# U ni te d S ta te s Co ur t of A pp ea ls For the Eig hth Circu it

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No. 1 7- 22 39

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Free an d F ai r Elec ti on Fu nd ; M is so ur ia ns for W or ke r Free do m ; Am eri can Dem oc racy Alli an ce; Herzo g S erv ic es , Inc .; Fa rm ers Sta te Ban k; Mi ss ou ri El ect ric Co op erat iv es , do in g b us in es s as Ass oc ia ti on of M is so ur i El ect ric Co op erat iv es ; Ass oc ia ti on of M is so ur i El ect ric Co op erat iv es , PAC; Dav id Kli nd t; Lege nd s Ban k; Jo hn Ell io tt ,

ll ll ll ll ll ll ll ll ll ll l Pla in ti

ff s - Ap pe ll ees ,

v.

Mi ss ou ri Et hi cs Co m

m is si on ; Do n S um m ers , in hi s o ffi ci al cap aci ty; Kim be rly Ben jam in , in he r of

fic ia l ca pa ci ty; Geor ge Rat erm an n, i n h is off ic ia l ca pa ci ty; W ay ne Henk e, in hi s o ffi ci al cap aci ty; Liz Zi eg le r, in he r of fic ia l ca pa ci ty,

ll ll ll ll ll ll ll ll ll ll l Defe nd

an ts - App el la nt

s

. 1

__ __ __ __ __ __ App eal fro m

Uni te d S ta te s Di st ric t Co ur t fo r th e Weste rn Dis tri ct of M is so ur i - J effe rs on Cit y

__ __ __ __ __ __
Su bm it te d: Apri l 1 0, 2 01 8 Fi le d: Sep te m

be r 10 , 20 18

__ __ __ __ __ __

App el la nt s Hen ke a n d Zieg le r are au to m at ic al ly su bs ti tu te d fo r th ei r 1
pr ed eces so rs un de r Fed eral Ru le of Ap pe ll at e Pro ced ur e 4 3( c)(2 ).Befo re COLLOTON, SHEPHERD, and STRAS, Ci rcu it Ju dg es

.

__ __ __ __ __ __
COLLOTON, Ci rcu it Ju dg e.

The Mi ss ou ri Eth ic s Co m m is si on ap pe al s th e di st ric t co ur t’s or de r 2

pe rm an en tl y

en joi ni ng en fo rcem en t o f a rec en tl y en act ed pro vi si on of th e Mi ss ou ri
Co n s t i t u ti on

. The pr ov is io n, fo un d in Mo

. Co ns t. art

. VIII, § 23 .3(1 2)
, pr oh ib it s a
po li ti cal act io n co m

m it te e fro m rece i v i n g co nt rib ut io ns fro m ot he r po li ti cal act io n

co m m it te es

. The di st ric t c o u r t co nc lu de d th at th e pr oh ib it io n un co ns ti tu ti on al ly in fri ng ed on a po li ti cal act io n co m m it te e’s Fi rs t Am en dm en t rig ht s to free do m of

sp eech an d a ss oc ia ti on . W e ag ree a nd th eref or e aff irm.

I.

On Nov em

be r 8, 20 16
, Mi ss ou ri vo te rs a p p r ov ed an am en dm en t to th e Mi ss ou ri Co ns ti tu ti on th at ad de d se ve ral pr ov is io ns pe rta in in g to cam pa ig n fin an ce. The am en dm en t to ok effe ct on Decem be r 8, 20 16
, se e Mo

. Co ns t. art

. XII, § 2( b)
, an d

was en act ed as § 23 to Arti cl e VIII o f th e co ns ti tu ti on

.

At is su e in th is ap pe al is § 23 .3(1 2)
, whi ch pr ov id es i n pe rti ne nt pa rt:

“ Po li ti cal act io n co m

m it te es

. . . sh al l be pr oh ib it ed fro m rece iv in g co nt rib ut io ns fro m
ot he r po li ti cal act io n c o mm i tt ees

. . . .” The am en dm en t de fin es “ po li ti cal act io n

co m m it te e” as

a co m m it te e of co nt in ui ng ex is te nc e whi ch is no t fo rm ed
, co nt ro ll ed or di rect ed by a c a n di da te , an d is a co m m it te e ot he r th an a can di da te

co m m it te e, po li ti cal pa rty co m m it te e, cam

pa ig n co m

m it te e, ex pl or at or y

The Hon or ab le Ortr ie D. Sm it h, Uni te d St at es Dis tri ct Ju dg e fo r th e W es te rn 2 Dis tri ct of M is so ur i.

