Francis Deal v. Adrian Perkins And Caddo Parish Clerk Of Court, Mike Spence, In His Official Capacity

FOR IMMEDIATE NEWS RELEASE NEWS RELEASE #037
F
ROM: CLERK OF SUPREME COURT OF LOUISIANA
T
he Opinions handed down on the 19th day of August, 2022 are as follows:
B
Y Weimer, C.J.:
2022-C-01212 FRANCIS DEAL VS. ADRIAN PERKINS AND CADDO PARISH
CLERK OF COURT, MIKE SPENCE, IN HIS OFFICIAL CAPACITY
(Parish of Caddo)
REVERSED AND RENDERED. SEE OPINION.
Hughes, J., dissents and would affirm the lower courts.
Crichton, J., dissents and assigns reasons.
McCallum, J., dissents for the reasons assigned by Justice Crichton and
assigns additional reasons.

SUPREME COURT OF LOUISIANA
No. 2022-C-01212
FRANCIS DEAL
VS.
ADRIAN PERKINS AND CADDO PARISH CLERK OF COURT, MIKE
SPENCE, IN HIS OFFICIAL CAPACITY
On Writ of Certiorari to the Court of Appeal, Second Circuit, Parish of Caddo
WEIMER, C.J.
Certiorari was granted in this election suit to consider the interplay between La.
R.S. 18:492, which sets forth the grounds for objecting to candidacy, and La. R.S.
18:463, detailing the requirements of a notice of candidacy. Specifically, this court
considers whether a candidate’s incorrect certification on his notice of candidacy
“that if he claims a homestead exemption on a residence pursuant to Article VII,
Section 20 of the Constitution of Louisiana, he is registered and votes in the precinct
in which that residence is located,” required by La. R.S. 18:463(A)(2)(a)(viii), serves
as a ground for an objection to candidacy under La. R.S. 18:492. Resolving a split
in the courts of appeal, this court holds that only those false certifications specifically
listed in La. R.S. 18:492(A)(5) through (7) constitute grounds for objecting to a
candidate. Because the certification at issue in this case is not specifically listed in
La. R.S. 18:492, it cannot serve as a basis to disqualify the candidate here. For the
reasons that follow, the rulings of the lower courts are reversed.
08/19/22

FACTS AND PROCEDURAL HISTORY
Adrian Perkins, current mayor of Shreveport, Louisiana, seeks reelection to that
office. On July 22, 2022, Perkins signed and filed a notice of candidacy form,1 as
required by La. R.S. 18:461 to become a candidate in a primary election. The
requirements for the notice of candidacy are set forth in La. R.S. 18:463 and include
a requirement that the candidate certify nine items.2 Of particular relevance are the
certifications:
(ii) That he meets the qualifications of the office for which he is
qualifying.
(viii) Except for a candidate for United States senator or representative
in congress or a candidate who resides in a nursing home as defined in
R.S. 40:2009.2 or in a veterans’ home operated by the state or federal
government, that if he claims a homestead exemption on a residence
pursuant to Article VII, Section 20 of the Constitution of Louisiana, he
is registered and votes in the precinct in which that residence is located.
La. R.S. 18:463(A)(2)(a)(ii) and (viii). It is undisputed that Perkins signed the form
certifying all required statements and that his certification as to (viii), Item 8 on the
notice of candidacy form, was incorrect. Perkins has two residences–Stratmore Circle
and Marshall Street– both within the city of Shreveport. Although Perkins was
registered to vote at the Stratmore Circle address at the time of his qualification, it is
undisputed he maintained a homestead exemption at the Marshall Street residence.
The two residences are in different voting precincts.
On July 29, 2022, Francis Deal, a qualified elector, filed a “Petition in
Objection to Candidacy” asserting Perkins’ false certification on the notice of
candidacy form disqualifies him from being a candidate for mayor pursuant to La.
1 Notice of candidacy forms are prepared and provided by the Secretary of State.
2 Items 6 through 14 on the notice of candidacy form correlate to the statutory requirements set forth
in La. R.S. 18:463(A)(2)(a)(i) through (ix).
2

R.S. 18:492. Deal also asserted that pursuant to La. R.S. 18:101(B), Perkins was
required to be registered to vote in the precinct where he claimed his homestead
exemption, and his failure to do so caused him to be an unqualified elector and
candidate.
On July 30, 2022, Perkins changed his voter registration to the precinct for the
Marshall Street residence, where he claims a homestead exemption. On August 1,
2022, Perkins answered the petition with a general denial, and attached his affidavit
with supporting documentation.3 Perkins attested to the following: he first registered
to vote in the city of Shreveport in 2007 and has been registered to vote in the
precinct of his Stratmore Circle residence since at least 2017; he currently resides on
Marshall Street and has since 2019; he also has a residence on Stratmore Circle and
resided there prior to residing on Marshall Street; his voter registration has never
been cancelled. Perkins further responded that he mistakenly signed his notice of
candidacy given that the residence of his homestead exemption was in a different
precinct than where he was registered to vote. Perkins pointed out he corrected “his
oversight.” Additionally, Perkins responded that he remained a qualified elector
pursuant to La. R.S. 18:191 because his voter registration had never been cancelled.
At trial, the parties stipulated to the following facts: (1) proper service on the
defendants; (2) Deal is a registered voter in Precinct 113; (3) Perkins’ voter
registration was at the Stratmore Circle address in Precinct 113 until July 30, 2022,
at which time it was changed to the Marshall Street address in Precinct 5B; (4) the
notice of candidacy attached to the petition is a true and correct copy of the one filed
3 Perkins simultaneously filed an exception of no cause of action, arguing Deal’s petition failed to
articulate a statutory ground for disqualification under La. R.S. 18:492. The district court’s ruling
was silent as to the exception. The court of appeal deemed the exception overruled and noted it was
not before the court for review.
3

