Legal Document

447 U.S. 530 100 Supreme Court Reporter 2326 65 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 319 CONSOLIDATED EDISON COMPANY OF NEW YORK, INC., Appellant,v.PUBLIC SERVICE COMMISSION YORK. Number 79-134. Argued March 17, 1980. Decided June 20, Syllabus Held : An order of appellee New York Public Service Commission that prohibits the inclusion by appellant (and other public utility companies) in monthly bills inserts discussing controversial issues policy directly infringes freedom speech protected First and Fourteenth Amendments thus is invalid. Cf. National Bank Boston versus Bellotti, 435 765, 98 1407, 55 707. Pp. 533-544. (a) The restriction on bill cannot be upheld ground appellant, as a corporation, not entitled to speech. "The inherent worth terms its capacity for informing does depend upon identity source, whether association, union, or individual." supra, at 777, S.Ct., 1416. 533-535. (b) Nor state action here valid time, place, manner restriction. While validity reasonable regulations serve significant governmental interest leave ample alternative channels communication has been recognized, such may based either content subject matter Appellee pretend unrelated inserts, present information consumers certain subjects, energy conservation measures, being allowed but discuss controversies forbidden. 535-537. (c) prohibition against permissible subject-matter regulation merely because it applies all discussion political controversies, pro con. Amendment's hostility content-based extends only restrictions particular viewpoints, also an entire topic, issue fall within narrow exceptions general distinctions. Greer Spock, 424 828, 96 1211, 47 505, Lehman Shaker Heights, 418 298, 94 2714, 41 770, distinguished. 537-540. (d) Furthermore, narrowly drawn serving compelling interest. justified necessary avoid forcing appellant's views captive audience, since customers escape exposure objectionable material simply throwing insert into wastebasket. warranted allocate, interest, limited space billing envelope, there nothing record show would preclude might ordered lawfully include envelope. Red Lion Broadcasting company FCC, 395 367, 89 1794, 23 371, And ensure ratepayers do subsidize cost no basis assume could exclude from utility's rate base. 540-543. N.Y.2d 94, 417 N.Y.S.2d 30, 390 North Eastern Reporter, 2nd 749, reversed. Joseph D. Block, City, appellant. Peter Haw. Hawai‘i KFH45 A2 Schiff, Albany, N. Y., appellee. Mr. Justice POWELL delivered opinion Court. 1 question this case Amendment, incorporated violated State electric policy. 2 * Consolidated Edison Company York, case, placed written "Independence Is Still Goal, Nuclear Power Needed To Win Battle" January 1976 stated Edison's "the benefits nuclear power," saying they "far outweigh any potential risk" power plants are safe, economical, clean. App. 35. contended increased use further country's independence foreign sources. 3 In 1976, Natural Resources Defense Council, Incorporated (NRDC), requested enclose rebuttal prepared NRDC next Id., 45-46. When refused, asked open envelopes contrasting importance. 32-33. 4 On February 1977, Commission, here, denied NRDC's request, prohibited "utilities using matters, including desirability future development power." 50. explained decision Statement Policy Advertising Promotional Practices Utilities issued 25, 1977. concluded who receive containing audience diverse should subjected beliefs. Accordingly, barred companies express "their opinions viewpoints policy." Juris. 43a. did not, however, bar utilities sending topics "controversial later petitions rehearing filed utilities. 59a. 5 sought review Commission's courts. Court, Special Term, held unconstitutional. 93 Misc.2d 313, 402 551 (1978). But Appellate Division, reversed, 63 A.D.2d 364, 407 735 (1978), Appeals affirmed judgment. 749 (1979). violate Constitution was designed protect privacy customers. 