-2

-co m

m it te e, or de bt se rv ic e co m m it te e, who se pr im ar y or in ci de nt al pu rp os e is to rece iv e co nt rib ut io ns or m ak e ex pe nd it ur es to in flu en ce or at te m pt to in flu en ce t h e a c t i on of vo te rs whe th er or no t a pa rti cu la r
can di da te or can di da te s or a pa rti cu la r ba ll ot m eas ur e or m eas ur es to be

su pp or te d or op po se d ha s be en de te rm in ed at th e ti m e th e co m m it te e is req ui red to fil e an y st at em en t or rep or t pu rs ua nt to th e pr ov is io ns of th is ch ap te r.

Mo

. Co ns t. art

. VIII, § 23 .7(2 0)

. A “ co nt rib ut io n” in cl ud es , am on g ot he r th in gs , a
pa y m en t m ad e “ fo r th e pu rp os e of su pp or ti ng or op po si ng th e no m in at io n or el ect io n of an y can di da te fo r pu bl ic of fic e or th e qu al ifi cat io n, pa ss ag e or de feat of an y ba ll ot

m eas ur e.” Mo . Con st . art . VIII, § 2 3.7 (7 ).

The Mi ss ou ri Eth ic s Co m m is si on in ve st ig a t e s al le ge d vi ol at io ns of la ws
pe rta in in g to cam

pa ig n fin an ce an d en fo rces th os e la ws. Am o n g o t he r th in gs , th e Co m m is si on is au th or iz ed to rece iv e co m pl ai nt s th at al le ge vi ol at io ns of cam pa ig n fin an ce di sc lo su re req ui rem en ts , vi ol at io ns of th e pr ov is io ns of th e M i s s o u ri

co ns ti tu ti on th at rel at e to th e of fic ia l co nd uc t of st at e of fic ia ls
, an d vi ol at io ns of § 23 .3 b y a can di da te for ele ct iv e o ffi ce. Se e Mo

. Rev

. St at

. § 10 5.9 57 ; Mo. Con st

. art

. VIII, § 23 .4(1 ). If th e Co m m is si on ha s reas on ab le gr ou nd s t o b e l i e v e th at a

co m pl ai nt sh ows a vi ol at io n of cri m in al la w, th e Co m m is si on m ay refe r th e co m pl ai nt fo r pr os ecu ti on

. Se e Mo

. Rev

. St at

. § 10 5.9 61 .2; Mo

. Co ns t. art

. VIII, § 23 .4(4 ). The
Co m m is si on ha s as se rte d th at it “ in te nd [s ] to en fo rce Arti cl e VIII, Sect io n 23 as
req ui red by law.” R. Doc . 27 , at 4 -5

.

Afte r th e am en dm en t was ap pr ov ed
, two Mi ss ou ri po li ti cal act io n co m m it te es (PACs )—F ree an d Fai r Elec ti on Fu nd (FFEF) an d th e Ass oc ia ti on of Mi ss ou ri Elec tri c Co o p erat iv es Po li ti cal Acti on Co m m it te e (AMEC- PAC)— su ed th e Co m m is si on an d it s m em

be rs to en joi n en fo rcem en t of § 23 .3(1 2) ’s ba n on PAC-t oPAC tra ns fers

. FFEF rece iv es co nt rib ut io ns an d m ak es in de pe nd en t ex pe nd it ur es to in fl u e n c e vo te rs

. FFEF al le ge d th at it de si red to acce pt co nt rib ut io ns fro m ot he r

-3

-PACs an d to co nt rib ut e to th os e PACs th at m ak e on ly in de pe nd en t ex pe nd it ur es

.

AMEC-P AC is a co m

m it te e fo rm ed an d m ai nt a i ne d by AMEC, an as so ci at io n of

no n p r of it
, m em be r-o wne d ru ral el ect ric co op erat iv e m em be rs hi p co rp or at io ns

. AMEC-P AC al le ge d th at it wis h e d to acce pt co nt rib ut io ns fro m an d co nt rib ut e to
ot he r PACs

.

