The Minnesota Agricultural Society, a public corporation organized under Minnesota law, operates the annual State Fair on a 125-acre state-owned tract in St. Paul. The Fair lasts twelve days and is conducted to exhibit the agricultural, stock-breeding, horticultural, mining, mechanical, industrial, and other products and resources of the state. During the past five years before the litigation, average total attendance reached 1,320,000 persons, with weekday daily attendance averaging 115,000 and weekend attendance averaging 160,000.
Under statutory authority to make bylaws, ordinances, and rules for the government of the fair grounds, the Society promulgated Minnesota State Fair Rule 6.05. The rule provides that sale or distribution of any merchandise, including printed or written material, is a misdemeanor except under license issued by the Society and from a duly-licensed location. As construed and applied, the rule requires all persons, groups, or firms that desire to sell, exhibit, or distribute materials during the Fair to do so only from fixed locations on the fairgrounds, with space rented to all comers on a nondiscriminatory first-come, first-served basis according to size and location of the booth. The rule applies alike to nonprofit, charitable, and commercial enterprises, and more than 1,400 exhibitors and concessionaires rented space during the 1977 and 1978 Fairs.
Respondents International Society for Krishna Consciousness, Inc., an international religious society espousing the views of the Krishna religion, and Joseph Beca, head of the Minneapolis ISKCON temple, engage in the religious ritual of Sankirtan. This ritual enjoins members to go into public places to distribute or sell religious literature and to solicit donations for the support of the Krishna religion. One day prior to the opening of the 1977 Minnesota State Fair, respondents filed suit against numerous state officials seeking a declaration that Rule 6.05, both on its face and as applied, violated their First Amendment rights and seeking injunctive relief prohibiting enforcement of the rule against ISKCON and its members.
The trial court entered temporary orders to govern the conduct of the parties during the 1977 Fair. After that event concluded and following a hearing, the trial court granted the state officials' motion for summary judgment, upholding the constitutionality of Rule 6.05 while providing that respondents remained free to roam throughout areas of the fairgrounds generally open to the public for the purpose of discussing their religious beliefs with others. On appeal, the Minnesota Supreme Court reversed, holding that Rule 6.05 as applied to respondents unconstitutionally restricted the Krishnas' religious practice of Sankirtan. The United States Supreme Court granted the state officials' petition for a writ of certiorari.
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