# Indiana Democratic Party v. Rokita

> District Court, S.D. Indiana · April 14, 2006 · 458 F. Supp. 2d 775

URL: https://www.frixlaw.com/law-library/cases/2568119

## Case

- **Full name:** INDIANA DEMOCRATIC PARTY, Et Al., Plaintiffs, v. Todd ROKITA, Et Al., Defendants
- **Court:** District Court, S.D. Indiana
- **Decided:** April 14, 2006
- **Citations:** 458 F. Supp. 2d 775; 2006 U.S. Dist. LEXIS 20321; 2006 WL 1005037
- **Precedential status:** Published
- **Opinion:** Opinion by Barker
- **Judges:** Barker
- **Cited by:** 31 later opinions in the Frix Law Library

## Citator (automated)

- No negative treatment found by the automated citator. That is not the same as a confirmation that the case is good law; read the citing cases.
- Full citator and citing cases: https://www.frixlaw.com/law-library/cases/2568119

## How later opinions describe it (automated extraction)

- rejecting a poll-tax challenge to Indiana’s photo-identification law, but curiously failing to cite or explicitly analyze the Twenty-Fourth Amendment

## Opinion text

ENTRY GRANTING DEFENDANTS’ MOTIONS FOR SUMMARY JUDGMENT, DENYING PLAINTIFFS’ MOTIONS FOR SUMMARY JUDGMENT, AND DENYING PLAINTIFFS’MOTIONS TO
STRIKE
1
BARKER, District Judge.
This matter is before the Court on Plaintiffs’ and Defendants’ cross motions for summary judgment. Plaintiffs have brought their constitutionally-based lawsuit seeking injunctive relief and declaratory judgment to challenge the recent enactment by the Indiana General Assembly requiring that registered voters present photo identification at the polls in order to vote, pursuant to Senate Enrolled Act No. 483, codified at Ind.Code §§ 3-5-2-40.5; 3-10-1-7.2; 3-10-8-25; scattered sections of Ind.Code ch. 3-11-8; several sections of Ind.Code art. 3-11.7; and Ind.Code § 9-24-16-10
2
(hereinafter collectively referred to as “SEA No. 483,” the “Voter ID Law,” or the “Law”). Plaintiffs contend that this law violates the First and Fourteenth Amendments of the United States Constitution as well as 42 U.S.C. § 1971 , and Article 2, Sections 1 and 2 of the Indiana Constitution.
There are two groups of plaintiffs who have brought this consolidated action: The first group is comprised of the Indiana
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Democratic Party and the Marion County Democratic Central Committee (collectively the “Democrats”); the second group (the “ICLU Plaintiffs”)
3
is comprised of two elected public officials, State Representative William Crawford and Trustee Joseph Simpson, and several nonprofit organizations: Concerned Clergy of Indianapolis (“CCI”), Indianapolis Resource Center for Independent Living (“IRCIL”), Indiana Coalition on Housing and Homeless Issues (“ICHHI”), Indianapolis Branch of the NAACP (“NAACP”), and United Senior Action of Indiana (“USA”) (collectively the “Organization Plaintiffs”). There are also two sets of defendants in this case: the Marion County Election Board (“MCEB”) and Todd Rokita, in his official capacity as Indiana Secretary of State, J. Bradley King and Kristi Robertson, in their official capacities as Co-Directors of the Indiana Election Division. In addition, the Indiana Attorney General has intervened in the case on behalf of the State of Indiana to defend the constitutionality of SEA 483.
This litigation is the result of a partisan legislative disagreement that has spilled out of the state house into the courts. Plaintiffs (with one possible exception) became engaged in this dispute while it was still being debated by the Indiana General Assembly
4
and, in moving to this judicial forum, in many respects they have failed to adapt their arguments to the legal arena. Plaintiffs, for example, have not introduced evidence of a single, individual Indiana resident who will be unable to vote as a result of SEA 483 or who will have-his or her right to vote unduly burdened by its requirements. Plaintiffs also have repeatedly advanced novel, sweeping political arguments which, if adopted, would require the invalidation, not only of SEA 483, but of other significant portions of Indiana’s election code which have previously passed constitutional muster and/or to which Plaintiffs do not actually object; indeed, they offer them as preferable alternatives to the new Voter ID Law. In so doing, Plaintiffs’ case is based on the implied assumption that the Court should give these Constitutional and statutory provisions an expansive review based on little more than their own personal and political preferences.
5
Plaintiffs have mounted a facial challenge to the validity of SEA 483, raising a variety of related issues about the Voter ID Law, including that it substantially bur
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dens the fundamental right to vote, imper-missibly discriminates between and among different classes of voters, disproportionately affects disadvantaged voters, is unconstitutionally vague, imposes a new and material requirement for voting, and was not justified by existing circumstances or evidence. Defendants deny all of these criticisms, defending the enactment of SEA 483 as being justified by legitimate legislative concern for in-person voting fraud and a reasonable exercise of the State’s constitutional power to regulate the time, place, and manner of elections. Defendants also claim that Plaintiffs lack standing to bring this attack on the statute, and that, in any event, the Secretary of State and the Co-Directors of the Indiana Election Division are not proper defendants in this action.
6
For the reasons elaborated below, we hold that SEA 483 is a constitutionally-valid, reasonable time, place, and manner restriction on voting and on voters and, therefore, we
GRANT
Defendants’ Motions for Summary Judgment and
DENY
Plaintiffs’ Motions for Summary Judgment.
Factual Background
The parties agree that there are no material facts in dispute that preclude summary judgment of this case. Even so, they have filed a total of eight summary judgment briefs, incorporating in excess of ninety pages of material facts not in dispute. In an effort to bring clarity to this deluge of data, we have grouped the facts into the following seven categories: (I) Indiana election law and procedures, (II) Requirements for obtaining photo identification documents from the BMV, (III) Evidence regarding voter fraud, (IV) Evidence about potential impacts of SEA 483 on Indiana voters, (V) the Defendants, (VI) the Plaintiffs, and (VII) the Report submitted by the Democrats’ expert, Kimball W. Brace (the “Brace Report”). There being no need to recount the voluminous facts marshaled by the parties, we have distilled and summarized the relevant facts by topic in the following section.
I. Indiana Election Law and Procedures.
There are certain aspects of Indiana election law and procedure which are relevant to this case, including: (A) Indiana constitutional provisions; (B) composition and responsibility of the precinct election board; (C) the responsibilities of the State Election Division; (D) the requirements of SEA 483; (E) the requirements and procedures for voting by absentee ballot; and (F) Indiana election law prior to enactment of SEA 483. Each aspect is addressed below.
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A.Constitutional Provisions.
Article I, section four of the United States Constitution empowers the States to determine the “Times, Places and Manner of holding Elections for Senators and Representatives,” subject to Congressional oversight. U.S. Const., art I, § 4, cl. 1.
The Indiana Constitution, Art. 2, § 2 sets out the basic requirements for voting in Indiana:
(a) A citizen of the United States, who is at least eighteen (18) years of age and who has been a resident of a precinct thirty (30) days immediately preceding an election may vote in that precinct at the election.
(b) A citizen may not be disenfranchised under subsection (a), if the citizen is entitled to vote in a precinct under subsection (c) or federal law.
(c) The General Assembly may provide that a citizen who ceases to be a resident of a precinct before an election may vote in a precinct where the citizen previously resided if, on the date of the election, the citizen’s name appears on the registration rolls for the precinct.
Indiana Constitution, Art. 2 § 14 allows the Indiana General Assembly to provide for registration of persons otherwise entitled to vote. Pursuant to Indiana Code §§ 3-7-13-1 through 3-7-24-17, and the National Voter Registration Act, 42 U.S.C. § 1973gg, there are a host of ways individuals may register to vote at various venues and offices including registering by mail. There is no requirement that identification be shown when one is registering in-person to vote. Deposition of Marion County Clerk Doris Ann Sadler (“Sadler Dep.”) at 8-9. The registration form is signed under penalties of perjury.
Id.
at 9. There is also no requirement that an individual who is registering to vote by mail provide identification.
See
Ind.Code § 3-7-22-1, et seq.
B.
Precinct Election Board.
At polling places on election day, there are five local election officials present: an inspector, appointed by the political party whose candidate for Secretary of State received the most votes in the last election in the county; two clerks, one from each major party, who are in charge of the poll book and who check voters in and issue the ballots; and, two judges, one from each major party, who administer the voting machine. Sadler Dep. at 10-11. Each County Election Board appoints these officials. Ind.Code §§ 3-6-6-1, 2. The inspector and the judges jointly comprise the precinct election or poll board that resolves disputes that arise during the polling process. Indiana Code § 3-6-6-1; Sadler Dep. at 11.
C.
Indiana Election Division.
The Indiana Election Division provides advice and instruction to county election officials and publishes information and forms for use in Indiana elections.
See
Ind.Code § 3-6-4.2-1, et seq.; Deposition of Co-Director J. Bradley King, Attachment 2 (“King Dep.”) at 7. The Division has no direct role in enforcing election laws, nor does the Secretary of State. However, in providing advice and instruction to county election officials, the Election Division, in conjunction with the Secretary of State, has instituted several programs to educate both voters and poll workers about the requirements of SEA 483.
7
The Election Division’s manuals and training, however, are advisory only, as the administration of any election and
*786
its oversight is the responsibility of the County Election Board. Ind.Code § 3-6-15-14; Sadler Dep. at 6. County Election Boards can take, and have taken, positions about election laws and procedures contrary to the position advanced by the State Election Division.
See, e.g.,
Sadler Dep. at 52.
D.
Requirements of SEA J>83.
The Voter ID Law requires citizens voting in-person at precinct polling places on election day, or casting an absentee ballot in person at a county clerk’s office prior to election day, to present election officials with some form of valid photo identification, issued by the United States or the State of Indiana. Ind.Code § 3-11-8-25.1. This photo identification card must contain the following information and meet the following conditions:
(1) A photograph of the individual to whom the “proof of identification” was issued;
(2) The name of the individual to whom the document was issued, which “conforms to the name in the individual’s voter registration record”;
(3) An expiration date;
(4) The identification must be current or have expired after the date of the most recent general election; and
(5) The “proof of identification” must have been “issued by the United States or the state of Indiana.”
Ind.Code § 3-5-2-40.5.
Pursuant to SEA 483, Indiana voters are required to produce acceptable photo identification before signing the poll book. Ind.Code § 3-ll-8-25.1(c). SEA 483 applies to voting at both primary and general elections. Ind.Code §§ 3-10-1-7.2; 3 — 11— 8-25.1. SEA 483 does not apply, however, to receiving and to casting an absentee ballot sent by the county to the voter through the U.S. mail (hereinafter the “absentee ballot exception” or the “absentee exception”); or to “a voter who votes in person at a precinct polling place that is located at a state licensed care facility where the voter resides” (hereinafter the “nursing home exception”). Ind.Code §§ 3-10-l-7.2(e), 3 — 11—8—25.1 (f); 3-11-10-1.2. If a voter falls within either of these exceptions, the voter is not required to provide any proof of identification in order to vote in-person and to have his vote counted. King Dep. at 98-99; Robertson Dep. at 36.
If a voter does not produce acceptable photo identification at the polls, a member of the precinct election board “shall challenge the voter.” Ind.Code § 3-11-8-25.1(d)(2).
8
If so challenged, the voter may sign an affidavit attesting to the voter’s right to vote in that precinct, whereupon the voter may then sign the poll book and cast a provisional ballot. Ind.Code § 3-ll-8-25.1(e). In order to have the provisional ballot counted, the voter who is challenged for failure to provide acceptable photo identification and casts a provisional ballot must appear before the circuit court clerk or the county election board by noon on the second Monday following the election to prove the voter’s identity. Ind. Code § 3 -ll-7.5-2.5(a). If at that point the voter provides acceptable photo identification and executes an affidavit that the voter is the same individual who cast the provisional ballot on election day, then the voter’s provisional ballot will be opened, processed, and counted so long as there are no other non-identification challenges. Ind.Code §§ 3-11.7-5-1; 3-11.7-5-2.5.
The provisional ballot of a voter who is challenged for failing to show acceptable
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photo identification at the polls on election day may also be opened and processed if, by noon on the second Monday following election day, the voter appears before the county clerk of courts or the county election board and executes an affidavit that the person is the same as the person who cast the provisional ballot and either (1) the person is indigent and is “unable to obtain proof of identification without payment of a fee” (hereinafter the “indigent exception” or the “indigency exception”); or (2) has a religious objection to being photographed. Ind.Code §§ 3-11.7-5-1; 3-11.7-5-2.5(c). The indigency and religious objection affidavits are not available for voters to sign at the polls; they are available only at election board offices after Election Day. King Dep. at 73; Robertson Dep. at 37.
If, notwithstanding a voter’s attempt to validate a provisional ballot using one of these methods, the election board determines that the voter’s provisional ballot is not valid, the voter may file a petition for judicial review in the local Superior or Circuit court.
9
Ultimately, therefore, the meaning of any particular term within the Voter ID Law is subject to the interpretation of the Indiana Supreme Court.
E.
Voting by Absentee Ballot.
