Ariz. Indep. Redistricting Comm'n v. Mathis
Annotate this Case
Justia Opinion Summary
Want to stay in the know about new opinions from the Arizona Supreme Court?
Sign up for free summaries delivered directly to your inbox. Learn More ›
You already receive new opinion summaries from Arizona Supreme Court. Did you know we offer summary newsletters for even more practice areas and jurisdictions? Explore them here.
In early 2011, Colleen Mathis was selected as the chairperson of the Arizona Independent Redistricting Commission (IRC). In October 2011, the Governor notified the Commissioners of allegations that they had committed substantial neglect of duty and gross misconduct in office. The next month, the Secretary of State sent a letter to Mathis removing her from the IRC. Two-thirds of the Senate concurred in the removal, and Mathis was removed from office. Three days later, the IRC petitioned the Supreme Court for special action relief, claiming that the Governor exceeded her limited removal authority and that the Governor and the Senate violated separation-of-powers principles by usurping powers of the IRC and the judiciary. The Court accepted special action jurisdiction and (1) concluded, as a matter of law, that neither of the Governor's two stated grounds for removing Mathis constituted substantial neglect of duty or gross misconduct in office, as required by the Arizona Constitution; and (2) ordered that Mathis be reinstated as chair of the IRC.
Download PDF
SUPREME COURT OF ARIZONA En Banc ARIZONA INDEPENDENT REDISTRICTING COMMISSION, an Independent Constitutional Body, ) ) ) ) Petitioner, ) ) COLLEEN COYLE MATHIS, ) ) Intervenor, ) ) v. ) ) JANICE K. BREWER, in her ) official capacity as the ) Governor of the State of ) Arizona; ARIZONA STATE SENATE; ) RUSSELL PEARCE, in his official ) capacity as Senate President, ) ) Respondents. ) ) __________________________________) Arizona Supreme Court No. CV-11-0313-SA O P I N I O N Special Action JURISDICTION ACCEPTED; RELIEF GRANTED ________________________________________________________________ OSBORN MALEDON PA Phoenix By Mary R. O Grady Kristin L. Windtberg Grace E. Campbell Jean-Jacques Cabou Joseph N. Roth Attorneys for Arizona Independent Redistricting Commission JONES SKELTON & HOCHULI PLC Phoenix By A. Melvin McDonald, Jr. Lori L. Voepel Jonathan P. Barnes Attorneys for Arizona State Senate and Russell K. Pearce GAMMAGE & BURNHAM PLLC By Lisa T. Hauser Phoenix Christopher Hering Cameron C. Artigue And OFFICE OF THE GOVERNOR By Joseph Sciarrotta, Jr. Christina Estes-Werther Attorneys for Governor Janice K. Brewer LAW OFFICES OF THOMAS A. ZLAKET PLLC By Thomas A. Zlaket Attorney for Colleen Coyle Mathis Phoenix Tucson COPPERSMITH SCHERMER & BROCKELMAN PLC By Andrew S. Gordon Roopali Hardin Desai Attorneys for Amicus Curiae Linda C. McNulty Phoenix TIM NELSON, PLLC By Timothy A. Nelson Attorney for Amicus Curiae Jose Herrera Phoenix ARIZONA CENTER FOR LAW IN THE PUBLIC INTEREST Phoenix By Timothy M. Hogan Joy E. Herr-Cardillo Attorneys for Amici Curiae Ann Eschinger, Dennis Michael Burke, and Bart Turner NAVAJO NATION, DEPARTMENT OF JUSTICE By Dana L. Bobroff Michelle Begay Window Rock And SACKS TIERNEY PA By Judith M. Dworkin Patricia Ferguson-Bohnee Attorneys for Amicus Curiae Navajo Nation Scottsdale ARIZONA HOUSE OF REPRESENTATIVES By Peter A. Gentala Attorney for Amici Curiae Andrew M. Tobin, Alan L. Krieger, Marlin Kuykendall, and John Moore Phoenix PERKINS COIE LLP By Paul F. Eckstein Phoenix 2 Amelia M. Gerlicher Kirstin T. Eidenbach Attorneys for Amici Curiae Common Cause, Susan Gerard, Lucia Howard, Paul Johnson, and Roberta L. Voss PEà ALOSA & ASSOCIATES Phoenix By Jose L. Peñalosa, Jr. Attorney for Amici Curiae Barbara L. Klein and Ken Clark CANTELME & BROWN PLC Phoenix By David J. Cantelme Attorney for Amicus Curiae Speaker Andrew M. Tobin ________________________________________________________________ P E L A N D E R, Justice ¶1 of This special action challenges the Governor s removal Chairperson Redistricting issued an jurisdiction follow. Colleen Commission order, and from ( IRC ). clarified granting the On on relief Arizona November November with a Independent 17, 23, written 2011, we accepting opinion to This is that opinion. I. ¶2 Mathis The constitutionally FACTUAL AND PROCEDURAL BACKGROUND IRC consists charged five drawing citizen volunteers Arizona s congressional and state legislative districts every ten years. Ariz. Const. art. 4, pt. 2, § 1(3). with of Commissioners are nominated by the Commission on Appellate Court Appointments. Id. § 1(4)-(5). The first four appointments are made by the highest ranking officers and minority party leaders of the Arizona House of Representatives and Senate. Id. § 1(6). Those four commissioners then select a chairperson, the fifth commissioner, 3 from a pool of nominees not registered with any party already represented on the IRC. ¶3 Id. § 1(8). The four partisan appointees on the present IRC are Republicans Scott Freeman and Richard Stertz and Democrats Jose Herrera and Linda McNulty. selected Colleen Chairperson. Mathis, The IRC In early 2011, they unanimously a then registered began Independent, holding meetings as the aimed at accomplishing its core function to prepare draft maps for Arizona s congressional and legislative districts, obtain public comment, adjust and finalize the maps, and submit final maps to the United States Department of Justice for approval. Ariz. Const. art. 4, pt. 2, § 1; 42 U.S.C. § 1973c. ¶4 In June 2011, the IRC retained a mapping consultant, Strategic Telemetry, after a three-to-two vote in which Mathis, Herrera, and McNulty were in the majority. the Attorney General s Office began Several weeks later, investigating the IRC s compliance with Arizona s open meeting and procurement laws with respect to the Strategic Telemetry contract. raised questions of first impression The investigation regarding the scope of Arizona s statutory open meeting law and its applicability to the IRC, which has a separate constitutionally mandated open meeting requirement. See Ariz. Const. art. 4, pt. 2, § 1(12). Litigation of those issues was pending in superior court when this special action was filed in and decided by this Court. 