Opinion ID: 4707464
Heading Depth: 2
Heading Rank: 2

Heading: Review of the Secretary of State’s Decision

Text: [¶16] When the Superior Court acts in its appellate capacity in reviewing the Secretary of State’s final action, “we review directly the Secretary of State’s decision for errors of law, findings not supported by the evidence, or an abuse of discretion.” Reed v. Sec’y of State, 2020 ME 57, ¶ 12, 232 A.3d 202. To determine whether the Secretary of State satisfied the dictates of 21-A M.R.S. § 906(6)(A), we interpret the statute “de novo as a matter of law to give effect to the intent of the Legislature, first by examining its plain language.” Reed, 2020 ME 57, ¶ 14, 232 A.3d 202 (quotation marks omitted). We interpret the statute according to its unambiguous meaning if the plain language is not “reasonably susceptible to different interpretations.” Id. (quotation marks omitted). In interpreting the plain language of a statute, we view the statute in the context of the entire statutory scheme to achieve a harmonious result. Me. Green Party v. Sec’y of State, 1997 ME 175, ¶ 6, 698 A.2d 516. [¶17] “The Secretary of State is the constitutional officer entrusted with administering—and having expertise in—the laws pertaining to the direct initiative process.” Reed, 2020 ME 57, ¶ 18, 232 A.3d 202 (citing Me. Const. 12 art. IV, pt. 3, § 18). Thus, if there is any ambiguity, we will defer to the Secretary of State’s reasonable interpretation of the statute. See id. [¶18] As it applies here, the statute that we must interpret requires the Secretary of State to (A) advise petitioners for a direct initiative of the proper suggested format for submitting initiative questions—a format that calls for dividing separate issues into separate questions and (B) write the question in a clear, concise, and direct manner: Wording of ballots for people’s veto and direct initiative referenda. Ballots for a statewide vote on a people’s veto referendum or a direct initiative must set out the question or questions to be voted on as set forth in this subsection. A. The Secretary of State shall advise petitioners that the proper suggested format for an initiative question is a separate question for each issue. In determining whether there is more than one issue, each requiring a separate question, considerations include whether: (1) A voter would reasonably have different opinions on the different issues; (2) Having more than one question would help voters to better understand the subject matter; and (3) The questions are severable and can be enacted or rejected separately without negating the intent of the petitioners. B. The Secretary of State shall write the question in a clear, concise and direct manner that describes the subject matter 13 of the people’s veto or direct initiative as simply as is possible. 21-A M.R.S. § 906(6) (2021); see also Me. Const. art. IV, pt. 3, § 20 (“[T]he Secretary of State shall prepare the ballots in such form as to present the question or questions concisely and intelligibly.”). [¶19] These requirements of subsection 6 were enacted in 1993, see P.L. 1993, ch. 352, § 3 (effective Oct. 13, 1993), at a time when, unlike now, the ballot question itself circulated as part of the petition form that voters were invited to sign, see 21-A M.R.S.A. § 901(4) (Supp. 1993) (“The question must be conspicuously displayed on the face of the petition.”). As discussed, in 2007, the Legislature omitted the requirement that the question be included in the circulating petition and provided for the question to be finalized by the Secretary of State after the circulation and validation of the petition and a period of public comment. See P.L. 2007, ch. 234, §§ 2, 6 (effective Sept. 20, 2007) (codified at 21-A M.R.S. § 905-A). Section 906(6)(A) was not amended at that time. [¶20] Subsection 6(A) contains no mandatory language requiring the Secretary of State to formulate multiple, separate questions if a petition that has been circulated and validated proposes amendments addressing multiple issues. The language providing that the Secretary of State “shall advise 14 petitioners” of the “proper suggested format” does not similarly mandate action by the Secretary of State if “there is more than one issue.” 21-A M.R.S. § 906(6)(A) (emphasis added). Rather, the statute provides a nonexclusive list of “considerations” for “determining whether there is more than one issue, each requiring a separate question,” without indicating who makes the determination. Id. [¶21] From the language of section 906(6)(A) itself, it is unclear whether the drafter of the petition or its signatories (the petitioners) or the drafter of the question (the Secretary of State) is responsible for determining whether multiple questions must be presented to the voters. It is also unclear when the advice is to be given. Thus, to interpret the plain meaning of subsection 6(A), we examine the context in which it appears. See Me. Green Party, 1997 ME 175, ¶ 6, 698 A.2d 516. [¶22] Subsection 6(A) is followed directly by a provision that imposes a mandate on the Legislature when it drafts a question for a statutory referendum that it enacted: 6-A. Wording of referendum questions enacted by the Legislature. The proper format for a statutory referendum enacted by the Legislature is a separate question for each issue. In determining whether there is more than one issue, each requiring a separate question, considerations include whether: 15 A. A voter would reasonably have different opinions on the different issues; B. Having more than one question would help voters to better understand the subject matter; and C. The Legislature determines the questions are severable and can be enacted or rejected separately without negating the intent of the Legislature. 