Legal Document

457 U.S. 957 102 Supreme Court Reporter 2836 73 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 508 William Pacific KF135 P2 CLEMENTS, Jr., Governor of the State Texas, et al., Appellantsv.John L. FASHING al. Number 80-1290. Argued Jan. 12, 1982. Decided June 25, Rehearing Denied Sept. 9, See 458 1133, 103 20. Syllabus Article III, § 19, Texas Constitution provides that "[n]o judge any court, Secretary State, Attorney General, clerk court record, or person holding a lucrative office under States, this foreign government shall during term for which he is elected appointed, be eligible to Legislature." As interpreted by Court, 19 requires an officeholder complete his current office—if it overlaps legislature's before may serve in state legislature. XVI, 65, if holders certain and county offices whose unexpired exceeds one year become candidates other federal office, constitute automatic resignation then held. Appellees—who challenged these provisions Federal District as violating First Amendment Equal Protection Clause Fourteenth included officeholders subject each whom alleged would have announced candidacy higher judicial except such announcement from position, (Baca), Justice Peace, also could not candidate legislature because 19. The appellees were voters who they vote officeholder-appellees candidates. held denied equal protection, Appeals affirmed. Held : judgment reversed. 5th Cir., 631 Reporter, 2nd 731, REHNQUIST delivered opinion with respect Parts I, II, V, concluding that: 1. uncontested allegations complaint are sufficient create actual case controversy between those officials charged enforcing §§ 65. Pp. 961-962. 2. Sections 65 do violate Amendment. State's interests warrant de minimis interference appellees' candidacy. In addition, challenge contesting restrictions on partisan political activity must fail since represent far more limited restriction than has been upheld regard tocivil servants. Cf. CSC versus Letter Carriers, 413 548, 93 2880, 37 796; Broadrick Oklahoma, 601, 2908, 830; Public Workers Mitchell, 330 75, 67 556, 91 L.Ed. 754. Pp.971-973 REHNQUIST, joined THE CHIEF JUSTICE, POWELL, O'CONNOR, concluded III IV neither violates Clause. 962-971. 1 (a) Candidacy "fundamental right" itself departure traditional protection principles state-law classifications need only drawn manner bear some rational relationship legitimate end. Decision area constitutional adjudication matter degree, involves consideration facts circumstances behind law, seeks protect placing candidacy, nature burdened restrictions. determining whether here deserve "scrutiny" vigorous require, affected extent burden place examined. 962-966. 2 (b) applied Baca, Peace four years whereas legislator's two years, simply Baca wait, at most, years—one election cycle—before run establishing maximum "waiting period," places aspirations officeholder. This sort insignificant access ballot rest predicate order survive challenge. Section clearly rests predicate, furthers Texas' maintaining integrity its Justices ensuring will abuse their position nor neglect duties office. Moreover, interest discouraging vacating terms thereby avoiding difficulties accompany interim elections appointments. Nor invalid burdens desire It perversion conclude restrict Peace's all can 966-970. (c) imposed automatic-resignation provision even less substantial Both essentially same interests. ground applies others. Its history shows was creature electoral reforms, regulation devoid happens incomplete. does prohibit restricting officeholder's another unless until similar officeholders. 970-971. 3 James Allison, Cooper, Tex., appellants. 4 Raymond C. Caballero, El Paso, appellees. 5 IV, O'CONNOR joined. 6 Appellees limit public official's ability primary question appeal 7 * provides: 8 "No 9 renders ineligible Legislature expire after legislative aspires begins. Lee Daniels, 377 South Western 618, 619 (Tex.1964). Resignation ineffective avoid election. Ibid. words, 10 commonly referred "resign-to-run" "automatic resignation" provision. covers wide range offices.1 relevant part: 11 "[I]f officers named herein announce fact candidate, Special Primary Election, profit trust laws held, time when exceed (1) year, held." Four Fashing County Judge, McGhee Ybarra Constable. Each officeholder-appellee qualified law reason position. Appellee addition remaining 20 allege 12 protection. Moore, 489 F.Supp. 471 (1980). created "classifications invidiously discriminatory." Id., 475. explained draws distinctions end concurrently beginning overlap term. found deficient reciprocal prohibition . placed upon legislator seeking mayor judge." determined embodied "fail[ed] proper governmental interest" local covered while others not. Fifth Circuit affirmed without opinion. 