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Opinions of the Colorado Supreme Court are available to the public and can be accessed through the Courts homepage at http://www.courts.state.co.us. Opinions are also posted onDATE the FILED: April 7, 2014 CASE NUMBER: 2013SA306 Colorado Bar Association homepage at www.cobar.org ADVANCE SHEET HEADNOTE April 7, 2014 2014 CO 24 No. 13SA306, Hanlen v. GesslerElection LawRulemaking AuthorityEmergency Election RulesSchool District Director Elections. In this case, the supreme court considers whether the Secretary of State acted in excess of his rulemaking authority in promulgating Rule 10.7.5. Rule 10.7.5, promulgated as a temporary or emergency rule, permits designated election officials to determine, after ballots have been printed, that an individual appearing on the ballot is not qualified for office, and directs that votes cast for that individual are invalid and must not be counted. The supreme court holds that Rule 10.7.5 conflicts with the election code, and is therefore void. As a rule of general applicability, Rule 10.7.5 conflicts with section 1-4-1002(2.5)(a), C.R.S. (2013). Rule 10.7.5 also contravenes the election code by permitting a designated election official to usurp the courts express authority to determine issues regarding a candidates eligibility that arise following certification to the ballot. Accordingly, the supreme court affirms the judgment of the trial court on different grounds, and does not reach the question of whether Rule 10.7.5 conflicts with section 22-31-129, C.R.S. (2013), regarding school district director vacancies.
Plaintiffs-Appellees: Nicole S. Hanlen, Lynn D. Ussery, James H. Joy, June Marie McNees, Kelly L. McNees, Karen Marquez, Meagan Gabaldon, and David J. Rodenbaugh, v. Defendant-Appellant: Scott Gessler, in his official capacity as Colorado Secretary of State, Defendants-Appellees: Karen Long, as Clerk and Recorder for the County of Adams, State of Colorado; Jim F. Candelarie, as Clerk and Recorder for the City and County of Broomfield; and Frances E. Mullins, as Designated Election Official for Adams 12 Five Star School District.
JUSTICE MRQUEZ delivered the Opinion of the Court. JUSTICE EID dissents, and JUSTICE COATS joins in the dissent.
This case concerns judicial review of Election Rule 10.7.5, which was promulgated by Colorado Secretary of State Scott Gessler (Secretary) as a temporary or emergency rule on the evening of the November 5, 2013 election. Plaintiffs are registered electors of Adams 12 Five Star School District (Adams 12) who brought suit against the Secretary and local election officials following the Adams 12 school district director election.
Plaintiffs complaint raised two claims. First, Plaintiffs sought judicial review of the Secretarys authority to promulgate Rule 10.7.5, which permits a designated election official to determine, after ballots have been printed, that an individual appearing on the ballot is not qualified for office, and directs that votes cast for that individual are invalid and must not be counted. Second, Plaintiffs sought an order directing the Clerk and Recorder of Adams County, the Clerk and Recorder of the City and County of Broomfield, and the Adams 12 designated election official (collectively, election officials) to comply with their statutory duties under the election code by completing the vote count and certifying the vote tally for all candidates in the school district director election.
certify the vote count for all candidates in the Adams 12 director district 4 election. The Secretary seeks review of whether Rule 10.7.5 is contrary to and in conflict with existing election statutes. Secy Appl. for Review Pursuant to 1-1-113(3), C.R.S., at 14.
The Secretary has emphasized that Rule 10.7.5 is a rule of general applicability, meaning that it applies to all elections subject to the Secretarys authority, and not just the school district director election underlying this case. We need not address whether the Rule conflicts with section 22-31-129 regarding school district director vacancies or resolve the parties competing interpretations of that provision, because we conclude that, as a rule of general applicability, Rule 10.7.5 conflicts with the election code, and is therefore void.
and non-partisan elections, including a situation governed by section 1-4-1002(2.5)(a). However, contrary to the statutory provision, Rule 10.7.5 directs that, where a designated election official has determined that a person appearing on the ballot is not qualified for office, any votes cast for that person are invalid and must not be counted.
courts interpretation of section 22-31-129, and express no opinion on whether or how that provision applies to the school board election underlying this case.
required by section 1-7-116(1), C.R.S. (2013), such elections are conducted by mail ballot under the supervision of, and subject to rules promulgated in accordance with article 4 of title 24, C.R.S., by, the secretary of state. 1-7.5-104, C.R.S. (2013).
