Document: 536 U.S. 150 WATCHTOWER BIBLE & TRACT SOCIETY OF NEW YORK, INC., et al.v.VILLAGE STRATTON ET AL. No. 00-1737. Supreme Court of the United States. Argued February 26, 2002. Decided June 17, CERTIORARI TO THE UNITED STATES COURT APPEALS FOR SIXTH CIRCUIT Respondent Village Stratton (Village) promulgated an ordinance that, inter alia, prohibits "canvassers" from "going in and upon" private residential property to promote any "cause" without first obtaining a permit mayor's office by completing signing registration form. Petitioners, society congregation Jehovah's Witnesses that publish distribute religious materials, brought this action for injunctive relief, alleging violates their First Amendment rights free exercise religion, speech, freedom press. The District upheld most provisions as valid, content-neutral regulations, although it did require accept narrowing constructions several provisions. Sixth Circuit affirmed. Among its rulings, court held was content neutral general applicability therefore subject intermediate scrutiny; rejected petitioners' argument is overbroad because impairs right pamphlets anonymously recognized McIntyre v. Ohio Elections Comm'n, 514 U. S. 334; concluded Village's interests protecting residents fraud undue annoyance desire prevent criminals posing canvassers order defraud were sufficient bases on which justify regulation; distinguished Court's earlier cases ministry. Held: ordinance's making misdemeanor engage door-to-door advocacy registering with mayor receiving violate applies proselytizing, anonymous political distribution handbills. Pp. 160-169. (a) For over 50 years, has invalidated grounds restrictions canvassing pamphleteering Witnesses. See, e. g., Murdock Pennsylvania, 319 105. Although those do not directly control question at issue, they yield themes guide Court. other things, emphasize hand tracts ages old same claim more orthodox practices guarantees press, id., 109; discuss extensively historical importance vehicles dissemination ideas, Schneider State (Town Irvington), 308 147, 164, but recognize legitimate town may have some form regulation, particularly when solicitation money involved, Cantwell Connecticut, 310 296, 306, or prevention burglary concern, Martin City Struthers, 141, 144; make clear there must be balance between such effect regulations rights, ibid.; demonstrate struggled alone, many who are poorly financed rely upon method communication, see, 144-146, including nonreligious groups individuals, Thomas Collins, 323 516, 539-540. 160-164. (b) need resolve parties' dispute what standard review use here breadth speech affected nature regulation erred upholding it. There no doubt assertedly serves — crime protection residents' privacy important seek safeguard them through activity. However, amount covered raises serious concerns. Had been construed apply only commercial activities funds, arguably would tailored interest preventing fraud. Yet, administration unquestionably demonstrates significant number noncommercial promoting wide variety "causes." pernicious requirement illustrated by, canvasser identified application filed made available public inspection, necessarily results surrender anonymity protected. Also central conclusion does pass scrutiny stated interests. Even if could adequately support insofar transactions provides petitioners, campaigns, enlisting unpopular causes. nonetheless valid two additional unpersuasive. As former, unchallenged section authorizing post "No Solicitation" signs, coupled unquestioned refuse conversation unwelcome visitors, ample unwilling listeners. latter, seems unlikely lack preclude knocking doors engaging conversations ordinance, and, event, evidence record special problem related solicitation. 164-169. 240 F. 3d 553, reversed remanded. STEVENS, J., delivered opinion Court, O'CONNOR, KENNEDY, SOUTER, GINSBURG, BREYER, JJ., joined. concurring opinion, SOUTER joined, post, p. 169. SCALIA, judgment, THOMAS, 171. REHNQUIST, C. dissenting 172. Paul D. Polidoro argued cause petitioners. With him briefs Philip Brumley, Richard Moake, Donald T. Ridley. Abraham Cantor brief respondents. David M. Gormley, Solicitor Ohio, al. amici curiae Betty Montgomery, Attorney General Elise W. Porter Kirk A. Lindsey, Assistant Solicitors, Attorneys respective States follows: Blumenthal Steve Carter Indiana, J. Miller Iowa, P. Ieyoub Louisiana, Joseph Curran, Jr., Maryland, Reilly Massachusetts, Frankie Sue Del Papa Nevada, Drew Edmondson Oklahoma, Hoke MacMillan Wyoming.* JUSTICE STEVENS 1 Petitioners contend village Amendment. Through facial challenge, we consider also 2 * Petitioner Watchtower Bible Tract Society New York, Inc., coordinates preaching throughout publishes Bibles periodicals widely distributed. Wellsville, Congregation Witnesses, supervises approximately 59 members part includes (Village). offer literature cost anyone interested reading They allege solicit contributions orders sale merchandise services, donations. 