Document: 505 U.S. 123 112 S.Ct. 2395 120 L.Ed.2d 101 FORSYTH COUNTY, GEORGIA, Petitioner,v.The NATIONALIST MOVEMENT. No. 91-538. Argued March 31, 1992. Decided June 19, Syllabus Petitioner county's Ordinance 34 mandates permits for private demonstrations and other uses of public property; declares that the cost protecting participants in such activities exceeds usual normal law enforcement should be borne by participants; requires every permit applicant to pay a fee not more than $1,000; empowers county administrator adjust fee's amount meet expense incident ordinance's administration maintenance order. After attempted impose respondent's proposed demonstration opposition Martin Luther King, Jr., federal holiday, respondent filed this suit, claiming ordinance violates free speech guarantees First Fourteenth Amendments. The District Court denied relief, ruling was unconstitutional as applied case. Appeals reversed, holding an which charges nominal using forums issue is facially unconstitutional. Held: invalid. Pp. 129-137. (a) In order regulate competing forums, government may requirement on those wishing hold march, parade, or rally, if, inter alia, scheme does delegate overly broad licensing discretion official, Freedman v. Maryland, 380 51, 56, 85 734, 737, 13 649, based content message, see United States Grace, 461 171, 177, 103 1702, 1706, 75 736. 129-130. (b) An examination implementation authoritative constructions demonstrates absence constitutionally required "narrowly drawn, reasonable definite standards," Niemotko 340 268, 271, 71 325, 327, 95 L.Ed. 267 guide administrator's hand when he sets fee. decision how much charge police protection administrative time—or even whether at all—is left unbridled administrator, who rely objective standards provide any explanation his decision. 130-133. (c) unconstitutionally content-based because it assess accurately security parade participants, must examine message conveyed, estimate response content, judge number necessary response. Cox New Hampshire, 312 569, 61 762, 1049, distinguished. 133-136. (d) Neither $1,000 cap fee, nor some lower "nominal" cap, could save ordinance. Murdock Pennsylvania, 319 105, 116, 63 870, 876, 87 1292 level irrelevant context, no limit size can remedy constitutional infirmities. 136-137. 913 F.2d 885 934 1482, affirmed. BLACKMUN, J., delivered opinion Court, STEVENS, O'CONNOR, KENNEDY SOUTER, JJ., joined. REHNQUIST, C.J., dissenting opinion, WHITE, SCALIA, THOMAS, Robert S. Stubbs, III, Cumming, Ga., petitioner. Richard Barrett, Learned, Miss., respondent. Justice BLACKMUN Court. 1 case, with its emotional overtones, we decide Amendments are violated assembly vary assembling parading reflect estimated maintaining 2 * Forsyth County primarily rural Georgia approximately 30 miles northeast Atlanta. It has had troubled racial history. 1912, one month, entire African-American population, over 1000 citizens, driven systematically from wake rape murder white woman lynching her accused assailant.1 Seventy-five years later, 1987, population remained 99% white.2 3 Spurred history, Hosea Williams, Atlanta city councilman civil rights personality, "March Against Fear Intimidation" January 17, 1987. Approximately 90 demonstrators seat. marchers were met members Defense League (an independent affiliate respondent, Nationalist Movement), Ku Klux Klan, Cumming residents. all, 400 counter-demonstrators lined route, shouting slurs. Eventually, counter-demonstrators, dramatically outnumbering officers, forced premature halt throwing rocks beer bottles. 4 Williams planned return march following weekend. developed into largest South since 1960s. On 24, 20,000 joined leaders, Senators, presidential candidates, Assistant Attorney General rally.3 1,000 route contained 3,000 state local National Guardsmen. Although there sporadic rock-throwing 60 arrested, interrupted. $670,000 protection, apparently paid small portion.4 See App. Pet. Cert. 75-94; L.A. Times, Jan. 28, Metro section, p. 5, col. 1. 5 "As direct result" these two demonstrations, Board Commissioners enacted 27, Brief 6. recites "to issuance parades, assemblies, road closings, property roads organizations groups persons purposes." 