Section 22-31-107(1), C.R.S. (2013), provides that [a]ny candidate for the office of school director of a school district shall have been a registered elector of the district for at least twelve consecutive months prior to the election. Additionally, where a school district elects directors under a director district plan, a candidate for a particular director district shall be a resident of the director district that will be represented. 22-31-107(1). A person who wishes to be a candidate for school director must file a written notice of intention and a nomination petition with the secretary of the school district board of education. 22-31-107(2); see also 1-4-803, C.R.S. (2013) (setting forth requirements for nomination petitions for school district director candidates). Upon receiving the nomination petition, the school boards designated election official1 . . . shall review all petition information and verify the information against the registration The school districts board of education govern[s] the conduct of all school elections in the district . . . [and] designate[s] an election official who shall be responsible for conducting the election. 22-31-103(1), C.R.S. (2013).
records, and, where applicable, the county assessors records. 1-4-908(1), C.R.S. (2013). Upon determining that the candidates petition is sufficient (and following the five-day period for protest), the designated election official certifies the candidate to the ballot. 1-4-908(3). In a coordinated election, the designated election official also notifies the coordinated election official of the candidates certification.2 Id.
encompasses parts of Adams and Broomfield Counties; accordingly, this election was conducted as a coordinated election pursuant to sections 22-31-105(2) and 1-7-116, C.R.S. (2013).
The Adams 12 school board is composed of five directors.
designated election official reviewed the petitions and certified both candidates to the ballot.
distributed,3 and mail ballot voting was underway, the designated election official discovered that the address Speers had provided on her nomination petition was not Coordinated school district director elections are conducted by the county clerk and recorder. See 22-31-103(2), C.R.S. (2013).
Section 1-7.5-107(3)(a)(I), C.R.S. (2013), requires ballots to be mailed to eligible electors not less than eighteen days prior to the election.
located within the boundaries of director district 4.4 The designated election official concluded that Speers was ineligible for the office and sent a letter to Speers requesting that she withdraw her candidacy. Although Speers did not contest the designated election officials statements regarding her ineligibility, she did not concede that she was ineligible, nor did she file an affidavit of withdrawal pursuant to section 1-4-1001(1), C.R.S. (2013). On November 1, as voting continued, the designated election official sent letters to the Adams and Broomfield Clerks and Recorders, requesting that they withdraw Speers name as a candidate. As of election day, November 5, no protest or formal proceeding had been commenced to seek to disqualify Speers or to adjudicate her eligibility to be a candidate. Having received no indication from Speers that she intended to withdraw, the clerks informed the Secretary that they planned to count all the votes cast in the election.
provides: If the designated election official determines, after ballots are printed, that an individual whose name appears on the ballot is not qualified for office, the votes cast for that individual are invalid and must not be counted.
In 2011, Speers sought unsuccessfully to be appointed to fill a vacancy in director district 4. At that time, Speers address was located in district 4. However, in May 2012, the district redrew its boundaries for school board members, apparently placing Speers residence outside of the redrawn district 4. Counsel for the designated election official represented to the district court that the election official did not verify Speers address under the newly-drawn district boundaries prior to certifying her to the ballot.
