UNITED STATES DISTRICT COURT 

FOR THE DISTRICT OF DELAWARE 

___________________________________ 

 ) 

FEDERAL ELECTION COMMISSION, ) 

 ) 

 Plaintiff, ) No. 15-cv-00017-LPS 

 ) 

 v. ) 

 ) MOTION FOR SUMMARY 

CHRISTINE O’DONNELL, et al., ) JUDGMENT 

 ) 

 Defendants. ) 

___________________________________ ) 

PLAINTIFF FEDERAL ELECTION COMMISSION’S 

MOTION FOR SUMMARY JUDGMENT

 For the reasons stated in the brief that accompanies this motion, the Federal Election 

Commission hereby moves for summary judgment on both its affirmative claims and the 

defendants’ counterclaims. The Commission respectfully requests that the Court order payment 

of civil penalties, disgorgement, and injunctive relief. 

Respectfully submitted, 

Daniel A. Petalas (D.C. Bar No. 467908) Harry J. Summers 

Acting General Counsel Assistant General Counsel 

dpetalas@fec.gov hsummers@fec.gov 

Lisa J. Stevenson Robert W. Bonham III 

Deputy General Counsel – Law Senior Attorney 

lstevenson@fec.gov rbonham@fec.gov 

Kevin Deeley s/ Seth Nesin 

Acting Associate General Counsel Seth Nesin 

kdeeley@fec.gov Attorney 

 snesin@fec.gov 

 FOR THE PLAINTIFF 

 FEDERAL ELECTION COMMISSION 

 999 E Street NW 

March 8, 2016 Washington, DC 20463 

 (202) 694-1650 

Case 1:15-cv-00017-LPS Document 53 Filed 03/08/16 Page 1 of 1 PageID #: 264
UNITED STATES DISTRICT COURT 

FOR THE DISTRICT OF DELAWARE 

___________________________________ 

 ) 

FEDERAL ELECTION COMMISSION, ) 

 ) No. 15-cv-00017-LPS 

 Plaintiff, ) 

 ) 

 v. ) 

 ) BRIEF IN SUPPORT OF 

CHRISTINE O’DONNELL, et al., ) MOTION FOR SUMMARY 

 ) JUDGMENT 

 Defendants. ) 

___________________________________ ) 

OPENING BRIEF IN SUPPORT OF 

PLAINTIFF FEDERAL ELECTION COMMISSION’S 

MOTION FOR SUMMARY JUDGMENT 

Daniel A. Petalas Harry J. Summers 

Acting General Counsel Assistant General Counsel 

dpetalas@fec.gov hsummers@fec.gov 

Lisa J. Stevenson Robert W. Bonham III 

Deputy General Counsel – Law Senior Attorney 

lstevenson@fec.gov rbonham@fec.gov 

Kevin Deeley Seth Nesin 

Acting Associate General Counsel Attorney 

kdeeley@fec.gov snesin@fec.gov 

 FOR THE PLAINTIFF 

 FEDERAL ELECTION COMMISSION 

 999 E Street NW 

Washington, DC 20463 

March 8, 2016 (202) 694-1650 

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i

TABLE OF CONTENTS 

 Page 

STATEMENT OF NATURE AND STAGE OF THE PROCEEDINGS .................................1 

SUMMARY OF ARGUMENT .................................................................................................1 

STATEMENT OF FACTS ........................................................................................................2 

ARGUMENT .............................................................................................................................7 

I. STANDARD OF REVIEW ...........................................................................................7 

II. DEFENDANTS VIOLATED FECA’S PERSONAL USE PROHIBITION .................8 

A. FECA Prohibits the Use of Campaign Funds to Pay Rent or Utilities 

on Any Part of a Property Used As a Candidate’s Residence ...........................8 

B. The Committee’s Payment of the Rent and Utilities for the 

Townhouse Where Christine O’Donnell Resided Violated FECA ....................9 

III. SUMMARY JUDGMENT SHOULD BE GRANTED TO THE 

COMMISSION ON DEFENDANTS’ OTHER AFFIRMATIVE DEFENSES 

AND COUNTERCLAIMS ..........................................................................................10 

A. Defendants’ Actions Violated FECA’s Personal Use Ban ..............................10 

1. The per se rule regarding rent and utility payments reflects the 

 plain meaning of the statute and it clearly applies to defendants’ 

 conduct. ................................................................................................11 

2. Defendants had no basis to rely on FECA’s “Safe Harbor” 

 provision. .............................................................................................12 

 

B. The Personal Use Statute and the Regulation Are Constitutional ...................13 

IV. O’DONNELL’S ALLEGED RELIANCE ON ADVICE FROM AN FEC 

ANALYST IS LEGALLY IRRELEVANT AND NOT CREDIBLE IN ANY 

EVENT ........................................................................................................................13 

A. Only an FEC Advisory Opinion, Not Oral Advice from an FEC 

Employee, Could Create a Legal Defense for Defendants’ Conduct ..............13 

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B. The Federal Government Cannot Be Estopped from Enforcing Laws 

As a Result of the Actions of One of Its Employees .......................................14 

C. O’Donnell’s Claim of Having Received Advice from the FEC is 

Not Credible .....................................................................................................14 

V. THE COURT SHOULD ORDER CIVIL PENALTIES, DISGORGEMENT, 

AND INJUNCTIVE RELIEF ......................................................................................16 

A. The Committee and O’Donnell Should Be Ordered to Pay A Civil 

Penalty for the Full Amount of the Violation ..................................................16 

B. Christine O’Donnell Should Be Ordered to Disgorge the Full 

Amount of Her Personal Benefit .....................................................................18 

C. Defendants Should Be Enjoined from Converting Committee Funds 

to Personal Use ................................................................................................19 

CONCLUSION ........................................................................................................................20 

   

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iii

TABLE OF AUTHORITIES 

Cases 

Anderson v. Liberty Lobby, Inc., 477 U.S. 242 (1986) ........................................................7, 15 

Bank of Illinois v. Allied Signal Safety Restraint Sys., 75 F.3d 1162 (7th Cir. 1996) .............15 

Commodity Futures Trading Comm’n v. Am. Metals Exch. Corp., 

991 F.2d 71 (3d Cir. 1993) ..........................................................................................19 

Drumgo v. Burris, No. cv 12-1204-GMS, 2015 WL 4591957 (D. Del. July 29, 2015) ..........15

FEC v. Am. Fed’n of State, Cty. and Mun. Emps.— P.E.O.P.L.E. Qualified, 

No. 88-3208, 1991 WL 241892 (D.D.C. Oct. 31, 1991) ............................................17 

FEC v. Comm. of 100 Democrats, 844 F. Supp. 1 (D.D.C. 1993) ....................................17, 18 

FEC v. Craig for U.S. Senate, 70 F. Supp. 3d 82 (D.D.C. 2014), 

aff’d, __ F.3d. __, No. 14-5297, 2016 WL 850823 

(D.C. Cir. Mar. 4, 2016) ...........................................................................17, 18, 19, 20 

FEC v. Furgatch, 869 F.2d 1256 (9th Cir. 1989) .......................................................17, 18, 19 

