United States of America v. State of California et al

Filing 148

OPPOSITION by Xavier Becerra, Edmund Gerald Brown, Jr, State of California to 59 Motion to Intervene. (Hakl, Anthony)

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XAVIER BECERRA Attorney General of California 2 THOMAS S. PATTERSON Senior Assistant Attorney General 3 4 MICHAEL L. NEWMAN SA TOSH! YANAi Supervising Deputy Attorneys General MAUREEN 5 6 7 8 C. ONYEAGBAKO Deputy Attorney General 1300 I Street, Suite 125 P.O. Box 944255 Sacramento, CA 94244-2550 Telephone: (916) 210-7324 Fax: (916) 324-8835 E-mail: Maureen.Onyeagbako@doj.ca.gov Attorneys for Defendants 9 IN THE UNITED STATES DISTRICT COURT 10 FOR THE EASTERN DISTRICT OF CALIFORNIA 11 12 13 14 THE UNITED STATES OF AMERICA, 15 16 Plaintiff, v. 17 18 19 2: l 8-cv-00490-JAM-KJN THE STATE OF CALIFORNIA; EDMUND GERALD BROWN JR., Governor of California, in his official capacity; and XAVIER BECERRA, Attorney General of California, in his official capacity, DEFENDANTS' MEMORANDUM OF POINTS AND AUTHORITIES IN OPPOSITION TO MOTION TO INTERVENE BY PROPOSED INTERVENORS COUNTY OF ORANGE AND SANDRA HUTCHENS June 5, 2018 1:30 p.m. 6 Defendants. 21 The Honorable John A. Mendez 22 Trial Date: None Set 1 1 - - - - - - - - - - - - - - - - - - - ' Action Filed: March 6, 2018 23 20 Date: Time: Dept: Judge: 24 25 26 27 28 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) TABLE OF CONTENTS 2 Page 3 Introduction ..................................................................................................................................... I 4 Factual Allegations and Background .............................................................................................. 2 Argument ........................................................................................................................................ 3 5 I. 6 Orange County Is Not Entitled to Intervention as of Right .................................... 3 A. Orange County Does Not Have a Significant Protectable Interest Because Ninth Circuit Precedent Bars it from Challenging the Constitutionality of State Laws ................................................................... 3 B. Orange County Cannot Rebut the Presumption of Adequate Representation by the Federal Government ................................................ 5 9 C. Intervention as a Matter of Right Is Not Warranted Because Orange County Has Other Means to Protect Its Interests ........................................ 8 10 D. Orange County Does Not Show that Timing Weighs in Its Favor ............. 9 7 8 11 12 II. Permissive Intervention Should Be Denied .......................................................... 10 Conclusion .................................................................................................................................... 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 Defs.' Opp'n to Mot. to fntervene by Orange Cty. & Hutchens (2:l 8-cv-00490-JAM-KJN) I TABLE OF AUTHORITIES 2 3 CASES 4 5 6 7 8 Arakaki v. Cayetano 324 F.3d I 078 (9th Cir. 2003) ......................................................................................... 4, 5, 6, 8 Astiana v. Hain Celestial Group, Inc. 783 F .3d 7 53 (9th Cir. 2015) ....................................................................................................... 8 Burbank-Glendale-Pasadena Airport Auth. v. City of Burbank 136 F Jd 13 60 (9th Cir. 1998) ..................................................................................................... 4 9 10 11 12 13 California ex rel. Lockyer v. United States 450 F.3d 436 (9th Cir. 2006) ................................................................................................... 6, 8 California v. Tahoe Reg'/ Planning Agency, 792 F.2d 775, 778 (9th Cir. 1986) ................................................................................ 6 Ctr. for Biological Diversity v. Brennan 571 F. Supp. 2d 1105 (N.D. Cal. 2007) ...................................................................................... 9 14 15 16 17 18 Dilks v. Aloha Airlines 642 F.2d 1155 (9th Cir. 1981) (per curiam) ................................................................................ 4 Donnelly v. Glickman 159 F.3d 405 (9th Cir. 1998) ................................................................................................. 4, 10 Drake v. Obama 664 F.3d 774 (9th Cir. 2011) ........................................................................................................ 5 19 20 21 22 23 24 25 26 27 Elec. Data Sys. Fed. Corp. v. Gen. Servs. Admin. 629 F. Supp. 350 (D.D.C. 1986) ................................................................................................. 9 Freedom from Religion Found., Inc. v. Geithner 644 F.3d 836 (9th Cir. 2011) ................................................................................................... 