C.R.S. (2013), as statutory authority for the rule.5 That provision states that no person is eligible to be a candidate for office unless that person fully meets the qualifications of that office as stated in the constitution and statutes of this state on or before the date the term of that office begins. Id. Section 1-4-501(1) further provides that a designated election official shall not certify the name of any candidate who fails to swear or affirm under oath that he or she will fully meet the qualifications of the office if elected and who is unable to provide proof that he or she meets any requirements of the office relating to registration, residence, or property ownership. Id.
temporary rule states: If a designated election official mistakenly certifies an ineligible candidate to the ballot and does not discover the mistake until it is too late to correct the ballots, electors might cast votes for the ineligible candidate. Thus, the statement explains, Rule 10.7.5 is necessary to clarify that all votes cast for an ineligible candidate under the above scenario are invalid.
Nothing in the Secretarys statement of basis and purpose or statement of justification and reasons for adoption of the temporary rule refers to section 22-31-129 or indicates that the rationale for the rule was to prevent an ineligible candidate from being deemed duly elected for purposes of that provision.
against the Secretary under section 24-4-106, C.R.S. (2013), of the Administrative Procedures Act (APA), seeking judicial review of Rule 10.7.5. Plaintiffs brought a separate claim under section 1-1-113, C.R.S. (2013), to compel the election officials to complete the vote count and certify the election results.7 The district court held a forthwith hearing on November 18, 2013.
adjudication or formal determination of Speers alleged ineligibility.
challenge the designated election officials statements regarding Speers residency, however. Instead, Plaintiffs argued that the Secretary lacked authority to direct that votes cast for Speers are invalid and must not be counted. Plaintiffs argued that, under the election code, once ballots have been printed and voting is underway, votes cast for a candidate who appears on the ballot are invalid and shall not be counted only where the candidate has died or withdrawn. 1-5-412(3), C.R.S. (2013). Plaintiffs argued that Speers did not come within the no-count circumstances of section 1-5-412(3) because she had neither died nor withdrawn, and that the Secretarys with Rule 10.7.5, the Broomfield Clerk and Recorder clicked the box indicating that Speers had withdrawn, so that votes cast for her did not appear in the report. Section 1-1-113(1) provides for jurisdiction in the district court when any eligible elector files a verified petition in a district court of competent jurisdiction alleging that a person charged with a duty under [the election] code has committed or is about to commit a breach or neglect of duty or other wrongful act.
rulemaking authority did not permit him to expand the limited statutory no-count circumstances identified in the statute.
vacancy procedure in section 22-31-129, C.R.S. (2013), which authorizes the school board to appoint a person to fill a vacancy in a school district director office. Under this provision, a vacancy arises where, for example, the person who was duly elected or appointed . . . is or becomes during the term of office a nonresident of the director district which the director represents, or where a court of competent jurisdiction voids the officers election . . . or removes the person duly elected . . . for any cause whatsoever. 22-31-129(1)(d), (f) (emphasis added). Plaintiffs argued that if Speers garnered more votes than her opponent, then either her non-residency in district 4 upon commencement of her term of office, or her disqualification as a candidate for that office, would trigger a vacancy under section 22-31-129. However, because Rule 10.7.5 barred election officials from counting any votes cast for Speers, the true vote tally could not be known, and it would be impossible to determine whether the vacancy provision was triggered.
that section 1-5-412(3) prohibits the counting of votes only where a candidate has died or withdrawn after the ballots have already been printed. See 1-5-412(3). However, the Secretary argued that the no-count circumstances of section 1-5-412(3) are not exclusive, and noted, for example, that section 1-4-1101(2), C.R.S. (2013), prohibits counting votes cast for a write-in candidate who has not filed an affidavit of intent. The Secretary maintained that the election code is silent with respect to whether election officials may count votes cast for an ineligible candidate who is mistakenly certified to the ballot. The Secretary argued that Rule 10.7.5 is therefore necessary to fill in this perceived gap in the election code.
section 22-31-129(1)(d), which provides that a vacancy occurs where the person who was duly elected . . . is or becomes during the term of office a nonresident of the director district which the director represents. The Secretary argued that logic dictates that a candidate who is ineligible to hold office can never be duly elected. Because the vacancy provision applies only to persons who are duly elected, the Secretary argued that a candidate who was certified to the ballot, but is nonetheless ineligible, cannot trigger a vacancy under section 22-31-129(1)(d).
