Legal Document

501 U.S. 312 111 S.Ct. 2331 115 L.Ed.2d 288 Louise RENNE, San Francisco City Attorney, et al., Petitionersv.Bob GEARY, al. No. 90-769. Argued April 23, 1990. Decided June 17, 1991. Syllabus Article II, § 6(b) of the California Constitution prohibits political parties and party central committees from endorsing, supporting, or opposing candidates for nonpartisan offices such as county city offices. Based on 6(b), it is policy petitioners—the County Francisco, its Board Supervisors, certain local officials—to delete any reference to endorsements candidates' statements included in voter pamphlets that petitioners print distribute. Respondents—among whom are 10 registered voters county, including members Republican Democratic Central Committees—filed suit seeking, inter alia, a declaration violates First Fourteenth Amendments an injunction preventing editing candidate references endorsements. The District Court entered summary judgment respondents, declaring unconstitutional enjoining enforcement, Appeals affirmed. Held: question whether Amendment not justiciable this case, since respondents have demonstrated live controversy ripe resolution by federal courts. Pp. 316-324. (a) Although standing claim has been applied manner bar their own speech, allegations complaint affidavits raise serious questions about assert other claims. In capacity voters, they only allege injury flowing 6(b)'s application prevent speech pamphlets. There reason doubt can be redressed invalidity against separate statute, constitutionality which was litigated might well construed mentioning pamphlets, even absence 6(b). Moreover, apart possibility overbreadth claim, discussed infra, respondent committee litigate based injuries respective committees' rights unsettled. See Bender v. Williamsport Area School Dist., 475 534, 543-545, 106 1326, 1332-1333, 89 501. Nor clear, putting aside redressability concerns, third candidates, no obvious barrier exists asserting rights. Powers Ohio, 499 ----, 1364, 113 411. 318-320. (b) Respondents' fail demonstrate dispute involving actual threatened particular speech. Their generalized deleted past elections does do so, since, so far discerned record, those disputes had become moot time filed suit. Similarly, allegation Committee endorsed "[i]n 1986" fear consequences violating will support federal-court action absent contention prevented endorsement, prior litigation. found fact 1987, year filed, nothing record suggests took enforce result endorsements, there desire attempt include statements. Allegations endorse future also present controversy, factual imminent sufficient constitutional issues clean-cut concrete form. Indeed, contains evidence credible threat enforced, than context these circumstances, postponing adjudication until more arises impose substantial hardship permit state courts further opportunity construe perhaps process materially altering decided. 320-323. (c) Even if respondents' may read facial challenge, better course address first instance See, e.g., Trustees, State Univ. N.Y. Fox, 492 469, 484-485, 109 3028, 3037, 388. If as-applied challenge resolved first, justiciability problems determining disposition case concluded litigation at earlier stage. 323-324. 911 F.2d 280 (CA9 1990). Vacated remanded. KENNEDY, J., delivered opinion Court, REHNQUIST, C.J., STEVENS, O'CONNOR, SOUTER, JJ., joined, all but Part II-B SCALIA, joined. concurring opinion. WHITE, dissenting MARSHALL, opinion, BLACKMUN, Dennis Aftergut, Cal., petitioners. Arlo Hale Smith, respondents. Cedric C. Chao, Party, amici curiae, supporting special leave Court. Justice KENNEDY Court.** 1 Petitioners seek review decision United States Ninth Circuit holding States. Section reads: "No endorse, support, oppose office." Its companion provision, 6(a), provides "[a]ll judicial, school, shall nonpartisan." 2 * view our determination nonjusticiable, identity crucial relevance. officials. individual residing Francisco. They chairman three one member Committee. Election Action, association respondent, asserts interest relation before us different voters. Hence, we need consider further. 