Documente Academic
Documente Profesional
Documente Cultură
v. * FOR
* * * * * * * * * * * *
STATE DEFENDANTS MOTION TO DISMISS
Pursuant to Md. Rule 2-322(b)(2), defendants Mary Wagner and Maryland State
Board of Elections (collectively, the State Defendants or Board) move to dismiss this
action for failure to state a justiciable claim. A supporting memorandum and proposed
Respectfully submitted,
BRIAN E. FROSH
Attorney General of Maryland
I certify that this submission does not contain any restricted information.
I certify that on this 27th day of November 2017, the foregoing motion and
accompanying memorandum and proposed order were served by first-class mail on the
following:
I certify that on this 27th day of November 2017, the foregoing motion and
accompanying memorandum and proposed order was served electronically by the MDEC
v. * FOR
* * * * * * * * * * * *
MEMORANDUM IN SUPPORT OF STATE DEFENDANTS
MOTION TO DISMISS
Pursuant to Md. Rule 2-322(b)(2), defendants Mary Wagner and Maryland State
Board of Elections (collectively, the State Defendants or Board), move to dismiss this
action for failure to state a justiciable claim. At this juncture, the Board takes no position
on the merits of plaintiff Krishanti Vignarajahs claim that she is qualified to run for
Governor. But because Ms. Vignarajah does not allege that she is officially a candidate
for Governor, much less that anyone has brought a legal challenge to her candidacy, this
STANDARD
facts and all reasonable inferences that can be drawn from those facts fail to afford relief
to the plaintiff, Bobo v. State, 346 Md. 706, 708-09 (1997), including when the complaint
fails to allege a justiciable controversy. 120 W. Fayette St., LLLP v. Baltimore, 413 Md.
309, 356 (2010) (When a complaint fails to allege a justiciable controversy . . . a motion
to dismiss is proper.); Lewis v. Long & Foster Real Estate, Inc., 85 Md. App. 754, 758
(1991) (noting that a Rule 2-322 motion is appropriate when no justiciable controversy
exists).
A declaratory action based on facts that have yet to occur or develop, like this
one, lacks ripeness and should be dismissed for failure to allege a justiciable controversy.
120 W. Fayette St., 413 Md. at 356. The existence of a justiciable controversy is an
Boyds Civic Assn v. Montgomery County Council, 309 Md. 683, 689 (1987)) (emphasis
added); see also State v. G&C Gulf, Inc., 442 Md. 716, 720 (2015) (An action for
declaratory judgment is not treated differently than any other suit for purposes of
ripeness.).
ARGUMENT
This declaratory-judgment action asks the Court to resolve a dispute that does not
exist and that may never arise. Ms. Vignarajah alleges that her political opponents and
others have questioned whether she meets both the voter-registration and residency
requirements to run for Governor. But setting aside the fact that Ms. Vignarajah has not
1
(See Compl. 16.) As of this filing, it remains true that Ms. Vignarajah has not
filed her certificate of candidacy.
2
Md. Code Ann., Elec. Law 5-301(a)(1)(2).
2
regardless of whether she meets the other qualifications3her complaint does not establish
a credible risk that her opponents, the Board, or anyone else will attempt to bar her from
running for Governor by challenging her qualifications. First, Ms. Vignarajah appears to
allege, as a legal matter, that no one can currently challenge her status as a registered
Maryland voter since 2006. Second, Ms. Vignarajah overlooks that the statute provides an
exclusive means for challenging her residency: a particular court proceeding which she
on a chain of events that have not occurred and may never occur. This case is thus a prime
may never happen[.] 120 W. Fayette St., 413 Md. at 357. The Court should dismiss this
action as unripe.
Although Ms. Vignarajah alleges that some commenters have questioned whether
she has been a registered Maryland voter for five years (Compl. 26), she does not show
3
Article II, 5 of the Maryland Constitution provides as follows: A person to be
eligible for the office of Governor or Lieutenant Governor must have attained the age of
thirty years, and must have been a resident and registered voter of the State for five years
next immediately preceding his election. Ms. Vignarajah does not allege that the age
requirement to run for Governor is at issue.
3
A. Ms. Vignarajah Does Not Allege How Her Voter-Registration Status
Presents a Justiciable Question.
