Document: 493 U.S. 265 110 S.Ct. 625 107 L.Ed.2d 644 Henry G. SPALLONE, Petitionerv.UNITED STATES et al. Peter CHEMA, Petitioner v. UNITED Nicholas LONGO and Edward Fagan, Petitioners Nos. 88-854, 88-856 88-870. Argued Oct. 2, 1989. Decided Jan. 10, 1990. Syllabus In 1985, in a suit brought by the United States, city of Yonkers its community development agency were held liable for intentionally enhancing segregation housing violation Title VIII Civil Rights Act 1968 Equal Protection Clause Fourteenth Amendment. early 1986, District Court entered remedial order, which enjoined two named defendants their officers, agents, others acting concert with them from discriminating required to take extensive affirmative steps disperse public throughout Yonkers. Pending appeal liability orders, failed refused various steps. Shortly after Appeals affirmed Court's judgment all respects, parties agreed consent decree setting forth certain actions would implement including adoption, within 90 days, legislative package known as Affordable Housing Ordinance. The was approved 5-to-2 vote council—which is vested city's powers—and January 1988. When again delayed action, an order on July 26, 1988, requiring enact ordinance providing that failure do so result contempt citations, escalating daily fines city, imprisonment recalcitrant individual councilmembers. After resolution intent adopt defeated 4-to-3 council vote, petitioner councilmembers constituting majority, petitioners imposed sanctions set 26 order. affirmed, rejecting, inter alia, petitioners' argument had abused discretion sanctioning them. this stayed imposition against petitioners, but denied request stay, enacted September 9, face approaching $1 million. Held: circumstances case, portion imposing if they favor abuse under traditional equitable principles. never nor found be individually any violations upon based. Although injunctive directed not only also officers discriminate, remaining parts city. It fact, capitulated present phase there reasonable probability alone have achieved desired result. arguments it pointed out sort pressure such place eight months earlier, secured compliance important through threat bankrupting alone. While Speech or Debate federal common law immunity cases control question whether local legislators should immune sanctions, some considerations underlying doctrine must inform exercise discretion, particularly theme restriction legislator's freedom undermines "public good" interfering rights people representation democratic process. There are significant differences between fining legislators, since latter course causes view wishes constituents fiscal solvency solely own personal monetary interest, thereby effects much greater perversion normal Thus, fact holding elected officials manner "extraordinary," recognized, court proceeded first secure Only approach produce time even been considered. This limitation accords that, selecting least possible power adequate end proposed. Pp. 273-280. 856 F.2d 444 (CA 2 1988), reversed. REHNQUIST, C.J., delivered opinion Court, WHITE, O'CONNOR, SCALIA, KENNEDY, JJ., joined. BRENNAN, J., filed dissenting opinion, MARSHALL, BLACKMUN, STEVENS, joined, post, p. 281. James D. Harmon, Jr., Brooklyn, N.Y., petitioners. Sol. Gen. Kenneth W. Starr, Washington, D.C., respondents. Chief Justice REHNQUIST Court. 1 action most recent episode lengthy lawsuit racial issue here proper judicial hold four councilmembers, refusing legislation implementing earlier We discretion. * 1980, States complaint alleging, defendants—the Community Development Agency—had engaged pattern practice discrimination, 1968, 82 Stat. 81, amended, 42 U.S.C. § 3601 seq. (1982 ed.), Government plaintiff-intervenor National Association Advancement Colored People (NAACP) asserted had, over period three decades, selected sites subsidized perpetuate residential segregation. plaintiffs' theory equated families minority housing, thus disproportionately restricted new family projects areas southwest Yonkers—already predominately populated minorities. 3 liable, concluding segregative effect "consistent extreme," "the desire preserve existing patterns ha[d] factor sustained opposition East other overwhelmingly white City." Bd. Ed., 624 F.Supp. 1276, 1369-1371 (SDNY 1985). City Yonkers, employees, successors persons active participation them" from, promoting taking intended deny make unavailable person account race national origin, blocking limiting availability east northwest basis origin. 635 1577 1986). Other They Part IV noted previously committed itself provide acceptable 200 units condition receiving 1983 Block Grant funds Federal Government, so. Consequently, designate submit Department Urban Assistance Plan 1984-1985 documentation. Id., at 1580-1581. VI develop November 1986 long-term plan "for creation additional . Yonkers." 