Court Opinion

ID: 9958581
Source: CourtListenerOpinion
Date Created: 2024-04-09 17:02:40.450852+00
Date Added: 2024-06-11T08:18:29.708444
License: Public Domain

IN THE

    SUPREME COURT OF THE STATE OF ARIZONA
  PLANNED PARENTHOOD ARIZONA, INC., SUCCESSOR-IN-INTEREST TO
PLANNED PARENTHOOD CENTER OF TUCSON, INC.; LAURA CONOVER, PIMA
                     COUNTY ATTORNEY,
                         Appellants,

                                  v.

   KRISTIN K. MAYES, ATTORNEY GENERAL OF THE STATE OF ARIZONA,
                            Appellee,

                                 and

  ERIC HAZELRIGG, M.D., AS GUARDIAN AD LITEM OF UNBORN CHILD OF
PLAINTIFF JANE ROE AND ALL OTHER UNBORN INFANTS SIMILARLY SITUATED;
           DENNIS MCGRANE, YAVAPAI COUNTY ATTORNEY,
                         Intervenors.

                         No. CV-23-0005-PR
                         Filed April 9, 2024

            Appeal from the Superior Court in Pima County
               The Honorable Kellie L. Johnson, Judge
                            No. C127867
                             AFFIRMED

            Opinion of the Court of Appeals, Division Two
                      254 Ariz. 401 (App. 2022)
                             VACATED

COUNSEL:

D. Andrew Gaona (argued), Austin C. Yost, Coppersmith Brockelman PLC,
Phoenix; and Diana O. Salgado, Planned Parenthood Federation of
America, Washington, DC, Attorneys for Planned Parenthood Arizona Inc.

Laura Conover, Pima County Attorney, Samuel E. Brown (argued),
Jonathan Pinkney, Pima County Attorney’s Office, Tucson; and Aadika
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

Singh, Joshua Rosenthal, Cristian Torres, Public Rights Project, Oakland,
CA, Attorneys for Laura Conover

Kristin K. Mayes, Arizona Attorney General, Joshua D. Bendor (argued),
Solicitor General, Alexander W. Samuels, Assistant Solicitor General, Luci
D. Davis, Assistant Attorney General, Phoenix, Attorneys for Kristin K.
Mayes

Kevin H. Theriot, Jacob P. Warner (argued), Alliance Defending Freedom,
Scottsdale; John J. Bursch, Alliance Defending Freedom, Washington, DC;
and Denise M. Harle, Alliance Defending Freedom, Lawrenceville, GA,
Attorneys for Eric Hazelrigg and Dennis McGrane

Joshua W. Carden, Carden Livesay, Ltd, Mesa, Attorney for Amicus Curiae
American College of Pediatricians

Kevin L. Beckwith, Law Offices of Kevin L. Beckwith P.C., Phoenix; Olivia
F. Summers, American Center for Law and Justice, Washington, DC,
Attorneys for Amici Curiae Charlotte Lozier Institute et al.

Roberta S. Livesay, Carden Livesay, Ltd, Mesa, Attorney for Amicus Curiae
American Association of Pro-Life Obstetricians and Gynecologists

Parker C. Fox, Phoenix and Tim Griffin, Arkansas Attorney General,
Nicholas J. Bronni, Arkansas Solicitor General, Dylan L. Jacobs, Deputy
Solicitor General, Hannah L. Templin, Assistant Solicitor General, Little
Rock, AR, Attorneys for Amicus Curiae State of Arkansas and 16 Other
States

Kory Langhofer, Thomas Basile, Statecraft PLLC, Phoenix, Attorneys for
Amici Curiae Speaker of the Arizona House of Representatives Ben Toma
and President of the Arizona Senate Warren Petersen

Andrew S. Lishko, May, Potenza, Baran & Gillespie, P.C., Phoenix,
Attorneys for Amicus Curiae Jill Norgaard

Steven H. Aden, Americans United for Life, Washington, DC; and Samuel
D. Green, Reason for Life, Palmdale, CA, Attorneys for Amicus Curiae
Center for Arizona Policy

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

Timothy D. Ducar, Law Offices of Timothy D. Ducar, PLC, Scottsdale; and
Mathew D. Staver, Liberty Counsel, Orlando, FL, Attorneys for Amici
Curiae Arizona Life Coalition, Frederick Douglass Foundation, and the
National Hispanic Christian Leadership Conference

Doug Newborn, Doug Newborn Law Firm, PLLC, Tucson, Attorney for
Amicus Curiae Christian Medical and Dental Associations

Abigail J. Mills, Schmitt Schneck Even & Williams, P.C., Phoenix, Attorneys
for Amicus Curiae The Prolife Center at the University of St. Thomas (MN)

David J. Euchner, Lauren K. Beall, Arizona Attorneys for Criminal Justice,
Tucson, Attorneys for Amicus Curiae Arizona Attorneys for Criminal
Justice

Susan C. Salmon, Joy E. Herr-Cardillo, The University of Arizona, James E.
Rogers College of Law, Tucson, Attorneys for Amicus Curiae the Family &
Juvenile Law Association, University of Arizona, James E. Rogers College
of Law

Alexis E. Danneman, Jean-Jacques Cabou, Perkins Coie LLP, Phoenix,
Attorneys for Amicus Curiae National Council of Jewish Women of
Arizona

Adriane Hofmeyr, Hofmeyr Law PLLC, Tucson; and Orlando Economos,
Benjamin Seel, Democracy Forward Foundation, Washington, DC,
Attorneys for Amici Curiae Law Professors

Sambo (Bo) Dul, Neta Borshansky, Noah T. Gabrielsen, Office of Governor
Katie Hobbs, Phoenix, Attorneys for Amicus Curiae Governor Katie Hobbs

Bruce Samuels, Lauren A. Crawford, Hannah Dolski, Anita Ramalho
Rocha, Papetti Samuels Weiss McKirgan LLP, Scottsdale, Attorneys for
Amici Curiae League of Women Voters of Arizona and Arizona Business
Owners

Timothy J. Berg, Emily Ward, Fennemore Craig, P.C., Phoenix, Attorneys
for Amicus Curiae Joel John

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       PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                     Opinion of the Court

Christopher D. Thomas, Karen Scherner Aldama, Kristine J. Beaudoin,
Perkins Coie LLP, Phoenix; and Nicole Saharsky, Mayer Brown LLP,
Washington, DC, Attorneys for Amici Curiae American College of
Obstetricians and Gynecologists, American Medical Association, Arizona
Medical Association and Society for Maternal-Fetal Medicine

J. Stanley Martineau, Martineau Law, PLLC, Mesa, Attorneys for Amici
Curiae Mario Villegas and Estate of Baby Villegas

JUSTICE LOPEZ authored the Opinion of the Court, in which JUSTICES
BOLICK, BEENE, and KING joined. VICE CHIEF JUSTICE TIMMER
authored a dissenting opinion in which CHIEF JUSTICE BRUTINEL
joined. 1

JUSTICE LOPEZ, Opinion of the Court:

¶1             We consider whether the Arizona Legislature repealed or
otherwise restricted A.R.S. § 13-3603 by enacting the abortion statutes in
Title 36, 2 namely A.R.S. § 36-2322, the statute proscribing physicians from
performing elective abortions after fifteen weeks’ gestation. This case
involves statutory interpretation—it does not rest on the justices’ morals or
public policy views regarding abortion; nor does it rest on § 13-3603’s
constitutionality, which is not before us.

¶2           We conclude that § 36-2322 does not create a right to, or
otherwise provide independent statutory authority for, an abortion that
repeals or restricts § 13-3603, but rather is predicated entirely on the

1   Justice William G. Montgomery has recused himself from this case.

2 References to “Title 36” pertain strictly to the abortion statutes codified in

title 36, chapters 20 and 23, §§ 36-2151 through -2164, and §§ 36-2301
through -2326.
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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

existence of a federal constitutional right to an abortion since disclaimed by
Dobbs v. Jackson Women’s Health Organization, 597 U.S. 215, 292 (2022).
Absent the federal constitutional abortion right, and because § 36-2322 does
not independently authorize abortion, there is no provision in federal or
state law prohibiting § 13-3603’s operation. Accordingly, § 13-3603 is now
enforceable.

¶3             When this litigation was initiated in 1971, the plaintiffs
asserted a number of state and federal constitutional challenges to
§ 13-3603, in addition to those presented in Roe v. Wade, 410 U.S. 113 (1973),
which was overruled by Dobbs. We remand the case to the trial court for
consideration of those additional constitutional challenges if the plaintiffs
wish to pursue them, and we temporarily extend the existing stay against
enforcement of § 13-3603 so that the trial court may determine how to
proceed.

                             BACKGROUND

¶4            In 1864, the First Legislative Assembly published a code of
laws governing the territory of Arizona. See Howell Code (1864). The
Howell Code established Arizona’s first criminal code, which included
constraints on abortion. In 1901, the Twenty-First Legislative Assembly
enacted a penal code reiterating the abortion law, dividing criminality
between people who facilitate abortions and women who solicit assistance
to procure an abortion. See Revised Statutes of Arizona, Penal Code §§ 234,
244 (1901). This language was adopted in whole in 1913, after Arizona
statehood. See Revised Statutes of Arizona, Penal Code § 273 (1913). In
1928, the Arizona Legislature codified abortion criminality in A.R.S.
§§ 13-211 to -213.

¶5            In 1971, Planned Parenthood Center of Tucson, Inc. sued the
Attorney General challenging the constitutionality of Arizona’s abortion
statutes under both the state and federal constitutions. See Planned
Parenthood Ctr. of Tucson, Inc. v. Marks, 17 Ariz. App. 308, 311–13 (1972)
(reversing the trial court’s order of dismissal and remanding to proceed to
a resolution of the case on its merits). On remand from Marks, the trial court
ruled Arizona’s abortion statutes unconstitutional. See Nelson v. Planned
Parenthood Ctr. of Tucson, Inc., 19 Ariz. App. 142, 143 (1973). On appeal, the
court of appeals reversed the trial court’s ruling, upholding the

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

constitutionality of the abortion statutes. Id. at 150. In 1973, after Nelson
upheld § 13-211’s constitutionality, the United States Supreme Court
recognized a federal constitutional right to an abortion in Roe. This new
right established by Roe was inconsistent with § 13-211, so the Arizona
Court of Appeals revisited the issue in Marks, this time holding the statute
unconstitutional because of Roe and enjoining enforcement of § 13-211.
Nelson, 19 Ariz. App. at 152.

¶6             Despite Nelson, the Arizona Legislature did not repeal
§ 13-211. To the contrary, four years after Roe and Nelson, the legislature
recodified § 13-211 as § 13-3603, maintaining the operative language of the
statute. 3 1977 Ariz. Sess. Laws ch. 142, § 99 (1st Reg. Sess.).

¶7            The abortion law’s recodification was not the only legislative
change made to the abortion statutory scheme. Between 1973 and 2022, and
conforming to the federal abortion right established in Roe, the Arizona
Legislature codified dozens of abortion statutes in Title 36. See, e.g., 1973
Ariz. Sess. Laws ch. 155, § 1 (1st Reg. Sess.); 2022 Ariz. Sess. Laws ch. 105,
§ 1 (2d Reg. Sess.). To the extent permitted by Roe and its progeny, all of
these statutes restricted abortions, including adding many procedural
requirements for physicians performing abortions.

¶8           In June 2022, the Supreme Court overturned Roe, thereby
eliminating the federal constitutional right to abortion and returning “the
authority to regulate abortion . . . to the people and their elected
representatives.” Dobbs, 597 U.S. at 292.

3 Section 13-3603 provides:

       A person who provides, supplies or administers to a pregnant
       woman, or procures such woman to take any medicine, drugs
       or substance, or uses or employs any instrument or other
       means whatever, with intent thereby to procure the
       miscarriage of such woman, unless it is necessary to save her
       life, shall be punished by imprisonment in the state prison for
       not less than two years nor more than five years.

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

¶9              After Dobbs, then-Attorney General Mark Brnovich moved for
relief under Arizona Rule of Civil Procedure 60(b)(5)–(6), seeking to set
aside the permanent injunction against § 13-3603 imposed in 1973. Planned
Parenthood Arizona, Inc. (“Planned Parenthood”) opposed the motion,
conceding that the original foundation for the injunction—Roe—was no
longer applicable, but asserting that the injunction must be modified to
harmonize § 13-3603 with Title 36, including § 36-2322. Planned Parenthood
Ariz., Inc. v. Brnovich, 254 Ariz. 401, 403 ¶ 5 (App. 2022).

