Utah GOP motion for summary judgment

8/20/2019 Utah GOP motion for summary judgment

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Marcus R. Mumford (12737)MUMFORD PC

405 South Main Street, Suite 975

Salt Lake City, Utah 84111Telephone: (801) 428-2000

Email: [email protected]

Attorney for Plaintiff Utah Republican Party

IN THE UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF UTAH, CENTRAL DIVISION

UTAH REPUBLICAN PARTY,

Plaintiff,

CONSTITUTION PARTY OF UTAH,

Plaintiff and Intervenor,

v.

GARY R. HERBERT, et al.,

Defendants.

[CORRECTED] PLAINTIFF UTAH

REPUBLICAN PARTY’S MOTION

FOR SUMMARY JUDGMENT

Case No. 2:14-cv-00876-DN

Judge David Nuffer

Magistrate Judge Dustin B. Pead

INTRODUCTION

Democracy is two wolves and a lamb voting on what to have for lunch. Liberty is a well-armed lamb contesting the vote.1

The above quote, widely attributed to Benjamin Franklin, epitomizes the circumstances

presented by this case. In 2014, two wolves, Utah lawmakers and a powerful group of wealthy

bipartisans called Count My Vote (“CMV”) negotiated a “grand compromise” between

themselves, amending Utah’s election code to give them what they both wanted: greater control

over the process employed by the Utah Republican Party (“UTGOP” or “Party”) to select and

endorse candidates for elected office at the federal, state and local levels. The “grand

compromise” was SB54. Those responsible for SB54 admitted that its intent was invidious and

1 “Widely, if not assuredly, attributed to Benjamin Franklin.” Patel v. Texas Dep’t of Licensing

& Regulation, __ S.W.3d __, 2015 WL 3982687, at *18 & n.6 (Tex. June 26, 2015) (Willett, J.,

concurring).

Case 2:14-cv-00876-DN-DBP Document 168 Filed 09/23/15 Page 1 of 27

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content- based. Recognizing the Party’s success in getting its candidates elected to office, SB54

was enacted to dilute the Party’s power, produce nominees with different “priorities” and

“views” than the Party and its members, and to make the Party’s winning candidates less

accountable to the Party and its Platform.2

But the law does not leave the Party defenseless. The Supreme Court’s cases

vigorously affirm the special place the First Amendment reserves for, and the

special protection it accords, the process by which a political party “select[s] astandard bearer who best represents the party’s ideologies and preferences.” The

moment of choosing the party’s nominee, we have said, is “the crucial juncture at

which the appeal to common principles may be translated into concerted action,and hence to political power in the community.”3

Accordingly, with this motion, the Party moves for summary judgment that: (1) SB54 is

unconstitutional in that it burdens the Party’s constitutional rights without a commensurate state

interest; (2) the invalid provisions of SB54 cannot be severed from the remaining portion of the

statute and thus it should be stricken down in its entirety; and, finally, (3) by enacting SB54 with

the stated intent to dilute the Party’s power and “moderate” its allegedly “extreme” views, the

State impermissibly infringed on the Party’s fundamental rights.

STATEMENT OF ELEMENTS AND UNDISPUTED MATERIAL FACTS

A. Elements Of The Claims

1. The Unconstitutionality Of SB54

A court considering a challenge to state election law must weigh “the character and

magnitude of the asserted injury to the rights protected by the First and Fourteenth Amendments

2 See Ex. 9 (Count My Vote, Why Change Utah’s Election System?), r eferenced in Dkt 2 at ¶ 50& n.39, and available at http://www.countmyvoteutah.org/facts (last accessed October 16, 2014).3 California Democratic Party v. Jones, 530 U.S. 567, 575 (2000) (quoting Tashjian v.

Republican Party of Connecticut , 479 U.S. 208, 216 (1986), and Eu v. San Francisco County

Democratic Central Committee, 489 U.S. 214, 224 (1989)).


