Document: 408 U.S. 104 92 S.Ct. 2294 33 L.Ed.2d 222 Richard GRAYNED, Appellant,v.CITY OF ROCKFORD. No. 70—5106. Argued Jan. 19, 1972. Decided June 26, Syllabus 1. Antipicketing ordinance, virtually identical with one invalidated as violative of equal protection in Police Department Chicago v. Mosley, 92, 2286, 212, is likewise invalid. P. 107. 2. Antinoise ordinance prohibiting a person while on grounds adjacent to building which school session from willfully making noise or disversion that disturbs tends disturb the peace good order not unconstitutionally vague overbroad. The since, fair warning, it prohibits only actual imminent, and willful, interference normal activity, broad invitation discriminatory enforcement. Cox Louisiana, 379 536, 85 453, 13 471; Coates Cincinnati, 402 611, 91 1686, 29 214, distinguished. overbroad unduly interfering First Amendment rights since expressive activity prohibited if 'materially disrupts classwork.' Tinker Des Moines Independent Community School District, 393 503, 513, 89 733, 740, 21 731. Pp. 107—121. 46 Ill.2d 486, 263 N.E.2d 866, affirmed part reversed part. Sophia H. Hall, Chicago, for appellant Grayned. William E. Collins, Rockford, Ill., appellee City Rockford. Mr. Justice MARSHALL delivered opinion Court. 1 Appellant Grayned was convicted his demonstration front West Senior High Illinois. Negro students at had first presented their grievances administrators. When principal took no action crucial complaints, more public protest planned. On April 25, 1969, approximately 200 people students, family members, friends—gathered next grounds. Appellant, whose brother twin sisters were attending school, this group. demonstrators marched around sidewalk about 100 feet building, set back street. Many carried signs summarized grievances: 'Black cheerleaders cheer too'; history black teachers'; 'Equal rights, counselors.' Others, without placards, made 'power people' sign upraised clenched fists. 2 In other respects, evidence appellant's trial sharply contradictory. Government witnesses reported repeatedly cheered, chanted, baited policemen, audible school; hundreds distracted activities lined classroom windows watch demonstration; some successfully yelled friends leave join uncontrolled latenesses after period changes far greater than usual, late admitting they been watching that, general, orderly procedure disrupted. Defense claimed all times quiet orderly; did seek violate law, but 'make point'; by policemen using loudspeakers; almost noticeable schoolhouse windows; 3 After warning demonstrators, police arrested 40 them, including appellant.1 For participating demonstration, tried violating two Rockford ordinances, hereinafter referred 'antipicketing' 'antinoise' ordinance. A $25 fine imposed each violation. Since challenged constitutionality he appealed directly Supreme Court Ill.Sup.Ct. Rule 302, Ill.Rev.Stat.1971, c. 110A, § 302. He ordinances invalid face, urge applied him, punished constitutionally protected activity. Illinois held both constitutional face. 492, 866 (1970). We noted probable jurisdiction, 404 820, 119, 30 48 (1971). conclude antipicketing unconstitutional, affirm court below respect antinoise 4 * At time arrest conviction, Rockford's provided 5 'A commits disorderly conduct when knowingly: 6 '(i) Pickets demonstrates way within 150 any primary secondary one-half hour before has concluded, subsection does prohibit peaceful picketing involved labor dispute . ..' Code Ordinances, 28, 18.1(i). 7 This we have today considered 212. reasons given agree dissenting Schaefer below, hold 18.1(i) violates Equal Protection Clause Fourteenth Amendment. Appellant's conviction under must be reversed.2 II 8 reads, pertinent part, follows: 9 '(N)o person, private class thereof session, shall make assist diversion such thereof. .' 