Document: 544 U.S. 550 JOHANNS, SECRETARY OF AGRICULTURE, ET AL.v.LIVESTOCK MARKETING ASSOCIATION AL. No. 03-1164. Supreme Court of United States. Argued December 8, 2004. Decided May 23, 2005.* The Beef Promotion and Research Act 1985 (Beef Act) establishes a federal policy promoting marketing beef products. Secretary Agriculture has implemented the through Order (Order), which creates Cattlemen's Board Board) an Operating Committee, imposes assessment, or "checkoff," on all sales importation cattle. assessment funds, among other things, promotional campaigns approved by Committee Secretary. Respondents, associations whose members pay checkoff individuals cattle are subject to checkoff, challenged program First Amendment grounds, relying States v. Foods, Inc., 533 U. S. 405, in this invalidated mandatory that funded mushroom advertising. District found unconstitutionally compel respondents subsidize speech they object. Affirming, Eighth Circuit held compelled funding may violate even when it is government's speech. Held: Because funds Government's own speech, not susceptible compelled-subsidy challenge. Pp. 557-567. (a) This sustained challenges "compelled-subsidy" cases, government requires individual private message he disagrees with. See Keller State Bar Cal., 496 1; Abood Detroit Bd. Ed., 431 209. led sustain challenge only purpose was fund supra, at 413, 415-416. However, Keller, found, presumed, be private. cases have consistently respected principle support differs from generally assumed, though squarely held, such does alone raise concerns. 557-559. (b) Respondents argue here because controlled nongovernmental entities, i. e., Committee. In fact, effectively Federal Government. Congress set out overarching some campaign's elements, left development remaining details half appointed whom removal also final approval authority over every word campaign, his subordinates attend participate meetings proposals developed. By contrast, subsidy communicative activities were prescribed law developed under official supervision. Nor Order's mechanism affect analysis. That citizens no right less true when, as here, achieved targeted assessments devoted assessed object, rather than general taxes. need address respondents' argument advertisements, most credited "America's Producers," give impression endorse their message. Neither nor attribution ads Producers" anyone else, so neither can facially invalid theory, record contains evidence conclude ads' would associated with respondents. 560-567. (c) proceed Order, did reach. P. 567. 335 F. 3d 711, vacated remanded. SCALIA, J., delivered opinion Court, REHNQUIST, C. O'CONNOR, THOMAS, BREYER, JJ., joined. post, p. 567, 569, filed concurring opinions. GINSBURG, judgment, 569. KENNEDY, dissenting opinion, 570. SOUTER, STEVENS joined, 1 CERTIORARI TO THE UNITED STATES COURT APPEALS FOR EIGHTH CIRCUIT. 2 Deputy Solicitor General Kneedler argued cause for petitioners With him briefs both Acting Clement, Assistant Attorney Keisler, Irving L. Gornstein, Douglas N. Letter, Matthew M. Collette. 3 Gregory G. Garre 03-1165. Lorane Hebert. 4 Laurence H. Tribe cases. brief Thomas Goldstein, Amy Howe, Philip Olsson, Ronald A. Parsons, Jr., Scott Heidepriem.† 5 JUSTICE SCALIA Court. 6 For third time eight years, we consider whether finances generic advertising promote agricultural product violates Amendment. these unlike previous two, dispositive question issue therefore exempt scrutiny. 7 * A 8 Act), 99 Stat. 1597, announces consumption "beef products," using raised importation. § 2901(b). statute directs implement issuing Order), 2903, specifies four key terms must contain: appoint Board), geographically representative group producers importers, nominated trade associations. 2904(1). convene composed 10 representatives named federation state councils. 2904(4)(A). impose $1-per-head (or "checkoff") comparable imported 2904(8). And used beef-related projects, including campaigns, designed §§ 2904(4)(B), (C). 9 promulgated specified terms. collected primarily councils, then forward proceeds Board. CFR 1260.172(a)(5) (2004).1 proposes projects promotion research. 