Daniel A. Petalas (dpetalas@fec.gov) 

Acting General Counsel 

Lisa J. Stevenson (lstevenson@fec.gov) 

Deputy General Counsel – Law 

Kevin Deeley (kdeeley@fec.gov) 

Acting Associate General Counsel 

Erin Chlopak (echlopak@fec.gov) 

Acting Assistant General Counsel 

Jacob S. Siler (jsiler@fec.gov) 

Attorney 

FEDERAL ELECTION COMMISSION 

999 E Street, NW 

Washington, DC 20463 

(202) 694-1650 

IN THE UNITED STATES DISTRICT COURT 

FOR THE DISTRICT OF WYOMING 

_______________________________________ 

 ) 

UNNAMED PLAINTIFF #1, et al., ) 

 ) 

 Plaintiffs, ) Civ. No. 2:16-cv-135 (SWS) 

 ) 

 v. ) 

 ) PRELIMINARY INJUNCTION 

FEDERAL ELECTION COMMISSION, ) OPPOSITION 

 ) 

 Defendant. ) 

 ) 

DEFENDANT FEDERAL ELECTION COMMISSION’S OPPOSITION TO 

PLAINTIFF’S MOTION FOR PRELIMINARY INJUNCTION 

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TABLE OF CONTENTS 

 Page 

INTRODUCTION .....................................................................................................................1 

BACKGROUND .......................................................................................................................2 

I. PARTIES AND CLAIMS........................................................................................2 

II. STATUTORY AND REGULATORY BACKGROUND .......................................4 

A. The Bar on Corporate Contributions and Expenditures ...............................4 

B. MCFL Exemption ........................................................................................7 

C. Advisory Opinion Requests .........................................................................8 

ARGUMENT .............................................................................................................................8 

I. STANDARD OF REVIEW .....................................................................................8 

II. PLAINTIFFS ARE UNLIKELY TO SUCCEED ON THE MERITS OF 

THEIR FIRST AMENDMENT CLAIMS ...............................................................9 

A. Plaintiffs Lack Standing Because There Is No Credible 

 Threat of Prosecution ...................................................................................9 

1. Commission Authority Confirms That Pillar’s Plan to Provide 

 Delegates with Educational Materials and Pro Bono Legal 

 Services Is Not Prohibited By FECA.............................................10 

a. Section 30118 Does Not Prohibit the Provision to 

 Delegates of Non-Advocacy Educational Materials ........10 

b. Section 30118 Also Does Not Prohibit Pillar’s 

 Proposal to Provide Pro Bono Legal Services .................12

c. The Commission Routinely Considers Whether 

 Proposed Conduct is Undertaken For the 

 Purpose of Influencing Any Election for Federal 

 Office in Determining Whether the Conduct is 

 Prohibited by FECA .........................................................14

2. Plaintiffs’ Proposed Activity is Also Permissible 

 Under MCFL ..................................................................................17 

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a. Pillar Qualifies for the MCFL Exemption ........................18

b. The Commission Has Never Applied Section 30118 

 to Bar an MCFL Corporation From Providing the 

 Funds, Services, and Materials That Pillar Seeks to 

 Provide to Delegates ........................................................19

B. Because Plaintiffs’ Proposed Conduct is Not Prohibited, This Court 

 Need Not Reach Plaintiffs’ Remaining Constitutional Arguments ...........21 

III. PLAINTIFFS FAIL TO DEMONSTRATE IRREPARABLE HARM .................21 

IV. THE BALANCE OF HARMS FAVORS THE COMMISSION AND AN 

INJUNCTION WOULD BE ADVERSE TO THE PUBLIC INTEREST ............25 

CONCLUSION ........................................................................................................................25 

 

 

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TABLE OF AUTHORITIES 

Cases 

Anderson v. FEC, 634 F.2d 3 (1st Cir. 1980) ..........................................................................24

Beltronics USA, Inc. v. Midwest Inventory Distribution, LLC, 

 562 F.3d 1067 (10th Cir. 2009) .....................................................................................8, 18

Brady Campaign to Prevent Gun Violence v. Brownback, 

110 F. Supp. 3d 1086 (D. Kan 2015) ................................................................................9, 10

Buckley v. Valeo, 424 U.S. 1 (1976) ..................................................................................16, 19

Colo. Outfitters Ass’n v. Hickenlooper, 

 --- F.3d ---, 2016 WL 1105363 (10th Cir. 2016) .................................................................9

Colo. Right to Life Comm., Inc. v. Coffman, 498 F.3d 1137 (10th Cir. 2007)...............7, 18, 19

FEC v. Akins, 524 U.S. 11 (1998) ..............................................................................................4

FEC v. Arlen Specter ’96, 150 F. Supp. 797 (E.D. Penn. 2001) ..............................................19 

FEC v. Beaumont, 539 U.S. 146 (2003) ....................................................................6, 7, 19, 20

FEC v. Mass. Citizens for Life, Inc., 479 U.S. 238 (1986) ............................................7, 17, 18 

FEC v. Nat’l Rifle Ass’n of Am., 254 F.3d 173 (D.C. Cir. 2001).............................................22

Flood v. ClearOne Commc’ns, Inc., 618 F.3d 1110 (10th Cir. 2010) .......................................8

Heideman v. S. Salt Lake City, 348 F.3d 1182 (10th Cir. 2003) ..................................21, 22, 23

Iowa Right To Life Comm., Inc. v. Smithson, 750 F. Supp. 2d 1020 (S.D. Iowa 2010) ..........24 

Kowalski v. Tesmer, 543 U.S. 125 (2004) ...............................................................................21

Martin Tractor Co. v. FEC, 627 F.2d 375 (D.C. Cir. 1980) ....................................................22

Mazurek v. Armstrong, 520 U.S. 968 (1997) .........................................................................1, 8

McConnell v. FEC, 540 U.S. 93 (2003) ...................................................................................22

Minn. Citizens Concerned for Life v. FEC, 113 F.3d 129 (8th Cir. 1997) ................................9

New Motor Vehicle Bd. of Cal. v. Orrin W. Fox Co., 434 U.S. 1345 (1977) ..........................25

Olmos v. Holder, 780 F.3d 1313 (10th Cir. 2015) ...................................................................17

Prairie Band of Potawatomi Indians v. Pierce, 253 F.3d 1234 (10th Cir. 2001) ....................22 

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Protect My Check, Inc. v. Dilger, 

 --- F. Supp. 3d ---, 2016 WL 1306200 (D. Ky. Mar. 31, 2016) ...........................................6 

Purcell v. Gonzalez, 549 U.S. 1 (2006) ...................................................................................24

Sampson v. Murray, 415 U.S. 61 (1974) .................................................................................25

Susan B. Anthony List v. Driehaus, 134 S. Ct. 2334 (2014) ......................................................1

United States v. Bagby, 696 F.3d 1074 (10th Cir. 2012) ...........................................................3 

United States v. Danielczyk, 683 F.3d 611, 615 (4th Cir. 2012) ...............................................6 

Utah Gospel Mission v. Salt Lake City Corp., 

 316 F. Supp. 2d 1201 (D. Utah 2004) ..........................................................................23, 24 

Verlo v. Martinez, No. 15-1319, 2016 WL 1395205 (10th Cir. Apr. 8, 2016) ........................22

Wagner v. FEC, 793 F.3d 1 (D.C. Cir. 2015) ..........................................................................20

Walters v. Nat’l Ass’n of Radiation Survivors, 468 U.S. 1323 (1984) ....................................25

Warner v. Gross, 776 F.3d 721 (10th Cir. 2015) .......................................................................8

Winsness v. Yocom, 433 F.3d 727 (10th Cir. 2006) ...........................................................1, 8, 9

Winter v. Nat. Res. Def. Council, Inc., 555 U.S. 7 (2008) .......................................................23 

Statutes and Regulations 

26 U.S.C. § 501(c)(3) ...........................................................................................................2, 12 

52 U.S.C. § 30101(2) .................................................................................................................6 

