The Port Authority of New York and New Jersey owns and operates three major airports in the New York City area and controls terminals at the airports. The Port Authority adopted a regulation forbidding the repetitive solicitation of money within the terminals. However, it permitted solicitation on the sidewalks outside the terminal buildings. International Society for Krishna Consciousness, Inc. (ISKC) (plaintiff) is a religious group whose members solicit funds in public places to support their movement. ISKC brought suit against Lee (defendant), a Port Authority official, in federal district court on the grounds that the regulation abridged its First Amendment rights. The district court concluded the terminals were public forums and granted summary judgment to ISKC. The court of appeals reversed, and the United States Supreme Court granted certiorari.