state summary judgment motion on ag gag law

8/16/2019 State Summary Judgment motion on Ag Gag law

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DAVID N. WOLF (6688)KYLE J. KAISER (13924)DARIN B. GOFF (11355)

Assistant Utah Attorneys General

Utah Attorney General’s Office160 East 300 South, Sixth Floor

P.O. Box 140856Salt Lake City, Utah 84114-0856Telephone: (801) 366-0100Facsimile: (801) 366-0101E-mail: [email protected] E-mail: [email protected]: [email protected]

Attorneys for Defendants

IN THE UNITED STATES DISTRICT COURTIN AND FOR THE DISTRICT OF UTAH, CENTRAL DIVISION

ANIMAL LEGAL DEFENSE FUND,PEOPLE FOR THE ETHICAL TREATMENTOF ANIMALS, AMY MEYER,

Plaintiffs,v.

GARY R. HERBERT, in his official capacityas Governor of Utah; SEAN D. REYES, in hisofficial capacity as Attorney General of Utah,

Defendants.

DEFENDANTS’ MOTION FOR

SUMMARY JUDGMENT AND

MEMORANDUM OF LAW IN SUPPORT

(Redacted; Original Filed Under Seal Pursuant to Protective Order and DuCIVR 5-2(e)).

Case No. 2:13-cv-00679-RJS-EJF

Judge: Robert J. ShelbyMagistrate Judge Evelyn J. Furse

Case 2:13-cv-00679-RJS-EJF Document 112 Filed 05/31/16 Page 1 of 79

mailto:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]:[email protected]


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TABLE OF CONTENTS

MOTION........................................................................................................................................ ix

Plaintiffs do not have standing to challenge the Act. .......................................................... ix

The Act does not violate the First Amendment. ................................................................. ix

The Act does not violate the Fourteenth Amendment. ........................................................ x

MEMORANDUM OF LAW ......................................................................................................... xi

INTRODUCTION ............................................................................................................. xi

BACKGROUND .............................................................................................................. xii

The History of H.B. 187 Demonstrates Its Content-Neutral, Legitimate Purpose. .... xii

The Statute, As Enacted. ........................................................................................... xvii

Amy Meyer Is Charged; Charges Are Dismissed; Meyer Has No Intent to Violate the

Act; Meyer Asserts Her Rights. ............................................................................... xviii

ALDF’s Investigations Can Take Place Notwithstanding the Act; Its Methods Put

Animals and Workers at Risk. .................................................................................... xx

PETA’s Investigations Can Continue Notwithstanding the Act; It Instructs Its

Workers Not to Violate Neutral Laws or Policies; Its Methods Put Animals and

Workers at Risk......................................................................................................... xxii

Undercover Investigations Have a Significantly Negative Effect on AgriculturalOperations. ................................................................................................................ xxv

STATEMENT OF ELEMENTS AND UNDISPUTED MATERIAL FACTS ......................... xxvi

I. Plaintiffs Do Not Have Standing to Sue. .................................................. xxvi

II. The Act Does Not Violate the First Amendment. .................................... xxvii

A. Bugging, Lying to Gain Access to an Agricultural Operation,

Employment-Based Surreptitious Recording, and Trespassing Are Not

Protected by the First Amendment. ................................................... xxvii

B.

The Act Constitutes a Permissible Time, Place, and Manner Restriction............................................................................................................ xxviii

1. The Act Is Content Neutral. .......................................................... xxix

2. The Act is Narrowly Tailored to Serve a Significant Governmental

Interest............................................................................................ xxx



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3. The Act Leaves Open Ample Alternative Channels for

Communication. ......................................................................... xxxvii

C.

The Act Is Not Overbroad....................................................................... xl

III.

Plaintiff’s Fourteenth Amendment Claims Fail. .......................................... xli

A. The Act Does Not Significantly Burden a Fundamental Right. ........... xlii

B. Multiple Rational Bases Support the Act.............................................. xlii

C. Alleged Animus Does Not Change the Equation. ............................... xliii

SUMMARY JUDGMENT STANDARD ...................................................................... xliv

LEGAL ARGUMENT ........................................................................................................ 1

I.