19.2(a). 10 claims its overbroad, therefore unconstitutional. conclude, however, suffers neither these related infirmities. A. Vagueness 11 It basic principle due process an enactment void vagueness prohibitions are clearly defined. Vague laws offend several important values. First, because assume man free steer between lawful unlawful conduct, insist give ordinary intelligence reasonable opportunity know what prohibited, so may act accordingly. trap innocent providing warning.3 Second, arbitrary enforcement prevented, provide explicit standards those who apply them.4 law impermissibly delegates policy matters judges, juries resolution ad hoc subjective basis, attendant dangers application.5 Third, related, where statute 'abut(s) upon sensitive areas freedoms,'6 'operates inhibit exercise (those) freedoms.'7 Uncertain meanings inevitably lead citizens "steer wider zone' boundaries forbidden marked.'8 12 Although question close, vague. rejected arguments 'that proscribed sufficiently specified too discretion determining whether proscribed.' Ill.2d, 494, N.E.2d, 867. other, similar statutes recently construed upheld, elaborate meaning ordinance.9 situation, Frankfurter put it, 'extrapolate allowable meaning.'10 Here, 'relegated, words itself,'11 interpretations analogous statutes,12 and, perhaps degree, interpretation charged enforcing it.13 'Extrapolation,' course, delicate task, our power construe narrow state laws.14 With find unconstitutional Condemned use words, can never expect mathematical certainty language.15 marked 'flexibility breadth, rather meticulous specificity,' Esteban Central Missouri State College, 415 F.2d 1077, 1088 (CA8 1969) (Blackmun, J.), cert. denied, 398 965, 90 2169, 26 548 (1970), think clear whole prohibits. Designed, according preamble, 'for Schools,' forbids deliberately noisy diversionary16 disrupt activities. willful fixed times—when session—and place—'adjacent' school.17 Were left just might troubled imprecision phrase 'tends disturb.'18 However, Meyer, 44 1, 4, 253 400, (1969), Gregory, 39 47, 233 422 (1968), grounds, 394 111, 946, 22 134 prohibiting, inter alia, 'diversion tending peace,' permitted there 'imminent threat violence.' (Emphasis supplied.) See Gregory 116—117, 121—122, 947, 951—952 (1969) (Black, J., concurring).19 Meyer specifically cited turn drew heavily proper would interpret imminent 'peace order' school.20 14 quantum disturbance apparent statute's announced purpose measure do here vague, general 'breach peace' written context, disturbances easily measured impact school. Given 'particular context,' gives 'fair notice whom (it) directed.'21 precise upheld Cameron Johnson, 390 88 1335, 20 182 (1968)—which 'in manner obstruct unreasonably interfere ingress egress from' courthouse—we Cameron, 'delineates reach common understanding.' Id., 616, S.Ct., 1338. 15 471 (1965), 214 (1971), particularly relies, completely different situations. Cox, breach courts mean 'to agitate, arouse repose, molest, interrupt, hinder, disquiet.' correctly concluded construed, persons merely expressing unpopular views.22 Coates, assembly three 'conduct themselves annoying passing held, depended standard 'annoyance.' 16 contrast, permit punishment expression point view, contains claim punish 'noises' 'diversions.'23 terms, themselves, dispelled ordinance's requirements (1) 'noise diversion' actually incompatible activity; (2) demonstrated causality disruption occurs diversion'; (3) acts 'willfully' done.24 'Undesirables' 'annoying' punished. 