731 We noted probable jurisdiction, 452 904, 101 3028, 69 404 (1981), now reverse. II 13 Before we reach merits issues case, address appellants' contention insufficient "case controversy" Appellants contend dispute merely hypothetical therefore justiciable within meaning Constitution. 90-91, 564-565, 754 (1947). 14 find controversy. action pursuant Unlike situation precise that, but sanctions seek challenge, engage very acts trigger enforcement Given cannot said presents speculative obstacle Regional Rail Reorganization Act Cases, 419 102, 143, n. 29, 95 335, 358 42 320 (1974); Turner Fouche, 396 346, 361-362, 23, 90 532, 540-541, 24 567 (1970). 15 Baca's That entirely disables becoming completes present gist him appellants over constitutionality therefore, abstract hypothetical, sufficiently prevented 16 allows considerable leeway enact legislation appear affect similarly situated people differently. Legislatures ordinarily assumed acted constitutionally. Under principles, Classifications set aside based solely reasons totally unrelated pursuit goals no grounds conceived justify them. See, e.g., McDonald Board Election Comm'rs, 394 802, 808-809, 89 1404, 1408-1409, 22 739 (1969); McGowan Maryland, 366 420, 425-426, 81 1101, 1104-1105, 393 (1961). departed statute "suspect classes" persons right deemed "fundamental." San Antonio Independent School Dist. Rodriguez, 411 1, 17, 1278, 1288, 36 (1973). 17 Thus, first determine require. 18 Far recognizing right," existence barriers candidate's "does compel close scrutiny." Bullock Carter, 405 134, 92 849, 855, 31 (1972). "In approaching restrictions, essential examine realistic light impact voters." assessing challenges ballot, formulated "litmus-paper test separating valid invidious Clause." Storer Brown, 415 724, 730, 94 1274, 1279, 39 714 (1974). Ibid.; Williams Rhodes, 30, 5, 10, 21 (1968). Our cases, however, focus degree operate mechanism exclude classes process. inquiry unfairly unnecessarily "availability opportunity." Lubin Panish, 709, 716, 1315, 1320, 702 analysis recent separate, although similar, lines cases. One line cases wealth.2 invalidating filing-fee provisions, example, "system falls unequal weight voters, well candidates, according economic status." supra, 144, 856. "Whatever mood given time, our tradition hospitality toward 717-718, 1320-1321. Economic status measure prospective qualifications hold elective filing fee alone inadequate serious spurious. Clearly, instant involve fees lower status. support principles. second classification schemes impose new small parties independent Illinois Bd. Elections Socialist Party, 440 173, 99 983, 59 230 (1979); supra; American Party White, 767, 1296, 744 Jenness Fortson, 403 431, 1970, 29 554 (1971); supra. These requirements minor party demonstrate level among electorate obtain ballot. emphasized important protecting processes frivolous fraudulent candidacies, efficient, voter confusion caused overcrowded expense run-off elections. To end, reasonable level-of-support turn party's success prior recognized, freedom association, classify basis association particular parties. Consequently, act maintain "status quo" making virtually impossible major achieve positions SeeWilliams 7. contain imposes special minority way depend affiliation viewpoint. automatically follow, course, apply examining fall into patterns just described. But counsel against discarding 855; 1279. Not require "heightened" scrutiny. uphold scheme absentee ballots inmates jail awaiting trial. U.S., 807-811, S.Ct., 1407-1409. necessary Atlantic 23 Legislature. Of appellees, plaintiffs appellee fashion restricted issue consistent Clause.3 prohibits cutting short every years. Tex.Const., 18; 3, 4. Therefore, 4-year At wait legislature.4 25 claimant's "demonstrate instance discrimination [him] substance." 781, 1306. Classification essence legislation, invidious, arbitrary, irrational offend Williamson Optical Co., 348 483, 489, 75 461, 465, 563 (1955). 