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U.S. Supreme Court
NEW YORK STATE CLUB ASSN. v. NEW YORK CITY, 487 U.S. 1 (1988)
487 U.S. 1
NEW YORK STATE CLUB ASSOCIATION, INC. v. CITY OF NEW YORK ET AL.
APPEAL FROM THE COURT OF APPEALS OF NEW YORK
No. 86-1836.
Argued February 23, 1988
Decided June 20, 1988
New York City's Human Rights Law forbids discrimination based on race, creed, sex, and other grounds by
any
"place of public accommodation, resort or amusement," but specifically exempts "any institution, club or
place
of accommodation which is in its nature distinctly private." However, a 1984 amendment (Local Law 63)
provides that any "institution, club or place of accommodation," other than a benevolent order or a religious
corporation, "shall not be considered in its nature distinctly private" if it "has more than four hundred members,
provides regular meal service and regularly receives payment . . . directly or indirectly from or on behalf of
nonmembers for the furtherance of trade or business." Immediately after Local Law 63 became effective,
appellant association filed a state-court suit against the city and some of its officials, seeking, inter alia, a
declaration that the Law is unconstitutional on its face under the First and Fourteenth Amendments. The trial
court entered a judgment upholding the Law, and the intermediate state appellate court and the Court of
Appeals of New York affirmed.
Held:
1. Appellant, a nonprofit association consisting of a consortium of 125 other private New York clubs and
associations, has standing to challenge Local Law 63's constitutionality in this Court on behalf of its members,
since those members "would otherwise have standing to sue in their own right" under Hunt v. Washington
Apple
Advertising Comm'n, 432 U.S. 333, 343. Appellees' contention that appellant's member associations
[487 U.S.
1, 2] must have standing to sue only on behalf of themselves, and not on behalf of their own
members, misreads
Hunt, which simply requires that members have standing to bring the same suit. Here,
appellant's member
associations would have standing to bring this same challenge to Local Law 63 on behalf
of their own individual members, since those individuals "are suffering immediate or threatened injury" to their
associational rights as
a result of the Law's enactment. Warth v. Seldin, 422 U.S. 490, 511. Pp. 8-10.
2. Appellant's facial First Amendment attack cannot prevail. That attack must fail insofar as it is based on the
claim that Local Law 63 is invalid in all of its applications. As appellant concedes, the Human Rights Law's
antidiscrimination provisions may be constitutionally applied to at least some of the large covered clubs under
Roberts v. United States Jaycees, 468 U.S. 609, and Board of Directors of Rotary Int'l v. Rotary Club, 481 U.S.
537. In finding that clubs comparable in size to, or smaller than, clubs covered by the Human Rights Law were
not protected private associations, Roberts and Rotary emphasized the regular participation of strangers at
club meetings, a factor that is no more significant to defining a club's nonprivate nature than are Local Law
63's
requirements that covered clubs provide "regular meal service" and receive regular nonmember
payments "for
the furtherance of trade or business." Similarly, Local Law 63 cannot be said to infringe upon
every club
member's right of expressive association, since, in the absence of specific evidence on the
characteristics of
any covered club, it must be assumed that many of the large clubs would be able to
effectively advance their
desired viewpoints without confining their membership to persons having, for example, the same sex or
religion. Nor has appellant proved its claim that the Law is overbroad in that it
applies to "distinctively private"
clubs, since there is no evidence of any club, let alone a substantial number of
clubs, for whom the Law impairs
the ability to associate or to advocate public or private viewpoints. Thus, it must be assumed that the
administrative and judicial opportunities available for individual associations to
contest the Law's
constitutionality as it may be applied against them are adequate to assure that any
overbreadth will be curable
through case-by-case analysis of specific facts. Pp. 10-15.
3. Appellant's facial equal protection attack on Local Law 63's exemption deeming benevolent orders and
religious corporations to be "distinctly private" must also fail. The City Council could have reasonably believed
that the exempted organizations are different in kind from appellant's members, in the crucial respect of
whether
business activity (and therefore business opportunities for minorities and women) is prevalent among
them. Cf.
Bryant v. Zimmerman, 278 U.S. 63. Moreover, [487 U.S. 1, 3] New York state law indicates that
benevolent
orders and religious corporations are unique and thus that a rational basis exists for their
exemption here.
Appellant has failed to carry its considerable burden of showing that this view is erroneous
and that the issue is
not truly debatable, since there is no evidence that a detailed examination of the
practices, purposes, and
structures of the exempted organizations would show them to be identical to the private clubs covered by the
Law in the critical respect of whether business activity is prevalent among them.
Pp. 15-18.
69 N. Y. 2d 211, 505 N. E. 2d 915, affirmed.
WHITE, J., delivered the opinion for a unanimous Court with respect to Parts I, II, and III, and an opinion of the
Court with respect to Part IV, in which REHNQUIST, C. J., and BRENNAN, MARSHALL,
BLACKMUN, STEVENS, O'CONNOR, and KENNEDY, JJ., joined. O'CONNOR, J., filed a concurring opinion, in which
KENNEDY, J., joined, post, p. 18. SCALIA, J., filed an opinion concurring in part and concurring in the
judgment, post, p. 20.
