No. PD-1067-15

TO THE COURT OF CRIMINAL APPEALS

OF THE STATE OF TEXAS

Ex parte James Richard “Rick” Perry

Appeal from Travis County

* * * * *

STATE’S BRIEF ON THE MERITS OF THE STATE’S PETITION FOR DISCRETIONARY REVIEW

* * * * *

LISA C. McMINN State Prosecuting Attorney Bar I.D. No. 13803300

P.O. Box 13046 Austin, Texas 78711 information@spa.texas.gov 512/463-1660 (Telephone) 512/463-5724 (Fax) PD-1067-15 COURT OF CRIMINAL APPEALS

AUSTIN, TEXAS Transmitted 10/21/2015 8:55:03 PM Accepted 10/22/2015 8:10:59 AM

ABEL ACOSTA CLERKTABLE OF CONTENTS

INDEX OF AUTHORITIES.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i i

STATEM ENT REGARDING ORAL ARGUM ENT.

. . . . . . . . . . . . . . . . . . . . . . . 1

STATEM ENT OF THE CASE.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

ISSUES PRESENTED.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

1 ) Di d the co urt o f a ppea l s i nco rre c t l y c o n fl a te the tes ts fo r Fi rs t Am endm ent o v erbrea dth a nd tra di ti o na l Fi rs t Am endm ent fa ci a l

unco ns ti tuti o na l i ty ?

2 ) Appl y ing the defi ni ti o n o f “ co e r c i o n” fro m T E X

. P E N A L C O D E § 1 .0 7 (a )(9 )(F), do es the co erci o n o f a publ i c s erv ant sta tute b a n a

s ubs ta nti a l a m ount o f co ns ti tuti o na l ly pro tected s peech rel ati v e to i ts pl a i nl y l eg i ti m a te s w eep?

STATEM ENT OF FACTS.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

SUM M ARY OF THE ARGUM ENT.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

ARGUM ENT.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

PRAYER FOR RELIEF.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 7

CERTIFICATE OF COM PLIANCE.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 8

CERTIFICATE OF SERVICE.

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 9

iI DENTI TY OF THE PARTI ES

Ap p el l an t : J a m es Ri cha rd “ R i ck ” Perry

.
Ap p el l ee: The Sta te o f Tex a s

.

Tri al J u d g e: Ho n. Bert Ri cha rds o n

.

Co u n s el fo r Ap p el l an t : A n t h o ny G. Buzbee

, J PM o rg an Ch as e To wer, 6 0 0 Trav i s St reet
, Su i t e 7 30 0, Ho u s t o n , Tex as 7 7 0 0 2; Tho m a s R. P hi l l i ps , 98 San J aci n t o Bl v d

., Su i t e 1 5 0 0

, Au s t i n , Tex as 7 8 7 0 1 -4 0 7 8 ; an d Da v i d L. Bo ts fo rd

, 1 30 7 W es t Av en ue, Au s ti n , Tex as , 7 8 70 1

.

C o u n s e l f o r t h e St at e: At t o rn ey Pro Tem Mi cha el McCrum

, 7 0 0 N. Sai n t M ary’s St reet
, Su i t e 1 9 0 0

, San An t o ni o , Tex as 7 82 0 5 ; As s is t an t At t o rn ey Pro Tem Da v i d Go nza lez

, 2 0 6 Eas t 9 t h St reet
, Su i t e 1 5 11

, Au s ti n, Tex as , 7 8 7 0 1 ; an d Li s a C. McMi nn , S ta te P r ose c uting A ttor ne y , P

. O

. B o x 1 3 04 6

, Cap it o l St at io n, Au s t i n , Tex as 7 8 7 1 1

.

i iINDEX OF AUTHORI TI ES

Ca s es

Bo a rd o f Tr u s t ees v. Fo x , 4 9 2 U.S. 4 6 9 (1 9 89 ).

. . . . . . . . . . . . . . . . . . . . . . . . . 5 , 7

Br o ad r i ck v. Okl a h oma , 4 1 3 U.S. 6 0 1 (1 9 7 3).

. . . . . . . . . . . . . . . . . . . . . . . . . 5 , 1 5

Ga r cet ti v. Ceb a l l o s , 5 4 7 U.S. 4 1 0 (2 00 6 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1 n

S t a t e v. Ha n so n , 7 9 3 S.W

. 2 d 2 7 0 (Tex . Ap p . – W aco , 1 9 9 0 , n o p et .).

. . . . . . . . 1 0 n

S t a t e v. Jo h n s o n , _

_ S.W .3 d

_

_ , No . PD- 0 2 2 8 -1 4 (Tex . Cri m . Ap p . 2 0 1 5 ).

. . . . . . 8

Ex p a rt e Lo

, 4 34 S.W .3 d 1 0 (Tex . Cri m . Ap p . 2 0 1 3 ).

. . . . . . . . . . . . . . . . . . . . 5 n , 7

Memb er s o f Ci t y Co u n ci l o

f Lo s An g el es v. Ta xp a yer s f o r Vi ncen t , 4 6 6 U.S. 7 89 (1 9 8 4 )..

. . . . . . . . . . . . . . . . . . . . 1 2 -1 3

N.Y . S t a t e Cl u b As s ’n v. Ci t

y o f New Y o r k , 4 8 7 U.S. 1 (1 9 88 ).

. . . . . . . . . . . . . . . 1 2

Neva d a Co mmi s s i o n o n Et h i cs v. Ca r r i g a n , 1 3 1 S. Ct . 2 3 4 3 (2 0 1 1 ).

. . . . . . . . . . . 4

Ol i va s v. S t a t e , 2 0 3 S.W .3 d 3 4 1 (Tex . Cri m . Ap p . 2 0 0 6 ).

. . . . . . . . . . . . . . . . 9 , 1 4

Ex p a rt e Per r

y , _ _S.W .3 d

_ _ No . 0 3 -1 5 -0 0 06 3 -CR (Tex . Ap p.– Au s t i n J u ly

2 4 , 2 0 1 5 ).

. . . . . . . . . . . . . . . . . . . . . 2

, 7 , 1 0, 1 3 , 1 4

Pi cker i ng v. Bo a r d o f Ed u ca t i o n , 3 9 1 U.S. 5 6 3 (1 9 6 8 ).

. . . . . . . . . . . . . . . . . . . . 1 3

S a n ch ez v. S ta te , 9 9 5 S.W .2 d 6 7 7 (1 9 9 9 ) .

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Un i ted S t a t es v. S t even s , 5 59 U.S. 4 6 0 (2 0 1 0 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Vi r g i n i a v. Hi cks , 5 3 9 U.S. 1 13 (2 0 0 3 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

W a s h i n g t o n S t at e Gr a n g e v. W a s h i n g t o n S t a t e

i i iRep u b l i ca n Pa r t y , 5 5 2 U.S. 4 4 2 (2 0 08 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

W a t ts v. Un i t ed

S ta t es , 3 9 4 U.S. 7 0 5 (1 9 6 9 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 0 n

Un i ted S t a t es v. W

i l l i a ms , 5 5 3 U.S. 2 8 5 (2 0 0 8 ).

