Senate Counsel, Research, and Fiscal Analysis State of Minnesota Legislative Immunity Peter S. Wattson Senate Counsel Updated July 1, 2016 Eric S. Silvia Senate Counsel This document is made available electronically by the Minnesota Legislative Reference Library as part of an ongoing digital archiving project. http://www.leg.state.mn.us/lrl/lrl.asp Contents I. Origins of the Doctrine of Legislative Immunity .............................................................. 17 A. Common Law ................................................................................................................ 17 B. Constitutions.................................................................................................................. 21 C. Statutes .......................................................................................................................... 24 II. Scope of Legislative Immunity .......................................................................................... 25 A. “Legislative Acts” Are Immune from Questioning ...................................................... 25 1. Introducing and Voting for Legislation .................................................................... 25 2. Failing or Refusing to Vote or Enact Legislation ..................................................... 27 3. Voting on the Seating of a Member .......................................................................... 28 4. Voting on the Confirmation of an Executive Appointment ...................................... 28 5. Voting on an Impeachment ....................................................................................... 28 6. Determining Whether a Bill Requires Local Approval ............................................ 28 7. Making Speeches ...................................................................................................... 28 8. Enforcing Rules ........................................................................................................ 29 9. Serving as a Member of a Committee....................................................................... 29 10. Conducting Hearings and Developing Legislation ................................................... 29 11. Providing Testimony to a Committee ....................................................................... 30 12. Investigating Conduct of Executive Agencies .......................................................... 30 13. Gathering Information .............................................................................................. 31 14. Publishing Reports .................................................................................................... 31 15. Sending Letters ......................................................................................................... 31 16. Drafting Memoranda and Documents ....................................................................... 32 17. Lobbying for Legislation .......................................................................................... 32 18. Making Recommendations on Executive Appointments .......................................... 32 19. Making Budgetary Decisions .................................................................................... 32 20. Denying Press Credentials ........................................................................................ 33 21. Making Personnel Decisions..................................................................................... 33 B. Legislative Immunity is Absolute .................................................................................. 34 2 C. Legislative Immunity is Personal ................................................................................... 34 D. Legislative Immunity Continues for Former Legislators ............................................... 34 E. Legislative Immunity Extends to Non-Legislators Participating in the Legislative Process ...................................................................................................................................... 35 F. Legislative Immunity Does Not Extend to a Member-Elect Ruled Ineligible before Her Term Begins .............................................................................................................................. 36 III. Some Activities of Legislators are Not Immune ............................................................... 36 1. Unconstitutional Procedures for Enacting Legislation ............................................. 36 2. Illegal Investigative Procedures ................................................................................ 37 3. False Disclosures and Claims ................................................................................... 37 B. “Political” Acts Are Not Immune ................................................................................. 37 1. Solicitation of Bribes ................................................................................................ 37 2. Communications to the Press .................................................................................... 39 3. Communications to Constituents .............................................................................. 39 4. Communications to a Legislator’s Spouse ................................................................ 40 5. Communications Concerning Enforcement of Law ................................................. 40 6. Pressure on the Executive Branch............................................................................. 40 7. Travel on Legislative Business ................................................................................. 40 8. Calendars and Expense Records ............................................................................... 40 C. Administrative Acts are Not Immune ............................................................................ 40 1. Personnel Decisions .................................................................................................. 41 2. Other Administrative Acts by a Local Legislative Body .......................................... 43 D. Executive Branch Activities Are Not Immune .............................................................. 44 1. Sitting on an Audit Commission ............................................................................... 44 2. Sitting on an Executive Branch Committee .............................................................. 44 IV. Some Offers of Proof About Legislative Activity are Not Prohibited .............................. 44 A. Proof of Status as a Member is Not Prohibited ............................................................. 44 B. Proof of Legislative Acts Offered by Defendant in Criminal Action is Not “Questioning” ........................................................................................................................... 45 V. A Legislator and Aide Are “Treated as One” for Purposes of Legislative Immunity ... 45 A. Legislative Acts of an Aide Are Immune ..................................................................... 45 B. “Political” Acts of an Aide Are Not Immune ............................................................... 47 3 C. Unconstitutional or Illegal Conduct of an Aide is Not Immune ................................... 48 VI. Uses of Legislative Immunity ............................................................................................ 49 A. From Ultimate Relief .................................................................................................... 49 1. Criminal Prosecution ................................................................................................. 49 2. Liability for Damages ............................................................................................... 49 3. Declaratory Judgments.............................................................................................. 50 4. Injunctions................................................................................................................. 51 5. Writs of Quo Warranto and Mandamus .................................................................... 52 6. Claims for Repayment .............................................................................................. 52 7. Cancellation of Enrollment in Political Party ........................................................... 53 8. Recall from Office .................................................................................................... 53 B. From Having to Testify or Produce Documents ........................................................... 53 1. In Criminal Actions................................................................................................... 53 2. In Civil Actions ......................................................................................................... 55 a. Legislators ................................................................................................................. 55 (1) Members of Congress................................................................................................ 55 (2) State Legislators ........................................................................................................ 57 (3) Local Legislators ....................................................................................................... 59 b. Legislative Aides ......................................................................................................