Sparked by the Amazing Jake's recent question asking how recalls happen in Chandler, I went to the
Chandler Municipal Code to find out.
This post detailing my legal research is rather long, so I'll put it under different headings for clarity:
I. Starting a Recall.
II. Completing the Petitions.
III. Timing of Recall.
IV. Filling the Vacancy.
And please note that I'm not a lawyer. Though I do have a genuine interest in law and governance, my research can't be considered definitive.With that in mind (and at the risk of facilitating recalls in the future), here's Geo's amateur tutorial on recall elections in Chandler...
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I. Starting a Recall.Looking at the mechanism of how a recall is launched, in Article 8 of the City Charter (located at the front of the Municipal Code), it says:
ARTICLE VIII. INITIATIVE, REFERENDUM AND RECALL
Section 8.01. General authority.
There is hereby reserved to the electors of the city the powers of the initiative, the referendum and the recall of elective officers. The provisions of the constitution and laws of this state, as the same now exist or hereafter may be amended, governing the initiative and referendum and the recall of elective officers, shall apply to the use thereof in the city so far as such provisions are not in conflict with the provisions of the charter.
Section 8.02. Commencement of proceedings, petitioners' committee, affidavit.
Any five qualified voters may commence initiative or referendum proceedings by filing with the city clerk an affidavit stating they will constitute the petitioners' committee and be responsible for circulating the petition and filing it in proper form, stating their names and addresses and specifying the address to which all notices to the committee are to be sent, and setting out in full the proposed initiative ordinance or citing the ordinance sought to be reconsidered. Promptly after the affidavit of the petitioners' committee is filed, the city clerk shall issue the appropriate petition blanks to the petitioners' committee.
Okay, that tells us how citizens can start a recall petitioners' committee and receive the petition blanks.
II. Completing the Petitions.In section 4-3 of the Municipal Code, we have this text:
4-3. Number of signatures required on initiative petitions.
The provisions of the constitution and general laws of the State, as the same now exist or hereafter be amended, governing the initiative shall apply in the City; however, the total number of registered voters qualified to vote at the last preceding general municipal election shall be the basis on which the number of electors of the City required to file an initiative petition shall be computed.
(Ord. No. 2040, § I, 12-15-88; Ord. No. 2995, § 3, 6-24-99)
This doesn't give the exact number of petitions required to get a recall initiative on the ballot, but it does indicate that it's based on a percentage of registered Chandler voters qualified to vote in the last election. As has been
noted earlier on this blog:
"According to City Clerk Marla Paddock, it would take 3,501 valid signatures for a councilmember to be recalled."
Meeting this petition goal then takes us to the timing of an actual recall election.
III. Timing of Recall.Regarding the timing, there's a section of Chapter 4, section 4, related to voter initiatives:
4-4. Initiative and referendum elections.
The City Council may by majority vote call a special election to vote on any matter referred for a vote of the citizens of Chandler in accordance with the laws of the State of Arizona and the City of Chandler Charter. If a special election is not called by the City Council, the referred matter if properly qualified shall be submitted to the voters at the next ensuing municipal election.
(Ord. No. 3576, § 1, 6-24-04)
Hence, if the majority of the City Council agrees, there could be a special election held to effect the recall.
Technically, I believe the May 16th runoff election would be the "next ensuing municipal election", but for the fact that petitions surely won't be completed until after that. That being the case, it makes the November elections the next opportune moment. Though there won't be municipal elections in November, it would be the best time for the City Council to set this up for minimal disruption and cost. Indeed, this is what Ray Pilara's recall effort is shooting for.
So much for the timing, now what happens if the recall election actually unseats one or more Council members?
IV. Filling the Vacancy.Regarding filling vacancies left by a recall, the Charter has "Article II. City Council", which outlines the various parameters for the Mayor and Council members (terms of office, responsibilities, and so forth). Article II includes "Sec. 2.06. Vacancies; forfeiture of office; filling of vacancies." This section is instructive for filling vacancies of all kinds, including those arising from a recall, so I'll copy the text here:
Section 2.06. Vacancies; forfeiture of office; filling of vacancies.
(a) Vacancies. The office of mayor or councilman shall become vacant upon his death, resignation, forfeiture of office, or removal from office in any manner authorized by law.
(b) Forfeiture of office. The mayor or a councilman shall forfeit his office if he:
(1) Lacks at any time during his term of office any qualification for the office prescribed by this charter or by law;
(2) Violates any express prohibition of this charter;
(3) Is convicted of a crime involving moral turpitude; or
(4) Fails to attend three consecutive regular meetings of the council without being excused by the council.
(c) Filling of vacancies. In the event of a vacancy in the council including the office of mayor, the council by a majority vote of its remaining members, shall appoint a qualified person to serve for the unexpired term. If the council fails to make such an appointment within thirty (30) days following the occurrence of the vacancy, the council shall call a special election to fill the vacancy. Such election shall be held not later than one hundred twenty (120) days following the occurrence of the vacancy, and shall otherwise be governed by the provisions of Article VII hereof. The person elected to such office at the special election shall hold office for the entire unexpired term.
