Document: 487 U.S. 474 108 S.Ct. 2495 101 L.Ed.2d 420 Russell C. FRISBY, et al., Appellantsv.Sandra SCHULTZ and Robert Braun. No. 87-168. Argued April 20, 1988. Decided June 27, Syllabus Brookfield, Wisconsin, enacted an ordinance making it "unlawful for any person to engage in picketing before or about the residence dwelling of individual," declaring that primary purpose ban is "protec[t] preserv[e] home" through assurance "that members community enjoy their homes . a feeling well-being, tranquility, privacy." Appellees, who wish picket particular home filed suit under 42 U.S.C. § 1983 against appellants, town several its officials, alleging violated First Amendment. The Federal District Court granted appellees' motion preliminary injunction, concluding was not narrowly tailored enough restrict protected speech public forum. Appeals ultimately affirmed. Held: facially invalid Pp. 479-488. (a) Although town's streets are narrow residential character, they nevertheless traditional fora, Carey v. Brown, 447 455, 100 2286, 65 263, and, therefore, must be judged stringent standards this has established restrictions on such fora. Perry Education Assn. Local Educators' Assn., 460 37, 103 948, 74 794. 480-481. (b) content neutral cannot read as containing implied exception peaceful labor theory express state law protection takes precedence. This will defer rejection by lower courts, which better schooled more able interpret Wisconsin law. 481-482. (c) leaves open ample alternative channels communication. precise scope ordinance's further described within text, use singular form words "residence" "dwelling" suggests intended prohibit only focused on, taking place front of, residence, reading supported appellants' representations at oral argument. courts' contrary interpretation banning "all areas" constitutes plain error, runs afoul well-established principle statutes interpreted avoid constitutional difficulties. Viewed light narrowing construction, allows protestors enter neighborhoods, either alone marching groups; go door-to-door proselytize views distribute literature; contact residents mails telephone, short harassment. 482-484. (d) As evidenced serves significant government interest protecting privacy. An important aspect privacy unwilling listeners from intrusion objectionable unwanted speech. See, e.g., FCC Pacifica Foundation, 438 726, 98 3026, 57 1073. Moreover, serve governmental interest, since, although complete, targets eliminates no than exact source "evil" seeks remedy: offensive disturbing "captive" audience. It does generally directed means communication may completely banned areas. 484-488. 822 F.2d 642, reversed. O'CONNOR, J., delivered opinion Court, REHNQUIST, C.J., BLACKMUN, SCALIA, KENNEDY, JJ., joined. WHITE, concurring judgment, post,, p. ---. BRENNAN, dissenting opinion, MARSHALL, joined, post, STEVENS, Harold H. Fuhrman, Milwaukee, Wis., appellants. Steven Frederick McDowell, appellees. Justice O'CONNOR Court. 1 adopted bans "before about" residence. case presents facial Amendment challenge ordinance. 2 * suburb Milwaukee with population approximately 4,300. appellees, Sandra Schultz Braun, individuals strongly opposed abortion subject street outside Brookfield doctor apparently performs abortions two clinics neighboring towns. Appellees others engaged precisely activity, assembling doctor's least six occasions between 1985, May periods ranging one half hours. size group varied 11 40. orderly peaceful; never had occasion invoke various ordinances prohibiting obstruction streets, loud unnecessary noises, disorderly conduct. Nonetheless, generated substantial controversy numerous complaints. 3 Town Board therefore resolved enact picketing. On 7, passed prohibited all neighborhoods except But after reviewing Court's decision 263 (1980), invalidated similar violation Equal Protection Clause, attorney instructed police enforce new advised likely rendered unconstitutional. repealed 15, replaced following flat picketing: 4 "It unlawful individual Brookfield." App. Juris. Statement A-28. 