UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

LEIGH BROWN

4711 Myers Lane

Harrisburg, NC 28075,

LEIGH BROWN FOR CONGRESS

4711 Myers Lane

Harrisburg, NC 28075,

LEIGH BROWN & ASSOCIATES

24 Cabarrus Avenue East

Concord, NC

Plaintiffs,

v. 

FEDERAL ELECTION COMMISSION

1050 First Street, NE

Washington, DC 20463,

Defendant.

Civil Case No. _________________

PLAINTIFFS’ STATEMENT OF 

POINTS AND AUTHORITIES IN

SUPPORT OF EMERGENCY

MOTION FOR TEMPORARY

RESTRAINING ORDER

Plaintiffs request that this Court issue a temporary restraining order enjoining the 

Defendant from applying the electioneering communications disclosure and disclaimer 

requirements of the Federal Election Campaign Act of 1971, as amended (“FECA”), to Leigh 

Brown & Associates’ commercial radio advertisements for the firm until such time as this court 

can consider the forthcoming preliminary injunction motion and issue a ruling on that injunction. 

Plaintiffs have diligently pursued resolution through the administrative process, filing an advisory 

opinion request with the Federal Election Commission on March 21, 2019 – eight days after Ms. 

Brown became a candidate for federal office – and requesting expedited consideration. On April 

11, 2019, the Commission failed to approve an advisory opinion request that would have granted 

Plaintiffs the relief sought. Because the electioneering communications window for Ms. Brown 

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opens Sunday, April 14, 2019, Plaintiffs now seek this Temporary Restraining Order to preserve 

the status quo until such time as this Court can hear the forthcoming preliminary injunction request.

STATEMENT OF FACTS

Leigh Brown, a first-time federal candidate, is a partner with RE/MAX and the President 

and Chief Executive Officer of Leigh Brown & Associates. Leigh Brown & Associates is a forprofit business entity that was incorporated in North Carolina under the name Mallard Creek 

Properties, Inc. on July 25, 2003. Leigh Brown & Associates provides real estate agent services 

in and around the Charlotte area in North and South Carolina. A total of eight other individuals 

work with Leigh Brown & Associates – four real estate agents and four administrative staff 

members – either as employees or independent contractors. 

For the past 13 years, Ms. Brown has voiced radio advertisements publicizing Leigh Brown 

& Associates. Currently, all of these radio advertisements are run exclusively on WBT 1110, a 

commercial AM radio station serving the Charlotte metropolitan area, which includes parts of 

North Carolina and South Carolina. Leigh Brown & Associates has an annual contract with WBT 

to air the company’s advertisements.

1

 Ms. Brown develops the content of the advertisements 

herself without the use of a media production vendor, and she typically records two radio 

advertisements at a time at WBT’s facilities. The two advertisements are then broadcast on a 

rotating basis. The length of time a particular advertisement remains on the air varies, but Ms. 

Brown typically creates and records new advertisements every 60 to 90 days. This radio 

advertising is a core component of Ms. Brown’s efforts to generate business for herself and the 

other agents on her real estate team. At least 10% of Leigh Brown & Associates’ annual 

 1 The current contract was entered into with Entercom Charlotte WBT AM/FM in December 2018 and covers calendar 

year 2019. The contract specifies 706 broadcast spots for $48,204, or approximately 13.5 airings per week, further 

divided into a series of daily time ranges.

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commission revenue is attributable to clients acquired as a result of the radio advertising. 

Accordingly, Leigh Brown & Associates spends approximately $50,000 on radio advertising each 

year. 

The specific content of the radio advertisements run by Leigh Brown & Associates has 

varied over the years, but ads have followed a similar template. Advertisements generally are 60 

seconds in length, and typically feature discussion of a real estate issue specific to the Charlotte 

real estate market (e.g., local property values and trends in housing prices). The advertisements 

typically note how many houses her team sells and consistently include two closing slogans: “I’m 

interviewing for a job...I want to be your realtor” and “There is a difference when you call Leigh 

Brown.” 

If Ms. Brown is unable to advertise for her business during the electioneering 

communications window, it will have a detrimental impact on her real estate firm and the 

employees/contractors who rely on it for their livelihood. To be clear, the FECA does not entirely 

prohibit the firm from running business advertisements after April 14, but as of that date, if the

advertisement meets the definition of an electioneering communication, Ms. Brown will be forced 

to take the current ads off the air and substitute them with one or more new ads that include a 

lengthy campaign disclaimer at the end that will no doubt confuse listeners and suggest that her 

real estate advertisements are connected to an election,2 Ms. Brown’s firm would also be required 

to file public disclosure reports with the FEC to report spending that has absolutely nothing 

whatsoever to do with an election.

 2 The disclaimer for the commercial real estate advertisement would be “Paid for by Leigh Brown and Associates. 

Leigh Brown and Associates is responsible for the content of this advertising. Not authorized by any candidate or 

candidate’s committee. www.leighsells.com.” This could easily take up 10-15 seconds of a 60 second commercial 

advertisement.

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 Therefore, she seeks to continue airing the two radio advertisements transcribed below 

during the electioneering communication window for the upcoming special primary election on 

May 14. Ms. Brown began airing these specific commercial advertisements in the Charlotte area 

on or about March 5, 2019, prior to her becoming a federal candidate. As of April 14, these 

advertisements will satisfy FECA’s basic statutory definition of “electioneering communication” 

and trigger the disclaimer and reporting requirements described above. Ms. Brown does not intend 

to change the content or advertising volume of these two advertisements during the rapidly 

approaching electioneering communications window. 