106-107, N.Y.S.2d, 36, N.E.2d, 755. We noted probable jurisdiction, 444 822, 41, 62 28 reverse. II 6 707 we rejected contention confine corporate specified issues. That recognized "[t]he Because speech, stand absent showing 786, 1421.1 7 guarantee shall "abridg[e] speech." See Burstyn, Wilson, 343 495, 500-501, 72 779-780, L.Ed. 1098 (1952). Freedom "indispensable discovery spread truth," Whitney California, 274 357, 375, 641, 648, 71 1095 (1927) (Brandeis, J., concurring), best test truth thought get itself accepted competition market . ." Abrams States, 250 616, 630, 40 22, 1173 (1919) (Holmes, dissenting).2 remove "governmental restraints arena discussion, putting what voiced largely hands each us, hope will ultimately produce more capable citizenry perfect polity Cohen 403 15, 24, 91 1780, 1786, 29 284 (1971).3 8 This emphasized Amendment "embraces least liberty publicly truthfully matters concern Thornhill Alabama, 310 88, 101-102, 60 736, 744, 84 1093 (1940); see Mills 384 214, 218, 86 1434, 1436, 16 484 (1966). mailing triggered issue, advocated power. means which participate debate national Thus, strikes heart speak. III 9 ban course, invalid imposes limitation U.S., 1421. must consider can demonstrate constitutionally permissible. arguments require us three theories justify action. determine (i) restriction, (ii) regulation, (iii) tailored Atlantic 10 communication. Linmark Associates, Willingboro, 431 85, 93, 97 1614, 1618, 50 155 (1977); Virginia Pharmacy Board Citizens Consumer 425 748, 771, 1817, 1830, 48 346 (1976). Kovacs Cooper, 336 77, 104, 69 448, 462, 513 (1949) (Black, dissenting). Cox Hampshire, 312 569, 61 762, 85 1049 (1941), licensing requirement parades through city streets. criteria, served municipality's legitimate interests regulating traffic, securing order, insuring simultaneous prevent speakers heard. 576, 765. Similarly, Grayned City Rockford, 408 92 2294, 33 222 (1972), antinoise prohibiting demonstrations disturb good educational facility. advanced city's "in having undisrupted school session conducive students' learning 119, 2305. essence lies recognition various methods regardless their content, frustrate goals. No message, roving sound truck blares a. m. disturbs neighborhood tranquility. 11 A regulates imposed so long reasonable. when scrutinized carefully "merely officials disapprove speaker's views." Niemotko Maryland, 340 268, 282, 325, 333, 95 267, 280 (1951) (Frankfurter, concurring result). As consequence, have "applicable irrespective content." Erznoznik Jacksonville, 422 205, 209, 2268, 45 125 (1975); Carey Brown, 455, 470, 2286, 2295, 263. Governmental " 'slip[s] neutrality circumstance about content.' Police Department Chicago Mosley, 92, 99, 2292, 212 quoting Kalven, Concept Forum: Louisiana, 1965 Sup.Ct.Rev. 1, 29. Therefore, speech.4 12 inserts. Indeed, undertaken suppress precisely address allows forbids controversies. with commendable candor, justifies benefit receiving "useful" information, information. 66a-67a. own rationale demonstrates content-neutral regulation. B 13 argues acceptable power, con, prohibition, contends, related rather than speaker. favor side controversy, asserts unconstitutionally 14 topic. matter, government restrict expression ideas, 95, 2290; 379 536, 580-581, 466, 469-470, 487 (1965) (opinion Black, J.). municipality exempt labor picketing even though reached both pro- anti-union demonstrations. If marketplace ideas remain free open, governments choose "which debating 96, 2290. 214-215, 2275; Tinker Des Moines School District, 393 503, 510-511, 733, 738-739, 21 731 (1969). allow choice subjects control over search truth. 15 Nevertheless, approved circumstances.5 court below relied two cases facilities disrupt purpose property dedicated. N.Y.2d, 107, 505 (1976), Federal Government prohibit partisan military base civilian had lecture subjects. id., 838, n. 10, 1217, 10.6 770 (1974) BLACKMUN, J.), plurality similarly transit system rented vehicles commercial advertising accept advertising. refusal fears advertisements jeopardize long-term revenue, commuters propaganda, acceptance lead charges favoritism. 302, 304, 2716, 2717.7 properly viewed cases, decide facility speakers.8 operation forms posed danger. 17 analysis applicable private party asserted right access facilities. offices forum promulgate views. Rather, seeks utilize adjunct operations utility, State's plenary control. sure, regulatory controlling activities, just local always able police powers regulate behavior. Orleans Dukes, 427 297, 303, 2513, 2516, 49 511 (1976) (per curiam ). attempt reliance precedent rests special overseeing property. Contract 18 Where restricts person, sustained if 1421; Buckley Valeo, 612, 637, 46 659 Bates Little Rock, 361 516, 524, 80 412, 417, 480 (1960).9 finally allocate resources 19 approval conclusion intruded individual privacy.10 act expressed inflame sensibilities. erred assessment seriousness intrusion. 