties sought judgment. 76 F. Supp. 2d 124, 127 (1999); 84 180, 183 23 ruling, considered seq., 2d, 128-134. appear contains imposing cigarettes." 1334(b). cover 24 central predicate duty read proscribe due expand beyond powerless area. thus FCLAA. permitted black white "tombstone" reading "Tobacco Products Sold Here," 21.04(6) (2000), 25 separate 183-196. Rejecting strict scrutiny should apply, applied 557 (1980), speech. adequate basis regulating similarities suppress survive implicate significant floor, finding ruling warning requirements 26 issued stay pending appeal, 8-9, 30 With persuaded reasoning Second Seventh Circuits, ambiguous, Greater New York Metropolitan Food Council, Giuliani, 195 100, 104-110 (CA2 1999); Federation Industry Representatives, Chicago, 189 633, 636-640 (CA7 1999). 27 test. (1980). found necessary, distance sort determination executive decisionmakers courts. again minors' 28 different expressed misgivings equating ultimately similarly. Appeals' 29 stayed mandate disposition petition writ certiorari. 13. Company petition, challenging grounds, grounds. raising We granted petitions, 531 1068 (2001), resolve conflict Courts here, Lindsey Tacoma-Pierce County Health Dept., 1065 (CA9 1999), decide important issues cases. II issues, we extent contend 31 Article VI Constitution commands laws "shall supreme Law Land; Thing Laws Contrary notwithstanding." Art. VI, cl. McCulloch Maryland, Wheat. 427 (1819) ("It essence supremacy, remove obstacles sphere, modify every power vested subordinate governments"). relatively simple generated considerable discussion cases where discern foreclosed express congressional enactment, 505 517 (1992), implication depth breadth scheme occupies field, Fidelity Fed. Sav. Loan Assn. De la Cuesta, 458 141, 153 (1982), Geier American Honda Motor Co., 529 861, 869-874 32 crafted provides: 33 Additional 34 "No section title, package. 35 36 requirement provisions chapter." 1334. 37 case, task identify domain Cipollone, 517, "an definition pre-emptive supports inference pre-empt matters," Freightliner Myrick, 514 280, 288 (1995). Congressional "ultimate touchstone" inquiry. 516 (internal quotation marks omitted). "federal said bar [a] fiel[d] regulation," namely, Packer Utah, 285 105, 108 (1932), "wor[k] assumption historic police powers [a]re superseded unless [is] manifest Congress." 325 (1997) 475 (1996). 38 Our statute. 438 (1999). unequivocally precludes additional 1334(a). further localities clause expansive first; employs far sweeping describe pre-empted. give meaning each element provision. circumstances 486; McCarthy Bronson, 500 136, 139 (1991); K mart Cartier, 486 281, 291 (1988). 39 1964, groundbreaking Report Surgeon Advisory Committee Smoking "[c]igarette hazard warrant appropriate remedial action." Department Health, Education, Welfare, Committee, 33. 1965, proactive measure face impending agencies States. Pub. L. 89-92, 282. 513-515. twofold: inform hazards protect national economy interference diverse, nonuniform, confusing labeling prescribed label packages: "Caution: May Be Hazardous Your Health." 4. Secretary Welfare (HEW) Trade Commission (FTC) report annually consequences 5. Section included "Congress spoke precisely narrowly." 518. Subsection 5(a) packaging. 5(b) "[n]o Act." set termination July 1969 previously explained, "on face, [the pre-emption] merely rulemaking bodies mandating cautionary [subsection (a)] (b)]." 41 expectation reexamine light developing H. Rep. 586, 89th Cong., 1st Sess., (1965); 111 Cong. Rec. 16541 (1965). intervening years, received reports recommendations HEW FTC. S. 91-566, pp. 2-6 (1969). recommended strengthen warning, advertisements, publish tar nicotine levels advertisements. FTC recommendations. radio television broadcasters devote announcements concerning increased funding education research smoking. 6. urged continue 10. Communications (FCC) promoted created broadcast stations provide 6-7. 1969, House Senate committees hearings effects bill emerged Representatives strengthened maintained bill, adding changing form. Conf. 91-897, 4-5 (1970). 