5 itself recites ban: "the preservation dwellings Id., A-26. believed necessary because determined practice residences causes emotional disturbance distress occupants [and] object harassing occupants." A-26—A-27. also evinces concern safety, noting obstructs interferes free sidewalks ways travel." A-27. 6 18, appellees were informed enforcement new, revised would begin 21, 1985. Faced threat arrest prosecution, ceased lawsuit United States Eastern Wisconsin. complaint brought sought declaratory well permanent injunctive relief grounds named appellants—the three Board, Chief Police, attorney, itself—as defendants. 7 injunction. court concluded 619 F.Supp. 792, 797 (1985). order specified unless appellants requested trial merits 60 days appealed, injunction become permanent. Appellants appealed entry 8 A divided panel Seventh Circuit 807 1339 (1986). subsequently vacated decision, however, ordered rehearing en banc. 818 1284 (1987). After rehearing, affirmed judgment equally vote. 642 Contending final holding "to repugnant Constitution," 28 1254(2), attempted our mandatory appellate jurisdiction. A-25 (citing 1254(2)). We postponed consideration jurisdiction until hearing merits. 484 1003, 692, 644 (1988). 9 argue there 1254(2) due lack finality. They point out entered merits, yet conducted. These considerations certainly suggest Yet despite formally tentative nature order, appeared ready since indicated issue. In addition, while initially trial, longer adhere position now say have additional arguments offer trial. Tr. Oral Arg. 7. context case, need decide whether proper 1254(2). Because question presented importance, proceedings below aid it, we choose finality issue simply granting certiorari. Accordingly, dismiss appeal treating jurisdictional statement petition certiorari, grant petition. See 2103. Cf. Mississippi Power & Light Co. ex rel. Moore,, --- ----, 369, n. 10, 2428, 2437 ----. For convenience, shall continue refer parties previous cases. ibid.; Peralta Heights Medical Center, Inc., 485 80, 84, 4, 896, 898, 99 75 II 10 antipicketing operates core engaging concern. importance "uninhibited, robust, wide-open" debate issues, New York Times Sullivan, 376 254, 270, 84 710, 720-21, 686 (1964), traditionally subjected careful scrutiny. Boos Barry, 312, 318, 1157, 333 (1988); Grace, 461 171 (1983); (1980). Of course, "[e]ven permissible places times." Cornelius NAACP Legal Defense Educational Fund, 473 788, 799, 105 3439, 3447, 87 567 To ascertain what limits, if any, placed speech, often "place" considering forum speaker employ. Our cases recognized limitations evaluated "differ depending character property issue." 44, 954, 794 (1983). Specifically, identified types fora: forum, created designation, nonpublic forum." Cornelius, supra, 802, S.Ct., 3449. 12 relevant here easily identified: Brookfield. Ordinarily, determination follow automatically identification; repeatedly referred archetype U.S., ----; 3448-49; Perry, 45, 954-55. "[T]ime mind" been used assembly debate, hallmarks Hague CIO, 307 496, 515, 59 963-64, 83 L.Ed. 1423 (1939) (Roberts, J.). Appellants, urge us disregard these "cliches." 16. should considered Pointing physical narrowness Brookfield's contend tradition designation held Brief 23 46, 955-56). 13 reject suggestion. prior holdings make clear lose status neighborhood. Brown—which statute here, striking down Clause included picketing—we expressly "public neighborhoods," for[a]." 460-461, 2289-2291. rather identification virtually forecloses 54-55, 960 (noting "key" "was presence forum"). 14 short, decisions identifying fora accidental invocations "cliche," but recognition "[w]herever title parks rest, immemorially trust public." 964 No particularized inquiry into specific necessary; properly those inform application test, lead different test; 15 "In quintessential for[a], communicative activity. State content-based exclusion show regulation compelling drawn achieve end. regulations time, place, manner expression content-neutral, leave communication." 955 (citations omitted). 