Opinion ID: 765960
Heading Depth: 2
Heading Rank: 1

Heading: Issue Preclusion and the Republican Party

Text: 7 The district court's holding that the Republican Party was barred from re-litigating issues decided in O'Callaghan encompassed the following issues: (1) whether Alaska's primary laws are per se unconstitutional if the laws conflict with the rules of the political parties; (2) whether Alaska's blanket primary requirement violates these plaintiffs' First and Fourteenth Amendment rights; and (3) whether the State of Alaska must alter its primary election laws to conform with Article XIV, Section 1 of the Rules of the [Republican Party of Alaska]. 1 The Republican Party challenges this ruling with respect to issues (2) and (3). The district court's grant of summary judgment on res judicata grounds is reviewed de novo. Hiser v. Franklin, 94 F.3d 1287, 1290 (9th Cir. 1996). 2
8  `It is now settled that a federal court must give to a state-court judgment the same preclusive effect as would be given that judgment under the law of the state in which the judgment was rendered.'  Id. (quoting Migra, 465 U.S. at 81). 3 Therefore, Alaska law with regard to issue preclusion applies tothe determination of the preclusive effect of the O'Callaghan case. Under Alaska law, 9 issue preclusion prohibits a party from re-litigating an issue where: (1) the party against whom the preclusion is employed was a party to or in privity with a party to the first action; (2) the issue precluded from re-litigation is identical to the issue decided in the first action; (3) the issue was resolved in the first action by a final judgment on the merits; and (4) the determination of the issue was essential to the final judgment. 10 Wilson v. Municipality of Anchorage, 977 P.2d 713, 726 (Alaska 1999); Jackinsky v. Jackinsky, 894 P.2d 650, 654 (Alaska 1995). 11 The Republican Party does not and cannot contest elements (1), (3), and (4). However, it does argue that the issues in this case are not identical to the ones decided in O'Callaghan due to events occurring after that case was decided which change the balance evaluated in O'Callaghan. Specifically, the Republican Party points to the national Republican Party's passage of National Rule 34(f), which provides that no candidate nominated under a system which allows persons who are participating in the selection of nominees of other parties to participate in the selection of Republican nominees will be recognized as a nominee of the Republican party. It further provides that if a state law or state party rule provides for the selection of a Republican nominee in violation of this rule, the Republican nominee will be selected by convention, unless a state party rule provides specifically to the contrary. 4 Another event which changes the issues involved in this case, according to the Republican Party, is Alaska's 1998 gubernatorial primary election, which the Republican Party asserts shows the dangerous effects of cross-over voting. 12 Restatement (Second) of Judgments S 27 cmt. c (1982) 5 sets forth four factors to be considered in determining whether the issue in a proceeding is identical to an issue previously litigated: 13 Is there a substantial overlap between the evidence or argument to be advanced in the second proceeding and that advanced in the first? [2] Does the new evidence or argument involve application of the same rule of law as that involved in the prior proceeding? [3] Could pretrial preparation and discovery relating to the matter presented in the first action reasonably be expected to have embraced the matter sought to be presented in the second? [4] How closely related are the claims involved in the two proceedings? 14 Using these elements as guidelines, it is clear that the issues in this case are identical to those decided in O'Callaghan. First, there is substantial overlap in the evidence and arguments, with the only differences being the two changes in circumstances described above. In addition, the same rule of law, a balancing test evaluating the interests of the State and the interests of the parties, would apply to both proceedings. 6 Finally, the claims involvedin the two proceedings are entirely based on a determination of whether of not Alaska's blanket primary is constitutional. 15 The changes set forth by the Republican Party do not change the conclusion that the issues in this case are identical to those resolved in O'Callaghan. For example, the Republican Party National Rule 34(f) is intended to advance the same interests identified in O'Callaghan--reducing the effect of raiding and promoting party accountability--and the Republican Party does not identify any new interests which the rule seeks to achieve. Moreover, while the Republican Party argues that it may not be able to place any candidates recognized as Republican candidates by the national party on the general ballot, the state party can avoid this result by adopting contrary rules for the selection of its nominee which conform to Alaska law. Finally, the national Republican Party has thus far not applied this rule to prevent a candidate from being recognized as a nominee of the party. Therefore, the passage of Rule 34(f) does not foreclose the application of issue preclusion in this case. 16 Similarly, the facts of the 1998 primary election do not preclude the application of issue preclusion in this case. The court in O'Callaghan acknowledged that there was merit to the position that the danger of raiding exists under a blanket primary. See 914 P.2d at 1261. However, the court concluded that the associational burdens on the political parties were outweighed by the state's interests in a blanket primary. See id. at 1261-63. Evidence of cross-over voting in the 1998 primary does not affect this analysis. 7 This is particularly true because the Republican Party cites numerous examples where cross-over voting may have affected primaries which took place before O'Callaghan was decided. Therefore, we conclude that the issues that the district court found to be precluded are identical to those decided in O'Callaghan, and that all of the elements set forth under Alaska law for applying issue preclusion on the basis of O'Callaghan are satisfied in this case.