4 ¶5 In October 2011, the IRC approved draft maps for new congressional and legislative districts by a three-to-two vote, with Mathis and the two Democratic Commissioners again in the majority. The IRC then advertised those maps and embarked on statewide meetings to obtain public comment. See Ariz. Const. art. 4, pt. 2, § 1(16). ¶6 On Wednesday, October 26, 2011, Governor Janice K. Brewer notified all five Commissioners in writing of allegations that they had committed substantial neglect of duty and gross misconduct in office. Arizona s Constitution permits a governor to remove an IRC commissioner, with the concurrence of twothirds of the Senate, for substantial neglect of duty, gross misconduct in office, or inability to discharge the duties of office. a Ariz. Const. art. 4, pt. 2, § 1(10). commissioner must be opportunity to respond. ¶7 issues served written Before removal, notice and given an Id. In her October 26 letter, the Governor raised four and listed seven IRC contribut[ed] to cause for removal.1 1 actions that allegedly The Governor asked each In her October 26 letter, the Governor charged the IRC with violating constitutional requirements in the preparation of draft maps; refusing to cooperate with the Attorney General s Office in its investigation of open meeting law issues; prearranging votes in violation of open meeting requirements and principles; and committing procurement improprieties to manipulate selection of specific vendors. 5 Commissioner to respond by 8 a.m. on Monday, October 31, 2011. The IRC and the five Commissioners separately responded to the Governor s letter by that deadline. ¶8 On November 1, Secretary of State Ken Bennett, in his capacity as Acting Governor while Governor Brewer was out of state,2 sent a letter to Commissioner Mathis removing her from the IRC, effective upon concurrence of two-thirds of the Senate. That letter stated in full: Dear Ms. Mathis: Thank you for your October 31, 2011 letter, in response to my October 26, 2011 letter, in which you were given written notice of allegations that you have committed substantial neglect of duty and/or gross misconduct in office. The Arizona Constitution is designed to ensure that Arizona s redistricting process is undertaken by commissioners committed to their constitutional duty to apply the provisions of Arizona Constitution, Art. 4, Pt. 2, § 1 in an honest, independent and impartial fashion, and to transact the redistricting process in a way that upholds public confidence in the integrity of the redistricting process. To that end, the Constitution expressly confers on me the authority to remove a commission member when in my judgment, and with the concurrence of two-thirds of the Arizona Senate, there has been substantial neglect of duty, gross misconduct in office, or an inability to discharge the duties of office. After careful review of your response and the responses of the other commissioners, I have determined that you have failed to conduct the Arizona Independent Redistricting Commission s business in meetings open to the public, and failed to adjust the grid map as necessary to accommodate all of the goals 2 Because Secretary of State Bennett acted on the Governor s behalf, we refer to them interchangeably. 6 set forth in Arizona Constitution Art. 4, Pt. 2, § 1(14), including, but not limited to, the failure to consider or determine whether the creation of a competitive district is practicable or does not cause significant detriment to the other goals. The result is a failure to apply the Arizona Constitution s redistricting provisions in an honest, independent and impartial fashion, and a failure to uphold public confidence in the integrity of the redistricting process. In my judgment, the foregoing constitutes substantial neglect of duty or gross misconduct in office. Accordingly, I hereby remove you as the fifth member of the Arizona Independent Redistricting Commission and as its Chair. This removal will be effective immediately upon concurrence of two-thirds of the Arizona Senate. Sincerely, Ken Bennett Acting Governor on behalf of Janice K. Brewer Governor ¶9 Acting Governor Bennett called a special session of the Legislature at 4:45 p.m. on November 1, 2011, to remove Chairperson Mathis from the IRC. Two-thirds of the Senate concurred in the removal, and the Senate adjourned sine die at 6:35 p.m. that day. ¶10 Three days later, the IRC petitioned this Court for special action relief, claiming that the Governor exceeded her limited removal authority and that the Governor and Senate violated separation-of-powers principles by usurping powers of the IRC and the judiciary. petitioner. Mathis moved to intervene as a We granted that motion, obtained further briefing 7 from the parties and various amici, and held expedited oral argument.3 II. ¶11 JURISDICTION In challenging whether the Governor acted within her legal authority in removing Mathis, Petitioners question covered by our special action rules. Spec. Act. 