PANEL DECISION ISSUED JANUARY 21, 2016

Nos. 15-5016 & 15-5017

IN THE UNITED STATES COURT OF APPEALS

FOR THE DISTRICT OF COLUMBIA CIRCUIT

CHRISTOPHER VAN HOLLEN,JR.,

Plaintiff-Appellee, 

v.

FEDERAL ELECTION COMMISSION,

Defendant-Appellee,

CENTER FOR INDIVIDUAL FREEDOM,

Intervenor-Defendant-Appellant,

HISPANIC LEADERSHIP FUND,

Intervenor-Defendant-Appellant,

On Appeal from the United States District Court for the District of Columbia

No. 1:11-cv-00766-ABJ (Hon. Amy Berman Jackson)

APPELLANT HISPANIC LEADERSHIP FUND’S OPPOSITION TO 

APPELLEE VAN HOLLEN’S PETITION FOR REHEARING EN BANC

Dated: April 5, 2016 Jason Torchinsky (D.C. Bar No. 976033)

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

Shawn Sheehy

HOLTZMAN VOGEL JOSEFIAK 

TORCHINSKY PLLC

45 North Hill Drive

Suite 100

Warrenton, VA 20186 

(540) 341-8808

Attorneys for Hispanic Leadership Fund

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 1 of 22
TABLE OF CONTENTS

 Page

TABLE OF AUTHORITIES ...................................................... ii

GLOSSARY .......................................................................... v

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

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

STANDARD OF REVIEW ........................................................ 3

ARGUMENT ........................................................................ 4

I. The Second Panel Held That The FEC Properly Vindicated 

Its Mandate To Not Unnecessarily Infringe First 

Amendment Rights When It Adopted Its 

Purpose Driven Disclosure Regulation ................................. 4

i. The FEC Justified Its Disclosure Regulation On The 

Basis That It Protected First Amendment Rights ................. 5

ii. The Second Panel’s Discussion Of The Supreme Court’s Disclosure 

Jurisprudence Cannot Conflict With The 

Holdings Of This Circuit Because It is Dicta ..................... 7

II. The Second Panel Rightly Concluded That The FEC’s 

Regulation Does Not Frustrate The Policy Of 

Congress ................................................................... 9

III. This Case Is A Routine Administrative Law Case; 

Not An Exceptionally Important Case Warranting 

En Banc Review ......................................................... 12

CONCLUSION ..................................................................... 15

CERTIFICATE OF SERVICE

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 2 of 22
ii

TABLE OF AUTHORITIES

CASES

*AFL-CIO v. FEC, 

333 F.3d 168 (D.C. Cir. 2003) .......................................... 7, 8

Bartlett on behalf of Neuman v. Bowen, 

824 F.2d 1240 (D.C. Cir. 1987) ............................................ 4

Bob Jones University v. United States, 

461 U.S. 574 (1983) ........................................................ 11

*Bowman Transp. Inc. v. Ark.-Best Freight Sys. Inc.,

419 U.S. 281 (1974) .................................................. 6, 7, 14

Buckley v. Valeo, 

424 U.S. 1 (1976) ............................................................ 6 

Citizens United v. FEC, 

558 U.S. 310 (2010) ..................................................... 8, 14

*Continental Air Lines, Inc. v. Department of Transp., 

843 F.2d 1444 (D.C. Cir. 1988) ...................................... 11, 12

Ctr. for Individual Freedom v. Van Hollen, 

694 F.3d 108 (D.C. Cir. 2012) ....................................... 2, 3, 13

Dickson v. Sec. of Defense, 

68 F.3d 1396 (D.C. Cir. 1995) .............................................. 6

FDA v. Brown & Williamson Tobacco Corp., 

529 U.S. 120 (2000) ........................................................ 11

FEC v. Wis. Right to Life, Inc. (‘WRTL II’), 

551 U.S. 449 (2007) ..................................................... 2, 13

*Authorities upon which HLF chiefly relies are marked with asterisks.