¶10            The trial court granted the Rule 60 motion, noting that simply
“modifying the injunction to harmonize laws not in existence when the
Complaint was filed, on grounds for relief not set forth in the Complaint, is
procedurally improper.” The court further reasoned that “the requested
modified injunction which would carve out an exception for physicians, is
not consistent with the plain language of A.R.S. § 13-3603 which contains
no such exception.” Because the legal grounds for the 1973 injunction were
overturned by Dobbs, the trial court “vacate[d] the judgment in its entirety”
to allow full enforcement of § 13-3603. Planned Parenthood appealed and
filed an emergency motion to stay the trial court’s order pending appeal.
The trial court denied the request; however, the court of appeals
subsequently granted the stay.

¶11           The court of appeals reversed the trial court’s order,
concluding, in part, that “[l]icensed physicians who perform abortions in
compliance with Title 36 are not subject to prosecution under § 13-3603.”
Id. at 408 ¶ 26. The court of appeals held that the trial court improperly
limited review regarding the 1973 injunction, as a proper review would
necessitate a consideration of the full statutory scheme, including Title 36.
Id. at 404–05 ¶¶ 7, 9–10. Accordingly, the court of appeals considered
whether § 13-3603 conflicted with Title 36, ultimately finding no “conflict
between § 13-3603 and Title 36 that must result in the repeal of either.” Id.
at 405 ¶ 13. Instead, the court of appeals held that the statutes should be
harmonized “to conclude the abortion regulations in Title 36 govern,” so
“physicians who perform abortions in compliance with Title 36 are not
subject to prosecution under § 13-3603.” Id. ¶¶ 10, 13.

¶12          Dr. Eric Hazelrigg (“Hazelrigg”) sought timely review of the
court of appeals’ opinion. We granted review to consider the statutory
construction of Arizona’s abortion laws post-Dobbs, an issue of statewide

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      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

importance. We have jurisdiction under article 6, section 5(3) of the Arizona
Constitution.

                                DISCUSSION

                                        I.

¶13          We review a question of statutory construction de novo. BSI
Holdings, LLC v. Ariz. Dep’t of Transp., 244 Ariz. 17, 19 ¶ 9 (2018).

¶14              We pause to emphasize the unusual nature of the statutory
interpretation in which we must engage. Interpreting and harmonizing
multiple statutes concerning the same subject matter is a familiar task. See,
e.g., State v. Santillanes, 541 P.3d 1150, 1155 ¶ 16 (Ariz. 2024); Mussi v. Hobbs,
255 Ariz. 395, 401 ¶ 30 (2023); State v. Patel, 251 Ariz. 131, 137 ¶ 24 (2021).
Here, we consider a statute that was never repealed—in fact, it was
recodified even after it was enjoined—followed by the enactment of a series
of statutes regulating the same subject matter in the wake of Roe, the
Supreme Court decision striking down the original statute. Hence, the
question presented is different from those arising in the ordinary statutory
interpretation context: whether the later statutes “repeal or otherwise limit”
the earlier statute. Neither party could identify precedent squarely
resolving such an unusual circumstance.                Thus, we examine the
later-adopted Title 36 statutes to determine whether they repealed or
limited § 13-3603, or instead merely restricted abortions to the extent
possible so long as Roe prevented enforcement of § 13-3603.

                                       A.

¶15             We begin by setting out the rules of statutory construction
that guide our analysis. We interpret statutes “in view of the entire text,
considering the context and related statutes on the same subject.” Nicaise v.
Sundaram, 245 Ariz. 566, 568 ¶ 11 (2019). Clear and unequivocal language
determines a statute’s meaning, reading each word, phrase, clause, and
sentence in such a way to ensure no part of the statute is void or trivial. See
Janson ex rel. Janson v. Christensen, 167 Ariz. 470, 471 (1991). Under this plain
meaning analysis, “[w]e look first to the language of the provision, for if the
[statutory] language is clear, judicial construction is neither required nor
proper.” Perini Land & Dev. Co. v. Pima County, 170 Ariz. 380, 383 (1992); see

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

also SolarCity Corp. v. Ariz. Dep’t of Revenue, 243 Ariz. 477, 480 ¶ 8 (2018).
This analytical approach is premised on foundational trust in legislative
competency, and this Court “presume[s] that the legislature knows the
existing laws when it enacts or modifies a statute.” State v. Garza Rodriguez,
164 Ariz. 107, 111 (1990).

¶16            Statutory terms must be given effect “in accordance with their
commonly accepted meanings, ‘unless the legislature has offered its own
definition of the words or it appears from the context that a special meaning
was intended.’” State v. Reynolds, 170 Ariz. 233, 234 (1992) (internal citation
omitted) (quoting Mid Kan. Fed. Sav. & Loan Ass’n of Wichita v. Dynamic Dev.
Corp., 167 Ariz. 122, 128 (1991)). In determining “commonly accepted
meanings,” “we may refer to established and widely used dictionaries.” Id.;
Special Fund Div. v. Indus. Comm’n, 232 Ariz. 110, 113 ¶ 12 (App. 2013). We
also may consider a statement of legislative intent, including a construction
provision, in discerning the meaning of a statute. See S. Ariz. Home Builders
Ass’n v. Town of Marana, 254 Ariz. 281, 286 ¶ 31 (2023) (noting that we
determine the meaning of a statute “according to the plain meaning of the
words in their broader statutory context, unless the legislature directs us to
do otherwise”); Aros v. Beneficial Ariz., Inc., 194 Ariz. 62, 66 (1999).
Therefore, we read a statute in the context of the law that grants it authority.
Cf. S. Ariz. Home Builders Ass’n, 254 Ariz. at 286 ¶ 31.

¶17           If the statutory language is ambiguous—if “it can be
reasonably read in two ways”—we may use alternative methods of
statutory construction, including examining the rule’s historical
background, its spirit and purpose, and the effects and consequences of
competing interpretations. State v. Salazar-Mercado, 234 Ariz. 590, 592 ¶ 5
(2014); State v. Aguilar, 209 Ariz. 40, 47 ¶ 23 (2004). “A statute is not
ambiguous merely because the parties disagree about its meaning,” it is
ambiguous if the “meaning is not evident after examining the statute’s text
as a whole or considering statutes relating to the same subject or general
purpose.” Glazer v. State, 244 Ariz. 612, 614 ¶ 12 (2018).

                                      B.

¶18          We first address Planned Parenthood’s claim that Title 36
creates a right to an abortion or otherwise independently authorizes
elective abortion up to fifteen weeks’ gestation. Although Planned

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      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

Parenthood conceded at oral argument that Title 36 does not create a right
to abortion, it maintained its argument that § 36-2322 codifies permissive
authorization to perform abortions such that it repeals or restricts § 13-3603.
Planned Parenthood and Hazelrigg’s Title 36 arguments center almost
entirely on § 36-2322.

¶19           Section 36-2322 provides, in relevant part:

    A. Except in a medical emergency, a physician may not perform,
       induce or attempt to perform or induce an abortion unless the
       physician or the referring physician has first made a
       determination of the probable gestational age of the unborn
       human being and documented that gestational age in the
       maternal patient’s chart and, if required, in a report required
       to be filed with the department . . . .

    B. Except in a medical emergency, a physician may not
       intentionally or knowingly perform, induce or attempt to
       perform or induce an abortion if the probable gestational age
       of the unborn human being has been determined to be greater
       than fifteen weeks.

¶20             Planned Parenthood argues that, in order to statutorily
restrict the availability of abortion, specifically through § 36-2322’s use of
the terms “except” and “unless,” Title 36 must implicitly and necessarily
authorize the procedure because “unless” is a conjunction meaning “except
on the condition that” or “without the accompanying circumstances or
condition      that.”       See    Unless,   Merriam-Webster       Dictionary,
https://www.merriam-webster.com/dictionary/unless (last visited Mar.
20, 2024). Accordingly, Planned Parenthood embraces the court of appeals’
holding that § 36-2322 “prohibits abortions except those it allows—that is,
it permits a licensed physician to perform abortions in emergency situations
and elective abortions if the physician has determined the fetus’s
gestational age is fifteen weeks or less and otherwise has complied with
Title 36.” Brnovich, 254 Ariz. at 406 ¶ 19 n.8.4

4
  Planned Parenthood further contends that § 36-2322 should be read to
exempt “medical emergency” situations from the gestational age

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

¶21             Planned Parenthood is correct that if it were a standalone
statute, by its plain terms, § 36-2322’s proscription on elective abortion after
fifteen weeks’ gestation logically implies that abortion is otherwise
permissible. But its interpretation that the purpose and effect of “except”
and “unless” is to statutorily authorize certain abortions is not the only
reasonable one. Reasonable minds could differ about whether “except” and
“unless” independently statutorily authorize conduct not proscribed or,
alternatively, merely qualify the circumstances under which a physician
may be penalized under § 36-2322 (in other words, that a physician may not
be penalized under § 36-2322 when the “except” and “unless” provisions
apply). 5 This textual ambiguity—one interpretation which concludes that
§ 36-2322 independently authorizes conduct not proscribed, thus repealing
§ 13-3603, and the other which posits that § 36-2322 simply qualifies the
circumstances under which a physician may be penalized, thus leaving
§ 13-3603 undisturbed—generates two possible conclusions about
§ 36-2322’s effect on § 13-3603.

¶22            Section 36-2322’s text in isolation, therefore, does not resolve
the fundamental issue before us: whether the statute creates independent
statutory authority for abortion intended to repeal or restrict § 13-3603 or
merely acknowledges the existence of a contemporaneous federal
constitutional right to abortion under Roe at the time of its passage.
Notably, § 36-2322’s text does not address its effect on § 13-3603. Given the
competing plausible textual readings of § 36-2322, which create ambiguity
concerning the statute’s effect on § 13-3603, any interpretation of the statute
that ignores or minimizes the impact of Dobbs’ disavowal of a federal
constitutional abortion right runs headlong into the construction provision
of Senate Bill 1164 (“S.B. 1164”)—the genesis of § 36-2322 and part of what

requirement and to criminalize abortions after fifteen weeks. This
interpretation is reasonable, but we do not address it further because it has
no bearing on whether the statute creates an independent statutory
authorization for physicians to perform elective abortions before fifteen
weeks’ gestation that overrides § 13-3603, which is the issue before us.
5   Penalties for violating § 36-2322 include a criminal class 6 felony
conviction and medical license suspension or revocation. See A.R.S.
§§ 36-2324(A), -2325(A).
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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

the legislature enacted. We must interpret the statute in its proper context.
This requires us to reconcile the legislature’s construction provision, which
specifically preserves § 13-3603, and the text of § 36-2322, which is silent on,
and ambiguous as to, its effect on § 13-3603. See Stambaugh v. Killian, 242
Ariz. 508, 509 ¶ 7 (2017); S. Ariz. Home Builders Ass’n, 254 Ariz. at 286 ¶ 31.

                                      C.

¶23          To determine if Title 36 creates a right to abortion, or
otherwise provides independent statutory authority to perform the
procedure, as Planned Parenthood contends, we must consider S.B. 1164’s
construction provision.

¶24            The legislature included a two-part construction provision in
S.B. 1164, expressing its unequivocal intent that, in restricting elective
abortion to fifteen weeks’ gestation, it did not create, recognize, or expand
a right to an abortion, nor did it repeal § 13-3603’s proscription on elective
abortion:

       This act does not:

       1. Create or recognize a right to abortion or alter generally
          accepted medical standards. The Legislature does not
          intend this act to make lawful an abortion that is currently
          unlawful.

       2. Repeal, by implication or otherwise, section 13-3603,
          Arizona Revised Statutes, or any other applicable state
          law regulating or restricting abortion.

See 2022 Ariz. Sess. Laws ch. 105, § 2 (2d Reg. Sess.). The construction
provision is part of the bill that legislators have before them and approve,
and has the same force of law as codified law. See The Arizona Legislative
Bill Drafting Manual 2021–2022 at 7.

¶25           We must consider the legislature’s construction provision in
S.B. 1164 when discerning the act’s meaning because it is part of the bill the
legislature approved. See, e.g., State ex rel. Ariz. Dep’t of Revenue v. Tunkey,
254 Ariz. 432, 438 ¶ 27 (2023) (Bolick, J., concurring) (“If the legislature
agrees on findings, purposes, or definitions, it becomes our duty to

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

ascertain statutory meaning through those prisms.”); cf. S. Ariz. Home
Builders Ass’n, 254 Ariz. at 286 ¶ 31; see also Kevin M. Stack, The Enacted
Purposes Canon, 105 Iowa L. Rev. 283, 304–05 (2019); Antonin Scalia & Bryan
Garner, Reading Law: The Interpretation of Legal Texts 232 (2012) (“Legal
drafters have the power . . . to limit the implications of their terms . . . .”).