FEC v. NRA, 553 F. Supp. 1331 (D.D.C. 1983) .....................................................................18 

Heckler v. Cmty. Health Servs. of Crawford Cty., Inc., 467 U.S. 51 (1984) ..........................14 

Latif v. Obama, 677 F.3d 1175 (D.C. Cir. 2015) .....................................................................16 

Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574 (1986) ................................7 

Office of Pers. Mgmt. v. Richmond, 496 U.S. 414 (1990) ......................................................14 

Podobnik v. U.S. Postal Service, 409 F.3d 584 (3d Cir. 2005) .................................................7 

Reeves v. Sanderson Plumbing Prods., Inc., 530 U.S. 133 (2000) ...........................................7 

Riggs Nat’l Corp. & Subsidiaries v. Comm’r of IRS, 295 F.3d 16 (D.C. Cir. 2002) ..............16 

SEC v. Lazare Indus., Inc., 294 F. App’x 711 (3d Cir. 2008) .......................................... 18-19 

SEC v. Teo, 746 F.3d 90 (3d Cir. 2014), cert denied, 135 S. Ct. 675 (2014) ..........................19 

Tull v. United States, 481 U.S. 412 (1987) .............................................................................17 

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iv

United States v. ITT Cont’l Baking Co., 420 U.S. 223 (1975) ................................................17 

United States v. Mun. Auth. of Union Twp., 150 F.3d 259 (3d Cir. 1998) .............................17

United States v. Reader’s Digest Ass’n, Inc., 662 F.2d 955 (3d Cir. 1981) .....................18, 20 

Statutes and Regulations 

Bipartisan Campaign Reform Act of 2002, Pub. L. No. 107-155, § 301, 116 Stat. 81, 

 as amended, codified at 52 U.S.C. § 30114(b) (formerly 2 U.S.C. § 439a(b)) ............8 

 

Federal Election Campaign Act of 1971, as amended, 

codified at 52 U.S.C. §§ 30101-146 ..............................................................................2 

52 U.S.C. § 30101(5)-(6) ..........................................................................................................2 

52 U.S.C. § 30102(e)(1)-(2) ..................................................................................................... 2 

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

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

52 U.S.C. § 30107(e) ................................................................................................................2 

52 U.S.C. § 30108 ......................................................................................................................2 

52 U.S.C. § 30108(c) ...............................................................................................................14 

52 U.S.C. § 30109 ......................................................................................................................2 

52 U.S.C. § 30109(a)(1)-(2) ......................................................................................................2 

52 U.S.C. § 30109(a)(6) .............................................................................................................2 

52 U.S.C. § 30109(a)(6)(B) ........................................................................................16, 17, 20 

52 U.S.C. § 30111(e) ........................................................................................................11, 12 

52 U.S.C. § 30114 ....................................................................................................................11 

52 U.S.C. § 30114(b) ............................................................................................................1, 8 

52 U.S.C. § 30114(b)(2) .........................................................................................................11 

11 C.F.R. § 111.24(a)(1) .........................................................................................................16 

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11 C.F.R. § 112.1 .....................................................................................................................13 

11 C.F.R. § 112.5 .....................................................................................................................14 

11 C.F.R. § 113.1(g) .......................................................................................................... 8, 11 

11 C.F.R. § 113.1(g)(1)(i) ........................................................................................................ 8 

11 C.F.R. § 113.1(g)(1)(i)(E)(1) ...............................................................................................9 

11 C.F.R. § 113.1(g)(1)(ii) ........................................................................................................8 

Miscellaneous

Expenditures; Reports by Political Committees; Personal Use of Campaign Funds, 

 60 Fed. Reg. 7862 (Feb. 9, 1995) ........................................................................8, 9, 11 

Fed. R. Civ. P. 56 .......................................................................................................................1 

Fed. R. Civ. P. 56(a) .................................................................................................................7 

Fed. R. Civ. P. 56(c)(1)(A), (B) ...............................................................................................7 

148 Cong. Rec. S1991-02 (daily ed. Mar. 18, 2002) .................................................................8 

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STATEMENT OF NATURE AND STAGE OF THE PROCEEDINGS

 Pursuant to Federal Rule of Civil Procedure 56, the Federal Election Commission 

(“Commission” or “FEC”) moves for summary judgment. The defendants, including Christine 

O’Donnell and her campaign committee, violated 52 U.S.C. § 30114(b) by using more than 

$25,000 in campaign funds to pay for rent and utilities at O’Donnell’s residence during her 

campaign for U.S. Senate in 2010. Discovery in this case, including defendants’ admissions, has 

confirmed that O’Donnell resided at her campaign’s headquarters at 1242 Presidential Drive, 

Greenville (“the Townhouse”) for well over a year and that campaign funds were used for the 

rent and utility payments on the Townhouse. This was an unlawful conversion of campaign 

funds to personal use, even though O’Donnell belatedly reimbursed a small portion of these 

costs. The personal use rule reasonably bars such attempted allocation of household expenses, 

avoiding the very kind of evidentiary difficulties that plagued discovery in this case. The Court 

should therefore grant summary judgment to the FEC and order payment of civil penalties, 

disgorgement, and injunctive relief. 

SUMMARY OF ARGUMENT 

1. The Federal Election Campaign Act (“FECA”) makes it illegal for a candidate to 

use campaign contributions for personal use. It is a per se violation of the personal use ban if 

campaign funds are used to pay rent or utilities for any part of a personal residence of a 

candidate, even if part of the personal residence is used for campaign purposes. 

2. Defendant Christine O’Donnell resided at the Townhouse from January 2010 till 

after March 2011. The Townhouse was also headquarters for her 2010 U.S. Senate campaign. 

3. Defendant Friends of Christine O’Donnell (“the Committee”), the authorized 

campaign committee for O’Donnell’s 2010 Senate campaign, used campaign funds to pay more 

than $25,000 in rent and utilities (electric and cable) for the Townhouse from January 2010 

through March 2011. Christine O’Donnell later reimbursed the committee only a small fraction 

of that amount, making five payments to the Committee for rent and utilities totaling $3,850. 

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4. By using campaign funds to pay rent and utilities at O’Donnell’s residence, the 

defendants violated the personal use provision of FECA and the accompanying regulation. 

5. Contrary to defendants’ counterclaims, the statute and the regulation that prohibits 

personal use of campaign funds are constitutional. The ban is a rational restriction on the use of 

funds which is designed to deter corruption and promote public confidence in the political 

system. 

6. Defendants’ supposed reliance on advice given in two alleged phone calls 

between O’Donnell and an FEC reports analyst is not legally relevant. Even if such oral 

statements were made, they would not absolve defendants of liability. In any event, O’Donnell’s 

claim — first made years after the fact — that these calls occurred is not credible. 

7. This Court should therefore order a civil penalty from defendants O’Donnell and 

Friends of Christine O’Donnell, disgorgement from O’Donnell, and injunctive relief. 

STATEMENT OF FACTS 

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

exclusive jurisdiction over the administration, interpretation, and civil enforcement of FECA, 

codified at 52 U.S.C. §§ 30101-146. See 52 U.S.C. §§ 30106(b)(1), 30107(a), 30109. 