43 final result Congress, Senate's amendments, changes 91-222, 2, 87. First, drafted read: "Warning: Has Determined Is Dangerous Second, declared unlawful advertise medium jurisdiction FCC. Finally, proscribes 5(b). subsection agencies, freeing 515. predecessor, 44 1984, Comprehensive Education Act. 98-474, 98 2200. "provide strategy making Americans aware adverse assure timely widespread dissemination findings enable individuals decisions smoking." established series rotating 4, Human Services implement educational program 3. 45 continued trade year reported expended $8.24 billion largest expenditure ever. FTC, p. Substantial increases facilitate sales, offers buy one, get free, giveaways. 4-5. decreases, transit monitor 46 become clearer once consider amendments "the broader." ibid. time, allowed Viewed adopted, regula- tions B 47 acknowledged cigarettes," 1334(b), relying sister Circuits conclude power; therefore applied. 48 maintain inconsistent statutory text history, gives license almost Petitioners construing content-based 49 result, amicus curiae fully endorse textual Instead, assert health." prescribe fall squarely welfare 50 Turning relied upon Appeals, reject disagree analogy Employee Retirement Income Security 1974 (ERISA). ERISA's "relates employee benefit plan ERISA though makes reference plan. Here, 21.04(5) 51 focuses phrase provision: argues health," To sure, Members debated precise 529, n. (plurality opinion), agree construction phrase. 52 itself solely enhanced warn public, youth, inundated images pursuit latter goal, banned And contemplated 53 leads us motivated attempted media. Thus attempt distinguish rejected. 54 next Stevens' main point pre-emption. Post, (opinion concurring dissenting part). 55 versus surface appeal. immediately follows warnings. refers "labeled But 1335. liberty pick choose consider, post, 7, J.), whole. 56 collapses implications approach considered. argument, pressed explain types view, word "tobacco" billboards blank, "health-related content." Tr. Oral Arg. 41, 42. maintained, invade zoning. 42-44. position clearly factual believe wished ensure "a negative (e.g., banning advertising) already forbidden positive statements)." 539 (Blackmun, Kennedy JJ., Vango Media, York, 3d 68 1994) (holding message four advertisements). 57 6-10, maintains displace critical distinction, infra, 21-22, type regulation, inevitably contradicts 58 Stevens ironic protecting dangerous school," conclusion "Federal Government constitutional similarly-motivated ban" Lopez, 549 10, 8. dissent states; hold remain free sales. Infra, Lopez inapposite. exceeded limits Gun-Free School Zones 1990, crime possess firearm zone. 553-568. contrast, doctrine case precluded raise confronted constitutionally delegated enacting 59 sum, how permit general especially solution concerns. opposed foundation Accordingly, C 60 prevents special prohibitions leaves hands conduct. noted "each provision] universe [state action] statute." 524 opinion). 61 instance, locality's restrictions. recognized interests traffic safety esthetics 507-508 (1981). St. Louis Poster Louis, 249 269, 274 (1919); Thomas Cusack 242 526, 529-531 (1917). taken into account unique intended community marquee advertisers afforded treatment regard. Restrictions ambit Such 62 foreclose explicitly "advertising promotion."* contrary, policy laws; condition receiving block grant substance abuse activities. 106 394, 388, 300x-21. 63 illegal sell distribute persons 18. 270, Having attempt. Cf. 563-564 (1980); Carey Population Servs. Int'l, 431 678, 701 (1977); Virginia Bd. Pharmacy Citizens Consumer 425 748, 772 (1976); Reg. 41330-41332 (1995) (citing attempting induce smoke cigarettes). disposal III-D, infra. D 64 argue Brief Petitioner Nos. 00-596 severability 134, 11. likewise F.3d, 37, decline below. Collegiate Athletic Smith, 459, 470 III 65 By terms, applies evaluate challenges Thus, analyze 66 purview Pharmacy, 762. " 'commensurate' relation guaranteed expression. 