Legal Document

505 U.S. 672 112 S.Ct. 2701 120 L.Ed.2d 541 INTERNATIONAL SOCIETY FOR KRISHNA CONSCIOUSNESS, INC., and Brian Rumbaugh, Petitioners,v.Walter LEE. No. 91-155. Argued March 25, 1992. Decided June 26, Syllabus * The Port Authority of New York Jersey, which owns operates three major airports in the City area controls certain terminal areas at (hereinafter terminals), adopted a regulation forbidding, inter alia, repetitive solicitation money within terminals. However, is permitted on sidewalks outside buildings. Petitioner International Society for Krishna Consciousness, Inc., not-for-profit religious corporation whose members, among other things, solicit funds public places to support their movement, brought suit seeking declaratory injunctive relief under 42 U.S.C. § 1983, alleging that deprived them First Amendment rights. District Court granted petitioner summary judgment, concluding terminals were fora, banning failed because it was not narrowly tailored compelling state interest. Appeals reversed as here relevant. It determined are found ban reasonable. Held: 1. An airport operated by authority non-public forum, thus need only satisfy reasonableness standard. Pp. ____. (a) extent can restrict expressive activity its property depends nature forum. Regulation traditional fora or designated survives if drawn achieve interest, but limitations conducted any government-owned be reasonable survive. Perry Education Assn. v. Local Educators' Assn., 460 37, 45, 46, 103 948, 955, 74 794. (b) Neither tradition nor purpose described fora. Airports have historically been made available speech activity. Given lateness with modern air has appearance, hardly qualifies "immemorially . time out mind" held trust used purposes See Hague Committee Industrial Organization, 307 496, 515, 59 954, 964, 83 L.Ed. 1423. Nor operators opened such activities, see Cornelius NAACP Legal Defense Educational Fund, 473 788, 802, 105 3439, 3449, 87 567, evidenced operators' frequent continuing litigation this area. (c) That activities may occurred "transportation nodes" rail bus stations, wharves, Ellis Island Many these sites traditionally had private ownership. In addition, equating transportation centers would take into account differences various facilities affect accommodate unsurprising find facilities. Authority, builders managers, Federal Government all share view dedicated facilitation efficient travel, contributions. 2. Authority's Solicitation disruptive effect business slowing path both those who must decide whether contribute alter paths avoid solicitation. solicitor cause duress targeting most vulnerable persons commit fraud concealing his affiliation shortchanging purchasers. fact targets likely tight schedule, unlikely stop complain authorities, compounds problem. best legitimate interest monitoring assure travelers interfered unduly limiting sidewalk frequented an overwhelming percentage users, making petitioner's access general quite complete. Moreover, odd conclude unreasonable when otherwise assured universally travelled While inconvenience caused seem small, could reasonably worry incremental effects having one group then another seek prove disruptive. 925 F.2d 576 (CA2 1991), affirmed part. REHNQUIST, C.J., delivered opinion Court, WHITE, O'CONNOR, SCALIA, THOMAS, JJ., joined. J., filed concurring opinion. KENNEDY, Part I BLACKMUN, STEVENS, SOUTER, dissenting opinion, BLACKMUN Barry A. Fisher, Los Angeles, Cal., petitioners/cross respondents. Arthur P. Berg, City, respondent/cross petitioner. Chief Justice REHNQUIST Court. 1 case we consider forum prohibiting interior violates Amendment. 2 relevant facts dispute. Inc. (ISKCON) members perform ritual known sankirtan. consists " 'going places, disseminating literature soliciting religion.' 576, 577 1991). primary raising movement. Ibid. 3 Respondent Walter Lee, now deceased, police superintendent Jersey charged enforcing issue. greater area: John F. Kennedy Airport (Kennedy), La Guardia (La Guardia), Newark (Newark). collectively form world's busiest metropolitan complexes. They serve approximately 8% country's domestic airline market more than 50% trans-Atlantic market. By decade's end they expected least 110 million passengers annually. Id., 578. 4 funded user fees make regulated profit. 581. Most space leased commercial airlines, bear responsibility leasehold. retains control over unleased portions, including Guardia's Central Terminal Building, portions Kennedy's Arrivals Newark's North Building (we refer "terminals"). generally accessible contain establishments restaurants, snack stands, bars, newsstands, stores types. Virtually visit do so related travel. These visitors principally include passengers, meeting seeing off flight crews, employees. 