20 Even short offend sensibilities some consumers, ability "to shut off discourse solely others hearing [is] dependent substantial invaded essentially intolerable manner." 21, 1786. less stringent permit slight role affording debate, dissemination ideas." 783, 1419; 390, 1806, 371 (1969); Lamont Postmaster General, 381 301, 308, 1493, 1497, 398 (BRENNAN, concurring). single speaker communicates many listeners, intrusive unless "captive" objectional Passengers transportation, 307-308, 2719 (Douglas, judgment), residents disturbed raucous broadcasts passing truck, cf. (1949), well unable unwanted message. encounter "effectively bombardment averting eyes." Spence Washington, 405, 2727, 842 customer transferring envelope wastebasket.11 22 contends accommodate amount messages take place promote safety, remind legal rights. relies radio television broadcast frequencies permits exercise unusual authority differ ways. First, broadcaster scarce, owned resource. person without license, whereas persons send correspondence homes mails. said resource comparable spectrum. Second, shown before presence Unlike stations broadcasting frequency, multiple result "cacophony competing voices." 376, 1799. Finally, urges subsidizing costs policy-oriented inability between shareholders ratepayers. "using proclaim viewpoint (even stockholder pays full ) tantamount taking advantage audience. 43a (emphasis added). these base.12 Mere speculation harm constitute Mine Workers Illinois Bar Assn., 389 217, 222-223, 88 353, 356, 426 (1967).13 IV 24 suppression Amendments. neither nor 795, 1426. 25 26 Reversed. 27 MARSHALL, concurring. & N Dec. Immigration Nationality Decisions join Court's opinion. write separately emphasize our today way addresses base, intimate view appropriateness allocation make. Ante, 543. rely argument required management's issuing therefore precluded sustaining ground. SEC Chenery Corp., 318 80, 454, 87 626 (1943) ("[A]n administrative grounds agency acted exercising were those sustained"); FPC Texaco Inc., 380, 397, 2315, 2326, 141 (1974); FTC Sperry Hutchinson Co., 405 233, 249, 898, 907, 31 170 (1972). STEVENS, 30 Any student history reprimanded talking World during class knows incorrect "time, 536. every lawyer read Rules,1 upholding specific reference matter2 recognize hyperbole dictum: "But, above else, 2290, 212, quoted part, ante, 537. law, need detailed rejection justifications put forward involved case. Part III-C. There are, fact, situations or, indeed, point speaker, provide justification Perhaps most obvious example oral Court; precedes his adversary he reversal judgment.3 true aspects liberty, orderly actually total anarchy.4 32 Instead trying reasoning honey-combed premises, prefer identify simple terms. Young American Mini Theatres, 50, 65-66, 2440, 2449-2450, 310. motivated desire curtail purest "law abridging press."5 denies one group selected policy" plainly utilities' "offensive" customers.6 offensive different Independently message intends convey, form offensive—perhaps too loud7 ugly setting.8 Other speeches, elegantly phrased dulcet tones, listener disagrees fact appropriate surely support character idea censor expression. Since candidly impermissible censorial violates Amendment.9 34 concur judgment 35 whom REHNQUIST Parts joins, dissenting. 36 My dissent indicates disapprobation my part precious rights (so cataloged opinion) repression State. prior writings area prove conclusively sensitivity them. See, e. g., Bigelow Virginia, 421 809, 2222, 44 600 (1976); Arizona, 433 350, 2691, 53 810 (1977). Central Hudson Gas Elec. Corporation Comm'n, 557, 573, 2343, 2355, 341 judgment). 37 agree somehow deprives monopoly status structure, amounts exaction forced aid And, contrary suggestion, insert's eliminate coerced subsidy. 38 state-created monopoly. N.Y.Pub.Serv.Law § 68 (McKinney 1955); Jones, Origins Certificate Convenience Necessity; Developments 1870-1920, 79 Colum.L.Rev. 426, 458-461 (1979); Comment, Utility Rates, Consumers, 39 Albany L.Rev. 707, 709-714 (1975). Although monopolies generally policies see, N.Y.Gen.Bus.Law 1968 Supp.1979-1980), permitted operate determination better protecting them competition. Kahn, Economics Regulation 113-171 (1971). exceptional grant enterprises extensive oversight exploitation excessive rates overreaching. For reason, charge. 