VOTING RIGHTS AND ELECTION LAW

VOTING RIGHTS AND ELECTION LAW

LexisNexis Law School Publishing Advisory Board Paul Caron Professor of Law Pepperdine University School of Law Bridgette Carr Clinical Professor of Law University of Michigan Law School Steven I. Friedland Professor of Law and Senior Scholar Elon University School of Law Carole Goldberg Jonathan D. Varat Distinguished Professor of Law UCLA School of Law Oliver Goodenough Professor of Law Vermont Law School John Sprankling Distinguished Professor of Law McGeorge School of Law

VOTING RIGHTS AND ELECTION LAW SECOND EDITION Michael Dimino Associate Professor of Law Widener University School of Law Bradley Smith Josiah H. Blackmore II/Shirley M. Nault Designated Professor of Law Capital University Law School Michael Solimine Donald P. Klekamp Professor of Law University of Cincinnati College of Law

ISBN: 978-1-6328-3384-6 (casebook) ISBN: 978-1-6328-3385-3 (looseleaf) Library of Congress Cataloging-in-Publication Data Names: Dimino, Michael, author. Smith, Bradley A., author. Solimine, Michael E., 1956- author. Title: Voting rights and election law / Michael Dimino, Associate Professor of Law, Widener University School of Law, Bradley Smith, Josiah H. Blackmore II/Shirley M. Nault Designated Professor of Law, Capital University Law School, Michael Solimine, Donald P. Klekamp Professor of Law, University of Cincinnati College of Law. Description: Second edition. New Providenc, NJ : LexisNexis, 2015. Includes index. Identifiers: LCCN 2015038818 ISBN 9781632833846 (hardbound) Subjects: LCSH: Election law--united States. Classification: LCC KF4886.D56 2015 DDC 342.73/07--dc23 LC record available at http://lccn.loc.gov/2015038818 This publication is designed to provide authoritative information in regard to the subject matter covered. It is sold with the understanding that the publisher is not engaged in rendering legal, accounting, or other professional services. If legal advice or other expert assistance is required, the services of a competent professional should be sought. LexisNexis and the Knowledge Burst logo are registered trademarks of Reed Elsevier Properties Inc., used under license. Matthew Bender and the Matthew Bender Flame Design are registered trademarks of Matthew Bender Properties Inc. Copyright 2015 Matthew Bender & Company, Inc., a member of LexisNexis. All Rights Reserved. No copyright is claimed by LexisNexis or Matthew Bender & Company, Inc., in the text of statutes, regulations, and excerpts from court opinions quoted within this work. Permission to copy material may be licensed for a fee from the Copyright Clearance Center, 222 Rosewood Drive, Danvers, Mass. 01923, telephone (978) 750-8400. NOTE TO USERS To ensure that you are using the latest materials available in this area, please be sure to periodically check the LexisNexis Law School web site for downloadable updates and supplements at www.lexisnexis.com/lawschool. Editorial Offices 630 Central Ave., New Providence, NJ 07974 (908) 464-6800 201 Mission St., San Francisco, CA 94105-1831 (415) 908-3200 www.lexisnexis.com (2015 Pub.3285)

Dedication To Michael and Steven with pride, affection, and love M.R.D. To Julie, Eleanor, and Emma B.A.S. To Pat, Jane, and Jimmy M.E.S. iii

