Source: https://supreme.justia.com/cases/federal/us/362/60/
Timestamp: 2019-04-25 15:49:09+00:00

Document:
Over petitioner's protest that it invaded his freedom of speech and press in violation of the Fourteenth and First Amendments to the Federal Constitution, he was convicted of violating a city ordinance which forbade distribution, in any place under any circumstances, of any handbill which did not have printed thereon the name and address of the person who prepared, distributed or sponsored it.
Held: the ordinance is void on its face, and the conviction is reversed. Lovell v. Griffin, 303 U. S. 444. Pp. 362 U. S. 60-66.
172 Cal.App.2d Supp. 797, 332 P.2d 447, reversed.
printed on the cover, or the face thereof, the name and address of the following:"
"(a) The person who printed, wrote, compiled or manufactured the same."
"(b) The person who caused the same to be distributed; provided, however, that in the case of a fictitious person or club, in addition to such fictitious name, the true names and addresses of the owners, managers or agents of the person sponsoring said handbill shall also appear thereon."
The handbills urged readers to help the organization carry on a boycott against certain merchants and businessmen, whose names were given, on the ground that, as one set of handbills said, they carried products of "manufacturers who will not offer equal employment opportunities to Negroes, Mexicans, and Orientals." There also appeared a blank which, if signed, would request enrollment of the signer as a "member of National Consumers Mobilization," and which was preceded by a statement that "I believe that every man should have an equal opportunity for employment no matter what his race, religion, or place of birth."
Court of the County of Los Angeles affirmed the conviction, rejecting petitioner's contention, timely made in both state courts, that the ordinance invaded his freedom of speech and press in violation of the Fourteenth and First Amendments to the Federal Constitution. [Footnote 2] 172 Cal.App.2d Supp. 797, 332 P.2d 447. Since this was the highest state court available to petitioner, we granted certiorari to consider this constitutional contention. 360 U.S. 928.
"one who is rightfully on a street . . . carries with him there as elsewhere the constitutional right to express his views in an orderly fashion . . . by handbills and literature as well as by the spoken word."
Jamison v. Texas, 318 U. S. 413, 318 U. S. 416.
or sponsored them. For, as in Griffin, the ordinance here is not limited to handbills whose content is "obscene or offensive to public morals or that advocates unlawful conduct." [Footnote 5] Counsel has urged that this ordinance is aimed at providing a way to identify those responsible for fraud, false advertising and libel. Yet the ordinance is in no manner so limited, nor have we been referred to any legislative history indicating such a purpose. Therefore, we do not pass on the validity of an ordinance limited to prevent these or any other supposed evils. This ordinance simply bars all handbills under all circumstances anywhere that do not have the names and addresses printed on them in the place the ordinance requires.
There can be no doubt that such an identification requirement would tend to restrict freedom to distribute information, and thereby freedom of expression.
Lovell v. Griffin, 303 U.S. at 303 U. S. 452.
to the rulers. John Lilburne was whipped, pilloried, and fined for refusing to answer questions designed to get evidence to convict him or someone else for the secret distribution of books in England. Two Puritan Ministers, John Penry and John Udal, were sentenced to death on charges that they were responsible for writing, printing or publishing books. [Footnote 6] Before the Revolutionary War colonial patriots frequently had to conceal their authorship or distribution of literature that easily could have brought down on them prosecutions by English-controlled courts. Along about that time, the Letters of Junius were written, and the identity of their author is unknown to this day. [Footnote 7] Even the Federalist Papers, written in favor of the adoption of our Constitution, were published under fictitious names. It is plain that anonymity has sometimes been assumed for the most constructive purposes.
We have recently had occasion to hold in two cases that there are times and circumstances when States may not compel members of groups engaged in the dissemination of ideas to be publicly identified. Bates v. Little Rock, 361 U. S. 516; NAACP v. Alabama, 357 U. S. 449, 357 U. S. 462. The reason for those holdings was that identification and fear of reprisal might deter perfectly peaceful discussions of public matters of importance. This broad Los Angeles ordinance is subject to the same infirmity. We hold that it, like the Griffin, Georgia, ordinance, is void on its face.