66(12) Supp.1979-1980). addition, law gives supervisory property, real personal, "used used connection facilitate sale furnishing electricity light, heat §§ 2(12) 66(1) 1955). explicitly format included bill. 66(12-a) authorized reflect providing services plus return shareholders. L.Rev., 719-723. payment system—meters, meter-reading, mailings, inserts—are paid under rules permitting recovery operating expenses. Uniform System Accounts—Expense Accounts—Customer Account Expenses, N.Y.C.R.R. 901-906 (1974). Under laws lobbying. Accounts, 426.4, Expenditures Certain Civic, Political Related Activities, ch. II, subch. F Southern Bell Tel. Louisiana Pub. Serv. 239 La. 175, 207-209, 118 So.2d 372, (1960); Southwestern P.U.R. 4th 28-29 (Kan.Corp.Comm'n 1977); Boushey Pacific (Cal.Pub.Util.Comm'n 1975) (banning inserts); Cascade th 19, (Ore.Pub.Util.Comm'n 1974); Light 3d 46-47 1960); 77 (n.s.) 33, 42 (Mo.Pub.Serv.Comm'n 1949); re Investigation Regulated Iowa Utils., U-463 (Iowa Commerce commission Jan. 29, 1975). These passed derive service-related advertisements. lobbying shareholders, deducted profits otherwise available Energy Regulatory formerly adopted rule well. Alabama F.P.C. 278, 286-287 (1960), aff'd sub nom. Electric 304 (CA5), cert. denied, 924, 83 292, 232 (1962); Code Regulations 101, Page 383 concluded, view, distribute pamphlets subsidy ratepayers.1 counter pointing out willing additional attributable It maintains: incidentally save money expense ratepayers, detrimental public." Brief Appellant 21. preventing "free ride" substantial, concern. ride dollars, still qualifies 4th, 27; Note, Companies Amendment: Regulating Use Inserts Bills, 64 Va.L.Rev. 921, 926 compelled help defray expenses, compulsion person's Abood Detroit Education, 233-235, 1782, 1798-1799, 52 261 256, 1810 (POWELL, extra make offensive. Wooley Maynard, 430 705, 714-715, 1428, 1435, 51 752 22-23, 636-637, 643, (recognizing candidate personal provides financial assistance candidate); 91, 124, 669, 124 (1976).2 example, requiring letters clearly infringe letterwriter's 43 Of business deprive constitutional involved. given contributed situation possible, state-action met situation. Jackson Metropolitan 419 345, 449, 477 find necessary, sense occurred here. ratepayers' infringed exacting agree. entwined activities meet requirement, made possible utility. Thus legitimately concerned force issues.3 suggesting eliminating subsidization achieved allocating expenses glossed difficult underlying controversy. clear me believes charging marginal associated is, printing satisfy division fixed mailing, postage, creation maintenance list, overhead expense. maintains problem obviously correct obtain partial charged addition Consumers making distribution be. Charging equivalent, practical wants expensive separate mailing.4 achieve important goal—protecting disagree—that restrictive ban. bear medium communication, claim purposes analogous letter writer, nonmonopolistic business, whose turn elsewhere object sales dollars finance. 794, 34, 1425, This, therefore, typical [property] 540. convenient pay, sole benefit. shareholders' finance completely mails same prevents relying leads conclude unwillingly financing preserve pay observe, additionally, am hopeful tied type abuse appears facts differences approach proper define PruneYard Shopping Center Robins, 74, 2035, 741. packet, doubt establishing ownership packet violative Takings Clause If, belongs customers, how restricting possibly leaves allocation. charge postage creating maintaining inserting consumer service insert. Long Island Lighting 972 (EDNY, Mar. 1979), reproduced Amicus Curiae 22a. reason pamphlets, bills. Such 3, supra. Division "[i]n battle expenses," App.Div.2d 368, 735, 737 respectfully dissent. privately regulated assertion 566-568, 2351-2352, 341. heavily businesses enjoy protection. Friedman Rogers, 440 99 887, 59 763-765, 1826-1827, position decrease informative value critical matters. Media 190 U.S.App.D.C. 425, 428, 429, 587 1322, 1325, 1326 (1978); Berkeley, Cal.App.3d 123, 127-129, 131 Cal.Rptr. 352-353 protects individual's self-expression. 12, 1416, T. Emerson, Expression (1970). Meiklejohn, 35-36 (1965). 93-94, 1618-1619, Papish University Missouri Curators, 410 667, 670, 1197, 1199, 618 (1973) courts species covered look 561-563, 2349-2350, (commercial speech); Gertz Robert Welch, 323, 340, 2997, 3007, 789 (libel); Miller 413 2607, (obscenity); Chaplinsky 315 568, 572-573, 766, 769-770, 1031 (1942) (fighting words). Compare FCC Pacifica Foundation, 438 726, 746-747, 3026, 3038-3039, 57 1073 (1978) 70-71, 2452, 761, 3046 POWELL, 762-763, 3047-3048 dissenting), 87, 2460 (STEWART, dissenting) (indecent speech). necessity excluding traditional "of keeping official wholly entanglement campaigns kind." 839, 1218. construed light unique place." 