Radio Ad #1:

In a world where everything seems to be online and at the click of a button, you 

have to realize that real estate pricing is just not an exact science. I’m Leigh Brown 

with RE/MAX and I’m getting a lot of phone calls about the current tax valuations 

and the updates to the process. My clients need help with disputing that number 

because occasionally it’s wrong. I also have folks that want to know what their 

property is worth based on their upgrades and condition and I can give a more 

accurate ballpark than a website can. Frankly, y’all, the reason you have a trusted 

realtor is that we are there for you between the buying and the selling and all steps 

in between. My team and I sell a house every two days, y’all, and that’s not 

bragging. That’s interviewing for a job. In fact, the job I want is to be your realtor 

for life. For more information, visit my website at leighsells.com or call anytime 

at 704-705-7036, that’s 705-7036. There is a difference when you call Leigh 

Brown.

Radio Ad #2:

I believe it’s a natural human reflex to see a realtor and ask, “Hey, how’s the 

market?” I’m Leigh Brown with RE/MAX and I can tell y’all that is the number 

one question I’m being asked right now by folks considering buying or selling real 

estate in the Charlotte market. Sellers should know that while prices are still 

creeping upward, so are days on market. That’s reducing the number of multiple 

offer situations although frankly it all depends on what zip code you’re in and your 

price point. Now, let’s look at those factors differently and realize it creates a 

favorable situation for buyers. Add great interest rates to the normalization of the 

market and you probably should consider calling me for an evaluation on buying 

and selling. You can always get information on my website at leighsells.com and 

find out why my team and I are selling a house every two days. I’m not bragging 

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about that statistic, y’all, I’m interviewing for a job. I want to be your realtor. Call 

me anytime at 704-705-7036, that’s 705-7036. There is a difference when you call 

Leigh Brown.

The content of these two advertisements is consistent with the format of Leigh Brown & 

Associates’ past advertisements. Ms. Brown’s political campaign has engaged an entirely 

separate, political media vendor for campaign advertising and strategy purposes and that vendor 

played no role in the creation or airing of the commercial advertisements for Ms. Brown’s real 

estate business.

In the interest of maintinaing a consistent business presence on the radio, Ms. Brown 

presented the FEC with an alternative, proposing to revise the ad scripts as set forth below, rerecord both ads, and replace the currently-airing ads described above with the following ads during 

the electioneering communications period: 

Radio Ad #1 – Alternate Script

In a world where everything seems to be online and at the click of a button, you 

have to realize that real estate pricing is just not an exact science. I’m We’re Leigh 

Brown & Associates with ReMax and I’m we’re getting a lot of phone calls about 

the current tax valuations and the updates to the process. My Our clients need help 

with disputing that number because occasionally it’s wrong. I We also have folks 

that want to know what their property is worth based on their upgrades and 

condition and I we can give a more accurate ballpark than a website can. Frankly, 

y’all, the reason you have a trusted realtor is that we are there for you between the 

buying and the selling and all steps in between. My Our team and I sells a house 

every two days, y’all, and that’s not bragging. That’s interviewing for a job. In 

fact, the job I we want is to be your realtor for life. For more information, visit my

our website at leighsells.com or call anytime at 704-705-7036, that’s 705-7036. 

There is a difference when you call Leigh Brown & Associates.

Radio Ad #2 – Alternate Script

I believe it’s a natural human reflex to see a realtor and ask, “Hey, how’s the 

market?” I’m We’re Leigh Brown & Associates with ReMax and I can tell y’all 

that is the number one question I’m we’re being asked right now by folks 

considering buying or selling real estate in the Charlotte market. Sellers should 

know that while prices are still creeping upward, so are days on market. That’s 

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reducing the number of multiple offer situations although frankly it all depends on 

what zip code you’re in and your price point. Now, let’s look at those factors 

differently and realize it creates a favorable situation for buyers. Add great interest 

rates to the normalization of the market and you probably should consider calling 

me us for an evaluation on buying and selling. You can always get information on 

my our website at leighsells.com and find out why my our team and I are selling

sells a house every two days. I’m We’re not bragging about that statistic, y’all, 

I’m we’re interviewing for a job. I We want to be your realtor. Call me us anytime 

at 704-705-7036, that’s 705-7036. There is a difference when you call Leigh 

Brown & Associates.

The FEC failed to approve either version of Ms. Brown’s request.

INTRODUCTION

The statutory definition of “electioneering communication” is set forth at 52 U.S.C. § 

30104(f)(3)(A). The Act exempts four categories of communications from the statutory definition, 

including “any other communication exempted under such regulations as the Commission may 

promulgate ... to ensure the appropriate implementation of this paragraph, except that under such 

regulation a communication may not be exempted if it meets the requirements of this paragraph 

and is described in section 30101(20)(A)(iii) of this title.” 52 U.S.C. § 30104(f)(3)(B)(iv). The 

provision referenced in the quoted language above refers to “a public communication that refers 

to a clearly identified candidate for Federal office (regardless of whether a candidate for State or 

local office is also mentioned or identified) and that promotes or supports a candidate for that 

office, or attacks or opposes a candidate for that office (regardless of whether the communication 

expressly advocates a vote for or against a candidate).” 52 U.S.C. § 30101(20)(A)(iii).