1582. did mandate specific details how many developed, where constructed, units. 4 Under Charter powers council, consists mayor six practical purposes, therefore, acts when comes enactment legislation. however, comply Parts propose informed VI. NAACP then moved adjudication civil coercive declined action. Instead, agreement appoint outside adviser identify draft plan. 5 December 1987, Second Circuit 837 1181, we subsequently certiorari, Ed. 486 1055, 108 2821, 100 922 (1988). Appeals' decision, "certain [would] connection consensual implementation VI" remedy App. 216. (petitioners Spallone Chema voting no), 28, Sections 12 18 established framework bases orders action.1 Perhaps 17, adopt, conditioning construction multifamily inclusion 20 percent assisted units, granting tax abatements density bonuses developers, zoning changes allow placement developments.2 6 For several more months, continued delay toward loath because wished exhaust remedies appeal, obtained stay As intransigence, entry Long Term Order based prepared lawyers during negotiations April On June 13, following hearing draft, Order, provided detail prescribed 17 decree. weeks further enact, before August 1, "legislative package" described section decree; second paragraph provided: 7 "It ORDERED event fails shall show cause 10:00 a.m. why contempt, each Council member he contempt." 398. 8 Further provisions specified amounts councilmember who remained custody Marshal imprisonment. $100 day, doubled consecutive day noncompliance; fine members $500 per day. 9 Notwithstanding substantial package, Ordinance, majority). afford opportunity adjudicated contempt. rejected arguments, questioning reasons negative votes, sanctions. accept contention subject alone, see id., 461, overruled objection lacked direct light judgment, thought council's adoption Ordinance "in nature ministerial act." 460. 10 pending appeal. thereafter, adjudications both limited exceed million (CA2 1988). councilmembers' method enforcing judgment. recognizing "a obliged use 'least proposed,' " id. 454 (quoting Anderson Dunn, Wheat. 204, 231, L.Ed. 242 (1821)), concluded choice could invocation immunity, Tenney Brandhove, 341 367, 71 783, 95 1019 (1951), "[w]hatever scope legislators' does insulate has body." F.2d, 457. Finally, act sufficient expressive content accorded First Amendment protection symbolic speech, interest obtaining judgments constitutional unquestionably justifies whatever burden expression occurred." Ibid. 11 Both requested filing disposition petitions certiorari. granted request. 487 1251, 109 14, 101 964 With sanction finally Fagan no. Because raise issues about appropriate 489 1064, 1337, 103 808 (1989), now reverse. II us relatively narrow. can no discrimination: decision respects Appeals, Nor order; bounds 1236, Our focus, then, question. 13 contend violates speech Amendment, entitled absolute taken discharge responsibilities. find unnecessary reach either these questions, conclude court-proposed 14 Before discussing principles informing our conclusion, note posture case doing. But made action—the Agency. defendants, and—in language prohibitory decree—officers, furnishing gone require those portions evidence court's date 15 From until certiorari involving merits litigation backed filled response efforts obtain sought unsuccessfully vacated. During amount bargaining simply virtue length took appellate process run course. stayed, sensibly interested moving rapidly satisfy rather than forcing realized begin pursuant decree, comply, potential builders developers willing put up money construction. To extent voluntarily, without threatening rescind reversed, proceed 16 All changed, became final. heard comments counsel At stage contemplated methods ensure orders. considered proceeding Rule Procedure 70, whereby party ordered perform nonetheless "deemed" performed it. suggested transference functions relating court-appointed affordable commission; opposed method. way procure ordinance. means enforce rely axiom "courts inherent lawful Shillitani 384 364, 370, 86 1531, 1535, 622 (1966). district necessary past broad powers. See Swann Charlotte-Mecklenburg 402 15, 91 1267, 1275, 28 554 (1971). while "remedial equity task, unlimited." Whitcomb Chavis, 403 124, 161, 1858, 1878, 29 363 "[T]he courts devising into interests state authorities managing affairs, consistent Constitution." Milliken Bradley, 433 267, 280-281, 97 2749, 2757, 53 745 (1977). And places proposed.' Wheat., 231). 