'stand whim officer.'25 Rather, As always, requires degree judgment, but, confined, judgment permissible. Council choices, prohibited. '(T)he defines distinct' citizens, juries, appellate judges.26 B. Overbreadth 17 nevertheless 'overbroad' conduct.27 Because laws, like ones, deter privileged cases firmly establish standing raise overbreadth challenge.28 question, then, sweeps Amendments. Specifically, contends interferes picket near disagree. 18 'In considering right municipality control streets religious (or political) views, start Roberts 'Wherever title parks rest, immemorially trust out mind, used purposes assembly, communicating thoughts discussing questions.' Hague C.I.Q., 1939, 307 496, 515, 59 954, 964, 83 L.Ed. 1423.' Kunz New York, 340 290, 293, 71 312, 314, 95 280 (1951). Shuttles-worth Birmingham, 147, 152, 935, 939, 162 (1969). place restricted weighty reasons. 19 Clearly, government restrict message.29 Our equally clear, 'time, manner' regulations necessary further significant governmental interests, permitted.30 example, parades cannot march same street simultaneously, allow one. Hampshire, 312 569, 576, 61 762, 765, 1049 (1941). parade large during rush intolerable burden essential flow traffic, reason could U.S., 554, 464. If overamplified loudspeakers assault citizenry, them down. Kovacs Cooper, 336 77, 69 448, 93 513 (1949); Saia 334 558, 562, 68 1148, 1150, 1574 (1948). Subject regulation, demonstrations places Amendment.31 Of violent, lose quality Amendment.32 nature place, 'the pattern activities, dictate kinds time, reasonable.'33 silent vigil library, Brown 383 131, 86 719, 637 (1966), speech reading room certainly would. That should perfectly appropriate park. basically particular time. assessing reasonableness weigh fact communication involved;34 regulation narrowly tailored State's legitimate interest.35 Access 'streets, sidewalks, parks, exercising (First rights) denied broadly .'36 Free 'must not, guise abridged denied.'37 light principles, touchstone 731 how accommodate 'special characteristics environment.' 506, 736. District wearing armbands Vietnam war. Recognizing "wide exposure robust exchange ideas" 'important educational process' nurtured, id., 512, 739, barred campus. 'undifferentiated fear apprehension enough overcome freedom expression,' 508, 737,38 'mere desire avoid discomfort unpleasantness always accompany viewpoint,' 509, 738. But nowhere suggested teachers, anyone else absolute parts immediate environs unlimited purposes. Expressive restricted, classwork involves substantial disorder invasion others.' 740. 'neither interrupted nor sought intrude affairs lives others. They caused discussion outside classrooms, work disorder.' 514, Compare Burnside Byars, 363 744 (CA5 1966), Butts Dallas Ind. 436 728 1971), Blackwell Issaquena County Board Education, 749 1966). Just property declared off limits members public. case, 740.39 23 ignoring reality recognize schools community institutions, often focus grievances.40 Without daytime handbilling effectively publicize pedestrians, visitors, deliverymen, well administrators, students. Some end will peaceful, functioning highly unusual classic gesture solitary anything least open pedestrians.41 hand, hardly tolerate boisterous drown conversation, studying impossible, block entrances, incite children schoolhouse.42 24 goes says go prevent schools. compelling interest having undisrupted conducive students' learning, unnecessarily rights. Far prophylactic ordinance,43 punishes decision made, be, individualized situation. Peaceful permitted. And license saying.44 25 violent physically obstructive. Noisy obviously reach. Such times, cf. Edwards South Carolina, 372 229, 680, 697 (1963); classes prohibited.45 imposes restriction student/faculty 'audience' enters leaves 559, 476, 487 indicated special place,46 near' courthouse 'with intent with, obstructing, impeding administration justice.' Likewise, county courthouses.'47 cases, modest represents specific legislative protect schools.48 inconsistent Amendments.49 face.50 27 28 Affirmed BLACKMUN joins Part I concurs result opinion. DOUGLAS, 31 While Court's opinion, also reverse 32 municipal case turns 19.2(a) provides relevant part: 'That thereof.' 