Legal Document

460 U.S. 37 103 S.Ct. 948 74 L.Ed.2d 794 PERRY EDUCATION ASSN., Appellantv.PERRY LOCAL EDUCATORS' et al. No. 81-896. Argued Oct. 13, 1982. Decided Feb. 23, 1983. Syllabus Under a collective-bargaining agreement between the Board of Education Perry Township, Ind., and appellant as exclusive bargaining representative for school district's teachers, was granted access to interschool mail system teacher mailboxes in Township schools. The also provided that rights facilities were not available any rival union, such appellee Local Educators' Association (PLEA). PLEA two its members filed suit Federal District Court against individual School Board, contending appellant's preferential internal violated First Amendment Equal Protection Clause Fourteenth Amendment. court entered summary judgment defendants, but Appeals reversed. Held: 1. appeal is proper under 28 U.S.C. § 1254(2), which grants this appellate jurisdiction over federal appeals' decisions holding state statute repugnant Constitution. Here, only certain provisions agreement, Indiana authorizing agreements, held be constitutionally invalid, cannot considered essence legislative act. However, regarding jurisdictional statement petition writ certiorari, certiorari because constitutional issues presented are important decision below conflicts with judgments other courts. Pp. 42-44. 2. by PEA. 44-54. (a) With respect public property tradition or government designation forum communication, State may reserve use intended purposes, communicative otherwise, long regulation on speech reasonable an effort suppress expression merely officials oppose speaker's view. "limited forum" had been opened periodic civic church organizations, allowed equal footing PEA prior certification teachers' representative. 45-49. (b) differential it wholly consistent District's legitimate interest preserving lawfully dedicated. Use enables perform effectively statutory obligations all teachers. Conversely, does have official responsibility connection need entitled same mailboxes. reasonableness limitations PLEA's supported substantial alternative channels remain open union-teacher communication take place. Moreover, law, assured modes while representation election progress. 50-54. 3. unions constitute impermissible content discrimination violation Clause. Since grant burden fundamental right PLEA, policy rationally further purpose. That purpose clearly found special responsibilities Police Department Chicago v. Mosley, 408 92, 92 2286, 33 212, Carey Brown, 447 455, 100 65 263, distinguished. Pp.54-55 652 F.2d 1286 (CA7 1981) Robert H. Chanin, Washington, D.C., appellant. Richard L. Zweig, Indianapolis, appellee. Justice WHITE delivered opinion Court. 1 duly elected teachers Metropolitan Ind. A Association, no would issue case whether denial similar group, violates Amendments. 2 * operates 13 separate Each building contains set Interschool delivery employees permits messages rapidly district.1 primary function transmit among administration. In addition, send personal principals from various private organizations.2 3 Prior 1977, both (PEA) (PLEA) represented district apparently system. challenged PEA's status de facto filing Employment Relations (Board). won certified representative, law. Ind.Code Ann. 20-7.5-1-2(1). 4 provide union selected discharge duties representing unit without having unions.3 Following election, negotiated labor contract board gave "access insert material" extent incurred extra expense use. noted these being accorded "acting teachers" went stipulate shall "school employee organization"—a term art defined law mean "any organization has one whose purposes dealing their employer."4 renewed 1980 presently force. 5 applies prevented using communicate post notices bulletin boards; hold meetings after hours; may, approval principals, make announcements address Of course, word mouth, telephone, United States mail. agent continue insulated challenge. 20-7.5-1-10.(c)(4). While contest progress, must afforded facilities. 6 action 42 1983 (1976) Board. Plaintiffs contended They sought injunctive declaratory relief damages. Upon cross-motions judgment, defendants. Ass'n Hohlt, IP 79-189-C, (S.D.Ind.1980). 7 Seventh Circuit (1981). once "opens denies Amendment." Id. at 1290. It acknowledged "legal have" reasoned "without independent reason why groups undesirable, incumbent do justify opening alone." 1300. 8 now seeks review way appeal. We postponed consideration our hearing merits. 454 1140, 102 997, 71 291 II 9 initially case. submits 1254(2) (1976), us cases courts appeals Constitution, treaties, laws States. disagree. No invalidated Appeals. sections collective into invalid; agreements left untouched. 