. . . . . . . . . . . . . . . . . . . . . . . . . 1 5 n

Co des a nd Rul es

T E X

. P E N A L C O D E § 1 .0 7 (a)(9 )(F).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 , 1 4

T E X

. P E N A L C O D E §2 2 .0 2 (b )(1 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 1 .0 3 (f)(1 ).

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 6 .0 2

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 , 1 1

T E X

. P E N A L C O D E § 3 6 .0 3 (a)(1 )

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

T E X

. P E N A L C O D E § 3 6 .0 3 ©

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 , 9

T E X

. P E N A L C O D E §3 6 .0 4

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 6 .0 7

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 6 .0 8

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 9 .0 2

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 9 .0 3

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

T E X

. P E N A L C O D E §3 9 .0 6

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1

Seco nda ry So urces

M o d el Pen al Co d e, Co m

m en t t o § 2 4 0.1

, Vo l 3 , at 7 -8 (Am eri can Law In s ti t u t e 1 9 8 0).

. . . . . . . . . . . . . . . . . . . . . . . . 9

ivM o d el Pen al Co d e, Co m m en t t o § 2 4 0.2

, Vo l 3 , at 4 9 (Am eri can Law In s t i t u t e 1 9 80 ).

. . . . . . . . . . . . . . . . . . . . . . . . . 9

vNo . PD-1 0 6 7 -1 5

TO THE COURT OF CRIM INAL APPEALS

OF THE STATE OF TEXAS

Ex p art e J am es Ri ch ard “ Ri ck ” Perry

* * * * *

STATE’S BRI EF ON THE MERI TS OF THE STATE’S

P ETI TI ON FOR DI SCRETI ONARY REVI EW

* * * * *

TO THE HONORABLE COURT OF CRIM INAL APPEALS:

Th e St at e Pro s ecu t in g At t o rn ey res p ect fu l l y p res en ts h er Bri ef on t h e M e ri t s

o f t h e St at e’ s Pet i t i o n fo r Di scret i o n ary rev iew.

STATEMENT REGARDI NG ORAL ARGUMENT

Th e St at e’ s req u es t fo r o ral arg um en t was g ran t ed

.

STATEMENT OF THE CASE

Ap p el l an t wa s c harg ed i n a t wo -co u n t in d i ct m en t wi t h ab u s e o f o ffi ci al

cap aci t y (Co u n t I) an d co erci o n o f a p u bl i c s erv an t (Co u n t II). Ap pel l a n t f i l e d a

p ret ri al ap p l icat i o n fo r a w ri t o f h ab eas co rp u s s eek i n g t o d i s m i s s b o t h co u n t s

. Th e

1t ri al co u rt d en i ed rel i ef, an d Ap p el l an t ap p eal ed

. On J u ly 2 4

, 2 01 5

, t h e Th i rd Co u rt

o f Ap p eal s affi rm ed t h e t ri al co u rt ’ s ru li n g as t o Co u n t I an d rev ers ed as t o Co u n t II.

Ex p a r t e Per r

y ,

_ _ S.W .3 d

_ _, No

. 03 -1 5 -0 0 0 6 3 -CR (Tex

. A p p .– A u s t i n 2 0 1 5 ). Th i s

Co u rt g ran t ed b ot h Ap p el l an t ’ s an d t h e St at e’ s p et i ti o n s fo r d i s cret i o n ary rev i ew o n

Oct o b er 7, 2 0 1 5 an d o rd ered ex p ed i t e d b r i e fi n g an d s u b m i ss i on

. Th e dead l i n e fo r

fi li n g t h e St at e’ s b ri ef i s Oct ob er 2 1 , 2 0 1 5

.

I SSUES PRESENTED

1 ) Di d the co urt o f a ppea l s i nco rre c t l y c o nfl a te the tes ts fo r Fi rs t Am endm ent

o v erbrea dth a nd tra di ti o na l Fi rs t Am endm ent fa ci a l unco ns ti tuti o na l i ty ?

2 ) Appl y i ng the defi ni ti o n o f “co erci o n” fro m T E X

. P E N A L C O D E § 1 .0 7 (a )(9 )(F), do es the co erci o n o f a publ i c s erv a nt s ta tute ba n a s ubs ta nti a l a m o unt o f

co ns ti tuti o na l l y pro tected s peech rel a ti v e to i ts pl a i nl y l eg i ti m a te s w eep?

STATEMENT OF FACTS

Co u nt II o f t he i n d i ct m en t al l eg es :

B e g i n n i ng o n ab o u t J un e 1 0

, 2 01 3

, an d co n t i n ui n g th ro u g h J u ne 14

, 2 0 1 3

, i n th e Co u n t y o f T r a v i s , Tex as , b y m ean s o f co erci o n , t o -wi t : t h reat en i n g t o v et o leg i s l at i o n th at h ad b een ap p ro v ed an d au t h o ri zed b y t h e Leg i s l at ure o f t h e St at e of Tex as to p ro vi d e fu n d i n g fo r th e

co n t i n u e d o perat i on o f t h e Pu b l i c In t eg ri t y U n i t o f th e Trav is Co u n t y Di s t ri ct A t t o rn ey ’ s Offi ce un l es s Trav i s Co u n ty Di s t ri ct At t o rn ey Ro s em ary Leh m

b erg res i g n ed fro m h er o ffi ci a l p os i t i o n as el ect ed Di s t ri ct At t o rn ey , J am es Ri ch ard “ Ri ck ” Perry

, i n t en t i o n al l y o r k n o wi n g l y i n fl u en ced o r at t em p t e d t o i n fl u en ce Ro s em ary L eh m b erg , a p u b l i c s e r v a n t
, n am el y , t h e el ect ed Di s t ri ct A t t orn ey fo r Trav i s Co u nt y , Tex as , i n t h e sp eci fi c p erfo rm an ce o f h er o ffi ci al d u ty , t o -wi t : t h e d u t y t o co n ti n u e t o carry o u t h er res po n si b i l i t i es as t h e el ect ed

2Di s t ri ct At t o rn ey fo r t h e Co u nt y of T rav i s , Tex as t h ro ug h th e

co m p let i o n o f h er el ect ed t erm o f offi ce, an d t h e d e f e n d an t an d
Ro s em ary Leh m

b erg were n o t m em

b ers o f t h e s am e g o v ern in g b od y o f

a g ov ern m en tal en t i t y , s u ch o ffen s e h av i n g been co m m i t t ed b y d efen d an t
, a p u b l i c s erv an t
, wh il e act i n g i n an offi ci al c a p a c i t y as a p u b l i c s erv an t

.
Ap p el l an t fi l ed a pret ri al wri t o f h ab eas co rp u s arg ui n g , am o ng o th er t h i n g s, t h at t h e

co erci o n o f a p u b li c s erv an t s t at u t e i s u n co n s ti t u t i o n al l y o v erb ro ad . Th e tri al co u rt

d en ied rel i ef, an d t h e co u rt o f ap p eal s h el d t h at t h e s t at u t e i s u n co n s t i t u t i o n al

.