Alan Mansfield argued the cause for appellant. With him on the briefs were Angelo T. Cometa and Louis J.
Lefkowitz.
Peter L. Zimroth argued the cause for appellees. With him on the brief were Leonard J. Koerner and Fay
Leoussis.*
[Footnote *] Briefs of amici curiae urging reversal were filed for the Conference of Private Organizations by
Thomas P. Ondeck; for the Club Managers Association of America by John M. Wood and David Ferber; and
for the Francisca Club et al. by Michael H. Salinsky and Kevin M. Fong.
Briefs of amici curiae urging affirmance were filed for the State of New York et al. by Robert Abrams, Attorney
General of New York, O. Peter Sherwood, Solicitor General, and Suzanne M. Lyon and Elvia Rosales
Arriola,
Assistant Attorneys General, joined by the Attorneys General for their respective States as follows: John Van
de
Kamp of California, W. Cary Edwards of New Jersey, Donald J. Hanaway of Wisconsin, J. Joseph Curran,
Jr.,
of Maryland, Neil F. Hartigan of Illinois, Hubert H. Humphrey III of Minnesota, Dave Frohnmayer of Oregon,
James M. Shannon of Massachusetts, Frank J. Kelley of Michigan, and Charles Brown of Wes Virginia; for the
city of Chicago by Judson H. Miner and Ruth M. Moscovitch; for the city of Los Angeles et al. by Pamela A.
Albers, and Vanessa Place; for the city and county of San Francisco by Louise H. Renne; for the Licensing
Board of the city of Boston by Barbara A. H. Smith; for the American Bar Association by Robert MacCrate and
Stark Ritchie; for the Anti-Defamation League of B'Nai B'rith et al. by Jill L. [487 U.S. 1, 4] Kahn, Justin J.
Finger, and Jeffrey P. Sinensky; for the Committees on Civil Rights and Sex and Law of the Association of the
Bar of the city of New York by Robert M. Kaufman, Jonathan Lang, Arthur Leonard, Evelyn F. Cohn, and Kay
C.
Murray; for the NOW Legal Defense and Education Fund et al. by Sarah E. Burns, Judith I. Avner, and
Beverly
Gross; and for the U.S. Conference of Mayors et al. by Benna Ruth Solomon, Beate Bloch, and Nancy
J. Bregstein.
Briefs of amici curiae were filed for the American Civil Liberties Union Foundation et al. by Burt
Neuborne, John
A. Powell, Steven R. Shapiro, Isabelle Katz Pinzler, Arthur N. Eisenberg, Paul L. Hoffman, and Judith
Resnik;
and for the Lawyer's Committee for Civil Rights Under Law by Lloyd N. Cutler, James Robertson,
Conrad K.
Harper, Stuart J. Land, Norman Redlich, William L. Robinson, and Judith Winston. [487 U.S. 1, 4]
JUSTICE WHITE delivered the opinion of the Court.
New York City has adopted a local law that forbids discrimination by certain private clubs. The New York Court
of Appeals rejected a facial challenge to this law based on the First and Fourteenth Amendments. We sit in
review of that judgment.
I
In 1965, New York City adopted a Human Rights Law that prohibits discrimination by any "place of public
accommodation, resort or amusement."1 This term is defined broadly [487 U.S. 1, 5] in the Law to cover such
various places as hotels, restaurants, retail stores, hospitals, laundries, theaters, parks, public conveyances,
and public halls, in addition to numerous other places that are specifically listed. N. Y. C. Admin. Code
8-102(9)
(1986). Yet the Law also exempted from its coverage various public educational facilities and "any
institution,
club or place of accommodation which proves that it is in its nature distinctly private." Ibid. The city
adopted this
Law soon after the Federal Government adopted civil rights legislation to bar discrimination in
places of public
accommodation, Civil Rights Act of 1964, Title II, 78 Stat. 243, 42 U.S.C. 2000a(e).
In 1984, New York City amended its Human Rights Law. The basic purpose of the amendment is to prohibit
discrimination in certain private clubs that are determined to be sufficiently "public" in nature that they do not fit
properly within the exemption for "any institution, club or place of accommodation which is in its nature
distinctly
private." As the City Council stated at greater length:
"It is hereby found and declared that the city of New York has a compelling interest in providing its citizens an
environment where all persons, regardless of race, creed, color, national origin or sex, have a fair and equal
opportunity to participate in the business and professional life of the city, and may be unfettered in availing
themselves of employment opportunities. Although city, state and federal laws have been enacted to eliminate
discrimination in employment, women and minority group members have not attained equal opportunity in
business and the professions. One barrier to the advancement of women and minorities in the business and
professional life of the city is the discriminatory practices of certain membership organizations where business
[487 U.S. 1, 6] deals are often made and personal contacts valuable for business purposes, employment and
professional advancement are formed. While such organizations may avowedly be organized for social,
cultural, civic or educational purposes, and while many perform valuable services to the community, the
commercial nature of some of the activities occurring therein and the prejudicial impact of these activities on
business, professional and employment opportunities of minorities and women cannot be ignored." Local Law
No. 63 of 1984, 1, App. 14-15.