21-A M.R.S. § 906 (2021). In subsection 6-A, the Legislature establishes that there is a “proper format,” 21-A M.R.S. § 906(6-A)—not a “proper suggested format,” id. § 906(6)(A)—for the Legislature’s question and explicitly makes the Legislature responsible for determining whether “questions are severable and can be enacted or rejected separately without negating the intent of the Legislature,” id. § 906(6-A)(C). This subsection was adopted simultaneously with subsection 6(A) and demonstrates that the Legislature understood how to draft mandatory language but chose not to do so for purposes of people’s vetoes and direct initiatives. See P.L. 1993, ch. 352, §§ 3-4 (effective Oct. 13, 1993). [¶23] Although there is no express indication of why the Legislature mandated that separate ballot questions be written for separate issues when it enacts a statutory referendum, but did not impose a similar direct mandate on the Secretary of State for a direct initiative or people’s veto, the statutory scheme suggests that the difference lies in the distinct roles of the question 16 drafters. For a referendum enacted by the Legislature, the Legislature is the drafter of both the proposed bill and the ballot question, whereas for a direct initiative, the petitioner is the primary drafter of the petition and initiated bill and the Secretary of State is the drafter of the ballot question. See id. §§ 901(4), 906(6)(B), 906(6-A). The process for a direct initiative also requires that the ballot question be written by the Secretary of State only after a petition has been circulated, validated, and presented to the Legislature, making it difficult for the Secretary of State to conclude at the point of drafting that issues addressed in a single initiated bill “are severable and can be enacted or rejected separately without negating the intent of the petitioners.” Id. § 906(6)(A)(3). [¶24] Requiring the Secretary of State to separate provisions of an initiative into multiple questions could infringe on the electors’ right of direct initiative because splintering a single bill that was proposed to be presented for a yes-or-no vote into multiple pieces of legislation might be inconsistent with the intent of those who drafted or signed the petition. The Maine Constitution provides that, with certain exceptions not applicable here, “[t]he electors may propose to the Legislature for its consideration any bill, resolve or resolution.” Me. Const. art. IV, pt. 3, § 18(1) (emphasis added). The Legislature has been understandably cautious in limiting the Secretary of State’s authority to 17 interfere with the intent of the petitioners. Cf. 21-A M.R.S. § 906(6)(A)(3) (listing as a consideration whether “questions are severable and can be enacted or rejected separately without negating the intent of the petitioners”). [¶25] In sum, because subsections 6(A) and (6-A) are worded differently and we construe them to avoid surplusage, we regard as meaningful the Legislature’s distinction between the Secretary of State’s role in drafting a ballot question for citizen-initiated legislation and the Legislature’s own role in drafting a ballot question for a referendum enacted by the Legislature. See Thornton Acad. v. Reg’l Sch. Unit 21, 2019 ME 115, ¶ 14, 212 A.3d 340. Reviewing the plain language of subsection 6 in the context of the entire statutory scheme, the Secretary of State’s mandates are limited to (A) providing advice to the petitioners about the proper suggested format of the question or questions, and (B) writing “the question in a clear, concise and direct manner that describes the subject matter of the . . . direct initiative as simply as is possible.” Id. § 906(6)(A), (B). [¶26] Although the advice that subsection 6(A) requires might seem irrelevant when, as here, the Secretary of State drafts a single question for a single petition and the petitioner agrees with that approach, the advice required by section 906(6)(A) would be of consequence if the Secretary of State 18 were to draft multiple questions based on a single circulated petition in carrying out her obligations under sections 901(4) and 906.3 In that circumstance, the Secretary of State’s advice would place the petitioners on notice of the criteria set forth in section 906(6)(A) so that the petitioners could, during the period for public comment, offer meaningful opposition to the Secretary of State’s draft based on established statutory criteria. See id. § 905-A. Here, however, there is no argument that any error arises from a failure to give advice, and the question that remains is whether the Secretary of State, by drafting a single question, failed to present the question in a “clear, concise and direct manner.” Id. § 906(6)(B); see also Me. Const. art. IV, pt. 3, § 20 (requiring that the Secretary of State present ballot questions “concisely and intelligibly”). [¶27] As drafted, Saviello’s initiated bill presents a set of amendments aimed at the stated, but compound, purpose to “Require Legislative Approval of Certain Transmission Lines, Require Legislative Approval of Certain Transmission Lines and Facilities and Other Projects on Public Reserved Lands 3Caiazzo suggests that the Secretary must advise the petitioner about the format for the ballot question before the petition is approved to circulate. Although the statutes impose no such timing requirement, this timing would provide the petitioner the best opportunity to consider whether to redraft or restructure the proposed petition. Compare 21-A M.R.S. § 901(3-A) (2021) (requiring the Secretary of State to review the proposed law for proper form) with 21-A M.R.S. § 901(4) (2021) (requiring the Secretary of State to draft a ballot question in accordance with section 906 after a petition has gathered a sufficient number of signatures through circulation). 19 and Prohibit the Construction of Certain Transmission Lines in the Upper Kennebec Region.” (Emphasis added.) The Secretary of State did not abuse her discretion in reading the initiated bill in the conjunctive and drafting a single, concise ballot question describing the single Act that was circulated to the voters for signature and presented to the Legislature for enactment before being referred to referendum. Although a situation may arise in which the Secretary of State cannot draft a “clear, concise and direct” question without severing voluminous or unrelated issues raised in an initiative’s proposed amendments into separate questions, given the standard of review, we cannot say that the Secretary of State erred or abused her discretion in writing a single question in this instance. 21-A M.R.S. § 906(6)(B); see Me. Const. art. IV, pt. 3, § 20. The entry is: Judgment affirmed Jared S. des Rosiers, Esq., Joshua D. Dunlap, Esq. (orally), Newell A. Augur, Esq., and Matthow O. Altieri, Esq., Pierce Atwood LLP, Portland, for appellant Christopher J. Caiazzo Aaron M. Frey, Attorney General, and Jonathan R. Bolton, Asst. Atty. Gen. (orally), Office of the Attorney General, Augusta, for appellee Secretary of State Adam R. Cote, Esq., Jeana M. McCormick, Esq. (orally), and Sara P. Cressey, Esq., Drummond Woodsum, Portland, for appellee Thomas B. Saviello 20 Cumberland County Superior Court docket number AP-2021-13 FOR CLERK REFERENCE ONLY