Document: 507 U.S. 410 113 S.Ct. 1505 123 L.Ed.2d 99 CITY OF CINCINNATI, Petitioner,v.DISCOVERY NETWORK, INC., et al. No. 91-1200. Argued Nov. 9, 1992. Decided March 24, 1993. Syllabus * In 1989, petitioner city authorized respondent companies to place 62 freestanding newsracks on public property for the purpose of distributing free magazines that consisted primarily advertisements respondents' services. 1990, motivated by its interest in safety and attractive appearance streets sidewalks, revoked permits ground were "commercial handbill[s]," whose distribution was prohibited a pre-existing ordinance. ensuing lawsuit, District Court concluded this categorical ban violated First Amendment under "reasonable fit" standard applied regulation commercial speech Board Trustees State Univ. New York v. Fox, 492 469, 109 3028, 106 388. The Appeals affirmed. Held: city's selective distribution, via newsrack, handbills" is not consistent with dictates Amendment. Pp. ____. (a) record amply supports conclusion has met burden establishing between legitimate interests esthetics means it chose serve those interests. ordinance's outdated prohibition handbill enacted long before any concern about developed, apparent preventing kind visual blight caused littering, rather than harm associated permanent, dispensing devices. fact failed address recently developed regulating their size, shape, appearance, or number indicates "carefully calculated" costs benefits imposed prohibition. See U.S., at 480, S.Ct., 3034. lower courts correctly ruled benefit be derived from removal out total 1,500-2,000 small. (b) rejects argument that, because every decrease overall sidewalks necessarily effects an increase improvement attractiveness cityscape, there close fit esthetics. This premised upon distinction drawn such as respondents', which viewed having only low value, assertedly more valuable noncommercial "newspapers," land specifically separate provisions code. attaches importance Court's cases warrant seriously underestimates value speech. Moreover, publications are equally responsible concerns city, bears no relationship whatsoever admittedly asserted impermissible responding Thus, record, make showing would justify differential treatment two types newsracks. (c) Because predicated difference content ordinary newspapers speech, neutral cannot qualify valid time, place, manner restriction protected See, e.g., Ward Rock Against Racism, 491 781, 791, 2746, 2753, 105 661. 946 F.2d 464 (CA6, 1991), STEVENS, J., delivered opinion Court, BLACKMUN, O'CONNOR, SCALIA, KENNEDY, SOUTER, JJ., joined. filed concurring opinion. REHNQUIST, C.J., dissenting opinion, WHITE THOMAS, Mark S. Yurick, Cincinnati, OH, petitioner. Marc D. Mezibov, respondents. Justice STEVENS Court. 1 Motivated Cincinnati refused allow respondents distribute through located property. question presented whether refusal Amendment.1 agreement Appeals, we hold not. 2 Respondent, Discovery Network, Inc., engaged business providing adult educational, recreational, social programs individuals area. It advertises magazine publishes nine times year. Although these consist promotional material pertaining Discovery's courses, they also include some information current events general interest. Approximately one third distributed 38 1989. 3 Harmon Publishing Company, distributes real estate sale various locations throughout United States. contains listings photographs available residential properties greater area, includes rates, market trends, other matters. 1989 received permission install 24 approved locations. About 15% area 4 Director Public Works notified each permit use devices revoked, ordered removed within 30 days. Each notice explained respondent's publication handbill" meaning § 714-1-C Municipal Code2 therefore 714-23 Code3 Respondents granted administrative hearings review Sidewalk Committee. Committee did modify position, agreed remain pending judicial determination constitutionality then commenced litigation States Southern Ohio. 5 After evidentiary hearing "the regulatory scheme advanced City completely prohibiting handbills right way violates Amendment."4 court found both speech" entitled protection concerned lawful activity misleading. While recognized "may regulate pursuant substantial promoting way,"5 held, relying 388 (1989), had "a reasonable 'fit' legislature's ends chosen accomplish ends." App. Pet. Cert. 23a. (quoting 3034). "fit" case unreasonable "minute" compared (1,500-2,000) way, affected minimal way. practices communities indicated City's esthetic could adequately "by placement devices." 