It is well established that Congress’ stated motivation in enacting the “electioneering 

communications” provisions was to regulate so-called “sham issue ads” that were paid for with 

non-federal funds. There is no suggestion anywhere in the legislative record that Congress 

intended to capture and treat bona fide commercial advertisements as election ads. 

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This Court should either find the statutory electioneering communications regime 

unconstitutional as applied, or engage in constitutional avoidance and find that these 

advertisements are entitled to an exemption from the applicable electioneering communications 

requirements. This is because the FEC failed to exercise its discretion in a reasonable manner by 

issuing an advisory opinion concluding that Leigh Brown & Associates’ current commercial 

advertisements are entitled to exemption from FECA’s electioneering communication regime.

The Court should also find that Leigh Brown & Associates proposed alternative radio 

advertisements do not fall within the statutory definition of “electioneering communication” 

because they do not clearly identify a federal candidate. In each of the alternate ads, Ms. Brown 

narrates the ad, but she does not identify herself individually or refer to herself individually in any 

way whatsoever. The alternate scripts remove all references to Ms. Brown individually and replace 

those references with references to a business, Leigh Brown & Associates, or with generic

references to her real estate team. 

Under similar circumstances presented in Advisory Opinion 2004-31 (Darrow), the 

Commission determined that commercial advertisements for a series of car dealerships whose 

names included the same name as federal candidate Russ Darrow did not clearly identify the 

candidate even though the name “Russ Darrow” was used throughout the proposed advertisements. 

The Commission relied on several factors to reach this conclusion, including that the business had 

worked for a decade to develop “Russ Darrow” as a brand name for all its dealerships, and that 

most of the references included the full name through which a particular dealership does business 

(e.g., Russ Darrow Toyota, Russ Darrow Kia, Russ Darrow Cadillac). Here, the alternate 

advertisements include Ms. Brown’s name only as part of the name of a business, Leigh Brown & 

Associates. While Leigh Brown is unquestionably the individual named in “Leigh Brown & 

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Associates,” unlike the more ambiguous situation in Advisory Opinion 2004-31, in which both a 

father and son shared the name “Russ Darrow,” this distinction is not material and does not dictate 

a different result. In Advisory Opinion 2004-31, the Commission concluded that “proposed 

advertisements refer to [Russ Darrow Group’s] car dealerships or Russ Darrow III, and not to” 

Russ Darrow, Jr. As in Advisory Opinion 2004-31, Ms. Brown has worked on building her brand, 

Leigh Brown & Associates, for over 15 years and the continued success of her real estate team 

depends on the advertising that is the subject of this request. Just as “Russ Darrow Toyota” 

referred to a car dealership, “Leigh Brown & Associates” refers to a real estate agency. 

Further, though Ms. Brown’s voice narrates the script of the radio advertisements, this 

Court should conclude that her voice is not so widely recognized that it “is a contextually 

unambiguous reference” to a federal candidate. This would be consistent with federal court 

precedent holding that an incumbent presidential candidate’s voice was not necessarily an 

“unambiguous reference” to that candidate. Specifically, in Hispanic Leadership Fund, Inc. v. 

FEC, 897 F. Supp. 2d 407 (E.D. Va. 2012), a federal court considered “an audio clip of President 

Obama speaking only an eight-word sentence” where that clip is preceded by an announcer saying, 

“the government says.” The court concluded that “because the audio clip of President Obama is 

not identified as such, whether the advertisement refers to President Obama depends entirely on 

whether the viewer actually recognizes the voice of the person speaking. Although the FEC argues 

that President Obama's voice is widely recognized, there is no factual basis for reaching this 

conclusion.” Hispanic Leadership Fund, Inc. v. FEC, 897 F. Supp. 2d 407, 430 (E.D. Va. 2012).” 

Id. 

While the court left open the possibility that it could be factually demonstrated that 

President “Obama’s voice is widely recognized,” we believe the Court would be on solid ground 

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if it concluded that Ms. Brown’s narration of the advertisements is not so “widely recognized” that 

it constitutes an unambiguous reference to her. Given that the revised ad scripts do not identify 

Ms. Brown individually, it is unlikely that the average listener would identify her by voice alone. 

Based on the foregoing, the Court should conclude that the alternate radio advertisements 

do not refer to a clearly identified candidate under 11 C.F.R. § 100.29(b)(2) and, thus, do not fall 

within the definition of “electioneering communication.” 

STANDARD OF REVIEW

The standard for obtaining a temporary restraining order is identical to that of a 

preliminary injunction. See, e.g., Coalition for Parity, Inc. v. Sebelius, 709 F. Supp. 2d 6 (D.D.C.

2010). This Court recently explained that “[a] preliminary injunction is ‘an extraordinary remedy 

that may only be awarded upon a clear showing that the plaintiff is entitled to such relief.’” Elec. 

Privacy Info. Ctr. v. DOJ, 15 F. Supp. 3d 32, 38 (D.D.C. 2014) (citing Winter v. Natural Res. Def. 

Council, Inc., 555 U.S. 7, 22 (2008)). To obtain a temporary restraining order, the moving party 

must show: “(1) a substantial likelihood of success on the merits; (2) that it would suffer irreparable 

injury if the injunction is not granted; (3) that the balance of equities tips in its favor; and (4) that 

the public interest would be furthered by the injunction.” Wash. Metro. Area Transit Auth. v. Local

689, Amalgamated Transit Union, 2015 U.S. Dist. LEXIS 83838, *11-12 (D.D.C. June 29, 2015) 

(citing Winter v. NRDC, Inc., 555 U.S. 7, 20 (2008)); see also Coalition for Parity, Inc., 709 F. 

