Legal Document

450 U.S. 107 101 Supreme Court Reporter 1010 67 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 82 DEMOCRATIC PARTY OF the UNITED STATES of America et al., Appellants,v.WISCONSIN ex rel. Bronson C. LaFOLLETTE al. Number 79-1631. Argued Dec. 8, 1980. Decided Feb. 25, 1981. Syllabus Rules Democratic Party (National Party) provide that only those who are willing to affiliate publicly with may participate in process selecting delegates Party's National Convention. Wisconsin election laws allow voters its Presidential candidate preference primary without regard party affiliation and requiring a public declaration preference. While Convention chosen separately, after primary, at caucuses persons have stated their Party, bound vote accord results open election. Thus, while Wisconsin's does not itself violate rules, State's mandate shall determine allocation votes cast by does. When indicated would be seated 1980 because delegate selection system violated an original action was brought on behalf State, seeking such constitutional as applied appellants (the Committee) they could lawfully refuse seat delegation. Concluding, inter alia, State had impermissibly impaired freedom political association protected First Fourteenth Amendments, held binding upon law. Held : cannot constitutionally compel delegation way violates rules. Cousins versus Wigoda, 419 477, 95 541, 42 595, controlling. Pp. 120-126. (a) The adherents enjoy right under Amendment, andthis gather for purpose advancing shared beliefs is Amendment from infringement any necessarily presupposes identify people constitute limit only. Here, members speaking through chose define associational rights limiting leading 120-122. (b) asserted compelling interests preserving overall integrity electoral process, providing secrecy ballot, increasing voter participation primaries, preventing harassment voters, go conduct imposition voting requirements who, separate eventually selected delegates. Therefore, do justify substantial intrusion into Party. 124-126. 93 Wis.2d 473, 287 North Western Reporter, 2nd 519, reversed. Ronald D. Eastman, Washington, C., appellants. LaFollette, Madison, Wis., pro se, Robert or Haw. Hawai‘i KFH45 A2 Friebert, Milwaukee, appellees. Justice STEWART delivered opinion Court. 1 charter appellant provides procedures which Democrats can participate. Consistently charter, Delegate Selection question this appeal whether successfully insist seated, even though includes state declare affiliation. results, 519. 2 * Rule 2A states: "Participation primaries restricted recorded."1 UnderNational "delegate process" procedure nomination particular candidates.2 3 Wisconsin3 non-Democrats— including other parties independents—to "open"4 express theirchoice among candidates nomination; Delegates Party.5 But these delegates, law, election.6 Accordingly, rules,7 4 In May 1979, (State submitted Compliance Review Commission plan incorporated provisions laws, and, result disapproved it violating 2A.8 Since compliance condition atthe Convention, no exception made,9 were according seated. 5 Attorney General then State. Named respondents suit Committee, Court, appellee here. sought responded agreeing law validly against cross-claimed asking court order recognize argued Amendments compelled violation 6 entered judgment declaring assumed association, gave restrict choosing Vice Democrats. Id., 511-512, N.W.2d, 536. It concluded, however, right. said themselves intended permit preferred, andthat, practical matter, prevent primary.10 Moreover, reasoned whatever extent appellants' might burdened burden justified "compelling . interest maintaining special feature permits private preference." 521, 541. 7 declared must apportioned prescribed reason disqualified being Convention.11 Committee 28 Code KF62 § 1257(2). 8 April 1, 1980, laws. Subsequently, Wis.Stat. §§ 8.12(3)(b), (3)(c) (1977). This noted probable jurisdiction July 2, 448 909, 100 3054, 65 1139. On same day, stayed ofthe 20, Credentials decided Wisconsin, despite Court's stay,12 delegates' manner 2A.13 II 9 traced efforts study reform nominating internal structure 1968 Convention.14 highest governing authority, directed (DNC) establish Structure (McGovern/Fraser Commission). concluded major problem faced rank-and-file been underrepresented should "find methods guarantee every American claims stake opportunity make his felt presidential process." Selection, Mandate Reform: A Report (Apr.1970) (emphasis added) (hereafter Reform). stressed accessible possible all wished join Party,15 but expressed concern "a full diluted if allowed participatein Convention." 