Democratic Party of Washington State v. Reed
Opinion of the Court
The State of Washington conducts a “blanket” primary, in which voters choose candidates without being restricted to candidates of any particular party. The Democratic, Republican and Libertarian Parties all challenged the law, claiming that it unconstitutionally restrains their supporters’ freedom of association. They are correct.
We recognize that Washington voters are long accustomed to a blanket primary and acknowledge that this form of primary has gained a certain popularity among many of the voters. Nonetheless, these reasons cannot withstand the constitutional challenge presented here. The legal landscape has changed, and our decision is compelled by the Supreme Court’s landmark decision in California Democratic Party v. Jones.
I. BACKGROUND
Washington’s “blanket primary” system was first established in 1935. Except for presidential primaries, “all properly registered voters may vote for their choice at any primary ..., for any candidate for each office, regardless of political affiliation and without a declaration of political faith or adherence on the part of the voter.”
Thus the voter gets a ballot listing all candidates of all parties and votes freely among them, as opposed to getting an exclusively Democratic or Republican or other limited ballot. And the voter can choose candidates from some parties for some positions, others for other positions, a process known as “ticket-splitting.”
Presidential primaries are different. If a major party so requests, voters requesting a party-specific ballot get a separate ballot listing candidates only of that party.
In the case before us, the Democratic Party of Washington sued the Secretary of State for a declaratory judgment that the blanket primary was unconstitutional and an injunction enabling the Party to “limit participation” in partisan primaries. The Republican Party successfully moved to intervene as a plaintiff, seeking similar declaratory relief and an injunction likewise requiring the Secretary of State to implement a mechanism to “effectuate the Party’s exercise of its right to limit participation in that primary.” Numerous individuals joined both complaints as plaintiffs. The Libertarian Party also intervened, likewise seeking a declaratory judgment of unconstitutionality, and an injunction with terms focusing upon its interests as a small party. The Washington State Grange intervened as a defendant, supporting the blanket primary system as is.
II. ANALYSIS
We review de novo the district court’s grant of summary judgment.
A Res Judicata
The Grange argues that we should affirm the judgment on the ground that the constitutional issues are res judicata. The Washington State Supreme Court upheld the blanket primary against challenges by individuals in 1936
B. Strict Scrutiny
The complexity of the relationship among private, state, and federal regulations of state elections has grown through a long series of decisions beginning with those rejecting the white-only Democratic primaries in the South,
The Secretary of State argues that the district court properly excluded the Democratic and Republican Parties’ evidence, and without it, the Parties fail to meet what the Secretary claims is their burden of proof to show that they are harmed.
It is not at all clear that the plaintiffs had any “burden of proof’ that they needed to bear. There is no standing or case or controversy issue. This is a facial challenge to a statute burdening the exercise of a First Amendment right. The challenge is brought by those wishing to exercise their rights without the restraints imposed by the statute. In Jones, the Court read the state blanket primary statutes, determined that on their face they restrict free association, accordingly subjected them to strict scrutiny, and only then looked at the evidence to determine whether the state satisfied its burden of showing narrow tailoring toward a compelling state interest. The Supreme Court does not set out an analytic scheme whereby the political parties submitted evidence establishing that they were burdened. Instead, Jones infers the burden from the face of the blanket primary statutes. We accordingly follow the same analytic approach as Jones.
The Washington scheme is materially indistinguishable from the California scheme held to violate the constitutional right of free association in Jones. They are both “blanket” primaries. Jones carefully distinguishes blanket primaries, in which a voter can vote for candidates of any party on the same ballot, from an “open” primary where the voter can choose the ballot of either party but then is limited to the candidates on that party’s ballot.
The Washington statutory framework is a straight blanket primary, not an open, closed or nonpartisan blanket primary. Washington argues that its scheme should be distinguished from California’s on two grounds. First, California registers voters by party but Washington does not. Second, as the State’s brief puts it, because of its non-partisan registration, the winners of the primary “are the ‘nominees’ not of the parties but of the electorate.”