3(b). raise a See Ariz. R. P. Those procedural rules combine the old common law writs into a single form of action, but do not expand the constitutional scope of this Court s original jurisdiction. See id. 1(a); cf. Ingram v. Shumway, 164 Ariz. 514, 516, 794 P.2d 147, 149 (1990) (finding original jurisdiction based on applicable constitutional provisions, rather than on special action procedure). ¶12 The IRC invoked our subject matter jurisdiction under Article 6, provision mandamus, officers Section grants this injunction and extends provided by law. A.R.S. 5 § 12-2021 of the Court and Arizona original other [s]uch Constitution. jurisdiction extraordinary other to issue to state writs jurisdiction That as may be Ariz. Const. art. 6, § 5(1), (6); see also (empowering this Court to issue a writ of mandamus to any person . . . to compel the admission of a party to the use and enjoyment of a right or office to which he is 3 Petitioners in this opinion includes the IRC and Mathis unless otherwise indicated. 8 entitled and from which he is unlawfully precluded by such . . . person ). ¶13 The Governor argues that we lack jurisdiction because this special action does not fall within any of the categories specified in Article 6, Section 5. But, regardless of whether the relief requested is characterized as mandamus, certiorari, or some other extraordinary writ, we find original subject matter jurisdiction here. See Forty-Seventh Legislature v. Napolitano, 213 Ariz. 482, 485 ¶ 10, 143 P.3d 1023, 1026 (2006) (finding that [t]his Court has original jurisdiction to issue extraordinary writs against state officers, including the governor); Rios v. Symington, 172 Ariz. 3, 5, 833 P.2d 20, 22 (1992) (same); see also Holmes v. Osborn, 57 Ariz. 522, 527, 540-41, 115 certiorari P.2d 775, proceeding Commissioners and 778, 783-84 gubernatorial noting that the (1941) (reviewing removal governor of acted in Industrial in quasi- judicial capacity in exercising removal power). ¶14 We exercised our discretion to accept special action jurisdiction because the legal issues raised required prompt resolution and are of first impression and statewide importance. See Rios, 172 Ariz. at 5, 833 P.2d at 22 ( In limited circumstances, a judicial proceeding by way of special action may be appropriate to test the constitutionality of executive conduct. ); see also Adams v. 9 Comm'n on Appellate Court Appointments, 227 Ariz. 128, 131 ¶ 9, 254 P.3d 367, 370 (2011); Brewer v. Burns, 222 Ariz. 234, 237 ¶ 8, 213 P.3d 671, 674 (2009). III. A. Standing ¶15 and JUSTICIABILITY Respondents argue that the IRC is not a jural entity therefore lacks standing to constitutionally specified areas. 2, § 1(20). sue except in certain See Ariz. Const. art. 4, pt. Respondents also contend that the IRC suffered no distinct and palpable injury. See Brewer, 222 Ariz. at 237 ¶ 12, 213 P.3d at 674 ( To have standing, a party generally must allege a judicial particularized decision. ). injury But that Mathis, would who be was remediable displaced by from office, unquestionably has standing to challenge the legality of the Governor s removal action. Therefore, we need not decide whether the IRC also has standing. See Crawford v. Marion Cnty. Election Bd., 553 U.S. 181, 189 n.7 (2008). B. Political Question ¶16 Respondents also argue that this case presents non- justiciable entrusts some government, (providing political questions. matters not the that the solely to judiciary. three The the See departments Arizona political Ariz. of Constitution branches Const. Arizona art. of 3 government shall be separate and distinct, and no one of such departments 10 shall exercise the powers properly belonging to either of the others ); Kromko v. Ariz. Bd. of Regents, 216 Ariz. 190, 192-93 ¶ 12, 165 P.3d 168, 170-71 (2007). constitutional issues with That a lawsuit involves significant political overtones, however, does not automatically invoke the political question doctrine. INS v. Chadha, 462 U.S. 919, 942-43 (1983); see also Zivotofsky ex rel. Zivotofsky v. Clinton, 132 S. Ct. 1421, 1428 (2012) (noting that courts cannot avoid their responsibility to resolve litigation challenging the constitutional authority of one of the three branches . . . merely because the issues have political implications (internal quotation marks omitted)). ¶17 Under separation-of-powers principles, a non- justiciable political question is presented when there is a textually demonstrable constitutional commitment of the issue to a coordinate discoverable political and department; manageable or standards a lack for of judicially resolving it. Kromko, 216 Ariz. at 192 ¶ 11, 165 P.3d at 170 (quoting Nixon v. United States, 506 U.S. 224, 228 (1993)). Although this test is generally the framed in the disjunctive, fact that the Constitution assigns a power to another branch only begins the inquiry. Kromko, 216 Ariz. at 193 ¶ 13, 165 P.3d at 171; see also Forty-Seventh Legislature, 213 Ariz. at 485 ¶ 7, 143 P.3d at 1026 ( Political questions, 11 broadly defined, involve decisions that the constitution commits to one of the political branches of government judicial resolution and raise according to issues not discoverable susceptible and to manageable standards. (emphasis added)). ¶18 A conclusion that there is a textually demonstrable commitment to a coordinate branch is strengthened when the Constitution does not provide judicially manageable standards for review. (citing Kromko, 216 Ariz. at 193 ¶ 14, 165 P.3d at 171 Nixon, 506 U.S. at 228-29). Conversely, the significance of a textually demonstrable commitment to another branch is weakened when