Document: 418 U.S. 298 94 S.Ct. 2714 41 L.Ed.2d 770 Harry J. LEHMAN, Petitioner,v.CITY OF SHAKER HEIGHTS et al. No. 73—328. Argued Feb. 26—27, 1974. Decided June 25, Syllabus Petitioner, a candidate for state office, who was refused available advertising space on vehicles of city transit system, brought this suit challenging the constitutionality municipal policy which refusal based not permitting political but allowing other types public advertising. The courts declined to give petitioner relief, Ohio Supreme Court holding that city's did violate candidate's free speech or equal protection rights. Held: judgment is affirmed. Pp. 302—308. 34 St.2d 143, 296 N.E.2d 683, Mr. Justice BLACKMUN, joined by THE CHIEF JUSTICE, WHITE, and REHNQUIST, concluded car card system First Amendment forum here decision limit advertisements innocuous less controversial commercial service-oriented advertising—thus minimizing chances abuse, appearances favoritism, risk imposing upon captive audience—is within discretion involves no Fourteenth violation. 302—304. DOUGLAS petitioner, though express his views willing audience, has constitutional right force message uses vehicles, as place discussion, only means transport. 305—308. Leonard Schwartz, Columbus, Ohio, petitioner. Paul R. Donaldson, Cleveland, respondents. BLACKMUN announced an opinion, in REHNQUIST join. 1 This case presents question whether operates rapid sells cards its required Amendments accept paid behalf office. 2 In 1970, Lehman office State Representative General Assembly District 56. district includes Shaker Heights. On July 3, sought promote candidacy purchasing Heights Rapid Transit System months August, September, October. general election scheduled November 3. Petitioner's proposed copy contained picture read: 3 'HARRY LEHMAN IS OLDFASHIONED! ABOUT HONESTY, INTEGRITY AND GOOD GOVERNMENT 4 'State Representative—District 56 ( ) Lehman.' App. 39A. 5 Advertising managed respondent Metromedia, Inc., exclusive agent under contract with city. agreement between Metromedia provides: 6 '15. . CONTRACTOR shall any said CARS in, about additional further granted hereunder.'1 7 When applied space,2 he informed that, although then available, management permit advertising.3 however, accepted ads from cigarette companies, banks, savings loan associations, liquor retail service establishments, churches, civic public-service oriented groups.4 There uncontradicted testimony at trial during 26 years operation, pursuant council action, had permitted issue vehicles. 30A—32A. 8 succeed effort have accepted, declaratory injunctive relief without success. 'the constitutionally protected respect forums oral speech, dissemination literature streets, does extend vehicles.' 145—146, 685 (1973). violation, court said, because, '(a)s class, all candidates are treated alike Shaker's System's policy.' Id., 148, N.E.2d, 686. three dissenting justices viewed system's would held valid governmental interest furthered differential treatment A excluding advertisements, their view, therefore deny advertisers law. We certiorari order consider important presented.5 414 1021, 443, 38 312 9 It urged constitute Amendment, there guarantee nondiscriminatory access such publicly owned controlled areas communication 'regardless primary purpose area dedicated.' Brief Petitioner 14. 10 disagree. Packer Corp. v. Utah, 285 105, 110, 52 273, 274, 76 L.Ed. 643 (1932), Brandeis, speaking unanimous Court, recognized 'there difference justifies classification display periodicals newspapers.' upheld Utah statute made it misdemeanor advertise cigarettes "any bill board, street sign, car, placard," exempted dealers' signs places business "in newspaper, magazine, periodical." 107, 273. found reasoned viewers billboards streetcar 'choice volition' observe 'thrust them arts devices skill can produce. radio be turned off, so billboard placard.' S.Ct., 274—275. 