Plaintiffs Lack Standing to Challenge the Act. .............................................. 2

II. The Act Does Not Violate the First Amendment. .......................................... 4

A.

Bugging, Lying to Gain Access to an Agriculture Operation,

Employment-based Surreptitious Recording, and Trespass Are Not

Protected by the First Amendment. ......................................................... 5

B. The Act Constitutes a Permissible Time, Place, and Manner Restriction.

.................................................................................................................. 9

1. The Act Is Content Neutral. ............................................................. 10

2.

The Act Is Narrowly Tailored to Serve a Significant Governmental

Interest.............................................................................................. 14

a.

The Act Protects Against Animal Exposure to Infectious Disease

by Controlling Human Movements. ............................................. 15

b. The Act Protects Against Harm to Animals Caused by Unqualified

or Inattentive Workers. ................................................................. 17

c. The Act Protects Against Human Exposure to Zoonotic Disease

and Contamination. ....................................................................... 18

d.

The Act Protects Against Harm to Facility Employees Caused by

Unqualified or Inattentive Workers. ............................................. 19

3. The Act Leaves Open Ample Alternative Channels for

Communication. ............................................................................... 19

a. Government Documents and Records .......................................... 21



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b. Confrontation of Targets of Investigation ..................................... 21

c. Whistleblowers ............................................................................. 21

d.

Technology ................................................................................... 22

C. The Act Is Not Overbroad...................................................................... 23

III. The Act Does Not Violate the Fourteenth Amendment. .............................. 25

A. The Act Does Not Significantly Burden a Fundamental Right. ............ 25

B. Multiple Rational Bases Exist for the Act. ............................................ 28

C. Any Alleged Animus Does Not Invalidate the Act. .............................. 29

CONCLUSION ............................................................................................................................. 34



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TABLE OF AUTHORITIES

Cases

Abilene Retail No. 30, Inc. v. Bd. of Commr’s ,492 F.3d 1164 (10th Cir. 2007) ..................... 31, 10

Anderson v. Liberty Lobby, Inc., 477 U.S. 242 (1986) ........................................................... 48, 49

Animal Legal Defense Fund v. Otter, 118 F. Supp. 3d 1195 (D. Idaho 2015) ....................... 27, 29

Arkansas W riters’ Project Inc. v. Ragland, 481 U.S. 221 (1987) ................................................ 45

Bartnicki v. Vopper, 532 U.S. 514 (2001) .......................................................................... 30, 46, 6

Bd. of Educ. Of Westside Comm. Schs. v. Mergens ex rel. Mergens, 496 U.S. 226 (1990) ......... 30

Bd. of Trs. of Univ. of Ala. v. Garrett, 531 U.S. 356 (2001)............................................. 46, 28, 30

Bishop v. Smith, 760 F.3d 1070 (10th Cir. 2014) ............................................................. 31, 32, 33

Boddie v. Am. Broad. Cos., 881 F.2d 267 (6th Cir. 1989) ............................................................ 30

Bones v. Honeywell Int'l, Inc., 366 F.3d 869 (10th Cir. 2004) ............................................... 48, 49

Branzburg v. Hayes, 408 U.S. 665 (1972) .................................................................... 30, 45, 5, 27

Bronson v. Swenson, 500 F.3d 1099 (10th Cir. 2007) .......................................................... 29, 2, 3

Celotex Corp. v. Catrett, 477 U.S. 317 (1986) ....................................................................... 48, 49

Citizens for Peace in Space v. City of Colorado Springs, 477 F.3d 1212 (10th Cir. 2007)

................................................................................................................................. 41, 43, 20, 23

City Council of Los Angeles v. Taxpayers for Vincent, 466 U.S. 789 (1984)................... 44, 45, 24