10 suggests, however, "continuing force [is] observed applied future," act, and, therefore within meaning 1254(2). King Manufacturing Co. City Council Augusta, 277 100, 104, 48 489, 490, 12 L.Ed. 801 (1928). support position, points treating local ordinances orders statutes Doran Salem Inn, Inc., 422 922, 927 n. 2, 95 2561, 2565 45 648 (1975); Illinois ex rel. McCollum Bd. Education, 333 203, 68 461, 649 (1948); Hamilton Regents Univ. Cal., 293 245, 257-258, 55 197, 201-02, 79 343 (1934). cases, involved—the unilateral promulgation rule continuing legal effect. Unlike ordinance even rule, unilaterally adopted lawmaking body; emerges negotiation requires parties agreement. Not every effect action. previously emphasized strictly construed, Fornaris Ridge Tool Co., 400 41, 1, 91 156, 157 27 174 (1970), light policy, we find extends cover case.5 dismiss want jurisdiction. See, e.g., Lockwood Jefferson Area Teachers Ass'n, --- ----, 27, (1982) (appeal dismissed denied). 11 Nevertheless, subject certiorari. 2103 (1976); Palmore States, 411 389, 396, 93 1670, 1675, 36 342 (1973). courts.6 Therefore, III question Amendment, applicable states virtue when means denied union. There interests implicated denying "It can hardly argued either students shed freedom schoolhouse gate." Tinker Des Moines District, 393 503, 506, 89 733, 736, 21 731 (1969); Healy James, 169 (1972). Amendment's guarantee free teacher's surely elsewhere school, supra, sidewalks outside, Mosely, 212 But say equivalent parts some form activity occurs. "Nowhere [have we] suggested students, anyone else absolute immediate environs . unlimited expressive purposes." Grayned Rockford, 117-118, 2294, 2303-04, 222 existence standard upon evaluated differ depending character issue. places fiat devoted assembly debate, limit sharply circumscribed. At end spectrum streets parks "have immemorially trust public, time out mind, used assembly, communicating thoughts citizens, discussing questions." Hague CIO, 307 496, 515, 59 954, 963, 83 1423 (1939). quintessential forums, prohibit activity. For enforce content-based exclusion show necessary serve compelling narrowly drawn achieve end. 2290, 263 (1980). regulations time, place, manner content-neutral, tailored significant interest, leave ample communication. Postal Service Greenburgh, 453 114, 132, 101 2676, 2686, 69 517 (1981); Consolidated Edison Public Comm'n, 530, 535-536, 2326, 2332, 319 (1980); U.S., 115, S.Ct., 2302; Cantwell Connecticut, 310 296, 60 900, 84 1213 (1940); Schneider New Jersey, 308 147, 146, 155 14 second category consists place Constitution forbids exclusions generally if required create first Widmar Vincent, 269, 70 440 (1981) (university meeting facilities); Madison Joint Wisconsin 429 167, 97 421, 50 376 (school meeting); Southeastern Promotions, Ltd. Conrad, 420 546, 1239, 43 448 (1975) (municipal theater).7 Although indefinitely retain facility, so bound standards apply traditional forum. Reasonable permissible, prohibition effectuate interest. 269-270, 279. 15 governed different standards. recognized "First simply owned controlled government." Greenburgh Civic 129, 2684. addition regulations, Id., 131, 7, 7. As stated several occasions, "the State, less than owner property, power preserve control dedicated." 2684; Greer Spock, 424 828, 836, 96 1211, 1216, 47 505 Adderley Florida, 385 39, 48, 87 242, 247, 17 149 (1966). 16 here fall third category. forum: "We school's sense close business chooses." 1301. On point agree.8 Nor dispute that, observed, "normal [of facilities] facilitate related matters teachers." 79-189-C (1980), ----. system, least general public. instead position become excluded non-school connected groups, own unrestricted Neither arguments persuasive. affiliated schools doubt relevant consideration. If practice indiscriminate then could justifiably argue created. This, comes before us, there indication record Permission secured principal. finding evidence demonstrates permission matter course who seek distribute material. conclude allow outside organizations YMCA, Cub Scouts, This type selective transform 838 10, 1217 fact civilian speaker entertainers sometimes invited appear Fort Dix did convert military base And Lehman Shaker Heights, 418 298, 94 2714, 41 770 (1974) (Opinion BLACKMUN, J.), plurality concluded city transit system's rental space vehicles commercial advertising require accept partisan political advertising. 18 assume granting YMCAs, parochial schools, created "limited" forum, event extend entities character. thus might Girl boys' club engage activities educational relevance they consequence concerned terms conditions employment. 19 ability signed 1978. Its argument appears converted limited occurred, thereafter judged forums. fallacy itself, changed. each members. Therefore allowing reflected reasons previous preservation school-related business, creation broader sense. 