The court takes judicial notice of the official vote tally, as published on the Colorado Secretary of States website. In Adams County, Speers received 19,180 votes, and Figueroa received 10,971. In Broomfield County, Speers received 4,989 votes, and Figueroa received 3,110 votes. Accordingly, Speers received a total of 24,169 votes (63.19% of the total votes cast) and Figueroa received a total of 14,081 votes (36.81% of the total votes cast). See http://results.enr.clarityelections.com/CO/Adams/48373/ 123545/en/summary.html.; http://results.enr.clarityelections.com/CO/Broomfield/ 48379/123665/en/summary.html.
The Broomfield district court has allowed the Secretary and the Plaintiffs in this case to intervene in the election contest.
section 1-1-113(3). The Secretary contends that the district court lacked jurisdiction to hear the claims below because section 1-1-113 does not permit review of controversies arising from an alleged breach of duty or other wrongful act occurring on or after election day. The Secretary also argues that Rule 10.7.5 is not contrary to or in conflict with existing statutes.
of general applicability, meaning that Rule 10.7.5 applies to all elections subject to the Secretarys authority, and not merely the school district director election underlying this case. The Secretarys position is reinforced by the plain language of the rule itself, as well as the accompanying statement of basis and purpose, which do not limit the Rule to school board elections, or even to nonpartisan elections.
We take judicial notice of the Broomfield election contest as it relates to this proceeding. See Vento v. Colo. Natl Bank, 985 P.2d 48, 52 (Colo. App. 1999) ([A] court may take judicial notice of the contents of court records in a related proceeding.). We express no opinion as to the merits of that contest.
section 1-4-1002(2.5)(a) by directing that, where a designated election official has determined that a person appearing on the ballot is not qualified for office, any votes cast for that person are invalid and must not be counted.
lacked jurisdiction to grant relief under section 1-1-113. The Secretary argues that Although the Secretary indicated at oral argument that a future permanent rule could be modified, this possibility does not alter our analysis. The question before us is whether Rule 10.7.5, as promulgated, contravenes existing statutes. Unidentified potential future amendments to the Rule do not inform our decision as to whether the Rule was originally promulgated in excess of the Secretarys rulemaking authority.
section 1-1-113 applies only to controversies arising from a breach or neglect of duty or other wrongful act that occurs prior to the day of an election. According to the Secretary, the district court lacked jurisdiction to grant relief here because Plaintiffs complaint concerned matters that occurred on or after election daynamely, the promulgation of Rule 10.7.5 and the counting of votes.
Plaintiffs brought separate claims against the Secretary and the election officials.
Secretary concedes that Plaintiffs properly challenged Rule 10.7.5 under section 24-4-106(4) in the district court. The district court relied on section 24-4-106(7) when it concluded that the Secretary acted in excess of his rulemaking authority in promulgating Rule 10.7.5. The Secretary seeks review of that ruling here.
directing the election officials to substantially comply with their statutory duties to complete and certify the vote count. The district court acted under this provision when it ordered the election officials12 to complete the vote count and certify the vote tally. The election officials do not appeal that order. Thus, the only issue properly before us on appeal is whether the Secretary acted in excess of his rulemaking authority under the APA.