3 against Southern seeking injunction enforcement sections Ordinance 1998-5 regulating uninvited peddling Village. Petitioners' complaint alleged violated constitutional App. 10a-44a. conducted bench trial petitioners introduced. 4 Section 116.01 others purpose having obtained pursuant § 116.03.1 That intends go obtain "Solicitation Permit" mayor; charge permit, apparently one issued routinely after applicant fills out fairly detailed "Solicitor's Registration Form."2 then authorized premises he listed form, carry his person exhibit whenever requested so police officer resident.3 sets forth denial revocation permit,4 before us show denied revoked. permit. 5 A challenge establishes procedure resident prohibit even holders permits. If files Solicitation Form" mayor, posts sign property, enter unless specifically itself.5 Only 32 278 forms. Each forms contains list 19 suggested exceptions;6 checked 17 exceptions, thereby excluding "Jehovah's Witnesses" "Political Candidates" invited canvassers. themselves "solicitors" teaching, leaders church testified honor "no solicitation" signs explained derive authority preach Scripture.7 "For municipality feel almost insult God." 321a. 6 introduced product hostility ministry, credited testimony had designed protect residents, "from `flim flam' con artists prey small populations." 61 Supp. 2d 734, 736 (SD 1999). Nevertheless, terms applied well "business canvassers," 737, 738. 7 infringe rights. did, however, three First, viewed 116.03(b)(5) specific address each residence visited potentially invalid, cured agreement attach willing residents. Id., 737. Second, comply 116.03(b)(6) merely stating "the Witness ministry." And third, 116.05, limited hours p.m., invalid face should replaced provision referring "reasonable day." 739. modified, constitutionally dismissed case. 8 Appeals 553 (2001). It "content scrutiny." 560. reliance discussion laws affecting both religion Employment Div., Dept. Human Resources Ore. Smith, 494 872 (1990),8 "language dicta binding." 3d, 561. 334 (1995), reasoning very act going requires reveal portion identities." 563. promoted "protecting annoyance" harm seeks "criminals residents" though "by means overwhelming," regulation. 565-566. ministry either involved flat prohibition 141 (1943), left issuance discretion municipal officer, 302 (1940). 9 In dissent, Judge Gilman expressed subjecting requirements, significantly restricted substantial quantity unrelated eliminating unwanted annoyance. view, "failed reality efficacy restriction." 572. 10 We granted certiorari decide following question: "Does prior display demand one's name, accorded discourse?" 534 971 (2001); Pet. Cert. i.9 II 11 pamphleteering.10 than accident these challenges mandated religion. noted 105, 108 "claim follow example Paul, teaching `publickly, house house.' Acts 20:20. take literally mandate Scriptures, `Go ye into all world, gospel every creature.' Mark 16:15. doing believe obeying commandment Moreover, financial resources, ability proselytize seriously diminished burden efforts canvass door-to-door. 12 our past involving decided shortly during World War II, confront today, provide analytical backdrop consideration offends Amendment.11 Those petty offenses raised questions magnitude implicated From decisions, emerge issue here. 13 value involved. example, "hand age-old missionary evangelism history printing presses. potent force various movements down years.... This activity occupies high estate under worship churches pulpits. conventional exercises press." 108-109. 14 addition, ideas. 147 (1939), petitioner convicted based she gone offering leave books booklets. Writing Justice Roberts "pamphlets proved effective instruments opinion. perhaps way bringing notice individuals homes people. On communication imposes censorship, abuse engendered struggle England eventuated establishment doctrine press embodied Constitution. To censorship license makes impossible unhampered strikes heart guarantees." 164 (emphasis added). 15 Despite emphasis role door-todoor played tradition open discussion, early 296 (1940), requiring soliciting door depended city official. Our "a citizens fraudulent stranger community, permitting publicly funds purpose, establish identity purports represent." 306. Similarly, served ordinances "burglars frequently pose canvassers, pretense discover whether empty hence ripe burglary, spying return later." S., 144. recognition legitimate, precedent "must `be astute examine challenged legislation' `weigh circumstances ... appraise substantiality reasons advanced regulation.'" Ibid. (quoting Schneider, 161). 16 Finally, resist alone. Martin, cataloging summarized "[d]oor circulars essential causes little people." 