52 U.S.C. § 30101(3) .................................................................................................................6 

52 U.S.C. § 30101(8)(A)............................................................................................................4 

52 U.S.C. § 30101(8)(A)(i) ................................................................................................10, 14 

52 U.S.C. § 30101(8)(A)(ii) .................................................................................................5, 16 

52 U.S.C. § 30101(9)(A)............................................................................................................4 

52 U.S.C. § 30101(9)(A)(i) ......................................................................................................10 

52 U.S.C. § 30106(b)(1) ............................................................................................................2 

52 U.S.C. § 30107(a)(7) .............................................................................................................2 

52 U.S.C. § 30107(a)(8) .............................................................................................................2 

52 U.S.C. § 30108 ....................................................................................................................22 

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52 U.S.C. § 30108(a) .................................................................................................................8 

52 U.S.C. § 30116(a)(1) .............................................................................................................7 

52 U.S.C. § 30118 ..........................................................................................................4, 19, 24 

52 U.S.C. § 30118(a) .................................................................................................................4 

52 U.S.C. 30118(b)(2) ...............................................................................................................5 

11 C.F.R. § 100.52(d)(1) ............................................................................................................4 

11 C.F.R. § 100.54 ...................................................................................................................16 

11 C.F.R. § 110.14(c)...............................................................................................................14 

11 C.F.R. § 110.14(c)(1) ................................................................................................6, 12, 15 

11 C.F.R. § 110.14(c)(2) ......................................................................................................6, 10 

11 C.F.R. § 110.14(d)(1) ......................................................................................................7, 14 

11 C.F.R. § 110.14(e)(1) ..........................................................................................................10 

11 C.F.R. § 114.1(a)(1) ..............................................................................................................5 

Advisory Opinion Procedure, 74 Fed. Reg. 32,160 (July 7, 2009)............................................8

Contributions to and Expenditures by Delegates to National Nominating Conventions, 

 45 Fed. Reg. 34,865 (May 23, 1980) ...................................................................................6 

Contributions to and Expenditures by Delegates to National Nominating Conventions, 

 52 Fed. Reg. 35,530 (Sept. 22, 1987) ..............................................................................6, 7 

Miscellaneous 

Advisory Opinion 1980-04 (Carter/Mondale Presidential Committee), 

 1980 WL 642624 (Feb. 1, 1980) ........................................................................................13 

Advisory Opinion 1981-13 (Frank E. Moss), 1981 WL 721625 (Mar. 16, 1981)...................12 

Advisory Opinion 1983-23 (LTV Corp.), 1983 WL 909288 (Oct. 3, 1983) .....................15, 16 

Advisory Opinion 1988-22 (Republican Associates), 1988 WL 170417 (Jul. 5, 1988) ....10, 11 

Advisory Opinion 1996-02 (CompuServe), 1996 WL 233874 (Apr. 25, 1996)......................16

Advisory Opinion 2004-06 (Meetup), 2004 WL 830046 (Mar. 25, 2004) ..............................16 

Advisory Opinion 2004-07 (MTV News), 2004 WL 830044 (April 1, 2004) ........................11 

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Advisory Opinion 2006-22 (The Wallace Committee), 2006 WL 2786813 

 (Sept. 18, 2006) .............................................................................................................5, 14 

Advisory Opinion 2011-01 (Robin Carnahan for Senate), 2011 WL 7629546 

 (Feb. 17, 2011) ...................................................................................................................13 

11A Charles Alan Wright, Arthur R. Miller & Mary Kay Kane, Federal 

 Practice & Procedure § 2948.1 (2d ed.1995) ...................................................................23 

In the Matter of Rand Paul for President, Inc., MUR 6938, Factual & Legal 

 Analysis (Mar. 2, 2016), http://eqs.fec.gov/eqsdocsMUR/16044390609.pdf ...................12 

Pillar of Law Institute, https://www.pillaroflaw.org/index.php/about/our-mission 

 (last visited June 16, 2016) ............................................................................................2, 18 

Pillar of Law Institute, https://www.pillaroflaw.org/index.php 

 (last visited June 16, 2016) ..................................................................................................2 

Suppl. Br. and Addendum for Appellant, 

 Free Speech v. FEC, 720 F.3d 788 (10th Cir. 2013) (No. 13-8033), 

 http://www.fec.gov/law/litigation/freespeech_fs_suppl_brief.pdf ..............................22, 23 

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INTRODUCTION 

This is a lawsuit in search of an enforcement threat. Pillar of Law Institute and two 

unnamed delegates to the Republican National Convention seek to have this Court enjoin the 

Federal Election Commission (“Commission”) from enforcing the Federal Election Campaign 

Act (“FECA” or “Act”) in a way that would prohibit non-profit corporations from providing 

convention delegates certain educational materials, legal services, and travel stipends without 

charge. But plaintiffs’ request has one major shortcoming: FECA, as construed by the 

Commission and courts, does not prohibit the conduct proposed here and the Commission has 

never taken the position that it does. 

Plaintiffs are not entitled to a preliminary injunction — which remains “an extraordinary 

and drastic remedy” — when they have not shown that their proposed conduct would violate the 

statute they challenge and in the absence of any likelihood of enforcement by the Commission. 

Mazurek v. Armstrong, 520 U.S. 968, 972 (1997) (per curiam); see Susan B. Anthony List v. 

Driehaus, 134 S. Ct. 2334, 2342 (2014). This remains true even in the First Amendment context, 

when plaintiffs allege that they are entitled to pre-enforcement review because they are chilled 

from exercising their right to speak or associate as they choose. See, e.g., Winsness v. Yocom, 

433 F.3d 727, 732 (10th Cir. 2006). 

In an apparent effort to generate a case or controversy, plaintiffs misread the relevant 

provisions of the Act to conclude that their proposed conduct would be prohibited. But their 

analysis misapplies the plain text of the statute and ignores relevant judicial and Commission 

decisions interpreting its scope. In fact, plaintiffs themselves acknowledge (Prelim. Inj. Mem. at 

16) that the logic of certain Commission advisory opinions should permit the proposed conduct 

at issue in this lawsuit, thus undermining their arguments to the contrary and underlining their 

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own lack of standing to pursue their claims. 

Under these circumstances, plaintiffs have not met their burden of establishing that their 

proposed conduct is proscribed by FECA and that they face a credible threat of enforcement by 

the Commission. Plaintiffs’ request for a preliminary injunction should be denied. 

BACKGROUND 

I. PARTIES AND CLAIMS 

The Commission is the independent agency of the United States government with 

exclusive jurisdiction to administer, interpret, and civilly enforce FECA. See generally 52 

U.S.C. §§ 30106-17. Congress empowered the Commission to “formulate policy” with respect 

to the Act, id. § 30106(b)(1); “to make, amend, and repeal such rules . . . as are necessary to 

carry out the provisions of [the] Act,” id. § 30107(a)(8); to issue advisory opinions construing 

the Act, id. § 30107(a)(7); and to civilly enforce against violations of the Act, id. § 30106(b)(1). 

As alleged in the complaint, the Pillar of Law Institute (“Pillar”) describes itself as a 

“program of the Wyoming Liberty Group, a nonprofit corporation organized under section 

501(c)(3) of the Internal Revenue Code.” (Compl. ¶ 11.) According to its website, Pillar 

advocates regarding First Amendment issues, including by “pursuing litigation.” Pillar of Law 

Institute, https://www.pillaroflaw.org/index.php/about/our-mission (last visited June 16, 2016). 

It publicizes its efforts at impact litigation through press releases. See Pillar of Law Institute, 

https://www.pillaroflaw.org/index.php (last visited June 16, 2016). As a 501(c)(3) nonprofit, 

Wyoming Liberty Group (“Wyoming Liberty”) may not “participate in, or intervene in 

(including the publishing or distributing of statements), any political campaign on behalf of (or 

in opposition to) any candidate for public office.” 26 U.S.C. § 501(c)(3). Wyoming Liberty’s 

reported funding reflects that nearly all of its donors are individual contributors: “approximately 

eight (8) foundations and public charities have been donors to the Organization and 

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approximately 109 individuals have also contributed.” Wyoming Liberty Group, Excerpted 

2014 Form 990, at 7, attached as Exhibit A to this Memorandum.1

 

Pillar seeks to associate with delegates to the Republican National Convention to promote 

“the principle that political parties are private institutions entrusted to select their own leadership 

and members without outside interference,” a notion that plaintiffs label “delegate autonomy.” 

