Document: 455 U.S. 489 102 S.Ct. 1186 71 L.Ed.2d 362 VILLAGE OF HOFFMAN ESTATES, et al., Appellants,v.FLIPSIDE, INC. No. 80-1681. Argued Dec. 9, 1981. Decided March 3, 1982. Rehearing Denied April 26, See 456 950, 2023. Syllabus An ordinance of appellant village requires a business to obtain license if it sells any items that are "designed or marketed for use with illegal cannabis drugs." Guidelines define the (such as "roach clips," which used smoke cannabis, "pipes," and "paraphernalia"), sale is required be licensed. Appellee, sold variety merchandise in its store, including clips" specially designed pipes marihuana, upon being notified was possible violation ordinance, brought suit Federal District Court, claiming unconstitutionally vague overbroad, requesting injunctive declaratory relief damages. The Court upheld awarded judgment defendants. Appeals reversed on ground face. Held: not facially overbroad but reasonably clear application appellee. Pp. 494-505. (a) In facial challenge overbreadth vagueness an enactment, court must first determine whether enactment reaches substantial amount constitutionally protected conduct. If does not, fail. should then examine uphold such only impermissibly all applications. 494-495. (b) here violate appellee's First Amendment rights nor because inhibits other parties. restrict speech simply regulates commercial marketing labels reveal may illicit purpose thus embrace noncommercial speech. With respect interest implicated, ordinance's restriction manner appreciably limit communication information, except extent directed at activity promoting encouraging drug use, which, deemed "speech," proposing transaction subject government regulation ban. It irrelevant has scope encompassing persons' speech, since doctrine apply 495-497. (c) challenge, appellee shown language . use" face, standard encompasses least item principally drugs by virtue objective features, i.e., features manufacturer. Thus, sufficiently cover some sold, pipes. As "marketed standard, guidelines refer display paraphernalia proximity covered otherwise uncovered items, scienter part retailer. Under this test, had ample warning activities license, displaying certain magazine books dealing physically close colored rolling paper, guidelines, selling clips." 499-503. (d) speculative danger arbitrary enforcement render void pre-enforcement challenge. 503-504. 639 F.2d 373, remanded. Richard N. Williams, Hoffman Estates, Ill., appellants. Michael L. Pritzker, Chicago, Justice MARSHALL delivered opinion Court. 1 This case presents overbroad. question Village Estates Ordinance 969-1978. United States Seventh Circuit held 373 (1981). We noted probable jurisdiction, 452 904, 101 3028, 69 404 (1981), now reverse. 2 * For more than three years prior May 1, 1978, Flipside, Inc. (Flipside), merchandise, phonographic records, smoking accessories, novelty devices, jewelry, store located Ill. (village).1 On February 20, enacted regulating paraphernalia, effective 1978.2 makes unlawful person "to sell effect, accessory thing drugs, defined Illinois Revised Statutes, without obtaining therefor." fee $150. A also file affidavits licensee employees have been convicted drug-related offense. Moreover, keep record each regulated item, name address purchaser, open police inspection. No minor. fine less $10 $500, day continues gives rise separate series licensing prepared Attorney "Paper," "Roach Clips," "Pipes," "Paraphernalia," licensed.3 3 After administrative inquiry, determined Flipside one appeared ordinance. existence made copy available Flipside. Flipside's owner asked guidance concerning were ordinance; advised him remove section "for his protection," he did so. App. 71. included, according description, clamp, chain ornaments, "alligator" clip, key chains, necklaces, earrings, cigarette holders, glove stretchers, scales, strainers, pulverizer, squeeze bottles, pipes, water pins, herb sifter, mirrors, vials, papers, tobacco snuff. 30, instead applying seeking clarification via procedures established ordinances,4 filed lawsuit Northern Illinois. 