This diversity suit pits a local Girl Scouts “council” (“local Girl Scouts chapter” would be a more illuminating designation), which we’ll call Manitou, located in Wisconsin, against the national Girl Scouts organization. Manitou accuses the national organization of violating the Wisconsin Fair Dealership Law, Wis. Stat. ch. 135, along with Wisconsin common law principles that we can ignore.
In 2004 there were more than 300 local councils (there are nearly three million Girl Scouts), each with an exclusive territory demarcated in its charter. The local councils and the national organization are organized as nonprofit corporations. The councils are not subsidiaries of the national organization; rather, the national organization (which was founded in 1912 and incorporated in 1950 by Act of Congress, 36 U.S.C. §§ 80301 et seq.) relates to the councils as franchisor to franchisees. It “charters” (that is, licenses) the local councils, thereby authorizing them to sell cookies and other merchandise under the “Girl Scout” trademark, which the national organization owns. The Manitou council derives about two-thirds оf its income from the sale of Girl Scout cookies and merchandise, with cookies generating the lion’s share of that income. The other third comes from charitable donations, fees generated by Girl Scout camps owned and operated by the council, and investments. The local council remits to the national organization the membership fees paid by the Girl Scouts enrolled by the council, or by their parents.
The national organization decided that 300 councils were too many. It wanted to shrink the number by two-thirds. As part of the rearrangement of boundaries incident to the shrinkage (which the national organization calls “realignment”), Manitou, whose territory occupies a large irregular slice of eastern Wisconsin, was slated to be dissolved. Sixty percent of its territory would be given to a new council that would occupy much of northern Wisconsin and Michigan’s Upper Peninsula and the other 40 percent would be divided between two other new councils, in southern Wisconsin.
Manitou sued to enjoin the national organization from taking away its territory (which would not put it out оf business, but would preclude its representing itself as a Girl Scouts organization or otherwise using Girl Scout trademarks). It argued that it was a dealer and that the national organization’s action violated Wisconsin’s fair-dealership law. It sought a preliminary injunction, lost in the district court, but appealed and won in our court.
So Wisconsin could not, without violating the Cоnstitution, require the national organization to promote different values in Wisconsin, or even (we may assume, without deciding) require it to admit boys to Girl Scout troops in the state. The qualities that the organization wants to instill in girls are not necessarily those that it would want to instill in boys. Boy Scouts of America emphasizes, along with virtues similar to those urged by the Girl Scouts, bravery and physical strength. “Overview of Boy Scouts of America,” http://scouting. org/About/FactSheets/OverviewofBSA. aspx (visited May 15, 2011);
Boy Scouts of America v. Dale, supra,
The original stated reasons for reducing the number of local councils were to improve the marketing of Girl Scout cookies, exploit economies of scale, and do more effective fundraising — all by increasing each surviving council’s resources. But in this appeal the national organization emphasizes instead a goal of increasing the racial and ethnic diversity of the Girl Scouts. The idea seems to be that the larger the area served by a council, the likelier it is to encompass a racially and ethnically diverse population of girls. Of course that could equally be viewed as dilution, as when legislatures redraw district lines so that a minority group that had a voting majority in some of these districts becomes a voting minority — in the extreme case when voting by district is replaced by state-wide voting. See
Thornburg v. Gingles,
The First Amendment was barely hinted at in the first appeal of this case, and was just a small part of the national organization’s argument in the district court, but when it became the district court’s sole ground for ruling in its favor the national organization embraced it eagerly. Yet
The national organization’s main articulated concern in promulgating the realignment plan was with declining membership in the Girl Scouts. It noted that the percentage of girls who belong to minority groups is increasing and is expected to soon reach half the girl population; the implication is that stepped-up recruitment efforts should be directed toward those girls to maintain membership. No doubt; but this is no more “expressive” than the decision by a fast-food chain to increase its offerings of Mexican food because the Hispanic population in the United States is growing faster than the Anglo population. Anyway it’s only by picking a few peak years that the national organization can claim that membership in the Girl Scouts is declining. The number of Girl Scouts was higher in 2003 and 2004 (when the realignment plan was adopted) than for all years in the Girl Scouts’ long history except 1964 to 1973. And as a percentage of the national girl population, Girl Scout membership was higher in 2003 and 2004 than in any years since 1973 except for the years 1991 through 1993.