16 makes clear, appropriate level scrutiny tied distinguishes permitted basis content. content-neutrality, 20-26. argument belief law, see Wis.Stat. 103.53(1) (1985-1986), take precedence over efforts. rejected suggested F.Supp., 796, affirmed, albeit court. 1347 (original declining reconsider construction law). Following normal practice, "we given federal courts reflect district appeals laws respective States." Brockett Spokane Arcades, 472 491, 499-500, 2794, 2800, 86 394 Virginia American Booksellers 383, 395, 636, 643, 782 (1988) ("This rarely reviews agreed upon courts"). Thus, accept conclusion neutral. turn consider "narrowly interest" "leave[s] 955. 17 last so answered, address first. assess available alternatives, carefully reach text ordinance, view readily avoids WHITE's concurrence recounts, areas." Post, 490. general descriptions do way inconsistent text. "Picketing," all, defined posting Webster's Third International Dictionary 1710 (1981), characterization line viewing limited activity single ordinarily constructions statutes, 482, invariably so, particularly reluctant when fallen 500, 9, situation here. extent endorsed broad ran Erznoznik City Jacksonville, 422 205, 216, 95 2268, 2276, 45 125 (1975); Broadrick Oklahoma, 413 601, 613, 93 2908, 2916-2917, 37 830 (1973). Edward J. DeBartolo Corp. Florida Gulf Coast Building Construction Trades Council, 568, 575, 1392, 645 unlike contain picketing, unable potentially broader scope. instead construe narrowly. counsel argument, indicate takes, enforce, "picketing" proscribed speaking, "picketing having proceed definite course route home." 8. carrying sign, id., 14, fall 9. General even walking entire block houses, 15. one; solely prohibited. 18 So narrowed, permits dissemination message. explain, prohibition self-evident alternatives remain: "Protestors barred neighborhoods. groups, marching. views. literature mails. harassment." 41-42 19 agree preserves thus move inquire interest. find itself: 20 "The State's highest civilized society." 471, 2296. remarked unique home, citadel tired, weary, sick," Gregory Chicago, 111, [89 946, 22 134] (1969) (Black, concurring), "[p]reserving sanctity retreat men women can repair escape tribulations daily pursuits, surely value." Carey, 2295. 21 One listener. many locations, expect want hear, cf. 210-211, 2273-74; Cohen California, 403 21-22, 91 1780, 1786-1787, 29 284 (1971), different. "That 'captives' sanctuary mean captives everywhere." Rowan Post Office Dept., 397 728, 738, 90 1484, 1491, 25 736 (1970). Instead, special benefit citizens own walls, legislate protect, ability intrusions. required welcome protect freedom. 748-749, 3039-3040, 1073 (1978) (offensive radio broadcasts); 759-760, 3045-3047 (Powell, part judgment) (same); Rowan, supra mailings); Kovacs Cooper, 336 77, 86-87, 69 448, 453-54, 513 (1949) (sound trucks). reflected complete expressive including operating Schneider State, 308 147, 162-163, 146, 151-152, 155 (handbilling); Martin Struthers, 319 141, 63 862, 1313 (1943) (door-to-door solicitation). cases, acknowledge homes. Schneider, example, handbilling, spoke right willing receive it." Similarly, solicitation Martin, did "home owner could himself sign 'that he disturbed.' " Kovacs, 86, 453. "never intimated visitor insert foot door insist hearing." Ibid. There force remains considered, recipients communications. remedy. Council Los Angeles Taxpayers Vincent, 466 789, 808-810, 104 2118, 2130-2132, 80 772 (1984). tailored, each proscription's appropriately targeted evil. Vincent upheld signs supporting regulation, esthetic avoiding visual clutter blight, Complete substantive evil—visual blight—[was] merely possible byproduct [was] medium itself." 810, 2131. 24 same true type fundamentally 151-152 (solicitation); Murdock Pennsylvania, 105, 870, 1292 (solicitation). (marching). 954-55 (in activity"). flow information [is not] household[s], Organization Better Austin Keefe, 402 415, 420, 1575, 1578, (1971). Here, contrast, household, public. picketers seek disseminate message public, intrude resident, especially way. some purpose, nonetheless inherently offensively intrudes devastating effect quiet enjoyment beyond doubt: 'To inside becomes something less continue[s]. [The] tensions pressures psychological, physical, not, reason, inimical family truly domestic tranquility.' 