623 (quoting Board Trustees Univ. Y. Fox, 492 469, 477 (1989)). recognition "distinction proposing transaction, occurs traditionally varieties speech," 562 omitted), developed framework "substantially similar" place, manner 477. elements: 67 "At outset, come least lawful misleading. Next, ask substantial. If inquiries yield answers, interest." urge litigants so. Orleans Broadcasting Assn., 527 173, 184 Admittedly, doubts Orleans, 197 (Thomas, judgment); Liquormart, Rhode Island, 484, 501, 510-514 (1996) (joint JJ.); id., (Scalia, judgment). "no need break ground. recent provides decision." 184. 69 entitled protection. F.3d., 43; 185-186. step, Lorillard 00-596, 41; 16; 70 harm underlies identified materially advanc[e] 'This satisfied speculation conjecture; rather, body seeking sustain degree.' 188 770-771 (1993)). 71 not, "empirical data accompanied surfeit background information... [W]e studies anecdotes pertaining locales altogether, even, applying scrutiny, consensus, 'simple sense.' 628 (citations internal 72 "complements" "asking it." 188. restrictive means" standard; instead, 'fit objective.' 632 480). Focusing analysis, 73 1,000-foot playground. 21.04(5)(a), 22.06(5)(a) problem, burdened goal. 44-53; 186-193. conclusions. 74 equally severe petitioner emphasizes "lack parity" tobacco. 19; Reply 10-11. catalogue list differences characteristics marketing strategies. 9-11. finally prove causal link 20-22; 9-16. 75 previous theory stimulates while suppressed opposite effect. Rubin, 487; Edge 509 418, 434 (1993); 568-569. cites numerous relies gathered Drug Administration (FDA) Regulations Restricting Sale Distribution Cigarettes Protect Children Adolescents, FDA Proposed Rule, 41314 (1995); Final 44396 after period adulthood when overwhelming majority plays crucial role decision. Reg., 44398-44399. later Corp., 120 Nevertheless, FDA's proceedings affects Erie Pap's M., 277, 296 (2000) opinion) (cities rely jurisdictions harmful entertainment regulation); Barnes Glen Theatre, 501 560, 583-584 (1991) (Souter, judgment) (same); Renton Playtime Theatres, 50-52 (1986) (same). Nixon Shrink Missouri PAC, 528 377, 393, (discussing corruption appearance campaign finance). 77 proceeding, trends various Institute Medicine's "there play contributory young person's products." 41332. Pierce Promotion Adolescent Smoking, 279 JAMA 511, (1998). 78 fewer brands adults, track most heavily advertised brands, unlike choices, dispersed related pricing. Another study revealed 72% olds 52% ages "Joe Camel," cartoon anthropomorphic symbol Reynolds' Camel 41333. introduction Joe Camel, cigarettes' share market rose 4% 13%. 41330. consumption populations, women, correlated geared population. "[t]he increase people nature agency regulatory designed help future generations becoming addicted nicotine-containing 41318. Studies analyzed people, discussing gender, grade, locale. Boyd Use Adolescents Preventative Medicine 402-418 (1987), Record, Doc. 38, Exh. 63. 80 Researchers tracked dramatic shift patterns older younger users past years. 41317; Tomar preference switching US adolescents Control (1995), 62; Services, Preventing Young People: 163 (1994), 36, particular, boosted tenfold 1970s 1980s males. 41331. Cancer Institute, Cigars: Effects Trends, Monograph 9, (1998), 39, 67. documented techniques. Ernster, Products, 8, 87-93 (1989), 66. 81 presents 1996 behavior "uncommon enough worthy examination." 13; Congress: Promotional Expenses Calendar Years 1997, (1999), 71. 1995, explaining currently drug delivery devices focused investigation pipe predominantly 41322. 82 More recently, emerged. 1998 rate increasing rates higher 19, 42-51. 1999 "substantial numbers trying 9. Office Inspector General, Youth Patterns Perceptions Risk 78. 83 small "increased dramatically 1972 1973," "filled void left advertisers," "sales soared." 24. 1973, extended Little Act, 3, 93-109, 87 352, 1990s, triggered boost 215. 85 "critical inquiry case," scheme. 569. meet standard. imposed" 417 (1993) 86 schools playgrounds. 87% 91% Boston, Worchester, Springfield, 191. figure appears limitations 161-167. disputed figures "concede[d] substantial." 50. areas store. Regs 22.03 88 consumers. process careful calculation involved. 