Although the district court ordered all defendants to perform their statutory duty to complete and certify the vote count, as a practical matter, this directive applied only to the election officials responsible for conducting the vote count, and not the Secretary.
district court proceedings under section 1-1-113 may be reviewed and finally adjudicated by this court, unless this court, in its discretion, declines jurisdiction. See 1-1-113(3). However, the district courts ruling against the Secretary was based solely on section 24-4-106(7) of the APA, not section 1-1-113. Accordingly, we do not have appellate jurisdiction under section 1-1-113(3) to review that ruling here. That said, section 24-4-106(9) of the APA provides that when an agencys rulemaking authority is challenged, the decision of the district court shall be subject to appellate review as may be permitted by law or the Colorado appellate rules. Under Colorado Appellate Rule 21, we may exercise our original jurisdiction to review the district courts order invalidating the Rule, notwithstanding that the Secretary has captioned his appeal under section 1-1-113.
within the discretion of the court. Fognani v. Young, 115 P.3d 1268, 1271 (Colo. 2005). We will exercise this extraordinary jurisdiction to review whether the trial court abused its discretion in situations where the petition raises an issue of first impression that is of significant public importance, and where the normal appellate process would prove inadequate. People v. Voth, 312 P.3d 144, 148, 2013 CO 61, 12. We conclude that exercise of our original jurisdiction is warranted in this case because the trial courts order invalidating Rule 10.7.5 raises an issue of significant public importance relating to election procedures, and this election matter warrants expedited resolution.
compliance with the requirements of this section would be contrary to the public interest and makes such a finding on the record. 24-4-103(6)(a).
votes cast for a candidate appearing on the printed ballot are deemed invalid and shall not be counted; namely, where the candidate has died or withdrawn.
See 1-5-412(3).14 The Secretary argues that his rulemaking authority permits him to also deem invalid any votes cast for a candidate who is mistakenly certified to the Rico Figueroas claims in the Broomfield election contest are grounded in sections 1-11-201(1)(a) and -(1)(e). His complaint does not mention section 22-31-129. Regardless, any interpretation of section 22-31-129 made by the Denver District Court in this action is in no way binding in the Broomfield action.
The Secretary argues that the circumstances in section 1-5-412(3) are not exclusive. He cites to section 1-4-1101(2), C.R.S. (2013), which prohibits counting write-in votes cast for an individual who has failed to timely file the required affidavit of intent to run as a write-in candidate. The Secretary contends that this provision reflects the general principle that votes shall not be counted for an individual who fails to meet the qualifications for office, and that the Rule simply extends this general principle to candidates who mistakenly appear on the ballot. However, the affidavit requirement for write-in candidates in section 1-4-1101(2) is more analogous to an election officials initial determination of the candidates eligibility. As discussed in this opinion, once a candidate has been deemed eligible and certified to the ballot, the candidate can be adjudicated ineligible only by a court of competent jurisdiction. And, once ballots are printed, votes cast for a candidate appearing on that ballot are not counted only where the candidate has died or voluntarily withdrawn, see 1-5-412(3), or where the candidate attempted but failed to withdraw in time to be removed from the ballot, see 1-4-1001(1) ([I]n the event the withdrawal of candidacy is not made in time for the candidates name to be taken off the ballot, any votes cast for the candidate sh all be deemed invalid and shall not be counted.). In an amicus brief, Rico Figueroa likewise argues that the no-count circumstances in section 1-5-412(3) are not exclusive. Figueroa cites to section 1-7-309(1), C.R.S. (2013), which prohibits the counting of votes if an elector marks more names than there are persons to be elected to an office or if for any reason it is impossible to determine the electors choice of candidate. However, votes cast on these defective ballots are not counted only where an election judge is unable to determine the electors intent. 1-7-309(4). Such a determination is in no way related to a candidates eligibility.
ballot, and the error is discovered after ballots have been printed. Even assuming the Secretarys rulemaking authority permits him to expand the limited no-count circumstances identified in statutea proposition we highly doubtthe plain language of Rule 10.7.5 conflicts with section 1-4-1002(2.5); accordingly, the rule is void.
circumstances, and such votes can indeed affect the outcome of an election.
than eighteen days before the general election, where the vacancy is caused by the declination, death, disqualification, or withdrawal of any person nominated at the primary election. (Emphasis added). In the event of such a vacancy: [T]he votes cast for the candidate whose declination, death, disqualification, or withdrawal caused the vacancy are to be counted and recorded, and, if the candidate receives a plurality of the votes cast, such vacancy shall be filled after the general election by the respective party vacancy committee. Section 1-4-1002(2.5) is cross-referenced in section 1-5-412(3) as an exception to the no-count mandate for candidates who have died or withdrawn after ballots are printed. See 1-5-412(3) (providing that, if ballots are already printed, the votes cast for the withdrawn or deceased candidate are invalid and shall not be counted [e]xcept in the case of a vacancy to be filled in accordance with . . . section 1-4-1002 . . . (2.5)).