The Commission is authorized to institute investigations of possible violations of FECA, 

52 U.S.C. § 30109(a)(1)-(2), and to initiate civil actions in the United States district courts to 

obtain judicial enforcement of FECA, 52 U.S.C. §§ 30107(e), 30109(a)(6). 

2. Christine O’Donnell was a candidate for the U.S. Senate from Delaware in 2010. 

(Plaintiff FEC’s Compl. for Civil Penalty, Declaratory, Injunctive, and Other Appropriate Relief 

(“Compl.”) ¶ 6 (D.I. 1); Defs.’ Answer and Countercls. (“Ans. & Countercls.”) ¶ 6 (D.I. 9.)) 

3. O’Donnell designated defendant Friends of Christine O’Donnell as her authorized 

principal campaign committee under 52 U.S.C. § 30101(5)-(6) for the 2010 election. (Compl. ¶ 

7; Ans. & Countercls. ¶ 7.) As such, the Committee was authorized to receive contributions and 

make expenditures on behalf of the candidate. 52 U.S.C. § 30102(e)(1)-(2). Chris Marston is 

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the current treasurer of the Committee and a defendant in this case in that official capacity only. 

(Compl. ¶ 8; Ans. & Countercls. ¶ 8.) 

4. In late 2009, in preparation for her 2010 Senate campaign, O’Donnell and her 

campaign staff considered various properties for the Committee to lease as its campaign 

headquarters. (Deposition of Christine O’Donnell (“O’Donnell Dep.”) at 10-13, FEC Exh. 14.) 

5. O’Donnell evaluated at least four different potential properties to lease. 

(O’Donnell Dep. at 15-23; Defs.’ Suppl. Resps. to FEC’s First Set of Interrogs. and Admis. 

Reqs. (“Resp. to Disc.”) RFA 5, FEC Exh. 12.) Only one of these properties was in a residential 

area or had living space. (Id.) That property was the Townhouse. (Id.) 

6. The Townhouse had three bedrooms. (Resp. to Disc., RFA 2.) It was in a 

residential neighborhood. (O’Donnell Dep. at 93-94.) The fact the Townhouse had living space 

was among the reasons O’Donnell decided to lease it for campaign headquarters. (Id. at 26-27.) 

7. On January 8, 2010, the Committee entered into a lease for the Townhouse. 

(Answer & Countercls. ¶ 13; Rental Agreement ¶ 1, FEC Exh. 1.) Christine O’Donnell signed 

both the Rental Agreement and the Progressive Rent Addendum on behalf of the Committee. 

(Rental Agreement; Progressive Rent Addendum, FEC Exh. 2; Resp. to Disc., RFA 4.) 

8. The Committee used the Townhouse as its headquarters during O’Donnell’s 2010 

campaign for Senate and continued to use the Townhouse after the November 2010 general 

election. (Ans. & Countercls. ¶ 14.) The Committee paid rent and utilities for the Townhouse, 

including payments to Comcast of Delaware for communications services and to Delmarva 

Power for electricity. (Id.¶ 16.) 

9. The lease required a security deposit of $99. (Resp. to Disc., RFA 6.) The prorated rent for January 2010 was $1,316. (Resp. to Disc., RFA 6.) The monthly rent from 

February 2010 to March 2011 was $1,645/month, but $235 of that monthly rent was 

“[d]eferred,” meaning that it did not need to be paid unless the Committee defaulted on the lease, 

in which case all such deferred rent, both prior and subsequent to the default, became due. 

(Progressive Rent Addendum ¶ 2; Resp. to Disc., RFA 7.) Thus, the minimum amount payable 

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each month beginning in February 2010 was $1,410/month. Under the terms of the lease, 

however, if rent was paid after the fifth day of the month, a late charge of 5% would be assessed. 

(Rental Agreement ¶ 6(c).) During the period January 2010 through March 2011, the Committee 

paid at least $21,375 in rental costs for the Townhouse. These included: the security deposit and 

service fee ($101.20); the prorated partial month rent for January 2010 and service fee 

($1,318.20); monthly rent for February 2010 to March 2011 (totaling at least $19,740); and 

utility reimbursements to the landlord for electricity from January 8-14, 2010 ($216.47). (See

Excerpts from Friends of Christine O’Donnell Amended FEC Form 3 Reports of Receipts and 

Disbursements (filed Apr. 15, 2011), FEC Exh. 6; Resp. to Disc., RFA 8; Greenville Place 

Ledger for 1242 Presidential Dr. (Jan. 12, 2016) at OD-419, FEC Exh. 13.) 

10. Utility payments by the Committee to Comcast and Delmarva Power in February, 

March, April and May 2010 totaled $1,218.41, a monthly average of $304.60. (Resps. to Disc., 

RFAs 10-13; Order dated Feb. 29, 2016 (D.I. 52) (RFAs 9-22 deemed to be admitted)). Using 

that monthly baseline average of $304.60, utilities paid by the Committee for the Townhouse 

from February 2010 through March 2011 were at least $4,264.40.1

 O’Donnell began to reside at 

                                                           

1

 Defendants were deemed to have admitted paying $15,526.20 to Comcast and Delmarva 

Power for the Townhouse during the fifteen-month lease. (Resps. to Disc., RFAs 6, 9-22; Order 

dated Feb. 29, 2016 (D.I. 52) (RFAs 9-22 deemed to be admitted).) The FEC nevertheless relies 

on those admissions only up to the amount of $4,264.40. As explained in the briefing that led to 

the Court’s discovery order, the precise amount of the utilities for the full period that Christine 

O’Donnell resided at the Townhouse is difficult to ascertain based on the current record because 

the campaign began making payments for utilities on other properties in June 2010. When the 

Committee reported those rent and utility payments on its FEC reports, it did not identify the 

specific property for which the payments were made. In light of evidence that a portion of the 

Committee’s utility payments were for other properties, and given that any increase in utility 

payments over time was likely not attributable to O’Donnell residing at the townhouse, the FEC 

seeks a determination of the amount in violation based on the conservative estimate of $4,264.40 

of utility payments for the Townhouse for the full duration of the lease. This estimate is an 

extrapolation based on payments for utilities from February to May 2010, when the Townhouse 

was the only property leased by the Committee. (O’Donnell Dep. at 134, 137-38.) In addition, 

although defendants have been deemed to have admitted paying for thousands of dollars in 

phone utility payments for the Townhouse, the FEC does not rely on those admissions at this 

time given evidence indicating that a number of such payments were either unrelated to the 

Townhouse or not for Ms. O’Donnell’s use. 

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the Townhouse in January 2010 and used the Townhouse as her legal residence until after March 

2011. (O’Donnell Dep. at 37-38, 166; Resps. to Disc., Interrog. 6.) The Townhouse was the 

address on her driver’s license and where she was registered to vote. (O’Donnell Dep. at 37-38.) 