the Constitution expressly provides discernible and manageable standards for judicial review. In other words, the two aspects of the test are interdependent. See id. at 193 ¶¶ 13-14, 165 P.3d at 171. ¶19 The Constitution provides for removal of an IRC Commissioner as follows: After having been served written notice and provided with an opportunity for a response, a member of the independent redistricting commission may be removed by the governor, with the concurrence of two-thirds of the senate, for substantial neglect of duty, gross misconduct in office, or inability to discharge the duties of office. Ariz. Const. art. 4, pt. 2, § 1(10). assigns removal supermajority power concurrence to the of the That provision expressly governor, subject Senate. This to a textual commitment, Respondents assert, makes Petitioners challenge to 12 Mathis s removal a non-reviewable political question. But we must also consider whether Section 1(10) identifies judicially manageable standards for review. ¶20 Respondents contend that this provision vests the political branches alone with the power to determine whether constitutional cause exists for removal, a determination subject to judicial review under any circumstances. not Section 1(10) s removal provision, Respondents argue, is akin to the legislature s constitutional impeachment power and, therefore, this case is controlled by Mecham v. Gordon, 156 Ariz. 297, 751 P.2d 957 (1988) (Mecham I), and Mecham v. Arizona House of Representatives, 162 Ariz. 267, 782 P.2d 1160 (1989) (Mecham II) (collectively Mecham Cases ). In Mecham I, we held that the Constitution gives the Senate, rather than this Court, the power to determine what rules and procedures should be followed in the impeachment trial. 156 Ariz. at 303, 751 P.2d at 963. In Mecham II, we declined to review impeachment proceedings that culminated in removal of the governor from office and stated that, when all constitutional requirements undisputedly were met, this Court has no jurisdiction to review the proceedings in the legislature, to examine for error of fact or law, . . . to prescribe or reject rules to be followed by the Senate during the trial, or impeachable acts. to determine whether a governor 162 Ariz. at 268, 782 P.2d at 1161. 13 committed ¶21 The impeachment issues addressed in the Mecham Cases, however, are sui generis; for several reasons, those decisions do not categorically apply to other provisions such as Section 1(10). constitutional removal First, the constitutional commitment of impeachment powers to the legislature is textually exclusive. impeachment This Court determined in Mecham I that Arizona s provisions are structurally similar correspond with those in the federal Constitution.4 301, 751 P.2d at 961. to and 156 Ariz. at In construing the federal clause, which provides [t]he Senate shall have the sole Power to try all Impeachments, the Supreme Court concluded that use of the word sole described an authority reposed in the legislative branch and nowhere else. Nixon, 506 U.S. at 229 (citing U.S. Const. art. 1, § 3, cl. 6). In Mecham I, we found Arizona s similar constitutional text granting sole power of impeachment to the House of Representatives and mandating the Senate to try [a]ll impeachments similarly demonstrated authority reposed exclusively in the legislative branch. 156 Ariz. at 301, 751 P.2d at 961 (quoting Ariz. Const. art. 8, pt. 2, § 1). In contrast, Section 1(10) has no such exclusionary or mandatory language. 4 See U.S. Const. art. 1, § 2, cl. 5 ( The House of Representatives . . . shall have the sole Power of Impeachment. ); art. 1, § 3, cl. 6 ( The Senate shall have the sole Power to try all Impeachments. ). 14 ¶22 Second, impeachment under Article 8 of Arizona s Constitution includes four important procedural checks to ensure a Senate trial s just outcome. Article 8 requires the Senate to try all impeachments; when sitting for trial, senators must be on oath or affirmation to do justice according to law and evidence; the chief justice must preside over the trial; and two-thirds of the Senate must concur in the impeachment. Ariz. Const. art. 8, pt. 2, §§ 1, 2. ¶23 Section 1(10), on the other hand, does not require a trial; an oath, affirmation, or a just determination based on law and evidence; or representative governmental department. oversight by another The requirement of two-thirds Senate concurrence is a significant check on the governor s removal power and poses a potentially formidable hurdle to curb abuse of executive discretion. But the absence in Section 1(10) of the other procedural and substantive safeguards found in Article 8 distinguishes the Senate s role under Section 1(10) from its role in an impeachment. ¶24 Third, impeachment was uniquely designed by the framers of the federal Constitution to be a political process. THE FEDERALIST, No. 65 (A. Hamilton). The framers considered and rejected a judicial role in the process, deciding instead that impeachment should be a legislative inquest into the conduct of public men. Id. Arizona s 15 impeachment framework is no different. See Ingram, 164 Ariz. at 519, 794 P.2d at 152 ( Impeachment, essentially a political process, is not subject to judicial review. ). In contrast, the constitutional provisions creating and governing the IRC, which include Section 1(10), were designed to remove redistricting from the political process by extracting this authority from the legislature and governor and instead granting it to an independent commission of balanced appointments. Ariz. Sec y of State 2000 Publicity Pamphlet 60 (2000) (providing the title and text of Proposition 106, which established the IRC as a constitutional body); see also Ariz. Minority Coal. for Fair Redistricting v. Ariz. Indep. Redistricting Comm n, 220 Ariz. 587, 591 ¶ 2, 208 P.3d 676, 680 (2009). ¶25 The political intent process prohibitions to is against distance also IRC reflected commissioners redistricting in the having held from the constitutional a political appointment or office for three years before IRC service, and against their working as a state public officer or paid lobbyist for three years after such service. Ariz. Const. art. 4, pt. 2, § 1(3), (13); see also Adams, 227 Ariz. at 131-32 ¶ 10, 135 ¶ 30, 254 P.3d redistricting memorial or is at 370-71, limited minority 374. to report, The legislature s submitting which the establishing final district boundaries. 