The possibility that a law of general application might indirectly and unintentionally impede an organization’s efforts to communicate its message effectively can’t be enough to condemn the law. Otherwise the Girl Scouts could challenge building codes on the ground that they increase the costs of building and maintaining Girl Scout camps and by doing so reduce the resources available for inculcating Girl Scout values in the girls; and media companies could claim exemption frоm minimum wage laws and journalists from income taxes. If the antitrust laws apply to the nonacademic activities of universities, as they do,
National Collegiate Athletic Ass’n v. Board of Regents of University of Oklahoma,
The national organization argues as a backup to its First Amendment claim that dissolving Manitou would not violate the Wisconsin Fair Dealership Law. In making this argument it is gоing against the district court, which ruled that the national organization had indeed violated the dealership law (as also suggested by the analysis in our first decision, ordering the grant of a preliminary injunction in Manitou’s favor). There is a question whether the issue is preserved, since it is not mentioned in the list of questions presented in
The dealership statute forbids a franchisor to “terminate, cancel, fail to renew or substantially change the competitive circumstances of a dealership agreement without good cause.” Wis. Stat. § 135.03. A “dealer” is defined as the grantee of a dealership and a “dealership agreement” as an agreement that, so far as bears on this case, authorizes the grantee to “use [the grantor’s] trade name, trademark, service mark, logotype, advertising or other commercial symbol” and creates “a community of interest” between the parties “in the business of offering, selling or distributing goods or services at wholesale, retail, by lease, agreement, or otherwise.” §§ 135.02(2), (3)(a).
The nаtional organization argues that the statute is inapplicable to nonprofit entities, such as it and the Manitou council. The reference to “commercial symbolfs]” and to “the business” of offering, etc., goods and services provides some support for the argument, since one doesn’t usually think of nonprofit enterprises as being “commercial” and engaged in “business.” Or didn’t use to — for outweighing these hints is the fact that nonprofit enterprises frequently do engage in “commercial” or “business” activities, and certainly the Girl Scouts do. Proceеds of the sale of Girl Scout cookies are the major source of Manitou’s income. The local councils sell other merchandise as well. Sales of merchandise account for almost a fifth of the national organization’s income, and most of the rest comes from membership fees and thus depends on the success of the local councils in recruiting members; that in turn depends on the councils’ revenues and thus gives the national organization an indirect stake in the cookie sales. The national organization describes its reorganization of the local-council structure as “a key component” of its “Core Business Strategy.” From a commercial standpoint the Girl Scouts are not readily distinguishable from Dunkin’ Donuts.
No gulf separates the profit from the nonprofit sectors of the American economy. There are nonprofit hospitals and for-profit hospitals, nonprofit colleges and for-profit colleges, and, as we have just noted, nonprofit sellers of food and for-profit sellers of food. When profit and nonprofit entities cоmpete, they are driven by competition to become similar to each other. The commercial activity of nonprofits has grown substantially in recent decades, fueled by an increasing focus on revenue maximizing by the boards of these organizations, and this growth has stimulated increased competition both among nonprofit enterprises and with for-profit ones. Howard P. Tuckman & Cyril F. Chang, “Commercial Activity, Technological Change, and Nonprofit Mission,” in The Nonprofit Sector: A Research Handbook 629, 630 (Walter W. Powell & Richard Steinberg eds., 2d ed.2006); Dennis R. Young & Lester M. Salamon, “Commercialization, Social Ventures, and For-Profit Competition,” in The State of Nonprofit America 423, 436-37 (Salamon ed.2002); Burton A. Weisbrod, “The Nonprofit Mission and Its Financing,” in To Profit or Not to Profit: The Commercial Transformation of the Nonprofit Sector 1, 16-17 (Weisbrod ed.1998); Michael S. Knoll, “The UBIT: Leveling an Uneven Playing Field or Tilting a Level One?,” 76 Ford-ham L.Rev. 857, 858-59 (2007); Evelyn Brody, “Agents Without Principals: The Economic Convergence of the Nonprofit and For-Profit Organizational Forms,” 40 N.Y. Law School L.Rev. 457, 489-90 (1996).