3 Respondents Northern California. cause challenged petitioners' acknowledged policy, deleting endorsement As understand it, pay postage required mail them contain prepared office arguments submitted interested persons concerning measures ballot. sought 6 4 granted action, enforcing it. 708 F.Supp. 278 (ND Cal.1988). court pursuant Federal Rule Civil Procedure 54(b), appealed. A panel reversed, 880 1062 (1989), en banc affirmed Court's decision, 1990) (en banc). 5 We certiorari, 498 750, 112 771 (1991), determine Amendment. At oral argument, doubts arose issue us. Having examined hold consequence finding nonjusticiability, vacate Circuit's remand with instructions dismiss action. II Concerns go power entertain disputes, wisdom doing so. presume lack jurisdiction "unless 'the contrary appears affirmatively record.' " 546, 1334, (1986), quoting King Bridge Co. Otoe County, 120 225, 226, 7 552, 30 L.Ed. 623 (1887). "It responsibility complainant clearly facts demonstrating he proper invoke judicial exercise court's remedial powers." Bender, supra, U.S., n. 8, S.Ct., Warth Seldin, 422 490, 517-518, 95 2197, 2215, 45 343 (1975). A. Proper presented here requires examination pleadings nature interests having proceeding. According complaint, "desire through committees, publicize said printed candidate's published voter's pamphlet." App. 4, ¶ 36. All part Id., 5, 37. 8 alleges "have officers committees," continue deletions unless restrained order. 38. believe because contend law relied upon refuse "abridge [respondents'] free association," while contentions. 39. concludes general assertions harmed deletion statements, suffered suffer irreparable association. 5-6, &Par; 40-41. 9 An affidavit Chairman connection motion illuminates supplements complaint. It indicates endorsing offices: "In Smith Michael Hennessey Sheriff, John Molinari Mayor, despite objections some prohibited [II], 6. plan intention many possible. would like publicized pamphlet, encourage publish 11 future, I . use titles Committeemen make pamphlet. cannot [petitioner] Jay Patterson word 'Republican' endorsements." 15-16. 12 committeeman states 1986, declined solely out concern criminally civilly prosecuted violation ban contained in" 12. two examples "Democratic" One involved then office, another wished mention position his statement. Ibid. Those occurred adoption least both were held when appellate implicit provision designating nonpartisan, now 6(a). Unger Superior Marin 102 Cal.App.3d 681, 162 Cal.Rptr. 611 (1980), overruled 37 Cal.3d 612, 209 474, 692 P.2d 238 (1984). B 13 indicate that, relevant suit, interpret apply categories speakers. First, suggested language applies committees. Second, reliance edit demonstrates forum provided Third, interpreted shown individuals interpretations flows plain second require inferences text. 14 initial matter, arise defend speakers except extent category times permitted claims who did themselves intend engage instead wanted restriction desired hear. Virginia Pharmacy Citizens Consumer Council, Inc., 425 748, 96 1817, 48 346 (1976). doubt, however, alleged enforcement. ASARCO Inc. Kadish, 490 605, 615-616, 2037, 2044, 104 696 (1989) (opinion joined STEVENS JJ.) (party seeking authority must show "likely requested relief"); Allen Wright, 468 737, 751, 3315, 3324, 82 556 (1984) ("relief 'likely' follow favorable decision"); Simon Eastern Ky. Welfare Rights Org., 426 26, 38, 1917, 1924, 450 statement "shall affiliation candidate, nor membership activity partisan organizations." Cal.Elec.Code Ann. 10012 (West 1977 Supp.1991). This statute Overlapping enactments designed differing interests, invalidation impugn validity another. 15 rights, either members, offices, inability Apart, though, alternative discuss below, 1332-1333 (school board member, "collegial body," could take appeal whole take). conjunction defended itself. concerns redressability, her 1370, 411 (1991). C 16 Justiciability litigants claims, appropriate timing intervention. Regional Rail Reorganization Act Cases, 419 102, 136-148, 335, 355-361, 42 320 (1974). failed controversy. So discern While mootness exception capable repetition yet evading election context, see Moore Ogilvie, 394 814, 816, 1493, 1494, 23 (1969), doctrine revive became commenced. "Past exposure illegal conduct itself regarding injunctive relief unaccompanied continuing, adverse effects." O'Shea Littleton, 414 488, 495-496, 94 669, 676, 38 674 (1974); Los Angeles Lyons, 461 95, 103 1660, 75 675 (1983). 