“A
voter who wants to vote by absentee ballot must apply to the county election board for an official absentee ballot.” Ind. Code § 3-11-4-2 . The absentee ballot application must be received by the circuit court clerk no earlier than ninety (90) days before election day and no later than the date between midnight on the eighth day before election day or noon on election day, depending on how the voter registered to vote, how the application is delivered, and how the absentee ballot is requested to be delivered. Ind.Code § 3-11-4-3.
10
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F.
Indiana Election Law Prior to SEA 183.
Under prior Indiana law, a voter seeking to vote in-person at a polling place would be required to present himself or herself to the clerks and sign the poll book. Sad-ler Dep. at 11; King Dep. at 28. There was no requirement that a voter show any form of identification in order to vote after the prospective voter signed in with the clerk. Sadler Dep. at ll.
11
At that point, there would generally be a photographic copy of the signature that would be compared. Sadler Dep. at 11. Any member of precinct election boards (the inspector and two judges) could challenge a voter suspected of misrepresenting his identity for voting purposes, as could political party challengers.
See
King Dep. at 44, 46, 89. Either political party’s clerk could also challenge a voter based on a comparison of the voter’s signature to the signature contained in the voter registration records. King Dep. at 44. A voter who misrepresented his identity for purposes of casting a fraudulent ballot is now and has for decades been subject to a felony charge and conviction. Ind.Code § 3-14-2-16; King Dep. at 32.
Prior to 2004, Indiana law did not provide for the casting of a “provisional” ballot. Instead, a member of the precinct election board, or the election clerk, who wished to challenge the eligibility of a voter would be required to swear out an affidavit under the penalties of perjury.
See
King Dep. at 49, Ex. 2. The challenged voter could then swear out a counter-affidavit which had to contain the following information under the penalties of perjury: (1) the voter’s name, (2) date of birth, (3) present address, (4) prior address (if applicable), (5) that the voter is a citizen, (6) that the voter has resided in the precinct for at least 30 days, and (7) that the voter has not already voted in any other precinct.
See
King Dep. at 50-51; Ex. 2; Ind.Code § 3-11-8-23. The voter would then be permitted to vote using a regular ballot after signing the poll book. King Dep. at 49. The challenging affidavits were required to be sent to the prosecuting attorney for investigation. King Dep. at 49, 56-57; Ind.Code §§ 3-14-5-2 and 3.
12
In 2004, following the passage and implementation of the Help America Vote Act of 2002 (“HAVA”), Public Law 107-252, provisional voting for the first time became an available option. Provisional ballots are reviewed by the county election board following election day to determine whether they should be counted. Ind. Code § 3-11.7-5 -2.
In the 2004 general election, 82% of the provisional ballots cast in Marion County were not counted. Statewide, only about 15% of all provisional ballots were counted. Marion County Clerk Doris Ann Sadler, by
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affidavit, explained that the primary reasons for provisional ballots were: first, because of “poll worker or voter error in filling out the paperwork;” second, because the person “simply was not registered to vote;” and, third, “a person was in the wrong polling place in the wrong precinct and insisted ... on voting a provisional ballot in that precinct.” Sadler Dep. at 15-17, 20, 44.
In her deposition, Clerk Sadler also attested to the fact that challenges can take up to one-half $) hour to resolve, especially if lines at the polls are long. Sadler Dep. 19. When asked whether she believed the new requirements imposed on voters and precinct board workers by SEA 483 would slow down the voting process, Clerk Sadler opined that she did not think so, “unless there’s a huge challenge effort made by either of the [political] parties, which is typically where those challenges are generated.” Sadler Dep. at 48-49. Sadler agreed that the opportunities for presenting challenges has increased as a result of the photo identification requirements of SEA 488.
II. Requirements for Obtaining Photo Identification Documents.
As indicated above, in order to vote in person, Indiana voters who do not reside in nursing homes, must present a current photo identification, with ■ an expiration date, issued by the State or federal government. The federally issued identification includes passports as well as military identification. King Dep. at 60. State identification could for example, include university-issued identification cards, if the cards contain an expiration date. King Dep. at 61. The parties agree that the most likely source of acceptable identification is either drivers’ licenses or identification cards issued by the Indiana Bureau of Motor Vehicles (“BMV”); indeed, the text of SEA 483 focuses on identification cards issued by the BMV.
See,
SEA 483 §§ 15-18. We therefore begin by reviewing the requirements for obtaining such photo identification from the BMV, and then examine the tangential requirements for obtaining an Indiana birth certificate.
A.
Obtaining Photo Identification from the BMV.
In order to obtain a driver’s license or identification card from the BMV, an applicant must personally visit a BMV branch office
13
and produce certain forms of identification.
14
BMV rules require that a first-time Indiana driver’s license or non-license identification-card applicant
15
pres
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ent, among other things, either: one primary document, one secondary document, and one proof of Indiana residency requirement or two primary documents and one proof of Indiana residency.
16
Deposition of BMV Designee Carol Redman (“Redman Dep.”) at 5, Ex. 2. The requirements for obtaining each of these documents are laid out below, as well as some of the difficulties in obtaining photo identification which, have been identified by Plaintiffs.
1.
Primary Document.
A primary document used to verify identity, date of birth, and citizenship, may include a United States Birth Certificate with a stamp or seal, documents showing that the person was born abroad as an American citizen or is a naturalized citizen, a passport, or a U.S. military or merchant marine photo identification. Redman Dep. Ex. 2 (“BMV Identification Document List”).
2.
Secondary Document.
Secondary documents are currently defined as:
— Bank Statement
— Certified Academic Transcript
— Confirmation of Registration Letter from an Educational Institution
— Court Documentation with Stamp or Seal
— Foreign Consulate-Issued ID Card
— Government-Issuéd License or ID Card
■ — ■ Hoosier RX Plan Card [with] imprinted name
•— Hoosier Works Card [with] imprinted name
— Indiana County Pre-sentence Investigation Report with clerk stamp or seal
— Indiana gun permit (Valid)
— Indiana probation photo ID card
— Indiana professional/occupational license (Valid)
—■ Indiana BMV Title Application [with] BMV valid stamp
— Indiana BMV Title or Registration (Valid)
— Insurance Card
— Letter from Probation Officer or Government Caseworker on letterhead stationary, certified with court or government stamp or seal with the applicant’s name, and signature of the probation officer or caseworker
■— Major Credit or Bank Card (MC, VISA, AE, and Discover ONLYXvalid)
— Original Out^of-State Driving Record
— Out-of-State Driver License, Identification Card or Permit with photograph
— Pay Check Stub — Computer generated
— Prison Release Documentation/Photo ID
— School Report Card (dated within 12 mos.)
— School Photo ID Card
— Selective Service Acknowledgment Card — SSS Form 3A
— U.S. Divorce Decree certified by court of law with stamp or seal
■— U.S. Application of Marriage/Record of Marriage (Certified copy). Must contain the stamped seal and be signed by clerk.
— U.S. District Court Pre-Sentence Investigation Report with clerk stamp or seal
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— U.S. Military Discharge or DD214 Separation papers
— U.S. Veterans Universal Access ID card with photo
— W-2 Form (Federal or State) of 1099 Federal tax form.
BMV Identification Document List
3.
Proof of Indiana Residency Document.
The proof of Indiana residency requires that an applicant present some proof of a residential address, although a post office box is not acceptable. Redman Dep. Ex. 2. Proof of residency documents include any primary or secondary document that contains the applicant’s name and residential address as well as documents including, but not limited to:
— Child Support Check from the [Family and Social Services Administration] with name and address of the applicant attached
— Change of Address Confirmation form (CNL 107) from U.S. Postal Service listing old and new address
— CURRENT Bill or Benefit Statement (within 60 days of issuance)
— Indiana Driver’s License, Identification Card or Permit with Photograph
— Indiana Property Deed or Tax Assessment
— Indiana Residency Affidavit
— Voter Registration Card
BMV Identification Document List.
17
In order to obtain an identification card or license from the BMV, an applicant must personally appear at the branch. Redman Dep. at 8. An identification card costs $10 and a driver’s license costs $14. The identification is valid for four years. Redman Dep. at 13. As of January 1, 2006, a driver’s license expires after six years.
See
Ind.Code § 9-234-12-l(c). SEA 483 provides that an individual who does not have a valid driver’s license and will be at least eighteen (18) years of age at the next general, municipal, or special election must be issued an identification card from the BMV without cost. Ind. Code § 9-24-16-10 ; Affidavit of BMV Assistant Commissioner Stephen Leak at ¶¶ 8-11.
4.
Potential Difficulties in Obtaining Photo Identification from the BMV.
The BMV is aware that there are persons who do not currently have a driver’s license or identification card and who are, or who will be, eligible to vote at the next election. Redman Dep. at 21-22. The BMV, however, has not been able to determine the approximate number of Indiana residents of voting age who are without an Indiana driver’s license or identification card.
See
Redman Dep. at 22-30. The BMV is also apparently aware of persons who have tried to obtain a driver’s license or identification card and have been turned away because they do not have an original birth certificate or because they do not have the required secondary documentation or proof of Indiana residency. Red-man Dep. at 18.
18
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Plaintiffs contend that obtaining photo identification from the BMV can be a difficult and frustrating process. For example, we were told of one Theresa Clem-ente, a 78-year-old woman residing in Fort Wayne but originally from Massachusetts, who recently attempted to obtain a photo ID from the BMV so she could vote in Indiana. Clemente Aff. ¶¶ 1-8. After three separate visits to the BMV over a period of many weeks and obtaining a certified copy of her birth certificate, the BMV still refused to issue her photographic identification purportedly on the grounds that her birth certificate contains only her maiden name. Clemente Aff. ¶¶ 1-8.
Plaintiffs also note that the BMV has recently closed numerous branches throughout the State, thereby increasing travel costs for some individuals in order to reach a branch.
See
Redmond Dep. 34.
B.
Requirements for obtaining an Indiana birth certificate.
A citizen born in Indiana who needs to obtain a birth certificate as a primary document for obtaining a license or non-license photo-identification card may obtain a birth certificate from either the Indiana Department of Health (“IDOH”) or the Department of Health of the county of birth.
See
State’s Exs. 48, 49. By virtue of a statutory amendment in 2003, the IDOH must charge a fee of $10.00 for conducting a birth-certificate search. Ind. Code §§ 16-37-1-11 ; 16-37-1-11.5. Local health departments establish and collect fees for records which are not to exceed the cost of the services provided. Ind. Code § 16-20-1-27 . Fees vary among county departments of health from $2.00 to $10.00.
See
State’s Ex. 49.
19
In its “frequently-asked questions” publication, the IDOH states that applicants may present a combination of non-photo identification documents to obtain a birth certificate, including a Social Security card, a credit card, a bank card, a motor vehicle registration, a housing lease, a military identification, an Indiana professional license, an original employment application, and a voter registration card.
See
http://www.in. gov/isdh/bdcertifs/faq.htm# VitalFAQ6.
20
III. Voter Fraud.
The parties have submitted evidence that paints contrasting pictures concerning whether in-person voter fraud is or should be a concern in Indiana. The arguments concerning voter fraud tend to unfold as follows: (A) Plaintiffs note that there is no evidence of any instance of in-person voter fraud in Indiana; (B) Defendants counter that, even though there is no evidence of voter fraud as such, there is significant inflation in the Indiana voter registration lists; and in any event, based on reports documenting cases of in-person voter from other states, (C) Defendants maintain that voter fraud is or should be a concern in Indiana.
A.
No Documentation of Instances of In-Person Voter Fraud in Indiana.
Defendants concede that “the State of Indiana is not aware of any incidents or person attempting vote, or voting, at a voting place with fraudulent or otherwise
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false identification.” ICLU Ex. 18 (“MCEB’s Response to Interrogatories”) at ¶ 2. Plaintiffs further note that no voter in Indiana history has ever been formally charged with any sort of crime related to impersonating someone else for purposes of voting. King Dep. at 95. Plaintiffs submitted testimony from several veteran poll watchers who confirmed they have never seen any instances of attempted in-person voter fraud in Indiana.
See
Haith Aff. at ¶ 17; Crawford Dep. at 45 and Ex. B at 10; Bohannan Dep. Ex. H at 12. Plaintiffs further contend that no evidence of in-person voting fraud was presented to the Indiana General Assembly during the legislative process leading up to the enactment of SEA 483.
See
Mahern Aff. ¶¶ 2-3. Plaintiffs do note, however, there is evidence of absentee voter fraud in Indiana and that pervasive fraud regarding absentee balloting led the Indiana Supreme Court recently to vacate the results of the mayoral election in East Chicago.
See Pabey v. Pastrick,
816 N.E.2d 1138 (Ind. 2004).
B.
Inflation of Indiana’s Voter Registration Rolls.