by Perkins; (5) the homestead exemption filing attached to the petition is a true and
correct copy; and (6) Precincts 113 and 5B are different precincts and Precinct 5B
contains the Marshall Street address, but not the Stratmore Circle address. Perkins’
voter registrations and his July 30, 2022 change thereof, homestead exemption
documentation, and notice of candidacy were introduced into evidence pursuant to
the stipulations.
Perkins was the only witness to testify. Regarding the notice of candidacy,
Perkins testified that he understood he was under oath when he signed the document.
He further testified that members of his campaign team helped him review the
document and he conferred with his personal attorney before signing the form.
Perkins understood and agreed that he had to pay certain fines in order to comply with
Items 10, 11, and 12 of the form,4 but also conceded that he did not personally read
the form the day he signed it, although he had read it before.
Regarding Item 8 of the form, concerning voter registration and homestead
exemption, Perkins testified that he had conflated Items 7 and 8, both of which begin
with the same phraseology.5 Perkins explained he thought he had already read Item
8 and continued to go down the list. Perkins also testified that both the Stratmore
Circle and Marshall Street residences are within the city of Shreveport and that he has
been domiciled in Shreveport since he was of voting age.
After considering the evidence, the district court disqualified Perkins as a
candidate in the primary election for the office of the Mayor of the city of Shreveport.
Referencing the conflicting courts of appeal opinions relied on by both parties and
4 These certifications concern the Campaign Finance Disclosure Act and Code of Governmental
Ethics and affirm the candidate owes no “fines, fees, or penalties.”
5 Item 7 certifies that the candidate has not been convicted of a felony.
4

finding some merit to both sides of the issue, the district court ultimately found it was
bound to follow Sellar v. Nance, 54,617 (La.App. 2 Cir. 3/1/22), 336 So.3d 103,
which held:
Considering the integrity necessary to the process of qualifying for
public office, we agree with the Fifth Circuit’s reasoning and analysis
in Percle v. Taylor [20-244 (La.App. 5 Cir. 8/5/20), 301 So.3d 1219].
The manner of qualifying in La. R.S. 18:461 is by filing an accurate
notice of candidacy, under oath. We agree with our colleagues of the
Fifth Circuit that any information on the notice of candidacy required to
be given by oath is substantive and/or material information and that “any
inaccuracies, mistakes, or false statements” made under oath regarding
this information are grounds for disqualification under La. R.S.
18:492(A), as a failure to qualify in the manner prescribed by law.
Sellar, 54,617 at 18, 336 So.3d at 112-13. The district court here explained it could
not agree that Perkins’ error was insignificant “because of the high standard of
integrity the public requires of our elected officials and the clear language on the
qualifying form.” However, the district court also recognized that nothing adduced
at trial “suggested that the mayor had any nefarious purpose in making the error, nor
that he sought any personal or political advantage from the inaccuracy. His testimony
established, rather, that it was simply an oversight attendant upon changing residence
while serving in public office.”
The court of appeal affirmed, with two of the three judges concurring with
reasons. Deal v. Perkins, 54,892 (La.App. 2 Cir. 8/8/22), ___ So.3d ___. The
appellate court essentially found Perkins failed to qualify in the manner prescribed
by law. The court explained that La. R.S. 18:463(A)(2) sets forth the requirements
for a notice of candidacy, in relevant part, as follows:
(a) The notice of candidacy also shall include a certificate, signed
by the candidate, certifying all of the following:
. . . .
(i) That he has read the notice of his candidacy.
5

(ii) That he meets the qualifications of the office for which he is
qualifying.
. . . .
(viii) Except for a candidate for United States senator or
representative in congress or a candidate who resides in a nursing home
as defined in R.S. 40:2009.2 or in a veterans’ home operated by the state
or federal government, that if he claims a homestead exemption on a
residence pursuant to Article VII, Section 20 of the Constitution of
Louisiana, he is registered and votes in the precinct in which that
residence is located.
(ix) That all of the statements contained in it are true and correct.
Deal, 54,892 at 8, ___ So.3d at ___. Further, La. R.S. 18:101(B) provides for the
homestead exemption and voter registration, in relevant part, as follows:
For purposes of the laws governing voter registration and voting,
“resident” means a citizen who resides in this state and in the parish,
municipality, if any, and precinct in which he offers to register and vote,
with an intention to reside there indefinitely. If a citizen resides at more
than one place in the state with an intention to reside there indefinitely,
he may register and vote only at one of the places at which he resides.
If a person claims a homestead exemption, pursuant to Article VII,
Section 20 of the Constitution of Louisiana, on one of the residences, he
shall register and vote in the precinct in which that residence is located,
except that a person who resides in a nursing home as defined in R.S.
40:2009.2 or in a veterans’ home operated by the state or federal
government may register and vote at the address where the nursing home
or veterans’ home is located. ....
Id., 54,892 at 9, ___ So.3d at ___. Additionally, the appellate court noted an action
objecting to the candidacy of a person who qualified as a candidate in a primary
election shall be based on specific grounds which may include that the defendant does
not meet the qualifications for the office he seeks in the primary election under La.
R.S. 18:492,6 which states, in relevant part:
A. An action objecting to the candidacy of a person who qualified
as a candidate in a primary election shall be based on one or more of the
following grounds:
6 Id.
6

(1) The defendant failed to qualify for the primary election in the
manner prescribed by law.
. . . .
(3) The defendant does not meet the qualifications for the office
he seeks in the primary election.
Relying on these three statutory provisions and considering the record before
it, the appellate court found no legal error on the part of the district court and found
the outcome was governed by Sellar. Deal, 54,892 at 11, ___ So.3d at ___. The
court noted that at the time Perkins signed the notice of candidacy under oath, he was
not registered to vote in the precinct in which he claimed a homestead exemption.7
Id., 54,892 at 10, ___ So.3d at ___. The court pointed out Perkins was elected mayor
in 2018 and bought the home on Marshall Street in 2019, at which time he claimed
a homestead exemption on that residence. Id. Consequently, Perkins held the office
of Mayor of the city of Shreveport for approximately three years without changing
his voter registration (see La. R.S. 18:101(B)), and changed his voter registration only
after the realization that he had falsely signed the notice of candidacy. Id. Thus, the
court rejected Perkins’ argument that his false certification was an immaterial mistake
having no legal significance, for which he should not be disqualified. Relying on
Sellar, the court found any information on the notice of candidacy required to be
given by oath is substantive and/or material information, and any inaccuracies,
mistakes, or false statements made under oath regarding this information are grounds
for disqualification under La. R.S. 18:492(A) as a failure to qualify in the manner
prescribed by law. Id.
The court of appeal also rejected Perkins’ argument that he met all
qualifications for mayor under Shreveport’s Home Rule Charter, Art. 5, § 5.01, which
7 See La. R.S. 18:101(B).
7