24a.6 6 On appeal, argued since held complete traditional unconstitutional,7 "Constitution . accords lesser constitutionally guaranteed expression," Central Hudson Gas & Electric Corp. Service Comm'n York, 447 557, 563, 100 2343, 2350, 65 341 (1980), preferential over permissible method serving ensuring safe blight.8 disagreed, holding status relevant when designed either prevent false misleading advertising, alleviate distinctive adverse specific issue. sought "manner" distributed, opposed content, reasoned "high value" purposes Fox test. F.2d, 471 (italics omitted). Applying test, placed "cannot justified paltry gains beauty achieved ordinance." Ibid.9 decision, together dramatic growth country,10 prompted our grant certiorari. 503 ----, 112 1290, 117 514 (1992). II 7 There claim anything unlawful contents publications. do challenge characterization speech." Nor substantiality was, therefore, proper judge validity set forth Fox.11 establish choice limited interests.12 8 ample support "establish require." 3035. ordinance relied against developed. Its prohibition.13 while considered "paltry" Appeals. We share evaluation goal achieving it. 9 seeking reversal, argues wrong focus attention relatively small prohibition, central unattractive handful contends, first, disseminate messages burdens necessary further limiting newsracks; and, second, "time, manner" content-neutral leaves open alternative channels communication. consider arguments turn. III 10 cityscape. view, thus entirely related 11 accept proposition, but insufficient justification discrimination harmful permitted newsracks, have impact sidewalks. major premise supporting proposition value. Based premise, contends allowed does undermine judgment stronger allowing speakers similar access reading public. 12 agree. 13 very illustrates difficulty drawing bright lines will clearly cabin distinct category. For important characteristics classifies "newspapers." Particularly, Code contain feature apparently places same category.14 Separate code authorize "newspapers" term defined.15 Presumably, examination discloses higher ratio advertising text, news stories, exempted publications.16 Indeed, Cincinnati's Manager determined can newsrack published daily weekly "primarily presen[t] coverage of, commentary on, events." 230 (emphasis added). 14 absence definition characteristic opinions considering regulations Fifty years ago, unprotected Amendment, even though half political protest. Valentine Chrestensen, 316 52, 920, 86 L.Ed. 1262 (1942). A few later, Black's dissent, feature" door-to-door solicitation subscriptions sufficient reason denying activity. Breard Alexandria, 622, 71 95 1233 (1951). Subsequent opinions, however, attributes forms communication entitlement constitutional protection. Virginia Pharmacy Bd. Citizens Consumer Council, 425 748, 96 1817, 48 346 (1976), explained: 15 "We begin several propositions already settled beyond serious dispute. clear, example, lose money spent project it, paid advertisement form another. Buckley Valeo, 424 1, 35-59 [96 612, 642-654, 46 659] (1976); Pittsburgh Press Co. Human Relations Comm'n, 413 [376], 384 [93 2553, 2558, 37 669 (1973) ]; Times Sullivan, 376 [254], 266 [84 710, 718, 686 (1964) ]. Speech likewise carried 'sold' profit, Smith California, 361 147, 150 [80 215, 217, 205] (1959) (books); Joseph Burstyn, Inc. Wilson, 343 495, 501 [72 777, 780, 1098] (1952) (motion pictures); Murdock Pennsylvania, 319 [105], 111 [63 870, 874, 87 1292 (1943) ] (religious literature), may involve purchase otherwise pay contribute money. supra; NAACP Button, 371 415, 429 [83 328, 335, 405] (1963); Jamison Texas, 318 [413], 417 669, 672, 869 Cantwell Connecticut, 310 296, 306-307 [60 900, 904, 84 1213] (1940). 16 "If lacks all protection, must distinguished content. Yet deprives simply subject. No contend pharmacist prevented being heard subject whether, general, pharmaceutical prices should regulated, forbidden. dispositive noneditorial, merely reports fact. Purely factual matter Bigelow Virginia, 421 [809], 822 [95 2222, 2232, 44 600 (1975) Thornhill Alabama, 17 88, 102 736, 744, 1093] (1940)." Id., 761-762, 1825. 