¶26            Before we consider S.B. 1164’s construction provision, we first
address Planned Parenthood’s contention that § 36-2322 does not create a
right to abortion, but rather “allows” the procedure and, thus, provides
independent statutory authorization for it. We reject this distinction. As
Hazelrigg notes, because S.B. 1164 does not define “right,” we may rely on
dictionary definitions. See Special Fund Div., 232 Ariz. at 113 ¶ 12. A “right”
is a “privilege . . . secured . . . by law.” Right, Black’s Law Dictionary (11th
ed. 2019). Here, we disagree that a statute that expressly disclaims creation
of a right may be read to simultaneously create an independent statutory
authorization akin to a right. Both describe a privilege secured by law.

¶27          Planned Parenthood argues that S.B. 1164’s construction
provision against repeal of § 13-3603 “or any other applicable state law
regulating or restricting abortion” clarifies the legislature’s intent to give
every Title 36 provision effect, and any repeal of § 36-2322 would
contravene this express legislative provision because the statute is part of
Title 36. In other words, the legislature’s construction provision was
designed to foreclose a reading of S.B. 1164 that would result in its own
demise.

¶28            This interpretation does not withstand scrutiny. First, it is
inconsistent with the plain meaning and manifest purpose of the
construction provision—to clarify that § 36-2322’s enactment does not
“create or recognize a right to abortion,” repeal the statutory ban on elective
abortion, or repeal “any other applicable state law regulating or restricting
abortion.” See 2022 Ariz. Sess. Laws. ch. 105, § 2 (2d Reg. Sess.) (emphasis
added). Neither the construction provision’s text, nor its context, suggest
that the legislature intended to create an independent statutory authority
for abortion that would repeal § 13-3603. To do so would contravene its
express preservation of § 13-3603’s ban on elective abortion, which the
legislature neither repealed nor amended in any manner, and any other
applicable law that regulated or restricted abortion. Second, any suggestion
that the legislature crafted the construction provision to clarify its intent not

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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

to repeal § 36-2322 by virtue of its own passage is absurd. See 4QTKIDZ,
LLC v. HNT Holdings, LLC, 253 Ariz. 382, 385 ¶ 5 (2022) (noting that the
plain, clear and unambiguous text of a statute controls unless it results in
an absurdity). The construction provision must be read as reflecting the
legislature’s intent not to repeal other laws akin to § 13-3603, not § 36-2322
itself.

¶29            A cursory review of the construction provision that the
legislature “did not intend [S.B. 1164] to make lawful an abortion that is
currently unlawful” seemingly engenders confusion, but its context and
logic instead yield clarity. This provision can reasonably bear only one
meaning: the legislature did not intend the act to codify an independent
statutory right to an elective abortion before fifteen weeks’ gestation or
otherwise repeal any other abortion laws more restrictive than S.B. 1164.
Any other reading is implausible because, at the time of its passage, S.B.
1164 merely sought to restrict a federal constitutional right to abortion that
the legislature was powerless to abolish. Under no scenario could the
legislature’s restriction of a broader abortion right be construed to “make
lawful an abortion that is currently unlawful” unless the act was
misinterpreted to (1) override § 13-3603, the only provision in Arizona or
federal law at the time that made an elective abortion before fifteen weeks’
gestation “currently unlawful” or (2) otherwise repeal more restrictive
abortion statutes. 6 Thus, the provision must mean that the legislature
“d[id] not intend [S.B. 1164] to make lawful an abortion that is currently
unlawful [under § 13-3603 or any other statute more restrictive than S.B.
1164].” This is the only interpretation that is internally consistent with, and
does not defeat, the remainder of S.B. 1164’s construction provision. And it
helps that the legislature identified precisely which statute it meant to
preserve: § 13-3603.

6 S.B. 1164’s ban on elective abortion after fifteen weeks’ gestation was the
most temporally restrictive abortion statute. This construction provision
conceivably may also apply to other non-temporal statutory abortion
restriction statutes. See, e.g., A.R.S. § 36-2152(A) (requiring parental consent
or judicial authorization for abortions on minors); A.R.S. § 13-3603.02(A)(1)
(prohibiting physicians from performing an abortion when a physician
knows the purpose is based on genetic abnormality or race or gender).
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     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

¶30            Hazelrigg argues, and we agree, that the court of appeals
misconstrued the legislature’s express intent embodied in S.B. 1164 by
holding that the statutory scheme demonstrates that the legislature enacted
S.B. 1164 with the design “to restrict—but not to eliminate—elective
abortions.” Brnovich, 254 Ariz. at 406 ¶ 16. That was the statute’s effect, but
the court of appeals divines a legislative purpose in a vacuum. At the time
of S.B. 1164’s passage when Roe was still in effect, the legislature was devoid
of authority to ban elective abortions without running afoul of the
Supremacy Clause. Indeed, the legislature’s previous attempt to restrict
elective abortion after twenty weeks’ gestation was enjoined. See Isaacson
v. Horne, 716 F.3d 1213, 1231 (9th Cir. 2013). It is no surprise that the
legislature merely intended “to restrict—but not to eliminate—elective
abortions.” It could do no more. Further, at that time, abortion up to fifteen
weeks’ gestation was already legal in Arizona, so there was no reason for
the legislature to codify in statute a right that already existed under federal
constitutional law.

¶31            In context, S.B. 1164 was not a legislative attempt to preserve
a right to abortion in Arizona; instead, it was a significant legislative
restriction on elective abortion. It is a strained interpretation, indeed, that
transforms S.B. 1164—a legislative limitation of elective abortion and an
express preservation of a statutory ban on all elective abortions—into an
independent statutory authority for elective abortion that overrides
§ 13-3603 and survives Roe’s demise. See, e.g., Roberts v. State, 253 Ariz. 259,
267 ¶ 25 (2022) (noting that the “historical sequence” of statutory
enactments and judicial decisions may inform statutory interpretation). We
do not interpret the act to negate its own purpose. See King v. Burwell, 576
U.S. 473, 493 (2015).

                                      D.

¶32             The court of appeals and Planned Parenthood’s interpretation
of S.B. 1164 is particularly dubious in light of Arizona’s additional statutory
provision that our laws “shall be interpreted and construed to
acknowledge, on behalf of an unborn child at every stage of development,
all rights, privileges and immunities available to other persons, citizens and
residents of this state, subject only to the Constitution of the United States
and decisional interpretations thereof by the United States Supreme Court.”

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      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

A.R.S. § 1-219(A). 7 This statute further illustrates that access to abortion in
Arizona is, and remains, confined to a federal constitutional right beyond
the reach of Arizona’s legislature. Section 1-219(A), left untouched by
§ 36-2322, establishes the public policy of the state, provides additional
interpretive guidance, and belies the notion that the legislature intended to
create independent statutory authority for elective abortion.

¶33            Moreover, S.B. 1164’s construction provision mirrors
provisions in numerous other bills codified in Title 36, demonstrating the
consistency, gravity, and clarity of the legislature’s intent not to
independently grant a right or authorize access to abortion. See, e.g., 2009
Ariz. Sess. Laws ch. 172, § 6 (1st Reg. Sess.); 2010 Ariz. Sess. Laws ch. 111,
§ 1 (2d Reg. Sess.); 2011 Ariz. Sess. Laws ch. 9, § 4 (1st Reg. Sess.); 2011 Ariz.
Sess. Laws ch. 10, § 8 (1st Reg. Sess.); 2012 Ariz. Sess. Laws ch. 250, § 11 (2d
Reg. Sess.); 2021 Ariz. Sess. Laws ch. 286, § 17 (1st Reg. Sess.).

                                       E.

¶34           Planned Parenthood argues that the legislature’s failure to
include an express statutory trigger provision repealing § 36-2322 upon
Roe’s reversal evinces the legislature’s implicit intent to create an
independent statutory authority for elective abortion up to fifteen weeks’
gestation that effectively repeals § 13-3603.       Planned Parenthood
emphasizes the import of the legislature’s omission because S.B. 1164
otherwise mirrors “Mississippi’s 15-week law,” which included an express
statutory trigger. See Miss. Code Ann. § 41-41-191(8) (2018). We are
unpersuaded.

¶35           Planned Parenthood and the dissent make much of the fact
that Mississippi’s statutes, which largely parallel Arizona’s statutes at issue
here, contain a “trigger provision” that specifies applicability of certain
abortion provisions only in the event that Roe is overturned, whereas

7   Section 1-219(A) is preliminarily enjoined in federal court from
enforcement “as applied to abortion care that is otherwise permissible
under Arizona law.” Isaacson v. Brnovich, 610 F. Supp. 3d 1243, 1257 (D.
Ariz. 2022). Thus, the injunction has no bearing on this Court’s authority
to consider § 1-219(A) in interpreting the statutes before us or to determine
whether abortion is permissible under Arizona law.
                                       16
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

Arizona’s do not. Under the divergent circumstances of the two state laws,
the difference is of no consequence.

¶36           In 2007, Mississippi enacted Mississippi Code Annotated
§ 41-41-45(2), which provides in relevant part: “No abortion shall be
performed or induced in the State of Mississippi, except in the case where
necessary for the preservation of the mother’s life or where the pregnancy
was caused by rape.” It was this law that included the express trigger
provision, which provided that it would take effect ten days following a
determination by the state attorney general that Roe was overturned and
the statute would be constitutional. 2007 Miss. Laws ch. 441, § 6. Including
an express trigger provision made sense given that Roe was in effect when
Mississippi Code Annotated § 41-41-45 was enacted.

¶37            Of course, § 13-3603, the Arizona near-analog to § 41-41-45,
does not have a trigger provision, for a simple and obvious reason: it was
first enacted 109 years before Roe. Its subsequent recodifications, even after
Roe, make clear the legislature’s determination to keep it on the books. A
trigger provision would serve utterly no purpose. And even the dissent
acknowledges that § 13-3603 has never been repealed and, following Dobbs,
should be given effect. Infra ¶¶ 65, 88–91.

¶38           Mississippi subsequently enacted, among other laws
restricting abortion, a fifteen-week gestational limit on abortions in 2018.
Miss. Code Ann. § 41-41-191. This statute, like the similar § 36-2322(B), does
not contain an express trigger provision. Rather, it contains a subsection
entitled “Construction,” which provides in relevant part: “Nothing in this
section shall be construed as creating or recognizing a right to abortion or
as altering generally accepted medical standards. It is not the intention of
this section to make lawful an abortion that is otherwise unlawful,” and
“[a]n abortion that complies with this section, but violates any other law is
unlawful.” Miss. Code Ann. § 41-41-191(8).

¶39           The bulk of this language is virtually identical to the
construction provision in Arizona law—except that the Arizona language
explicitly identifies one statute in particular that it does not “[r]epeal by
implication or otherwise”: § 13-3603. Mississippi’s fifteen-week provision
that “[a]n abortion that complies with [it], but violates any other law is
unlawful”—which is absent from § 36-2322(B)’s construction provision—is

                                     17
      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

not dispositive, as the dissent contends. Infra ¶ 96. Just as the Mississippi
fifteen-week law implicitly yields to the enforceability of § 41-41-45,
Arizona’s fifteen-week law—§ 36-2322(B)—conforms its application to
§ 13-3603’s enforceability. To the extent the dissent suggests such language
and construction serve as a trigger provision in the Mississippi statute, infra
¶¶ 94–95, it would obviously play the same role in the Arizona
statute—indeed, even more so, by identifying a particular statute that is left
intact.

¶40            Regardless, the absence of an express trigger provision is not
dispositive here. We typically do not infer legislative intent from silence.
Cf. Sw. Paint & Varnish Co. v. Ariz. Dep’t of Env’t Quality, 194 Ariz. 22, 25 ¶ 21
(1999) (noting that legislative acquiescence by silence is “limited to
instances in which the legislature has considered and declined to reject the
relevant judicial interpretation”). Second, in light of Title 36’s genesis as the
statutory mechanism to restrict and regulate abortion in response to Roe,
Dobbs’ elimination of a federal constitutional right to abortion removed the
sole authority for elective abortion in Arizona necessitating many Title 36
regulations, including § 36-2322. Third, although the legislature did not
include the express trigger provision that appears in Mississippi’s law, it
was not silent on the issue. Despite the dissent’s requirement of an express
trigger provision, infra ¶¶ 93–96, we conclude that the legislature made its
intent known. The legislature’s unwavering and unqualified affirmative
maintenance of a statutory ban on elective abortion since 1864 (albeit
enjoined since 1973), S.B. 1164’s construction provision that the legislature
did not intend to repeal § 13-3603 in passing § 36-2322, and § 1-219(A)’s
public policy pronouncement that the rights of the “unborn child” were
limited only by the federal Constitution and the Supreme Court’s
interpretation of it, effectively constitute a discernible comprehensive
trigger provision in the event of Roe’s demise.