11. O’Donnell used the Townhouse as an actual residence, although not continuously. 

She slept there on some occasions, and she kept clothes and toiletries there. (O’Donnell Dep. at 

37, 124.) Early in the period of the lease, O’Donnell had exclusive use of a master bedroom and 

connecting bathroom in the Townhouse. (Id. at 121.) She also had use of the kitchen and the 

other common areas. (Id. at 128.) At some point prior to July 2010, campaign interns began 

using the master bedroom and bathroom as their residence and O’Donnell no longer had 

exclusive use of that portion of the Townhouse, but she continued to sleep at the Townhouse 

periodically and to keep personal items there. (Id. at 122.) 

12. O’Donnell made the Townhouse her residence before she and the campaign had 

reached any agreement about the amount that she would reimburse the campaign for her use of 

the Townhouse as a residence. (O’Donnell Dep. at 101, 103, 105-06.) O’Donnell paid the 

Committee a total of $3,850 to reimburse it for her use of the Townhouse, in five payments of 

$770 each, on April 14, 2010, June 28, 2010, August 4, 2010, September 27, 2010, and March 

28, 2011. (Resp. to Disc., RFAs 23-24.) 

13. O’Donnell did not sign a written lease or sublease with the Committee. (Resp. to 

Disc., RFAs 25-26.) She did not pay a security deposit. (Resp. to Disc., RFA 27; O’Donnell 

Dep. at 111.) There was no agreement about when O’Donnell would stop using the Townhouse 

as a residence. (O’Donnell Dep. at 109.) There was no agreement regarding whether O’Donnell 

would reimburse the Committee for deferred rent if the Committee defaulted on its lease. (Id.) 

14. Campaign finance analysts in the FEC’s Reports Analysis Division (“RAD”) are 

required by RAD policy to log all phone calls that they have with representatives of authorized 

campaign committees. (Dep. of Vicki Davis (“Davis Dep.”) at 24, FEC Exh. 15.) The policy 

requiring analysts to log all such phone calls, no matter how trivial, has been in place since 2008 

or earlier. (Dep. of Nataliya Ioffe (“Ioffe Dep.”) at 43-44, FEC Exh. 16.) 

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15. The logs of phone calls to RAD indicate that there were 15 calls between 

representatives of the Committee and RAD analysts between April 6, 2009 and September 10, 

2010. (Attachment to Decl. of Nataliya Ioffe (“Ioffe Decl.”), FEC Exh. 18.) None of the calls 

on that log reflects a RAD analyst indicating to the Committee that it would be legal for Ms. 

O’Donnell to reside in the Townhouse for which the Committee was paying; indeed, the call log 

includes no mention of the Townhouse at all. (Id.) 

16. In September 2010, the FEC received an administrative complaint alleging that 

O’Donnell and the Committee had violated FECA’s personal use ban by using campaign funds 

to pay for O’Donnell’s rent and utilities at the Townhouse. (Administrative Compl. in MUR 

6380, FEC Exh. 3). 

17. The Commission notified defendants of the administrative complaint. (Letters 

from Jeff S. Jordan, FEC, to Christine O’Donnell and Sandra A. Taylor (Sept. 24, 2010), FEC 

Exh. 4) In response, O’Donnell submitted an affidavit that does not mention reliance on any 

advice from the FEC in determining that she could legally reside at the Townhouse. (Affidavit 

of Christine O’Donnell dated Dec. 2, 2010 (“2010 O’Donnell Aff.”), FEC Exh. 5.) 

18. The Commission voted 6-0 in May 2012 to open an investigation into violations 

of 52 U.S.C. § 30114(b) by defendants. (Cert. of FEC (May 23, 2012), FEC Exh. 7; Letter from 

Caroline C. Hunter, FEC Chair, to Cleta Mitchell, Esq. (June 1, 2012), attaching Factual and 

Legal Analysis, FEC Exh. 8.) 

19. The Commission voted 6-0 in November 2014 to find probable cause to believe 

that defendants had violated that personal use provision. (Cert. of FEC (Nov. 20, 2014), FEC 

Exh. 9; Letter from Kathleen M. Guith, FEC, to Christine O’Donnell (Nov. 20, 2014), FEC Exh. 

10.) The Commission attempted to engage in conciliation with defendants, but those efforts were 

unsuccessful, and the Commission thereafter voted 6-0 to authorize this suit. (Cert. of FEC (Jan. 

5, 2015), FEC Exh. 11.) The Commission has therefore satisfied all jurisdictional prerequisites 

to bringing suit. 

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ARGUMENT 

I. STANDARD OF REVIEW 

“The court shall grant summary judgment if the movant shows that there is no genuine 

dispute as to any material fact and the movant is entitled to judgment as a matter of law.” Fed. 

R. Civ. P. 56(a). The moving party bears the burden of demonstrating the absence of a genuine 

issue of material fact. Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574, 585 n. 

10 (1986). A party asserting that a fact cannot be genuinely disputed must cite “particular parts 

of materials in the record” or “show[ ] that the materials cited do not establish the . . . presence of 

a genuine dispute, or that an adverse party cannot produce admissible evidence to support the 

fact.” Fed. R. Civ. P. 56(c)(1)(A), (B). If the moving party has carried its burden, the 

nonmovant must then “come forward with specific facts showing that there is a genuine issue for 

trial.” Matsushita, 475 U.S. at 587 (internal quotation marks omitted). 

 The Court’s role is not to “make credibility determinations or weigh the evidence.” 

Reeves v. Sanderson Plumbing Prods., Inc., 530 U.S. 133, 150 (2000). Rather, the Court should 

determine whether there is a genuine issue for trial and whether a fair-minded jury could return a 

verdict for the plaintiff on the evidence presented. Anderson v. Liberty Lobby, Inc., 477 U.S. 

242, 249, 252 (1986). To defeat a motion for summary judgment, the non-moving party must 

“do more than simply show that there is some metaphysical doubt as to the material facts.” 

Matsushita, 475 U.S. at 586–87; see also Podobnik v. U.S. Postal Service, 409 F.3d 584, 594 (3d 

Cir. 2005) (non-moving party “must present more than just bare assertions, conclusory 

allegations or suspicions to show the existence of a genuine issue”) (internal quotation marks 

omitted). The “mere existence of some alleged factual dispute between the parties will not 

defeat an otherwise properly supported motion for summary judgment.” Anderson, 477 U.S. at 

247–48. “If the evidence is merely colorable, or is not significantly probative, summary 

judgment may be granted.” Id. at 249–50 (internal citations omitted). 

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II. DEFENDANTS VIOLATED FECA’S PERSONAL USE PROHIBITION 

A. FECA Prohibits the Use of Campaign Funds to Pay Rent or Utilities on Any 

Part of a Property Used As a Candidate’s Residence 

FECA provides that candidate campaign funds “shall not be converted by any person to 

personal use,” which the statute defines as using such funds to pay any expense “that would exist 

irrespective of the candidate’s election campaign or individual’s duties as a holder of Federal 

office”; the statute lists examples including “a home mortgage, rent, or utility payment.” 52 

U.S.C. § 30114(b). The Commission’s regulation defining “personal use” divides the prohibited 

uses of campaign funds into two categories. See 11 C.F.R. § 113.1(g). Some types of spending, 

such as rent and utility payments, are per se “personal use.” Id. § 113.1(g)(1)(i). Other spending 

is examined on a case-by-case basis under the “irrespective” test. Id. § 113.1(g); see also id. § 

113.1(g)(1)(ii). In 2002, Congress rewrote FECA’s personal-use statute to codify the 

Commission’s regulation, including both the irrespective test and the list of per se violations. 