16 role in recommendations by IRC considers before Ariz. Const. art. 4, pt. 2, § 1(16). And, other than Section 1(10) s removal provision, the Constitution provides no role for the governor in the redistricting process. These factors suggest that Section 1(10) removal is not exclusively political or beyond judicial review. ¶26 Finally, impeachment is a political question because it serves in part as an important constitutional check on the judiciary. Nixon, 506 U.S. at 235 (quoting THE FEDERALIST, No. 81 (A. Hamilton)); see also Ariz. Const. art. 8, pt. 2, § 2 (making judicial officers subject to impeachment). Judicial review of impeachment proceedings would eviscerate this check by placing final review authority in the hands of the same body that the impeachment process is meant to regulate. U.S. at 235. Judicial review of a governor s Nixon, 506 exercise of Section 1(10) removal power gives rise to no such concerns. ¶27 For these reasons, the Mecham Cases do not control the justiciability of a challenge to commissioner under Section 1(10). 115 P.2d at 782 (finding that gubernatorial removal of a See Holmes, 57 Ariz. at 537, impeachment cases lend very little aid in determining whether the governor legally removed Industrial Commissioners). Accordingly, we turn to whether judicially discoverable and manageable standards exist to allow and guide review of such removal for constitutional compliance. ¶28 Removal under Section 1(10) requires a finding by the 17 governor of substantial neglect of duty, gross misconduct in office, or inability to discharge the duties of office. The question the of justiciability here turns on whether constitutionally prescribed causes for removal can be discovered and managed by the courts. ¶29 The Governor argues that the finding of cause for removal is a subjective policy determination, and a court cannot define or construe Section 1(10) s terms without substituting its judgment for subjectively committed removed Senate. determine legal determine one under governor, hers. of subject be whether the Section To stated 1(10) only to a sure, commissioner grounds this that for of found removal judgment concurrence Court cannot to have should be belongs to the two-thirds of the It is plainly within the courts ambit, however, to whether cause when, the as stated here, grounds the for removal Constitution constitute provides clear, comprehensible standards. ¶30 In Kromko, we concluded the question presented was nonjusticiable under the political question doctrine because the constitutional mandate at issue that university tuition be as nearly free as possible could not be assessed without first making policy determinations clearly reserved to the legislature and Board of Regents, such as proper class size and facility maintenance. 216 Ariz. at 194 18 ¶¶ 18-21, 165 P.3d at 172. Kromko, however, does not support the Governor s position here. Courts, both in this state and elsewhere, routinely construe such standards as written notice, opportunity to respond, neglect of duty, and gross misconduct. See, e.g., Holmes, 57 Ariz. at 539-40, 115 P.2d at 783 (neglect of duty); Sims v. Moeur, 41 Ariz. 486, 489, 19 P.2d 679, 680 (1933) (same); In re Zawada, 208 Ariz. 232, 234 ¶ 4, 239 ¶ 25, 92 P.3d 862, 864, 869 (2004) (gross misconduct); Jones v. Kan. State Univ., 106 P.3d 10, 25-26, 28 (Kan. 2005) (same); cf. Brewer, 222 Ariz. at 239 ¶¶ 20-22, 213 P.3d at 676 (finding the term reasonable to be judicially discoverable regularly assess contexts ). principles the Here, exist to and manageable reasonableness unlike guide Kromko, us in because of actions [c]ourts in well-established determining many legal whether the Governor s removal of Mathis meets constitutional requirements, without substituting our subjective judgment on facts or on the nature and severity of Mathis s alleged wrongs. Kromko, 216 Ariz. at 194 ¶ 21, 165 P.3d at 172. ¶31 Indeed, review of executive for-cause removals long been recognized as within the judiciary s sphere. has See Holmes, 57 Ariz. at 527-28, 558, 115 P.2d at 778, 790 (annulling the governor s inefficiency, nonfeasance in removal neglect of office ). of Industrial duty, malfeasance, Judicial 19 Commissioners review misfeasance is for and particularly appropriate when an executive seeks to remove a commissioner from an independent body such as the IRC. See Humphrey s Ex r v. United States, 295 U.S. 602, 629-32 (1935) (holding that the President could only remove Federal Trade Commissioner during prescribed term for identified statutory grounds, and noting that it is quite evident that one who holds his office only during the maintain will ); an pleasure of attitude Lunding v. another of cannot independence Walker, 359 be depended against N.E.2d 96, the 101 upon to latter s (Ill. 1976) (finding properly reviewable