375 U.S.

136
84 S.Ct. 235
11 L.Ed.2d 208

Israel DRESNER et al., Petitioners,

v.
CITY OF TALLAHASSEE, FLORIDA.
No. 35.
Argued Oct. 23, 1963.
Decided Dec. 2, 1963.

Howard Dixon, Miami, Fla., and Carl Rachlin, New York City, for
petitioners.
Edward J. Hill and Roy T. Rhodes, Tallahassee, Fla., for respondent.
PER CURIAM.

Considering that there are questions of Florida law answers to which are
necessary to enable this Court to determine its jurisdiction over this cause, and
with respect to which there appear to be no precise controlling precedents in the
decisions of the Supreme Court of Florida, this Court desires to certify to the
Supreme Court of Florida, pursuant to Rule 4.61 of the Florida Appellate Rules,
31 F.S.A., the questions stated hereafter.

The petitioners have been tried and convicted in the Municipal Court of
Tallahassee for unlawful assembly, under a municipal ordinance which
incorporates by reference the state unlawful assembly statute.1 The convictions
were affirmed in the Circuit Court of the Second Judicial District, Leon County,
Florida.2 The unreported opinion of that court, a copy of which, taken from the
record, is attached to this certificate as an Appendix, contains a statement of the
facts on which the convictions rested. The petitioners sought certiorari in this
Court, which the City of Tallahassee opposed on the ground, inter alia, that the
judgment of the Circuit Court was not 'rendered by the highest court of a State
in which a decision could be had,' as required by 28 U.S.C. 1257. This Court
granted certiorari, 372 U.S. 963, 83 S.Ct. 1087, 10 L.Ed.2d 128, and
subsequently directed counsel to file briefs on the jurisdictional issue, which

counsel have done.

3

The questions which this Court desires to certify are:

1. On a timely petition for writ of certiorari or other process, does the Florida
District Court of Appeal or any other court of Florida have jurisdiction to
review a judgment of the Circuit Court affirming a conviction in the Municipal
Court of a violation of a municipal ordinance which incorporates a state statute
by reference, where the questions presented for review concern the federal
constitutionality of the ordinance on its face and as applied?

2. If the District Court of Appeal or any other court of Florida does have such
jurisdiction and had granted review in this case by way of a writ of certiorari or
other process, would it have been empowered to consider fully each of the
following contentions, all indisputably properly preserved:

(a) 'Petitioners were peaceable and orderly at all times; hence, there was no
evidence whatsoever to support the convictions below for unlawful assembly,
and therefore Petitioners have been denied due process of law under the
Fourteenth Amendment';

(b) 'The convictions constituted a violation of Petitioners' rights of freedom of

speech and freedom of assembly as guaranteed by the Fourteenth Amendment';
(c) 'The arrests and convictions herein constituted an undue burden on interstate
commerce in violation of the interstate commerce clause of the Federal
Constitution';

(d) 'The arrests and convictions herein constituted a denial of the equal
protection of the laws guaranteed by the Fourteenth Amendment'?

If not, in what respects would the scope of review have been limited?

10

The Clerk of this Court is directed to transmit this certificate, signed by The
Chief Justice and under the official seal of the Court, to the Supreme Court of
Florida, and simultaneously to transmit copies thereof to the attorneys for the
respective parties.

APPENDIX.
11
12

OPINION OF THE CIRCUIT COURT OF THE SECOND JUDICIAL

CIRCUIT, LEON COUNTY, FLORIDA. *

Order Affirming Judgments.
13
14

This is an appeal from convictions in the Municipal Court of the City of

Tallahassee, Florida of the ten appellants named in the caption who were
charged with unlawful assembly. A fine was assessed against each of them with
an alternative jail sentence.

15

The formal charge is in a single count naming the ten appellants and three
others1 as defendants and alleges an unlawful assembly on June 16, 1961 'in
that, they being more than three (3) persons, met together to commit a breach
of the peace, acting together and concertedly to occupy and continuously
occupy certain chairs and seating facilities in the Tallahassee Municipal
Airport, making and cancelling group airline reservations on the two (2)
operating airline schedules departing Tallahassee on said date, and on June 15,
1961, and meeting together in concert attendant with circumstances calculated
to excite alarm, endanger the public peace and excite fear, and in such nature as
to inspire well-grounded fear in persons of reasonable courage, of riot, or other
breaches of public peace, and while so unlawfully assembled' were commanded
by a police officer of the city, after identifying himself as such, to immediately
and peaceably disperse, and they refused or neglected to do so.