SUMMARY OF THE ARGUMENT

In recen t y ears , t h i s Co u rt h as rep eat ed t h e m an t ra t h at t h e ap p l i cat i on o f t h e

Fi rs t Am en d m en t ov erb read t h do ct ri n e i s “ st ro n g m ed i ci n e” t o b e ap p l i ed rarel y an d

s p ari ng l y

. Yet t h i s “ st ro n g m ed i ci n e” h as b eco m e m o re co m m o n. It bears rep eat i n g

t h at an o v er b r o ad ch al len g e al l o ws a p ers o n t o w h o m t h e s t at u t e o p erat es

co n st i t u t i o n a l l y t o s t an d i n fo r a h y p o t h et i cal d efen d an t fo r wh o m i t d o es n o t

. Fo r

t h at reas o n , t h e cl ai m an t ju s t i fi ab l y b ears t h e b u rd en o f pro o f. He m u s t p ro v e t h at t h e

s t at u te n o t o n l y co v ers b ut wo u l d “ ch i l l ” s u ch a s u b s t an t i al am o u n t o f p ro t ect ed

s p eech t h at i n v al i dat i n g t he s t at u t e t o p r o t ect h y p o t h et i cal s peak ers is preferab l e to

ad d res s i n g t h e s t at u t e o n a cas e b y cas e, as -ap p li ed b as i s

.
Ap p el l an t c a n n o t carry t h at b u rd en

. Th e leg i t i m at e s weep o f t h e s t at u t e

i n cl u d es u n p ro t ect ed s peech i n t h e n at u re o f b ri b ery an d ex t o rt i o n

. Es peci al l y wi th

3res p ect t o p u b l i c s erv an t s wh o s p eak o n b eh al f o f t he g o v ern m en t an d h o l d p o s i t i on s

o f p u b l i c t ru s t
, t h e St at e h as a s u b s t an t ial i n t eres t i n en s u ri n g t h ey d o n o t ex ert u n d ue,

co erci v e i n fl u en ce o v er ot h er p u b l i c s erv an ts b y o p erat i n g o u t s i d e t h e real m o f t h ei r

au t h o ri t y

. To carry h i s b u rd en o f p ro o f, Ap p el l an t m u s t p o s e a s ub s tan t i al n u m b er o f

real is t i c h y

po t h et i cal u nco n s t i t u t i o n al ap p l i cat i on s o f t h e s tat u t e. Of th o s e h e an d t h e

c o u rt o f ap p eal s d ev i s ed

, m o st fal l o u t s i de t h e s tat u t e b ecau se t h ey d o n o t m e e t t h e

d efi n i t i o n o f co erci o n

. W h at p ro t ect ed s p eech rem ai n s i n s u b s t an t i al wh en co m p ared

t o th e p lai n l y l eg i t i m at e s weep o f t h e s t at u te. Fo r t h at reas o n , an y i n v al i dat i o n o f t h i s

s t at u te m u s t awai t a ci rcu m s t an ce i n wh i ch i t act u al l y ap p l i es u n co n s t i t u t i o n al l y

.

A RGUMENT

Fi rs t Am endm ent Ov erbrea dth Do ctri ne

Th e Fi rs t Am en d m en t p ro t e c t s ag ai n s t t h e g o v ern m en t ’ s at t em p t t o “ res t ri ct

ex p res s i o n b ecau s e o f it s m es s ag e, it s i d eas , i t s s u b ject m at ter, o r i t s co n t en t .”

Neva d a Co mmi s si o n o n Et h i cs v. Ca r r i ga n , 1 31 S. Ct

. 2 3 4 3

, 2 34 7 (2 0 1 1 ). H o wev er,

co n ten t res t ri ct i on s o n cert ai n cat eg ori es o f s p eech h av e b een h is t o ri cal l y p erm i t t ed

an d are ex cl u d ed fro m Fi rs t Am en d m en t p ro tect i o n s

. U n i t ed S t a t es v. S t even s , 5 5 9

U.S. 4 6 0

, 4 6 8 (2 01 0 ). Th o s e cat eg o ri es in cl ud e, am o n g oth ers : ob s cen i t y , i n ci t em en t
,

an d s peech i n teg ral t o cri m in al co n d u ct

. Id

.

4Th e Fi rs t Am en dm en t o v erb read t h d o ct ri n e ack n o wl ed g es th at
, ev en t h o u g h

a st at u t e reg u l at es sp eech th at is cat eg o ri cal l y u n p ro t ect ed

, i t i s n ev ert h el es s

o v erb ro ad i f “ a s u bs t an t i al nu m b er o f i t s ap p l i cat i o n s are u n co n s t i t u t i o n al

, ju d g ed in

rel at i o n t o t h e s t at u t e’ s p lai n l y l eg i t i m at e s weep .” B ro a dr i ck v. O kl a h o ma , 4 1 3 U.S.

6 0 1

, 6 10

, 6 1 3 (1 9 7 3 ). In o t h er wo rd s , o v e rb read t h o ccu rs wh en t h e s t at u t e

i n d i s p u t ab l y co v ers s p eech t hat i s n o t p r o t e c t e d b y t h e Fi rs t Am en dm en t b u t al s o

i n cl u d es wi t h i n i t s reach a s u b st an t i al am o u n t o f p ro t ect ed s p eech

.

Th i s d o ct ri n e “ en ab l e[s ] p ers on s wh o are t h em s el v es u n h arm ed b y t h e d efect

i n a s t at u t e n ev ert h el es s to ch al l en g e t h a t s t at u t e o n t h e g ro u n d t h at i t m ay

co n cei v ab l y b e ap pl i ed un co n s t i t u t i o n al l y t o o t hers

, i n o t h er s i t u at i o n s n o t b efo re t h e

Co u rt .” Bo a r d o

f Tr u s t ees v. Fo x , 4 9 2 U .S. 4 69

, 4 8 4 (1 9 8 9) (i n t er n a l ci t at i o n s an d

q u o t at i o n s om it t ed ). “ W e g en eral ly d o n o t ap pl y t h e ‘ st ro n g m ed ici n e’ o f overb read th

an al y s i s wh ere t h e p art i es fai l t o d es cri b e t h e i n s tan ces o f arg u ab le o v erb read t h o f t h e

co n tes t ed l aw. ” W

a sh i ng to n S t a t e Gr a n ge v. W a s h i ng t o n S t a t e Rep u b l i ca n Pa r t y ,

5 5 2 U.S. 4 4 2

, 4 4 9 n. 6 (2 00 8 ). In an ov erb read th ch al len g e, t he cl ai m an t b ears t h e

b u rd en o f p ro vi n g s u b s t an t i al o v erreac h

. V i r g i n i a v. Hi cks

, 53 9 U.S. 1 1 3

, 1 2 2

(2 0 0 3). 1

1 In Ex p a rt e Lo

, 4 3 4 S.W .3 d 1 0 (Tex

. Cri m

. A p p

. 2 0 1 3 ), t h is Co u rt i m p ro p erl y p l aced t h e b u rd en o f p ro o f o n t h e St at e. Id . at 1 4

.

