Document: 425 U.S. 610 96 S.Ct. 1755 48 L.Ed.2d 243 Edward H. HYNES et al., Appellants,v.The MAYOR AND COUNCIL OF the BOROUGH ORADELL al. No. 74-1329. Argued Dec. 10, 1975. Decided May 19, 1976. Syllabus A municipal ordinance requiring that advance written notice be given to local police department by "(a)ny person (including representatives of Borough Civic Groups and Organizations) desiring canvass, solicit or call from house . for a recognized charitable cause, Federal, State, County Municipal political campaign cause identification only" Held invalid because vagueness. municipality has power enforce reasonable door-to-door soliciting canvassing regulations protect its citizens crime undue annoyance. The Court consistently narrowly drawn does not vest in officials undefined determine what residents will hear see may serve these interests consistent with First Amendment. question must fall, however, certain respects "men common intelligence necessarily guess at meaning." Connally v. General Const. Co., 269 385, 391, 46 126, 127, 70 L.Ed. 322, 328. First, ordinance's coverage is unclear, since it explain whether "Recognized cause" means one Internal Revenue Service as tax exempt, some community agency, approved official; nor clear meant "Federal, Cause," groups fall into class "Borough Organizations" covers. Secondly, sufficiently specify those within reach do order comply. Not only told he set forth required consider sufficient identification, but also provide explicit standards who apply it. Pp. 612-622. 66 N.J. 376, 331 A.2d 277, reversed remanded. Telfd Taylor, appellants. James A. Major, Hackensack, N. J., appellees. Mr. Chief Justice BURGER delivered opinion Court. 1 presented this case writing violates guarantees freedom speech due process law embodied Fourteenth 2 (1) 3 Oradell, enacted two ordinances together regulate most forms solicitation. broad ordinance, 573, requires all solicitors obtain permit borough clerk, making formal application, accompanied description photograph applicant, license number any automobile used soliciting, driver's license, other data. apparently chief approve issuance permit.1 4 issue here, Ordinance 598A, an amendment broader scheme, imposes no requirement; covers persons "a cause." 598A applies "representatives Organizations veterans honorably discharged released under honorable circumstances" Armed Forces. Those covered are "notify Police Department writing, only." Once given, "good duration cause."2 5 Appellants Hynes, New Jersey state assemblyman whose district was redrawn 1973 include three Oradell registered voters. They brought suit Superior Bergen County, seeking declaration unconstitutional injunction against enforcement. Appellant Hynes alleged wished re-election Oradell. appellants either they canvass door causes speak candidates campaigned Each appellant claimed would unconstitutionally restrict such activity. 6 held reasons. court noted contained penalty clause, hence unenforceable law; second, related announced purpose prevention canvassers register.3 Finally, concluded vague overbroad unclear "as is, isn't required" causes. Appellate Division affirmed, reaching accepting first ground trial court's decision. 7 Supreme reversed. 277 (1975). It during pendency appeal, cured defect had concerned Division. Relying largely on decision dealing similar Collingswood Ringgold, 350, 262 (1975), appeal docketed, 74-1335, legitimate exercise borough's power, prevent reduce residents' fears about strangers wandering door. regulated conduct well doing so "it could hardly more clear." N.J., 380, A.2d, 279. thought, imposed minimal requirements which did offend free interests: 8 "It satisfied suggesting resort mails. need fulfilled once each campaign. There fee. applicant have carry card license. And perhaps importantly, discretion reposes official deny privilege calling plainly device basic form." Ibid. 9 Two seven members dissented. One justice thought "plain silly" crime-prevention measure, reasons court. Id., 382, 280; another "ordinance potential significant chilling effect rights thus infringes rights." 389, 284. 