FFEF an d AMEC-P AC so ug ht de cl arat or y an d in jun ct iv e rel ie f, al le gi ng th at th e ba n on PAC-t o- PAC tra ns fers was un co ns ti tu ti on al on it s face un de r th e Fi rs t an d
Fo ur te en th Am en dm en ts , an d un co ns ti tu t io na l as ap pl ie d to each of th em

. Afte r a he ari ng , th e di st ric t co ur t co nc lu de d th at th e tra ns fer ba n was un co ns ti tu ti on al on it s face un de r th e Fi rs t Am en dm en t an d un co ns ti tu ti on al as ap pl ie d to FFEF. It th eref or e
p e r manen tl y en

joi ne d th e Co m

m is si on fro m en fo rci ng th at pr ov is io n. Th e Co m m is si on ap pe al s. Bec au se th e gr an t of i n ju n ct iv e rel ie f tu rn s on pu rel y le ga l is su es u n d e r t h e Fi rs t Am en dm en t, we rev ie w t he di st ric t co ur t’s de ci si on de no vo

. Se e Qwes t Co rp . v. Sco tt , 38 0 F .3d 36 7, 3 70 (8t h C ir. 2 00 4)

.

II.

The Fi rs t Am en dm en t pr ot ect s th e “ rig h t to pa rti ci pa te in th e pu bl ic de ba te
t h ro ug h po li ti cal ex pr es si on an d po li ti cal as so ci at io n.” McCu tc he on v. FEC
, 57 2 U.S. 18 5, 20 3 (2 01 4) (p lu ral it y op in io n)

. “ W he n an in di vi du al co nt rib ut es m on ey to

a can di da te , he ex erci se s bo th of th os e rig ht s: The co nt rib ut io n ‘serv es as a ge ne ral

ex pr es si on of su pp or t fo r th e can di da te an d hi s vi ews ’ an d ‘serv es to affi li at e a pe rs on wit h a can di da te .’ ” Id

. (q uo ti ng Buc kl ey v. Val eo , 42 4 U.S

. 1
, 21 -2 2 (1 97 6) (p er

cu ria m )). Lik e in di vi du al s, PACs en joy th e rig ht to free do m of sp eech an d

as so ci at io n. Se e FEC v. N at ’l Co ns er va ti ve Pol it ic al Acti on Co mm. , 4 70 U.S. 48 0,
49 2- 96 (19 85 ).

The ba n on PAC-t o- PAC tra ns fer s i m pl ic at es th es e rig ht s. By pr oh ib it in g a PAC fro m re cei vi ng co nt rib ut io ns fro m ot he r PACs
, § 23 .3(1 2) ne ces sa ril y pr oh ib it s

-4

-a PAC fro m mak in g co nt rib ut io ns to ot he r PACs

. Res tri ct in g th e reci pi en ts to who m

a PAC ca n d on at e th eref

or e li m it s t he do no r-PAC’s sp eech an d a ss oc ia ti on al rig ht s

un de r th e Fi rs t Am en dm en t.

“ W he n [a St at e] res tri ct s sp eech
, [ i t ] b e a r s th e bu rd en of pr ov in g th e

co ns ti tu ti on al it y of it s act io ns .” Mis so ur ia ns fo r Fis ca l Acco un ta bi li ty v. Kl ah r , 89 2
F.3 d 94 4, 94 8 (8 th Ci r. 20 18 ) (al te rat io ns in or ig in al ) (q uo ti ng McCu tc he on , 57 2 U.S.

at 21 0)

. Laws th at reg ul at e po li ti cal co nt rib ut io ns are su bjec t to “ ex act in g sc ru ti ny.”
McCu tc he on , 57 2 U.S. at 19 7; Ni xo n v. Sh ri nk Mo. Gov

. PAC
, 52 8 U.S. 37 7, 38 7- 88 (2 00 0)

. To m eet th at st an da rd
, th e ch al l e n g e d l a w m us t ad va nc e a su ffi ci en tl y im po rta nt st at e in te res t an d em pl oy m ean s cl os el y dr awn t o av oi d un ne ces sa ry ab rid gm en t of Fi rs t Am en dm en t free do m s. Buc kl ey , 42 4 U.S. at 25

. A res tri ct io n on Fi rs t Am en dm en t free do m s is un co ns ti tu ti on al on it s face if “ no se t of ci rcu m st an ces

ex is ts un de r whi ch [th e res tri ct io n] wo ul d be va li d.” Phe lp s- Rop er v. Rick et ts , 86 7 F.3 d 88 3, 89 1- 92 (8 th Ci r. 20 17 ); se e Uni te d St at es v. St ev e n s , 5 5 9 U

. S

. 46 0, 47 2 (2 01 0)

.