                                       F.

¶41           Planned Parenthood urges that we divine legislative intent
from statements of “numerous public officials,” namely the former
Governor, the Maricopa County Attorney, and the former Attorney
General, concerning the meaning of § 36-2322. This reed is too thin to bear
the interpretive weight Planned Parenthood places upon it. “We believe
the best policy is not to consider nonlegislators’ statements to determine the

                                       18
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

legislature’s intent concerning the specific application of a proposed statute,
unless the circumstances provide sufficient guarantees that the statements
reflect legislators’ views.” Hayes v. Cont’l Ins. Co., 178 Ariz. 264, 270 (1994).
Here, we do not find these expressed opinions particularly illuminating or
relevant as to legislative intent or the meaning of § 36-2322. As Hazelrigg
notes, legislative and non-legislative statements support both parties’
interpretations. At most, conflicting statements made by public officials
illustrate the novelty of the interpretative task presented to us by the
legislature.

                                       G.

¶42            Planned Parenthood contends that, like the court of appeals,
we must harmonize §§ 13-3603 and 36-2322 to give effect to each. See, e.g.,
UNUM Life Ins. Co. of Am. v. Craig, 200 Ariz. 327, 329 ¶ 11 (2001) (“When
two statutes appear to conflict, we will attempt to harmonize their language
to give effect to each.”). We disagree. Our conclusion that the legislature
did not intend to create a privilege secured by law to obtain or perform an
abortion obviates the need to harmonize §§ 13-3603 and 36-2322.
Harmonization between these laws may be accomplished only by repealing
§ 13-3603 in contravention of the legislature’s express intent and engaging
in untenable statutory interpretation such as excising physicians from the
plain meaning of “person” in § 13-3603, defined as “a human being” in
A.R.S § 13-105(30). And indeed, despite purporting to harmonize the
statutes, the dissent’s treatment of § 13-3603 all but nullifies it. We decline
to do so. See Schatz v. Allen Matkins Leck Gamble & Mallory LLP, 198 P.3d
1109, 1120 (Cal. 2009) (“Courts ‘will infer the repeal of a statute only
when . . . a subsequent act of the legislature clearly is intended to occupy
the entire field covered by a prior enactment.’” (alteration in original)
(citation omitted)).

¶43          Roe’s recognition of a right to an abortion was not absolute,
and many states—including Arizona—legislatively restricted the time,
place, and manner in which an abortion could be performed. Title 36 and
the corresponding construction provisions were passed under Roe’s
authority, and thus, must be interpreted through the mutating lens of the
Supreme Court’s abortion jurisprudence. See Aguilar, 209 Ariz. at 47 ¶ 23.
Through this lens it becomes clear that Title 36 is merely Arizona’s statutory
mechanism for restricting and regulating Roe’s abortion right. And, as

                                       19
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

Planned Parenthood concedes, Arizona has never independently created a
statutory right to abortion. We will not “amend a statute judicially [nor]
read implausible meaning into express statutory language” given the
absence of an abortion right in Arizona jurisprudence. Kyle v. Daniels, 198
Ariz. 304, 306 ¶ 7 (2000). Therefore, because the federal constitutional right
to abortion that overrode § 13-3603 no longer exists, the statute is now
enforceable, prospectively prohibiting abortion unless necessary to save a
woman’s life. See § 13-3603.

                                     II.

¶44           We next consider the viability of the remaining portions of
Title 36 in light of Planned Parenthood’s contention that simultaneous
enforcement of § 13-3603 and Title 36 implicates physicians’ due process
right to notice of potential criminal and regulatory liability for
abortion-related conduct.

                                     A.

¶45           We first clarify the effect of our Opinion on Title 36. Any
portion of Title 36 solely applicable to elective abortion under the defunct
federal constitutional right arguably may no longer be operative simply for
want of purpose; what does not exist cannot be regulated. We refrain,
however, from crafting an advisory opinion as to the operability of any Title
36 provision not squarely before us. The enforceability of Title 36
provisions must be revisited by the legislature or adjudicated by the courts
as controversies arise.

¶46           Section 36-2322, however, is before us. We hold that it
remains enforceable even though it was enacted solely to curtail the federal
abortion right by criminalizing physicians’ performance of abortion after
fifteen weeks’ gestation and adding other regulatory requirements
concerning abortions performed due to “a medical emergency.”
§§ 36-2322(C)(1)–(7), -2324(A). Although we conclude that the legislature
enacted § 36-2322 to curtail elective abortion in lieu of enforcement of
§ 13-3603 that was then-enjoined under Roe, we do not attempt to—nor
have we been requested to—divine the legislature’s intent in passing
§ 36-2322’s additional substantive criminal and regulatory provisions that
exceed the scope of § 13-3603’s ban on elective abortion. If, in light of

                                     20
      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

§ 13-3603’s enforceability, a decision is to be made to rescind any provision
in § 36-2322, it is the legislature’s prerogative.

¶47            Various other Title 36 provisions, in addition to § 36-2322,
regulating abortion-related conduct and entailing criminal and regulatory
sanctions remain relevant when § 13-3603’s elective abortion ban is
enforceable. For example, Title 36’s abortion licensing requirements, A.R.S.
§ 36-449.02, reporting requirements, A.R.S. §§ 36-2161 to -2164, and
emergency consent requirements, A.R.S. § 36-2153(C), may apply to
abortions necessary to save a woman’s life. Moreover, other statutory
provisions such as A.R.S. § 36-2302, which proscribes, subject to statutory
exceptions, “use of a human fetus or embryo . . . [resulting from an
abortion] for animal or human research,” remain relevant because they may
implicate all abortion-related activity.

                                       B.

¶48           Planned Parenthood contends that § 13-3603 and Title 36’s
abortion-related criminal and regulatory provisions cannot coexist without
implicating due process because the overlapping laws do not adequately
apprise physicians of the contours of their criminal liability. We note that
Planned Parenthood’s primary due process concern centers on the
co-existence of criminal provisions in §§ 13-3603 and 36-2322, but its due
process argument extends to § 13-3603’s potential overlap with other Title
36 criminal provisions.

¶49           United States v. Batchelder, 442 U.S. 114 (1979), a unanimous
Supreme Court decision by Justice Thurgood Marshall, deals with precisely
this question. In Batchelder, the Court rejected a claim that two federal
criminal statutes could not coexist because Congress intended to enact two
independent gun control statutes, each enforceable on its own terms. 442
U.S. at 123–24 (“This Court has long recognized that when an act violates
more than one criminal statute,” the decisions of “[w]hether to prosecute
and what charge[s] to file . . . generally rest in the prosecutor’s discretion.”).
The Court determined that one statute cannot be interpreted as implicitly
repealing another statute merely because a defendant’s conduct might
violate both statutes. Id. at 122. The Court reasoned that, “it is ‘not enough
to show that the two statutes produce differing results when applied to the
same factual situation.’” Id. (quoting Radzanower v. Touche Ross & Co., 426

                                       21
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

U.S. 148, 155 (1976)). “Rather, the legislative intent to repeal must be
manifest in the ‘positive repugnancy between the provisions.’” Id. (quoting
United States v. Borden Co., 308 U.S. 188, 199 (1939)).

¶50             Our jurisprudence accords with Batchelder.             We have
consistently upheld the principle that the legislature may proscribe the
same conduct through multiple laws and our criminal statutes are replete
with examples of multiple laws applying to the same conduct. See, e.g.,
A.R.S. § 13-116 (“An act or omission which is made punishable in different
ways by different sections of the laws may be punished under both . . . .”);
State v. Jones, 235 Ariz. 501, 504 ¶ 13 (2014) (“The same conduct may result
in different offenses . . . .”); Anderjeski v. City Court of Mesa, 135 Ariz. 549,
550 (1983) (“Although arising out of one act, the statutes describe two
separate and distinct offenses.”); State v. Culver, 103 Ariz. 505, 507–08 (1968)
(holding criminal statutes merely prohibiting the same conduct did not
conflict where there was no positive repugnancy between the two laws);
State v. O’Brien, 123 Ariz. 578, 583–84 (App. 1979) (“A specific statute does
not supplant an earlier general statute unless all provisions are covered;
that is, where the specific statute is narrower, the general one is not
repealed. Where a single act violates more than one statute and there is no
evidence of legislative intent to repeal one of them, the government has the
option of prosecuting under either.” (internal citations omitted)); State v.
Lopez, 174 Ariz. 131, 143 (1992) (“When conduct can be prosecuted under
two or more statutes, the prosecutor has the discretion to determine which
statute to apply.”). “So long as overlapping criminal provisions clearly
define the conduct prohibited and the punishment authorized, the notice
requirements of the Due Process Clause are satisfied.” Batchelder, 442 U.S.
at 123.

¶51            Here, § 13-3603 prohibits “a person” from performing any
abortion “unless it is necessary to save [a woman’s] life” and punishes a
violation of the statute “by imprisonment in the state prison for not less
than two years nor more than five years.” Section 36-2322(B), “[e]xcept in
a medical emergency,” proscribes a physician from performing an abortion
after fifteen weeks’ gestation and deems a violation of the statute a class 6
felony under § 36-2324. Thus, as in Batchelder, these statutes create
overlapping criminal liability, but they also on their face “clearly define the
conduct prohibited and the punishment authorized.” 442 U.S. at 123. The

                                       22
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

fact there is overlap between the two statutes does not violate due process
notice requirements. Id.

¶52           In addition to overlapping criminal statutes, Planned
Parenthood argues that § 13-3603’s criminal provision and Title 36’s
regulatory scheme present physicians performing abortions with an
unnavigable array of criminal and regulatory requirements. We disagree.
Multi-title statutory regulation of conduct, particularly business and
professional activity, is hardly unique to abortion. For example, employers
confronting marijuana impairment at work are tasked with consulting both
Title 23, Chapter 2, Article 14—the Drug Testing of Employees Act—and
Title 36, Chapter 28.1—the Arizona Medical Marijuana Act. And, as
Hazelrigg notes, doctors, lawyers, securities brokers, and commodities
traders, among other professions, are also permissibly subject to
overlapping criminal, civil, and regulatory laws. As long as these legal
requirements clearly define prohibited conduct and the sanction, they do
not implicate due process notice requirements. See Batchelder, 442 U.S.
at 123. We do not conclude that a physician’s regulatory compliance
burden in this arena is constitutionally distinguishable from any other
regulated professional’s legal obligations.

¶53           In light of this Opinion, physicians are now on notice that all
abortions, except those necessary to save a woman’s life, are illegal, see
§ 13-3603, and that additional criminal and regulatory sanctions may apply
to abortions performed after fifteen weeks’ gestation, see §§ 36-2322, -2324,
-2325. Physicians are tasked with otherwise comporting their conduct with
Title 36’s requirements. See § 13-116; see also Lopez, 174 Ariz. at 143. The
application of § 13-3603 and Title 36 to physicians’ conduct does not facially
implicate constitutional due process concerns. 8 Our holding, of course,
does not foreclose a physician from raising an as-applied due process

8 Pima County Attorney’s Office argues that § 13-3603’s “necessary to save
[a pregnant woman’s] life” exception to the ban on abortion “would violate
due process because it does not provide physicians clarity on how they
should conform their conduct to the law in life- and health-threatening
situations.” We decline to address this argument here because it is beyond
the scope of the issue before us, a factual record was not developed in the
trial court, and neither the trial court nor the court of appeals ruled on this
issue. See Hawkins v. Allstate Ins. Co., 152 Ariz. 490, 503 (1987).
                                      23
      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

challenge on facts, and with a developed factual record, that are not before
us.

                                       III.

¶54            The dissent contends that the majority “errs by finding
§ 36-2322(B) ambiguous and then using the construction [provision] to
interpret the statute in a way unsupported by its plain textual meaning,”
infra ¶ 73, and also misplaces our focus “on whether § 36-2322(B) grants an
affirmative right to an abortion akin to Roe’s recognition of a constitutional
right,” infra ¶ 76. We address these points in turn.

¶55             We begin with the dissent’s assertion that § 36-2322(B) is
unambiguous, which forecloses any consideration of Arizona’s abortion
statutory history or the legislature’s clear statements of the statute’s
intended effect on § 13-3603. Infra ¶ 73. The dissent misconstrues the
nature of the ambiguity.           There is no dispute that § 36-2322(B)
unambiguously criminalizes physicians’ performance of elective abortion
after fifteen weeks’ gestation. But the statute is silent and otherwise
ambiguous as to its intended effect on § 13-3603—the sole issue before us.
See Part I, B ¶¶ 21–22. Invocation of a menagerie of rules of statutory
construction, infra ¶ 80, with which we agree and follow when applicable,
does not change the fact that § 36-2322(B) is ambiguous most importantly
not for what it says, but for what it does not say. See, e.g., State v. Sweet, 143
Ariz. 266, 269–70 (1985) (“The problem in interpreting the statute at issue is
not that certain words or groups of words have more than one meaning,
but it is the failure to include necessary words which causes confusion as to
the scope of the statute.”). Because the statute’s text does not reveal its
effect on § 13-3603, it is ambiguous. Id. And because it is ambiguous, we
may consider the construction provision in determining § 36-2322(B)’s
effect on § 13-3603. See Sakrison v. Pierce, 66 Ariz. 162, 172 (1947) (noting
that the policy section of an act “would be controlling” in interpreting “an
operative portion of the statute that was ambiguous or of doubtful meaning
or application”).