20 Because "constitutional obligation per se let boxes." Connecticut St. Federation Members, 538 471, 481 (CA2 1976). Appeals' view, favors particular viewpoint, PEA, relations, consequently scrutinized regardless involved. is, discourage viewpoint advance another. believe more accurate characterize based respective rather views. Implicit concept nonpublic distinctions basis identity. These inherent inescapable process limiting compatible property. touchstone evaluating serves.9 B "preserv[ing] Service, 129-130, 2684-85. teachers.10 observe providing representatives permissible sector.11 "designation carries great responsibilities. tasks negotiating administering settling disputes processing grievances difficult ones." Abood Detroit Ed., 431 209, 221, 1782, 1792, 52 261 (1977). reasonably insuring labor-peace "serves prevent becoming battlefield inter-union squabbles."12 22 little weight view responsibilities, justifying access, PLEA. correct involved here. already stressed, dedicated may—without justification—restrict those participate forum's business.13 23 Finally, range boards During periods, showing seriously impinged restricted variety present compare favorably non-public where upheld restrictions access. e.g. 839, 1218 (servicemen attend rallies off-base); Pell Procunier, 417 817, 827-828, 2800, 2806, 495 (prison inmates media through visitors). IV 24 constituted rejected contention cast argument, fares better protection garb. explained above, therefore, Thus, privileges tested strict scrutiny impinges protected See San Antonio Rodriguez, 17, 1278, 1288, 51-52. 25 rely (1972) Mosely Carey, struck down prohibitions peaceful picketing permitted labor-management dispute, prohibited vicinity school. barred residences dwellings except employment dispute. distinction classes violative key decisions, presence forum.14 definition, demonstrate restricting single class speakers, subject. 26 When speakers subjects similarly situated, pick choose. Conversely made equally draw relate used. difference distinction. V voice misapplying dealt streets, fora debate. Virtually consider constitutional, see 6, today, we. Reversed. 29 BRENNAN, whom MARSHALL, POWELL, STEVENS join, dissenting. 30 today holds negotiate provision amounts infringes respondents' fails I dissent.1 31 properly acknowledges context. Independent Community (1969). particular, "compelled relinquish otherwise enjoy citizens comment operation work. ." Pickering 391 563, 568, 88 1731, 1734, 811 (1968). Mount Healthy Doyle, 274, 284, 574, 471 context "individuals associate beliefs," 169, 181, 2338, 2346, 266 (1972), dissident involving relations. Commission, 176, 426, (1976). Against background clear suggested, "if very apex hierarchy speech, far it." 1286, 1299 1981). 32 From departure veers off course. Based "public forum," ante, 48-49, respondents id., "to identity," "reasonable serves." Ibid. (footnote omitted). According Court, petitioner's provides policy. fundamentally misperceives claims misunderstands thrust well-reasoned opinion. involve "absolute access" claim. involves "equal turn forum." focusing issue, disregards central proscription censorship, discrimination, nonpublic. A. 34 viewpoints falling realm extensively opinions Niemotko Maryland, 340 268, 325, 280 (1951), Jehovah's Witnesses park give Bible talks. Members religious religion. officials' disagreement Witnesses' views, 272, 327, invalid. opinion, stated: "The laws, exercise freedoms religion Amendments, firmer foundation whims governing body." concurring Frankfurter views deny privilege others unpopular, deeply so, forbidden 273, 328, (Frankfurter, J., result). Fowler Rhode Island, 345 67, 69, 73 526, 527, 828 (1953). 35 unconstitutional suspend wearing black armbands protest war Vietnam. disclosed wear symbols relating politically issues. 510, 738. armbands, opposition Vietnam War, singled prohibition. "Clearly, avoid material interference schoolwork discipline, permissible." 511, 739. education speaking about pending negotiations. guilty permitting speak opposed proposals advanced ordered cease desist employees, representatives, bargaining. order "Whatever employer, sits conduct hear discriminate employment, speech. Dept. 96, (1972)." 426 omitted).2 another line closely implicating addressed principle matter, content, neutrality. Generally, neutrality prohibits choosing appropriate discussion. frequently refer concepts roots bar censorship. unlike concept, strike invoked imposed entire area. seen outgrowth core discrimination. generally, Stone, Restrictions Speech Content: Peculiar Case Subject-Matter Restrictions, 46 U.Chi.L.Rev. 81 (1978). 38 invalidate (1972); relied doctrine restriction Company Erznoznik Jacksonville, 205, 2268, 125 (1975). Metromedia, Inc. Diego, 513, 516, 2882, 2895, 2896, 2897, 800 (plurality opinion). 