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that the plaintiff seeks to vindicate” against “the precise interests put forward by the State as

justifications for the burden imposed by its rule,” taking into consideration “the extent to which

those interests make it necessary to burden the plaintiff’s rights.”4 “The results of this evaluation

will not be automatic; as we have recognized, there is ‘no substitute for the har d judgments that

must be made.’”5 Where a regulation places “severe” restrictions on First Amendment rights, it

must be “narrowly drawn to advance a state interest of compelling importance.”6 Where it

imposes more limited restrictions, it is subject to less scrutiny in justifying the restrictions.7 In

Burdick v. Takushi, the Supreme Court refined the standard it previously established in Anderson

v. Celebrezze, but it has not yet established a clear test for what constitutes a “severe” burden.8 In

Crawford v. Marion County Election Board , Justice Scalia suggested that a burden is “severe if it

goes beyond the merely inconvenient.”9 In asserting the state’s interests, Defendants must make

a clear argument regarding the precise interests to be protected and cannot rely on “generalized

and hypothetical interests identified in other cases.”10

4 Burdick v. Takushi, 504 U.S. 428, 434 (1992) (citing Anderson v. Celebrezze, 460 U.S. 780,789 (1983); Tashjian v. Republican Party of Connecticut , 479 U.S. 208, 213 – 14 (1986)).5 Anderson, 460 U.S. at 789 (quoting Storer v. Brown, 415 U.S. 724, 730 (1974)).6 Burdick , 504 U.S. at 434 (citing Norman v. Reed , 502 U.S. 279, 289 (1992)).7 Id . (internal citations omitted).8 See Timmons v. Twin Cities Area New Party, 520 U.S. 351, 359 (1997) (“No bright line

separates permissible election-related regulation from unconstitutional infringements.”); The

Constitution Party of Pennsylvania v. Cortes, __ F. Supp. 3d __, 2015 WL 4506167, at *10 (E.D.Pa. July 23, 2015) (citing Timmons).9 Crawford v. Marion County Election Board , 553 U.S. 181, 205 (2008) (Scalia, J., concurring).10 Libertarian Party of Ohio v. Blackwell , 462 F.3d 579, 593 (6th Cir. 2006) (citing Reform Party

of Allegheny County v. Allegheny C ounty Dep’t of Elections, 174 F.3d 305, 315-16 (3d Cir.

1999), Anderson, 460 U.S. at 789, and Edenfield v. Fane, 507 U.S. 761, 768 (1993) (ruling that

courts cannot “supplant the precise interests put forward by the State with other suppositions” in

evaluating restrictions on commercial speech under the Central Hudson test)).


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4/27

4

2. Inapplicability Of Severance

Courts prefer to enjoin the objectionable portion of an unconstitutional statute, leaving

the rest intact.11 But the issue of severability is a question of state law.12 “In Utah, … the matter

is determined first and foremost by answering the following question: Would the legislature have

passed the statute without the unconstitutional section?”13 The court should consider any

evidence that the objectionable portions of the law are “‘interrelated’” to the non-objectionable

portions – such as whether “the invalidated provision could be regarded as part of a legislative

compromise, extracted in exchange for the inclusion of other provisions of the statute,” or

whether the invalidated portions are “so interdependent that the remainder of the statute cannot

function effectively without the invalidated provision.”14 Where unconstitutional provisions are

“interrelated” to the rest of the statute, a court should strike it down in its entirety, regardless of

any severability clause, because courts cannot “make conjecture” about whether the legislature

intended valid portions of an act to stand independent of invalid portions.15

3. Invidious Discrimination

The freedom to engage in association for the advancement of beliefs and ideas “is an

inseparable aspect of the ‘liberty’ assured by the Due Process Clause of the Fourteenth

11 See Ayotte v. Planned Parenthood of N. New England , 546 U.S. 320, 328-329 (2006). 12 Leavitt v. Jane L., 518 U.S. 137, 139 (1996); Washington State Republican Party v.

Washington State Grange, 676 F.3d 784, 798 (9th Cir. 2012) (quoting Ariz. Libertarian Party,

Inc. v. Bayless, 351 F.3d 1277, 1283 (9th Cir. 2003)).13 Leavitt v. Jane L., 518 U.S. at 139 (internal citations omitted).14 Id. at 141. 15 Salt Lake City v. International Ass’n of Firef ighters Locals 1645, 593, 1654, & 2064, 563 P.2d

786, 791 (Utah 1977).


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5/27

5

Amendment, which embraces freedom of speech.”16 The Party and its members have a

fundamental right to associate and exercise their constitutional rights without being

discriminated against based on their allegedly “extreme” viewpoints.17 Under the First

Amendment, the government is prohibited from regulating speech “when the specific motivating

ideology or the opinion or perspective of the speaker is the rationale for the restriction.”18 And,

as one Tenth Circuit judge recently summarized: “once animus is detected, the inquiry is over:

the law is unconstitutional.”19 The reason for this bright line test is simple: even under rational-

basis review, the most forgiving of equal-protection standards, a law must still have a legitimate

purpose.20 Any legislative motive qualifying as animus is never a legitimate purpose.21

B. Statement Of Undisputed Material F acts

# UNDISPUTED MATERIAL FACTS EVIDENTIARY

SUPPORT

1. The UTGOP is a Utah registered political party. Dkt 69-3 (Thomas

Depo.) at 100:13

2.