18 propose transaction 762, 1825.17 19 later stated proposing expression, see Ohralik Ohio Bar Assn., 436 447, 455-456, 98 1912, 1918, 56 444 (1978). suggested appropriate somewhat larger category speech—"that is, expression solely economic speaker audience." Elec. 561, 2348. not, Bolger Youngs Drug Products, 463 60, 103 2875, 77 469 (1983), (1989). 20 federal statute mailing unsolicited contraceptives appellee's materials. Most mailings price quantity information, fell "within core notion speech—'speech "no transaction." ' " Bolger, 66, 2880 Pharmacy, 1825, turn quoting Relations, 376, 385, 93 (1973)). Relying part motivation, answered "closer question" label informational pamphlets concededly referring product, 66-67, 2880. noteworthy reaching apply broader Hudson—a obviously encompassed mailings—but "examined [them] carefully ensure deserving inadvertently suppressed." 2880.18 described narrowly, characterizing proposal test identifying 473-474, 3031 21 Under clear much conversely, editorial what "core" doubt "common sense" basis distinguishing two, degree.19 22 Nevertheless, deciding case, assume barred labeled nonetheless agree actions run afoul Not too particular asserted. Cf. Simon Schuster, Members Crime Victims Bd., 502 501, 510, 116 476 (1991) (distinction Son Sam law income criminal's descriptions his crime sources "has nothing with" State's transferring proceeds criminals victims); Carey Brown, 455, 465, 2286, 2292, 263 (1980) (State's privacy sustain permitting labor picketing, nonlabor picketing "nothing content-based labor-nonlabor bearing privacy").20 23 esthetics, publishers' eyesore containing handbills," unattractive. testimony capacity proliferate, evidence exceedingly weak, discounted 466-467, n. 3, reassert As explained, primary concern, us, aggregate streets. score, regardless publications, fault. fact, arguably culprit superior number. harms course, typical why governmental 81, 2888 (STEVENS, judgment) ("[T]he aspects message provide present character"); (1978) (commercial unlike varieties "occurs traditionally government regulation").21 25 closer mentioned, demonstrates fallacy established mere entire policy limit Here, addressed distinguishes problems. rejecting Government's reliance protecting "offensive" "[we] declined recognize render 71-72, 2883 (citing Population Services International, 431 678, 701, 28, 97 2010, 2025, 52 675 (1977)). "provide[d] most incremental asserted," 73, 2884—that "marginal degree protection," ibid., interest-supported invalid. Finally, distribution—there mails, here property—without interfering audience. REHNQUIST minimize significance burden: 26 "[T]he Postal communicate mail. [This falls] wide mark. mails significant rights. noted "[t]he give up Post Office sees fit, carries tongues." Blount Rizzi, 400 [410], 416 [91 423, 428, 27 498 (1971) ], Milwaukee Social Democratic Burleson, 255 407, 437 [41 352, 363, 704] (1921) (Holmes, dissenting)." 79-80, 2887 (footnote vein, if assume, arguendo, might prohibit property, avenue remains open, continue play role dissemination 28 unwilling bare assertion "low handbills." Our holding, narrow. above discussion, reach given certain facts circumstances, community able showing. absolutely asserted, concluding, below, goals required Fox. regulation. IV 29 impose restrictions engaging provided 'without reference regulated speech.' 661 Clark Community Creative Non-Violence, 468 288, 293, 104 3065, 3069, 82 221 (1984). sound trucks emitting "loud raucous" noise neighborhoods applies music, advertising. generally Kovacs Cooper, 336 77, 69 448, 513 (1949). qualifies serves unrelated goes, neutral. unpersuasive True, acted animus toward ideas contained just last Term expressly rejected "discriminatory suspect legislature intends suppress ideas." Schuster 509. Regardless mens rea sweeping policy, falls resting inside newsrack. commonsense understanding term, "content-based." 31 persuaded statements turns "justification" regulation, see, Ward, 2753; Clark, compel different conclusion. desire "justified" (to zero) naked value." prevents defending content-neutral. 