Defendants submitted evidence that Indiana’s voter registration rolls are significantly inflated. Defendants hired Clark Benson, a nationally recognized expert in the collection and analysis of voter-registration and population data, who conducted an examination of Indiana’s voter registration lists and concluded that they are among the most highly inflated in the nation. State’s Ex. 27 (“Benson Report”) at 9. Specifically, when Benson compared actual voter registration with self-reported registration rates, he found that there were 4.3 million registered voters in 2004, while there were only 3 million residents who reported being registered, resulting in estimated inflation of 41.4%. Benson noted Indiana had the largest discrepancy in the nation between official registration numbers and self-reported rate of registration. Benson Report at 6. Benson also reported, with a high rate of confidence, that he found at least 35,699 Indiana registered voters who are now deceased. Benson Report at 8.
21
Additionally, his research indicated that in 2004 there were 233,519 potential duplicate voter registrations. Benson Report at 9.
C.
National Reports of In-Person Voter Fraud.
The State has also produced evidence of published books and media reports discussing allegations and instances of in-person voter fraud in several other states.
See
Larry J. Sabato
&
Glenn R. Simpson,
Dirty Little Secrets
292 (1996) (noting that documentation of in-person voter fraud often occurs only when a legitimate voter at the polls hears a fraudulent voter trying to use her name, as happened to a woman in California in 1994); John Fund,
Stealing Elections
64 (2004) (noting in the St. Louis fourteen dead people “voted” in the 2000); State’s Ex. 2, p. 23 (describing recent U.S. Department of Justice investigations into election fraud, which, as of August 2005, had resulted in 52 convictions); State’s Ex. 3, pp. 4-5, 19 (court findings that in the State of Washington’s 2004 gubernatorial elections more than 1,600 fraudulently cast ballots, including 19 ballots cast by dead voters, six double votes, and 77 votes unaccounted for on the registration rolls); State’s Ex. 4, pp. 2-4 (joint task force findings describing instances in the 2004 elections in Wisconsin where individuals voted twice by using fake names and ad
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dresses and citizens who told investigators that they did not vote, even though the report showed that someone voted in their names); State’s Ex. 6, pp. 42-43 and State’s Ex. 7, pp. 3-6 (describing an investigation by the Missouri Secretary of State after the 2000 elections of two of counties which revealed over 1,000 fraudulent ballots, including at least 68 multiple votes, 14 dead person votes, and 79 vacant-lot voters, with another 200 sites requesting further review); State’s Ex. 10, pp. 1-2 (newspaper reports that dozens, possibly hundreds, of people who lived outside the city limits illegally cast votes at the polls in Miami’s mayoral elections in 1997); State’s Ex. 11, p. 1-2 (Johns Hopkins University study which found that in Maryland at least 63 votes were cast in the name of deceased individuals between the 1980’s and 2004). The State has produced newspaper reports recounting that in recent elections votes were cast in the names of dead people in Georgia, Illinois, and Pennsylvania.
See
State’s Exs. 12-14, 18. The report from the Commission on Federal Election Reform (known as the Baker-Carter Commission) recently concluded that “there is no doubt that [in-person voter fraud] occurs.” State’s Ex. 1, p. 18.
22
D.
The Impact of the Perception of Voter Fraud on the Confidence of the Electorate.
The State submitted several polls indicating voter concern about election fraud and support for photo identification requirements at the polls. For example, prior to the 2000 election, a Rasmussen Reports poll showed that 59% of voters believed there was “a lot” or “some” fraud in elections. State’s Ex. 22, p. 1. Similarly, a Gallup Poll showed that, after the 2000 election, 67% of adults nationally had only “some” or “very little” confidence in the way the votes are cast in our country. State’s Ex. 23, pp. 8-9. A 2004 Zogby Poll found that 10% of voters believe that their votes are not counted accurately (John Fund,
Stealing Elections
2 (2004)), and according to election-law scholar Richard Hasen, more than 13.6% of Americans worried that the 2004 presidential vote was unfair. State’s Ex. 24, p. 1. A Rasmussen Reports 2004 survey of 1000 likely voters, indicated that 82% of respondents (including 89% of Bush supporters and 75% of Kerry supporters) favored photo identification at the polls.
See
Fund at 5. Adding weight to these findings, the Baker-Carter Commission recently concluded that, based on its studies, the perception of fraud, “contributes to low confidence in the system.” State’s Ex. 1, p. 19.
IV. Impact of SEA 483 on Voters.
The parties again paint contrasting pictures regarding the impact of SEA 483 on Indiana voters. Defendants submitted evidence of the impact of SEA 483 when it was enforced in three municipal elections in 2005. Plaintiffs submitted evidence and testimony concerning the potential negative impacts of SEA 483 on various groups of disadvantaged voters in Indiana.
A.
Enforcement of SEA 183 in Municipal Elections.
On November 8, 2005, three municipalities enforced SEA 483 at contested local elections.
See
State’s Ex. 47 (“Bauler Aff.”) Ex. C. Unscientific exit polling data showed that of the 105 respondents, 21 voters learned about the Voter ID Law listening to the radio, 12 from watching television, 23 from direct mailings, and almost half, (49), had read about the law in
*795
the newspaper. In all, 83% of those surveyed were aware of the Voter ID Law before arriving at the polling place. Bauer Aff. Ex. C at 2. Also, in both of the towns holding regular off-year elections, the number of votes cast increased over the prior election. Bauer Aff. Ex. C at 3 (noting Cambridge City’s number of votes cast increased 10% over 2001 and Montezuma saw an increase of 98% over 2001).
B.
Potential Negative Impacts of SEA 183-
Plaintiffs identify several groups they claim will be particularly disadvantaged by the photo identification requirements of SEA 483, including homeless, low-income, elderly, disabled, and minority individuals.
Professor Marjorie Hershey of Indiana University submitted a report which states because SEA 483 increases the costs of voting through the imposition of additional requirements and barriers, it is likely to decrease voter turnout, particularly among voters of lower socio-economic status. Hershey Report at 12-17. Prof. Hershey contends that the costs imposed by SEA 483, in terms of time, transportation, fees and obtaining all of the necessary information, threaten to be most difficult for the disabled, homeless, persons with limited income, those without cars, people of color, those who are part of “language minorities,” and the elderly. Hershey Report at 17.
Plaintiffs cite a number of informal and formal surveys which tend to support Hearshey’s conclusions. Plaintiffs note a survey conducted by plaintiff Indiana Coalition on Housing and Homeless Issues (“ICHHI”) of its members, providers of services to homeless and low-income persons, in which providers of services responded that they were aware of clients who had neither licenses nor identification cards. Deposition of Michael Reinke, (“Reinke Dep.”) at 60-67, Ex. I; State’s Ex. 69 (“ICHHI Survey Responses”).
23
In this same vein, Brenda Thompson and Robert Andrew Ford, case managers at Horizon House,
24
a day center in Indianapolis for homeless persons, testified concerning the hardships they believe SEA 483 will impose on homeless individuals, noting, for example, that homeless persons often have lost all their possessions, including any identification. Ford Aff. at ¶¶ 1-5; Thompson Aff. at ¶¶ 1-5. Thompson also testified that, in her experience, homeless individuals frequently walk everywhere they go. Thus, according to Thompson:
(E)ven if they present themselves to vote and are challenged under the new identification law and are informed that in order for their ballot to count they must go get identification and then go to the Clerk’s office, or even if they were to be told that they just had to go to the Clerk’s office, homeless persons probably will not do so because of transportation difficulties.
Thompson Aff. at ¶¶ 16-17. Ford noted that, in his experience, it is “quite likely that a homeless person who is faced with a challenge to his or her ability to vote will not pursue his or her right to vote but will leave the poll rather than face a situation of confrontation.... [Ajnything which makes voting more difficult will probably deter many, if not most, homeless persons from voting.” Ford ¶¶ 17,19.
*796
Plaintiffs further note that a survey released on October 28, 2005 by AARP Indiana reports that 3% of Indiana registered voters over the age of 60 do not have a drivers license or identification card.
See
Affidavit of June Lyle and attached AARP Indiana survey. Similarly, the director of plaintiff United Senior Action of Indiana (“USA”) concludes, based on her experience with the organization and the conversations she has had over the last 16 years with her members, that there are many senior citizens who do not have either a valid license or identification card. Deposition of Michelle Niemier (“Niemier Dep.”) at 28-24.
The executive director of plaintiff Indianapolis Resource Center for Independent Living (“IRCIL”) notes that it is very common for persons with disabilities not to have identification. Deposition of Melissa Madill (“Madill Dep.”) at 13. IRCIL further contends that persons who are blind or visually impaired often do not know that their identification cards, if they have them, have expired. Madill Dep. at 47.
Plaintiffs also submitted testimony from several poll workers or poll observers who testified that in the poor and minority community in the past, when a provisional ballot did not require additional efforts on the voters’ part, prospective voters were extremely intimidated by challenges and frequently did not vote and just left the polls, even when the challenges were not meritorious.
See
Affidavit of Aaron E. Haith (“Haith Aff.”) at ¶¶ 2-10; Deposition of Roderick E. Bohannan (“Bohannan Dep.”) at 50-54; Deposition of Margie OaMey (“Oakley Dep.”) at 20-21; Deposition of Joseph Simpson (“Simpson Dep”) at 62-64. According to poll observer Aaron Haith, frequently the potential voters who are being challenged are on their way to work or on their way home to take care of families and they do not want to take the 15-30 minutes to go through the challenge process in order to vote. Haith Aff. at ¶¶ 7, II.
25
V. The Plaintiffs
There are two groups of plaintiffs in this consolidated case. The first group is comprised of the Indiana Democratic Party and the Marion County Democratic Central Committee (together, the “Democrats”), and the second (the “ICLU Plaintiffs”) is comprised of two elected public officials, State Representative William Crawford and Trustee Joseph Simpson, and several nonprofit organizations — Concerned Clergy of Indianapolis, Indianapolis Resource Center for Independent Living, Indiana Coalition on Housing and Homeless Issues, Indianapolis Branch of the NAACP, and United Senior Action of Indiana (collectively the “Organization Plaintiffs”).
26
The relevant facts about each group are as follows.
A.
The Democrats.
According to their Second Amended Complaint, these two plaintiff groups are “political party organizations dedicated to electing candidates of the Democratic Party to public office in Marion County, and throughout Indiana, and with which are associated hundreds of thousands of registered voters who regularly support and vote for candidates who are affiliated with the Democratic Party.” Democrats’ Sec
*797
ond Am. Compl. at ¶ 2. The Democrats claim that all voters who cast ballots for a Democratic Party hopeful in a primary election “associate[] themselves with the Democratic Party.” State’s Ex. 50 (“Indiana Democratic Party’s Responses to Request for Production”) at ¶ 2.
In response to whether it has any members, the Indiana Democratic Party observed that “[i]n Indiana, voters do not ‘register’ as members of a political party but express their allegiance to a political party by asking for that party’s ballot at the primary election, attending party meetings or events, contributing to the party’s candidates and casting votes for candidates in the general election, among other things.”
See Id.
at ¶ 3. According to the Rules of the Indiana Democratic Party, “any legally qualified Indiana voter who supports the purposes of the Party may be a member,”
see
State’s Ex. 52 (“Rules of the Indiana Democratic Party”) at 2, but those rules do not otherwise state how such a voter voluntarily becomes a member or voluntarily ceases to be a member.
The Marion County Democratic Central Committee (MCDCC) is currently comprised of four members: Edward Treacy, Billie Breaux, Barbara Lawrence, and Tony Duncan. The MCDCC does not have bylaws or policies acknowledging the existence of any other members. State’s Ex. 53 (“MCDCC Responses to Defendant’s Interrogatories”) at ¶2. Edward Treacy, the Chairperson of the Marion County Democratic Central Committee (“MCDCC”), has provided affidavit testimony that the Photo ID Law will require the MCDCC to divert its limited resources away from its primary activities, such as “get-out-the-vote” efforts and helping to elect its candidates to public office, into efforts to inform its voters of the Law’s photo identification requirements and to ensure that it is not selectively enforced during the 2006 general election. Democrats’ Ex. 23.
Regarding the identity of individuals “associated with the Democratic Party” who would allegedly be injured by the implementation of the Voter ID Law, the Democrats initially identified nine citizens: David Harrison, Constance Andrews, Barbara J. Smith, Imogene M. Chapman, Ernest L. Pruden, Helen L. Wright, Lois E. Holland, Ronald Yancey, and Bettie L. Weiss. Indiana Democratic Party’s Responses to Request for Production at ¶ 8; MCDCC Responses to Defendant’s Interrogatories at ¶ 8. In a supplemental filing, the Democrats identified three additional individuals associated with the Democratic Party who would allegedly be injured. Those individuals are: Christina Bohlan-der, Thelma Ruth Hunter, and Corinne Collins.
See
State’s Ex. 70 (collectively these twelve individuals are hereinafter referred to as the “Named Individuals”). The Democrats identified these allegedly injured citizens by examining responses to a post card survey of their Marion County poll workers. Indiana Democratic Party’s Responses to Request for Production at ¶ 7. Unfortunately, Bettie Weiss has now died and no information was submitted to the Court concerning either Christina Boh-lander or Corinne Collins. Following are the pertinent details concerning the remaining nine individuals:
1.
The Named Individuals.