See 148 Cong. Rec. S1991-02 (daily ed. Mar. 18, 2002); Bipartisan Campaign Reform Act of 

2002, Pub. L. No. 107-155, § 301, 116 Stat. 81 (codified as amended at 52 U.S.C. § 30114(b) 

(formerly 2 U.S.C. § 439a(b))). The FEC has explained why certain spending is a per se

violation: 

Paragraph (g)(1)(i) of the final rules contains a list of expenses that are 

considered personal use. The list includes household food items, funeral 

expenses, clothing, tuition payments, mortgage, rent and utility payments, 

entertainment expenses, club dues, and salary payments to family 

members. The rule assumes that, in the indicated circumstances, these 

expenses would exist irrespective of the candidate’s campaign or duties as 

a Federal [officeholder]. Therefore, the rule treats the use of campaign 

funds for these expenses as per se personal use. 

Expenditures; Reports by Political Committees; Personal Use of Campaign Funds, 60 Fed. Reg. 

7862, 7864 (Feb. 9, 1995) (“E&J”). 

In explaining the application of the ban to household expenses, the FEC made clear 20 

years ago that allocation is not permitted: “Under paragraph (g)(1)(i)(E)(1), the use of campaign 

funds for mortgage, rent or utility payments on any part of a personal residence of the candidate 

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or a member of the candidate’s family is personal use, even if part of the personal residence is 

being used in the campaign.” E&J at 7865 (emphasis added). The per se banning of the use of 

campaign funds for rent and utility payments “reduces the need [f]or case by case review” and 

“avoids the need to allocate expenses associated with the residence between campaign and 

personal use.” Id. at 7864-65 (emphasis added). 

B. The Committee’s Payment of the Rent and Utilities for the Townhouse 

Where Christine O’Donnell Resided Violated FECA 

 There is no dispute that O’Donnell used the Townhouse as both her legal residence and 

as an actual residence. (FEC’s Statement of Facts (“Facts”) ¶¶ 10-11.) Defendants describe 

O’Donnell’s living arrangement as a “sublease.” (Ans. & Countercls., Countercl. ¶ 9.) As an 

initial matter, however, the lawfulness of the arrangement does not turn on whether the 

candidate’s residence is considered a sublease from the campaign or the campaign simply pays 

the candidate’s rent and utilities. (See infra at 11-12.) As long as campaign funds are used for 

any part of a candidate’s residence, it is prohibited by FECA. (E&J at 7865.) 

Moreover, the arrangement between O’Donnell and the campaign had none of the 

indicators of a traditional sublease. The master bedroom and bathroom were not segregated — 

O’Donnell and the campaign shared the Townhouse’s common areas and shared the use of 

utilities. (Facts ¶ 11.) There was no written agreement between O’Donnell and the Committee, 

and no contemporaneous evidence of any effort to assure a fair, arms-length transaction; there 

were only the five small payments O’Donnell made later. (Facts ¶¶ 12-13.) There was no 

security deposit or deferred rent arrangement. (Facts ¶ 12.) There was no end date. (Facts ¶ 12.) 

In sum, defendants took few if any steps to assure that O’Donnell would not receive a personal 

benefit from the Committee’s payment of rent and utilities. 

 Even if the $3,850 O’Donnell later paid the Committee is subtracted, the Committee paid 

for about 85% of the total Townhouse rent and power and cable utility costs (as estimated above) 

from January 2010 through March 2011, or $25,639.40 (although the lack of any 

contemporaneous documentation makes it difficult to segregate the types of expenses or 

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determine the specific rationale for the proportion of the total costs that O’Donnell paid). (Facts 

¶¶ 9-10, 12.) And these numbers actually understate the percentage of financial responsibility 

the Committee assumed for O’Donnell. The Committee was expected to pay rent by the first day 

of the month and had to pay a 5% late fee if payments were made late. (Facts ¶ 9.) But 

O’Donnell only paid rent roughly every three months, for the period of time she had already 

been living there, which is the equivalent of interest-free loans from the Committee. (Facts at ¶ 

12.) The Committee also assumed all of the financial risk associated with the security deposit 

and deferred rent, none of which was shared by O’Donnell. (Facts ¶ 13.) 

 Whatever the validity of O’Donnell’s purported “sublease,” there is no genuine issue 

regarding the fact that O’Donnell resided at the Townhouse where the Committee paid rent and 

utilities for 15 months. The Court should grant the FEC summary judgment and determine that 

defendants violated the personal use prohibition. 

III. SUMMARY JUDGMENT SHOULD BE GRANTED TO THE COMMISSION ON 

DEFENDANTS’ OTHER AFFIRMATIVE DEFENSES AND COUNTERCLAIMS 

Defendants have made three other meritless affirmative defenses and counterclaims, 

asking the Court for declaratory judgments that: A) they did not violate the personal use statute 

or regulations; B) the FEC’s personal use regulation governing the use of campaign funds for a 

candidate’s rent and utilities is facially unconstitutional; and C) the personal use statute is 

unconstitutional as applied to defendants. The FEC previously moved to dismiss these 

counterclaims. (See Opening Br. in Supp. of Pl. FEC’s Mot. to Dismiss Countercls. (“MTD 

Br.”) (D.I. 14); Reply Br. in Supp. of Pl. FEC’s Mot. to Dismiss Countercls. (“MTD Reply”) 

(D.I. 19).) As explained in those previous briefs and for the reasons discussed below, summary 

judgment should be granted to the FEC on all three counterclaims. 

 A. Defendants’ Actions Violated FECA’s Personal Use Ban 

Defendants’ first counterclaim is that they did not violate 52 U.S.C. § 30114 because the 

law allegedly does not apply where a candidate pays for use of space in campaign headquarters, 

and because the Committee would have incurred the same costs, or even more, were it not for 

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“Christine O’Donnell’s subsequent decision to sublease a portion of the space.” (Ans. & 

Countercls. at Countercl. ¶ 9 (D.I. 9).) In addition, the defendants claim they should not be held 

liable because of the “Safe Harbor” provision at 52 U.S.C. § 30111(e). None of these arguments 

has any merit. 

1. The per se rule regarding rent and utility payments reflects the plain 

meaning of the statute and it clearly applies to defendants’ conduct 

 As discussed above, supra pp. 8-9, the statute, regulation, and Explanation and 

Justification for the regulation specifically bar the use of campaign funds for home, rent, or 

utility payments. 52 U.S.C. § 30114 (b)(2); see also 11 C.F.R. § 113.1(g); E&J at 7865. But that 

is exactly what defendants did, in violation of the plain language of the statute and contrary to 

the guidance in the Explanation & Justification that allocation of such expenses is not permitted. 