19 Given committing plan, certainly cannot say chosen ensuring compliance. noted, beginning, numerous statutory violations, subjected elaborate decrees upheld Petitioners, hand, "its them," 20, ordering city.3 capitulated. briefly August, September, 2. sure late result, just fines, emergency financial curtail sanitation services (resulting uncollected garbage), eliminate part-time school crossing guards, close libraries parks, lay off approximately 447 employees. ensuing weeks, forced another 1,100 N.Y. Times, Sept. 8, A1, col. 4; 4. 21 1987-1988 (HAP) vital carry obligation days. 176. schedule equal assessed recognized consequence imminent bankruptcy 177-179. Later same support putting effective HAP reaffirming commitment build mandated 183.4 22 nub matter, accomplish impose well case. 23 absolutely privileged damages. applied regional legislatures Lake Country Estates, Inc. Tahoe Regional Planning Agency, 440 391, 404-405, 99 1171, 1178-1179, 59 401 (1979), damages relief Supreme Virginia Consumers Union Inc., 446 719, 731-734, 1967, 1974-1976, 64 641 (1980). holdings particular bill. this. "Freedom legislature," observed, "was matter severed Colonies Crown founded Nation." Tenney, supra, U.S., 372, S.Ct., 786. 24 perhaps earliest American consider import privilege, Judicial Massachusetts, interpreting provision Massachusetts Constitution debate privilege house organized body, composing it, declared will house. pleasure house; derives people. ." Coffin Coffin, Mass. 27 (1808). underlies emphasized 1178-1179; 377, 788. quite sensitive fact; observed: 25 "I know parallel official, 'You may eventually you cast vote.' I extraordinary." 433. Sanctions coerce and, course, restrict accordance current best interests. believe types fines. designed Even though legislator extreme position—or felt his position—that huge preferable enacting him motivate want pocket financially. Such encourage effect, declare avoid legislate, themselves. encouraged otherwise reason adverse A councilman pay "bankrupting fine" motivated whose welfare part responsible. calculus engage regularly. "extraordinary" "This '[t]he (1821); re Michael, 326 224, 227, 66 78, 79, 30 (1945)." 371, 1536. Reversed. whom STEVENS join, dissenting. understand appreciate concern capacity. hope ever open official defiance values valid prompted Judge Sand's manner. firmly use, circumstances, essential. aware: 31 "The transcend go very foundation system government. If defy especially unpopular, situation tolerated, government fails. morning less that." 177. 32 today recognizes prior promise redress history Yet reprimands simultaneously continuing true source impasse, proved fruitless. 33 parsimonious wield intimate contact years familiarity political climate gave special insight cooperative failed. detached vantage point, hardly judge combination thereof likely work quickly disruptively. ex post rationalization what Sand done justice facts art judging, dissent. 34 relentlessly preserved exacerbated population black Hispanic residents grew 3% 1940 19% 1980. Over 80% reside Yonkers' section, channeling happen chance. Starting 1949, initiated series low-income serve needs growing population; concentrated 96.6% adjacent preserving communities.1 time, manipulated system—e.g., altering attendance zone boundaries, opening closing schools, assigning faculty administrators schools race—creating maintaining racially segregated predominantly being educationally inferior. 35 Respondent Southern New York challenge discriminatory practices, respondent intervened. 14-month trial, 277 pages myriad omissions agencies intentional education. Board Education, 1276 (1985). respect issue, "remarkably extreme" segregationist "characterized theme: influenced [predominantly white] City, acquiescence officials." 1369, 1370. operation City's ward strong incentive councilmen defer views whole councilman," routinely policies give constituents' ardent insistence purity. summed factual findings follows: 36 "In short, unusual complexity contentions matched strength abundance. Having entirety, fully persuaded concentration exists Southwest discrimination officials, pursued constituent pressures select segregation, reject oppose threaten evident selection continued, unbroken, 1982." 1373. 37 conducting 6-day determine remedies, issued May Remedy facilitate (SDNY). housing; 140 days 60 leaving choose precise number location given approval detailed specifying, among things, constructed acquired, location, rent levels degree subsidization. 38 requirements immediately defaulted obligations. Officials proposed months. Indeed, pointedly told aspects Order. Respondents motion, instead negotiating appointment help drafting 39 recommended available housing. responded passing adviser's general terms drastically efficacy remedy, (1) staying exhausted appeals; (2) reducing 800 200; (3) allowing committees screen applicants modified resolution. offered explaining believed "embody[ing] maximum purposes itself." 