Document: 343 U.S. 451 72 S.Ct. 813 96 L.Ed. 1068 PUBLIC UTILITIES COMMISSION OF DISTRICT COLUMBIA et al.v.POLLAK al. POLLAK v. Nos. 224, 295. Argued March 3, 1952. Decided May 26, [Syllabus from pages 451-453 intentionally omitted] Mr. W. Theodore Pierson, Washington, D.C., for Washington Transit Radio, Inc. and others. Paul M. Segal, Pollak Justice BURTON delivered the opinion of Court. 1 The principal question here is whether, in District Columbia, Constitution United States precludes a street railway company receiving amplifying radio programs through loud speakers its passenger vehicles under circumstances this case. service equipment are subject to regulation by Public Utilities Commission on Columbia. Commission, after an investigation public hearings disclosing substantial grounds doing so, has concluded that not inconsistent with convenience, comfort safety 'tends improve conditions which ride.' accordingly, permitted continue despite vigorous protests 452-454 passengers do so violates their constitutional rights. For reasons hereafter stated, we hold neither operation nor action permitting precluded Constitution. 2 Capital Company, called Transit, privately owned utility corporation, owning extensive bus system it operates Columbia franchise Congress.1 Inc., also corporation business Both petitioners No. 224. 3 In March, 1948, experimented 'music as you ride' received amplified streetcar bus.2 Those were operated various lines at hours. A poll who heard showed 92% favored continuance. Experience other cities was studied.3 granted Radio exclusive right install, maintain, repair use reception Transit's streetcars, busses, terminal facilities, waiting rooms division headquarters. return, agreed contract broadcasting station be during minimum eight hours every day, except Sundays. To end secured services Station WWDC—FM. Its meet specifications stated contract.4 pay 90-day trial, $6 per month installation, plus additional compensation dependent upon station's receipts sources such commercial advertising programs. February, 1949, when more than 20 installations had been made, went into regular operation. At time Commission's hearings, October 27—November 1, there 212. On basis annual payment came $15,264. potential would $108,000, based 1,500 installations. covered five years, automatic five-year renewal absence notice contrary either party. 4 This proceeding began July, own motion, ordered investigation. 37 Stat. 983, D.C.Code, 1940, §§ 43—408 43—410. embarked program installing receivers streetcars busses number against received. Accordingly, ordering determine whether installation 'consistent safety.' intervene. Martin, protesting passengers, intervened they respondents 5 'that radios Company comfort, safety' dismissed 81 P.U.R.,N.S., 122, 126. It denied reconsideration. 49 882, § 43—704. Martin appealed Court 882—884, D.C.Code 43—705 43—710. John O'Dea, People's Counsel, leave That appeal but took case Appeals. 883, 43—705. court partially reversed judgment gave instructions vacate order. remanded further proceedings conformity included following statement: 6 'In our broadcasts deprive objecting liberty without due process law. Service rights reasonable service. follows erred matter law finding failing find unreasonable, stop them. 7 'This decision applies 'commercials' 'announcements'. We now decide occasional music alone infringe rights.' 89 U.S.App.D.C. 94, 191 F.2d 450, 458. 8 Appeals, en banc, rehearing. petitioned certiorari Contingent granting case, cross-petition 295, sought prohibit only 'announcements,' balance both cases because novelty practical importance questions involved. 342 848, 77. have treated petitions though cross-petitions single 9 1. Further facts.—In courts expressly restricted facts found insofar those findings appear arbitrary or capricious.5 10 After reciting given careful consideration testimony bearing safety, said that— 11 'From record, conclusion inescapable obstacle 12 'Further, evident convenience impaired that, fact, creation better will among tends P.U.R. (N.S.), 13 Bearing resulting programs, cited opinions car operators effect tendency keep mood, simplified transit operations.' Id., 125. analysis accidents 'reflects fact does any way interfere efficient cause accidents, according * supervisor.' Ibid. Likewise, set forth one premise conclusions: 14 'A survey conducted Edward G. Doody & 11, 17, order attitude customers toward radio. employed rules random selection confined interviews aboard radio-equipped vehicles. results obtained survey, presented follows: 15 'Of interviewed, 93.4 cent opposed; is, 76.3 favor, 13.9 didnt' care, 3.2 didn't know; 6.6 asked 'Well, even don't care personally, object if majority wanted equipped receivers,' 3.6 oppose will. Thus, interviewed firmly opposed vehicles.'6 16 2. Statutory authority.