16

The appellants contend that the judgments pursuant to convictions violate their
rights guaranteed by the Florida and United States Constitutions in that they
have been denied the equal protection of the laws and have been deprived of
liberty or property with ut due process of law. They contend that the state
statute, Chap. 61237, Laws of 1961, (F.S. 870.04, F.S.A.), (which, by
reference adoption in a municipal ordinance,2 is made an ordinance of the City
of Tallahassee) is unconstitutional and void, either on its face or as it has been
applied to the appellants in this case.

17

The pertinent portions of the statute, adopted as an ordinance, are:

18

'If any number of persons * * * are unlawfully, riotously or tumultuously

assembled in any * * * city or municipality * * * any * * * police officer of said
city or municipality * * * shall go among the persons so assembled * * * and
shall in the name of the state command all the persons so assembled
immediately and peaceably to disperse; and if such persons do not thereupon
immediately and peaceably disperse, said (officer) shall command the
assistance of all persons in seizing, arresting and securing such persons in

custody; and if any person present * * * when required by such (officer) to

depart from the place, refuses or neglects to do so, he shall be deemed one of
the * * * persons unlawfully assembled, and may be prosecuted and punished
accordingly.'
19

The facts in the case are not in dispute and squarely present the question as to
whether or not the conduct of the appellants was an exercise by them of rights
they hold under state and federal constitutional provisions, which would
preclude their prosecution, conviction and sentence for unlawful assembly in
the trial court.

20

The appellants are clergymen, two being rabbis and the others being ordained
ministers of several Protestant denominations. They are residents of New
Jersey, New York, Massachusetts or Connecticut. Some of them are of the
white race and some are negroes. About June 12 or 13, 1961 they, together with
eight other clergymen from the same general area, departed from Washington,
D.C. by interstate common carrier bus for a so-called 'Freedom Ride' into
Virginia, the Carolinas, Georgia, and Florida. The bus ride terminated in
Tallahassee June 15, 1961. The 'Freedom Riders' left their buses at the
Greyhound bus terminal there and went into the terminal lunch room to obtain
food which was served them.

21

This trip was sponsored and at least partially financed by an organization

known as CORE (Congress on Racial Equality) which has been aggressive in
promoting racial integration and desegregation. The trip was well publicized,
having been given wide coverage in all news media including radio and
television. The time and place of arrival in Tallahassee was heralded and well
known.

22

The purposes of the 'Freedom Ride', as stated by appellant Collier, who was the
spokesman for the group, were two-fold: (1) To ascertain whether or not there
were facilities available on an integrated basis to interstate passengers in
waiting rooms, in rest rooms, in eating facilities in the terminals through which
they would pass; and (2) To bear witness as ministers, rabbis and clergymen to
the struggle to obtain those rights 'guaranteed us by the Constitution.'

23

Shortly prior to the time the buses bearing the 'Freedom Riders' were scheduled
to arrive at about noon on June 15, there had gathered in the vicinity of the bus
station a number of persons and groups of persons. Law enforcement officers,
including city police, had been dispatched to the area to prevent any
disturbance. It was suspected that resentment against the 'Freedom Riders'

might result in some attempts at violence toward them or precipitate other

disorders. When the buses arrived, law enforcement personnel moved in any
gave protection to the passengers as they left the bus and entered the lunch
room in the terminal. Apparently they were served in the lunchroom under
circumstances and pol cies satisfactory to them.
24

In approximately an hour after arrival at the bus terminal the eighteen 'Freedom
Riders' proceeded to the Tallahassee Municipal Airport ostensibly for the
purpose of boarding a 3:25 P.M. Eastern Air Lines plane for passage to
Washington, Newark, or New York. They were transported to the airport in
private cars presumably furnished by local sympathizers with their objectives.