4 complaint alleged, inter alia, requested after hearing testimony, declined grant preliminary injunction. tried jury additional evidence stipulated testimony. issued upholding constitutionality 485 F.Supp. 400 (1980). 5 reviewed found conceivable applications, ordinary "paper clips next Rolling Stone magazine." F.2d, 382. suggested "subjective" nature "marketing" test creates discriminatory against those alternative lifestyles. Id., 384. Finally, availability review cannot cure defect. concluded II 6 law,5 court's task conduct.6 and, assuming implicates no conduct, plaintiff who engages conduct clearly proscribed complain law applied others.7 therefore complainant's before analyzing hypothetical applications law. 7 explicitly consider Instead, unclear proper analysis, however, invalid. III 8 infringes exorbitant claim imposed "prior restraint" treat literature indicium argues presence designs, logos, slogans trigger enforcement, "protected symbolic speech." Brief Appellee 25. 9 These arguments do long detain us. First, directly infringed licenses displayed "with" "within of" "literature drugs," Guidelines, supra n. prohibit regulate itself. Although designs names papers regulation, such, purpose. 10 Second, insofar implicated here, attenuated retailer desires. doubt village's limits information8—with obvious telling exception. expressly use. transaction, ban entirely. Central Hudson Gas & Electric Corp. v. Public Service Comm'n, 447 557, 563-564, 100 2343, 2350, 65 341 (1980); Pittsburgh Press Co. Human Relations 413 376, 388, 93 2553, 2560, 37 669 (1973). persons, Hudson, supra, 565, 8, S.Ct., 2351, 8.9 IV A. 11 reach satisfies nevertheless challenged face unduly vague, due process. To succeed, complainant demonstrate showing. 12 standards evaluating enunciated Grayned City Rockford, 408 104, 108-109, 92 2294, 2298, 33 222 (1972): 13 "Vague laws offend several important values. we assume man free steer between lawful insist give intelligence reasonable opportunity know what prohibited, so act accordingly. Vague trap innocent providing fair warning. prevented, provide explicit them. delegates basic policy matters policemen, judges, juries resolution ad hoc subjective basis, attendant dangers applications" (footnotes omitted). 14 course, mechanically applied. degree Constitution tolerates well relative importance notice enforcement—depends enactment. economic strict matter often narrow,10 businesses, demands plan behavior carefully, can expected consult relevant legislation advance action.11 Indeed, enterprise ability clarify meaning own resort process.12 expressed greater tolerance enactments civil rather criminal penalties consequences imprecision qualitatively severe.13 And recognized requirement mitigate law's vagueness, especially adequacy proscribed.14 15 perhaps most factor affecting clarity threatens inhibit exercise rights. If, example, interferes right association, stringent apply.15 B 16 contains standard. nominally imposes penalties. However, concedes "quasi-criminal," prohibitory stigmatizing effect warrant relatively test.16 fails because, under appropriate either quasi-criminal law, 17 "any Statutes." expresses uncertainty about description encompasses; noted, F.Supp., 406, defines numerous controlled cocaine. Ill.Rev.Stat., ch. 561/2, &Par; 703 1102(g) hand, words "items, thing" identify type desires regulate.17 appropriately focuses use." conclude covered. unavailing. 18 1. "Designed 19 objected ambiguous inherently suited use; retailer's intent relevant; third party, manufacturer, critical, manufacturer "designer." 380-381. reasons follow, 20 Appeals' speculation "design" largely unfounded. colorful design" specific conclusively "designed" use.18 principal "[t]o fashion plan." Webster's New International Dictionary English Language 707 (2d ed. 1957). Cf. Lanzetta Jersey, 306 451, 454, 59 618, 619, 83 L.Ed. 888 (1939). plain would understand term refers design customer. nondrug purposes, drugs. issue present case, phrase structural characteristics item.19 21 contain ambiguities. Nevertheless, sold. through co-operator admitted see Tr. Chief Police testified never seen clip" cannabis. 