UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

INGA L. PARSONS, et al.,

Plaintiffs,

v. No. 14-cv-1265 (JEB)

FEDERAL ELECTION COMMISSION,

Defendant.

MOTION FOR CERTIFICATION ORDER

PURSUANT TO 2 U.S.C. § 437h.

Pursuant to 2 U.S.C. § 437h, plaintiffs move for an Order Certifying the Facts and the 

Constitutional Questions to the United States Court of Appeals for the District of Columbia 

Circuit. This motion is based on the complaint, the declarations of the two plaintiffs, Inga L. 

Parsons and Stephen C. Leckar, and a Memorandum in support of the proposed Order, which is 

also submitted with this motion.

Respectfully submitted,

/s/ Alan B. Morrison

Alan B. Morrison

D. C. Bar No. 073114

George Washington Law School

2000 H Street NW

Washington D.C. 20052

(202) 994 7120

abmorrison@law.gwu.edu 

/s/ Arthur B. Spitzer

Arthur B. Spitzer

D.C. Bar No. 235960

American Civil Liberties Union of 

 the Nation's Capital

4301 Connecticut Ave NW Suite 434

Washington, D.C. 20008

(202) 457 0800

artspitzer@aclu-nca.org

Dated: July 24, 2014

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UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

INGA L. PARSONS, et al.,

Plaintiffs,

v. No. 14-cv-1265 (JEB)

FEDERAL ELECTION COMMISSION,

Defendant.

MEMORANDUM IN SUPPORT OF

MOTION FOR CERTIFICATION ORDER

PURSUANT TO 2 U.S.C. § 437h.

This memorandum is submitted in support of plaintiffs’ motion for a certification order 

pursuant to 2 U.S.C. § 437h. This is an action brought by two federal contractors who seek a 

declaration that the Federal Election Campaign Act’s prohibition on individual contractors’ 

political contributions in 2 U.S.C. § 441c(a)(1) is unconstitutional and an injunction against its 

enforcement. This is a companion case to Wagner v. FEC, Civil Action No. 11-1841 (JEB), in 

which this Court entered a certification order on June 5, 2013 (the “Wagner Certification”). 

Wagner is now pending before the United States Court of Appeals for the District of Columbia 

Circuit, and oral argument is scheduled, en banc, on September 30, 2014. 

The legal issues in this case are identical to those in Wagner. The reason that this case 

has been filed is a concern over the possibility that the claims of all the plaintiffs in Wagner may 

become moot before a final judgment can be entered on the merits, perhaps by the Supreme 

Court. One of the plaintiffs in Wagner (Lawrence Brown) will no longer be a federal contractor 

after September 30, 2014. Plaintiff Wendy Wagner no longer has a federal contract, although 

she alleges that she may have others in the future and hence may be subject to section 441c. 

Plaintiff Jan Miller’s contract expires on June 26, 2016. 

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2

Both of the plaintiffs in this new action are lawyers who, as part of their practice,

represent indigent criminal defendants under the Criminal Justice Act, 18 U.S.C. § 30006A. As 

their declarations make clear, they are federal contractors who are paid for their services out of 

funds appropriated by Congress. They are appointed by, and their pay is controlled by, persons 

in the judicial branch of government, none of whom is an elected official to whom a contribution 

prohibited by section 441c could be made.

This Court’s Certification Order of June 5, 2013, in Wagner v. FEC contains most of the 

facts that bear on the constitutional claims at issue in this case, except for those facts that relate 

to the particular contracts of plaintiffs Parsons and Leckar. For that reason, that Order should be 

incorporated by reference in the Certification Order in this case. The proposed Order submitted 

with this motion also adds, based on the declarations filed with this motion, the few additional 

facts necessary to establish that these plaintiffs have standing to claim that section 441c is 

unconstitutional as applied to them.