'The audience audience. matter necessity, choice.' Public Utilities Comm'n Pollak, 343 451, 468, 72 813, 823, 96 1068 (1952) (Douglas, J., dissenting). situations, '(t)he legislature may recognize degrees evil adapt legislation accordingly.' U.S., 275. Cf. Breard Alexandria, 341 622, 71 920, 95 1233 (1951). 11 These situations different traditional settings where values inalterably prevail. Lord Dunedin, M'Ara Magistrates Edinburgh, (1913) Sess.Cas. 1059, 1073 1074, said: '(T)he truth open spaces differ very much character, before you could say certain thing done know history particular place.' Although American jurisprudence, light been jealous preserve purposes nature conflicting interests involved remained determining degree afforded question. See, e.g., Cox New Hampshire, 569, 61 762, 85 1049 (1941); supra; Poulos 345 395, 73 760, 97 1105 (1953); Louisiana, 379 559, 476, 13 487 (1965); Adderley Florida, 385 39, 87 242, 17 149 (1966); Red Lion Broadcasting Co. FCC, 395 367, 89 1794, 23 371 (1969); Police Department Chicago Mosley, 408 92, 92 2286, 33 212 (1972); Grayned City Rockford, 104, 2294, 222 Columbia System, Inc. Democratic National Committee, 412 94, 93 2080, 36 772 (1973); Pittsburgh Press Human Relations, 413 376, 2553, 37 669 12 Here, we spaces, meeting hall, park, corner, thoroughfare. Instead, engaged commerce. must provide rapid, convenient, pleasant, inexpensive commuters space, incidental provision transportation, part venture. same way newspaper periodical, even television station, need every proffer public, develop make reasonable choices concerning type displayed making these choices, utility 'will sustained activities when those do interfere convenience, comfort safety.' 464—465, 821. Because action exists, policies practices governing arbitrary, capricious, invidious. decided '(p)urveyors goods services saleable commerce purchase basis, they house builders butchers.' St.2d, 146, 685. little deciding impose 10-, 25-, 35-cent fare, changing schedules location bus stops, 465, 822. Revenue earned long-term jeopardardized requirement short-term issue-oriented cards. Users subjected blare propaganda. lurking doubts sticky administrative problems might arise parceling out limited eager politicians. circumstances, managerial rise dignity Were hold contrary, cases hospitals, libraries, buildings, military compounds, facilities immediately become Hyde Parks would-be pamphleteer politician. Constitution require. 14 No found. consciously minimize appearance legislative objectives advanced proprietary capacity. 15 16 ordered. Affirmed. 18 DOUGLAS, concurring. 19 attempted operated Heights, Ohio. basis prohibiting acceptance advertisements. unsuccessfully restrain refusing 20 contends selling buses into now prohibited applicable States through Fourteenth,1 21 My Brother BRENNAN find '(a) voluntarily established installed physical and, created necessary machinery regulating forum.' Post, 314. If were akin streets parks, considerable presented. privilege citizen United use parks national questions regulated not, guise regulation, abridged denied.' Hague CIO, 307 496, 515—516, 59 954, 964, 83 1423 (1939). But plainly park sidewalk more than highway. get work back home. fact forum. 22 Bus placards category highway long used array messages. form significantly curtailed regulation adopted Highway Beautification Act 1965, U.S.C. § 131, conditions federal funds strict among protect motorists2 enacting regulations Act. Rev.Code Ann. 5516.01 seq. (Supp.1973). land rests curtail enhance regulatory schemes. park. Yet if than, date, Miami Herald Publishing Tornillo, 241, 2831, 730, owner cannot forced include offerings news items outsiders desire abhors. Newspaper cited support petitioner's claim. draws distinction press privately owned, otherwise. And turn either take great liberties people because necessity time listeners. 