provides only that the mayor “shall be a qualified elector and a resident of the City
of Shreveport.” Id., 54,892 at 11-12, ___ So.3d at ___. The court reasoned there is
no statute or jurisprudence that would justify negating the mandates of the Election
Code, La. R.S. 18:463(A)(2), in favor of the Home Rule Charter, emphasizing that
the Charter confers on the city all powers, rights, privileges, and immunities that are
“not expressly denied by . . . general state law[.]” Id. (Citing Shreveport City
Charter, Art. 2, § 2.01(b)).
Judge Stone concurred, finding Perkins’ error could not be trivialized as a mere
oversight, or legally insignificant due to Perkins’ educational background and
sophistication. “The use of that address may be political strategy which has served
him in the past. However, the false statement on the Notice of Candidacy is grounds
for disqualification.” Id., 54,892 at 1, ___ So.3d at ___ (Stone, J., concurring). Judge
Thompson also concurred, finding Perkins undertook affirmative acts with specific
requirements that if not strictly followed result in disqualification. “Signatures are
not mere ornaments” and “a person who signs a written instrument is presumed to
know its contents and cannot avoid its obligations by claiming that he did not read
it, that he did not understand it, or that it was not explained.” Id., 54,892 at 1, ___
So.3d at ___ (Thompson, J., concurring) (Internal citations removed.).
Upon Perkins’ application, certiorari was granted to examine the interplay
between La. R.S. 18:492 and La. R.S. 18:463, and to resolve the apparent split among
the circuit courts of appeal as to whether any incorrect certification made under oath
on the notice of candidacy serves as a ground for disqualification, or whether the
grounds to challenge candidacy enumerated in La. R.S. 18:492 are exclusive. Deal
v. Perkins, 22-1212 (La. 8/11/22), __So.3d__.
8

DISCUSSION
The manner of qualifying as a candidate is set forth in La. R.S. 18:461, which
requires a person desiring to become a candidate to timely file a notice of his
candidacy. La. R.S. 18:461(A)(1). The requirements for a notice of candidacy are
stated in La. R.S. 18:463, which provides:
A. (1)(a) A notice of candidacy shall be in writing and shall state
the candidate’s name, the office he seeks, the address of his domicile,
his telephone number, his electronic mail address if available, and the
parish, ward, and precinct where he is registered to vote. . . . .
. . . .
(2)(a) The notice of candidacy also shall include a certificate,
signed by the candidate, certifying all of the following:
(i) That he has read the notice of his candidacy.
(ii) That he meets the qualifications of the office for which he is
qualifying.
(iii) Except for a candidate for United States senator or
representative in congress, that he is not currently under an order of
imprisonment for conviction of a felony and that he is not prohibited
from qualifying as a candidate for conviction of a felony pursuant to
Article I, Section 10.1 of the Constitution of Louisiana.
(iv) Except for a candidate for United States senator or
representative in congress, that for each of the previous five tax years,
he has filed his federal and state income tax returns, has filed for an
extension of time for filing either his federal or state income tax return
or both, or was not required to file either a federal or state income tax
return or both.
(v) That he acknowledges that he is subject to the provisions of
the Campaign Finance Disclosure Act if he is a candidate for any office
other than United States senator, representative in congress, or member
of a committee of a political party and that he does not owe any
outstanding fines, fees, or penalties pursuant to the Campaign Finance
Disclosure Act.
(vi) That, if he is a major or district office candidate as defined in
R.S. 18:1483, he has filed each report he has been required to file by the
Campaign Finance Disclosure Act, if any were previously due.
9

(vii) That he does not owe any outstanding fines, fees, or penalties
pursuant to the Code of Governmental Ethics.
(viii) Except for a candidate for United States senator or
representative in congress or a candidate who resides in a nursing home
as defined in R.S. 40:2009.2 or in a veterans’ home operated by the state
or federal government, that if he claims a homestead exemption on a
residence pursuant to Article VII, Section 20 of the Constitution of
Louisiana, he is registered and votes in the precinct in which that
residence is located.
(ix) That all of the statements contained in it are true and correct.
As previously stated in this opinion, Perkins timely filed the notice of
candidacy, thereby certifying under oath his compliance with the nine statements
listed on the form. However, it is undisputed that Perkins’ certification as to Item 8
was not accurate. At the time he filed the notice of candidacy, Perkins claimed a
homestead exemption at the Marshall Street residence but was registered to vote at
the Stratmore Circle address–located in two different precincts.
The grounds for objection to candidacy are set forth in La. R.S. 18:492(A),
which states:
An action objecting to the candidacy of a person who qualified as
a candidate in a primary election shall be based on one or more of the
following grounds:
(1) The defendant failed to qualify for the primary election in the
manner prescribed by law.
(2) The defendant failed to qualify for the primary election within
the time prescribed by law.
(3) The defendant does not meet the qualifications for the office
he seeks in the primary election.
(4) The defendant is prohibited by law from becoming a candidate
for one or more of the offices for which he qualified.
(5) The defendant falsely certified on his notice of candidacy that
he does not owe any outstanding fines, fees, or penalties pursuant to the
Campaign Finance Disclosure Act as provided in R.S. 18:463(A)(2).
10

(6) The defendant falsely certified on his notice of candidacy that
he does not owe any outstanding fines, fees, or penalties pursuant to the
Code of Governmental Ethics as provided in R.S. 18:463(A)(2).
(7) The defendant falsely certified on his notice of candidacy that
for each of the previous five tax years he has filed his federal and state
income tax returns, has filed for an extension of time for filing either his
federal or state income tax return or both as provided in R.S.
18:463(A)(2), or was not required to file either a federal or state income
tax return or both.
The district court disqualified Perkins pursuant to La. R.S. 18:492(A)(1),
finding he did not qualify in the manner prescribed by law. Thus, the issue presented
is whether any incorrect certification on a notice of candidacy serves as a basis to
object to candidacy under La. R.S. 18:492(A)(1), or whether the only false
certifications that can serve as a basis for objection to candidacy are those specifically
listed in La. R.S. 18:492(A)(5) through (7). The courts of appeal have addressed this
issue differently, resulting in conflicting opinions. In addition to the Second Circuit’s
opinions in this case and Sellar, discussed supra, the First and Fifth Circuits have
also taken the position that any false or erroneous certification is a ground for
disqualification because the candidate did not qualify in the manner prescribed by
law. See Percle v. Taylor, 20-244 (La.App. 5 Cir. 8/5/20), 301 So.3d 1219;
Panepinto v. Smith, 22-0830 (La.App. 1 Cir. 8/9/22), __So.3d__.
In Percle, the Plaintiff objected to Taylor’s candidacy on the basis that Taylor
failed to qualify for the primary election in the manner required by La. R.S. 18:463.
Specifically, Taylor falsely certified that she was registered to vote in the same
precinct where she claimed a homestead exemption. Despite the district court’s
factual findings that Taylor made false certifications in her notice of candidacy, the
district court determined that because the homestead exemption certification was not
11