—Apart issues, dismissing accord prescribed statutory procedure within discretion properly vested Congress. 17 new income-producing incident properties. profit arises rental facilities purposes. aspect enterprise bears some relation long-established practice renting space visual inside outside busses. 18 Through these seeks relations. minimize objection features requires least 90% used purposes commercials announcements. generally consisting music, 5% news, weather reports matters civic interest advertising. statements 30 seconds each. occupies total about three minutes each hour. 19 view conclusions can little doubt apart raised, no setting aside decision. authority permit regulate receipt amplification shall unsafe, uncomfortable inconvenient. 3. Applicability First Fifth Amendments.—It held below operating receivers, coupled practice, sufficiently involved Federal Government responsibility make Amendments applicable service.7 These concededly apply restrict private persons. See Corrigan Buckley, 271 323, 330, 46 521, 523, 70 969; Talton Mayes, 163 376, 382, 384, 986, 988, 989, 41 196; Withers How. 84, 89—91, 816; Barron Mayor City Council Baltimore, Pet. 243, 672; see also, State Virginia Rives, 100 313, 318, 25 667. 21 reasoning close between necessary us consider Amendments. rely mere streets Nor reason federal authorization, enjoys monopoly transportation do, however, recognize regulatory supervision agency authorized Congress.8 particularly agency, pursuant program, and, formal ground thereby. P.U.R.(N.S.), 22 We, therefore, appropriate examine what restriction, any, place assuming service, together operation, amounts sufficient thereto. 23 4. No violation Amendment.—Pollak contend freedom conversation making them compete heard. did find, compel finding, interfered substantially communication constitutionally protected places. suggested Amendment guarantees listen points listener wishes hear. There claim objectionable propaganda. issue kind before us.9 inclusion few announcements explanatory commendatory sustain objection. 24 5. Amendment.—The emphasized invasion privacy passengers. how much may wish part source income, great desire vehicles, however positively evidence, conclude it, yet objects his privacy, must discontinued. position wrongly assumes secures vehicle regulated equal he entitled home. However complete home, limited others possessor travels thoroughfare rides conveyance. Streetcars immediate control owner operator virtue dedication common all entitled, required, take interests concerned. mutual limitations conduct everyone, including owner. conflicting demands limit policies schedules location stops, well relating desirability nature Legislation prohibiting artificially raucous sounds places upheld. Kovacs Cooper, 336 77, 69 448, 93 513.10 Conversely, where body jurisdiction, sustained protection activities general safety. practices manner meets requirements substantive procedural arbitrarily capriciously exercised. 26 contention objector, status different override preference considered federally notice, record reasonably justifying policy tended, general, 27 agree contention. afforded individual go far. 28 expresses Commission. situation unlike makes change running locations stops inconvenienced change. 29 refrained passing constitutionality alone. unconstitutional. However, holding us, containing permissible, clear like type less so. 31 Reversed. 32 FRANKFURTER, him, 33 Separate Opinion BLACK. 34 I concur Court's shows Due Process Clause Amendment. musical violated am opinion, subjecting speeches, views, propaganda menas violate extent, holds contrary, dissent. 35 FRANKFURTER. 36 judicial judge move framework relevant legal covenanted modes thought ascertaining He think dispassionately submerge feeling good deal shallow talk robe man it. does. whole judges lay views discharging functions. achieved training, professional habits, self-discipline fortunate alchemy men loyal obligation entrusted. But true cannot subconscious influence feelings unaware. When believing unconsious operate ultimate judgment, unfairly lead believe operating, recuse themselves. They sit judgment. variety reasons. guiding administration justice should disinterested fact. me presents situation. My strongly engaged victim controversy participate explicit my non-participation desirable state why takes himself out 38 DOUGLAS, dissenting. 39 first impression. precedents construe; principles previously expounded apply. write clean slate. 