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 3 of 22
iii

FEC v. Mass. Citizens for Life, Inc. (‘MCFL’), 

479 U.S. 238 (1986) ................................................ 6, 13, 14

Gersman v. Group Health Ass'n, 

975 F.2d 886 (D.C. Cir. 1992) ............................................. 9

Ghaleb Nassar Al-Bihani v. Obama, 

619 F.3d 1 (D.C. Cir. 2010) ................................................ 4

Jenkins v. Tatem, 

795 F.2d 112 (D.C. Cir. 1986) ............................................. 4

McCutcheon v. FEC, 

134 S. Ct. 1434 (2014) ...................................................... 6

McIntyre v. Ohio Elections Comm’n, 

514 U.S. 334 (1995) ......................................................... 8

Rust v. Sullivan, 

500 U.S. 173 (1991) ........................................................ 13

Shays v. FEC, 

414 F.3d 76 (D.C. Cir. 2005) ............................................... 9

Smith Lake Improvement & Stakeholders Ass'n v. FERC, No. 13-1074,

2015 U.S. App. LEXIS 1487 (D.C. Cir. Jan. 30, 2015) ................ 8

SpeechNow.org v. FEC, 

599 F.3d 686 (D.C. Cir. 2010) .......................................... 6, 7

Van Hollen v. FEC, 

74 F. Supp.3d 407 (D.D.C. 2014)......................................... 10

Van Hollen v. FEC, 

811 F.3d 486 (D.C. Cir. 2016) ............ 2, 3, 6, 7, 8, 9, 10, 11, 12, 15

Vill. of Barrington v. Surface Transp. Bd., 

636 F.3d 650 (D.C. Cir. 2011) ............................................ 11

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 4 of 22
iv

STATUTES, RULES, AND REGULATIONS

11 C.F.R. § 104.20(c) ..................................................... 11, 12, 13

Fed. R. App. P. 35(a) ............................................................. 3, 4

OTHER AUTHORITIES 

147 Cong. Rec. S3022-05, S3034 (March 28, 2001) 

(statement of Sen. Jeffords) ................................................ 9

147 Cong. Rec. S3033 (daily ed. Mar. 28, 2001) 

(statement of Sen. Jeffords) ............................................ 9, 11

147 Cong. Rec. S3005, 3038 (daily ed. March 29, 2001) 

(statement of Sen. Snowe) .................................................. 10

H.R. 5175, 111th Cong. § 211(b)(1)(B) (2010) ................................ 11

Boynton, Brian M. & Ginsburg, Douglas H., The Court En Banc: 

1991-2002, 70 GEO. WASH. L. REV. 259 (2002) ..................... 4

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 5 of 22
v

GLOSSARY

BCRA Bipartisan Campaign Reform Act, 116 Stat. 81

CFIF Center for Individual Freedom

FEC Federal Election Commission 

HLF Hispanic Leadership Fund

JA Joint Appendix

MCFL FEC v. Mass. Citizens for Life, Inc., 

479 U.S. 238 (1986)

WRTL II FEC v. Wis. Right to Life, Inc., 

551 U.S. 449 (2007)

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 6 of 22
INTRODUCTION

Two panels of this Court have reversed the district court in this case. Both 

panels reversed the district court unanimously. Van Hollen1did not seek en banc

review of the first panel’s reversal of the district court ruling under Chevron Step I. 

Van Hollen now seeks en banc review under Chevron Step II of the second panel’s 

decision upholding the FEC’s Electioneering Communication Disclosure Regulation. 

