Two Rivers, Wisconsin, enacted an extensive ordinance regulating the placement and nature of outdoor advertising. The preamble of the ordinance recognized "the need to protect the safety and welfare of the public; the need for well-maintained and attractive sign displays within the community; and the need for adequate business identification, advertising, and communication." Lavey is the president of the Lakeland Group, an advertising and public relations business. Lavey and the Lakeland Group have owned billboards for the last 15 years and have rented them to the public for the display of commercial and noncommercial messages. Two Rivers has frequently cited Lavey and the Lakeland Group for placing off-premises signs in areas where the ordinance does not permit such signs. Lavey brought this action seeking a declaration that the ordinance violates his First Amendment rights. How should the court analyze this issue? What result should it reach?