Legal Document

489 U.S. 214 109 S.Ct. 1013 103 L.Ed.2d 271 March Fong EU, Secretary of State California, et al., Appellantsv.SAN FRANCISCO COUNTY DEMOCRATIC CENTRAL COMMITTEE, al. No. 87-1269. Argued Dec. 5, 1988. Decided Feb. 22, 1989. Syllabus Section 11702 the California Elections Code (Code) forbids official governing bodies political parties to endorse or oppose candidates in primary elections, while § 29430 makes it a misdemeanor for any candidate claim party endorsement. Other sections dictate organization and composition parties' bodies, limit term office party's state central committee chair, require that chair rotate between residents northern southern California. Various members such other politically active groups individuals brought suit District Court, claiming, inter alia, these provisions deprived their rights free speech association guaranteed by First Fourteenth Amendments. The Court granted summary judgment plaintiffs as question, Appeals affirmed. Held: challenged election laws are invalid, since they burden Amendment without serving compelling interest. Pp. 222-233. (a) ban on endorsements §§ violates By preventing body from stating whether adheres tenets officials believe is qualified position sought, directly hampers ability spread its message hamstrings voters seeking inform themselves about issues, thereby burdens core right members. also infringes protected freedom identify people who constitute select standard-bearer best represents ideology preferences, promoting at crucial juncture. Moreover, does not serve governmental has adequately explained how advances claimed interest stable system what so peculiar virtually only determine necessary. explanation State's government embraces similar stability untenable, may enact prevent disruption but within. issues risks intraparty friction which endanger general prospects insufficient, goal protecting against itself would justify substituting party. necessary protect confusion undue influence must be viewed with skepticism, restricts flow information citizenry evidence existence fraud corruption estriction. 222-229. (b) restrictions parties, limits chairs, requirement chairs cannot upheld. These associational limiting discretion organize itself, conduct affairs, leaders. do A regulating internal affairs showing regulation ensure elections orderly, fair, honest, made no showing. democratic management merit, this case where intervention derogation adherents' civil rights, integrity itself. Nor justified requiring help regional reaching critical mass, substitute desirability particular structure. 229-233. 826 F.2d 814 (CA9 1987), MARSHALL, J., delivered opinion all Members joined, except REHNQUIST, C.J., took part consideration decision case. STEVENS, filed concurring opinion, post, p. 233. Geoffrey Lloyd Graybill appellants. James J. Brosnahan, Cedric C. Chao, San Francisco, Cal., appellees. Justice MARSHALL Court. 1 prohibits endorsing primaries. It dictates those requires Ninth Circuit held violate (1987). We noted probable jurisdiction, 485 1004, 108 1466, 99 696 (1988), now affirm. 2 * A. 3 heavily regulates parties. Although vary extent detail party, certain requirements apply "ballot-qualified" parties.1 provides "official bodies" "state convention," committee," "county committees," Cal.Elec.Code Ann. (West 1977), responsible conducting campaigns.2 At same time, "shall endorse, support, oppose, nomination partisan direct election." Ibid. candidate, person her behalf, she officially endorsed 29430. 4 barred issuing endorsements, not. Political clubs affiliated labor organizations, action committees, associations, newspapers frequently candidates.3 With organizations silenced ban, been possible views antithetical nevertheless win primary.4 5 In addition restricting activities affairs. Separate statutory size committees;5 set forth rules selection removal members;6 fix maximum committee;7 California;8 specify time place meetings;9 dues impose members.10 Violations criminal offenses punishable fine imprisonment. B 6 county committees Democratic Republican Parties, Libertarian Party, various politics federal court enforcing (State California).11 They contended governance deprive Amendments United States Constitution.12 first count complaint elections; second nonpartisan school, county, municipal third prescribe eligibility criteria meetings, pay. 7 moved judgment, support 28 declarations each plaintiff committee, prominent scientists, elected States. dismiss cross-motion supported one declaration former senator. 