5 forbidding distribution literature. states: 6 "1. following conduct prohibited buildings structures person passers-by continuous manner: 7 "(a) sale merchandise, limited jewelry, food stuffs, candles, flowers, badges clothing. 8 "(b) flyers, brochures, pamphlets, books printed written material. 9 "(c) receipt funds." 578-579. 10 governs terminals; permits effectively prohibits from performing sankirtan As result, worked deprive rights guaranteed Amendment.1 analyzed claim "traditional forum" doctrine. concluded akin streets, 721 F.Supp. 572, (SDNY 1989), quintessential This conclusion turn meant sustained 579. absence argument blanket prohibition constituted narrow tailoring, judgment. 11 part (1991). Relying our recent decision United States Kokinda, 497 720, 3115, 111 571 (1990), divided panel restrictions required standard reasonableness. that, presented issue, reasonable, not. sought certiorari respecting Appeals' upholding ban. cross-petitioned court's holding striking down We petitions, 502 ----, 855, 116 764 (1992), resolve question Circuits split2 once before ultimately reach. Board Comm'rs Angeles Jews Jesus, 482 569, 107 2568, 96 500 (1987).3 12 uncontested issue protected Heffron 452 640, 101 2559, 69 298 (1981); supra, U.S., S.Ct., ---- (citing Schaumburg Citizens Better Environment, 444 620, 629, 100 826, 832, 63 73 (1980)); Riley National Federation Blind N.C., 487 781, 788-789, 108 2667, 2673, 669 (1988). But also well settled government permit forms controls. Postal Service Council Greenburgh Civic Assns., 453 114, 129, 2676, 2685, 517 Greer Spock, 424 828, 1211, 47 (1976). Where acting proprietor, managing internal operations, rather lawmaker power regulate license, action will subjected heightened review actions subject. (plurality opinion) Cafeteria & Restaurant Workers McElroy, 367 886, 896, 81 1743, 1749, 1230 (1961)). Thus, upheld political advertisements city-operated transit vehicles, Lehman Shaker Heights, 418 298, 94 2714, 41 770 (1974), even though city types advertising vehicles. Similarly, school district limit mail system communicate teachers employed district. Ass'n, 794 (1983). 13 cases reflect, either implicitly explicitly, "forum-based" approach assessing seeks place use property. 800, 3448, 567 (1985). Under approach, expression subject highest scrutiny. Such regulations survive Perry, 955. second category unlimited character—property public. same governing Finally, there remaining Limitations last much review. challenged long effort suppress speaker's due disagreement view. 14 parties disagree proper framework. Rather, nonpublic "reasonableness" should appropriate category.4 Like Appeals, limits 15 suggestion high burden justifying relating first appearance 516, 963, 1423 (1939). Roberts, individuals right "streets parks communication views," reasoned flowed immemorially and, mind, assembly, communicating thoughts between citizens, discussing questions." confirmed observation Frisby Schultz, 474, 481, 2495, 2500, 420 (1988), where residential street 16 Our provide additional guidance characteristics noted "a principal free exchange ideas." 3448. consistent notion government—like owners —"has preserve lawfully dedicated," Greer, 836, 1217, does create inaction. created "whenever freely owned Government." instead "by intentionally opening nontraditional discourse." Cornelius, 3449. recognized location bearing separation acknowledged indicate separated special enclave, restriction. Grace, 461 171, 179-180, 1702, 1708, 75 736 17 precedents foreclose Reflecting growth travel industry, recently achieved contemporary size character. H.V. Hubbard, M. McClintock, F.B. Williams, Airports: Their Location, Administration Basis, (1930) (noting 807 1930). given description Hague, 964. short history transport, "[i]n years [that] become common practice non-profit organizations literature, funds, proselytizing new similar activities." 45 Fed.Reg. 35314 (1980). demonstrate say particular terminals, generally, activity; evidencing objections belies claim. n. 2, supra. short, no society's time-tested expressed through acquiescence practice, resolved favor. 