Document: 452 U.S. 640 101 S.Ct. 2559 69 L.Ed.2d 298 Michael HEFFRON, Secretary and Manager of the Minnesota State Agricultural Society Board Managers, et al., Petitioners,v.INTERNATIONAL SOCIETY FOR KRISHNA CONSCIOUSNESS, INC., al. No. 80-795. Argued April 20, 1981. Decided June 22, Syllabus A rule (Rule 6.05) (Society), a public corporation that operates annual state fair, provides sale or distribution any merchandise, including printed written material, except from duly licensed location on fairgrounds shall be misdemeanor. As Rule 6.05 is construed applied by Society, all persons, groups, firms desiring to sell, exhibit, distribute materials during fair must do so only fixed locations. However, does not prevent organizational representatives walking about communicating organization's views patrons in face-to-face discussions. Space rented nondiscriminatory fashion first-come, first-served basis, applies alike nonprofit, charitable, commercial enterprises. Respondents, International for Krishna Consciousness, Inc. (ISKCON), an organization espousing religion, head one its temples, filed suit court against officials, seeking declaratory injunctive relief ground 6.05, face as applied, violated their First Amendment rights. ISKCON asserted suppressed practice Sankirtan, religious ritual enjoins members go into places sell literature solicit donations support religion. The trial upheld constitutionality but Supreme Court reversed. Held: requiring who desire Sankirtan at confine distribution, sales, solicitation activities location, permissible restriction place manner Pp. 647-655. (a) based upon content subject matter speech, since it evenhandedly persons organizations, whether wish funds. Nor Rule—which involves method allocating space basis—open kind arbitrary application inherently inconsistent with valid time, place, regulation having potential becoming means suppressing particular point view. 648-649. (b) State's interest maintaining orderly movement crowd sufficient satisfy requirement serve significant governmental interest. significance assessed light characteristic nature function forum involved. Because comprise relatively small area where enormous variety goods, services, entertainment, other matters are exhibited large crowds temporary control such assembly substantial consideration. 649-651. (c) justification cannot measured solely basis disorder would result granting exemption Rule. Inclusion peripatetic part church entitle rights superior those groups raise money purport ritualize process. And if invalid ISKCON's activities, no more respect social, political, charitable organizations information, wares, funds fair. 651-654. (d) Similarly, viewed unnecessary could avoid threat posed less restrictive means, penalizing disorder, limiting number solicitors, imposing narrowly drawn restrictions representatives. Since inquiry involve entitled distribute, booth may enforced ISKCON, improbable alternative deal adequately problems distributors solicitors present fairgrounds. P. 654. (e) Alternative forums expression respondents' protected speech exist despite effects 6.05. practicing anywhere outside fairgrounds, nor exclude Its mingle orally propagate views, also arrange 654-655. 299 N.W.2d 79, reversed remanded. Kent G. Harbison, St. Paul, Minn., petitioners. Laurence H. Tribe, Cambridge, Mass., respondents. JUSTICE WHITE delivered opinion Court. 1 question presented review State, consistent Fourteenth Amendments, require conduct assigned within even though limits practices organization. 2 * Each year, organized under laws Minnesota, see Minn.Stat. § 37.01 (1980), Fair 125-acre state-owned tract located Minn.1 conducted purpose "exhibiting . agricultural, stock-breeding, horticultural, mining, mechanical, industrial, products resources state, proper exhibits expositions arts, human skills, sciences." Ibid. major event attracts visitors over well parts country. During past five years, average total attendance 12-day has been 1,320,000 persons. daily weekdays 115,000 Saturdays Sundays 160,000. 3 authorized make "bylaws, ordinances, rules, law, which deem necessary government grounds. ." 37.16 (1980). Under this authority, promulgated relevant 4 "[s]ale material license issued [by] and/or duly-licensed misdemeanor." 5 "all exhibit locations fairgrounds."2 Although discussions,3 exhibitor fund operations Society. comers rental charge size booth.4 enterprises.5 6 One day prior opening 1977 Fair, respondents international society Joseph Beca, Minneapolis temple, numerous officials declaration both Amendment, prohibiting enforcement members. Specifically, suppress rituals, religion.6 entered orders govern parties Fair.7 When concluded after hearing, granted officials' motion summary judgment, upholding Relying reasoning v. Evans, 440 F.Supp. 414 (SD Ohio 1977), found "in providing goers concessionaries adequate equal access each minimum ofcongestion fairgrounds" was sustain 6.05's limitations respondents.8 court, however, provided were free "[r]oam throughout areas generally open discussing others beliefs." 