10 (2) 11 We without guideposts considering appellants' Amendment challenge 598A. "Adjustment inevitable conflict between problem persistent perplexing," Niemotko Maryland, 340 268, 275, 71 325, 329, 95 267, 272 (1951) (Frankfurter, concurring result), several cases reviewed attempts municipalities activities like soliciting. Regulation area "must done, restriction applied, manner intrude upon assembly," Thomas Collins, 323 516, 540-541, 65 315, 327, 89 430, 446 (1945). But very municipality's annoyance regulating canvassing. messages important running afoul 12 In Lovell Griffin, 303 444, 58 666, 82 949 (1938), prohibited distribution "literature kind obtaining permission City Manager," 447, 667, 951. "no application respect time place," "not limited ways might regarded inconsistent maintenance public involving disorderly conduct, molestation inhabitants, misuse littering streets." 451, 669, 953. 13 year later, Schneider 308 147, 60 146, 84 155 (1939), Irvington, dealt specifically house-to-house solicitors. them permit, if decided "the canvasser good character project fraud." 158, 149, 163. Because canvasser's "liberty communicate town their homes depends officer's discretion," 164, 152, 166, invalid. Cantwell Connecticut, 310 296, 900, 1213 (1940), applied Jehovah's Witnesses door, infringed right religion, guaranteed Amendments. Martin Struthers, 319 141, 63 862, 87 1313 (1943), struck down made solicitor knock front resident's home ring doorbell. See Staub Baxley, 355 313, 78 302 (1958). 14 results, acknowledged valid sought serve. Martin, supra, 144, 864, 1317, Black stated: 15 "Ordinances sort now before us aimed protection householders annoyance, including intrusion hours rest, crime. Constant callers, selling pots distributing leaflets, lessen peaceful enjoyment much neighborhood glue factory railroad yard zoning prohibit. 16 addition, burglars frequently pose canvassers, pretense discover empty ripe burglary, spying out premises return later. Crime regulatory ordinances." 17 As suggested, lone housewife way knowing purposes putative benign malignant, even innocuous caller "may home." his view "can devices" deter criminal "posing canvassers," 148, S.Ct., 866, L.Ed., 1319, relying Court's statement Cantwell, U.S., 306, 904, 1219: 18 "Without doubt State fraudulent solicitation stranger community, permitting him publicly funds purpose, establish identity authority act purports represent." 19 These opinions dissenting found stake. 867, 1321 dissenting); 154, 868, 1322 (Reed, Douglas Jeannette, 157, 877, 882, 1324, 1330 (1943) (Jackson, Struthers ). Professor Zechariah Chafee articulated something householder's let alone, saying: 20 "Of methods spreading unpopular ideas, (house-to-house canvassing) seems least entitled extensive protection. possibilities persuasion slight compared certainties Great value exposing novel views, place where man ought able shut himself up own ideas desires." Free Speech United States 406 (1954). 21 went note: "(These cases) invalidate scope doorway dissemination thought. Several sentences suitably designed take care social void." 407. 22 course, absolute Federal Constitution enter private permits regulation safety. cannot say, indeed argue, immune State's danger home. Rowan Post Office Dept., 397 728, 735-738, 90 1484, 1489, 25 736, 742-744 (1970). 23 (3) 24 remains challenged meets test "government narrow specificity." NAACP Button, 371 415, 433, 83 328, 338, 405, 418 (1963). matter process, "(n)o peril life, liberty property speculate meaning penal statutes. All informed commands forbids." Lanzetta Jersey, 306 453, 59 618, 619, 888, 890 (1939). general vagueness particular force review laws speech. "(S)tricter permissible statutory statute having potentially inhibiting speech; less loser." Smith California, 361 151, 80 215, 217, 205, 210 (1959). Buckley Valeo, 424 1, 76-82, 612, 662-665, 659, 720-723 (1976); Broadrick Oklahoma, 413 601, 611-612, 93 2908, 2915, 37 830, 839 (1973). Notwithstanding undoubted meet needs discussed, we conclude Constr. 328 (1926). Since vagueness, arguments advance.4 26 unclear; explain, example, official. While fairly phrase "political campaign" comprehends, Cause." covers.5 27 Second, citizen Department, notice, "identification." This marked contrast 573 sets commercial solicitors; provisions extend n. Supra. comparable precision. construed send mail; mail find too late provided inadequate. respect, trap innocent providing fair warning." Grayned Rockford, 408 104, 10892 2294, 2299, 33 222, 227 (1972). Nor "provide apply" To extent ambiguities failure "identification" give Effective grant causes, suffers practical vice condemned Lovell, Schneider, Staub. Papachristou Jacksonville, 405 156, 162, 92 839, 843, 31 110, 115 (1972); Coates Cincinnati, 402 611, 614, 91 1686, 1688, 29 214, 217 (1971); Note, Void-for-Vagueness Doctrine Court, 109 U.Pa.L.Rev. 67, 75-85 (1960). 