Constance Andrews is an employee of the Bureau of Motor Vehicles who frequently works at the polls on election day as a Judge for the Democratic Party. Andrews Dep. at 7, 13. Although Ms. Andrews declared in response to the Democrats’ postcard survey that she did not have a driver’s license or any other government-issued photo identification, at her deposition she testified that she did indeed
*798
have a valid driver’s license. When asked why she responded as she did to the survey, she said “I may have made a mistake there.” Andrews Dep. at 17-18.
Imogene Chapman is an 84-year-old woman who resides in Marion County and has worked at the polls for fifteen years. State’s Ex. 57 (“Chapman Dep.”) at 6-7, 10. She has no license or photo identification from either Indiana or the federal government. Ms. Chapman has previously voted absentee but said she did not like to. Ms. Chapman splits her ticket between the Democrats and other parties when she can. Ms. Chapman said she believes SEA 483 “is an infringement of my Civil Rights to vote.” Chapman Dep. at 6-7, 10, 13.
Theresa Clemente is 78 years old and, although now residing in Indiana, she previously lived in Boston. In her Affidavit, she described how, after paying $28.00 to obtain a certified copy of her birth certifí-cate from the State of Massachusetts and making three trips to the BMV, she had still not received a photo ID.
See generally
Clemente Aff.
David Harrison, a Marion County resident, is a 75-year-old military veteran. State’s Ex. 5 (“Harrison Dep.”) at 7-8, 17. He is a registered voter but has neither a license nor identification card. He also does not have an original birth certificate or the money to secure a birth certificate, although he thinks a church might help him by giving him the money. He does not want to vote absentee because he does not trust that form of voting. Harrison Dep. at 12-16.
Lois Holland is 69 years of age and lives in Indianapolis. State’s Ex. 59 (“Holland Dep.”) at 4-5. She has no identification containing her photograph. The only birth certificate that she has is copied from the family Bible. She votes in both the primary and general elections. Holland Dep. at 13, 16, 19. Ms. Holland works at the polls as a clerk for the Democratic Party and, as a result, has voted absentee in the past. Holland Dep. at 9. Ms. Holland says she usually votes for Democrats but does not always vote a straight-party ticket. Holland Dep. at 13,15.
Thelma Ruth Hunter is an 85-year-old woman who has resided and voted in person in Indianapolis her entire life. She was born at home in Tennessee and to her knowledge, no current certificate of her birth exists. Ms. Hunter has attempted to obtain a “delayed certificate of birth” from Tennessee but has been unable to do so. Hunter claims she is a longtime supporter of Democratic candidates.
See generally
Hunter Aff.
Ernest Pruden is a 74-year-old Marion County resident who has worked at the polls previously and does not have the necessary identification to vote under SEA 483. State’s Ex. 58 (“Pruden Dep.”) at 7, 12-15. He reports that he does not have a birth certificate and is uncertain as to what he would need to do to obtain a certified copy of his birth certificate from North Carolina, the state where he was born. He works at the polls in the apartment building (Lugar Towers) where he lives. Mr. Pruden typically votes in both the primary and general elections. Pruden Dep. at 17-18, 24, 26-27.
Barbara Smith is 71 years of age and resides in Marion County. State’s Ex. 56 (“Smith Dep.”) at 5-6, 13. She does not have a driver’s license or state-issued photo identification card. She has a photo identification card issued to her by the federal government to her as a retiree, but as it lacks an expiration date, it will not suffice under SEA 483. However, she does have access to transportation by family members whenever she needs it and she has a certified birth certificate.
Id.
at 17. Ms. Smith frequently works at a precinct polling place on election day as a Judge for the Democratic Party and, as a
*799
result, has voted absentee. Smith Dep. at 7-8, 13. Ms. Smith intends to vote in the May primary but claims she does not want to vote absentee. Smith Dep. at 7-9, 14.
Helen Wright suffered a heart attack in recent weeks and was unavailable to be deposed. She will be 65 years of age in 2006. State’s Ex. 75 (Wright’s postcard survey response to the Democrats).
Robert G. Yancey, a poll worker for the Democrats, (State’s Ex. 60 (“Yancey Dep.”) at 9), has a non-license photo-identification card issued by the BMV that does not expire until 2009. Yancey Dep. at 7-8.
B.
ICLU Plaintiffs.
1.
Representative William Crawford and Trustee Joseph Simpson.
Representative William Crawford (“Rep. Crawford”) is a member of the Indiana House of Representatives, representing House District 98. See State’s Ex. 61 (“ICLU Compl.”) at ¶27. Rep. Crawford possesses the photo identification required by the Voter ID Law. Rep. Crawford states that he has been told by a number of persons that they do not have the required identification to be able to vote, Crawford Dep. at 22, 80; however, he has not identified any such persons by name to the Court.
See
State’s Ex. 62 (“Crawford’s Response to Interrogatories and Request for Production”) at ¶ 1. Rep. Crawford believes that SEA 483 will be an obstacle to poor persons seeking to vote, which concerns him as a politician because in his experience the more people who come out to vote, the better it is for his electoral chances. Crawford Dep. at 32, 127, 130. As a civil rights advocate, Rep. Crawford finds SEA 483 to be “patently offensive,” Crawford Dep. at 47-48, and, as a personal matter, he regards having to produce identification in order to vote “offensive.” Crawford Dep. at 31.
Plaintiff Joseph Simpson has been an elected Washington Township Trustee for over twelve years and also serves as an elected precinct committee-person. Simpson Dep. at 11-13. Trustee Simpson has a driver’s license issued by the BMV. State’s Ex. 63 (“Simpson’s Response to Interrogatories and Request for Production”), at ¶ 7. Like Rep. Crawford, Trustee Simpson has generally alleged that some citizens who have voted for him in the past do not have the sort of photo identification required by SEA 483; also, like Rep. Crawford, he was unable to identify any such voters by name to the Court. Simpson Dep. at 79, Ex C; Simpson’s Response to Interrogatories and Request for Production ¶ 1, 3. Simpson fears that some people will walk away from the polls once they are challenged and he also believes that SEA 483 will increase the number of voter challenges. Trustee Simpson Dep. at 41-42, 62-64, 77. Simpson believes that the more people who are able to vote, the more votes he will receive. Simpson Dep. at 18-19. On a personal basis, Simpson strongly objects to having to show his identification in order to vote. Trustee Simpson Dep. at 21-23.
2.
The Organization Plaintiffs.
Concerned Clergy of Indianapolis (“CCI”) is an organization “dedicated to advancing social justice issues, particularly issues affecting the poor in Indianapolis.” ICLU Compl. at ¶ 51. CCI asserts that its members include “poor persons in the City of Indianapolis.”
Id.
at ¶ 52. CCI also has elected officers and formal members who join after being voted into membership. Deposition of Margie Oakley (“Oakley Dep.”) at 10-13 and Ex. G (Interrogatories). CCI does not maintain any records identifying its members who do or do not possess driver’s licenses or non-license photo identification. State’s Ex. 66 (“CCI Responses to Interrogatories and Request for Production”) at ¶ 6. Margie Oakley, CCI’s designated deponent, con
*800
ceded that no CCI members have indicated to her that they do not have photo identification and that no CCI members have told her that SEA 483 will prevent them from voting. Oakley Dep. at 16, 20. However, CCI asserts that some of its members have indicated that they would be discouraged from voting because of SEA 483. Oakley Dep. at 17.
27
One of CCI’s officers is Rev. Leroy Dinkins, the current vice president. Although Rev. Dinkins has a valid driver’s license, he is strongly opposed to any law that requires him, or any other person, to show photo identification in order to vote and prefers not to have to show photo identification in order to vote. Dinkins Aff. at ¶¶ 1, 3, 4, 6. CCI contends that, in response to the passage of the Voter ID law, it will have to expend its limited financial resources to assist persons with paying the costs of birth certificates so they can vote. Oakley Aff. at ¶¶ 3, 5.
28
CCI also contends that, to extent SEA 483 lessens the political clout of minorities and poor persons, it lessens CCI’s effectiveness as well. Oakley, Ex. G at ¶ 8.
The Indianapolis Resource Center for Independent Living (“IRCIL”) is a center for independent living funded by the federal government through Title 7 of the Rehabilitation Act. Deposition of Melissa Madill (“Madill Dep.”) at 72. According to the IRCIL’s bylaws, its members include its board of directors and “the people with disabilities whom we serve.” State’s Ex. 65 (“IRCIL’s Response to Interrogatories and Request for Production”), at ¶ 2. IR-CIL asserts that many of its members “may not have ... valid photo identification” and “will be discouraged from voting” by SEA 483. ICLU Compl. at ¶¶ 45, 48. However, IRCIL has not identified any such member to the Court. IRCIL’s Response to Interrogatories and Request for Production at ¶ 4. In fact, Melissa Ma-dill, IRCIL’s designated deponent, said that none of the 15 members with whom she had spoken concerning the Voter ID Law since it was enacted have said that they would be unable to vote because of the law. Madill Dep. at 23. The IRCIL assists its clients in obtaining identification cards from the BMV, although it does not pay the cost of the underlying documents, such as birth certificates. Affidavit of Melissa Madill (“Madill Aff.”) at ¶¶ 2, 3. The IRCIL states that, with the passage of the Voter ID law, it will have to devote more of its staffing resources to working with clients in order to try to collect the information necessary to obtain an identification card which, they say, will inevitably mean that staff will be less able to devote their time to other issues of importance to IRCIL’s clients.
Id.
at ¶¶ 4, 5.
The Indiana Coalition on Housing and Homeless Issues (“ICHHI”) is a statewide coalition of organizations and individuals who advocate for persons who experience homelessness as well as low-income persons and families across Indiana. Deposition of Michael Reinke (“Reinke Dep.”) at 6. ICCHI’s members include paid members who generally are organizations such as homeless shelters, day shelters, and mental health centers, among others. Reinke Dep. at 10-12. ICHHI considers all homeless persons who receive services
*801
to be members as well. Reinke Dep. at 11. ICHHI states that it is aware that “many homeless and impoverished persons do not have valid driver’s licenses and state identification cards” and that SEA 483 “will prohibit members of ICHHI from voting because they will not be able to timely satisfy the identification requirements.”
Id.,
at ¶¶ 71, 78. However, ICH-HI has been unable to identify any such affected individuals members. State’s Ex. 68 (“ICHHI’s Response to Interrogatories and Request for Production”), at ¶ 5. In response to a survey, several of ICHHI’s member organizations stated they were aware that many homeless persons do not have photo identification. However, those surveys do not identify any such individuals by name, nor do they indicate whether such homeless persons are members of ICHHI or one of its member organizations.
See
State’s Ex. 69 (“ICHHI Survey Responses”). ICHHI contends that SEA 483 will reduce the political power of homeless persons and, thus, will make it more difficult for ICHHI and its member organizations to advocate on issues affecting homeless persons. Reinke Dep. at 8-9.
The Indianapolis Branch of the NAACP (“NAACP”) is the local branch of the well-known, national civil rights organization. ICLU Compl. at ¶ 61. The NAACP has 1500 members in Marion County. Deposition of Roderick Bohannan (“Bohannan Dep.”) at 16. It is non-partisan and registers persons to vote and encourages persons to vote. Bohannan Dep. at 25, 47. The NAACP alleges that SEA 483 will “make it more difficult for NAACP members ... to participate in elections.”
Id.
at ¶ 65. However, the NAACP has not identified any individual members who allegedly will be harmed by SEA 483. State’s Ex. 67 (“NAACP’s Responses to Interrogatories and Request for Production”) at ¶¶ 5, 7. Roderick Bohannan, the NAACP’s designated deponent, testified that he has heard some members say, “I don’t think I’ll be able to vote the way the statute is construed,” but he could not identify anyone in particular who had made such assertions. Bohannan Dep. at 19. Bohan-nan strongly objects to being required to show his BMV issued identification in order to vote. Bohannan Aff. at ¶¶ 1, 3, 4. The NAACP maintains that, to the extent that SEA 483 diminishes the political clout of African-Americans, it renders the NAACP and its branches less effective in arguing in support of their issues. (Bo-hannan Dep. Ex. H at ¶ 9). Finally, Bohan-nan contends that in response to the passage of SEA 483, the NAACP will have to divert funds and energies into educational and outreach efforts to inform the public about the law so as to maximize the number of persons who will be able to vote.
Id.
at ¶ 5.
United Senior Action of Indiana (“USA”) is a 15,000 member, not-for-profit organization that is designed to promote and advocate issues of interest and importance to senior citizens. Deposition of Michelle Niemier (“Niemier Dep.”) at 17 and Ex. D, Request No. 1. USA’s members join the organization by paying dues. State’s Ex. 64 (“USA Response to Interrogatories and Request for Production”) at ¶ 2. USA states that it has received complaints from its members to the effect that SEA 483 would prevent people from being able to vote or will discourage people from voting; however, USA has not identified any specific members and USA does not have any records identifying members who have or do not have driver’s licenses or non-license photo identification. Niemier Dep. at 24, 38-39; USA Response to Interrogatories and Request for Production at ¶¶ 5, 6. Michelle Niemier, the Executive Director of USA, testified that she has “not spoken to any individual members [of USA who said that they] will not be able to
*802
vote because of [SEA 483], since it’s enacted.” Niemier Dep. at 24-25.
