596 A.2d 992 | D.C. | 1991
This expedited petition for review brings before us a challenge to signatures supporting a public initiative and an informal rule employed by the District of Columbia Board of Elections and Ethics (the Board) in counting those signatures. The initiative in question, entitled “The Prohibition of Horse-Drawn Carriages Act of 1990,”
A.
It is a “ ‘long settled rule of judicial administration that no one is entitled to judicial relief for a supposed or threatened injury until the prescribed administrative remedy has been exhausted.’ ” Malcolm Pnce, Inc. v. District Unemployment Compensation Bd., 350 A.2d 730, 733 (D.C.1976) (citations omitted). In this case, the administrative remedies are provided by statute. D.C.Code § l-1320(o) sets forth explicitly the method by which an initiative petition circulated for signatures and accepted by the Board for filing may be challenged.
Summarized briefly, D.C.Code § 1-1320(k)(l) provides that, upon submission of a circulated initiative (or referendum) petition by the proposer to the Board, the Board shall refuse to accept it on any of several enumerated grounds not relevant here.
The statute thus leaves nothing to chance or guesswork as to how challenges to the validity of circulated initiative petitions are to be brought. Except only for those facial or subject matter defects in the petition which the Board must notice on its own before accepting a petition as filed, § l-1320(k)(l), none of which is relevant here, a written challenge to an accepted petition must be made within the 10-day period following the posting specified in § l-1320(o). The Board must then receive evidence (if any) respecting the challenge
1010.6 In the event a petition challenge is filed with the Board, the permanent registration records of the Board shall be searched by members of its staff and those staff persons shall be made available as witnesses to either party.
1010.7 The scope of the search shall be limited to matters raised in the petition challenge, including but not limited to, whether the signer is a registered elector; whether the signature is that of the registered elector whose name appears on the petition; and whether the signer is a resident of the ward involved.
1010.8 In the event the Board discovers a fatal defect pursuant to a record search for a specific allegation or challenge, the Board may on its own motion declare the signature invalid, notwithstanding said defect was not alleged or challenged.
B.
Petitioner does not dispute that she made no challenge to the questioned signatures within the 10-day period (actually 13 days, 3 plus 10) after filing prescribed by § 1-1320(o). Petitioner acknowledges that only at the public hearing which the Board held on June 27, 1991, the thirtieth day after filing, to certify the petition, did she orally contest the Board’s decision to count the 2,348 signatures. Petitioner also does not appear to dispute that some, or indeed most, challenges to initiative petitions must be brought in the manner specified by § 1-1320(o), but contends that hers was not one of them. Specifically, she asserts that challenges to the validity of particular initiative petitions, or particular signatures on petitions, must be made in the manner prescribed but that her challenge is different: while “not challenging the validity of any particular petition filed by the proponents of [the present] Initiative,” “she is challenging the decision of the Board to ignore the legal requirement that only the signatures of registered qualified electors be counted towards the number needed to qualify the Initiative.” In other words, petitioner maintains that until the June 27 public hearing, she had no challenge to bring — her challenge would have been “unripe” — because until then she could reasonably expect the Board, without challenge by anyone, to reject signatures of persons whose petition addresses did not match the Board’s voting rolls, and only then did the Board declare its erroneous reliance on Harvey, supra, as requiring that petition signatures that match signatures on the rolls be counted without regard to matching addresses.
This argument is imaginative and articulately presented, but we reject it. We do not see how it can be disputed that petitioner is challenging the validity of a particular initiative petition and of particular signatures — indeed, of as many as 2,348 signatures. Petitioner’s argument is that those signatures could not lawfully be counted by the Board because the absence of a registration address matching the address for the same person on the petition (and further absent proof of registration at a changed address since signing the petition) means that the signers are not “registered qualified electors” under § l-1320(o). Whether or not petitioner relied on the Board’s past practice to assume it would agree with this principle and reject the signatures did not alter her obligation to challenge the signatures in accordance with the statute.
We therefore hold that petitioner’s failure to mount her challenge to the initiative within the time frame provided by the statute bars review of the challenge by this court.
Accordingly, the petition for review is dismissed.
So ordered.
. The initiative would create a new law prohibiting the use of any horse-drawn vehicle for compensation in the District of Columbia, except vehicles used in a parade or funeral.
. D.C.Code § l-1320(i) (1987) provides that only signatures of “registered qualified electors” may be counted toward the total number of signatures required on an initiative measure.
. Under the governing statute, D.C.Code § 1-1320(i) (1987), the Board had determined that 13,978 valid signatures were needed to qualify the initiative for placement on the ballot. It is undisputed that 15,849 signatures were obtained.
. In Harvey this court declared invalid, as contrary to D.C.Code § 1 — 1312(j)(l) (Supp.1990) (providing that a nominating petition is valid if signed by 3,000 persons who have been duly registered), a regulation of the Board which barred counting the signatures of persons whose current registration address did not appear on the petition, even though — we noted— the person might have changed his or her address since signing the petition and in fact be properly registered. 581 A.2d at 758. The defect in the regulation was that it "preclude[d] a candidate from proving by other means that such persons [signing petitions] are in fact duly registered.” Id. It seems evident that Harvey would not require the Board to count names of petition signatories without any inquiry into correspondence between the petition address and the voter registration address.
The Board’s “counting" of the disputed 2,348 signatures in this case requires brief additional explanation. Those signatures were included in what the Board terms the “apparent verified registrant” pool from which a random sample of one hundred signatures was drawn from each of the eight electoral wards, and subjected to signature comparison. D.C.Code § 1-1320(o) specifically allows for certification by
. That section is part of the Initiative Procedures Act, which became effective in 1979 as the implementing legislation to the Initiative, Referendum and Recall Charter Amendments Act of 1977, D.C.Code §§ 1-281 to -295 (1987).
. At an earlier point in the process as well, the Board is required to refuse to accept a proposed initiative on both formal and subject matter grounds not relevant here. See D.C.Code § 1-1320(b)(1).
. Petitioner points out that the Board had "invariably" rejected signatures on this basis in the
. As intervenor points out, as few as 477 of the challenged signatories might have to be shown to be actual registered qualified electors in order to satisfy the numerosity requirement.
. In view of the clarity of the procedures set forth in the statute, we are unpersuaded by petitioner’s suggestion that the Registrar somehow misled her into believing she could defer her challenge until the public certification hearing.
Gollin v. District of Columbia Bd. of Elections & Ethics, 359 A.2d 590 (D.C.1976), is beside the point because in that case the petitioners complied with the statutory requirements: the court rejected an argument that in addition they were obliged, inter alia, to seek rehearing by the Board of its certification decision in order to exhaust administrative remedies. Id. at 593.