Opinion ID: 1135176
Heading Depth: 2
Heading Rank: 2

Heading: Compliance with Greene

Text: ¶ 15 Because no evidence was taken by the trial judge, we deal with an issue of law and thus review the trial judge's legal conclusions de novo. Broemmer v. Abortion Services of Phoenix, 173 Ariz. 148, 150, 840 P.2d 1013, 1015 (1992); Tovrea Land & Cattle Co. v. Linsenmeyer, 100 Ariz. 107, 114, 412 P.2d 47, 51-52 (1966). ¶ 16 Greene 's requirement is fairly uncomplicated. We concluded that the purpose of the required analysis is to assist voters in rationally assessing ... [a] proposal by providing a fair, neutral explanation of the proposal's contents and the changes it would make if adopted.... We hold, therefore, that A.R.S. § 19-124(B) requires the legislative council to produce a neutral explanation of ... proposals, avoiding argument or advocacy, and describing the meaning of the measure, the changes it makes, and its effect if adopted. 180 Ariz. at 590-91, 886 P.2d at 1346-47. Put another way, the language must not mislead, be tinged with partisan coloring, or argue for one side or the other. Id. at 590, 886 P.2d at 1346 (quoting Plugge v. McCuen, 310 Ark. 654, 841 S.W.2d 139, 140 (Ark.1992); citing In re. Title, Ballot Title, Submission Clause, and Summary, Adopted August 26, 1991, Pertaining to Proposed Initiative on Education Tax Refund, 823 P.2d 1353, 1354-55 (Colo.1991). ¶ 17 With these principles in mind, we turn to the analysis in question. In doing so, we note that the question is whether reasonable minds could conclude that the Council met the requirements of the law, not whether we believe the judicial system could itself devise a better analysis. See Priestley v. Paulus, 287 Or. 141, 597 P.2d 829, 831 (Ore.1979). By their very nature, most disputes over ballot proposals are contentious. Thus, proponents and opponents are often dissatisfied with the Council's analyses. We cannot settle each of these disputes; our function is only to ensure that a challenged analysis is reasonably impartial and fulfills the statutory requirements defined in Greene. ¶ 18 In challenging the analysis in question, People complains that the Council listed only certain specific drugs other than marijuana and in so doing, picked those most likely to affect the votes of the electorate. In response to the special action petition, People argues that choice of the phrase `analogs of PCP' as opposed to `codeine derivatives' (which could easily have been used instead) or `heroin' as opposed to ... `methadone' are clearly fraught with consequences that could affect the votes.... While it is true that the drugs cited in the analysis are those that might affect voters, it is also true that they are Schedule I substances. Thus citing those drugs was neither inaccurate nor inherently misleading. But while the drugs named unquestionably evoke serious concerns in the minds of most people, even if used for medicinal purposes, it is also true that the chemical names of almost all of the other Schedule I substances would have no meaning whatsoever to the overwhelming majority of voters because they are scientifically complex names of chemical compounds unknown to most lay people. As can be seen in footnote 1, to list and explain in easily understandable terms even a few of these substances might make the entire analysis incomprehensible. ¶ 19 Nor would it help voters to simply identify the drugs generically as those listed on Schedule I or as controlled substances. The use of technical, regulatory terms and language is discouraged by A.R.S. § 19-124(B). Use of terms such as controlled substances, Schedule I, or the chemical names of the drugs, without examples or explanations, would not fairly apprise the voters of the proposition's contents. The record thus supports the Council's argument that it made a good faith effort to choose drugs to list in the analysis that the average voter probably can recognize. We note that the Council conducted a public hearing, heard from People's representatives, and made some changes requested by them. On this record, deference must be given to the Council's judgment. Giving due deference, we cannot say that the Council's use of names most easily recognized by voters is, as a matter of law, so overemphasized as to be misleading, inaccurate, lacking in neutrality, or argumentative. ¶ 20 People also complains that omission of the Drug Enforcement Agency as one of the federal agencies that might need to take action before Proposition 200 would become effective is inherently misleading. We do not agree. Again, we think the analysis makes it reasonably clear to the voters that significant federal action would be required before Proposition 200 could become effective. ¶ 21 For the reasons expressed, we also conclude that the descriptive title language used by the Secretary of State on the ballot, together with the yes/no formulation, does not violate A.R.S. § 19-125.