(Prelim. Inj. Mem. at 2.) To achieve these goals, Pillar wishes to distribute certain educational 

materials to all delegates nationwide. These materials — specifically, two books that allegedly 

retail for a combined total of $122.24 — would provide delegates with “a background on the 

history of presidential nominating conventions in the United States” and describe “the 

constitutional rights of delegates and political parties.” (Compl. ¶¶ 28, 42 (describing Pillar’s 

desire to provide copies of two books, respectively entitled “National Party Conventions 1831-

2008” and “The First American Political Conventions: Transforming Presidential Nominations, 

1832-1872”).) Pillar would also like to offer its attorneys to provide pro bono legal 

representation of delegates should they face threats of defamation, libel, campaign finance, or 

other lawsuits or forms of legal intimidation for expressing support of delegate autonomy. (Id.

¶ 30.) Finally, Pillar wishes to provide a limited number of delegates with $500 travel stipends 

to attend the convention. (Id. ¶ 31.) 

The unnamed individual plaintiffs are two duly selected delegates to the Republican 

National Convention who wish to receive these funds, services, and materials from Pillar. 

(Compl. ¶¶ 25-26, 33.) 

As plaintiffs repeatedly plead, these materials “would not support or oppose the election 

or defeat of anyone running for federal office.” (Compl. ¶ 28; cf. id. ¶¶ 7, 32 & n.2 (noting 

 1

 The Court may take judicial notice of public records such as Wyoming Liberty’s public 

reports to the IRS. United States v. Bagby, 696 F.3d 1074, 1083 n.7 (10th Cir. 2012). 

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Pillar’s desire to engage in similar conduct with respect to the Democratic National Convention 

and the 2020 presidential election cycle); Prelim. Inj. Mem. at 3 & n.3 (same).) 

Plaintiffs claim that they may not engage in their proposed activities because a provision 

of FECA, 52 U.S.C. § 30118, prohibits non-profit corporations like Pillar from providing funds 

or discounts on services to delegates to a convention. 

II. STATUTORY AND REGULATORY BACKGROUND 

A. The Bar on Corporate Contributions and Expenditures 

The statute at issue in this case, 52 U.S.C. § 30118, makes it unlawful for “any 

corporation whatever . . . to make a contribution or expenditure in connection with . . . any 

primary election or political convention or caucus held to select candidates” for “presidential and 

vice presidential electors or a Senator or Representative in, or a Delegate or Resident 

Commissioner to, Congress.” 52 U.S.C. § 30118(a). The words “contribution” and 

“expenditure” are defined terms under the Act. See id. § 30101(8)(A), (9)(A). FECA’s general 

definitions limit those terms as they are used in the Act to “only those contributions and 

expenditures that are made ‘for the purpose of influencing any election for Federal office.’” 

FEC v. Akins, 524 U.S. 11, 15 (1998) (quoting provisions of FECA now codified at 52 U.S.C. 

§ 30101(8)(A)(i), (9)(A)(i)).2

 In the context of corporations, however, FECA also defines 

 2

 More precisely, a “contribution” is “any gift, subscription, loan, advance, or deposit of 

money or anything of value made by any person for the purpose of influencing any election for 

Federal office.” 52 U.S.C. § 30101(8)(A). An expenditure is “any purchase, payment, 

distribution, loan, advance, deposit, or gift of money or anything of value, made by any person 

for the purpose of influencing any election for Federal office.” Id. § 30101(9)(A). Commission 

regulations make clear that “the term anything of value includes all in-kind contributions” and 

that “the provision of any goods or services without charge” is an “in-kind contribution.” 11 

C.F.R. § 100.52(d)(1). The Act also “sets forth detailed categories of disbursements, loans, and 

assistance-in-kind that do not count as a ‘contribution’ or an ‘expenditure,’ even when made for 

election-related purposes.” Akins, 524 U.S. at 15 (citing FECA provisions now at 52 U.S.C. § 

30101(8)(B), (9)(B)). 

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“contribution” and “expenditure” to include, inter alia, anything of value (other than certain 

bank loans) given “to any candidate, campaign committee, or political party or organization, in 

connection with any election.” 52 U.S.C. 30118(b)(2); see also 11 C.F.R. 114.1(a)(1) 

(regulatory definition of corporate contributions and expenditures). 

At the same time, the Act provides that the payment of “compensation for the personal 

services of another person which are rendered to a political committee without charge for any 

purpose” is a contribution. 52 U.S.C. § 30101(8)(A)(ii) (emphasis added). For example, the 

Commission has explained that a corporate law firm makes a contribution to a political 

committee if it pays the usual compensation of an attorney that drafts a brief on behalf of a 

political committee at no charge to the committee, regardless of the nature of the case. Advisory 

Op. 2006-22 (The Wallace Committee), 2006 WL 2786813 (Sept. 18, 2006). In the same 

advisory opinion, the Commission further indicated that when free or discounted services are 

provided to individuals or groups that are not political committees, they are contributions only if 

the services are rendered “for the purpose of influencing any election for Federal office.” Id. at 

*2 (describing FECA’s prohibition on corporate contributions and expenditures and contrasting 

the statute’s “two ways” of defining “contribution,” one of which includes compensation for 

personal services rendered to a political committee without charge for any purpose, and the other 

of which includes “‘anything of value made by any person for the purpose of influencing any 

election for Federal office’”) (quoting 52 U.S.C. § 30101(8)(A)(i), 30118(b)(2) (then codified at 

2 U.S.C. §§ 431(8)(A)(ii), 441b(b)(2))). 

Longstanding Commission regulations have applied these statutory provisions in the 

context of national nominating conventions. Those regulations provide that “funds received and 

spent for delegate selection activities are contributions and expenditures made to influence 

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federal elections.” Contributions to and Expenditures by Delegates to National Nominating 

Conventions, 52 Fed. Reg. 35,530, 35,530 (Sept. 22, 1987) (emphasis added); see 11 C.F.R. 

§ 110.14(c)(1). This is so because the “term ‘election’ is defined to include a national 

nominating convention, as well as any primary election held to select delegates to such a 

convention.” Contributions to and Expenditures by Delegates to National Nominating 

Conventions, 45 Fed. Reg. 34,865, 34,866 (May 23, 1980). Thus, the Commission has longsince concluded that “[a]mounts received or spent to further the selection of a delegate are 

received or spent for the purpose of influencing a national nominating convention or for the 

purpose of influencing a primary election held to select delegates to such a convention” and are 

“contributions” or “expenditures.” Id. Because of this, the Act provides that delegate-selection 

activities may not be funded from an impermissible source, including a corporation’s general 

treasury fund. 11 C.F.R. § 110.14(c)(2). 

Importantly, delegates are no different than candidates in this regard. Neither may accept 

money or free goods and services from corporate entities made for the purpose of influencing an 

election for federal office. See, e.g., FEC v. Beaumont, 539 U.S. 146, 149 (2003) (holding that 

FECA’s ban on corporate contributions to candidates for federal office could be constitutionally 

applied to nonprofit advocacy corporations); United States v. Danielczyk, 683 F.3d 611, 615 (4th 

Cir. 2012) (concluding that Beaumont remains good law); Protect My Check, Inc. v. Dilger, --- 

F. Supp. 3d ---, 2016 WL 1306200, at *9 (D. Ky. Mar. 31, 2016) (same).

At the same time, however, delegates are not themselves “candidates” under FECA 

because they do not seek to be nominated or elected to “the office of President or Vice President, 

or of Senator or Representative in, or Delegate or Resident Commissioner to, the Congress.” 52 

U.S.C. § 30101(2), (3); see also Contributions to and Expenditures by Delegates to National 

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Nominating Conventions, 52 Fed. Reg. at 35,530. Because they are not candidates, delegates are 

not subject to the contribution limits applicable to candidates, 52 U.S.C. § 30116(a)(1). See 11 

C.F.R. §110.14(d)(1). The net result is that while delegates face the same restrictions as 

candidates on the source of funds received for the purpose of influencing a federal election, they 

do not face the same dollar limits on contributions that are applicable to candidates. 