47.16 10 1972 also established (Mikulski reiterated many principles announced McGovern/Fraser Commission, went further propose rules directing voters. Structure, All: 15 (Dec. 6, 1973) All). DNC recommendations 1976 1974, adopted by-laws. set following qualifications national conventions: 11 "The composed processes (i) assure full, timely equal include affirmative programs toward end, (ii) delegations fairly reflect division preferences [and] (v) ." Charter States, Article Two, added). 12 took present form 1976. Consistent "Democratic recorded." exemption rule, 2A, inconsistent unable secure changes law.17 13 1975, yet another commission review procedures, Nomination (Winograd particularly concerned what believed dilution strength sponsoring "crossover" primaries.18 Indeed, based part behavior primary. See Adamany, Cross-Over Voting Reform Rules, 70 Am.Pol.Sci.Rev. 536, 538-539 (1976). 14 Adamany study, assessing 1964 1972, found crossover comprised 26% 34% voters; patterns differed significantly participants identified Democrats; altered composition slate Wisconsin.19 Winograd Commissionthus recommended strengthen voting, Openness, Participation Building: Reforms Stronger 68 (Feb. 17, 1978) Participation), predicting continued "could convention did identifiers electorate." Ibid. And specifically "participation 69. text retained, new Rule, 2B, added, prohibiting exemptions fromRule 2A. 2B.20 III case chooses so, require Democrats.21 Rather, whether, once has opened affiliation, bind honor reached contrary 16 considered before constitutionality "open" such. Concluding theopen serves encouraging participation, valid. Upon issue, well correct. event there need conclusion For challenge authority so long issue resolved, we believe, 595. 17 reviewed decision Illinois holding exclusively governed seating enjoining refusing although Certiorari granted "to decide important [a]ppellate [c]ourt correct primacy over Political determination eligibility 483, S.Ct., 545. reversed judgment, "Illinois' protecting deemed context 491, 549. That disposition controls 18 relied principle "[t]he association." 487, 547. also, id., 549 (REHNQUIST, J., concurring). Kusper Pontikes, 414 51, 57, 94 303, 307, 38 260; Williams Rhodes, 393 23, 30-31, 89 5, 10, 21 24. NAACP Alabama Patterson, 357 449, 460, 78 1163, 1170, 1488. associate "common advancement beliefs," supra, 56, only.22 "Any interference simultaneously adherents." Sweezy New Hampshire, 354 234, 250, 77 1203, 1211, 1311, see Button, 371 415, 431, 83 328, 337, 405. 19 several occasions recognized inclusion unaffiliated seriously distort collective decisions—thus impairing party's essential functions—and accordingly protect "from adverse principles." Ray Blair, 343 214, 221-222, 72 654, 657-658, 96 L.Ed. 894. Rosario Rockefeller, 410 752, 1245, 36 example, sustained requirement—there imposed statute—that enroll choice least 30 days general next statute inhibit 'raiding,' whereby sympathy one designate influence primary." 760, 1251.23 59-60, 308-309. 20 doctrines stating exclude actually chosen. Wis.2d, 499, 530. distinguished ground "does arise 'in .' "24 525, 543. court's unequivocally obligated accept argues places minor substantial, prevents "screen[ing] out whose slight, tenuous, fleeting," screening build more effective responsible courts mediate merits dispute. correct,25 court, substitute own various ways determining makeup Constitution.26 true expressions freedoms, interfere view expression unwise irrational.27 IV 22 We consider, finally, will Cousins, U.S., 489, 548.28 "Neither nor activities absolute." CSC Letter Carriers, 413 548, 567, 2880, 2891, 37 796. asserts secrecyof voters.29 primary—not delegates.30 advanced State31 justifyits substantial32 V 23 elections conducted, selected. incompatible, limited clash case, both preserved. forbid accordance disqualify 24 ordered. 25 POWELL, whom BLACKMUN REHNQUIST join, dissenting. 26 Under conventions two required thatreflects outcome conducted advance registration thus allowing registered determined. light rule voice infringes association. Because & N Immigration Nationality Decisions believe impose promotes free activity citizens dissent. 27 enacted 1903. 1903 Wis.Laws, ch. 451. amended years later apply nominations. 