8 count, ruling violated applied through Amendment. stayed proceedings under abstention doctrine Railroad Comm'n Texas v. Pullman Co., 312 496, 61 643, 85 L.Ed. 971 (1941).13 On ruled prescribing chairs' terms office, designating Amendment.14 denied respect establishing meetings amount dues. Civ. C-83-5599 MHP (ND May 3, 1984). 9 792 802 (1986). This vacated decision, 479 1024, 107 864, 93 820 (1987), remanded further light Tashjian Party Connecticut, 208, 544, 514 10 After supplemental briefing, again rejected arguments based nonjusticiability, lack standing, Eleventh immunity, abstention. F.2d, 821-825. Turning merits, characterized prohibition an "outright ban" speech. Id., 833. "Prohibiting supporting some opposing others patently both express freely unrestricted information." 835. argument served dissension factionalism: "The simply legitimate disruptions own making." 834. noted, moreover, had shown banning protects factionalism. concluded was confusion, stating, "California's preprimary form paternalism inconsistent Amendment." 836. 11 found California's "burdens govern think best." 827. interference members' interest, "in orderly parties." 831. event, failed submit " 'a shred evidence,' id., 833 (quoting Cal. 1984)), regulations helped minimize Accordingly, were unconstitutional II 12 broad power regulate place, manner "does extinguish responsibility observe established citizens." U.S., 217, S.Ct., 550. To assess constitutionality law, we examine t e 214, 548; Anderson Celebrezze, 460 780, 789, 1564, 1570, 75 547 (1983). If law members, can survive constitutional scrutiny if shows Tashjian, supra, 222, 550, 552; Illinois Bd. Socialist Workers 440 173, 184, 983, 990, 59 230 (1979); American White, 415 767, n. 11, 94 1296, 1305, 39 744 (1974); Williams Rhodes, 393 23, 31, 89 10, 21 24 (1968), narrowly tailored Elections, 185, 991; Kusper Pontikes, 414 51, 58-59, 303, 308, 38 260 (1973); Dunn Blumstein, 405 330, 343, 92 995, 1003, 31 274 (1972). 13 consider concedes implicates Amendment, Tr. Oral Arg. 17, contends "miniscule." 7. disagree. affects "is our electoral process freedoms." 32, 11. have recognized repeatedly "debate qualifications [is] integral operation Constitution." Buckley Valeo, 424 1, 14, 96 612, 632, 46 659 (1976) (per curiam); see NAACP Claiborne Hardware 458 886, 913, 102 3409, 3426, 73 1215 (1982); Carey Brown, 447 455, 467, 100 2286, 2294, 65 263 (1980); Garrison Louisiana, 379 64, 74-75, 209, 215-216, 125 (1964). Indeed, "has fullest most urgent application" uttered during campaign office. Monitor Patriot Co. Roy, 401 265, 272, 91 621, 625, 35 (1971); Mills Alabama, 384 218, 86 1434, 1436, 16 484 (1966). Free discussion public less before than election. Cf. Storer 724, 735, 1274, 1281, 714 Smith Allwright, 321 649, 666, 64 757, 766, 88 987 (1944); Classic, 313 299, 314, 1031, 1037, 1368 (1941). instances, "election means disseminating ideas well attaining office." 186, 991. 14 however, prevents sought. issues. See 220-222, Pacific Gas & Electric Public Utilities 475 8, 106 903, 907, (1986); Brown Hartlage, 456 45, 60, 1523, 1532, 71 732 National Bank Boston Bellotti, 435 765, 791-792, 98 1407, 1423-1424, 55 707 (1978). "highly paternalistic approach" hear generally suspect, Virginia Pharmacy Citizens Consumer Council, Inc., 425 748, 770, 1817, 1829, 48 346 (197 ); Boston, 790-792, particularly egregious censors shares Roberts Jaycees, 468 609, 634, 104 3244, 3258, 82 462 (1984) (O'CONNOR, concurring). 15 Barring upon association. settled enjoy Elrod Burns, 427 347, 357, 2673, 2681, 49 (plurality opinion). Freedom individual voter associate choice, 548 Kusper, 57, 307), 'identify association,' Wisconsin ex rel. La Follette, 450 107, 122, 101 1010, 1019, 67 (1981)); cf. Alabama Patterson, 357 449, 460-462, 78 1163, 1172, 1488 (1958), "standard bearer ideologies preferences." Ripon Society, Inc. 173 U.S.App.D.C. 350, 384, 525 567, 601 (1975) (Tamm, result), cert. denied, 933, 1147, 47 341 (1976). Depriving suffocates right. endorsement "at juncture appeal common principles translated into concerted action, hence community." 216, 549. Even though issue imposing limitations "on wishing band together advance ballot measure, placing none acting alone, clearly restraint association." Against Rent Control/Coalition Fair Housing Berkeley, 454 290, 296, 434, 437, 70 492 (1981). 