32 By reasoning, heavy Renton Playtime Theatres, 475 41, 925, 89 (1986), misplaced. Renton, zoning movie theaters films. fall neatly into "content-based" "content-neutral" treats specialize films differently kinds theaters." 47, 929. upheld largely suppressing films, "secondary effects" surrounding neighborhoods. 47-49, 928-930. contrast issue secondary attributable distinguish them 33 sum, neither nor, demonstrated Part III, supra, "narrowly tailored." communication, 34 bars whole class conclude policy. reasons, squared 35 Affirmed. 36 concurring. I withstand scrutiny University N.Y. join write separately believe analysis refined affords truthful, noncoercive concerning activities. Hudson, expressed view "intermediate restraint protect consumers coercive speech," suppresses truthful purpose. 573, 2355 (opinion judgment). treat less "valuable" Respondents' respectively advertise availability educational opportunities, unquestionably who choose read them, burdening "which 'no transaction' id., (1973). so focused principally listener. consumer's flow keen, keener far, day's urgent debate," 763, 1826, indispensable allocation resources enterprise system [and] formation intelligent how ought altered." 765, 1827. Bates Arizona, 433 350, 364, 2691, 2699, 53 810 (1977). 39 recognized, ways 770-772, 1829-1831. Government false, deceptive, misleading, 771-772, 1830-1831, coercive. 457, 1919, 388, 2560. 384, 2709.1 To grounds emphasis listener context. little receiving deceptive information. 383, 2709 private derive confidence accuracy reliability"). coerced purchasing decision. 1919 ("[I]n-person exert pressure often demands immediate response, without opportunity comparison reflection"). Furthermore, extent exists all, weak learning opportunities criminal forbids. proscribe "serv[e] individual societal assuring informed reliable decisionmaking." 2699. 40 So stood 1980 decided intermediate level majority reviewed earlier Constitution "accords expression." 2350. descriptive matter, statement correct, supra. "lesser protection" rest, "is moment Ibid., 5.2 Rather, reflected listener's interests, derives, outside context 41 went develop four-part commensurate supposed reviewing first determine misleading.3 If pass preliminary threshold, all. 566, 2351. show (1) "substantial," (2) "directly advances" interest, (3) extensive interest." Ibid. 3035, clarify can, government's unreasonably so. far cry strict scrutiny, "compelling" tailored" Austin Michigan Chamber Commerce, 494 652, 657, 110 1391, 1394, 108 652 (1990). 42 concurred felt majority's "not prior [did] adequate nonmisleading, 2355. noted: "Permissible restraints been measures fraudulent, sales techniques." 574, adopted majority, illegal activities prong survives prong—i.e., activities—is "substantial" requires deception coercion, itself left possibility energy conservation narrowly promotes consumption. 569-572, 2353-2354. 43 wonder wanted remove streets, eliminate although reasons deceptiveness themselves. First, rely broad 5, 2349-2350, occupies "subordinate position scale values," Ohralik, 456, 1918. Second, knew examined enthusiasm exacting appears decisions heavily. Brief Petitioner ("Cincinnati protections afforded affording newsrack-type dispensers like speech"). Hudson's chickens come home roost. 45 wisely single ante, ____, unnecessary more. reserves directed stemming evaluated standards applicable fully Ante, 11. answer affirmative full wrote 2355.4 But none "commonsense differences," 771, "justify relaxed nondeceptive, 578, 2357 illustrate absurdity treating Respondent properties. Like "For Sale" signs Linmark Associates, Willingboro, 85, 1614, 155 (1977), banned, Harmon's "bear[s] [individuals] make: where live raise families." 96, 1620. programs. consistently education professional personal development individual. Brown Education, 347 483, 493, 74 686, 691, 873 (1954). "value" least receive certainly exceeds offensive, political, slogan displayed petitioner's jacket Cohen 403 15, 91 1780, 284 (1971). 47 think highly unlikely according erode post, ____ (dissenting opinion); predicted never child pornography cigarette customarily R.A.V. St. Paul, 505 2538, 120 305 (1992) advertizing Nation's commitment offensive Texas Johnson, 397, 2533, 342 (1989) (flag burning); National Socialist Party America Skokie, 432 43, 2205, (1977) (Nazi march Jewish neighborhood); (profane antiwar slogan). free, my coercive, activities, greatly reduces risk dilute generally. am heartened decision today reject extreme extension logic, hope ultimately abandon favor 49 Chief whom THOMAS join, dissenting. 