Ms. Vignarajahs own formulation of the issue fatally undermines her argument that
her voter-registration status is under threat. Specifically, Ms. Vignarajah alleges that she
has been registered to vote in Maryland continuously since 2006. And that, she argues, is
16; Exhibit 1.) Because she admits that she is now an active registered voter (Compl.
9), and does not suggest that there is any effort to retroactively remove her from the voter
rolls, she fails to articulate any theory by which her opponents could keep her off the ballot
by challenging her voter registration, and thus any question for the Court to resolve.
Indeed, Ms. Vignarajah appears to treat it as an immutable fact that she satisfies the
voter-registration requirement: she argues that neither Hogan nor Wagner can lawfully
change the fact that she has been a continuously registered voter in Maryland since
2006. (Compl. 71.) Because Ms. Vignarajahs complaint does not even suggest that
her voter registration presents a live issue, any theoretical challenge to her candidacy on
that basis is the epitome of an event that may never happen. This falls far short of the
It is undisputed that the Board has not taken any official action regarding
Ms. Vignarajahs voter registration or announced any intention to do so. Nevertheless, Ms.
4
Vignarajah devotes considerable attention to two vague statements, attributed to defendant
Mary Wagner in the Washington Post, suggesting that the Board would have canceled
registered to vote in Washington, D.C. (Compl. 30). But Ms. Vignarajah cannot create
a justiciable controversy by alleging that the Board would have violated the law if it had
done something it did not do, especially when there is no present suggestion that her voter
Ms. Vignarajah admits, as she must, that the Board did not remove her from the
voter rolls and, in fact, argues that the Board followed the law in not doing so. (Compl.
8.) The non-specific newspaper clippings on which Ms. Vignarajah relies do not and
cannot constitute any official action by the Board, and are not probative of any intent
past or futureby the Board to strike Ms. Vignarajah from the voter rolls. For one thing,
the articles do not even directly quote Ms. Wagner; instead, they both contain the statement
that Ms. Wagner said that the Board would have canceled Vignarajahs voter
registration if D.C. officials had notified the state that she was registered to vote in the
District of Columbia.4 See Josh Hicks, Krishanti Vignarajah Launches Campaign for
Maryland Governor, Wash. Post, Sept. 19, 2017, attached hereto as Exhibit A; Ovetta
4
Ms. Vignarajah does not appear to dispute that moving out-of-state can lead to
removal from the statewide voter registration, if the proper procedures are followed. See
Md. Code Ann., Elec. Law Title 3, subtitle 5. Nothing about the press statements attributed
to Ms. Wagner suggests that the Board would have removed Ms. Vignarajah from the voter
rolls without following the applicable procedures.
5
Wiggins & Josh Hicks, Md. Attorney General Is Asked to Opine on Ex-White House Aides
Eligibility to Run for Governor, Wash. Post, Aug. 11, 2017, attached hereto as Exhibit B.
The articles provide no context for Ms. Wagners alleged statement, no indication of her
actual words, no evidence that the authors were accurately paraphrasing her, and no
indication that Ms. Wagners statements reflected the views of the Board. They therefore
do not demonstrate there will be any challenge to Ms. Vignarajahs status as a registered
Maryland voter. There is thus no basis for the Court to conclude that there is, or will be
for Governor.
As with the voter-registration requirement, Ms. Vignarajah does not allege that any
actual challenge to her Maryland residency has occurred, or show that one is likely to occur.
Although Ms. Vignarajah points out both that her opponents have questioned her
eligibility, and that the Board has sought legal advice on that question, she has not alleged
that a legal challenge to her candidacy is imminent, or even likely. Without one, there is
A. Ms. Vignarajah Has Not Alleged That There Is Any Legal Threat
to Her Candidacy.