For these reasons, the City Council found that "the public interest in equal opportunity" outweighs "the interest
in
private association asserted by club members." Ibid. It cautioned, however, that it did not purpose "to
interfere
in club activities or subject club operations to scrutiny beyond what is necessary in good faith to
enforce the
human rights law," and the amendments were not intended as an attempt "to dictate the manner in
which certain
private clubs conduct their activities or select their members, except insofar as is necessary to
ensure that
clubs do not automatically exclude persons from consideration for membership or enjoyment of
club
accommodations and facilities and the advantages and privileges of membership, on account of
invidious
discrimination." Ibid.
The specific change wrought by the amendment is to extend the antidiscrimination provisions of the Human
Rights Law to any "institution, club or place of accommodation [that] has more than four hundred members,
provides regular meal service and regularly receives payment for dues, fees, use of space, facilities, services,
meals or beverages directly or indirectly from or on behalf of nonmembers for the furtherance of trade or
business." N. Y. C. Admin. Code 8-102(9) (1986). Any such club "shall not be considered in its nature distinctly
private." Ibid. Nonetheless, the city also stated that any such club "shall be deemed to be in its nature distinctly
private" if it is "a corporation incorporated [487 U.S. 1, 7] under the benevolent orders law or described in the
benevolent orders law but formed under any other law of this state, or a religious corporation incorporated
under the education law or the religious corporations law." Ibid. The City Council explained that it drafted the
amendment in this way so as to meet the specific problem confronting women and minorities in the city's
business and professional world: "Because small clubs, benevolent orders and religious corporations have not
been identified in testimony before the Council as places where business activity is prevalent, the Council has
determined not to apply the requirements of this local law to such organizations." Local Law No. 63, 1, App.
15.
Immediately after the 1984 Law became effective, the New York State Club Association filed suit against the
city and some of its officers in state court, seeking a declaration that the Law is invalid on various state
grounds
and is unconstitutional on its face under the First and Fourteenth Amendments and requesting that
defendants
be enjoined from enforcing it. On cross-motions for summary judgment, the trial court upheld the
Law against all
challenges, including the federal constitutional challenges. The intermediate state appellate
court affirmed this
judgment on appeal; one judge dissented, however, concluding that the exemption for
benevolent orders
violates the Equal Protection Clause because it fails to accord equal protection to similarly
situated persons.
118 App. Div. 2d 392, 505 N. Y. S. 2d 152 (1986).
The State Club Association appealed this decision to the New York Court of Appeals, which affirmed in a
unanimous opinion. 69 N. Y. 2d 211, 505 N. E. 2d 915 (1987). The court rejected the First Amendment
challenge to Local Law 63, relying heavily on the decisions in Roberts v. United States Jaycees, 468 U.S. 609
(1984), and Board of Directors of Rotary Int'l v. Rotary Club, 481 U.S. 537 (1987). It ruled that any infringement
on associational rights is amply justified by the city's compelling interest in eliminating discrimination against
women and minorities. In addition, the [487 U.S. 1, 8] Law employs the least restrictive means to achieve its
ends because it interferes with the policies and activities of private clubs only "to the extent necessary to
ensure
that they do not automatically exclude persons from membership or use of the facilities on account of
invidious
discrimination." 69 N. Y. 2d, at 223, 505 N. E. 2d, at 921. The court denied relief on the equal
protection claim
without discussing it.
The State Club Association appealed to this Court. We noted probable jurisdiction, 484 U.S. 812 (1987), and
we now affirm the judgment below, upholding Local Law 63 against appellant's facial attack on its
constitutionality.
II
The initial question in this case is whether appellant has standing to challenge the constitutionality of Local
Law
63 in this Court.2 We hold that it does.
Appellant is a nonprofit corporation, which essentially consists of a consortium of 125 other private clubs and
associations in the State of New York, many of which are located in [487 U.S. 1, 9] New York City. In Hunt v.
Washington Apple Advertising Comm'n, 432 U.S. 333, 343 (1977), we held that an association has standing
to
sue on behalf of its members "when (a) its members would otherwise have standing to sue in their own right;
(b)
the interests it seeks to protect are germane to the organization's purpose; and (c) neither the claim
asserted
nor the relief requested requires the participation of individual members in the lawsuit." See also
Automobile
Workers v. Brock, 477 U.S. 274 (1986). Appellees focus on the first part of this test; they read the
requirement
that the association's members "would otherwise have standing to sue in their own right" as
meaning that
appellant's member associations must have standing to sue only on behalf of themselves, and
not on behalf of
anyone else, such as their own individual members.
