va st bd phar v. va cit con coun. inc. 425 u.s. 748, 96 s.ct. 1817

8/9/2019 VA St Bd Phar v. VA Cit Con Coun. Inc. 425 U.S. 748, 96 S.ct. 1817

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Citation Text: 96 S.Ct. 1817

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business law 2 double check 317 us. illionois, 63 st. 82, 1942 u.s lexix 1046 (1942)

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Supreme Court of the United StatesVIRGINIA STATE BOARD OF PHARMACY et

al., Appellants,

v.

VIRGINIA CITIZENS CONSUMER COUNCIL,

INC., et al.

No. 74-895.

Argued Nov. 11, 1975.

Decided May 24, 1976.

Consumers of prescription drugs brought suit

against the Virginia State Board of Pharmacy andits individual members, challenging the validity of

a Virginia statute declaring it unprofessional con-

duct for a licensed pharmacist to advertise the

prices of prescription drugs. A Three-Judge panel

of the United States District Court for the Eastern

District of Virginia, 373 F.Supp. 683, declared the

statute void and enjoined its enforcement. Board

appealed. The Supreme Court, Mr. Justice Black-

mun, held that the consumers had standing to assert

the First Amendment protection enjoyed by advert-

isers; that commercial speech was not wholly

outside the protection of the First and Fourteenth

Amendments; and that the statutory bans on advert-

ising prescription drug prices violated the First and

Fourteenth Amendments and could not be justified

on the basis of the state's interest in maintaining the

professionalism of its licensed pharmacists.

Affirmed.

Mr. Chief Justice Burger filed a concurring opinion.

Mr. Justice Stewart filed a concurring opinion.

Mr. Justice Rehnquist filed a dissenting opinion.

West Headnotes

[1] Constitutional Law 92 3851

92 Constitutional Law

92XXVII Due Process

92XXVII(A) In General

92k3848 Relationship to Other Constitu-

tional Provisions; Incorporation

92k3851 k. First Amendment. Most

Cited Cases

(Formerly 92k254.2, 92k274.1(1))

First Amendment is applicable to states through due

process clause of Fourteenth Amendment.

U.S.C.A.Const. Amends. 1, 14.



92VI Enforcement of Constitutional Provisions

92VI(A) Persons Entitled to Raise Constitu-

tional Questions; Standing

92VI(A)9 Freedom of Speech, Expres-

sion, and Press

92k855 k. In General. Most Cited

Cases

(Formerly 92k42.3(1))

Any First Amendment protection enjoyed by ad-

vertiser seeking to disseminate prescription drug

price information was also enjoyed and could be as-serted by consumers of prescription drugs.

U.S.C.A.Const. Amend. 1.



92XVIII Freedom of Speech, Expression, and

Press

92XVIII(A) In General

92XVIII(A)1 In General


Cases(Formerly 92k90(1))

Constitutional Law 92 1502



Press

96 S.Ct. 1817 Page 1

425 U.S. 748, 96 S.Ct. 1817, 48 L.Ed.2d 346, 1976-1 Trade Cases P 60,930, 1 Media L. Rep. 1930

(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

2010 Thomson Reuters. No Claim to Orig. US Gov. Works.
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92k1502 k. Receipt of Information or

Ideas; Listeners' Rights. Most Cited Cases

(Formerly 92k90(1))

Freedom of speech presupposes willing speaker,

but where speaker exists, protection afforded is to

communication, both to its source and to its recipi-

ents. U.S.C.A.Const. Amend. 1.




Press





(Formerly 92k90(3))

Freedom of speech may not be abridged on ground

that speaker's listeners could come by his message

by some other means, such as by seeking him out

and asking him what it is, nor is there any such lim-

itation on independent right of listener to receive

information sought to be communicated.





Press

92XVIII(E) Advertising and Signs

92XVIII(E)2 Advertising


Cases

(Formerly 92k90.3, 92k90.1(1))

Speech does not lose its First Amendment protec-

tion because money is spent to protect it, as in paidadvertisement of one form or another.