98. justified explaining "the participating observing said closings related held accountable responsible." Id., 100. defray costs paying fixed "from time time" Board. 105. 6 amended 8, "shall advance permit, use County, sum $1000.00 each day procession, open air meeting shall take place." 119.5 addition, empowered "adjust matter licensed." Ibid. 7 1989, Movement demonstrate holiday commemorating birthday Jr. sought "conduct rally speeches half hours" courthouse steps Saturday afternoon. City 885, 887 (CA11 1990).6 imposed $100 did include calculation expenses incurred authorities, but 10 hours issuing permit. testified deliberately undervalued clerical support involved processing application. Tr. 135-139. 8 rally. Instead, instituted action Northern Georgia, requesting temporary restraining permanent injunction prohibiting interfering Movement's plans. 9 injunction. found that, although instant vests Administrator determining appropriate fee," determination "based solely upon content-neutral criteria; namely, actual investigating application." 13-14. expressed doubt about constitutionality portion fees order, ordinance, unconstitutional." 14. Eleventh Circuit reversed aspect Court's judgment. (1990). Relying prior Central Florida Nuclear Freeze Campaign Walsh, 774 1515, 1521 1985), cert. denied, 475 1120, 106 1637, 183 (1986), held: "An speech, Amendment." F.2d, 891 (internal quotations omitted). court determined up $1000 exceeded threshold. One concurred specially, calling overruled. 896. 11 then voted vacate panel's rehear case en banc. 921 1125 further briefing, issued per curiam reinstating panel entirety. 1483 (1991). Two judges, concurring part part, agreed exercise Amendment traditional forum if survive scrutiny. Those however, believe swept so broadly invalid, would have remanded determine nominal.7 1483. Three judges dissented, arguing cases do require nominal. 1493. 12 We granted certiorari resolve conflict among Courts concerning charging speaker forum.8 --- ----, 857, 116 765 (1992). II Respondent mounts facial challenge well established area freedom expression overbroad regulation subject review invalidation, though application under consideration unobjectionable. See, e.g., Council Los Angeles Taxpayers Vincent, 466 789, 798-799, n. 15, 104 2118, 2125, 80 772 (1984); Airport Comm'rs Jews Jesus, Inc., 482 574, 107 2568, 2572, 96 500 (1987). This exception general standing rules appreciation very existence written laws potential chill expressive activity others before court. York Ferber, 458 747, 772, 102 3348, 3362, 73 1113 (1982); Brockett Spokane Arcades, 472 491, 503, 105 2794, 2801, 86 394 (1985). Thus, permitted party overbreadth doctrine where creates impermissible risk suppression ideas, delegates decisionmaker, Thornhill Ala- bama, 310 88, 97, 736, 741, 84 1093 (1940); 649 (1965); U.S., 798, S.Ct., sweeps too broadly, penalizing substantial protected. Broadrick Oklahoma, 413 601, 93 2908, 37 830 (1973); 574-575, 2572. 14 requiring authorizing speaking, assemblies archetype forum," Frisby Schultz, 487 474, 480, 108 2495, 2500, 420 (1988), restraint speech. Shuttlesworth Birmingham, 147, 150-151, 89 935, 938-939, 22 162 (1969); (1951). "heavy presumption" against validity restraint, Bantam Books, Inc. Sullivan, 372 58, 70, 83 631, 639, 584 (1963), recognized government, 574-576, 765-766, 1049 (1941). Such scheme, certain requirements. official. supra. Further, controlling time, place, manner narrowly tailored serve significant governmental interest, leave ample alternatives communication. 736 (1983). A. 15 contends invalid prescribe adequate apply A allows arbitrary "inherently inconsistent valid becoming means suppressing particular point view." Heffron International Society Krishna Consciousness, 452 640, 2559, 2565, 69 298 (1981). To curtail risk, "a subjecting freedoms license" contain "narrow, objective, authority." Shuttlesworth, 938; also Niemotko, 327. reasoning simple: If "involves appraisal facts, judgment, formation opinion," Cantwell Connecticut, 296, 305, 900, 904, 1213 (1940), authority, danger censorship abridgment our precious great" permitted. Southeastern Promotions, Ltd. Conrad, 546, 553, 1239, 1244, 43 448 (1975). 