842, 1219 Douglas, concurred Lehman, relevant petitioner's commuters' it." 2719-2720. Douglas actions 306-308, 2718-2719. infra, 541-542. Four Justices dissented discriminate among advertisers. 309, 2719, 2720 joined STEWART, JJ., represent category dealing 512-513, 739-740, (1969), Hague CIO, 307 496, 515-516, 954, 963-964, 1423 (1939) Roberts, Adderley Florida, 385 39, 242, 149 judged standard O'Brien, 391 377, 1673, 1679, 672 (1968), "is secondarily communications. 9, 3. O'Brien limit where 1679. expressly harmful consumers. 755 referred examination avenues speakers, consistently suggestion 757, 1823, 15; Southeastern Promotions, Limited Conrad, 420 546, 556, 1239, 1245, 448 411, 4, 2731, attach seek seclusion homes, Rowan Post Office Department, 397 728, 737, 90 1484, 1489, 736 (1970), arrival hardly visit door-to-door solicitor. Yet solicitors invade households. Martin Struthers, 141, 146-147, 862, 864-865, 1313 (1943). overly goal stop objecting denial rehearing, re-emphasized impose regard 67a, 1. failed allocated occasion (1977), Rules 16, (effective 1980). NLRB Retail Store Employees, 607, 2372, 377 (labor site neutral third parties dispute); Ohralik Ohio 436 447, 1912, 56 (in-person solicitation distinguished advertising); language early afternoon broadcast); (zoning "adult" movie theaters); (partisan speeches base); (political municipal system); Schenck 249 47, 52, 247, 470 J.): protection man falsely shouting fire theatre causing panic." cited 67-71. Farber, Content Revisionist View, Geo. L.J. 727 (1980); Foundation "Filthy Words," Broadcast Media, 78 164 Rule 38.2. color brief blue red. 33.2(b)(3). "Civil liberties, guaranteed Constitution, imply existence organized society lost excesses unrestrained abuses." 574, 1049. 1798, 371; 554, 453, 464, 471. provides: "Congress press. series decisions beginning Gitlow 268 652, 625, 1138, press guarantees abridgment safeguarded Due Process invasion 500, 8, 780, 1098. "When espouses question, likely recipient elicit agreement. idly deny inflamed foisted them." 106, 513. 97, 458-459 concurring): "So legislature prescribe noisily be, inroads peace, supervise limits safeguarding steadily narrowing opportunities serenity reflection. Without becomes mocking phrase, society." dissenting opinion, Rutledge, referring trucks places, "no accommodation, statutes, streets nuisance." 105, 462-463. 745-746, 3038-3039 patently words sex excretion content. Obscene materials contemporary moral standards. Roth 354 476 [77 1304, 1498.] sufficient suppressing it. offense, consequence according central tenet ideas. believe characterization Carlin monologue traced content—or satirized attitudes four-letter words—First required. reasons obscenity offends. Their hierarchy values aptly sketched Murphy said, '[S]uch utterances essential exposition social step derived outweighed morality.' [568], 572 [62 769, 1031]" (Footnotes omitted.) Paris Adult Theatre Slaton, 49, 84, 2628, 2648, 446 dissenting): "[T]he item nuances presentation context dissemination. Redrup [v. 386 767, 1414, 515,] suggested obtrusive unwilling individuals, juveniles, 'pandering' obscenity." tried defend communicative activities. explanation why merit suggestions. 542-543. viewing (controversial generally) intended initially (the issues), "controversial" nature touchstone threatens very core "profound commitment principle uninhibited, robust, wide-open." Times Sullivan, 376 254, 270, 710, 720, 686. states: ground." 544. "forced subsidy" justification. denying stated: "We note ratepayer's accompanied advertisement, allocation, getting ride; deriving economic process. actual enclosing one-sided management process presenting certainly questionable [431 261] (1977)." 741, impinge principle. shopping center voluntarily chose makes clear. authorize trusts, administering trust estate. trustee, bank, finds communicate beneficiaries concerning investments, income distribution, like, ordinarily borne trust. situation, seem entirely trustee adding bank's nothing, assuming bank stuffing insert, assuring trustee. Here, obtaining stronger, purchase Edison, while trusts created chosen trustor. greater likelihood bill, 1a. another eliminated except

Classification Label: 2