29
USA is also concerned that the organization’s. effectiveness as an advocate for the elderly-will be diminished as its members’ ability to vote is diminished. Niemier Dep. Ex. D Interrogatories ¶ 7.
VI. The Defendants.
The two sets of defendants in this case are the Marion County Election Board (“MCEB”) and Todd Rokita, in his official capacity as Indiana Secretary of State, defendants J. Bradley King and Kristi Robertson, in their official capacities as Co-Directors of the Indiana Election Division.
A.
Marion County Election Board.
The defendants The Marion County Election Board is, as indicated above, the entity that is responsible for the oversight of elections in Marion County, Indiana. Sadler Dep. 6. The Election Board consists of the Marion County Clerk and two other persons. Sadler Dep. 6-7. The Clerk acts as election administrator in Marion County. Sadler Dep. 6.
B.
The Secretary of State and the Co-Directors Of The Indiana Election Division.
Plaintiffs have also named as defendants Todd Rokita, in his official capacity as Indiana Secretary of State, defendants J. Bradley King and Kristi Robertson, in their official capacities as Co-Directors of the Indiana Election Division.
30
As indicated above, The Indiana Election Division provides advice and instruction to county election officials and publishes information and forms for use in Indiana elections.
See
Ind.Code § 3-6-4.2-1, et seq.; Deposition of Co-Director J. Bradley King, Attachment 2 (“King Dep.”) at 7. Rokita, as Indiana Secretary of State, is the state’s chief election official for all purposes (except for the coordination of State responsibilities under the National Voter Registration Act (“NVRA”),
see
Ind.Code § 3-6-3.7-1), and is broadly charged with performing all ministerial duties related to the administration of elections by the state, Ind.Code § 3-6-4.2-2(a), and serves as one of the three members of the Indiana State Recount Commission, Ind.Code § 3-12-10-2.1(a) and (b); and Ind.Code § 3-12-10-4(a).
*803
VII. Brace Report.
The Democrats submitted an expert report prepared by Kimball W. Brace (the “Brace Report”) reflecting his conclusion that at least 51,000 registered voters and as many as 141,000 registered voters in Marion County, and up to 989,000 registered voters in the State of Indiana, do not currently possess a BMV-issued driver’s license or photo identification. Brace Report at 8-10. Brace also claims to have determined that registered voters who reside in census block groups with a median household income of less than $15,000 are more than twice as likely not to possess photo identifications as are registered voters who reside in census block groups with a median household income of more than $55,000. Brace Report at 9-10, Tables F and G.
We have not included the Brace Report in our determinations because we view the analysis and conclusions set out in it as utterly incredible and unreliable. Reliability is the fundamental principle upon which the admissibility of expert opinions and testimony is based, pursuant to Federal Rule of Evidence 702, which provides:
If scientific, technical, or other specialized knowledge will assist the trier of fact to understand the evidence or to determine a fact in issue, a witness qualified as an expert by knowledge, skill, experience, training, or education, may testify thereto in the form of an opinion or otherwise, if (1) the testimony is based upon sufficient facts or data, (2) the testimony is the product of reliable principles and methods, and (3) the witness has applied the principles and methods reliably to the facts of the case.
The Brace report fails to satisfy the latter two of these requirements. We lack the time and space to discuss the numerous flaws in Brace’s report; instead, we shall highlight the report’s most significant failings, including: (1) failing to account for voter roll inflation, (2) comparing demographic data from different years without qualification or analysis, (3) drawing obviously inaccurate and illogical conclusions, and (4) failing to qualify the statistical estimates based on socioeconomic data. Moreover, to the extent that the data on which Brace based his report is admissible, it actually strengthens the Defendants’ contentions, not the Plaintiffs. We discuss each of these weaknesses in greater depth below.
A.
Brace failed to correct for voter roll inflation.
The major flaw in Brace’s report is that, while he concedes there is some inflation of the Marion County voter rolls, his analysis includes absolutely no attempt to correct for such surplusage. Inflation of voter rolls directly impacts Brace’s conclusions because his analytical method consists of tabulating and characterizing voter registrations that cannot be matched to BMV records. Inflated voter registration thus leads to inflated conclusions regarding the number of voters without a state driver’s license or identification card whom Brace claims to have identified. Borrowing the apt computer expression: “garbage in, garbage out.”
Brace’s decision not to compensate for excess voter registrations is even more confusing (and inexcusable) in light of the fact that he adjusted the BMV records to remove duplicate records
31
without performing a similar adjustment to the voter registration list. As far as we can discern, the only adjustments that Brace performed to the voter registration list were (1) prior to conducting the income and
*804
education level analysis, Brace omitted the entries for registered voters whose listed addresses did not correspond to a census block that had any voting age population reported by the 2000 Census (presumably because he was “not able to associate income characteristics to them”); and (2) Brace removed the “inactive” voter registrations from the list of unmatched voters produced using “tightened criteria.” However, in reporting his conclusions as to the total number of “affected individuals,” Brace once again included the voter registrations which were inactive and/or corresponded to unpopulated census blocks. All of these adjustments and this methodology reveal a conscious effort by Brace to report the largest possible number of “individuals impacted by the implementation of SEA 483,” regardless of the reliability of that number.
Brace’s decision to adjust the BMV records, which no one has argued are inflated, contrasted with his obvious failure to adjust the voter registration records, which all the parties appear to agree are inflated in Indiana, “indicates a failure to exercise the degree of care that a statistician would use in his scientific work, outside of the context of litigation.”
Sheehan v. Daily Racing Form, Inc.,
104 F.3d 940, 942 (7th Cir.1997). As the Seventh Circuit has explained: “In litigation an expert may consider (he may have a financial incentive to consider) looser standards to apply. Since the expert’s statistical study would not have been admissible at trial, it was entitled to zero weight in considering whether to grant or deny summary judgment.”
Id.
B.
Brace’s report compares demographic information from varying years without analysis or qualification.
Another significant failure in Brace’s report is that he attempted to compare BMV and voter registrations records from 2005 to Census population numbers from the year 2000, without attempting to adjust for the time difference. We suspect that such temporal variations play a role in creating some of the incredible numbers Brace has included in his report, such as his claim that in census blocks with median incomes over $55,000 there were 8,000 more BMV records (for individuals over the age of eighteen) and 10,000 more voter registrations than actual voting age individuals recorded by the Census; (the BMV and voter registration records representing 106.4% and 107.9%, respectively, of the voting age population).
See
Brace Report, Tables D and F.
32
Since Marion County’s total population was relatively static between 2000 and 2004,
33
Brace’s numbers suggest either that BMV and/or voter registration records are significantly inflated, the Census significantly undercounted high-income individuals (a claim we have not heard levied before), or that there was significant net migration into higher income census blocks during the intervening five years. Brace’s report does not address any of these incongruities nor does it include any effort to otherwise adjust, explain, or qualify his results in light of the obvious temporal difference in his data sources. Such failures again demonstrate “a failure to exercise the degree of care that a statistician would use in his scienti
*805
fic work, outside of the context of litigation.”
Sheehan,
104 F.3d at 942 .
C.
The conclusions of Brace’s report are totally unreliable.
Further undermining the reliability of Brace’s report is the fact that he apparently did not make any attempt to determine if his conclusions were in any way realistic, which they clearly are not. In his conclusion, Brace states:
Based on our analysis to date, it is clear that there will be a significant number of individuals impacted by the implementation of SEA 483. Our research shows that at least 51,000 registered voters and more likely 141,000 registered voters, in Marion County alone would have to obtain a drivers license or ID in order to vote. If these patterns were to hold true for the rest of the state, as many as 989,000 registered voters in the state could be challenged when they try to go vote in November, 2006.
Brace Report at 10.
Brace’s prediction of 989,000 voters who likely will be challenged at the next general election is obviously unbelievable for several reason. First, in his report, Brace specifically notes that Marion County is not representative of the other counties in Indiana and, in particular, Brace “assumed that [Marion County] would have a higher number of non-drivers, compared to other jurisdictions in the state.”
Id.
at 5. Given that even Brace himself believes that the Marion County data will not “hold true for the rest of the state,” we are at a loss to understand why in his Conclusion he uncritically provides estimates which assume otherwise. At the very least, Brace should have included a discussion comparing the demographic data for Marion County with the data for the rest of the counties in Indiana in order to provide some reasonable basis on which the conclusions based on the former could be extended to the latter.
Second, Brace apparently did not undertake even the most rudimentary effort to test the reliability of his theoretical conclusions. For example, in his report, Brace indicates that, as of August 2005, there were 4,569,265 Indiana driver’s license or identification cards possessed by individuals over the age of eighteen.
34
By adding in Brace’s estimated 989,000 registered voters without licenses, the total is 5,558,-265 individuals over the age of eighteen who either are registered to vote in Indiana or possess an Indiana driver’s license or identification card. This number represents an incredible 123% of Indiana’s entire voting age population, as reported by the 2000 Census, and 120% of the Census’s estimate for Indiana’s voting age population as of July 1, 2004.
35
Brace’s report fails to explain where or how this bonanza of hitherto unaccounted for individuals occurred or how his conclusions are reconcilable with the Census data.
*806
Brace’s conclusions regarding only Marion County are equally unreliable. If the number of affected individuals Brace claimed to have identified is combined with the number of individuals with Indiana driver’s licenses or identification cards, the result is between 103% and 116% of the voting age population of Marion County.
36
Once again, Brace’s report provides no explanation as to how these results can be reconciled with the Census data.
The fact that Brace’s mathematical extrapolations are in conflict with the Census results should not come as a surprise. As mentioned above, Brace has admitted that he believes the Indiana voter rolls are inflated, making it entirely logical and predictable that his analysis would produce inflated numbers of affected voters. These obvious and otherwise unexplained analytical failures, once again, represent “a failure to exercise the degree of care that a statistician would use in his scientific work, outside of the context of litigation.”
Shee-han,
104 F.3d at 942 .
D.
Brace’s failure to qualify his statistical estimates based on socioeconomic data.
In addition to the above, Brace’s statistical estimates based on socioeconomic data are even more suspect for several reasons: (1) Brace’s economic (and education) analysis appears to suffer from aggregation bias because he was forced to aggregate his data to census block groups instead of focusing only on individuáis,
37
a matter left unaddressed by Brace in his report; (2) there is no indication in the report whether Brace’s socioeconomic results are statistically significant and Brace does not mention performing any generally accepted estimates of significance or uncertainty;
38
and (3) Brace made no attempt to factor in the impact of SEA 483’s exceptions, such as the indigent exception, which would directly effect his computations, especially with respect to Census blocks with median incomes below $15,000. These methodological failings are of the same sort that led the Seventh Circuit to exclude the expert report in
Sheehan
and to remark that the report “was entitled to zero weight in considering whether to grant or deny summary judgment.”
Sheehan,
104 F.3d at 942 .
E.
Brace’s Report actually strengthens the State’s arguments.
To the extent that Brace’s results are admissible evidence, the findings do not help the Plaintiffs’ case, indeed, they strengthen the State’s contentions.
Brace’s report reveals several important reasons to question the reliability and accuracy of Indiana’s voter rolls. For example, Brace reports there are tens of thousands of voter registrations in Marion County alone which list their address as being within an unpopulated census block and there are additional thousands of voter registrations whose existence cannot be
*807
reconciled with BMV records and/or Census numbers.
39
Brace’s report also suggests that the vast majority of Indiana’s voting age population already possesses the requisite photo identification required by SEA 483. Comparing the number of 2005 BMV records in Brace’s report to Census’ estimates for Indiana’s voting age population indicates that, as of 2005, there were only 43,000 Indiana residents without a state-issued driver’s license or identification card.
40
In other words, an estimated 99% of Indiana’s voting age population already possesses the necessary photo identification to vote under the requirements of SEA 483.
41
Moreover, Brace’s report suggests that the fewer than 1% of individuals without acceptable Indiana photo identification are substantially concentrated in Marion County,
42
which has a metro bus system and multiple BMV branch locations thereby greatly facilitating the ability of these affected individuals to obtain the necessary photo identification.
43
*808
To the extent that Brace’s socioeconomic analysis is accurate, his report revealed no potential disparate impact of SEA 483 based on a voter’s race or education level and only a small potential disparate impact based on income level, specifically, in census blocks with median incomes below $15,000.
44
However, as noted above, Brace’s conclusions with respect to income are even more suspect than his report in general.
Finally, to the extent that Brace’s socioeconomic analysis is accurate, his report confirms that we should not assume disparate impact based on what “common sense” tells us to be true. In interpreting Brace’s results, the Democrats argue:
Common experience tells us that the persons without such identification are likely to come from segments of the society that do not drive, including those without the financial ability to afford vehicles. The Brace study confirms what common sense tells us. The Brace study reveals that those registered voters without BMV-issued identification are almost twice as likely to reside in census block groups with a lower median income.
Democrats’ Reply Brief at 28. Brace’s report, to the extent it is accurate, actually indicates that voters without photo identification are not significantly more likely to come from low income segments of society. Brace’s research establishes that, under any of his criteria, less than 2% of his “unmatched voters” reside in census blocks with median incomes below $15,000.