The re is on ly on e le gi ti m at e st at e in te res t in res tri ct in g c a mp a i g n fin an ces :

“ pr ev en ti ng co rru pt io n o r th e ap pe aran ce o f co rru pt io n.” McCu tc he on , 57 2 U.S. at 20 6. Thi s in te res t is li m it ed to pr ev en ti ng “ on ly a sp eci fic type of co rru pt io n— ‘ qu id

pr o qu o ’ co rru pt io n” or it s ap pe aran ce. Id

. at 20 7. A la rg e do na ti on th at is no t m ad e

“ in c o n n ect io n wit h an effo rt to co nt ro l th e ex erci se of an of fic eh ol de r’s of

fic ia l du ti es , do es no t gi ve ris e to

. . . qu id pr o qu o co rru pt io n.” Id

. at 20 8. Si m il arl y , th e
g e n eral ris k th at a do no r, th ro ug h la rg e do na ti on s, wil l “ ga rn er in flu en ce ov e r o r

acce ss to el ect ed of

fic ia ls or po li ti cal pa rti es ,” ei th er in fact or in ap pe aran ce , is in su ffi ci en t to crea te qu id pr o qu o co rru pt io n. Id

. (in te rn al qu ot at io n m ark s om it te d)

. In st e a d
, “ th e ris k of qu id pr o qu o co rru pt io n is ge ne ral ly ap pl ic ab le on ly to th e

na rro w cat eg or y

of m on ey

gi fts th at are di rect ed , in so m e m an ne r, to a can di da te or of fic eh ol de r.” Id

. at 2 11 (in te rn al qu ot at io n m ark s o m it te d)

.

-5

-In th is cas e, Mi ss ou ri ha s no t de m on st rat ed a su bs ta nt ia l ris k th at un earm ark ed

PAC-t o- PAC co nt rib ut io ns wil l gi ve ri se to quid pr o qu o co rru pt io n or it s ap pe aran ce. Bec au se th e am en dm en t de fin es a PAC as a co m m it te e th at is “ no t fo rm ed
, co nt ro ll ed

or di rect ed by a can di d a t e,” Mo

. Co ns t. art

. VIII, § 23 .7(2 0)
, PACs op erat e in de pe nd en tl y fro m can di da te s. “ [T]here is no t th e sa m e ris k of qu id p r o qu o

co rru pt io n o r i t s ap pe aran ce whe n m on ey flo ws th ro ug h in de pe nd en t act or s to a

can di da te , as whe n a do no r co nt rib ut es to a can di da te di rect ly.” Mc C u t c he on , 57 2 U.S. at 21 0; se e al

so Ci ti ze ns Uni te d
, 55 8 U.S. at 35 7. “ W he n an in di vi du al

c o n tri bu te s to

. . . a PAC, th e in di vi du al m us t by la w ced e co nt ro l ov er t h e f u n d s

. ”
McCu tc he on , 57 2 U.S. at 21 0- 11 . If th at PAC con tri bu te s t he fun ds to a can di da te , it is typi c a l l y t h e PAC, no t th e in di vi du al , wh o rece iv es cred it fo r th e co nt rib ut io n. If th e PAC in st ead co nt rib ut es th e fu nd s to an ot he r PAC, rat he r th an to th e can di da te ,

“ th e ch ai n of at tri bu ti on gr ows lo ng er, an d a n y c r e d i t m us t be sh ared am on g th e

va rio us act or s al on g t he way .” Id

. at 2 11

.