These are distinctions without a difference. That the voters do not reveal their party preferences at a government registration desk does not mean that they do
Also, those who actively participate in partisan activities, including activities such as holding precinct caucuses in their homes, serving on local and state party committees, contributing money to their parties, canvassing, and watching polls for their parties, have a First Amendment right to further their party’s program for what they see as good governance. Their right to freely associate for this purpose is thwarted because the Washington statutory scheme prevents those voters who share their affiliation from selecting their party’s nominees. The right of people adhering to a political party to freely associate is not limited to getting together for cocktails and canapes. Party adherents are entitled to associate to choose their party’s nominees for public office. As for the State of Washington’s argument that the party nominees chosen at blanket primaries “are the ‘nominees’ not of the parties but of the electorate,”
The First Amendment protects the right of freedom of association with respect to political parties,
Thus under Jones the Washington blanket primary system is materially indistinguishable from the California blanket primary system and is unconstitutional unless the defendants bear their burden of demonstrating that “it is narrowly tailored to serve a compelling state interest.”
C. State Interests
In Jones, the State of California put forth seven different state interests that it
Defendants argue that (1) the blanket primary “promotes fundamental fairness because it permits all voters, regardless of party affiliation, to participate in all stages”;
The third proposed interest — privacy— has to be rejected as well. In Jones, the Supreme Court held that “we do not think that the State’s interest in assuring the privacy of this piece of information in all cases can conceivably be considered a ‘compelling’ one.”
Washington also argues that its blanket primaries promote “increased voter participation by giving all voters the sense that their votes ‘count’ in every stage of the election process.”
There is one more argument that the State makes, which is in substance the same one the Grange makes. As the State puts it, the blanket primary “recognizes the associational interests of groups other than political parties” by enabling voters to “form ad hoc political associations which cross party lines to support a particular candidate or a particular cause.”
“Special interests” are evidently in the eye of the beholder. Some urban voters might think that special protection for rural water and electricity concerns serve a “special interest” of farmers, and that the Grange is a special interest group. There is nothing corrupt about promoting such protection, nor is there anything corrupt about organizing a party agenda that does not provide special protection for these interests. The members of the Grange have a First Amendment right to control its membership and message so that it is not swamped by new members with some urban or foreign policy agenda. Likewise, the people in the Democratic, Republican, and Libertarian Parties have First Amendment rights to control their nominating processes so that they are not controlled by Grangers.
This special interest argument is materially indistinguishable from the first one the Court rejected in Jones. California had urged that the blanket primary produced nominees “who better represent the electorate” and go beyond “partisan concerns,” because blanket primaries “compel candidates to appeal to a larger segment of the electorate.”
Appellants also challenge the district court’s evidentiary rulings, which struck much of the evidence they submitted. We need not reach the evidentiary questions, because even without the evidence, appellants are entitled to prevail. This case presents a facial constitutional challenge, and the Washington blanket primary statute is on its face an unconstitutional burden on the rights of free association of the Democrats, Republicans and Libertarians who have brought this suit.
We REVERSE and REMAND for entry of summary judgment, declaratory judgment, and an injunction in favor of the appellants.
. 530 U.S. 567, 120 S.Ct. 2402, 147 L.Ed.2d 502 (2000).
. Wash. Rev.Code § 29.18.200.
. Wash. Rev.Code § 29.30.020(3).
. Wash. Rev.Code § 29.30.095.
. Wash. Rev.Code § 29.18.200.
. Wash. Rev.Code § 29.19.045.
. Id.
. Wash. Rev.Code § 29.19.055.
. Oliver v. Keller, 289 F.3d 623, 626 (9th Cir. 2002).
. Anderson v. Millikin, 186 Wash. 602, 59 P.2d 295, 296-97 (1936).
. Heavey v. Chapman, 93 Wash.2d 700, 611 P.2d 1256, 1259 (1980).