3, 6 Hotel Emps. & Rest. Emps. Int 'l Union v. Nevada Gaming Comm 'n 984 F.2d 1507 (9th Cir. 1993) ..................................................................................................... 8 Mauso/f v. Babbitt 85 F.3d 1295 (8th Cir. l 996) ....................................................................................................... 6 McHenry v. C.1.R. 677 F.3d 214 (4th Cir. 2012) ....................................................................................................... 9 28 ii Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 TABLE OF AUTHORITIES (continued) Mille Lacs Band of Chippewa Indians v. Minnesota 989 F.2d 994 (8th Cir. 1993) ....................................................................................................... 6 Nw. Forest Res. Council v. Glickman 82 F.3d 825 (9th Cir. 1996) ................................................................................................... 6, 10 0 'Shea v. Littleton 414 U.S. 488 (197 4) ................................................................................................................... .4 Pac. Gas & Elec. Co. v. State Energy Res. Conserv. & Dev. Comm 'n 461 U.S. 190 (1983) .................................................................................................................... 8 Perry v. Proposition 8 Official Proponents 587 F.3d 947 (9th Cir. 2009) ............................................................................................. passim Sales Hydro Assocs. v. Maughn 985 F.2d 451 (9th Cir. 1993) ....................................................................................................... 8 Schlesinger v. Reservists Comm. to Stop the War 418 u. S. 208 ( 1974) .................................................................................................................... 5 Smith v. L.A. Unified Sch. Dist. 830 F.3d 843 (9th Cir. 2016) ................................................................................................. 9, 10 Smith v. Marsh 194 F.3d 1045 (9th Cir. 1999) ................................................................................................... JO South Lake Tahoe v. Cal. Tahoe Regional Planning Agency 625 F.2d 231 (9th Cir. l 980) ................................................................................................. .4, 5 19 20 21 22 23 Spangler v. Pasadena City Bd. of Educ. 552 F.2d 1326 (9th Cir. 1977) .................................................................................................. .11 Sw. Ctr. for Biological Diversity v. Berg 26 8 F. 3d 81 0 (9th Cir. 2001) ................................................................................................... 3, 8 United States v. Alisa/ Water Corp. 370 F.3d 915 (9th Cir. 2004) ................................................................................................... 8, 9 24 25 26 27 United States v. City of Los Angeles 288 F.3d 391 (9th Cir. 2002) ....................................................................................................... 6 United States v. Hooker Chems. & Plastics Corp. 749 F.2d 968 (2nd Cir. 1984) ...................................................................................................... 7 28 iii Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) 1 TABLE OF AUTHORITIES (continued) 2 3 4 5 6 7 United States v. Richardson 418 U.S. 166 (1974) .................................................................................................................... 5 United States v. Sprint Commc 'ns, Inc. 855 F.3d 985 (9th Cir. 2017) ....................................................................................................... 3 STATUTES 8 California Government Code § 7284.6(a)(l)(c) ......................................................................................................................... 5 9 COURT RULES 10 11 12 Federal Rules of Civil Procedure Rule 24 ........................................................................................................................................ 8 Rule 24(a) ................................................................................................................................ 3, 8 Rule 24(b )(3) ............................................................................................................................. 11 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 iv Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) .J INTRODUCTION 2 This is an action between the State of California and the United States. It concerns three 3 statutes that California's elected officials deemed necessary to properly allocate scarce public- 4 safety resources, provide workplace protections, and protect its residents' rights. While the issues 5 here are important to many individuals, organizations, and governmental entities, amici curiae 6 briefs are the proper mechanism for those non-parties to express their viewpoints, as more than 7 100 amici curiae have already done. The amici curiae process allows the same opportunity for 8 presenting diverse viewpoints to the Court as intervention, but without the unnecessary 9 complexity that would accompany adding so many new parties to the litigation. 