City of Cleburne, Tex. v. Cleburne Living Ctr., 473 U.S. 432 (1985) .............................. 26, 31, 33

City of L.A. v. Alameda Books, Inc., 535 U.S. 425 (2002) ..................................................... 32, 11

City of Mobile v. Bolden, 446 U.S. 55 (1980) .............................................................................. 30

City of Renton v. Playtime Theaters, Inc., 475 U.S. 41 ................................................................ 30

Clark v. Community for Creative Non-Violence, 468 U.S. 288 (1984) .................................... 30, 5

D.L.S. v. Utah, 347 F.3d 971 (10th Cir. 2004)................................................................................ 3

DeVeau v. Braisted, 363 U.S. 144 (1960) ..................................................................................... 29

Dietemann v. Time, Inc., 449 F.2d 245 (9th Cir. 1971) .................................................. 30, 6, 7, 20


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Doe v. City of Albuquerque, 667 F. 3d 1111 (10th Cir. 2012)...................................................... 31

Dunagin v. City of Oxford, Miss. ,718 F.2d 738 (5th Cir. 1983) ................................................... 26

E. Coast Novelty Co. v. City of New York, 809 F. Supp. 285 (S.D.N.Y. 1992) ............................ 24

FCC v. Beach Commc’ns, Inc., 508 U.S. 307 ............................................................................... 28

Flying J, Inc. v. City of New Haven, 549 F.3d 538 (7th Cir. 2008) .............................................. 47

Food Lion, Inc. v. Capital Cities/ABC, Inc., 194 F.3d 505 (4th Cir. 1999) .................................... 7

Forsyth Cnty. v. Nationalist Movement, 505 U.S. 123 (1992)........................................................ 9

Frisby v. Schultz, 487 U.S. 474 (1988) ............................................................................. 10, 31, 33

Garcia v. United States, 469 U.S. 70 (1993) ................................................................................ 11

Golan v. Holder, 609 F.3d 1076 (10th Cir. 2010) ........................................................................ 31

Heffron v. Int’l Soc. for Krishna Consciousness, Inc., 452 U.S. 640 (1981) ................................ 19

Heller v. Doe, 509 U.S. 312 (1993) .............................................................................................. 46

Hill v. Colorado, 530 U.S. 703 (2000) ................................................................................... 32, 10

Hill v. Kemp, 645 F. Supp. 2d 992 (N.D. Okla. 2009)............................................................ 45, 26

Hudgens v. N.L.R.B., 424 U.S. 507 (1976) ..................................................................... 30, 46, 6, 8

iMatter Utah v. Njord, 774 F.3d 1258 (10th Cir. 2014) ..................................................... 31, 9, 14

Kansas Penn Gaming, LLC v. Collins, 656 F.3d 1210 (10th Cir. 2011) ...................................... 47

KT & G Corp. v. Att’y Gen. of Okla., 535 F.3d 1114 (10th Cir. 2008) ............................ 45, 25, 26

Lloyd Corp. v. Tanner, 407 U.S. 551 (1972) .................................................................................. 6

Lujan v. Defenders of Wildlife, 504 U.S. 555 (1992) ............................................................... 29, 2

Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574 (1986).............................. 48, 49

McCullen v. Coakley, 573 U.S. ___, 134 S. Ct. 2518 (2014) ................................................. 32, 10

McCullen, ___ U.S., 132 S. Ct. ..................................................................................................... 10

Mims v. Arrow Financial Services, LLC, 565 U.S. ___, 132 S. Ct. 740 (2012) ........................... 11

Minn. Comm’r of Revenue, 460 U.S. 575 (1983) ......................................................................... 26

Minnesota v. Clover Leaf Creamery, Co., 449 U.S. 456 (1981) ............................................ 46, 28


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7/79

vii

New York v. Ferber, 458 U.S. 747 (1982) .................................................................................... 23

Nova Health Sys. v. Gandy, 416 F.3d 1149 (10th Cir. 2005) ..................................................... 2, 3