34 carrying promoting cause—'Black too,' teachers,' 'We want rights', like. himself carry sign. There whatsoever. Indeed, reveals simply quietly occasion raised arm salute. 35 pickets mostly students; included former parents concerned citizens. proposals board demands turned Hence picketing. counseled advised faculty member contained 1,800 Those counseling quiet, walk hand whispering, talking. 36 Twenty-five stationed nearby. most produced explain local announce arrests made. stop, appellant, arrested. 37 lasted minutes went classrooms observe it. many were. was, or, officer testified, 'very orderly.' violence. whatever. 38 What said CIO, 515—516, 1423, questioned: questions. has, ancient privileges, immunities, liberties privilege citizen United States views national questions regulated all; absolute, relative, exercised subordination comfort convenience, consonance order; denied.' 544—545, 458—459, 471, infringe convicting 'disturbing segregation discrimination against blacks peaceably assembling marching sang, prayed, listened speech, violence, rioting, conduct. 41 present occurred center racial conflict. Most indeed doubtless disturbed blaring rowdy. walked manner. read record, disruptive force loosed issue dealing race—an preeminently solution means.* done here; entire picketing, best tradition. officers testified 'there picking particular' arrests. Report Proceedings Circuit Court, 17th Judicial Circuit, Winnebago 66. apparently males 65, 135, 147. sole appeal facially us evaluate either propriety selective sufficiency engaged terms ordinances. concluding behavior Amendment, reaches parties below. Tr. Oral Arg. 16—17; Jurisdictional Statement 3; Grayned, 867 November 1971, amended delete proviso. notes, 'This amendment deletion effect personal situation.' Brief Necessarily, consider facial convicted. E.g., Papachristou Jacksonville, 405 156, 162, 839, 843, 110 (1972); Cramp Public Instruction, 368 278, 287, 82 275, 280, 285 (1961); Harriss, 347 612, 617, 74 808, 811, 98 989 (1954); Jordan De George, 341 223, 230—232, 703, 707—708, 886 (1951); Lanzetta Jersey, 306 451, 618, 619, 888 (1939); Connally General Construction Co., 269 385, 391, 126, 127, 70 322 (1926); L. Cohen Grocery 255 81, 89, 298, 300, 65 516 (1921); International Harvester Co. Kentucky, 234 216, 223—224, 853, 855—856, 58 1284 (1914). supra; 614, 1688, (1971); 120, 951, concurring); Interstate Inc. Dallas, 676, 684—685, 1298, 1303—1304, 225 (1968); Ashton 384 195, 200, 1407, 1410, 469 (1966); Giaccio Pennsylvania, 382 399, 518, 447 Shuttlesworth 87, 90—91, 211, 213 176 (1965); (s951); 559—560, 1149, (1948); Thornhill Alabama, 310 88, 97—98, 60 736, 741—742, 84 1093 (1940); Herndon Lowry, 301 242, 261—264, 57 732, 740 742, 81 1066 (1937). Where interests affected, 'evincing certain proscribed,' 236, 684, (1963), assures legislature focused determined policies compel regulation. Kalven, Concept Forum: 1965 Sup.Ct.Rev. 32; Garner 157, 202, 248, 271—272, 207 (1961) (Harlan, concurring judgment). Baggett Bullitt, 377 360, 372, 1316, 1323, (1964). 281. supra, quoting Speiser Randall, 357 526, 78 1332, 1342, 1460. 1303; 200—201, 1410; Dombrowski Pfister, 380 479, 1116, 1120, Smith California, 361 150—152, 80 215, 217—218, 205 (1959); Winters 333 507, 665, 840 Stromberg 283 359, 369, 51 532, 535, 75 1117 (1931). magistrate jury complaint verdict form slightly language. n. 24, infra. 