87. proposal merely dilatory tactic, asked demonstrate good faith preliminary identified by, example, requesting neighboring county permit 40 neither passed sites. attorney still trying devise politically assure forthcoming. remainder bickered used promised 41 rulings claims. doing, "frivolous" finding officials' decisions "segregative purpose." 1222, cert. denied, next month, indicated started 25, reached principle. 27, agreement, "First Remedial Consent Decree Equity" (Consent Decree), reiterated pledge seven sites, timetable. forgo review aspect goal developed conjunction market-rate developments, needed private Decree, expressly (referred Ordinance) future 20% incentives changes, abatements, bonuses. Decree. Section negotiate resolve "subsidiary issues" weeks. 43 Rather abide almost disavow First, citing intense delete forgoing return $30 grants fund programs ultimately aside duty neighborhoods. promptly "not interested" completing 18. vacate toto, arguing permission Archdiocese using seminary property site constituted "mutual mistake" invalidating entire agreement. transparent ploy responsibility order." 275. 44 recalcitrance, respondents piece recently attorneys consultants. revisions respondents, evidentiary hearing, which, accommodating concerns, petition writ original Education 45 unanimously declaring moratorium unabashed Nearly deadline legislation, earliest. 46 renewed defiance, assurance basic comply. He orally pass endorsing follow fine-tuned final aspects. defeating honor previous commitments.2 47 submitted timetable penalty baldly voluntarily by" Thereafter, (Contempt Order) directing drafted consultants Contempt timely enacted, sanctions: fined double noncompliance thereafter; incarcerated defiance. Then, accommodate expressed running afoul notice applicable relaxed Order's stated satisfied adopted met. 48 vote. Finding defeat "but latest contempts," 416, voted 49 eventual ceiling escape approved. issuance mandate, application similar stay. week later, votes Fagan.3 50 holds acted effort Ante, 276. holds, assess directly responsible engineering believes, "failed time." 280. 51 disfavor rests premises: "reasonable [alone] result," ante, 278; "effects city." completely superfluous to, intrusive than, reasons, Each premises mistaken. 52 acknowledging "could 277, confidently concludes enough personally well. information July, confidence chimerical. seriously disrupted employment, ibid., possibility maintain defiant despite insolvency bespeaks ignorance entrenched indifference reality. adhere longstanding recognition "district firsthand experience qualified deal 'flinty, intractable realities day-to-day commands.' Paradise, 480 149, 184, 1053, 1074, 94 203 (1987) 6, 1271, (1971)).4 Deference where, here, record clearly reveals employed caution step patiently weathered whirlwind evasive maneuvers misrepresentations, 284-289; alternative securing sanctions;5 carefully ramifications end, readily acknowledged: 54 official: extraordinary. 55 extraordinary great cost energy alternatives that. unsuccessful. 56 according weight cautious contextual vastly superior compounds error more. turns blind eye suggesting might significantly increase chance success. Second, acknowledge supplementing ones promptly, minimizing overall disruptive generally particular. 57 events leading clear, extremely responsive segments constituencies vociferously integration. Councilmember explained wanted me judge." 426. openly down line. my remains." 457-458. Moreover, once gained attention refusal integrate, clear representatives preferred bankrupt martyrdom contemporaneous article "[t]he Councilmen riding wave resentment insist bankrupted. Aug. 5, B2, city; least, capitulation widely perceived suicide. assuming bankruptcy, play "chicken" colleagues secretly hoping one colleague change position suffer wrath electorate. "[w]hat competition attract greatest notoriety, martyr regard 409 (emphasis added). 58 acutely aware conditions, repeatedly warned assume compel See, e.g., 410 (threatening "punishes innocent" "doesn't necessarily members"); 415 (bankrupting "is indeed unfortunate exactly urging itself"). Reply Memorandum Law Support Stay No. 88-6178 (CA2), pp. 9-10 (city argued context media spectacle surrounding Councilmembers little avoiding municipal hopes near future. rescue bankruptcy").6 clearest warning risk came resume compounded intervening period, meaning owe $3.2 $104 week. listening proposal, attorney: "Mr. Sculnick, seated behind Are making granted, 15th, passed? representation?" 