keller state bar california argued february decided june respondent state bar california state bar integrated bar association attorneys membership dues required condition practicing law created state law regulate state legal profession fulfilling broad statutory mission promote improvement administration justice bar uses membership dues functions formulating rules professional conduct disciplining members misconduct also uses dues lobby legislature governmental agencies file amicus curiae briefs pending cases hold annual delegates conference debate current issues approval resolutions engage educational programs petitioners state bar members brought suit state claiming latter activities bar expends mandatory dues payments advance political ideological causes subscribe violation first fourteenth amendment rights freedom speech association requested inter alia injunction restraining bar using mandatory dues name advance political ideological causes beliefs granted summary judgment bar grounds governmental agency therefore permitted first amendment engage challenged activities appeal reversed holding bar regulatory activities similar government agency functions akin activities labor union relying analysis abood detroit bd education prohibits dues dissenting nonunion employees used support political ideological union causes unrelated activities held bar activities financed mandatory dues particular action served state interest important enough overcome interference dissenters first amendment rights state reversed reasoning bar government agency use dues purpose within scope statutory authority subjecting bar activities first amendment scrutiny place extraordinary burden statutory mission exception certain election campaigning found challenged activities fell within bar statutory authority held state bar use petitioners compulsory dues finance political ideological activities petitioners disagree violates first amendment right free speech expenditures necessarily reasonably incurred purpose regulating legal profession improving quality legal services pp state determination state bar government agency purposes state law binding determination essential decision federal question state bar typical government agency bar principal funding comes dues levied members rather appropriations made legislature membership composed solely lawyers admitted practice state services way governance profession essentially advisory nature since ultimate responsibility governance reserved state law state contrast substantial analogy relationship bar members unions members appropriate employees receive benefit union negotiation employer pay fair share cost process paying dues entirely appropriate lawyers derive benefit status admitted practice courts called upon pay fair share cost professional involvement effort state bar created participate general government state provide specialized professional advice ultimate responsibility governing legal profession differences state bar traditional government agencies render unavailing respondents argument subject constitutional rule respect use compulsory dues labor unions pp abood distinguished ground compelled association context labor unions serves private economic interest collective bargaining bar serves substantial public interests fact legislative recognition arrangements serve vital national interests preserving industrial peace indicates serve substantial public interest well possible determine bar interests outweigh interests sufficiently produce different result guiding standard determining permissible bar expenditures relating political ideological activities whether challenged expenditures necessarily reasonably incurred purpose regulating legal profession improving quality legal services precisely line falls permissible impermissible activities always easy discern extreme ends spectrum clear compulsory dues may used endorse advance gun control nuclear weapons freeze initiative may spent activities connected disciplining bar members proposing profession ethical codes pp since bar already required submit detailed budgets state legislature obtaining approval set annual dues state assumption complying abood create extraordinary burden bar unpersuasive burden might result insufficient justify contravention constitutional mandate unions operated successfully within boundaries abood procedures decade integrated bar meet abood obligation adopting sort procedures described teachers hudson questions whether alternative procedures also satisfy obligation left consideration upon fully developed record pp petitioners freedom association claim based state bar use name advance political ideological causes beliefs addressed first instance rehnquist delivered opinion unanimous anthony caso argued cause petitioners briefs ronald zumbrun john findley seth hufstedler argued cause respondents brief robert thompson laurie zelon judith starr herbert rosenthal diane yu briefs amici curiae urging reversal filed ad hoc committee opposing lobbying certain activities mandatory bar james bierbower american civil liberties union steven shapiro john powell national right work legal defense foundation edwin vieira washington legal foundation et al daniel popeo paul kamenar john scully robert gibson herbert kraft trayton lathrop pro se joseph little pro se briefs amici curiae urging affirmance filed american bar association stanley chauvin carter phillips mark hopson american federation labor congress industrial organizations marsha berzon laurence gold beverly hills bar association et al ellis horvitz peter abrahams california legislature bion gregory lawyers committee administration justice james brosnahan state bar michigan et al michael franck michael karwoski state bar wisconsin et al john skilton barry richard stephen tober