144-146. "little people" risk silencing like exemplified speech. Schaumburg Citizens Better Environment, 444 620 (1980); Hynes Mayor Council Oradell, 425 610 (1976); 516 (1945). Thomas, labor leader required delivering prospective union members. After reviewing discussed above, observed: "As matter principle seem generally incompatible assembly.... 18 . "If assembly cannot crime, think can accomplished device previous condition exercising foundation restraining advance imposing penalty violating order. So long assembly, immune restriction. solicits register rally social, business, cause. undertakes enlist lawful movement quite requirements Amendment." 20 II-era guidance presented, answer preliminary parties adamantly dispute. is, ought assessing constitutionality ordinance. find unnecessary, III 21 argues ordinance: fraud, privacy. difficulty concluding, light precedent, look, appropriate governmental serve. 22 text explaining "cause," receive opted sign. adopted serve interests, never contended narrowly interpreted. contrary, Indeed, Forms" provided include "Camp Fire Girls," Witnesses," Candidates," "Trick Treaters Halloween Season," "Persons Affiliated Church." applies, causes, well. extend "residents casually votes neighbors,"12 ringing doorbells employing efficient garbage collector. 23 mere fact covers much offensive values protected Amendment, notion context everyday discourse citizen inform government her speak neighbors so. permits ministerial task performed promptly applicant, law constitutes dramatic departure national heritage tradition. Three obvious examples illustrate requirement. 24 unsigned handbills demonstrate,13 persons anonymously.14 "The decision favor motivated fear economic official retaliation, concern about social ostracism, preserve possible." 341-342. inspection anonymity. true, suggested, see 563, known allegiance group present front advocate deliver handbill, concluding implicate Circuit's undermined Buckley American Constitutional Law Foundation, 525 182 (1999). badge petition circulators signatures face-to-face interactions. revealed physical identities foreclose circulators' maintaining Village, strangers certainly maintain anonymity, Such preclusion justified situations state integrity ballot-initiative process, ibid., transactions. sweeps broadly, covering electoral process. 25 objective holding patriotic views. dramatically demonstrate, whose scruples will applying license. citizens, firm convictions uninhibited debate advocacy, prefer silence licensed 26 Third, spontaneous effectively banned holiday weekend active campaign begin until across street urge neighbor vote lawfully implemented permission. respect, analogous circulation licensing tax Grosjean Press Co., 297 233 (1936). Grosjean, while discussing Free Clause "`[t]he evils prevented merely, might matters absolutely prepare people intelligent citizens.'" 249-250 Cooley, Limitations 886 (8th ed. 1927)); Lovell Griffin, 303 (1938). 27 unprecedented alone render invalid. crime. 28 respect 107 posting case, resident's listener. Schaumburg, 639 ("[T]he homeowners bar solicitors [no solicitation] suggest[s] availability less intrusive measures privacy"). caused knock visitor armed 29 absence might, ask directions permission telephone, surveyers census takers. See n. 1, supra. Or false name impunity verifying applicant's organizational credentials. assert below, us. 30 rhetoric used opinions repeatedly saved coreligionists prosecutions reflected evaluation freedoms judgment united democratic fighting defend totalitarian attack unchanged. motivates today. 31 reversed, case remanded further proceedings consistent ordered. Notes: Briefs ofamici urging reversal Commonwealth Northern Mariana Islands Herbert Soll, General, Karen Klaver; Center Individual Freedom Eric Jaffe; Church Jesus Christ Latter-day Saints Von G. Keetch; Electronic Privacy Information Marc Rotenberg, Steven R. Shapiro, Raymond Vasvari; RealCampaignReform.org, William Olson, John Miles, Titus. affirmance Municipal League Barry Byron E. Gotherman; International Lawyers Association Ruda James I. Crowley. Brennan Burt Neuborne, Deborah Goldberg, L. Hasen; Independent Baptist Churches America King III. provides: practice and/or residences solicitors, peddlers, hawkers, itinerant merchants transient vendors owners occupants residences, 116.03 Chapter, advertising, promoting, selling product, service, organization cause, goods, wares, hereby declared nuisance prohibited." Brief Respondents 2a. interpreted term appear surveyor since individual entering "for services." Thus, contrary assumption dissent heavy Dartmouth,post, 172-173, 177, 179 (opinion J.), done nothing tragic "(a) No canvasser, solicitor, peddler, hawker, merchant vendor services described Chapter purposes 116.01, shall Permit. "(b) subsection hereof filing Solicitor's Form, Mayor, furnished purpose. Form completed Registrant contain information: "(1) home Registrant's five years next preceding date registration; "(2) description promotion, solicitation, organization, goods offered; "(3) employer affiliated credentials showing exact relationship Applicant; "(4) length time privilege desired; "(5) conduct "(6) information concerning business reasonably necessary accurately describe desired." 