40 comes down meaning 'liberty' Liberty sense mean unlawful governmental restraint; include well, repository freedom. let indeed beginning Part prohibition Fourth unreasonable searches seizures. gives guarantee man's home castle beyond inquisitive officious people. loses course goes enters immunities controls privacy. compelled attend religious serivce; forced affirmation observe ritual scruples; made accept religious, political, philosophical creed another. Freedom religion speech guaranteed give privilege worship, write, speak chooses; act government chooses. respect conscience honors sanctity belief. chooses, important aspects If remembered lesson taught Amendment, construe narrowly present involves form coercion people listen. listeners place; traveling ride voluntarily. Yet ride, since mode today essential many thousands. Compulsion real compulsion command. 42 audience captive audience. necessity, choice. One complain noise crowd babble tongues. sacrifices protest over risk travel. 43 (or television) Today cultural end. Tomorrow political So far concerned purpose difference. selected bureaucrat offensive soothing news commentator chosen report events day overtones please bureau head rile philosophy speaker exudes official up best welfare listens work morning night marks destruction Republic. 44 tunes turn off tune another station, wishes. hears disquieting unpleasant places, restaurants, get leave. choice listen, perhaps try 45 force another's ideas, propangandist powerful weapon. working auspices government. dominant group. benign; invidious cast vice inherent system. Once invaded, gone. submit short step program. flourish, never allowed pick choose competing entertainments, propaganda, philosophies. choices, dividends character integrity. strength dignity, resourcefulness, independence Our confidence ability individuals wisest flourish regimentation hold. violated, deterrent men's minds. originates Act Congress 4, 1925, authorizing merger corporations 1265, 43—503. approved Joint Resolution, January 14, 1933. 47 752, 819, 1940 note Resolution required incorporated Code corporate articles District. 753, 43—503; 1284 seq., 201 seq. same prohibited establishment competitive line issuance certificate public. 760, 44—201. relatively small interurban line. Typically, includes six loudspeakers vehicle. tuned station. located uniformly throughout volume sound adjusted signals operations conversations Uncontradicted listed approximately numbers areas named October, 1949: St. Louis, Missouri, 1,000; Cincinnati, Ohio, 475; Houston, Texas, 270; 220; Worcester, Massachusetts, Tacoma, 135; Evansville, Indiana, 110; Wilkes-Barre, Pennsylvania, 100; suburban Pittsburgh, 75; Allentown, Huntington, West Virginia, 55; Des Moines, Iowa, 50; Topeka, Kansas, 30. Maryland, stated. '(a) Program content quality consonant high standard acceptance responsibility, being understood carefully planned, edited produced accordance accepted qualified stations. '(b) Commercial exceed sixty (60) duration, cumulatively (6) minute period. '(c) Broadcast cancel suitably modify continuity continuity, sponsor thereof objectionable. twenty-four (24) sponsor. '(d) receive charge fifty (50%) unsold available provided sub-section (b) hereof, (said free (3) period), institutional promotional announcements.' 'Par. 66. determination review law, questions; conclusive unless arbitrary, capricious.' 43—706. Court— 'the file clerk transcript taken duly certified, based, statement copy application reconsideration orders entered thereon: *.' treat certification conclusions, expressed December 19, meeting above requirement. P.U.R.(N.S.) 124—126. comparable April 1—7, direction, result. weight attached surveys proper invited freely, sworn, otherwise. Many citizens' associations appeared filed resolutions favoring opposing large intensity objections raised appears following: attended reasons, others: 'It thinking, reading, chatting companions; control; unbearable; commercials, announcements, annoying; poorest class; deprived listen; property process; health impaired; threatened vehicles.' 124. 'Amendment (I.) 'Congress abridging *. (V.) 'No person life, liberty, property, law; '(W)hen derives Government's thumb scales, exercise power persons becomes closely akin, respects, itself.' American Communications Ass'n Douds, 339 401, 674, 685, 94 925. Cf. Smith Allwright, 321 649, 64 757, 88 987; Olcott Supervisors, Wall. 678, 695—696, 382. generally, Shipley, Some Constitutional Aspects F.C. Bar J. 150. 1934, 48 1064 amended, U.S.C. 151 U.S.C.A. interpreted imposing licensee duty fir presentation controversial issues. F.C.C. Report Editorializing Licensees, Pike Fischer Regulation 91:201 (1949). unwilling justify limitation amplify speech. decision, indicate city authorize trucks amplifiers

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