418. Despite enormous soon trigger replied: "No, your Honor, don't statement."7 61 uncharitably infers hindsight posturing, high stakes agree implicit suggestion call bluff. 62 ignores reality 1988 focuses exclusively 277-278. Plan, prerequisite qualification subsidies. essence, convince $10 funds. promising funds—any implied was, false subsequent events. mere 287. "crossed line form governmental responsibility." 409. 63 eroded outcry magnified determination post-Decree conduct represented "efforts extricate consequences believes resulted plan." 272. "success" heightened level obstruction recalcitrance justified again. addition ignoring compliance, inexplicably actually hasten design, impede knew ever-growing drain threatened disrupt critical frustrate success scheme. Fines fisc "diminish resources Decree," Providence, 492 602, 610 (RI 1980), disparate impact poor residents. 65 ancillary seems entirely appropriate—indeed obligatory—for considered, coerced conclusion redundant exaggerates likelihood worked all, 293-295, due importance speed, increased odds prompt unattractive option tremendous fault deciding err side safe sorry. sum, casual result." 278. Rather, vehement unyielding acumen borne years' environment, led reasonably induced slowly success, enhance promptness ultimate permissible court-for-a-day—and poorly indefensible. B 67 purports bolster contending interference 'interests Constitution.' 276 (1977)). Without (as regional) bodies, 278, declares principle independence "must this." 68 According preclude attempting promises contained acknowledges "[s]anctions interests." 279. Nevertheless, contends, coercion process" 280, therefore favors fall-back position. 69 explains themselves," decision-making weigh public's interests—a inappropriate represent constituents. contrast, presumed fiscally solvent decisionmaking competing interests—"the regularly." bottom, suggest constitute "greater replicate process' familiar mode decisionmaking. 70 evinced overriding replicating "normal" designing executive who, like presumably guided sense benefit. injunctions occasionally enforced criminal imprisonment, see, Hutto Finney, 437 678, 690-691, 98 2565, 2573-2574, 522 (1978), jailing categorically entity indirectly. author today's majority written, "There speculation State 'less intrusive' 'sending jail.' So long plaintiffs authority amply vindicated award fees [akin bad-faith decrees], paid 716, 2587 (REHNQUIST, dissenting) (citation omitted). 72 Thus presumes court, seeking violation, far care "normal (balancing interests) analogous officials. fairly derive premise immunity. 73 collectively pursue vision free "without fear interference" lawsuits. 731, 1974, Of bound limits placed Constitution; laws unconstitutional, unconstitutional. sphere legitimate activity," 376, 788, (1951)—i.e., formulating expressing self-defined boundaries—legislators "immune deterrents uninhibited duty." Private lawsuits chill robust encouraging controversial stances protect themselves 'not litigation's results defending themselves.' Virginia, 732, 1974 Dombrowski Eastland, 387 82, 85, 87 1425, 1427, 577 (1967)).8 interests, afforded suit. 74 prior, longer "acting field traditionally 379, 789.9 imposes definition good," command obey dictates override countervailing preferences polity, ardently shared. Local allocate uses.10 More point court-ordered prefer segregation: 'Public sworn uphold bowing hypothetical prejudice deeply held.' Palmore Sidoti, 466 429, 433, 104 1879, 1882, 80 421 (1984) Palmer Thompson, 217, 260-261, 1940, 1962, 438 (1971) (WHITE, dissenting)). Defiance results, perpetuation aimed. 283-284.11 Hence, (through council) independence.12 75 doctrine, "perversion "sort regularly," misguided. "calculus" preordained, relevant encourage—or coerce—compliance. independent value process; none overwhelming justify stripping weapon circumstances.13 76 characterization "perverse" persuasive, myopic inquiry. courts' intrusion obviously accrual every 296-297. Particularly broader pronouncement untenable.14 C 77 concede intuitively seem forms coercing intuition withstand scrutiny cases. necessary, levy flouting treat differently "sphere activity." 78 key decided apply basis. delicate justifiably uncertain so, promptly; curtailed budgetary constraints tensions undermine supplement surely sensible approach. contrary fierceness seriously, scourge politics dismissive wisdom point. III 79 creates law; indeed, invokes sort. directs message judges repeated issues, choices conscientious deliberate second-guessed daunt courage faced protracted yet worry unintended emboldening continually test courts, postponing reflect inflamed feeling understanding." Cooper Aaron, 358 1401, 1413, (1958) (Frankfurter, concurring). obligations Solicitor General oral argument, sections full text provides agrees (a) (inclusive currently planning variances, exceptions, discretionary approvals construction) units; (b) developments referred clause (a); (c) developers; (d) provided, substantially inconsistent character area; (e) (including Industrial Authority vehicle municipally-designated, not-for-profit Corporation) (collectively, 'Mandated Incentives'). Mandated Incentives practicable but, event, later decree." Government's statement brief, Brief 23-24, error. distinguishes instant "would 'voluntarily [court's orders].' Opposition Plaintiffs' Proposed Order; 351). HAP, twice tabled initiative 173, "deem" HAP's years. 