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Munson (P) is a professional for-profit fund-raiser. P's customers in Maryland include the Fraternal Order of Police. Section 103D of the Maryland code prohibits an organization in connection with its fund-raising activities to pay an organization such as P's more than 25% of the amount raised unless the charity can demonstrate financial necessity. P sued the Secretary of State of Maryland (D) seeking declaratory and injunctive relief.

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