Document: 509 U.S. 418 113 S.Ct. 2696 125 L.Ed.2d 345 UNITED STATES and Federal Communications Commission, Petitioners,v.EDGE BROADCASTING COMPANY T/A Power 94. No. 92-486. Argued April 21, 1993. Decided June 25, Syllabus * Congress has enacted federal lottery legislation to assist States in their efforts control this form of gambling. Among other things, the scheme generally prohibits broadcast any advertisements, 18 U.S.C. § 1304, but allows broadcasters advertise state-run lotteries on stations licensed a State which conducts such lotteries, 1307. This exemption was accommodate operation legally authorized consistent with continued protection nonlottery States' policies. North Carolina is State, while Virginia sponsors lottery. Respondent broadcaster (Edge) owns operates radio station by Commission serve community, it broadcasts from near Virginia-North border. Over 90% its listeners are Virginia, remaining live nine counties. Wishing Edge filed action, alleging that, as applied it, restriction violated First Amendment Equal Protection Clause. The District Court assessed under four-factor test for commercial speech set forth Central Hudson Gas & Electric Corp. v. Public Service Comm'n New York, 447 557, 566, 100 2343, 2351, 65 341—(1) whether concerns lawful activity not misleading (2) asserted governmental interest substantial; if so, (3) regulation directly advances (4) more extensive than necessary concluding that statutes, Edge, did advance interest. Appeals affirmed. Held: judgment reversed. 956 F.2d 263 (CA 4 1992), Justice WHITE delivered opinion all Part III-D, statutes regulate manner does violate Amendment. Pp. ____. (a) Since constitutional Hudson, will consider Government's argument need proceed analysis because gambling implicates no constitutionally protected right greater power prohibit necessarily includes lesser ban advertisement. assumes Hudson's first factor met. As second factor, Government substantial supporting policy interfering States. (b) question raised third cannot be answered limiting inquiry advanced single entity, even were not, there would remain matter regulation's general application others. Thus, statutes' validity although relevant, properly addressed fourth factor. at stake required Rather favoring or States, chose support antigambling without unduly Although surely knew one could heard another, made commonsense each have an audience signal reached elsewhere, enforcing insulate station's advertising purpose Carolina's laws. (c) Under valid Edge. restrictions should judged standards stringent those expressive conduct entitled full relevant time, place, restrictions, Board Trustees Univ. York Fox, 492 469, 477-478, 109 3028, 3033-3034, 106 388; fit between government only reasonable, id., 480, S.Ct., 3034. Here, reasonable. Allowing carry advertisements counties derogation State's antilottery laws permit Virginia's dictate what neighboring may air. restriction's relation bears problem accommodating both extent furthers individual case. Ward Rock Against Racism, 491 781, 801, 2746, 2759, 105 661. Nothing Edenfield Fane, 507 ----, 1792, 123 543, suggested challenge himself his own acts. (d) courts below also erred holding ineffective gave remote exclusion invitations estimated 11% listening time nine-county area hardly called "ineffective," "remote," "conditional." See supra, U.S., 564, 569, 2350, 2353. Nor "limited incremental support," Bolger Youngs Drug Products Corp., 463 60, 73, 103 2875, 2883, 77 interest, thought furnish speculative marginal support. fact television can Carolina. Many residents still exposed very few advertisements. Moreover, said substantially reducing advertising, where wholly eradicated. WHITE, J., respect Parts I, II, IV, REHNQUIST, C.J., O'CONNOR, SCALIA, KENNEDY, SOUTER, THOMAS, JJ., joined, III-A III-B, III-C, SCALIA joined. concurring part, STEVENS, dissenting opinion, BLACKMUN, Paul J. Larkin, Jr., Washington, DC, petitioners. Conrad Moss Shumadine, Norfolk, VA, respondent. Court, except III-D.* 1 In case we must decide allow allowing broadcasting lottery, are, respondent, 2 While existed country since founding, long viewed them hazard citizens public engaged legislative has, early 19th century, sought controlling lotteries. See, e.g., Act Mar. 2, 1827, 6, Stat. 238; July 27, 1868, 13, 15 194, 196; 8, 1872, 149, 17 283, 302. 