Press


92XVIII(A)2 Commercial Speech in Gen-

eral


Cases

(Formerly 92k90.2, 92k90.1(1))

Speech is protected even though it is carried in

form that is sold for profit. U.S.C.A.Const. Amend.

1.




Press



eral


Cases

(Formerly 92k90.2, 92k90.1(1))

Speech is protected even though it may involve so-

licitation to purchase or otherwise pay or contribute

money. U.S.C.A.Const. Amend. 1.




Press


92XVIII(A)3 Particular Issues and Ap-

plications in General

92k1555 k. Matters of Public Concern.

Most Cited Cases

(Formerly 92k90(1))

Purely factual matter of public interest may claim

First Amendment protection. U.S.C.A.Const.Amend. 1.




96 S.Ct. 1817 Page 2


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1555http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1555http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%293http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1535http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1535http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1535http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%292http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1535http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1535http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1535http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%292http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1640http://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1640http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1640http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28E%292http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28E%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1502http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1502http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%291http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIIIhttp://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92http://www.westlaw.com/Find/Default.wl?rs=dfa1.0&vr=2.0&DB=1000546&DocName=USCOAMENDI&FindType=Lhttp://www.westlaw.com/Digest/Default.wl?rs=dfa1.0&vr=2.0&CMD=MCC&DocName=92k1502http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92k1502http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%291http://www.westlaw.com/KeyNumber/Default.wl?rs=dfa1.0&vr=2.0&CMD=KEY&DocName=92XVIII%28A%29


4/28

Press



eral


Cases

(Formerly 92k90.2, 92k90.1(1))



92XXVII Due Process

92XXVII(G) Particular Issues and Applica-

tions

92XXVII(G)1 In General

92k4034 k. Speech, Press, Assembly,

and Petition. Most Cited Cases

(Formerly 92k274.1(2.1), 92k274.1(2))

Commercial speech is not wholly outside protec-

tion of First and Fourteenth Amendments.

U.S.C.A.Const. Amends. 1, 14.




Press




Cases

(Formerly 92k90.3, 92k90.1(1))



92XXVII Due Process


tions

92XXVII(G)1 In General

92k4034 k. Speech, Press, Assembly,

and Petition. Most Cited Cases

(Formerly 92k274.1(2.1), 92k274.1(2))

That advertiser's interest in commercial advertise-

ment is purely economic does not disqualify him

from protection under First and Fourteenth Amend-

ments, but both individual consumer and society in

general may have strong interests in free flow of

commercial information. U.S.C.A.Const. Amends.

1, 14.




Press

92XVIII(O) Labor and Employment in Gen-

eral

92k1910 Labor Relations


Cases

(Formerly 92k90.1(7.1), 92k90.1(7))




Press

92XVIII(O) Labor and Employment in Gen-

eral

92k1910 Labor Relations

92k1914 k. Employer Communica-

tions. Most Cited Cases

(Formerly 92k90.1(7.1), 92k90.1(7))

Both employee and employer are protected by First

Amendment when they express themselves on mer-

its of labor dispute in order to influence its out-

come. U.S.C.A.Const. Amend. 1.




Press



92k1645 k. Product Advertisements.

Most Cited Cases

(Formerly 92k90.3, 92k90.1(1))



96 S.Ct. 1817 Page 3


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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5/28

92XXVII Due Process


tions

92XXVII(G)14 Environment and Health

92k4330 k. Drugs and Medical

Devices. Most Cited Cases

(Formerly 92k296(1), 92k274.1(2))

Health 198H 105

198H Health

198HI Regulation in General

198HI(A) In General

198Hk102 Constitutional and Statutory

Provisions

198Hk105 k. Validity. Most Cited

Cases

(Formerly 138k11 Drugs and Narcotics)

Virginia statute barring advertisement of prescrip-

tion drug prices violated First and Fourteenth

Amendments and could not be justified on basis of

state's interest in maintaining professionalism of its

licensed pharmacists; in that state is free to require

whatever professional standards it wishes of its

pharmacists and may subsidize them or protect

them from competition in other ways, but it may

not do so by keeping public in ignorance of lawful

terms that competing pharmacists are offering.U.S.C.A.Const. Amends. 1, 14; Code Va.1950,

54-524.35(3).