. Montana v. United States, 440 U.S. 147, 161-62, 99 S.Ct. 970, 59 L.Ed.2d 210 (1979) (past judgments need not be given preclusive effect if there has been a significant intervening change of law). See also Kennedy v. City of Seattle, 94 Wash.2d 376, 617 P.2d 713, 715-16 (1980) (issues may be of sufficient public importance to bar the use of collateral estoppel).
. See, e.g., Nixon v. Herndon, 273 U.S. 536, 47 S.Ct. 446, 71 L.Ed. 759 (1927); Nixon v. Condon, 286 U.S. 73, 52 S.Ct. 484, 76 L.Ed. 984 (1932); Smith v. Allwright, 321 U.S. 649, 64 S.Ct. 757, 88 L.Ed. 987 (1944); Terry v. Adams, 345 U.S. 461, 73 S.Ct. 809, 97 L.Ed. 1152 (1953). Subsequently, constitutional law as applied to primary elections has developed significantly with respect to the state's relationship to political parties outside of the racial context as well. See, e.g., Rosario v. Rockefeller, 410 U.S. 752, 93 S.Ct. 1245, 36 L.Ed.2d 1 (1973); American Party of Texas v. White, 415 U.S. 767, 94 S.Ct. 1296, 39 L.Ed.2d 744 (1974); Democratic Party of United States v. Wisconsin ex rel. La Follette, 450 U.S. 107, 101 S.Ct. 1010, 67 L.Ed.2d 82 (1981); Tashjian v. Republican Party of Connecticut, 479 U.S. 208, 107 S.Ct. 544, 93 L.Ed.2d 514 (1986); Eu v. San Francisco Democratic Comm., 489 U.S. 214, 109 S.Ct. 1013, 103 L.Ed.2d 271 (1989); Burdick v. Takushi, 504 U.S. 428, 112 S.Ct. 2059, 119 L.Ed.2d 245 (1992).
.531 U.S. 98, 121 S.Ct. 525, 148 L.Ed.2d 388 (2000).
. 530 U.S. 567, 120 S.Ct. 2402, 147 L.Ed.2d 502 (2000).
. See id. at 576, n. 6, 120 S.Ct. 2402.
. See id. at 570, 120 S.Ct. 2402.
. Id. at 585-86, 120 S.Ct. 2402.
. Brief of Appellee Sam S. Reed at 46.
. Jones, 530 U.S. at 585, 120 S.Ct. 2402 (emphasis in original).
. Brief of Appellee Sam S. Reed at 46.
. Jones, 530 U.S. at 574, 120 S.Ct. 2402 (quoting Tashjian, 479 U.S. at 214-15, 107 S.Ct. 544).
. Id. at 574, 120 S.Ct. 2402.
. Id. at 575, 120 S.Ct. 2402.
. Id.
. Id. at 581, 120 S.Ct. 2402 (internal citation omitted).
. Id. at 579, 120 S.Ct. 2402.
. Id. (citing 1 Political Parties & Elections in the United States: An Encyclopedia 398-408, 587 (L. Maiseled. 1991)).
. Id. at 575, 120 S.Ct. 2402 (internal citations and quotation marks omitted).
. Id. at 582, 120 S.Ct. 2402.
. Jones, 530 U.S. at 584, 120 S.Ct. 2402 ("Respondents' remaining four asserted state interests — promoting fairness, affording voters greater choice, increasing voter participation, and protecting privacy — are not, like the others, automatically out of the running; but neither are they, in the circumstances of this case, compelling.”) (emphasis in original).
. Id. (emphasis in original).
. Brief of Appellee Sam S. Reed at 50.
. Id.
. Id. at 52.
. Jones, 530 U.S. at 583, 120 S.Ct. 2402 (quoting Tashjian, 479 U.S. at 215-16 n. 6, 107 S.Ct. 544) (citations and quotation marks omitted).