1876, crime deposit mails letters circulars concerning illegal chartered state legislatures. 12, ch. 186, 19 90, codified Rev.Stat. 3894 (2d ed. 1878). rejected 1876 grounds Ex parte Jackson, 96 727, 24 L.Ed. 877 (1878). response persistence particularly Louisiana Lottery, closed loophole advertisement newspapers Anti-Lottery 1890, 908, 1, 26 465, (Supp.2d 1891), upheld against Rapier, 143 110, 12 374, 36 93 (1892). When Lottery moved operations Honduras, passed 1895, 28 963, 1301, outlawed transportation tickets interstate foreign commerce. constitutionality claim exceeded Congress' Commerce Clause Champion Ames (Lottery Case), 188 321, 23 47 (1903). remains effect. §§ 1302. 3 After advent broadcasting, extended prohibiting, 316 1934, 48 1064, 1088, "any information gift enterprise, similar scheme." amended Charity Games Advertising Clarification 1988, Pub.L. 100-625, 3(a)(4), 102 3206.1 1975, statutory newspaper published 1307 (1988 ed., Supp. III).2 "to State-run policies non-lottery States." S.Rep. 93-1404, p. (1974). H.Rep. 93-1517, 5 (1974), U.S.Code Cong. Admin.News 1974, 7007. sponsor participating nonexempt raffles statutes. N.C.Gen.Stat. 14-289 14-291 (1986 Supp.1992). hand, chosen legalize monopoly entered marketplace vigorously. Respondent, Broadcasting Corporation (Edge), (FCC) Elizabeth City, station, known "Power 94," call WMYK-FM Moyock, Carolina, approximately three miles border considerably closer City. 94 serving Hampton Roads, metropolitan area; 92.2% Virginians; rest, 7.8%, reside served Because statute derives 95% revenue sources, claims lost large sums money inability 6 court Eastern seeking declaratory 1304 1307, together corresponding FCC regulations, Constitution Fourteenth, well injunctive enforcement regulations. 7 recognized latitude forms communication. App. Pet. Cert. 14a-15a. construed cover noncommercial about construction oppose. With regard evaluated established 341 (1980): 8 "At outset, determine expression [1] For come within provision, least concern misleading. Next, ask [2] substantial. If inquiries yield positive answers, [3] asserted, [4] interest." 9 Assuming wished air deal legal activity, misleading, went hold factors satisfied: supported discourage prohibited held, however, failed respect, hence A divided Appeals, unpublished per curiam opinion,3 affirmed respects, rejecting submission had judging "as applied" standard, is, determining way solely effect applying 10 declared unconstitutional reasoning questionable our cases relating speech, granted certiorari. 506 809, 121 683 (1992). We reverse. II 11 argues right, rather falls category activities normally considered "vices," advertisement; therefore analysis. address issue neither do we, below. III most Nation's history, purely implicate Valentine Chrestensen, 52, 54, 62 920, 921, 86 1262 (1942). 1976, propose transaction. Bd. Pharmacy Citizens Consumer Council, Inc., 425 748, 1817, 346 (1976). Our decisions, " 'common-sense' distinction proposing transaction, occurs traditionally subject regulation, varieties speech." Ohralik Ohio Bar Assn., 436 447, 455-456, 98 1912, 1918-1919, 56 444 (1978). affords guaranteed expression. 477, 3033, 388 (1989); Comm'n, 563, 2350; Ohralik, 456, 1918. 13 out assessing speech. Supra, 2351. Like below, assume allowed to, nonmisleading activity. quite sure Posadas de Puerto Rico Associates Tourism Co. Rico, 478 328, 2968, 92 266 (1986), underlying advertising—gambling —implicates right; rather, into "vice" be, frequently been, banned altogether. later discussed, agree broader part satisfied. 14 Court's invalid because, they them. According whose reviewing, 127,000 people who Edge's receive radio, newspaper, communications Virginia-based media. These might listen "are inundated advertisements" hence, stated, prohibiting "is shielding information." "ineffective measure desire justify infringement upon free 6a, 7a. judgment, respect. A. asks "regulation asserted." It readily apparent person entity. Even advancement manner—in case, Edge—there others—in countrywide. thus asked wrong ruling say statute's irrelevant inquiry, dealt test. said, "[t]he last two steps basically involve consideration 'fit' legislature's ends means accomplish ends." Posadas, 341, 2976. 