Document: 355 U.S. 313 78 S.Ct. 277 2 L.Ed.2d 302 Rose STAUB, Appellant,v.CITY OF BAXLEY. No. 48. Argued Nov. 18, 19, 1957. Decided Jan. 13, 1958. Mr. Morris P. Glushien, New York City, for appellant. J. H. Highsmith, Baxley, Ga., appellee. Justice WHITTAKER delivered the opinion of Court. 1 Appellant, Staub, was convicted in Mayor's Court City Georgia, violation a city ordinance and sentenced to imprisonment 30 days or pay fine $300. The Superior county affirmed judgment conviction; Appeals State Court, 94 Ga.App. 93 S.E.2d 375, Supreme denied an application certiorari. case comes here on appeal. question is set forth margin.1 Its violation, which not denied, arose from following undisputed facts shown at trial: Appellant salaried employee International Ladies' Garment Workers Union attempting organize employees manufacturing company located nearby town Hazelhurst. A number those lived Bazley. On February 1954, appellant one Mamie Merritt, also union, went Baxley and, without applying permits required under ordinance, talked with several their homes about joining union. While restaurant that day they were sought out questioned by Chief Police concerning activities told him 'going around talking some women factory workers * hold(ing) meetings them purpose.' Later meeting held home employees, attended three other which, words hostess, 'just us wanted join said it would be good thing do tell how this union help us.' present membership dues 64 cents per week but payable until organized. No money asked received persons meeting, invited 'to get girls there union' blank cards offered use. further explained immediate objective 'have enough signed petition election Labor Board.'2 3 same summons issued served commanding appear before later answer offense Soliciting Members Organization Permit & License.' 4 Before trial, moved abate action upon grounds, among contentions 'shows its face repugnant violative 1st 14th Amendments Constitution United States places condition precedent upon, otherwise unlawfully restricts, defendant's freedom speech as well press lawful assembly' requiring, conditions exercise rights, issuance 'license' Mayor council are authorized grant refuse discretion, payment 'license fee' discriminatory unreasonable amount constitutes prohibitory flat tax privilege soliciting labor These overruled after continuance,3 tried stated.4 made where answered, denying 'that invalid void any reasons stated' appellant, hearing, court conviction. 5 Those renewed declined consider them. It stated '(t)he attack should have been against specific sections whole'; '(h)aving no effort secure license defendant position claim section unconstitutional'; since 'appears particular being unconstitutional, has comply necessary pass sufficiency evidence, constitutionality phase *.' then trial did err overruling writ certiorari' page 24, pages 378—379. 6 At threshold, appellee urges appeal dismissed because, argues, decision based state procedural grounds thus rests adequate nonfederal basis, we therefore jurisdiction entertain it. Hence, whether basis circumstances case. 'Whether pleading sets up sufficient right defense, grounded law States, necessarily federal coming presents question, must determine itself allegations displaying concluded view taken court.' First National Bank Guthrie Center v. Anderson, 269 341, 346, 46 135, 137, 70 L.Ed. 295, cases cited. See Schuylkill Trust Co. Commonwealth Pennsylvania, 296 113, 122—123, 56 31, 36, 80 91; Lovell Griffin, 303 444, 450, 58 666, 668, 82 949. As Holmes Davis Wechsler, 263 22, 44 14, 68 143, 'Whatever springes may who endeavoring assert rights confers, assertion Federal when plainly reasonably made, defeated name local practice.' Whether constitutional asserted '* given due recognition, (Court Appeals) (appellant is) entitled invoke our judgment, (she has) done appropriate way. within province inquire only express terms, substance effect, putting forward non-federal fair substantial support (for) if untenable, put successfully, power review easily avoided.' Ward Board Com'rs Love County, 253 17, 40 419, 421, 751, 7 first relied appellee, rests, lacked standing because she attempt permit This ground decision. decisions uniformly failure apply violates does preclude conviction such ordinance. Smith Cahoon, 283 553, 562, 51 582, 585, 75 1264; 452, 669, 'The can hardly thought deny subjected restraints constitutionality, he yielded demands.' Jones Opelika, 316 584, 602, 62 1231, 1242, 86 1691, dissenting adopted curiam rehearing, 319 103, 104, 63 890, 87 1290. 