Ruthelle Frank v. Scott Walker, No. 14-2058 (7th Cir. 2014)
Annotate this CaseThis opinion or order relates to an opinion or order originally issued on September 12, 2014.
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In the United States Court of Appeals For the Seventh Circuit ____________________ Nos. 14- 2058 & 14- 2059 RUTHELLE FRANK, et al., Plaintiffs- Appellees, v. SCOTT WALKER, Governor of Wisconsin, et al., Defendants- Appellants. ____________________ LEAGUE OF UNITED LATIN AMERICAN CITIZENS (LULAC) OF WISCONSIN, et al., Plaintiffs- Appellees, v. DAVID G. DEININGER, Member, Government Accountability Board, et al., Defendants- Appellants. ____________________ On Suggestion of Rehearing En Banc. ____________________ DECIDED OCTOBER 10, 2014 ____________________ 2 Nos. 14- 2058 & 14- 2059 A judge in active service requested a vote on the question whether to rehear this appeal en banc. Chief Judge Wood and Judges Posner, Rovner, Williams, and Hamilton voted in favor of rehearing en banc. The proposal to rehear this case en banc therefore fails by an equally divided court. This order does not affect the ability of any party to seek rehearing by the panel or the full court, see Fed. R. App. P. 35, nor does it affect the time available for filing a petition, see Fed. R. App. P. 40. Nos.%14(2058%&%14(2059% 3% % POSNER,% Circuit' Judge,% joined% by% Chief' Judge% WOOD% and% Circuit'Judges%ROVNER,%WILLIAMS,%and%HAMILTON,%dissenting% from%denial%of%rehearing%en%banc.% The%Practitioner s'Handbook'for'Appeals'to'the'United'States' Court' of' Appeals' for' the' Seventh' Circuit% 161% (2014),% states% that% en% banc% rehearing% is% authorized% without% a% party s% invita( tion.%A%member%of%the%court%may%ask%for%a%vote%on%whether% to% rehear% a% case% en% banc. % I% asked% for% a% vote% on% whether% to% rehear% these% appeals% en% banc.% The% judges% have% voted,% the% vote% was% a% 5% to% 5% tie,% and% as% a% result% rehearing% en% banc% has% been%denied.%We the%five%who%voted%to%grant%rehearing%en% banc believe%that%the%decision%to%allow%the%panel s%opinion% (reported% at% 2014% WL% 4966557% (Oct.% 6,% 2014))% reversing% the% district% court% to% stand,% without% consideration% of% the% case% by% the%full%court,%is%a%serious%mistake.% The%movement%in%a%number%of%states%including%Wiscon( sin%to%require%voters%to%prove%eligibility%by%presenting%a%pho( to%of%themselves%when%they%try%to%vote%has%placed%an%undue% burden%on%the%right%to%vote,%a%right%that%the%Supreme%Court% has%found%latent%in%the%Constitution.%E.g.,%Illinois'State'Board' of'Elections'v.'Socialist'Workers'Party,%440%U.S.%173,%184%(1979).% The%photo%identification%voting%laws%also%raise%issues%under% section%2%of%the%Voting%Rights%Act,%42%U.S.C.%§%1973(a),%which% forbids% electoral% laws,% practices,% or% structures% that,% interacting% with% social% and% historical% conditions,! deny% or% abridge,%on%account%of%race%or%color,%a%citizen s%right%to%vote.% See,%e.g.,%Thornburg'v.'Gingles,%478%U.S.%30,%47%(1986).% In% upholding% the% Wisconsin% photo% ID% law% in% the% face% of% compelling% evidence% that% it% abridges% the% right% to% vote% with( out% justification,% the% panel% opinion% places% particular% weight% 4% % Nos.%14(2058%&%14(2059% % on%the%Supreme%Court s%decision%in%Crawford'v.'Marion'CounG ty'Election'Board,%553%U.S.%181%(2008).%Affirming%a%decision%by% this% court,% see% 472% F.3d% 949% (7th% Cir.% 2007),% the% Supreme% Court% upheld% an% Indiana% law% requiring% photo% identification% of%voters.%The%panel%calls%Wisconsin s%law% similar. %It%would% be%more%accurate%to%say%that%the%laws%belong%to%the%same%gen( re,% namely% strict% photo% ID% voter% eligibility% laws.% The% two% states % laws% are% importantly% dissimilar,% not% only% in% their% terms% but% in% the% evidentiary% records% of% the% two% cases.% Alt( hough%in%Crawford%as%in%this%case%the%record%contained%no%ev( idence% of% in(person% voter% impersonation% at% polling% places% actually% occurring% in% Indiana% at% any% time, % there% had% been% scattered% instances% of% such% fraud% in% recent% American% elec( tions.%553%U.S.%at%195 96.%And%there%was%no%evidence%that%the% Indiana%law%was%likely%to%disenfranchise%more%than%a%handful% of% voters.% Given% the% record,% the% Supreme% Court% was% unwill( ing% to% perform% a% unique% balancing% analysis% that% looks% spe( cifically% at% a% small% number% of% voters% who% may% experience% a% special% burden% under% the% statute% and% weights% their% burdens% against% the% State s% broad% interests% in% protecting% election% in( tegrity, %especially%since% on%the%basis%of%the%evidence%in%the% record% it% is% not% possible% to% quantify% either% the% magnitude% of% the% burden% on% this% narrow% class% of% voters% or% the% portion% of% the%burden%imposed%on%them%that%is%fully%justified. %Id.%at%200.% Judge%Evans,%dissenting%from%our%decision%in%Crawford,%called% the% Indiana% law% a% not(too(thinly(veiled% attempt% to% discour( age% election(day% turnout% by% certain% folks% believed% to% skew% Democratic. % 472% F.3d% at% 954.% But% he% cited% no% evidence% to% support%his%conjecture a%conjecture%that%now%seems%presci( ent,%however.% Crawford% was% decided% by% the% Supreme% Court% almost% six% and%a%half%years%ago,%on%the%basis%of%the%evidence%presented% Nos.%14(2058%&%14(2059% 5% % in% that% case% and% the% particulars% of% the% Indiana% statute.% The% decision%does%not%resolve%the%present%case,%which%involves%a% different%statute%and%has%a%different%record%and%arises%against% a% background% of% a% changed% political% culture% in% the% United% States.%It%is%a%disservice%to%a%court%to%apply%its%precedents%to% dissimilar% circumstances.% Crawford% dealt% with% a% particular% statute%and%a%particular%evidentiary%record.%The%statute%at%is( sue%in%this%case%has%different%terms%and%the%case%challenging% it% a% different% record,% the% terms% and% the% record% having% been% unknown%to%either%our%court%(affirmed%by%the%Supreme%Court% in%Crawford)%or%the%Supreme%Court.% The% panel% opinion% recognizes% that% there% are% differences% between% the% two% statutes% and% the% two% records,% but% does% not% recognize% the% significance% of% the% differences.% The% Indiana% statute% challenged% in% Crawford% was% less% restrictive% than% the% Wisconsin% statute% challenged% in% this% case.% Indiana% accepts% any% Indiana% or% U.S.% government(issued% ID% that% includes% name,% photo,% and% expiration% date.% Wisconsin s% statute% per( mits% voters% to% use% only% a% Wisconsin% drivers % license% or% Wis( consin% state% card,% a% military% or% tribal% ID% card,% a% passport,% a% naturalization%certificate%if%issued%within%two%years,%a%student% ID% (so% long% as% it% contains% the% student s% signature,% the% card s% expiration%date,%and%proof%that%the%student%really%is%enrolled% in% a% school),% or% an% unexpired% receipt% from% a% drivers % li( cense/ID% application.