¶56           Given § 36-2322(B)’s ambiguity concerning its effect on
§ 13-3603, we turn to the dissent’s curious claim that we misplace our focus
“on whether § 36-2322(B) grants an affirmative right to an abortion akin to
Roe’s recognition of a constitutional right.” Infra ¶ 76. The dissent subtly,

                                       24
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

but critically, misconstrues our reasoning. To clarify, the issue before us is
not whether, in the abstract, abortion not expressly proscribed by statute is
legally permissible; it is whether § 36-2322(B)’s proscription on elective
abortion after fifteen weeks’ gestation created statutory authorization for
abortion before fifteen weeks’ gestation that repeals or limits § 13-3603’s total
ban on elective abortions. Viewed through this lens, the dissent’s
unremarkable claim that “[p]roscribing conduct does not require the
legislature to grant people an affirmative right to engage in conduct falling
outside the proscription,” infra ¶ 76, the corollary observation that “the
legislature does not affirmatively grant a right by decriminalizing conduct,”
infra ¶ 78 (emphasis omitted), and an illustration of these principles
involving driving under the speed limit, infra ¶ 77, have no import. Here,
our focus on whether § 36-2322(B)—in context rather than in a legal and
historical vacuum—grants an affirmative right or statutory authorization
or otherwise effectively repeals § 13-3603 is the question before us.

¶57           The dissent relies on United States v. Vuitch, 402 U.S. 62 (1971),
a pre-Roe case, for the proposition that physicians may perform “abortions
that are not expressly outlawed.” Infra ¶ 71. Vuitch is distinguishable; it
does not elucidate the issue before us. In Vuitch, the Supreme Court, in
upholding the District of Columbia’s abortion ban, noted that abortions
performed pursuant to the statutory exception for abortions necessary to
preserve a mother’s life or health were “legal.” 402 U.S. at 69–71. The
Court’s recognition that an act is legal if performed pursuant to an express
statutory exception to a proscribed act is unsurprising, but it has no
relevance here. As noted, the issue in this case is not whether an abortion
not expressly proscribed by law may be performed lawfully, it is whether
§ 36-2322(B)’s proscription on elective abortion after fifteen weeks’
gestation created statutory authorization to perform other abortions in
violation of an existing statute, thus repealing or limiting § 13-3603. Vuitch
simply did not address the effect of a law on a pre-existing statute.

¶58           The dissent, employing the general/specific canon, contends
that § 36-2322(B) merely operates as an exception to § 13-3603 and “does
not repeal any aspect of § 13-3603” because it “negates § 13-3603 only in its
application to the situation that § 36-2322(B) covers.” Infra ¶¶ 87–89. Not
so. “Repeal” means to “abrogat[e] . . . an existing law.” Repeal, Black’s Law
Dictionary (11th ed. 2019). As the dissent acknowledges, “a physician who
performs an abortion in compliance with § 36-2322(B) nevertheless violates

                                       25
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

§ 13-3603.” Infra ¶ 85. The dissent’s interpretation renders lawful what is
a crime under § 13-3603. Thus, under the dissent’s approach, § 36-2322(B)
effectively repeals and supplants § 13-3603. The dissent’s reasoning is
tenable only to the extent that it discounts statutory history, the legislature’s
public policy pronouncement in § 1-219(A), and the construction provision
that the legislature did not intend § 36-2322(B) to “repeal, by implication or
otherwise, section 13-3603.” Although the dissent asserts that we elevate
the construction provision over the statute’s text in discerning the
legislature’s intent concerning § 36-2322(B)’s ambiguous effect on
§ 13-3603, infra ¶ 79, we decline to apply the general/specific canon to
ignore the legislature’s plain statement in the approved bill that it did not
intend for § 36-2322(B) to repeal § 13-3603, precisely the result obtained
under the dissent’s statutory harmonization analysis.

¶59           The dissent notes that the legislature’s statement of intent
concerning § 36-2322(B) described its objective “to restrict the practice of
nontherapeutic or elective abortion to the period up to fifteen weeks of
gestation,” but that, in the dissent’s view, “[n]othing suggests an intent to
make abortions permitted under § 36-2322(B) unlawful upon Roe’s demise.”
Infra ¶ 105. The legislature’s statement of intent and construction provision
are not logically inconsistent. The intent statement expressed what the
legislature intended § 36-2322(B) to do—restrict elective abortion after
fifteen weeks’ gestation through penalties specified in Title 36—and the
construction provision expressed what the legislature did not intend the
law to do—repeal § 13-3603, “by implication or otherwise.”

¶60           Finally, the dissent invokes the adage that the legislature does
not ordinarily “hide elephants in mouseholes,” which means that the
legislature “does not alter the fundamental details of a regulatory scheme
in vague terms or ancillary provisions,” Whitman v. Am. Trucking Ass’ns, 531
U.S. 457, 468 (2001). Infra ¶ 66. The dissent asserts that Whitman supports
its contention that the Arizona Legislature could not have intended that, if
Roe was overruled, the state would enforce § 13-3603, which was enjoined
solely due to Roe’s recognition of a federal constitutional right to abortion.
Infra ¶ 66. But here, the elephant is not hidden in a mousehole; rather, the
elephant is standing in the room, albeit perhaps in a corner, despite the
dissent’s refusal to acknowledge it.

                                       26
     PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                   Opinion of the Court

¶61            We do not, as the dissent implies, rest our conclusion solely
on the construction provision. In interpreting § 36-2322(B)’s ambiguity on
its effect on § 13-3603, we consider Title 36’s genesis as the statutory
mechanism to restrict and regulate abortion in response to Roe, the
legislature’s unwavering and unqualified affirmative maintenance of a
statutory ban on elective abortion since 1864 (albeit enjoined since 1973),
§ 1-219(A)’s pronouncement of the state’s public policy essentially to
restrict abortion to the extent permitted by “the Constitution of the United
States and decisional interpretations thereof by the United States Supreme
Court” and, finally, S.B. 1164’s construction provision that clearly states that
the legislature did not intend to repeal § 13-3603 by passing § 36-2322(B).
See Part I, E ¶ 40. It is the dissent’s interpretation—deliberately blind to
Arizona’s relevant statutory history, public policy pronouncement, and the
legislature’s explicit construction provision contradicting the dissent’s
conclusion—that is strained. The only elephant hiding in a mousehole is
the dissent’s contention that the legislature’s curtailment of access to
elective abortion in § 36-2322 and its accompanying express preservation of
a statutory ban on all elective abortions was intended to create an
independent statutory authority for elective abortion that vitiates § 13-3603
and survives Roe’s demise. See Part I, C ¶ 31.

                                      IV.

¶62             Hazelrigg requests attorney fees and costs under the private
attorney general doctrine. Under the private attorney general doctrine, we
may award attorney fees “to a party who has vindicated a right that: (1)
benefits a large number of people; (2) requires private enforcement; and (3)
is of societal importance.” Cave Creek Unified Sch. Dist. v. Ducey, 233 Ariz.
1, 8 ¶ 26 (2013) (quoting Arnold v. Ariz. Dep’t of Health Servs., 160 Ariz. 593,
609 (1989)). Despite Hazelrigg’s intervenor status, private enforcement was
not required to resolve this case. In fact, then-Attorney General Brnovich
initiated the trial court litigation, and Yavapai County Attorney Dennis
McGrane sought to intervene. Therefore, because this case did not require
private enforcement, we decline to award attorney fees and costs under the
private attorney general doctrine.

                                      27
      PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
                    Opinion of the Court

                                CONCLUSION

¶63            The abortion issue implicates morality and public policy
concerns, and invariably inspires spirited debate and engenders passionate
disagreements among citizens. A policy matter of this gravity must
ultimately be resolved by our citizens through the legislature or the
initiative process. Today, we decline to make this weighty policy decision
because such judgments are reserved for our citizens. Instead, we merely
follow our limited constitutional role and duty to interpret the law as
written. See Ariz. Const. art 3; Ariz. Sch. Bds. Ass’n v. State, 252 Ariz. 219,
229 ¶ 45 (2022) (“We respect the role of the legislature in the discharge of
its constitutional duties . . . and we heed our constitution’s fundamental
premise that the division of powers necessarily impels judicial restraint,
particularly in the realm of lawmaking.”). For the reasons discussed, the
legislature has demonstrated its consistent design to restrict elective
abortion to the degree permitted by the Supremacy Clause and an
unwavering intent since 1864 to proscribe elective abortions absent a
federal constitutional right—precisely what it intended and accomplished
in § 36-2322. To date, our legislature has never affirmatively created a right
to, or independently authorized, elective abortion. We defer, as we are
constitutionally obligated to do, to the legislature’s judgment, which is
accountable to, and thus reflects, the mutable will of our citizens.

¶64            We affirm the trial court’s judgment vacating the injunction
of § 13-3603, vacate the court of appeals’ opinion and stay of enforcement
of § 13-3603, and remand to the trial court for potential consideration of the
remaining constitutional challenges to § 13-3603 alleged in Planned
Parenthood’s complaint for declaratory relief. Although we lift the stay on
enforcement of § 13-3603, we do so with two caveats. First, § 13-3603 may
be enforced prospectively only. Second, we stay enforcement of § 13-3603
for fourteen calendar days from the filing date of this Opinion to permit the
parties, on remand, to determine whether to pursue remaining issues raised
in the trial court and, if so, to request further stay relief at the trial court’s
discretion.

                                       28
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

TIMMER, VCJ., joined by BRUTINEL, CJ., dissenting:

¶65             Whether women have a federal constitutional right to
terminate a pregnancy before fetal viability has been a hotly debated and
extraordinarily divisive issue in Arizona and, indeed, in our entire country.
Yet, after the Supreme Court ended the debate in June 2022 by issuing Dobbs
v. Jackson Women’s Health Organization, 597 U.S. 215, 231–32 (2022), to
overrule Roe v. Wade, 410 U.S. 113 (1973), the Arizona Legislature stood pat.
During its 2023 session, the legislature did not (1) repeal A.R.S. § 36-2322(B),
which exempts physicians from prosecution if they perform abortions
when a fetus has a gestational age less than fifteen weeks or if the pregnant
woman would otherwise suffer substantial and irreversible health
consequences; (2) repeal or curtail other abortion-regulating statutes in Title
36; or (3) clarify the impact of A.R.S. § 13-3603, the near-total abortion ban
that lay dormant since Roe issued in 1973, on multiple modern-era statutes.
Instead, the legislature purposely chose to leave all these statutes fully
intact and simultaneously operational.

¶66           Nevertheless, relying on a statutory construction note tucked
within a session law predating Dobbs, the majority interprets § 36-2322(B)
as providing that if Roe was overruled, the state would turn back the clock
to 1973 by enforcing the near-total abortion ban against physicians, even if
they comply with § 36-2322(B) by performing elective abortions before the
fifteen-week gestation point or performing abortions when necessary to
prevent serious impairment to the pregnant woman’s health. I strongly
disagree. As the adage goes, the legislature does not ordinarily “hide
elephants in mouseholes.” See Whitman v. Am. Trucking Ass’ns, 531 U.S. 457,
468 (2001); Estate of Braden ex rel. Gabaldon v. State, 228 Ariz. 323, 330 ¶ 30
(2011) (Bales, J., dissenting). And the legislature neither did so nor could
do so here with a session law note existing wholly apart from statutory text.
Sections 13-3603 and 36-2322(B) can and should be interpreted
harmoniously to permit their joint enforcement until the legislature or the
people, through the initiative process, say otherwise. This means
physicians should be permitted to lawfully perform abortions before the
fifteen-week gestation point or when necessary to preserve the pregnant
woman’s health. (Notably, both laws would remain subject to challenge

                                      29
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

under Arizona’s constitution.        That challenge is not at issue here.)
Respectfully, I dissent.

A. Both A.R.S. § 13-3603 And A.R.S. § 36-2322(B) Are Clear And
   Unambiguous, Making Judicial Interpretation Unnecessary And
   Inappropriate.