The Co m m is si on as se rts th a t wit ho ut th e ba n on PAC-t o- PAC tra ns fers
, a do no r co ul d ev ad e th e in di vi du al co nt rib ut io n li m it s of $2 60 0 pe r can di da te se t fo rth in Mo . Con st . a rt. VIII, § 23 .3(1 )(a) . Th e ev as io n wo ul d o ccu r, th e arg um en t g oe s, be cau se a do no r co ul d con tri bu te la rg e, un earm ark ed su m s of m on ey to a can di da te by la un de rin g it th ro ug h a se rie s of PACs th at he co nt ro ls

. The Co m m is si on sa y s th at ci rcu m ve nt io n of th e co nt rib ut io n li m it s crea te s a ris k of qu id pr o qu o co rru pt io n or it s ap pe aran ce. It th eref

or e c o n t e n d s th at th e ba n ad va nc es th e St at e’s in te res t in

pr ev en ti ng co rru pt io n b y pre ve nt in g c irc um ve nt io n o f co nt rib ut io n l im it s.

The tra ns fer ba n, ho wev er, do es li tt le , i f an y th in g, t o f u r t h er th e ob

jecti ve of

pr ev en ti ng co rru pt io n or th e ap pe aran ce of co rru pt io n. Th e Co m m is si on do es no t

“ pr ov id e an y real -wo rld ex am pl es of ci rcu m

ve nt io n” al on g th e l i n e s of it s hypo th et ic al

. M

cCu tc he on , 57 2 U.S. at 21 7. It do es no t po in t to ev id en ce of an y

oc cas io ns be fo re th e am en dm en t whe re PAC-t o- PA C tra ns fers le d to th e ci rcu m ve nt io n of co nt rib ut io n li m it s. Nor do es th e Co m m is si on id en ti fy an y do no rs

-6

-who ha ve ex ceed ed co nt rib ut io n li m i t s by us in g tra ns fers am on g a ne two rk of

co or di na te d PACs

. The l a c k o f e x a m pl es is no t su rp ris in g, fo r a do no r de te rm in ed

to su pp or t a can di da te w i t h la rg e su m s of m on ey ne ed no t em pl oy PAC-t o- PAC

tra ns fers

. The do no r m ay co nt rib ut e di re ct ly to m ul ti pl e PACs wit h th e ex pe ct at io n th at th es e PACs wou ld su pp or t th e do no r’s pr efer red can di da te

. Or, m or e pr act ic al ly, th e do no r m ay si m

pl y de vo te th e fu ll am ou nt of co nt rib ut io ns to i n d e p e n d e n t

ex pe nd it ur es in su pp or t of th e p r e f erre d can di da te wit ho ut th e su gg es te d

m ach in at io ns

. W hy es ta bl is h 38 5 se pa rat e PACs to do na te $2 60 0 each to a pr efer red

can di da te whe n t h e d o n or can sp en d $1 m il li on in de pe nd en tl y to su pp or t th e

can di da te ? Se e id

. at 2 13 -1 4.

The Co m m is si on al so co nt en ds th at th e tr an sf er b an fur th ers th e St at e’s an ti

co rru pt io n in te res t by pr om ot in g tra ns pa rency

. The Co m m is si on as se rts th at PAC-t oPAC tra ns fers ob sc ur e th e so ur ce of “ la rg e” do na ti on s an d m ak e it “ ne arl y im po ss ib le fo r th e Co m

m is s i o n t o en fo rce th e St at e’s in di vi du al co nt rib ut io n li m it s.” In th e Co m m is si on ’s vi ew, ex po si ng th e so ur ce of th es e la rg e do na tio ns disco ur ag es co rru pt be ha vi or an d pe rm it s th e Co m m is si on to de te ct vi ol at io ns of co nt rib ut io n li m it s. Bu t th e tra ns fer ba n do es no t m at eri al ly fu rth er th es e ob jecti ve s. Co n t r i b u t i o n li m it s al read y pr ev en t “ la rg e” do na ti on s in ex ces s o f $ 2 6 0 0 to a can di da te by a si ng le

pe rs on , se e Mo

. Co ns t. art

. VIII, § 23 .3(1 )(a)
, an d ot he r pr ov is io ns se rv e th e St at e’s in te res t in rev eal in g effo rts to c o n t r i bu te m or e. Don or s are pr oh ib it ed fro m

co nt rib ut in g to PACs wit h th e pu rp os e of co nc eal in g th e so ur ce, se e, e.g

. , Mo

. Co ns t.
art

. VIII, §§ 23 .3(7 ) & (1 4)
, 23 .7(1 9)
, an d di sc lo su re la ws en su re th at bo th th e pu bl ic

an d th e Co m

m is si on kn ow th e s o u r c e o f e a ch do na ti on

. Se e, e.g

. , Mo

. Rev

. St at

. §§ 13 0.0 41 , 13 0.0 57

.