In upholding the FEC’s regulation under Chevron Step II and State Farm, the 

second panel used routine administrative law analysis to arrive at the conclusion that 

the FEC sufficiently explained its rationale and sufficiently discussed the issues. The 

second panel also ruled that the FEC did not frustrate Congress’s policy of expanding 

disclosure under BCRA. Congress wanted to expand disclosure, but not at the 

expense of the First Amendment. Congress wanted to expand disclosure, but 

Congress did not want maximum disclosure at all costs. For the FEC to adopt Van 

Hollen’s proposed “maximization of disclosure policy” would violate the FEC’s 

unique mandate to refrain from unnecessary infringement on First Amendment rights.

 

1 Congressman Van Hollen is currently a candidate for United States Senate in 

Maryland. Maryland’s congressional primary is scheduled for April 26, 2016. News

reports indicate this is a hotly contested primary. Should Congressman Van Hollen 

not prevail – and therefore no longer be a candidate for federal office in 2016 – it is 

not clear that he would have standing to maintain this petition for en banc review 

beyond that date.

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 7 of 22
2

This Court should uphold the second panel’s decision as a routine analysis of 

administrative law. To reverse the panel would jeopardize settled administrative law 

precedent. 

BACKGROUND

The U.S. Supreme Court’s ruling in FEC v. Wis. Right to Life, Inc. (‘WRTL II’) 

551 U.S. 449 (2007) declared unconstitutional BCRA’s ban on corporations’ and 

labor unions’ ability to use general treasury funds to make electioneering 

communications. This ruling created a ‘complicated situation’ that Congress likely 

did not expect when it enacted the corporate and labor union prohibition on 

electioneering communications in 2002. See Ctr. for Individual Freedom v. Van 

Hollen, 694 F.3d 108, 111 (D.C. Cir. 2012) (‘first panel’). Both the complicated 

situation and lack of plain meaning in the statute permitted the FEC to ‘fill the gap’ 

under its delegated authority. See id. 

In WRTL II’s wake, the FEC initiated rulemaking proceedings to adjust its 

BCRA regulations to “apply to a class of speakers Congress never expected would 

have anything to disclose.” Van Hollen v. FEC, 811 F.3d 486, 490-491 (D.C. Cir. 

2016) (‘second panel’). The FEC requested comment on two alternatives: the first

required the disclosure of all of donors who donated $1,000 or more in a calendar 

year, the same requirement as applied to qualified non-profit corporations. The 

second option would exempt corporations and unions from disclosing anything. See 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 8 of 22
3

id. at 491. After receiving 27 comments, some expressing concerns about reporting 

burdens, reporting persons unrelated to the communication, and privacy concerns, see 

e.g., (JA99, 139, 152-54 163, 204, 206, 243-44), the FEC chose a middle ground. The 

FEC’s adopted regulation required corporations and unions to disclose all donors 

who donated $1,000 or more for the purpose of furthering electioneering 

communications. See Van Hollen, 811 F.3d at 491.

Congressman Van Hollen challenged the FEC’s regulation under Chevron. 

Twice the district court agreed with Van Hollen, invalidating the regulation first on 

Chevron Step I grounds and, after reversal and a remand from the first panel, then 

again on Chevron Step II grounds. On both occasions, panels of this Court reversed 

the district court unanimously. See Van Hollen, 694 F.3d at 112; Van Hollen, 811 

F.3d at 502. The first panel’s decision that the FEC acted pursuant to delegated 

authority to fill a gap in the statute—making the level of disclosure a policy question 

left to the FEC to answer—largely foreordains the second panel’s result. Van Hollen, 

694 F.3d at 110-11; Van Hollen, 811 F.3d at 493.

STANDARD OF REVIEW

The rules of appellate procedure state unequivocally that hearings en banc are 

not favored. See Fed. R. App. P. 35(a). Courts will ordinarily deny petitions for en 

banc review unless it is shown that “en banc consideration is necessary to secure or 

maintain uniformity of the court's decisions; or the proceeding involves a question of 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 9 of 22
4

exceptional importance.” Fed. R. App. P. 35(a)(1-2). The standard to obtain en banc

review is demandingly high and is granted only “[i]n the rarest of circumstances.”