Press



eral

92k1537 k. Difference in ProtectionGiven to Other Speech. Most Cited Cases

(Formerly 92k90.2, 92k90.1(1))

While commercial speech, like other varieties, is

protected by First Amendment, some forms of com-

mercial speech regulation are surely permissible.





Press

92XVIII(C) Trade or Business

92k1600 k. In General. Most Cited Cases

(Formerly 92k90.2, 92k90.1(1))




Press



92k1646 k. Business or Professional

Services. Most Cited Cases

(Formerly 92k90.2, 92k90.1(1))

Health 198H 105

198H Health

198HI Regulation in General

198HI(A) In General

198Hk102 Constitutional and Statutory

Provisions

198Hk105 k. Validity. Most Cited

Cases(Formerly 138k11 Drugs and Narcotics)

Whatever may be bounds of time, place, and man-

ner of restrictions on commercial speech, they were

exceeded by Virginia statute barring dissemination

of prescription drug prices, which sought out

speech of particular content and sought to prevent

its dissemination completely. U.S.C.A.Const.

Amend. 1; Code Va.1950, 54-524.35(3).


92 Constitutional Law92XVIII Freedom of Speech, Expression, and

Press



eral

92k1539 k. False, Untruthful, Decept-

96 S.Ct. 1817 Page 4


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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6/28

ive, or Misleading Speech. Most Cited Cases

(Formerly 92k90.2, 92k90.1(1))

State may regulate commercial speech which is

false, deceptive, misleading, or which proposes il-

legal transactions. U.S.C.A.Const. Amend. 1.




Press





(Formerly 92k90(3))

State may not suppress dissemination of concededly

truthful information about entirely lawful activity

on basis of fear of that information's effect upon its

disseminators and its recipients. U.S.C.A.Const.

Amend. 1.

**1819 *748 SyllabusFN*

FN* The syllabus constitutes no part of the

opinion of the Court but has been prepared

by the Reporter of Decisions for the con-

venience of the reader. See United States

v. Detroit Timber & Lumber Co., 200 U.S.

321, 337, 26 S.Ct. 282, 287, 50 L.Ed. 499,

505-06.

Appellees, as consumers of prescription drugs,

brought suit against the Virginia State Board of

Pharmacy and its individual members, appellants

herein, challenging the validity under the First and

Fourteenth Amendments of a Virginia statute de-

claring it unprofessional conduct for a licensed

pharmacist to advertise the prices of prescription

drugs. A three-judge District Court declared the

statute void and enjoined appellants from enforcing

it. Held:

1. Any First Amendment protection enjoyed by ad-

vertisers seeking to disseminate prescription drug

price information is also enjoyed, and thus may be

asserted, by appellees as recipients of such informa-

tion. Pp. 1822-1823.

2. Commercial speech is not wholly outside the

protection of the First and Fourteenth Amendments,

and the Virginia statute is therefore invalid. Pp.

1825-1831.

(a) That the advertiser's interest in a commercial

advertisement is purely economic does not disquali-

fy him from protection under the First and Four-

teenth Amendments. Both the individual consumer

and society in general may have strong interests in

the free flow of commercial information. Pp.

1826-1827.

(b) The ban on advertising prescription drug prices

cannot be justified on the basis of the State's in-

terest in maintaining the professionalism of its li-

censed pharmacists; the State is free to require

whatever professional standards it wishes of its

pharmacists, and may subsidize them or protect

them from competition in other ways, but it may

not do so by keeping the public in ignorance of the

lawful terms that competing pharmacists are offer-

ing. Pp. 1828-1830.