478, 2299 (REHNQUIST, dissenting) (quoting Wauwatosa King, 49 Wis.2d 398, 411-412, 182 N.W.2d 530, 537 (1971)). 26 his relatively large protesters doorstep attempt cease performing abortions. actual irrelevant; solitary invade 478-479, ("Whether accompanied few feel comfortable knowing stranger lurks home"). scarcely questioned. Bolger Youngs Drug Products Corp., 463 60, 83-84, 2875, 77 469 (1983) (STEVENS, (as communications ideas expressed, "strikes values," "regulations strike constitutionally balance advocate's convey recipient's quality environment"). 27 intrusive audience Consolidated Edison Public Service Comm'n York, 542, 2326, 72, 2883. target just "captive." resident figuratively, perhaps literally, trapped subtle impact left 1786-1787 ease other circumstances). very unwelcome home," dissenting), "created tailored. Particular hypothetical applications to, resident's her business meeting, present invitation resident—may somewhat questions. Initially, terms apply circumstances, goal privacy, A-26, speaks "residence dwelling," business, 457, 2288 inapplicable hold meeting). analysis grounded listener, constitutionality applying hypotheticals question. are, questions today dispose challenge. primarily presumptively justifiable it. largely scope, fail. 30 Reversed. 31 judgment. 32 I forbade unconstitutional face. If applied kind carried clearly Amendment, involved groups people, times am convinced, absent record indicates, single-residence smaller forbidden, range possibly render substantially overbroad 33 question, forbids says language limited. "any Gen.Code 9.17(2) That construed deliver desired neighbors passersby. Arguably, located blocks larger Indeed, latter natural seems area town, i.e., occurs anywhere around town. 34 Furthermore, authoritative limits proscription. is, both whose issue, overturn routinely fairly doing so—an relies resolve another case. Ante, 482. understand urged meet stated objectives, "completely (ED Wis.1985), "a forum," 798. heard Appeals, below, thought raised concerned validity "in neighborhood," 1339, 1348 (CA7 1986) (emphasis original), observed "restricts picketing" commercial strip along West Bluemound Road," ibid. judge understood confined ambit lawful non-residential area." 1356 (Coffey, dissenting). Finally, briefs argued contrary, 12-13, 13, 41, 42, 43; Reply 2, 35 endorses relying counsel's representations, made taken apparent failure press reservations statements past reaching statute, relied reliable binding officials how enforced. DeFunis Odegaard, 416 317-318, 94 1704, 1706-1707, 40 164 (1974); Ehlert States, 99, 107, 1319, 1324-25, 625 (1971); Gerende Supervisors Elections Baltimore, 341 56, 71 565, 745 (1951). none limiting appears courts. 36 sufficient overbreadth doctrine frequently emphasized "strong medicine" "has employed sparingly resort." 2916, my view, forbid face hence those, like At manner. legal officer create doubts mind, enforced put aside approach sustain does, await developments. whom MARSHALL joins, dissenting. 38 sets tests governing presented, proceeds most them correctly. Regrettably, though, errs step analysis, approves significantly government's legitimate goal. dissent. 39 absolutely prohibits thereby restricting forum.1 Consequently, correctly states, well-settled test: restriction viewpoint neutral,2 communication, 482; 954-55, Assuming construes does,3 reserves residents' 484-485; 470-471, 2295-2296, critical specify mere fact neighborhood implicate unduly coercive exacting regulation. solicitor, (1943), mail, (1970), forbidden. excessive noise (1949), or, waves, (1978). conduct though involves elements. crowd imprison house shout slogans carry signs. long coerce occupant, heightened implicated. 41 foregoing distinction crucial directly affects prong quarrel reliance (1984), proposition blanket tailored" forbidden necessarily produces eradicate. 