Supp. 2d at 7-8; Hall v. Johnson, 599 F. Supp. 2d 1, 6 n. 2 (D.D.C. 2009).

“In conducting an inquiry into these four factors, ‘[a] district court must 'balance the 

strengths of the requesting party's arguments in each of the four required areas.’” Elec. Privacy 

Info. Ctr, 15 F. Supp. 3d at 38 (internal citation omitted). “The District of Columbia Circuit applies 

a ‘sliding-scale’ approach to the preliminary injunction factors, meaning that ‘a strong showing on 

one factor could make up for a weaker showing on another.’” Indian River Cnty. v. Rogoff, 2015 

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U.S. Dist. LEXIS 74895, *17 (D.D.C. June 10, 2015) (citation omitted).

1 Furthermore, the 

electioneering communications rules at issue here implicate First Amendment rights, meaning the 

burden shifts to the FEC to justify its regulatory actions. See U.S. v. Playboy Entm’t Group, Inc., 

529 U.S. 803, 816 (2000) (“When the Government restricts speech, the Government bears the 

burden of proving the constitutionality of its actions.”). 

Plaintiffs requests that this Court issue a temporary restraining order enjoining the 

Defendant from applying the electioneering communications disclosure and disclaimer 

requirements of the Federal Election Campaign Act of 1971, as amended (“FECA”), to Leigh 

Brown & Associates current commercial advertisements. These advertisements are clearly entitled 

to an exemption from the electioneering communications rules under the standard set forth in 

FECA, and as further described by the legislative sponsors during floor debate. In the alternative, 

this Court could issue a temporary restraining order prohibiting enforcement of the electioneering 

communications rules against the proposed alternative advertisements because they do not meet 

the statutory definition of electioneering communications. 

This case is not ultimately about what might be the best or preferred scope of coverage for 

federal campaign finance reporting and disclosure requirements, but rather, what the federal 

campaign finance law currently does cover, and to what extent campaign finance law may properly 

be construed to cover bona fide commercial advertising under applicable First Amendment 

precedent. Plaintiffs challenge the constitutionality of the electioneering communications 

provisions as applied to the current commercial advertisements, and also seek a declaratory 

judgment that the proposed alternative advertisements are not “electioneering communications.”

ARGUMENT

I. PLATINTIFFS ARE ENTITLED TO A PRELIMINARY INJUNCTION.

Case 1:19-cv-01021-TJK Document 2-1 Filed 04/11/19 Page 10 of 24
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a. Plaintiffs are likely to Succeed on the Merits of the Constitutional Claim 

and the Declaratory Ruling Claim.

“Electioneering communications” are a construct of campaign finance law conceived as an 

expansion of the so-called “magic words” standard of “express advocacy” set forth in Buckley v.

Valeo, 424 U.S. at 43-44, that would allow Congress to broaden its scope of regulation to include 

“so-called issue ads [that] eschewed the use of magic words” but which were being “used to 

advocate the election or defeat of clearly identified federal candidates.” McConnell v. FEC, 540 

U.S. 93, 126 (2003). As the United States Supreme Court explained in McConnell:

The first section of Title II, § 201, comprehensively amends [Federal Election 

Campaign Act] § 304, which requires political committees to file detailed 

periodic financial reports with the FEC. The amendment coins a new term, 

“electioneering communication,” to replace the narrowing construction of FECA’s 

disclosure provisions adopted by this Court in Buckley. As discussed further below, 

that construction limited the coverage of FECA’s disclosure requirement to 

communications expressly advocating the election or defeat of particular 

candidates. By contrast, the term “electioneering communication” is not so limited, 

but is defined to encompass any “broadcast, cable, or satellite communication” that

“(I) refers to a clearly identified candidate for Federal office;

“(II) is made within--

“(aa) 60 days before a general, special, or runoff election for the office sought by 

the candidate; or

“(bb) 30 days before a primary or preference election, or a convention or caucus of 

a political party that has authority to nominate a candidate, for the office sought by 

the candidate; and

“(III) in the case of a communication which refers to a candidate other than 

President or Vice President, is targeted to the relevant electorate.” 2 USC § 

434(f)(3)(A)(i) (Supp. 2003).

New FECA § 304(f)(3)(C) further provides that a communication is “’targeted to 

the relevant electorate’” if it “can be received by 50,000 or more persons” in the 

district or State the candidate seeks to represent. 2 USC § 434(f)(3)(C).

Id. at 189-90 (emphasis added). The plaintiffs in McConnell challenged the “electioneering 

communication” provision, arguing that the Court in Buckley “drew a constitutionally mandated 

line between express advocacy and so-called issue advocacy, and that speakers possess an 

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inviolable First Amendment right to engage in the latter category of speech.” Id. at 190. They 

argued that Buckley permitted regulation only of communications that contained express advocacy. 

The majority in McConnell rejected these arguments and explained that the Buckley Court’s 

adoption of the express advocacy standard was only a narrowing construction that saved otherwise 

“impermissibly vague” statutory language. Id. at 190-91. The Court explained:

Thus, a plain reading of Buckley makes clear that the express advocacy limitation, 

in both the expenditure and the disclosure contexts, was the product of statutory 

interpretation rather than a constitutional command. In narrowly reading the FECA 

provisions in Buckley to avoid problems of vagueness and overbreadth, we 

nowhere suggested that a statute that was neither vague nor overbroad would be 

required to toe the same express advocacy line.