1O Orange County and its Sheriff (collectively, "Orange County"), however, seek to join this 11 case as plaintiffs to challenge two of the three laws at issue in this case--the California Values 12 Act, or Senate Bill (SB) 54 and Assembly Bill (AB) 103. (Mot. for Leave to Intervene, Apr. 20, [3 2018, ECF No. 59.) But Ninth Circuit case law bars Orange County, as a political subdivision of 14 the State of California, from bringing a constitutional challenge against state statutes. 15 Accordingly, it cannot satisfy the requirements for either intervention as ofright or permissive 16 intervention, and its motion should be denied on that basis alone. 17 The other factors courts weigh in considering intervention also counsel against Orange 18 County's motion. In particular, Orange County shares the same ultimate objective in this case as [9 the existing plaintiff, the federal government, which is to overturn SB 54 and AB 103. Thus, the 20 law presumes the existing party will adequately represent those interests, especially when the 21 party is a governmental entity that is assumed to represent its citizens' interests. Orange County 22 cannot rebut this presumption with the required "compelling showing" that its interests will go 23 unrepresented, because the Complaint and motion for preliminary injunction already contemplate 24 the harms assetied by Orange County. Additionally, multiple parties will not aid in adjudication 25 of this case on the merits because the underlying preemption issue is purely legal, and the State of 26 California and United States will more than adequately represent the competing legal viewpoints 27 at issue. Finally, the timing here does not weigh in favor of intervention. Orange County was 28 aware of its alleged claims well before this lawsuit began. And this case has progressed rapidly, Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: l 8-cv-00490-JAM-KJN) 1 with substantive discovery by the parties, motion practice, and many amici curiae briefs. 2 Intervention at this stage would prejudice the parties by complicating and protracting the 3 litigation, and could encourage many other non-parties to seek to intervene, adding even more 4 unnecessary complexity and delay to the proceedings. Because Orange County does not satisfy 5 the requirements for intervention, the Court should deny its motion. 6 7 FACTUAL ALLEGATIONS AND BACKGROUND On March 6, 2018, the federal government sued the State of California, Governor Edmund 8 G. Brown Jr., and Attorney General Xavier Becerra, and moved to preliminarily enjoin 9 enforcement ofcertain sections of recently passed state laws-SB 54, AB 450, and AB 103- 10 that it alleges interfere with the execution of federal immigration law. (Comp!., Apr. 20, 2018, 11 ECF No. 1; Mot. for Prelim. Inj., Apr. 20, 2018, ECF No. 2.) Defendants moved to dismiss the 12 Complaint and opposed the preliminary injunction motion on May 4, 2018. (Defs.' Opp'n to 13 Mot. for Prelim. Injun., May 4, 2018, ECF No. 74; Mot. to Dismiss, May 4, 2018, ECF No. 77.) 14 Proposed Intervenors are the County of Orange, a political subdivision of the state, and 15 Sandra Hutchens, Sheriff-Coroner for the county. (Not. & Mot. by Cty. of Orange and Sandra 16 Hutchens for Leave to Intervene ("OC Mot."), 1: 18-19, 27-28, Apr. 20, 2018, ECF No. 59.) 17 Orange County filed its motion to intervene and proposed complaint on April 20, 2018, six weeks 18 after the United States filed suit. (Id.; Proposed Com pl. in Intervention ("Proposed Com pl."), 19 Apr. 20, 2018, ECF No. 59-2.) Orange County seeks to challenge two of the three state laws at 20 issue in this case (SB 54 and AB 103) based on the Supremacy Clause and federal preemption, 21 the same theory raised by the federal government. (Id. at 1: 12-13; see also id. at 2:28-3 :6.) It 22 contends that the state laws impede "consultation and communication" between federal and local 23 law enforcement officials, and "interfere with contracts between federal and local entities and law 24 enforcement officials to house immigration detainees." (OC Mot. 2:11-14.) Orange County 25 notes that it receives more than $22 million annually through contracts with Immigration and 26 Customs Enforcement (ICE). (Id. at 11 :20-26.) And it argues that the state laws have forced it to 27 give the Attorney General's Office access to documents that are allegedly ICE property and were 28 to remain confidential under its contract with ICE. (Id. at 10:10-20.) The motion also argues that 2 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: l 8-cv-00490-JAM-KJN) 1 the Sheriff has been exposed to criminal or civil liability based on statements the Attorney 2 General made about enforcing the state laws. (Id. at 10:28-11: 12.) It further contends that the 3 state laws place Orange County residents at risk because the laws limit local authorities' ability to 4 cooperate with or inform federal immigration authorities about immigrants in their custody yvho 5 are suspected of serious crimes and subject to detention under federal law, regardless of whether 6 they have been convicted. (Id. at 7:16-9:1.) 