% Wisconsin% does% not% recognize% military% veteran%IDs,%student%ID%cards%without%a%signature,%and%other% government(issued%IDs%that%satisfy%Indiana s%criteria.%% Indiana s%statute%does%not%require%absentee%voters%to%pre( sent%photo%identification,%and%permits%voters%to%vote%absentee% if%they%expect%to%be%absent%from%their%district%on%election%day,% are% older% than% 65,% can t% vote% in% person% because% of% illness% or% 6% % Nos.%14(2058%&%14(2059% % injury%or%are%caring%for%someone%with%an%illness%or%an%injury,% are% scheduled% to% work% during% the% 12(hour% period% in% which% the%polls%are%open,%are%members%of%the%military,%are%celebrat( ing% a% religious% holiday,% or% are% in% the% state s% address% confi( dentiality %program%(victims%of%domestic%violence,%for%exam( ple).%Thus,%many%people%who%might%find%it%difficult%to%obtain% photo% identification% can% vote% absentee% and% are% therefore% ex( cused%from%having%to%present%a%photo%ID.%Wisconsin,%in%con( trast,%requires%absentee%voters%to%submit%a%photo%ID%the%first% time%they%request%an%absentee%ballot,%and%in%subsequent%elec( tions%as%well%if%they%change%their%address%or%are%required%to% re(register% to% vote,% or% if% they% change% their% name,% as% many% women% still% do% upon% marrying.% A% recent% national% survey% found%that% millions% of% American% citizens% do% not% have% readily% available% documentary% proof% of% citizenship.% Many% more primarily% women(((do% not% have% proof% of% citi( zenship% with% their% current% name.% The% survey% also% showed%that%millions%of%American%citizens%do%not%have% government(issued% photo% identification,% such% as% a% driver s%license%or%passport.%Finally,%the%survey%demon( strated% that% certain% groups primarily% poor,% elderly,% and% minority% citizens are% less% likely% to% possess% these% forms%of%documentation%than%the%general%population.% Brennan%Center%for%Justice,% Citizens%Without%Proof:%A%Sur( vey%of%Americans %Possession%of%Documentary%Proof%of%Citi( zenship%and%Photo%Identification, %www.brennancenter.org/ sites/default/files/legacy/d/download_file_39242.pdf% (visited% October%8,%2014,%as%were%the%other%websites%cited%in%this%opin( ion).% Wisconsin s%statutory%exceptions%to%the%requirement%that% one%must%have%a%photo%ID%to%be%permitted%to%vote,%which%are% Nos.%14(2058%&%14(2059% 7% % more% limited% than% those% recognized% by% the% Indiana% law,% in( clude%members%of%the%military,%overseas%voters%who%have%no% intention% of% ever% returning% to% live% in% the% United% States,% par( ticipants% in% the% state s% confidentiality% program,% and% voters% who% being% infirm% or% disabled% are% indefinitely% confined% to% their%homes%or%to%care%facilities.%% The%Indiana%statute%permits%voters%without%a%photo%ID%to% cast% a% provisional% ballot% and% within% ten% days% after% the% elec( tion%present%a%photo%ID%to%a%circuit%court%clerk s%office;%indi( gent% voters% unable% to% procure% a% photo% ID% by% that% deadline% can,% by% executing% an% affidavit% confirming% their% identity% and% indigence,%have%their%ballots%counted.%Wisconsin%has%no%pro( vision%for%indigent%voters.%It%does%permit%voters%to%cast%a%pro( visional%ballot%and%later%supply%a%photo%ID,%but%requires%that% they%do%so%by%the%Friday%after%the%election,%which%gives%them% just% three% days% to% comply% in% national% elections,% since% such% elections%are%always%held%on%Tuesdays.% These% are% not% trivial% differences% between% the% two% stat( utes.% The% panel% opinion% cites% the% recommendation% of% the% Commission%on%Federal%Election%Reform,%Building'Confidence' in'U.S.'Elections'18%(2005),%that%photo%IDs%be%required%for%vot( ing,%but%omits%the%Commission s%statement%that%they% should% be% easily% available% and% issued% free% of% charge, % id.' at% 19,% and% its% recommendation% that% states% should% play% an% affirmative% role%in%reaching%out%to%non(drivers%by%providing%more%offic( es,% including% mobile% ones,% to% ¦% provide% photo% IDs% free% of% charge, %and%allow% voters%who%do%not%have%a%photo%ID%dur( ing%a%transitional%period%[to]%receive%a%provisional%ballot%that% would%be%counted%if%their%signature%is%verified. %Id.%at%iv.% 8% % Nos.%14(2058%&%14(2059% % I%turn%now%to%the%evidence%in%the%respective%cases.%In%our% Crawford% opinion% we% pointed% out! that% none% of% the% plaintiffs% claimed%that%they%wouldn t%vote%in%the%upcoming%election%be( cause%of%the%photo%ID%law.% No%doubt%there%are%at%least%a%few% such% people% in% Indiana,% but% the% inability% of% the% sponsors% of% this% litigation% to% find% any% such% person% to% join% as% a% plaintiff% suggests% that% the% motivation% for% the% suit% is% simply% that% the% law%may%require%the%Democratic%party% ¦%to%work%harder%to% get%every%last%one%of%their%supporters%to%the%polls. %472%F.2d% at% 952;% see% also% the% Supreme% Court s% plurality% opinion,% 533% U.S.%at%187.%In%the%present%case,%in%contrast,%eight%persons%tes( tified%that%they%want%to%vote%in%the%November%4%election!but! have% been% unable% to% obtain% the% required% identification.% In% Crawford%it%was%estimated%that%about%43,000%Indiana%residents% lacked%the%requisite%identification,%which%was%1%percent%of%the% state s%voting%population,%while%in%this%case%the%district%court% found% that% 300,000% registered% voters 9% percent% of% all% regis( tered% voters% in% Wisconsin lack% qualifying% identification.% Many%of%them%also%lack%the%documents%they d%need%in%order% to% obtain% a% photo% ID,% or% face% other% impediments% to% getting% one% but% are% not% within% the% narrow% band% of% voters% excused% from% having% to% present% a% photo% ID% when% voting.% According% to% an% expert% witness,% at% least% 20,162% eligible% voters% in% Mil( waukee% County% alone% possess% neither% a% photo% ID% nor% the% documents% they% would% need% to% obtain% one.% And% in% the% dis( trict%court s%words%a% substantial%number%of%the%300,000%plus% eligible%voters%who%lack%a%photo%ID%are%low(income%individ( uals% ¦%who%have%encountered%obstacles%that%have%prevented% or%deterred%them%from%obtaining%a%photo%ID. % The%panel%was%literally%correct%that%the%district%court% did% not%find%that%substantial%numbers%of%persons%eligible%to%vote% have%tried%to%get%a%photo%ID%but%been%unable%to%do%so, %but%its% Nos.%14(2058%&%14(2059% 9% % literalism% missed% the% point.% To% encounter% obstacles% that% have%prevented%or%deterred %persons%from%obtaining%a%photo% ID%means%either%having%tried%but%failed%to%obtain%a%photo%ID% or% having% realized% that% (for% these% persons)% the% obstacles% to% obtaining% it% were% insurmountable,% so% there% would% be% no% point%in%trying%to%overcome%them.