The Co m m is si on ur ge s us to fo ll ow th e Elev en th Ci rcu it in up ho ld in g a ba n on PAC-t o- PAC tra ns fers

. In Ala ba ma Democ ra ti c Co nf er en ce v. Att or ne

y Gen er al of Ala ba ma , 83 8 F.3 d 10 57 ( 1 1 t h C ir. 20 16 ), th e co ur t reas on ed th at su ch a ba n fu rth ered th e St at e’s interes t in pr ev en ti ng co rru pt io n or th e ap pe aran ce of co rru pt io n.

-7

-Id

. at 10 70

. The co ur t po in te d to ev id en ce th a t b e f o r e s u ch a ba n, “ PAC-t o- PAC

tra ns f e r s were vi ewed by Alab am a ci ti zen s as a to ol fo r co nc eal in g do no r id en ti ty, th us crea ti ng th e ap pe aran ce th at PAC-t o- PAC tra ns fers hi de co rru pt be ha vi or .” Id

. Bu t th e co ur t al so no te d th at Alab am a la w “ do es no t li m it th e am ou nt of m on ey th at
a p ers on , bu si ne ss , or PAC m ay co nt rib ut e d ire ct ly to a c an di da te ’s cam pa ig n.” Id

. at 10 60

. Unl ik e Alab am a, Mi ss ou ri li m it s th e co nt rib ut io ns th at a PAC can m ak e to

a can di da te , s o t h e a n ti -co rru pt io n in te res t ci te d in su pp or t of th e Alab am a la w is di m in is he d h ere.

The tra ns fer ba n al so is no t cl os el y dr awn to se rv e an im po rta nt st at e in te res t. Alt ho ug h th e fit b e t w e e n t he in te res t se rv ed an d th e m ean s se le ct ed ne ed no t be

pe rfec t, it m

us t be reas on ab le , wi th th e m ean s se le ct ed pr op or ti on at e to th e in te res t

se rv ed

. McCu tc he on , 57 2 U.S. at 21 8. In th is cas e, th e ris k of co rru pt io n fro m PACto -PAC tra ns fers is m od es t at be st , an d ot he r reg ul at io ns li ke co nt rib ut io n li m it s an d di sc lo su re req ui rem en ts act as pr op hylact ic m eas ur es ag ai nst qui d pro quo corru pt io n. The ba n th eref

or e am ou nt s to th e so rt of “ pr op hylax is -u po n- pr op hylax is ” th at
req ui res a co ur t to be “ pa rti cu la rly di li ge nt in sc ru ti ni zi ng th e la w’ s fit .” Id

. at 22 1.

Ass es si ng th e fit of a p ro po se d re st ric ti on req ui res co ns id erat io n of avai la bl e al te rn at iv es th at wou ld se rv e th e S t a t e’s in te res ts whi le av oi di ng un ne ces sa ry ab rid gm en t of Fi rs t Am en dm en t rig ht s. Se e id

. As th e Co u r t e x p l a in ed in
McCu tc he on , an ti -p ro li fera ti on la ws, i nc lu di ng rul es reg ard in g affi li at ed PACs
, are

a le ss res tri ct iv e m ean s of pr ev en ti ng th e so rt of ab us e th at co nc ern s th e Co m m is si on

. If th e St at e fo rb id s a do no r to crea te nu m ero us PACs to su p p o r t a c a n di da te or to

cau se m ul ti pl e P A Cs to co or di na te th ei r ex pe nd it ur es , th en th e Co m m is si on ’s h ypo th et ic al sc en ari o wou ld be un la wfu l. Se e id

. at 21 1- 13

. Enh an ced di sc lo s u r e
req ui rem en ts , to o, “ of

te n rep res en t[] a le ss r e st ric ti ve al te rn at iv e to fla t ba ns on
cert ai n types o r q u a nt it ie s of sp eech .” Id