expressly enumerated in La. R.S. 18:492, it could not disqualify her. The Fifth
Circuit reversed, finding Taylor failed to qualify in the manner prescribed by law:
The “manner for qualifying” in La. R.S. 18:461 is the filing of an
accurate notice of candidacy, under oath, accompanied by the qualifying
fee. According to the trial judge’s interpretation of La. R.S. 18:492,
even though La. R.S. 18:463(A) requires a candidate to certify by
affidavit nine separate requirements in his notice of candidacy, a
candidate is only subject to disqualification for making false
certifications if the false certification he made in his notice of candidacy
is with regard to subsections (5), (6), or (7); i.e., that he does not owe
fines, fees or penalties pursuant to the Campaign Finance Disclosure Act
or the Code of Governmental Ethics, or that for the previous five years,
he filed his federal and state income tax returns, filed for extensions of
time, or was not required to file such returns. This interpretation of the
statute would render meaningless the remaining language of La. R.S.
18:463(A)(1) and is inaccurate. Therefore, we find that any information
in the notice of candidacy that correlates to subsection (1) through (7)
of La. R.S. 18:463(A), and that requires a candidate’s certification by
affidavit, is substantive and/or material information. Any inaccuracies,
mistakes or false statements made in the notice of candidacy concerning
or regarding this substantive and/or material information are grounds for
disqualification under La. R.S. 18:492(A)(1). This interpretation is what
gives effect to La. R.S. 18:461(A).
Percle, 20-244 at 11, 301 So.3d at 1226-27.
Likewise, in Panepinto, the First Circuit affirmed the district court’s
disqualification of the candidate for erroneously attesting that he claims a homestead
exemption in the same precinct in which he is registered to vote. Citing with
approval the analyses in Percle and Sellar, the First Circuit stated:
We agree with our colleagues in the Second and Fifth Circuits that the
information on the notice of candidacy, which is required by law and is
given under oath, is substantive and/or material, and that any
inaccuracies, mistakes, or false statements therein, including those with
respect to the homestead exemption, are grounds for disqualification
under La. R.S. 18:492(A), as a failure to qualify in the manner
prescribed by law.
Panepinto, 22-0830 at 11, __So.3d at __.8
8 A writ application challenging the First Circuit’s opinion is currently pending in this court.
Panepinto v. Smith, Case No. 22-C-1218.
12

By contrast, the Fourth Circuit has held that a false certification not expressly
listed as a ground for objection in La. R.S. 18:492 does not disqualify the candidate.
See Kiefer v. Lombard, 21-0453 (La.App. 4 Cir. 7/30/21), __So.3d__; writ denied,
21-1139 (La. 8/6/21), 322 So.3d 785; Ellsworth-Fletcher v. Boyd-Robertson,
21-0455 (La.App. 4 Cir. 8/2/21), __So.3d__.
In Kiefer, the plaintiff objected to the defendant’s candidacy on the basis he
failed to qualify for the primary election in the manner prescribed by law as required
by La. R.S. 18:463. Specifically, the plaintiff asserted the defendant falsely swore in
the notice of candidacy that there were no outstanding campaign finance reports due
under the Campaign Finance Disclosure Act. The district court ruled in favor of the
defendant in its interpretation of La. R.S. 18:492(A), noting that the statute contains
the mandatory word “shall” in its direction that the objection to a person’s candidacy
“shall be based one or more of the following grounds.” The district court further
explained:
This mandatory shall establishes that the seven enumerated
grounds are the seven exclusive grounds upon which a challenge can be
brought. This mandatory language also implies that, when the
Legislature decided to expressly designate which aspects of the Notice
of Candidacy requirements included in La. R.S. 18:463 would be
grounds for disqualifying someone from candidacy–namely subsection
five, regarding outstanding fees, fines, or penalties pursuant to the
Campaign Finance Disclosure Act, subsection six, regarding outstanding
fines, fees, or penalties pursuant to the Code of Governmental Ethics,
and subsection seven, regarding the past five years of tax filings–that it
also made the express decision not to include the remaining aspects of
the Notice of Candidacy Requirements, namely the inaccuracies or
falsities of any of the other certifications.
Kiefer, 21-0453 at 3-4, __ So.3d at __. The Fourth Circuit affirmed, noting that the
only provision in La. R.S. 18:492(A) relating to “false statements” are contained in
subsections (5), (6), and (7). The court reasoned:
13

Whether or not Mr. Lombard falsely certified that he did not have
any outstanding campaign finance reports due is not expressly contained
in La. R.S. 18:492. Ms. Kiefer’s argument suggests this Court expand
the exclusive provisions of La. R.S. 18:492 to include any and all false
statements under the “catch all” provision in La. R.S. 18:492(A)(1). We
decline to do so.”
. . . .
La. R.S. 18:492 sets forth the exclusive grounds of
disqualification. Falsely swearing to anything other than those specific
provisions enumerated in the statute is not a basis for disqualification.
There is nothing more fundamental to our society than the ability of our
electorate to choose its leaders. The purpose of the election process is
to provide the electorate with a wide choice of candidates. The interests
of the state and its citizens are best served when election laws are
interpreted so as to give the electorate the widest possible choice of
candidates. Thus, as an intermediate appellate court, we must be guided
by the latter precepts and fundamental principles interpreting the laws
to give the electorate the widest possible choice of candidates. Should
we accept the interpretation of Ms. Kiefer, we would thwart the intent
of our legislature and our civilian doctrine which guides our courts.
Accordingly, we decline to expand La. R.S. 18:492 beyond those
exclusive provisions contained therein.
The lawmaking power of our State is vested in the Legislature.
Legislative power, conferred under constitutional provisions, cannot be
delegated by the Legislature either to the people or to any other body or
authority. The resolution to any doubt concerning the qualifications of
a candidate should be to allow the candidate to run for public office. In
light of the foregoing, we find the trial court properly found that Ms.
Kiefer failed to state an enumerated ground for disqualification of Mr.
Lombard under La. R.S. 18:492. We find no error in the trial court’s
determination.
Kiefer, 21-0453 at 8-9, __ So.3d at __ (internal quotations and citations omitted).
Finding its reasoning in Kiefer controlling, the Fourth Circuit again rejected
a challenge to candidacy related to a false certification concerning the timely filing
of campaign finance reports in Ellsworth-Fletcher, 21-0455 at 6-7, __So.3d at __.
Noting such a false certification was not specifically delineated in La. R.S. 18:492(A)
as a basis for disqualification, the Fourth Circuit rejected the suggestion that La. R.S.
14