. Id. at 584, 120 S.Ct. 2402.
. Id.
. Id. at 585, 120 S.Ct. 2402.
. Wash. Rev.Code § 29.19.055.
. State ex rel. Zent v. Nichols, 50 Wash. 508, 97 P. 728, 731 (1908). See Wash. Const, art. VI, § 8 ("... the elections for such state officers shall be held in every fourth year ... on the Tuesday succeeding the first Monday in November.”).
. Brief of Appellee Sam S. Reed at 51.
. Jones, 530 U.S. at 584-85, 120 S.Ct. 2402.
. U.S. Const. Art. I, § 4, cl. 1. See also Burdick, 504 U.S. at 433, 112 S.Ct. 2059.
. Brief of Appellee Sam S. Reed at 52.
. Brief of Appellee-Intervenor Washington State Grange at 25.
. Id.
. Jones, 530 U.S. at 582, 120 S.Ct. 2402.
. Id. at 582-83, 120 S.Ct. 2402.
. Id. at 583, 120 S.Ct. 2402.
Reference
- Full Case Name
- DEMOCRATIC PARTY OF WASHINGTON STATE Paul Berendt James Apa Helen Carlstrom Vivian Caver Charlotte Coker Edward Cote Ted Highley Sally Kapphahn Karen Marchioro David Mcdonald, Joseph Nilsson David Peterson Margarita Prentice Karen Price Marilyn Sayan John Thompson Ya-Yue Van, Washington State Grange Terry Hunt Jane Hodde, Intervenors-Appellees, and Republican State Committee of Washington, Jeff Kent Lindsey Echelbarger Libertarian Party of Washington Washington State Grange Terry Hunt Jane Hodde Christopher Vance Dione Ludlow John Mills Freedom Socialist Party Green Party of Washington Chris Caputo Donald Crawford Erne Lewis, Intervenor v. Sam REED, Secretary of State of the State of Washington, Defendant-Appellee Democratic Party of Washington State Paul Berendt James Apa Helen Carlstrom Vivian Caver Charlotte Coker Edward Cote Ted Highley Sally Kapphahn Karen Marchioro David Mcdonald, Joseph Nilsson David Peterson Margarita Prentice Karen Price Marilyn Sayan John Thompson Ya-Yue Van, Jeff Kent, Libertarian Party of Washington Washington State Grange Terry Hunt Jane Hodde Dione Ludow John Mills Freedom Socialist Party Green Party of Washington Chris Caputo Donald Crawford Erne Lewis, Intervenor, and Republican State Committee of Washington, Jeff Kent Lindsey Echelbarger Libertarian Party of Washington Washington State Grange Terry Hunt Jane Hodde Christopher Vance Dione Ludlow John Mills Freedom Socialist Party Green Party of Washington Chris Caputo Donald Crawford Erne Lewis Christopher Vance Lindsey Echelbarger Diane Tebelius, Intervenors-Appellants, Washington State Grange Terry Hunt Jane Hodde, Intervenors-Appellees v. Sam Reed, Secretary of State of the State of Washington, Defendant-Appellee Democratic Party of Washington State Paul Berendt James Apa Helen Carlstrom Vivian Caver Charlotte Coker Edward Cote Ted Highley Sally Kapphahn Karen Marchioro David Mcdonald, Joseph Nilsson David Peterson Margarita Prentice Karen Price Marilyn Sayan John Thompson Ya-Yue Van, Christopher Vance Republican State Committee of Washington, Jeff Kent Lindsey Echelbarger Dione Ludlow Freedom Socialist Party Green Party of Washington Diane Tebelius, Intervenors, and Libertarian Party of Washington State John Mills Chris Caputo Donald Crawford Erne Lewis, Intervenors-Appellants, Washington State Grange Terry Hunt Jane Hodde, Intervenors-Appellees v. Sam Reed, Secretary of State of the State of Washington
- Cited By
- 10 cases
- Status
- Published