% The% district% court s% opinion% presented% a% litany% of% the% practical% obstacles% that% many% Wisconsinites% (particularly% members%of%racial%and%linguistic%minorities)%face%in%obtaining% a% photo% ID% if% they% need% one% in% order% to% be% able% to% vote% be( cause%they%don t%have%a%driver s%license:% The% first% obstacle% to% obtaining% an% ID% will% be% to% identify% the% requirements% for% obtaining% a% free% state% ID% card.% I% am% able% to% summarize% the% requirements% for% obtaining% an% ID% because% I% have% access% to% the% Wisconsin% Statutes% and% Administrative% Code% and% heard%testimony%on%the%topic%at%trial.%A%typical%voter% who% needs% an% ID,% however,% must% educate% him% or% herself% on% these% requirements% in% some% other% way.% Although%this%may%be%easy%for%some,%for%others,%es( pecially%those%with%lower%levels%of%education,%it%will% be%harder.%Moreover,%a%person%who%needs%to%obtain% one%or%more%of%the%required%documents%to%obtain%an% ID,% such% as% a% birth% certificate,% must% determine% not% only% the% DMV s% documentation% requirements,% but% also% the% requirements% of% the% agency% that% issues% the% missing%document.%This%adds%a%layer%of%complexity% to%the%process.% ¦% Assuming%the%person%is%able%to%determine%what% he% or% she% needs% to% do% to% obtain% an% ID,% the% person% must% next% consider% the% time% and% effort% involved% in% actually% obtaining% the% ID.% This% will% involve% at% least% one% trip% to% the% DMV% [Department% of% Motor% Vehi( 10% % Nos.%14(2058%&%14(2059% % cles].%There%are%92%DMV%service%centers%in%the%state.% All%but%two%of%these%close%before%5:00%p.m.%and%only% one% is% open% on% weekends.% So,% it% is% likely% that% the% person% will% have% to% take% time% off% from% work.% The% person% will% either% need% to% use% vacation% time% if% it s% available%or%forego%the%hourly%wages%that%he%or%she% could%have%earned%in%the%time%it%takes%to%obtain%the% ID.% ¦% The% person% will% also% have% to% arrange% for% transportation.% Since% this% person% does% not% have% a% driverns%license%and%is%low%income,%most%likely%he%or% she% must% use% public% transportation% or% arrange% for% another%form%of%transportation.% ¦%Further,%for%some% individuals%public%transportation%will%be%of%no%help% because%not%all%of%the%DMV s%service%centers%are%ac( cessible%by%public%transit.% If% the% person% does% not% have% all% of% the% docu( ments% the% DMV% requires% to% obtain% an% ID,% then% the% person% will% most% likely% have% to% visit% at% least% one% government%agency%in%addition%to%the%DMV.%If%that% is%the%case,%then%the%person%will%likely%have%to%take% even% more% time% off% of% work% and% pay% additional% transportation% costs.% ¦% Perhaps% it% is% possible% for% a% person%to%obtain%a%missing%underlying%document%by% mail,%but%even%so%that%will%require%time%and%effort.% A%person%who%needs%to%obtain%a%missing%under( lying%document%is%also%likely%to%have%to%pay%a%fee%for% the%document.%For%some%low(income%individuals,%it% will%be%difficult%to%pay%even%$20.00%for%a%birth%certif( icate.% ¦% An% additional% problem% is% whether% a% person% who%lacks%an%ID%can%obtain%one%in%time%to%use%it%to% vote.%For%many%who%need%an%ID,%it%will%take%longer% than% a% day% or% two% to% gather% the% necessary% docu( ments%and%make%a%trip%to%the%DMV.%Indeed,%if%a%per( Nos.%14(2058%&%14(2059% 11% % son% needs% to% obtain% a% birth% certificate,% especially% from%another%state,%it%might%take%weeks%or%longer%to% obtain% it.% If% an% election% is% imminent,% a% person% may% be%unable%to%procure%an%ID%in%time%to%vote%or%to%val( idate% a% provisional% ballot% by% the% Friday% after% the% election.% Another% problem% that% arises% is% a% person s% hav( ing% errors% or% discrepancies% in% the% documents% need( ed%to%obtain%an%ID.%For%example,%the%DMV%requires% the% name% on% a% personns% social% security% card% and% birth% certificate% to% match.% If% there% is% an% error% in% a% person s%social%security%record,%the%person%must%vis( it%the%Social%Security%Office%and%correct%the%record.%If% there% is% an% error% in% a% person s% birth% certificate,% the% person% must% get% it% amended.% Making% additional% trips% to% government% agencies% to% resolve% discrepan( cies%will%require%more%time%off%work%and%additional% transportation%costs.% Frank' v.' Walker,% 2014% WL% 1775432,% at% *14 16% (E.D.% Wis.% Apr.% 29,%2014)%(citations%and%footnotes%omitted).% In%upholding%the%Indiana%statute,%both%our%Crawford%opin( ion%and%the%Supreme%Court s%plurality%opinion%noted%that%In( diana%voter%rolls%were%substantially%inflated they%contained% 1.3% million% more% names% than% there% were% eligible% voters.% The% Supreme% Court% also% cited% a% report% by% the% Commission% on% Federal%Election%Reform%which%stated%that%although% there%is% no% evidence% of% extensive% fraud% in% U.S.% elections% or% of% multi( ple%voting% ¦%both%occur,%and%it%could%affect%the%outcome%of%a% close% election.% ¦% Photo% [identification% cards]% currently% are% needed%to%board%a%plane,%enter%federal%buildings,%and%cash%a% check.% Voting% is% equally% important. % 553% U.S.% at% 194.% (We ll% see,%by%the%way,%that%the%Commission s%statement%that% photo% 12% % Nos.%14(2058%&%14(2059% % [identification% cards]% currently% are% needed% to% board% a% plane,% enter%federal%buildings,%and%cash%a%check %is%for%the%most%part% no%longer%true.)! There% is% no% evidence% that% Wisconsin s% voter% rolls% are% in( flated,% as% were% Indiana s and% there% is% compelling% evidence% that% voter(impersonation% fraud% is% essentially% nonexistent% in% Wisconsin.% The%[state]%could%not%point%to%a%single%instance%of% known% voter% impersonation% occurring% in% Wisconsin% at% any% time% in% the% recent% past. % Frank' v.' Walker,% supra,% at% *6.% There% are% more% than% 660,000% eligible% voters% in% Milwaukee% County.% According% to% the% state s% own% evidence,% in% only% one% or% two% instances% per% major% election% in% which% a% voter% in% Milwaukee% County%is%turned%away%from%the%polls%because%a%poll%worker% tells% him% he s% voted% already% is% there% even% a% suspicion unconfirmed of%fraud.%An%expert%witness%who%studied%Wis( consin%elections%that%took%place%in%2004,%2008,%2010,%and%2012% found%zero%cases%of%in(person%voter(impersonation%fraud.% It%is%important%to%bear%in%mind%that%requiring%a%photo%ID% is% ineffectual% against% other% forms% of% voter% fraud,% of% which% there% are% many.% Here% is% a% nonexhaustive% list% (from% Voter% Fraud% Facts,% Types% of% Voter% Fraud, % http://voterfraudfacts. com/typesofvoterfraud.php%(emphases%omitted)):% Electorate% Manipulation! Including% Manipulation% of% Demography%and%Disenfranchisement;! Intimidation! Including% Violence% or% the% Threat% of% Vio( lence,% Attacks% on% Polling% Places,% Legal% Threats% and% Economic%Threats;! Vote%Buying;!! Misinformation;% Misleading%or%Confusing%Ballot%Papers;% Nos.