25

Upon arrival at the airport they found that the restaurant there had been closed.
When the time approached for arrival of the 3:25 plane the ten appellants
cancelled the reservation they had previously made for the flight. The other
eight boarded the plane when it arrived and departed for their destinations in
the East.

26

At that time, the airport arrangement provided separate waiting rooms, or areas,
for white and negro; also separate rest rooms; and separate areas for serving
food, the white area being a glassedin place and the negro consisting of a
counter with several stools. However, as mentioned before, the eating service
had been discontinued by the closing of the restaurant facilities. A sandwich
vending machine was in the lobby, but the prices on same had been marked up
from previous prices.

27

The appellants stayed together in a more or less compact group in the lobby
area most of the time and no attempt was made to enforce separation of the
races in the waiting room. Rest rooms were used by them without observing the
designation of the segregated facilities.

28

After cancelling their reservations for the 3:25 P.M. flight they sought and
ultimately obtained reservations for a flight the next morning at 8:25 on an
E.A.L. plane. They remained in the airport until about 11:00 P.M. that evening
for the purpose of observing if the restaurant would open and service be
granted to them. The restaurant remained closed.

29

Law enforcement officers, including city police, were detailed to keep order.
The activities and objectives of the appellants had been the subject of news
reporting and groups of people were seen to be gathering or attempting to
gather in the vicinity of the airport. There were critical and hostile comments

made about the appellants. The police turned away some of those gathering
when it was apparent such persons had no airport business or interest. Persons
were even screened at the entrance and turned away by officers if they had no
business to transact at the airport.
30

The chief of police advised the appellants that the airport terminal would close
for the night at approximately 11:45 P.M. and a spokesman for appellants
requested protection as they moved from the airport into the city and also on
the return to the airport the next morning. Such protection by escort of law
enforcement officers was provided.

31

The appellants thus left the airport at about 11:00 P.M. on the 15th to return the
next morning prior to the scheduled departure at 8:25 A.M. of the plane on
which they had obtained reservations. They were given escort security
protection on both the occasions of leaving and returning to the terminal.

32

The restaurant was also closed on the morning of June 16. At 8:15 A.M. all ten
of the appellants cancelled their reservations for the 8:25 flight and remained in
the waiting room after that flight had departed. At 8:20 A.M. they sought, and
ultimately obtained, reservations on a National Airlines flight scheduled to
depart at 1:47 P.M. that day, but cancelled just prior to noon.

33

During these periods there continued to be movements and gatherings of groups

of people in cars and there was a hostility and open resentment against the
conduct and attitudes of the appellants. A considerable number of police,
sheriff's deputies and highway patrolmen had been detailed to prevent disorder.
City, county and state officials, including the Governor, were apprehensive and
moved to provide necessary law enforcement personnel to preserve order.

34

At about 12:15 P.M., Mr. James Messer, Jr., city attorney of Tallahassee and a
specia police officer of the city, after conferring with the mayor and chief of
police of the city, approached the appellants who were together and inquired if
there was a leader of the group. Appellant Collier arose and identified himself
and assumed to act as spokesman. Mr. Messer identified himself and his official
positions, exhibiting his police badge. Others in the group gathered around Mr.
Messer and Rev. Collier and Mr. Messer read to them a proclamation. He stated
that the assembly of the appellants at the Municipal Airport of Tallahassee will
tend to create a disturbance or incite a riot or disorderly conduct within the City
of Tallahassee at its Municipal Airport over which the city had jurisdiction. He
mentioned incidents of the previous night and fears of more unrest. He then
commanded them in the name of the state and city to immediately and

peaceably disperse, and explained that such meant from the airport property. He
then added that failure to so disperse would result in arrest for unlawful
assembly. Collier asserted that they were interstate passengers, to which Messer
replied that he did not consider them to be bona fide passengers in view of their
reservation cancellations.
35

Several local sympathizers with the appellants dispersed, but appellants failed
to do so. After about 1 1/2 minutes, Mr. Messer turned to the Chief of Police
and remarked 'Chief, you can carry out your orders.' The appellants were
arrested and taken into custody.

