Benham v. City of Charlotte

682 F. Supp. 2d 549, 2010 U.S. Dist. LEXIS 1342, 2010 WL 143719
CourtDistrict Court, W.D. North Carolina
DecidedJanuary 8, 2010
DocketNo. 3:07cv395
StatusPublished
Cited by2 cases

This text of 682 F. Supp. 2d 549 (Benham v. City of Charlotte) is published on Counsel Stack Legal Research, covering District Court, W.D. North Carolina primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Benham v. City of Charlotte, 682 F. Supp. 2d 549, 2010 U.S. Dist. LEXIS 1342, 2010 WL 143719 (W.D.N.C. 2010).

Opinion

[551]*551 MEMORANDUM AND ORDER

ROBERT J. CONRAD, JR., Chief Judge.

THIS MATTER is before the Court on Defendants’ Motion for Summary Judgment (Doc. Nos. 22 & 24), Plaintiffs’ Response (Doc. No. 25), and Defendants’ Reply (Doc. No. 30). For the reasons stated below, the Court GRANTS Defendants’ Motion for Summary Judgment.

I. FACTUAL FINDINGS

This case involves the City of Charlotte’s denial of a public assembly permit applied for by Rev. Philip Benham on behalf of Operation Save America, a non-profit corporation. In 2004, Charlotte amended portions of its Code dealing with picketing (Chapter 19, Article X) and public assemblies and parades (Chapter 19, Article XI). In doing so, Charlotte recognized its interest to protect the right of individuals to exercise First Amendment rights in traditional public forums, such as public sidewalks, streets, and parks. (Doc. No. 10-5: Response at Affidavit of Brenda Freeze, Exhibit A: Ordinance No. 2621). Charlotte further recognized its interest in “protecting the health, safety, and welfare of the general public and preserving public order” and in “maintaining the free flow of traffic on public streets and sidewalks, preserving access to public places and buildings and protecting property.” Id. Charlotte’s stated purpose in amending the Code was to further its governmental interests by imposing

... reasonable and constitutional regulations for the use of public streets, sidewalks, and parks during a picket, public assembly, or parade ... without regard to the purpose or content of the message, but to preserve the public peace and to avoid unreasonable conflicts with other legitimate use of such property.

Id.

As amended, the Code requires a permit for any public assembly. Charlotte City Code, Art. XI, § 19-312(a). A public assembly is defined as

(1) a festival or demonstration which is reasonably anticipated to obstruct the normal flow of traffic upon any public street and that is collected together in one place; and
(2) a festival on the Old City Hall lawn, the Charlotte-Mecklenburg Government Center Plaza, or in Marshall Park, Polk Park, Independence Square Plaza, Arequipa Park or any other city-controlled Park.

Charlotte City Code, Art. XI, § 19-311. A festival “means a concert, fair, exhibit, promotion, community event, block party, or similar event.” Id. A permit may be denied based on reasons detailed in § 19-312(c). If the permit official denies an application, that decision may be appealed to the appeals official, who must hold a hearing. Charlotte City Code, Art. XI, § 19 — 312(f). If the denial is upheld, the applicant may appeal to the Superior Court of Mecklenburg County. Id.

The Code does not require a permit for a picket, which is defined as

... a public display or demonstration of sentiment for or against a person or cause, including protesting which may include the distribution of leaflets or handbills, the display of signs and any oral communication or speech, which may involve an effort to persuade or influence, including all expressive and symbolic conduct, whether active or passive.

Charlotte City Code, Art. X, § 19-301. Picketing is allowed on public sidewalks and at city-controlled locations, such as [552]*552Independence Square Plaza. Charlotte City Code, Art. X, § 19-303. Picketers may not obstruct pedestrian or vehicular traffic and must comply with other city ordinances, such as the noise ordinance. Id.

On December 14, 2006, Sheryl Chandler submitted a public assembly application on behalf of Rev. Benham and Operation Save America. The application described the proposed event’s name as “Roe vs Wade Memorial” to be held on January 22, 2007, between 11:30 a.m. and 1 p.m., at “Trade and Tryon — in front of the bronze disc sculpture.”1 (Doc. No. 26: PI. Ex. 13). The application stated that the event would not involve the closure of streets, the sale of alcoholic beverages or food, the provision of portable toilets, or the charging of admission and vendor fees. Id. The event was described as “evangelical, gospel proclamation, praise + worship band, local Christian pastors speaking, post-abortive mothers give testimony, call to repentance” with one stage for musical entertainment. Id. Based on previous years’ attendance,2 it was estimated that 100 people would attend. Id.

On December 20, 2006, Permit Official Emily Westbrook notified Rev. Benham by letter that she could not accept and process his application. (Doc. No. 26: PL Ex. 14). She explained that the event was a demonstration and not a festival according to the City Code and that permits for demonstrations at Independence Square Plaza are not issued.3 Id. Instead, demonstrations at that location are covered by the picketing ordinance which does not require a permit. Id. Ms. Westbrook informed Rev. Benham that he was required to notify the police department if he expected 50 or more attendees and to obtain an amplified sound permit if he used amplification. Id.

On December 28, 2006, Rev. Benham appealed Ms. Westbrook’s decision to Appeals Official Keith Parker, who held a hearing on January 3, 2007. (Doc. No. 26: PL Ex. 15). Mr. Parker upheld the classification of the Roe vs Wade Memorial as a demonstration and not a festival. He reasoned that January 22 was the anniversary of the Supreme Court’s decision in Roe v. Wade‘4 and that the event would “primarily consist of individuals and groups taking turns speaking and singing regarding the subject of abortion.” Id. Thus he concluded:

[t]he Roe v. Wade Memorial would constitute a public demonstration or sentiment for or against a cause (i.e., the subject of abortion) and is, therefore, a “demonstration” within the meaning of the Public Assembly Ordinance and a “picket” within the meaning of the Picket Ordinance.

Id. He informed Rev. Benham that, subject to the regulations in the picketing ordinance, the event could be held at the [553]*553time and place proposed without a permit. Id.

Rev. Benham did not seek judicial review of Mr. Parker’s decision. Instead, the event was held on January 22, 2007, without a permit. Sgt. Oliver Cunningham of the Charlotte-Mecklenburg Police Department observed the entire event and noted no one involved with the event was arrested or cited for any violation of law, although two noise ordinance warnings were issued. (Doe. No. 25: PI. Ex. 11: Oliver Dep. at 18, 21). It appeared to Sgt. Cunningham that the event was conducted as planned, (Doc. No. 10-6: Response at Affidavit of Oliver Cunningham), and there is no evidence in the record that any speech or expressive conduct was inhibited by the lack of a public assembly permit.

On September 20, 2007, Plaintiffs filed the instant complaint pursuant to 42 U.S.C. § 1983 alleging that Defendants impeded, and continue to impede, their free speech and free exercise rights guaranteed by the United States and North Carolina Constitutions.5 (Doc. No. 1).

II.

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Related

Ross v. Early
758 F. Supp. 2d 313 (D. Maryland, 2011)
Benham v. CITY OF CHARLOTTE, NC
635 F.3d 129 (Fourth Circuit, 2011)

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Bluebook (online)
682 F. Supp. 2d 549, 2010 U.S. Dist. LEXIS 1342, 2010 WL 143719, Counsel Stack Legal Research, https://law.counselstack.com/opinion/benham-v-city-of-charlotte-ncwd-2010.