18:492(A)(1) was expansive enough to include any and all false, incorrect, or
misguided statements. Id.
Considering these differing opinions from Louisiana’s courts of appeal, this
court is tasked with determining the correct interpretation of the relevant statutory
provisions. Because the issue presented is a question of law, review of this matter is
de novo without deference to the legal conclusions of the courts below. This court
is the ultimate arbiter of the meaning of the laws of this state. Durio v. Horace
Mann Ins. Co., 11-0084, p. 14 (La. 10/25/11), 74 So.3d 1159, 1168; Red Stick
Studio Dev., L.L.C. v. State ex rel. Dep’t of Econ. Dev, 10-0193, p. 9 (La. 1/19/11),
56 So.3d 181, 187. The fundamental question in all cases of statutory interpretation
is legislative intent. Hartman v. St. Bernard Par. Fire Dep’t & Fara, 20-0693, p.
8 (La. 3/24/21), 315 So.3d 823, 829. That intent is ascertained through the rules of
statutory interpretation. Moss v. State, 05-1963, p. 15 (La. 4/4/06), 925 So.2d 1185,
1196.
Pursuant to the rules of statutory construction, the starting point in the
interpretation of any statute is the language of the statute itself. M.J. Farms, Ltd. v.
Exxon Mobil Corp., 07-2371, p. 13 (La. 7/1/08), 998 So.2d 16, 26-27. When a law
is clear and unambiguous and its application does not lead to absurd consequences,
the law must be applied as written, and no further interpretation may be made in
search of the legislative intent. La. C.C. art. 9; La. R.S. 1:4. However, “[w]hen the
language of the law is susceptible of different meanings, it must be interpreted as
having the meaning that best conforms to the purpose of the law.” La. C.C. art. 10.
“When the words of a law are ambiguous, their meaning must be sought by
examining the context in which they occur and the text of the law as a whole.” La.
C.C. art. 12.
15

Further, it is presumed that every word, sentence, or provision in a statute was
intended to serve some useful purpose, that some effect is to be given to each such
provision, and that no unnecessary words or provision were employed. Moss,
05-1963 at 15, 925 So.2d at 1196. Consequently, courts are bound, if possible, to
give effect to all parts of a statute and to construe no sentence, clause, or word as
meaningless and surplusage if a construction giving force to, and preserving, all
words can legitimately be found. Id. Finally, laws on the same subject matter are to
be interpreted in reference to each other. La. C.C. art. 13.
Guided by these principles, consideration is first given to the language of the
statutes to determine if Perkins’ incorrect certification regarding the precincts of his
voter registration and homestead exemption serve as a ground to challenge and
disqualify him as a candidate. As previously indicated, La. R.S. 18:492(A) sets forth
seven grounds for an objection to candidacy.9 The First, Second, and Fifth Circuits
have applied the language of La. R.S. 18:492(A)(1) broadly to hold that an erroneous
or false certification, under oath, means the candidate “failed to qualify for the
primary election in the manner prescribed by law,” thus, resulting in disqualification.
The Fourth Circuit has applied the statutory language strictly, holding that only the
list of false certifications specifically outlined in La. R.S. 18:492(A) (i.e., section
492(A)(5) through (7)) can serve as a basis for disqualification. The express
language of section 492(A) reveals that both interpretations by the courts of appeal
are plausible. Thus, legislative intent must be examined.
The first ground for objecting to a candidacy is that “[t]he defendant failed to
qualify in the manner prescribed by law.” La. R.S. 18:492(A)(1). The manner in
which one qualifies as a candidate is procedural in nature and set forth in La. R.S.
9 Statute is quoted in full supra.
16

18:461, entitled “Manner of qualifying.” Louisiana R.S. 18:461(A)(1) mandates that
a person who desires to become a candidate in a primary election “shall qualify as a
candidate by timely filing notice of his candidacy” accompanied by either a
nominating petition or by the qualifying fee.10 As it pertains to the issues before the
court, the requirements of the notice of candidacy are detailed in La. R.S. 18:463,
quoted supra. The notice must be in writing and shall state the candidate’s name, the
office he seeks, the address of his domicile, his telephone number, his electronic mail
address if available, and the parish, ward, and precinct where he is registered to vote.
Additionally, the notice must include a certificate, signed by the candidate, certifying
nine statements set forth in the statute and previously outlined in this opinion.
Thus, to “qualify in the manner prescribed by law” requires a potential
candidate to file a notice of candidacy and pay a fee (or submit a nominating
petition). Perkins submitted a notice of candidacy and paid the fee. Further, based
on our review, this court finds Perkins’ notice of candidacy form facially complies
with all of the stated requirements in La. R.S. 18:463–Perkins supplied the mandatory
identifying information and certified all nine statements. Louisiana R.S. 18:463 does
not address or provide for consequences relative to an incorrect certification on the
form. Certainly, La. R.S. 18:463 itself does not mandate a candidate be disqualified
if one of the nine certifications is factually incorrect. Qualifying for a primary
election “in the manner prescribed by law” is accomplished by complying with the
procedural requirements of La. R.S. 18:461 and 18:463, which Perkins did. Thus,
Perkins’ incorrect certification relative to Item 8 on the notice of candidacy form does
not serve as a basis of disqualification under La. R.S. 18:492(A)(1).
10 A person can be nominated as a candidate in a primary election by persons who are registered to
vote on the office he seeks who sign a nominating petition for him. The specific statutory
requirements for nominating petitions are set forth in La. R.S. 18:465.
17