7 8 9 ARGUMENT I. ORANGE COUNTY Is NOT ENTITLED TO INTERVENTION As OF RIGHT Federal Rule of Civil Procedure 24(a) permits intervention as a matter of right if authorized IO by statute or upon satisfaction ofa four-part test:"(]) [t]he application for intervention must be 11 timely; (2) the applicant must have a significantly protectable interest relating to the property or 12 transaction that is the subject of the action; (3) the applicant must be so situated that the 13 disposition of the action may, as a practical matter, impair or impede the applicant's ability to 14 protect that interest; and (4) the applicant's interest must not be adequately represented by the 15 existing parties in the lawsuit." United States v. Sprint Commc 'ns, Inc., 855 F.3d 985, 991 (9th 16 Cir. 2017) (quoting Sw. Ctr.for Biological Diversity v. Berg, 268 F.3d 810,817 (9th Cir. 2001) 17 (internal citation omitted)). The applicant for intervention bears the burden of showing 18 compliance with each of the four elements. Freedom/ram Religion Found., Inc. v. Geithner, 644 19 F.3d 836,841 (9th Cir. 2011) (citation omitted). "Failure to satisfy any one of the requirements is 20 fatal to the application, and [the court] need not reach the remaining elements if one of the 21 elements is not satisfied."· Perry v. Proposition 8 Official Proponents, 587 F.3d 947,950 (9th 22 Cir. 2009). 23 A. 24 Orange County Does Not Have a Significant Protcctable Interest Because Ninth Circuit Precedent Bars it from Challenging the Constitutionality of State Laws 25 Looking first to the second factor of the applicable four-part test, a proposed intervenor has 26 a "significant protectable interest" in an action "if (I) [the applicant] asserts an interest that is 27 protected under some law, and (2) there is a 'relationship' between [the applicant's] legally 28 protected interest and the plaintiffs claims." Sprint Commc 'ns, 855 F.3d at 991 (quoting 3 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: l 8-cv-00490-JAM-KJN) 1 Donnelly v. Glickman, 159 F.3d 405, 409 (9th Cir. 1998) (internal citation omitted)); accord 2 Arakaki v. Cayetano, 324 F.3d 1078, 1084 (9th Cir. 2003). The interest must be "direct, non- 3 contingent, substantial and legally protectable." Dilks v. Aloha Airlines, 642 F.2d 1155, 1157 4 (9th Cir. 1981) (per curiam) (citation omitted and emphasis added). 5 Here, Orange County does not have a significant protectable interest because a state's 6 political subdivision lacks standing under federal law to challenge a state statute's 7 constitutionality. South Lake Tahoe v. Cal. Tahoe Regional Planning Agency, 625 F.2d 231, 233- 8 34 (9th Cir. 1980). Despite some other circuit's willingness to consider exceptions to this general 9 rule, the Ninth Circuit recognizes no exceptions. Burbank-Glendale-Pasadena Airport Auth. v. IO City ofBurbank, 136 F.3d 1360, 1363-64 (9th Cir. 1998) (citing out-of-circuit decisions that 11 permitted Supremacy Clause challenges or suggested standing in some other circumstances, but 12 noting that Ninth Circuit has not adopted them). The Ninth Circuit "has not recognized any 13 exception to the per se rule, and the broad language of South Lake Tahoe appears to foreclose the 14 possibility of ... doing so." Id. at 1364 (citing S. Lake Tahoe, 625 F.2d at 233 (explaining that 15 "political subdivisions" of a state lack standing to challenge statutes of the state itself, or one of 16 its political subdivisions, on "constitutional grounds")). In fact, the complaint in South Lake 17 Tahoe included a Supremacy Clause claim, just as Orange County's proposed complaint does. 18 S. Lake Tahoe, 625 F.2d at 233. 19 The Sheriff cannot circumvent this rule by requesting to intervene personally. To the 20 degree that the Sheriff seeks to represent the County's interests, her "claims would be barred" 21 along with the County's. S. Lake Tahoe, 625 F.2d at 237. As to any independent claims brought 22 by the Sheriff, she lacks standing for her effectively "abstract constitutional grievances." Id. 23 at 238. Without an adequate showing that she "has sustained or is immediately in danger of 24 sustaining some direct injury as the result of the challenged statute or official conduct," she 25 cannot demonstrate standing. Id. (quoting O'Shea v. Littleton, 414 U.S. 488,494 (1974)) (internal 26 quotation marks omitted). "To confer standing on public officials because they wish not to 27 enforce a statute due to private constitutional predilections, or because their decision not to 28 enforce the statute may result in criminal liability, would convert all officials charged with 4 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) executing statutes into potential litigants, or attorneys general, as to laws within their charge." Id. 2 Supreme Court precedent precludes this. Schlesinger v. Reservists Comm. to Stop the War, 418 3 U.S. 208 (1974); United States v. Richardson, 418 U.S. 166 (1974)). 