39 Admittedly, always (1974), Jones North Carolina Prisoners' Union, 433 119, 2532, 53 629 All three unusual nonpublic, determined incompatible notion exclude discussion forums.3 support, government, up specific subjects, topics. Greer, Lehman, restrictions, none viewpoint-neutral. expressly "objectively evenhandedly applied. 1218.4 40 Once impose not.5 implicit Mosley (1969), approved never topic, entirely context, greater include lesser threatening values. Viewpoint censorship purest discriminates threatens continued vitality "free speech." background, Court's approach flawed. By discrimination.6 claim discuss whatever. did, analysis relevant. essence, asserting all; critical inquiry, board's petitioner addresses briefly rejecting claim, starts premise forum7 result, respondents. suggests "implicit identity." Ante, 49. "these property." noted, discriminating subjects. whatever authorities forum,8 his viewpoint. Regardless nature inquiry engaged 44 responds allegation suggesting parties' case, discussed below, infra, 66-71, intent inferred effective channel respondents, facts nothing occurred. anything, justified, discriminated viewpoints. 66-69. Addressing directly, irrelevant analysis, restriction, relations .: inevitably will receive [the petitioner] self-laudatory descriptions behalf perspective offered respondents]." 1296 assessment eminently reasonable. factors strongly suggest practical level, rivals group explicitly fact, out, 47-48, many Apparently, likelihood expressing advances peace, indicates short, agreed amplify petitioner, repressing sort light, survive it. assessing validity subjected rigorous scrutiny. 1296. pursued careful determination "no most exacting substantially tended favor advocacy given issue." implicates values, sustained "only precisely serving interest." 540, 2334, Cf. 461-62, (1980) (to valid legislation "finely interests, justifications draws carefully scrutinized"); 98-99, 2291, (discriminations "must governmental interest"). 49 attempts state's efficient unit. considerations. sufficient, sustain pointed "overinclusive underinclusive" overinclusive performance underinclusive attempted tailor duties, fit still questionable, difficult—both 'necessary' communications propaganda." justly problem, scope duties" difficult, impossible, define precision. regard, alluded potential "[T]here virtually concerning characterized bargaining." 177, 427.9 51 Putting aside difficulties asserted invalid "because furthers discernible making "Without respondents.10 argues, agrees, 52, justified peace. found, result instability. 1301.11 likely cause discord received majority noteworthy election. 39. resulted disruption environment.12 peace unquestionably substantial, articulating enough absence showing, fall.13 C 54 failed secure distortions marketplace ideas," Abrams 250 616, 630, 22, 63 1173 (1919) (Holmes, dissenting), governments infringed failure establish infirm. should affirmed. submission amicus curiae, Private Express statutes, §§ 1693-1699 601-606 carriage letters postal routes payment postage. agree directly bear Accordingly, express practices comply regulations. Scout units indicate requests denied, nor reveal separately message wishes 1291 & unfair employer "dominate, interfere assist formation administration contribute financial 20-7.5-1-7.(a)(2). minority organizational "nearly conveniences." Pike Professional Educators, U-76-16-5350 (May 20, 1977) (holding practice, practice). 20-7.5-1-2.(k). Appellants' reliance (1977) misplaced. Abood, 1257(2) constitutionality agency shop Jurisdictional Statement 75-1153, 5. Constitutional objections policies Ed. 1976); Memphis American 2032 534 699 (CA6 3724 Francis County L.R.R.M. 2865 (E.D.Mo.1979); Haukedahl 108, 75-C-3641 (N.D.Ill. May 14, Delaware De La Warr 335 F.Supp. (D.Del.1971); 858, 314 1069 (D.Colo.1970); Maryvale Educators Newman, A.D.2d 758, 416 N.Y.S.2d 876, N.Y.2d 605, 1025, 397 N.E.2d 395 (App.Dis.1979); Geiger Duval 357 So.2d 442 (Fla.App.1978); Clark Classroom Assoc. Nev. 143, 532 P.2d 1032 (per curiam). refusal 399 Michigan Schools, 72-S-94 (N.D.Ind. Jan. 24, 1973), vacated grounds, 499 115 1974). (student groups), business). Brief Appellees Tr. Oral Arg. 41. BRENNAN minimizes importance rejects (1974); (1977), which, he dissent. do, put "unusual forums." Assns., 2684, (1981), stating "[i]t conceive treat letterbox differently past treated jail prison [87 149] (1966) rapid cars Lehman." mere instrumentality ideas reaffirm BLACKMUN's observation that: "Were contrary, display hospitals, libraries, office buildings, compounds, facilities, immediately Hyde Parks would-be pamphleteer politician. require." 