24 asking us vindication rights, overlooks rights commuters. While clearly wish listen, incapable declining receive it. my view intrusions privacy precludes transforming transportation ideas 25 Buses recreational Sunday chautauquas holidays purpose; practical millions our urban centers. I already stated dissent 469, 824, 1068, involving challenge some passengers practice broadcasting programs over loudspeakers streetcars: 'One tunes offensive program home off tune another wishes. One hears disquieting unpleasant places, restaurants, up leave. man choice sit perhaps try listen.' visual, auricular. each viewer listener captive. agree Brandeis who, quoting decision,3 visual streetcars different, "(a)dvertisements sort constantly eyes observers cars seen exercise volition part. Other forms ordinarily observer. newspapers magazines, seeking one see read advertisement. placard." 643. 27 content relevant commuters' Commercial intrusive audiences message. validity since faced complaining invasion exposure ads. Since believe spread concur Court's judgment. 28 BRENNAN, whom STEWART, MARSHALL, POWELL join, dissenting. 29 owns interurban electric railroad line consisting approximately 55 transport Cleveland. Each contains interior lease Metro Division agent. By city, accepts advertising, will 'political advertising.' 30 Prior Ohio's 1970 election, Lehman, 56th District, later testified, vast majority six eight thousand riders day residents ..' (App. 14A). Lehman's advertisement1 met Metromedia's standards,2 rental nevertheless denied sole ground forbids 31 After unsuccessful attempt persuade alter ban against commenced Common Pleas Cuyahoga County, infringed freedom him laws. Finding infirmities, affirmed both County Appeals 32 reverse. information expression Having opened communication, barred discriminating users solely content. * convey unquestionably Amendment. That safeguard fashioned encourage nurture 'uninhibited, robust, wide-open' self-expression, particularly matters importance. York Times Sullivan, 376 254, 270, 84 710, 720, 686 (1964). 'For affairs self-expression; essence self-government.' Garrison 64, 74—75, 209, 216, 125 maintenance opportunity discussion end government responsive changes obtained lawful means, essential security Republic, fundamental principle system.' Stromberg California, 283 359, 369, 51 532, 536, 75 1117 (1931). advertisement diminish impregnable shelter See supra, 271, 721. Of course, self-expression completely unfettered. As 554, 453, 464, 471 (1965): 35 assembly, while democratic society, still mean everyone opinions beliefs address group time. liberty implies existence organized society maintaining order, itself lost excesses anarchy.' Accordingly, repeatedly 'time, manner' evenhanded fashion. 98, 2291, 115, 2302, 554—555, 464—465; 398, 575—576, 765—766, Schneider N.J., 308 147, 160, 60 150, 155 Focusing propriety 'place,' attempts justify arguing inappropriate debate. Respondents 7. To sure, committed anomalous. For example, '(t) instances assemblies petitions redress grievances consistent property. noisy keeping serenity statehouse quiet courthouse. suggest Senate gallery proper vociferous protest rally. adjust petition inhering property normally pub.' 54, 250, (1966) determination facility constitutes 'public forum' requires strike balance competing government, hand, speaker other.3 Thus, assess importance extent disrupted permitted. Applying principles, public's expressive activity. Roberts wrote (1939): 39 'Wherever title rest, immemorially trust mind, communicating thoughts citizens, discussing questions. Such has, ancient times, privileges, immunities, citizens. all; absolute, relative, exercised subordination consonance peace good order; 40 also Jamison Texas, 318 413, 63 669, 869 (1943); supra. More recently, added capitol grounds list compatible grievances, Edwards South Carolina, 372 229, 680, 697 (1963), similar status curtilage jailhouse, jails built thus (1966).4 circumstances case, decide accepting effectively waived argument incompatible function providing transportation. forum.5 42 plurality limits 'innocuous advertising,' created. Ante, 304. merit