1-4-1002(2.5) (emphasis added). Section 1-4-1002(2.5) thus requires that votes cast for a disqualified partisan candidate be counted in these circumstances, and if the disqualified candidate receives the most votes, the party vacancy committee is permitted to fill the vacancy. As a rule of general applicability, Rule 10.7.5 applies to both nonpartisan and partisan elections. Under Rule 10.7.5, if the designated election official determines, after ballots are printed, that a partisan candidate whose name appears on the ballot is not qualified for office, the votes cast for that individual are invalid and must not be counted. The Rule operates in direct conflict with section 1-4-1002(2.5), and is therefore void.
of the election code that require courts to determine challenges to a candidates eligibility. Once an election official has verified a petition or certificate of designation or nomination and determined that it appears to be sufficient, the election code expressly grants courtsnot election officialsthe authority to determine subsequent questions concerning a candidates eligibility. Under the statutory framework established by the General Assembly, challenges may be brought to a candidates eligibility at various junctures in the electoral process. See 1-4-909(1), 1-4-501(3), and 1-11-201(1), C.R.S. (2013). These challenges may be brought not merely by an opposing candidate, but by any eligible elector. Importantly, at each of these junctures, the election code requires a court, not an election official, to determine the issue of eligibility.
statement of sufficiency or the certificate of designation has been filed with the election official. 1-4-909(1). Such challenges are determined by the district court, not the designated election official. Id.
within five days after the candidate has been certified to the ballot. 1-4-501(3). Where a question of eligibility arises after the candidate has been certified to the ballot, the plain language of section 1-4-501(3) makes clear that the courtnot the election officialmust determine whether the candidate is qualified, specifically, the court shall hear the testimony and other evidence, and within forty-eight hours after the close of the hearing, determine whether the candidate meets the qualifications for the office for which the candidate has declared. Id. (emphasis added).
authority to determine the candidates eligibility.
immediately after the election official issues a statement of sufficiency or a certificate of designation is filed with the designated election official; immediately after a candidate has been certified to the ballot; and again post-election. At each juncture, the power to resolve issues regarding candidate eligibility resides with the courts. This statutory framework also reflects the legislatures recognition that once ballots are printed and distributed, and voting is underway, the election process must be allowed to proceed, and any late-arising issues regarding a candidates eligibility are to be resolved through a post-election contest.
The circumstances of this case are unusual, in that the designated election official neglected to re-confirm Speers address using the recently redrawn district boundaries.
giving designated election officials the unilateral power to determineafter ballots have been printedthat a candidate on the ballot is not qualified for office, and to declare that any votes cast for that candidate are invalid and must not be counted.
certifications, and we assume that election officials act in good faith, the Rule itself places no parameters on a designated election officials authority to deem an individual on the ballot not qualified for office, including where the candidate contests such a determination. In this case, the designated election officials conclusion was based on a seemingly straightforward issue of residencyspecifically, that the candidates residence apparently lies outside of the director district boundaries. However, issues regarding a candidates qualifications for office are not necessarily clear-cut. Even questions of residency might be contested where, for example, a candidate owns more than one home, or where the date residency was established is disputed. See, e.g., Romero v. Sandoval, 685 P.2d 772, 775 (Colo. 1984) (holding that date on voter registration page provides only prima facie evidence of length of residency, and that a candidate may establish the length of his residency within the district by evidence other than the voter registration page if necessary). Under Rule 10.7.5, however, the election official is authorized to unilaterally determine that a candidate is not qualified for office, regardless of the grounds for ineligibility, and irrespective of whether the candidate contests such grounds.