by the courts the governor s forcause removal of a member of the State Board of Elections, and noting the independent nature of the Board and that public interest demands[] political influence that or Board members discipline in not the be amenable discharge of to their official duties ); Hall v. Tirey, 501 P.2d 496, 501 (Okla. 1972) (concluding that a member of an independent board who acts in a quasi-legislative decide whether standards capacity his established is removal by the entitled [for cause] to have the complied Legislature ); Bowers courts with v. the Penn. Labor Relations Bd., 167 A.2d 480, 484 (Pa. 1961) (rejecting governor s claim that he could remove at his pleasure a member of the Labor Relations Board, whose members were not to be made amenable to political influence or discipline in the discharge of their official duties ). 20 ¶32 The gubernatorial Constitution, not statute. or lessen a court s removal power derives from the That fact, however, does not alter power to review whether removal of an independent commissioner meets constitutional requirements. See Holmes, 57 Ariz. at 541, 115 P.2d at 784 (stating this Court may inquire into the existence of jurisdictional facts, that is, whether the charges constitute legal cause for removal, when removal is authorized only for cause or for causes specified in the Constitution or statutes (citing People ex rel. Emerson v. Shawver, 222 P. 11, 30 (Wyo. 1924))); Lunding, 359 N.E.2d at 97, 101 (reviewing governor s removal of independent board member who was constitutionally removable for neglect of duty). ¶33 are The Senate argues that the above-cited removal cases inapposite governor s provided because decision for political necessarily in branch each not Section of immunize an the involved subject 1(10). action action to judicial the But taken from review legislative ratification by another judicial of a check by one does not review. To conclude otherwise would deprive the judiciary of its authority, and indeed its obligation, to interpret and apply constitutional law. Cf. Chadha, 462 U.S. at 942 n.13 ( The assent of the Executive to a [legislative] bill which contains a provision contrary to the Constitution does not shield it from judicial review. ). 21 ¶34 Taken to its logical conclusion, the Senate s argument would preclude courts from reviewing any law promulgated under the legislature s Article 4 power because the enactment was subject to an executive check under the governor s Article 5 power to veto or approve legislation. But it is well settled that when one with standing challenges a duly enacted law on constitutional resolve the statutes grounds, issue are even the judiciary though the promulgation constitutionally political branches. is committed department and to to approval of other two the See Forty-Seventh Legislature, 213 Ariz. at 485 ¶ 8, 143 P.3d at 1026 ( To determine whether a branch of state government has exceeded the powers granted by the Arizona Constitution requires that we construe the language of the constitution and declare what the constitution requires. ); THE FEDERALIST, No. 78 (A. Hamilton) ( The interpretation of the laws is the proper and peculiar province of the courts and [a] constitution is . . . and must be regarded by the judges[] as fundamental law. ); Marbury v. Madison, 5 U.S. (1 Cranch) 137, 177 (1803) ( It is emphatically the province and duty of the judicial department to say what the law is. ). ¶35 challenged Likewise, on when removal constitutional of an grounds, IRC it commissioner is our duty is to interpret and apply the constitutional limits even though the power and decision to remove and concur reside with the Governor 22 and Senate respectively. our constitutional government. This We are aware of the delicate balance framework Court overstepping its bounds. requires among understands the the branches importance of of not We are also mindful of the tension that results when courts are asked to judge the conduct of other branches. See, e.g., Zivotofsky, 132 S. Ct. at 1427 ( [T]he Judiciary has a responsibility to decide cases properly before it, even those it would gladly avoid. (quoting Virginia, 19 U.S. (6 Wheat.) 264, 404 (1821))). Cohens v. For the reasons stated above, however, we conclude that our review of whether the Governor complied with Section 1(10) s legal standards in removing Commissioner question doctrine. Mathis is not barred by the political See Zivotofsky, 132 S. Ct. at 1430 (finding that [t]he political question doctrine poses no bar to judicial review when issues raised sound in familiar principles of Governor exceeded her constitutional interpretation ). IV. ¶36 Petitioners argue MERITS that the authority under Section 1(10) by removing Mathis without legal cause, unconstitutionally usurping the IRC s legislative power to draw congressional and legislative districts, and violating Mathis s due Governor s process stated rights. Because grounds for we conclude removing that Mathis the were constitutionally deficient, we do not address Petitioners other 23 arguments. ¶37 Section 1(10) limits the legal cause for removal to substantial neglect of duty, gross misconduct in office, or inability to discharge the duties of office. 