4 Even if Orange County could assert a significant protectable interest, the interest it asserts 5 is not threatened by the laws at issue here. Orange County alleges that it is prohibited from 6 providing release dates to federal immigration officials, but state law actually allows the 7 provision of release dates if"that information is available to the public." Cal. Gov't Code 8 § 7284.6(a)(l)(c). Indeed, the Attorney General's bulletin for SB 54 accepts the practice of 9 posting release dates. (Deel. R. Peterson Supp. OC Mot., Ex. 7 (Information Bulletin No. DLE- 10 2018-01, dated Mar. 28, 2018), Apr. 20, 2018, ECFNo. 59-10 at 6 (disclosure of a person's 11 release date is permitted if "[t]he information is available to the public").) 12 Because providing release dates is not prohibited by the challenged laws, the notion that the 13 Sheriff or County could be subject to civil or criminal liability for failing to comply with state law 14 is "entirely speculative" because they have an '"available course of action which subjects them to 15 no concrete adverse consequences"'-that is, complying with the state law. S. Lake Tahoe, 625 16 F.2d at 237; Drake v. Obama, 664 F.3d 774, 780 (9th Cir. 2011) (holding that the plaintiff failed 17 to assert a concrete injury because he could avoid military discipline by obeying the orders of the 18 Commander in Chief). Thus, there is no showing of actual or imminent danger here sufficient to 19 show a protectable interest justifying intervention. 20 The lack of a significant protectable interest is fatal to Orange County's application, and the 21 Court therefore should deny it for this reason alone. Nevertheless, and as explained further 22 below, Orange County also has failed to show that any of the remaining factors weigh in its favor, 23 much less all of them. 24 25 B. Orange County Cannot Rebut the Presumption of Adequate Representation by the Federal Government "The most important factor in determining the adequacy of representation is how the 26 interest compares with the interests of existing parties." Arakaki, 324 F .3d at 1086 (citation 27 omitted). The three factors for evaluating adequacy are: "( l) whether the interest of a present 28 5 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) 1 party is such that it will undoubtedly make all of a proposed intervenor's arguments; (2) whether 2 the present party is capable and willing to make such arguments; and (3) whether a proposed 3 intervenor would offer any necessary elements to the proceeding that _other parties would 4 neglect." Id. (citing California v. Tahoe Reg'/ Planning Agency, 792 F.2d 775, 778 (9th Cir. 5 1986)). "Where the party and the proposed intervenor share the same 'ultimate objective,' a 6 presumption of adequacy of representation applies, and the intervenor can rebut that presumption 7 only with a 'compelling showing' to the contrary."' Perry, 587 F.3d at 951; accord Freedom 8 from Religion Found., 644 F.3d at 841 (quoting same). "[M]ere differences in litigation strategy 9 are not enough to justify intervention as a matter of right." Id. at 954 (internal brackets and 10 quotation marks omitted) (quoting United States v. City ofLos Angeles, 288 F.3d 391, 402-03 11 (9th Cir. 2002); Arakaki, 324 F.3d at 1087; Nw. Forest Res. Council v. Glickman, 82 F.3d 825, 12 838 (9th Cir. 1996) (explaining that "minor differences in opinion" between patties and proposed 13 intervenor fail to demonstrate inadequacy of representation). 14 The federal government will presumably provide adequate representation of Orange 15 County's interests because they share the same ultimate objective-to overturn SB 54 and 16 AB 103. This presumption is especially strong in situations such as here, where the federal 17 government purports to advance a congressional directive. See Freedom from Religion Found., 18 644 F.3d at 841 ("This presumption of adequacy is 'nowhere more applicable than in a case 19 where the Department of Justice deploys its formidable resources to defend the constitutionality 20 of a congressional enactment."') (quoting California ex rel. Lockyer v. United States, 450 F.3d 21 436, 444 (9th Cir. 2006)). Here, the federal government has more than sufficient means and 22 motivation to challenge the California statutes, and the presumption of adequacy applies. And 23 "when one of the parties is an arm or agency of the government, and the case concerns a matter of 24 'sovereign interest,' the bar [of adequate representation] is raised, because in such