¶67           Section 13-3603, the near-total abortion ban enjoined as
unconstitutional by the court of appeals in 1973 after Roe, has remained
essentially unchanged since 1865:

       A person who provides, supplies or administers to a pregnant
       woman, or procures such woman to take any medicine, drugs
       or substance, or uses or employs any instrument or other
       means whatever, with intent thereby to procure the
       miscarriage of such woman, unless it is necessary to save her life,
       shall be punished by imprisonment in the state prison for not
       less than two years nor more than five years.

(Emphasis added); see also Howell Code, ch. 10, § 45 (1865). Section 13-3603
is unambiguous, and no one suggests otherwise. Any person who performs
an abortion or assists in one must be imprisoned for at least two years and
not more than five years. The statute uses the above-italicized conditional
clause to identify the only exception to the total ban: when “it is necessary
to save [the pregnant woman’s] life.” Otherwise, the prohibition applies
regardless of the pregnancy’s duration, whether it resulted from rape or
incest, and even if a physician concludes that continuing the pregnancy
would substantially and irreversibly impair the woman’s health.

¶68           Since 2000, A.R.S. § 36-2301.01(A)(1) has prohibited
physicians from “knowingly perform[ing] an abortion of a viable fetus”
unless “necessary to preserve the life or health of the [pregnant] woman.”
See 2000 Ariz. Sess. Laws ch. 365, § 2 (2d Reg. Sess.). In 2022, the legislature
enacted § 36-2322(B) to further restrict when a physician may perform an
abortion. See 2022 Ariz. Sess. Laws ch. 105, § 1 (2d Reg. Sess.) (leaving
§ 36-2301.01(A) in place and operational). At that time, the Supreme Court
was still considering Dobbs, which concerned the constitutionality of

                                       30
       PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
    VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                            Dissenting

Mississippi’s “Gestational Age Act” (an act containing a statute nearly
identical to § 36-2322). Section 36-2322(B) went into effect three months
after the opinion in Dobbs issued and provides as follows: “Except in a
medical emergency, a physician may not intentionally or knowingly perform,
induce or attempt to perform or induce an abortion if the probable
gestational age of the unborn human being has been determined to be
greater than fifteen weeks.” 9 (Emphasis added.) A physician who violates
§ 36-2322(B) is guilty of a class 6 felony, which is punishable by up to two
years’ imprisonment, and the state will suspend or revoke the physician’s
license to practice medicine. See A.R.S. §§ 36-2324(A), -2325(A); 13-702(D).

¶69            I disagree with the majority that § 36-2322(B) is ambiguous.
See supra ¶¶ 21–22. That statute has only one reasonable meaning, and we
should apply it. See Glazer v. State, 237 Ariz. 160, 163 ¶ 12 (2015). We start
with the statute’s text “because it is the most reliable indicator of a statute’s
meaning.” State v. Holle, 240 Ariz. 300, 302 ¶ 11 (2016). If the legislature’s
intent is “readily discernable from the face of the statute,” we do not resort
to other methods of statutory interpretation, like examining a statute’s
context, history, or purpose. See id.; Franklin v. CSAA Gen. Ins. Co., 255 Ariz.
409, 411 ¶ 8 (2023). Nor do we attempt to divine and give effect to the
legislature’s unexpressed intent or look to session laws to manufacture
ambiguity where none exists. See Holle, 240 Ariz. at 302 ¶ 11.

¶70          Like § 13-3603, the territorial-era abortion ban, § 36-2322(B)
uses conditional words to precisely identify conduct that is lawful and
therefore permissible. Specifically, a physician commits a crime only “if”
the physician performs an abortion when the fetus has a gestational age

9  A “medical emergency” occurs when a physician makes a “good faith
clinical judgment” that the pregnant woman suffers a medical condition
that “necessitate[s] the immediate abortion of her pregnancy to avert her
death or for which a delay will create serious risk of substantial and
irreversible impairment of a major bodily function.” A.R.S. § 36-2321(7).
“Major bodily function[s]” include “functions of the immune system,
normal cell growth, and digestive, bowel, bladder, neurological, brain,
respiratory, circulatory, endocrine and reproductive functions.”
§ 36-2321(6).
                                       31
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

greater than fifteen weeks “[e]xcept in a medical emergency.” § 36-2322(B)
(emphasis added). By default, all other physician-performed abortions are
permissible and lawful under the provision, assuming the physician
complies with other statutes not before us. 10 See A.R.S. § 13-103(A) (“No
conduct or omission constitutes an offense . . . unless it is an
offense . . . under this title or under another statute or ordinance.”). The
statute has no other reasonable interpretation.

¶71            United States v. Vuitch, 402 U.S. 62 (1971), supports this
plain-meaning interpretation. There, the Supreme Court addressed the
District of Columbia’s indictment of a physician under the district’s
abortion ban. Id. at 63–64. Similar to Arizona’s territorial-era abortion ban,
the District of Columbia’s ban prohibited abortions on threat of a multi-year
prison term “unless the same were done as necessary for the preservation
of the mother’s life or health.” See id. at 68 (quoting D.C. Code § 22-201
(1901)). The issue was whether the statute was unconstitutionally vague.
See id. at 63–64. The Court upheld the statute, reasoning in part that the
ban’s exception constituted an element of the crime the government must
prove rather than an affirmative defense. See id. at 71. In doing so, the
Court characterized abortions falling within the life-or-health exception as
“legal,” and elaborated as follows:

       The statute does not outlaw all abortions, but only those
       which are not performed under the direction of a competent,

10  Even when a physician complies with § 36-2322(B), the physician
nevertheless commits a crime if he performs an abortion on a minor without
receiving parental consent or judicial authorization.             See A.R.S.
§ 36-2152(A). The physician also commits a crime by performing an
abortion while knowing the woman is seeking to avoid having a baby with
a genetic abnormality or of a particular race or gender. See A.R.S.
§ 13-3603.02(A)(1). The federal district court preliminarily enjoined
§ 13-3603.02(A)(1) as it concerns genetic abnormalities because the
provision is likely unconstitutionally vague and imposed an undue burden
on a woman’s—now abrogated—federal constitutional right to terminate a
pre-viability pregnancy. See Isaacson v. Brnovich, 563 F. Supp. 3d 1024, 1047
(D. Ariz. 2021).
                                     32
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

       licensed physician, and those not necessary to preserve the
       mother's life or health . . . . When Congress passed the District
       of Columbia abortion law in 1901 and amended it in 1953, it
       expressly authorized physicians to perform such abortions as
       are necessary to preserve the mother’s “life or health.”

See id. at 69–70. Like the District of Columbia’s ban, § 36-2322(B) clearly
permits physicians to lawfully perform abortions that are not expressly
outlawed.

¶72            The majority agrees that this is the logical, plain reading of
§ 36-2322. See supra ¶ 21. Nevertheless, because the statute does not explain
how it operates alongside § 13-3603, the majority finds that § 36-2322(B)’s
conditional language can also be reasonably interpreted as “merely
acknowledg[ing] the existence of a contemporaneous federal constitutional
right to abortion under Roe,” which forced the legislature to “qualify the
circumstances under which a physician may be penalized.” See supra
¶¶ 21–22, 55. Finding the statute therefore ambiguous, the majority then
examines secondary principles—including, most prominently, the
construction note in the session law that enacted § 36-2322 and other
statutes. See supra ¶¶ 23–31.

¶73           In my view, the majority errs by finding § 36-2322(B)
ambiguous and then using the construction note to interpret the statute in
a way unsupported by its plain textual meaning. First, nothing in the
statutory text even hints that § 36-2322(B)’s identification of legal, and
therefore permissible, abortions depends on Roe’s continuing
enforceability. And no language suggests that any aspect of § 36-2322(B)
would become inoperative if the Supreme Court overruled Roe.

¶74            Second, § 36-2322’s failure to explain its effect on § 13-3603
does not cloud the plain meaning of § 36-2322(B)’s enacted text. The
authorities cited by the majority do not support that a statute’s silence about
its impact on the operation of a different statute creates an ambiguity in
textual meaning. See S. Ariz. Home Builders Ass’n v. Town of Marana, 254 Ariz.
281, 286 ¶ 31 (2023); Stambaugh v. Killian, 242 Ariz. 508, 509 ¶ 7 (2017); State
v. Sweet, 143 Ariz. 266, 269–70 (1985). Notably, the majority does not

                                      33
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

identify any unclear language in § 36-2322(B) resulting from its silence
concerning § 13-3603. There simply is no “textual ambiguity,” as the
majority claims. See supra ¶ 21. Section 36-2322(B) has a single, plain
meaning that is not made ambiguous by § 13-3603’s existence or by the
existence of other statutes outlawing abortions in defined circumstances.
See Part I, D ¶ 99. The conflict between the statutes only comes into play in
deciding whether one repeals the other or whether they can be harmonized.
See Part I, C–D ¶¶ 85–91. It does not transform § 36-2322(B)’s plain
language into ambiguous text that needs further interpretation.

¶75            Third, § 36-2322(B)’s conditional language cannot logically
reflect a forced accommodation to Roe, as the majority concludes, because
Roe would not have tolerated the after-fifteen-week ban. Roe held that
women have a due process right to terminate a pregnancy before the fetus
becomes viable and to obtain that abortion without the government’s
undue interference. See Roe, 410 U.S. at 164; see also Planned Parenthood of Se.
Pa. v. Casey, 505 U.S. 833, 846, 873, 876–77 (1992) (reaffirming Roe’s central
holding but replacing its rigid trimester framework with an “undue
burden” test to determine whether abortion regulations are permissible).
Viability at the time Roe was decided was around twenty-eight weeks, and
in 2022 was suggested to be twenty-three or twenty-four weeks. See Dobbs,
597 U.S. at 276. Also, the Supreme Court stressed after Roe that determining
precisely when viability is reached must be left to the attending physician
in each case, and neither a legislature nor a court could establish viability
in terms of gestational weeks or other factors. See Colautti v. Franklin, 439
U.S. 379, 388–89 (1979), abrogated by Dobbs, 597 U.S. 215. For that reason—as
the legislature undoubtedly knew when it enacted § 36-2322(B)—the Ninth
Circuit Court of Appeals invalidated A.R.S. § 36-2159, which banned
elective abortions after twenty weeks. 11 See Isaacson v. Horne, 716 F.3d 1213,
1225–26 (9th Cir. 2013).            But for Dobbs, the more-restrictive
after-fifteen-week ban would undoubtedly have met the same fate. In
short, Roe did not force the legislature to allow abortions up to the
fifteen-week gestation point.

11  Nevertheless, as with § 13-3603, the legislature has never repealed
§ 36-2159.
                                      34
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

¶76            Fourth, the majority’s focus on whether § 36-2322(B) grants an
affirmative right to an abortion akin to Roe’s recognition of a constitutional
right is misplaced. See supra ¶ 22 (“Section 36-2322’s text in isolation,
therefore, does not resolve the fundamental issue before us: whether the
statute creates independent statutory authority for abortion intended to
repeal or restrict § 13-3603 . . . .”); ¶ 23 (“To determine if Title 36 creates a
right to abortion, or otherwise provides independent statutory authority to
perform the procedure . . . we must consider S.B. 1164’s construction
provision.”); ¶ 42 (concluding “the legislature did not intend to create a
privilege secured by law to obtain or perform an abortion” by enacting
§ 36-2322(B)). Section 36-2322(B) proscribes abortions performed by
physicians under particular circumstances. As previously explained, see
Part I, A ¶¶ 70–71, § 36-2322(B) provides that all other abortions performed
by physicians are necessarily lawful and permitted under the criminal law
because they are not proscribed. See § 13-103(A). Proscribing conduct does
not require the legislature to grant people an affirmative right to engage in
conduct falling outside the proscription, and the majority does not cite any
authority suggesting otherwise. Notably, two years before Roe and without
considering whether women had a right to a pre-viability abortion, the
Supreme Court in Vuitch interpreted the District of Columbia’s abortion
ban as providing that abortions falling within the life-or-health exception
are permitted and lawful. Likewise, at a time when women lacked a federal
constitutional or statutory right to an abortion, the legislature enacted what
is now § 13-3603, which permits women to obtain abortions to save their
lives. Doing so did not grant women a statutory right to an abortion under
those circumstances.

¶77           An example raised at oral argument illustrates the point. I
can legally drive thirty-five miles per hour when the speed limit is forty-five
miles per hour. But the law establishing the speed limit does not grant me
an affirmative right to drive thirty-five miles per hour; I simply will not be
ticketed for doing so. Likewise, under § 36-2322(B), women do not need an
affirmative right to terminate a pregnancy for a physician to perform an
abortion either before the fifteen-week gestation point or to prevent the
pregnant woman from suffering serious health conditions; the physician
simply will not be prosecuted for doing so.