(Amendment of 12-12-72)
(d) Temporary Vacancies; Active Duty Military. In the event a councilmember, including the office of mayor, receives military orders for active duty and the period of active duty is projected to last at least four (4) months but less than the remainder of the councilmember's term, the councilmember's office may be temporarily vacated as set forth below. If a councilmember is unable to attend meetings either personally or telephonically, the council by a majority vote of its remaining members may appoint a qualified person to serve until the councilmember returns from active duty or until the councilmember's term expires, whichever occurs first.
(Added 9-12-00)
(e) Temporary Vacancies; Injury or Illness. In the event a councilmember, including the office of mayor, incurs an injury or illness which the councilmember projects will preclude the councilmember from attending council meetings, either personally or telephonically, for at least a four (4) month period but less than the remainder of the councilmember's term, the councilmember's office may be temporarily vacated as set forth below. If a councilmember temporarily vacates their office due to injury or illness, the council by a majority vote of its remaining members can appoint a qualified person to serve until the councilmember is able to attend meetings or until the councilmember's term expires, whichever occurs first.
(Added 9-12-00)
Quite a few interesting things of note in this section.
First, if a recall occurs and unseats a Councilmember, there is then a formal "vacancy" per Paragraph "a" ("removal from office in any manner authorized by law"). Paragraph "c" then describes how this vacancy is handled. Essentially, the Council has 30 days to appoint someone to serve out the rest of the term (possibly up to 4 years if it's a Councilmember, 2 years if it's the Mayor). If they are unable to so appoint a replacement within 30 days, the Council must then, within 120 days, hold a special election for a replacement.
Now, this seems to be saying that if a recall takes place in November, then the remainder of the council will be able to simply
appoint a replacement or replacements and those replacements would remain in office for the remainder of the unexpired term. This would be two years, as both Sepulveda and Orlando's terms expire in 2008. It would be entirely at the discretion of the remainder of the council as to whether they wished to allow a special election to find replacements (or by their inability to agree, were forced to do so).
I have to say, this sounds worrisome to me. It means that if the recall succeeds, then there are only two unfortunate possibilities: either the rest council will simply appoint one or two Councilmembers for two more years (undemocratic) or we have to hold a special election within a few months after the recall election to choose the temporary replacements (costly and disruptive).
There you have it. Comments and corrections would be appreciated!
Update: Ray Pilara has responded to Jake's inquiry about this (see
Jake's entry for the full scoop). Ray has another view on how this will work in November. He says:
The answer to your question is found in the Constitution of the State of Arizona, Article VIII, Section 4: Special election; candidates; results; qualification of successor.
Section 4. Unless the incumbent otherwise requests, in writing, the incumbent's name shall be placed as a candidate on the official ballot without nomination. Other candidates for the office may be nomincated to be voted for at said election. The candidate who receives the highest nunber of votes shall be declared elected for the remainder of the term. Unless the incumbent receives the highest number of votes, the incumbent shall be deemed to be removed from office, upon qualification of the successor. In the event that the successor shall not qualify within five days after the result of said election shall have been declared, the said office shall be vacant, and may be filled as provided by law.
My [Pilara's] interpretation of the above is:
1. Orlando and Sepulveda will be placed on the ballot unless one or both choose not to run.
2. At least 2 people will need to run against them.
3. The 2 candidates with the highest number of votes for the office will fill the remainder of their terms.
4. If they are not in the top 2, they are deemed to be removed from office. 5. If the 2 highest vote getters are not "qualified" and one or both are not Orlando or Sepulveda, that office is deemed vacant, and another process will be used to fill the vacancy. (This could be interesting in that the council could not fill Sepulveda's seat during his abscence.)
I'm grateful to Jake and Ray for these insights. It's not clear to me whether this applies to a municipal recall election in Chandler, but it's possible. It'd be great to have an elections law specialist to weigh in on this.
Update 2: Checking out
Article 8 of the AZ Constitution is helpful here. From
Article 8 Part 1 Section 1, it appears that Chandler municipal officers are also subject to these recall provisions. From that same section, it tells that the requisite number of petitioners is equal to 25% of the electors in the previous election.
However,
Article 8 Part 1 Section 2 notes "If such officer shall offer his resignation it shall be accepted, and the vacancy shall be filled as may be provided by law." It makes me wonder whether the provisions set forth in the Chandler Municipal Code, as I've documented above, on filling vacancies may constitute the "as may be provided by law".
Article 8 Part 1 Section 6 also speaks to the controlling nature of general election laws and implementary legislation, of which the Chandler Municipal Code seems to be a part.
I'm guessing Ray has had some knowledgeable folks advising him on the mechanics of a recall, so I'm inclined to lean toward his interpretation, here, until I hear anything to the contrary.
Update 3: Well, the answer's staring me in the face. In the Charter of the Candler Municipal Code,
ARTICLE VIII. INITIATIVE, REFERENDUM AND RECALL: Section 8.01. General authority, as I copied above, it says explicitly:
The provisions of the constitution and laws of this state, as the same now exist or hereafter may be amended, governing the initiative and referendum and the recall of elective officers, shall apply to the use thereof in the city so far as such provisions are not in conflict with the provisions of the charter.(Emphasis added.)
So, it appears that both Ray Pilara and I are correct, and that a meshing of these two (the State Constitution and the Chandler Municipal Code) will govern the mechanics, timing and effects of a potential recall election. Strangely, that emphasized passage from the Chandler Code makes it appear that the Chandler City Charter takes precedence over the State Constitution, however. Hmm...