B. MCFL Exemption 

Section 30118’s bar on corporate contributions and expenditures is also subject to 

important judicial limitations. Most relevant here, the Supreme Court has held that certain 

nonprofit advocacy corporations cannot constitutionally be barred from making independent 

expenditures expressly advocating the election or defeat of a clearly identified federal candidate. 

FEC v. Mass. Citizens for Life, Inc., 479 U.S. 238 (1986) (“MCFL”). A corporation qualifies for 

a so-called MCFL exemption if it satisfies three “essential” features: the entity (1) was “formed 

for the express purpose of promoting political ideas,” and does not engage in business activities; 

(2) has “no shareholders or other persons affiliated so as to have a claim on its assets or 

earnings”; and (3) “was not established by a business corporation or a labor union,” and does not 

accept contributions from such entities. Id. at 263-64. The Tenth Circuit has held that “MCFL

does not establish an immobile set of parameters,” and that the ultimate question is “whether a 

corporation is more like the ‘type of traditional corporatio[n] organized for economic gain,’ or 

the voluntary political association of MCFL.” Colo. Right to Life Comm., Inc. v. Coffman, 498 

F.3d 1137, 1148 (10th Cir. 2007) (quoting MCFL, 479 U.S. at 259) (alteration in original). 

While the Supreme Court has rejected the argument that this exemption must be applied 

in the context of corporate contributions to candidates, see Beaumont, 539 U.S. at 149, neither 

the courts nor the Commission has ever enforced section 30118 to bar an MCFL corporation 

from making contributions or expenditures to a delegate to a national convention. 

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C. Advisory Opinion Requests 

The Act permits any person to submit a “written request concerning” the application of, 

inter alia, FECA or Commission regulations “to a specific transaction or activity,” to which the 

agency must respond within sixty days. 52 U.S.C. § 30108(a). For highly significant, timesensitive requests, the FEC expedites its process and endeavors to issue opinions within 30 days. 

FEC, Advisory Opinion Procedure, 74 Fed. Reg. 32,160, 32,162 (July 7, 2009). Neither Pillar 

nor the individual plaintiffs requested an advisory opinion regarding their proposed activities. 

ARGUMENT 

I. STANDARD OF REVIEW 

“A preliminary injunction is an extraordinary and drastic remedy.” Warner v. Gross, 776 

F.3d 721, 728 (10th Cir. 2015) (internal quotation marks omitted). To prevail on their motion for 

one, plaintiffs must establish (1) a substantial likelihood of prevailing on the merits of their 

lawsuit; (2) that they will likely be irreparably injured without an injunction; (3) that the balance 

of harms weighs in favor of issuing a preliminary injunction; and (4) that the injunction, if 

issued, will not harm the public interest. Flood v. ClearOne Commc’ns, Inc., 618 F.3d 1110, 

1117 (10th Cir. 2010). As the moving party, plaintiffs must, “by a clear showing,” carry the 

burden of persuasion. Mazurek, 520 U.S. at 972; see Beltronics USA, Inc. v. Midwest Inventory 

Distribution, LLC, 562 F.3d 1067, 1075 (10th Cir. 2009). 

Plaintiffs must show a “credible threat of prosecution” to have standing to “sue for 

prospective relief against enforcement” on the basis that a regulation chills First Amendment 

activities). See, e.g., Winsness, 433 F.3d at 732. 

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II. PLAINTIFFS ARE UNLIKELY TO SUCCEED ON THE MERITS OF THEIR 

FIRST AMENDMENT CLAIMS 

A. Plaintiffs Lack Standing Because There Is No Credible Threat of Prosecution 

Plaintiffs are unlikely to succeed on the merits of their claims because they lack standing 

to bring a pre-enforcement challenge to section 30118. To establish Article III standing, a 

plaintiff must demonstrate (1) an injury in fact; (2) a sufficient causal connection between the 

injury and the conduct complained of; and (3) a likelihood that the injury will be redressed by a 

favorable decision. Colo. Outfitters Ass’n v. Hickenlooper, --- F.3d ---, 2016 WL 1105363, at *3 

(10th Cir. Mar. 22, 2016). With regard to injury in fact, the “mere presence on the statute books 

of an unconstitutional statute, in the absence of enforcement or credible threat of enforcement, 

does not entitle anyone to sue, even if they allege an inhibiting effect on constitutionally 

protected conduct prohibited by the statute.” Winsness, 433 F.3d at 732. Rather, “in the context 

of a pre-enforcement challenge” to a statute, “a plaintiff must typically demonstrate (1) ‘an 

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

proscribed by [the challenged] statute,’ and (2) that ‘there exists a credible threat of prosecution 

thereunder.’” Colo. Outfitters Ass’n, 2016 WL 1105363, at *3 (alteration in original) (quoting 

Susan B. Anthony List, 134 S. Ct. at 2342).3

Plaintiffs here fail both elements of the pre-enforcement standing test. First, they have 

not established that their proposed conduct is proscribed by the language of the FECA provision 

they challenge. See Brady Campaign to Prevent Gun Violence v. Brownback, 110 F. Supp. 3d 

 3

 In Colorado Outfitters, the Tenth Circuit noted that the statute at issue “imposes civil 

liability as well as criminal penalties,” but that the plaintiffs had waived any argument that the 

“quasi-civil character” of the statute “might impact the appropriate test for the plaintiffs’ 

standing.” 2016 WL 1105363, at *3 n.7. FECA, too, imposes both civil and criminal penalties, 

but other courts have applied the same “credible threat of . . . prosecution” standard to determine 

a plaintiff’s standing to bring a pre-enforcement challenge to the Act. See Minn. Citizens 

Concerned for Life v. FEC, 113 F.3d 129, 131 (8th Cir. 1997) (internal quotation marks omitted). 

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1086, 1100 (D. Kan. 2015) (holding that plaintiff lacked standing to make pre-enforcement 

challenge to statute because the “intended future conduct is not arguably proscribed by the 

statute”). Second, they have not established any credible threat that the Commission would 

enforce the Act against them if they engage in any of the activities they propose. To the contrary 

and as detailed below, Commission and judicial precedent confirm that no such enforcement 

would occur if the particular proposed conduct were to take place. 

1. Commission Authority Confirms That Pillar’s Plan to Provide 

Delegates with Educational Materials and Pro Bono Legal Services Is 

Not Prohibited By FECA 

The first two types of spending plaintiffs propose — providing certain educational 

materials and pro bono legal services to delegates — are neither contributions or expenditures 

under FECA’s general definition, 52 U.S.C. § 30101(8)(A)(i), (9)(A)(i), nor are they otherwise 

prohibited by the ban on corporate contributions or expenditures in section 30118. Indeed, the 

Commission has never concluded that a corporation would be barred from engaging in either of 

these activities, and the FEC’s own advisory opinions indicate that it would not so conclude.4

a. Section 30118 Does Not Prohibit the Provision to Delegates of 

Non-Advocacy Educational Materials 

Section 30118 does not prohibit Pillar from providing non-advocacy educational 

materials to delegates under the circumstances alleged in plaintiffs’ verified complaint. To the 

contrary, the Commission has repeatedly expressed approval of corporations providing nonadvocacy educational materials. In Advisory Opinion 1988-22 (Republican Associates), for 

 4

 In contrast, the Commission has concluded that payments of “travel and subsistence 

during the delegate selection process, including the national nominating convention” are 

considered “expenditures” by the delegate, and therefore “must be made from funds permissible 

under the Act.” 11 C.F.R. § 110.14(c)(2), (e)(1). For the reasons explained below, however, 

Pillar has not shown that any money it intends to provide to defray convention attendance costs 

would be impermissible under an exemption to FECA courts have already granted. See, infra pp. 