Examination of the remainder of La. R.S. 18:492 further supports this
conclusion. The statute provides that an action objecting to candidacy shall be based
on one or more of seven enumerated grounds. Notably, only three of these grounds
pertains to false certifications on the notice of candidacy form, none of which pertain
to a candidate’s certification that he is registered to vote in the precinct where he
claims a homestead exemption. See La. R.S. 18:492(A)(5) through (7). In Kiefer,
the Fourth Circuit reasoned that “[t]he inclusion of seven exclusive provisions, three
pertaining to false statements, implies that the Legislature made the express decision
to specifically delineate which false statements would serve as a basis for
disqualification of a candidate.” Kiefer, 21-0453 at 7, __So.3d at __ (citing La. R.S.
18:492(A)(5) through (7)); see also Ellsworth-Fletcher, 21-0455 at 6, __So.3d at __.
This court agrees with the analysis of the Kiefer court.
The legislature has expanded the grounds for objecting to candidacy over time.
As it relates to false certifications on the notice of candidacy, the legislature amended
La. R.S. 18:492 in 2004 to add as a ground that “[t]he defendant falsely certified on
his notice of candidacy that he does not owe any outstanding fines, fees, or penalties
pursuant to the Campaign Finance Disclosure Act.” 2004 La. Acts 896. A
correlating certification requirement was added to La. R.S. 18:463 in the same Act.
Id. Likewise, in 2008, the legislature amended La. R.S. 18:492 to provide as a
ground for objection that “[t]he defendant falsely certified on his notice of candidacy
that he does not owe any outstanding fines, fees, or penalties pursuant to the Code of
Governmental Ethics ... .” 2008 La. Acts 16. A correlating certification requirement
was also added to La. R.S. 18:463 in the same Act. Id. Finally, in 2010, the
legislature amended La. R.S. 18:492 to provide as a ground for objection that “[t]he
defendant falsely certified on his notice of candidacy that for each of the previous five
18

tax years he has filed his federal and state income tax returns, has filed for an
extension of time for filing either his federal or state income tax return or both ... or
was not required to file either a federal or state income tax return or both.” 2010 La.
Acts 827. Louisiana R.S. 18:463 was amended to add that certification requirement
at the same time. Id. Significantly, the legislature has since twice amended La. R.S.
18:463 to add additional certification requirements in the notice of candidacy, but did
not amend La. R.S. 18:492 to include the false certification of these two items as
bases to object to candidacy. In 2012, the legislature amended La. R.S. 18:463 to add
a requirement that the candidate certify that “he has filed each report he has been
required to file by the Campaign Finance Disclosure Act, if any were previously due.”
2012 La. Acts 758. No corresponding amendment was made to La. R.S. 18:492.
Furthermore, in 2019, the legislature added to La. R.S. 18:463 the certification
requirement at issue in this case–“that if he claims a homestead exemption on a
residence ... he is registered and votes in the precinct in which that residence is
located.” 2019 La. Acts 374. The legislature did not amend La. R.S. 18:492 to
provide a reciprocal basis to challenge candidacy.
It is presumed the legislature enacts each statute with deliberation and with full
knowledge of all existing laws on the same subject. Thus, legislative language is
interpreted on the assumption the legislature was aware of existing statutes, well
established principles of statutory construction, and with knowledge of the effect of
their acts and a purpose in view. M.J. Farms, Ltd., 07-2371 at 13-14, 998 So.2d at
27. This court must give meaning to the legislature’s decision to amend La. R.S.
18:492 three times to add potential disqualification consequences. The legislature’s
historical actions relative to these two statutes indicate its deliberate choice to connect
three specific certification requirements in La. R.S. 18:463 to potential
19

disqualification under La. R.S. 18:492. As indicated above, had the legislature
intended to include false certifications relative to all of the certification requirements
in La. R.S. 18:463 as grounds to object to candidacy, it clearly was aware of how to
amend La. R.S. 18:492 and could have easily done so. Further, interpreting La. R.S.
18:492(A)(1) to include all false certifications would render the statutory language
in La. R.S. 18:492(A)(5) through (7) superfluous.
This court is cognizant of concerns related to integrity and of the necessity of
obtaining truthful and accurate information from candidates. However, courts do not
make the law, and their fundamental duty is to give effect to the legislature’s intent
in passing a statute. Harrah’s Bossier City Inv. Co., LLC v. Bridges, 09-1916, p.
11 (La. 5/11/10), 41 So.3d 438, 447. Thus, this court cannot manufacture a
consequence of disqualification for Perkins’ incorrect certification when the
legislature has not specifically provided for such a consequence. The legislature has
chosen to give more weight to certain certifications by providing for potential
disqualification when those certifications are falsely made. Any political
consequence for Perkins’ incorrect certification in this instance lies with the voters.
In summary, the court of appeal here went beyond the statutory language in La.
R.S. 18:492(A) to find Perkins is disqualified for “a failure to qualify in the manner
prescribed by law.” Following its precedent in Sellar, the court held that the manner
of qualifying in La. R.S. 18:461 requires an accurate notice of candidacy under oath.
The court further held that “any information on the notice of candidacy required to
be given by oath is substantive and/or material information and that ‘any inaccuracies,
mistakes, or false statements’ made under oath regarding this information” is
disqualifying. Deal, 54,892 at 10, __So.3d at __. The courts in Percle and
Panepinto held the same. By following an overly expansive interpretation of La.
20

R.S. 18:492(A)(1), and essentially mandating perfection in executing the notice of
candidacy form, these appellate courts have added a new rule that is not statutorily
dictated. As previously explained, qualifying pursuant to La. R.S. 18:461 is not
dependent on the accuracy of the notice of candidacy. Whether a candidate should
be disqualified as a result of an inaccuracy is governed by La. R.S. 18:492(A).
Louisiana R.S. 18:492(A) does not state that any inaccuracy or mistake on the notice
of candidacy is disqualifying. The entirety of the notice of candidacy form is
designed to be completed and signed by the candidate under oath. This includes basic
identifying information such as address, telephone number, and email address. If
allowed to stand, these appellate court decisions would allow a candidate to be
disqualified for a simple mistake such as a typographical error in a phone number or
email address. The legislature clearly did not intend this result. Furthermore, laws
governing disqualification of candidates must be interpreted in a manner that gives
the electorate the widest possible set of candidates and those laws must be construed
so as to promote rather than defeat candidacy. Becker v. Dean, 03-2493, p. 6-7 (La.
9/18/03), 854 So.2d 864, 869. There is nothing more fundamental to our society than
the ability of our electorate to choose its leaders. Id., 03-2493 at 6, 854 So.2d at 869.
Today’s ruling is consistent with these principles.
Finally, consideration must be given to Deal’s argument that Perkins was
properly disqualified because he “does not meet the qualifications for the office he
seeks in the primary election.” See La. R.S. 18:492(A)(3).11 Louisiana R.S. 18:451
provides that “a candidate shall possess the qualifications for the office he seeks at
11 Although the court of appeal did not address this issue, and the district court did not base the
disqualification on La. R.S. 18:492(A)(3), the issue was raised by Deal in the petition objecting to
candidacy and argued in the district and appellate courts.
21