89 areas. apparently selected 44399; Respondents 45, 23. tailor degree suppressed-or avenues available-under tends specific. Renton, 53-54. sense, undoubtedly vary place. widely disparate nationwide. Even locale rural, suburban, urban. demonstrates 90 seems broad. why Apparently answer outdoors. Similarly, signs ill highly billboards, smaller signs. appeal permitting others. crafted, basis. 91 amount "valid," "obvious connection state's minors." premise use, remains. follow countervailing interests. 92 conveying corresponding involving indecent Internet materials unnecessarily suppression adults." Reno Civil Liberties Union, 521 844, 875 Bolger Youngs 463 60, (1983) ("The level discourse mailbox limited suitable sandbox"); Butler Michigan, 352 380, 383 (1957) enactment reduce population children"). communication. 886-889 (O'Connor, part) creation "adult zones" Internet). 93 instances, particularly onerous burdens example, comparison relative correspondingly small." 49. budgets, few communication, potentially greater, lesser, retailers' Furthermore, differ difference 94 communicating passersby street forms advertisement, newspapers, instant onsite does. problems establishments convenience stores, security counsel favor full visibility sorts considerations incorporate 95 use. urges remand development record. 12-14. inappropriate develop (as advertising), alter 189, 96 mean incursion legitimate interests, reviewing find insufficient 97 "placed of" 21.04(5)(b), 22.06(5)(b) provisions, 192-193, 195. reversed. 50-51. explained: "We effectiveness tall frequently, view above eye-level, falls reasonableness best pass judgment." 51. sustained 'provides ineffective remote government's purpose,' 770 564), "little chance" 193 outlined above, curb certainly 99 contrast 16-17, 367 (1968). qualify governed 403 (1989). 289-296 100 wish entice children, floor-level candy store, efficacy questionable, "[i]n event, limited." prongs. 101 number retailers. salespersons. 21.04(2)(c)-(d), 22.06(2)(c)-(d) 5, Two (Brown Corporation additionally 22.06(1)(a). 102 interest, 195-196, adopt reasoning. "often function," "is rather physical 53. nothing containers, displayed, movie jackets video observed selection objective subjective factors aroma feel assuming 54. establishments. 103 devoted briefing understanding accordingly parties' submissions. basically 104 principles case." 46, 7. 12, compare purchase. 9; 105 contentions. 410 (distribution magazine newsracks), component, seeks placement reasons ideas. 289 opinion); 310 part); 403. 107 Unattended law. channels presume 22.06(1)(a) (2000); briefs merits giveaway regulation. Northwest Airlines, Kent, 510 355, 366, (1994); Williams 503 193, 206 (1992); Granfinanciera, Nordberg, 33, 38-40 109 convey would-be inspect 110 "tobacco adolescents, poses perhaps single threat States." 161. From perspective, understandable capable weighing themselves potential places available concern, youth. constrains efforts limit 112 action, means. remanded consistent opinion. 113 ordered. 114 joined. 115 116 part. 117 Ginsburg joined, I Notes "would affect political subdivision taxation buildings, entirely 118 Scalia joins, 119 obvious overbreadth suffices invalidate my test, proposition doubt. 13-14 Neither retained objections it. 4-11 J.). My continuing truthful, nonmisleading me refrain expressing application Hudson. 501-504 JJ.). III-B-1, then, join 121 (with III-B-1) preempted intermediate ideas conveys, appropriate, characterized "commercial." 122 heart litigation imposes 22.06(5), seen outdoors, (even outdoors) floor.1 These superficially geographic scope: school." 21.04(5)(a). zone covers percent cities (CA1 2000), practical total ban. Playboy Entertainment 803, 812 Government's rigorous bans"). 123 suggest passing "zoning-type restrictions" receive 'time, manner' regulations." 31. indeed kinds signs, City Council Los Angeles Taxpayers Vincent, 466 789 (1984), similarly sexually explicit (1986). abiding characteristic neutrality. Ward Rock Against Racism, 781, 791-796 Vincent city property, conveyed minimize esthetic clutter. Likewise, ordinance aimed "secondary effects" caused businesses. 