26 period" legislature, discriminates factor related requirements, process outside "mainstream" life. successfully ambitions lead pursue seat 27 A hardly significant barrier 733-737, 1280-1281, flat disqualification had registered affiliated months preceding declaration Similarly, 7-year durational residency requirement Chimento Stark, 414 125, 38 (1973), summarily aff'g 353 1211 (NH). 189, 993 (STEVENS, J., concurring part judgment). 28 predicate. Peace.5 By prohibiting completion one's ensure demands campaign tempt devote full energies responsibilities campaigning might tempted render decisions take actions further especially officers. accusation charge officer politically motivated decision. contrast, expected due views constituents. requiring eliminated incentive vacate expiration "[T]he choose ineffectual means aims." 736, 1282. selected achieving desired ends. Massachusetts Retirement Murgia, 427 307, 316, 96 2562, 2568, 49 520 (1976); Mathews Diaz, 426 67, 83, 1883, 1893, 48 478 51, 30 Finally, argument 607, 2913, 830 rejected Oklahoma's employees violated Clause: "Appellants claim 818 singling out classified service expression leaving unclassified personnel free somewhat odd context principal claim, reaches too rather enough. event, employment activities left unregulated. 420 [81 393] And faulted attempting placed." 32 indeed 33 regulate "one step addressing phase problem seems most acute." 465. "need risk losing entire remedial failed, through inadvertence otherwise, cover evil conceivably attacked." 809, 1408 (citation omitted). B 34 resign portion less. deficient, provision's classified. According system scrutiny failed explain why survives show there scheme. 35 time" approach undertaken sanctioned enacted 1954 transitional applying G. Braden, Texas: An Annotated Comparative Analysis 812 (1977). extended enumerated staggered so least contested proviso added 1958. XI, 11, home rule cities longer option extending municipal up reforms did go absent purpose, malfunctioning lawmaking forbidden 1408. forbid 2913 5. Minnesota Clover Leaf Creamery 449 456, 466, 715, 725, 66 659 (1981). language belie notion serves purpose denying identifiable potential V alternative judgments courts below, disposes argument. candidacy.6 There fail. contest activity. civil 796 (1973); participate campaigns third They contributions expenditures. preclude party. Consistent distribute literature make speeches behalf candidate. operates await conclusion virtue long year. sense, reality different Broadrick, required dismissal servant became 2886; 617, 2918. 40 Neither authorizes review decided govern itself. Constitutional limitations arise significantly impairs protected view wisdom color task adjudication. 41 Reversed. STEVENS, judgment. 43 presenting Clause, often plunges directly discussion "level scrutiny" used affects Unfortunately obfuscate clarify inquiry. suggests better starting point careful identification character equality implicated discriminatory classification. my opinion, disparate treatment inconsistent With issue, treated though same. 44 helpful put side & N Dec. Immigration Nationality Decisions am satisfied having faithfully perform voluntarily adequate offices. equally offices; speech evenhanded, suggestion promote viewpoint another. thus offends 45 considering question, preliminary observations important. complaining object differently members general public.1 characteristic happen occupy various serve; attributes defined conceal intent discriminate personal characteristics provide services differing quality segments community. function occupy. 46 presented define benefits manner. concerned, decide pay justice peace salary justice. game wardens work hours park rangers. meat inspectors wear uniforms building so. see filled part-time fulfilled first. explanation "rational." fit emoluments pattern.2 reason, then, 993, judgment).3 47 many areas consider individually. presented, believe treat same.4 reasoning brings me reached. avoids, danger confusing quite questions.5 demonstrated "rational basis" imposing He not, adequately reasons, any, latter inquiry, plurality note time." Ante, 969, 970. judgment, response stating justification treating interval step—an last forever. Although unobjectionable involving differences offices, surely subscribe REHNQUIST's formulation standard evaluating treats differently.6 Accordingly, join Court's BRENNAN, MARSHALL BLACKMUN join, WHITE joins Part dissenting. rejecting proceeding time," today gives "legal fiction."1 summary vastly oversimplifies delicate accommodations made employer constitutionally rights employees. dissent. 