7 On appeal, reversed, holding respondents, unconstitutionally restricted Krishnas' Sankirtan. 79 rejected Society's proffered justifications inadequate warrant restriction. Furthermore, essential furtherance interests served We petition writ certiorari important constitutional issues conflicting results reached similar cases various lower courts.9 449 1109, 917, 66 838. II 8 dispute oral dissemination doctrines Amendment. See Schneider 308 147, 160, 162-164, 60 146, 150, 151-152, 84 L.Ed. 155 (1939); Lovell City Griffin, 303 444, 452, 58 666, 669, 82 949 (1938). claim protection lost because sought distributed sold rather than given away contributions gifts solicited course propagating faith. Our indicate much. Murdock Pennsylvania, 319 105, 111, 63 870, 874, 87 1292 (1943); Schaumburg Citizens Better Environment, 444 620, 632, 100 826, 73 Cantwell Connecticut, 310 296, 900, 1213 (1940). 9 It common ground, guarantee right communicate one's times desired. Adderley Florida, 385 39, 47-48, 242, 247, 17 149 (1966); Poulos New Hampshire, 345 395, 405, 760, 766, 97 1105 (1953); Cox Louisiana, 379 536, 554, 85 453, 464, 13 471 (1965). recognized, like reasonable restrictions. Grayned Rockford, 408 104, 92 2294, 33 222 (1972); supra; Kovacs Cooper, 336 77, 448, 93 513 (1949); 312 569, 61 762, 1049 (1941).10 "We have often approved they justified without reference regulated interest, doing leave ample channels communication information." Virginia Pharmacy Consumer Council, 425 748, 771, 96 1817, 1830, 48 346 (1976); Consolidated Edison Co. Public Service Comm'n, 447 530, 535, 2326, 2331, 65 issue here, below, specifically, location. 10 criterion "may either speech." supra, S.Ct., 2332.11 qualifies respect, observed, No person organization, permitted engage purposes.12 11 suffer covert forms discrimination when discretion vested some authority. straightforward system. condemned Shuttlesworth Birmingham, 394 150-153, 89 935, 938-940, 22 162 (1969); 555-558, 464-466; Staub Baxley, 355 313, 321-325, 78 277, 281-284, 302 (1958); Largent Texas, 318 418, 667, 873 304, 903; U.S., 164, 152; Hague CIO, 307 496, 516, 59 954, 964, 83 1423 (1939). 12 "serve interest." 1830. 108, 2298. Here, principal need maintain exhibitors attending Fair.13 125 acres, bulk covered permanent buildings, structures, parking lots, connecting thoroughfares. There 1,400 concessionaires renting 1978 Fairs, chiefly buildings. designed This accomplished confining individual locations, moving among booths attractions, using streets spaces purpose. crowds, 643, apparent 14 general matter, clear protecting "safety convenience" objective. 115, 2302; 574, 765. consideration forum's special attributes See, e. g., 116-117, 2303; Lehman Shaker Heights, 418 298, 302-303, 94 2714, 2716-2717, 41 770 (1974). observation bears import case analogies between city "immemorially held trust use used purposes assembly, thoughts citizens, questions." 515, 963. Kunz York, 340 290, 293, 71 312, 314, 95 280 (1951). But there differences street continually open, uncongested, constitutes conduit affairs locality's people enjoy air company friends neighbors relaxed environment. described above, attracting great numbers come short period experience host attractions Fair. flow demands safety pressing context such, comparisons necessarily inexact. 15 recognized avoiding congestion furthered significantly.14 Nevertheless, declared did turn "importance state's undeniable preventing widespread surely effect" whatever likely N.W.2d, 83. Approaching way, although disruption occur exemption, concern Krishnas booth. that, event, control, intrusive means. 16 we it, took too narrow view should ISKCON. That compared religions funds.15 None our suggest inclusion entitles communicate, ideological messages proselytize. These nonreligious enter spread soliciting distributing literature. If confined sale, rent booths, unavailable due lack chose expense involved, probability appear freely so. inevitably arise what extent gives move information wares do. 18 desires proselytize believes can successfully In view, done intercepting about, success achieved, stopping them momentarily longer periods exchanged consequence multiplied many transactions Indeed, below agreed exempting Obviously, much larger religious, nonreligious, noncommercial likewise selling will. Given these considerations, hold selling, By focusing incidental effect take account fact meaningfully limited similarly situated furthering managing crowd. apply type designated violating 19 For reasons, agree disruption, putting indicated, Looked quite suggested judgment affirmed. 20 restriction, sufficiently vulnerable ground. First, More importantly, shown deny question. desired activity forum. views. itself. exists provide temporarily commercial, efficient fashion. Considering functions combined operates, unwilling say protects every citizen "reach minds willing listeners opportunity win attention." 