130 2685 quoting 304, 2717. insists text, disagree conclusion. motivated desire BRENNAN's mailboxes, imperative citizen's community personnel—the chamber commerce, right-to-work union—also attempt build hands untenable; invite systems personnel. viewpoint-discrimination thesis forbid closing outsiders administrators service teaching operational But, token—and principle—the it, pursuant designated thereby assumed structure obtained carried share. Excluding fully resolution Neimotko Dist., unequal unequivocal National Bank Boston Bellotti, 435 765, 98 1407, 707 (1978), concern are, reason, inapposite. Indeed, Edison, utility's billing envelopes distinguished overseeing property" implicated. 539-540, 2334. refused "official business" "endorse" communications. necessity requirement. township role information concerning, example, outcome grievance procedures, neither endorsement administrators. relationship representational duties. lack pertain organization. Broward FPER 11088 (Fla. PERC, 1980); Union NJPER (N.J. Differentiation indeed, 7116(a)(3) "sponsor, organization" routine services "equivalent status." number administrative construing language earlier appeared Executive Order 11491, 19(a)(3), taken Army, Asst. Sec. Labor/Management Reports (A/SLMR) 654 (U.S. Labor, Commissary, Meade, A/SLMR 793; Labor (1977); Air Force, Grissom Force Base, 852 1977); Transportation, Aviation Administration, FLRA (1979). Exclusive sector challenged, yet approved, soliciting distributing literature during nonworking hours areas. NLRB Magnavox 415 322, 1099, 358 Republic Corp. NLRB, 324 793, 982, 1372 (1945); Arrow Molded Plastics, 653 280, 283-284 1981); General Motors Corp., 133, 134 (1974). Act, 151-169 misreading decision. Haukvedahl 75C-3641 (N.D.Ill.1976). factor discounted disturbances stemming future disturbance likely. proof grounds proposed disrupt property's function. mistaken thought overinclusive—because record, enjoyed claimed usage otherwise; circumstances, decide purposes. indicated p. event, undermine ("The powerless entering whatever.") cases. 2290 ("Selective alone,"); ("When speech-related mandates finely interests"). conclusion 43. 279, (STEVENS, judgment) ("[T]he university determine granted. recognition student organization—or groups—it doing so"); 784-786, 1420, (1978) ("In legislature disqualified dictating persons Especially where, here, legislature's suppression side debatable advantage people, plainly offended" (citation omitted) omitted)); 187-188, 2349, (the "may restrict association finds expressed abhorrent"). narrow importance. First, forums unusual. arguably especially speeches demonstrations base, Jones, prison. subsequent opinions. 514, 19, opinion); 2272, POWELL 848, 3, 1222, Associations, altogether agency. government's (quoting 2685, (1981)). Limiting protects qua definitively. Lower affords doctrine. Black Fund, Devine, 215 U.S.App.D.C. 130, 136, 667 173, 179 Jaffe Alexis, 659 1018, 1020-1021, (CA9 Bonner-Lyons Committee Boston, 480 442, 444 (CA1 1973). Jaffe, Ninth "When forms regulation, longer crucial; justification 'must ensure "merely disapprove views." ' " (citations 140, 2688, 2690, (BRENNAN, judgment). undue focus blind regard interests. After noting 'public forum' .," 859, 1227 "Those characterizing locale together recognizing albeit qualifiedly, desirability flexible determining protected. Realizing permissibility asked occurring locale, becomes apparent approach. Otherwise, rigid characterization danger suppressed, though basically locale." 859-860, 1227. arguable qualify treatment description focuses 'the normal time.' 116 [92 2303]." how messages, certainly be. reach reference "speaker identity" construed note 5, supra. basis. infra. ground 'acting .' 53, 13. unnecessary flawed ways. [did] petitioner's] 1300 1981), Second, above nearly limitless 67. monitoring board, 1293, 29, real "special duties." assuming included "open union." (citing 838, 1217, (1976)). Even undermines establishes justification. others. another, read broadly part 60-61. variant identity, classroom Such identity discriminatory effect, clear, definitive instruction. inadequate rationale inadequate. relation monitors endorses messages. 29. board. union's expands definition beyond business." More importantly, group: explicit units. 47-48. discern schools; instead, hostility shut impermissible. function," 12, again cites 58, "in undifferentiated fear apprehension overcome expression." 508, 737. Later, "where engaging 'materially requirements discipline school,' sustained." 509, 737 what describe 173-174, 425, 190-191, 2350-51, offer appears, solely demand unions. availability "reasonableness" 53. detailed discussion, "not system." 1299. 1299-1300. "one liberty abridged plea exercised place." 163, 151, inferior affect viewpoint-discriminatory

Classification Label: 2