8 Appellee contends holding Appeals, appellant's 'specific sections' rendered unnecessary, Georgia procedure, *,' 'nonfederal ground' We think contention 'without support' (Ward supra) interdependent constitute complete act licensing taxing her described activities. For reason, doubt, challenged whole objections used language challenging effect all sections. She did, thus, challenge though number. To require her, these circumstances, count off, one, force resort arid ritual meaningless form. Indeed, seems recognized arbitrariness exaltation Only four years ago statute 'the (statute) so every part reason alleged.' Flynn State, 1953, 209 Ga. 519, 522, 74 461, 464. In enunciating rule long line own decisions. Atlantic Loan Peterson, 1935, 181 266, 269, 182 S.E. 15, 16—17; Miller Head, 1938, 186 694, 708, 198 680, 687—688; Stegall Southwest Regional Housing Authority, 1944, 197 571, 196; Krasner Rutledge, 1948, 204 380, 383, 49 864, 866. 9 conclude rest 10 Amendment provides: 'Congress shall make abridging fundamental personal liberties protected Fourteenth invasion action; municipal ordinances authority action. supra, 11 broad sweep makes 'solicit' citizens become members 'organization, society' requires 'fees (or) dues' receiving Council 'permit' (Sections I II) (Section V) considering character applicant, nature organization desired solicited, effects general welfare (the) Baxley' IV). 12 Appellant's enjoyment constitutionally guaranteed contingent will thereby prior restraint abridges, freedom. Believing reversed confine considerations reach questions presented. 13 noted accused peace, order dignity community, nor simply charged 'soliciting Permit.' solicitation, consisted solely speaking private union.5 14 matter course, affirmative City. They expressly approve applicant union's 'effects Baxley.' criteria semblance definitive standards controlling guides governing granting withholding permit. Cf. Niemotko Maryland, 340 268, 271—273, 71 325, 327—328, 95 267. plain respect uncontrolled discretion. 15 settled recent like peaceful freedoms guarantees official—as requiring granted withheld discretion official—is unconstitutional censorship freedoms. 16 Cantwell Connecticut, 310 296, 60 900, 84 1213, Act proscribed valuable 'any alleged religious, charitable philanthropic cause', Gen.St.1930, § 6294, unless 'cause' approved secretary public state. Speaking unanimous Roberts said: 17 'It noted, however, State; empowered cause religious issue certificate depends his If finds religion, solicit becomes crime. He course. His involves appraisal facts, formation opinion. withhold approval determines one. Such religion denial liberty included protection Fourteenth. (T)o solicitation aid perpetuation views systems license, determination what cause, lay forbidden burden Constitution.' 305, 307, 904. 18 451, 669;6 Hague C.I.O., 307 496, 516, 59 954, 964, 83 1423;7 Schneider Jersey, Town Irvington, 308 147, 163, 164, 146, 151, 152, 155;8 Largent Texas, 318 418, 422, 667, 873;9 1290, adopting rehearing 600 1240, 1241, 1691;10 271, 327, 267;11 Kunz People York, 290, 293, 312, 314, 280.12 19 undeniable 'or grant' although free congressional abridgment reasons, face, imposes lays 'a 905. Therefore, fall. 20 Reversed. 21 FRANKFURTER, whom CLARK joins, dissenting. 22 small carry large issues, concerns essence federalism—due regard distribution between Nation more particularly judicial judiciaries States.1 23 An Georgia,2 provides anyone seeks solicitation. detailed procedure making application, permit, fee charged, sanctions arrested ordered By plea abatement attacked conflict provisions Constitutions Relations Act, 29 U.S.C.A. 151 et seq.3 Her overruled, proceeded trial. evidence established Union, members, had applied $300 serve jail. 24 certiorari, repeating abatement. de novo jury affirmed. 25 error, reviewed specifically whole. doctrine appellate cited Anthony Atlanta, 66 504, 505, 81—82, turn Glover Rome, 173 239, 160 249, properly raised. Accordingly, sustained 375. came Georgia. 26 jurisdictional 28 U.S.C. 1257, origin famous twenty-fifth September 1789, Stat. 73, 85. That seemingly technical provision Judiciary most nationalizing forces history. section, construed Martin Hunter's Lessee, Wheat. 304, 97, strongly reinforced Cohens Virginia, 264, 257, final highest available could brought bar amenability arbitrament Nation's leading historians shaping influences fusion into Nation. Naturally enough, vigorous efforts both Civil War, repeal 25, avail. Warren, Legislative Judicial Attacks History Twenty-Fifth Section 47 Amer.L.Rev. 1, 161; H.R.Rep.No. 43, 21st Cong., 2d Sess.; Hart 'Note Upon Jurisdiction,' Courts System, 418. denials courts claims never qualified.4 27 nonfrivolous centered carrying responsibility see opportunity thwarted device, equally important observance wide formulate procedures bringing issues appropriately attention courts, either litigation methods may, judged best administration, crude, awkward even finicky unnecessarily formal light modern emphasis informality. But discriminate raising case, stifle prevent eventual consideration here, powerless kind