17-21. 

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example, the Commission concluded that it was permissible for a tax-exempt corporation to 

“maintain a library composed of publications concerning ‘campaign management’ and clippings 

from newspapers and other periodicals related to political events, personalities and issues” and to 

provide free access to these materials to all registered Republicans including candidates. 1988 

WL 170417, at *7 (Jul. 5, 1988). Plaintiffs’ proposal here is essentially identical, in that they too 

seek to provide delegates with access to educational materials concerning the rights and 

responsibilities of delegates at a convention. (Compl. ¶¶ 6, 29, 42.) 

Likewise, in Advisory Opinion 2004-07 (MTV News), the Commission concluded that a 

corporation could provide “election-related educational materials at community events,” even 

though such activity fell outside the scope of the press exemption, so long as those materials did 

“not expressly advocate the election or defeat of a clearly identified candidate or political party.” 

2004 WL 830044, at *4 (Apr. 1, 2004). There is little difference between MTV News’s conduct 

and the conduct Pillar wishes to undertake here. Like MTV News, Pillar seeks to distribute 

educational materials about an election to the relevant electorate. In Advisory Opinion 2004-07, 

the Commission concluded that such activities were permissible as long as the materials did not 

constitute express advocacy. As explained supra p. 3, that condition is met here: plaintiffs have 

explicitly pleaded that the educational materials they seek to distribute “would not support or 

oppose the election or defeat of anyone running for federal office.” (Compl. ¶ 28.) 

In addition, in a recent enforcement action the Commission similarly found no reason to 

believe an author had provided an excessive in-kind contribution to a presidential campaign by 

providing a candidate with information from his forthcoming book that the candidate then used 

against one of his rivals. The Commission unanimously concluded that, despite the fact that the 

information was highly critical of another candidate for president and was later used in the 

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campaign, the provision of information from the author to the candidate was not “for the purpose 

of influencing” the presidential election. In the Matter of Rand Paul for President, Inc., MUR 

6938, Factual & Legal Analysis, at 5 (Mar. 2, 2016), http://eqs.fec.gov/eqsdocsMUR/ 

16044390609.pdf; see Certification, MUR 6938 (Feb. 22, 2016), http://eqs.fec.gov/eqsdocsMUR 

/16044390599.pdf. Here too, providing delegates with general educational information about the 

history of party conventions and delegate rights — which does not expressly advocate for the 

selection or rejection of any particular candidate for the nomination — would not be an activity 

undertaken “for the purpose of influencing” a convention.5

 

b. Section 30118 Also Does Not Prohibit Pillar’s Proposal to 

Provide Pro Bono Legal Services 

Pillar’s proposed provision of pro bono legal services to delegates also would not be 

prohibited by section 30118. Defending a defamation lawsuit does not “further[] the selection of 

a delegate to a national nominating convention,” and therefore is not covered by 11 C.F.R. 

§ 110.14(c)(1). Nor would the defense of potential civil claims be for the purpose of influencing 

any election. In fact, in Advisory Opinion 1981-13 (Frank E. Moss), the Commission considered 

whether it was permissible for a former candidate to raise corporate money to defray his legal 

expenses for defending a civil slander claim filed against him for comments made during the 

campaign. 1981 WL 721625 (Mar. 16, 1981). The Commission concluded that the candidate 

was permitted to raise corporate funds for this purpose because donations to defray the costs of 

 5

 Even if Pillar had not verified that its proposed educational materials will not support or 

oppose any particular candidate at the convention (see Compl. ¶ 28), Pillar may be precluded 

from influencing the results of the convention for reasons completely unrelated to FECA. 

Wyoming Liberty is a 501(c)(3) nonprofit. The Internal Revenue Code is a separate statute over 

which the Commission has no authority, but entities like Wyoming Liberty clearly may not 

“participate in, or intervene in (including the publishing or distributing of statements), any 

political campaign on behalf of (or in opposition to) any candidate for public office.” 26 U.S.C. 

§ 501(c)(3). 

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defending against a civil slander suit was not a contribution or expenditure under the Act. Id. at 

*1; see also Advisory Op. 2011-01 (Robin Carnahan for Senate), 2011 WL 7629546, at *3 

(Feb.17, 2011) (concluding that “nothing in the Act or Commission regulations would limit or 

prohibit” a candidate from establishing a fund to raise money from corporate entities to pay for 

legal expenses for defending civil suits). 

That Pillar wishes to donate these legal services without charge does not change this 

analysis. In another advisory opinion, the Commission permitted a corporate law firm to pay the 

normal wages of its attorneys who provided free legal services to a presidential campaign 

committee in defense of a civil lawsuit alleging that the committee had “not properly allocated 

costs between political and official travel.” Advisory Op. 1980-04 (Carter/Mondale Presidential 

Committee), 1980 WL 642624, at *1 (Feb. 1, 1980). The Commission concluded that there was 

no “basis under the Act for treating donated legal services to defend against a civil action as 

services rendered for the purpose of influencing the election of any person to Federal office.” Id.

at *1.6

 Similarly here, Pillar may provide legal counsel to delegates on a pro bono basis without 

running afoul of section 30118. 

A footnote in plaintiffs’ preliminary injunction brief (Prelim. Inj. Mem. at 14 n.4) 

clarifies that their concern that the pro bono representation proposed here would be prohibited is 

based on a misinterpretation of an FEC advisory opinion. Contrary to plaintiffs’ assertion (id.), 

 6

 After the Commission issued Advisory Opinion 1980-04, it amended the relevant 

definition of “contribution” in its regulations to include compensation paid by one person for 

personal services of another that are rendered to a political committee without charge “for any 

purpose” to reflect an amendment made to the Act. See Advisory Op. 2006-22 (Wallace for 

Congress), 2006 WL 2786813, at *3-4; 11 C.F.R. § 100.54. Here, however, Pillar seeks to offer 

pro bono legal services not to a political committee but to individual delegates, and its proposed 

services therefore fall outside the scope of the amended definition. Under the circumstances 

presented here, the Commission’s analysis of whether pro bono legal services are rendered for 

the purpose of influencing the election of any person to Federal office remains relevant. 

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in Advisory Opinion 2006-22 (Wallace for Congress), the Commission did not broadly conclude 

that “pro bono corporate-funded legal representation is prohibited, even in constitutional cases.” 

Instead, the Commission concluded a corporate law firm could not prepare an amicus curiae

brief on behalf of a candidate in a case involving a competing candidate’s ballot eligibility. 2006 

WL 2786813, at *1-2. In that matter, unlike here, the legal services at issue directly related to a 

candidate’s electoral prospects, and were provided to a political committee. Advisory Opinion 

2006-22 is thus plainly inapposite to the circumstances presented in this case. 

c. The Commission Routinely Considers Whether Proposed 

Conduct is Undertaken For the Purpose of Influencing Any 

Election for Federal Office in Determining Whether the Conduct 

is Prohibited by FECA 

Plaintiffs’ argument that their proposed conduct is unconstitutionally proscribed by the 

Act is based on at least two fundamental yet interrelated misinterpretations of FECA. First, 

plaintiffs argue that “money given to a convention delegate by an individual” does not fall within 

the definition of a “‘contribution’ under the law.” (Prelim. Inj. Mem. at 4 (emphasis added).) 

Not so, as such money would be a “gift . . . of money” and would be a contribution if “made . . . 

for the purpose of influencing any election for Federal office,” including a national nominating 

convention. 52 U.S.C. § 30101(8)(A)(i). And Commission regulations make clear that “[f]unds 

received or disbursements made for the purpose of furthering the selection of a delegate to a 

national nominating convention are contributions or expenditures” because they are made “for 

the purpose of influencing a federal election,” 11 C.F.R. § 110.14(c), even if there are no limits 

on the amount of such contributions to delegates, 11 C.F.R. § 110.14(d)(1). 