Phillips v. Calhoun, 956 F.2d 949 (10th Cir. 1992) ..................................................................... 49

Planned Parenthood of Kan. & Mid-Mo. v. Moser, 747 F.3d 814 (10th Cir. 2014) .................... 11

Police Dep’t of City of Chicago v. Mosley, 408 U.S. 92 (1972) ............................................. 45, 27

Posadas de P.R. Assocs. v. Tourism Co. of P.R., 478 U.S. 328 (1986) ........................................ 28

Powers v. Harris, 379 F.3d 1208 (10th Cir. 2004) ....................................................................... 31

Romer v. Evans, 517 U.S. 620 (1996)..................................................................................... 31, 33

Ross v. Early, 746 F.3d 546 (4th Cir. 2014) ............................................................... 41, 19, 20, 23

Sanders v. Am. Broad. Cos., Inc., 978 P.2d 67 (Cal. 1999) ...................................................... 30, 7

Save Palisade FruitLands v. Todd, 279 F.3d 1204 (10th Cir. 2002) ............................................ 26

Schulman v. Group W. Prods., Inc., 955 P.2d 469 (Cal. 1998) ........................................ 30, 6, 7, 8

Self v. Crum, 439 F.3d 1227 (10th Cir. 2006)............................................................................... 49

Swepi, L.P. v. Mora Cnty. N.M., 81 F. Supp. 3d 1075 (D.N.M. 2015) ................................... 31, 32

Turner Broad. Sys. Inc. v. FCC, 512 U.S. 622 (1994) .................................................................. 31

U.S. Dep’t of Agric. v. Moreno, 413 U.S. 528 (1973) ................................................ 30, 31, 32, 33

United States v. Alvarez, ___ U.S. ___, 132 S.Ct. 2537 (2012) ................................. 46, 12, 13, 26

United States v. Marzzarella, 614 F.3d 82 (3d Cir. 2010) ............................................................ 31

United States v. O’Brien, 391 U.S. ........................................................................................... 31, 9

United States v. Pickard, 100 F. Supp. 3d 981 (E.D. Cal. 2015) ............................................ 46, 28

United States v. Simons, 129 F.3d 1386 (10th Cir. 1997) ............................................................. 48

United States v. Windsor , 570 U.S. 133 S. Ct. 2635 (2013) ......................................................... 31

Virginia v. Hicks, 539 U.S. 113 (2003)................................................................................... 44, 24

Ward v. Rock Against Racism, 491 U.S. 781 (1989) ............................................................. Passim

Wasatch Equality v. Alta Ski Lifts Co., 55 F. Supp. 3d 1351 (D. Utah 2014) ............ 47, 31, 32, 33

Young v. Am. Mini Theaters, Inc., 427 U.S. 50 (1976) ................................................................. 31


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8/79

viii

Statutes

Utah Code Ann. § 76-6-112 ................................................................................................... Passim

Utah Code Ann. § 76-6-112(2)(a) ............................................................................... 30, 32, 46, 22

Utah Code Ann. § 76-6-112(2)(a)–(d) ............................................................................................ 4

Utah Code Ann. § 76-6-112(2)(b) .................................................................................... 30, 32, 46

Utah Code Ann. § 76-6-112(2)(b)-(c) ........................................................................................... 22

Utah Code Ann. § 76-6-112(2)(c) ..................................................................................... 30, 32, 46

Utah Code Ann. § 76-6-112(2)(d) .............................................................................. 31, 32, 43, 46

Utah Code § 76-6-122 ................................................................................................................... 12

Rules

Fed. R. Civ. P. 56 .......................................................................................................................... 48

Other Authorities

Susannah W. Pollvogt, “Unconstitutional Animus”, 81 Fordham L. Rev. 887 (2012) .......... 32, 33


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MOTION

Defendants Governor Gary Herbert and Attorney General Sean Reyes, through counsel,

move for summary judgment on all remaining1 claims in Plaintiffs’ Civil Rights Complaint, 2 and

for the Court to declare that Utah’s Agricultural Operation Interference Act, Utah Code § 76-6-

122, is constitutional. The bases for the motion are:

Plaintiffs do not have standing to challenge the Act.