Preface The law of politics is one of the most exciting, consequential, and fun subjects in the law-school curriculum. Disputes about political power involve much more than a single controversy; rather, they set the rules for the resolution of future disputes and go a long way toward determining who will resolve those disputes and how those disputes will be resolved. But courts don t (or aren t supposed to) make up these rules themselves; it is the political process itself that sets its own rules. Evaluating the judicial role in overseeing those rules and the process that creates them is a constant theme throughout this text. We hope the subject fascinates you as it fascinates us. Readers should be aware of certain conventions we have used in editing cases. Footnotes, citations, and section headings have been deleted without indication. Our deletions of text are marked by asterisks. Footnotes appearing in the cases have retained their original numbers; our footnotes are indicated by letters. Paragraph breaks have occasionally been altered. There are many persons with whom we have shared portions of this book, and whose suggestions have improved the final product. Among those persons, Heather Gerken and Allison Hayward deserve special mention. We are also indebted to others whose scholarship has created a field of election law, and whose work has enriched our understanding of the subject: Rick Hasen, Sam Issacharoff, Pam Karlan, Dan Lowenstein, Rick Pildes, and Dan Tokaji. In addition, we have benefited from several on-line resources, including Hasen s Election Law Blog and listserv, as well as Election Law @ Moritz and Ballot Access News. We are thankful for the administrative support of Connie Miller, as well as the research assistance of Lisa Bemboom, Bill Cash, Alexander Czebiniak, Jacob Dean, Keely Espinar, Carol Herdman, Joe Holaska, Cecille Lucero, Clarke Madden, Julie Olivas, Justin Swartz, Jesse Unruh, and Shawn-Ryan White. Dimino wishes to extend additional thanks to Professors Smith and Solimine. They have been delightful co-authors, and it has been a great pleasure to work with both. Their expertise, good humor, and cooperative attitudes have been essential in the more than two years it has taken to write this book, and I am indebted to them. Without their agreement to become part of this book it never would have been written, and without their insights it would not have been as good as it is. Please contact us with ideas for improving the book in the next edition. Michael Dimino mrdimino@widener.edu Bradley Smith bsmith@law.capital.edu Michael Solimine michael.solimine@uc.edu v

Table of Contents Chapter 1 VOTING QUALIFICATIONS A. INTRODUCTION......................................... 1 B. DEFINING THE COMMUNITY AND EXCLUDING OUTSIDERS..... 8 1. The Illiterate.......................................... 8 Lassiter v. Northampton County Board of Elections............. 8 Notes and Questions.................................... 9 South Carolina v. Katzenbach............................ 14 Katzenbach v. Morgan................................. 22 Notes and Questions................................... 29 2. The Poor............................................ 37 Harper v. Virginia State Board of Elections.................. 37 Notes and Questions................................... 42 3. The Law-Breaking..................................... 45 Richardson v. Ramirez................................. 45 Notes and Questions................................... 50 Hunter v. Underwood................................. 57 Notes and Questions................................... 60 4. The Disinterested...................................... 62 Kramer v. Union Free School District No. 15................. 62 Notes and Questions................................... 68 Salyer Land Co. v. Tulare Lake Basin Water Storage District..... 73 Notes and Questions................................... 77 Holt Civic Club v. City of Tuscaloosa...................... 81 Notes and Questions................................... 86 5. The Newly Resident.................................... 89 Pope v. Williams..................................... 89 Carrington v. Rash................................... 90 Dunn v. Blumstein.................................... 93 Notes and Questions................................... 99 Marston v. Lewis.................................... 100 Notes and Questions.................................. 103 Chapter 2 POLITICAL QUESTIONS A. INTRODUCTION....................................... 105 B. THE NON-JUSTICIABILITY OF THE GUARANTEE CLAUSE..... 107 Pacific States Telephone & Telegraph Co. v. Oregon............ 107 Colegrove v. Green.................................... 109 Gomillion v. Lightfoot.................................. 115 vii

Table of Contents Notes and Questions................................... 118 C. WELL DEVELOPED AND FAMILIAR STANDARDS OF EQUAL PROTECTION......................................... 119 Baker v. Carr........................................ 119 Vieth v. Jubelirer..................................... 131 Notes and Questions................................... 157 Chapter 3 ONE PERSON, ONE VOTE A. INTRODUCTION....................................... 161 B. THE CONSTITUTIONAL BASIS FOR ONE PERSON, ONE VOTE............................................ 163 Gray v. Sanders...................................... 163 Notes and Questions................................... 165 Wesberry v. Sanders................................... 166 Notes and Questions................................... 172 Reynolds v. Sims...................................... 173 Notes and Questions................................... 185 C. APPLYING THE CONSTITUTIONAL STANDARDS: HOW EQUAL IS EQUAL ENOUGH?............................. 192 Kirkpatrick v. Preisler.................................. 192 Notes and Questions................................... 198 Mahan v. Howell..................................... 200 Notes and Questions................................... 205 Gaffney v. Cummings.................................. 206 Notes and Questions................................... 210 Cox v. Larios........................................ 211 Notes and Questions................................... 213 D. OTHER LIMITS ON MAJORITARIANISM: SUPER-MAJORITIES AND GEOGRAPHICAL DISTRIBUTION REQUIREMENTS....... 215 Gordon v. Lance...................................... 216 Notes and Questions................................... 218 Moore v. Ogilvie...................................... 219 Town of Lockport v. Citizens For Community Action at the Local Level, Inc....................................... 221 Notes and Questions................................... 223 Chapter 4 PRECLEARANCE UNDER SECTION 5 OF THE VOTING RIGHTS ACT A. INTRODUCTION....................................... 225 B. VOTING STANDARDS, PRACTICES, AND PROCEDURES....... 226 Allen v. State Board of Elections.......................... 226 viii