Although Ms. Vignarajah claims that some people have questioned whether she
meets the residency requirements to run for Governor, and makes the speculative and
6
conclusory allegation that litigation is inevitable (Compl. 75.b), she does not allege any
facts showing that a formal challenge to her qualificationsthe kind that could prevent her
from runninghas occurred, or will occur. Maryland law provides a specific, and narrow,
mechanism to challenge whether a candidate meets the residency requirements to run for
office. See Md. Code Ann., Elec. Law 5-305. Under 5-305, a challenge to a candidates
residency can only be brought by filing a special petition within nine days after a candidate
Ms. Vignarajah alleges only that some people have challenged her qualifications
in the press, not in the courts. But media speculation about Ms. Vignarajahs qualifications
has no effect on her legal ability to run for office, because only a proceeding under 5-305
can actually force her off the ballot on the basis of her residency.5 Ms. Vignarajahs
complaint does not allege that any challenge has been brought, or that there is a credible
risk that one will be brought.6 Even if there is a risk that her political opponents might one
day challenge her candidacy in court, at this point, it is just thata risk. But the mere
possibility of future legal action does not satisfy the ripeness requirements for a
declaratory-judgment action.
5
When a statute provides for a special remedy in a specific type of caselike
5-305 doesthat remedy shall be followed in lieu of a declaratory-judgment action.
Md. Code Ann., Cts. & Jud. Proc. 3-409(b).
6
Indeed, under the statutory scheme, any action to decide Ms. Vignarajahs
qualifications would be premature at least until she files her certificate of candidacy.
7
The Court of Appeals addressed an analogous situation in G&C Gulf, when it held
that a challenge to a criminal law was not ripe unless there was an actual prosecution under
the statuteor a credible threat of oneagainst the specific party challenging the law. 442
Md. at 731. The statute challenged in G&C Gulf criminalized certain predatory towing
practices. Id. at 719-20. A towing company, whose owner believed the company was in
jeopardy of being prosecuted under the act, sought a declaratory judgment that the statute
was illegal. Id. at 722-24. Even though counsel for Montgomery County stated that the
County was enforcing the law generally, id. at 734-35, the Court of Appeals held that the
challenge was not ripe because the plaintiff was not actually being prosecuted, or subject
to a credible threat of prosecution. Id. at 731 (A litigant must allege and prove that they
have been prosecuted for a crime or that there is a credible threat of prosecution under a
Here, the mere possibility that someone could challenge Ms. Vignarajahs
Even if Ms. Vignarajah does file a certificate of candidacy, as she alleges she will, there is
far from a credible threat that anyone will file an action challenging her candidacy. See
Pearson v. Leavitt, 189 F. Appx 161, 164 (4th Cir. 2006) (per curiam) (finding
taken action against Appellants). Political rhetoric questioning her qualifications (which
costs nothing) is one thing; marshaling the arguments and bearing the expense necessary
8
to mount a colorable challenge in courta challenge Ms. Vignarajah appears confident
are prepared to expend the effort necessary to litigate her qualifications, especially
considering that they will presumably be busy running campaigns against other political
opponents simultaneously.8
Only a court challenge can potentially defeat Ms. Vignarajahs candidacy on the
basis of her residency, and it is purely speculative whether one ever will be brought.
Finally, Ms. Vignarajah suggests that the Board itself believes her residency is an
issue, because it has sought advice from the Attorney General, and because Ms. Wagner
wrote in an email that it looks like the 5 year residence requirement is going to be an issue
for the upcoming election[.] (Compl. 31, 32.) These actions do not and cannot
constitute a challenge to Ms. Vignarajahs candidacy, because the Board does not make
7
Ms. Vignarajah offers the conclusory statement that judicial resolution . . . is
imminent and inevitable at the request of one candidate or another, (Compl. 15), and a
bald allusion to imminent and inevitable litigation. (Compl. 75.b) But the complaint
does not allege any facts showing that a legal challenge to Ms. Vignarajahs candidacy is
actually forthcoming or likely, as opposed to merely possible.
8
Other than Ms. Vignarajah, there are at least seven other potential Democratic
candidates for the 2018 gubernatorial election. See Maryland Governor Candidates 2018,
Baltimore Sun, available at http://www.baltimoresun.com/news/maryland/politics/bal-
maryland-governor-candidates-2018-20170612-storygallery.html.
9
determinations about candidates eligibility but only verifies that their certificates of
Under Maryland election law, the Board shall accept Ms. Vignarajahs certificate
of candidacy as long as she swears under oath that she meets the qualifications for office.