124 here different. concerned advertising-it advertising's primary effect, purchase Boos Barry, 485 312, 321 (1988) ("Listeners' reactions 'secondary effects' referred Renton"). words, objects consistently Turner System, FCC, 512 622, 641-643 (1994). 125 declined Valentine Chrestensen, 316 (1942), went say [no] restraint respects purely advertising." repudiated 748 (1976), "which 'no transaction' 762 Pittsburgh Press Relations, 413 376, 385 (1973)). Since followed uncertain course-much uncertainty malleability balancing 520-522 126 "philosophical historical asserting 'commercial' 'lower value' 'noncommercial' speech." 522. Indeed, doubt possible draw coherent noncommercial 523, Kozinski Banner, Who's Afraid Commercial Speech, Va. 627 (1990)).2 anything products-if, promoting candidates-all subjected keeping ignorant suppressing per se illegitimate essentially adhering views 128 accepts deserve categories normally reduced protection, all, never wishes. Rather, "that can, regulated proscribable V. Paul, (1992). category discrimination category. obscenity (because unprotected category, Roth 354 476 (1957)), "only legally obscene works contain criticism government." V., 384. 129 emphasized "more easily verifiable disseminator" likely "chilled regulation." Bd., 772, led "less tolerate inaccurate fear silencing speaker," "appropriate form, information, disclaimers, deceptive." validity reasoning, peculiarly threaten-i.e., risk misleading V.: "[A] price others, fraud (one justifies depriving protection) greater there. depicts men demeaning fashion." 388-389 130 thing: "[W]hen messages preservation fair bargaining process, reason depart demands." done "for process." content-discriminatory regulation-like speech-must 131 avoid basic respondents principal claims. ("Petitioners' engenders 'the confusion' allows content" (1983)). promotes transaction-i.e., exhibit close prohibited"). 132 properly willing assume activity." 43. now conceded point, Respondent 35, 17, remains theories courts, general, arguments affirmance Glover 198, 205 (2001). concessions easy controlled Liquormart 173 events, entertain arguments, persuasive. 133 "its youthful imagery sheer ubiquity" desirable pervasive." 33; Amicus Curiae ("[S]o maturity resist industry's appeals excitement, glamour, independence"). belied, overinclusivity appealing "excitement, independence"; force torpor, homeliness, servility. "youthful imagery"; smokers depicted sides buildings shuffleboard ride skateboards. 134 accurately stating prices sold. possibly misleading, apparent existence misleads believing pervasive actually is. misunderstands Promoting yet pervasively (or cause supported) suggesting product, rally movement. Any businesses reasonable, rise deceptive. 135 contends solicitation course proscribed, nature. Brandenburg Ohio, 395 444 (1969) (per curiam). punish solicits incites character often commit noncommercial. solicited; itself. usual evaluating incitement happens commercial. 701-702 (1977). 136 "forbid advocacy violation except inciting producing imminent lawless incite produce Brandenburg, 447. reading, "Hey kids, here," broadly that. representation sale" indirectly 21.03 respondents' theory, viewers 137 difficult stopping engage. Presumably, car enforce driving. urging vote, vote. Solicitor resisted her 55-56, businesses, patronize. 138 rests empower put it, "will happen wrong idea view." 36. foreign "Every incitement," Gitlow 268 652, 673 (1925) (Holmes, dissenting), whenever might inspire someone unlawfully, censorial power. Booksellers Hudnut, 771 F.2d 323 1985), aff'd, 1001 deeper flaw argument. children-who, argues, misled, unlawful-it pursue expense rights adults. 140 debate impressionable pedigree: Socrates condemned doer evil, inasmuch corrupts youth." Dialogues Plato, Apology 348 (B. Jowett transl., 4th ed. 1953). met enthusiastic reception Athenian assembly. 380 (1957), struck down 'tending violent depraved immoral acts.' 381 Mich. Penal 343). observed, Michigan children." 