%14(2058%&%14(2059% 13% % Ballot%Stuffing;% Misrecording%of%Votes;% Misuse%of%Proxy%Votes;% Destruction%or%Invalidation%of%Ballots;% Tampering%with%Electronic%Voting%Machine.% Voter(impersonation% fraud% may% be% a% subset% of% Misin( formation. % If% so,% it% is% by% all% accounts% a% tiny% subset,% a% tiny% problem,%and%a%mere%fig%leaf%for%efforts%to%disenfranchise%vot( ers%likely%to%vote%for%the%political%party%that%does%not%control% the%state%government.%Those%of%us%who%live%in%Illinois%are%fa( miliar%with%a%variety%of%voting%frauds,%and%no%one%would%de( ny%the%propriety%of%the%law s%trying%to%stamp%out%such%frauds.% The% one% form% of% voter% fraud% known% to% be% too% rare% to% justify% limiting%voters %ability%to%vote%by%requiring%them%to%present%a% photo% ID% at% the% polling% place% is% in(person% voter% impersona( tion.% The%panel%opinion%states%that%requiring%a%photo%ID%might% at%least%prevent%persons%who% are%too%young%or%are%not%citi( zens % from% voting.% Not% so.% State(issued% IDs% are% available% to% noncitizens,% Wis.% Adm.% Code% §% Trans.% 102.15(2)(bm) all% that s% required% is% proof% of% legal% presence% in% the% United% States ;% a% noncitizen% who% is% a% permanent% resident% of% the% United%States%needs%only%a%copy%of%his%foreign%passport%and% appropriate%immigration%documents%to%obtain%a%photo%ID.%A% student% ID% must% (to% entitle% the% bearer% to% vote)% be% accompa( nied%by%proof%of%enrollment%and%contain%the%student s%signa( ture%and%date%of%issuance,%but%need%not%include%date%of%birth.% Wis.%Stat.%§%5.02(6m)(f).% Another%erroneous%statement%in%the%panel%opinion%is%that% requiring%a%photo%ID%could%help% promote[]%accurate%record( 14% % Nos.%14(2058%&%14(2059% % keeping% (so% that% people% who% have% moved% after% the% date% of% registration%do%not%vote%in%the%wrong%precinct). %Wisconsin s% photo% ID% law% has% nothing% to% do% with% voting% in% the% correct% precinct.%According%to%testimony%by%the%director%and%general% counsel%of%the%Wisconsin%Government%Accountability%Board,% the%address%on%a%voter s%ID%does%not%have%to%match%his%or%her% voting%address.% We% can% learn% something% both% about% the% significance% of% voter(impersonation% fraud% and% the% likely% motivation% for% the% Wisconsin%statute%from%a%report%by%the%National%Conference% of% State% Legislatures,% Voter' Identification' Requirements'|'Voter' ID'Laws,%www.ncsl.org/research/elections(and(campaigns/vo ter(id.aspx.%The%report%was%issued%on%September%12th%of%this% year%and%thus%covers%all%requirements%applicable%to%the%forth( coming%November%election.% We% learn% from% the% report% that% 32% states% require% voters% to% present%some%form%of%identification%at%the%polling%station%but% that% of% these% only% 17% require% photo% identification.% The% other% 15%usually%will%accept%a%utility%bill,%a%non(photo%ID,%or%some% other%document%that%includes%the%voter s%name%and%address.% The%32%states%also%differ%in%the%strictness%with%which%the%iden( tification% requirement% is% enforced.% The% report% classifies% as% strict %those%12%states,%including%Wisconsin,%that%require%the% voter%to%show%identification%before%a%ballot%will%be%counted%at% the%polling%place,%or%to%cast%a%provisional%ballot%and%take%ad( ditional%steps,%such%as%presenting%acceptable%ID%at%a%board%of% elections%office%within%a%specified%period%after%election%day.% According%to%the%report,%only%9%states,%including%Wiscon( sin,%impose%strict%photo%identification%requirements.%The%oth( er%states%permit%at%least%some%voters%to%cast%a%ballot%without% necessarily% requiring% any% further% action% on% the% part% of% the% 15% % Nos.%14(2058%&%14(2059% voter%after%election%day%for%a%vote%to%be%counted.%Instead,%the( se%states%may,%for%example,%require%the%voter%to%sign%an%affi( davit,%or%a%poll%worker%to%vouch%for%the%voter.% The%data%are%summarized%in%the%following%table%and%map.% TABLE!1% Voter!Identification!Laws!in!Force!in!2014! % Strict%% Non( Strict%% % % Photo%ID% Arkansas% Georgia% Indiana% Kansas% Mississippi% Alabama% Florida% Hawaii% Idaho% Non(Photo%ID% Tennessee% Texas% Virginia% Wisconsin! Arizona% % North%Dakota% Ohio% Louisiana% Michigan% Rhode%Island% South%Dakota% Alaska% Colorado% Connecticut% Delaware% Kentucky% Missouri% Montana% New%Hampshire% Oklahoma% South%Carolina% Utah% Washington% 16% % Nos.%14(2058%&%14(2059% % % % % % % All%the%strict%photo%ID%states%are%politically%conservative,% at% least% at% the% state% level,% as% are% five% of% the% eight% non(strict% photo% ID% states% (all% but% Hawaii,% Michigan,% and% Rhode% Is( land).% Table% 2% provides% specifics% on% the% political% makeup% of% the%governments%of%the%nine%strict%photo%ID%states%at%the%time% their%photo%ID%laws%were%enacted.% % % Nos.%14(2058%&%14(2059% ! 17% % TABLE!2! STATES!WITH!STRICT!PHOTO!ID!LAWS POLITICAL!MAKEUP! WHEN!THE!LAWS!WERE!ADOPTED% Arkansas:% Democratic% governor,% but% both% the% House% and%Senate%were%under%Republican%control.% Georgia:% Republican% governor,% Republican% control% of% both%the%House%and%Senate.% Indiana:! Republican% governor,% Republican% control% of% both%the%House%and%Senate.% Kansas:! Republican% governor,% Republican% control% of% both%the%House%and%Senate.% Mississippi:% Adopted% by% the% voters% through% a% ballot% initiative.% Republicans,% who% already% controlled% the% governorship% and% the% state% Senate,% won% a% majority% of% seats%in%the%House%in%that%same%election.%% Tennessee:! Republican% governor,% Republican% control% of%both%the%House%and%Senate.% Texas:% Republican% governor,% Republican% control% of% both%the%House%and%Senate.% Virginia:% Republican% governor,% Republican% control% of% both%the%House%and%Senate.% Wisconsin:% Republican% governor,% Republican% control% of%both%the%House%and%Senate.! The%basic%pattern%holds%for%the%three%strict%non(photo%ID% states.!Arizona%adopted%such%a%law%by%initiative%in%2004,%at%a% time%when%the%state%had%a%Democratic%governor%but%the%Re( publicans% controlled% both% houses% of% the% state% legislature% (as% they% have% between% 1993% and% 2013,% except% for% a% brief% period% between% 2001% and% 2002% when% the% senate% was% evenly% divid( ed).%Both%North%Dakota%and%Ohio%had%Republican%governors,% and% Republicans% controlled% both% houses% of% the% legislatures,% when%those%states %strict%ID%statutes%were%enacted.%% 18% % Nos.%14(2058%&%14(2059% % The% 12% non(strict% non(photo% ID% states% are% also% predomi( nantly% conservative;% only% 4% are% liberal% (Connecticut,% Dela( ware,% New% Hampshire,% and% Washington).% Of% the% 18% states% that%don t%require%identification,%about%half%are%liberal.