17 Because appellees' association, serves interest.15 offers two: influence.16 Maintaining is, unquestionably, 736, 1282. never explains There showing, example, more 1963, when legislature enacted ban. explain determined necessary.17 18 stability. Brief Appellants 47. relies stated because "splintered unrestrained factionalism significant damage fabric government," 1282, "some sort order, rather chaos . accompan[ies] processes," 730, 1279. Our Storer, stand proposition mitigate campaign. contrary, "contending forces within employ finally settle differences." 1281. hostile feuds; ideal forum resolve them. Ibid.; 781, 1306. recognizes precisely distinction. case, "prevent without" not, "to taking steps affecting candidates." 224, 553. 19 answer argue, State, prospects. Presumably will motivated self-interest engage acts run counter success. However, even saves pursuing self-destructive acts, ibid.; States, 124, 1020. preserving unity look elsewhere law. 20 justification statements opposition influence. Certainly fostering informed electorate. 220, 551-552; 796, 1573-1574; 782, 1307; Bullock Carter, 134, 145, 849, 856-857, (1972); Jenness Fortson, 403 431, 442, 1970, 1976, 29 554 (1971). '[a] enhancing make wise decisions them skepticism.' 221, 552 798, 1575).18 While associations corruption, 26-27, 638-639; there purpose.19 hold 22 turn next implicate As "determination structure allows pursue goals, 554. encompasses identity of, electing, supra selecting delegates Convention); Cousins Wigoda, 419 477, 95 541, 42 595 sit 235-236, 559-560 (SCALIA, dissenting) ("The [a p]arty unquestionably freedom"). 23 rights. establish level, best.20 And specifying shall interferes pa ties' choice might decide, effective greater number leaders local activists Washington-based officials. change. decide needs two years successfully formulate implement policy. extension chair's find resident unifying chairing unless preceding State. Each restriction thus stake much stronger credited Tashjian. There, allow registered vote primary. Here, seek nonparty another choosing leaders.21 25 question indisputably process. Rosario Rockefeller, 410 752, 761, 1245, 1251-1252, 36 (1973). Toward end, interfere fair honest. For garner See, e.g., 343-344, 1003-1004 (residence requirement); Oregon Mitchell, 400 112, 118, 260, 261-262, 27 272 (1970) (age minimum); Kramer Union School Dist. 15, 395 1886, 1888-1889, 583 (1969) (citizenship requirement). promote elections. 779-780, 1305-1306 (requirement major nominate minor conventions); 785-786, 1308-1309 (limitation voters' participation bar voting signing petition independent candidate); (waiting periods change registration participate primary); 856-857 (reasonable filing fees condition placement ballot). None restrictions, involved leaders.22 Rather, infringement indirect consequence successful completion external responsibilities ensuring order fairness 26 instant Instead, "interest 'democratic affairs.' 43 1307, 15). This, adherents. (1944). observed, "protect[ing] itself." claims helps 'critical mass.' 48. structure, tell proposed communication unwise. sum, fair. here, upheld.23 III reasons above, Affirmed. Chief REHNQUIST 30 concurring. Today 183-185, 989-991, (1979)—and, particular, portion I did join—for formulation standards cases. BLACKMUN his acceptance Court's approach words my He wrote: 32 "Although join ., add comments record purposefully, perhaps somewhat belatedly, unrelieved discomfort seems continuing tendency use tests easy phrases 'compelling [state] interest' 'least drastic [or restrictive] means.' ante, 186 [99 990-991, 991]. able fully appreciate just is. 'convincingly controlling,' 'incapable being overcome' balancing process, then, course, test merely announces inevitable result, all. And, me, means' slippery slope signal result chosen reach. judge unimaginative indeed he could come up something little 'drastic' 'restrictive' almost situation, enable himself strike legislation down. reminiscent indulgence, few decades ago, substantive due economic area nullification. 33 "I feel, therefore, always felt, really very helpful analysis. too convenient oriented, endeavor disassociate myself Apart use, reaches here correct one. reservations opinion." 188-189, 992. 34 today. eligible because: last gubernatorial state-wide received percent vote; party; (c) ten voters. 