See Bartlett on behalf of Neuman v. Bowen, 824 F.2d 1240, 1244 (D.C. Cir. 1987) 

(Edwards, J., concurring the denial of rehearing en banc); see Jenkins v. Tatem, 795 

F.2d 112, 114 (D.C. Cir. 1986).

2

Petitions for reharing en banc are denied where the petitioners challenge a 

panel’s discussion that “[i]s not necessary to the disposition of the merits.” See

Ghaleb Nassar Al-Bihani v. Obama, 619 F.3d 1 (D.C. Cir. 2010) (Sentelle, C.J., 

concurring in the denial of rehearing en banc).

ARGUMENT

I. The Second Panel Held That The FEC Properly Vindicated Its 

Mandate To Not Unnecessarily Infringe First Amendment Rights 

When It Adopted Its Purpose Driven Disclosure Regulation. 

The second panel rightly upheld the FEC’s Electioneering Communication 

Disclosure Regulation on three grounds: the support rationale, the burden rationale, 

and the First Amendment rationale. See (JA301, 311). Van Hollen disputes only the 

 

2

Experience demonstrates that en banc review is granted rarely. For example, 

between 1991 and 2001, this Court decided 7,662 cases. From these cases, 1,784 

petitions for rehearing en banc were filed. Only 27—1.5%—were granted. See

Boynton, Brian M. & Ginsburg, Douglas H., The Court En Banc: 1991-2002, 70 

GEO. WASH. L. REV. 259, 263 (2002). Furthermore, from 1995 to 2001, only 

0.18%, or 1 in every 555 of the cases “[d]ecided by a unanimous panel were reheard 

by the court en banc.” See id. at 264-65. 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 10 of 22
5

First Amendment rationale. Van Hollen wrongly asserts that the second panel 

incorrectly relied upon dissenting opinions for the proposition that the First 

Amendment required the FEC to narrowly tailor its regulation. The second panel 

relied on Supreme Court precedent. See, e.g., Tally v. California, 362 U.S. 60 

(1960). Second, Van Hollen wrongly contends that the second panel advanced a 

rationale that the FEC did not advance. (Pet. 13-15). 

i. The FEC Justified Its Disclosure Regulation On The Basis That It 

Protected First Amendment Rights. 

The FEC justified its Electioneering Communication Disclosure Regulation on 

the basis that it protected First Amendment rights. In its Explanation and Justification 

the FEC states that its purpose driven disclosure regulation is “narrowly tailored to 

address many of the commenters’ concerns regarding individual donor privacy. See 

Section D below.” (JA301) (emphasis added). Then, in Section D, after justifying its 

support rationale and its burden rationale, (JA311), the FEC notes the balance it 

struck in its adopted regulation still requires the public disclosure of information 

“[a]bout those persons who actually support the message conveyed by the 

[electioneering communications]...” while not imposing a “significant burden” on 

corporations and labor unions to disclose “[v]ast numbers of customers, investors, or 

members, who have provided funds for purposes entirely unrelated to the making of

[electioneering communications].” (JA311) (emphasis added). 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 11 of 22
6

The D.C. Circuit does not require that an agency’s explanation “be a model of 

analytical precision.” Van Hollen, 811 F.3d at 496-97 (quoting Dickson v. Sec. of 

Defense, 68 F.3d 1396, 1404 (D.C. Cir. 1995)). Instead, for a regulation to survive, 

the reviewing court must be able to “reasonably discern the agency’s analytical path.” 

Id. at 497 (quoting Bowman Transp. Inc. v. Ark.-Best Freight Sys. Inc., 419 U.S. 281, 

286 (1974)). 