                                       35
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

¶78           Too, the legislature does not affirmatively grant a right by
decriminalizing conduct. For example, in 2021, the legislature repealed
A.R.S. § 13-3604, which had provided that a woman who has an abortion
that is not necessary to save her life shall be imprisoned from one to five
years. See 2021 Ariz. Sess. Laws ch. 286, § 3 (1st Reg. Sess.). And when
enacting § 36-2322, the legislature provided that the “pregnant woman on
whom an abortion is performed, induced or attempted in violation of
§ 36-2322 may not be prosecuted for conspiracy” to violate the statute.
§ 36-2324(B). By affirmatively declining to hold women criminally
responsible for seeking or obtaining an abortion, the legislature did not
grant women a right to seek an abortion; it simply decided the state would
not prosecute women for doing so. The majority misses the mark by asking
and then answering whether § 36-2322(B) grants a limited right to abortion.

¶79            Fifth, the majority incorrectly elevates the construction note
in § 36-2322(B)’s session law to equal its text. Instead of using the note as a
tool in interpreting any ambiguous language in the statutory text, the
majority incorrectly uses the note to create an ambiguity in the text. See supra
¶ 22 (“[A]ny interpretation of the statute that ignores or minimizes the
impact of Dobbs’ disavowal of a federal constitutional abortion right runs
headlong into the construction provision of Senate Bill 1164 . . . the genesis
of § 36-2322 and part of what the legislature enacted.”); id. (“We must
interpret the statute in its proper context” which “requires us to reconcile
the legislature’s construction provision, which specifically preserves
§ 13-3603, and the text of § 36-2322 . . . .”); ¶ 24 (“The construction provision
is part of the bill that legislators [had] before them and approve[d], and has
the same force of law as codified law.”); ¶ 25 (stating the Court must
consider the construction note to discern § 36-2322(B)’s meaning “because
[the construction note] is part of the bill the legislature approved”).

¶80           The “construction” note, which—despite its title—expresses
only legislative intent and provides absolutely no insight on what the
legislature meant by any language in the statute, is emphatically not part of
the statutory text. See 2022 Ariz. Sess. Laws ch. 105, § 2 (2d Reg. Sess.). We
have repeatedly stressed that declarations of legislative intent in an
enactment are “devoid of operative effect.” See Redgrave v. Ducey, 251 Ariz.
451, 457 ¶ 22 (2021) (concluding that if statutory text conflicts with a

                                       36
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

statement of purpose or intent, “the text must prevail”); Cronin v. Sheldon,
195 Ariz. 531, 538 ¶ 30 (1999) (“The preamble [stating legislative purpose
and intent] is devoid of operative effect.”); Sakrison v. Pierce, 66 Ariz. 162,
172 (1947) (stating that the policy section of an act would be controlling only
“if we were called upon to interpret an operative portion of the statute that
was ambiguous or of doubtful meaning” and emphasizing that “the policy
of the law is not controlling and can be considered only where the statute
is ambiguous” (quoting 59 C.J.S., Statutes, § 602 for the latter quote)). The
majority ignores this principle.

¶81              We have also consistently emphasized that if a statute has a
plain textual meaning, we simply apply it rather than construe it by
examining secondary sources. See, e.g., Mussi v. Hobbs, 255 Ariz. 395, 402
¶ 34 (2023) (“It is a basic principle that courts will not read into a statute
something which is not within the manifest intention of the legislature as
indicated by the statute itself.” (emphasis added) (quoting Town of Scottsdale
v. State ex. rel. Pickrell, 98 Ariz. 382, 386 (1965))); S. Ariz. Home Builders Ass’n,
254 Ariz. at 286 ¶ 31 (“Statutory interpretation requires us to determine the
meaning of the words the legislature chose to use.”); City of Mesa v.
Killingsworth, 96 Ariz. 290, 294 (1964) (“Where the statute is unambiguous,
the courts will only apply the language used and not interpret, for the
statute speaks for itself.”). We hold the legislature to its enacted statutory
text, and the majority therefore errs by using the construction note to vary
§ 36-2322(B)’s plain language. See Roberts v. State, 253 Ariz. 259, 266 ¶ 20
(2022) (quoting City of Phoenix v. Donofrio, 99 Ariz. 130, 133 (1965)) (stating
“courts will not read into a statute something which is not within the
manifest intention of the legislature as gathered from the statute itself”
(emphasis added)); In re McLauchlan, 252 Ariz. 324, 326 ¶ 15 (2022)
(“Legislative history is not a substitute for clear legislative language . . . .”);
Antonin Scalia & Bryan A. Garner, Reading Law: The Interpretation of Legal
Texts 56–58 (2012) (noting the supremacy of statutory text and explaining
that statutory purpose “sheds light only on deciding which of various
textually permissible meanings should be adopted”).

¶82           For all these reasons, it is simply implausible to interpret
§ 36-2322(B)’s conditional language as merely acknowledging Roe’s
restriction on the state’s ability to prohibit pre-viability abortions. The

                                         37
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

statute says what it means and means what it says: The state will prosecute
physicians for performing abortions after the fetus reaches fifteen weeks in
age unless a medical emergency requires the procedure. The state will not
prosecute physicians for performing abortions before the fetus reaches
fifteen weeks in age. These abortions are lawful. There is no room for
misunderstanding.

¶83            My colleagues accuse me of “deliberately blind[ing]” myself
to legislative history and the legislature’s construction note in interpreting
§ 36-2322(D). See supra ¶ 61. Not so. With eyes wide open, I fulfill the
legislature’s intent by giving plain meaning to the language actually
enacted. I decline to engage in the guesswork needed to engraft onto
§ 36-2322(B)’s straightforward language a meaning the legislature may or
may not have intended had it anticipated the Supreme Court would
overrule Roe.

¶84           But what effect does a reinvigorated § 13-3603 have on
§ 36-2322(B)? The majority does not address whether the statutes can be
harmonized, as the court of appeals held. See Planned Parenthood Ariz., Inc.
v. Brnovich, 254 Ariz. 401, 405 ¶ 13 (App. 2022). Because it concludes that
§ 36-2322(B) does not create a legal privilege to obtain or perform an
abortion, the majority finds no conflict and thus “[no] need to harmonize”
the two statutes. See supra ¶ 42. I disagree, so I turn to that issue.

B. Sections 13-3603 And 36-2322(B) Conflict.

¶85           The conflict between §§ 13-3603 and 36-2322(B) is readily
apparent. On the one hand, § 13-3603 criminalizes performing any
abortions, unless necessary to save the pregnant woman’s life. On the other
hand, § 36-2322(B) criminalizes physician-performed abortions only when
the physician performs an abortion after the fetus is fifteen weeks of age
and a medical emergency does not necessitate the procedure.
Consequently, a physician who performs an abortion in compliance with
§ 36-2322(B) nevertheless violates § 13-3603, unless the abortion was
necessary to save the pregnant woman’s life. In that situation, the statutes
operate inconsistently and therefore conflict. See State v. Jones, 235 Ariz. 501,
503 ¶ 8 (2014); see also Cave Creek Unified Sch. Dist. v. Ducey, 233 Ariz. 1, 7

                                       38
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

¶ 24 (2013) (holding that a conflict exists when statutes cannot be read “to
give each effect and meaning”).

C. Section 36-2322(B) Operates As An Exception To § 13-3603.

¶86              We have repeatedly stated that courts have a duty to
harmonize statutes to rectify conflicts, as far as possible, and avoid
construing one statute as impliedly repealing another. See, e.g., State v. Rice,
110 Ariz. 210, 213 (1973); State Land Dep’t. v. Tucson Rock & Sand Co., 107
Ariz. 74, 77 (1971); Ard v. State, 102 Ariz. 221, 224 (1967). Reconciling any
contradictions “giv[es] force and meaning to all statutes involved.” UNUM
Life Ins. Co. of Am. v. Craig, 200 Ariz. 327, 333 ¶ 28 (2001).

¶87            The conflict between the statutes here is reconciled by
applying the general/specific canon. That canon is not used to discern the
meaning of statutory language but instead directs the operation of conflicting
provisions. See Guard./Conserv. of Denton, 190 Ariz. 152, 157 (1997). It
provides that “[w]hen ‘two conflicting statutes cannot operate
contemporaneously, the more recent, specific statute governs over an older,
more general statute.’” Jones, 235 Ariz. at 503 ¶ 8 (quoting UNUM Life Ins.
Co., 200 Ariz. at 333 ¶ 29); see also State v. Santillanes, 541 P.3d 1150, 1155–56
¶ 20 (Ariz. 2024) (recognizing the canon); Scalia & Garner 183 (“If there is a
conflict between a general provision and a specific provision, the specific
provision prevails.”).

¶88           As the more specific and recent statute, § 36-2322(B) applies
in circumstances governed by it. See Jones, 235 Ariz. at 503 ¶¶ 8, 11;
Guard./Conserv. of Denton, 190 Ariz. at 157; Lemons v. Superior Court, 141
Ariz. 502, 505 (1984). Because § 13-3603 is the more general statute,
outlawing almost all abortions, § 36-2322(B) operates as an exception to
§ 13-3603’s near-total ban. See State v. Cassius, 110 Ariz. 485, 487 (1974)
(“Where a statute first expresses a general intent, and later an inconsistent
particular intent, such particular intent will be taken as an exception to the
general intent, and both will stand.”).

¶89          To be clear, § 36-2322(B) does not repeal any aspect of
§ 13-3603. See Scalia & Garner 184 (“Note that the general/specific canon

                                       39
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

does not mean that the existence of a contradictory specific provision voids
the general provision. Only its application to cases covered by the specific
provision is suspended; it continues to govern all other cases.”). Instead,
§ 36-2322(B) negates § 13-3603 “only in its application to the situation that
[§ 36-2322(B)] covers.”        Id. at 185.      Contrary to the majority’s
characterization, see supra ¶ 42, applying § 36-2322(B) as an exception to
§ 13-3603 does not “repeal” any part of the latter statute. See Cassius, 110
Ariz. at 487 (finding that a later criminal statute operates as an exception to
a conflicting general statute, neither statute is repealed, and “each is given
full effect”).

¶90           So, if a physician performs an abortion at the thirteen-week
gestation point as permitted by § 36-2322(B), the state cannot prosecute the
physician under § 13-3603. Section 36-2322(B) operates as an exception, just
like § 13-3603’s exception for abortions performed to save the pregnant
woman’s life. But if the physician performs an abortion at the sixteen-week
gestation point and without a medical emergency in violation of
§ 36-2322(B), the state may prosecute the physician under either § 13-3603
or § 36-2322(B). See United States v. Batchelder, 442 U.S. 114, 123–24 (1979)
(“[W]hen an act violates more than one criminal statute, the Government
may prosecute[] under either so long as it does not discriminate against any
class of defendants.”); State v. Romero, 130 Ariz. 142, 147 (1981) (concluding
“[t]here is no question that the Legislature could proscribe the conduct
covered by [two different statutes]” so long as the state did not use an
“unjustifiable selection standard”). No exception to prosecution would
exist under either statute. And, of course, the state may prosecute any
non-physician, including other medical professionals, for performing an
abortion in violation of § 13-3603.

¶91             Resolving the conflict in this way recognizes that each statute
is given full effect as parts of a single statutory scheme governing abortions.
See Fleming v. State Dep’t of Pub. Safety, 237 Ariz. 414, 417 ¶ 12 (2015)
(“[W]hen statutes relate to the same subject matter, we construe them
together as though they constitute one law . . . .”). It does not matter that
the provisions are in different statutory chapters or that § 13-3603 lay
largely dormant for decades until reinvigorated by Dobbs. See State ex rel.

                                      40
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

Larson v. Farley, 106 Ariz. 119, 122 (1970). Related statutes “must be
construed as one system governed by one spirit and policy.” Id.

¶92            The majority’s position neutralizes most of Title 36, which
regulates and restricts abortions and abortion clinics, and impliedly repeals
the part of § 36-2322(B) permitting physicians to lawfully perform abortions
before the fetus is fifteen weeks old or in a medical emergency. But viewing
§ 36-2322(B) as an exception to § 13-3603, as I do, avoids impliedly repealing
any statute and results in a single, cohesive legislative scheme. See Fleming,
237 Ariz. at 417.

D. Neither The Construction Note Nor Any Other Law Triggers
   § 36-2322(B)’s Nullification Upon Roe’s Demise and § 13-3603’s
   reanimation.