steven levine pro se filed brief amicus curiae chief justice rehnquist delivered opinion petitioners members respondent state bar california sued body claiming use membership dues finance certain ideological political activities opposed violated rights first amendment constitution california rejected challenge grounds state bar state agency may use dues purpose within broad statutory authority agree lawyers admitted practice state may required join pay dues state bar disagree scope permissible activities state bar may engage state bar organization created california law regulate state legal profession entity commonly referred integrated bar association attorneys membership dues required condition practicing law state respondent broad statutory mission promote improvement administration justice cal quoting cal bus code ann west supp association performs variety functions examining applicants admission formulating rules professional conduct disciplining members misconduct preventing unlawful practice law engaging study recommendation changes procedural law improvement administration justice cal internal quotation marks omitted respondent also engages number activities subject dispute case state bar many years lobbied legislature governmental agencies filed amicus curiae briefs pending cases held annual conference delegates issues current interest debated resolutions approved engaged variety education programs activities financed principally use membership dues petitioners members state bar sued state claiming activities respondent expends mandatory dues payments advance political ideological causes subscribe asserting compelled financial support activities violates first fourteenth amendment rights freedom speech association petitioners requested inter alia injunction restraining respondent using mandatory bar dues name state bar advance political ideological causes beliefs trial granted summary judgment respondent grounds governmental agency therefore permitted first amendment engage challenged activities california appeal reversed holding respondent regulatory activities similar government agency functions akin activities labor union held opinion abood detroit board education activities financed mandatory dues particular action question served state interest important enough overcome interference dissenters first amendment rights cal california reversed appeal divided vote reasoned respondent status public corporation well certain characteristics made government agency also expressed belief subjecting respondent activities first amendment scrutiny place extraordinary burden mission promote administration justice distinguished cases subjecting expenditures state bar associations first amendment scrutiny see gibson florida bar grounds none associations involved cases rested upon constitutional statutory structure comparable california state bar none involves extensive degree legislative involvement regulation cal concluded state bar considered government agency may use dues purpose within scope statutory authority exception certain election campaigning conducted respondent president found respondent challenged activities fell within statutory authority granted certiorari consider petitioners first amendment claims reverse remand proceedings lathrop donohue wisconsin lawyer claimed constitutionally compelled join financially support state bar association expressed opinions attempted influence legislation six members relying railway employes hanson rejected claim view case presents claim impingement upon freedom association different decided hanson held eleventh railway labor act face abridge protected rights association authorizing agreements interstate railroads unions employees conditioning employees continued employment payment union dues initiation fees assessments rejecting hanson claim abridgment rights freedom association said present record infringement impairment first amendment rights case lawyer state law required member integrated bar purport practice bulk state bar activities serve function least wisconsin might reasonably believe elevating educational ethical standards bar end improving quality legal service available people state without reference political process denied legitimate end state policy think wisconsin order state legitimate interests raising quality professional services may constitutionally require costs improving profession fashion shared subjects beneficiaries regulatory program lawyers even though organization created attain objective also engages legislative activity given character integrated bar shown record light limitation membership requirement compulsory payment reasonable annual dues unable find impingement upon protected rights association lathrop plurality opinion omitted lathrop plurality emphasized however limited scope question deciding lathrop compulsory enrollment imposes duty pay dues therefore confronted hanson question compelled financial support group activities involuntary membership aspect omitted indeed plurality expressly reserved judgment lathrop additional claim free speech rights violated wisconsin bar use mandatory dues support objectionable political activities believing record sufficiently developed address particular claim petitioners present claim decision contending use compulsory dues finance political ideological activities state bar disagree violates rights free speech guaranteed first amendment abood detroit board education confronted issue whether consistent first amendment dues nonunion public employees used support political ideological causes union unrelated activities held constitution prohibit union spending funds expression political views toward advancement ideological causes germane duties representative constitution require expenditures financed