Respectfully submitted,

/s/ Alan B. Morrison

Alan B. Morrison

D. C. Bar No. 073114

George Washington Law School

2000 H Street NW

Washington D.C. 20052

(202) 994 7120

abmorrison@law.gwu.edu 

/s/ Arthur B. Spitzer

Arthur B. Spitzer

D.C. Bar No. 235960

American Civil Liberties Union of 

 the Nation's Capital

4301 Connecticut Ave NW, Suite 434

Washington, D.C. 20008

(202) 457 0800

artspitzer@aclu-nca.org

Dated: July 24, 2014

Case 1:14-cv-01265 Document 2-1 Filed 07/24/14 Page 2 of 2
UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

INGA L. PARSONS, et al.,

Plaintiffs,

v. No. 14-cv-1265 (JEB)

FEDERAL ELECTION COMMISSION,

Defendant.

DECLARATION OF INGA L. PARSONS

Inga L. Parsons under the penalties of perjury declares as follows:

1. I am one of the plaintiffs in this action, seeking a court order declaring that 2 U.S.C. § 

441c is unconstitutional as applied to individuals such as myself who have contracts with 

the United States Government.

2. I am a solo practitioner with a specialty in Federal Criminal Law. I am licensed in 

Massachusetts, New York and Wyoming. I am also of counsel to the firm Greenwood 

Law, LLC in Wyoming. Previously I was a Clinical Law Professor at New York 

University School of Law and an Assistant Federal Defender in the Southern District of 

New York. I was also a law clerk to the Honorable William P. Gray in the Central 

District of California. I have an A.B. Degree with honors in government from Harvard 

University. I have a Juris Doctorate from Columbia University School of Law.

3. I currently am a panel attorney under the Criminal Justice Act, 18 U.S.C. § 3006A

(“CJA”), for the federal trial and habeas panels in the District of Massachusetts and the 

appellate panel for the First Circuit Court of Appeals. A copy of my application for panel 

membership (with my home information removed) is attached. My panel appointment 

Case 1:14-cv-01265 Document 2-2 Filed 07/24/14 Page 1 of 16
2

for the District of Massachusetts is for a three-year term; my panel appointment for the 

First Circuit is for a four-year term. I can apply for renewal to both. All appointments 

were made by the federal judges responsible for the CJA panels.

4. My current practice is about 50% CJA cases and 50% private cases. Some CJA cases are 

of very short duration, while others last for several years, especially those in which I 

handle an appeal after a trial.

5. My payment is governed by the provisions of 18 U.S.C. § 3006A, in particular subsection 

(d), “Payment for Representation.” Subsection (d) is supplemented by updated hourly 

rates and specific guidelines for payments for each district and published on the courts’ 

websites. A copy of the current rates for the District of Massachusetts can be found at 

http://www.mad.uscourts.gov/attorneys/pdf/cjarates.pdf. The current Guidelines for 

Submission of Reimbursement Claims can be found at 

http://www.mad.uscourts.gov/attorneys/pdf/cja/111413%20MA%20CJA%20Guidelines

%202013.pdf. The CJA is administered by the Administrative Office of the United 

States Courts, which pays me. At the end of each calendar year, because I am an 

independent contractor, the Government sends me an IRS Form 1099 for my services. As

a CJA panel attorney, I am a contractor with the United States Government and therefore 

subject to 2 U.S.C. § 441c.

6. As a federal contractor I am prohibited from making contributions in connection with 

Federal elections, including to candidates who are running for President in the 2016 

election. I have contributed to state and local candidates including a candidate for 

governor in Massachusetts and a candidate for a D.C. Council position in Washington 

Case 1:14-cv-01265 Document 2-2 Filed 07/24/14 Page 2 of 16
3

DC. I wish to contribute to candidate campaigns for the 2016 presidential election for 

which I am eligible to vote in Massachusetts and would do so but for section 441c.

7. The prohibition in section 441c prevents me from providing financial assistance to 

particular candidates, parties, or causes in connection with federal elections just as any 

other citizen could do. In addition to barring me from providing financial support for 

candidates and parties I support, section 441c prevents me from making a public 

statement of financial support for candidates, causes and parties, through the making of a 

public contribution, either on my own or jointly through my husband in violation of the 

First Amendment and my right to Equal Protection. 

I hereby declare under the penalties of perjury pursuant to 28 U.S.C. § 1746 that the 

foregoing is true and correct. Executed on July 24, 2014.