% The%data%imply%that%a%number%of%conservative%states%try% to% make% it% difficult% for% people% who% are% outside% the% main( stream,%whether%because%of%poverty%or%race%or%problems%with% the%English%language,%or%who%are%unlikely%to%have%a%driver s% license%or%feel%comfortable%dealing%with%officialdom,%to%vote,% and%that%liberal%states%try%to%make%it%easy%for%such%people%to% vote%because%if%they%do%vote%they%are%likely%to%vote%for%Demo( cratic%candidates.%Were%matters%as%simple%as%this%there%would% no% compelling% reason% for% judicial% intervention;% it% would% be% politics%as%usual.%But%actually%there s%an%asymmetry.%There%is% evidence% both% that% voter(impersonation% fraud% is% extremely% rare%and%that%photo%ID%requirements%for%voting,%especially%of% the%strict%variety%found%in%Wisconsin,%are%likely%to%discourage% voting.%This%implies%that%the%net%effect%of%such%requirements% is% to% impede% voting% by% people% easily% discouraged% from% vot( ing,%most%of%whom%probably%lean%Democratic.% % Some% of% the% evidence % of% voter(impersonation% fraud% is% downright% goofy,% if% not% paranoid,% such% as% the% nonexistent% buses% that% according% to% the% True% the% Vote % movement% transport%foreigners%and%reservation%Indians%to%polling%plac( es.% See% Stephanie% Saul,% Looking,% Very% Closely,% for% Voter% Fraud:%Conservative%Groups%Focus%on%Registration%in%Swing% States, % Sept.% 16,% 2012,% www.nytimes.com/2012/09/17/us/ politics/groups(like(true(the(vote(are(looking(very(closely( for(voter(fraud.html?pagewanted=all&_r=0.%Even%Fox%News,% whose%passion%for%conservative%causes%has%never%been%ques( tioned,%acknowledges%that% Voter%ID%Laws%Target%Rarely%Oc( Nos.%14(2058%&%14(2059% 19% % curring% Voter% Fraud, % Sept.% 24,% 2011,% www.foxnews.com/ politics/2011/09/24/voter(id(laws(target(rarely(occurring(vot er(fraud,%noting%that% even%supporters%of%the%new%[photo%ID]% laws% are% hard% pressed% to% come% up% with% large% numbers% of% cases%in%which%someone%tried%to%vote%under%a%false%identify. % Elsewhere% we% learn% that% even% though% voter% identifica( tion% laws% were% being% touted% as% necessary% to% prevent% in( person% voter% fraud,% repeated% investigations% of% these% allega( tions% show% that% there% is% virtually% no% in(person% voter% fraud% nationally.% A% study% of% 2,068% alleged% cases% conducted% by% the% News21% journalism% consortium% found% that% since% 2000% there% have%been%only%ten%cases%of%in(person%voter%fraud%that%could% have% been% prevented% by% photo% ID% laws.% Out% of% 146% million% registered%voters,%this%is%a%ratio%of%one%case%of%voter%fraud%for% every% 14.6% million% eligible% voters more% than% a% dozen% times% less% likely% than% being% struck% by% lightning. % Richard% Sobel,% The%High%Cost%of% Free %Photo%Voter%Identification%Cards %7% (Charles%Hamilton%Houston%Institute%for%Race%&%Justice,%Har( vard%Law%School,%June%2014),%www.charleshamiltonhouston. org/wp(content/uploads/2014/08/FullReportVoterIDJune201 4.pdf%(footnotes%omitted).% And%think:%voting%is%a%low(reward%activity%for%any%given% individual,%for%he%or%she%knows%that%elections%are%not%decided% by%one%vote.%When%the%rewards%for%an%activity%are%low,%even%a% modest%cost%of%engaging%in%it%is%a%potent%discourager.%Think% too%of%the%risks%to%politicians%of%orchestrating%a%massive%cam( paign% of% voter(impersonation% fraud,% since% only% a% massive% campaign%will%increase%a%candidate s%vote%total%by%enough%to% swing%all%but%the%very%closest%elections,%and%massive%election% fraud%could%result%in%heavy%punishment%of%the%orchestrators.% Besides% the% risks% to% the% politicians,% think% of% how% much% it% 20% % Nos.%14(2058%&%14(2059% % would% cost% to% orchestrate% an% effective% voter(impersonation% fraud,%given%the%number%of%voters%who%must%be%bribed,%and% in%amounts%generous%enough%to%overcome%their%fear%of%being% detected,%and%if%detected%prosecuted.% M.V.% Hood% III% and% William% Gillespie,% in% their% article% They%Just%Do%Not%Vote%Like%They%Used%To:%A%Methodology% to% Empirically% Assess% Election% Fraud, % 93% Social' Sci.' Q.% 76% (2012),% find% that% after% examining% approximately% 2.1% million% votes% cast% during% the% 2006% general% election% in% Georgia,% we% find% no% evidence% that% election% fraud% was% committed% under% the% auspices% of% deceased% registrants. % Co(author% Hood% was% the%State%of%Wisconsin s%expert%witness%in%the%present%case and%testified%that%Georgia s%voter%ID%law%indeed% had%the%ef( fect%of%suppressing%turnout. % Keith%G.%Bentele%and%Erin%E.%O Brien,%in%their%article% Jim% Crow%2.0?%Why%States%Consider%and%Adopt%Restrictive%Voter% Access% Policies, % 11% Perspectives' on' Politics% 1088% (2013),% pre( sent% evidence% that% restrictive% voter% access% policies% such% as% photo%ID%requirements%are%indeed,%as%we%noted%earlier,%high( ly% correlated% with% a% state s% having% a% Republican% governor% and% Republican% control% of% the% legislature% and% appear% to% be% aimed% at% limiting% voting% by% minorities,% particularly% blacks.% And%Lorraine%C.%Minnite,%in%her%book%The'Myth'of'Voter'Fraud% (2010),% bases% her% conclusion% that% voter(impersonation% fraud% is%rare%on%the%small%number%of%federal%criminal%prosecutions% for% election% fraud,% despite% evidence% that% such% crimes% have% been%an%enforcement%priority%for%the%Justice%Department,%and% on% an% investigation% of% complaints% of% election% fraud% in% four% states%(California,%Minnesota,%New%Hampshire,%and%Oregon),% finding%that%few%of%the%complaints%involved%voter%impersona( tion.% Nos.%14(2058%&%14(2059% 21% % Consider%now%the%other%side%of%the%balance the%effect%of% strict% voter% ID% laws% on% lawful% turnout.% The% panel% opinion% does%not%discuss%the%cost%of%obtaining%a%photo%ID.%It%assumes% the% cost% is% negligible.% That s% an% easy% assumption% for% federal% judges%to%make,%since%we%are%given%photo%IDs%by%court%securi( ty% free% of% charge.% And% we% have% upper(middle(class% salaries.% Not% everyone% is% so% fortunate.% It s% been% found% that% the% ex( penses% [of% obtaining% a% photo% ID]% for% documentation,% travel,% and% waiting% time% are% significant especially% for% minority% groups% and% low(income% voters typically% ranging% from% about%$75%to%$175.% ¦%Even%when%adjusted%for%inflation,%these% figures% represent% substantially% greater% costs% than% the% $1.50% poll% tax% outlawed% by% the% 24th% amendment% in% 1964. % Sobel,% supra,%at%2.% The%panel%opinion%suggests%that%obtaining%a%photo%ID%to% vote%can t%be%a%big%deal,%because%one%needs%a%photo%ID%to%fly.% That s%a%common%misconception.%See%Transportation%Security% Administration,%Acceptable'IDs,%www.tsa.gov/traveler(inform ation/acceptable(ids.% Since,% despite% the% 9/11% attacks% that% killed% thousands,% a% photo% ID% is% not% considered% essential% to% airline%safety,%it%seems%beyond%odd%that%it%should%be%consid( ered%essential%to%electoral%validity.