cases the 25 government is 'presumed to represent the interests of all its citizens."' Mausoifv. Babbitt, 85 26 F.3d 1295, 1303 (8th Cir. 1996) (quoting Mille Lacs Band a/Chippewa Indians v. Minnesota, 989 27 F.2d 994, 1000 (8th Cir. 1993)); Freedom from Religion Found., 644 F.3d at 841-43 (determining 28 that the putative intervenor failed to provide "a compelling showing" that either the federal 6 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: l 8-cv-00490-JAM-KJN) 1 government or the California government would not adequately defend the federal and state laws 2 at issue in the case); United States v. Hooker Chems. & Plastics Corp., 749 F.2d 968,987 (2nd 3 Cir. 1984) ("[I]t is proper to require a strong showing of inadequate representation before 4 permitting intervenors to disrupt the government's exclusive control over the court of its 5 litigation."). The existing parties in this litigation are government entities representing their 6 "sovereign interests." There is nothing that Orange County can do to enhance this litigation or 7 help resolve the action on the merits. 8 Orange County argues that its interests differ materially from the federal government, 9 which is focused on preemption and national immigration laws. (OC Mot. 12:22-24, 14:15-16, 10 25-28.) Orange County seeks to intervene to address the rights of its citizens and is concerned 11 with the application of state laws on the local level. (Id. at 12: 14-28.) Orange County specifies 12 the "nexus of protecting the rights of their local citizens and dealing with their obligations in 13 relation to the conflicting state and federal laws." (Id. at 12:16-18.) It also asserts that its 14 interests are separate from those of the federal government because the Attorney General has 15 made demands on Orange County regarding its jail facilities and records, and allegedly threatened 16 Orange County for complying with federal law. (Id. at 12:18-23.) 17 But the federal government has already advanced the issues that Orange County raises. ~~ 18 (See, e.g., Comp!. 30 (noting that Department of Homeland Security enters into contracts for 19 detention with local governments) and 50-59 (noting restrictions that state laws impose on state 20 and local law enforcement's cooperation with federal officials); Mot. for Prelim Inj. 25:11-26:15 21 (advocating for consultation between federal and state officials in immigration enforcement and 22 arguing that SB 54 "deliberately seeks to undermine" that cooperation), 32:19-33:7 (arguing that 23 state laws impair the federal government's "ability to locate, detain, prosecute, and remove aliens 24 who pose risks to the safety and security of our Nation's citizens"), 36:24-26 ("California 25 effectively requires its subdivisions to release dangerous criminal aliens to the public rather than 26 transfer them back to DHS custody upon release").) Most importantly, if the federal government 27 succeeds on the preemption issue, it will resolve all of Orange County's claims. 28 7 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: l 8-cv-00490-JAM-KJN) Orange County has not and cannot show that the originator of this action and the ~ 2; Proposed Comp!. ~ 2 "preeminent authority" on immigration matters (Comp!. 1) would 3 abandon potentially meritorious arguments or otherwise veer from its ultimate goal of overturning 4 the state laws at issue here. See, e.g., Lockyer, 450 F.3d at 444 ("In order to make a 'very 5 compelling showing' of the government's inadequacy, the proposed intervenor must demonstrate 6 a likelihood that the government will abandon or concede a potentially meritorious reading of the 7 statute."). At best, Orange County offers a modified litigation strategy in this case. But different 8 strategies are not enough to rebut the presumption of adequacy. Perry, 587 F.3d at 954; Arakaki, 9 324 F.3d at 1087. Even assuming Orange County brings a unique perspective to this litigation, 10 the issues in this case are purely legal, and permitting intervention will not aid in adjudication of 11 this case. See Astiana v. Hain Celestial Group, Inc., 783 F.3d 753, 757 (9th Cir. 2015); Sales 12 Hydro Assocs. v. Maughn, 985 F.2d 451,454 (9th Cir. 1993) (whether federal statute preempts 13 state law is "purely legal"); Hotel Emps. & Rest. Emps. Int'/ Union v. Nevada Gaming Comm 'n, 14 984 F.2d 1507, 1513 (9th Cir. 1993) (citing Pac. Gas & Elec. Co. v. State Energy Res. Conserv. 15 & Dev. Comm 'n, 461 U.S. 190, 201 (1983) for proposition that resolution of preemption issue 16 need not await development of record). Because Orange County cannot show that its interest will 17 not be adequately represented by the federal government, it cannot be granted leave to intervene 18 under Federal Rule of Civil Procedure 24(a). 