In justifying modified Alternative 1, the FEC used terms of art that courts use 

when analyzing the constitutionality of campaign finance regulations. The FEC’s 

concern about narrow tailoring, avoiding significant burdens, and avoiding the 

disclosure of persons ‘entirely unrelated’ to the speech, is language courts use to 

analyze the constitutionality of campaign finance regulations. See, e.g., Buckley v. 

Valeo, 424 U.S. 1, 64 (1976) (“Compelled disclosure, in itself, can seriously infringe 

on privacy of association and belief.”); McCutcheon v. FEC, 134 S. Ct. 1434, 1456-

57, 1459 (2014) (acknowledging that the regulations that burden speech must be 

narrowly tailored and noting that disclosure requirements burden speech but not 

unconstitutionally so); FEC v. Mass. Citizens for Life, Inc. (‘MCFL’), 479 U.S. 238, 

261 (1986) (noting that the FEC can achieve their goals “[b]y means far more 

narrowly tailored and less burdensome...”); SpeechNow.org v. FEC, 599 F.3d 686, 

696 (D.C. Cir. 2010) (en banc) (noting that to satisfy the First Amendment, 

disclosure requirements must have a substantial relationship to the government’s 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 12 of 22
7

sufficiently important interest). The FEC was justifying its disclosure regulation 

using language drawn from tests to ensure campaign finance regulations do not 

violate the First Amendment. The second panel was therefore able to “reasonably 

discern the agency’s analytical path.” Van Hollen, 811 F.3d at 497 (quoting Bowman 

Transp. Inc., 419 U.S. at 286). The FEC sufficiently explained its First Amendment 

reasons for striking the balance that it did. See id. at 499-500. 

ii. The Second Panel’s Discussion Of The Supreme Court’s Disclosure 

Jurisprudence Cannot Conflict With The Holdings Of This Circuit

Because It is Dicta. 

The second panel noted that the FEC is unique among the federal agencies 

because its mandate requires the regulation of “[c]ore constitutionally protected 

activity—the behavior of individuals and groups only insofar as they act, speak and 

associate for political purposes.” Id. at 499. (citing and quoting AFL-CIO v. FEC, 

333 F.3d 168, 170 (D.C. Cir. 2003)). This is why the FEC has a duty to “[a]ttempt to 

avoid unnecessarily infringing First Amendment interests.” AFL-CIO, 333 F.3d at 

179. Thus, the second panel noted that the FEC’s efforts at tailoring the disclosure 

regulation “[t]o satisfy constitutional interests in privacy, the FEC fulfilled its unique 

mandate.” Van Hollen, 811 F.3d at 499. The second panel held that the FEC’s 

purpose test struck the appropriate balance between the public’s need for disclosure 

with the interests of not disclosing every customer, investor, and member of an 

organization. See id. at 501. The purpose requirement contained in the disclosure 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 13 of 22
8

regulation was an appropriate exercise of the FEC’s “[u]nique prerogative to 

safeguard the First Amendment...” Id. (citing AFL-CIO, 333 F.3d at 170). 

The second panel’s discussion concerning the current tension within the 

Supreme Court’s disclosure jurisprudence is dicta. The second panel’s discussion 

highlights that on the one hand, the Supreme Court has upheld disclosure statutes 

requiring the disclosure of certain contributors, see, e.g., Citizens United v. FEC, 558 

U.S. 310, 370-71 (2010), but, on the other hand, the Supreme Court declared

unconstitutional Ohio’s prohibition of anonymous speech in McIntyre v. Ohio 

Elections Comm’n, 514 U.S. 334, 342 (1995); see Van Hollen, 811 F.3d at 499-501. 

These two lines of cases are “[f]iercely antagonistic.” Id. at 500. This discussion, 

however, was unnecessary to the decision that the FEC promulgated a regulation that 

reasonably interpeted a statute that used a defined term of art containing a purpose 

element – contributor – in a manner that properly balances First Amendment rights 

with disclosure. (JA311). 