% The%panel%piles%error%on%error%by%stating%that% photo%ID% is% essential% [not% only]% to% board% an% airplane% ¦% [but% also% to]% pick% up% a% prescription% at% a% pharmacy,% open% a% bank% ac( count ¦,%,%buy%a%gun,%or%enter%a%courthouse%to%serve%as%a%juror% or%watch%the%argument%of%this%appeal. %In%35%states,%including% Wisconsin,% you% don t% need% a% photo% ID% to% pick% up% all% pre( scriptions.%Centers%for%Disease%Control%and%Prevention,'Law:' Requiring' Patient' Identification' Before' Dispensing,% www. cdc.gov/homeandrecreationalsafety/Poisoning/laws/id_req.h 22% % Nos.%14(2058%&%14(2059% % tml.%Bank%customers%do%not%need%a%photo%ID%to%open%a%bank% account.%U.S.%Dept.%of%the%Treasury,%Office%of%the%Comptrol( ler%of%the%Currency,%Answers'&'Solutions;'Answers'About'IdenG tification,% www.helpwithmybank.gov/get(answers/bank(acco unts/identification/faq(bank(accounts(identification(02.html.% Federal%law%does%not%require%a%photo%ID%to%purchase%firearms% at% gun% shows,% flea% markets,% or% online.% U.S.% Dept.% of% Justice,% Office%of%the%Inspector%General,%Review'of'ATF s'Project'GunG runner% 10% (Nov.% 2010),% www.justice.gov/oig/reports/ATF/ e1101.pdf.% It s% true% that% our% courthouse% requires% a% photo% ID% to%enter,%but%the%Supreme%Court%requires%no%identification%at% all%of%visitors.% The% panel% does% say,% in% the% same% paragraph% of% its% opin( ion,%that%it% accept[s]%the%district%court s%finding%[that%300,000% registered% voters% lack% acceptable% photo% ID% in% Wisconsin]% in% this% case, % but% coming% after% a% recitation% that% mistakenly% im( plies%that%one%can%do%virtually%nothing%in%this%society%without% a% photo% ID,% the% implication% is% that% those% 300,000% have% only% themselves%to%blame%for%not%being%allowed%to%vote.% Robert% S.% Erikson% &% Lorraine% C.% Minnite,% Modeling% Problems% in% the% Voter% Identification Voter% Turnout% De( bate, %8%Election'L.J.%85,%98%(2009),%notes%that% recent%research% ¦%strongly%suggests%that%strict%voter%ID%laws%will%negatively% affect% certain% voters,% including% minorities,% at% least% in% the% short(run, %though%the%authors%acknowledge%doubt%about%the% statistical%robustness%of%the%evidence.%A%study%by%R.%Michael% Alvarez,% Delia% Bailey,% and% Johnathan% N.% Katz,% entitled% The% Effect% of% Voter% Identification% Laws% on% Turnout, % California% Institute%of%Technology,%Social%Science%Working%Paper%1267R% (Jan.% 2008),% http://papers.ssrn.com/sol3/papers.cfm?abstract _id=1084598,% finds% that% the% strictest% forms% of% voter% identifi( Nos.%14(2058%&%14(2059% 23% % cation% requirements combination% requirements% of% present( ing%an%identification%card%and%positively%matching%one s%sig( nature%with%a%signature%either%on%file%or%on%the%identification% card,% as% well% as% requirements% to% show% picture% identifica( tion have% a% negative% impact% on% the% participation% of% regis( tered% voters% relative% to% the% weakest% requirement,% stating% one s% name.% We% also% find% evidence% that% the% stricter% voter% identification% requirements% depress% turnout% to% a% greater% ex( tent% for% less% educated% and% lower% income% populations,% for% both%minorities%and%non(minorities. % The% aggregate% effect% of% strict% voter% identification% re( quirements% in% depressing% turnout% does% not% appear% to% be% huge it% has% been% estimated% as% deterring% or% disqualifying% 2% percent%of%otherwise%eligible%voters%(Nate%Silver,% Measuring% the%Effects%of%Voter%Identification%Laws, %N.Y.'Times,%July%15,% 2012,% http://fivethirtyeight.blogs.nytimes.com/2012/07/15/me asuring(the(effects(of(voter(identification(laws/).% But% obvi( ously% the% effect,% if% felt% mainly% by% persons% inclined% to% favor% one%party%(the%Democratic%Party,%favored%by%the%low(income% and%minority%groups%whose%members%are%most%likely%to%have% difficulty%obtaining%a%photo%ID),%can%be%decisive%in%close%elec( tions.% The% effects% on% turnout% are% bound% to% vary,% however,% from%state%to%state,%depending%on%the%strictness%of%a%state s%ID% requirements% for% voting% and% the% percentage% of% the% state s% population%that%lacks%the%required%ID.%Remember%that%at%the% time% of% the% Crawford% case% only% 43,000% Indiana% residents% lacked%the%required%identification;%330,000%registered%Wiscon( sin% voters% lack% it and% Wisconsin% has% a% smaller% population% (5.7%million%versus%Indiana s%6.5%million).%Hence%the%effects%of% the%photo%ID%requirement%on%voter%suppression%are%likely%to% be% much% greater% in% Wisconsin,% especially% since% as% we% saw% earlier%its%law%is%stricter%than%Indiana s.% 24% % Nos.%14(2058%&%14(2059% % Stephen%Ansolabehere%&%Nathaniel%Persily,% Vote%Fraud% in%the%Eye%of%the%Beholder:%The%Role%of%Public%Opinion%in%the% Challenge%to%Voter%Identification%Requirements, %121%Harv.'L.' Rev.% 1727% (2008),% finds% that% perceptions% of% voter( impersonation% fraud% are% unrelated% to% the% strictness% of% a% state s%voter%ID%law.%This%suggests%that%these%laws%do%not%re( duce% such% fraud,% for% if% they% did% one% would% expect% percep( tions%of%its%prevalence%to%change.%The%study%also%undermines% the% suggestion% in% the% panel s% opinion% (offered% without% sup( porting%evidence)%that%requiring%a%photo%ID%in%order%to%be%al( lowed%to%vote%increases%voters %confidence%in%the%honesty%of% the%election,%and%thus%increases%turnout.%If%perceptions%of%the% prevalence% of% voter(impersonation% fraud% are% unaffected% by% the% strictness% of% a% state s% photo% ID% laws,% neither% will% confi( dence%in%the%honesty%of%elections%rise,%for%it%would%rise%only%if% voters% were% persuaded% that% such% laws% reduce% the% incidence% of%such%fraud.% The%panel%opinion%dismisses%the%Absolabehere%and%Persi( ly%article%on%the%ground%that%because%it%was%published%in%the% Harvard' Law' Review,% it% was% not% peer(reviewed.% So% much% for% law% reviews.% (And% what% about% Supreme% Court% opinions?% They re% not% peer(reviewed% either.)% Persily,% incidentally,% was% chosen%to%be%Research%Director%for%the%Presidential%Commis( sion% on% Election% Administration,% a% nonpartisan% body% co( chaired% by% the% former% counsel% to% Governor% Romney s,% and% the% former% counsel% to% President% Obama s,% 2012% presidential% election%campaigns.% The%studies%we ve%cited%and%the%evidentiary%record%com( piled%in%the%district%court%show%that%Wisconsin%is%wise%not%to% argue%that%voter(impersonation%fraud%is%common%in%its%state.% Instead% it% argues% that% such% fraud% is% uncommon% because% it s% Nos.%14(2058%&%14(2059% 25% % deterred% by% the% statutory% requirement% of% having% a% photo% ID% to%be%permitted%to%vote.