36

The appellants take the view that the segregation practices with regard to
waiting rooms, rest room facilities, and restaurant or eating facilities at the
airport were violative of constitutional guarantees of equal protection of the
law. They would also inject into the case the installation of sandwich and
cigarette machines, at or just prior to their arrival, which inflated the prices of
merchandise vended to double what it had been. The closing of the restaurant
on the day of their arrival and its opening shortly after their departure is viewed
as an important factor.

37

These facts are, in the view of this Court, not at all significant in the legal
problems involved in the charge against the appellants and the disposition of
such charge by the trial court.

38

The municipality of Tallahassee operates in a proprietary capacity and in a

governmental capacity. Among its proprietary functions is the ownership and
operation of a municipal airport and supervision over the concessions there.
Assuming, but not deciding, that its policies of segregation of the races in its
facilities are unlawful and did constitute a violation of some duty to the
appellants if enforced against them, and further assuming, without deciding,
that the closing of the restaurant under the circumstances violated some duty to
them, do such circumstances justify a concerted protest demonstration by
appellants of their views and convictions over a protracted period of time
during which tensions and tempers rise in the community which threaten to
erupt into disorder and thus render the city, in its governmental capacity,
powerless to terminate the demonstration in the exercise of its police power?

39

Stated another way, may not a lawful assembly for the purpose of protesting
and demonstrating opposition to a course of policy practiced by the
municipality become an unlawful assembly when pursued to unreasonable
lengths imposing unreasonable burdens on others, after the lawful objectives of

the demonstration had been fairly accomplished?

40

It is fundamental that our constitutions accord to the citizen of the United

States the right of freedom of speech and of assembly and to peaceably petition
for a redress of grievances. Such freedoms are jealously guarded and when
exercised in good faith and in good order may not be lawfully, interfered with
by governmental action. However, it is not a license to take into one's own
hands the enforcement of law or by excessive harassment, effect coercion and
acceptance of one's convictions and interpre ations of legal rights by
governmental entities whose policies are in conflict. Such procedures wholly
ignore the very machinery provided by the constitutions and laws of the nation
and state for the declaring, securing and enforcement of constitutional and other
legal rights. It is the courts, both state and federal, to whom resort is readily
available for citizens to seek recognition and enforcement of legal rights and
immunities. That such courts may not move as swiftly as the individual would
wish does not authorize pursuit of personal means which unnecessarily create or
threaten public disturbance or disorder, or which sustaintially interfere with
normal, orderly functions of a public facility.

41

Such a procedure is a form of anarchy which, if it becomes an accepted

practice, can have only the effect of seriously weakening orderly government.

42

The appellants, prior to the reading of the riot act to them, had achieved their
announced objectives. They had observed both at the bus station and the airport
the integration or lack of it of the waiting room, rest room and restaurant
facilities. They had very effectively borne witness as clergymen and otherwise
of their sympathy with the struggle to obtain desegregation of the various
facilities of interstate travel.

43

To accommodate and facilitate those legitimate objectives the law enforcement

agencies of city, county and state had given protection against potential
violence or other disorder from groups or individuals who resented the
activities of the appellants. This protection was afforded at the bus station, at
the airport on the afternoon of June 15, on the evening of June 15 when the
appellants left the airport to come into town and on the following morning
when they returned to the airport purportedly to take an early plane. However,
instead of using the reservations they had otained they made a cancellation.
This was thrice they had made last minute cancellations of reservations for the
sole reason that they wished to eat in the restaurant, which was closed. In the
meantime their conduct and persistence was arousing increased resentment and
anger in the community with threats of violence and disorder toward the
appellants.

44

Obviously, the conduct of appellants had revealed a pattern. They would make
reservations for travel, wait in the lobby until just before the plane they were
scheduled to take arrived and then cancel, make reservations on a later flight
and then again cancel at the last minute, at all times remaining in the airport but
never taking a plane. The effect is obvious. The seats and other facilities are
occupied by them and their use denied to those who actually wished to travel.
The use of rest rooms and wash rooms by them partakes more of lodging than a
comfort feature for those whose sole purpose is some airport business. The
reservation of space and last minute cancellations prevented the use of that
space of the flights involved, resulting in loss and inconvenience to the air line
involved and probable denial to other would-be travelers of the use of that
space. The sole purpose of such a course of harassment was to goad the
municipality and its restaurant lessee to open the restaurant and gratify the
appellants' wishes that they be served in the style and manner they deemed to
be their right.