87, (1949). unnecessarily limit fairgrounds.16 21 remanded further proceedings opinion. So ordered. 23 Justice BRENNAN, whom MARSHALL STEVENS join, concurring dissenting part. 24 recognizes, exercise Schad Mount Ephraim, 61, 74-76, 2176, 2186, 68 671; 115-116, 2302, (1972). deciding issue, considers, inter alia, serves ante, 649-650, errs, failing analysis separately Thus, fails recognize while not. 25 restricts three types activity: literature, 633, 833, 834, (1980); 872, Jamison 413, 416, 671, 869 group preassigned, Violation misdemeanor, violators arrest expulsion 26 advances relied today Ante, 649-650. second justification, justices (Minn.1980), fairgoers fraudulent, deceptive, misleading practices. third "captive audience" doctrine, annoyance harassment. 27 I 2302-2303, 765, (1941). doubt fraudulent deceptive 636, 836; 771-772, 1830-1831, (1976). believe record latter substantially sales will greatest police possible practices, antifraud measure. Accordingly, join insofar upholds solicitations. overly achieving accept validity justification.1 dissent Court's approval 28 long noted, once impinge basic rights, burden falls show absence alternatives. supra. challenged "regulation tailored legitimate 2303. Minnesota's meet test. 29 festival ideas. Located comprising approximately 160,000 Sundays. Once pay admission fees, roam will, visiting meeting friends, just milling about. Significantly, fairgoer, political candidate, concerned citizen, member group, give speeches, advocacy, campaign, placed fairgoer's speak person.2 5,000 came paid wander delivering speeches whomever wanted, wanted. Moreover, rest principle,3 exercised partisan advocate, price admission. All share identical peripatetically 30 soon proselytizing hands out copy Bhagavad-Gita interested listener, candidate distributes his campaign brochure voter, he becomes removal sharply proselytizers candidates messages. Only fairgoer affirmatively seeks approaching fully permit communicators 31 justification,4 petitioners contend gather, blocking traffic lanes causing problems. counsel argument: 32 "[I]t seems me you had [distribution] going perhaps 70 draw attention cause create pockets congested [I]f sudden aware dozens around passing they're attracted that. Whereas, wouldn't talking." Tr. Oral Arg. 18-19. Brief Petitioners 31. 34 failed assertions. They made showing relaxation additional already characterized robust unrestrained participation hundreds thousands wandering fairgoers. Barber, 650 F.2d 430, n.22 (CA2 1981). proselytizing, buttonhole prospective supporters, audience significantly adding problem. Cf. Martin Struthers, 141, 151, 862, 867, 1313 (1943) (Murphy, J. concurring) (invalidating ordinance banned house-to-house handbills ban proselytizing). devoid evidence accommodate easily now accommodates speechmakers proselytizers.5 35 general, speculative fear ability core advance interests, reason unconstitutional. "[U]ndifferentiated apprehension disturbance enough overcome freedom expression." Tinker Des Moines School Dist., 393 503, 508, 733, 737, 731 (1969). certain fairgrounds—for example, entrances exits—would drafted prohibit points. felt could, reason, well.6 right, booths.7 36 regulations interfering freedoms. 'Broad prophylactic rules suspect. Precision touchstone. .' " 637, 836, quoting NAACP Button, 371 415, 438, 328, 340, 405 (1963). 37 Accord, 38 undermining affirm strikes down 39 BLACKMUN, 40 reasons stated unconstitutional literature.1 agree, reach conclusion different route BRENNAN am persuaded precedents, justifies activities.2 636-637, 836-837, stressed community's solicitations met interfere possibility fraud "door-to-door" "on-street" countered "by measures direct prohibition solicitation," disclosure provisions penal misrepresentations. Id., 637-638, 836-837. why same considerations applicable here. nothing difficult entire streets; "melt crowd" door-to-door quickly consummating several neighborhood. offered wear identifying tags, App. A-6, enclosed area, least arguable easier streets. 42 Nonetheless, justify points out, 651, "[t]he Fair" typical street. While order think common-sense hand, other, greater former. recipient stop receive message speaker wishes convey; instead, read later time. fewer allows contrast, collection stop, "engender confusion acts exchanging articles money, fumbling dropping making change, etc." Rules restricting exchange analogous contexts, Consciousness Atlanta Eaves, 601 809, 828-829 (CA5 1979) (Atlanta airports), uphold sales. facts taken primarily parties' stipulation District July 31, 1978, reprinted joint appendix. A-30 through A-36. Stipulation Fact # 16. "intend restrict [respondents] peaceably patrons." Affidavit Heffron, A-28. 5-7. expressly infra, 646, appealed. Over hundred denied amount available. propriety fee case. 576-577, following represent non-commercial Fair: Abortion Rights Council American Association Retired Persons, Heart Association, Party Christian Business Men's Church Christ, D.F.L. Central Committee, Faith Broadcasting Network, Inc., Independent Republicans Foster Parents Twin Cities Baptist Messianic Witness, World Home Bible League, Educational Service, Lutheran Colportage Concerned Life, Save Unwanted United States-China Peoples Friendship Association. performing "often greet giving flowers flags. 