16 doubt appearance state-sponsored legalized do. Neither located ads signals lotteries; similarly, forbid carrying adjoining illegal. Instead either opted anti-gambling like forbidding airing advertising. At same interfere sponsoring Virginia. through locations, deep often another expressly prevented every including ads. plainly elsewhere congressional balancing interests satisfies fully appreciate. Carolina; if, B Left unresolved, course, now i.e., revisited aspect (1989), concluded place restrictions. Id., 3033-3034. clear Fox require perfect, approach 344, 2978. reasonable one. City area, northerly position, reach area. reaching over listeners, enhance revenues. But just surely, reached, making posture, prevent dictating air, comply words, think true, isolation, marginally Carolinians hearing 661 city sound level musical concerts park, held requirement narrow tailoring met "the . promotes achieved less effectively absent regulation," provided burden further government's legitimate interests. 799, 2758. course upholding restriction, depends overall seeks correct, case." 2759. 20 applicable here, observed determined context incompatible subordinate position scale values apply rigid standard supra 478, 3033. teaches us judge 21 taken context. 462, 1921, example, attorney attacked rule solicitation "not facially, acts solicitation." appellant's view show particular trenched protect. stated circumstances acts, "a strong adopting rules designed protect public." 464, 1923. having been established, prophylactic generally; declined go prove actually Ohralik's 22 543 (1993), contrary. treating Fane's broad solicitation, suggest Fane solicitation. C believe itself, understand potential counties, enough regularly account denied, purported deny, these facts, standing alone, clearly excluding gamble Without more, result "conditional," see Product 2884, 469 (1983), 24a, 25a. Otherwise, fewer permitted significance 25 Of pointed out, rested fact, listened carried material available exposure, thought, sufficiently pervasive furnishing purpose. disagree conclusion light facts relied on, represents too limited amounts direct present service stations, true material. percentage increase 38% 49%. compels consequence significance. 27 indicated persons "inundated" media found directed advertising.4 television, American adults spend 60% consumption television. evidence before four 75% viewing stations; others, figure 50 75%; 50%. assumed likely great many little circulated 10,400 daily 12,500 Sundays, constitute exposure unlikely assumption readers always look read Thus significant number [the nine-county] listens to" newspapers. 25a (emphasis added). shield purpose, mistaken. asserts, "adopt[ed] keep ignorant ignorance's sake," discouraging participation countervailing Reply Brief Petitioners 11. Within bounds room judgments. obviously legislated premise serves demand advertised product. promotional undermines gambling, unaware lottery's existence. altogether cigarettes, though believed availability cigarettes. 1335. Queensgate Investment Liquor Control 69 St.2d 361, 366, 433 N.E.2d 138, 142 app. dism'd want question, 459 807, 31, 74 45 (1982) (alcohol advertising). make progress front front. immediate connection demand, decreases stands reason decreasing correspondingly advanced. Accordingly, 29 proper prevents sizable rendered programs view, meaning Hudson. D 30 blind practical respondent's particularity appropriate sake piecemeal advocates act vitiate ability differing transmit location jurisdictions different rules, rests spillover jurisdiction across Were adopt approach, treat close line side extending regime inside One basis additional communities, farther border, Broadcasters then able complain renders logical stopping point once boundaries ignored, process repeated until seriously eroded. unwilling start down road. IV 31 challenged here Amendment, 32 Reversed. 33 whom KENNEDY joins, part. 34 I constitutional, decision (1980), itself." Ante, accordingly unnecessary appropriately reviewed lenient generality, take question. 35 BLACKMUN dissenting. Three months ago reaffirmed proponents bear demonstrating "reasonable fit" goals effectuate goals. Cincinnati Discovery Network, 1505, 1510, 99 (1993). 