45

Controversies between citizens and governmental units are not unique. In

nearly every instance there is a conflict in what the citizen contends he has a
right to claim and the governmental entity which would deny the validity of
such claim. The citizen may freely express his views and seek to cultivate
converts to them with a view of bringing moral or political pressures on the
officers of the public body to accord his demands. However, such means must
be exercised in a manner that is reasonable and not harmful to the rights of
others or the peace and good order of the community. Especially is this true
when the controversy is one of public interest in which there are strong a d
emotional feelings on the part of a substantial number of persons in the
community.

46

The courts, both state and federal, are open to resolve controversies on
constitutional issues in duly instituted and processed civil actions. Indeed, the
very issue in the demonstrations of the appellants was subsequently presented
to and adjudicated by the United States District Court for the Northern District
of Florida. Brooks, et al. v. Tallahassee, D.C., 202 F.Supp. 56. When citizens
press their demonstrations in behalf of a cause (however worthy they deem
their objectives to be) beyond the bounds of fully and effectively delivering
their message and reach the stage that they materially and harmfully interfere
with the orderly business and lawful activities of others who are acting in
public or private capacities, then the conduct is disorderly and assembly for
carrying it out is unlawful. Such was the case here.

47

The judgments appealed from are hereby affirmed.

48

49
1

Affirmed.
BEN C. WILLIS, Circuit Judge.

Section 2338 of the Tallahassee Code, which provides that it shall be

unlawful for any person to commit an act which is or shall be recognized by the
laws of the State as a misdemeanor.
Chapter 61237, Laws of 1961, Florida Statutes 870.04, F.S.A., provides:
'If any number of persons, whether armed or not, are unlawfully, riotously or
tumultuously assembled in any county, city or municipality, the sheriff or his
deputies, or any constable or justice of the peace of the county, or the mayor, or
any commissioner, councilman, alderman or police officer of the said city or
municipality, or any officer or member of the florida (sic) highway patrol, shall
go among the persons so assembled, or as near to them as may be with safety,
and shall in the name of the state command all the persons so assembled
immediately and peaceably to disperse; and if such persons do not thereupon
immediately and peaceably disperse, said officers shall command the assistance
of all persons in seizing, arresting and securing such persons in custody; and if
any person present being so commanded to aid and assist in seizing and
securing such rioter or persons so unlawfuly assembled, or in suppressing such
riot or unlawful assembly, refuses or neglects to obey such command, or, when
required by such officers to depart from the place, refuses and neglects to do so,
he shall be deemed one of the rioters or persons unlawfully assembled, and may
be prosecuted and punished accordingly.'
The State refers in its brief to a Tallahassee ordinance specifically prohibiting
unlawful assembly, which is also included in the record by stipulation of the
parties. This ordinance is similar in substance to the state statute quoted above.
However, all parties seemingly have proceeded on the premise that the
petitioners were charged and convicted only under the general ordinance which
incorporated the state statute. The Circuit Court plainly decided the case on that
basis. See Appendix, p. 237.

The petitioners appealed their convictions directly to the Supreme Court of

Florida. The Supreme Court ruled that it lacked jurisdiction and ordered the
appeal transferred to the Circuit Court. Fla., 134 So.2d 228.
After the convictions were affirmed in the Circuit Court and prior to the filing
of a petition for certiorari in this Court, the petitioners attempted to file, and

subsequently withdrew, a petition for certiorari in the District Court of Appeal.

*

Entered August 16, 1962. (Footnote supplied.)

Of these three one was acquitted and the other two were granted a nolle
prosequi. (Original footnotes renumbered.)

Sec. 2338, Tallahassee Code, provides that it shall be unlawful for any
person to commit any act which is or shall be recognized by the laws of the
state as a misdemeanor. The penalty is a maximum fine of $500.00 or 60 days
imprisonment or both.