A Statutory "Green Book" After 303 Creative

In 303 Creative, the Supreme Court held that at least in some circumstances a business's free speech interest in avoiding producing expression it disagrees with constitutionally must trump the application of anti-discrimination law in areas of public accommodation, notwithstanding the admittedly "compelling state interest" the latter type of law protects.

It was not so long ago that minorities in America had booklets they carried to let them know which businesses it was safe for them to patronize, knowing that in certain places and communities they could not simply assume that a hotel, restaurant, or shop open to the general public would be open to them. The Jewish Vacation Guide was one example, the Negro Motorist Green Book was another. In circumstances where discrimination was lawful, these resources served several important needs. 

First, of course, they let their readers know where certain services simply would be unavailable. One does not want to travel through or move into a town where the only hotel or restaurant will refuse to serve you. 

Second, and almost as importantly, they enabled readers to avoid shops which would refuse to grant them service. This is distinct from the first injury, because there is a severe dignitary harm in being refused service on account of one's identity even if a competing business across the street that will happily take one's dollars. One feature of public accommodations law is precisely that one doesn't have to "run the risk" that in entering a storefront on Main Street you'll endure the indignity of being asked to leave because you're the wrong skin color, religion, or sexual orientation. Absent that guarantee being fully enshrined into law, resources like the Green Book enabled travelers to know in advance which storefronts to avoid so they wouldn't have to face that sort of humiliation.

In keeping with that tradition, I wonder if one way of balancing 303 Creative's First Amendment protections with the again conceded-to-be-compelling interest in robust antidiscrimination protections is via the time-tested policy of disclosure. States can pass laws which require any business that wishes to claim a First Amendment exemption from all or part of an anti-discrimination statute to publicly announce and display that choice; and the state can likewise maintain a list of businesses which make such claims. The law would be a sort of statutory Green Book, letting patrons know what businesses are at least claiming an ability to discriminate (and by extension assuring them that businesses not on the list remain safe to patronize).

Here's my very rough crack at some model legislative language:

Sec. XXX -- Exemptions

(a) Registration. Any business which seeks to claim a First Amendment exemption from all or part of the [this state's anti-discrimination law] ("a business seeking an exemption") must, at least thirty days prior to asserting any claim for such an exemption,

(1) Register with the Secretary of State their intent to claim an exemption, including specifying which portions of the law they assert they will not comply with.

(2) The Secretary shall publish the names and addresses of all businesses who register their intent to claim an exemption under this subsection on a publicly available website, including which provisions of the law they claim exemption from. 

(b) Public display. Within thirty days of receiving a filing under Sec. (a)(1), the Secretary shall issue a notification to the business seeking an exemption stating that "WARNING: THIS BUSINESS HAS FILED FOR A FIRST AMENDMENT EXEMPTION FROM THIS STATE'S ANTI-DISCRIMINATION LAWS", including specifying which portions of the law the business claims exemption from. Unless otherwise inapplicable, the text of this notification shall be conspicuously displayed in

(1) The front window or doorway space of any physical location of the business that is open to the general public or the businesses' regular customers; and

(2) The front page of any webpage or social media account controlled by the businesses and through which it advertises its business to the general public;

(3) Notwithstanding any other portion of this subsection, if a business claiming an exemption has neither a physical storefront under subsection (b)(1) or a webpage under subsection (b)(2), the text of the notification shall be displayed in any reasonable location where it will be conspicuous for the average customer considering patronizing the business.

(c) Presumption of sincerity. Any business which complies with the provisions in this section shall be deemed to have established, as a rebuttable presumption, the sincerity of their belief that compliance with [this state's antidiscrimination laws] conflicts with their own expressive beliefs.

(d) No entitlement to, or expansion of the scope of, exemption. Except as detailed in subsection(c), compliance with the provisions of this Section shall not entitle the business seeking an exemption from antidiscrimination law to any relief from the requirements of antidiscrimination provisions beyond that which is constitutionally required under the First Amendment; nor does it immunize the business seeking an exemption from any public or private proceeding seeking to enforce anti-discrimination provisions that would not otherwise violate the First Amendment.

The basic idea of this provision is simple: if you want to claim a First Amendment right to discriminate, you have to claim it publicly, in advance, so that people who would be denied service can plan accordingly. By creating a master list of discriminators, and by requiring businesses who seek to assert a right to discriminate to prominently display their intent on their storefront, it is far less likely that customers who would end up being excluded will on accident patronize the business.

The law would have some other salutary effects as well. By creating a reasonably comprehensive list of businesses asserting a right to discriminate, the state can learn of the existence of any "dead zones" where members of certain marginalized groups may be severely restricted or entirely unable to obtain services -- data that could be very useful for future legislative action. As reflected in subsection (c), the law also I think would aid in dividing the actual true believers from the opportunists -- I assume that only those who really, truly believe in their discriminatory impulses will be willing to announce in advance to the world "I am a discriminator" (as the 303 Creative plaintiff, to her "credit", was willing to do).