the time he qualifies for that office.” Shreveport’s Home Rule Charter provides the
qualifications for mayor of Shreveport:
At the time of his qualification for election, the mayor shall be a
qualified elector and a resident of the City of Shreveport. During his
term of office, he shall hold no other public office or position of public
employment, except that of a notary public or as a member of the
National Guard or any reserve component of the armed forces of the
United States of America. If the mayor ceases to be a qualified elector
or ceases to reside in the city, his office shall be deemed vacant.
[Emphasis added.]
Shreveport City Charter, § 5.01. Similarly, La. R.S. 33:384 requires that a mayor
“shall be an elector of the municipality who, at the time of qualification as a
candidate for the office of mayor, shall have been domiciled and actually resided for
at least the immediately preceding year in the municipality.” (Emphasis added.) Deal
argues Perkins was not a “qualified elector” at the time of qualifying because Perkins
was not registered to vote in the precinct where he claimed his homestead exemption.
Louisiana R.S. 18:101(B) provides that “[i]f a citizen resides at more than one place
in the state with an intention to reside there indefinitely, he may register and vote only
at one of the places at which he resides. If a person claims a homestead exemption
... on one of the residences, he shall register and vote in the precinct in which that
residence is located.”
Louisiana R.S. 18:101 does not define “qualified elector,” nor does a definition
appear elsewhere in the Election Code. The very limited jurisprudence in this case
suggests the term is broadly related to being qualified to vote. See, e.g., Sciambra
v. Orleans Par. Republican Exec. Comm., 69 So.2d 171, 173 (La. Cir. App. 1954)
(“The term ‘duly qualified elector’ employed in the foregoing statutory provision can
only be used in its broadest sense, meaning a person qualified to vote in the primary
at which he seeks the nomination of the political party holding the primary.”). In
22

cases where the issue of “qualified elector” has been raised, courts have looked to
whether a candidate’s voter registration has been cancelled in determining whether
a candidate was not a qualified elector. See, e.g., Martin v. Robinson, 20-0687, p.
8 (La.App. 1 Cir. 8/6/20), 311 So.3d 378, 383 (in dicta); McClendon v. Bel, 00-2011,
p. 5 (La.App. 1 Cir. 9/7/00), 797 So.2d 700, 704; Walsh v. Rogillio, 00-1995, p. 6
(La.App. 1 Cir. 9/7/00), 768 So.2d 653, 656; Smith v. Lombard, 480 So.2d 1077,
1079 (La.App. 4 Cir. 1986).
Although the district court did not rule on the issue of whether Perkins could
be disqualified pursuant to La. R.S. 18:492(A)(3) for failure to meet the qualifications
for office, it is apparent the district court found no merit to the argument that Perkins
was not a qualified elector. In its ruling, the district court stated that Perkins
“correctly points out that both addresses at issue in this case qualify him to serve as
an ‘elector’ in the race, that he has never been disqualified from voting, and,
therefore, that the admitted error is of no moment in considering his legal
qualifications.” The district court’s conclusion is supported by statutory law.
The requirements of La. R.S. 18:101 address the qualifications and guidelines
for voter registration. In this case, there is no evidence Perkins ever registered to vote
in an incorrect precinct. Although Perkins did not change his voter registration when
he purchased the Marshall Street residence in 2019 and claimed a homestead
exemption at that address, no authority is found which suggests this failure
disqualifies Perkins as a voter. To the contrary, La. R.S. 18:191, entitled “Permanent
Registration,” provides: “The registration of any person as provided in this Chapter
shall remain in effect for so long as the registration is not canceled for a cause and in
the manner set forth in this Chapter.” Louisiana R.S. 18:193 and 18:198 set forth
23

detailed procedures the registrar of voters must follow before a voter’s registration
can be cancelled.
Similarly, La. R.S. 18:110 governs removal of a voter’s registration from a
precinct or parish when the voter changes residences. Louisiana R.S. 18:110(B)(2)
recognizes when a person moves to a new precinct in the same parish, he retains the
right to vote in the old precinct until he updates his voter registration:
The change of residence of a registrant from one precinct to
another in the same parish does not deprive him of the right to remain
as a legal registrant, as to all issues upon which he was entitled to vote
prior to his change of residence, in the precinct from which he has
removed until he changes his registration as provided in Subsection A
of this Section and has the right to vote in the precinct to which he has
moved.
Based on the above, there is no merit to the argument that Perkins should be
disqualified based on La. R.S. 18:492(A)(3). Perkins has never registered in an
incorrect parish or precinct, and Perkins’ voter registration has never been cancelled.
Thus, Perkins did not lose his status as a “qualified elector” when he purchased the
Marshall Street property and designated it as his address for purposes of homestead
exemption.
CONCLUSION
In resolving the split in the courts of appeal, this court agrees with the analysis
of the Fourth Circuit in Kiefer and Ellsworth-Fletcher and declines to interpret La.
R.S. 18:492(A)(1) as a “catch all” phrase to provide for disqualification of a
candidate for any incorrect certification on the notice of candidacy form.12 Moreover,
any holding that “inaccuracies” or “mistakes” are grounds for disqualification casts
too wide a net and is merely judicial gloss that has no statutory basis. Nothing is
12 To the extent Deal argues there were additional errors on the notice of candidacy form, resolution
of this argument is subsumed by our analysis and interpretation of La. R.S. 18:461, 18:463 and
18:492.
24

more fundamental and sacred to our system of democracy than the ability of citizens
to choose their leaders as many other fundamental rights flow from the right to vote
and elect who will serve.
This court finds that La. R.S. 18:492(A)(5) through (7) provides the exclusive
list of false certifications that can serve as a ground to challenge candidacy. Because
Perkins’ inaccurate certification as to Item 8 on the notice of candidacy form is not
expressly listed in La. R.S. 18:492 as a basis to challenge candidacy, it cannot serve
as a basis to disqualify him as a candidate. Therefore, the rulings of the lower courts
disqualifying Perkins as a candidate for mayor of the city of Shreveport are
reversed.13
REVERSED AND RENDERED.
13 La. Sup. Ct. Rules, Rule X, § 5(C) provides that no application for rehearing shall be entertained
in election cases.
25