17 6, 12, insufficient indication continuing began arising thereafter. what election. Absent litigation, court. 18 filed. Whether pending commenced, point impact involved. made "despite prohibited" issue. 15. Nothing taken know due apparent attempted party's 19 elections, wants member's possess "clean-cut form." Rescue Army Municipal Angeles, 331 549, 584, 67 1409, 1427, 91 1666 (1947); Socialist Labor Party Gilligan, 406 583, 92 1716, 32 317 (1972); Public Affairs Press Rickover, 369 111, 580, 604 (1962) (per curiam ); Alabama Federation McAdory, 325 450, 65 1384, 1725 (1945). how publicized, precise To wishes "support" "oppose" specify form opposition take. 20 instances disclosed specific not, tell, taking enforcement feared prosecution find explanation criminal violate. Petitioners' counsel indicated argument carries penalties, enforced injunction. violate 21 allow government, deferring probability, learn means. refusal dispute. 22 Postponing consideration presented, arises, advantage permitting "materially alter decided." Babbitt Farm Workers, 442 289, 306, 99 2301, 2313, 60 895 (1979); Webster Reproductive Health Services, 506, 3040, 3050, 410 (plurality opinion). clear instance, construction petitioners, give invalid provide definition operative language, "endorse, oppose." "Determination scope legislation advance immediate effect involves too remote abstract inquiry function." Longshoremen's Union Boyd, 347 222, 224, 74 447, 448, 98 650 (1954). D conclude propriety resolving without addressing set facts. contexts, injured situations unconstitutional. Broadrick Oklahoma, 413 601, 93 2908, 830 (1973). should Beyond question, gravamen seeks unconstitutionality, requests relates References applications best conclusory. 24 But usual practice, generally desirable, proceed unnecessarily—that is, determined valid applied. Such convert necessary means vindicating plaintiff's right bound into mounting gratuitous wholesale attacks laws." 388 (1989); Brockett Spokane Arcades, 472 491, 503-504, 105 2794, 2801-2802, 86 (1985). III 25 argued briefs fundamental far-reaching import. For very reason, decide amorphous ill-defined Rules serve principled one. Were depart rules, clarity force ought inform authority. 26 vacated remanded prejudice. 27 ordered. concurring. 28 opinions illustrate why decline merits posture. MARSHALL face overbroad. hand, insofar refusing campaign mailings. 29 Given real outcome depends entirely making WHITE interpreting correctly—and given difficulty fairly surely wise record. Two prudential weigh deciding case. am sure review. brought committee, organizations inhibited unquestionably ripe. Cf. Eu Committee, 489 214, 1013, 271 (1989). Because sue behalf organization, District, 544, 1332, plaintiff presenting Alternatively, statement, confronted 31 Unlike scenarios, representations, forms basis mailed hurdles overcome prove repealed invalidated. 756, 14, 1823, (1976) (allowing listeners potential bring anticipatory where stipulate "a speaker exists"). Arguably, met hurdle offering several stating publicized. declared (moreover, informed otherwise statements). latter my way ensure definite troubled inherent Constitution, Code. That section plainly inclusion adequate prohibition strike down overbroad, then, unclear redressed. 33 These unsettled issues—involving made, ripe, redressable—coalesce convince me left day No accrue dismissal prejudice, benefit articulation current therefore join ordering lower 34 dissenting. 35 majority's though ultimately misplaced, understandable, light failure below analyze here. independently examining properly presented. Registrar Voters official fully justiciable. Registrar's Amendment, reverse Appeals. dissent 36 erred treating Constitution. reveals Francisco's parties.* After listing defendants, sets forth background causes action: each municipal election, mails pamphlet Said ballot measures, qualifications Defendant PATTERSON [the Voters] responsible preparing publishing 3, 10. 