The Act does not violate the First Amendment.

o

The Act prohibits pre-speech activity outside of the protection of the First

Amendment.

o To the extent the First Amendment applies to any of the Act’s provisions, the

Act does not discriminate on the basis of the content of Plaintiffs’ speech, and

therefore intermediate scrutiny applies.

The Act serves significant governmental interests of worker safety,

food safety, food supply safety, and protection against disease.

The Act is narrowly tailored to those governmental interests,

prohibiting acts which would undermine those interests.

There are ample channels for Plaintiffs both to engage in investigation

related to their advocacy and to advocate for their causes.

o

The Act is not constitutionally overbroad.

The Act does not punish more speech than necessary.

1 Plaintiffs’ Third Cause of Action, arguing that the Act was preempted by the False Claims Act,was previously dismissed by the Court. See Ord. Grant’g in Part & Den. in Part Defs.’ Mot. toDismiss (doc. 53) at 1.2 (Doc. 2.)



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The Act allows for recording in public places and recording by

employee whistleblowers.

The Act’s prohibitions are clear and specific, leading to less chilled

speech.

The Act does not violate the Fourteenth Amendment.

o Because no fundamental rights are significantly burdened, rational basis

scrutiny applies.

o

The Act is justified by multiple rational bases, including, but not limited to,

protection of private property and personal privacy, food safety, food supply

safety, and worker safety.

o The fact that some legislators mentioned Plaintiffs by name, or expressed

dislike of Plaintiffs’ actions does not render the law unconstitutional because

of animus.

For these reasons, more fully discussed in the Memorandum attached hereto, Defendants

respectfully request that the Court grant Defendants’ motion, declare the Act constitutional, and

dismiss Plaintiffs’ claims with prejudice.



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MEMORANDUM OF LAW

INTRODUCTION

Plaintiffs ask the Court to constitutionalize the right to place “bugs” on private property,

to lie to gain access to private property, to surreptitiously record on private property against the

wishes of the owner, and to trespass. Plaintiffs believe the First Amendment protects this

conduct because those actions, they claim, eventually lead to communications on issues of public

concern. But Plaintiffs do not have standing to raise these claims. And even if they did, the First

Amendment’s reach is not that far, and these illegal acts cannot be justified by the Plaintiffs’

bare desire to get a story they want to tell.

In response to concerns about privacy and safety on agricultural operations, the Utah

Legislature enacted House Bill 187, now codified at Utah Code Ann. § 76-6-112. The Act is a

content-neutral, conduct-regulating law that prohibits bugging, accessing premises under false

pretenses, securing employment with the intent of surreptitiously recording without permission,

or recording while trespassing on private property. The Act protects against the spread of

infectious disease in animal agriculture, protects workers and others on animal agricultural

facilities, protects animals from workers whose attention is divided, and protects the safety of the

food supply.

The Act is narrowly tailored to those interests and does not silence any more speech than

necessary. It does not prohibit a whistleblower—an employee who sees misconduct at work but

who did not get a job just to root out misconduct—from recording the misconduct and reporting

it. It does not prohibit the dissemination of recordings whatsoever. It does not prohibit

Plaintiffs, or anyone else, from writing, talking, protesting, lobbying, or otherwise speaking


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about animal agriculture. And it does not prohibit Plaintiffs from conducting investigations in

more common, more responsible, and less dangerous ways.

Because the Act does not significantly burden a fundamental right, heightened scrutiny

under the Fourteenth Amendment is not warranted. Plaintiffs’ assertion of animus is insufficient

to trigger more exacting scrutiny. Animus is the absence of a rational basis in circumstances in

which a legislature targets the rights of a minority in expansive and novel ways or eliminates

privileges that a group would otherwise have. The Act is neither of these. It is supported by

multiple rational bases, and the fact that a few legislators may have used less than complimentary

language about, or expressed disdain with, Plaintiffs’ and their contemporaries’ conduct, does

not doom an otherwise valid legislative enactment.