This reading of Hunt is incorrect. Under Hunt, an association has standing to sue on behalf of its members
when
those members would have standing to bring the same suit. It does not matter what specific analysis is
necessary to determine that the members could bring the same suit, for the purpose of the first part of the Hunt
test is simply to weed out plaintiffs who try to bring cases, which could not otherwise be brought, by
manufacturing allegations of standing that lack any real foundation. Here, however, the appellant consortium
has
standing to sue on behalf of its member associations as long as those associations would have standing
to
bring the same challenge to Local Law 63.3 In this regard, it is sufficient to note that appellant's member
associations would have standing to bring this same suit on behalf of their [487 U.S. 1, 10] own individual
members, since those individuals "are suffering immediate or threatened injury" to their associational rights as
a result of the Law's enactment. Warth v. Seldin, 422 U.S. 490, 511 (1975); see App. 10, 32, 34-35, 38.4 Thus
the case is properly before us.
III
New York City's Human Rights Law authorizes the city's Human Rights Commission or any aggrieved
individual
to initiate a complaint against any "place of public accommodation, resort or amusement" that is
alleged to
have discriminated in violation of the Law. N. Y. C. Admin. Code 8-109(1) (1986). The Commission
investigates the complaint and determines whether probable cause exists to find a violation. When probable
cause is found, the Commission may settle the matter by conciliatory measures, if possible; if the matter is not
settled, the Commission schedules a hearing in which the defending party may present evidence and answer
the charges against it. After the hearing is concluded, the Commission states its findings of fact and either
dismisses the complaint or issues a cease-and-desist order. 8-109(2). Any person aggrieved by an order of
the Commission [487 U.S. 1, 11] is entitled to seek judicial review of the order, and the Commission may seek
enforcement of its orders in judicial proceedings. 8-110.
None of these procedures has come into play in this case, however, for appellant brought this suit challenging
the constitutionality of the 1984 Law on its face before any enforcement proceedings were initiated against
any
of its member associations. Although such facial challenges are sometimes permissible and often have
been
entertained, especially when speech protected by the First Amendment is at stake, to prevail on a facial
attack
the plaintiff must demonstrate that the challenged law either "could never be applied in a valid manner"
or that
even though it may be validly applied to the plaintiff and others, it nevertheless is so broad that it "may
inhibit the
constitutionally protected speech of third parties." City Council of Los Angeles v. Taxpayers for
Vincent, 466
U.S. 789, 798 (1984). Properly understood, the latter kind of facial challenge is an exception to
ordinary
standing requirements, and is justified only by the recognition that free expression may be inhibited
almost as
easily by the potential or threatened use of power as by the actual exercise of that power. Thornhill v.
Alabama,
310 U.S. 88, 97-98 (1940). Both exceptions, however, are narrow ones: the first kind of facial
challenge will not
succeed unless the court finds that "every application of the statute created an impermissible
risk of
suppression of ideas," Taxpayers for Vincent, supra, at 798, n. 15, and the second kind of facial
challenge will
not succeed unless the statute is "substantially" overbroad, which requires the court to find "a
realistic danger
that the statute itself will significantly compromise recognized First Amendment protections of
parties not before
the Court." 466 U.S., at 801.
We are unpersuaded that appellant is entitled to make either one of these two distinct facial challenges.
Appellant conceded at oral argument, understandably we think, that the antidiscrimination provisions of the
Human Rights Law [487 U.S. 1, 12] certainly could be constitutionally applied at least to some of the large
clubs, under this Court's decisions in Rotary and Roberts. Tr. of Oral Arg. 11-12. The clubs that are covered
under the Law contain at least 400 members. They thus are comparable in size to the local chapters of the
Jaycees that we found not to be protected private associations in Roberts, and they are considerably larger
than many of the local clubs that were found to be unprotected in Rotary, some which included as few as 20
members. See Roberts, 468 U.S., at 621; Rotary, 481 U.S., at 546. Cf. Village of Belle Terre v. Boraas, 416
U.S. 1, 7-8 (1974). The clubs covered by Local Law 63 also provide "regular meal service" and receive
regular
payments "directly or indirectly from or on behalf of nonmembers for the furtherance of trade or
business." N. Y.
C. Admin. Code 8-102(9) (1986). The city found these two characteristics to be significant in
pinpointing
organizations which are "commercial" in nature, "where business deals are often made and
personal contacts
valuable for business purposes, employment and professional advancement are formed."
Local Law 63, 1,
App. 15.