The Party is organized by its members to nominate and support theelection of Republican candidates in partisan races for elected office

and to promote the principles set forth in its Platform.

Ex. 1 (2015 PartyConstitution) at

Art. I, § B

3. In furtherance of its mission, the Party’s has adopted a platform toexpress its common message on the timely political issues of the day.

Dkt 69-4 (EvansDepo.) at 68:8-

70:4, 100:2-101:1,

16 NAACP v. Ala., ex rel. Patterson, 357 U.S. 449, 460 (1958); NAACP v. Button, 371 U.S. 415,

430 (1963); Bates v. Little Rock , 361 U.S. 516, 522 – 23 (1960). 17 Rosenberger v. Rector and Visitors of the University of Virginia, 515 U.S. 819, 829 (1995) (citations omitted)18 Id . 19 Bishop v. Smith, 760 F.3d 1070, 1103 (10th Cir. 2014) (Holmes, J., concurring).20 Id. (citing Kimel v. Fla. Bd. of Regents, 528 U.S. 62, 84 (2000), and United States v. Angelos,

433 F.3d 738, 754 (10th Cir. 2006)).21 Id . (citing Romer v. Evans, 517 U.S. 620, 632 (1996), City of Cleburne v. Cleburne Living

Ctr ., 473 U.S. 432, 448 (1985), and U.S. Dep't of Agric. v. Moreno, 413 U.S. 528, 534 (1973).


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6/27

6

113:4-114:22

4. The Party is the dominant political party in Utah in terms of the

number of members and its success in getting its nominees elected to public office at the federal, state, and local levels.

Dkt 69-3 at 203:4-

204:11; Dkt 13-3 (Evans Decl.) at

¶¶ 13-14.

5. The Party’s success in getting its candidates elected is attributable tothe candidate selection process that the Party has chosen and

designated for itself.

Dkt 13-3 at ¶ 14;Dkt 103-1

(Gabrielson

Decl.) at ¶ 16; Dkt

104-1 (LifferthDecl.) at ¶ 4

6. Compliance with this process is so important that the Party recentlyamended its constitution to provide that “Party membership is open toany resident of the State of Utah who registers to vote as a Republican

and complies with the Utah Republican Party Constitution and Bylaws

….”

Ex. 1 (2015Constitution) atArt. I, § C

7. The State is limited in what it can require in terms of how a registered

political party selects its candidates, mandating, in relevant party, only

that the Party register with the State, identify its name and emblem, and

adopt a constitution and bylaws that contain “a procedure for selecting party candidates at the federal, state, and county levels that allows

active participation by party members.”

U.C.A. § 20A-8-

401(2)(c); Dkt 69-

3 at 99:11-103:21,

111:7-112:10

8. The Party has designated a candidate selection process that seeks toensure that its members are substantively engaged and motivated to

contribute to the Party’s mission and message, and that its candidates

represent the Platform and are responsive to the demands of members.

Dkt 103-1 at ¶¶ 3-5, 10-13; Dkt

104-1 at ¶ 5

9. This designated candidate selection process is the culmination of years

of experience and effort by the Party to design a process that will

reliably produce candidates that have broad Party support, represent itsPlatform and ideals, and have the ability to win general elections.

Dkt 13-3 at ¶¶ 19-

20; Dkt 103-1 at ¶

10

10.

Utah election code prohibits provisions governing primary elections

from being construed “to govern or regulate the internal procedures of

a registered political party.”

U.C.A. § 20A-9-

401(2); Dkt 69-3

at 111:7-112:10

11. In this, the State has admitted that it has no interest or authority in

dictating to the Party how it should choose its candidates.

Dkt 69-3 at 99:11-

103:21, 111:7-

112:10


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12. The State has admitted that it has no interest or authority to review the

Party’s designated candidate selection process to determine its

compliance with the Utah election code.

Dkt 69-3 at

103:17-104:19,

133:3-24, 135:7-136:5

13. The State has admitted that should not construe that part of Utah’s

election code providing for primary elections to govern or regulate the

internal procedures of a registered political party.

Dkt 69-3 at 108:1-

15; U.C.A. §

20A-9-401(2)

14. The candidate selection process that the Party has designed and

implemented includes caucus meetings, nominating and organizing

conventions, and, where the Party deems necessary, a primary election.

