Brennan Center for Justice v. New York State Board of Elections

56 Misc. 3d 376, 52 N.Y.S.3d 189
CourtNew York Supreme Court
DecidedFebruary 10, 2017
StatusPublished

This text of 56 Misc. 3d 376 (Brennan Center for Justice v. New York State Board of Elections) is published on Counsel Stack Legal Research, covering New York Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Brennan Center for Justice v. New York State Board of Elections, 56 Misc. 3d 376, 52 N.Y.S.3d 189 (N.Y. Super. Ct. 2017).

Opinion

OPINION OF THE COURT

James H. Ferreira, J.

In this hybrid CPLR article 78 proceeding and declaratory judgment action, petitioners, comprised of both a not-for-profit, nonpartisan public policy and law institute and several former, current and aspiring New York politicians, challenge a determination of respondent New York State Board of Elections (hereinafter the Board) rejecting, by a vote of 2-2, a motion to approve a proposed opinion which would have, among other things, ordered that limited liability companies (hereinafter LLCs) be treated as a partnership or corporation for purposes of the corporate contribution limits set forth in article 14 of the Election Law.

Background

This combined proceeding and action concerns the so-called “LLC Loophole” created by a formal opinion issued by the Board in 1996 (1996 Op St Bd of Elections No. 1) (hereinafter the 1996 Opinion). In the 1996 Opinion, the Board found that LLCs—which had been recently created by statute—are “not subject to the contribution limits placed on corporations in Article 14 of the Election Law” but, instead, are persons and “may make contributions in their own right subject to the limits applicable to other individuals as enumerated in Article 14” (affirmation in support of petition, exhibit 7). Since the issuance of the 1996 Opinion, numerous attempts to effectively “close” the LLC loophole and subject LLCs to the same contribution limits as partnerships and corporations have been made in the legislature, without success. On April 16, 2015, the Board considered a motion made by Board Cochair Douglas A. Kell-ner to direct its counsel to prepare an opinion which would rescind the 1996 Opinion and provide updated guidance with respect to the applicability of article 14 of the Election Law to [378]*378LLCs. The Board’s vote on the motion was 2-2 and the motion failed.1

Petitioners Brennan Center for Justice at NYC School of Law, Gerald Benjamin, Liz Krueger, Daniel L. Squadron, Maureen Koetz and Brian Kavanagh, as well as another individual, commenced a hybrid CPLR article 78 proceeding and declaratory judgment action seeking review of the Board’s April 16, 2015 decision. In a decision/order/judgment dated March 16, 2016, the court (Fisher, J.) dismissed the petition in its entirety (see Matter of Brennan Ctr. for Justice at NYU Sch. of Law v New York State Bd. of Elections, 52 Misc 3d 246, 255-269 [Sup Ct, Albany County 2016]) (hereinafter Brennan I). The court first rejected the petitioners’ position that an affirmative vote on the motion that was before the court would have definitively closed the LLC loophole. The court observed:

“On a successful vote, [the Board] was to rescind the 1996 Opinion and provide ‘updated guidance’ on the applicability of article 14 and LLCs. In that updated guidance, [the Board] was free to issue another advisory opinion resulting in the same conclusion thus preserving the ‘LLC Loophole.’. . .
“Thus, the action being contested was nothing more than the ministerial act of directing [the Board’s] counsel to redraft a new opinion which could preserve, modify, or eliminate the ‘LLC Loophole’ ” (id. at 256).

The court thus determined that the April 16, 2015 action was an allocation of resources that was outside the purview of the court. The court found that it did not need to go further with respect to the CPLR article 78 petition but went on to address the issues of timeliness and standing, as well as the merits of the petition, resolving all of those issues in the Board’s favor. The court also found that the cause of action for a declaratory judgment—which sought a declaration “that the Board’s policy is unlawful, invalid, and unenforceable and null and void ab initio as an ultra vires and illegal action”—was ambiguous because it did not identify which policy (the 1996 Opinion or the Apr. 16, 2015 vote) the petitioners were challenging and therefore failed to state a cause of action (id. at 266-267). Surmising that the petitioners were attempting to [379]*379attack the policy set forth in the 1996 Opinion, the court declined to issue a declaratory judgment on the ground that the statute of limitations with respect to the 1996 Opinion had expired.