Id. at 191-92. The McConnell Court concluded that the new “electioneering communications” 

standard satisfied the Buckley Court’s concerns:

[W]e observe that new FECA § 304(f)(3)’s definition of “electioneering 

communication” raises none of the vagueness concerns that drove our analysis in 

Buckley. The term “electioneering communication” applies only (1) to a broadcast 

(2) clearly identifying a candidate for federal office, (3) aired within a specific time 

period, and (4) targeted to an identified audience of at least 50,000 viewers or 

listeners. These components are both easily understood and objectively 

determinable.

Id. at 194 (emphasis added); see also FEC Brief at 129 (“Congress designed BCRA’s definition 

of ‘electioneering communication[s]’ to meet the Supreme Court’s concerns about vagueness of 

certain language in FECA’s regulation of independent expenditures. It draws a clear line in the 

right place...”). 

After initially upholding the electioneering communications provisions against a facial 

challenge in McConnell, the Supreme Court subsequently issued a series of decisions that 

dismantled BCRA’s electioneering communications funding restrictions. See Wisconsin Right to 

Life v. FEC, 546 U.S. 410 (2006) (WRTL I); Wisconsin Right to Life v. FEC, 551 U.S. 449 (2007) 

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(WRTL II); Citizens United v. FEC, 558 U.S. 50 (2010). BCRA’s disclosure provisions that apply 

to electioneering communications have survived, however. Thus, while the “electioneering 

communications” concept previously served (primarily) as a ban on speech, it exists today as a 

trigger for disclaimer and disclosure requirements. Accordingly, would-be speakers, in order to 

satisfy various legal requirements, must still be cognizant of whether their constitutionally 

protected speech is an “electioneering communication.”

1. Plaintiffs are Entitled to an Exemption for the Existing and Ongoing 

Commercial Advertisements.

While the very name of the concept indicates its anticipated scope — i.e., electioneering

communications – the term’s bright line definition makes overbreadth a very real possibility, as 

the present circumstances demonstrate. In the first electioneering communications rulemaking, 

the FEC noted that “the principal Congressional sponsors of BCRA explained the exemption 

authority would ‘allow the Commission to exempt communications that ‘plainly and 

unquestionably’ are ‘wholly unrelated’ to an election and do not ‘in any way’ support or oppose a 

candidate.” Final Rule on Electioneering Communications, 67 Fed. Reg. 65,190, 65,198 (October 

23, 2002). In 2002, the FEC considered adopting a regulatory exemption for business 

advertisements, specifically, “an exemption for communications that refer to a clearly identified 

candidate in the context of promoting a candidate’s business, including a professional practice, for 

example.” Id. at 65,202. The FEC, however, declined to adopt a blanket exemption for business 

advertisements, explaining:

The Commission has determined that a narrow exemption for such ads is not 

appropriate and cannot be promulgated consistent with the Commission’s authority 

under 2 U.S.C. 434(f)(3)(B)(iv). Based on past experience, the Commission 

believes that it is likely that, if run during the period before an election, such 

communications could well be considered to promote or support the clearly 

identified candidate, even if they also serve a business purpose unrelated to the 

election.

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Id.

In 2004, the FEC determined that it could consider through the advisory opinion process, 

on a case-by-case basis, whether particular advertisements referenced a clearly identified candidate 

or not. See Advisory Opinion 2004-31 (Russ Darrow Group, Inc.) at 4 (“The decision not to adopt 

a blanket exemption for such communications, however, does not preclude the Commission from 

making a determination that the specific facts and circumstances of a particular case indicate that 

certain advertisements do not refer to a clearly identified Federal candidate and, hence, do not 

constitute electioneering communications.”). In the Russ Darrow matter, the FEC concluded that 

commercial advertisements for Russ Darrow-branded car dealerships did not refer to a clearly 

identified candidate for federal office, and thus, were not “electioneering communications.” 

Rather, under “the factual circumstances presented,” “the use of the name ‘Russ Darrow’ refers to 

a business or to another individual who not a candidate.” Advisory Opinion 2004-31 at 3. The 

FEC explained:

The Commission concludes that your proposed advertisements refer to RDG’s 

[Russ Darrow Group, Inc.] car dealerships or Russ Darrow III, and not to the 

Candidate. First, the Candidate himself does not speak or appear on screen in any 

of the advertisements. Second, another individual, Russ Darrow III, does speak and 

appear in the advertisements. You indicate that he, not the Candidate, has been the 

public face of the company for more than ten years. Third, “Russ Darrow” is part 

of the name of all of RDG’s dealerships, which RDG has worked for a decade to 

develop as a brand name for all its dealerships. Finally, while the name “Russ 

Darrow” is used throughout the proposed advertisements, most of these references 

include the full name through which a particular dealership does business (e.g., 

Russ Darrow Toyota, Russ Darrow Kia, Russ Darrow Cadillac). While a couple of 

the proposed advertisements also include a single reference to “Russ Darrow,” 

rather than the full name through which the dealership does business, these 

references, taken together with the other references in the advertisement, also refer 

to the business entity and not to the Candidate. Therefore, the Commission 

concludes that RDG’s television and radio advertisements do not refer to a clearly 

identified candidate under 11 CFR 100.29(b)(2).

Id.

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In 2012, the FEC considered a request to grant an exemption for a commercial 

advertisement that everyone agreed included references to a clearly identified candidate. In 

Advisory Opinion Request 2012-20, Markwayne Mullin sought an electioneering communication 

exemption for televised business advertisements for his company, Mullin Plumbing, Inc. The FEC

was unable to approve a response, but the applicable legal standard appears to be clear. 

