Document: 407 U.S. 163 92 S.Ct. 1965 32 L.Ed.2d 627 MOOSE LODGE NO. 107, Appellant,v.K. Leroy IRVIS et al. No. 70—75. Argued Feb. 28, 1972. Decided June 12, Syllabus Appellee Irvis, a Negro guest of member appellant, private club, was refused service at the club's dining room and bar solely because his race. In suing for injunctive relief, appellee contended that discrimination state action, thus violation Equal Protection Clause Fourteenth Amendment, Pennsylvania liquor board had issued appellant club license. The District Court found appellant's membership practices discriminatory, agreed with appellee's view action present, declared license invalid as long continued its discriminatory practices. Appellant's motion to have final decree limited policy opposed by appellee, court denied motion. Following Court's decision, applicable bylaws were amended exclude guests those who would be excluded members. Held: 1. Appellee, no applied or been in standing contest He did, however, litigate constitutional validity policies toward members' guests, opposition amendment judgment did not constitute disclaimer relief directed policies. Pp. 165—171. 2. operation Pennsylvania's regulatory scheme enforced board, except noted below, does sufficiently implicate State so make 'state action' within purview Clause, there is suggestion record State's regulation sale intended overtly covertly encourage discrimination. Burton v. Wilmington Parking Authority, 365 715, 81 856, 6 45, distinguished. 171—177. 3. board's requiring 'every licensee shall adhere all provisions constitution by-laws' effect placed sanctions behind enacted after enforcement should enjoined extent it requires 177—179. Irvis Scott, D.C., 318 F.Supp. 1246, reversed remanded. Frederick Bernays Wiener, Washington, appellant. Harry J. Rubin, York, Pa., appellees. Mr. Justice REHNQUIST delivered opinion Court. 1 (hereafter appellee), Moose Lodge, local branch national fraternal organization located Harrisburg, Pennsylvania. then brought this under 42 U.S.C. § 1983 United States Middle claimed Lodge authorized alcoholic beverages on premises, refusal him purposes Amendment. named both Liquor Authority defendants, seeking injuncive required defendant revoke Lodge's sought damages. 2 A three-judge district court, convened request, upheld contention merits, entered declaring 'as follows racial operating practices.' alone appealed from decree, we postponed decision jurisdiction until hearing 401 992, 91 1226, 28 529. Appellant urges, alternative, either vacate below presently case controversy between parties, reverse merits. 3 * 'a Caucasian good plaintiff, Negro, requested food beverages. through employees plaintiff he Negro.' 1247. It undisputed each bound general Supreme latter which contain provision limiting lodges white male Caucasians. connection '(t)he accordingly maintain practice restricting race permitting members bring only lodge particularly bar.' Ibid. 4 ruled favor Amendment claim, previously described decree. loss merits Court, moved modify respect guests. proposed modification, 5 find, could record, it. contends fact, issue respecting requirements, therefore erred insofar decided issue. Any injury conduct stemmed, lodge's but serving has seek redress injuries done him, may others. Virginian R. Co. System Federation 40, 300 515, 558, 57 592, 604, L.Ed. 789 (1937); Erie Williams, 233 685, 697, 34 761, 763, 58 1155 (1914). While held exceptional situations concededly injured party rely rights third obtaining Barrows Jackson, 346 249, 73 1031, 97 1586 (1953),1 since never become member. 7 relies Flast Cohen, 392 83, 88 1942, 20 947 (1968), Law Students Civil Rights Research Council Wadmond, 154, 720, 27 749 (1971), support breadth Cohen federal taxpayer qua challenge expenditure funds Congress taxing spending clause Constitution. pointed out: 8 'It will sufficient allege an incidental tax administration essentially statute. This requirement consistent limitation imposed upon state-taxpayer courts Doremus Board Education, 342 429, 72 394, 96 475 (1952).' U.S., 102, S.Ct., 1954. 9 taxpayer's claim Flast, course violated Establishment First Constitution, terms prohibits aid religion. 10 supra, while appellants admitted person involved litigation admission New York bar, they existence York's system screening applicants worked chilling free exercise speech association students must anticipate having meet requirements. went decide students' contention. doctrine 'overbreadth' prior decisions accord reason 'chilling effect' particular law might rights, areas other than relating 11 We believe correct, therefore, contending beyond vindication any litigate. language referred 'policy practices' broad encompass members, well acceptance But claims that, position took disclaimed interest based brief point says: 12 '(Moose argument mootness) . somehow allow change operations permit premises guest. But, out answer nothing changed even if vice arose privileges membership, accruing own enjoyment them ability Lodge. Nothing suggested modification repetition impossible fact purely happenstance. Whether barred invite opportunity member, situation remains unchanged.' (Brief 41.) 