5The s ta tute

Pen al Co de Sect i on 3 6 .0 3 (a)(1 ) p ro v i d es :

A pers o n co m

m i t s an o ffe n se i f b y m ean s o f co erci o n h e in fl uen ces o r at t em pt s t o in fl uen ce a p u b l i c s erv an t in a s peci fi c e x e r ci se o f h i s

o ffi ci al p o wer or a s p eci fi c p erfo rm an ce o f h i s offi ci al d u t y o r i n fl u en ces

o r at t em p ts t o in fl u en ce a p u b l i c s erv an t t o v i o l at e t h e p u b li c s erv an t ’ s k n o wn l eg al d u t y

.

T E X

. P E N A L C O D E §1. 07( a ) ( 9) de f ines co erci o n as “ a t h reat
, h o wev er co m m u ni cat ed ,”

fo l l o w ed b y s i x al t ern at iv e d efi n i t i o ns

. Su bs ect i o n (a)(9 )(F)

– “ t o t ak e o r wi t h h o ld

act i on as a p u b l i c s erv an t ...”

– i s at i s su e i n t h i s cas e. “ T h reat ,” i n t h e d efi n i t i o n o f

co erci o n , i s n o t d efi n ed

, b u t t h i s Co u rt h as fo u n d “ a co m m u n i c a t e d i nt en t t o i n fl i ct

h arm o r l o s s o n an o t h er o r o n an o t h er’ s p ro p ert y ” t o b e an accep t a b l e “ o rd i n ary

m ean i n g ” d efi n i t i on o f t h e t erm i n t h e as s au l t st at ut e. Ol i va s v. S t a t e , 2 0 3 S.W .3 d

3 4 1

, 34 5 -4 6 (Tex

. Cri m

. Ap p

. 2 0 0 6 ). Ap p l y i n g t h es e d efi n it i o n s , § 3 6 .0 3 (a)(1 )

p ro v id es :

A pers o n co m

m i t s an o ffen s e i f b y m ean s o f a co m mu n i ca t ed i n t en t t o i n f l i ct h a r m o r l o s s o n a n o t h er o r a n o t h e r ’ s p ro p er t y , h owev er

co m m u n i c a t e d

, t o t ak e o r wi t h h o l d act i o n as a p u b l i c s erv an t
, he i n fl u en ces o r at t em

p t s t o i n fl u en ce a p u b l i c serv an t i n a s p eci fi c ex erci s e

o f h i s offi ci al p o w er o r a s p eci fi c p erfo r m a n c e o f h is o ffi ci al d u t y o r i n fl u en ces or at t em

p t s t o i n fl u en ce a p u b l i c s erv an t t o v i o l at e th e pu b l i c

s erv an t ’ s k n o wn l eg al d ut y

. (em p h as i s ad d ed ). 2

2 Th e i t al i ci zed t ex t i s t h e pl ai n m ean i n g d efi n i t io n o f t h reat

. Th e u n d erl i n ed t ex t i s t he § 1 .0 7 d efi ni t i o n o f co erci o n

.

6A p u b l i c s erv an t ’ s t ak in g o r wi t h h o ld in g o f an o ffi ci al act i s n o t i n h eren t l y

co erci v e. Bu t th e co erci v e nat u re o f t h i s d efi n i t i o n b eco m es cl ear wi th t h e i n s ert i o n

o f “ t h reat .” Th e “ c o m m

u n i c a t ed i n t en t t o i n fl i ct h arm o r l o s s ” i s w h at m ak es t h e

“ t ak [i n g ] o r wi t h h o l d [i n g ] [o f an o ffi ci al ] act io n ” fo rcefu l

, ab u s i v e, an d su ffi ci en t to

o v erb ear t h e wi l l o f an o t h er, i .e., co erci v e.

Pl a i nl y l eg i ti m ate s w eep

“ [T] h e o v erb r e a d t h q u es t i o n ...req ui res d et erm i n at i o n wh et h er th e

s t at u t e’ s o verreach i s su b s t an t i al

, n o t o n l y as an ab s ol u t e m at t er, b u t ju d g ed i n rel at i o n t o t h e s t at u t e’ s p l ai n l y l eg i ti m at e s weep .”

Fo x , 4 9 2 U.S. at 4 85

. Th e c o u r t o f ap p eal s ack no wl ed g ed t hat t h e s t at u t e h as a

l eg i t i m at e s weep , i .e., it p ro s cri b es s o m e s p eech ou t s i d e t h e reach o f t h e Fi rs t

Am en d m en t

. See Ex p a rt e Per r y , Sl i p o p

. at 7 9

. (“ To b e s u re, s ect io n 36 .0 3 (a)(1 ), as

i t i n co rp o rat es parag rap h (F), wo u l d reach s o m e t h reat s ai m ed at ach iev i n g i l l i ci t en d s

t h at t h e S t a t e c o u ld pro perl y p ro s cri b e cri m i n al l y .”). It n o t ed t hat t h e s t at u t e’ s

l e gitim a te sw e e p i n cl u d es s o l i ci t at i o n o f cri m es , s o m e fo rm s o f ex t o rt i o n, an d b ri b ery

.

Id . at 7 4 -8 0

.

Ex am pl es o f sp eech t hat i s n ot pro t ect ed b y t h e Fi rs t Am en dm en t are co rrect l y

co n si d ered as p art o f t h e co erci o n s t at u t e’ s l eg i t i m at e s weep , ev en i f th at s p eech co u ld

al s o b e leg i t i m at el y p ro s ecu t ed u n d er an o th er s t at u t e. In Ex p a r t e Lo

, t h is Co u rt h el d

t h at “ e v e r yt h i n g Sect i on 33 .0 21 (b ) p ro h i b i t s an d p u n i s h es is s peech an d i s ei t h er

7a l r ea d

y p r oh ib i t ed b

y ot h er s t a t u t es

... o r i s co n s t it u t i o n al l y p ro t ect ed .” 4 24 S.W

. 3 d

at 2 0 (em p h as i s ad d ed ). Th i s p as sag e co rrect l y ack n o wl ed g es t h e pl ai n ly l eg i t i m at e

s weep o f t h e o n l i n e s o l i ci t at io n o f a m i n o r st at ut e, b u t t h en erro n eo u sl y ex cl u d es fro m

t h a t s weep an y co n d u ct t h at i s co v ered b y o th er s t at u tes

. Th e Co u rt m ad e a s i m i l ar

m i s t ak e i n S t at e v. Jo h n s o n ,

_ _ S.W .3 d

__ , No

. PD-0 2 28 -1 4

, 2 0 1 5 T ex

. Cri m

. Ap p.