383. Frankfurter colorfully "Surely, burn house roast pig." 141 "cannot thinks unsuitable them." Erznoznik Jacksonville, 422 205, 213-214 (1975); accord, Bolger, sandbox"). FCC Pacifica Foundation, 726 (1978), Commission's nonobscene broadcasts. "special justifications speakers." 868 (1997). "uniquely pervasive" too read." Pacifica, 748-749 (emphasis added). 142 Outside broadcasting context, adhered materials" "justify Reno, 875; Entertainment, 814 ("[T]he shielding suffice accomplished alternative"). 143 saved compelling 813. served instead. ibid.; 874. Applying standard, fail. 144 asserts reducing Applied manipulating legitimate, let alone compelling. feet. admitted having "some eye-level," 51, have, produced counterintuitive assumption. Obviously short taller are. Anyway, 1/2 years old, median girl boy tall. Centers Disease Prevention, Growth Charts advertising.3 Far serving minimally rational conceivable 145 virtually nonexistent. makers nationwide budget $50,000 year. exists, use," 48, eliding dearth showing principally 19. conclusory "heavily ways influence adolescent discuss focusing "[e]ndorsements celebrities," resurgence movies," "cigar lifestyle magazines 'Cigar Aficionado.' 14-15 candidly acknowledges "[a]dditional needed characterize cigars" learn kids." 216-217. adduced 146 Much Here reliance late 1960's, affecting today. invokes Administration's findings, ante, 29-30, conclusions "very people." 41318 contradicted studies, large, steady high students during 1990's. 292. casts truly importantly, exhibited trend, ibid., aggregate misguided. 147 tailored. correct, 32-33, arbitrary tailoring, circles drawn around playgrounds necessarily overinclusive, regardless radii circles. Consider, billboard elevated freeway runs nearby. threaten assert, anyway, suspect where, State. 148 loose displayed affects. define broadly; "written product." 21.03. Almost everything business say. Some candidate promised repeal elected, probably doing long-term illegal. 149 Draconian effects. would, tobacconist "Joe's Shop." impossible find; 576-square-inch black-and-white Here." 22.06(6). change names. anonymity, conceive 150 another, fundamental reason. addition examining narrower ban, examined all. alternatives. Most obviously, concerned. Rubin Coors Brewing 476, 490-491 (invalidating disclosure alcohol beer labels, pursued alternatives "directly beers"); ("[I]t ways) always discouraging advertising"). vigorously. possession, communicates disagrees, seek counteract enforced silence," Whitney California, 357, 377 (1927) (Brandeis, concurring). 151 Underlying amici sui generis-that special, object normal suspended. (referring "one State's-and Nation's-most urgent problems"); 19-20 (cataloging prevalence use); Medical Association Amici (advocating governments uniquely messages"). serious risks, (who intelligent smoke) begin lead addiction. assessment urgency posed second-guess uphold accept line host 152 is, told, leading preventable death contributor mortality obesity. Koplan Dietz, Caloric Imbalance Policy, 282 1579 diabetes, hypertension, coronary artery disease, represents rapidly growing worse. Mokdad Spread Obesity Epidemic 1991-1998, 1519 growth obesity decades causes, factor been availability quantities high-calorie, high-fat foods. Hill, Environmental Contributions Epidemic, 280 Science 1371 foods, course, aggressively marketed fast food companies. Nestle Halting Dept. Reports covertly Fast openly. Kramer, McD's Steals Toy BK, Age, Nov. 15, (describing McDonald's campaign); Lucas, BK Takes Choice Message Kids, Adweek, 29, Burger King campaign). successful children's eating behavior. Borzekowski Robinson, 30-Second Effect, Am. Dietetic (2001); Taras, Sallis, Patterson, Nader, Nelson, Television's Influence Children's Diet Physical Activity, Dev. Behav. Pediatrics 176 habits reasons. childhood right. Troiano Flegal, Overweight 497 preferences formed tend persist adulthood. Birch Fisher, Development Eating Behaviors So deleterious reverse. 154 another deaths alcohol. McGinnis Foege, Actual Causes Death 270 2207, 2208 (1993). Alcohol tens thousands cancers digestive diseases. 