Shortly thereafter, at a Commissioners’ meeting held on April 5, 2016, Mr. Kellner moved the Board to adopt a proposed draft opinion which would rescind and replace the 1996 Opinion and hold that LLCs be treated as partnerships or corporations under the Election Law (see affirmation in support of petition, exhibits 21, 22 at 49-50). The Board’s vote on the motion was 2-2 and the motion failed. Petitioners thereafter commenced the instant hybrid proceeding and action. Respondent has filed an answer and Brian L. Quail, Esq., cocounsel to the Board, has submitted, on consent of all of the parties and on behalf of the Democratic Commissioners of the Board, a proposed ami-cus curiae brief for the court’s consideration. The court hereby grants Mr. Quail’s request to consider the amicus curiae brief.2 Petition

In the petition, petitioners argue that the Board’s decision is arbitrary and capricious and “reflects grave legal errors under both the Election and LLC Laws” (petition ¶ 3). Specifically, petitioners assert that the determination “severely undercuts and undermines the central purpose of the campaign finance scheme by facilitating massive circumvention of the Election Law’s framework of contribution limits and disclosure requirements” (petition 1 100). Petitioners also argue that the Board’s decision ignores and renders null the statutory definition of an LLC set forth in Limited Liability Company Law § 102 (m) and “fails to consider the fundamental nature of LLCs and how they are treated by other agencies,” namely, as corporations or partnerships (petition f 102). Petitioners seek an order invalidating the Board’s April 2016 decision, rescinding the 1996 Opinion and ordering the Board to issue a new opinion consistent with the text and purpose of the Election Law and Limited Liability Company Law. They also seek a declaration that “the Board’s policy is unlawful, invalid, and unenforceable and null and void ab initio as an ultra vires and illegal action” [380]*380(petition ¶ 111). In opposition, respondent argues, among other things, that petitioners are collaterally estopped from relitigat-ing the issues raised in this proceeding, that petitioners lack standing, that the petition presents a political question which is not justiciable and that the proceeding is barred by the statute of limitations.

Analysis

“[I]t is a fundamental principle of the organic law that each department of government should be free from interference, in the lawful discharge of duties expressly conferred, by either of the other branches” (Matter of New York State Inspection, Sec. & Law Enforcement Empls., Dist. Council 82, AFSCME, AFL-CIO v Cuomo, 64 NY2d 233, 239 [1984]). To that end, it has been held that “courts do not normally have overview of the lawful acts of appointive and elective officials involving questions of judgment, discretion, allocation of resources and priorities” (Matter of Lorie C., 49 NY2d 161, 171 [1980]; see Matter of New York State Inspection, Sec. & Law Enforcement Empls., Dist. Council 82, AFSCME, AFL-CIO v Cuomo, 64 NY2d at 239) and “cannot ‘intrude upon the policy-making and discretionary decisions that are reserved to the legislative and executive branches’ ”

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Baker v. Carr
369 U.S. 186 (Supreme Court, 1962)
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Nys Law Enforcement Employees v. Cuomo
475 N.E.2d 90 (New York Court of Appeals, 1984)
In re Lorie C.
400 N.E.2d 336 (New York Court of Appeals, 1980)
Klostermann v. Cuomo
463 N.E.2d 588 (New York Court of Appeals, 1984)
Brennan Center for Justice v. New York State Board of Elections
52 Misc. 3d 246 (New York Supreme Court, 2016)

Cite This Page — Counsel Stack

Bluebook (online)
56 Misc. 3d 376, 52 N.Y.S.3d 189, Counsel Stack Legal Research, https://law.counselstack.com/opinion/brennan-center-for-justice-v-new-york-state-board-of-elections-nysupct-2017.