13 During oral here, counsel asked explain why made lower responded follows: 14 'The allowed others remove Commonwealth actions 15 'That is, still matter being dependent there. sure discriminate. issuing discriminating club. And I think it's worth noting time presented, process amending by-laws forbid Negroes So, same saying let us can admit guest, their say come 16 'We feel idea go heart problem. supply type cuts problem participation oppose it.' Tr. Oral Arg. 31—32. 17 are loath attach conclusive weight relatively spontaneous responses equally questioning during argument. However, examination reflects subsantially here. possible infer these statements simply interested prevail read tactical arguments designed avoid settle half loaf when obtain whole loaf. 18 mere consent itself construed waiver Appellee's complaint, primarily contained customary prayer enough embrace used clearly include such practices, Having prayed obtained less explicit renunciation desire here justify our concluding longer do fair reading amend amount renunciation. 19 Because arising reaching err guest-service circumstances positions taken parties entry mooted turn disposition. II ordinary meaning term. chapter well-defined requirements membership. conducts activities building owned publicly funded. Only permitted order; one invitation house committee. 21 conceding right clubs choose basis, asserts licensing serve Control amounts involvement forbidden injunction forbidding authority ceased conclude not, violate 22 1883, Cases, 109 3, 18, 835, set forth essential dichotomy State, prohibited conduct, 'however wrongful,' against 'erects shield,' Shelley Kraemer, 334 1, 13, 68 836, 842, 1161 (1948). That subsequently reaffirmed 45 (1961). 23 principle easily stated, question whether private, hand, action,' frequently admits easy answer. 'Only sifting facts weighing nonobvious attributed true significance.' 722, 860. 24 Our cases clear impetus need originate enforces privately originated supra. restaurant owner customer's where statecreated parking leased authority. comprehensive review relationship lessee concluded 'so far insinuated into interdependence Eagle (the owner) recognized joint participant challenged activity, which, account, cannot considered 'purely private' fall without scope Amendment.' 725, 862. 25 held, course, otherwise entity violative receives sort benefit subject degree whatever. Since state-furnished services necessities life electricity, water, police fire protection, holding utterly emasculate distinction distinguished adhered subsequent decisions. holdings indicate 'significantly invidious discriminations,' Reitman Mulkey, 387 369, 380, 87 1627, 1634, 830 (1967), order ambit prohibition. 26 dealing public eating places significantly different factually now before us. Peterson City Greenville, 373 244, 83 1119, 323 (1963), dealt trespass prosecution persons 'sat in' protest Negroes. There although ostensible initiative came proprietor, ordinance segregation races tantamount 'commanded result,' 248, 1121. With exception, discussed infra, 178—179, statutes regulations governing Burton, full discussion indicates significant differences this: land owned. As entity, dedicated 'public uses' performance Authority's 'essential governmental functions.' (Citation omitted.) costs acquisition, construction, maintenance defrayed entirely donations Wilmington, loans revenue bonds proceeds rentals payable. Assuming significant, (citation omitted) commercially surplus property, constituted physically financially integral and, indeed, indispensable part plan operate project self-sustaining unit. Upkeep building, including necessary repairs, responsibilities payable funds. doubted peculiar facility confers variety mutual benefits. Guests afforded convenient place park automobiles, enter directly area. Similarly, convenience diners provide additional demand facilities. Should improvements effected leasehold realty, possibility increased taxes passed fee tax-exempt government agency. Neither ignored, especially Eagle's affirmative allegation injure business, profits earned contribute to, also elements in, financial success agency.' 723—724, 861. 