Table of Contents Notes and Questions................................... 235 C. RETROGRESSION...................................... 238 Beer v. United States................................... 239 Notes and Questions................................... 245 Georgia v. Ashcroft.................................... 246 Notes and Questions................................... 253 D. THE CONSTITUTIONALITY OF SECTION 5 REVISITED........ 255 Shelby County, Alabama v. Holder......................... 256 Notes and Questions................................... 262 Chapter 5 DISTRICTING BY RACE A. INTRODUCTION....................................... 265 B. CONSTITUTIONAL CONSTRAINTS ON MINORITY VOTE DILUTION............................................ 267 Whitcomb v. Chavis................................... 268 Notes and Questions................................... 274 White v. Regester..................................... 274 Notes and Questions................................... 276 United Jewish Organizations, Inc. v. Carey................... 277 Notes and Questions................................... 287 City of Mobile v. Bolden................................ 288 Notes and Questions................................... 299 C. SECTION 2 S POST-1982 RESULTS TEST.................... 300 Thornburg v. Gingles.................................. 301 Notes and Questions................................... 315 Johnson v. De Grandy.................................. 317 Notes and Questions................................... 324 D. STANDARD, PRACTICE, OR PROCEDURE IN SECTION 2..... 325 Chisom v. Roemer..................................... 325 Notes and Questions................................... 334 Holder v. Hall....................................... 335 Notes and Questions................................... 353 E. CONSTITUTIONAL CONSTRAINTS ON MAJORITY-MINORITY DISTRICTING......................................... 354 Shaw v. Reno........................................ 354 Notes and Questions................................... 366 Miller v. Johnson..................................... 369 Notes and Questions................................... 379 F. RESOLVING THE SHAW/VRA CONFLICT.................... 385 League of United Latin American Citizens v. Perry............. 385 Notes and Questions................................... 403 ix

Table of Contents Bartlett v. Strickland................................... 404 Notes and Questions................................... 416 Chapter 6 THE ROLES AND RIGHTS OF POLITICAL PARTIES A. INTRODUCTION....................................... 419 B. STATE ACTION........................................ 420 Grovey v. Townsend................................... 422 Notes and Questions................................... 424 Smith v. Allwright..................................... 426 Notes and Questions................................... 430 Terry v. Adams....................................... 431 Notes and Questions................................... 437 C. ASSOCIATIONAL RIGHTS OF PARTIES..................... 441 Democratic Party of The United States v. Wisconsin ex rel. La Follette.......................................... 442 Notes and Questions................................... 447 Tashjian v. Republican Party of Connecticut.................. 449 Notes and Questions................................... 454 Eu v. San Francisco County Democratic Central Committee....... 455 Notes and Questions................................... 459 California Democratic Party v. Jones....................... 460 Notes and Questions................................... 469 Clingman v. Beaver.................................... 470 Notes and Questions................................... 479 Washington State Grange v. Washington State Republican Party.... 481 Notes and Questions................................... 486 Duke v. Massey....................................... 488 Notes and Questions................................... 491 Larouche v. Fowler.................................... 492 Notes and Questions................................... 496 D. THIRD PARTIES, INDEPENDENT CANDIDATES, AND BALLOT ACCESS...................................... 497 Williams v. Rhodes.................................... 497 Notes and Questions................................... 504 Jenness v. Fortson.................................... 504 Notes and Questions................................... 507 Bullock v. Carter..................................... 508 Notes and Questions................................... 512 Storer v. Brown...................................... 513 Anderson v. Celebrezze................................. 517 Notes and Questions................................... 522 x