Panels within this Circuit are bound only to the holdings of panels and not the 

dicta. See Smith Lake Improvement & Stakeholders Ass'n v. FERC, No. 13-1074,

2015 U.S. App. LEXIS 1487 at *3 (D.C. Cir. Jan. 30, 2015) (Circuit Judges Brown 

and Wilkins and Senior Circuit Judge Silberman, concurring in denial of petition for 

rehearing en banc); Gersman v. Group Health Ass'n, 975 F.2d 886, 897 (D.C. Cir. 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 14 of 22
9

1992) (“Binding circuit law comes only from the holdings of a prior panel, not from 

its dicta.”). 

The second panel’s discussion of the tension in the Supreme Court’s disclosure 

case law is dicta that the panel did not purport to resolve. Rather, the second panel

relied on binding circuit precedent in AFL-CIO v. FEC to note that the FEC’s 

balancing was necessary to fulfill its unique mandate to refrain from unnecessary 

infringement of First Amendment rights. See Van Hollen, 811 F.3d at 499, 501.

II. The Second Panel Rightly Concluded That The FEC’s Regulation Does 

Not Frustrate The Policy Of Congress. 

Shays recognized that “[F]ederal campaign finance law is complex, and BCRA 

is no exception.” Shays v. FEC, 414 F.3d 76, 79 (D.C. Cir. 2005). That is especially 

true here. When crafting the disclosure statute with its desire to “shine[] sunlight on 

the undisclosed expenditures for sham issue advertisements”, 147 Cong. Rec. S3022-

05, S3034 (March 28, 2001) (statement of Sen. Jeffords), Congress “took great care 

in crafting . . . language to avoid violating the important principles in the First 

Amendment.” 147 Cong. Rec. S3033 (daily ed. Mar. 28, 2001) (statement of Sen. 

Jeffords). For example, as part of the “Snowe-Jeffords Amendment” to BCRA, 

Senator Snowe placed into the record an academic’s analysis of her amendment 

explaining that it “requires disclosure of large contributions designated for such ads.” 

147 Cong. Rec. S3005, 3038 (daily ed. March 29, 2001) (statement of Sen. Snowe) 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 15 of 22
10

(emphasis added). In a materially similar bill, Senator Snowe explained that the 

disclosure provision was drafted narrowly to avoid abridging First Amendment 

rights. See 144 Cong. Rec. S972-01, S973 (daily ed. Feb 25, 1998). The second panel 

was correct in rejecting Van Hollen’s contention that anything less than maximum 

disclosure would frustrate the purpose of Congress. (Pet. at 16); Van Hollen, 811 

F.3d at 494.

Desperate to generate an intra-circuit split, Van Hollen contends that the 

second unanimous panel’s phrase “results-oriented brand of purposivism” was a 

rejection of this Court’s holding in Shays. (Pet. at 16). In fact, the second panel was 

describing Van Hollen’s and the district court’s position. See Van Hollen, 811 F.3d at 

494. The second panel begins noting that, according to Van Hollen and the district 

court, BCRA’s legislative history was to inform voters of who was attempting to 

influence elections. See id. (citing and quoting Van Hollen v. FEC, 74 F. Supp.3d 

407, 433-34 (D.D.C. 2014)). Then, the second panel says that the “[a]rt of statutory 

construction has moved beyond this particularly results-oriented brand of 

purposivism.” Id.

The second panel did not reject Shays. The second panel merely recognized 

that Congress both wanted disclosure but also “took great care in crafting . . . 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 16 of 22
11

language to avoid violating the important principles in the First Amendment.” Id.