28 undertook limiting construction requirement mails," 279, requires; provides clue "recognized charity"; "clause" defined. Cf. Colten Kentucky, 407 110-111, 1953, 1957, 32 584, 589-590 Chaplinsky Hampshire, 315 568, 62 766, 86 1031 (1942); Cox 312 569, 61 762, 85 1049 (1941). Even assuming interpretation remedy flaws pointed intimate defects giving constitutionally precise content.6 Goguen, 415 566, 575, 94 1242, 1248, 39 605, 613 (1974). Accoingly, judgment reversed, remanded further proceedings opinion. 30 ordered. Reversed STEVENS took part consideration case. BRENNAN, whom MARSHALL joins, part. 34 I join Part holding invalidated impermissibly vague. reserves constitutional contentions ordinance. Ante, 620-621, 4. Despite reservation, read that, aside, ordinarily withstand attack. believe encounter substantial barriers besides briefly my 35 validity canvassing, Black, speaking S.. properly interest keeping neighborhoods safe peaceful. unlike today, stop there. Rather, emphasized side equation method communication essential preservation our society. He said: 36 "While distributers literature nuisance blind activities, useful society engaged accordance best tradition discussion. widespread use many espousing various attests major importance. 'Pamphlets proved effective instruments bringing individuals people.' (308 (1939)). Many widely established religious organizations disseminating doctrines, laboring recruiting members. federal government, current war bond campaign, encourages distribute advertisements circulars house. Of every acquainted life knows, campaigning accepted techniques popular support, while circulation nominating papers greatly handicapped taken homes. Door poorly financed little people." 145-146, 864-865, 1318-1319. can denied campaigner identify discouras Talley 362 60, 536, 559 (1960), Los Angeles handbills name address printing, them. destroyed anonymity, "(t)here (could) tend information thereby expression," 64, 538, 563, for: 38 "Anonymous pamphlets, brochures books played role progress mankind. Persecuted sects throughout history been criticize oppressive practices anonymously all. Federalist Papers, favor adoption Constitution, were published fictitious names. plain anonymity sometimes assumed constructive purposes." 64-65, 538-539, 563. No said preserved exposition ideas. That ordinance.1 "(I)dentification fear reprisal perfectly discussions matters importance," 65, 539, particularly seeks discussion sensitive controversial issues, civilian boards, decriminalization specified types recall elected Deplorably, apprehension average often founded. national scene recent times regrettably instances penalties expression form vindictive harassment, discriminatory enforcement, executive abuse administrative powers, intensive government surveillance.2 40 threat type jeopardization anonymity. Perhaps greater lies impermissible burden impose expression, core protected Amendment.3 Unquestionably lifeblood today's work volunteers. financial campaigns makes reliance volunteers absolutely and, light enormous significance participation strength democratic ideal, desirable, indispensable. Offensive sensibilities citizens, intrusive form, discourage participation. 41 recognize there governmental justify restraints protections, "(t)he rational connection evil curbed, contexts support legislation attack grounds, suffice. Accordingly, whatever occasion restrain orderly persuasion, appropriate place, danger, actual impending." 530, 323, 440 Restraints implicit requirements, beyond restrictions chill itself. therefore raises questions usual time, regulation.4 115, 2302, 231 Under authentication submitted, easily evaded.5 circumstance, justified protective overriding evasion thwart objective. 45, 647, 702-703 (1976). imposition burdensome authentication, doubtless activity therefore, eliminate difficulty. Moreover, purported aid self-evident relieve proving asserted served. What Harlan handbill equally type: 42 "Here says 'fraud, deceit, false advertising, negligent words, obscenity, libel,' detection responsible material character. limited, think simply say anonymous suppressed distributors obnoxious absence showing Angeles' experience handbills, generality me remote furnish acceptable justification deterrent all-embracing likely have." 66-67, 539-540, 564 (concurring opinion).6 43 Contrary thrust opinion, inescapable type, however precisely drafted avoid pitfalls present questions. imperiling precious values, justifiable, lightly. serious modern-day problems. perception solve should color constitutionality measures end. 44 REHNQUIST, dissenting. 