¶93            The only way to conclude that § 36-2322(B) is not given full
effect as an exception to § 13-3603 is if the legislature had enacted a “trigger
clause” abrogating § 36-2322(B) upon Roe’s demise. Indisputably, the
legislature did not expressly do so. Nevertheless, the majority finds “a
discernible comprehensive trigger provision” by considering the
legislature’s continuing recognition of § 13-3603, the session law’s
construction note, and A.R.S. § 1-219(A), which states that laws should be
interpreted as acknowledging that a fetus has the same rights as all persons.
See supra ¶ 40. My colleagues then conclude Dobbs pulled this trigger by
“remov[ing] the sole authority for elective abortion in Arizona,” thereby
abrogating § 36-2322(B). See supra ¶¶ 40, 43.

¶94           Before addressing the majority’s reasoning, it is useful to
consider what constitutes a trigger clause. Mississippi’s abortion scheme
provides an example. In 2007, the Mississippi Legislature enacted a law
banning all abortions “except in the case where necessary for the
preservation of the mother’s life or where the pregnancy was caused by
rape.” Miss. Code Ann. § 41-41-45(2). Roe, of course, would have abrogated
that ban. Consequently, the Mississippi Legislature made the law effective
ten days after the Mississippi Attorney General publishes a determination
that the Supreme Court has overruled Roe and the ban would probably be
upheld by that Court as constitutional. See 2007 Miss. Laws ch. 441, §§ 4, 6.

                                      41
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

Those circumstances would automatically “trigger” the almost total ban on
abortion.

¶95            Mississippi’s fifteen-week gestation statute, in turn, has a
provision in its text triggering the statute’s own demise upon § 41-41-45(2)’s
effective date. Mississippi Code § 41-41-191(8) provides that “[a]n abortion
that complies with this section, but violates any other state law, is
unlawful.” Thus, if Mississippi’s near-total abortion ban became effective
as certified by the Mississippi Attorney General, abortions previously
permitted by § 41-41-191 would become “unlawful” without further
legislative action. The Mississippi Legislature explicitly directed what
would occur if the Supreme Court overruled Roe as certified by the
Mississippi Attorney General: the state’s near-total ban would go into effect
and abortions complying with the fifteen-week gestation statute would
nevertheless become unlawful as violating the new near-total ban.

¶96           Neither § 36-2322(B) nor any other Arizona law has trigger
language like § 41-41-191(8)’s clause. The majority characterizes the session
law construction note as “virtually identical” to Mississippi’s § 41-41-191(8)
and asserts either both must have a trigger clause or neither do. See supra
¶ 39. But the majority refuses to recognize and give weight to the crucial,
operative language that explicitly triggers § 41-41-191’s demise upon its
conflict with another statute. See id. Critically, unlike Mississippi’s
legislature, our legislature opted not to provide that an abortion that
complies with § 36-2322(B) “but violates any other state law,” including
§ 13-3603, makes the abortion “unlawful.” And in my view, the
construction note, together with § 13-3603’s continued existence and
§ 1-219(A)’s interpretation directive acknowledging fetal rights, cannot be
dressed up as a comparable trigger clause.

¶97           The legislature included § 36-2322(B) within a new article
entitled “Gestational Limit on Abortion.” See 2022 Ariz. Sess. Laws ch. 105
(2d Reg. Sess.). Nothing in the statutory text even arguably constitutes a
trigger clause. The construction note contained within the session law
provides:

                                     42
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

       This act does not:

       1. Create or recognize a right to abortion or alter generally
       accepted medical standards. The Legislature does not intend
       this act to make lawful an abortion that is currently unlawful.

       2. Repeal, by implication or otherwise, section 13-3603,
       Arizona Revised Statutes, or any other applicable state law
       regulating or restricting abortion.

See 2022 Ariz. Sess. Laws ch. 105, § 2 (2d Reg. Sess.). Nothing in this note
conditions § 36-2322(B)’s effectiveness on whether or not the Supreme
Court overrules Roe. And it certainly would have been easy to include that
condition in a sentence or two if the legislature had intended that result. See
Scalia     &     Garner     at 181–82      (highlighting    “[t]he    familiar
‘easy-to-say-so-if-that-is-what-was-meant’ rule of statutory interpretation”
(quoting Commissioner v. Beck’s Estate, 129 F.2d 243, 245 (2d Cir. 1942))).
Undoubtedly, the legislature knew how to use trigger clauses because it has
explicitly inserted them into other abortion-related session laws. See, e.g.,
1999 Ariz. Sess. Laws ch. 311, §§ 12, 13 (1st Reg. Sess.) (calling for the
conditional repeal and the conditional enactment of statutory provisions
triggered by a court finding that the statutory definition of “abortion
clinics” is unconstitutional). And the Arizona Legislature in 2022 followed
a drafting manual explaining how to word such provisions. See Ariz. Legis.
Bill Drafting Manual § 4.4 at 30–32 (2021–2022) (explaining conditional
enactments and repeals and providing sample language not found in
§ 36-2322 or the construction note); see also A.R.S. § 41-1304(A) (charging a
council of legislators with providing bill-drafting services to improve the
quality of legislation).

¶98           The majority reaches the opposite conclusion, but I do not
find its reasoning persuasive. First, the construction note’s statement that
the act including § 36-2322(B) does not “[c]reate or recognize” women’s
right to abortion does not mean a revived § 13-3603 serves to make
unlawful all abortions that comply with § 36-2322(B). As previously
explained, the legislature does not have to affirmatively grant women a
right to an abortion to criminalize or not criminalize performing abortions

                                      43
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

in some situations. See Part I, A ¶¶ 76–78. Thus, the legislature did not
affirmatively grant the right by permitting anyone to perform a lawful
abortion if necessary to save a pregnant woman’s life, see § 13-3603, or by
permitting physicians to perform lawful abortions before the fifteen-week
gestation point or in a medical emergency, see § 36-2322(B).

¶99           Second, the note’s statement that “[t]he Legislature does not
intend this act to make lawful an abortion that is currently unlawful” did
not trigger § 36-2322(B)’s abrogation upon Roe’s demise. The majority
concludes that the only “currently unlawful” abortions are ones proscribed
by § 13-3603 because only that provision is more restrictive than
§ 36-2322(B). See supra ¶ 29. Thus, because nearly all abortions under
§ 13-3603 are unlawful, the majority reasons that abortions performed
before the fifteen-week gestation point or in a medical emergency per
§ 36-2322(B) became “unlawful” when the injunction was lifted on
§ 13-3603. See supra ¶ 29.

¶100          The majority’s factual premise is incorrect because the
legislature included all abortion laws within the “currently unlawful”
clause and not just those more restrictive than § 36-2322(B). See 2022 Ariz.
Sess. Laws ch. 105, § 2 (2d Reg. Sess.) (“The Legislature does not intend this
act to make lawful an abortion that is currently unlawful.”). Many statutes
other than § 13-3603 criminalize abortions. And unlike § 13-3603, those
statutes operated without restriction when the legislature enacted
§ 36-2322(B), making abortions performed in violation of those provisions
“currently unlawful.” See A.R.S. § 13-3603.01 (proscribing partial-birth
abortions unless necessary to save the life of the pregnant woman);
§ 36-2152(A) (prohibiting physicians from performing abortions on minors
without parental consent or judicial authorization); § 36-2301.01
(prohibiting a physician from “knowingly perform[ing] an abortion of a
viable fetus” except in a medical emergency); § 13-3603.02(A)(1)
(proscribing abortions committed when a physician knows the woman is
seeking to avoid having a baby with a genetic abnormality or of a particular
race or gender).

¶101         Notably, at the time the legislature enacted § 36-2322(B),
abortions up to the fifteen-week gestation point and those performed in a

                                     44
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

medical emergency were not “currently unlawful” under § 13-3603 because
that statute had been enjoined for more than fifty years. It would be
downright bizarre for the legislature to have enacted § 36-2322(B) while
simultaneously intending to make “unlawful” abortions complying with
that statute.

¶102           For all these reasons, it is implausible to conclude the
legislature planted within the construction note a bombshell of reverting to
a near–total ban on abortion—including those to preserve a woman’s
health—by using the term “currently unlawful” as referring to abortions
made unlawful by a long-enjoined § 13-3603 rather than currently operative
statutes making certain abortions unlawful. See Whitman, 531 U.S. at 468;
Estate of Braden ex rel. Gabaldon, 228 Ariz. at 330 ¶ 30 (Bales, J., dissenting).
If the legislature intended otherwise, it could have easily said so.

¶103           Third, the note’s statement that the act including § 36-2322(B)
does not repeal § 13-3603 or other provisions “regulating or restricting
abortions” does not mean that abortions permitted under § 36-2322(B)
become unlawful if Roe is overruled and § 13-3603 is no longer enjoined. As
previously explained, § 13-3603 does not have to be repealed for
§ 36-2322(B) to operate. See Part I, C ¶¶ 86–92. Both statutes can remain
fully intact and operate as one cohesive act. And by explicitly keeping other
statutes “regulating or restricting abortions” intact, the legislature signaled
its intention to maintain a single, cohesive system in which all statutes
remain fully operational. Under the majority’s view, maintaining other
statutes “restricting abortions” would be impossible because § 13-3603’s
near-total ban would engulf those provisions without exception.

¶104         Fourth, § 1-219(A) provides no authority for concluding that
abortions permitted under § 36-2322(B) would become unlawful under
§ 13-3603 if Roe was overruled. Section 1-219(A) is an interpretation
provision and is not substantive. Because no language in the construction
note can be interpreted as a trigger clause, § 1-219(A) adds nothing and
does not support the majority’s position.

¶105        In sum, unlike Mississippi’s legislature, our legislature did
not include a trigger clause in the act containing § 36-2322(B). Any

                                       45
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

lingering doubt is further removed by considering the legislature’s express
statement of intent. In it, the legislature makes several findings of fact
concerning gestation and the state’s legitimate interests in protecting
potential new life and the health of a pregnant woman. See 2022 Ariz. Sess.
Laws ch. 105, § 3(A) (2d Reg. Sess.). It then affirmatively states what it
intends to accomplish: “This Legislature intends through this act and any
rules and policies adopted hereunder, to restrict the practice of
nontherapeutic or elective abortion to the period up to fifteen weeks of
gestation.” See 2022 Ariz. Sess. Laws ch. 105, § 3(B) (2d Reg. Sess.). Nothing
suggests an intent to make abortions permitted under § 36-2322(B)
unlawful upon Roe’s demise.

                              CONCLUSION

¶106           All agree the legislature enacted § 36-2322(B) in hopes the
Supreme Court in Dobbs would uphold Mississippi’s similar Gestational
Age Act. See Governor’s Approval Message, 2022 Ariz. Sess. Laws ch. 105
(2d Reg. Sess.) (“This very issue is pending before the United States
Supreme Court now in Dobbs v. Jackson Women’s Health Organization.”).
But the legislature perhaps got more than it expected when Dobbs overruled
Roe. Some, most, or even all legislators in 2022 would have included a
trigger clause repealing § 36-2322(B) and other Title 36 laws if they foresaw
that Roe would be overruled and the injunction on § 13-3603 lifted. But the
legislature did not state that intent in any statute or session law, and we
should not speculate about what it would have done. Justice Antonin Scalia
and Bryan Garner, considered by many to be leading scholars in statutory
interpretation, call doing otherwise as following, “[t]he false notion that
when a situation is not quite covered by a statute, the court should
reconstruct what the legislature would have done had it confronted the
issue.” Scalia & Garner at 349. They caution that “judicial predictions of
how the legislature would have decided issues it did not in fact decide are
bound to be little more than wild guesses.” Id. at 350 (quoting Frank H.
Easterbrook, Statutes’ Domains, 50 U. Chi. L. Rev. 533, 547–48 (1983)).

¶107         What the legislature did express in plain language was a
statutory scheme that includes both § 13-3603 and § 36-2322(B). I would
therefore apply the latter statute as an exception to the former, leaving both

                                     46
    PLANNED PARENTHOOD V. KRISTIN MAYES/HAZELRIGG
 VICE CHIEF JUSTICE TIMMER, joined by CHIEF JUSTICE BRUTINEL,
                         Dissenting

fully intact and operative. This would mean physicians could perform
abortions up to the fifteen-week gestation point or to preserve the pregnant
woman’s health without incurring harsh criminal penalties. If the
legislature or the people desire a different result, either could enact a new
law.

¶108           The majority’s opinion today will undoubtedly be derided by
many as result-oriented or a reflection of individual justices’ ideology. My
dissenting opinion will probably spark similar criticism. That is the cross
borne by all judges in controversial social-issue cases like this one. But
nothing is further from the truth. In upholding our oaths to follow the laws
of this state, we simply disagree—vehemently—about what those laws
mean. And in my view, the majority mistakenly returns us to the
territorial-era abortion statute last operative in 1973. I would leave it to the
people and the legislature to determine Arizona’s course in the wake of
Roe’s demise. With great respect for my colleagues, I dissent.

                                      47