16 evaluating petitioner's challenge, consider including own interpretation it. Ward Rock Racism, 491 781, 795-796, 109 2746, 2756, 661 (1989); Lakewood Plain Dealer Publishing Co., 486 750, 770, 11, 2138, 2151, 100 771 (1988); Gooding Wilson, 405 518, 524-528, 92 1103, 1107-1109, 31 408 (1972). present litigation, made clear interprets implements property—from street corner speeches, bike races—and assessed costs. Whether not, given instance, all decided administrator.9 17 according testimony hearing, judgment what reasonable. staff "expense administration" chose instance attested kept low undervaluing spent Even project, claimed, charged more. He expected expense. 18 explained pursuant occasions. year before, Movement. same (the question here), seeking process. 138. once bike-race organizers $25 race roads, explain why demanded less chosen instance. 143-144. At oral argument counsel stated levied $5 Girl Scouts property. Oral Arg. 26. Finally, neither facilities land. 146. 19 Based construction simply cannot ,S.Ct., guiding administrator. whim There articulated either practice. factors. need decision, unreviewable. Nothing prevents official encouraging views discouraging through fees.10 prohibits vesting official.11 B 20 contains possibility uncontrolled discretion. As construed county, often 21 envisions instances, will cover . activit[y]." " 'must necessarily conveyed,' Arkansas Writers' Project, Ragland, 481 221, 230, 1722, 1728, 209 (1987), quoting FCC Women Voters California, 468 364, 383, 3106, 3119, 82 278 (1984), depend measure hostility likely created content. express unpopular bottle-throwers, example, their petitioner agrees policing relates aimed only secondary effect—the clear, justification 'ha[s] nothing content.' Ward, 792, 2754, Boos Barry, 485 312, 320, 1157, 1163, 99 333 (1988) (opinion J.). 23 refers associated public's reaction Listeners' basis regulation. 321, 1163 J.); id., 334, 1171 Brennan, Hustler Magazine, Falwell, 46, 55-56, 881-882, 41 (1943); cf. Schneider State, 308 162, 146, 151, 155 (1939) (fact financially burdened listeners throw leaflets justify restriction distribution leaflets). Speech burdened, punished banned, might offend hostile mob.12 (1972); Terminiello Chicago, 337 1, 894, 1131 (1949). 24 again: "Regulations Government discriminate tolerated Regan Time, 641, 648-649, 3262, 3267, Simon & Schuster, Members State Crime Victims Board, 502 501, 508, 476; 1728. offers ordinance: raising revenue services. While undoubtedly important responsibility, 229-231, 1727-1729. 25 insists language statute upheld Supreme Hampshire interpreted authorize municipality "maintenance order," actually assessed. 577, 766. suggests statute, called premium controversial political audience. light subsequent jurisprudence, read premium. C 26 Petitioner, maximum allowable touchstone constitutionality. ensures result discrimination. sufficiently "nominal." charged, irrelevant. tax become tax. 27 courts derived sentence (1943). Murdock, invalidated flat license distributors religious literature. distinguishing Cox, stated: "And one, regulatory calculated streets home abuses solicitors." 876. mean saved nominal, permissible. reflects merely distinction between facts Cox. 28 unrelated legitimate size. Similarly, provision relating ties lacks procedural safeguards; violations. 29 ordered. Chief whom THOMAS join, dissenting. 32 question: 33 "Whether provisions Constitution account licensed, $1,000.00 activity." i. discussion limited ambiguous noncommittal paragraph toward end opinion. Supra page. rest takes decides perceived defects None claims passed Appeals; forbade streets. Since below, divides appeals, presented petition certiorari, thought least authoritatively decide, itself to, question. 35 answer seems me quite simple, century ago confronted payment $300 governments right adjusted "for circus celebration procession length, drawing crowds observers, greater spectacle, compared slight expansive attractive procession." 766 quotation marks Under court's construction, "not tax, Act unanimous Hughes, saying: 36 "There contrary purpose stated. suggestion been fails difficulty framing fair schedule circumstances, perceive ground denying flexibility adjustment varying conditions tend conserve rather impair liberty sought. evidence administered otherwise nondiscriminatory require." 38 (1943), municipal privilege canvassing door-to-door sell one's wares. Pursuant group Jehovah's Witnesses distribute literature price. 