2208-2209. victims drink 1996, 17,000 killed, 321,000 injured, alcohol-related accidents. Justice, Crime Each year, involved million crimes, 200,000 sexual assaults. 3-4. 155 21, viewed Commission, Evans Kelly, Self-Regulation (Sept. Grube Wallack, Television Beer Drinking Knowledge, Beliefs, Intentions Schoolchildren, 254 surprisingly, drinking. Atkin, Survey Experimental Research Advertising, Mass Media Abuse (S. Martin 1995); Madden Grube, Frequency Nature Televised Sports, 1990 1992, 297 156 Like drinking undone life. early dependent probability lifetime dependence decreases approximately used. Grant Dawson, Age Onset DSM-IV Dependence, Substance 103, obviously irreversible 1,700 killed teenage drunk drivers. Highway Traffic Safety Administration, Fatal Crash Facts. 157 principle logic imposition 56-57. "vice" No exists. 513-514 did, limit, morals reasonably legislature 'vice activity.' 514. 'vice' unaccompanied fails principled 158 ever regarded harmless inoffensive. Calls specter threatened looming. identity vary. People inspired totalitarian dogmas subvert Republic. inflamed racial demagoguery embrace hatred bigotry. Or enticed smoke, risking disease. harm: purveyors advocates When silence them, Notes: Other direct, face-to-face exchange," forbid displays, 21.04(2)(a), (c)-(d), 22.06(2)(a), (c)-(d). 21.04(1), 22.06(1). 38-41, good illustration. controversy, stand debate. Convenience Stores 20-22. logo "Why politicians taxing cigarettes?" 2a. points out, stores interior street. Occupational Recommendations Workplace Violence Prevention Programs Late-Night Establishments (1998) ("Shelves low throughout store"). 21.04(5)(b) 21.04(5)(a) combined concerns, despite State, quite clearly, altogether interested consumers"), effectively 159 160 II-D, respectfully III-B-2 trial constitutionality limit. 161 Breyer join, Souter joins 162 sets issues. first-involving preemption-is straightforward. second-involving Amendment-is complex. strongly 1965 (FCLAA Act), II-A II-B questions, indicate measures adjudicate vacate upholding either entirety. acknowledges, 11, prevailing principles, preemption 'start [are] Congress.' (1992) Rice Santa Fe Elevator 331 218, 230 (1947)); also, (1997); lie power-the land usage minors-our precedents construe "narrow[ly]." 485; Cippolone, intent preempt preempted.1 164 attention paid structure, appears. 484-486; Conference Blue Cross Shield Plans Travelers Ins. 645, 655-656 513-515, 519-520, 530, n.27; 11-12.2 An "reasoned surrounding business, 165 task, performed, inexorably suit. endeavor, precision policies motivating actions. According acts, "comprehensive deal reasons: hazardous commerce interstate "impeded 1331. 166 inclusion package demanded formulation, forced costly waste resources entailed patchwork system, regulators Similar layout company's ads resulting benefit. given publishing, publications violating jurisdictions. response parallel preempting 1334(b) (1970 ed.) (amended 1970). 167 was, interfere prescribing billboards. company hanging near Boston administrative advertisers, great signage, posting cigarette-specific preempted. Metroploitan 1999) ("Divergent commonplace feature landscape bound observe them"). Hence, unsurprising 168 (1969 87, applicability prong localities, paving FCLAA., Where henceforth 5(b), 1334(b).3 169 Ripped theoretically breathtaking expansion However, provisions-and, clauses-in neighboring history viewed, capture escaped fundamentally reorder division Governments. 