These characteristics are at least as significant in defining the nonprivate nature of these associations,
because of the kind of role that strangers play in their ordinary existence, as is the regular participation of
strangers at meetings, which we emphasized in Roberts and Rotary. See Roberts, supra, at 621; Rotary,
supra,
at 547. It may well be that a considerable amount of private or intimate association occurs in such a
setting, as
is also true in many restaurants and other places of public accommodation, but that fact alone does
not afford
the entity as a whole any constitutional immunity to practice discrimination when the government has
barred it
from doing so. Hishon v. King & Spalding, 467 U.S. 69, 78 (1984). Although there may be clubs that
would be
entitled to constitutional protection despite the presence of these characteristics, surely it cannot be
said that
Local Law 63 is invalid on its face because it infringes the private associational rights of each and
every club
covered by it. [487 U.S. 1, 13]
The same may be said about the contention that the Law infringes upon every club member's right of
expressive association. The ability and the opportunity to combine with others to advance one's views is a
powerful practical means of ensuring the perpetuation of the freedoms the First Amendment has guaranteed
to
individuals as against the government. "Effective advocacy of both public and private points of view,
particularly
controversial ones, is undeniably enhanced by group association, as this Court has more than
once recognized
by remarking upon the close nexus between the freedoms of speech and assembly." NAACP v. Alabama ex
rel. Patterson, 357 U.S. 449, 460 (1958). This is not to say, however, that in every
setting in which individuals
exercise some discrimination in choosing associates, their selective process of inclusion and exclusion is
protected by the Constitution. Hishon, supra, at 78; Norwood v. Harrison, 413 U.S.
455, 470 (1973); Railway
Mail Assn. v. Corsi, 326 U.S. 88, 93-94 (1945).
On its face, Local Law 63 does not affect "in any significant way" the ability of individuals to form associations
that will advocate public or private viewpoints. Rotary, 481 U.S., at 548. It does not require the clubs "to
abandon or alter" any activities that are protected by the First Amendment. Ibid. If a club seeks to exclude
individuals who do not share the views that the club's members wish to promote, the Law erects no obstacle to
this end. Instead, the Law merely prevents an association from using race, sex, and the other specified
characteristics as shorthand measures in place of what the city considers to be more legitimate criteria for
determining membership. It is conceivable, of course, that an association might be able to show that it is
organized for specific expressive purposes and that it will not be able to advocate its desired viewpoints
nearly
as effectively if it cannot confine its membership to those who share the same sex, for example, or the
same
religion. In the case before us, however, it seems sensible enough to believe that many of the large
clubs
covered by the Law are not of this kind. We [487 U.S. 1, 14] could hardly hold otherwise on the record
before
us, which contains no specific evidence on the characteristics of any club covered by the Law.
The facial attack based on the claim that Local Law 63 is invalid in all of its applications must therefore fail.
Appellant insists, however, that there are some clubs within the reach of the Law that are "distinctively private"
and that the Law is therefore overbroad and invalid on its face. But as we have indicated, this kind of facial
challenge also falls short.
The overbreadth doctrine is "strong medicine" that is used "sparingly and only as a last resort." Broadrick v.
Oklahoma, 413 U.S. 601, 613 (1973). A law is constitutional unless it is "substantially overbroad." Id., at 615.
To succeed in its challenge, appellant must demonstrate from the text of Local Law 63 and from actual fact that
a substantial number of instances exist in which the Law cannot be applied constitutionally. Yet appellant has
not identified those clubs for whom the antidiscrimination provisions will impair their ability to associate
together or to advocate public or private viewpoints. No record was made in this respect, we are not informed
of the characteristics of any particular clubs, and hence we cannot conclude that the Law threatens to
undermine the associational or expressive purposes of any club, let alone a substantial number of them. We
therefore cannot conclude that the Law is substantially overbroad and must assume that "whatever
overbreadth
may exist should be cured through case-by-case analysis of the fact situations to which its
sanctions, assertedly, may not be applied." Id., at 615-616.5
Appellant claims, however, that the Law erects an "irrebuttable" presumption that the clubs covered under it
are
not [487 U.S. 1, 15] private in nature, and contends that its member associations will not be permitted to
raise
the constitutionality of the Law in individual administrative and judicial proceedings. Cf. Rotary, supra, at
547-548, n. 6. Even if this were a correct interpretation of what the Law says - and the decisions below at least
suggest the contrary view6 - it does not affect our analysis. Although the city's Human Rights Commission may
not be empowered to consider the constitutionality of the statute under which it operates, under accepted legal
principles it would be quite unusual if the Commission "could not construe its own statutory mandate in the light
of federal constitutional principles." Ohio Civil Rights Comm'n v. Dayton Christian Schools, 477 U.S. 619, 629
(1986). And even if this were also true, nothing in the Law purports to preclude judicial review of constitutional
claims that may be raised on appeal from the administrative enforcement proceedings. N. Y. C. Admin. Code
8-110 (1986); Dayton Christian Schools, supra, at 629. These opportunities for individual associations to
contest the constitutionality of the Law as it may be applied against them are adequate to assure that any
overbreadth under the Law will be curable through case-by-case analysis of specific facts.
IV
Appellant also contends that the exemption in Local Law 63 for benevolent and religious corporations, which
deems them to be "distinctly private" in nature, violates the Equal Protection Clause.7 Since, as just
discussed,
it has not been demonstrated that the Law affects "in any significant way" [487 U.S. 1, 16] the
fundamental
interests of any clubs covered by the Law, heightened scrutiny does not apply. See Lyng v.
Automobile
Workers, 485 U.S. 360, 365, 366 (1988); Rotary, 481 U.S., at 548. On this state of the record, the
equal
protection challenge must fail unless the city could not reasonably believe that the exempted
organizations are different in relevant respects from appellant's members.