 Defendants’ position is completely inconsistent with the rationale behind the per se

prohibition against campaigns paying for rent and utilities at a candidate’s residence. Rent and 

utilities are violations per se because they are expenses that a candidate would have even in the 

absence of a campaign. E&J at 7865. The Commission does not permit the allocation of those 

expenses because doing so would require the potentially invasive and difficult process of 

calculating the fair market value of what was received by the candidate. (See MTD Br. at 16; 

MTD Reply at 5-6.) This case is a perfect illustration of the challenges associated with trying to 

unmake such an omelet. It is best if courts need not attempt to determine who should be 

responsible for what share of a townhouse that was used by a candidate and campaign staffers 

over a 15-month period. Both the Commission and Congress have adopted the per se rule to 

provide guidance to campaigns, to improve administrability, and to avoid invasive investigations. 

Finally, the claim that O’Donnell’s residence at the Townhouse did not cost the campaign 

any money, or even saved money, amounts to an unsupported claim that O’Donnell intentionally 

chose to rent space for her campaign that was larger than required for campaign activity, and so 

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the space she occupied would otherwise have been wasted. Of course, such a claim would 

presumably not apply to the utilities at all, since those are billed according to usage.2

 2. Defendants had no basis to rely on FECA’s “Safe Harbor” provision 

 Defendants also invoke the “Safe Harbor” provision of 52 U.S.C. § 30111(e), under 

which a person is not liable for violating FECA if she was acting in good faith reliance on “any 

rule or regulation prescribed by the Commission.” 52 U.S.C. § 30111(e). But defendants have 

not identified any FEC rule or regulation that they relied upon, nor could they. As described 

above, the Commission’s regulations and the Explanation & Justification for those regulations 

both clearly state that it is a per se violation of the law to use campaign funds to pay for any 

portion of the rent or utilities at a candidate’s residence. 

 Defendants instead argue that they relied on FEC regulations that “do not prohibit a 

campaign committee from subleasing a portion of such space in a campaign headquarters to a 

candidate as a residence.” (Ans. & Countercl., Countercl. ¶ 11 (D.I. 9.) As an initial matter, any 

reasonable reading of the applicable regulation and other authorities leads to the conclusion that 

such an arrangement is precluded, as discussed earlier. But more fundamentally, the Safe Harbor 

provision only protects a person acting in reliance on a rule or regulation, not in reliance on the 

absence of some rule or regulation. 52 U.S.C. § 30111(e). If FECA prohibits an activity, a 

person is not insulated from that law just because there is no FEC regulation that describes it 

with maximum specificity, perhaps using the term “sublease.” If defendants believed there was 

some ambiguity in the regulation, FECA provides a mechanism that offers possible protection 

from liability, and that is to seek an advisory opinion directly from the Commission. See 52 

U.S.C. § 30108; 11 C.F.R. § 112.1. Defendants did not seek an advisory opinion, even though 

                                                           

2

 Furthermore, the notion that O’Donnell made a “subsequent decision” to sublease in the 

Townhouse is undermined by her active role in choosing the Townhouse for campaign 

headquarters; the fact that the Townhouse’s living space was a factor in her choice; and the fact 

that she changed her residence immediately after the campaign’s lease began. (Facts ¶¶ 4-7.) 

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they were on notice no later than early 2010, by O’Donnell’s own account, that some people 

believed her campaign’s payment of expenses at her residence was unlawful. (Facts ¶ 17.) 

B. The Personal Use Statute and the Regulation Are Constitutional 

Defendants’ two remaining counterclaims are that the FEC regulation governing the use 

of campaign funds for a candidate’s rent and utilities is facially unconstitutional and that the 

personal use statute is unconstitutional as applied to defendants, but the FEC already explained 

in its motion to dismiss why these claims fail. (See MTD Br. at 15-20; MTD Reply at 4-10.) 

The FEC incorporates the arguments made in support of its motion to dismiss. 

IV. O’DONNELL’S ALLEGED RELIANCE ON ADVICE FROM AN FEC ANALYST 

IS LEGALLY IRRELEVANT AND NOT CREDIBLE IN ANY EVENT 

In what appears to be a last-minute bid to avoid responsibility for her personal use of 

campaign funds, O’Donnell claims in this litigation that she relied on oral advice from FEC 

campaign finance analyst Vicki Davis given in two alleged phone calls occurring around the time 

the Townhouse lease began in early 2010. (O’Donnell Dep. at 49, 56-57, 64, 69.) O’Donnell’s 

claim is not consistent with other sworn testimony she has provided, nor with an overwhelming 

amount of other evidence in the record. (See infra pp. 14-16.) But even if true, the claim would 

be insufficient to create a genuine issue because it could not excuse defendants’ unlawful 

conduct. No FEC employee can authorize a violation of federal law or make statements that 

estop the government from enforcing a law. So even if there is a dispute as to whether Davis 

told O’Donnell her living arrangement was legal, that issue of fact is immaterial and does not 

preclude summary judgment. 

A. Only an FEC Advisory Opinion, Not Oral Advice from an FEC Employee, 

Could Create a Legal Defense for Defendants’ Conduct 

 Defendants claim that Vicki Davis told O’Donnell it was legal for O’Donnell to reside at 

the campaign-funded Townhouse as long as she paid rent to the Committee (O’Donnell Dep. at 

49, 56-57, 64, 69), but FECA does not absolve a person of liability for violating the law based on 

reliance on an oral communication with an FEC employee. Rather, a person can only obtain 

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such protection by asking for an advisory opinion from the FEC. An advisory opinion provides 

certain legal protections to a person who (1) engages in activity that is “indistinguishable in all 

its material aspects” from the activity on which the advisory opinion is issued, and (2) acts in 

good faith in accord with the opinion. 52 U.S.C. § 30108(c); 11 C.F.R. § 112.5. O’Donnell 

sought no opinion. 

B. The Federal Government Cannot Be Estopped from Enforcing Laws As a 

Result of the Actions of One of Its Employees 

 O’Donnell’s claim of reliance on advice from an FEC employee also fails because the 

federal government may not be equitably estopped from enforcing public laws, even if private 

parties may suffer hardship as a result. Office of Pers. Mgmt. v. Richmond, 496 U.S. 414, 418-19 

(1990); Heckler v. Cmty. Health Servs. of Crawford Cty., Inc., 467 U.S. 51, 66 (1984). Indeed, 

that rule applies even if the wrongdoer acted in reliance on oral advice from a federal employee. 

Heckler, 467 U.S. at 65. In this case, defendants argue that even if they did break the law, they 

did so in reliance on oral advice supposedly given by Vicki Davis. But “an estoppel cannot be 

erected on the basis of . . . oral advice” due to “[t]he necessity for ensuring that governmental 

agents stay within the lawful scope of their authority.” Id. It is therefore legally irrelevant 

whether O’Donnell received such advice, and this factual dispute does not prevent the Court 

from granting summary judgment to the Commission. 

C. O’Donnell’s Claim of Having Received Advice from the FEC is Not Credible 

O’Donnell’s testimony is that in December 2009 or early January 2010, she spoke on the 

phone with Vicki Davis. (O’Donnell Dep. at 49.) Davis purportedly told O’Donnell it was legal 

for her to reside at the Townhouse, “as long as I was paying the campaign rent . . . .” (Id. at 57.) 

O’Donnell also testified that a reporter claimed that her living arrangement was illegal in either 

January or February 2010, and that O’Donnell then had a second phone call with Davis in which 

Davis reconfirmed that the arrangement was legal. (Id. at 64, 68-70.) 