(c) Whatever may be the bounds of time, place, and

manner restrictions on commercial speech, they are

plainly exceeded by *749 the Virginia statute,

which singles out speech of a particular content and

seeks to prevent its dissemination completely. P.

10.

(d) No claim is made that the prohibited prescrip-

tion drug advertisements are false, misleading, or

propose illegal transactions, and a State may not

suppress the dissemination of concededly truthful

information about entirely lawful activity, fearful of

that information's effect upon its disseminators and

its recipients. Pp. 1830-1831.

373 F.Supp. 683, affirmed.

Anthony F. Troy, Richmond, Va., for appellants.

Alan B. Morrison, Washington, D. C., for ap-

pellees.

96 S.Ct. 1817 Page 5


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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7/28

Mr. Justice BLACKMUN delivered the opinion of

the Court.

[1] The plaintiff-appellees in this case attack, as vi-

olative of the First and Fourteenth Amendments,FN1

that portion of s 54-524.35 of Va.Code Ann.

(1974), which provides that a pharmacist licensed

in Virginia is guilty of unprofessional*750 conduct

if he (3) publishes, advertises or promotes, directly

or indirectly, in any manner whatsoever, any

amountprice, fee, premium, discount, rebate or

credit terms . . . for any drugs which may be dis-

pensed only by prescription.FN2

The three-judge

District Court **1820 declared the quoted portion

of the statute void and of no effect, Jurisdictional

Statement, App. 1, and enjoined the defendant-ap-pellants, the Virginia State Board of Pharmacy and

the individual members of that Board, from enfo r-

cing it. 373 F.Supp. 683 (E.D.Va.1974). We noted

probable jurisdiction of the appeal. 420 U.S. 971,

95 S.Ct. 1389, 43 L.Ed.2d 650 (1975).

FN1. The First Amendment is applicable to

the States through the Due Process Clause

of the Fourteenth Amendment. See, E. g.,

Bigelow v. Virginia, 421 U.S. 809, 811, 95

S.Ct. 2222, 2227, 44 L.Ed.2d 600, 605-606

(1975); Schneider v. State, 308 U.S. 147,160, 60 S.Ct. 146, 150, 84 L.Ed. 155, 164

(1939).

FN2. Section 54-524.35 provides in full:

Any pharmacist shall be considered guilty

of unprofessional conduct who (1) is found

guilty of any crime involving grave moral

turpitude, or is guilty of fraud or deceit in

obtaining a certificate of registration; or

(2) issues, publishes, broadcasts by radio,

or otherwise, or distributes or uses in anyway whatsoever advertising matter in

which statements are made about his pro-

fessional service which have a tendency to

deceive or defraud the public, contrary to

the public health and welfare; or (3) pub-

lishes, advertises or promotes, directly or

indirectly, in any manner whatsoever, any

amount, price, fee, premium, discount, re-

bate or credit terms for professional ser-

vices or for drugs containing narcotics or

for any drugs which may be dispensed only

by prescription.

I

Since the challenged restraint is one that peculiarly

concerns the licensed pharmacist in Virginia, we

begin with a description of that profession as it ex-

ists under Virginia law.

The practice of pharmacy is statutorily declared

to be a professional practice affecting the publichealth, safety and welfare, and to be subject to

regulation and control in the public interest.

Va.Code Ann. s 54-524.2(a) (1974).FN3

Indeed,

the practice is subject to extensiveregulation *751

aimed at preserving gh professional standards. The

regulatory body is the appellant Virginia State

Board of Pharmacy. The Board is broadly charged

by statute with various responsibilities, including

the (m)aintenance of the quality, quantity, integ-

rity, safety and efficacy of drugs or devices distrib-

uted, dispensed or administered. s 54-524.16(a). It

also is to concern itself with (m)aintaining the in-

tegrity of, and public confidence in, the profession

and improving the delivery of quality pharmaceut-

ical services to the citizens of Virginia. s

54-524.16(d). The Board is empowered to make

such bylaws, rules and regulations . . . as may be

necessary for the lawful exercise of its powers. s

54-524.17.