LEXIS 1 0 5 7 * 4 0 -4 1 (Tex

. Cri m

. Ap p

. 2 0 1 5 ), reg ard i n g t h e fl ag d es ecrat i on s t at u t e.

It refu s ed t o co n s i der t h e act o f d am a g i n g an o t h er p ers o n ’ s fl ag i n t h e s t at u t e’ s

l eg i t i m at e sweep b ecau s e t hat co n du ct i s co v ered b y t h e cri m i n al m i s ch ief s t at u t e.

Id

. Bu t t h e fact t h at s t at u t es m i g h t o v erl ap i s n o t a b as i s f o r a n ap p el l at e co u rt to

el i m i n at e co n d u ct fro m t h e co v erag e o f t h e s tat u t e b e i n g ch al l en g ed

. Th ere i s n o

ap p aren t reas o n t o di sreg ard th o s e l eg it i m at e ap p l i cat i o n s , ex cep t t o s u g ges t t h at t h e

cri m i n al j u ri sp ru d en ce wo u l d n o t b e d i m i n is h ed by t h e s t at u t e’ s ab s en ce. Bu t t h at i s

a q u es ti o n fo r t h e l eg i s l at u re, n o t t h e co u rt s.

Th i s Co u rt h as reco g n i z ed t h at b ri b ery i s o u t s i d e t h e pro t ect i o n o f t h e Fi rs t

Am en d m en t b ecau s e it co n cern s t h e us e o f o ffi ci al p o wer t o ob t ai n a ben efi t t o wh i ch

t h e o ffi ci al i s n o t o t h erwi s e en t i t l ed

. S an ch ez v. S t a t e , 9 9 5 S .W. 2 d 6 7 7

, 6 8 8 (Tex

.

Cri m

. Ap p

. 1 9 9 9 ). Si m i l arl y , co erci o n o ccu rs wh en a p u b l i c s erv an t i l l eg a l l y

t h reat en s t o d o i n d irect l y wh at h e d o es n o t h av e t h e p o wer t o d o di rect l y

. In t h at

s en s e, co e r c i on an d bri b ery are o p p o s i t e s id es o f t h e s am e co i n

. Acco rd i n g t o t h e

8co m

m en t t o Sect i on 2 4 0 .2 o f th e M o d el Pen al Co d e, “ [Th reat s an d Ot h er Im p ro p er

In fl uen ces i n Offi ci al an d Po l i t ical M at t ers ] is a co m p l em en t t o t h e cri m e of b ri b ery .”

M o d el Pe n a l C o d e, Co m m en t t o § 2 4 0 .2

, Vo l 3

, at 4 9 (Am eri can Law In s t i t u t e

1 9 8 0 )

. 3 B ri bery u ses th e p ro m i s e o f a b en efi t t o i n fl u en ce th e act i o n o f a p u b l i c

o ffi ci al

, wh i l e co erci o n , li k e ex to rt io n , u s es th e t h reat of h arm

. Co mp a r e T E X

. P E N A L

C O D E § 36 .0 2 wi t h § 3 6 .0 3

. Bo t h t h e carro t an d t he s t i ck can b e u sed as an in d u cem en t

an d can , as t h e co urt of ap p eal s reco g ni zed

, b e u s ed s im u l t an eo u sl y b o t h t o t h reat en

h arm an d t o offer freed o m fro m t h e th reat en ed h arm

. In t h i s reg ard

, t h e co u rt o f

ap p eal s o b s erv ed :

Th e St at e can val i d l y p ro h i b i t t h e u s e o f t h reat s i n s i t u at i o n s w h ere th e p art i es rel at i o n s h i p d o es n o t p ro v i d e t h e t hreat en er a l eg i t i m at e b as i s fo r

s e ek i n g co n d u ct of t h e reci p i en t (i .e., h e h ad n o ri g h t t o d em an d o r req u ire i t ) an d wh ere t h e reci p i en t wo ul d hav e n o un d erl y i n g o bl i gat i o n t o c o n s i d er p erfo rm i n g th e co n d u ct as i d e fro m t he t h reat

. Su ch u s e o f

t h reat s m i g h t al s o b e s ai d t o s eek o r effect a s o rt o f t ran s act i o n i n wh ich

a p u b li c s erv an t i n t erject s a t h reat t o t ak e o r wi t h h o l d o ffi ci al act i o n , t h en o ffer s freed o m fro m t h e t h reat en ed harm s ol el y t o ex ch an g e fo r

s o m e o t h erwi s e-u n rel at ed des i red co n d uct b y an o t her p u b l i c s erv an t wh o se s o l e rat i o n al e or ju s t i fi cat i o n w o u ld be av oi d an ce o f th e t h reat en ed h arm

. In t h is res pect
, s u ch t h reat s wo u l d ach i ev e an effect

3 Th e co m m en t t o t h e b ri b ery

p ro v is i o n o f t h e M o d el Pen al Co d e, ex p l ai n s : An at t em p t t o i n fl u en ce o ffi ci al d eci s i o n b y o ffer o f p ers o n al g ai n t o th e

o ffi ci al i s co rru p t ev en i f t h e o u t co m e s o u g h t b y th e b ri ber i s t h e l awfu l

an d p ro p er o n e, s i n ce th e g i s t o f t h e o ffen s e i s th e effo rt t o s ecu re an i m p ro p er ad v an ta ge in th e d eci s i o n-m ak i n g p ro ces s

. M o d el Pen al Co d e, Co m m en t t o § 2 4 0 .1 , Vo l 3 , at 7 -8 (Am eri can Law In st i t u t e 1 9 8 0 ).

9s i m i l ar t o b ri b ery o f t h e reci pi en t

.

Ex p a r t e Per r

y , Sl i p o p. at 8 0

. 4 Th e St at e’ s b ri ef i n t h e co u rt o f ap p eal s po i n t ed o ut

l eg i t i m at e hy

p o t h et i cal s , l i ke a l eg i s l at o r’ s v o t e o r g o v ern o r’ s v et o t h a t p u n i s h es a

p o l i ce d ep art m en t
, d i st ri ct at t orn ey ’ s o ffi ce, o r j u d ici al d i s t ri ct i f a t raffi c t i ck et i s n ot

t o rn up o r a p ro s ecu t i o n i s n o t d i s m i s s ed

. St at e’ s Co u rt o f Ap p eal s ’ Bri ef, p

. 1 5 -1 6.