position. Certainly, noncommercial messages concern possible accorded social issues importance, compare Valentine Chrestensen, 316 52, 62 86 1262 (1942), (1939), (1951), Martin Struthers, 319 141, 862, 1313 (1943), 'speech' nonetheless, often many persons controversial.6 skillfully employed, powerful exaltation values. Once displayed, gainsaid. otherwise, sanction preference bland commercialism noncontroversial debate issues, reverse priorities Amendment.7 II 43 established, principles prohibit discrimination subject content.8 95—96, 2289—2290; 581, 470, (1965) (Black, concurring dissenting); Fowler Rhode Island, 67, 526, 828 Niemotko Maryland, 340 268, 272—273, 325, 327—328, 267, 280 44 'Necessarily, then, Equal Protection Clause, mention itself, grant whose finds acceptable, wishing favored views. select worth debating facilities. 'equality field ideas,' afford points heard. assembly groups, others assembling what intend say. Selective exclusions alone, justified reference alone.' 96, 2290 (footnote omitted). 45 entire classes ideas, rather render odious. Subject censorship forbidden.9 46 insure users, selective closely scrutinized countenanced makes clear showing taken neutral regulations, narrowly tailored government's substantial preserving viability itself. 98—102, 2291—2294; 115 117, 2302—2304; Shuttlesworth Birmingham, 394 152—153, 935, 939—940, 162 Tinker Des Moines School 393 503, 508, 514, 733, 737, 740, 731 cf. Dunn Blumstein, 405 330, 336—337, 995, 999—1000, 274 Williams Rhodes, 23, 31, 5, 10, (1968). failed discharge heavy burden present case. 47 special vigilance triggered undisputed cars. routinely display, absolutely prohibited. Few examples illustrate scope practice. instance, peddling snowmobiles counter-advertisement calling controlling environmental destruction noise pollution caused rejected. Alternatively, ad League Women Voters permitted, upcoming imploring citizens vote, candidate, informing candidacy, qualifications position issues. These, examples,10 perfectly exclusion product application place, regulations. Rather, operative—and impermissible—distinction sign. conclusion dispelled asserted justifications selectively 48 bottomed solicitous regard 'captive riders' 'forced endure thrust (them).' 8. primarily mode argues shield sometimes unsettling speech. Whatever contexts, hollow ring communication. circumstance, occasional provocative should expected. Indeed, 'a invite dispute. Speech challenging. prejudices preconceptions profound effects presses idea.' Terminiello Chicago, 337 1, 4, 69 894, 806, 1131 (1949). 49 ideological nonideological impossible draw accuracy. door 'sometimes speech' determined unduly transporting passengers. passengers, messages11 profoundly disturbing certainly evidence record indicating likely impair absence evidence, invidious matter, violation 50 Moreover, manageable messages, benefit audiences' justified.12 unwilling unsuspecting rider powerless avoid deems unsettling. broadcast therefore, dependent ability 'to (DOUGLAS, Kovacs Cooper, 336 77, 448, 513 (1949); Saia York, 334 558, 562, 68 1148, 1150, 1574 (1948). written form. compelled nor 'incapable (them),' ante, concurring). Should chance glance offensive, 'effectively bombardment sensibilities simply averting eyes.' Cohen 403 15, 21, 91 1780, 1786, 284 (1971). Surely minor inconvenience small price pay continued preservation precious remaining justification equally unpersuasive. transit, suggest, favoritism being advertise, or, advertised supported promoted City.' Clearly, ephemeral concerns carte blanche authority exclude 'These pragmatic hurdles motor coach school auditorium. endorsement opinion expressed attributable administration tenets organization using meetings local board.' Wirta Alameda-Contra Costa Cal.2d 51, 61, 64 Cal.Rptr. 430, 437, 434 P.2d 982, 989 (1967). introduced demonstrating naively think 'lurking favoritism,' 304, '(n)o remote danger immediate crippling impact basic case.' 33, 12. distinguish allay fears. impression requiring disclaimers appear prominently face advertisement.13 accommodating potential vexing avoided time, manner irrespective matter. 