11. lawsuit, assert seek return "greeting gifts," dance, chant, besides donations. restrained "arresting, participating of, excluding Fairgrounds, [respondents], as, beliefs, portion Grounds Fair." enjoined "selling inducing purchase, items artifacts, grounds compliance said Society." Respondents pursuant terms order. submitted affidavits stating misrepresenting solicitations, statements. charges disputed "[s]ome form clearly required protected." ordered prohibited books, flowers, flags, incense, artifacts engaging monetary Compare 506 147 (NDNY, 1980), rev'd, 430 1981) "booth" rule); Edwards Maryland 628 282 (CA4 1980) (same); Bowen, 600 667 (CA7) (same), cert. denied, 963, 62 375 (1979); Colorado Industrial Exposition 199 Colo. 265, 610 P.2d 486 (Colo.1980) (same) Hynes Metropolitan Government Nashville, 478 (MD Tenn.1979) (upholding 1977) (same). Related raised concerning groups' facilities. 809 (airports); Rochford, 585 263 (CA7 1978) McAvey, 450 1265 (SDNY (World Trade Center); Hays, 438 1077 Fla.1977) (highway stops); States Boesewetter, 463 370 (DC (performing arts center). local forbidding parades license. regulation: "Where highways relation promote convenience all, disregarded attempted civil circumstances protection." Cooper sound truck content-neutral emission loud raucous noises violation discerned applying trespass demonstrating jail. argument "that want propagandize protests whenever however wherever please" "State, private owner property, power preserve property lawfully dedicated." 247. Rockford sustained disturbing vicinity building school session. Linmark Associates, Willingboro, 431 85, 93-94, 1614, 1618-1619, 52 (1977); Police Department Chicago Mosley, 92, 2286, 212 Papish University Curators, 410 670, 1197, 1199, 618 (1973). argue requires await expressions before funds, prefers listener-initiated exchanges originating speaker. interesting little force. aspect inherent determination alike, invalidate regulation. two forwards citizens false undue annoyance. 306-307, 904, forward being harassed otherwise bothered, captive audience. crowd, constitutionally imposition "a situation substantial. vendors, exhibitors, perform furthers significantly." defend approach concede 8; 25-26. understanding reject effect, separate, purposes, located. text, characterization plainly incorrect. secreted nonaccessible expected, indeed encouraged, pass. albeit inaccurate Rule's capable saying "no" then away, approached. 638-639, 837, 143-144, 863, (1943). truly marketplace ideas information. stated, "fair almost definition congeries hawkers, vendors purveyors ideas, esthetic, intellectual." 461 719, 721 (ND Tex.1978). n.21 Despite suggestion contrary, "natural plac[e] opinion." 163, way 'manner basically incompatible normal activity' 75, 116, 2303, somewhat puzzled treatment issue. Respondents' complaint, U.S.C. 1983, alleges violates Free Exercise Speech Clauses. brief argument, emphasize challenge wholly enjoyed group. 26; 19-20, 47-48. therefore discuss Having chosen seemingly law. stipulated unique "duty known consists places, disseminate publishing, educational Consciousness." A-32. Court, disparages ritual, explanation supporting authority: "[ISKCON] process." 652 (footnote omitted). specific beliefs principles scrutinized care. Sherbert Verner, 374 398, 402-403, 1790, 1793, 965 Wisconsin Yoder, 406 205, 220, 1526, 1535, (1972), "there Clause thus beyond applicability." accepting merely "conduct Clause," burdened Other n.1, seriously control. At declined antilittering objective, 16, virtually conceded rationale unless communicator obtain 14-16, 17-19. 24-29. petitioners' expressed concerns undermined contained itself engages forbidden leafletting. affidavit Thomas Kerr states: "2. occasions [1977 Fair], taking tickets flier might approached roving neither sanctioned them, complaints administration. occasions, noted individuals appeared employees handing fliers concession areas. noticed individuals, employees, begin my fellow literature." A-40 (emphasis added). id., A-38; David C. Ewert, A-43. hard leafletting, apparently imposed "ISKCON, booth, indicated willingness submit circulation proselytize, contributions." addition, paragraph complaint "ISKCON's devotees tried allay fears Defendants disruptive offering name tags times, Grounds, consenting patrons, refrain conversation near exits buildings lines queues, identify themselves officials." A-6. 30, 34-35. concluded: "The Conduct tends specifically prohibited." Like operation adherence doctrine directing donors purchasers 35-36. per se purchases, 86 (Minn.1980) (opinion part). "solicitation" "sales" connote actual act requesting purchase contribution

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