Dkt 13-3 at ¶ 20;

Ex. 1 (2015

Constitution) Art

XII.1.A-.B &.2.A-.J

15. At caucus meetings, members of the Party, organized by neighborhood precincts, select delegates to the Party’s county and state nominating

conventions. Participation is strictly limited to registered Party

members.

Dkt 13-3 at ¶ 21

16. The Party’s bylaws mandate that caucus meetings begin with a prayer,the recitation of the pledge of allegiance, and a reading of the Party’s

Platform.

Dkt 13-3 at ¶ 21

17. These procedures ensure that the Party’s caucus meetings engage

members substantively in the organization’s common views and principles, and that those selected as Party delegates understand and

accept the responsibility and trust their fellow members have placed in

them to vet candidates and play a leadership role in the Party.

Dkt 103-1 at ¶ 5;

Dkt 104-1 at ¶ 3

18. At the Party’s county and state nominating conventions, the delegates

selected at neighborhood caucus meetings vote to nominate the Party’s

candidates for partisan federal, state and local elected offices.

Dkt 13-3 at ¶ 22

19. By employing a process where the Party’s candidates are selected by

delegates, who themselves were selected by members at neighborhood

caucuses around the state, the Party ensures that delegates are able toengage candidates in substantive discussions on the issues important toParty members, vet them more rigorously than a process without the

caucus and convention processes, and eliminate candidates that do not

represent Party values and standards.

Dkt 103-1 at 16;

Dkt 104-1 at ¶ 4

20. Among other things, the Party requires that candidates seeking its

nomination for elected office sign and submit a certification that they

Ex. 2 (Party

Bylaws) § 8.0(A)


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will comply with Party’s candidate selection rules and processes.

21. The Party also requires that candidates seeking its nomination sign and

submit a disclosure statement regarding the Party Platform prior to thenominating convention so that delegates may consider it in advance of

their selection.

Ex. 2 (Party

Bylaws) § 8.0(A)-(B); Dkt 13-3 at ¶

22

22. In that Platform disclosure statement, candidates must certify that theyare “not a candidate, officer, delegate nor position holder in any party

other than the Republican party,” that they have “read the …

Platform,” and that they either “support … and accept it” in its entirety,

or with the exceptions specified, “as the standard by which [their] performance as a candidate and as an officeholder should be

evaluated.”

Ex. 2 (PartyBylaws) § 8.0(A)-

(B)

23. The Party’s nominating convention procedures require that delegates be notified of any candidate’s failure to submit a Platform disclosure

statement immediately prior to balloting for that candidate’s office.

Ex. 2 (PartyBylaws) § 8.0(B);

Dkt 13-3 at ¶ 22

24. Except for candidates running unopposed, delegates to the nominatingconvention vote for Party nominees only after substantive speeches are

made either by the individual candidates or on their behalf.

Dkt 13-3 at ¶ 22

25. The Party’s constitution and bylaws dictate the voting procedure for the

nominating conventions, mandating multiple ballots for each elected

office until the field is winnowed to the top two candidates, or until acandidate receives 60% or more of the delegate’s vote.

Dkt 13-3 at ¶ 23;

Ex. 1 (2015

Constitution) atArt. XII.2.H-.J

26. The Party’s constitution provides that “[a] candidate for an office thatreceives 60% or more of the votes cast at any point in the balloting

process at the state nominating conventions shall proceed to the general

election.”

Ex. 1 (2015Constitution) at

Art. XII.2.I

27. If no candidate receives 60% or more of the delegates’ vote at

convention as to a particular elected office, the Party nominates the top

two candidates to run in a primary election.

Dkt 13-3 at ¶ 24;

Ex. 1 (2015

Constitution) at

Art. XII.2.I & 5.A

28. Only in this manner does the Party authorize the certification of its

nominee to the State’s election officer with its official mark and

endorsement.

Ex. 1 (2015

Constitution) at

Art. XII; Dkt 13-3 at ¶ 23

29. The Party’s Constitution restricts participation in its primary election to Dkt 13-3 at ¶ 25;

Ex 1 (2015


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voters who are registered Republicans. Constitution) at

Art. XII.5.B

30.

Only by limiting its primaries to Party members and limiting its use ofa primary election to those instances where neither of the top two

candidates at the Party’s nominating convention receive more than

60% does the Party ensure that its nominee will receive a majority ofvotes cast by Party members in any primary election.