candidate to either: (1) bring a last-minute challenge under section 1-1-113; or (2) wait until after the election and bring an election contest pursuant to sections 1-11-201 and -202.
approach also shifts the burden of proof to the certified candidate.
legislatures statutory scheme, a party challenging the eligibility of a certified candidate has the burden to prove that candidates ineligibility. However, under Rule 10.7.5, the previously certified candidate who is deemed ineligible by an election official after ballots have already been printed is forced to file a last-minute action under section 1-1-113 and prove that she is eligible.
These problems are magnified in a post-election contest.
deemed ineligible by the designated election official ultimately garners the most votes cast, she is hampered in pursuing a contest because she must not only prove her eligibility, but also prove that she received sufficient votes to justify bringing the election contest. See 1-11-201(1)(b), (c), (e). Under the Rule, however, the votes cast for that candidate are not counted, making it impossible for her to know how many votes she actually received, and therefore, whether she has any basis to bring a contest under section 1-11-201(1).
status quo when an ineligible candidate is mistakenly certified to the ballot.
election code requires a certified candidate to withdraw, or suggests that an election official, upon determining that a candidate is not qualified for office, may force a certified candidate to withdraw. Yet by not counting votes cast for a candidate deemed by the election official to be unqualified, Rule 10.7.5 essentially forces a candidate who has not voluntarily withdrawn into the same position as one who has.
election code provisions that require issues regarding a certified candidates eligibility to be resolved by the courts. The Rule is therefore void. Accordingly, we affirm the district courts order, albeit on different grounds. JUSTICE EID dissents, and JUSTICE COATS joins in the dissent.
that the Rule conflicts with the partisan exception to section 1-5-412(3), C.R.S. (2013), which requires that votes be counted in virtually all circumstances so that the disqualified candidates party may fill the vacancy. But this is undisputedly not a partisan election, and there is no argument that the partisan exception should be or has been applied here. The majoritys use of a possible misapplication of the Rule to void the Rule in its entirety turns on its head our obligation to read statutes and regulations as a harmonious whole where possible.
court, not the designated election official, should be the ultimate arbiter of candidate qualifications. With this proposition I wholeheartedly agree. But I would conclude that this is precisely what happened here under the Rule. When the designated election official declined to count the votes of the candidate he had determined to be ineligible due to improper residency, that act was challenged in a court proceeding under section 1-1-113(1), C.R.S. (2013), which in turn has led us to our current review. Ironically, then, by voiding the Rule for lack of judicial review, the majority short-circuits the very judicial review it seeks to protect.
to choose a candidate from the voters to the school board. That this is a serious concern is again demonstrated by the proceedings in this case, where the district court came to the precise conclusion that the candidate was duly elected and the vacancy should be filled by the board appointment process. For all of these reasons, I respectfully dissent from the majoritys opinion.
applicability that would apply to the partisan exception under section 1-5-412(3), which provides that in virtually all circumstances the votes should be counted in order to trigger the party vacancy process. 1 I agree with the majority that application of the Rule in the partisan context would conflict with the partisan exception, and, in fact, the Secretary is considering the issue in ongoing proceedings regarding the promulgation of a permanent rule that would take the place of the temporary rule at issue here. Where I disagree with the majority is that the possible application of the Rule in the partisan context voids the Rule as applied here. Plainly, the partisan exception reflects The general non-partisan vacancy provision of section 1-5-412(3), with the partisan exception emphasized, states: If, before the date set for election, a duly nominated candidate withdraws by filing an affidavit of withdrawal with the designated election official or dies and the fact of the death becomes known to the designated election official before the ballots are printed, the name of the candidate shall not be printed on the ballots. Except in the case of a vacancy to be filled in accordance with the provisions of section 1-4-1002 (2.3) or (2.5) [the partisan vacancy provisions], if the ballots are already printed, the votes cast for the withdrawn or deceased candidate are invalid and shall not be counted. Section 1-4-1002(2.5) provides that if a vacancy is created within 18 days of an election due to the declination, death, disqualification, or withdrawal of a partys candidate, the votes for that candidate shall be counted and, if the candidate prevails, the party vacancy committee shall fill the vacancy. Section 1-4-1002(2.3), meanwhile, provides that if the vacancy occurs more than 18 days from the election, the party vacancy committee shall select a replacement candidate and notice of the substitution shall be provided according to the statutes notice provisions.