50 Putting office,2 clear genuine exists either 51 both terms. posits additional asserted 19: section discourages "from office." 968 offers differential officeholders, search makes lack meaningful supposed 52 state, 53 Code permitted Tex.Rev.Civ.Stat.Ann., Arts. 1.05, 1.06 (Vernon Supp.1982). creates, effect, Officeholders federal, barred terms, resigned, 4, infra ; launch still 54 What class seats interests? If faced course acknowledge protecting, officials—particularly serving State—from corrupting influence campaign. conceivable barring candidacies purely impermissible competition. purport broad Instead defines "whether [Texas] Peace," ante, 966, acknowledges necessarily officeholder, 968, n.5. challenging provision, Peace. "holding [Texas], government." always understanding " '[e]qual protection' emphasizes disparity individuals," contrast '[d]ue process'," "emphasizes fairness individual dealing regardless how individuals treated." Ross Moffitt, 417 600, 609, 2437, 2443, 341 assessed it, judicially subclass possible posit treatment. 1320-1321, (1974).3 When viewed purposes duty, beyond substantially overbroad. 55 cannot, avoids overbreadth class, irrationality President, Senate, governor, mayor, city council, distracting effects obviously campaigns, responds "[t]he 'one time. .' quoting record belies assertion existed form 1876. intended suggest larger, equitable regulatory scheme.4 106 passed 19's adoption, adopted comparable bar 56 implement program step, underinclusive where demonstrates being undertaken. 465-466, 724-725, (1981); 809-811, (1969). subscribe, plurality's wholly fictional one-step-at-a-time justification. STEVENS points concurrence, "is forever." 2850. 57 haphazard isolated strikes "arbitrary plan" distinguished as-yet-uncompleted design 811, 1409, relies 971. providing step. "a laudable policy adding, 50-year period, groups coverage comes attention legislature." 1409. stands stark reviewed McDonald. pure fiction declare broader delay yet completed. 58 Appellants, unlike plurality, attempt distinction campaigns. argue officeholder-candidate enforce she seat. Brief 9. attempted unpersuasive. Appellants' apparently tenuous premise likely strategy undermining incumbent opponent advance own prospects. plain whatever force legislature; logically argued ambition failing follow gubernatorial use sabotage administration. Even assuming policy, accepting dubious premise, apparent ill-served group Only prohibited running legislature.5 mayors councilmen—persons little anything carrying policy. 471, 475 (WD Tex.1980). Appointed administrators, Attorneys, Judges name few—whose Chapa Whittle, 536 681 (Tex.Civ.App.1976). fidelity short, discern hypothesis approximately offices.6 60 ." 61 Other performing identical duties, lacking sweep completely purview concerns, restricts unexplained seemingly inexplicable collection administrative, executive, officials. distinguishing features collected increased precinct, county, district opposed statewide 813 offer greater undivided "Public Weigher" criminal judge, preventing "Inspector Hides Animals," Court. Yet former latter. Again opines legislating vintage prompting corresponding applicable Thus like sense evolving 62 view, minimal scrutiny.7 63 dismisses none precedents official resigned regulating government. what crucial question: 64 restrains employees' Such justified continued performance duties. notes, competing considerations considered Workers, 9(a) Hatch Act, KF62 7324(a)(2), taking "an active management campaigns." Car riers 6¢s reaffirmed foster efficient effective keeping politics service. recognized "the conduct 'the differ[s] possesses connection citizenry general.' 564, 2889, Pickering Education, 391 563, 568, 88 1731, 1734, 811 unequivocally surrenders employment. Elrod Burns, 347, 2673, 547 impinge rights. 142-143, 855-856, (1972); 34, (1968).8 establish guiding principle strictures expressional employees: arrive accommodation 'between [employee] [government], employer.' 2890, 1734. striking balance, gain subordinating provided outweigh incurred loss rights." 362, 2684 (plurality opinion). 