First, a majority of Commissioners agreed that the FEC had the authority to grant an 

exemption through the advisory opinion process, although the issue was not settled definitively. 

Two Commissioners voted to approve a draft that would have granted the exemption sought, while 

two other Commissioners wrote, “[w]e agree that the Commission may grant such exemptions,” 

while noting that there was legislative history in support of that position. These Commissioners 

referenced statements made by the legislation’s House sponsors. Specifically, Representative 

Shays stated “[w]e also expect the Commission to use its Advisory Opinion process to address 

these [exemption] situations both before and after the issuance of regulations.” 148 Cong. Rec. 

H411 (Feb. 13, 2002) (statement of Rep. Shays). Representative Meehan made a similar statement. 

148 Cong. Rec. E178-03 (Feb. 13, 2002) (statement of Rep. Meehan). Vice Chair Weintraub and 

Commissioner Bauerly wrote: “We are prepared to revisit this issue where the facts presented 

warrant an exemption.” Statement on Advisory Opinion Request 2012-20 (Mullin) of Vice Chair 

Ellen L. Weintraub and Commissioner Cynthia L. Bauerly.

Second, the path to concluding that an exemption is warranted requires showing that the 

communications at issue are “plainly and unquestionably not related to the election.” Id; see also

Advisory Opinion 2012-20, Response Draft B. In 2012, two Commissioners concluded that “[t]he 

Mullin Companies have become intertwined with the Mullin campaign to the point where it can 

no longer be said that the companies’ ads are plainly and unquestionably not related to the 

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election.’” Id. These Commissioners also noted commenters claimed to have “difficulty 

distinguishing between the Mullin campaign literature and the Mullin Companies’ ads” and that 

“it seemed that the Mullin Companies’ ads had become more frequent since Mr. Mullin began 

running for Congress.” Id. While the former comment may have been traceable to an opposing 

candidate, and the latter comment was not substantiated in any way, neither concern has been 

raised in the present matter. 

With respect to Ms. Brown’s currently-airing advertisements, this Court can either find that 

the statutory scheme is unconstitutional as applied here, or engage in constitutional avoidance and 

determine that Plaintiffs are entitled to an exemption from the statutory regime.

2. The Proposed Alternative Advertisements are Not Electioneering 

Communications.

With respect to Ms. Brown’s proposed alternative advertisements, the Court may rely on

statutory interpretation to conclude that the ads in question do not meet the definition of 

“electioneering communications.” In Buckley v. Valeo, the United States Supreme Court 

emphasized that a reference to a “clearly identified” candidate must be explicit and unambiguous. 

Buckley v. Valeo, 424 U.S. 1, 44 (1976) (holding that “[t]he constitutional deficiencies described 

in Thomas v. Collins can be avoided only by reading § 608(e)(1) as limited to communications 

that include explicit words of advocacy of election or defeat of a candidate, much as the definition 

of “clearly identified” in § 608(e)(2) requires that an explicit and unambiguous reference to the 

candidate appear as part of the communication”) (emphasis added). 

As noted above, in Hispanic Leadership Fund, the Eastern District of Virginia concluded, 

and issued a declaratory judgment, that the unidentified voice of President Obama did not 

constitute a clearly identified candidate. The proposed alternative advertisements here – while 

containing the voice of candidate Leigh Brown – do not identify her and refer to “Leigh Brown & 

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Associates” solely for the purpose of identifying the legal entity advertising its commercial real 

estate services – consistent with its actions for the last 13 years. 

The inability of four members of the Federal Election Commission to agree on whether 

these proposed alternative advertisements “refer[] to a clearly identified candidate for Federal 

office” convincingly demonstrates that the proposed advertisements do not contain the “explicit 

and unambiguous” references required under Buckley v. Valeo. By definition, the 3-1 split vote 

demonstrates that the references are, in fact, ambiguous. 

When the FEC adopted its first “electioneering communications” regulations in 2002, the 

agency’s Explanation and Justification stated that the “refers to a clearly identified candidate” 

standard “would not be based on the intent or purpose of the person making the communication.” 

Explanation and Justification of Final Rule on Electioneering Communications, 67 Fed. Reg. 

65,190, 65,192 (Oct. 23, 2002) (describing rule to be codified at 11 C.F.R. § 100.29(b)(2)) 

(“Explanation and Justification”). This language is consistent with the FEC’s litigation position 

in McConnell v. FEC, in which the agency assured the courts, “BCRA’s definition of 

electioneering communication is simple, objective, and unambiguous – a classic bright-line test 

that entirely avoids placing speakers ‘wholly at the mercy of the varied understanding’ of their 

listeners, Buckley, 424 U.S. at 43 (quoting Thomas, 323 U.S. at 535).” Brief of Government 

Defendants at 156, McConnell v. FEC, 251 F. Supp. 2d 176 (D.D.C. 2003) (No. 02-0582) (“FEC 

Brief”); see also Knox v. Serv. Employees Int’l Union, Local 1000, 567 U.S. ___, No. 10-1121, 

slip op. at 13-14 n.3 (June 21, 2012) (quoting Teachers v. Hudson 475 U.S. 292, 303 n.11 

(1986); NAACP v. Button, 371 U.S. 415, 438 (1963)) (“’Precision of regulation must be the 

touchstone’ in the First Amendment context”). 