As written, the legislative classification on its face is not manifestly without reasoned support. The City Council
explained that it limited the Law's coverage to large clubs and excluded smaller clubs, benevolent orders, and
religious corporations because the latter associations "have not been identified in testimony before the
Council
as places where business activity is prevalent." Local Law No. 63, 1, App. 15. This explanation
echoes the logic of the decision in New York ex rel. Bryant v. Zimmerman, 278 U.S. 63 (1928), which upheld a
New York law that exempted benevolent orders from having to file certain documents with the State that must
be filed by
most other corporations and associations. See N. Y. Civ. Rights Law 53 (McKinney 1976). The
Court rejected a
claim that the statute violated the Equal Protection Clause, finding on the evidence before it
that the legislative
distinction was justified because benevolent orders were judged not to pose the same
dangers as other groups
that were required to file the documents. Bryant, supra, at 73-77. In addition, New
York State law indicates that
benevolent orders and religious corporations are unique and thus that a rational
basis exists for their exemption
here. For well over a century, the State has extended special treatment in the law to these associations, and
each continues to be treated in a separate body of legislation. See N. Y. Ben. Ord. Law 1-14 (McKinney 1951
and Supp. 1988); N. Y. Relig. Corp. Law 1-437 (McKinney 1952 and Supp. 1988). It is plausible that these
associations differ in their practices and purposes from other private clubs that
are now covered under Local
Law 63. As the Appellate Division in this case pointed out, [487 U.S. 1, 17] the
benevolent orders are
organized under the relevant law "`solely for the benefit of [their] membership and their
beneficiaries,'" and thus
are not "public" organizations. 118 App. Div. 2d, at 394, 505 N. Y. S. 2d, at 154,
quoting N. Y. Ins. Law 4501(a)
(McKinney 1985). Similarly, religious organizations are "`created for religious purposes'" and are "patently not
engaged in commercial activity for the benefit of non-members." 118 App. Div. 2d, at 394-395, 505 N. Y. S. 2d,
at 154, quoting N. Y. Relig. Corp. Law 2 (McKinney 1952).
Appellant contends, however, that the benevolent and religious corporations exempted in the Law are in fact
no
different in nature from the other clubs and associations that are now made subject to the city's
antidiscrimination restrictions. Because the Equal Protection Clause "is essentially a direction that all persons
similarly situated should be treated alike," Cleburne v. Cleburne Living Center, Inc., 473 U.S. 432, 439 (1985),
appellant contends that the exemption violates the Clause.
In support of its argument, appellant observes that appellees offered no evidence to support the city's position
that benevolent and religious groups are actually different from other private associations. Legislative
classifications, however, are presumed to be constitutional, and the burden of showing a statute to be
unconstitutional is on the challenging party, not on the party defending the statute: "those challenging the
legislative judgment must convince the court that the legislative facts on which the classification is apparently
based could not reasonably be conceived to be true by the governmental decisionmaker." Vance v. Bradley,
440 U.S. 93, 111 (1979). In a case such as this, the plaintiff can carry this burden by submitting evidence to
show that the asserted grounds for the legislative classification lack any reasonable support in fact, but this
burden is nonetheless a considerable one. United States v. Carolene Products Co., 304 U.S. 144, 154
(1938).
[487 U.S. 1, 18]
The City Council's explanation for exempting benevolent orders and religious corporations from Local Law
63's
coverage reflects a view that these associations are different in kind, at least in the crucial respect of
whether
business activity is prevalent among them, from the associations on whose behalf appellant has
brought suit.
Appellant has the burden of showing that this view is erroneous and that the issue is not truly
debatable, a
burden that appellant has failed to carry. There is no evidence in the record to indicate that a
detailed
examination of the practices, purposes, and structures of benevolent orders and religious
corporations would
show them to be identical in this and other critical respects to the private clubs that are
covered under the city's antidiscrimination provisions. Without any such showing, appellant's facial attack on
the Law under the Equal
Protection Clause must founder.
We therefore affirm the judgment below.
So ordered.
Footnotes
[Footnote 1] The Human Rights Law (Local Law No. 97 of 1965) makes it "an unlawful discriminatory practice
for any person, being the owner, lessee, proprietor, manager, superintendent, agent or employee of any place
of public accommodation, resort or amusement, because of the race, creed, color, national origin or sex of any
person directly or indirectly, to refuse, withhold from or deny to such person any of the accommodations,
advantages, facilities or privileges thereof, or, directly or indirectly, to publish, circulate, issue, display, post or
mail any written or printed communication, notice or advertisement, to the effect that any of the
accommodations, advantages, facilities and privileges of any such place shall be refused, withheld from or
denied to any person on account of race, creed, color, national origin or sex or that the patronage or custom
thereat of any person belonging to or purporting to be of any particular race, creed, color, national origin, or
sex
is unwelcome, objectionable or not acceptable, desired or solicited." N. Y. C. Admin. Code 8-107(2)
(1986). The city has also extended the Law's coverage to discrimination against "an otherwise qualified
person who is
physically or mentally handicapped," 8-108, and to discrimination [487 U.S. 1, 5] against
"individuals because
of their actual or perceived sexual orientation," 8-108.1.