Si m i l arl y , a d i s t ri ct ju d g e co u l d t hreat en to di s m i s s a l aws u i t t h at a l eg i sl at or fi l ed i f

h e d i d no t v ot e fo r ju d i ci al p ay rai s es

.

Th e St at e h as an i n t eres t i n h o l di n g pu b li c s erv an t s t o a h i g h er st an d ard d u e to

t h e p o s i t i o n s o f po wer t h ey h ol d

. T h i s i n t eres t i s ex p res s ed b y o ffen s es , i n ad d i t i o n

t o th e on e at is s u e, th at ap p ly s p eci fi cal l y t o or in creas e t h e p en al t y i f co m m i t t ed by

4 Des pi t e ack n o wl ed g i n g t h e s i m i l ari t y b et ween b ri b ery an d co erci o n , an d

reco g n izi n g t h e l eg i ti m at e s weep o f t he s t at u te, t he co u rt o f ap p eal s n ev ert h el es s fo l l o w ed t h e rat io nal e of S t a t e v. Ha n s o n , 7 9 3 S.W .2 d 2 7 0 (Tex

. Ap p

. – W aco , 1 9 9 0,

n o p et .). In t h at cas e t h e d efen dan t
, a Bo sq u e Co un t y J ud g e wh o p res i d ed o v er t h e

co m m i s s io n ers ’ co urt
, t h reat en ed t o el i m in at e fu n d i n g fo r t h e s al ary o f: 1 ) a d i s t ri ct cl erk

, t o co erce t h e d i s t ri ct ju d g e i n to fi ri n g t h e co u n ty au d i t o r; an d 2) an as s i s t an t d i s t ri ct at t o rn ey , t o co erce t h e co u n t y at t o rn ey i n t o rev o k i n g a d efen d an t ’ s p ro b at i o n. Id

. at 2 7 1

. Th e W aco Co u rt d eem ed t h e th reat t o wi th h o l d fu n d i n g to b e p ro t ect ed by

t h e Fi rs t A m en d m en t
, b e c a u s e i t was n ot a “ t ru e t hreat .” Id

. at 2 7 2

, (ci t i n g W a t t s v. Un i ted S t a tes , 3 9 4 U .S. 7 0 5, 7 0 8 (1 9 6 9 )). Bu t t ru e th r e a t s a r e n o t th e o n l y t y p e o f

s p eech t hat i s n o t pro tect ed b y t h e Fi rs t Am en d m en t

. Th e W aco Co u rt d id n o t ad d res s t h e b ri bery / ex t o rt i o n t h eo ry t h e St at e arg u es h ere. Th e W aco Co u rt ul t i m at el y fo u n d

t h e co erci o n s t a t u t e vag u e b ecau s e i t d id n o t d i s ti n g ui sh b et ween a t h reat t o u s e l awfu l au t h o ri t y as o p p os ed t o a t h reat to u se u n l awfu l au th o ri t y

. Id

. at 2 7 2 -7 3

. It

co n cl u d ed th at t he co erci o n s t at u t e w as u n co ns t i t u ti o n al l y v ag u e as ap pl i ed

, an d d id

n o t ad dres s t h e o v erb read t h d o ct ri n e. Id

.

10public se r

va n t s

. S ee T E X

. P E N A L C O D E § 2 2

. 0 2(b )(1 ) (i ncreas ed p en a lty f or a ggr a va te d

as s au l t ); T E X

. P E N A L C O D E § 31 .0 3 (f)(1 ) (i n cr e a s e d p en al t y fo r th eft ); T E X

. P E N A L

C O D E 36

. 0 2 Bri b ery ; T E X

. P E N A L C O D E § 3 6.0 4 Im p ro per i nfl u en ce; T E X

. P E N A L

C O D E §3 6 .0 7 Accep t an ce o f Ho n o ra r i u m ; T E X

. P E N A L C O D E § 3 6.0 8 G i ft t o Pu b l i c

Serv an t b y Pers o n Su b

ject t o hi s J u ri s d i ct i o n ; T E X

. P E N A L C O D E § 3 9

. 0 2 Ab u s e o f

Offi ci al Cap aci t y , T E X

. P E N A L C O D E § 39 .03 ( O f f ic ia l O ppr e ssion); T E X

. P E N A L C O D E

§ 3 9 .0 6 (M i s u s e o f Offi ci al In fo rm at io n ). In ad d i t i o n , p u b l i c s erv an t s are req u i red to

t ak e o at h s o f offi ce an d ab i d e b y et h i cal ru l es an d co d es of co n d uct t hat d o n o t ap p l y

t o p ri v at e ci t i zen s

. 5

5 “ W h en a ci t i zen en t ers g o v ern m en t s erv i ce, t h e ci t i zen b y n eces si ty m u s t accep t
cert ai n l i m i t at i o n s o n h is o r her freed o m .” Ga rcet t i v. Ceb a l l o s , 5 47 U.S. 4 1 0 , 4 1 8 (2 0 0 6). Ga r cet t i ex pl ai n ed t h at ,“ Em p l o y ers hav e hei g h t en ed i nt eres t s i n co nt ro l l i n g

s p eech m ad e b y an em

p lo y ee i n h i s o r h er p ro fes s io n al cap aci t y .” Id

. at 4 2 2. It al s o

n o t ed th at
, wh il e a “ d el icat e b al an ci n g o f t h e co m p et i n g in t eres ts s u rro u n d i n g t h e

s p eech an d i ts co ns eq u en ces ” m u s t o ccu r wh en an em

p l o y ee s p eak s as a c i t i zen ,

“ wh en

. .. t h e em

p l o y ee i s s i m

p l y p erfo rm i ng h i s o r h er jo b d u t i es , t h ere i s n o warran t fo r a s i m i l ar d eg ree o f s cru t i n y .” Id . at 4 2 3

. Ga r cet t i was an em p l oy m en t l aw cas e,

an d arg u ab l y , wh en t h e St at e cri m i n al i zes s p eech

, i t i s act in g no t as an em p l o y er, b ut

as a s o v erei g n

. Bu t wh en on l y t h e s p eech o f p u b l i c o f f i ci al s is b ei ng cri m i n al i zed

an d t h e p ro s ecu ti o n i nv o l v es a St at e em p l o y ee, th e St at e i s act i ng i n t h e d u al ro l e o f

s o v erei g n / em

p l o y er an d t h e p u b l i c s erv an t , as a ci t i zen / em p l oy ee.

11It i s n o t ewo rt h y t h at t h e ex cep t i o n to t he co erci o n s t at u t e ex em p t s o n l y

m em b ers o f t h e s am e go v ern i n g b o d y

. 6 Th i s ex p res s es t h e l eg i s l a tu re’ s v i ew t h at

co erci o n m ay b e ap p ro p ri at e bet ween m em b ers o f t h e sam e b ran ch o f g o v ern m en t o n

a l ev el p l a y i ng fi el d

. Bu t t he L eg i s l at u re d rew t h e l i n e at u s in g co erci o n o u t s i d e a

p u b l i c serv an t ’ s s p h ere o f i n fl u en ce, in areas wh ere h e wo u l d n orm a l l y h a v e n o

l ev erag e o v er an o t h er p u bl ic s erv an t ’ s ex erci s e o f p o wer.