106-107, 871-872. tracts, unconstitutional, Bill Rights." 113, 875. making ruling, distinguished stating language, suggested led conclude prohibited 890-891, But contrary. expressly allowed levy "had permissible range amount." supra, 576, word thus unfortunate, represented mistaken characterization allusion later earlier undermine situations clearly different; first sliding property, while second protected expression. I squarely controls disposition therefore explicitly amount. 39 Instead deciding concludes places hands forces oppose Ante, 2401-2405. But, pass issues, rulings. unnecessarily reaches out interpret stage, factual findings scope Because findings, lack incorporation "heckler's veto," instead remand initially issues. 40 finds fault alleged standardless possessed provides 119. regard, parallels (statute licensed" omitted)). worries, set approval constructio[n] ordinance" possibility. 131. situation whose opposed, waive entirely similarly situated agreed. never rendered "authoritative construction" indicating officials "unbridled discretion," ante, 133, setting fees, found. finding allow setting, cites four fees—two $100, $25, $5. 132. evidence, fees. mere fact differed invalidate entity adopt adjustable scheme. ("[W]e th[e] fees"). true system pleasure, fledgling creates. And, opportunity, find policy precludes arbitrarily imposing Of course, possess preferable. relies (1989), proposition considered. relied City's limiting noise Id. 795, 2756. prefer here well. 42 reason invalidating belief control endorsed marching parade. Assuming people 10,000 line protest, worries crowd 10,000, resulting kind veto" previously condemned. plans base anticipated crowds. done instances far And most certainly below noted that: "[T]he alternatively 'the order.' phrase run afoul concerns. 44 "However, plaintiff [sic ] phrase, contended especially organization's financial circumstances. produced contrary." (emphasis added). 45 analysis rests assumption order" imposition record assumption, hearing 46 For foregoing reasons, dissent. 1910 census counted 1098 African-Americans County. Dept. Commerce, Bureau Census, Negro Population 1790-1915, 779 (1918). description 1912 events, generally Hackworth, "Completing Job" Southern Exposure (1980). J. Clements, Facts 184 ("[O]ther occasional delivery truck driver visiting currently black faces anywhere county"). Chicago Tribune, 25, 1; 2; 89-91. indicate paid. Newspaper articles reported $579,148. Other entities additional $29,759. Figures available sent. 95-97. times, too, amendments here. consist High School, down square, conducting Only place jurisdiction county. Education. Their schemes challenged These reviewing applications. 1487-1489. raised reach Compare Circuit's opinions 891, 1483, Stonewall Union Columbus, 931 1130, 1136 (CA6), 275, 227 (1991) (permitting reasonably preservation safety order); Eastern Conn. Citizens Action Group Powers, 723 1050, 1056 (CA2 1983) (licensing offset applications property); Fernandes Limmer, 663 619, 632-633 (CA5 1981), dismissed, 1124, 1395 (1982) ($6 unconstitutional). pertinent amended, states order." § 3(6) added), suggest authority reduce expenses. understood, 1488, part). February 23, changed form "Have you fee?" fee?," 115 acknowledging legitimate, criteria, correct, challenge. Facial attacks decisionmaker dependent surrounding (1988). "It abuse power censor pervasive threat inherent constitutes discussion." Alabama, 742, (1940). Accordingly, success grounds exercised manner, anything preventing him doing so. (1941), excuses Reliance misplaced. different. Unlike unfettered authority. 576-577, 765-66. dissent prefers post, 142. disagree. unnecessary intends recoup listeners' readily admits 4th July they closing drew large became angry opposing message. makes plain needed "necessary observing" Repayment "[m]ost importan[t]" underlying Act. 6-7. specifically urges reversal "taken away obtain reimbursement expression." When directly faced Appeals' concern enhanced generate potentially violent reactions," 36, responded intend provided cap. 36-37; 24. point, proceedings, intimated construe consistent permitting disputed necessitating remand.

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