[Footnote 2] The state trial court found that appellant has standing to challenge the validity of the Law, and
neither of the other state courts addressed this issue on appeal. Nonetheless, an independent determination
of
the question of standing is necessary in this Court, for the special limitations that Article III of the Constitution
imposes on the jurisdiction of the federal courts are not binding on the state courts. See Pennell v. San Jose,
485 U.S. 1, 8 (1988). The States are thus left free as a matter of their own procedural law to determine
whether
their courts may issue advisory opinions or to determine matters that would not satisfy the more
stringent
requirement in the federal courts that an actual "case" or "controversy" be presented for resolution.
U.S. Const.,
Art. III, 2. Accordingly, this Court has dismissed cases on appeal from state courts when it
appeared that the
complaining party lacked standing to contest the law's validity in the federal courts. Tileston
v. Ullman, 318 U.S.
44 (1943) (per curiam); Braxton County Court v. West Virginia ex rel. Tax Comm'rs, 208
U.S. 192 (1908). And
the statement that "[b]y exercising their jurisdiction, state courts cannot determine the
jurisdiction to be
exercised by this Court," is perhaps all the more applicable to actions brought in state court
for declaratory
relief. Poe v. Ullman, 367 U.S. 497, 506 (1961) (plurality opinion).
[Footnote 3] Appellees' argument to the contrary, based on a footnote in the Rotary opinion, is unavailing. The
footnote states that Rotary International, "an association of thousands of local Rotary Clubs, can claim no
constitutionally protected right of private association." Board of Directors of Rotary Int'l v. Rotary Club, 481
U.S.
537, 545, n. 4 (1987). But there the larger association had brought suit in its own right against one of its
member clubs, and was not suing on behalf of any of its members, so the passage is inapposite to the
situation
here.
[Footnote 4] In light of the foregoing analysis, it is not necessary to consider also whether appellant consortium
would have standing to sue directly on behalf of its member associations because those associations
themselves are suffering some immediate or threatened injury from the Law. In addition, though appellees do
not contest either of the other two parts of the Hunt test, those requirements clearly are met in this case. Here
the associational interests that the consortium seeks to protect are germane to its purpose: appellant's
certificate of incorporation states that its purpose is "to promote the common business interests of its
[member
clubs]." App. 38. Moreover, appellant's facial challenge to the Law does not require the participation
of
individual members, since there is complete identity between the interests of the consortium and those of its
member associations with respect to the issues raised in this suit, and the necessary proof could be
presented
"in a group context." Hunt v. Washington Apple Advertising Comm'n, 432 U.S. 333, 344 (1977).
See also
Automobile Workers v. Brock, 477 U.S. 274, 287-288 (1986).
[Footnote 5] In making this case-by-case inquiry into the constitutionality of Local Law 63 as applied to
particular associations, it is relevant to note that the Court has recognized the State's "compelling interest" in
combating invidious discrimination. See, e. g., Rotary, 481 U.S., at 549.
[Footnote 6] In its opinion, the Court of Appeals suggested that the three criteria identified in Local Law 63 are
not exclusive but are to be considered in conjunction with other relevant characteristics. 69 N. Y. 2d, at 222,
505
N. E. 2d, at 920-921, citing United States Power Squadrons v. State Human Rights Appeal Bd., 59 N. Y.
2d
401, 412-413, 452 N. E. 2d 1199, 1204 (1983).
[Footnote 7] The Court of Appeals did not separately address the equal protection question other than by
affirming the decision of the Appellate Division.
JUSTICE O'CONNOR, with whom JUSTICE KENNEDY joins, concurring.
I agree with the Court's conclusion that the facial challenge to Local Law 63 must fail. I write separately only to
note that nothing in the Court's opinion in any way undermines or denigrates the importance of any
associational interests at stake.
The Court reaffirms the "power of States to pursue the profoundly important goal of ensuring nondiscriminatory
access to commercial opportunities in our society." Roberts v. United States Jaycees, 468 U.S. 609, 632
(1984) (O'CONNOR, J., concurring in part and concurring in judgment). But our cases also recognize an
"association's First Amendment right to control its membership," acknowledging, of course, that the strength of
any such right varies with the nature of the organization. Id., at 635. Balancing these two important interests
calls
for sensitive tools. As it has been interpreted, Local Law 63 is such a device. [487 U.S. 1, 19]
The Law identifies three factors to be used to determine whether a particular club is "distinctly private" for
purposes of applying the city's antidiscrimination laws. As the Court notes, however, ante, at 15, n. 6, the court
below has suggested that the factors identified in Local Law 63 are not exclusive, but are to be considered
along with other considerations such as "`size, purpose, policies, selectivity, congeniality, and other
characteristics.'" 69 N. Y. 2d 211, 222, 505 N. E. 2d 915, 920-921 (1987) (quoting Roberts, supra, at 620).