(citing 147 Cong. Rec. at S3033).3

Furthermore, basic principles of administrative law mandate that since the case 

reached Chevron Step II’s question, there was already a judicial determination that 

Congress was silent on the precise question at issue. Van Hollen did not seek en 

banc review from a unanimous first panel’s Chevron Step I determination. Therefore,

“[c]ongressional silence of this sort is, in Chevron terms, ‘an implicit delegation from 

Congress to the agency to fill in the statutory gaps.’” See Van Hollen, 811 F.3d at 495

(quoting FDA v. Brown & Williamson Tobacco Corp., 529 U.S. 120, 159 (2000) 

(emphasis supplied by second unanimous panel)). The second panel then held that 

due to BCRA’s text (using a defined term of art ‘contributor’ that contains a purpose 

element), history (Senators Jeffords’ and Snowe’s comments), and purposes (11 

C.F.R. 104.20(c)(1-6) requires, inter alia, the disclosure of those individuals who 

control an entity’s activities), the FEC’s electioneering communication disclosure 

regulation consequently passes the low threshold of being “rationally related to the 

goals of the statute.” Vill. of Barrington v. Surface Transp. Bd., 636 F.3d 650, 660

(D.C. Cir. 2011); see also Continental Air Lines, Inc. v. Department of Transp., 843 

 

3

Since 2007, Congress has failed to amend the electioneering communication statute, 

despite efforts to do so, even by Congressman Van Hollen himself. See Bob Jones 

University v. United States, 461 U.S. 574, 600-01 (1983); see H.R. 5175, 111th 

Cong. § 211(b)(1)(B) (2010).

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 17 of 22
12

F.2d 1444, 1453 (D.C. Cir. 1988) (noting that an agency need not adopt a regulation 

that best promotes the goals of Congress but only a regulation that is compatible with 

the goals of Congress); Van Hollen, 811 F.3d at 495. The FEC’s regulation certainly 

does not contravene Shays or the “[p]recedent on which it drew.” (Pet. at 17). 

Nor can it be said that Shays compels this Court to affirm the district court.

The purpose driven disclosure regulation requires the identification of those 

individuals responsible for the advertisements. Prior to BCRA, groups could avoid 

disclosure requirements so long as these groups did not use Buckley’s magic words. 

See Van Hollen, 811 F.3d at 489. After BCRA, electioneering communications 

require disclosure reports identifying inter alia the individual or individuals who 

control an entity’s activites. See, e.g., 11 C.F.R. § 104.20(c)(2-3). 

III. This Case Is A Routine Administrative Law Case; Not An 

Exceptionally Important Case Warranting En Banc Review. 

Van Hollen never explains how this case is an exceptionally important case 

warranting en banc review. Instead, Van Hollen persists in arguing that both the FEC 

and the second panel erred in its administrative law analysis. Even if true, these 

errors do not satisfy the high burden necessary to obtain en banc review. 

First, Van Hollen’s claim that the FEC’s regulation cripples BCRA’s 

disclosure regime is hyperbole. (Pet. at 18). The FEC requires the public disclosure 

of, inter alia, who paid for the communication; who directs or controls the entity’s 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 18 of 22
13

activities; who has custody of the entity’s books; and the names and addresses of the

persons who contributed $1,000 or more in the previous calendar year for the purpose 

of funding the communication. See 11 C.F.R. § 104.20(c)(1-3, 9). Even with the 

purpose requirement, BCRA’s disclosure regime is not crippled but expanded.

4

Second, Van Hollen challenges the FEC’s adoption of the independent 

expenditure purpose requirement because the FEC did not do so in 2003. (Pet. at 19).

The 2003 rulemaking involved a statute that prohibited most entities from using their 

general treasury funds to make electioneering communications. Only qualified nonprofit corporations could use general treasury funds to make electioneering 

communications. See WRTL II, 551 U.S. at 455-57; MCFL, 479 U.S. at 263-64 

(narrowly defining qualified nonprofit corporations). 