96, 567.9 undertaking acknowledge, vital properly, flexibility develop direct indirect methods interest. furthered unnecessary intrusion employee effective, interferes reasonably interest, overintrusive aspects Amendment, narrowly tailored furthering 68 conform way. discussed briefly absence narrow tailoring bars include judges courts, clerks "lucrative" bar, retired appointed life, broadly enough yields profit, gain, revenue, salary, adequacy compensation. Willis Potts, 622, 625-627 bodies subordinate cities, id., 624-625. resign-to-run dual officeholding. Rather, construed phrase, "during appointed," commentator noted, "has trapped unwary believed (not unreasonably) resigning 135 70 applications absolutely Legislature.10 who, currently officials, continues resignations taken effect responsibility ceased. directed gave choice interests; inexplicably chosen restrictive alternative.11 71 evident analyzed convinces promotes prevents aspirations. engaging misuses undertake improper motive underlies restriction, obvious discourage encourage them properly positions. 980-983. 72 sum, unjustified infringement rights.12 Because finds violation respectfully Clerks, Judges, Treasurers, Criminal Surveyors, Inspectors Animals, Commissioners, Sheriffs, Assessors Collectors Taxes, Weighers, Constables. altered infra, litigant standing insofar adversely Ulster Allen, 442 140, 154-155, 2213, 2223, 777 (1979). "Embedded rules governing heard unconstitutionally others, situations Court." 610, 2914, 737, 1282, Cabell Chavez-Salido, 454 432, 442, 735, 741, 677 (1982). typically nonelection shorter. utilize "overbreadth" doctrine application unconstitutional 612-616, 2915-2916. suffer litigated case-by-case basis. generally. does, constraints government's practices. For limits power discharge controversial speeches. 811. Due Process affords procedural safeguards tenured Regents Roth, 408 2701, 548. classifying applicants arbitrary Sugarman Dougall, 634, 2842, 853. case. Vance Bradley, 93, 939, 171, statutory Foreign Service Civil component classification—without more—could requirements. defining ignore structuring certainly decision concerning conditions standard. Westen, Empty Idea Equality, Harv.L.Rev. 537 Professor Westen's article valuable illustrates concern substantive import produce. distinction, lose sight significance impartially. frames should way: "Classifications them." 963. majority rejects mode analysis. 976. worth noting, never fundamental right, voters. 184, 990, 31, mind, strict reviewing access; showing "necessary compelling interests." 780, 1305. kinds restrictions—classifications wealth 964-965. 729, (1974), somehow suspect. Compare 719, 1321 (Douglas, concurring) (strict demanded wealth). here, give employment, "substantial" supporters than, $700 Lubin. deference employees, subjecting scrutiny, disregard citizens sudden episodic novel. writing Weinberger Salfi, 422 749, 2457, 2474, 522 (1975), refused otherwise invalidated plaintiff. Indeed, construed, blanket prohibitions 1; 40. 618 (1964), mean dissent officeholding "negates person" once 621 (Steakley, dissenting). unaided bound court's construction ambiguity highlight marks perceived evil. Commissioner February 1964, sought thereafter However, December 1964; commenced November (Tex.Civ.App.1976), Director Social Culture Intervention Program began 1966. May term, complainant Director's overlapped 1966, allowed assortment are: Clerks; Judges; Treasurers; Attorneys; Surveyors; Animals; Commissioners; Peace; Sheriffs; Taxes; Weighers; argues concurrence fair 974. agree "benefits offices" dissimilar offering rational, mask racial discrimination. concerns office—a Amendment—that supplies hours, working associational well. Voters generally assert casting choice. "By limiting choices available voters' express preferences." 990. illustrated 961. "[T]his balance guarantees congressional enactment democratic society partisanship 567. citing 2915-2918, states "challenge 972, n.6. holds "that real, well, judged relation statute's plainly sweep." 615, 2917. substantial, particularly breadth relatively "legitimate intrusive accomplishing obvious. leave misusing Bolin Minnesota, 313 North 381, 384 (Minn.1981). defeated return administer old vindictively halfheartedly. statute—giving begin 13. stay formal fully served period formally refuse assume 968-969. below. office; lesser embarking bears bans

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