Ov erbrea dth i s no t rea l i s ti c o r s ubs ta nti a l

“ To s u cceed i n [an o v erb read t h ] ch al l en g e, ap p el l an t m us t d em o ns t rat e fro m

t h e t ex t o f [t h e s t a t u t e] an d fro m act u al fact t h at a su b s t an t i al n u m ber o f i n s t an ces

ex i s t i n wh i ch t h e [l ] aw can n ot b e ap p li ed co ns t i t u ti o n al l y .” N.Y

. S ta t e Cl u b As s ’n v.

Ci t y o f New Y o r k , 4 8 7 U.S. 1 , 1 4 (1 98 8 ). “ Th ere m u s t b e a real i s t i c d an g er t h at t h e

s t at u te i t s el f wi l l s i g n ifi can t l y co m p ro m i s e reco gn i zed Fi rs t Am en d m en t p ro t ect i on s

o f p art i es n o t b ef

o re t h e Co u rt fo r i t t o b e faci al l y ch al l en g ed o n o v erb read th

g ro u nd s .” Memb er

s o f Ci t y Co u n ci l of Lo s An gel es v. Ta x p a y er s f o r V i n cen t , 4 6 6

6 “ It is an ex cep t i o n t o t h e ap p l i cat i o n of Su b s ect i on (a)(1 ) o f t h i s s ect i o n t h at t h e p ers o n w h o i n fl u en ces o r at t em p t s t o i n fl u en ce t h e p u bl i c s erv an t i s a m em b er o f t h e g o v ern i n g b o d y o f a go v ern m en t al en t it y , an d t h a t t h e act io n t h at i nfl u en ces o r at t em p t s t o i n fl u en ce t h e p ub li c s erv an t i s an o ffi ci al act i on t ak en by t h e m em b er o f

t h e g o vern i n g b od y

. Fo r t h e p u rp o s es o f t h i s s ub s ect i o n , t h e t erm ‘ o ffi ci al act i o n ’ i n cl u d es d el i b erat io n s b y t h e g o v ern in g b o d y o f a g o v ern m en t al en t i t y .” T E X

. P E N A L C O D E § 3 6.0 3 (c).

12U.S. 7 8 9

, 8 0 1 (1 9 8 4 ).

Th e co u rt o f ap p eal s d is cu s s ed s ev eral i ns t an ces o f co n s t i t ut i o nal l y -p ro t ect ed

s p eech t h at wo u ld b e in cl u d ed i n t h e s t a t u t e ’ s p l ai n l y l eg it i m at e s weep

. Ex p a r t e

Per r y , Sl i p o p

. at 5 8 -6 0

. N ot o n l y were m o s t u nreal i s ti c, m an y were n o t co v ered by

t h e s t at u t e an d t h ere h as b een n o s h o wi n g i n “ act ual fact ” o f an y ch i l l i n g effect

.

Fo r ex am p le, th e co urt o f ap p eal s h el d t h at as a res ul t o f t h i s s t a t u t e, “ A

m an ag er co u l d n ot t h reat en to f i l e o r d em o t e a g o vern m en t em p l o y ee fo r p o o r

p erfo rm an ce.” Id

. at 5 8. Th i s s i t u at i on is n o t co v ered b y th e s t at u te b ecau se i t d o es

n o t fi t t h e d efi n i t i o n of “ co erci o n

. ” Th e m an ag er i s n o t “ t ak [i n g ] o r w i t hh o ld act i o n

as a p u b l i c s erv an t ; ” h e i s t ak i n g act i o n as an em p l o ye r o r m an ag er o v er h i s

s u b o rd i n at e. S

ee Pi cker i n g v. Bo a r d o f Ed u ca t i on , 3 9 1 U.S. 5 63

, 5 68 (1 9 6 8 )

(d i s c u s s i n g v ari o u s ro l es p l ay ed b y b o th t h e em p l o y er an d t h e em

p l o y ee as ei t h er

em pl o y er/ s o verei g n o r em

p l o y ee/ p ri v at e ci t i zen )

. 7 An d t h e m ana ge r i s not at t em p t i n g

t o i n fl u en ce t h e em

pl o y ee i n “ a s p e ci fi c ex erci s e o f h i s offi ci al p o wer o r a s p eci fi c

p erfo rm an ce o f h i s o ff

i c i a l d u ty .” As th e co u rt o f ap p eal s n o t ed

, b y referri n g t o a

s pe c ific e x erci s e o f p o wer or p erfo rm an ce o f d u t y , t h e s t at ut e d em o n s trat es “ t hat s o m e

p art i cu l ar act i o n o r co n du ct b y t h e p u b li c s erv an t m u s t b e so u gh t an d n o t m erel y

7 Th e em p l o y er/ em

p l o y ee s t at us wo ul d al s o ap p l y to t h e c o urt o f ap p eal s ’ h y p o t h et i cal ab o u t a u n i v ers i t y ad m i n i st rat o r t h reat en i n g t o wi t h d raw fu nd i n g fro m a p ro fes s o r’ s res earch p ro g ram

. Ex p a rt e Per r y , Sl ip o p

. at 5 9

.

13s o m e effect o n t he p u b l i c s erv an t ’ s g en eral co m p o rt m en t i n offi ce.” Ex pa r t e Per r y ,

Sl i p op

. at 4 9 -5 0

. An em p l o ye e ’s j o b p erfo rm an ce fi t s t h e d es cri p ti o n o f “ g en eral

co m p o rt m en t i n o ffi ce.” 8

Fi n al l y , t h e h y

p o t h et i cal s reg ard i n g a t ri al ju d g e’ s t hreat t o d ecl are a m i s t ri al

o r an ap p el l at e ju dg e’ s t h reat t o fi l e a d i ss en t i n g o p i n i o n are al s o no t co m p el l i n g.

T hey d o n o t m eet t h e Pen al Co d e § 1 .0 7 d efi n i t io n o f co erci o n , wh i ch req u i r e s a

t h reat

. Th es e act i o n s wo u l d n o t l i k e l y b e t ak en as t hreat s b ecau s e t h ey d o n ot

“ co m m un i cat e[] [an ] i nt en t t o i n fl i ct h arm or l o s s on an o th er o r an o t h er’ s p ro p ert y .”