challenge that attacks the Rule in all its applications, and even if it were, demonstrating the invalidity in one application (i.e., the partisan context) would not be enough to invalidate the entire Rule. Stated differently, the fact that the Rule is one of general applicability does not mean that it applies in all circumstances.
statutory interpretation. But we are obligated to interpret regulations and statutory provisions as a consistent, harmonious whole where possible, not to maximize discord, as the majority does. See Bd. of Cnty. Commrs. v. Vail Assocs., 19 P.3d 1263, 1273 (Colo. 2001); Regular Route Common Carrier Conference v. Pub. Utils. Comm n., 761 P.2d 737, 745 (Colo. 1988). In my view, as a matter of statutory interpretation, the partisan exception simply demonstrates a specific legislative choice in the area of partisan elections, which area is not implicated here.
procedures set forth in section 1-1-113(1), which we continue to perform today.
Rule 10.7.5 allowed the election official to treat the candidate as the functional equivalent of a withdrawn candidate under section 1-5-412(3), which instructs that the election officials shall not count the ballots for withdrawn candidates, thus setting the stage for a challenge under section 1-1-113.
election official would be left with few options.
1-4-501(3) and 1-4-909(1), C.R.S. (2013) as providing an opportunity to challenge a candidates qualifications. Maj. op. 40. But these provisions create an extremely narrow five-day period in which to challenge the designated election officials initial certification of the candidates eligibility. The short five-day timeframe is intended to give deference to the officials initial determination of eligibility,2 not to deprive him of the ability to fix his own mistakes. In any event, the mistake here was not discovered until after the five-day window had passed, so sections 1-4-501(3) and 1-4-909(1) never came into play.
C.R.S. (2013), as creating an opportunity for review.
A petition or certificate of designation or nomination that has been verified and appears to be sufficient under this code shall be deemed valid unless a petition for a review of the validity of the petition pursuant to section 1-1-113 is filed with the district court within five days after the election official's statement of sufficiency is issued or, in the case of a certificate of designation, within five days after the certificate of designation is filed with the designated election official. 1-4-909(1) (emphasis added).
was the case here), and then turn around and file a post-election contest suit against himself to undo the certified results, since he had known all along that the candidate was ineligible. Rule 10.7.5 avoids this awkward situation. By permitting the election official to treat the ineligible candidate as the functional equivalent of a withdrawn candidate, the Rule fills the gap in judicial review that exists between the initial five-day period and the post-election contest provisions.
selection authority should not be permitted. Cf. Smith v. Cherry, 489 F.2d 1098 (7th Cir. 1973) (holding that allegations that a primary winner withdrew after his victory in order to allow the party committee, rather than voters, to select the partys candidate were sufficient to state a cause of action under the Civil Rights Act).
applicability of section 22-31-129 would be at issue if Rule 10.7.5 were upheld and allowed to play out. The majority seems to believe that it has left those questions open, but by discounting the Secretarys rationale for the Rule and by leaving the district courts rationale in place, its opinion leads inexorably to the conclusion that the candidate was duly elected and that the vacancy should be filled by the board by operation of section 22-31-129. For these reasons, I respectfully dissent from its opinion.
I am authorized to state that Justice COATS joins in this dissent.

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