174; n. 7. Suffice willingness "voluntarily." 1980 census, 6% minorities, largely small One neighborhood 29% abutted tract comprised 50% neighborhood, located Runyon Heights. century large land senator regularly busloads blacks Harlem picnics auctioned parcels Heights bounded north called Homefield. deeds Homefield properties restrictive covenants prohibiting sale Neighborhood purchased maintained 4-foot strip barrier streets Most terminate dead below strip, essentially sealing neighborhood. housed senior citizens, whites. 1; majority. terminated heralded lasting Since date, built election last November, "campaigned [for Mayor] continue resistance desegregation neighborhoods," Nov. 1989, B1, "race [that] seen referendum reelected filling Spallone's vacated seat opposes compliance; "candidates appea[r] majority." Whether remains also, Sheet Metal Workers EEOC, 478 421, 486, 106 3019, 3055, 92 344 (1986) (Powell, concurring) (District "having ending practices"); Fullilove Klutznick, 448 448, 508, 2758, 2790, 902 (1980) (Court "recognized 'a balancing left, limits, sound trial court' ") Franks Bowman Transportation Co., 424 747, 794, 96 1278, (1976) concurring part)). discarded alternatives: vesting judicially created "deeming" enjoining lack support. binding commitment. objected commission, divested field, difficult characterize remedying discrimination. run. battle council; "[o]bviously, say, well, Sand, ["deeming" enacted], reassert authority, doesn't get built." 357. commit program absent ongoing evidenced Circuit. inquired changed mind accrued payable replied think playing Russian roulette behalf. couldn't conscience hoped allowed rid excuse. belief vote." Tr. (Aug. 1988) Cf. Powell McCormack, 395 503, 89 1944, 1954, 491 (1969) ("[T]he insures task representation"). mean policy concerns role variety different voiced choosing remedies. Here, "[a]t proceedings, [district] hand enable input shaping destiny 205. Monell Dept. Social Services, 436 658, 681, 2018, 2031, 611 (1978) (observing historical "ordering taxes levied collected [by municipalities] federal-court judgments, infraction found"); Griffin Prince County School Board, 377 218, 233, 84 1226, 1234, 256 (1964) (district "require [County] Supervisors theirs reopen, operate, ."); cf. Watson Memphis, 373 526, 537, 83 1314, 1320, 529 (1963) ("[I]t obvious vindication conceded dependent expensive them"). Columbus Penick, 443 449, 459, 2941, 2947, 666 (1979) (once "[e]ach instance fulfill continues Amendment"). Put way, legislature circumvents structural protections citizenry unconstitutional behavior multibranch process, 300-301, de facto ruling 18, 1409, (" 'If states may, will, annul destroy acquired constitution becomes solemn mockery' Peters, Cranch 115, 136, (1809)). violated Constitution, mandating unjustified preferences, nevertheless considering rejecting objection. Cooper, 1409 ("[F]ederal judiciary supreme exposition Constitution" adjudication). raised serious substantive objections, otherwise, (which council-approved Decree). 416 ("The objections ordinance"). claims protected Characterizing core contends infringes right communicate attempt recharacterize common-law unpersuasive. publicly arguably contains communicative element, quintessentially governance; understood executing actors authority. claim refuse written exemptions restrictions remand disagree sure, promote (even though, above, mandatory appearance deference charade). somehow former easily cling untenable; absurd ought concerned guilty unconscionable handy excuse belated public-oriented probably successful coercion. suggests succeeded; simultaneously, renders points 274, accurate observation contravene 300; 505, 1955 ("Freedom activity [is] relieved themselves"). unclear, insists specifically participate 277. proposition, proviso binds "City successors, refrain acts, refer equally "adopt legislation"; universally duties Third, were, law, "binding servants, attorneys, receive actual service otherwise." Fed.Rule Civ.Proc. 65(d). assuming, arguendo, nowhere resort "intrusive"

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