Dkt 13-3 at ¶¶ 26-28

31. Without these procedures, the Party faces the possibility that a

candidate will become its nominee without receiving even a majority

vote from its members.

Dkt 103-1 at ¶¶

10, 18-20; Dkt

13-3 at ¶¶ 26-29

32. In 2014, the Utah legislature passed SB54, and the Governor of Utah

signed it into law, amending the Utah election code extensively.

Ex. 8 (SB54)

33. In 2015, the Utah legislature passed SB207, and the Governor of Utahsigned it into law, further amending the Utah election code. (For ease

in reference, this motion will refer to the amendments to the Utah

election code as set forth in SB54 and SB207 collectively as “SB54.”)

Dkt 61-1

34. Under SB54, political parties desiring to have candidates featured with

party affiliation on the upcoming general election ballot must file a

statement with the Lieutenant Governor to proceed as an RPP or QPP.

Dkt 69-3 at

100:15-103:16

35.

If the Party does not “choose” one of the two paths, the State takesaway its right to appear on the ballot as a straight ticket option. Dkt 69-3 at112:11-114:5,

127:21-128:8,

128:21-130:7,172:20-174:18

36. In this litigation, the Party asserted initially that SB54 burdened its

rights by requiring amendments to its constitution and bylaws.

Dkt 13-3 at ¶¶ 67-

86

37. The State admitted that SB54 recited candidate selection procedures

that did not include a prayer, recitation of the pledge of allegiance, and

a review of the Party’s platform.

Dkt 69-3 at

100:17-102:10

38. The State refused to say whether SB54 is consistent with U.C.A. §20A-9-401(2).

Dkt 69-3 at108:22-109:18

39. The State represented that the Party did not need to make any changes

to its internal procedures in order to get its candidates on the generalelection ballot with its caucus and convention system, and need only

Dkt 69-3 at 119:6-

124:7, 131:14-17,132:9-133:15;

145:18-147:8;


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file a letter with the state elections office declaring itself a QPP. 148:24-149:23;

151:21-152:25

40.

SB54 requires that parties who certify their intent to participate in theupcoming election as a QPP allow unaffiliated voters to participate in

their primary election, forcing the Party to open itself up as a QPP to a

population of unaffiliated voters almost equal to the number ofregistered Republicans in the state.

U.C.A. § 20A-9-101(12)(a); Dkt

69-3 at 214:13-

215:13

41. The State admitted that this unaffiliated voter requirement under SB54

would dilute the Party’s impact on elections in the State, taking no

position as to whether this was a desirable outcome.

Dkt 69-3 at

203:13-204:11

42. The State has testified that it intends to enforce the “unaffiliated

voters” provision of the QPP, regardless of whether the Party’scandidate selection processes limit participation in its primary electionsto members of the Party only.

Dkt 69-3 at

178:23-181:1,181:17-182:3

43. The State also admitted that SB54 forces a Party to accept candidate

selection procedures without any provision to ensure that the Party’scandidate is selected by a majority, as opposed to a mere plurality, of

Party members.

Dkt 69-3 at 186:5-

189:17

44. The State’s representative admitted that this plurality issue was “a

legitimate concern” regarding SB54.

Dkt 69-3 at 188:4-

17

45.

At the hearing held April 10, 2015, on the Party’s motion for a

preliminary injunction, the Court explained to the Party: “If you don’t

choose [a path as between QPP and RPP] then I won’t know” howSB54 burdens the Party’s rights.

Ex. 3 (4/10/2015

Hrg.) 45:15-22

46. The Court denied the Party’s motion for a preliminary injunction based

on its conclusion that the Party’s “as applied” challenge to SB54 wasnot yet “ripe,” because it had yet to designate itself as a QPP, and that

the Party’s facial challenge failed because the burdens RPP imposed

were “easily resolvable by the party membership requirements” and

“[t]he State has nothing to say about who’s [a] member of the a party… except to say it’s determined in accordance with party rules.”

Ex. 3 (4/10/2015

Hrg.) 122:15-124:12

47. Regarding the unaffiliated voter issue, the court distinguished the

State’s arguments by pointing out that U.C.A. § 20A-9-101(12)(a)“pushes the unaffiliated voter in,” to a QPP, where “[t]he voter under

past practice would make the choice to opt in,” and “it is the State’s

pushing or forcing which is questionable constitutionally.”

Ex. 3 (4/10/2015

Hrg.) at 126:21-25


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Utah GOP motion for summary judgment

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