52. pipe typically marihuana. Ibid. Whether further rules, will respects concern 22 2. "Marketed 23 Whatever ambiguities engender, transparently clear: describes intentional merchandise. items. retail deliberately displays wares appeals encourages scienter, could scarcely "market" "for" particular intending 24 license. High Times entitled Marijuana Grower's Guide, Children's Garden Grass, Pleasures Cocaine, guidelines. above, purposes. same posted sign, "You older purchase head supplies."20 30. V 25 provides insufficient enforcement. Specifically, feared might harass individuals lifestyles views. reviewing inquiry affords proscribed. emphasis almost inescapable Here, been, be, introduced indicate enforced aim inhibiting unpopular vagueness. Cf.Papachristou Jacksonville, 405 156, 168-171, 839, 846-848, 31 110 (1972); Coates Cincinnati, 402 611, 614, 91 1686, 1688, 29 214 (1971). 26 suggest risk insignificant here. Testimony drafted President, revealed confusion over applies extensive reliance "judgment" officers enforce fairly. At stage, hold jeopardizes entire ordinance.21 27 Nor take steps minimize adopt regulations narrow potentially interpretations especially, suffice uncertain scope. find significant village, testimony below, primarily relied aspect require item-by-item analysis for" lesser "Although future engender concrete problems constitutional dimension, time enough when they arise." Joseph E. Seagram Sons, Hostetter, 384 35, 52, 86 1254, 1264, 336 (1966).22 VI 28 Many American communities recently prohibiting paraphernalia. these wise province Ferguson Skrupa, 372 726, 728-730, 1028, 1029-1031, (1963). complainant. Accordingly, reversed, remanded proceedings consistent opinion. 30 ordered. STEVENS took consideration decision case. APPENDIX TO OPINION THE COURT 32 969-1978 AN ORDINANCE AMENDING MUNICIPAL CODE ESTATES BY PROVIDING FOR REGULATION ITEMS DESIGNED OR MARKETED USE WITH ILLEGAL CANNABIS DRUGS 34 WHEREAS, retailed within Cook County, Illinois, 35 legal their banned, 36 there best interests health, safety welfare citizens NOW THEREFORE, BE IT ORDAINED President Board Trustees follows: Section : That Municipal Code amended adding thereto Section, 8-7-16, shall read 38 Sec. 8-7-16—ITEMS License Required: 39 persons principal, clerk, agent servant therefor. Such addition applicant. B. Application: 40 Application shall, requirements Article 8-1, accompanied applicant every employee authorized C. Minors: 41 described 8-7-16A form male female child eighteen age. D. Records: 42 Every inspection officer during hours business. quantity product, date sale, licensee's signature, records retained two (2) years. Regulations: 43 comply applicable Department Health Services Department. 44 8-2-1 Fees: Merchants (Products) 45 Items $150.00 46 Penalty. Any violating provision fined ten dollars ($10.00) five hundred ($500.00) offense succeeding offenses calendar year, continue distinct 47 Clerk hereby publish pamphlet form. 48 full force passage, approval publication 49 WHITE, concurring judgment. 50 I agree reversed. believe necessary discuss problem order result. vagueness; overbreadth. erred presented 51 majority "the applications." Ante, 495. majority's statement "sufficiently clear." There is, my view, need go further: "transparently clear" restricted survives grounds. 52 Technically, standing permits parties cases involving challenges restrictions argue invalid others presently Broadrick Oklahoma, 601, 612-615, 2908, 2915-2917, 830 make depends, instance, colorable protected, others. claims argument tenuous left lower courts initial determination. 53 concur reversing below. More specifically, found: "[Flipside] included 'A Child's Grass,' 'Marijuana Guide,' magazines 'National Lampoon,' 'Rolling Stone,' 'High Times.' devices tobacco-use related ranged from small commodities clamps, ornaments earrings various types sizes, large individual many four flexible plastic tubes. Plaintiff number colors. One plaintiff's mirror, seven nine inches word 'Cocaine' painted surface purple color. 'alligator clips,' sifters, snuff." 400, 403 (N.D.Ill.1980). text set forth Appendix provide: "LICENSE GUIDELINES ITEMS, EFFECT, PARAPHERNALIA, ACCESSORY THING WHICH IS "Paper—white paper oriented necessarily displayed. Other design, Clips—designed "Pipes—if away nonwhite roach clips, covered; otherwise, "Paraphernalia—if covered." 