FN3. The parties, also, have stipulated that

pharmacy is a profession. Stipulation of

Facts P 11, App. 11.

The Board is also the licensing authority. It may is-

sue a license, necessary for the practice of phar-

macy in the State, only upon evidence that the ap-

plicant is of good moral character, is a graduate

in pharmacy of a school approved by the Board,

96 S.Ct. 1817 Page 6


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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and has had a suitable period of experience (the

period required not to exceed 12 months) accept-

able to the Board. s 54-524.21. The applicant must

pass the examination prescribed by the Board. Ibid.

One approved school is the School of Pharmacy of

the Medical College of Virginia, where the cur-

riculum is for three years following two years of

college. Prescribed prepharmacy courses, such as

biology and chemistry, are to be taken in college,

and study requirements at the school itself include

courses in organic chemistry, biochemistry, com-

parative anatomy, physiology, and pharmacology.

Students are also trained in the ethics of the profes-

sion, and there is some clinical experience in the

school's hospital pharmacies and in the medical

center operated by the Medical College. This *752is a rigid, demanding curriculum in terms of what

the pharmacy student is expected to know about

drugs.FN4

FN4. Id., P 8, App. 11. See generally Id.,

PP 6-16, App. 10-12.

Once licensed, a pharmacist is subject to a civil

monetary penalty, or to revocation or suspension of

his license, if the Board finds that he is not of

good moral character, or has violated any of a

number of stated professional standards (amongthem that he not be negligent in the practice of

pharmacy or have engaged in fraud or deceit

upon the consumer . . . in connection with the prac-

tice of pharmacy), or is guilty of unprofessional

conduct. s 54-524.22:1. Unprofessional conduct

is specifically **1821 defined in s 54-524.35, n. 2,

Supra, the third numbered phrase of which relates

to advertising of the price for any prescription drug,

and is the subject of this litigation.

Inasmuch as only a licensed pharmacist may dis-

pense prescription drugs in Virginia, s 54-524.48,FN5advertising or other affirmative dissemination

of prescription drug price information is effectively

forbidden in the State. Some pharmacies refuse

even to quote prescription drug prices over the tele-

phone. The Board's position, however, is that this

would not constitute an unprofessional publication.

FN6It is clear, nonetheless, that all advertising of

such prices, in the normal sense, is forbidden. The

prohibition does not extend to nonprescription

drugs, but neither is it confined to prescriptions that

the pharmacist compounds himself. Indeed, about

95% Of all prescriptions now are filled with dosage

forms prepared by the pharmaceutical manufac-

turer.FN7

FN5. Exception is made for legally quali-

fied practitioners of medicine, dentistry,

osteopathy, chiropody, and veterinary

medicine. s 54-524.53.

FN6. Stipulation of Facts P 25, App. 15.

FN7. Id., P 18, App. 13.

*753 II

This is not the first challenge to the constitutional-

ity of s 54-524.35 and what is now its third-

numbered phrase. Shortly after the phrase was ad-

ded to the statute in 1968,FN8

a suit seeking to en-

join its operation was instituted by a drug retailing

company and one of its pharmacists. Although the

First Amendment was invoked, the challenge ap-

pears to have been based primarily on the Due Pro-cess and Equal Protection Clauses of the Fourteenth

Amendment. In any event, the prohibition on drug

price advertising was upheld. Patterson Drug Co. v.

Kingery, 305 F.Supp. 821 (W.D.Va.1969). The

three-judge court did find that the dispensation of

prescription drugs affects the public health, safety

and welfare. Id., at 824-825. No appeal was taken.

FN8. Theretofore an administrative regula-

tion to the same effect had been outstand-

ing. The Board, however, in 1967 was ad-

vised by the State Attorney General's of-fice that the regulation was unauthorized.

The challenged phrase was added to the

statute the following year. See Patterson

Drug Co. v. Kingery, 305 F.Supp. 821, 823

n. 1 (W.D.Va.1969).