39 challenges portions proposed Record, Complaint 11-20. charge fee arguments. 21-30. 40 actions regard Specifically, alleged: 41 past, defendants CITY AND COUNTY OF SAN FRANCISCO Unless order court, threaten exclude committees." stated Finally, 43 entering favor described follows: "Plaintiffs claim—and admit—that account provision." 278, 279 original stated: 44 "The [petitioners], Voters, Voter Pamphlet scheduled November 1987. [Petitioners] article 6(b)." 1062, 1063 1989); 280, 282 above discussion reveals, majority recognizes, ante, 323-324, Both nevertheless invalidated face, analyzing claim. violated important rules restraint applicable issues—" 'one, never anticipate necessity it; formulate rule broader applied.' Raines, 362 21, 80 519, 522, 524 (1960), Liverpool, New York & Philadelphia S.S. Commissioners Emigration, 33, 39, 352, 355, 899 (1885). F.2d, 304-305 (Rymer, dissenting) (arguing record). 46 narrow 319, alleging interferes receive information finds decisions, long protects ideas, confer restrictions 756-757, 1822-1823, (1976); Kleindienst Mandel, 408 753, 762, 2576, 2581, 683 Red Lion Broadcasting FCC, 395 367, 390, 1794, 1806, 371 (1969); Stanley Georgia, 557, 564, 1243, 1247, 542 (1969). 47 speculates Elections Code "might Ante, 319. makes sense. barred merely laws mandate allegedly mean Government insulate attack simply redundant. confusion illustrated 2044-2045, There, plaintiffs governing mineral leases, basing deprived school trust funds millions dollars thereby resulted higher taxes. 614, 2043. Four Members noted struck down, enjoy tax relief: "If prevailed increased revenues leases available, maybe taxes reduced, reduce sources money available schools unchanged." 49 difference between obvious. ASARCO, could, actions, legally preclude plaintiffs. By contrast, probably law, California's therefore, "is likely decision." 50 ripeness 320-323, agree possible us, alleged, admitted, threatens future. 38; id., 9, XIV. admits "evidence pamphlets." 322. "sufficiently existing controversy." 496, Blum Yaretsky, 457 991, 1000-1001, 2777, 2783-2784, 73 534 (1982) nursing home residents transfers); Steffel Thompson, 415 452, 459, 1209, 1215, 505 (1974) declaratory threats antihandbilling statute). settled '[o]ne await consummation obtain preventive relief.' 298, 2308, (1979), Pennsylvania West Virginia, 262 553, 593, 658, 663, 1117 (1923). particularly true often allowed pre-enforcement Tashjian Connecticut, 479 208, 107 514 (1986); Buckley Valeo, 424 1, 659 51 want justiciability. 52 merits, briefly outline exclusion decided "[j]udicial, Cal. Const., Art. confident authorizes identify parties. proffered provision—promotion impartial administration prevention corruption, avoidance appearance bias—are already sufficiently justify activities. CSC Letter Carriers, 548, 565, 2880, 2890, 796 similar limitations access voting eligibility upheld American Texas White, 767, 786, 1296, 1308, 744 Storer Brown, 724, 736, 1274, 1282, 714 Rosario Rockefeller, 752, 761, 1245, 1251, (1973); Jenness Fortson, 403 431, 442, 1970, 1976, 554 (1971). 53 designations ballot, government distributed prospective "the guarantee property owned controlled government." Postal Service Council Greenburgh Civic Assns., 453 114, 129, 101 2676, 2685, 69 517 (1981). obviously traditional public forum, limited intended purpose, elections. Perry Education Assn. Local Educators' Assn., 460 37, 46, 7, 948, 955, 794 Refusing constitutional. 54 Accordingly, 55 BLACKMUN joins, 56 "[n]o extremely familiar courts, see, "voter certiorari Circuit, sitting banc, 57 vacates remands dismiss. disagrees claim; indeed, reaches merits. Rather, threshold defect "justiciability" occur years proceedings. course, find, motion, defects stage conclusion "live courts," 315, supported teachings precedents. accept views expressed in, reached by, affirm dissent. 58 committees.1 petitioner officials adopt "all [party] endorsement[s]" pamphlets" announced redactions existence redaction expressly admitted answer. maintain frustrates [of members] endorsements" respondents] 4-5, 36-37. prays continued policy. 