18 attempts circumvent pointing attention variety claims Island. Even inclined accept historical describing locations, respondent contests, think evidence little import two reasons. First, irrelevant analysis, Transportation Union Long R. Co., 455 678, 687, 102 1349, 1355, 71 547 (1982); H.R. Grant C.W. Bohi, Country Railroad Station America, 11-15 (1978); Dept. Transportation, Intercity Bus Study 31 (Dec. 1984). development privately change status publicly parks. reverse true. practices government's regulatory airport. 19 Second, unit inquiry airport, generally. When methods develop, accommodating needed. And each step, therefore necessities compatible kinds To nodes," therefore, unjustifiably elide what critical rightfully account. "security magnet," example, commonplace lacks counterpart train stations. infrequently restricted just year Aviation 4-month period normally accessible. CFR 107.11(f) (1991) News Release, Office Assistant Secretary Public Affairs, January 18, 1991. blithely equate centers, mistake. 20 since, noted, users designed profit, F.2d, 581, nearly some purpose. enterprises, services attractive marketplace. light this, cannot fairly said "promoting contrary, record demonstrates management considers passenger promotion expression. Sloane Affidavit, ¶ 11, App. 464; Defendant's Civil Rule 3(g) Statement, 39, 453. look beyond intent manner operated, never (except threat court order) exercised here: i.e., contributions 21 far atypical. managers focus efforts providing See, e.g., Horonjeff McKelvey, Planning Design 326 (3d ed. 1983) ("[t]he process baggage interface aircraft ground modes"). accord; directed publish plan necessary "to anticipate meet needs civil aeronautics, requirements national defense identified Service." 49 U.S.C.App. 2203(a)(1) (emphasis added); also, 35317 (1980) [Dulles airport] terminal[s] built maintained efficiently"). Although many expanded function merely contributing few included designation activities. neither satisfying standards previously set identifying 22 challenged, requirement reiterate stated restriction 'need reasonable; limitation.' 3124 (quoting 808, 3452). doubt passes muster. 23 prior occasions business. "Solicitation requires respond: individual solicited (which itself might involve reading solicitor's hearing pitch), then, decided so, reach wallet, search money, write check, produce credit card." 3123; Heffron, 663, 2572 (Blackmun, part). Passengers wish path, themselves around them. result normal flow traffic impeded. 653, 2566-2567. especially "air travelers, often weighted cumbersome hurrying catch plane arrange transportation." 582. Delays particularly costly setting, missed minutes hours worth subsequent inconvenience. 24 face-to-face presents risks target regulation. skillful, unprincipled, vulnerable, accompanying children suffering physical impairment easily Barber, 506 147, 159-163 (NDNY 1980), rev'd grounds 650 430 1981). unsavory concealment deliberate shortchange agree purchase. 159-163. 35314-35315 Compounding problem frequently schedules. makes formally authorities. faces considerable difficulty achieving unduly. 25 accomplished Supp. 514. id., 14, 515-516 3% passing doing intraterminal flights, i.e. transferring planes). Thus resulting despite traveled. 26 inconveniences burdens officials flowing viewed against "pedestrian congestion greatest problems facing terminals," 582, disruptive.5 "the justification measured disorder granting exemption solely ISKCON." 652, 2566. For access, too groups. "Obviously, larger State's crowd religious, nonreligious, noncommercial likewise move freely." 2567. 27 foregoing reasons, judgment sustaining 28 Affirmed. Detroit Lumber 200 321, 337, 282, 287, 50 499. 1975. ISKCON originally controlled sued airlines. meandering course, 573-574 airlines eventually being dismissed leaving, sole ISKCON's declaration injunction promulgated until 1988 although represents codification presuit policy. Pet. Cert. 52. text, concedes performed Compare below Jamison St. Louis, 828 1280 (CA8 1987), cert. denied, 485 987, 1289, 99 499 (1988); Chicago Area Military Project Chicago, 508 921 (CA7), 421 992, 95 1999, 44 483 (1975); Fernandes Limmer, 663 619 (CA5 1981), dism'd, 458 1124, 5, 1395 Southwest Africa/Namibia Trade Cultural States, 228 U.S.App.D.C. 191, 708 760 (1983); Commissioners 785 791 (CA9 1986), aff'd grounds, (1987). deal petition permissibility Respondent's cross-petition concerning leafletting disposed companion case, Lee 91-339, --- 2709, ----. argues strict scrutiny applicable unnecessary question. unique airports. (describing Washington's Dulles airports) 2201(a)(11) (Congressional projects increase capacity "should undertaken maximum feasible extent").

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