19 20 C. Intervention as a Matter of Right Is Not Warranted Because Orange County Has Other Means to Protect Its Interests If a proposed intervenor "would be substantially affected in a practical sense by the 21 determination made in an action, he should, as a general rule, be entitled to intervene." Fed. R. 22 Civ. P. 24 advisory committee's note to 1966 amendment; Sw. Ctr. For Biological Diversity, 268 23 F.3d at 822 (quoting same). Orange County's interests will not be practically impaired where 24 they have "other means" for protecting their interests. Lockyer, 450 F.3d at 442 (citing United 25 States v. Alisa/ Water Corp., 370 F.3d 915,921 (9th Cir. 2004)). Here, Orange County argues 26 that disposition of this case without their participation may impair or impede their ability to 27 protect Orange County residents or subject the Sheriff to prosecution by the Attorney General. 28 8 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) (OC Mot. I I :20-24.) They also note that monetary interests in their contract with ICE are worth 2 3 several million dollars. (Id. at I I :24-27.) But Orange County has not identified anything that it would bring to the defense of its 4 interests that the existing federal plaintiff will not employ. The federal government's complaint 5 and motion for preliminary injunction show that it is able and willing to address preemption 6 arguments and the restrictions that the state laws impose on its dealings with local governments. 7 Therefore, Orange County's interests will not be significantly impaired if intervention is denied in 8 this case. 9 ·IO Even if this Court were to accept Orange County's interests as significant and legally protectable or were to agree that the federal government will not provide adequate representation, 11 "other means" are available to protect Orange County' interests. This Court may grant Orange 12 County leave to file an amicus brief to address the issues and highlight the alleged impact of the 13 state laws on local governments. 1 See McHenryv. C.I.R., 677 F.3d 214,227 (4th Cir. 2012) 14 (denying intervention and noting that any views of JRS's interpretation of the tax code could be 15 expressed in an amicus brief); Elec. Data Sys. Fed. Corp. v. Gen. Servs. Ad.min., 629 F. Supp. 16 350,353 (D.D.C. 1986) (shortfalls in presentation of proposed intervenor's interests can be 17 "cured" by permitting an amicus brief); cf Ctr. for Biological Diversity v. Brennan, 571 F. Supp. 18 2d 1105, I 129 (N.D. Cal. 2007) (noting that Congressional leaders who are intervenor-applicants 19 may draw and release "political arrows" at any time to protect their interests). There are also 20 legislative options available to Orange County, such as the initiative process. Because Orange 2I County has other means to protect its interests, intervention as of right should be denied. 22 D. 23 Timeliness "is determined by the totality of the circumstances facing would-be intervenors, 24 with a focus on three primary factors:'(]) the stage of the proceeding at which an applicant seeks 25 to intervene; (2) the prejudice to the other parties; and (3) the reason for and length of the delay."' 26 Smith v. L.A. Unified Sch. Dist., 830 F.3d 843,854 (9th Cir. 2016) (quotingA/isal Water Corp., Orange County Does Not Show that Timing Weighs in Its Favor 27 1 28 Pa1ticipation through the amicus process makes sense as twenty-five local governments have already asserted their interests in this case through amicus briefs. 9 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) 370 F.3d at 921). The crucial date in assessing timeliness is "when the proposed intervenors 2 should have been aware that their interests would not be adequately protected by the existing 3 parties." Id. (quoting Smith v. Marsh, 194 F.3d I 045, I 052 (9th Cir. 1999)). 4 Although Orange County contends that it filed "very early on in the litigation" (OC 5 Mot. 4:22-28), this high-profile case has progressed rapidly since its inception. This is no 6 ordinary civil action, and while Orange County waited for six weeks to file its motion, the parties 7 conducted substantive discovery related to the federal government's motion for preliminary 8 injunction, and litigated discovery issues before Magistrate Judge Newman. The docket also 9 amassed nearly sixty entries, including joint briefs by nearly forty amici curiae at the time of the 10 motion to intervene (Amici Briefs, filed between Mar. 30, 2018 and Apr. 6 & 12, 2018, ECF 11 Nos. 43, 44, 48, 55-57), with many more being filed since (Amici Briefs, May 21, 2018, ECF 12 Nos. 126-140). Moreover, the parties are now deep into briefing on both a motion to dismiss and 13 a preliminary-injunction motion, with hearings on those matters scheduled soon. 14 Permitting intervention at this stage would unnecessarily complicate and protract this 15 litigation. Indeed, allowing Orange County to intervene would encourage other interested non- 16 parties to seek intervention as well, adding a level of complexity to the proceedings that would be 17 unnecessary to properly resolve the issues in the case. Orange County fails to explain why it 18 waited for six weeks, despite full knowledge of the facts and questions oflaw relevant to its 19 asserted claims. For each of these reasons, Orange County fails to show that the timing weighs in 20 its favor. 