1905 369. 492, 527 (1980). As described below: aimed stimulating popular politics thereby ending boss corruption, fraudulent practices perceived caucus system. M. La Follette, Sr., supported he nominate candidates; citizens, bosses, control controlling process; officials directly citizens." 29 recently come conflict enactedas effort opening up greater participation. ironic effect calling minimize "party bosses." analysis kind stages. If becomes interest. E. g., Bates Little Rock, 361 516, 524, 80 412, 417, 480 (1960). concludes burdens freedoms. appears acknowledge ante, 120-121, "go delegates," 125. my view, here significant, presented formidable argument linking interests. Atlantic 31 analyzing freedoms treats equivalent regulating selection, relying 595 (1975), accepted delegate-selection impinges rights. recognize, facts issues differ considerably dealt Cousins. 32 Convention's toselect another. At power reject regarding minorities, women, young people, matters. 479, n. 543, 1. ordered rather than preferred itself. contrast direct regulation involves statutory scheme regulates indirectly. "method alternates [is] determined organization," 8.12(3)(b) simply mandates each selected, procedure, pledged represent won Convention.1 33 sum, merely requires "vote Ante, 126. affecting hardly insignificant, differs substantially difference emphasize importance close attention Cf. Marchioro Chaney, 442 191, 199, 99 2243, 2248, 60 816 (1979). All done them—for primary—secretly, privacy booth.2 remain anyone wishing degree affairs. where affiliated Brief Appellee 19. And, above, affirm membership publicly. 34 evaluating significance relatively minimal requirements, am unwilling—at claim parties—to conclude between concerning creates Instead, look closely nature intrusion, involved, real limitation 35 goes saying President principal function performed party, has, extent, regulated terms citizen become "member" group permitted decision. organization ideological orientation mission, perhaps different question.3 incompatible founders. organized around achievement defined goals. country "have characterized fluidity overlap philosophy membership." 769, 1255, (1973) (POWELL, dissenting). denied generally elements reflecting most spectrum.4 take positionson issues, positions vary time time, never serious monolithic identity excluding differing views. result, hard fear plan. some contest unwilling unlikely, produce represented number parts country. seems reasonable that, insofar identities, allows independent lot speaks concerns.5 By attracting independent-minded arguably enlarge support significant represents affairs, defending apparent skewed taken when considers alternative acceptable involving small minority members, affiliated. eliminate "crossovers," likely inaccurately views Democrats.6 addition, apparently quite immediately permit.7 easy change election, closed loses significance.8 hold failed sufficient showing rights.9 B 39 dispute Instead irrelevant requirement convention. argument, premised unstated assumption nonbinding adequate mechanism pursuing involved. unsupportable very enunciated early passed first give individual voters.10 this, still pursue underlying making binding.11 40 turns asserted, clear substantial. explained Court: 41 state's restricting record preserve increased ensuring fair orderly manner. "In guaranteeing which, turn, fosters democratic government. Historically initiated remove bosses candidates." 512-513, 536-537 (footnote omitted). 43 promoting decisions cases, challenges wish unconstitutionally too burdensome. (1973), upheld aregistration limit, emphasized absolutely participating "tied particularized legitimate purpose" "raiding,"12 762, 1252. 260 struck down prevented participated switching affiliations during succeeding months. far interfering voter, raiding. 44 attempted ensure prospect cases just discussed, unconstitutional voters' Nader Schaffer, 417 F.Supp. 837 (Conn.) (three-judge court), summarily aff'd, 429 989, 97 50 602 deterred requirement,13 validity something second-guess.14 45 history suggests continuing accommodation citizens. "the evolved comprehensive, respects complex, codes ways, respect federal elections, place, qualification Storer Brown, 415 724, 730, 1274, 1279, 714 (1974).15 Today, departs accommodation. me, upholding inquiry due consideration countervailing full: recorded. Documentary evidence complies accompany Plans submission Such approved implemented within meaning Section mandate." 