system chooses administer course substantive right, instance judiciary enforcement barred subjecting suit procedures, nisi prius5 appellate, govern adjudication State. Edelman California, 344 357, 73 97 387; Parker Illinois, 333 92 886. Nickel Cole, 256 222, 225, 41 467, 468, 65 said, '(W)hen pretence (state) evade issue, decided relation accepts wrong.' relevance presented narrowest possible scope confirmed practice insisted, certainly precept, rigorous requirements fulfilled legislation, avoidance determinations strained statutory construction, keeping adjudication, unavoidable, narrow classic statement Liverpool, N.Y. P.S.S. Commissioners Emigration, 113 33, 39, 352, 355, 899, series rules,' drawn sequence Brandeis, well-known concurring opinion, frequently always approvingly, Ashwander Tennessee Valley 297 288, 346—348, 466, 482—483, 688. Even result disadvantages embarrassments open doubtful very limited aspects alone affect litigant Muskrat 219 361—362, 31 250, 255, 55 246; Massachusetts Mellon, 262 447, 43 597, 67 1078. found parts valid others, Dorchy Kansas, 264 286, 289—290, 323, 324, 686, time another, Chastleton Corp. Sinclair, 543, 547—548, 405, 406, 841, Kansas Southern R. 233 329—330, 34 599, 600, 983, class ex rel. Hatch Reardon, 160—161, 188, 190, 415. declare delicate duty court,' 'is (the Court) body revisory over Congress,' 361, nor, added, forty-eight beginning demanded litigants show precisely way extent incursions federally rules developed designed closely claims. Surely protect necessity—sometimes temptation—of adjudicating overly unconstitutionality. insist formulated precise (even if, view, needlessly particularized) restricted concrete immediately pressing raise. examination leaves clear intended responsive problems influenced policy administration Court's business. comprehensive, all-inclusive inadequate explicit particularity pleadings raise questions. essentially recognition gravity invalidation legislation. See, e.g., Dade County 201 241, 245, 39 473, 476—477. pleader allege portion Thus, unconstitutionality directed group Criminal Code, Rooks Tindall, 138 863, 76 378; single named 'lengthy section' statute, Crapp 148 150, 993; charter amendment, 249; General Assembly, Wright Cannon, 185 363, 195 168; 5-section chapter Richmond Concrete Products Ward, 212 773, 677, 'too general' indefinite' define portions offended claimed rights. apply, touchy litigation, requirement Ga.Code Ann.1956, 81—101, 'plainly, fully, distinctly' pleader's action, 775, 679. There nothing frivolous futile (though 'formal') insisting parties specify arithmetic legislative enactment ask strike down. so, exactitude helps plaintiffs' provisions. First, calls closer reflection greater challenges for, formulating attacks each infirmity claimed, likely test critically reconsider carefully than 'scatter-shot' approach. Secondly, opposing party, responding particularized attack, plead eliminate admits invalid.6 Finally, identify allegedly violating provision, often able construe render inoffensive. involved might, example, inapplicable type belongs word 'union' I; might provide automatic registration standard IV.7 Sophisticated construction appear, entailed less astute reading resorted adjudication. Of intrinsically reasonable sure arbitrarily us. nine-section nine charges invalidity, (although difficult say many) involve be—but clearly so—that little expenditure effort, risk misreading charges, exactly infringes easiest govern. fact situation necessity compliance rule. So consistently applied, means evading vindication 24—25, refused applicability. indication whatever well-established inadvisedly; cannot stand out, many deviation norm. 32 controlled disregarded while recognizing reaffirming below, suggest qualification. appears special generalized reference provisions, validity entire legislation challenged. relies establishing prevailing indicate approach allegation disposed (one other) relatively summarily where, overturned allegations, 'plainly apparent.' 274, 19. cited, 680; gave varying degrees approach, refusing altogether Flynn, accept examining sentence sentence.' Certainly bounds failing bring instant purview exception spelled exceptions procedure. 33 record remotest attributing desire limit fullest adverse Consequently, left proper choice give below. 'Without doubt prescribe mode invoking jurisdiction, exercise; applicable controversy turns entirely law. Callan Bransford, 139 197, 35 144; Brown Massachusetts, 144 573, 757, 36 546; Jacobi Alabama, 187 133, 48, 106; Hulbert Chicago, 202 275, 281, 617, 618, 50 1026; Newman Gates, 89, 220, 385; Chesapeake Ohio Railway McDonald, 214 191, 195, 546, (547), 53 963.' John Paullin, 231 583, 178, 381. dismissed. Appendix. Portions Plea Abatement. 37 '2. Defendant alleges prosecution abated hereinafter stated. 