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The present, and second, attack on the statute is one

made not by one directly subject to its prohibition,

that is, a pharmacist, but by prescription drug con-

sumers who claim that they would greatly benefit if

the prohibition were lifted and advertising freely al-

lowed. The plaintiffs are an individual Virginia res-

ident who suffers from diseases that require her to

take prescription drugs on a daily basis,FN9

and

two nonprofit organizations.FN10

Their *754

claim ithat the First Amendment entitles the user of

prescription drugs to receive information that phar-

macists wish to communicate to them through ad-

vertising and other promotional means, concerning

the prices of such drugs.

FN9. Stipulation of Facts P 3, App. 9.

FN10. The organizations are the Virginia

Citizens Consumer Council, Inc., and the

Virginia State AFL-CIO. Each has a sub-

stantial membership (approximately

150,000 and 69,000, respectively) many of

whom are users of prescription drugs. Id.,

PP 1 and 2, App. 9. The American Associ-

ation of Retired Persons and the National

Retired Teachers Association, also claim-

ing many members who depend substan-

tially on prescription drugs for their well-being, Brief 2, are among those who have

filed briefs Amici curiae in support of the

appellees.

Certainly that information may be of value. Drug

prices in Virginia, for both prescription and nonpre-

scription items, strikingly vary from outlet to outlet

even within the same locality. It is stipulated, for

example, that in Richmond the cost of 40 Achro-

mycin tablets ranges from $2.59 to $6.00, a differ-

ence of 140% (Sic ), and that in the Newport

News-Hampton area the cost of tetracycline rangesfrom $1.20 to.$9.00, a difference of 650%.

FN11

FN11. Stipulation of Facts PP 22(b) and

(c), App. 14. The phenomenon of widely

varying drug prices is apparently national

in scope. The American Medical Associ-

ation conducted a survey in Chicago that

showed price differentials in that city of up

to 1200% For the same amounts of a spe-

cific drug. A study undertaken by the Con-

sumers Union in New York found that

prices for the same amount of one drug

ranged from 79 to $7.45, and for another

from $1.25 to $11.50. Id., PP 22(d) and

(e), App. 14. Amici American Association

of Retired Persons and National Retired

Teachers Association state that in 1974

they participated in a survey of three pre-

scription drug prices at 28 pharmacies in

Washington, D.C., and found pharmacy-

to-pharmacy variances in the price of

identical drugs as great as 245%. Brief asAmici Curiae 10. The prevalence of such

discrepancies throughout the United

States is documented in a recent report.

Staff Report to the Federal Trade Commis-

sion, Prescription Drug Price Disclosures

119 (1975). The same report indicates that

34 States impose significant restrictions on

dissemination of drug price information

and, thus make the problem a national one.

Id., at 34.

**1822 The District Court seized on the identity ofthe plaintiff-appellees as consumers as a feature

distinguishing the *755 present case from Patterson

Drug Co. v. Kingery, supra. Because the unsuccess-

ful plaintiffs in that earlier case re pharmacists, the

court said, theirs was a prima facie commercial ap-

proach, 373 F.Supp., at 686. The present plaintiffs,

on the other hand, were asserting an interest in their

own health that was fundamentally deeper than a

trade consideration. Ibid. In the District Court's

view, the expression in Valentine v. Chrestensen,

316 U.S. 52, 54-55, 62 S.Ct. 920, 921, 86 L .Ed.

1262, 1265-66 (1942), to the effect that purely

commercial advertising is not protected had been

tempered, by later decisions of this Court, to the

point that First Amendment interests in the free

flow of price information could be found to out-

weigh the countervailing interests of the State. The

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10/28

strength of the interest in the free flow of drug price

information was borne out, the court felt, by the

fact that three States by court decision had struck

down their prohibitions on drug price advertising.