29 Here approaching symbiotic lessor present locating state-created authority, enabled carry primary purpose furnishing space advantageously leasing portions constructed commercial lessees Restaurant. Unlike it, Far apparently accommodation, quite ostentatiously proclaims open large.2 Nor operated surroundings name, discharges function performs likelihood performed State. short, social building. 30 exception hereafter noted, plays absolutely establishing enforcing licenses liquor.3 law, written asapplied, discriminates minority groups apply themselves purchase served accommodation. said Pennsylvanian buy some counted maximum number given municipality. Basically municipality quota retail 1,500 inhabitants. Licenses hotels, municipal golf courses, airport restaurants quota, nor reached. Beyond point, neither outstanding above statutory maximum. 31 pains what 'pervasive' nature Board. applicant physical alterations require, file list names addresses employees, keep extensive records. granted inspect licensed patrons, present. However detailed particulars, way foster realistic sense partner venturer enterprise. prohibition allotted issued, together availability hotel, restaurant, licensees, falls short conferring licensees monopoly dispensing whole. hold 33 adopted pursuant statute affirmatively require '(e)very Constitution By-Laws.'4 argues 'is plainly prevention subterfuge,' pointing bona fides accommodation masquerading legitimately concern itself. concedes case, expresses disagreement point. doubt label 'private club' evade authorities, regard race, color, religion, origin. Daniel Paul, 395 298, 89 1697, (1969), occasion address application Title Act 1964, 78 Stat. 243, 2000a seq. rules, embodied lodge. Had relevant making Part bearing disposition stated argument, though, conceded brief5 altered restrictions members.6 35 Even though neutral terms, result invoke enforce rule. emanate rulings administrative agencies legislative judicial action. Robinson Florida, 378 153, 156, 84 1693, 1695, 771 (1964). (1948), makes rule Although like, persuaded relief. 36 entitled enjoining 113.09 promulgated compliance containing racially provisions. more. reversed, cause remanded instructions conformity opinion. 37 Reversed 38 DOUGLAS, whom MARSHALL joins, dissenting. 39 My related guarantees Bill create zone privacy precludes interfering groups.1 associational honors white, black, brown, yellow coubs formed. They Catholic, Jewish, agnostic established. Government tell man woman her associates be. individual selective desires. So allows Caucasians join constitutionally irrelevant, Black Muslims 40 different, domain concerned. indicated Garner Louisiana, 368 157, 82 207, Lombard 267, 1122, 338, facilities concerned 'public' defined proprietor people choice; some. Evans Newton, 382 296, 298—299, 86 486, 487 488, 373. 41 Those precisely apposite, definition, domain. gets kind ipso facto enterprise undertaking, more grant householder incinerator puts must, examine special differentiate possessed permit. store alcohol distribution. Resale restaurants, complete pervasive; sustained many licensees. See Tahiti Bar Inc. License Case, Pa. 355, 150 A.2d 112. Once comply risk suspension revocation Among Regulation 'Every By-laws.' means, composed White age twenty-one years, married someone moral character, mentally normal, profess belief Being.' 43 argued aims subterfuge differentiation fide clubs. gives protected association. regulation. embraced restrictive clause. responsible act compelled act.' Adickes S.H. Kress & Co., 398 144, 170, 90 1598, 1615, 142. 1121, 323. irrelevant statutory, 771. instigated regulation, independent result, see put dispense blacks, browns, yellows—or atheists agnostics. form 44 Were infirmity scheme, perhaps agree majority appropriate enforcement. another flaw cured. Pennsylvania, unlike driver's licenses, marriage freely available qualifications. complex system, accurately describes. Ante, 176. What neglects 107 located, years.2 No city. state-enforced scarcity restricts blacks liquor, portion week.3 Access further filled. group desiring nondiscriminatory existing exact price transfer. speculative best, for, concedes, hard pressed survive. 46 Thus, putting license, valued important adjunct 47 first Harlan, dissenting 59, 55, said: 48 'I social, technically legal, individuals. ever brought, bring, intercourse wishes. relations concern. affirm state, officers corporation wielding power convenience, can, consistently freedom established fundamental discriminate freemen citizens, civil ..' 49 precise infirmity.4 50 below. 51 BRENNAN, 52 When became active bar. laws incidentally measures; pervasive schemes dictates continually supervises virtually every detail licensee's business. Very few, any, businesses experience involvement. Yet holds vital reasoning disregard value underlying concept. my separate 190—191, 1620, 142 (1970): 53 state-action profound denials equal treatment, account singularly grave shares responsibility them. organ society look promotion liberty, justice, setting worthy norms goals conduct. Therefore something uniquely amiss government, authoritative oracle community values, involves Accordingly, (in which) condemned discrimination, however subtle indirect whatever taken(,) represent vigilant fidelity lend sordid business discrimination.' 