38 '(a) shows violated restricts assembly. engage organizing unions inherent consisting pointing advantage belonging unions, mouth, pamphlets publications desirous informed unions. acts place precedent, fee, engaging speech, '(b) amended, tends contravene contained unwarranted participate secured States. Thus interferes direct superior null void. '(c) denies equal laws others sums money, founded classification confiscatory Said conditioned mere person receives remuneration organization. imposing similarly situated. '(d) regulatory measure excessive amount. wholly unreasonable, prohibitory. amounts paid desiring sort exists deprive exercising previously herein out. patently device limits behalf known vast majority organizations send representatives communities purpose membership. above purposes illegal improper misuse abuse law-making powers plaintiff city, nevertheless successful depriving declares 42 '(e) regulating Council, form standards, refusal required. '(f) Article paragraph impartial arbitrary contravenes Section. '(g) Paragraph deprived property process 45 '(h) enacted legitimate benefit confiscatory, discriminatory, occupation preventing '(i) avers police referred through subterfuge '3. aforesaid void, declared court, thereof abated.' 'Section I. persons, firms organization, society payments fees, assessment writing Baxley. II. desires incorporated unincorporated, location principal office business names officers, along date assets liabilities. contain age residence including past ten years; profession engaged during time, furnish least references applicant's character. information compensation, any, obtaining members. III. submitted regular event investigate hearing next submit bearing interested appearing giving contrary. IV. passing V. determined vote requested manner matters Council. VI. officer seek employed $2,000.00 year. Also $500.00 member obtained. VII. Any person, firm, corporation therefor punished provided 85 Code VIII. All Ordinances (this) hereby repealed. IX. Should Ordinance remaining same.' obviously comparable agency. During continuance, asking injunction declaration invalidity. petitioner affirmed, 'If invalid, unconstitutionality, invalidity defense instituted violation.' Staub Mayor, etc., 211 2, 606, 608. Merritt likewise sentence, stipulated await, conform with, confronted regulate pursuit occupation. Thomas Collins, 323 315, 89 430. literature Griffin written permission Manager 667. reversing 'Legislation restore baldest form.' Id., 669. leasing hall Police.' 501, 957. hold 'organization unorganized unions.' 959. Permission disorder. obtained prohibiting interfering peaceable certiorari 'void face' official suppression (of assembly) substitute maintain connection right.' 964. banned 'communication advocacy door door' (308 149), 157, 152. 'strikes heart guarantees.' mayor thorough investigation 'deems advisable.' Dissemination ideas distributor official. administrative extreme abridges Amendment.' Stone '(H)ere prohibition publication, save officials, transgresses limitations face.' 1241. allowed use park meetings, custom commissioner. Jehovah's Witnesses scheduled Bible talks park. refused. opened disturbing orderly real reversed. After commissioner referring supra; cases, limitless here. laws, Amendments, firmer foundation whims opinions body.' 272, 327. 'This interpretation allows commissioner, official, subsequent applications (to outdoor meetings) interpretation, deemed conduct condemned then, discretionary control advance speak streets York. such, rights.' 314. peculiar demands ours recently indicated Australia, Sir Owen Dixon: '(F)ederalism government seldom adequately understood bearings whose fortune live unitary system. federalism solution assume different aspect lives spent operation Constitution, education, study conceptions modes reasoning belong commonplace familiar ideas. analogies indeed, contrary, forms background distinctions mind strange exotic refinements.' O'Sullivan Noarlunga Meat Ltd., C.L.R. 367, 375 (1956). full margin 278. relevant Appendix 335, 289, infra. enlarged 1914, 790, now 1257(3), 1257(3). assumed unduly cut down authority. attitudes toward social led Congress establish new principle conferring judgments upholding More that, despite centralizing tendency generated outcome rejected drive extend cover record, concern, claim. attempted extension 'radical hazardous change vital essential independence Murdock Memphis, Wall. 590, 630, 429. 'While true duly lessened destroyed practice, yet error having calling supreme pleading, admit testimony tendered (Baldwin 129 52, 193, 640; Oxley Stave Butler 166 648, 709, 1149.) Coast Line Mims, 242 532, 536—537, 61 476. One vulnerable drastically high respondent's admission similar admissions objectionable allowable assumption VI need obtain

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