45
In fact, under any of Brace’s criteria, between 61% and 65% of his unmatched voters live in census blocks with median incomes above $35,000, which roughly corresponds to the 63.9% of the voting age population he lists as residing in those areas.
46
Thus, there is scant sup
*809
port in Brace’s report supporting the “common sense” observation that low income individuals will be disproportionately-impacted by SEA 483’s photo identification requirements.
47
Although the Brace Report carries some weight, albeit very little, we base our legal analysis primarily on the facts submitted by the parties, as discussed above, including: Indiana election law and procedure, requirements for obtaining photo identification documents from the BMV, evidence regarding voter fraud, evidence of potential impacts of SEA 483 on Indiana voters, and facts related to the parties in this litigation. Based on these facts, we turn now to our discussion and application of the controlling legal principles.
Legal Analysis
I.
Plaintiffs ’ Article III Standing.
Before addressing the legal merits of SEA 483, we first must determine whether the named plaintiffs to this litigation have standing to bring it. Defendants challenge the Article III standing of every plaintiff, contending that they lack standing in their own right, standing to assert the rights of third parties or, with regard to the organizations, standing to assert the rights of their alleged members. The only standing which Defendants do not contest is that of the Democrats in bringing their political association claim. Plaintiffs respond, individually and jointly, that all have standing to bring all the claims raised in this lawsuit.
The Seventh Circuit has articulated the standing requirement as follows:
Standing is ‘an essential and unchanging part of the case-or-controversy requirement of Article III.’
Lujan v. Defenders of Wildlife,
504 U.S. 555, 560 , 112 S.Ct. 2130 , 119 L.Ed.2d 351 (1992). The burden to establish standing is on the party invoking federal jurisdiction — here, [Plaintiffs] — and the elements it must show are: (I) an injury in fact, which is an invasion of a legally protected interest that is concrete and particularized and, thus, actual or imminent, not conjectural or hypothetical; (ii) a causal relation between the injury and the challenged conduct, such that the injury can be fairly traced to the challenged action of the defendant; and (iii) a likelihood that the injury will be redressed by a favorable decision.
DH2, Inc. v. U.S. S.E.C.,
422 F.3d 591, 596 (7th Cir.2005) (citing
Lee v. City of Chicago,
330 F.3d 456, 468 (7th Cir.2003) (citing
Lujan,
504 U.S. at 560-61 , 112 S.Ct. 2130 )). To satisfy the injury-in-fact requirement, Plaintiffs “ ‘must establish that [they have] sustained or [are] immediately in danger of sustaining some direct injury.’ ”
Id.
(quoting
Wis. Right to Life, Inc. v. Schober,
366 F.3d 485 , 489 (7th Cir.2004)) (quoting
Tobin for Governor v. Ill.
*810
State Bd. of Elections,
268 F.3d 517 , 528 (7th Cir.2001)). However, “[m]ere speculation is not enough to establish an injury-in fact.”
Id.
(quoting
Wis. Right to Life,
366 F.3d at 489).
A plaintiff which is an association has Article III standing to represent the interests of its members if: “ ‘(1) the conduct challenged is injurious to its members, (2) the claim asserted is germane to the association’s purposes, and (3) the cause can proceed without the participation of the individual members affected by the challenged conduct.’ ”
Hope, Inc. v. DuPage County, Ill.,
738 F.2d 797, 813 (7th Cir.1984) (quoting
Hunt v. Washington State Apple Advertising Commission,
432 U.S. 333, 343 , 97 S.Ct. 2434 , 53 L.Ed.2d 383 (1977));
See also Texas Independent Producers and Royalty Owners Association v. E.P.A.,
410 F.3d 964, 971 (7th Cir.2005). Representational standing requires that the association demonstrate that the members whose rights it is asserting “ ‘are suffering immediate or threatened injury as a result of the challenged action of the sort that would make out a justiciable case had the members themselves brought suit.’ ”
Hope,
738 F.2d at 813 (quoting
Warth v. Seldin,
422 U.S. 490, 511 , 95 S.Ct. 2197 , 45 L.Ed.2d 343 (1975)).
In certain limited situations, a plaintiff may have standing to raise the rights of third parties not otherwise before the court. The Supreme Court has imposed three conditions which must be satisfied before a plaintiff can assert the rights of a third party: (1) the plaintiff has suffered an “injury in fact;” (2) the plaintiff has a “close relationship” to the injured third party; and (3) there was some hindrance to the third parties in asserting their own rights.
Campbell v. Louisiana,
523 U.S. 392, 397 , 118 S.Ct. 1419 , 140 L.Ed.2d 551 (1998) (allowing a criminal defendant to raise the rights of jurors). However, “when the plaintiff is not himself the object of the government action or inaction he challenges, standing is not precluded, but it is ordinarily ‘substantially more difficult’ to establish.”
Id.
(quoting
Lujan,
504 U.S. at 562 , 112 S.Ct. 2130 (quoting
Allen v. Wright,
468 U.S. 737, 758 , 104 S.Ct. 3315 , 82 L.Ed.2d 556 (1984))).
For clarity of analysis, because the issues are uniformly applicable as to each group, we have categorized the various Plaintiffs into the following three similarly situated groups: the Democrats, Rep. Crawford and Mr. Simpson, and the Organizational Plaintiffs, each of which grouping we discuss below. Prior to analyzing the respective arguments of each group of plaintiffs, we address one principle of standing that cuts across all three groups, namely, that “mere offense” taken or felt in reaction to a statute’s requirements is not sufficient injury to confer Article III standing.
A.
“Mere Offense” Is Not Sufficient Injury to Confer Standing.
Several Plaintiffs attempt to establish standing based on their sense of personal offense at being required to provide identification in order to vote.
48
Offense alone in response to government policies or requirements does not suffice to create standing: “Otherwise there would be universal standing: anyone could contest any public policy or action he disliked. There must be a concrete injury.”
Books v. Elkhart County, Ind.,
401 F.3d 857, 870 (7th Cir.2005). Moreover, in determining Article III standing, “the psychological consequence presumably produced by observation of conduct with which one disagrees ... is not an ‘injury in fact’ for
*811
constitutional purposes.”
Id.
(internal quotation omitted). Accordingly, no Plaintiff in this case may continue to litigate if the only injury is the offense taken in having to present, or in observing others present, photo identification in order to be permitted to vote.
B.
The Democrats
’
Standing.
1.
Standing for An Associational Rights Claim.
None of the parties disputes that the requirements of SEA 483 impede the Democrats’ ability to permit citizens who do not have photo identification to vote in their primary elections, which in turn interferes with their right to freely associate with those citizens for political purposes. All the parties agree, and we concur, that this constitutes a direct injury to the Democrats’ right to freely associate and suffices to confer standing on these parties.
49
2.
Standing of MCDCC to Assert Rights of Its Members.
The MCDCC has identified four members; however, all have the necessary photo identification to vote in person under SEA 483. Accordingly, MCDCC cannot establish standing based on alleged injuries to its members.
Hope, Inc. v. DuPage County, Ill.,
738 F.2d 797, 813 (7th Cir.1984).
3.
Standing to Assert the Rights of Any Voter Who Votes (or Might Vote) Democratic.
Democrats broadly contend that they “have standing to assert the rights of those registered voters who associate with them and who will be voting, or who desire to vote, in future elections for public office, including the elections scheduled in May and November, 2006.” Democrats’ Second Am. Compl. at ¶ 3. This assertion is premised on the claim that the mere act of “desiring” to vote for a Democratic candidate makes an individual a “member” of the Democratic party. This argument is a bridge too far in view of applicable law. As the Seventh Circuit notes, “The Supreme Court has not seen fit to extend representational capacity standing to entities other than associations which actually represent interests of parties whose affiliation with the representational litigant is that of membership with the representative or substantial equivalent of membership.”
Hope,
738 F.2d, at 814 . Neither “desiring” to vote for a candidate nor actually voting for that candidate constitutes membership or the substantial equivalent of membership in a political party. Indeed, if desire alone were enough, it appears that several of the Democrats’ own witnesses would simultaneously be members of multiple political parties. Accordingly, the Democrats’ attenuated claim of “membership” for any voter who will be voting or desires to vote for a Democratic candidate fails to confer standing to bring this lawsuit.
Assuming
arguendo
that the Democrats’ representational standing claims include third-party voters not actually before the Court but who face insurmountable barriers in obtaining photo identification prior to the election, such voters’ injuries resulting from enforcement of the SEA 483 are sufficiently identifiable and concrete as to allow them to assert their own individual claims as voters. Moreover, Democrats have not presented any substantiation that any such voters actually exist. Accordingly, we conclude that the Democrats are not positioned to
*812
raise the rights of third-party voters who are unable to obtain photo identification.
The situation is slightly different for voters who have secured or could secure the necessary photo identification but, for some reason, will be unable to present such identification at the polls at the time of voting.
50
Under SEA 483, such voters will be allowed to vote, but only by utilizing a provisional ballot. Obviously, the exact identity of voters who will utilize provisional ballots because of their inadvertent lack of photo identification cannot be determined in advance. As a result, such affected voters also cannot assert their own rights in advance. Thus, the potential exclusion of votes by individuals intending to vote for Democratic candidates is sufficient to constitute an injury in fact to the Democrats; moreover, the potential exclusion of votes casts “doubt on the integrity” of the election.
See Campbell v. Louisiana,
523 U.S. 392, 397 , 118 S.Ct. 1419 , 140 L.Ed.2d 551 (1998) (holding a criminal defendant “suffers a serious injury in fact because discrimination at the voir dire stage casts doubt on the integrity of the judicial process and places the fairness of a criminal proceeding in doubt”). Much like the criminal defendant in
Campbell ,
the Democrats share a common interest with their affected supporters, to wit, the ability of such supporters to vote for their preferred candidates. Accordingly, we conclude that the Democrats have satisfied
Campbell’s
requirements for raising the third-party rights of voters who inadvertently are unable to present photo identification at the polls on election day.
51
4.
Standing to Assert Rights of Named Individuals
The Democrats claim they also have standing to assert the rights of the Named Individuals in this lawsuit. The Named Individuals all represent themselves to be members of the Democratic party and have consented to their representation by the Democrats in this lawsuit. Accordingly, though we can readily conclude that the Democrats have standing to assert the rights of these individuals, we are less clear concerning the specific rights the Named Individuals may possess in challenging the requirements of SEA 483. Whether the Named Individuals have standing must be assessed in terms of the two categories of claims advanced by the Democrats: first, with regard to the facial challenge to the photo identification requirement and, second, with regard to the equal protection claims under the 14th Amendment.
a.
Standing To Challenge The Photo Identification Requirement
Our review has brought us to the conclusion that none of the Named Individuals has presented an “injury in fact” sufficient to confer Article III standing to challenge the photo identification requirement. The Democrats have identified twelve individuals whom they contend will be harmed by SEA 483. We note initially that no evidence was adduced concerning either Christiana Bohlander or Corinne Collins, and a third person, Helen Wright, unfortunately, has died since the case was filed. Of the nine remaining Named Individuals whom the Democrats claim will be harmed by the provisions of SEA 483,
52
two pos
*813
sess the photo identification required by SEA 483 to qualify to vote in person,
53
and another possesses a certified birth certificate which enables her to obtain the necessary photo identification from the BMV for free.
54
Moreover, all nine of these potential voters are over the age of 65 and, therefore, automatically qualify to vote absentee, Ind.Code § 3-ll-10-24(a)(5), as at least three of them have done in the past.
55
Voting by absentee ballot instead of in person does not, by itself, constitute an injury in fact since there is no established constitutional right to vote in person.
56
Further, the Democrats have not presented any evidence to the Court that voting absentee would be an actual hardship for any of the Named Individuals and, as we have noted above, their “mere offense” in having to vote absentee is insufficient to confer Article III standing.
See,
Legal Analysis Section 1(A),
supra.
Accordingly, we conclude that the photo identification requirement of SEA 483 will cause none of the Named Individual Plaintiffs any “injury-in-fact,” thus depriving them of standing to assert these rights.
57
b.
Equal Protection Violation.
The Named Individuals who are without photo identification, however, can assert an equal protection claim on the grounds that they have been disadvantaged relative to certain classes of voters who possess photo identification or are not required to present photo identification. As the Seventh Circuit explained:
When the government erects a barrier that makes it more difficult for members of one group to obtain a benefit than it is for members of another group, a member of the former group seeking to challenge the barrier need not allege that he would have obtained the benefit but for the barrier in order to establish standing. The “injury in fact” in an equal protection case of this variety is the denial of equal treatment resulting from the imposition of the barrier, not
*814
the ultimate inability to obtain the benefit.
Lac Du Flambeau Band of Lake Superior Chippewa Indians v. Norton,
422 F.3d 490, 497 (7th Cir.2005) (citing
Northeastern Fla. Chapter of Associated Gen. Contractors of Am. v. City of Jacksonville,
508 U.S. 656, 666 , 113 S.Ct. 2297 , 124 L.Ed.2d 586 (1993)). Therefore, all the Named Individuals have standing in their own right to bring an equal protection challenge to SEA 483 and the Democrats have standing to assert said rights on their behalf.
C.
Standing of Rep. Crawford and Mr. Simpson.