%But%were%it%true%that%requiring%a%pho( to% ID% is% necessary% to% deter% voter(impersonation% fraud,% then% such% fraud% would% be% common maybe% rampant in% states% that%do%not%require%a%photo%ID.%A%glance%back%at%Table%1%will% reveal% that% 12% states% do% not% require% a% photo% ID% or% any% strict% non(photo% substitute.% If% Wisconsin s% deterrence% rationale% is% sound,% we% should% expect% voter(impersonation% fraud% to% be% common%in%those%states.%Wisconsin%does%not%argue%that,%and% we%know%of%no%evidence%that%it%could%produce%in%support%of% such%an%argument.%Nor%does%it%argue%that%there%is%something% special% about% Wisconsin some% unusual% compulsion% to% en( gage% in% voter(impersonation% fraud% in% the% absence% of% strict% photo% ID% requirements that% would% make% the% experience% in% the% 12% non(strict% non(photo% ID% states% irrelevant% to% the% likely% effect%of%the%Wisconsin%law%in%deterring%(or%rather%not%deter( ring)%voter(impersonation%fraud.% Despite% the% absence% of% any% evidence% that% voter( impersonation% fraud% is% an% actual% rather% than% an% invented% problem,% whether% in% Wisconsin% or% elsewhere% in% the% United% States,%the%panel%opinion%contends%that%requiring%a%photo%ID% for%eligibility%to%vote%increases% public%confidence%in%the%elec( toral%system. %The%emphasis%it%places%on%this%contention%sug( gests%serious%doubt%by%the%panel%members%that%the%photo%ID% law%actually%reduces%voter%impersonation.%But%there%is%no%ev( idence%that%such%laws%promote%public%confidence%in%the%elec( toral%system%either.%Were%there%such%evidence%it%would%imply% a%massive%public%misunderstanding,%since%requiring%a%photo% ID%in%order%to%be%permitted%to%vote%appears%to%have%no%effect% on%election%fraud.% 26% % Nos.%14(2058%&%14(2059% % The% panel% is% not% troubled% by% the% absence% of% evidence.% It% deems% the% supposed% beneficial% effect% of% photo% ID% require( ments%on%public%confidence%in%the%electoral%system% a%legis( lative%fact a%proposition%about%the%state%of%the%world, %and% asserts% that% on% matters% of% legislative% fact,% courts% accept% the% findings%of%legislatures%and%judges%of%the%lower%courts%must% accept% findings% by% the% Supreme% Court. % In% so% saying,% the% panel% conjures% up% a% fact(free% cocoon% in% which% to% lodge% the% federal% judiciary.% As% there% is% no% evidence% that% voter( impersonation% fraud% is% a% problem,% how% can% the% fact% that% a% legislature%says%it s%a%problem%turn%it%into%one?%If%the%Wiscon( sin% legislature% says% witches% are% a% problem,% shall% Wisconsin% courts% be% permitted% to% conduct% witch% trials?% If% the% Supreme% Court% once% thought% that% requiring% photo% identification% in( creases% public% confidence% in% elections,% and% experience% and% academic%study%since%shows%that%the%Court%was%mistaken,%do% we% do% a% favor% to% the% Court do% we% increase% public% confi( dence%in%elections by%making%the%mistake%a%premise%of%our% decision?%Pressed%to%its%logical%extreme%the%panel s%interpre( tation%of%and%deference%to%legislative%facts%would%require%up( holding%a%photo%ID%voter%law%even%if%it%were%uncontested%that% the%law%eliminated%no%fraud%but%did%depress%turnout%signifi( cantly.% The%concept%of%a%legislative%fact%comes%into%its%own%when% there% is% no% reason% to% believe% that% certain% facts% pertinent% to% a% case%vary%from%locality%to%locality,%or%from%person%to%person;% a%typical%definition%of%legislative%facts%is%broad,%general%facts% that%are%not%unique%to%a%particular%case%and%provide%therefore% an% appropriate% basis% for% legislation% of% general% application.% For%example,%black%lung%disease%(pneumoconiosis)%is%either%a% progressive%disease,%like%asbestosis,%or%it%is%not.%Nothing%sup( Nos.%14(2058%&%14(2059% 27% % ports%the%idea%that%it%is%progressive%for%Miner%A%and%halts%for% Miner%B.% Even% legislative% facts% are% not% sacrosanct,% though% those% challenging%the%legislative%judgment%must%convince%the%court% that%the%legislative%facts%on%which%the%classification%is%appar( ently%based%could%not%reasonably%be%conceived%to%be%true%by% the% governmental% decisionmaker. % Vance' v.' Bradley,% 444% U.S.% 93,% 111% (1979).% And% anyway% voter% fraud,% voter% habits,% voter% disenfranchisement% are% not% legislative% facts,% owing% to% the% great% variance% across% and% even% within% states% in% the% admin( istration%of%elections.%Some%states%have%small%enough%popula( tions,% or% at% least% some% of% their% voting% precincts% have% small% enough% populations,% that% poll% workers% are% likely% to% know% personally%every%voter%who%shows%up%at%the%polls%to%vote.%No% one%is%going%to%tell%the%poll%worker%that%he%or%she%is%someone% else,%because%it%would%be%pointless.%Other%states,%or%areas,%are% populous,%urban,%and%impersonal.%The%poll%workers%in%a%pre( cinct%in%Manhattan%probably%have%never%laid%eyes%on%most%of% the% voters% who% show% up% at% election% time.% The% likelihood% of% other%forms%of%voter%fraud%similarly%depends%on%how%a%locali( ty% conducts% its% elections.% We% learned% (if% we% didnnt% already% know)% at% the% time% of% Bush' v.' Gore% that% every% locality% in% the% country%conducts%elections%in%its%own%way voting%machines,% paper% ballots,% computer% punchcards,% whatever a% % situation% unsuited%to%the%application%of%the%concept%of%legislative%fact.% The% panel% says% that% after% a% majority% of% the% Supreme% Court% has% concluded% that% photo% ID% requirements% promote% confidence,%a%single%district%judge%[in%fact%every%federal%judge% other%than%at%least%five%Supreme%Court%Justices%en'bloc]%cannot% say%as%a% fact %that%they%do%not,%even%if%20%political%scientists% disagree%with%the%Supreme%Court. %Does%the%Supreme%Court% 28% % Nos.%14(2058%&%14(2059% % really% want% the% lower% courts% to% throw% a% cloak% of% infallibility% around%its%factual%errors%of%yore?%Shall%it%be%said%of%judges%as% it%was%said%of%the%Bourbon%kings%of%France%that%they%learned% nothing%and%forgot%nothing?% The% panel% opinion% mentions% none% of% the% pertinent% aca( demic% and% journalistic% literature,% except% the% Ansolabehere% and% Persily% article,% which% it% disdains.% Nor% does% the% opinion% acknowledge% that% voting% is% a% low(reward% activity,% as% evi( denced% by% the% fact% that% turnout% tends% to% be% low.% The% panel% opinion%states%that% if%photo%ID%is%available%to%people%willing% to%scrounge%up%a%birth%certificate%and%stand%in%line%at%the%of( fice% that% issues% driver s% licenses,% then% all% we% know% from% the% fact% that% a% particular% person% lacks% a% photo% ID% is% that% he% was% unwilling%to%invest%the%necessary%time. %But%that%ignores%So( bel s%study,%discussed%earlier,%and%the%broader%point%that%time% is%cost.%The%author%of%this%dissenting%opinion%has%never%seen% his% birth% certificate% and% does% not% know% how% he% would% go% about% scrounging %it%up.