Opinion ID: 1662285
Heading Depth: 2
Heading Rank: 2

Heading: length, complexity, and design

Text: Petitioner acknowledges that the length of a ballot title alone is not a sufficient basis to invalidate it, but contends that length becomes a critical factor when combined with other factors. Specifically, Petitioner contends that the length and manner in which this ballot title is written places before the voter several considerations such as whether to approve four types of gambling not currently authorized by Arkansas law [1] and the various taxes and distribution of revenues associated with each. Consequently, Petitioner argues that the length, design, and complexity of this ballot title cannot be read and comprehended in the five minutes a voter is permitted to remain in the voting booth pursuant to Arkansas Code Annotated § 7-5-522 (Repl.1993) and that the ballot title therefore does not adequately inform the voter of the changes in the law that he is asked to make. When previously considering a proposed amendment with objectives similar to the current one, this court quoted its earlier statement to the effect that while neither length nor complexity of the ballot title should be a controlling factor, they are considerations in determining whether a voter can make an intelligent decision based on the ballot title. Christian Civic Action Comm., 318 Ark. 241, 247, 884 S.W.2d 605, 608 (quoting Dust v. Riviere, 277 Ark. 1, 6, 638 S.W.2d 663, 666 (1982)). This court concluded in Christian Civic Action Committee that the ballot title had a fatal misleading tendency due to the combination of its length of 709 words, its use of specialized terminology that obscured meaning, and its artful amplifications and omissions that concealed the proposed amendment's potential effect. See id. at 250, 884 S.W.2d at 610. In considering Petitioner's argument, we find it significant that he does not suggest that the language of the ballot title misrepresents the text of the proposed amendment or that any material language is omitted from the ballot title. Rather, he contends that the voter will be confused by the presence of multiple considerations in the ballot title, specifically the consideration of four types of gambling along with the considerations that each form of gambling has a different taxation formula with nonuniform distribution of revenues generated. According to Petitioner, the length of the entire ballot title at issue here is 482 words. The portions of the ballot title relevant to this argument are as follows: A PROPOSED AMENDMENT TO THE ARKANSAS CONSTITUTION TO ESTABLISH A STATE-OWNED LOTTERY, TO BE REGULATED BY THE GENERAL ASSEMBLY; REQUIRING ALL STATE LOTTERY PROCEEDS, LESS EXPENSES AND PRIZES, TO BE APPROPRIATED AS FOLLOWS: 50% FOR LAW ENFORCEMENT, AND 50% TO LOCAL PUBLIC SCHOOL DISTRICTS (ALLOCATED BY AVERAGE DAILY ATTENDANCE); ... PROVIDING BINGO GAMES AND RAFFLES MAY BE CONDUCTED FOR CHARITABLE PURPOSES BY NONPROFIT ORGANIZATIONS, AND SHALL BE REGULATED BY THE GENERAL ASSEMBLY; PROVIDING IF AUTHORIZED BY VOTERS IN THE CITY OF HOT SPRINGS, CASINO GAMBLING SHALL BE LAWFUL ... IN HOT SPRINGS ... REQUIRING THE GENERAL ASSEMBLY TO LEVY A PRIVILEGE TAX ON CASINO OPERATORS OF 14% TO 18% OF NET CASINO GAMBLING REVENUES; PROHIBITING OTHER SPECIAL TAXES OR FEES WITH RESPECT TO CASINO GAMBLING OR RELATED ACTIVITIES; ALLOCATING SUCH PRIVILEGE TAX 85% TO THE STATE, 10% TO HOT SPRINGS, AND 5% TO GARLAND COUNTY[.] The ballot title accurately summarizes the text of the proposed amendment with respect to each type of gambling authorized and the respective distribution of proceeds and tax revenues. There is nothing so complex about this ballot title that a voter could not understand. The language is plain and organized in a coherent manner with the respective provisions relating to proceeds and revenue distributions following each type of gambling authorized. We find that no material omissions have been made and that the ballot title is not misleading so as to thwart a fair understanding of these issues. Likewise, we find the ballot title is not so complex as to be beyond the voter's comprehension. Although for purposes of reviewing the particulars of this argument the foregoing quotation shortens the ballot title considerably, we find the total length of 482 words to be of no consequence, especially when considered in light of the absence of any misleading tendencies. We note that some of the specific terminology used in this ballot title was tacitly approved in Christian Civic Action Committee, 318 Ark. 241, 248, 884 S.W.2d 605, 609, where this court stated that most voters could readily understand the use of words such as state lottery, charitable bingo and raffles, and pari-mutuel wagering. It was, among other things, the use of the words additional racetrack wagering to mean casino-style gambling that created the misleading tendency in that case. The current ballot title clearly refers to casino gambling as casino gambling. In short, we are unwilling to hold this ballot title misleading simply because it presents multiple considerations to the voters. Our duty is to ensure that those considerations are presented to the voters in an impartial ballot title so that voters can make intelligent choices. Dust, 277 Ark. 1, 638 S.W.2d 663. We are convinced that such has been done in this case.