The judgment of the Appellate Department of the Superior Court of the State of California is reversed, and the cause is remanded to it for further proceedings not inconsistent with this opinion.
Schneider v. State, 308 U. S. 147, 308 U. S. 154. Cf. Lovell v. Griffin, 303 U. S. 444, 303 U. S. 450.
Petitioner also argues here that the ordinance, both on its face and as construed and applied, "arbitrarily denies petitioner equal protection of the laws in violation of the Due Process and Equal Protection" Clauses of the Fourteenth Amendment. This argument is based on the fact that the ordinance applies to handbills only, and does not include within its proscription books, magazines and newspapers. Our disposition of the case makes it unnecessary to consider this contention.
"These [pamphlets and leaflets] indeed have been historic weapons in the defense of liberty, as the pamphlets of Thomas Paine and others in our own history abundantly attest."
It has been noted that some of Thomas Paine's pamphlets were signed with pseudonyms. See Bleyer, Main Currents in the History of American Journalism (1927) 90-93. Illustrations of other anonymous and pseudonymous pamphlets and other writings used to discuss important public questions can be found in this same volume.
"'Hand-bill' shall mean any handbill, dodger, commercial advertising circular, folder, booklet, letter, card, pamphlet, sheet, poster, sticker, banner, notice or other written, printed or painted matter calculated to attract attention of the public."
Lovell v. Griffin, 303 U.S. at 303 U. S. 451.
Penry was executed, and Udal died as a result of his confinement. 1 Hallam, The Constitutional History of England (1855) 205-206, 232.
"What is it then, but an odious, unprofitable exertion of a speculative right, and fixing a badge of slavery upon the Americans, without service to their masters?"
2 Letters of Junius (1821) 39.
In judging the validity of municipal action affecting rights of speech or association protected against invasion by the Fourteenth Amendment, I do not believe that we can escape, as Mr. Justice Roberts said in Schneider v. New Jersey, 308 U. S. 147, 308 U. S. 161, "the delicate and difficult task" of weighing "the circumstances" and appraising "the substantiality of the reasons advanced in support of the regulation of the free enjoyment of" speech. More recently we have said that state action impinging on free speech and association will not be sustained unless the governmental interest asserted to support such impingement is compelling. See NAACP v. Alabama, 357 U. S. 449, 357 U. S. 463-464; Sweezy v. New Hampshire, 354 U. S. 234, 354 U. S. 265 (concurring opinion); see also Bates v. Little Rock, 361 U. S. 516.
generality is for me too remote to furnish a constitutionally acceptable justification for the deterrent effect on free speech which this all-embracing ordinance is likely to have.
On these grounds, I concur in the judgment of the Court.
"We were able to find out that, prior to 1931, an effort was made by the local Chamber of Commerce, urging the City Council to do something about these handbills and advertising matters which were false and misleading -- had no names of sponsors. They were particularly interested in the fictitious name. They said, 'Who are these people that are distributing; who are advertising; doing things of that sort?' The meager record that we were able to find indicates that a request from the Council to the City Attorney as to their legal opinion on this subject [sic]. The City Attorney wrote back and formed the conclusion that distribution of handbills, pamphlets, or other matters, without the name of the fictitious firm or officers would be legal [sic]. Thereafter, in the early part of 1932, an ordinance was drafted and submitted to the City Council, and approved by them, which related to the original subject -- unlawful for any person, firm or association to distribute in the city of Los Angeles any advertisement or handbill -- or any other matter which does not have the names of the sponsors of such literature."
weigh the circumstances, and . . . appraise the substantiality of the reasons advanced. . . ."
Therefore, before passing upon the validity of the ordinance, I would weigh the interests of the public in its enforcement against the claimed right of Talley. The record is barren of any claim, much less proof, that he will suffer any injury whatever by identifying the handbill with his name. Unlike NAACP v. Alabama, 357 U. S. 449 (1958), which is relied upon, there is neither allegation nor proof that Talley or any group sponsoring him would suffer "economic reprisal, loss of employment, threat of physical coercion [or] other manifestations of public hostility." Id. at 357 U. S. 462. Talley makes no showing whatever to support his contention that a restraint upon his freedom of speech will result from the enforcement of the ordinance. The existence of such a restraint is necessary before we can strike the ordinance down.
any showing to the contrary by Talley, this appears to me entirely sufficient.