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However, as concluded in the answers proposed by the FEC’s Office of General Counsel 

in questions 1 and 2 of Draft A and the three Commissioners who supported the Office of General 

Counsel’s proposal here, these proposed advertisements simply fall outside the statutory definition. 

The Commissioner who voted against the proposed answers to questions 2 and 3 of Draft A 

improperly invoked subjective considerations and criteria and refused to apply the legally required 

objective, unambiguous, bright-line test that the FEC previously assured the courts was the 

hallmark of the electioneering communication standard. 

Three other Commissioners, however, recognized that they are bound by the U.S. Supreme 

Court’s construction of the relevant statutory language in Buckley v. Valeo, the FEC’s own 

regulations, the decision of the Eastern District of Virginia in Hispanic Leadership Fund, and the 

assurances previously provided to the courts by the FEC. These three Commissioners applied an 

objective, bright-line standard and correctly determined that inherently imprecise or ambiguous 

terms do not “refer[] to a clearly identified candidate for Federal office.” 2 U.S.C. § 

434(f)(3)(A)(i)(I). 

The applicable bright-line standard cannot turn on whether listeners do or do not 

recognize the voice speaking. Any standard that turns entirely on the listener’s reaction 

yields inconsistent results that are simply not consistent with an objective, bright-line 

standard. In this case, the very classification of an electioneering communication and any 

resultant reporting and disclaimer obligations would depend on whether a listener was able to 

identify a voice on the radio as that of a particular candidate, leaving the regulated community 

unable to truly know whether a particular advertisement is regulated or not. Quite simply put, an 

unidentified audio recording, whether the speaker is recognized by the listener or not, cannot be a 

reference to a clearly identified candidate for federal office because the applicable statutes, 

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regulations, and precedent do not include audio clips within the definition of a clearly identified 

candidate.

However, the full FEC’s failure to adhere to the plain language of the statute, the FEC’s 

own regulations, binding Supreme Court precedent, and the agency’s own prior representations to 

the courts leaves Plaintiffs without any legal assurances that they will not be subject to civil 

enforcement proceedings before the FEC if it airs its proposed advertisements.

b. Plaintiffs Suffer a Threat of Irreparable Harm

The D.C. Circuit held in Pursuing America’s Greatness v. Federal Election Commission, 

831 F.3d 500, 511 (2017), that “we see likely success in PAG's constitutional challenge, we view 

more favorably PAG's arguments regarding irreparable injury, the balance of the equities, and the 

public interest.” The Circuit noted that “[t] loss of First Amendment freedoms even for minimal 

periods of time unquestionably constitutes irreparable injury.” Id. (citing Mills v. District of 

Columbia, 571 F.3d 1304 (D.C. Cir. 2009)) (internal quotations and punctuations omitted). 

Plaintiffs face a real and immediate threat of lengthy government investigations, civil penalties 

and potential criminal liability if they fail to act in full compliance with applicable legal standards. 

First, if Plaintiffs proceed with airing the current or proposed advertisements, they must 

decide whether to treat the advertisements as electioneering communications and file reports with 

the FEC. 

If Plaintiff Leigh Brown & Associates opts to air either advertisement under the theory that 

they are exempt or are not electioneering communications, a complaint will almost certainly be 

filed with the FEC. On the other hand, if Plaintiff Leigh Brown & Associates airs its proposed 

advertisements under the theory that they are electioneering communications, and complies with 

BCRA’s disclosure requirements for electioneering communications, it may be required to 

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disclose the identity of certain customers who have given more than $1,000 to the firm since 

January 1, 2019, not to mention significantly restructure the advertisements to include lengthy 

disclaimers that only serve to politicize an otherwise purely commercial communication. 

Alternatively, Leigh Brown and Leigh Brown & Associates could determine that the 

consequences of proceeding are simply too unclear, potentially harmful and irreversible, and not 

air any of its proposed advertisements. At this point, the FEC’s inability to render guidance will 

have chilled protected speech. Self-censorship “[i]s a harm that can be realized even without actual 

prosecution.” Virginia v. Am. Booksellers Ass’n, 484 U.S. 383, 393 (1988). “The loss of First 

Amendment freedoms, for even minimal periods of time, unquestionably constitutes irreparable 

injury.” Legend Night Club v. Miller, 637 F.3d 291, 302 (4th Cir. 2011) (quoting Elrod v. Burns, 

427 U.S. 347, 373 (1976)); see also Chaplaincy of Full Gospel Churches v. England, 454 F.3d 

290, 301 (D.C. Cir. 2006) (“[w]here a plaintiff alleges injury from a rule or regulation that directly 

limits speech, the irreparable nature of the harm may be presumed.”) 

The deprivation of a plaintiff’s First Amendment rights constitutes per se irreparable 

injury. Johnson v. Bergland, 586 F.2d 993, 995 (4th Cir. 1978); see also Newsom v. Albemarle 

County Sch. Bd., 354 F.3d 249, 261 (4th Cir. 2003); Mitchell v. Cuomo, 748 F.2d 804, 806 (2d Cir. 

1984) (“When an alleged deprivation of a constitutional right is involved, most courts hold that no 

further showing of irreparable injury is necessary.”).

Because Plaintiffs are likely to succeed on the merits of their First Amendment claim, 

irreparable harm is presumed.

c. The Balance of the Harms Favor Granting an Injunction. 

This Circuit has held that when First Amendment rights are involved, the plaintiff’s 

constitutional rights are critically important. See Pursuing America’s Greatness, 831 F.3d at 511. 