1260.167(a). designee (see 2.22(a)(1)(viii)(X), 2.79(a)(8)(xxxii)) approves each project and, case materials, content communication. 1260.168(e), 1260.169; App. 114, 143. 1986 temporary basis, referendum make permanent. 2906(a). 1988, large majority voted continue it. Since time, more $1 billion been 132 Supp. 2d 817, 820 (SD 2001), fraction sum spent authorized Act—many familiar trademarked slogan "Beef. It's What's Dinner." 50. fiscal year 2000, example, $48 million $29 domestic promotion. overseas efforts; market food-science research, evaluations nutritional value beef; informational consumers producers. 2902(6), (9), (15), 2904(4)(B). 11 Many messages (though all, see 52-53) bear "Funded America's Producers." E. g., id., 50-51. Most print television logo, usually checkmark "BEEF." 50-52. B 12 two collect several who sell checkoff. Id., 17-19. They sued Secretary, Department Agriculture, number constitutional statutory grounds before us—in particular, impermissibly send communications supportive 2d, 823. Petitioners 03-1165, producers' association producers, intervened defendants program. granted limited preliminary injunction, forbade continued use laud lobby governmental action relating 832. 13 While litigation pending, 405 (2001), violated Noting closely resembles program,2 amended complaint assert activity. 207 992, 996 2002); 30-32. noted promotes commodity, which, contended, impedes efforts superiority of, inter alia, American beef, grain-fed certified Angus Hereford beef. 14 After bench trial, ruled claim. It declared rejected contention survives scrutiny 1002-1007. court entered permanent injunction barring any further collection willing (allowing voluntary checkoffs, thought, require "rewrit[ing]" Act). 1007-1008. Believing cost calculating share attributable too great, declined order refund already collected. Ibid. Finally, made its earlier against "producer communications" praising seeking influence policy. 1008. rule claims, but resolution claim pursuant Rule Civil Procedure 54(b). 15 Appeals affirmed. 711 (2003). Unlike dispute speech; instead, status relevant speech's content, funding. 720-721. Compelled if government's. 16 We certiorari. 541 1062 (2004). II 17 allegedly expression categories cases: "compelled-speech" obliged personally express with, imposed government; required expressed entity. heretofore considered consequences government-compelled 18 first outright compulsion West Virginia Ed. Barnette, 319 624 (1943). schoolchild recite Pledge Allegiance while saluting flag, pain expulsion public schools. "le[ave] open authorities [a person] utter" agree. 634. Likewise, Wooley Maynard, 430 705 (1977), requiring New Hampshire couple State's motto, "Live Free Die," cars' license plates impermissible expression. Obliging people "use property `mobile billboard' ideological message" amounted 715. 19 reasoning compelled-speech carried certain instances speak, disagree. Thus, although upheld state-imposed requirements lawyers bar annual dues, school teachers either join labor union representing "shop" "service fees" equal compulsory fees political matters. (1990); 209 (1977). germane regulatory interests justified membership, accordingly, making those disagreed 15-16; Abood, 234-235. 20 These latter us very similar supra; 3d, 717 ("[W]e agree district `[t]he is, material respects, identical checkoff'" Foods). Deciding assumption S., 416-417,3 concluded controlling. As "law necessity" checkoff; permit fee "germane" "broader scheme," Foods 21 invalidating exactions was, presumed be, entity itself. 11, 212-213; 416-417; Regents Univ. Wis. System Southworth, 529 217, 229, 230 (2000) (because "[t]he University ha[s] disclaimed own," "provide beginning point our analysis"); cf. Rosenberger Rector Visitors Va., 515 819, 851-852 (1995) (O'CONNOR, concurring) (university's Student Activities Fund likely "represents resources . simply belongs students"). Our "[c]ompelled fundamentally different government." 259, n. (Powell, judgment). "Compelled government" — programs one approve—is course perfectly constitutional, taxpayer attest. involve, entirely consist advocating position. "The government, rule, valid policies taxes binding protesting parties. Within broader seems inevitable will advocate defend policies." 