932-1977, Administrative Procedure Ordinance, interested petition adoption interpretive rule. denied, place agenda committee review. indicated rules adopted yet 68. "facial" context, means "invalid toto —and incapable valid application." Steffel Thompson, 415 452, 474, 94 1209, 1223, 505 (1974). state federal must, limiting construction agency proffered. 110, 2299, (1972). making determination, evaluate unambiguous extent, affects analysis. meanings cause " 'steer far wider zone' boundaries forbidden areas marked." Baggett Bullitt, 377 360, 372, 84 1316, (1964), quoting Speiser Randall, 357 513, 526, 78 1332, 1342, 1460 (1958); Grayned, 109, 2299; cf. Young Mini Theatres, Inc., 427 50, 58-61, 96 2440, 2446-2447, 310 (1976). "[V]agueness statutes involve freedoms examined light facts hand." Mazurie, 419 544, 550, 95 710, 714, 706 (1975). Powell, 423 87, 92-93, 316, 319-320, 228 (1975); National Dairy Products Corp., 29, 32-33, 36, 594, 597-598, 599, 561 "One whose statute successfully vagueness." Parker Levy, 417 733, 756, 2547, 2561, 439 rationale evident: sustain prove 'not sense conform imprecise comprehensible normative specified all.' core." Smith Goguen, 566, 578, 1242, 1249, 605 explained placed considers locations near checkout counter "point purchase" apt shoplifted. 43. assert placement motivated desire communicate information customers. "overbroad" extend "innocent" "lawful" uses 10, 33-35. seems confuse doctrines. objecting uses, complaining unpersuasive infra, 497-504. denial substantive latter obviously lacks merit. purchaser's buy them, minimal process protection. community. 37. Regulation irrational discouraging Exxon Governor Maryland, 437 117, 124-125, 98 2207, 2213-2214, 57 (1978). hostility particularly see, e.g., 381-383 (1981); Record Revolution 6, Parma, 638 916, 928 (CA6 1980), vacated remanded, 451 1013, 2998, (1981)—may reflect belief measures ineffective stemming perceived defect, defect clarity. unlikely event construed whatever seller corncob vague. He could, object intended Papachristou 162, 843, (1972) (dictum; collecting cases). See, U.S., 574, 1247. 49, 1263, (1966); McGowan 366 420, 428, 81 1101, 1106, 393 (1961). Barenblatt States, 360 137, 79 1081, 1098, 1115 (1959) (Black, J., whom Warren, C.J., Douglas, joined, dissenting); Winters York, 333 507, 515, 68 665, 670, 840 (1948). Colautti Franklin, 379, 395, 99 675, 685, 58 596 (1979); Boyce Motor Lines 342 337, 342, 72 329, 331, 367 (1952); Screws 325 91, 101-103, 1031, 1035-1036, 89 1495 (1945) (plurality opinion). Note, Void-for-Vagueness Doctrine Supreme 109 U.Pa.L.Rev. 67, (1960). Papachristou, supra; 2298. discourage 33. effects clear. remarked, "few retailers willing brand themselves sellers few customers condition signing addresses register police." 377. proposed entitled, "Retail Designed Marketed Use Illegal Cannabis Drugs." Record, Complaint, argument, counsel "quasi-criminal." Oral Arg. 4-5. apparently growing vernacular understanding "paraphernalia" separately analyze 405-407. alone much regulated. 380. "white displayed," Clips" covered" (emphasis added). criticized definition failing explain is. criticism unfounded technical industry. Without undue burden, easily term. Heritage 1122 (1980) (defining "roach" "[t]he butt marijuana cigarette"); R. Lingeman, Drugs Z: 213-214 (1969) holder"). explanation "not clarifies embraces "It readily apparent scheme, 'designed use' physical per se fashioned drugs; that, phrase, 'designer' (i.e. patent holder manufacturer) 'design' absorbed into attributes, finished product." 42-43. "[m]anufactured purpose." 82 606 following "head": "Slang. frequent user theoretical possibility clip magazine, 382, significance unless ripens prosecution. referred potential Fourth resulting recordkeeping requirement, "implies customer purchases drugs' intends implication scrutiny even search basis item." issues difficult seriously threatened. offered threat postenforcement proceeding attempt employed unconstitutional manner, raise objection. defer until showing made.

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