charges dues assessments paid employees object advancing ideas coerced threat loss governmental employment noted prohibitions making contributions organizations political purposes implicate fundamental first amendment concerns see buckley valeo compelled contributions political purposes works less infringement constitutional rights abood supra acknowledged thomas jefferson view compel man furnish contributions money propagation opinions disbelieves sinful tyrannical quoting brant james madison nationalist decision abood also predicated grounds public employee compelled relinquish first amendment rights condition public employment see later case ellis railway clerks made clear principles abood apply equally employees private sector see although several federal state courts applied abood analysis context first amendment challenges integrated bar associations see cal collecting cases california case held respondent status regulated state agency exempted constitutional constraints use dues bar considered governmental agency distinction revenue derived mandatory dues revenue sources immaterial governmental agency may use unrestricted revenue whether derived taxes dues fees tolls tuition donation sources purposes within authority respondent also urges position invoking government speech doctrine government must take substantive positions decide disputed issues govern long bases actions legitimate goals government may speak despite citizen disagreement content message government required brief respondents see also abood supra powell concurring judgment reason permitting government compel payment taxes spend money controversial projects government representative people course california final authority governmental status state bar california purposes state law determination respondent government agency therefore entitled treatment accorded governor mayor state tax commission instance binding us determination essential decision federal question state bar california good deal different entities regarded common parlance governmental agencies principal funding comes appropriations made legislature dues levied members board governors lawyers admitted practice state california members state bar lawyers admitted practice state must members respondent undoubtedly performs important valuable services state way governance profession services essentially advisory nature state bar admit anyone practice law finally disbar suspend anyone ultimately establish ethical codes conduct functions reserved california law state see cal bus code ann west admissions rules professional conduct cal bus code ann west supp disbarment suspension contrast substantial analogy relationship state bar members one hand relationship employee unions members reason behind legislative enactment laws prevent free riders receive benefit union negotiation employers choose join union pay dues avoiding fair share cost process benefit members state bar concededly benefit directly activities employees union negotiations management position organized bars generally prefer large measure regulation conducted government body little connection profession plan established california regulation profession recommendations admission practice disciplining lawyers codes conduct like made courts legislature organized bar entirely appropriate lawyers derive benefit unique status among admitted practice courts called upon pay fair share cost professional involvement effort specialized characteristics state bar california discussed served distinguish role typical government official agency government officials expected part democratic process represent espouse views majority constituents countless advocates outside government seeking influence policy ironic charged making governmental decisions free speak process every citizen right insist one paid public funds express view disagreed debate issues great concern public limited private sector process government know radically transformed cf lee tax system function denominations allowed challenge tax system tax payments spent manner violates religious belief state bar california created participate general government state provide specialized professional advice ultimate responsibility governing legal profession members officers citizens voters lawyers think differences state bar one hand traditional government agencies officials hand render unavailing respondent argument subject constitutional rule respect use compulsory dues labor unions representing public private employees respondent distinguish two situations grounds compelled association context labor unions serves private economic interest collective bargaining state bar serves substantial public interests legislative recognition arrangements serve vital national interests preserving industrial peace see ellis indicates arrangements serve substantial public interests well possessed scales enable us determine one outweighs sufficiently produce different result abood held union expend dissenting individual dues ideological activities germane purpose compelled association justified collective bargaining compelled association integrated bar justified state interest regulating legal profession improving quality legal services state bar may therefore constitutionally fund activities germane goals mandatory dues members may however manner fund activities ideological nature fall outside areas activity difficult question course define latter class activities construing railway labor act ellis supra held hen employees petitioners object burdened particular union expenditures test must whether challenged expenditures necessarily reasonably incurred purpose performing duties exclusive representative employees dealing employer issues standard objecting employees may compelled pay fair share direct