174, 257 (concurring 1688. Gooding Wilson, 1103, (1972). Lake Carriers Association MacMullan, 406 498, 506—508, 1749, 1755—1756, Cole Richardson, 593 Ehlert States, 99, 105, 107, 1319, 1324, 625 Poe Ullman, 367 497, 1752, (1961). Photographs, 363, 1400, 1404, 822 true fertile legal 'imagination conjure up hypothetical (disputed) nice question.' American Communications Assn. Douds, 339 382, 412, 674, 691, 94 925 (1950). 'Diversion' defined Webster's Third Dictionary instance diverting course another .: (as mind attention) concern turning aside something serious concerns relaxes amuses.' Cf. 568—569, 482—483, (1965) ('near' vague). 119—120, 950—951, 525—527, 1107—1108; Craig Harney, 331 367, 67 1249, 1253, 1546 (1947); Chaplinsky 315 568, 62 766, 1031 (1942) (statute punishing 'fighting words,' 'direct tendency cause violence,' upheld); Street 592, 1354, 1365 Terminiello, 400 Ill. 23, 79 (1948), 337 6, 894, 896, 1131 (1949). intermediate appear interpreted 'tending to' entirely, contexts. Hansen, Ill.App. 663, Holmes, 146, Nesbitt, Ill.App.2d 220, 153 N.E. 259 (1958); Williams, 45 327, 195 425 (1963). brief, city indicates disruption. '(A) (are) duty disrupted defendant's (no matter was), contributed disruption.' Appellee (emphasis supplied). theory jury, Report, 12—13, although instructed already noted, challenge case. 691. Cantwell Connecticut, 296, 308, 900, 905, 1213 (1940). Similarly, numerous condemned worded licensing grant standardless officials censor ideas enforce own preferences. (1969); Staub Baxley, 355 313, 277, 302 Schneider State, 308 163—164, 151—152, 155 Lovell Griffin, 303 444, 666, 949 (1938); 1423 (1939). 546—550, 459—462, 234—237, 682—684. Tracking complaint, found guilty "(w) ilfully causing wilfully tended thereof." 90, 213. Fort, 12, 16, 262 473, 476 Zwickler Koota, 389 241, 249—250, 396—397, 444 (1967), cited. 1689; cited; 212 575—576, (1941); 293—294, 314—315; Poulos 345 395, 398, 73 760, 97 1105 (1953); 554—555, 464—465; Adderley Florida, 385 39, 46—48, 87 246—247, 149 Amalgamated Food Employees Logan Valley Plaza, 391 320—321, 1601, 1609—1610, 603 96, 2289—2290, generally T. Emerson, System Freedom Expression 328—345 Wright, Constitution Campus, Vand.L.Rev. 1027, 1042 Talley 362 60, 559 (1960); 1150; 574, 765; 516, 964. Jonge Oregon, 299 353, 364—365, 255, 259—260, 278 (1937); 668; 164, 152; 307, 905; 562—564, 479—480; Davis Francois, 395 730 1968). Shelton Tucker, 364 488, 247, 252, 231 NAACP Button, 371 415, 438, 328, 340, 315, 1607. recognized limited itself. 512 513—514, 741. 1077 (1970); Jones Regents, 618 (CA9 1970); Hammond Carolina 272 F.Supp. 947 (S.C.1967) Tinker. U.s., 102, 744. saying 'one liberty plea place.' 163, 151. supra. 42 Barker Hardway, 228 (SD W.Va.), aff'd 399 638 (CA4 1968), 1009, 217 (Fortas, concurring). 43 Scoville (CA7), 826, 51, 55 Dickey Alabama 273 613 (MD Ala.1967) (cited Tinker). Different considerations, circumstances. restrictions single-building high hours inappropriate college campus, dormitory middle mathematics class. Noting need assure justice stages influence,' emphasized '(a) possibility conclusion (that a) judge's product intimidation working judicial process.' 565, 480. 47 Quoting 161, 150, "such bears relationship distribute information opinion." 1339. 202—203, 271—272 49 (1966). Adderley, jailhouse ordinarily public, obstructed jail driveway interfered jail. 'a hospital enclosure.' 739. 50 possible, applications; presently us. 91, 213, majority asserts 'appellant's ordinances' is, therefore, Ante, 106 argues, overly withstand attack 'only if, authoritatively ., susceptible application Amendments.' 520, 1105, applies protected, then thus, merit, suggestion Amendment,' ante, presented.

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