485-486; 808, 2130-31; 830, 2142 (BRENNAN, However, test requires demonstrate offending aspects separately, intrusively, controlled. Thus elements eliminated without simultaneously eliminating completely, fails test. Without that, unregulated, might coercive. illustrated found, took up sign-carrying, slogan-shouting regularly converged Dr. Victoria's addition protesting, warned young children near Victoria "baby killer." Further, throng trespassed onto Victorias' once blocked exits home. 795 Wis.1985). Surely power prevent abuses. regulate number picketers, hours during picket. neutralize regulated entirety. Once size, volume, controlled ensure coercive, remains, conveyed lone, silent individual, back forth sign. NLRB Retail Store Employees, 607, 618, 2372, 2379, 377 (1980) result). Such implicates Therefore, 43 attempts justify sweeping prohibition. Central that: "[I]n contrast [to forms communication], [here] 486. 44 reasoning flawed. First, applies protest giving rise cites evidence support assertion generally, specifically, desire communicate "targeted resident." (In fact, uncontradicted affidavit, found 795.) While picketers' seen house, visible sure, sight picket, focusing protection. Even site-specific identifies attention. 331, Nor ultimate goal—to influence conduct—change analysis; 419, 1577-78, defeat second flaw assumes "inherent." briefly examines ordinance: "[E]ven [447 U.S.,] 478-479 [100 2299] ('Whether home')." (ellipses opinion). reference dissent, sole assertion, conjures images "lurking" stranger, secreting herself thief night, threatening harm. hardly apt depiction midafternoon, notorious. Contrary declaration regard, far picketer desires harass unachievable limiting, volume protest. If, hand, intends crafted allow him intruding resident. discomfort disagrees someone inside. indeed uncomfortable, warrant silencing 46 valid neutrally regulates further. examine condones suppresses necessary. 47 "GET WELL CHARLIE—OUR TEAM NEEDS YOU." 48 fifth grader period time friendly begins acknowledgment "operates Amendment," ante, 479, "traditional 480. concludes, total "only communications." 485. indifferent unwilling. 50 believe advance rejecting BRENNAN calls "rogue fora," 492, 1. 833, 3465, (1985) quite obviously stadium park. Attaching label forum" help safe efficient traffic justifies denying march will. 51 Two characteristics picketing—and difficult recognize "[l]ike kinds expression, mixture 618-619, element side, think perfectly pedestrians loitering carrier residence—and presumably pause give opportunity message—regardless reader agrees, disagrees, being expressed. Second, bears emphasis 52 "[A] ways. Independently convey, offensive—perhaps too ugly setting. Other speeches, elegantly phrased dulcet tones, listener speaker's message." 546-547, 2338, (footnotes 53 Picketing virtue repetition hostile presentation, disruptive environment irrespective conveyed. 54 gave opposition practice; cause psychological distress. reveals, redelivered group—in essence, increasing intrusiveness repeated (1949). function virtual siege. imposing harm shelter protected. believe, strong doctor, fair message, little justification allowing remain repeat again family. enactment. 55 unquestionably "overbroad" then, doctrine's medicine," (1973), "and developments," 491 (WHITE, judgment). Broadrick, framed thusly: 56 "To matter way, where involved, real, well, relation statute's plainly sweep." 615, 2918. "real." Whether "substantial" "plainly sweep" My hunch probably friendly, innocuous, brief unfriendly sweep insubstantial. countervailing persuasive me. gives much discretion decisions; sit developments, potential act peril. simple amend limit unreasonably reasonable purpose. respectfully soundly rejects rogue 479-481. wholeheartedly portion opinion. "two-court rule" creates quick rule focuses history 796 Wis.1985); deferred Court; banc issued court, let two, nothing remand. Like wary strained "single-residence" weight attorney's law; interpretations bind us. Booksellers, purposes reading.

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