/s/ Inga L. Parsons

Inga L. Parsons

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UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

INGA L. PARSONS, et al.,

Plaintiffs,

v. No. 14-cv-1265 (JEB)

FEDERAL ELECTION COMMISSION,

Defendant.

DECLARATION OF STEPHEN C. LECKAR

Stephen C. Leckar declares under penalty of perjury as follows:

1. I am one of the plaintiffs in this action, seeking a court order declaring that 2 U.S.C. § 

441c is unconstitutional as applied to individuals such as myself who have contracts with 

agencies of the federal government.

2. I am of counsel to the law firm of Kalbian Hagerty LLP. I am licensed to practice in the 

District of Columbia, Illinois, Georgia, four federal district courts, the Court of Federal 

Claims, two federal circuit courts of appeals, and the United States Supreme Court. I 

received my J.D. from Duke University Law School, and I have been practicing law since 

1974. After serving as a trial attorney for the Commodity Futures Trading Commission, I 

entered private practice in 1978. I have served as lead counsel and argued more than 25

complex criminal appeals before the United States Court of Appeals for the District of 

Columbia Circuit, as well as several civil appeals. I also argued United States v. Antoine 

Jones, 132 S. Ct. 945 (2012), in which the Supreme Court ruled that the installation of a 

GPS surveillance device on a motor vehicle was a search under the Fourth Amendment.

Case 1:14-cv-01265 Document 2-3 Filed 07/24/14 Page 1 of 3
2

3. I am a panel attorney under the Criminal Justice Act, 18 U.S.C. § 3006A (“CJA”), for the 

federal appellate panel in the District of Columbia. I have served on this panel for twenty

years, during which time I have been engaged in one or two cases per year. I am 

currently representing clients in two complex CJA-funded cases, one before the D.C. 

Circuit and the other a petition before the Supreme Court seeking a writ of certiorari to 

the D.C. Circuit. I am also on the CJA panel for the Fourth Circuit and currently have 

one case there on which oral argument has been calendared. I have also served as cocounsel in a CJA felony prosecution in the U.S. District Court for the District of 

Columbia. 

4. As a CJA panel attorney, I am a contractor with the United States Government. As of 

March 1, 2014, I will be paid at an hourly rate of $126 per hour for my work on noncapital cases, subject to a cap of $7,000 per case for appointments made on or after that 

date, unless the matter is designated as “complex,” in which case the cap can be exceeded 

on motion for excess compensation, provided the Court of Appeals is satisfied that the 

time and costs incurred are reasonable. The hourly rates and caps were previously lower. 

This information, along with other information regarding payment, is available on the 

D.C. Circuit’s website: 

http://www.cadc.uscourts.gov/internet/home.nsf/Content/VL%20-%20RPP%20-

%20CJA%20Letter%20to%20Court%20Appointed%20Counsel/$FILE/CJALTR2.pdf. 

I am paid by the Administrative Office of the United States Courts and an IRS Form 1099 

is issued for my services. 

Case 1:14-cv-01265 Document 2-3 Filed 07/24/14 Page 2 of 3
3

5. I have made financial contributions to federal candidates and political committees in 

recent years. I wish to continue to make contributions to federal candidates and 

committees, including candidates in the 2016 presidential and congressional elections.

6. Until recently, I was not aware that a federal statute, 2 U.S.C. § 441c, purports to prohibit 

all federal contractors from making any contributions to federal candidates or 

committees. If that statute were constitutional, it would prevent me from assisting and 

supporting candidates in the same way, and subject to the same limits, as other American 

citizens, including government employees such as my counterparts at the D.C. Federal 

Defender’s Office, my litigation adversaries at the U.S. Attorney’s Office and the 

Department of Justice, and lawyers who work for major government contractors such as 

Lockheed Martin Corporation or Booz Allen. I believe this discrimination would violate 

my rights under the equal protection component of the Fifth Amendment, and that this 

ban also violates my rights under the First Amendment by preventing me from making a 

public statement of support for those candidates I favor through the making of campaign 

contributions. I wish to continue to make financial contributions to federal candidates 

and committees and would do so if 2 U.S.C. § 441c were enjoined by this Court.