229. yet ibid.; 12-13; Rosenberger, 833; Wooley, 721 (REHNQUIST, dissenting). III 22 do seriously principles, contend that, matter, them show dollars Rather, differ dispositively type suggest, role designing turn. 23 write ad copy himself. Board's (All 1260.213 (2004).) entity—the Committee—cannot "government speech." contention, reject premise: Government itself.4 24 promotions end established Government.5 directed implementation "coordinated program" promotion, "including paid advertising, advance image desirability products." 2901(b), 2902(13). specified, terms, what shall contain, see, e. 2904(4)(B)(i) (campaigns "shall take into account" types products), not, 1260.169(d) (2004) without prior approval, refer "to brand name product"). answerable (and well). 25 Moreover, demonstrates exercises campaign. All proposed reviewed officials substance wording, rewritten Department. 118-121, 274-275. Secretary's rejection: Officials 111-112. 26 degree control distinguishes Keller. There bar's plaintiffs objected outline Indeed, many consisted lobbying legislature various issues. 5, 2. When, sets overall communicated disseminated, precluded government-speech doctrine merely solicits assistance sources developing specific messages. 27 qualify speech" revenues. mechanism, argue, effects: gives politically accountable legislators, narrow interest heed views, perception advertisements speak 28 point. analysis altogether unaffected assessment. Citizens exclusively Cf. Lee, 455 252, 260 (1982) ("There principled way distinguish between Social Security Act" evaluating burden free exercise religion). confer one's fund, injury (as opposed speech) stem mode accounting. Bowen Roy, 476 693, 700 (1986) ("The Exercise Clause afford dictate conduct internal procedures"); 716-717 (STEVENS, part result). 29 Some pointing democratic accountability. See, judgment); 235. But references "traditional controls," signify duplicates Appropriations Clause, Const., Art. I, 9, cl. 7, instance line item appropriations bill. Here, safeguards adequate apart basic statute, promotions' regulations after notice comment. official, oversees program, appoints dismisses personnel, retains absolute veto power advertisements' down wording.6 Congress, course, oversight authority, mention ability reform time. No required.7 30 second point, follows: crediting uses money seeming endorsement Communications cannot speech," attributed someone person attributed, funding, unwilling instrument communication, objection. 31 determine validity argument— relates subsidy8 regard facial attribution, possible harm. Court's enjoining enforcement thus theory. 32 On facts, theory might (again, view point) form basis as-applied challenge—if established, record, however, includes stipulated sampling 47, none exemplars provides except tagline identifying apparently presented factual findings trial testimony party identified, employee respondent said think group.9 Whether labeled coming silent. itself, term10 standing alone, sufficiently convince reasonable factfinder particular producer, tarred ad.11 affords Circuit's part. 33 34 Respondents' asserted declaring Act, entirety. having enjoined Amendment, had occasion grounds. now claims. 35 judgment vacated, remanded proceedings consistent opinion. 36 ordered. Notes: Together 03-1165,Nebraska Cattlemen, et al. Livestock Marketing Association al., certiorari same court. &#x2020; Briefs amici curiae urging reversal California Bill Lockyer, California, Richard Frank, Chief General, Mary Hackenbracht, Senior Linda Berg, General; Texas Greg Abbott, Texas, R. Ted Cruz, Rance Craft, Barry McBee, Edward D. Burbach, William Vázquez Irizarry, Justice Puerto Rico, Attorneys respective Troy King Alabama, Terry Goddard Arizona, Mike Beebe Arkansas, Ken Salazar Colorado, Jane Brady Delaware, Charles J. Crist, Florida, Thurbert Baker Georgia, Mark Bennett Hawaii, Lawrence Wasden Idaho, Lisa Madigan Illinois, Miller Iowa, Stumbo Kentucky, Foti, Louisiana, Joseph Curran, Maryland, Michael Cox Michigan, Jim Hood Mississippi, Jeremiah W. (Jay) Nixon Missouri, Jon Bruning Nebraska, Patricia Madrid