45 agree virtually everything Parts indicates survive wide range applied" challenges based Amendmes. concludes presently drafted. recognizes none ever suggested violate limitation. decisions point unquestionably valid. 1213, 1219 (1940); 865, 1313, 1319 (1943). 47 observation that: "A hear, Amendment." 617. 49 goes element unbridled otherwise bear superficial resemblance here. clearly recognizes, "imposes requirement." 612. Instead, comes binding, 432, 337, 417 (1963), Oradell's door." 616, quoting 279 50 Aftedemonstrating respects, proceeds allowing stricter standard speech, 620, fail inhere never applied. 51 infirmity cited unclear. suggests occurs difficult ascertain "causes" come definition therein. Assuming moment references "vague," term colloquially employed, raise claim "vagueness" dimension. From verified complaint filed ability seek desire receive entreaties App. F. None assert "charitable" "causes," profess membership believes somehow unclearly accepts validly "narrowly drawn" than seem justification, theory case, claims others 830 52 initially suggest footnote, 621 5, displace normal prohibition assertion Jus tertii. Any logic distinction escapes me. Only doctrine "overbreadth" exceptions traditional rules standing area. 610-616, 2914-2918, 838-842. Here tenable overbreadth exists, correctly eschews doctrine. Thus personal appellants.* understand dispute proposition: instead attempting rely distinctions invocation afford, footnote allegations regarding "rights" Causes confer standing. differently fundamentally, how "right information" grounded hypothetical canvassers' uncertainty correct determining question, expressions constitutes charitae Civil Group (or) Organization" continue float wholly detached plaintiff aspects coverage. 53 Assuming, hand, issues clarity language. directed indistinguishable phrasing Oklahoma's Merit System Personnel Administration Act "all frivolous." 607, 2913, 836. recognized: 54 "Words inevitably contain germs disputes over terms 'there limitations English language being both specific manageably brief, although (definitions) satisfy intent finding fault cost, ordinary exercising sense comply with, sacrifice interest.' " 608, L.Ed.2d, 837, CSC Letter Carriers, 548, 578-579, 2880, 2897, 796, 816 55 Broadrick's recognition inherent anticipating defining away arise new undeniably sound, dispositive limitations. 56 her shortcoming criticizes "sufficiently comply." 621. But, demands quite desires put affidavit submitted Court: "All asked (a candidate) know is." G-5. provision possibly become unwary 57 knows involved Should doubts detailed, simple recourse close hand; ask police: "Is enough? Do you require anything more?" Persons learn exactly practice. hypothesizes chose submit requisite "too late" submission Such good-faith compliance preclude liability, availability narrowing constructions deal wisdom declaring apart considerations necessity identifying themselves ensure embarking delay, few days, surely rights. Surely Amendment," ante, satisfactorily information. served avoided possibility studied ignorance demonstrates concluding observations perceives directive. unspecified "give causes." 622. itself notes authoritatively authorities cites directly penultimate paragraph afford result reaches. "intimate(s) view" contentions, 621, exists felt obliged defended ground. be. affirm Jersey. relevant part: "Section 1. Permit Required "No shall sell attempt goods sample orders future delivery goods, merchandise, wares, nature whatsoever, services furnished performed future, received therefor. 