The principal difference between the two types of firm is not that nonprofits eschew typical commercial activities such as the
The principal or at least the most readily defensible objective of dealer protection laws is to prevent franchisors from appropriating good will created by their dealers.
Al’s Service Center v. BP Products North America, Inc.,
Dealer protection laws are aimed at such abuses, though they also and perhaps predominantly reflect the political influence of local businessmen seeking advantages over franchisors likely to be located in other states. Briekley, Dark & Weisbach,
supra,
at 115-17; Donald P. Horwitz & Walter M. Yolpi, “Regulating the Franchise Relationship,” 54
St. John’s L.Rev.
217, 275-76 (1980); cf.
Foerster, Inc. v. Atlas Metal Parts Co.,
The national organization next argues that its alteration of Manitou’s territory did not change “the competitive circumstances of [the] dealership agreement,” a term we understand to mean provisions of the agreement that affect the dealer’s competitive position; stripping a dealer of territorial exclusivity granted in the dealership agreement would be an example of such a change. Of course if the grant of exclusivity has an exception, the franchisor does not change the competitive circumstances of the dealership
agreement
by availing itself of the exception. And thus if the agreement authorizes the franchisor to open new stores in a franchisee’s area, the franchisor can do so without thereby violating the fair-dealership law.
Super Valu Stores, Inc. v. D-Mart Food Stores, Inc.,
Altering a franchisee’s territorial boundaries can have the same effect as opening new stores in his territory; the narrower those boundaries, the less protection the franchisee has against competition from other franchisees. But when as in this case the franchisor, though authorized to alter boundaries, attempts to use that authority to terminate the franchise altogether, he runs up against the provision of the Wisconsin act that requires “good cause” to cancel a dealership. Wis. Stat. § 135.03.
The term is defined (so far as relates to this case) as thе dealer’s “failure ... to comply substantially with essential and reasonable requirements imposed ... by the grantor” of the dealership. Wis. Stat. § 135.02(4)(a). But no crisp test has emerged from the only Wisconsin decision to discuss the statutory provision,
Ziegler Co. v. Rexnord, Inc.,
In a wide-ranging discussion of dealer protection laws, the Second Circuit said that the franchisor need not prove that his existing territorial allocatiоns were “unprofitable”: “A seller of goods in the marketplace is justified in identifying untapped opportunities or unutilized potential and adjusting its distribution network to realize greater profits.... In the case at hand [the franchisor] determined it could increase sales by increasing service frequency. This result it thought best accomplished by rationalizing its distributors’ haphazard routes____ Here we are faced with a legitimate business need to increase sales and the steps taken to further that goal. [The franchisor’s] goal of increasing sales constitutes ‘good cause’ within the meaning of the Franchise Act. Thus, the Act does not prevent defendant from realigning plaintiffs’ territories.”
Petereit v. S.B. Thomas, Inc.,
The idea of construing statutes in a strained fashion in order to avoid constitutional questions is orthodox, see, e.g.,
Clark v. Martinez,
For the proposition that “an expressive group’s message and structure are critically linked,” the briéf cites
Eu v. San Francis co County Democratic Central Committee,
Here is what the Supreme Court actually said:
Each restriction thus limits a political party’s discretion in how to organize itself, conduct its affairs, and select its leadеrs. Indeed, the associational rights at stake are much stronger than those we credited in Tashjian. There, we found that a party’s right to free association embraces a right to allow registered voters who are not party members to vote in the party’s primary. Here, party members do not seek to associate with nonparty members, but only with one another in freely choosing their party leaders. 21
Id.
at 230-31 and n. 21,
The brief also states that “the District Court granted [the national organization’s] motion for summary judgment on all counts.” That is literally correct but misleading. The court ruled that the national organization had violated the Wisconsin Fair Dealership Law, but that this didn’t matter because the law could not constitutionally be applied to the national organization’s action.
To conclude, Manitou’s motion for summary judgment on its claim under the fair-dealership law should have been granted, for there is no legal or factual basis for the national organization’s contrary position. The judgment granting summary judgment in favor of the national organization is therefore reversed with directions to grant summary judgment for Manitou on its fair-dealership claim and order appro
Affirmed in Part, Reversed in Part, and Remanded.
Notes
By regulating the identity of the parties' leaders, the challenged statutes may also color the parties’ message and interfere with the parties’ decisions as to the best means to promote that message.