'in proportion served.' n. (quoting 3034, (1989)). my selective unquestionably flunks test; Government, imposed manipulating behavior, proportionate protecting respectfully dissent. 37 acknowledges, United assert restricting Indeed, affirmatively removed use airwaves promotion ante, Rather, entirely derivative. By tying regarding itself "discourag[e] lotteries." ____.1 38 assuming assistance Government—an evidence—I suppressing truthful perfectly legal, patently effectuating so almost decades ago. 39 Bigelow 421 95 2222, 44 600 (1975), welfare ventured outside borders. 824, 2234. flatly notion, truthful, State. "may guise exercising internal police powers, bar citizen disseminating State." 824-825, To sure, related abortion, dismissing force 345, 2979. casual reading demonstrates fairly narrowly. abortion informing determination attempt suppress State: 40 "Viewed entirety, conveyed value diverse audience—not possibly services offered, curiosity about, genuine in, law development, reform mere existence [organization abortion-related services] possibility being typical organizations there, unnewsworthy. Also pertained interests." Bigelow, 822, 2232.2 41 woman's terminate pregnancy.3 paternalism, informational protectionism. interference citizens' fundamental travel enlightenment, government-induced ignorance. Cf. Shapiro Thompson, 394 618, 629-631, 89 1322, 1328-1330, (1969).4 reaffirm basic principle. perceived dangers emanating regulated content ensure nor distribution warnings educational selected intrusive, dangerous, possible—a manipulating, ignorance, consumer choices some citizens. Unless justified truly extreme, extremely paternalistic, withstand scrutiny 42 No barely whisper analysis, concludes "substantial"—a prerequisite sustain (1980)—because "falls 'vice' altogether," 43 disagree. indeed lotteries,5 follow "substantial" speech,6 especially draconian sea change attitudes toward witnessed recent years outweigh distribute, public's receive, conducted begins discussion century restrict largely ignores today hostility exception norm. Thirty-four Columbia lottery.7 initiate year.8 recently currently considering establishing lottery.9 purportedly buttressing 1993 N.C.S. Bill 11, 140th Gen. Assembly. estimate, end decade (Utah Nevada) lotteries.10 vast majority soon virtually preclude outlier following attempting partaking activities. prohibit[ed] casino gambling" inform 2976, national trend opposite direction contention traveling lines simply overriding entire embracing, certainly sweeping sustains. 46 syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Lumber Co., 200 337, 282, 287, 499. O'CONNOR joins III-A, opinion. III-C SOUTER III-B III-D Title III) provides: "Broadcasting Information "Whoever license whoever, operating knowingly permits of, scheme, offering prizes dependent whole lot chance, list drawn awarded contains prizes, shall fined $1,000 imprisoned year, both." provides part: Exceptions certain State-conducted "(a) provisions sections 1302, 1303, — "(1) advertisement, acting authority "(A) contained publication lottery; "(B) "(2) described paragraph (1), otherwise not-for-profit organization organization; occasional ancillary primary business organization." deem remarkable unusual applied, announce appear, then, 51% attributable identifies "supporting illegal." nor, presumably, mean institute reflects detrimental welfare, effort judgment. analogy think. General Assembly state-operated debating join ranks growing infra, ----. anything, increases, decreases, unfettered exchange lines. proscribed product service, practices Bray Alexandria Women's Health Clinic, 753, 792, 122 (1993) (STEVENS, dissenting). alternative individuals nature captives respective larger polity. "For purposes formed, people, common country. States; and, members pass repass interruption, freely Passenger Cases, How. (48 U.S.) 492, 702 (1849). reasonably conclude, play hopes afford purchase tickets, better spending promising investments. happen share issue. (noting searching "rational basis" review). Selinger, Special Report: Marketing Lotteries, (May 24, 1993). Ibid. Ala.H. 75, 165th Legislature Regular Sess.; Miss.S.Concurrent Res. 162d Legislature—Regular N.M.S. 141, 41st Legislature—First Assembly; Okla.H.Bill 1348, 44th Sess. 7.

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