Mastrovincenzo v. City of New York, No. 04-2264 (Cabranes,
Korman (EDNY); Sack (dissenting in part)). This is an example of a panel dealing with
precedent it finds less-than-satisfactory. Plaintiffs sell clothing painted with graffiti. They sough to sell their clothing on the streets of New York. Such activity is governed by New York City’s General Vendors Law, which requires, among other things, that vendors obtain a license from the city. Plaintiffs tried to get a license, and were denied (there are over 8000 names on the waiting list for such licenses).
They sued, alleging that the licensing scheme violated their First Amendment rights
as artists and a permanent injunction in an earlier case, Bery v. City of New York.
In Bery, a group of artists selling paintings, photos and sculptures sought a preliminary injunction “prohibiting the enforcement against them of the . . . General Vendors Law . . . on the grounds that the application of the ordinance to their activities violate[d] their rights to freedom of expression and equal protection of the laws under the First and Fourteenth Amendments to the Constitution.” Bery, 906 F. Supp. 163, 165 (S.D.N.Y. 1995). The district court denied their motion for a preliminary injunction, but the Second Circuit Reversed. See Bery, 97 F.3d 689 (2d Cir. 1996). After finding the sale of artwork “expressive conduct”, the Bery Court applied the First Amendment doctrine that governs content-neutral “time, place, and manner” restrictions and held that the Bery plaintiffs could likely demonstrate that New York City’s licensing requirement was not “‘narrowly tailored to serve a significant governmental interest’” and did not “‘leave[ ] open ample alternative channels for communication.’” Id. at 697.
Following the Second Circuit’s decision in Bery, New York City consented to a permanent injunction (the “Bery injunction”) prohibiting it from “enforcing [N.Y.C.] Admin. Code § 20-453 against any person who hawks, peddles, sells, leases or offers to sell or lease, at retail, any paintings, photographs, prints and/or sculpture, either exclusively or in conjunction with newspapers, periodicals, books, pamphlets or other similar written matter, in a public space[.]”
In the instant case, the District Court held that as applied to plaintiffs, the licensing scheme violated their First Amendment rights and, alternatively, also violated the Bery injunction. The City appealed, and the Second Circuit reverses.
In the part of the majority opinion joined by Judge Sack (which appears to be technically dicta), the Court spends many paragraphs explaining that while Bery might have
said that the sale of “art” is automatically “expressive”, plaintiffs cannot obtain enhanced scrutiny of regulations on the sale of utilitarian items by trying to prove that those items are, in some sense of the word, “art”. Rather, the Court says, courts must determine whether the asserted expressive purpose is “dominant”. In this case, however, the Court holds that the graffiti-clothing of the plaintiffs does have a dominant expressive purpose.
In the part of the opinion from which Judge Sack dissents, the Court reverses the grant of a preliminary injunction by holding that as applied to these plaintiffs, the licensing requirement is narrowly tailored to advance a significant government interest and leaves open ample alternative channels
for communication. Addressing the tension between its decision and Bery,
the Court states that “[t]he types of wares at issue here, whose dominant purpose is not clearly expressive, present line-drawing questions markedly distinct from the more-easily-classified “paintings, photographs, prints and/or sculpture” at issue in Bery, and we are therefore persuaded that the ‘least
restrictive or least intrusive means of [achieving the stated governmental interest],’ . . . in this context is likely to be more burdensome than it would be with respect to the traditional art forms at issue in Bery.” The Court also reverses as to the Bery injunction,
holding, as a matter of contract-style interpretation, that graffiti-clothing was not encompassed by the word “painting” in the Bery injunction.
Judge Sack believes that the majority overstepped in concluding that the regulation survives intermediate scrutiny and in interpreting the Bery injunction as a matter of law. Judge Sack “see[s] nearly nothing in the record, and too little in the majority opinion, to convince me that the ordinance at issue here, as applied to these plaintiffs, is ‘reasonable’ as a matter of law.” In addition, Judge Sack would interpret the Bery injunction to cover plaintiff’s graffiti clothing.
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