59 thought quite cases precisely same posture one, repeatedly entertained restricting election-related 631; supra; supra. nearly identical canvassed today considered rejected Eu, 826 821-824 (1987), explains bother return Essentially ignoring wealth proceeds case—questions ripeness—were novel unresolved. On standing, purports "serious questions" entitlement 318. Since mere "questions" sustain wonders offers dicta kind. turns out, uses espouse denying standing; profferred theory illogical unsupported precedent. ripeness, dispositive jurisdictional defect, today's erroneously speech." 320. persuaded neither "doubt" certainty unripe. 61 "[a] personal traceable defendant's unlawful relief." view, "careful [the] complain[t]," 3325, requirements 2, 1. wish consume. 37-38. acknowledges, recognize "listeners" cognizable restricts audience. (applying "listener" election-law setting), aff'd, "fairly traceable" would, block 62 listener-standing theory2 wholly redressability. notes bars publication succeed invalidating henceforth rely Articulating reasons registrar's implement currently justified defeat listener injury. 63 foreign law3 wrong. overlapping legislatures pass "backup" potentially measures. Thereafter, whenever aggrieved challenging State's infringement under color advert previously unrelied-upon backup defeating standing. 64 contemplates absurd result. Obviously, (and interpretation formally announced) Perhaps, speculates, subsequently reinstate legal Just satisfy component showing defendant respond ameliorating injury, 43, 1926, (1976), act undermine judgment's effect. Under precedents, case-by-case basis, considering [1] likelihood disobey [2] disobedience form, [3] occasioned [enforcement], [4] [enforcement efforts] actually ensue." 143, 29, 358, Like easily satisfies requirements. 66 321, addition identifying committee's "plan possible." Likewise, 322, admit answer Of occasion concede, always When combined intentions parties, "past wrongs" furnish repeated injury." "present [future enforcement]." 29. restrict avoid risk unable dispose postenforcement quickly enough participate Our jurisprudence responds dilemma applying capable-of-repetition-yet-evading-review preserve after place. Anderson Celebrezze, 780, 784, 1564, 1567, 547 (1983); National Bank Boston Bellotti, 435 765, 774-775, 1407, 1414-1415, 707 (1978); purpose entertaining remedy wrongs rather "simplif[y] [and] thus increas[e] timely adjudicated held," 1283, (emphasis added), anomalous less solicitous brings challenge. 68 irrelevant "imminent credibly plans him, forced defer initiation "imminent" come adjudicated. 358 (" 'One relief,' (1923)). next national 11-12, 630-631. Most uncertainty "particular form" violations notes, example, "[r]espondents candidate." 321. objects "[w]e [that make], 70 uncertainties detract slightest matter analysis bears bothers explain "nature" mode publicity (outside pamphlets), affects none relevant. primary 222-229, 1019-1024. turned endorsed, publicizing knowing redact pamphlets.4 71 justiciable, reach 72 outset, effect, theories. 36-39(a). "purports outlaw offices." 35. understood challenge: regardless peripheral excluding barring Secretary Md. Joseph H. Munson Co., 467 947, 965-966, 2839, 2851-2852, 81 786 suffers unwanted constitutionally permissible nonetheless voiding "there core identifiable proscribable [provision] prohibits").5 "usual practice [not] applied." 3037-3038, ordinarily difficult resolve as-applied, statute's overreach 'judged legitimate sweep,' immediately court." 485, 3037 original), 615, 2918, Nonetheless, absolute. Airport Comm'rs Jews Jesus, 482 569, 573-574, 2568, 2571-2572, 500 (1987) (considering first); Houston Hill, 451, 458-467, 2502, 2507-2513, 398 (same). represents among evaluate challenges. competing factors situation Insofar unconstitutional, argue messages communicate Either way, "public forum" status cf. 48, 956, (1983), unsettled, L. Tribe, Constitutional Law 12-24, p. 987 (2d ed. 1988) (noting "blurriness within classification"). assessed. place, "endorse[s], support[s], oppose[s] a[ny] office" "substantial" compared "legitimate" application, namely, settled. Rather undertaking sort constitute—a broad ramifications, Supervisors 202 22, 248 253 (1988) (suit §§ 3795 5025 Code, authorizing propositions pamphlet)—a should, possible, well-settled doctrine. 