The Act is a reasonable regulation that violates neither the First nor the Fourteenth

Amendments. The Court should grant summary judgement to Defendants.

BACKGROUND

The H istory of H .B. 187 Demonstrates I ts Content-Neutr al, Legitimate Purpose.

The Act started as H.B. 187 in the General Session of the Utah Legislature in 2012. In its

introduced form, the Act prohibited anyone from intentionally recording an image or sound from

any agricultural operation without the owner’s consent, or leaving a recording device on the

operation. 3 H.B. 187 was as introduced by the sponsor, Representative Mathis, to address the

3 Agricultural Operation Interference, H.B. 187, 59th Leg., 2012 Gen. Sess. (Utah introducedFeb. 8, 2012), available at http://le.utah.gov/~2012/bills/hbillint/hb0187.pdf , attached hereto asExhibit 1.


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“issue of privacy and personal property.”4 Rep. Mathis, a veterinarian, recognized the degree of

privacy needed in agricultural operations, and noted that, if the unauthorized undercover

operations that were being undertaken at agricultural operations across the country would

continue in Utah, the “security of your food will be compromised ….”5

Other legislators also recognized the serious privacy and personal property concerns at

issue. Representative Wright noted that he “live[s] in his barn,” and would not want that

property bugged just as he would not want his home bugged or invaded.6

In the committee hearing, there was concern that the law would be overbroad,7 —

potentially punishing the innocent participant in a field trip who took a picture without consent,8

or even the person who took a picture of an attractive barn while on the side of the road.9 There

were also concerns that the penalties—which included felony charges—were too high. The bill

was favorably voted out of committee,10 but was quickly replaced with a substitute bill. Second

Substitute H.B. 187, debated on the House floor, lowered the penalties and narrowed the scope

of the prohibitions.11 These changes were made “after a lot of discussion following committee

4 Agricultural Operation Interference, Hearing on H.B. 187 Before the House Law Enforcementand Criminal Justice Committee, 59th Leg., 2012 Gen. Sess. (Feb. 14, 2012) [hereinafter“Committee Hr’g”], Tr. at 68:18–20 (statement of Rep. Mathis), attached hereto as Exhibit 2,5 Id. at 70:14–71:3 (statement of Rep. Mathis).6 Id. at 101:4–17) (statement of Rep. Wright).7 E.g., id. at 108:4–22 (statement of Rep. Livtak); id. at 97:15–17 (statement of Ron Gordon,Chair of Utah Commission on Criminal and Juvenile Justice).8 Id. at 92:12–25 (statement of Jacey Skinner, Chair, Utah Sentencing Commission).9 Id. at 82:17–83:1 (statement of Rep. Arent).10 Utah House Law Enforcement & Criminal Justice Committee Report, H.B. 187, 59th Leg.,2012 Gen. Sess. (Utah filed Feb. 14, 2012), available athttp://le.utah.gov/~2012/comreport/hb187h10.pdf, attached hereto as Exhibit 3.11 Agricultural Operation Interference, H.B. 187 2d Substitute, 59th Leg., 2012 Gen. Sess. (Utahintroduced Feb. 8, 2012), available at http://le.utah.gov/~2012/bills/hbillint/hb0187s02.pdf,attached hereto as Exhibit 4.