What are some potential drawbacks? One possibility is that it will be assumed that a law like this will enable more businesses to discriminate than otherwise would be licensed to do so by 303 Creative; I wrote subsection(d) to try and forestall that risk. Under this statute, registering a claim for an exemption is just that -- a claim, and the claim does not guarantee success. A business that registered but whose activities were not protected under 303 Creative's umbrella would still be liable, notwithstanding their registration.

Another possible problem is the argument that a law like this itself constitutes compelled speech. On face, the requirement that the business post the "WARNING" placard in its store to me doesn't seem any different than requiring a restaurant to display the health inspection notice. But there might be something different here insofar as the broader thrust of the statute would be to force businesses to "go public" with their intention to discriminate. While there's something instinctively odd about claiming a free expression right to avoid expressing one's deeply-held beliefs, there are circumstances where such a claim makes sense -- NAACP v. Alabama is the obvious template here. Alabama in the 1950s sought to require that the NAACP disclose the names and addresses of its members; the NAACP, unsurprisingly, did not wish to make this information public and claimed a First Amendment right to keep their membership data private. The Supreme Court ruled in favor of the NAACP (incidentally, NAACP was perhaps unsurprisingly a key precedent relied upon by the Griswold Court regarding the existence of a right to privacy). The NAACP had obviously reasonable fears that disclosure of their membership would render them vulnerable to harassment and violence; the discriminating businesses might claim fears of a similar vulnerability.

NAACP is clearly distinct, however, for a simple reason: the NAACP did not simultaneously seek to keep its "expression" quiet and claim that its expressive activity entitled it to a governmental benefit  (I've always found the Little Sisters of the Poor style claim -- wanting an exemption, but also being outraged at being forced to actually ask for the exemption -- to be utterly ridiculous). With regards to its membership information, the NAACP truly wanted nothing more than to be "let alone"; there was never a circumstance where the organization would wield its membership data as a sword against the state. By contrast, by stipulation the discriminators do wish to go public regarding their beliefs when they tell the state "you can't enforce your anti-discrimination law against me because I believe X". At most, what they want is to be able to hide their beliefs until the last minute. But that's a far less pressing claim -- at some point, the business seeking the right to discriminate will have to go public with its claim, and so it does not seem unreasonable to insist that the pivotal moment occur before an unwitting customer is humiliated and denied service.

And on the subject of harassment: certainly, violence and vandalism are never justified. But often in this context, "harassment" means nothing more than a consumer counter-boycott -- the company refuses to do business with certain groups because of its beliefs; many other consumers decide accordingly that they will no longer patronize the business in protest of that discrimination (ex: the Jewish community members who no longer are purchasing from a Kosher bakery that decided it couldn't bake "pride" treats). That is not harassment, that's counter-speech. And in that register, I'd argue that under 303 Creative's logic enabling customers to know "this business asserts a right to discriminate" is free speech facilitative, not chilling.

One of the virtues of public accommodations law is that it dissipates, under normal circumstances, the inference that basic business transactions are expressive. I very much prefer a world where the bakery that bakes a cupcake for a client isn't seen as sending some sort of message of approval towards the client and the client that eats the baker's treat isn't sending a message of approval toward the baker (beyond "this cupcake is delicious"). That, to me, seems a far more pleasant space to live in than one where every turnip and widget we buy or sell can be taken as some sort of sweeping moral approval for our business partners.

But the Supreme Court did not agree. And once we open the door to saying that ordinary business transactions should be perceived as expressive, then customers as well as businesses have a strong interest in knowing the political and social views of who they're transacting with so they can assure themselves that values align, and can redirect their dollars where they do not. This is one reason I think a consequence of 303 Creative will be to supercharge "cancel culture" -- the more businesses are allowed to say "we don't serve your kind", the more customers must be allowed to say in return "well then we don't buy from your kind". The only thing worse than cancel culture is unidirectional cancel culture. If businesses can "cancel" customers for supporting gay rights, then customers should be equally empowered to cancel businesses for asserting a right to discriminate.

Again, the model language I've written above is rough. But I'm curious what First Amendment scholars and other interested parties think of the idea. We may have to tolerate certain businesses asserting a constitutionally-protected right to discriminate. But customers have rights too. One of those rights is to have confidence that one can walk into a storefront and be served as an equal. Another right is to be able to avoid patronizing businesses who insist they have a deeply held commitment to discriminating against you, your family, or your loved ones. This statute, it seems, can help bring these clashing interests into balance.