525-526, 3060-3061, (O'CONNOR, judgment). 76 addition, disposed grounds, briefed aired proceedings, presents significant error. reasons, turn case.6 77 Conceived closely resembles noted, grounds 'endors[ing], support[ing], oppos[ing]' 217, 1017. "ban directly affect[ed] 'is electoral freedoms.' 222-223, 1019-1020, William Rhodes, 393 32, 11, (1968). compelling interest. ground "confusion undue influence." 228, 1023. Properly understood, amounted proposition protect being exposed rationally rely, 'highly paternalistic' function legitimately lay 223, 1020, Bd. 770, 1829; 228-229, 1023-1024. 78 Eu. constitute And, advances assures "local judges people [rather than] run parties." Brief 7. kind "control" prohibit, "those parties" able exert over issuing arguing protecting people" susceptibility influenced paternalism deemed illegitimate 79 Drawing Austin Michigan Chamber Commerce, 494 110 1391, 108 652 (1990), try repackage avoiding "corruption" process. corporations expenditures corporate treasuries of, to, candidates. prohibit corrosive distorting effects immense aggregations accumulated help little correlation public's corporation's ideas." 1397. similarly using place disruptive holders. unavailing. limits expenditure viewpoint announcement endorsement. imagine influence "little [party's] contrary, whatever wields expressing results acquired Thus, whereas worried dominate capital dint 'economically motivated decisions investors customers,' 1403, represent support. benefits conferred "enhance[d]" corporations' "ability attract capital," 1397, confers parties—e.g., taxpayers voluntary contributions returns—should parties' acquisition capital. sum, prospect corruption democratic process; final analysis, reflect ambivalence elective holders fall system look others, franchise. option end appointive positions. greater dispense altogether lesser conditions state-imposed ignorance. chooses tap energy legitimizing process, accord participants process—voters, parties—the attach roles. 83 fails meet standard, now, Circuit. Consequently, ** Scalia joins Pursuant prepares, publishes, distributes text measure digests Geary Renne, 914 1249, 1251 subsidized city, "with mailing distribution costs borne authors charged minimal sum defray printing costs." 30, 253, 259 (1988). organization committed placing referenda matters 314-315, Action stake independent membership. receivers protected unnecessary contest issued whole. points "unsettled." approach cites unredressable been—but relied. precedents cites, imposing requirement redressable. Stated level generality, principle uncontrovertible—but series expressive restricted constitutionality. reasoning cited confirms deficiencies 576-580, 1423-1425, (1947), unripe unsure statutes code sections incorporated statutes; 586, 1718, (1972), "no [law challenged]" added); Associates, 113, 582, (1962), official's disputed authorship speeches, "woefully lacking" omitted details—such used facilities personnel prepare speeches—that bore identified detriment, flow surrounding expresses "doubt 6(b)" "[r]eferences [in complaint] conclusory." WHITE's view. 328, 330. raising enjoin injuring him. request unfair unnecessary. enjoined halt (injunction justices confirmation election); cert. denied, 449 1131, 952, 118 (1981), rival endorsed). Should seek, attempts defeated invoking judgment. furnishes ample inferring includes insistence style inconsistent liberal "notice pleading" philosophy informs Procedure. Conley Gibson, 355 41, 47-48, 99, 102-103, (1957); Fitzgerald Codex Corp., 882 589 (CA1 1989) ("[U]nder Fed.R.Civ.P. pleaded 'sufficient entitled relief' [tenable] theory" original)). perplexed "[t]he challenge." 328 added). every beginning framed exclusively terms declines reach. Points Authorities Support Summary Judgment C-87-4724 AJZ Cal.), pp. 22-26; Memorandum Opposition 20-41; Appellant 88-2875 (CA9), 7-18; Appellees 5-36. reversing sua sponte, Wright Miller, Practice 1219, 190 (text "makes mentality practice"). impediment proceeding supplies thrust "not unconstitutional." actors foreseeably facially determines He show, renders invalid. shown,

Classification Label: 8