4, pt. 2, § 1(10). here. Ariz. Const. art. Only the first two grounds are at issue The Governor neither alleged nor found that Mathis was unable to discharge the duties of her office. ¶38 conduct The the Governor removed Mathis Arizona Independent because she Redistricting failed to Commission s business in meetings open to the public, and failed to adjust the grid map as necessary to accommodate all of the goals set forth in Arizona Constitution Art. 4, Pt. 2, § 14, concluding that these failures constitute[] substantial neglect of duty or gross misconduct in office. broader letter allegations to all five of IRC The Governor had made additional, improprieties Commissioners. But, in her after October 26 soliciting, receiving, and considering the Commissioners responses to those charges, the Governor memorialized her findings in the November 1 letter and articulated only the two aforementioned grounds for removing Mathis. The November 1 letter did not include other bases for removal or incorporate by reference any of the various charges made in the October 26 letter. Cf. Sims, 41 Ariz. at 488-89, 19 P.2d at 680 (after serving Industrial Commissioners with written charges alleging grounds for removal and conducting 24 an evidentiary hearing, the governor made findings that all of the previously specified charges were sustained). Therefore, in analyzing the constitutionality of the removal, we consider only the two grounds expressly specified in the November 1 letter.5 ¶39 We do not today find, assess, or weigh facts.6 Our task is to interpret the language in Section 1(10) to determine whether the stated grounds for removal meet the constitutional standards. ¶40 a duty. Neglect of duty is the substantial failure to perform Holmes, 57 Ariz. at 540, 115 P.2d at 783. It impl[ies] wrongdoing, some act of omission or commission in 5 The November 1 letter also stated that [t]he result of Mathis s two specified missteps is a failure to apply the Arizona Constitution s redistricting provisions in an honest, independent and impartial fashion, and a failure to uphold public confidence in the integrity of the redistricting process. (Emphasis added). The italicized language is not found in Section 1(10), but rather in Section 1(3), which addresses appointment qualifications and sets forth aspirational goals and expectations for commissioners. Those provisions do not constitute separate legal grounds for removal under Section 1(10) and cannot be considered apart from the two grounds for Mathis s removal set forth in the November 1 letter. 6 As a general rule, the weight and sufficiency of evidence will not be reviewed on certiorari unless it is necessary to determine jurisdictional facts. Hunt v. Norton, 68 Ariz. 1, 6, 198 P.2d 124, 127 (1948); see also Johnson v. Mofford, 193 Ariz. 540, 543 ¶ 14, 544 ¶ 16, 975 P.2d 130, 133-134 (App. 1998) (when the governor has power to remove an official, the court s role in judicial review is narrow and restrained, not to determine whether evidence warrants the removal, but rather merely to ensure that the executive branch complies with the constitutions of Arizona and the United States (citing Farish v. Young, 18 Ariz. 298, 307-08, 158 P. 845, 849 (1916))). 25 office the law required to be done which was not done or if done was done in an unlawful manner. 783. Id. at 539-40, 115 P.2d at Section 1(10) s express use of the term substantial to describe the type of neglect of duty allowing removal emphasizes that a commissioner s failure must be categorical and egregious. (finding Cf. Holmes, 57 Ariz. at 551-52, 115 P.2d at 788 that an Industrial Commissioner s maintenance of excessive reserves and failure to revise rates did not violate statutory requirements, and that his failure to collect premiums was de minimis and without harm, and thus his conduct did not rise to neglect of duty); Sims, 41 Ariz. at 503, 19 P.2d at 685 (finding an Industrial Commissioner s failure to strictly comply with statutory requirements for annual reports did not rise to such neglect of duty . . . as to be cause for removal ). ¶41 Misconduct in office consists of a public officer s corrupt violation of assigned misfeasance, or nonfeasance. Modern Legal Usage 564 duties by malfeasance, Bryan A. Garner, A Dictionary of (2d ed. 1995); see also Black s Law Dictionary 1089 (9th ed. 2009) (defining official misconduct and recognizing it is also termed misconduct in office ). Malfeasance is doing that which [an] officer has no authority to do, and is positively wrong or unlawful. at 540, 115 P.2d at 783. wrongful manner that which Holmes, 57 Ariz. Misfeasance . . . is doing in a law 26 authorizes or requires [an officer] to do. Id. duty, defined above. ¶42 Gross Nonfeasance is synonymous with neglect of Id. misconduct is different in kind as well as degree, requiring a knowing and willful violation of a legal duty. See, e.g., Jones, 106 P.3d at 25-26, 28; John v. John, 450 N.W.2d 795, 801-02 (Wis. App. 1989); Geeslin v. McElhenney, 788 S.W.2d 683, 685 (Tex. App. 1990); cf. In re Zawada, 208 Ariz. at 234 ¶ 4, 237 ¶¶ 15, 17, 239 ¶ 25, 92 P.3d at 864, 867, 869 (finding disrespect a for, prosecutor s prejudice appeals against, and to the jury s harassment of fear; expert witnesses; and improper arguments were knowing, deliberate, and clearly gross misconduct ); Scott v. Scott, 75 Ariz. 116, 122, 252 P.2d 571, 575 (1953) (gross or wanton negligence is highly potent, . . . flagrant and evinces a lawless and destructive spirit ). Thus, gross misconduct requires a willful act or omission that the commissioner knew or should have known was wrong or unlawful. ¶43 The failed to Governor s conduct the first stated Arizona ground, Independent that Mathis Redistricting Commission s business in meetings open to the public, is not legal cause for removal. That charge expressly tracks Article 4, Part 2, Section 1(12) of the Arizona Constitution, which directs that [w]here a quorum is present, the independent redistricting commission shall