Mexico, Wayne Stenehjem North Dakota, Petro Ohio, Drew Edmondson Oklahoma, Hardy Myers Oregon, Gerald Pappert Pennsylvania, Henry McMaster South Carolina, Paul Summers Tennessee, Shurtleff Utah, Sorrell Vermont, Jerry Kilgore Virginia, Christine O. Gregoire Washington, Peggy Lautenschlager Wisconsin, Patrick Crank Wyoming; Cotton Shippers Walter Dellinger Pamela Harris; Agricultural Issues Forum Seth Waxman, Randolph Moss, Todd Zubler, Brian Boynton; Michigan Pork Producers Association, Mansfield; Thad Cochran David Bono Norton; 113 Industry Associations Babcock T. Moran. affirmance Campaign Family Farms Susan Stokes, Moeller, Karen Krub; Coalition Apparel Importers Carter Phillips, Alan Raul, Eric Shumsky, Soules; DKT Liberty Project Julie Carpenter, Daniel Mach, Robert O'Neil; Public Citizen, Nelson; Rose Acre Farms, Corinne Finnerty Loren Reuter; Washington Legal Foundation Popeo Samp; Jeanne Charter Erik Jaffe, Leighton, James Moody, Steven B. Gold, Renee Giachino, McMahon, Townes; Mellor, Simpson, Bullock. Richard, Hank Campbell, Monterey Campbell Citrus, amicus curiae. 50 cents per head remitted Board, allow deduct up contributions 2904(8)(C); 1260.172(a)(3) commodities. 1205.10et seq. (cotton); 1207.301 (potatoes); 1210.301 (watermelons); 1215.1 (popcorn); 1216.1 (peanuts); 1218.1 (blueberries); 1219.1 (Hass avocados); 1220.101 (soybeans); 1230.1 (pork); 1240.1 (honey); 1250.301 (eggs); 1280.101 (lamb). InUnited distinguished dissent relied on) Glickman Wileman Brothers & Elliott, 521 457 (1997), tree fruit. Glickman, permissible 482, (SOUTER, dissenting) (noting waived argument). agreed, legitimately "collectivist" centralization 475 (opinion Court). "there system place" collectivizes aspects unrelated 415. label "governmental" "nongovernmental." law. Committee's involvement ancillary—it designs supervises approves—and actor directly principal suggests so, adopted best mixed message, promulgates dietary guidelines followed, discourage excessive beefPost, 577, J.); 569-570 (GINSBURG, Even agreed protection forfeited whenever there inconsistency nonetheless accord here. compatible guidelines' moderate consumption—the insist Breakfast, Lunch, Midnight Snack. permanently implementing allowed call another upon demand "representative group" comprising percent 2906(a)-(b). force referendum. 995 2002) finds "First affront" speech—and says, "a makes affront galling, greater care assure process practically respond limit compulsion."Post, 576. consists, requirement identify speaker. Post, 576-578. cites practice, precedent, highly refined elaboration—not ever thought within "Congress ... abridging freedom Of nothing prevents itself sponsor ads—much concealment provenance—so correct, below, Order. correct focus audience realizes speaking, assessment's purported interference rights. hold today, enjoy broad-based assessments, viewer If respondents', different. infra page 565-567, 8. conflates concepts something describes citizens' "presumptive autonomy speakers decide say others say."Post, discuss text, objection "those singled tax linked expression" (post, 575-576) appear (like Barnette opinions draws) substantively invalidates exaction being forced unattributed personal autonomy, else's unconnected legitimate autonomy. Supra, 557-558 (discussing Abood). Such violation occur Apportioning operations (including levies taxpayers feel "singled out" find "galling," 575-576, 4. An Western Organization Resource Councils (WORC) testified "Q When `Beef, it's what's dinner,' you believe looks says WORC? "A I don't so. [D]o actually promoted WORC organization? No, so." Tr. 46-47 (Jan. 14, 2002). phrase since 1999, http://tarr.uspto.gov/servlet/tarr? regser=registration&entry=2352917 visited 20, 2005, available Clerk file), materials ProducersSM." Other attributions (such copyright holder, untrademarked Veal Check-off"). 52. plausibly organization incorrectly CfHurley Irish-American Gay, Lesbian Bisexual Group Boston, 557, 572-573 (1995). groups claims mistaken injured membership organization. precise enough Thullner, John Smith, Ernie Mertz, 37 concurring. 38 "[a]ny regulation compels subjected stringent scrutiny." 