Second, plaintiffs erroneously assert — without citation — that the Commission does not 

undertake any inquiry into the purpose or effect behind a corporation providing a good or service 

at less than the usual and normal charge for such goods or services before finding it is prohibited 

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by section 30118(a). (Prelim. Inj. Mem. at 12.) In fact, with respect to gifts to delegates, 

Commission regulations expressly impose that limitation. See 11 C.F.R. § 110.14(c)(1). 

Plaintiffs’ errors fundamentally undermine their assumption that their proposed conduct 

is prohibited. Contrary to plaintiffs’ argument, the Commission does undertake a purposive 

inquiry in determining whether the provision of free or discounted goods and services by a 

corporation to delegates is prohibited by FECA. In Advisory Opinion 1983-23 (LTV Corp.), the 

Commission considered whether a for-profit corporation could invite delegates to a cocktail 

reception and hospitality facility where free food and beverages would be provided during the 

1984 Republican National Convention. 1983 WL 909288 (Oct. 3, 1983). As here, the 

corporation expressly disclaimed any intent to use the reception or facility “for soliciting 

contributions” to candidates “or for expressly advocating the election or defeat of a candidate for 

Federal office.” Id. at *1. The FEC concluded that section 30118 did not bar the proposed 

conduct because the “payments for both the reception facility and the cocktail reception would 

not constitute contributions or expenditures under the Act.” Id. at *2. It reached that conclusion 

precisely because “the purpose of” the facility and the reception was not to influence the 

outcome of the convention. Id. (“This response is conditioned on your assertions that no attempt 

will be made to influence the outcome of the Convention in any manner, and that the purpose of 

these functions is neither to solicit contributions to, nor to advocate the election or defeat of, any 

candidate for Federal office.”). Advisory Opinion 1983-23 confirms that the Commission 

already undertakes precisely the analysis that plaintiffs argue is lacking. 

Plaintiffs’ arguments assume without further analysis that advisory opinions addressing 

in-kind contributions to candidates and political committees apply equally in the context of 

delegates to a national convention. Nearly every advisory opinion cited by plaintiffs addresses 

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proposed discounts or free services to candidates or political committees. (See Prelim. Inj. Mem. 

at 12 (citing Advisory Op. 2004-06 (MeetUp), 2004 WL 830046, at *1 (Mar. 25, 2004) 

(analyzing whether internet site could offer free services to “candidates, political committees, 

and their supporters”) and Advisory Op. 1996-02 (CompuServe), 1996 WL 233874, at *1 (Apr. 

25, 1996) (analyzing whether company could offer free accounts “to all candidates for Federal 

and statewide elective offices”)). But a separate provision of FECA effectively presumes that 

services provided to political committees without charge are election related. See 52 U.S.C. § 

30101(8)(A)(ii) (“The term ‘contribution’ includes . . . the payment by any person of 

compensation for the personal services of another person which are rendered to a political 

committee without charge for any purpose.” (emphasis added)); 11 C.F.R. § 100.54 (same). 

That presumption makes sense because a political committee is necessarily one that has as its 

major purpose the election or defeat of federal candidates, so there is no need to further analyze 

whether the services are intended to influence or otherwise connected to a federal election. 

Buckley v. Valeo, 424 U.S. 1, 79 (1976) (per curiam). 

In the context of discounted or free goods and services to delegates, however, no such 

rule applies. The Commission has permitted corporations to provide discounted goods and 

services to delegates, so long as the purpose behind the donations was not to “advocate the 

election or defeat of[] any candidate for Federal office.” Advisory Op. 1983-23 (LTV 

Corporation), 1983 WL 909288, at *2. 

Plaintiffs’ own brief establishes that the Commission is unlikely to enforce FECA in the 

way they suggest. Plaintiffs repeatedly assert that corporate-funded educational materials and 

pro bono legal services of the type plaintiffs propose should be permitted by the logic of 

previous Commission actions. (See, e.g., Prelim. Inj. Mem. 16 (stating that providing pro bono

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legal services “to delegates unrelated to the support or opposition of a candidate . . . should be 

protected under” the reasoning of previous Commission advisory opinions); id at 17 (noting that 

the Commission approved an educational stipend paid by a 501(c)(3) organization for a student 

to volunteer for a campaign).) Plaintiffs themselves thus underscore their inability to meet their 

burden to show that their proposed conduct is prohibited by FECA. 

In sum, plaintiffs’ proposals to provide in-kind donations of educational materials and 

legal services to delegates are not prohibited by the text of section 30118, as confirmed by 

multiple Commission advisory opinions interpreting and applying that text. But even if there 

were any doubt regarding the scope of section 30118, the canon of constitutional avoidance 

would support the Commission’s position that these activities are not contributions or 

expenditures. See Olmos v. Holder, 780 F.3d 1313, 1320-21 (10th Cir. 2015) (“[W]hen a 

particular construction would raise serious constitutional problems, the court will avoid that 

construction unless doing so would plainly conflict with Congress’s intent.”). Because plaintiffs 

have not established that FECA bars Pillar from providing educational materials and pro bono

legal services to delegates as described in the complaint, plaintiffs lack standing. 

2. Plaintiffs’ Proposed Activity is Also Permissible Under MCFL

Even if plaintiffs’ proposed activity was otherwise prohibited by FECA’s text, such 

activity, including plaintiffs’ proposed stipends (Compl. ¶ 31), would nevertheless be permitted 

under the Supreme Court’s decision in MCFL. In that decision, the Supreme Court held that 

section 30118 could not be constitutionally applied to prohibit independent expenditures by a 

nonprofit, voluntary political association that had specified characteristics. MCFL, 479 U.S. at 

263-64. Under the MCFL exemption, corporate independent expenditures are not barred so long 

as the corporation making them: (1) was “formed for the express purpose of promoting political 

ideas,” and did not engage in business activities; (2) had “no shareholders or other persons 

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affiliated so as to have a claim on its assets or earnings”; and (3) “was not established by a 

business corporation or a labor union, and it is its policy not to accept contributions from such 

entities.” Id. “MCFL does not establish an immobile set of parameters,” and the ultimate 

question is “whether a corporation is more like the ‘type of traditional corporatio[n] organized 

for economic gain,’ or the voluntary political association of MCFL.” Colo. Right to Life Comm., 

Inc., 498 F.3d at 1148 (quoting MCFL, 479 U.S. at 259) (alteration in original). 

a. Pillar Qualifies for the MCFL Exemption 

Plaintiffs themselves invoke the MCFL exemption (see Prelim. Inj. Mem. at 7-8), and the 

allegations in their Verified Complaint and materials subject to judicial notice, see supra p. 3 n.1, 

indicate that Pillar qualifies for that exemption.7

 

First, Pillar was formed to promote political ideas and does not engage in business 

activities. As alleged in the complaint, Pillar is “a program of the Wyoming Liberty Group, a 

nonprofit corporation organized under section 501(c)(3) of the Internal Revenue Code.” (Compl. 

¶ 11.) It advocates for its interpretation of the First Amendment by “promoting the virtues of 

free speech and association,” including by “pursuing litigation.” Pillar of Law Institute, Our 

Mission, https://www.pillaroflaw.org/index.php/about/our-mission (last visited June 16, 2016). 

Wyoming Liberty, for its part, has as its mission to invite “citizens to prepare for informed, 

active and confident involvement in local and state government.” Exh. A, at 1. 

Second, neither Pillar nor its parent, Wyoming Liberty, has any “members or 

 7

 Even if subsequent facts come to light that might establish Pillar or Wyoming Liberty 

falls outside the scope of the MCFL exemption, plaintiffs’ motion should still be denied. 

Plaintiffs bear the burden of establishing that they meet the requirements for a preliminary 

injunction, including that they have standing to sue. See, e.g., Beltronics, USA, Inc., 562 F.3d at 

1075 (noting that “the party seeking the preliminary injunction” bears “the burden of proof”). 