Elec. Law 5-304(e) (providing that the Board shall accept a certificatenot a
candidacythat complies with the law); 5-304(c)(5) (requiring a candidate to state that
be filed under oath). In other words, once Ms. Vignarajah self-certifies that she is eligible
to run for Governor, the Board is not empowered to second-guess that conclusion, or to
conduct an independent evaluation of Ms. Vignarajahs eligibility.9 The only avenue for
challenging Ms. Vignarajahs determination that she is qualified to run for office is a court
proceeding.
The Boards limited role in reviewing candidates qualifications has a long tradition
in Maryland. The Court of Appeals has held that a board of elections is not empowered to
adjudicate whether a candidate is qualified to run for office, as long as her certificate of
candidacy appears proper. Indeed, after examining the certificate of candidacy and
determining that on its face it [is] complete and in order, the Board is under a ministerial
duty to accept said certificate and [has] neither a discretionary power to reject it, nor any
9
Although the Board is authorized to request supporting information to verify the
accuracy of information in a certificate of candidacy, Elec. Law 5-304(c)(6), it does not
independently investigate whether that information is accurate.
10
authority to exercise the judicial function of passing upon the qualifications of the
candidate. Gallagher v. Board of Supervisors of Elections, 219 Md. 192, 208 (1959); see
also Tawney v. Board of Supervisors of Elections of Balt. City, 198 Md. 120 (1951)
(collecting cases). And over thirty years ago, the Attorney Generals Office concluded that
qualifications, and that the authority they do exercise is a ministerial function. See
Letter from Assistant Attorney General Jack Schwartz, Chief Counsel, Opinions and
particular, election officials lack authority to determine other potential questions about
Under governing law, the Board lacks the authority to determine Ms. Vignarajahs
Maryland residency, and the fact that it sought legal advice on certain dimensions of this
question does not mean that there is an imminent risk that the Board will reject Ms.
Vignarajahs candidacy. Because Ms. Vignarajahs complaint does not allege facts that
show any credible threat of a legal challenge to Ms. Vignarajahs candidacy, it does not
11
CONCLUSION
The motion to dismiss should be granted, and the Court should dismiss the
complaint as unripe.
Respectfully submitted,
BRIAN E. FROSH
Attorney General of Maryland
12
KRISHANTI VIGNARAJAH, * IN THE
v. * FOR
* * * * * * * * * * * *
ORDER
responses and replies thereto, it is this ____ day of _____________, 201_, by the Circuit
________________________
Judge
EXHIBIT A
Maryland Politics
Krishanti Vignarajah
launches campaign for
Maryland governor
By Josh Hicks September 19
WOODLAWN, Md. Democrat Krishanti Vignarajah, a former policy director for first lady Michelle Obama, officially
launched her campaign for governor Tuesday at the apartment complex outside Baltimore where she lived with her parents
after the family fled Sri Lanka decades ago.
Before anything else, I was an immigrant and proud daughter of schoolteachers, she told an audience of about three dozen,
including her husband, National Wildlife Federation chief executive Collin OMara, and their infant daughter.
She said as governor she would push for mandatory paid family leave for new mothers and fathers and for universal
prekindergarten and make education her top priority.
Vignarajah, 37, has said she is driven to run partly by the retirement early this year of U.S. Sen. Barbara A. Mikulski (D-Md.),
which left all statewide elected offices in Maryland filled by men for the first time in many years.
A graduate of Yale University and Yale Law School, Vignarajah lives in Gaithersburg and worked for Michelle Obama for a
little more than two years after a stint as a senior adviser at the State Department. She previously worked at a New York-based
consulting firm and a Chicago-based law firm and has taught at Georgetown University.
Vignarajah, who was nine months old when her family immigrated to the United States with green cards, announced last
month that she would join the packed field of Democrats vying to challenge the popular incumbent, Gov. Larry Hogan (R), in
2018.
Other declared candidates include Prince Georges County Executive Rushern L. Baker III, former NAACP president Ben
Jealous, Baltimore County Executive Kevin Kamenetz, state Sen. Richard S. Madaleno Jr. (D-Montgomery), entrepreneur Alec
Ross and Baltimore lawyer and former University System of Maryland Board of Regents chair James L. Shea. Policy
consultant Maya Rockeymoore is also weighing a bid.