3a-4a. 116.04 "Each complies 116.03(b) indicate registered Chapter. permittee times, incident exhibited solicited." 4a. 116.06 "Permits revoked reasons: Incomplete Form. Fraud misrepresentation contained "(c) Fraud, statements course conducting "(d) Violation chapter Codified Ordinances Federal Law. "(e) Conducting canvassing, manner constitute trespass property. "(f) ceases possess qualifications original registration." 5a. 116.07 provides, part: Notwithstanding 116, person, corporation owner occupant within territorial limits Stratton, occupant, vendors, accordance Subdivision reads `No Solicitation' location visible intend Subsection Form', ...." 6a. exceptions are: Scouting Organizations 2. Camp Girls 3. Children's Sports 4. Supporting School Activities 5. Volunteer 6. 7. Political Candidates 8. Beauty Products Sales People 9. Watkins 10. Christmas Carolers 11. Parcel Delivery 12. Little 13. Trick Season 14. Police 15. Campaigners 16. Newspaper Carriers 17. Persons 18. Food Salesmen 19. Salespersons. 229a Apparently categories expressly exempted. Specifically, Book "Matthew 28, verses 20, commission preach.... Jesus, instituted house-to-house search good news them. that's in, Christ's apostles resurrection heaven."Id., 313a-314a. decisions bars neutral, applicable religiously Exercise conjunction protections, seeCantwell 304-307 (invalidating system charitable solicitations administrator deny deemed nonreligious); 105 (1943) ideas); Follett McCormick, 321 573 (1944) (same), parents, acknowledged Pierce Sisters, 268 510 (1925), direct education children, Wisconsin Yoder, 406 205 (1972) compulsory school-attendance Amish parents refused send children school)." 881 (footnote omitted). oral argument, debated factual embedded namely, speaker's name. abridges (1943); Jamison Texas, 318 413 (1940); (1939); presented similar raised, decided, inHynes. vagueness "casually neighbors." 620, Hynes, Talley California, 362 60 (1960); (1995). object loss bring basis overbreadth. may, therefore, impact deterred speaking forgo anonymously. SeeBroadrick 601, 612 (1973). 33 whom GINSBURG join, concurring. 34 While joining I write separately note dissent's "crime prevention" justification strong one. Cf. 176-180 J.). thing, indication legislative body passed considered justification. rationale courts 1999) describing "constructed artists"); 565 (CA6 2001) [the Village's] annoyance"), references "deter[ing] crime" anything discusses specifically. 14-18. 35 context, ordinarily supply given. Playboy Entertainment Group, 529 803, 816 (2000) ("When Government restricts bears proving actions" added)). mean, CHIEF suggests, "battery lawyers," 172, satisfy burden. mean expect give real passing Legislators, smallest town, perfectly able sometimes better own too lawyers, "battery," trying advice. conclude thought burglaries violent crimes said 36 But just that. intuitively implausible Stratton's crimes. notes, potential remain entirely untouched Ante, 168-169, 154, 1. it, "[w]e accepted conjecture adequate burden," Nixon Shrink Missouri PAC, 528 377, 392 (2000). readily offered party itself amicus, Amici Curiae 5-6. 37 Because justification, now "present[ed] anecdote supposition," supra, 822, doubtful, am assume conjectured benefits outweigh abridging 38 THOMAS joins, judgment. 39 concur set agree, invalidity objection (posited Court) "have doorto-door official." 167. 40 otherwise lawful, my view choose, reasons, rather observe convert free-exercise claim, (1990), free-speech destructive Whereas acknowledged, exempt requirement, exempts everybody, thanks 41 fairytale category "patriotic citizens," ante, 167, silenced Constitution (but "patriotic" objection) permit: jurisprudence determined predicted behavior crackpots, sorry indeed. 42 dissenting. 43 located along River where borders West Virginia, Pennsylvania converge. strung multilane highway connecting cities East Liverpool north Steubenville Weirton, south. One how legal help size drafting one, availed battery town's effort. today ignores lawyers relied, comes up newly fashioned doctrine. contravenes well-established renders local governments largely impotent safety threat pose, actually result protect. 