54 Plainly, intertwine 'significant (and) State's) late Circuit Judge Freedman, most persuasively demonstrates case: 55 decisive factor uniqueness all-pervasiveness state. inherent quality. 56 always Eighteenth intoxicating highest power, fullest inhering sovereign. 1919 deal extinguished. era Prohibition ended adoption 1933 Twenty-first left absolute prohibit sale, possession use sees fit. 'Pennsylvania exercised measure Under monopolizes so-called stores, clubs, Board, authorizing 'to Store (at discount) thereunder sell malt brewed patrons consumption premises.' issuance discretion secure equally. information require. conform over-all arrangements statute's exacting 'persons ill repute' frequent thereon 'lewd, immoral improper entertainment.' agents numerous satisfied 'detrimental welfare, health, peace morals inhabitants neighborhood,' 59 'Once revocation. event renewed periodically. employed regulate wide presence homosexuals, topless dancer, lewd dancing, swearing, noisy disorderly. state's restriction expression ground doing merely exercises plenary conditions privilege sufferance 60 'These reported illustrations unrestricted deny sell, transport possess liquor. difficult find interaction personal holder like enterprises arms-length certain conditions, zoning continue enjoy authorizes engage minimal once exacted met encroachment. contrast continuing unparalleled extent. unique enjoys area, stores role manner reaches intimately deeply 61 'In addition this, by-laws.' appied non-Caucasians neutral. penalty consider area permeated control, vestige neutrality disappears specifically exacts approved ex-action threat 62 'However exercising great untrammeled over traffic, affects rights. traffic relation instead permits exploited pursuit practice.' 1248—1250 (MD Pa.1970). 63 today governed determinations action': 'Our leave efforts legislation otherwise, authorize, encourage, facet constitutes illegal pertinent acts occur.' 202, 1626 (separate Brennan, J.). See, e.g., (1963); (1961); (1966); Hunter Erickson, 393 385, 557, 616 (1969); 338 (1967); (1964); McCabe Atchison, T. S.F.R. 235 151, 69, 169 64 dissent recent Sierra Club Morton, 405 727, 1361, 636, similar avail himself agency sought. Id., 737, 1367. Local 'place accommodation' Human Relations Act, Pa.Stat.Ann., Tit. 43, 951 Comm'n Loyal Order Moose, Ct.Common Pleas, Dauphin County, Dauph. 234, aff'd, 220 Pa.Super. 356, 286 374 (1971). Public Utilities Comm. Pollak, 343 451, 813, 1068 (1952), regulated investigation, endorsed Regulations (June 1970 ed.). Brief 10. Section 92.1 General Laws provides 'Sec. 92.1—To Prevent Admission Non Members—There home maintained lodge, standing. House Committee eligible fraternity regulations. accompany leaving, leave. duty submit inspection receipt dues employee.' stipulated 'is, respects, appear characteristics.' App. 23. tried theory granting assumed trigger Clause. whether, center 'private' protection purposes. today, leaves open. Comment, Current Developments Action Law, Gonzaga L.Rev. 233, 271—286. Indeed, full, grandfather per 702 Dec. 17, 1959, 115 census figures, 45. Hotels a.m. next day, Monday Saturday. On Sunday, restricted sales p.m. a.m., Code, 406(a). total 123 hours week. seven days 140, hotels restaurants. (There election-day exempt. Ibid.) 'standing' policies, 'injury members.' 166. confined. litigant standing, Art. III 'case' 'controversy' requirement, 'alleges caused economic otherwise.' Association Data Processing Service Organizations Camp, 397 150, 152, 827, 829, 184. disability apart suffered population large. If chargeable policies—the immediate harm—but For 'subjected disabilities necessarily substantial, immediate, real imposes disability.' Evers Dwyer, 358 204, 79 178, 179, 222. Moreover, called question, Just entire school desegregated petition representing fifth grade, cure exist aspect root evil discriminated blessing 'guest' 'member.' view, moreover, black suffers cognizable injury, supports encourages segregated organizations, organization, just suffer bus ridden ride bus. Cf. American culture history plagued racism fact.' practically brand them, affixed assertion inferiority, stimulant prejudice Strauder West Virginia, 100 303, 308, 664. Their stake analogous 'spiritual stake' values give raise Free Exercise 947. 113.09, creation operates restrict access both, aspects scheme.

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