This is why the WRTL II decision presented the FEC with a “complicated 

situation” requiring that the FEC adapt the electioneering communication regime to 

the many new entities that Congress previously prohibited from speaking. See Van 

Hollen, 694 F.3d at 111; see Rust v. Sullivan, 500 U.S. 173, 186-87 (1991) (holding 

that an agency must be given ample latitude to adapt its rules to changing 

circumstances). The FEC acknowledged WRTL II’s impact and explained that 

 

4

In fact, the district court’s order is what crippled First Amendment speech. See FEC 

Electioneering Communications Table 1, available at 

http://www.fec.gov/press/summaries/2012/tables/ec/EC1_2012_24m.pdf. See HLF’s 

Opening Br. at 44-45 (Document #1548356, April 21, 2015). 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 19 of 22
14

Congress had not spoken on the precise issue of disclosure for entities that Congress 

had previously prohibited from speaking. (JA28, 301, 311-12). A reviewing court 

could therefore “reasonably discern the agency’s analytical path” that the FEC 

needed to adapt its rule to circumstances Congress likely did not foresee. See 

Bowman Transp. Inc., 419 U.S. at 286. Comparing disclosure considerations in 2003 

to 2007 is an exercise in comparing apples to oranges.

Third, Van Hollen contends that the FEC did not address the separate 

segregated fund option despite adopting it in 2003. (Pet. at 19). The FEC did address 

this concern. The AFL-CIO comment—representing 15 million members and 60 

organizations—contended that the segregated bank account was not a “meaningful 

alternative” because it undermines WRTL II’s holding that the labor union could use 

its general treasury funds to make electioneering communications. (JA163). The FEC 

credited the labor unions’ comment. (JA311). Imposing separate segregated fund 

burdens on committees whose major purpose is not the election or defeat of 

candidates is unconstitutionally burdensome. See MCFL, 479 U.S. at 252-54. The 

government cannot impose a prohibitive burden as the price for exercising First 

Amendment rights. See Citizens United, 558 U.S. at 337-38, 351.

Fourth, Van Hollen complains that the FEC did not address the concern that 

the FEC’s purpose driven regulation would lead to a proliferation of ads by entities 

with misleading names. (Pet. at 21). Van Hollen mischaracterizes the comment he 

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 20 of 22
15

Dated: April 5, 2016 Respectfully submitted,

/s/_Jason Torchinsky 

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

 jtorchinsky@hvjt.law

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

jmbayes@hvjt.law

Shawn Toomey Sheehy 

ssheehy@hvjt.law

HOLTZMAN VOGEL JOSEFIAK 

TORCHINSKY PLLC

45 North Hill Drive

Suite 100

Warrenton, VA 20186

Tel: (540) 341-8808

Fax: (540) 341-8809

Counsel for Hispanic Leadership Fund Counsel for Hispanic Leadership Fund

relies upon, describing it as opposed to a narrow approach. In fact, this comment was

urging the FEC to adopt Alternative 1 and reject Alternative 2, which exempted 

electioneering communications from the disclosure requirements entirely. (JA42-43);

(Pet. at 21). The FEC followed the advice of this comment and rejected Alternative 2. 

(JA301).

The FEC did consider the so-called decline in disclosure and determined that 

its regulation struck the appropriate balance between disclosure and the burden and 

privacy interests of the speakers. Van Hollen, 811 F.3d at 501; (JA311). 

CONCLUSION

For the foregoing reasons, and the reasons articulated in CFIF’s brief, 

incorporated into this brief by reference, this Court should deny Van Hollen’s petition 

for a rehearing en banc.

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 21 of 22
16

CERTIFICATE OF SERVICE

I hereby certify that on April 5, 2016, I electronically filed the 

foregoing document with the Clerk of Court for the United States Court of 

Appeals for the District of Columbia Circuit by using the appellate CM/ECF 

system, thereby serving all persons required to be served.

Dated: April 5, 2016 Respectfully submitted,

/s/ Jason Torchinsky

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

jtorchinsky@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 Hispanic Leadership Fund

USCA Case #15-5017 Document #1607407 Filed: 04/05/2016 Page 22 of 22