12B part: "At stages allocated fashion reflects uncommitted status except securing less applicable percentage awarded delegates." 12D "For preferences, non-binding advisory portion step (Emphasis added.) contained Wis.Stat., Tit. II, chs. 5-12 relate spring Tuesday year Electors relevant follows: "5.37 machine requirements. "(4) machines used comply provisions: candidates' names entitled appear ballots machines; elector whenever restriction applies, September primary; secretly select she wishes vote, office for, more. "5.60 Spring ballots. ballots, necessary, provided ward. "(8) Ballots Vote. There ballot listing potential affording, write-in choices offered ballot. Each given "8.12 vote. "(3) canvassing specific president receiving plurality district large representing area chairperson having inform board certified basis proportional representation. committed him her nearly receives. [8.12(3)(b) 8.12(3)(c) infra] "(am) No last Monday notify congressional uninstructed." What characterizes "voter 485, 523. 5.60(8), 10.02(3) characteristic either party." R. Blank, Parties, An Introduction 316 states [including Wisconsin] qualified designating Ippolito T. Walker, Interest Groups, Public Policy: Group Influence Politics 175 limits "persons subscribe executing appropriate statement effect." 486, 524. period respective districts total large. pledge additional unless dies releases until fails receive one-third authorized cast. Thereafter delegate's personal 5. 12D, supra. 2B precludes accompanying text, infra. effectively declares albeit privately. "It adjudged statutes involved controversy constitutional, force petitioner respondents; statutes; solely apportionment statutes." 525-526, oral counsel resources, late date, moot. explicitly "remains future elections." Moore Ogilvie, 394 814, 816, 1493, 1494, event, clearly year, properly us "capable repetition, evading review." 756, 1249, 1; Dunn Blumstein, 405 330, 333, 92 995, 998, 274. longer 1903, words "functioned well" ever since. 514, 537. employed candidates, choose "partisan local extensive array nonpartisan officers" well. Part opinion. 491-495, 526-528. Berdahl, Membership 16, 39-41 (1942). popular. unanimous Senate 92-1 Assembly, Legislature reaffirmed joint resolution "firm enduring commitment integral element proud tradition participatory democracy." 14, bill create modified defeated committee. 490, 526, 14. guidelines access tended dilute Democrat advantage expanded opportunities Reform, 12. ultimately chosen, levels process. 44. Among measures (1) abolition unit stage majorities dissenting minorities majority wishes; (2) notice times meetings related (3) indicate slates delegates; (4) prohibition discrimination racial people. 44-46. Segal, Standards: Experience, Geo.Wash.L.Rev. 873, 880-881 (1970). subsequently Call forth formal They favorably received monitoring implementation Americans Action, "Let Us Continue .", Guidelines (1973). "provable positive steps achieve legislative bring rules." takes provable obtain necessary changes, eligible exemption. 1976, obtained version nonadherents "cross over" 1964, crossovers made Seven percent identifying voted Governor George Wallace, 62% him. Three-quarters Wallace's came 541 1968, constituted 28% Forty-eight Senator Eugene McCarthy, 39% Johnson. Of crossovers, 70% 14% McCarthy's margin victory Johnson 21/2 times. 539. amounted participants. Fifty-one self-identified McGovern, 7% Wallace. 33% 29% figures two-thirds alter delegations." 540. These data, course, help explain derivation application dependent pattern reads "A [see supra] requirements." answer complaint filed General, "recognize product processes, conventions, caucuses, nowhere open; averred binds stipulation abandon consistent satisfied other, Party-run, 2C "[a] precluded complying [2A], adopt implement Party-run rule." "Freedom prove empty associations share persuasions underlie association's being." L. Tribe, Constitutional Law 791 (1978). "raiding" motivation matters not. acknowledged, existence 'raiding' conclusively proven survey research." 