conduct business in meetings open 27 to the public, with 48 or more hours public notice provided. A failure to conduct the IRC s business in meetings open to the public must at least involve a violation of that constitutional provision to constitute substantial neglect of duty or gross misconduct. At no point, however, did the Governor allege or find that a non-public meeting of a quorum of the IRC occurred. ¶44 In removing Mathis, the Governor did not refer to Arizona s opening meeting statutes, A.R.S. §§ 38-431 to -431.09. Indeed, the question of whether those statutes apply to the IRC was the subject of pending litigation and unresolved when Mathis was removed. See supra ¶ 4.7 But, in any event, those statutes define meeting as a gathering of a quorum, A.R.S. § 38-431(4), and direct that all meetings of public bodies shall be public meetings and that legal action of public bodies shall occur in public meetings. Id. § 38-431.01(A). Thus, even if the open meeting statutes apply to the IRC, a question we do not decide, it would not change the result because the statutes also require a quorum. 7 On December 9, 2011, the superior court granted the IRC s motion for summary judgment, finding the Open Meeting Law, A.R.S. § 38-431 et seq., does not apply to the IRC, which is governed instead by the open meeting laws of Article IV Pt. 2 § 1(12). State v. Mathis, Under Advisement Ruling, CV 2011016442. The court further found that neither the Attorney General nor the Maricopa County Attorney may proceed in their investigation, except as provided by Rules of Procedure for Special Actions. Id. The state s appeal from the superior court s order is pending in the court of appeals. 28 ¶45 Because the Governor neither alleged nor purported to find that Mathis caused or participated in a nonpublic meeting of a quorum of the IRC, we conclude that the first ground for removal cannot and does not constitute substantial neglect of duty. And because the Governor did not allege or purport to find that Mathis s conduct was in willful derogation of clearly established and ascertainable law, we conclude that any alleged open-meeting failures could not rise to gross misconduct. ¶46 The Governor s second stated ground, that Mathis failed to adjust the grid map as necessary to accommodate all of the goals set forth in Arizona Constitution Art. 4, Pt. 2, § 1(14), also is not legal cause for removal. Section 1(14) sets forth six goals to be accommodated by making adjustments to the grid map. The first goal, mandating that districts must comply with the United States Constitution and Voting Rights Act, is unqualified. mandating equal § 1(14)(A). population, The geographic next five goals compactness and contiguity, respect for communities of interest, use of certain recognized boundaries, and competitive districts where competitiveness is not significantly detrimental to other goals are required to the extent practicable. ¶47 § 1(14)(B)-(F). To the extent any Commissioner might have disregarded or failed to meet any of those requirements, the Governor s objection is premature. When the Governor removed Mathis, the 29 congressional and legislative district maps were still in draft stages, subject to public comment. further discussion, revision, and ongoing A legal inquiry to test the IRC s compliance with Section 1(14) requirements is timely and appropriate after Commissioners have adopted the final plan. Coal., 220 Ariz. at 596-97 ¶¶ 25-28, See Ariz. Minority 208 P.3d at 685-86 (recognizing that the IRC must balance competing concerns and exercise discretion in choosing among potential adjustments to the grid map ). Moreover, if procedural flaws are alleged after adoption of the final maps, the recourse is judicial. Id. As a matter of law, the Governor cannot base a removal decision on a commissioner s alleged failure to comply with constitutional map-adjusting criteria before completion and review of the final maps. Accordingly, the Governor s second stated ground for removing Mathis did not constitute substantial neglect of duty or gross misconduct. V. ¶48 For jurisdiction the and reasons found CONCLUSION stated, this we matter accepted to be special action justiciable. We conclude, as a matter of law, that neither of the Governor s two stated grounds for removing Mathis constitutes substantial neglect of duty or gross misconduct in office, as required under Article 4, Part 2, Section 1(10) of the Arizona Constitution. Accordingly, we granted the relief 30 requested by Mathis and ordered that she be reinstated as chair of the IRC. _____________________________________ A. John Pelander, Justice CONCURRING: _____________________________________ Andrew D. Hurwitz, Vice Chief Justice _____________________________________ W. Scott Bales, Justice _____________________________________ Robert M. Brutinel, Justice _____________________________________ * * Chief Justice Rebecca White Berch has recused herself from this case. Pursuant to Article 6, Section 3 of the Arizona Constitution, the Honorable Michael D. Ryan, Retired Justice of the Arizona Supreme Court, was designated to sit in this matter. Before his untimely death on January 30, 2012, Justice Ryan fully participated in this case, including oral argument, and concurred in the orders issued by this Court on November 17 and November 23, 2011. 31
Some case metadata and case summaries were written with the help of AI, which can produce inaccuracies. You should read the full case before relying on it for legal research purposes.
This site is protected by reCAPTCHA and the Google Privacy Policy and Terms of Service apply.