O’Donnell did not, however, mention the calls or any reliance on FEC advice in her 

December 2010 affidavit addressing this matter during its administrative phase. (2010 

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O’Donnell Aff.) Indeed, she appears to have never before made the specific claim about Davis 

— even though the legality of the arrangement has been a public issue since early 2010. 

RAD analysts like Davis provide guidance to political committees about FEC reporting, 

but they are trained to refer questions that require legal interpretation elsewhere. (Ioffe Dep. at 

24-27.) RAD analysts also log all phone conversations with Committee representatives in a 

computer database, but no calls listed in the log for the relevant time period even mention the 

Townhouse, much less indicate that a RAD analyst told O’Donnell it would be legal for her to 

reside there while the Committee was paying the rent and utilities. (Attachment to Ioffe Decl.) 

Vicki Davis has no recollection of any phone calls like the two described by Christine 

O’Donnell. (Declaration of Vicki Davis (“Davis Decl.”) ¶ 11, FEC Exh. 17.) Davis does not 

believe that any such phone calls took place because she is trained not to engage in the legal 

interpretation described by O’Donnell; instead, she should transfer such inquiries to the FEC’s 

Information Division or suggest that the caller obtain an Advisory Opinion from the FEC. 

(Davis Decl. ¶ 11; Ioffe Dep. at 24-27.) Consistent with RAD policy, Davis’s practice since 

prior to 2009 has been to log all calls received from authorized committees, and there is no 

evidence that she failed to do so. (Davis Decl. ¶¶ 7-8; Ioffe Dep. at 44; Davis Dep. at 24, 34-35.) 

Even with the facts evaluated in the light most favorable to O’Donnell as the nonmovant, then, her new story fails to create a genuine issue of fact. The “mere existence of some 

alleged factual dispute between the parties will not defeat an otherwise properly supported 

motion for summary judgment.” Anderson, 477 U.S. at 247–48; see also Bank of Illinois v. 

Allied Signal Safety Restraint Sys., 75 F.3d 1162, 1172 (7th Cir. 1996) (affirming grant of 

summary judgment despite deposition testimony that contradicted earlier sworn testimony); 

Drumgo v. Burris, No. cv 12-1204-GMS, 2015 WL 4591957, at *5 (D. Del. July 29, 2015) 

(granting summary judgment where earlier statements contained no support for plaintiff’s 

alleged injuries and “the only evidentiary support for these injuries comes from [plaintiff’s] brief, 

submitted over three years after the incident,” even treating the brief as an affidavit). In addition 

to being omitted from her earlier testimony, the purported conversations are contradicted by the 

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testimony of FEC analyst Davis, the RAD phone logs for the period, and RAD policy and 

training for its analysts. (Davis Decl. ¶¶ 8, 11; Attachment to Ioffe Decl.; Ioffe Dep. at 24-27) 

Those government records receive a presumption of regularity and good faith. See Latif v. 

Obama, 677 F.3d 1175, 1191 (D.C. Cir. 2015) (reversing district court grant of habeas in part 

because “[plaintiff] offers no evidence to rebut the Government’s presumptively reliable record 

aside from his own statements and the Report itself.”); Riggs Nat’l Corp. & Subsidiaries v. 

Comm’r of IRS, 295 F.3d 16, 20 (D.C. Cir. 2002) (“Common law has long recognized a 

presumption of regularity for actions and records of public officials.”). 

V. THE COURT SHOULD ORDER CIVIL PENALTIES, DISGORGEMENT, AND 

INJUNCTIVE RELIEF 

 FECA authorizes this Court to grant a “permanent or temporary injunction, restraining 

order, or other order, including a civil penalty which does not exceed the greater of [$7,500] or 

an amount equal to any contribution or expenditure involved” in the violation. 52 U.S.C. 

§ 30109(a)(6)(B); see 11 C.F.R. § 111.24(a)(1). If this Court concludes that defendants violated 

FECA’s personal use ban, the Commission respectfully requests that the Court (1) order 

O’Donnell and the Committee to jointly pay a $25,000 civil penalty; (2) order O’Donnell to 

disgorge $5,000 to the U.S. Treasury; and (3) provide declaratory and injunctive relief. 

A. The Committee and O’Donnell Should Be Ordered to Pay A Civil Penalty for 

the Full Amount of the Violation 

 FECA authorizes this Court to impose a civil penalty on each defendant (O’Donnell and 

the Committee) in an amount up to the more than $40,000 in expenditures involved in each 

defendant’s violation (counting admitted rent for the Townhouse and all Committee electric and 

cable payments during the relevant period, which defendants have not differentiated), for a total 

potential penalty of more than $80,000. See 52 U.S.C. § 30109(a)(6)(B); Facts ¶ 10 & n.1. At a 

minimum, the statute authorizes a penalty against each defendant in the amount of spending that 

the FEC has estimated to be fairly attributable to the Townhouse, which is more than $25,000, 

leading to potential total penalties of more than $50,000. The Court has wide discretion in 

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determining civil penalties when, as in this case, Congress has not mandated a particular amount. 

See United States v. Mun. Auth. of Union Twp., 150 F.3d 259, 264 (3d Cir. 1998) (“[T]he court 

will accord the district court’s award of a penalty wide discretion, even though it represents an 

approximation.”); see also Tull v. United States, 481 U.S. 412, 426-27 (1987). 

In this case, the FEC respectfully requests a single $25,000 civil penalty to be imposed 

jointly against O’Donnell and the Committee. In exercising its discretion about the appropriate 

amount to assess as a civil penalty, the Court should consider several factors. As a general 

matter, robust civil penalties deter defendants and others from engaging in similar illegal 

activities. See United States v. ITT Cont’l Baking Co., 420 U.S. 223, 231-32 (1975). For the 

type of violation at issue here, a substantial civil penalty “would deter not only future misconduct 

by these defendants, but also the misappropriation of campaign funds by others.” FEC v. Craig 

for U.S. Senate, 70 F. Supp. 3d 82, 100 (D.D.C. 2014), aff’d, __ F.3d __, No. 14-5297, 2016 WL 

850823 (D.C. Cir. Mar. 4, 2016). 

The personal use of campaign funds both injures those who contributed to the Committee 

and undermines the public’s confidence in the government and campaign finance system. Craig 

for U.S. Senate, 70 F. Supp. 3d at 99-100 (noting the “harm to the contributors” of a personal use 

violator, “who presumably intended that their donations be used for lawful, campaign-related 

purposes”); FEC v. Comm. of 100 Democrats, 844 F. Supp. 1, 7 (D.D.C 1993); FEC v. Furgatch, 

869 F.2d 1256, 1258 (9th Cir. 1989); FEC v. Am. Fed’n of State, Cty. and Mun. Emps.— 

P.E.O.P.L.E. Qualified, No. 88-3208, 1991 WL 241892, at *2 (D.D.C. Oct. 31, 1991) (“there is 

always harm to the public when FECA is violated”). 