Outside of their Verified Complaint, Plaintiffs have offered no exhibits, declarations, affidavits, 

or other evidence to satisfy their burden of establishing that the Commission would likely 

enforce the law in the way they suggest. 

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stockholders.” Exh. A, at 6. 

Third, although Pillar did not expressly plead that it meets the three MCFL factors and its 

precise funding sources are not entirely clear, Wyoming Liberty reported to the IRS that its 

“percentage of support received from the public is 26.69%,” and that it received contributions 

from “approximately eight (8) foundations and public charities” and “approximately 109 

individuals.” Exh. A, at 7. 

Thus, Pillar appears to fall squarely within the types of corporate organizations that are 

entitled to an MCFL exemption. See, e.g., Colo. Right to Life Comm., 498 F.3d at 1141-43, 1156 

(holding that advocacy organization dedicated to “promote reverence and respect for human life” 

was an “MCFL-exempt entity”). 

b. The Commission Has Never Applied Section 30118 to Bar an 

MCFL Corporation From Providing the Funds, Services, and 

Materials That Pillar Seeks to Provide to Delegates 

While the Supreme Court has rejected the argument that the MCFL exemption must be 

applied in the context of corporate expenditures to candidates, see Beaumont, 539 U.S. at 149, 

neither the courts nor the Commission have addressed whether 52 U.S.C. § 30118 bars an MCFL 

corporation from making contributions to a delegate to a national convention. It does not. 

 Contribution limits satisfy review if they are “closely drawn” to serve “a sufficiently 

important interest.” Buckley, 424 U.S. at 25. Plaintiffs argue in passing that strict scrutiny 

should apply because section 30118 is purportedly a more serious infringement on their 

associational freedoms under the First Amendment. (Prelim. Inj. Mem. at 6.) Plaintiffs cite no 

case supporting the application of strict scrutiny in this context. And the Supreme Court has held 

that “[e]ven a significant interference with protected rights of political association” is reviewed 

under closely drawn scrutiny. Buckley, 424 U.S. at 25 (internal quotation marks omitted); see 

also FEC v. Arlen Specter ’96, 150 F. Supp. 2d 797, 818-89 (E.D. Pa. 2001) (holding that inCase 2:16-cv-00135-SWS *SEALED* Document 18 Filed 06/17/16 Page 26 of 34

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kind contributions are not subject to strict scrutiny). Indeed, closely drawn scrutiny applies even 

if the regulation involved is a ban on contributions, which prevents any association at all. See 

Beaumont, 539 U.S. at 161-63; Wagner v. FEC, 793 F.3d 1, 6 (D.C. Cir. 2015) (en banc) (“[T]he 

Supreme Court expressly rejected this argument in FEC v. Beaumont, concluding that both limits 

and bans on contributions are subject to the same ‘closely drawn’ standard.”). 

Although MCFL addressed only the independent expenditures of non-profit advocacy 

corporations that were not coordinated with a candidate, the Commission has never enforced the 

corporate contribution and expenditure bar against such an entity for providing funds or 

discounted goods or services to delegates. Nor would it in this case, because the conduct at issue 

is far closer to an independent expenditure directed at voters than a contribution to a candidate. 

This is particularly true with respect to the educational materials Pillar seeks to provide to 

delegates, which plaintiffs allege merely seeks to raise awareness of issues relating to delegate 

autonomy. The books Pillar seeks to disseminate — which, according to Pillar (and as the titles 

of the books suggest), merely describe political conventions through the nation’s history — are 

essentially history textbooks regarding past conventions. (See Compl. ¶ 42.) 

The pro bono legal services and stipends Pillar seeks to donate are also unlike corporate 

contributions to candidates. As described above, Pillar’s proposed spending would not directly 

or indirectly provide anything of value to any particular candidate. This fact alone distinguishes 

the conduct at issue here from contributions to candidates, which by their very nature are 

designed to influence the outcome of an election by directly providing means for a candidate to 

fund his own campaign. Moreover, one of the rationales underpinning the ban on corporate 

contributions to candidates is to prevent the use of corporations “as conduits for ‘circumvention 

of [valid] contribution limits.’” Beaumont ̧ 539 U.S. at 155 (quoting FEC v. Colo. Republican 

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Federal Campaign Comm., 533 U.S. 431, 456 & n.18 (2001)) (alteration in original). But 

because delegates, who are not candidates, operate under no limits on the amount of 

contributions they may accept from permissible sources, this rationale does not apply. 

In light of these factors, there is no credible threat that the Commission would enforce the 

bar on corporate contributions and expenditures in section 30118 against the plaintiffs for 

engaging in the activities proposed here. 

B. Because Plaintiffs’ Proposed Conduct is Not Prohibited, This Court Need 

Not Reach Plaintiffs’ Remaining Constitutional Arguments 

Because plaintiffs have failed to establish that they face a credible threat of Commission 

enforcement against them, this Court need not reach the remaining constitutional arguments 

presented in plaintiffs’ motion. Plaintiffs cannot raise arguments regarding asymmetrical 

contribution limits and exceptions for in-kind donations to candidates and party committees 

when they are permitted to engage in the conduct they wish to pursue. See, e.g., Kowalski v. 

Tesmer, 543 U.S. 125, 129 (2004) (noting that “a party generally must assert his own legal rights 

and interests, and cannot rest his claim to relief on the legal rights or interests of third parties” 

(internal quotation marks omitted)). Even assuming that plaintiffs’ constitutional theory is 

correct, they lack standing to sue if their conduct is free from a danger of enforcement. 

III. PLAINTIFFS FAIL TO DEMONSTRATE IRREPARABLE HARM 

As demonstrated above, the provisions challenged here do not prevent plaintiffs from 

engaging in their proposed activities and, therefore, do not unconstitutionally burden their First 

Amendment rights or cause irreparable harm. See Heideman v. S. Salt Lake City, 348 F.3d 1182, 

1188-89 (10th Cir. 2003) (explaining “[i]t is the movant’s burden” to establish each factor). 

At most plaintiffs’ allegations present theoretical, not irreparable harm. “To constitute 

irreparable harm, an injury must be certain, great, actual ‘and not theoretical.’” Heideman, 348 

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F.3d at 1189 (citing Wisconsin Gas Co. v. FERC, 758 F.2d 669, 674 (D.C. Cir.1985); Prairie 

Band of Potawatomi Indians v. Pierce, 253 F.3d 1234, 1250 (10th Cir. 2001)). Here, plaintiffs 

allege that they have “refrained from launching [their] delegate autonomy project” because of the 

corporate contribution prohibition in section 30118. (Prelim. Inj. Mem. at 18.) However, as 

explained above, plaintiffs’ allegations do not establish a credible threat of Commission 

enforcement action against them. See supra pp. 9-21. Since plaintiffs lack a credible fear of 

suffering any “loss of First Amendment freedoms,” (Prelim. Inj. Mem. at 18 (citing Verlo v. 

Martinez, No. 15-1319, 2016 WL 1395205 (10th Cir. Apr. 8, 2016)), the deprivation that they 

allege cannot serve as the basis for their claim of irreparable harm. Plaintiffs’ speculative and 

uncertain claims stand in stark contrast to the pamphleteers in Verlo v. Martinez, the case on 

which plaintiffs rely, where it was not in dispute that the challenged provision “bar[red] 

Plaintiffs from engaging in their pamphleteering” in particular areas. 2016 WL 1395205, at *8. 