Table of Contents Burdick v. Takushi.................................... 525 Notes and Questions................................... 532 Timmons v. Twin Cities Area New Party..................... 534 Notes and Questions................................... 541 New York State Board of Elections v. Lopez Torres............. 543 Notes and Questions................................... 547 Chapter 7 TERM LIMITS A. INTRODUCTION....................................... 549 B. THE CONSTITUTIONALITY OF TERM-LIMITING MEMBERS OF CONGRESS........................................ 550 U.S. Term Limits, Inc. v. Thornton......................... 550 Notes and Questions................................... 562 Cook v. Gralike...................................... 564 Notes and Questions................................... 570 Chapter 8 POLITICAL SPEECH A. INTRODUCTION....................................... 571 B. DEFAMATION AND THE PROBLEM OF FALSE STATEMENTS... 574 New York Times Co. v. Sullivan........................... 574 Notes and Questions................................... 582 Brown v. Hartlage.................................... 585 Notes and Questions................................... 590 United States v. Alvarez................................. 592 Notes and Questions................................... 599 C. MEDIA COVERAGE.................................... 602 Mills v. Alabama...................................... 603 Notes and Questions................................... 605 Red Lion Broadcasting Co. v. Federal Communications Commission......................................... 605 Notes and Questions................................... 611 Miami Herald Publishing Co. v. Tornillo.................... 613 Notes and Questions................................... 617 Federal Communications Commission v. League of Women Voters............................................. 617 Notes and Questions................................... 628 Arkansas Educational Television Commission v. Forbes.......... 629 Notes and Questions................................... 634 D. ANONYMOUS SPEECH.................................. 635 Brown v. Socialist Workers 74 Campaign Committee (Ohio)...... 635 Notes and Questions................................... 642 xi

Table of Contents McIntyre v. Ohio Elections Commission..................... 644 Notes and Questions................................... 655 Majors v. Abell....................................... 656 Notes and Questions................................... 663 Doe v. Reed......................................... 664 Notes and Questions................................... 675 E. CIRCULATION OF PETITIONS............................ 678 Meyer v. Grant....................................... 678 Buckley v. American Constitutional Law Foundation, Inc......... 681 Notes and Questions................................... 690 F. GOVERNMENT SPEECH................................. 692 Kidwell v. City of Union................................ 692 Notes and Questions................................... 697 G. PUBLIC EMPLOYEES................................... 698 United Public Workers of America (C.I.O.) v. Mitchell........... 699 Notes and Questions................................... 706 Pickering v. Board of Education........................... 707 Notes and Questions................................... 711 United States Civil Service Commission v. National Association of Letter Carriers, AFL-CIO............................. 713 Notes and Questions................................... 717 United States v. National Treasury Employees Union............ 717 Notes and Questions................................... 724 H. PATRONAGE.......................................... 726 Elrod v. Burns....................................... 726 Notes and Questions................................... 738 Rutan v. Republican Party of Illinois........................ 741 Notes and Questions................................... 752 I. JUDICIAL CANDIDATES SPEECH......................... 756 Republican Party of Minnesota v. White..................... 756 Notes and Questions................................... 769 Williams-Yulee v. Florida Bar............................ 774 Notes and Questions................................... 785 Chapter 9 CAMPAIGN FINANCE A. INTRODUCTION....................................... 787 B. BASIC PRINCIPLES..................................... 788 United States v. International Union United Automobile, Aircraft and Agricultural Implement Workers of America (UAW-CIO)...... 789 Notes and Questions................................... 798 Buckley v. Valeo...................................... 799 xii