. at 22 3. The Co m m is si on as se rts th at ad di ti on al di sc lo su re req ui rem en ts wou l d no t he lp th e pu bl ic to tra ck th e so ur ce of do na ti on s th at are co -m in gl ed wit h th e res t of a PAC’s fu nd s an d sh ut tl ed th ro ug h a

-8

-se rie s of ot he r P A C s b e f or e reac hi ng a can di da te

. Bu t ev en as su m in g th e Co m m is si on is co rrec t ab ou t th e di ffi cu lt y of tra ck in g fu nd s, th e arg u men t is se lfde feat in g: If di sc lo su re la ws w i l l n ot he lp th e pu bl ic di sc ern who ga ve m on ey to who m , th en we are ha rd pr es se d to se e ho w a ca nd id at e wou ld id e n t i fy an or ig in al do no r to crea te a ris k of qu id pr o qu o co rru pt io n. AMEC PAC su gg es ts th at a li m it

on th e s i z e of tra ns fers be twee n PACs is an ot he r le ss res tri ct iv e al te rn at iv e. The
Co m m is si on arg ue s th at su ch a li m it wou ld no t wor k, be cau se do no rs wou ld si m pl y

us e m or e PACs

. Bu t if a li m it were co m bi ne d wit h an ti -p ro li fera ti on pr ov is io ns , th en th e fear ed lo op ho le wou ld be cl os ed

. W e do no t he re de ci de th e co ns ti tu ti on al it y of th es e ot he r, hypo th et ic al la ws th at m ig ht be en act ed
, bu t th e a va il ab il it y of le ss

res tri ct iv e al te rn at iv es co nt rib ut es to ou r co nc lu si on th at th e cu rren t pr ov is io n is no t

c l os el y dr awn

. Se e Gre en Par ty of Co nn

. v. Gar fi el d
, 61 6 F.3 d 18 9, 21 0 ( 2 d C i r

. 20 10 ); Tu cker

v. St at e o f Ca l. Dep ’t o

f Ed uc

. , 97 F.3d 12 04 , 12 16 (9t h C ir. 1 99 6)

.

Tak en to ge th er, th e lo w ris k of qu id pr o qu o co rru pt io n st em m in g fro m PACto -PAC tra ns fers
, th e ex is te nc e of ot he r cam pa ig n fin an ce la ws th at faci li ta te
tra ns pa ren cy , an d th e av ai la bi li ty of le ss res tri ct iv e al te rn at iv es to th e ba n su ffi ce to sh ow th at § 23 .3(1 2) is no t cl os el y dr awn to se rv e a su ffi ci en tl y im po rta nt st at e in te res t. W e th us ne ed no t exp lo re oth er co nc ern s, su ch as whe th er the ba n is ov erin cl us iv e by pr oh ib it in g tra ns fers be twee n PA C s th at m ak e on ly in de pe nd en t

ex pe nd it ur es , or un de r-i nc lu si ve by pe rm it ti ng tra ns fers be twee n st at e PACs an d fed eral PACs

.

The di st ric t co ur t pr op erl y en joi ne d en fo rcem en t of th e tra ns fer ba n in it s

en ti ret y

. The am en dm en t v i o la te s th e Fi rs t Am en dm en t as ap pl ie d to PACs th at do na te on ly to can di da te s an d to PACs th a t b o t h d on at e to can di da te s an d m ak e in de pe nd en t ex pe nd it ur es

. The Co m m is si on arg ue s th at § 23 .3(1 2) do es no t ap pl y to PACs li k e F F EF th at m ak e on ly in de pe nd en t ex pe nd it ur es , bu t it is un ne ces sa ry to ad dr es s th at po i n t

. A St at e do es no t ha ve a su ffi ci en tl y im po rta nt in te res t in

pr ev en ti ng co nt rib ut io ns to a PAC th at m ak es on ly in de pe nd en t ex pe nd it ur es , se e

-9

-Ci ti

ze ns Uni te d
, 55 8 U.S. at 35 7- 60
, so th e pr ov is io n m us t be en joi ne d in it s en ti ret y whe th er o r no t i t ex te nd s t o t hi s s ub gr ou p o f PACs

.

* * *

The jud gm en t o f th e d is tri ct co ur t i s af fir m ed

.

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