See
also United States Power Squadrons v. State Human Rights Appeal Bd., 59 N. Y. 2d 401, 412-413, 452
N. E.
2d 1199, 1204 (1983). An association or club thus is permitted to demonstrate that its particular
characteristics
qualify it for constitutional protection, despite the presence of the three factors specified in
Local Law 63.
University Club v. City of New York, 842 F.2d 37, 41 (CA2 1988) (noting that the three factors in
Local Law 63
are not "the only ones relevant to the constitutionality of applying the new definition to [a
particular club]").
Moreover, such organizations are provided with an adequate opportunity to raise any
constitutional claims in
the administrative proceedings through which Local Law 63 is applied. See ibid. See
also ante, at 15.
In a city as large and diverse as New York City, there surely will be organizations that fall within the potential
reach of Local Law 63 and yet are deserving of constitutional protection. For example, in such a large city a
club with over 400 members may still be relatively intimate in nature, so that a constitutional right to control
membership takes precedence. Similarly, there may well be organizations whose expressive purposes would
be substantially undermined if they were unable to confine their membership to those of the same sex, race,
religion, or ethnic background, or who share some other such common bond. The associational rights of such
organizations must be respected.
But as the Court points out, ante, at 11-12, 13-14, and indeed, as appellant conceded, Tr. of Oral Arg. 11-12,
the existence [487 U.S. 1, 20] of such protected clubs does not mean that Local Law 63 cannot be applied to
other clubs. Predominately commercial organizations are not entitled to claim a First Amendment
associational
or expressive right to be free from the anti-discrimination provisions triggered by the law.
Because Local Law
63 may be applied constitutionally to these organizations, I agree with the Court that it is
not invalid on its face.
JUSTICE SCALIA, concurring in part and concurring in the judgment.
I concur in the judgment of the Court, and join all except Part IV of its opinion. I note that Part III assumes for
purposes of its analysis, but does not hold, the existence of a constitutional right of private association for
other
than expressive or religious purposes.
With respect to the equal protection issue discussed in Part IV of the opinion, I do not believe that the mere
fact
that benevolent orders "are unique," ante, at 16, suffices to establish that a rational basis exists for their
exemption. As forgiving as the rational-basis test is, it does not go that far. There must at least be some
plausible connection between the respect in which they are unique and the purpose of the law.
It is true, as appellant urges, that under the New York State statute to which Local Law 63 technically refers, no
characteristic must be possessed in order to qualify as a "benevolent order" except the characteristic of being
listed by the legislature in 2.* See N. Y. Ben. Ord. Law 2 [487 U.S. 1, 21] (McKinney 1951 and Supp. 1988). In
fact, however, all the organizations that have been listed - or at least all I am familiar with - share the
characteristic of being what might be called lodges or fraternal organizations. They include, for example, the
American Legion, the Jewish War Veterans of the United States, the Catholic War Veterans, the Disabled
American Veterans, AMVETS, the Veterans of Foreign Wars, various orders of Masons, the Independent
Order of Odd Fellows, the Loyal Order of Moose, the Knights of Columbus, the Improved Benevolent and
Protective Order of Elks of the World, the Nobles of the Mystic Shrine, the Ancient Order of Hibernians, and
the
Knights of Malta. When the City Council stated that it had heard no testimony that "benevolent orders" were
"places where business activity is prevalent," Local Law No. 63, 1, App. 15, I think it meant by "benevolent
orders" organizations of that sort. While the fit between lodge and fraternal type organizations and the present
or future content of 2 of the New York State law may not be perfect, we do not require that for ordinary equal
protection analysis. See, e. g., Vance v. Bradley, 440 U.S. 93, 108 (1979). I am content that it was rational to
refer to that law as a means of identifying a category composed almost entirely of such associations; and that
it
was rational to think that such organizations did not significantly contribute to the problem the City Council
was
addressing. A lodge is not likely to be a club where men dine with clients and conduct business. Appellant
introduced no evidence to the contrary.
[Footnote *] The Court, ante, at 17, relies upon the Appellate Division's statement that benevolent orders are
organized "`"solely for the benefit of [their] membership and their beneficiaries."'" If I thought this to be an
interpretation of New York law, I would honor it. In fact, however, it seems plain to me that the Appellate
Division
was not interpreting one section but misciting another. The language is quoted (with appropriate
citation) from a
provision of New York law dealing not with benevolent orders but with "fraternal benefit
societies." N. Y. Ins. Law
4501(a) (McKinney [487 U.S. 1, 21] 1985). The two are quite different, although an
organization can qualify as
both. See 4501, 4502. In any event, even if benevolent orders were required to possess the characteristic of
being "solely for the benefit of [their] membership and of their beneficiaries," that
would not distinguish them
from appellant's organizations. All of the clubs covered by Local Law 63 seemingly
meet that description, since
it establishes an exception to the "distinctly private" exemption of the New York
City Human Rights Law (Local
Law No. 97 of 1965), N. Y. C. Admin. Code 8-107(2) (1986). [487 U.S. 1, 22]
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