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The balancing required by this Court favors Plaintiff’s constitutional right to freedom of expression

over the government interest in maintaining an unconstitutional position. See id. at 506-512.

Finally, as the Supreme Court has made clear, courts “must give the benefit of any doubt 

to protecting rather stifling speech,” and that “the tie goes to the speaker, not the censor.” WRTL 

II, 551 U.S. at 469, 474. Plaintiffs prevails on this factor.

d. The Public Interest Would be Furthered by an Injunction.

“[T]here is the highest public interest in the due observance of all the constitutional 

guarantees[.]” United States v. Raines, 362 U.S. 17, 27 (1960). This Circuit has held that protecting 

the First Amendment’s right of political expression is in the public’s interest. Pursuing America’s 

Greatness, 831 F.3d at 511-12. 

The Supreme Court “has long viewed the First Amendment as protecting a marketplace for 

the clash of different views and conflicting ideas. That concept has been stated and restated almost 

since the Constitution was drafted.” Citizens Against Rent Control v. City of Berkeley, 454 U.S.

290, 295 (1981). It simply cannot be in the public interest to force business owners who run for 

Congress to abandon advertising for their business in exchange for exercising their constitutional 

rights to seek public office. 

“[T]here is practically universal agreement that a major purpose of [the First] Amendment 

was to protect the free discussion of governmental affairs . . . .” Mills v. Alabama, 384 U.S. 214, 

218 (1966) ; see also Knox, No. 10-1121, slip op. at 22 (“The First Amendment creates a forum in 

which all may seek, without hindrance or aid from the State, to move public opinion and achieve 

their political goals.”). Thus “speech concerning public affairs is more than self-expression; it is 

the essence of self-government.” Garrison v. Louisiana, 379 U.S. 64, 74-75 (1964). The 

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government cannot prohibit a person’s business from advertising or control the content of those 

advertisements just because an owner is running for Congress.

II. PLAINTIFFS HAVE STANDING.

To demonstrate standing, three elements must be established: an injury in fact, a causal 

connection between the injury and the defendant’s conduct, and a likelihood that the injury will be 

redressed by a decision favorable to the plaintiff. See Lujan v. Defenders of Wildlife, 504 U.S. 

555, 560-61 (1992). An injury in fact is satisfied when plaintiffs make a showing of an “an invasion 

of a legally protected interest which is (a) concrete and particularized, and (b) actual or imminent, 

not conjectural or hypothetical.” Id. at 560. (internal quotation marks and citations omitted). 

Plaintiffs has demonstrated an injury in fact capable of relief by this court. There is a causal 

connection between the FEC's failure to apply the law and issue an advisory opinion, and the harm 

now faced by Plaintiffs. This court can cure this injury through the issuance of the injunction 

sought by Plaintiffs.

In First Amendment cases, pre-enforcement challenges are subject to more flexible 

standing requirements. See, e.g., Dombrowski v. Pfister, 380 U.S. 479 (1965) (detailing expanded 

standing principles for pre-enforcement First Amendment challenges); American Booksellers 

Ass’n, 484 U.S. at 393 (self-censorship is a harm that can be alleged without actual prosecution); 

Chamber of Commerce v. FEC, 69 F.3d 600, 603-04 (D.C. Cir. 1995) (“A party has standing to 

challenge, pre-enforcement, even the constitutionality of a statute if First Amendment rights are 

arguably chilled, so long as there is a credible threat of prosecution”). 

In this context, prospective speakers bringing pre-enforcement challenges must allege “an 

intention to engage in a course of conduct arguably affected with a constitutional interest,” and 

make a showing that there exists a “credible threat of prosecution.” Babbitt v. United Farm 

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Workers Nat'l Union, 442 U.S. 289, 298 (1979). Plaintiffs meets all of the standing requirements 

to maintain this action.

CONCLUSION

For the foregoing reasons, this Court should issue the requested Temporary Restraining 

Order permitting the current advertisements to run until such time as this Court can consider the 

forthcoming preliminary injunction motion. 

Dated: April 11, 2019

Respectfully submitted,

/s/_Jason Torchinsky

Jason Torchinsky (D.C. Bar No. 976033)

jtorchinsky@hvjlaw.com

J. Michael Bayes (D.C. Bar No. 501845)

jmbayes@hvjlaw.com

HOLTZMAN VOGEL JOSEFIAK 

TORCHINSKY PLLC

45 North Hill Drive, Suite 100

Warrenton, VA 20186

Tel: (540) 341-8808

Fax: (540) 341-8809

Counsel for Plaintiffs

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CERTIFICATE OF SERVICE

CERTIFICATE OF SERVICE

I do hereby certify that, on this 11th day of April 2019, the foregoing Memorandum of 

Points and Authorities in Support of Motion for Temporary Restraining Order was filed

electronically with the Clerk of Court using the CM/ECF system. The following parties were 

served either electronically on April 11th or by USPS First Class Mail on April 12, 2019.

/s/Jason Torchinsky

Jason Torchinsky (D.C. Bar No. 976033)

Federal Election Commission

1050 First Street, NE

Washington, DC 20463

Attorney General William Barr

c/o Assistant U.S. Attorney of Administration

Justice Management Division

950 Pennsylvania Ave. NW

Room 1111

Washington, D.C. 20530

Jessie K. Liu

United States Attorney for the District of Columbia

Civil Process Clerk

555 4th St. N.W. 

Washington, D.C. 20530

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