 The Court should also consider “the necessity of vindicating the authority of the 

responsible agency.” Comm. of 100 Democrats, 844 F. Supp. at 7; see also Furgatch, 869 F.2d 

at 1258. “[A] penalty here would certainly vindicate the authority of the FEC and strengthen its 

ability to enforce the FECA’s personal use ban in the future.” Craig for U.S. Senate, 70 F. Supp. 

3d at 99. If FECA penalties imposed after litigation are not generally higher than those arrived at 

through the statutory procedure of voluntary conciliation, it undermines the Commission’s ability 

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to enforce the statute through the conciliation process, which is the “preferred method of dispute 

resolution under FECA,” FEC v. NRA, 553 F. Supp. 1331, 1338 (D.D.C. 1983). 

The Court should also take into account defendants’ ability to pay a civil penalty. 

Furgatch, 869 F.2d at 1258. O’Donnell has to date declined to demonstrate an inability to pay. 

The Court has ordered production of information about O’Donnell’s current income and assets, 

or a waiver of an argument that she is unable to pay, by March 15, 2016, after the filing of this 

brief. (Order (D.I. 52).) The Committee has now spent virtually all its funds, but joint liability 

would permit O’Donnell to pay the entire civil penalty. Cf. Craig for U.S. Senate, 70 F. Supp. 

3d at 101 (ordering the candidate rather than a defunct committee to pay entire civil penalty). 

 Lastly, an important factor in determining a civil penalty is whether the defendants acted 

in good or bad faith. See United States v. Reader’s Digest Ass’n, Inc., 662 F.2d 955, 968 (3d Cir. 

1981). In this case, O’Donnell testified that within the first month that she resided at the 

Townhouse, a reporter told her that she was violating a specific part of FECA. (O’Donnell Dep. 

at 67-69.) Despite this information, O’Donnell did not change her legal residence, even after the 

administrative complaint that led to this lawsuit was filed with the FEC. O’Donnell Dep. at 166; 

Craig for U.S. Senate, 70 F. Supp. 3d at 99 (finding that persisting in expending campaign funds 

on conduct that a defendant was on notice “might not comport with the law” was an indication of 

bad faith). Nor did the campaign ever seek an advisory opinion from the Commission. Reader’s 

Digest Ass’n, Inc., 662 F.2d at 968 (finding that in a particular administrative proceeding, the 

failure to seek an agency advisory opinion was evidence of bad faith); Craig for U.S. Senate, 70 

F. Supp. 3d at 99. There is no showing of good faith here. 

B. Christine O’Donnell Should Be Ordered to Disgorge the Full Amount of Her 

Personal Benefit 

 This Court should order O’Donnell to disgorge the amount she benefited from her 

personal use, which the Commission estimates to be about $5,000. See 52 U.S.C. § 

30109(a)(6)(B) (authorizing “other order[s]” to remedy FECA violations). The primary purpose 

of disgorgement is to deprive a wrongdoer of ill-gotten gain. See SEC v. Teo, 746 F.3d 90, 104 

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(3d Cir. 2014), cert denied, 135 S. Ct. 675 (2014); see also Commodity Futures Trading Comm’n 

v. Am. Metals Exch. Corp., 991 F.2d 71, 76 (3d Cir. 1993); Furgatch, 869 F.2d at 1258 n.1. 

 The Commission believes that $5,000 is a reasonable estimate of the benefit that 

O’Donnell received from the Committee, over and above the $3,850 that she reimbursed. There 

are three bedrooms in the Townhouse, so in a more typical shared-rent situation, the occupant of 

each bedroom would be expected to pay roughly one-third of the costs of rent and utilities.3

 In 

this case, the estimated total of rent and utilities for the Townhouse over the relevant time period 

is $25,639.40. One third of that total is $8,546.46, which is about $4,696 more than O’Donnell 

has already reimbursed for her rent and utilities. (Facts ¶ 12.) Rounding up to $5,000 is 

warranted because O’Donnell had the largest bedroom and many other benefits, such as only 

paying rent every three months. (Facts ¶¶ 11-12.) She also has had what amounts to an interestfree loan, and adding just 2% simple annual interest on $4,696 from March 31, 2011 until March 

31, 2016 would total about $5,165. Ordering $5,000 in disgorgement would provide assurance 

that O’Donnell would not profit, without being punitive. See SEC v. Lazare Indus., Inc., 294 F. 

App’x 711, 715 (3d Cir. 2008) (affirming district court finding that “reasonably approximate[d] 

the amount of disgorgement.”). Because the Committee “is little more than an alter-ego” for 

O’Donnell and repayment to contributors is impractical, O’Donnell should disgorge funds to the 

U.S. Treasury rather than to the Committee. Craig for U.S. Senate, 70 F. Supp. 3d at 101. 

C. Defendants Should Be Enjoined from Converting Committee Funds to 

Personal Use 

 If the Court concludes that defendants violated 52 U.S.C. § 30114(b), the Court should 

issue a declaration to that effect and permanently enjoin defendants from committing such 

                                                           

3

 It is true that O’Donnell testified that she did not use the Townhouse as a full-time 

residence. (Facts ¶ 11.) But the fair market benefit to her is not judged by the value she placed 

on her use of the Townhouse, but rather by the use of the Townhouse to which she had the right 

and what a willing party would have paid for that right in an arms-length transaction. 

O’Donnell’s control of the Committee and participation in every step of its decision-making 

process here makes evident that this was not an arms-length transaction. (Facts ¶¶ 4-7.)   

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violations. See 52 U.S.C. § 30109(a)(6)(B). O’Donnell has not stated that she will not run for 

federal office again, compare Craig for U.S. Senate, 70 F. Supp. 3d at 101 (noting defendant had 

no plans to run for office again), and she continues to operate ChristinePAC, a political action 

committee (http://docquery.fec.gov/pdf/727/201601319004980727/201601319004980727.pdf .) 

O’Donnell continued to use the Townhouse as a residence until 2015, with the Townhouse paid 

for by ChristinePAC. (O’Donnell Dep. at 166, 173.) The personal use ban does not apply 

ChristinePAC, which was never the authorized committee of O’Donnell in her capacity as a 

candidate. But her willingness to continue to live in a residence paid with funds from political 

contributors suggests some danger of recurrence. An injunction would preclude defendants from 

repeating the unlawful conduct involved here, see Reader’s Digest Ass’n, 662 F.2d at 969-70. 

CONCLUSION 

For the foregoing reasons, summary judgment should be granted to the Commission and 

the Court should award appropriate remedies. 

Respectfully submitted, 

Daniel A. Petalas (D.C. Bar No. 467908) Harry J. Summers 

Acting General Counsel Assistant General Counsel 

dpetalas@fec.gov hsummers@fec.gov 

Lisa J. Stevenson Robert W. Bonham III 

Deputy General Counsel – Law Senior Attorney 

lstevenson@fec.gov rbonham@fec.gov 

Kevin Deeley s/ Seth Nesin 

Acting Associate General Counsel Seth Nesin 

kdeeley@fec.gov Attorney 

 snesin@fec.gov 

 FOR THE PLAINTIFF 

 FEDERAL ELECTION COMMISSION 

 999 E Street NW 

March 8, 2016 Washington, DC 20463 

 (202) 694-1650 

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