419 (2001) (THOMAS, concurring); 457, 504-506 (1997) At recognize qualified where own. taxpayer-funded ante, Like analytical distinction "pure" revenues exactions, 562-564; practice operations, excise taxes, dates founding, Federalist 12, 75 (J. Cooke ed. 1961). 39 Still, probeef respondents, associate organizations involuntarily attributing unwanted them, control. follows establishing convey disagree, 624, 633-634 (1943); 705, 713-717 expressive-association prohibit coercively associating messages, Boy Scouts America Dale, 530 640, 653 (government "force [an] disagrees); Hurley 576-577 Mr. advertisement reciting purporting Message Children," (if intrusive it), just like flag salute Barnette. present objectively respondent. Ante, 564-567, 11.* nature attenuated link. 40 Barnette; government-imposed 565, 8; 579, payment purposes supporting nearly "utter [one's] mind," 634, carry property. 41 observations, 42 43 virtually struck adopts today eleventh hour. 416-417. dissented based my involved economic regulation, 428. explained classify involving "commercial still vote uphold 429. 44 remain described regulation. view. Now opportunity accept solution problem caveat offers preferable approach, 45 judgment. 46 resist ranking 1985, 2901 seq., Government, given conveys name. Dept. Health Human Services Dietary Guidelines Americans pp. 69, 30, http://www. health.gov/dietaryguidelines/dga2005/document/ 18, file) "[t]rans fatty acids foods come ruminant animals (e.g., sheep)" recommending "[l]imit intake fats oils high saturated and/or trans acids"); persuaded, 425 (BREYER, reason, concur 47 dissenting. 48 SOUTER's persuasive why meaningfully all. reserve day difficult questions arise target discrete "embrace publicly speaks," 580. 49 KENNEDY join, known sold dollar head. Much revenue eat slogan, Respondent taxpayers, "South Dakota Montana ranchers interests," Brief 1, object disagree good." say, ignores fact same; fail distinguish, ranchers' grass-fed predominant imports, inferior. 51 fours growers prohibited absent comprehensive scheme incidental. defense actions position Foods. possibility justifiable element otherwise scheme, (usually taxes) exacted well about Not surprisingly, argues exempting extracting special subsidies underwrite objectionable 52 accepts unwisely. error never justify compelling subsidy, should unless put Otherwise check whatever subsidies, dead letter. relies indicating statement self-interested currently invest power. Sometimes, effective disclosure explicitly labeling fails hand, affirm holding unconstitutional, respectfully decision condone subsidy.1 53 54 1779 Jefferson wrote man furnish propagation disbelieves sinful tyrannical." Establishing Religious Freedom, Founder's Constitution, 37, 77 (P. Kurland Lerner eds. 1987), codified 1786 Va. Code Ann. 57-1 (Lexis 2003). Although thinking farm produce, echoed Jefferson's years ago values serious risk citizen, citizens, side favors ." 411. addressed enforced mushrooms, There, (mushroom growers) members' produce level them. growers' refuse content.2 55 557-559, descendent lines precedent. first, exemplified (1943), stands utter or, indeed, anything second, (1990), related proposition substantial justification, speak. 56 Four ground contribution incidental collective enterprise th[e] act independently constrained scheme." 469 (1997). noted, immune 558-559. 57 pertinence justification crucial because, observed appears agree), factually (CA8 2003) (quoting 1002 2002))), quoted 558. Unless, then, defined along subsidy. subvention fail, treatment 58 relatively new, correspondingly imprecise. few gone much beyond broad observations 229 (2000). somewhat early stage development, points clear. 59 certainty legitimacy despite objections dissenters necessarily go measure putting offensive heard. To govern, something, heckler's raising voice "marketplace ideas"3 question. 12-13 ("If citizen disagreed, debate issues great concern sector, know radically transformed"). 60 fixed avoiding served, satisfied, chooses say. "When speaks, idea, end, electorate advocacy." 