Indeed, if there were any legitimate doubt regarding the legality plaintiffs’ planned 

activities, plaintiffs had the option under 52 U.S.C. § 30108 to ask the Commission for an 

advisory opinion. The advisory opinion process is a “chill-reducing” and “relatively riskless” 

mechanism, Martin Tractor Co. v. FEC, 627 F.2d 375, 388 (D.C. Cir. 1980), and “in issuing 

advisory opinions, the Commission fulfills its statutorily granted responsibility to interpret the 

Act.” FEC v. Nat’l Rifle Ass’n of Am., 254 F.3d 173, 185 (D.C. Cir. 2001); see also McConnell 

v. FEC, 540 U.S. 93, 170 n.64 (2003) (“[S]hould plaintiffs feel that they need further guidance, 

they are able to seek advisory opinions for clarification ... and thereby ‘remove any doubt there 

may be as to the meaning of the law’ ” (internal quotation marks and citation omitted)). Counsel 

for plaintiffs are familiar with the process, and employed it to develop what they considered a 

“detailed record” in support of claims for another case. Suppl. Br. and Addendum for Appellant 

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at 4-5, Free Speech v. FEC, 720 F.3d 788 (10th Cir. 2013) (No. 13-8033), 

http://www.fec.gov/law/litigation/freespeech_fs_suppl_brief.pdf. Here, where plaintiffs’ impact 

litigation could have been averted, they made no such requests. 

 Furthermore, Pillar’s altruistic “concern[] that many delegates will suffer financial 

hardships in attempting to attend the Republican National Convention” and its desire to offer 

$500 stipends to help defray such costs is not a basis for injunctive relief. (Compl. ¶ 31.) Any 

concern regarding such a harm not only is speculative, it is also reparable. There is no allegation 

that a delegate will not attend the convention absent the stipend, and it is “well settled that simple 

economic loss usually does not, in and of itself, constitute irreparable harm . . . .” Heideman, 

348 F.3d at 1189 (citing 11A Charles Alan Wright, Arthur R. Miller & Mary Kay Kane, Federal 

Practice & Procedure § 2948.1, at 152-53 (2d ed.1995)). Extraordinary preliminary injunctive 

relief is unnecessary when the proposed stipend can be disbursed to the delegates at the 

conclusion of any litigation. At best, plaintiffs have alleged, but not met their burden of 

establishing, the “possibility of irreparable harm [which] is inconsistent with our characterization 

of injunctive relief as an extraordinary remedy that may only be awarded upon a clear showing 

that the plaintiff is entitled to such relief.” Winter v. Nat. Res. Def. Council, Inc., 555 U.S. 7, 22 

(2008). Plaintiffs have not made that “clear showing.” 

Finally, plaintiffs’ own delay in seeking relief “‘may be viewed as inconsistent with a 

claim that plaintiff[s are] suffering a great injury or, in the case of preliminary injunctive relief, 

that there is an urgent need for immediate relief and that a judgment would be rendered 

ineffective unless some restraint is imposed on defendant pending an adjudication on the 

merits.’” Utah Gospel Mission v. Salt Lake City Corp., 316 F. Supp. 2d 1201, 1221 (D. Utah 

2004) (quoting 11A Wright, Miller & Kane, Federal Practice and Procedure § 2946 at pp. 113-

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14 (1995)), aff’d, 425 F.3d 1249 (10th Cir. 2005). 

Plaintiffs filed their motion for a preliminary injunction on June 3, 2016, with the 

convention just weeks away. The delegate autonomy principles they advocate, however, are far 

from novel. Indeed, the very titles of the books “Pillar would like to offer . . . to delegates 

detailing principles of delegate autonomy” — “National Party Conventions 1831-2008” and 

“The First American Political Conventions: Transforming Presidential Nominations, 1832-

1872” (Compl. ¶ 42) — underscore that the principles it seeks to promote have been documented 

for well over a century. Likewise, the statutory provision plaintiffs challenge, 52 U.S.C. 

§ 30118, has been in place for more than a century, deriving from Tillman Act of 1907. See Ch. 

420, 34 Stat. 864. And the prospect of a contested convention has been something for which 

delegates to the Republican convention and the public have been intensely preparing for over 

four months. There is no basis for expedited relief here. 

On the contrary, the disruptive potential of an injunction at this late date in the election 

context could cause confusion among political actors and undermine the public’s confidence in 

the federal campaign finance system. See Purcell v. Gonzalez, 549 U.S. 1, 4-5 (2006) (“Court 

orders affecting elections . . . can themselves result in voter confusion,” and “[a]s an election 

draws closer, that risk will increase.”); Iowa Right To Life Comm., Inc. v. Smithson, 750 F. Supp. 

2d 1020, 1049 (S.D. Iowa 2010) (declining to impose preliminary injunction that would 

“radically change Iowa’s campaign finance rules mid-stream during an election”); Anderson v. 

FEC, 634 F.2d 3, 5 (1st Cir. 1980) (denying preliminary injunction when “[p]laintiffs did not 

commence this action until late in the campaign”). The statutory provisions governing the 

conventions have been in place for a long time; plaintiffs’ “[d]elay . . . tends to indicate at least 

reduced need for such drastic, speedy action.” Utah Gospel Mission, 316 F. Supp. 2d at 1221 

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(months long delay in bringing action “belies any irreparable injury to their rights”) (internal 

quotation marks omitted). 

Since “[t]he basis of injunctive relief in the federal courts has always been irreparable 

harm,” Sampson v. Murray, 415 U.S. 61, 88 (1974) (internal quotation marks and citation 

omitted), plaintiffs’ failure on this element alone warrants denial of any preliminary injunction. 

IV. THE BALANCE OF HARMS FAVORS THE COMMISSION AND AN 

INJUNCTION WOULD BE ADVERSE TO THE PUBLIC INTEREST 

In contrast to the imagined burdens plaintiffs seek to avoid, enjoining a statute and 

casting into doubt the rules that have long governed this election would substantially harm the 

Commission and the public. “[A]ny time a State is enjoined by a court from effectuating statutes 

enacted by representatives of its people, it suffers . . . injury.” New Motor Vehicle Bd. of Cal. v. 

Orrin W. Fox Co., 434 U.S. 1345, 1351 (1977) (Rehnquist, J., in chambers). A “presumption of 

constitutionality [] attaches to every Act of Congress,” and that presumption is “an equity to be 

considered in favor of [the government] in balancing hardships.” Walters v. Nat’l Ass’n of 

Radiation Survivors, 468 U.S. 1323, 1324 (1984) (Rehnquist, J., in chambers). 

The imminent harm to the public, if the scope of this provision is cast into doubt in the 

days leading up to the national party conventions (and just months before the general presidential 

election), far outweighs any interest plaintiffs have in a ruling from this Court. Both the public 

and the Commission have an overriding interest in maintaining the rules that are in place without 

judicial intervention. 

CONCLUSION

For the foregoing reason, the Commission respectfully requests that the plaintiffs’ motion 

for a preliminary injunction be denied. 

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Respectfully submitted, 

 Daniel A. Petalas (dpetalas@fec.gov) 

 Acting General Counsel 

 Lisa J. Stevenson (lstevenson@fec.gov) 

 Deputy General Counsel – Law 

 Kevin Deeley (kdeeley@fec.gov) 

Acting Associate General Counsel 

 Erin Chlopak (echlopak@fec.gov) 

 Acting Assistant General Counsel 

 /s/Jacob S. Siler 

 Jacob S. Siler (jsiler@fec.gov) 

 Attorney 

June 17, 2016 FOR THE DEFENDANT 

FEDERAL ELECTION COMMISSION 

999 E Street, NW 

Washington, DC 20463 

Tel: (202) 694-1650 

Fax: (202) 219-0260 

 

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CERTIFICATE OF SERVICE 

 I hereby certify that on the 17th day of June, 2016, I filed the foregoing with the Clerk of 

Court using the Court’s CM/ECF system, which served the following counsel: 

Boyd Wiggam 

Wyoming Liberty Group 

1902 Thomes Ave. 

Ste. 201 

Cheyenne, WY 82001 

boyd.wiggam@wyliberty.org 

Benjamin Barr 

Stephen R. Klein 

Pillar of Law Institute 

455 Massachusetts Ave., NW 

Ste. 359 

Washington, DC 20001-2742 

benjamin.barr@pillaroflaw.org 

stephen.klein@pillaroflaw.org 

/s/ Jacob S. Siler 

Jacob S. Siler

 

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