Ol i va s , 2 0 3 S.W .3 d at 34 5 -4 6

. An y o t her ty p e o f b arg ai n in g t o ol co m m o n l y u s ed in

t h e go v ern m en t al real m i s n o t co v ered b y th e s tat u t e; o n l y t h os e t hreat s t h at p o rt en d

h arm s uffi ci en t t o ca u s e d u res s are i n cl u d ed

. Ap pel l at e ju dg es m ak e ch an g es to

p ro p o s ed o p in io n s t o gai n co n s en s u s o r b ecau s e t h ey h av e b een p ers u ad ed t h at t h e

wo u l d -b e d i s s en t er’ s l eg al arg u m en t i s m o r e co rrect th an t h e vi ew o ri g i n al l y

p ro p os ed

, n o t b ecau s e t hey h av e b een fo rced to t ak e a d i ff e r e n t s t an ce u n der t h reat

o f h arm o r l o s s of p ro p ert y . On l y b y ex ceed i ng t h e p l ai n m ean i n g o f t h reat can t h e

co u rt o f ap peal s cl ai m s uch a l arg e am o u n t o f co n s t i t ut i o nal l y p ro t ect ed s p eech

.

8 Th e co u rt o f ap p eal s ’ h y p o t h et i cal s ab o u t an i n s p ect or g en eral t h reat en i n g to i n v e s t i g a t e an ag en cy ’ s fi n an ci al d eal i n g s an d a p ro s ecu t o r’ s t h reat t o p ro s ecu t e a p u b l i c s erv an t are al so in v al i d fo r t h i s reas o n

. Th e t h reat s are n o t ai m ed at i n fl u en ci n g t h e ex erci s e o f a s peci fi c p o wer o r d u t y

.

14Chi ll i ng effect i s no t rea l i s ti c

Ev en as s u m i n g t h e v al i d i t y o f s o m e o f t h e co urt o f ap peal s ’ h y p o t h et i cal s , 9

t h ere i s n o ev i d en ce t hat i n th e y ears s in ce th e co erci o n s t a t u t e was en act ed

, an y

p u b l i c s e r v a n t h as b een ch i l l ed

, i .e. , h as ab s t ai n ed fro m an y of t h e v al i d s peech t h e

co u rt o f ap p eal s m ai n t ai n s i s co v ered b y t h e s t at ut e. Th e o v erreach o f t he s t at u t e h as

n o t b een d em o n s t rat ed t o be real i s t i c o r s u b s t an t i al

. “ Al th o u g h [b ro ad ly wo rd ed

l aws ]

, m ay d et er p ro t ect ed s p e e ch t o s o m e u n k n o w n ex t en t, t h ere co m es a p o i nt

wh ere t hat effect

— at b es t a pred i ct i o n

— can no t
, wi t h co n fi d en ce, ju s ti fy i n val i d at i n g

a s t at u t e o n i t s face.” Br o a d r i ck

, 4 1 3 U.S. at 61 5

. W h en a l a w i s n o t s u b s t a n t i a l l y

o v erb ro ad

, “ wh at ev er o verb read t h m ay ex i s t s h o u l d b e cu red t h ro u g h cas e-b y -cas e

an al y s i s of t h e fact s i t u at i o n s t o wh i ch i t s s an ct i o n s , as s ert ed l y , m ay n o t b e ap p l i ed .”

Id . at 6 1 5 -1 6

.

Th ere i s n o d eb at e th at t h e p l ai n l y l eg i ti m at e s weep o f t h e s t at u t e in cl ud es act s

o f i n fl u en ce p ed d l i n g , b ri b ery , an d ex t o rt i o n

. Bu t i t s p l ai n l an g u ag e cri m i n al i zes few

o f t h e h y p o th et i cal s rel i ed u p o n b y t h e co u rt o f ap p eal s t o es t ab l i s h a s u b s t an t i al

am ou n t o f p ro t ect ed s p eech rel at i v e t o t h at l eg i t i m at e s weep

. I f

, a s a p p l i ed to

Ap p el l an t
, t h e s t at u t e i s u n co n s t i t u t i o n al

, th at d et erm i n at i o n can b e m ad e at t ri al aft er

9 S ee Un i ted S t a tes v. W

il l i a ms , 5 5 3 U.S. 2 8 5

, 30 1 (2 0 0 8 ) (n o ti ng “ t h e t en d en cy

o f o u r o v erb read t h d o ct ri n e t o s u m m o n fo rt h an en d l es s s t ream o f fa n c i f ul h y p o t h et i cal s .”).

15t h e ev i d en ce i s k no w n i ns t ead o f s pecu l at i n g ab o u t wh et h er u n kn o wn p art i es ’ Fi rs t

Am en d m en t ri g h t s h av e b een ch i l l ed

.

16PRAYER FOR RELI EF

W HEREFORE, t h e St at e o f Tex as p ray s t h at t hi s Co u rt rev ers e th at p art o f t h e

d eci s i o n o f t h e c o u rt o f ap p eal s h o l d i n g T E X

. P E N A L C O D E § 36 .0 3 (a)(1 ),

i n co rp o rat in g T E X

. P E N A L C O D E § 1 .0 7 (a)(9 )(F) faci al l y un co n s ti t u t i on al an d

o t h erwi s e affi rm

i t s d eci s io n

.

Res p ect fu l l y s u b m i t t ed

,

/ s / LISA C. M cM INN LISA C. M cM INN St at e Pro secu t i n g At t orn ey Bar I.D. No . 1 3 80 3 3 0 0

P.O. Bo x 1 3 0 46 Au s t i n , Tex as 7 8 7 1 1 i n fo rm at i o n @ sp a.t ex as .g o v 5 1 2 / 46 3 -1 6 60 (Tel ep ho n e)
5 1 2 / 4 6 3 -5 7 2 4 (Fax )

17CERTI FI CATE OF COMPLI ANCE

Th e u nd ers i g n ed cert i fi es t h at acco rd i n g t o t h e W o rd Perfect wo rd co u n t t o ol

t h i s d o cu m en t co nt ai n s 4 4 4 6 wo rd s

.

/ s / LISA C. M cM INN LISA C. M cM INN St at e Pro s ecu t i n g At t o rn ey

18CERTI FI CATE OF SERVI CE

Th e u n d ers i g n ed cert i fi es t h at o n t hi s 2 1 s t d ay o f Oct o ber 20 1 5, t h e St at e’ s

Bri ef o n t h e M eri ts o f th e S t a t e’ s Pet i t i o n fo r Di s cret i o n ary Rev i ew was s erv ed v i a

cert ifi ed el ect ro n i c s erv i ce p ro vi d er t o :

An t ho n y G. Bu zb ee Tb u zb ee@ t x at t o rn ey s

. co m

Dav id L. Bo t sfo rd d b o t s fo rd @ ao l.co m

Th o m as R. Ph i l l i p s t o m .p h i l l i p s @b ak erb o t t s .co m

M i ch ael M cCru m

m i ch ael @ M cCru m l aw.co m

Dav id Go n zal ez d av id @ s g -l l p .co m

/ s/ LISA C. M cM INN LISA C. M cM INN St at e Pro s ecu t i n g At t o rn ey

19