7. I reside at 6516 Lakeview Drive, Falls Church, Virginia 22041. I am a registered voter in 

Fairfax County, VA, and have regularly voted in state and federal elections both at my 

current address and at my prior address in Arlington, Virginia.

Pursuant to 28 U.S.C. § 1746, I declare under penalty of perjury that the foregoing is true 

and correct. Executed on July 24, 2014.

/s/ Stephen C. Leckar

Stephen C. Leckar

Case 1:14-cv-01265 Document 2-3 Filed 07/24/14 Page 3 of 3
UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

INGA L. PARSONS, et al.,

Plaintiffs,

v. No. 14-cv-1265 (JEB)

FEDERAL ELECTION COMMISSION,

Defendant.

[PLAINTIFFS’ PROPOSED]

CERTIFICATION ORDER

This is an action brought by two federal contractors who seek a declaration that the 

Federal Election Campaign Act’s prohibition on individual contractors’ political contributions in 

2 U.S.C. § 441c(a)(1) is unconstitutional as applied to them, and an injunction prohibiting its 

enforcement against them. This is a companion case to Wagner v. FEC, Civil Action No. 11-

1841 (JEB), in which this Court entered a certification order on June 5, 2013 (ECF No. 51) (the 

“Wagner Certification”). Wagner is now pending before the United States Court of Appeals for 

the District of Columbia Circuit, and oral argument is scheduled, en banc, for September 30, 

2014. 

The constitutional claims in this case and in Wagner are the same, as are counsel for all 

parties. Counsel have been candid as to the reason for filing this action: plaintiff Wendy Wagner 

no longer has a federal contract, although she alleges that she may have others in the future and 

hence may be subject to section 441c. Plaintiff Lawrence Brown will no longer be a federal 

contractor after September 30, 2014. And plaintiff Jan Miller’s contract expires on June 26, 

2016. There is no assurance that this case will be concluded by then, especially if it goes to the 

Supreme Court, as many other campaign finance cases have done. The rationale for this case is 

Case 1:14-cv-01265 Document 2-4 Filed 07/24/14 Page 1 of 3
2

to preclude any possibility that the constitutional challenge to section 441c will become moot 

before a final judgment on the merits can be entered. 

Because this case is, in effect, a supplement to Wagner, the Court hereby incorporates by 

reference the entire Wagner Certification, including the Constitutional Questions for Appeal and 

the Findings of Fact other than the Findings particular to the plaintiffs in Wagner.

The Court makes the following additional findings of fact, based on the complaint, the 

FEC’s answer, and the declarations filed by the plaintiffs:

1. Plaintiffs Inga L. Parsons and Stephen C. Leckar are lawyers who are members of 

Criminal Justice Act panels, appointed pursuant to 18 U.S.C. § 3006A, to represent indigent 

criminal defendants who are entitled to representation under that Act. As members of those 

panels, they have contracts with the United States Government under which they are paid from 

funds appropriated by Congress.

2. Plaintiffs Parsons and Leckar have made contributions to candidates for political 

office, and both wish and intend to make contributions in connection with federal elections in 

2016 and subsequent years if protected against prosecution under section 441c.

3. Plaintiffs Parsons and Leckar are registered to vote and will be eligible to vote in 

the Presidential election in 2016.

4. Plaintiffs Parsons and Leckar became CJA panel members, and therefore federal 

contractors, as the result of appointments by the judges of the courts in which they appear. The 

appointment process is supervised by Article III federal judges and other officials in the federal 

judicial branch, none of whom is an elected officer and none of whom could receive 

contributions prohibited by section 441c. The pay of CJA panel attorneys, including plaintiffs, is 

based on the rates established by the courts in which they perform their services. 

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5. The Court, therefore, ORDERS that the above constitutional questions and findings 

of fact are hereby CERTIFIED to the en banc Court of Appeals for the District of Columbia Circuit. 

IT IS SO ORDERED.

______________________

JAMES E. BOASBERG

United States District Judge

Dated: August ___ 2014

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