Table of Contents Notes and Questions................................... 819 Note on Political Committees............................. 824 Note on Express Advocacy / Issue Advocacy Distinction....... 826 C. LIMITS ON CONTRIBUTIONS............................. 829 Notes and Questions................................... 830 Nixon v. Shrink Missouri Government PAC................... 834 Notes and Questions................................... 850 Randall v. Sorrell..................................... 852 Notes and Questions................................... 863 McConnell v. Federal Election Commission.................. 865 Notes and Questions................................... 868 McCutcheon v. Federal Election Commission................. 870 Notes and Questions................................... 875 D. LIMITATIONS ON EXPENDITURES........................ 880 Federal Election Commission v. National Conservative Political Action Committee.............................. 881 Notes and Questions................................... 886 Randall v. Sorrell..................................... 888 Notes and Questions................................... 893 First National Bank of Boston v. Bellotti..................... 895 Notes and Questions................................... 905 Austin v. Michigan State Chamber of Commerce............... 907 Notes and Questions................................... 921 McConnell v. Federal Election Commission.................. 923 Notes and Questions................................... 935 Citizens United v. Federal Election Commission............... 941 Notes and Questions................................... 975 Note on Superpacs................................... 980 E. COORDINATED EXPENDITURES.......................... 984 Colorado Republican Federal Campaign Committee v. Federal Election Commission (Colorado Republican I).......... 984 Notes and Questions................................... 989 F. GOVERNMENT FINANCING OF CAMPAIGNS................ 996 Buckley v. Valeo...................................... 996 Notes and Questions................................... 998 Arizona Free Enterprise Club s Freedom Club PAC v. Bennett.... 1000 Notes and Questions................................... 1009 G. REPORTING AND DISCLOSURE OF CONTRIBUTIONS AND EXPENDITURES...................................... 1011 Buckley v. Valeo..................................... 1011 McConnell v. Federal Election Commission.................. 1019 Citizens United v. Federal Election Commission.............. 1022 xiii

Table of Contents Notes and Questions................................... 1024 Chapter 10 AT THE POLLS A. INTRODUCTION...................................... 1031 B. BURDENS ON CASTING BALLOTS....................... 1032 Crawford v. Marion County Election Board.................. 1032 Notes and Questions................................... 1042 Porter v. Bowen..................................... 1046 Notes and Questions................................... 1053 C. CAMPAIGN-FREE ZONES AROUND POLLING PLACES........ 1054 Burson v. Freeman................................... 1054 Notes and Questions................................... 1061 Chapter 11 COUNTING THE VOTES A. INTRODUCTION...................................... 1063 B. CONSTITUTIONAL LIMITS.............................. 1064 Bush v. Gore........................................ 1065 Notes and Questions................................... 1082 C. THE HELP AMERICA VOTE ACT......................... 1084 Sandusky County Democratic Party v. Blackwell.............. 1085 Notes and Questions................................... 1093 D. ALTERNATIVE VOTING SYSTEMS....................... 1096 Chapter 12 REMEDYING ERRORS IN ELECTIONS A. INTRODUCTION...................................... 1099 B. RE-VOTES AND THE UNIFORM DATE FOR FEDERAL ELECTIONS.......................................... 1100 Bell v. Southwell..................................... 1100 Akizaki v. Fong...................................... 1104 Fladell v. Palm Beach County Canvassing Board.............. 1105 Foster v. Love....................................... 1106 Notes and Questions................................... 1109 C. ADJUSTING THE VOTE TOTALS......................... 1111 Ippolito v. Power.................................... 1112 Scheer v. City of Miami................................ 1115 Bradley v. Perrodin................................... 1119 Notes and Questions................................... 1122 D. STATE REMEDIES FOR FEDERAL ELECTIONS.............. 1123 McPherson v. Blacker................................. 1124 Coleman v. Franken.................................. 1129 xiv

Table of Contents Notes and Questions................................... 1138 E. PUBLIC AND PRIVATE REMEDIES....................... 1140 1. Federal Civil and Criminal Enforcement..................... 1140 2. Remedies for the Wrongful Denial of the Right to Vote.......... 1142 Wiley v. Sinkler.................................... 1142 Notes and Questions................................. 1143 Taylor v. Howe.................................... 1145 Notes and Questions................................. 1160 Roe v. Alabama.................................... 1161 Notes and Questions................................. 1167 3. Remedies for Unsuccessful Candidates...................... 1168 Hutchinson v. Miller................................ 1168 Notes and Questions................................. 1176 Table of Cases................................................ TC-1 Table of Authorities........................................... TA-1 Index........................................................ I-1 xv