Florida Board of Pharmacy v. Webb's City, Inc.,

219 So.2d 681 (Fla.1969); Maryland Board of Phar-

macy v. Sav-A-Lot, Inc., 270 Md. 103, 311 A.2d

242 (1973); Pennsylvania State Board of Pharmacy

v. Pastor, 441 Pa. 186, 272 A.2d 487 (1971).FN12

The District Court recognized that this Court had

upheld against federal constitutional challenges

other than on First Amendment grounds state restric

tions*756 on the advertisement of prices for opto-

metrists' services, Head v. New Mexico Board, 374

U.S. 424, 83 S.Ct. 1759, 10 L.Ed.2d 983 (1963), for

eyeglass frames, Williamson v. Lee Optical Co.,348 U.S. 483, 75 S.Ct. 461, 99 L.Ed. 563 (1955),

and for dentists' services, Semler v. Dental Exam-

iners, 294 U.S. 608, 55 S.Ct. 570, 79 L.Ed. 1 086

(1935).FN13

The same dangers of abuse and decep-

tion were not thought to be present, however, when

the advertised commodity was prescribed by a

physician for his individual patient and was dis-

pensed by a licensed pharmacist. The Board failed

to justify the statute adequately, and it had to fall.

373 F.Supp., at 686-687.

FN12. The Florida and Pennsylvania de-cisions appear to rest on state constitution-

al grounds. The Maryland decision was

based on the Due Process Clause of the

Fourteenth Amendment as well as on pro-

visions of the State Constitution.

Accord: Terry v. California State Board of

Pharmacy, 395 F.Supp. 94 (N.D.Cal.1975),

appeal docketed, No. 75-336. Contra:

Urowsky v. Board of Regents, 38 N.Y.2d

364, 379 N.Y.S.2d 815, 342 N.E.2d 583

(1975); Supermarkets General Corp. v.

Sills, 93 N.J.Super. 326, 225 A.2d 728

(1966).

See Note: Commercial Speech An End in

Sight to Chrestensen? 23 De Paul L.Rev.

1258 (1974); Comment, 37 Brooklyn

L.Rev. 617 (1971); Comment, 24 Wash.

and Lee L.Rev. 299 (1967).

FN13. In Head v. New Mexico Board, the

First Amendment issue was raised. This

Court refused to consider it, however, be-

cause it had not been presented to the state

courts, nor reserved in the notice of appeal

here. 374 U.S., at 432 n. 12, 83 S.Ct., at

1764-1765, 10 L.Ed.2d, at 990. The

Court's action to this effect was noted in

Pittsburgh Press Co. v. Human Relations

Comm'n, 413 U.S. 376, 387 n. 10, 93 S.Ct.

2553, 2559-2560, 37 L.Ed.2d 669, 678

(1973). The appellants at the oral argument

recognized that Head was a due processcase. Tr. of Oral Arg. 10.

III

[2] The question first arises whether, even assum-

ing that First Amendment protection**1823 at-

taches to the flow of drug price information, it is a

protection enjoyed by the appellees as recipients of

the information, and not solely, if at all, by the ad-

vertisers themselves who seek to disseminate that

information.

[3][4] Freedom of speech presupposes a willing

speaker. But where a speaker exists, as is the case

here,FN14

the protection afforded is to the commu-

nication, to its source and to its recipients both.

This is clear from the decided cases. In Lamont v.

Postmaster General, 381 U.S. 301, 85 S.Ct. 1493,

14 L.Ed.2d 398 (1965), the Court upheld the First

Amendment rights of citizens to receive political

publications sent from abroad. *757 More re-

cently, in Kleindienst v. Mandel, 408 U.S. 753,

762-763, 92 S.Ct. 2576, 2581, 33 L.Ed.2d 683, 69 1

(1972), we acknowledged that this Court has re-

ferred to a First Amendment right to receive in-

formation and ideas, and that freedom of speech

necessarily protects the right to receive. And in

Procunier v. Martinez, 416 U.S. 396, 408-409, 94

S.Ct. 1800, 1808-1809, 40 L.Ed.2d 224, 237-238

96 S.Ct. 1817 Page 9


(Cite as: 425 U.S. 748, 96 S.Ct. 1817)

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