21 II. 22 PERMISSIVE INTERVENTION SHOULD BE DENIED. Courts have discretion to deny permissive intervention for reasons similar to intervention as 23 of right. Donnelly, 159 F.3d at 412. Permissive intervention may be granted where an applicant 24 shows"(!) independent grounds for jurisdiction; (2) the motion is timely; and (3) the applicant's 25 claim or defense, and the main action, have a question of law or a question of fact in common." 26 Perry, 587 F.3d at 955 (quoting Nw. Forest Res. Council, 82 F.3d at 839). If these requirements 27 are met, the court may also use its discretion to consider other factors, "including 'the nature and 28 extent of the intervenors' interest' and 'whether the intervenors' interests are adequately 10 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) represented by other parties."' Id. (quoting Spangler v. Pasadena City Ed. of Educ., 552 F.2d 2 1326, 1329 (9th Cir. 1977). Rule 24(b )(3) also requires that the court "consider whether the 3 intervention will unduly delay or prejudice the adjudication of the original parties' rights." Fed. 4 R. Civ. P. 24(b)(3); Perry, 587 F.3d at 955. 5 Here, as explained above, Orange County cannot demonstrate "independent grounds for 6 jurisdiction," given the bar against local governments' challenges to state statutes under 7 established case law, and the Sheriffs additional failure to assert a concrete injury. Moreover, 8 Orange County cannot show that its motion is timely, given the rapidly progressing litigation in 9 this case. 10 In addition, permitting intervention would also expand the scope of the litigation by 11 allowing Orange County to pursue contingent and speculative arguments. The allegations 12 relating to the Attorney General's statements about enforcing state laws, contracts with ICE, and 13 threats to public safety fall within this category. These arguments are separate from the 14 preemption issue and cannot be the subject of a separate action against the state. Nor would 15 factual development of the local issues aid in resolution of the preemption issue. Each of these 16 factors weigh against permissive intervention. 17 Rule 24(b )(3) also requires that this Court consider "whether the intervention will unduly 18 delay or prejudice the adjudication of the original parties' rights." Fed. R. Civ. P. 24(b)(3); 19 Perry, 587 F.3d at 955. The factors that support the prejudice argument equally apply to this 20 point. Permitting intervention could open the door for the fifty-seven other counties in California 21 and many more cities to join this action and add their various local interests to the case. 22 Intervention could also lead to duplicative discovery because Orange County shares 23 substantially similar interests with the federal government. Given the similarity of interests, the 24 federal government can develop a factual record encompassing the County's interests. Perry, 587 25 F.3d at 955 (finding intervention unnecessary as "each group would need to conduct discovery on 26 substantially similar issues."). Accordingly, to avoid delay and prejudice to the parties, the Court 27 should deny permissive intervention. 28 11 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) CONCLUSION 2 Based on the foregoing reasons, Orange County has not shown that ft is entitled to 3 intervention as a matter of right or permissively. Accordingly, the Court should deny the motion. 4 Dated: May 22, 2018 Respectfully Submitted, 5 XAVIER BECERRA Attorney General of California 6 MICHAEL L. NEWMAN SA TOSH! Y ANAi 7 Supervising Deputy Attorneys General 8 9 Isl Maureen C. Onyeagbako 10 MAUREEN C. 0NYEAGBAKO Deputy Attorney General Attorneys.for Defendants 11 12 13 LA2018500720 13095781.docx 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 12 Defs.' Opp'n to Mot. to Intervene by Orange Cty. & Hutchens (2: 18-cv-00490-JAM-KJN) CERTIFICATE OF SERVICE Case Name: United States v. California, et al No. 2:18-cv-00490-JAM-KJN I hereby ce1tify that on May 22, 2018, I electronically filed the following documents with the Clerk of the Court by using the CM/ECF system: DEFENDANTS' MEMORANDUM OF POINTS AND AUTHORITIES IN OPPOSITION TO MOTION TO INTERVENE BY PROPOSED INTERVENORS COUNTY OF ORANGE AND SANDRA HUTCHENS I certify that all participants in the case are registered CM/ECF users and that service will be accomplished by the CM/ECF system. I declare under penalty of perjury under the laws of the State of California the foregoing is true and correct and that this declaration was executed on May 22, 2018, at Sacramento, California. Tracie L. Campbell Declarant LA2018500720 13096016.docx Isl Tracie Campbell Signature

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