68. is, rather, general, regardless motivation. appellees similarly argue inapposite. contend appellees, like fail "openness" itself, standards. avowal assurance loyalty person stringency, wisdom, decide—not courts—so otherwise permissible. Ripon Society, Incorporated Republican 173 U.S.App.D.C. 350, 368, 525 Federal 585 (en banc). ("[A] choice, best calculated interests, deserves protection Constitution .") cert. denied, 424 933, 1147, 47 341. length empirical data addressed Party—which studied years, supra judiciary. contends able "principled crossovers" influencing candidate, problem. contentions irrelevant. Party—and court—to standards Obviously, Classic, 313 299, 61 1031, 85 1368. "has interest, duty, frivolous candidacies." Bullock Carter, 134, 145, 849, 857, 92. manner." 512, repeatedly presented. contention utterly ignores order, 3(c)5 acknowledges near end brief "[p]erhaps attempts add weight conferred cl. Constitution: "Each appoint, Manner thereof direct, Electors, whole Senators Representatives entitled." re Green, 134 377, 379, 586, 587, 951; McPherson Blacker, 146 27-28, 3, 7-8, 869; 894; Oregon Mitchell, 400 112, 291, 91 260, 347, 272 (opinion STEWART, joined BURGER, C.J., BLACKMUN, J.); 495-496, 551-552 concurring result). Any connection electors means elect remote tenuous wholly significance. similar arguments Illinois, nine Justices agreed will. 488, 547, 550 result); 496, 552 part). actual proclaim allegiance deduced effects minimal. ignored fact—the critical fact case—that outcomes. represent, (1977), candidate's 8.12(3)(c). fully accurate say, does, "election non-Democrats—including 110-111. "[i]n vice elected, 8.12(1) (1977) act situation "blanket" primaries—i. e., single occasion, elective office. Wash.Rev.Code 29.18.200 504, 532 (1980) ("[T]he legislature encourage discourage tempted party. Limiting discourages own, sacrifice process"). Compare 462-463, 1171-1172, 1488 (1958), careful assess disclosure responses opposed aims. Horn, Groups 103-104 (1956); Campbell, Pacific KF135 P2 Converse, W. Miller, Stokes, Voter 183-187, 543 (1960); Developments Law: Elections, 88 Harv.L.Rev. 1111, 1166 (1975). "open desire known Democrats." Ten, perception criticism structure. played key role forming coalitions creating consensus issues. "Broad-based supply coherence flexibility scene. serve combine seek goals." Branti Finkel, 445 507, 532, 1287, 1302, 63 574 Professor Ranney written: "[E]ach winning attempting accommodations competing hopes contributors rival opposition strategy, conceded, resulted vague, ambiguous, overlapping offer personalities most, programmatic tendencies, certainly unequivocal sharply programs. virtue, enabled era manage differences little violence world's oldest regime." Ranney, Curing Mischiefs Faction 201 Comment, Constitutionality Non-Member Primary Willamette Judge 259, 290 (1978) ("Independents precisely community indeed exists. Their motive presenting 'candidates responsive immediate concerns' "), quoting unrepresentative selections produced suggested 11, Tenn.Code Ann. 2-7-115(b)(2) Law, 4, 1164. scholar stated: distinctions exaggerate. Too simple distinction range nuances varieties states, account states. Take Illinois. Voters register party; polling place questions asked. disclose entering booth, 'closed.' One put, operation much KF105 F3 Sorauf, 206 (4th ed. 1980) (hereinafter Sorauf). nonideological so. call institutionalized achieved play central country, led occasion limitations activities. Smith Allwright, 321 649, 64 757, 987 (1944); Terry Adams, 345 461, 73 809, 1152 (1953). Arguably, factor favoring face interfered See, e. Sorauf 204 ("it article faith [the Progressives] cure ills democracy needed prescribe larger doses democracy"). belied often later, nonprimary processes. Vermont's lopsided victory, 74.3% 25.7%, Carter Kennedy. Cong. Q. Weekly Rep. 647 favored Kennedy 1472. "Raiding" refers opponents desirable strong candidate. Wisconsin. 506, 533 ("The agree raiding neither "). prevention undue "machine." Progressives promoted idea combat professionals controlled governmental power. Lovejoy, Follette Establishment Direct 7-8 (1941) ("avowed elimination scene"); ("Because democracy. middleman eliminated representatives"); 203-204. carries eliminating pressures organizations Although wisdom undermines tend weaken themselves, illegitimate insubstantial. 133, difficult satisfy second component test"—whether show "less drastic satisfying interests." 59, 308, depends how conceived. coercive hand, generally, "drastic" alternatives available reach question, shown method less-drastic-means inquiry. concedes elections. 124, 28, derives grant "appoint, direct" electors, U.S.Const., regulatory powers States. 551-552, (1975) (Rehnquist,

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