53 would, remand proceedings inconsistent opinion. Copy Policy setting forth following criteria: '(1) false, misleading, deceptive and/or moral standards community, contrary taste. best systems, result criticism industry acceptable. '(2) pictorially, graphically otherwise states suggests proponents opponents measures vulgar, greedy, immoral, monopolistic, illegal unfair. '(10) Political systems: Rapid—Maple Heights—North Olmsted—Euclid, Ohio.' Heights' Exhibit A. testified: 'We various methods (of pro-promoting candidacy), including .. plan direct mail postcards, circulars types.' 14A. cars, 15A, spaces. Tr. Oral Arg. 23—24. Receipts sale amounted $12,000 annually. 27. receipts supplemented operating revenues generated fares daily. 982 (1967); Kissinger Authority, F.Supp. 438 (S.D.N.Y.1967); Hillside Community Church Tacoma, Wash.2d 63, 455 350 (1969). frequently rested decisions generally, Due Process Clause alone. Bridges 314 252, 263 N. 6, 190, 194, 192; 560, 1149, 1574; Elfbrandt Russell, 384 11, 18, 1238, 1241, 321; Mills Alabama, 214, 218, 1434, 1436, 484. survey motorists 71% banned interstate system. Hearings S. 1467 Subcommittee Roads Committee Works, 90th Cong., 1st Sess., 43—44 77 500, 515, 297 P. 1013, 1019 text follows: 'Harry Is Old Fashioned!/About Honesty, Integrity Good Government/State 56.' states: '(3) All approval. Rough sketches '(4) reserves times decline sides proposition opposing candidates. '(5) carry, visible poster, tag-line: "Paid Sponsored .' letters sized "Exterior: 30" x 144" King size posters-1" 21" 44" Traveling displays—1/2" 72" Taillight spectacular—1" "Interior: 11" 28"- 1/4" 56"-1/4" '(6) Contracts accompanied check amount contract. '(7) Posters delivered, prepaid, days prior posting date. '(8) offered allotted bond referendum. necessary, contracts until allocate '(9) Minimum acceptable posters one-(month rate). (Emphasis added.) generally Kalven, Concept Forum: 1965 Sup.Ct.Rev. 1; Gorlick, Right Forum, Dick.L.Rev. 273 Horning, 1969 Duke L.J. 931. Public-forum extended terminals, Wolin Port 392 F.2d (CA2 1968), stations, re Hoffman, 67 845, 97, 353 DOUGLAS' analogy 306—308, apropos operated. doubt 'commercial retains continuing validity. Douglas remarked: ruling casual, almost offhand. survived reflection.' Cammarano States, 358 498, 79 524, 534, 462 (1959) (concurring opinion). Commission 393, 2562, (1973) (Burger, C.J., id., 401, 2565 2566 (Stewart, question, sufficient analysis merely enjoys least reaching difficult afforded. reached nearly identical facts. Church, opinion's reliance misplaced. noted n., 533 n. opinion): 'In (52 643), problem raised. consistently (cf. Cantwell Connecticut, 310 (60 900, 1213); 141 (63 1313); 622 (71 1233); Roth 354 476 (77 1304, 1498) never authoritatively determined.' is, irrelevant. 163, 151, 'one appropriate plea declaring unconstitutional remarkably California detailed paradoxical (transit) district's (banning advertising)' manner: 'A company desirability smoking brand, cancer entitled caution injurious health. theater motion portrays sex violence, Legion Decency post clean films. lumber wood products, conservation implore write President Governor protecting natural resources. An oil refinery citizens' demand enforcement existing air statutes. insurance announce policies, senior club plead improve program. station commercially inspired, refuse nonsolicitation strictly educational station. Advertisements travel, foods, clothing, toiletries, automobiles, legal drugs—all reading, 'Support Our Boys Viet Nam. Send Holiday Packages," 57—58, 434—435, 986—987 indicates church System. 26A. audience,' noncommercial, ante 307, dispose reveals provides outside well inside 24A, both. applicability audience' theory rent exterior space. Metro's current systems 2, (5).

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