235; judgment) ("[T]he reason permitting spend controversial people"). Democracy, words, ensures untouchable rubs it; voters next election cancel 61 adequacy render subsidization tolerable naturally, tied character revenue, does, lay special, particularly strong, connection hence funded). Massachusetts Mellon, 262 447, 486-487 (1923). Outrage rare, disagreement tends stay temperate. relative palatability remote shared expression, suffer acute limitation presumptive 573 fundamental [is] speaker choose message").4 62 should, follow inveighed against. Whereas unrealistic could scrutinized amenability response, less-common specifically susceptibility response voters, intensity provocation experienced justifies 63 accountability means ought prevail, clear establish checks. simple: sign experience how masked producing ads.5 obviously, include tagline, "[f]unded 50-51, reading suspect comes National Government.6 underscores it, readers naturally dinner placed stand profit table. hearing commercial Pepsi Levi's thinks Uncle Sam talking behind curtain. Why trying steak?7 Given circumstances, hard came 64 takes controls least ads, satisfied. 563-564. backwards. apparent get let affirmatively concealed insufficient, deliberately it) conceal accountable.8 Unless putative origin possibly it.9 65 answer resourceful discover doing research Act. facts looking enough, tip off look? unearth truth harm mitigated cognoscenti understand works. judiciary keeping hands practical response; esoteric knowledge do. 66 sum, sanctioning deception omission misleading statement) sort condones, ostensibly governmental, embrace constitute sufficient broadcast correctly renders Act's mandatory-assessment provisions unconstitutional.10 note remand able amend Fed. Civ. Proc. petition relief available, denied "could seen minor ., hand debates branded better mushroom."United "serious" "substantial" disputes content. were, argued, prefer Harper Row, Publishers, Inc. Nation Enterprises, 471 539, 559 (1985) necessarily, suitably areas, [First Amendment] publicly, serves ultimate affirmative aspect" (internal quotation marks omitted)). SeeAbrams States, 250 616, 630 (1919) (Holmes, joined Brandeis, good desired reached ideas test accepted competition ."). asserts difference taxpayer's revenues, precedents foreclose, lone position, inUnited 252 (1982), "[t]here Act," 260, 562, unavailing. Lee religious paying grounded recognition accommodate objection, stop "general taxes." Here danger commonsense notion closer recognized 447 (1923), "interest moneys Treasury partly realized taxation millions [and] comparatively minute indeterminable." 487. notion, "principled way" context seemed way, unredacted version reads: case, Act." 260. mislead wayAnte, 564, 7. saved applied reflects involve 564-565. application actual, shown replete examples. Disputing this, Nebraska suggest confusion eliminated inclusion red "beef" atop "distinctive logo direct disseminated program." Reply 15-16. me quite implausible some) underneath strikes mandate signifying draw unlikely mind up, other, expressly eating. publication Departments Services, discusses chapter entitled "Fats." Http://www.health.gov/dietaryguidelines/dga2005/document/ 16, file). reduce fats, namely, fish, nuts, vegetable oils. Seeid., 29-31. report, Secretaries "is intended primary source health information," i, encourage do) chapter, fruits, vegetables, whole grains, fat-free dairy products, "Food Groups Encourage," 23. Notably, nowhere addresses how, whether, benefits allowing concealing sponsorship outweigh additional imposition rights results approach subterfuge. observes precedent seeks claiming speechAnte, expected, new enjoyed invoke attempting one, 564-565, chance however objectionable. said, mean suffice inWest infringement speaker's situations ones inform listeners (the speakers) communicating took unmoved dissent's observation drivers "place bumper conspicuous sticker explaining uncertain profess motto `Live Die.'" 722 J.). toCentral Hudson Gas Elec. Corp. Serv. Comm'n Y., 557 (1980), restrictions rigorous review strongly suggested Central appropriate relaxed standard analogous employed survive 474, explain test, restriction govern speech"); 410 ("[E]ven viewing lesser protection, sought case"). depart intimations judged

Category: 2