costs negotiating administering contract settling grievances disputes also expenses activities undertakings normally reasonably employed implement effectuate duties union exclusive representative employees bargaining unit california decided activities complained petitioners within scope state bar statutory authority therefore permissible supported compulsory dues objecting members california quoted language relevant statute effect state bar authorized aid matters pertaining advancement science jurisprudence improvement administration justice cal simply putting language alongside previous discussion extent activities state bar may financed compulsory dues might suggest little difference two difference difference illustrated allegations petitioners complaint kinds state bar activities california decided may funded compulsory dues petitioners assert state bar engaged inter alia lobbying state legislation prohibiting state local agency employers requiring employees take polygraph tests prohibiting possession armorpiercing handgun ammunition creating unlimited right action sue anybody causing air pollution requesting congress refrain enacting program permitting importation workers countries petitioners complaint also alleges conference delegates funded sponsored state bar endorsed gun control initiative disapproved statements senatorial candidate regarding review victim bill rights endorsed nuclear weapons freeze initiative opposed federal legislation limiting jurisdiction abortions public school prayer busing see supra precisely line falls state bar activities officials members bar acting essentially professional advisers ultimately charged regulation legal profession one hand activities political ideological coloration reasonably related advancement goals always easy discern extreme ends spectrum clear compulsory dues may expended endorse advance gun control nuclear weapons freeze initiative end spectrum petitioners valid constitutional objection compulsory dues spent activities connected disciplining members bar proposing ethical codes profession declining apply abood decision activities state bar california noted entail extraordinary burden bar neither time money undertake ellis analysis accept risk litigation every time decides lobby bill brief case cal respect agree assessment justice kaufman concurring dissenting opinions ontrary majority assumption state bar perform ellis analysis prior instance seeks advise legislature courts views matter instead according teachers hudson constitutional requirements association collection fees include adequate explanation basis fee reasonably prompt opportunity challenge amount fee impartial decisionmaker escrow amounts reasonably dispute challenges pending id since bar already statutorily required submit detailed budgets legislature prior obtaining approval setting members annual dues bus code argument constitutionally mandated procedure create extraordinary burden bar unpersuasive procedure likely result additional administrative burden bar perhaps prove times somewhat inconvenient additional burden inconvenience hardly sufficient justify contravention constitutional mandate noteworthy unions representing government employees developed operated successfully within parameters abood procedures decade citations omitted addition claim relief based respondent use mandatory dues petitioners complaint also requested injunction prohibiting state bar using name advance political ideological causes beliefs see supra request relief appears implicate much broader freedom association claim issue lathrop petitioners challenge compelled financial support group activities see supra urge compelled associate organization engages political ideological activities beyond mandatory financial support justified principles lathrop abood california courts address claim decline first instance state courts remain free course consider issue remand judgment california reversed case remanded proceedings inconsistent opinion ordered footnotes particular activities challenged petitioners described complaint follows lobbying state legislation prohibiting state local agency employers requiring employees take polygraph tests prohibiting possession handgun ammunition creating unlimited right action sue anybody causing air pollution creating criminal sanctions violation laws pertaining display sale drug paraphernalia minors limiting right individualized education programs students need special education creating unlimited exclusion gift tax gifts pay education tuition medical care providing laws providing punishment life imprisonment without parole shall apply minors tried adults convicted murder special circumstance deleting requirement local government secure approval voters prior constructing housing projects requesting congress refrain enacting program permitting importation workers countries filing amicus curiae briefs cases involving constitutionality victim bill rights power workers compensation board discipline attorneys requirement officials disclose names clients disqualification law firm adoption resolutions conference delegates endorsing gun control initiative disapproving statements senatorial candidate regarding review victim bill rights endorsing nuclear weapons freeze initiative opposing federal legislation limiting jurisdiction abortions public school prayer busing app justice harlan reached claim decided lacked merit see lathrop donohue year complaint action filed approximately state bar general funding came membership dues balance made fees charged various bar activities state bar general funds support bulk activities exception state bar applicant admission functions miscellaneous activity state bar admission functions funded general revenues rather fees charged applicants taking bar examination app