170 All inescapably modifications laying serve. day, stated dangers contradictory retention unchanged strong intention expanding fallen cracks provision-for utilize specified layouts graphics marketing.4 171 reading. restrictions.5 "clarified" perceived "narrowly phrased" "avoid chaos multiplicity conflicting Report, ...or 172 39-41 2000) (case below); Penn Baltimore, Mayor 1318 (CA4 contra Dept, 515-524. opinions mandated which, any, plaintiff's defendants' Nary thesis interpreted seven nine Justices subscribed tethered "diverse, 519; 534, 541 Blackmun, am firmly convinced regulations.6 inescapable advertising" Act.7 convinced, regard preemption, least, ambiguous. reflect 'clear 516, Absent purpose, retain powers.8 174 raised disagreements significant. dispositions evaluation differs Court's. 1,000-Foot Rule 175 accord lucidly explains, "compelling," 34, ensuring mature substance. Unlike human consumption, lethal long&nbhyph;term users. concomitant enforcement regarding becomes highest are, immune ends-based challenge, whatever chooses employ. noble save speech-restricting poorly statutes insufficiently purportedly (striking forward safety, citizens). Alternatively, achieving restricts aims. broadcasts, constituted speakers listeners"). difficulty frequently encountered adopts communicate another. supra; 844 Sable Cal., 177 mind, type. cogently fairly stem consumption.9 27. segment community-in minors-it congregates-in 178 majority's This, line-drawing. While material, fiat "fit (1957); hand, spillover 726, 749-750, (1978). 179 Finding balance matter. Though plausibly enter equation calculating child-directed "alternative communication." (1986); 789, 819 (1984) (Brennan, dissenting); think award issue. Therefore, 31-36, reflected 180 cities. dispute percentage urban off 32. silent portions Commonwealth. reliable statistical problematic. 181 qualitative permitted. 80% 90% unavailable irrelevant trafficked city's cultural life forum propagation manufacturer's message. One electric Times Square Golden Gate Bridge hundred residential neighborhoods. 182 depending answers empirical questions data, ubiquity hawking advantages respective brands. circulars mailed people's homes, mouth, imbue knowledge chains products.10 granting respondents, Judge treated pure facts issues." 183. respect, disagree. ultimate turns complicated reveal fact, denied evidence. note, moreover, alleged "overinclusivity" judgment), relevant tailored, "beli[e]" healthy, glamorous, sophisticated, Legacy Foundation Support nn. 10; (documenting charge smokers). companies' today, proffer (1976) ("[M]uch provably false, wholly foresee obstacle dealing problem"). proceedings. Practice Indoor 185 addressing statute, concur write separately brief points. 186 one's serves marginal function, performed hope evoking differentiate legislation targets non-speech-related incidental However draw, side line. accessibility legally-restricted regime stores. bit problematic assistance salesclerk handgun, bottle penicillin, 187 admit closer, reasons, space floor.11 isolation, Further, run problems, purports dubious. Nonetheless, unobjectionable adjunct Commonwealth legislate latitude slightest poisonous taking road issue, us.12 Lime Avocado Growers, 373 132, 146-147 (1963) ("[W]e legislated ouster [state] absence unambiguous effect"); federalism sovereignty underlie reluctance spoken spoken, ambiguously. extent. absent evidence, infer language" deleted)). Hanover Bank Trust Commissioner, 167, 1947) (L. Hand, J.) ("There misapprehend language-be constitution, contract-than words literally, forgetting document whole meant secure"). preempts common-law publishing distribution, kind confusion adopting boundaries. modicum suggestion 515, (noting Act). diverse briefly (a bill. something non sequitur. package, chose bearing whether, Legislature strip amounts "near-total ba[n]," 22, facto ads. today approximating introduce genuine claim. introduced maps purporting barred 90.6% proper, 87.8% Worcester, 88.8% Springfield. 165-167. pre-existing population) advertising; containing 14% Census Bureau, Statistical Abstract 47, (1999) (providing 1998). considerably densely populated favorable permits 10% short, equivalent proffered 20; 5; 1995). N.Y. six ago Despite creating invisible extending (often irregular) boundaries property," construes "statute forecloses experimenting lay right expertise," 583 (Kennedy, wonder sensitive strange took pains explain. particularized 27-31 (summarizing evidence). observations indicate, impermissibly curtails slightly questions-and conceivably results-with 1,000-feet Reflecting partial III-D.

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