44 More half century ago "whether pots distributing leaflets, lessen peaceful enjoyment home," 144 (1943). These problems continue associated graver ones. 45 recent double murder Hanover, Hampshire, 7,500 tranquil Americans probably bustling Dartmouth College students illustrates dangers. Two teenagers murdered married couple professors, Half Susanne Zantop, Zantops' home. Investigators concluded, confession teenagers, went intent stealing access numbers bank debit cards killing owners. Professors Called Random Targets, Washington Post, Feb. 2002, A2. Their modus operandi tell environmental survey school. canvassed few answered. At another, allow "survey." allowed Zantop phony survey, stabbed Zantops death. ibid. 46 reduce grave risks "`little people,'" 163, who, unlike team attorneys ready disposal, May Make High History Again, Legal Times, 25, (noting York headquarters), enacted simply reject completes application. 47 reason suspect negligible runs afoul categorically gives issuing authority, constitutional. Appeals, relying cases, abruptly changes invalidates 48 speaks "historical claim," 161. "backdrop" longstanding unwavering approval Stratton's. area sanction register. 306 "[w]ithout 116 contrasted struck "merely calling identification authorities investigating coming community." 148, states "city punish call defiance previously devices canvassers." 49 telling Justices Douglas Black, expansive authored, respectively, Martin. belief far strayed core concerns reaffirmed discretionless (1976). striking grounds, consistently municipality's power canvassing. drawn vest officials undefined determine messages hear, running 616-617. 51 suffers none defects fatal decisions. canvassing; fill deciding receives permit; automatic proper completion Cantwell, vague. 52 Just troubling ignoring discerning exactly unconstitutional. test applying, indeterminate fails. (finding "unnecessary resolve" ordinance). instead told "breadth affected" regulation" Under straightforward framework, easily passes muster. 53 stringent Stratton. regulates canvass: say was, settled "government impose reasonable time, place, `are reference regulated interest, alternative channels information.'" Ward Rock Against Racism, 491 781, 791 (1989) Clark Community Creative Non-Violence, 468 288, 293 (1984)). Earlier Term, forums. Chicago Park Dist., 316 (2002). 54 suggests warrants greater scrutiny. 164. puzzling taking place another citizen's warranted Common sense opposite. explained: "`Of methods spreading [house-to-house canvassing] least entitled extensive protection. possibilities persuasion slight compared certainties Great exposing novel views, man shut himself ideas desires.'" 619 Z. Chafee, Speech (1954)). Ward, "even forum," added), appropriately recognizing enjoys forum opened proximity allowed. Frisby Schultz, 487 474, 483-484 (1988). Surely then, occurs near, at, residence. 55 aimed interests: privacy.1 concedes "in [Stratton] activity." 165. initially later indicates "absence us" lessens interest. assertion poses Erie Pap's M., 277, (citing Renton Playtime Theatres, 475 (1986)), experience jurisdictions stemming 297; 393, 56 Hanover above posed Other gardening jobs tied robbed elderly Van Derbken, 98-Year-Old Latest Victim Series Home Invasions, San Francisco Chronicle, Sept. 13, 2000, A18, vacuum cleaner salesman raped woman, Employers Liable Rape Salesman, Texas Lawyer, Jan. 11, 1999, 2, purportedly behalf committed multiple sexual assaults, Ingersoll, Sex Crime Suspect Traveled Wis. Journal, 19, 1B. endure wave takes 57 What more, soon forgets finds broad "significant `canvassers.'" purporting surveys school, trespassing can. (canvassers, home" "sp[y] out" thus tailored. everyone i. e., canvasses virtue cf. Liquormart, Inc. Rhode Island, 517 484, 501 (1996) ("[O]ur dangers attend attempts single certain suppression") turns vice. 58 privacy, concludes "[t]he permit." 168-169. True, misses key point: fewer knocks. complied likely visit easier track down. fails grasp crime.2 approved common-sense existence deters helps detect wrongdoing. (2002) (upholding aimed, part, unlawful uses park assuring accountability damage event). people, committing crimes, prospect effectiveness depend registering. prevents detects Take earlier. murderers achieve fifth period seven months. teens stopped achieved objective. informed lacked neighborly vigilance, foreign residing modern day cities, uncommon towns. discovered Apprehension frustrated teenagers' objectives; assisted solving murders ahead plan.3 Of course, guarantee ever commit dooms erecting insurmountable hurdle fool-proof survive scrutiny, solve problem, Some deterrence criminal enough 62 final alternatives expression. Undoubtedly, exist Most obviously, filling communicate sidewalks, corners, mail, telephone. 63 Intermediate analysis confirms said: Today, elevates most, established proposition. Ironically, today's extols. recognizes, homeowner 168. depriving degree yards cut off altogether. assume, majority, "crime" refers separate servea treatment short shrift attempt deal increased focus apprehending "petty" offenses, paying subway fares, reduction last decade. See,e. Gladwell, Tipping Point: How Things Can Big Difference works City, surely work

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