2. Application Permit: Contents Thereof "a) file, supplied Clerk, Clerk stating: "(1) Name applicant; "(2) Permanent address; "(3) employer firm represented; "(4) Place places residence preceding years; "(5) Date commence soliciting; "(6) Nature merchandise sold offered sale furnished; "(7) Whether convicted crime, misdemeanor, violation concerning so, when, offense; "(8) Names communities worked past years. "b) Said letter individual, corporation employing certifying authorized employer's representative. "c) months prior commence. Investigation: Issuance "The copy investigation applicant's business moral deems necessary good. available cities, towns boroughs, canvassed solicited years last past. 6. Penalty "Any person, violating shall, conviction thereof, fined amount exceeding $500.00 imprisoned Jail period ninety (90) imprisoned. day permitted continue, constitute separate offense subject hereunder." same insofar vested deciding permit. accordingly remainder stand. "WHEREAS, primarily family residential employed elsewhere, resulting wives wage earner left alone day; geographical location impossible areas break entries larceny home; safety pretext votes designated candidate signatures petition, activity, identified Department; Mayor Council feel notify identification. "Now, THEREFORE, ordained 'An prohibit fees thereof' amended supplemented follows: Section addition 1(a) 'Exceptions Permit' hereinafter forth: 1(a): Exceptions only. notification cause. section circumstances active service branch Forces States. Sections exception clause (Sic ), applicable herein. parts hereby repealed." regard appears ignore solicitation, amendment. argue bears relationship prevention, casually neighbors, Privileges Immunities Clause infringing discuss candidates. contentions. flaw (1973), dissent relies. uncertain enough precision lack defines categories agency charged department, adopted legal so. Broadrick, 616-617, 2918, 842; 2895, 814 (1973); Law Students Research Wadmond, 401 162-163, 720, 726, 749, 757-758 (1971). neither fingerprints required, "let explanation adds specificity purport binding enforcement authorities. "less formalized custom usage" Parker Levy, 733, 754, 2547, 2560, 439, 456 expressly solicit. "notification (to police) If disclosure compelled. Indeed, challenge. Our 659 (1976), view. "compelled disclosure, itself, seriously infringe privacy association belief 656, 713. 68, 71, 81-82, 658, 664-665, 715, 717, 723. Buckley, uphold Election Campaign despite distinguishing situations advanced. Here, adequately Infra, 628-630. contribution money, high visibility. Consequently, deterrence here contributions. expressing concern special problems minority parties, posed smaller numbers clearer 68-72, 658-660, 715-718. "Discussion debate qualifications integral operation system Constitution. affords broadest 'to assure (the) unfettered interchange changes desired Roth States, 354 476, 484, 77 1304, 1308, 1498 (1957). Although protections confined 'the ideas,' Winters York, 333 507, 510, 68 665, 668, 840 (1948), practically universal agreement th(e) affairs, course includ(ing) .' Mills Alabama, 384 218, 1434, 1437, 484 (1966). reflects 'profound commitment principle uninhibited, robust, wide-open,' York Times Co. Sullivan, 376 254, 270, 710, 721, 686 (1964). republic people sovereign, citizenry make choices among office essential, identities shape follow nation. observed Monitor Patriot Roy, 265, 272, 625, (1971), 'it doubted guarantee fullest urgent office.' 14-15, 632, 685. 'freedom speak.' protects 'govern.' "In governing appear casting ballot. deeper voting merely external diverse responsibilities judgments, govern lays mentioned kinds. We, govern, try which, incident incident, face pass agents issues. And, further, share devising wise or, be, supplanted promise effectiveness. (the Amendment) gives unqualified protection." Meiklejohn, Absolute, 1961 Sup.Ct.Rev. 245, 255. sure, observe "(a) city devices control criminals posing canvassers." passing remark, questioned later 430 accompanying applicability money. states: 'Without Solicit represent,' 148 14, 1320 (emphasis added) (quoting (1940)). text, presents different order. draws distinction: "We register undertakes enlist lawful movement incompatible "Once speaker engages amounts when collection securing subscriptions, enters realm registration imposed. ." 540, 445. mailing requirements. 713: long encroachments compelled mere interest. (NAACP 357 449, 1163, 1488 (1958)) subordinating exacting scrutiny. insisted 'relevant correlation' 'substantial relation' disclosed." * Had attempted bring action District Younger Harris, 37, 746, 669 companion insuperable successful maintenance. courts entertain equity, comity, federalism underlie absent. reviewable obligatory docket, U.S.C. § 1257(2),

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