%Nor%does%he%enjoy%waiting%in%line% at% motor% vehicle% bureaus.% There% is% only% one% motivation% for% imposing% burdens% on% voting% that% are% ostensibly% designed% to% discourage% voter(impersonation% fraud,% if% there% is% no% actual% danger% of% such% fraud,% and% that% is% to% discourage% voting% by% persons% likely% to% vote% against% the% party% responsible% for% im( posing%the%burdens.% The%panel%opinion%bolsters%its%suggestion%that% scroung( ing % up% a% birth% certificate% is% no% big% deal% by% stating% that% six% voter%witnesses%in%the%district%court% did%not%testify%that%they% had% tried% to% get% [a% copy% of% their% birth% certificate],% let% alone% that% they% had% tried% but% failed. % That s% another% error% by% the% panel,%for%five%of%these%witnesses%testified%that%they%had%tried,% but%had%failed,%to%obtain%a%copy%of%their%birth%certificate%in%or( Nos.%14(2058%&%14(2059% 29% % der%to%be%able%to%obtain%a%photo%ID%to%be%able%to%vote,%and%the% sixth% (who% died% shortly% before% the% trial)% had% repeatedly% but% unsuccessfully% tried% to% obtain% a% copy% of% her% birth% certificate.% Illustrative% is% the% testimony% of% one% of% the% six% that% she% had% tried% to% get% a% voter% ID% in% 2005% but% was% told% she% could% not% without% a% birth% certificate.% She% was% given% a% form% to% send% to% Mississippi,% where% she% had% been% born,% to% request% a% copy% of% her%birth%certificate.%She%received%a%response%two%weeks%later% that% there%was%no%such%person she%hadn t%been%born%in%a% hospital%and%so%there%was%no%record%of%her%birth.%She%is%regis( tered%to%vote,%has%worked%as%a%poll%worker,%and%had%voted%in% the%2012%election.% A% community% organizer% testified% that% she% had% tried% to% help% another% one% of% the% witnesses% obtain% a% copy% of% his% birth% certificate% so% that% he% could% obtain% a% photo% ID.% He% had% been% born%in%Milwaukee,%but%the%vital(records%office%had%no%record% of%his%birth%and%asked%him%for%additional%documentation,%in( cluding% elementary% school% records which% he% did% not% have,% unsurprisingly%since%he%is%86.%He%had%voted%in%previous%elec( tions% but% will% be% unable% to% vote% in% the% forthcoming% Novem( ber%4%election.%The%testimony%of%the%other%witnesses%was%simi( lar.% Any% reader% of% this% opinion% who% remains% unconvinced% that%scrounging%for%one s%birth%certificate%can%be%an%ordeal%is% referred%to%the%Appendix%at%the%end%of%this%opinion%for%disil( lusionment.% The%panel%opinion%notes%that%22%percent%of%eligible%voters% in% Wisconsin% don t% register% to% vote,% and% infers% from% this since%registration%is%not%burdensome%(you%don t%need%to%pre( sent% a% photo% ID% in% order% to% register) that% the% 22% percent% simply%aren t%interested%in%voting.%Fair%enough.%But%the%panel% 30% % Nos.%14(2058%&%14(2059% % further% infers% that% the% 9% percent% of% registered% voters% who% don t% have% photo% IDs% must% likewise% be% uninterested% in% vot( ing,%since%they%are%unwilling%to%go%to%the%trouble%of%getting%a% photo%ID.%Wrong.%The%correct%inference%from%the%fact%that%regG istered%voters%lack%photo%IDs%is%the%opposite%of%the%panel s%as( sertion% that% their% failure% to% vote% proves% them% to% be% uninter( ested%in%voting.%Why%would%they%have%bothered%to%register%if% they%didn t%want%to%vote?%Something%must%have%happened%to% deter% them% from% obtaining% the% photo% ID% that% they% would% need%in%order%to%be%permitted%to%vote:%the%inconvenience,%for% some% registered% voters% the% great% difficulty,% of% obtaining% a% photo%ID.% A%remarkably%revelatory%article%by%Edwin%Meese%III%and% J.%Kenneth%Blackwell,%entitled% Holderns%Legacy%of%Racial%Pol( itics, % Wall' Street' Journal,% Sept.% 29,% 2014,% p.% A19,% defends% the% photo%ID%movement%as%necessary%to%prevent%voter%imperson( ation% encouraged% by% Democratic% politicians.% Yet% the% article% states%that%in%Texas%the%adoption%of%a%photo(ID%law%increased% turnout%in%counties%dominated%by%minorities%and%that%minor( ity% participation% in% Indiana% rose% after% its% photo(ID% law% up( held% in% Crawford% went% into% effect.% The% article% further% states% that%in%Georgia%there%was%a%big'positive%effect%on%black%voting% after%that%state s%photo(ID%law%went%into%effect.%The%authors % overall% assessment% is% that% voter(ID% laws% donnt% disenfran( chise% minorities% or% reduce% minority% voting,% and' in' many' inG stances'enhance'it %(emphasis%added).%In%other%words,%the%au( thors% believe% that% the% net% effect% of% these% laws% is% to% increase% minority% voting.% Yet% if% that% is% true,% the% opposition% to% these% laws%by%liberal%groups%is%senseless.%If%photo%ID%laws%increase% minority%voting,%liberals%should%rejoice%in%the%laws%and%con( servatives%deplore%them.%Yet%it%is%conservatives%who%support% them% and% liberals% who% oppose% them.% Unless% conservatives% Nos.%14(2058%&%14(2059% 31% % and% liberals% are% masochists,% promoting% laws% that% hurt% them,% these% laws% must% suppress% minority% voting% and% the% question% then% becomes% whether% there% are% offsetting% social% benefits the%evidence%is%that%there%are%not.% To%conclude,%the%case%against%a%law%requiring%a%photo%ID% as%a%condition%of%a%registered%voter s%being%permitted%to%vote% that% is% as% strict% as% Wisconsin s% law% is% compelling.% The% law% should% be% invalidated;% at% the% very% least,% with% the% court% split% evenly%in%so%important%a%case%and%the%panel%opinion%so%riven% with%weaknesses,%the%case%should%be%reheard%en%banc.% 32! ! Nos.!14(2058!&!14(2059! ! APPENDIX:)SCROUNGING)FOR)YOUR)BIRTH)CERTIFICATE) IN)WISCONSIN) Case 2:11-cv-01128-LA Filed 04/23/12 Page 2 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 33! Case 2:11-cv-01128-LA Filed 04/23/12 Page 3 of 13 Document 59-1 34! ! Nos.!14(2058!&!14(2059! ! Case 2:11-cv-01128-LA Filed 04/23/12 Page 4 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 35! Case 2:11-cv-01128-LA Filed 04/23/12 Page 5 of 13 Document 59-1 36! ! Nos.!14(2058!&!14(2059! ! Case 2:11-cv-01128-LA Filed 04/23/12 Page 6 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 37! Case 2:11-cv-01128-LA Filed 04/23/12 Page 7 of 13 Document 59-1 38! ! Nos.!14(2058!&!14(2059! ! Case 2:11-cv-01128-LA Filed 04/23/12 Page 8 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 39! Case 2:11-cv-01128-LA Filed 04/23/12 Page 9 of 13 Document 59-1 40! ! Nos.!14(2058!&!14(2059! ! Case 2:11-cv-01128-LA Filed 04/23/12 Page 10 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 41! Case 2:11-cv-01128-LA Filed 04/23/12 Page 11 of 13 Document 59-1 42! ! Nos.!14(2058!&!14(2059! ! Case 2:11-cv-01128-LA Filed 04/23/12 Page 12 of 13 Document 59-1 Nos.!14(2058!&!14(2059! ! 43! Case 2:11-cv-01128-LA Filed 04/23/12 Page 13 of 13 Document 59-1
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