50 Concerned something proliferation street corners. Pursuant existing publish charge Together account clutter problem banning handbills, (including newspapers) alike, holds violate Constitution. result inconsistent precedent. 51 "Our jurisprudence emphasized 'commercial [enjoys] measure subordinate values,' 'modes realm expression.' 477, 3033, (1978)); Products Corp., 64-65, 2879, (1983). treatment, among durable offspring self-interest." 564, 6, (1980); 772, (1976). Commercial "less Amendment" expression. Dun Bradstreet, Greenmoss Builders, 472 749, 758, 2939, 2944-2945, 593 (1985) Powell, J.). inherent danger conferring equal accorded "simply leveling process force Amendment's guarantee respect latter analyzing permissibility follows: "At outset, provision, Next, ask substantial. inquiries yield positive answers, directly advances 54 properly analyzed differ produce. 55 points out, "respondents speech,' "[t]here publications." "Nor esthetics." turns, then, application analysis. say so, because, enforced, "more necessary" or, elaborated desired ends. problems corners, finds "ample [a] fit." (internal quotation marks disagree. According invoke "to newsracks" "it 'carefully calculated' prohibition." implication studied detail, discovered accomplished "size, number" categorically Despite protestations contrary, 13, rests discredited restrictive means" objectives renders unconstitutional. observed "almost disallowed fourth substantially excessive, disregarding precise means." 479, 3034 That other—less —means gone addressing concerns, 57 courts' findings 'minute' 'paltry.' inquiry, though, locality's furthered relation challenged "overall problem" locality alleviate. 801, 2759, follows said "substantially similar" 3033 Properly viewed, efforts marginally enhances altered alike. 58 localities stop short accomplishing running Posadas de Puerto Rico Associates Tourism Rico, 478 342, 2968, 2977, 92 Rico's casino gambling aimed residents, appellant's invalid (e.g., horse racing) advertised local residents. More point, Metromedia, San Diego, 453 490, 101 2882, 800 (1981) (plurality opinion), Diego's offsite billboard appellants' extend onsite 511, 2894 ("[W]hether traffic underinclusive advertising"). Council Los Angeles Taxpayers Vincent, 466 789, 810-811, 2118, 2131-2132, 80 772 (1984) (rejecting posting property). 59 offers rationale invalidating policy: viz., (between speech) "bears asserted." original). physical degree, place. otherwise; instead, asserts grounded "In 'newspapers' handbills' city," refuses 'low value' handbills.' 60 despite determining permissible, attempting proceed incrementally first. levels previously urban problems, 513, 2895 converse true. surprising, precedent new rule. cite challenges distinctions restricted nonrestricted bore citing (1991); (1980). Neither involved speech; nor categories degrees 61 "shield[ing] recipients mail materials likely find offensive" type speech—commercial involved. 2883. contrast, teaching Metromedia. There, seven Justices billboards displayed. 507-510, 2892-2894 WHITE, joined Stewart, Marshall, JJ.); 552-553, 2915-2916 part); 559-561, 2919-2920, 2921 (Burger, dissenting); 569-570, 2924 (REHNQUIST, dissenting). Without reconcile now suggests (or therefrom). 11, fear, unduly hamper cities' grips unique posed (as certain) based loss unconstitutional One thought perhaps following teachings jurisprudence, (i.e., handbills) Today's decide restricting speech—fully —and corners unabated. scarcely seems logical compels result. order right-of-ways chooses. Lakewood Plain Dealer Co., 486 750, 780-781, 2138, 2156-2157, 771 (1988) (WHITE, however decides problem, scope principles, rule "[L]ittle gained law, lost democratic decisionmaking, judges after second-guess legislative determinations" matters 570, 63 burdened objective alleviating Hudson. engage event strikes me duplicative 3033. wise, vests discretion officials constitutes handbill." 