Rep. Crawford and Mr. Simpson contend they have individual standing in their own right and standing to assert the rights of voters in their respective constituent districts. We are of the view that Rep. Crawford and Mr. Simpson lack standing both in their own right and in their representative capacities for the reasons we explain below.
1.
Personal Standing
Both Rep. Crawford and Mr. Simpson already have the photo identification necessary to entitle them to vote in person under SEA 483, although they say they are offended at having to present photo identification. As explained above, the offense they feel does not confer on them Article III standing.
See,
Legal Analysis Section 1(A),
supra.
58
Both Rep. Crawford and Mr. Simpson also contend that they risk receiving fewer votes if SEA 483 is enacted; however, this claim has not been supported by any evidence or concrete facts. Their speculations about the impact of SEA 483 do not “establish that they have sustained or are immediately in danger of sustaining some direct injury.”
See, e.g., Albiero v. City of Kankakee,
246 F.3d 927, 933 (7th Cir.2001) (holding a plaintiffs self-serving statements, unsupported by specific concrete facts reflected in the record, cannot preclude summary judgment);
Waldridge v. American Hoechst Corp.,
24 F.3d 918, 920 (7th Cir.1994) (stating: “If the non-movant does not come forward with evidence that would reasonably permit the finder of fact to find in her favor on a material question, then the court must enter summary judgment against her.”). Thus, Crawford and Simpson have failed to establish that SEA 483 will cause them personally an “injury-in-fact.”
2.
Standing Based on Harm to Voters in Their Districts.
Rep. Crawford and Mr. Simpson also contend they have standing to raise the injuries encountered by voters in their respective districts. With respect to voters who face an insurmountable barrier to obtaining photo identification prior to the election, any injury such voters would suffer as a result of SEA 483 is already identifiable and concrete, and there is no reason to assume they are not able to assert their rights on their own. Moreover, no evidence has been cited that identifies any such voters in either constituency group who stand to be harmed by SEA 483.
59
Rep. Crawford and Mr. Simpson have the burden of establishing the third-
*815
party injuries upon which they base their claim of standing, a burden they have failed to meet. Accordingly, Rep. Crawford and Mr. Simpson lack standing to assert the third-party rights of hypothetical voters in their respective districts.
However, as explained in our pri- or discussion of standing on the part of the Democrats, the situation is slightly different for voters who have secured or could secure the necessary photo identification but, for some reason, may prove unable to present such identification at the polls at the time of voting. Applying the same reasoning, we hold that Rep. Crawford and Mr. Simpson have standing to assert the rights of voters who, through inadvertence, are unable to present photo identification at the polls.
See
Legal Analysis Section 1(B)(3),
supra.
60
D.
Standing of Organization Plaintiffs
The Organization Plaintiffs attempt to establish standing to seek relief (1) in their own right, (2) based on the rights of their members, and (3) based on the rights of the individuals they serve. The legal theories upon which the Organization Plaintiffs rely, howevex*, have all been rejected by the Seventh Circuit, making their efforts to convince this court otherwise, at best, an uphill struggle.
1.
Standing in Their Own Right.
Although the Organization Plaintiffs have not alleged, much less proven, any direct injury to themselves as a result of SEA 483, they argue that they have standing in their own right because, if the law is upheld, it will require them to shift resources away from their existing programs and into efforts aimed at helping voters comply with SEA 483’s requirements. This novel interpretation of “direct injury” is, say the Organization Plaintiffs, premised on
Havens Realty Corp. v. Coleman,
455 U.S. 363 , 102 S.Ct. 1114 , 71 L.Ed.2d 214 (1982), where the Supreme Court held:
If, as broadly alleged, petitioners’ steering practices have perceptibly impaired HOME’S ability to provide counseling and referral services for low-and moderate-income homeseekers, there can be no question that the organization has suffered injury in fact. Such concrete and demonstrable injury to the organization’s activities — with the consequent drain on the organization’s resources— constitutes far more than simply a setback to the organization’s abstract social interests. We therefore conclude, as did the Court of Appeals, that in view of HOME’S allegations of injury it was improper for the District Court to dismiss for lack of standing the claims of the organization in its own right.
Id.
at 379 , 102 S.Ct. 1114 (footnote and internal citation omitted). However, the reasoning in
Havens
is not applicable to this case for at least four reasons.
First, the organizational standing recognized in
Havens
and its progeny was specifically limited to the context of fair-housing agencies involved in investigating instances of housing discrimination.
See Village of Bellwood v. Dwivedi,
895 F.2d 1521, 1526 (7th Cir.1990)
(“Havens
makes clear, however, that the only injury which need be shown to
confer standing on a fair-housing agency
is deflection of the agency’s time and money from counseling to
legal efforts directed against discrimination.”)
(emphasis added);
see, also, Gorski v. Troy,
929 F.2d 1183, 1188 (7th Cir.1991) (describing the
Dwivedi
decision as “recognizing] the broad standing principles embodied in the [Fair Housing Act]”). While the Seventh Circuit has continued to apply
Havens
to Fair Hous
*816
ing Act claims,
see City of Chicago v. Matchmaker Real Estate Sales Center, Inc.,
982 F.2d 1086, 1095 (7th Cir.1992), our research has not uncovered a single Seventh Circuit ease in the nearly twenty-four years since
Havens
was decided by the Supreme Court which applied this analysis outside of the context of housing discrimination; indeed, the Organization Plaintiffs have cited no such decision. Accordingly, there being no support for the Organization Plaintiffs’ contention that the Seventh Circuit would extend
Havens
beyond the context of fair-housing agencies investigation housing discrimination, we decline to do so
sua sponte.
Second, in both
Havens
and
Dwivedi ,
plaintiffs had already expended resources in order to investigate and uncover the defendant’s illegal discrimination which allowed the Court to rule that the defendants’ discrimination had caused the plaintiffs to suffer an injury in fact. In the case at bar, the Organization Plaintiffs vaguely assert that, as a result of SEA 483, they will, under undefined circumstances in the future, be required to divert unspecified resources to various outreach efforts.
61
Moreover, to the extent that Plaintiffs have already expended resources investigating the impact of SEA 483, such efforts have apparently uncovered no identifiable persons who will be unable to vote, no evidence of racial discrimination, and no convincing evidence of a disproportionate impact on low-income would-be voters. Such imprecise and speculative claims concerning potential future actions designed to combat speculative discrimination are a far cry from the kind of organizational expenditures found to convey standing in
Havens
and
Dwivedi .
Thus, because the alleged actions of the Organization Plaintiffs are not analogous to actions of the fair-housing agencies in
Havens
and
Dwivedi ,
we conclude there is no basis for standing here.
62
Third, the claimed injury suffered by the Organization Plaintiffs is entirely of their own making since any future reallocation of resources would be initiated at the Organization Plaintiffs’ sole and voluntary discretion. Such an optional programming decision does not confer Article III standing on a plaintiff. As the D.C. Circuit observed: “The diversion of resources ... might well harm the [plaintiffs] other pro
*817
grams, for money spent on testing is money that is not spent on other things. But this particular harm is self-inflicted; it results not from any actions taken by [defendant], but rather from the [plaintiffs] oven budgetary choices.”
Fair Employment Council of Greater Washington, Inc. v. BMC Marketing Corp.,
28 F.3d 1268, 1276 (D.C.Cir.1994).
Fourth, the interpretation of
Havens
proffered by the Organization Plaintiffs, if accepted, would completely eviscerate the standing doctrine. If an organization obtains standing merely by expending resources in response to a statute, then Article III standing could be obtained through nothing more than filing a lawsuit. Such an interpretation flies in the face of well-established standing principles. Indeed, “[a]n organization cannot, of course, manufacture the injury necessary to maintain a suit from its expenditure of resources on that very suit. Were the rule otherwise, any litigant could create injury in fact by bringing a ease, and Article III would present no real limitation.”
Spann v. Colonial Village, Inc.,
899 F.2d 24, 27 (D.C.Cir.1990);
see also Fair Housing Council of Suburban Philadelphia v. Montgomery Newspapers,
141 F.3d 71, 78-79 (3d Cir.1998). We have no indication that either the Supreme Court or the Seventh Circuit is inclined to abolish the standing requirement for federal lawsuits;
63
thus, we decline the Organization Plaintiffs’ invitation to do so ourselves.
For these reasons, we conclude that the Organization Plaintiffs lack standing in their own right to challenge SEA 483.
2.
Standing to Represent Their Members.
The Organization Plaintiffs next claim that they have standing because their members have standing as reflected by evidence they have proffered “demons-trat[ing] that members of each organization are facing injury,” ICLU’s Reply Brief at 11. However, what the Organization Plaintiffs have presented to the Court in this regard is nothing more than unsupported assertions. None of the Organization Plaintiffs has identified a single member who does not already possess the required photo identification and has an injury beyond “mere offense” at having to present photo identification in order to vote which, as we have said, does not confer standing.
See
Legal Analysis Section 1(A),
supra.
The problem with the Organization Plaintiffs’ “standing in [their] representational capacity is that [they have] not alleged, much less proven that any of [their] members or directors either suffered an injury or was threatened with immediate injury to the extent that the member or director would be able to make out a justiciable case had he brought suit himself.”
Hope, Inc. v. DuPage County, Ill.,
738 F.2d 797, 814 (7th Cir.1984). Since the Organization Plaintiffs have failed to demonstrate “that any party that [they] represent] as a ‘member’ has standing, [they do] not have standing as that member’s representative.”
See, also, Fund Democracy, LLC v. S.E.C.,
278 F.3d 21, 27 (D.C.Cir.2002) (holding the plaintiff lacked Article III standing because it did “not identify a single affiliate who has invested or is considering investing in Hillview Funds”);
Doe v. Stincer,
175 F.3d 879, 886-87 (11th Cir.1999) (explaining: “The right to sue on behalf of its constituents, however, does not relieve the Advocacy Center of its obligation to satisfy Hunt’s first prong by showing that one of its constituents otherwise had standing to sue”). Accordingly, the Organization Plaintiffs do not have representational standing to assert
*818
their members’ rights to challenge SEA 483.
64
3.
Expanded Representational Standing, Including Individuals The Organization Plaintiffs Serve.
The Organization Plaintiffs attempt to expand their representational capacity by reaching out to include as members all the individuals they serve;
65
however, this approach has been explicitly rejected by the Seventh Circuit. In
Hope, Inc. v. DuPage County, Ill.,
the Seventh Circuit held:
Amicus curiae attempts to expand HOPE’S representational capacity, however, by extending it beyond HOPE’S members and directors to all persons for whom HOPE seeks housing. This argument ignores the fact that standing in representational capacity requires that the representative litigate on behalf of members who would have standing in their own right, and furthermore, that the group of low and moderate income persons, for which HOPE seeks housing in DuPage County, are not and cannot be considered members of HOPE.
The Supreme Court has not seen fit to extend representational capacity standing to entities other than associations which actually represent interests of parties whose affiliation with the representational litigant is that of membership with the representative or substantial equivalent of membership.
We likewise decline to further extend representational standing.
Hope,
738 F.2d at 814 (emphasis added). The holding in
Hope
is controlling here: an organization cannot unilaterally expand its representational capacity to include all the individuals it serves. Accordingly, the Organization Plaintiffs lack representational standing to bring this case on behalf of the persons served by them.
66
*819
Assuming
arguendo
that the Organization Plaintiffs were able to assert representational standing based on the individuals they serve, they still have not made the requisite showing to substantiate their entitlement to standing. Specifically, the Organization Plaintiffs have not been able to provide admissible evidence of any individual who will not be able to vote if required to present a photo identification, let alone to obtain photo identification. The only information provided to the court are the unsubstantiated hearsay statements alleging that unnamed individuals will be burdened by SEA 483; such statements are totally lacking in fending off summary judgment.
See, e.g., Albiero v. City of Kankakee,
246 F.3d 927, 933 (7th Cir.2001) (holding that a plaintiffs self-serving statements, unsupported by specific concrete facts reflected in the record, cannot preclude summary judgment);
Waldridge v. American Hoechst Corp.,
24 F.3d 918, 920 (7th Cir.1994) (stating: “If the non-movant does not come forward with evidence that would reasonably permit the finder of fact to find in her favor on a material question, then the court must enter summary judgment against her.”).
67
*820
E.
Standing Summary.
In sum, then, we hold that the Democrats have established standing to assert their own associational rights, the equal protection rights of the Named Individuals, and the rights of voters who through inadvertence will not be able to present photo identification at the polls the day of the election; and that Rep. Crawford and Trustee Simpson have standing to assert the rights of voters who inadvertently cannot present photo identification at the polls. The Organizational Plaintiffs’ claims are dismissed for lack of standing to seek the constitutional relief they are claiming.
II
Plaintiffs’ Constitutional Challenges to the Photo Identifícation Requirement
Plaintiffs’ basic claim in this lawsuit is that the photo identification requirements of SEA 483 violate the First and Fourteenth Amendments to the U.S. Constitution because they place a severe burden on the right to vote. Because of these burdens, Plaintiffs maintain that the law is subject to strict scrutiny; indeed, nearly all of Plaintiffs’ myriad constitutional challenges to the photo identification requirement incorporate some version of their strict scrutiny argument. Plaintiffs, however, have failed to demonstrate that strict scrutiny of SEA 483 is warranted, primarily because they have totally failed to adduce evidence establishing that any actual voters will be adversely impacted by SEA 483. Accordingly, for the reasons explained in detail below, Plaintiffs’ constitutional challenge is unavailing.