They say no man can beat Governor Hogan, she said during her announcement. Well, Im no man.
Shortly after Vignarajah said she would run, one of her potential rivals, on the condition of anonymity, raised questions to
news organizations including The Washington Post about her voter registration. A review of records by The Post showed she
was registered in both Maryland and the District in recent years, had lived in both places, and voted in the District from 2010
to 2014 but in Maryland in 2016.
Maryland law requires gubernatorial candidates to have lived and been registered to vote in the state for five years
immediately preceding the election. D.C. law prohibits people from registering to vote when they are registered elsewhere.
The Maryland State Board of Elections has asked Attorney General Brian E. Frosh (D) to weigh in on whether a person who
registered in the state but later voted in another jurisdiction would be considered a registered Maryland voter.
Mary Wagner, voter-registration director for the elections board, said the attorney generals office is unlikely to provide an
answer before Vignarajah files paperwork with the state to enter the race. The filing deadline for the June primary is Feb. 27.
Wagner said the board would have canceled Vignarajahs voter registration if D.C. officials had notified the state that she was
also registered in the District.
Vignarajah did not take questions Tuesday and declined to comment on her eligibility for office.
Oops! That measure to let noncitizens vote in College Park actually failed
10 Comments
Josh Hicks covers Maryland politics and government. He previously anchored the Posts Federal Eye blog,
focusing on federal accountability and workforce issues. Follow @reporter_hicks
EXHIBIT B
Maryland Politics
The Maryland State Board of Elections on Friday asked Attorney General Brian E. Frosh (D) to weigh in on whether Krishanti
Vignarajah, a former policy aide for Michelle Obama who entered the governors race this week, is a Maryland registered
voter, which is a requirement for running for governor.
Shortly after Vignarajahs announced her candidacy on Wednesday, questions were raised about whether she is legally eligible
to seek the office. Under the state constitution, a candidate for governor must be at least 30 years old and have been both a
Maryland resident and registered voter for the five years immediately preceding the election.
Vignarajah registered to vote in the District in 2010 and has voted there multiple times, including during the 2010, 2011, 2012
and 2014 election cycles.
According to the Maryland State Board of Elections, Vignarajah also is registered to vote in Maryland. She has voted once in
the state in the 2016 general election since she registered in 2006.
State records show that the Baltimore County Board of Elections sent a request to Vignarajahs Catonsville address in
February 2015 asking her to confirm her registration status. Because she did not reply, she was listed as inactive. If she had
not voted last year, the state would have canceled her registration after the 2020 election.
Vignarajah, 37, did not return a call late Friday seeking comment about the request from the State Board of Elections. Steve
Rabin, a spokesman for her campaign, also did not return a call for comment.
I am legally eligible to run, Vignarajah said earlier in the day on the Kojo Nmandi radio show on WAMU-FM (88.5).
The request from the state board does not mention Vignarajah by name. Instead, it seeks advice on whether a person who
registered in the state but later voted in another jurisdiction would be considered a Maryland registered voter.
The answer could determine whether Vignarajah, the only woman in a crowded field of Democratic candidates, can remain in
the race.
Mary Wagner, voter registration director for the state board, said Friday that the board would have canceled Vignarajahs
voter registration if D.C. officials had notified the state that she had registered to vote in the District.
During the radio interview, Vignarajah refused to say why she registered to vote in the District while also registered in
Maryland.
She said that she had a crash pad in the District while she was working in the Obama administration but that Maryland was
her primary residence.
When Vignarajah was told that she may have violated D.C. law and could be subject to a $10,000 fine for registering in the
District while being registered in another jurisdiction, she said: I think we need to focus on what Im here to talk about, that
is Im running for governor of Maryland. In terms of the requirements to run, I have been a registered voter in Maryland for
far longer than is required to run.
Vignarajah repeated that she was absolutely legally eligible to run for governor.
She said that she consulted legal experts and elected officials to make sure I wasnt throwing my hat in the ring for no good
reason.
The D.C. voter registration form requires applicants to declare their eligibility, including by checking a box and signing their
names to a statement that they do not claim voting residence outside of the District of Columbia. The D.C. Board of
Elections website also notes that registered voters must not claim the right to vote in any other state or territory.
20 Comments