6430 1977). simplicity, "ballot-qualified party" "political interchangeably. campaigns directors, develop whatever interests 8776 Supp.1989) (Democratic Party); 9276 (Republican 9688 (American Independent 9819 (Peace Party). turn, "have charge direction committee." 8940 9440 9740 9850 addition, "perform duties services th[e] seem benefit party." 8942 9443 9742 9852 learn candidates, flooded disparate across Berkeley Club, Muleskinners Club. Addendum Motion Affirm Dismiss 39a ¶ (Addendum) (declaration Mary King, Alameda County Central Committee); Linda Post, Francisco Committee). 1980, Tom Metzger won Party's House Representative Diego area, although Grand Dragon Ku Klux Klan Party. 15a Edmond Costantini, member Executive Board committee). precise mix officials, nominees, Parties 8660, 8661, 8663 1977 9160-9164 similarly regulated. 9640 9762, 9765 8663-8667, 8669 9161-9164, 9168, 9170 9641-9644, 9648-9650 1977) 9790-9794 successive terms. 8774 ( emocratic 9274 9685 9816 committee); 8710, 8711 8920, 8921 9210 9420-9421 9730-9732 9800 9830, 9840-9842 8775, 8945 9275 9687, 9745 9818, 9855 sued Eu, California; John K. Van de Kamp, Attorney General Arlo Smith, County; Leo Himmelsbach, Santa Clara County. asserted statutes Equal Protection Clause reach claim. An then pending Supreme presenting challenge ultimately decided prohibit question. Unger Superior 37 Cal.3d 209 Cal.Rptr. 474, 692 P.2d 238 (1984). subsequently initiative. Federal Geary Renne, 708 F.Supp. 278 Cal.), stayed, 856 1456 1988). invalidated following sections: 9160, 9160.5, 9161, 9161.5, 9162-9164 chair); chair). 29102 applied. need show "consented" it. claim, observes legislators repeal belong bylaws continue state-run fatally flawed several respects. d consent cure statute otherwise aside fundamental defect, contradicted simple fact joined lawsuit. Appeals' invalidation flaws argument. Simply legislator belongs times representative interests. understanding good reelection. independence illustrated Legislature's frequent refusal amend accordance wishes 12a-13a &Par; 7-9 Bert Coffey, ignores negligible, any, representation legislature. That prove consent. reflect bylaws, permit prohibited indicate favor imposed primaries likely reflects determination advantageous alternatives, write-in campaigns. 745, 1286, 799, 26, 1575, Finally, focus alleged wholly undemonstrated authorized infringements 'confining single nominating act.' 225, 13, 555, (1986) Anderson, 802, 29, 1576, 29). meritless. fails distinguish act—the cast election—and act. logic every individual, total candidate's positions. Such blanket coexist protection called justiciable enforced laws. 814, 821 New Jersey bans N.J.Stat.Ann. 19:34-52 1964); Weisburd, Candidate-Making Constitution: Constitutional Restraints Protections Nominating Methods, 57 S.Cal.L.Rev. 213, 271-272, 343 Florida's Abrams Reno, 452 1166, 1171-1172 (SD Fla.1978), aff'd, 649 342 (CA5 1981), 455 1016, 1710, 72 133 (1982). Several provide formal procedures endorsemen s. Conn.Gen.Stat. 9-390 (1967 Supp.1988); R.I.Gen.Laws 17-12-4 (1988); Advisory Commission Intergovernmental Relations, Transformation Politics: Implications Federalism 148 doubtful silencing alone among interested outcome election, key v ters confusion. growing using labels "Democratic" "Republican" misled believing candidates. unduly influenced endorsements. issued carries weight newspaper union. permitted still exercise casting vote. 1982 York contest, Mario Cuomo over Edward Koch, year lost nonendorsed Massachusetts Minnesota. party-endorsed wins primary, study little, effect, way App. 97-98 14-17 Malcolm E. Jewell, Professor Science, University Kentucky). suggested oral barring misrepresenting speak suggests results endorsement, 8-9, confuses themselves. claiming appellees represent reasserting standing rejected. June 1984) ("[T]he authorization capacity bring maintain litigation"). disturb ruling, 822, 17; nor we. forced abandon region-based statutorily mandated county-based system. leaders, color message. Marchioro Chaney, 442 191, 2243, 60 816 (1979), contrary. upheld Washington manda ing create assigned administering raising distributing funds campaigns, setting 198-199, 2247-2248. required perform limited functions filling vacancies ticket, Presidential electors national conventions, calling conventions. impermissible themselves, occasion burdened so, 197, 12, 2247, 12. contrast, charter, places helm, assigns curbing long remains address contention weaken strengthen

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