A.
Background, on the Right to Vote and a State’s Right to Regulate Elections
The Supreme Court has recently reiterated this basic democratic principle: “It is beyond cavil that ‘voting is of the most fundamental significance under our constitutional structure.’ ”
Burdick v. Takushi,
504 U.S. 428, 433 , 112 S.Ct. 2059 , 119 L.Ed.2d 245 (1992) (quoting
Illinois Bd. of Elections v. Socialist Workers Party,
440 U.S. 173, 184 , 99 S.Ct. 983 , 59 L.Ed.2d 230 (1979)). That said, there is no absolute constitutional right to vote in any specific manner an individual may desire nor is there an absolute right to associate, without restriction, for political purposes through the ballot,
id.
(citing
Munro v. Socialist Workers Party,
479 U.S. 189, 193 , 107 S.Ct. 533 , 93 L.Ed.2d 499 (1986)). The United States Constitution grants “to the States a broad power to prescribe the ‘Times, Places and Manner of holding Elections for Senators and Representatives,’ Art. I, § 4, cl. 1, which power is matched by state control over the election process for state offices.”
Tashjian v. Republican Party of Connecticut,
479 U.S. 208, 217 , 107 S.Ct. 544 , 93 L.Ed.2d 514 (1986). The Constitution itself plainly “compels the conclusion that government must play an active role in structuring elections;” since “ ‘as a practical matter, there must be a substantial regulation of elections if they are to be fair and honest and if some sort of order, rather than chaos, is to accompany the democratic processes.’ ”
Burdick v. Takushi,
504 U.S. 428, 433 , 112 S.Ct. 2059 , 119 L.Ed.2d 245 (1992) (quoting
Storer v. Brown,
415 U.S. 724, 730 , 94 S.Ct. 1274 , 39 L.Ed.2d 714
*821
(1974));
Tashjian,
479 U.S. at 217 , 107 S.Ct. 544 ;
see also Timmons v. Twin Cities Area New Party,
520 U.S. 351, 358 , 117 S.Ct. 1364 , 137 L.Ed.2d 589 (1997) (holding “that States may, and inevitably must, enact reasonable regulations of parties, elections, and ballots to reduce election-and campaign-related disorder.”). Pursuant to Art. I, § 4, cl. 1, “state legislatures may, without transgressing the Constitution, impose extensive restrictions on voting.”
Griffin v. Roupas,
385 F.3d 1128, 1130 (7th Cir.2004). A state’s broad authority to regulate elections, however, is tempered by the aforementioned provisions of the Constitution which protect individual citizens’ rights; specifically, “[t]he power to regulate the time, place, and manner of elections does not justify, without more, the abridgment of fundamental rights, such as the right to vote ... or ... the freedom of political association.”
Tashjian,
479 U.S. at 217 , 107 S.Ct. 544 (internal citation omitted).
In balancing these potentially conflicting constitutional principles:
Burdick,
504 U.S. at 434 , 112 S.Ct. 2059 (quoting
Anderson v. Celebrezze,
460 U.S. 780, 788 , 103 S.Ct. 1564 , 75 L.Ed.2d 547 (1983); citing
Tashjian,
479 U.S. at 213-14 , 107 S.Ct. 544 ). “Regulations imposing severe burdens on plaintiffs’ rights must be narrowly tailored and advance a compelling state interest. Lesser burdens, however, trigger less exacting review, and a State’s ‘important regulatory interests’ will usually be enough to justify ‘reasonable, nondiscriminatory restrictions.’ ”
Timmons,
520 U.S. at 358-59 , 117 S.Ct. 1364 (quoting
Burdick,
504 U.S. at 434 , 112 S.Ct. 2059 ;
Anderson,
460 U.S. at 788 , 103 S.Ct. 1564 ;
Norman v. Reed,
502 U.S. 279, 288-89 , 112 S.Ct. 698 , 116 L.Ed.2d 711 (1992)). Unfortunately, “no bright line separates permissible election-related regulation from unconstitutional infringements on First Amendment freedoms.”
Timmons,
520 U.S. at 359 , 117 S.Ct. 1364 (internal citation omitted).
A court considering a challenge to a state election law must weigh “the character and magnitude of the asserted injury to the rights protected by the First and Fourteenth Amendments that the plaintiff seeks to vindicate” against “the precise interests put forward by the State as justifications for the burden imposed by its rule,” taking into consideration “the extent to which those interests make it necessary to burden the plaintiffs rights.”
B.
Standard of Review in passing on the constitutionality of SEA j.83
We begin by noting that Plaintiffs’ arguments proceed from the oft-criticized, but nonetheless frequently invoked, “erroneous assumption that a law that imposes any burden upon the right to vote must be subject to strict scrutiny.”
Burdick v. Takushi,
504 U.S. 428, 432 , 112 S.Ct. 2059 , 119 L.Ed.2d 245 (1992).
68
As the Supreme Court explained in
Burdick :
Election laws will invariably impose some burden upon individual voters. Each provision of a code, “whether it governs the registration and qualifica
*822
tions of voters, the selection and eligibility of candidates, or the voting process itself, Inevitably affects — at least to some degree — the individual’s right to vote and his right to associate with others for political ends.”
Anderson v. Celebrezze,
460 U.S. 780, 788 , 103 S.Ct. 1564 , 75 L.Ed.2d 547 (1983). Consequently, to subject every voting regulation to strict scrutiny and to require that the regulation be narrowly tailored to advance a compelling state interest, as petitioner suggests, would tie the hands of States seeking to assure that elections are operated equitably and efficiently.
Id.
at 433, 112 S.Ct. 2059 . Similarly, strict scrutiny of an election law is not warranted merely because it may prevent some otherwise eligible voters from exercising that right. As the Seventh Circuit observed: “Any [election] restriction is going to exclude, either de jure or de facto, some people from voting; the constitutional question is whether the restriction and resulting exclusion are reasonable given the interest the restriction serves.”
Griffin v. Roupas,
385 F.3d 1128, 1130 (7th Cir.2004) (citing
Timmons v. Twin Cities Area New Party,
520 U.S. 351, 358-59 , 117 S.Ct. 1364 , 137 L.Ed.2d 589 (1997);
Burdick v. Takushi,
504 U.S. 428, 438-42 , 112 S.Ct. 2059 , 119 L.Ed.2d 245 (1992);
Nader v. Keith,
385 F.3d 729 (7th Cir.2004);
Libertarian Party v. Rednour,
108 F.3d 768 , 773 (7th Cir.1997);
Werme v. Merrill,
84 F.3d 479, 483-84 (1st Cir.1996)).
1.
Strict Scrutiny of SEA 183 Is Not Warranted
Strict scrutiny means “[t]he State must show that the ‘regulation is necessary to serve a compelling state interest and that it is narrowly drawn to achieve that end.’ ”
Burson v. Freeman,
504 U.S. 191, 198 , 112 S.Ct. 1846 , 119 L.Ed.2d 5 (1992) (quoting
Perry Ed. Assn. v. Perry Local Educators’ Assn.,
460 U.S. 37, 45 , 103 S.Ct. 948 , 74 L.Ed.2d 794 (1983); citing
Board of Airport Comm’rs of Los Angeles v. Jews for Jesus, Inc.,
482 U.S. 569, 573 , 107 S.Ct. 2568 , 96 L.Ed.2d 500 (1987);
Cornelius v. NAACP Legal Defense & Ed. Fund, Inc.,
473 U.S. 788, 800 , 105 S.Ct. 3439 , 87 L.Ed.2d 567 (1985);
United States v. Grace,
461 U.S. 171, 177 , 103 S.Ct. 1702 , 75 L.Ed.2d 736 (1983)).
In arguing that SEA 483 should be subject to strict scrutiny, Plaintiffs face enormous challenges based on the evidence they have submitted to the court. In particular, Plaintiffs have failed to submit: (1) evidence of any individuals who will be unable to vote or who will be forced to undertake appreciable burdens in order to vote; and (2) any statistics or aggregate data indicating particular groups who will be unable to vote or will be forced to undertake appreciable burdens in order to vote. Instead, they have concentrated their evidence and arguments on the burdens of obtaining a driver’s license or identification card from the BMV, which matter is ultimately irrelevant in this ease because of (1) and (2) above. Accordingly, Plaintiffs have not demonstrated that SEA 483 will impose severe burdens on the rights of voters, thereby rendering strict scrutiny unwarranted. We now address each of these points:
a.
Plaintiffs have presented no evidence of any individuals who will be severely burdened by this law.
Despite apocalyptic assertions of wholesale voter disenfranchisement, Plaintiffs have produced not a single piece of evidence of any identifiable registered voter who would be prevented from voting pursuant to SEA 483 because of his or her inability to obtain the necessary photo identification. Similarly, Plaintiffs have failed to produce any evidence of any individual, registered or unregistered, who would have to obtain photo identification in
*823
order to vote, let alone anyone who would undergo any appreciable hardship to obtain photo identification in order to be qualified to vote. In contrast to any reliable, specific evidence, nearly all of the original ICLU Plaintiffs assert that they know of people (or know of people who know of people) who claim they will not be able to vote as a result of SEA 488.
69
But,
none
of these allegedly affected individuals has been identified by name, let alone submitted an affidavit.
70
The Democrats, for their part, submitted the names of several individuals who they claim would be unable to vote as a result of SEA 483; however, each and every one of the individuals identified by the Democrats is either eligible to vote absentee, already had acceptable photo identification or could obtain acceptable photo identification if needed.
71
Plaintiffs’ inability to provide the names or otherwise identify any particular affected individuals persists despite various polls and surveys that were conducted for the specific purpose of discovering such individuals. The Democrats’ failure in this regard is particularly acute in light of their assertion that nearly one million of Indiana’s registered voters do not possess an Indiana driver’s license or photo identification.
72
We do not doubt that such individuals exist somewhere, even though Plaintiffs were unable to locate them. However, it is a testament to the law’s minimal burden and narrow crafting that Plaintiffs have been unable to uncover anyone who can attest to the fact that he/she will be prevented from voting despite the concerted efforts of the political party and numerous interested groups who arguably represent the most severely affected candidates and communities. Lacking any such individuals who claim they will be prevented from voting, we are hard pressed to rule that SEA 483 imposes a severe burden on the right to vote. To the contrary, we conclude that Plaintiffs’ lack of evidence confirms that SEA 483 is narrowly tailored because every hypothetical individual who Plaintiffs assert would be adversely affected by the law actually benefits from one of its exceptions.
b.
Plaintiffs have not presented statistical evidence of any groups who mil be severely or disproportionately burdened.
Plaintiffs’ efforts to introduce statistical data about the number of affected individuals is similarly unavailing. On the one hand, the conclusions of the “expert” re
*824
port commissioned by the Democrats to account for the number of registered voters without an Indiana driver’s license or identification card are totally unreliable,
see
Factual Background Section VII,
supra.
To the extent that the Brace report reveals anything relevant, it is limited to the fact that the vast majority, which is to say up to 99%, of Indiana’s registered voters already possess an Indiana driver’s license or an identification card. On the other hand, the ICLU Plaintiffs have submitted the results of polls and surveys, some of them admittedly very informal and unscientific, which purport to establish the impact of SEA 483 on various groups, such as the homeless, low-income, elderly and disabled. However, none of these polls or surveys actually indicates that SEA 483 imposes a severe burden on the rights of the voters in these groups. At best, the ICLU Plaintiffs’ information reveals that several groups which are not required under SEA 483 to obtain photo identification in order to vote would be burdened to some extent if they were required to do so.
73
Plaintiffs, therefore, have not provided the Court with any evi-dentiary basis on which to conclude that the rights of Indiana voters, let alone any particular disadvantaged segment of the population, will be severely burdened by the requirements of SEA 483.
c.
Plaintiffs’ arguments concerning the difficulty of obtaining photo identification are similarly unavailing.
Plaintiffs have included voluminous argument and discussion in their submissions describing the requirements for obtaining photo identification from the BMV and demonstrating that they are “an onerous and expensive burden for some voters and an impossible one for others.”
74
However, we have no evidence before us that any individual or groups will be required to undertake this “onerous and expensive burden” in order to vote. As previously noted, the vast majority of Indiana’s voting age population already appears to possess a driver’s license or identification card; thus, SEA 483 cannot be deemed to impose any new burdens on these voters in order to vote. Moreover, the individuals and groups that Plaintiffs contend will be disproportionately impacted by SEA 483 all appear fully capable of availing themselves of the law’s exceptions so that they do not need to obtain photo identification in order to vote. Thus, there
*825
is no basis to attribute or extend the burdens of obtaining a driver’s license or identification card from the BMV to the act of voting.
75
Accordingly, we conclude that SEA 483

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Source: Frix Law Library, https://www.frixlaw.com/law-library/cases/2568119. Public record. Not legal advice.