I stand second to none in supporting Talley's right of free speech -- but not his freedom of anonymity. The Constitution say nothing about freedom of anonymous speech. In fact, this Court has approved laws requiring no less than Los Angeles' ordinance. I submit that they control this case, and require its approval under the attack made here. First, Lewis Publishing Co. v. Morgan, 229 U. S. 288 (1913), upheld an Act of Congress requiring any newspaper using the second-class mails to publish the names of its editor, publisher, owner, and stockholders. 39 U.S.C. § 233. Second, in the Federal Regulation of Lobbying Act, 2 U.S.C. § 267, Congress requires those engaged in lobbying to divulge their identities and give "a modicum of information" to Congress. United States v. Harriss, 347 U. S. 612, 347 U. S. 625 (1954). Third, the several States have corrupt practices acts outlawing, inter alia, the distribution of anonymous publications with reference to political candidates. [Footnote 2/2] While these statutes are leveled at political campaign and election practices, the underlying ground sustaining their validity applies with equal force here.
No civil right has a greater claim to constitutional protection or calls for more rigorous safeguarding than voting rights. In this area, the danger of coercion and reprisals -- economic and otherwise -- is a matter of common knowledge. Yet these statutes, disallowing anonymity in promoting one's views in election campaigns, have expressed the overwhelming public policy of the Nation. Nevertheless, the Court is silent about this impressive authority relevant to the disposition of this case.
All three of the types of statutes mentioned are designed to prevent the same abuses -- libel, slander, false accusations, etc. The fact that some of these statutes are aimed at elections, lobbying, and the mails makes their restraint no more palatable, nor the abuses they prevent less deleterious to the public interest, than the present ordinance.
All that Los Angeles requires is that one who exercises his right of free speech through writing or distributing handbills identify himself, just as does one who speaks from the platform. The ordinance makes for the responsibility in writing that is present in public utterance. When and if the application of such an ordinance in a given case encroaches on First Amendment freedoms, then will be soon enough to strike that application down. But no such restraint has been shown here. After all, the public has some rights against which the enforcement of freedom of speech would be "harsh and arbitrary in itself." Kovacs v. Cooper, 336 U. S. 77, 336 U. S. 88 (1949). We have upheld complete proscription of uninvited door-to-door canvassing as an invasion of privacy. Breard v. Alexandria, 341 U. S. 622 (1951). Is this less restrictive than complete freedom of distribution -- regardless of content -- of a signed handbill? And commercial handbills may be declared verboten, Valentine v. Chrestensen, 316 U. S. 52 (1942), regardless of content or identification. Is Talley's anonymous handbill, designed to destroy the business of a commercial establishment, passed out at its very front door, and attacking its then lawful commercial practices, more comportable with First Amendment freedoms? I think not. Before we may expect international responsibility among nations, might not it be well to require individual responsibility at home.? Los Angeles' ordinance does no more.
"[t]he problem of legislative classification is a perennial one, admitting of no doctrinaire definition. Evils in the same field may be of different dimensions and proportions, requiring different remedies. . . . Or the reform may take one step at a time, addressing itself to the phase of the problem which seems most acute to the legislative mind. . . . The prohibition of the Equal Protection Clause goes no further than the invidious discrimination. [I] cannot say that that point has been reached here."
Williamson v. Lee Optical, 348 U. S. 483, 348 U. S. 489 (1955).
"When it is shown that state action threatens significantly to impinge upon constitutionally protected freedom, it becomes the duty of this Court to determine whether the action bears a reasonable relationship to the achievement of the government purpose asserted as its justification."
361 U.S. at 361 U. S. 525.
Thirty-six States have statutes prohibiting the anonymous distribution of materials relating to elections. E.g.: Kan.G.S.1949, § 25-1714; M.S.A. § 211.08; Page's Ohio R.C. § 3599.09; Purdon's Pa.Stat.Ann., Title 25, § 3546.

References: v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 v. 
 § 233
 § 267
 v. 
 v. 
 v. 
 v. 
 v. 
 § 25
 § 211
 § 3599
 § 3546