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….”12 Rep. Mathis compared the acts of surreptitious recording in animal agriculture “to a

neighborhood watch group … taking it upon themselves to go into your home, leave hidden

cameras … because you have children and someday you might do some harm to one of your kids

….”…. There were still concerns that the statute was overbroad. Representative King noted that

insiders who are on the property lawfully should be able to document “illegal operations taking

place … in a way that engenders health or safety of us as Utah citizens.”As a result, and after the

bill passed the Utah House of Representatives, a third substitute was offered. d. 13 The

amendment further narrowed the statute, prohibiting gaining access to an agricultural operation

under “false pretenses”14 and specifically identifying the harms in applying for employment with

the intent to surreptitiously record without permission, and then recording, rather than just being

“lawfully present on the agricultural operation” but recording without permission.15

The Senate sponsor, Senator Hinkins, recognized both the privacy and safety interests at

play in the bill:

“This is basically a trespassing bill as much as anything, private property rights

included.”16 He later observed:

And the ranchers and farms and feedlot people, the processing plants, theyactually need to know who’s coming on their property because of food safety.People could poison the meat and stuff like that through food safety. And that’swhy it’s really —we need to know who’s coming and going on properties and —

12 House Floor Debate, 59th Leg., 2012 Gen. Sess. (Utah 2012), Day 32 Feb. 15, 2012, Tr. at3:14–16 (statement of Rep. Mathis), attached hereto as Exhibit 2.13 Agricultural Operation Interference, HSee id. at 38:1–13 (recorded floor vote of 60–14).(Utahintroduced Mar. 6, 2012), available at http://le.utah.gov/~2012/bills/hbillint/hb0187s03.pdf,attached hereto as Exhibit 5.14 Id. at li. 38.15 Id. at li. 39–45.

16 Senate Floor Debate, 2012 Gen. Sess. Day 43 (Mar. 6, 2012) Tr. at 36:4–5 (statement of Sen.Hinkins), attached hereto as Exhibit 2.



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because they could kill operations they could poison them, they could startdisease like hoof and mouth diseases like they had in England that wouldcompletely wipe out agriculture. It’s very important that people aren’t

trespassing, that the rangers, the farmers know exactly who’s coming and goingon their property. So this is a private property right, as well as a food safetyright.17

There was still concern that employee-whistleblowers may be subject to prosecution, but

the amendment made it explicitly clear that that was not the case. “[I]f a person’s actually

working for [the operation] and had seen something that was illegal or that’s unsound practice,

that he would be protected under this bill.”18 And Sen. Hinkins noted that the third substitute did

not affect whistleblower-employees, but rather “people getting employment that have actually no

reason to be there … actually there as espionage or to spy on the operation.”19

Finally, before final passage, the bill was amended to include the word “private” in the

definition of “agricultural operation,” to ensure that those who were recording on public

property, such as on lands owned by the federal Bureau of Land Management, would not be

prosecuted.20

The bill was passed in the Senate, returned to the House, was agreed to as amended, and

was signed by Governor Herbert.21

Some members of the Legislature discussed Plaintiffs or their contemporaries, and used

less-than-flattering language to describe them. However, many of these statements were either

17 Id. at 54:18–55:11 (statement of Sen. Hinkins).18 Id. at 50:11–21.19 Id. at 43:12–20.20 Ex. 2, Senate Floor Debate, Tr. at 53:5–54:16.21

See Bill Status/Votes, H.B. 187, 3d Substitute,http://le.utah.gov/~2012/status/hbillsta/hb018703.htm; 2012 Utah Law Ch. 213.


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stray comments by legislators not involved with the drafting or amending of the bill,22 comments

directed to the conduct of surreptitious recording and bugging,23 or comments related to the

massive amount of communications, most of which was from outside Utah, about the

legislation.24

22 See, e.g., House Floor Debate, 2012 Gen. Sess. Day 32 Feb. 15, 2012, Tr. at 25:2–18, attachedhereto as Exhibit 2, (statement of Rep. Noel) (mentioning PETA by name and noting that, whena farmer gets up early in the morning to tend his livestock, he doesn’t want “some jack wagoncoming in and taking a picture of them”).23 See, e.g., Ex. 2, Committee Hr’g, Tr. at 105:10–23 (statement of Rep. Perry) (describing hisview of “domestic terrorism,” including individuals “sneak[ing] onto farms … tak[ing] picturesthat they purposely set up