19. undisputed, parties least, constitute dissent. syllabus prepared Reporter Decisions convenience reader. Detroit Lumber 200 321, 337, 282, 287, 499. provides, part: "Congress shall abridging freedom press. ." Due Process Clause Fourteenth construed state action. Stromberg 283 359, 532, 75 1117 (1931); Lovell Griffin, 303 444, 666, 949 (1938). section provides: 'Commercial Handbill' mean printed written dodger, circular, leaflet, pamphlet, paper, booklet reproduced original copies literature: "(a) Which merchandise, commodity thing; "(b) directs mercantile establishment, activity, thereof sales; "(c) meeting, theatrical performance, exhibition admission fee charged gain profit." "No person throw deposit non-commercial sidewalk, city. hand sell Provided, distribute, receiver thereof, willing except around hall building." 714.23. 25a. "Such regulation," noted, "allows control effect keep question." 24a. Sentinel Communications Watts, 936 1189, 1196-1197 (CA11 cited therein. words Appeals: "This 'lesser protection' crucial appeal. placing safer harmonious landscape protection." 464, (CA6 1991). id. ("The [city's] defense allegedly general"). books arose. 473. advised almost copy American Newspaper Publishers Association Amici Curiae 2. case. seem follow lenient need subjected review. Fox: "[W]hile insisted enough imposing would-be regulators harmless harmful, demonstrating distinguishment 100% complete, severe achieve end. What require ends—a perfect, reasonable; represents best disposition proportion served; employs but, put contexts discussed above, tailored objective. Within bounds leave decisionmakers employed. "Here substantial, cost calculated. justifying restrictions, affirmatively 3035 citations consideration alternative, drastic effectuate somehow Fox's "least-restrictive-means" repeat, 12, judging rational "absolutely end," numerous obvious less-burdensome alternatives reasonable. 2, 862-1 "Permission hereby persons lawfully selling occupy space newspapers, morning afternoon, obtained owner tenant adjoining Some try maintain 70% 30% C. Fink, Strategic Management (1988). writing summarized extending speech: "The [in speech] substantial: dialogue. served Advertising, commercial, carry import issues day. 809 600] (1975). And inform availability, nature, products services, performs system. FTC Procter Gamble 386 568, 603-604 [87 1224, 1243, 303] (1967) (Harlan, concurring). short, Of '[Advertisements] well calculated enlarge enlighten mind, worthy enumerated many methods awakening maintaining popular attention, modern times, preceding abound.' Boorstin, Americans: Colonial Experience 415 (1958), I. Thomas, History Printing Biography Printers, Account Newspapers (2d ed. 1810). When expressed. 579, 2358 note depends "newspaper," raises struck down vested mayor authority deny newspaper's permit, explicit mayor's discretion. ordinance, reasoning licensing unbridled di scretion official viewpoint censorship. 757, 769-770, 2144, 2151. Similarly, "newspaper" clear—as deems presenting events," added)—the responsibility potential invidious disfavored subjects. also, 536-537, 2907, (Brennan, (ordinance unit determine, instance, noncommercial, "entail[s] exercise official" "presents curtailing guise Arkansas Writers' Project, Ragland, 481 221, 230, 107 1722, 1728, 209 (1987) ("In tax, Arkansas' enforcement authorities examine conveyed. Such tax incompatible press") citation (1981), heavily relies, contrary. plurality part, banned outdoor "offsite" billboards, "onsite" premises goods sold manufactured site. 494, 503, 2885, 2890. Unlike involves "offsite-onsite" disparate Only guiding visitors intended destinations; moreover, "city periodically changing presents acute advertising," 511-512, 2894-2895. bases THE CHIEF JUSTICE correct Metromedia Diego billboards. Post, Those say, cause concerns. draw billboards; exceptions, essentially principal little, any, practices. Bolger: "Advertisers immunize product including references issues." 68, 2881. justifies intensive intermingled hand, still rules advocating 254, 279-280, 725-726, (liability regarding "actual malice"); Brandenburg Ohio, 395 1827, 1829, 430 (1969) (government advocacy action "except inciting producing imminent lawless incite produce action"). roots often-quoted passage Ohralik: "[W]e values, modes explain "limited "modes expression" relegated values." "misleading" inherently in-person solicitation. 464-465, 1923. made mention quarrel altogether. 2560, 2709,

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