17 Although the elements for applying issue preclusion under Alaska law are present in this case, the Republican Party urges us to apply several federal exceptions to this doctrine which would allow them to litigate the issues that the district court determined to be precluded by O'Callaghan . 18 First, the Republican Party argues that it did not have a full and fair opportunity to litigate the issues in O'Callaghan, and therefore issue preclusion should not apply. See , e.g., Haring v. Prosise, 462 U.S. 306, 313 (1983); Kremer v. Chemical Constr. Corp., 456 U.S. 461, 480-81 (1982). The basis for this argument is that the Republican Party did not join the case until it was before the Alaska Supreme Court, and therefore it did not have the opportunity to develop a record. The Republican Party argues that this fact is particularly significant because O'Callaghan employed a balancing test, and the development of a record could have changed this balance. 19 In determining whether the Republican Party had a full and fair opportunity to litigate these issues, we are mindful of the principle that state proceedings need do no more than satisfy the minimum procedural requirements of the Fourteenth Amendment's Due Process Clause in order to qualify for the full faith and credit guaranteed by federal law.  Kremer, 456U.S. at 481. In this case, the Alaska Supreme Court accepted the contentions of the Republican Party that the possibility of raiding and loss of party accountability burdened the Party's associational rights. See O'Callaghan, 914 P.2d at 1261.Moreover, the Republican Party fully briefed and argued its position before the Alaska Supreme Court (as well as before the United States Supreme Court in its petition for certiorari), and fails to point to facts that it was unable to present or how these facts would have affected the outcome. Therefore, we conclude that the Republican Party had a full and fair opportunity to litigate the issues decided in O'Callaghan. 20 The Republican Party's other arguments may be disposed of quickly. 8 First, it asserts that issue preclusion is inappropriate in this case because it had no choice but to intervene before the Supreme Court of Alaska because the constitutional rights of the Republican Party and its members were at stake, and therefore it did not freely and without reservation submit[ ] its federal claims to the state court. Haring, 462 U.S. at 313-14 n.7; England v. Louisiana State Bd. of Medical Examiners, 375 U.S. 411, 419 (1964). However, this exception does not apply because the Republican Party did not have to intervene in the O'Callaghan action. For example, it could have participated as amicus curiae, or declined to participate at all and pursued its complaint in federal court. 21 The Republican Party also argues that the Red Fox exception should apply, because the state court's decision was transparently erroneous. However, this exception, described in dicta in Red Fox v. Red Fox, 564 F.2d 361, 365 (9th Cir. 1977), is explicitly based upon the Indian Civil Rights Act and the unique historical relationship between the American Indian and the federal government. Moreover, the determination of the state court in O'Callaghan, applying a balancing test to find that Alaska's blanket primary was not unconstitutional, was not transparently erroneous. This determination was based upon a permissible interpretation of United States Supreme Court precedent, a conclusion bolstered by the fact that this circuit also applied a balancing test in upholding California's blanket primary system. See California Democratic Party, 169 F.3d at 653. 22 Finally, the Republican Party argues that issue preclusion should not be applied because the state court was unwilling or unable to protect federal rights.  Haring, 462 U.S. at 314. Examples of situations where this exception may apply are when the state court did not provide fair procedures for the litigation of constitutional claims, or where a state court failed to even acknowledge the existence of the constitutional principle on which a litigant based his claim. Allen v. McCurry, 449 U.S. 90, 101 (1980). Beyond the denial of a full and fair opportunity to litigate, discussed above, the Republican Party does not assert that the Alaska Supreme Court failed to provide fair procedures or failed to acknowledge the existence of the relevant constitutional principles. The fact that the Republican Party disagrees with the decision in O'Callaghan falls far short of triggering this exception, and we therefore conclude that this argument is without merit. 23 On the basis of the foregoing discussion, we conclude that the district court properly found that Alaska law required the application of issue preclusion on the basis of O'Callaghan, and that none of the exceptions set forth by the Republican Party are applicable. Accordingly, we affirm the district court's partial grant of summary judgment to the State on this basis. 24