1
S
UPREME COURT OF LOUISIANA
No
. 2022-C-01212
FRANCI
S DEAL
VS.
ADRIAN PERKINS AND CADDO PARISH CLERK OF COURT, MIKE
SPENCE, IN HIS OFFICIAL CAPACITY
O
n Writ of Certiorari to the Court of Appeal, Second Circuit, Parish of Caddo
CRI
CHTON, J., dissents and assigns reasons:
In my view, a majority of this Court has made an enormous mistake in failing
to uphold the sanctity and integrity of our electoral process.1 In this case, under the
clear language of La. R.S. 18:492(A)(1) and (3), I find that Mr. Perkins has “failed
to qualify for the primary election in the manner prescribed by law” and does “not
meet the qualifications for the office he seeks in the primary election” and therefore
should be disqualified as a candidate for the office of Mayor of the City of
Shreveport.
On July 22, 2022, with the help of “several members of [his] campaign team”
and his personal attorney, Perkins signed and filed his Notice of Candidacy for
Mayor before a Deputy Clerk of Court
2 and swore that he read the Notice of
Candidacy,3 which stated that he was registered to vote and domiciled at an address
1 Section 3 of Article 5 of the Louisiana Constitution states in part that this Court “shall be
composed of a chief justice and six associate justices, four of whom must concur to render
judgment.” Three members of this Court strenuously disagree with the majority decision in this
matter and would have disqualified Perkins. Additionally, it is significant that a unanimous three
judge panel at the court of appeal affirmed the thorough ruling of the trial court with two of those
appellate judges issuing additional concurrences emphasizing the importance of their decision.
2 The Notice of Candidacy (Qualifying Form) provides in its first line: “This Notice of Candidacy
must be signed by the candidate before a notary public or witnessed by two people.”
3 This, in fact, was untrue. Perkins testified at the hearing in the trial court:
Q
: Did you fill out a Notice of Candidacy in connection with that [the 2018] race?

2

(9605 Stratmore Circle) different than the address at which he claimed a homestead
exemption (719 Marshall Street). Indeed, the Notice of Candidacy is a one -page
qualifying form, which requires that a candidate certify and swear under oath that
all statements on the form are “true and correct,” 4 including item 8, in which the
candidate swears that he is “registered and vote s in the precinct in which [the]
residence [on which he claims a homestead exemption] is located . . . .” This
language is mirrored in La. R.S. 18:463(A)(2)(a)(viii), which mandates that a
candidate for office other than senator or representative in congress be registered to
vote at the address at which he or she claims a homestead exemption.5

A: I’m not sure what that document is. I filled out several documents to qualify
for that race.
Q: Mr. Mayor, are you telling us you don’t know what a Notice of Candidacy is?
A: I filled out several documents for that race.
Q: Do you know what a Notice of Candidacy is?
A: I’m not sure exactly what’s on that document, Attorney Harper.

***
Q: And when you decided to run for reelection as Mayor of the City of Shreveport,
did you understand that would require you to again fill out a Notice of Candidacy?
A: Yes.
Q: All right. Did you read the Notice of Candidacy before you signed it in 2022?
A: I did not read the entire document on that day. My team reviewed it with me,
and we looked over multiple aspects of it. . . .

4 Notably, this certification contains no condition that it is “true and correct to the best of the
candidate’s knowledge, information and belief.” I find such a distinction significant as it leaves
no room for subjective belief or intent.

5 See also La. R.S. 18:101(B), which provides:

B. For purposes of the laws governing voter registration and voting, “resident”
means a citizen who resides in this state and in the parish, municipality, if any, and
precinct in which he offers to register and vote, with an intention to reside there
indefinitely. If a citizen resides at more than one place in the state with an intention
to reside there indefinitely, he may register and vote only at one of the places at
which he resides. If a person claims a homestead exemption, pursuant to Article
VII, Section 20 of the Constitution of Louisiana, on one of the residences, he
shall register and vote in the precinct in which that residence is located , except
that a person who resides in a nursing home as defined in R.S. 40:2009.2 or in a
veterans' home operated by the state or federal government may register and vote
at the address where the nursing home or veterans' home is located. For purposes
of voter registration and voting, the residence of a married woman shall be
determined in the same manner as is required for any other citizen. A citizen of this
state shall not be or remain registered or vote in more than one place of residence
at any one time.

(Emphasis added.)

3

Despite Perkins’ qualification as a candidate in elections prior to the instant
one, which presumably required he execute the same document found on the
Louisiana Secretary of State’s website, he argues this was an honest and immaterial
mistake for which he should not be disqualified. To the contrary, not only is his
subjective state of mind irrelevant to the inquiry at hand, I do not find this inaccuracy
inconsequential; it is a substantive, false statement6 made on a sworn affidavit.7 As
aptly noted by the trial court in this matter:
This court cannot agree that the mayor’s error is of no moment – it
allowed him the ability to vote in a precinct in which he no longer
resided which could have affected the outcome of elections for City
Council, various judicial offices, and other matter in which eligibility
to vote varied between the two locations. Attention to these details
matters, and the Percle opinion sets forth the case that because of
the high standard of integrity the public requires of our elected
officials and the clear language of the qualifying form, the error is
so profound that it essentially makes a nullity of the qualification.

Ruling of the Trial Court, August 2, 2022, pp. 5-6. (Emphasis added.)8
While I am cognizant of our jurisprudence favoring a liberal construction of
candidacy,9 allowing a certification of proven material false information listed on a

6 See La. R.S. 14:125, which provides:

A. False swearing is the intentional making of a written or oral statement, known
to be false, under sanction of an oath or an equivalent affirmation, where such oath
or affirmation is required by law; provided that this article shall not apply where
such false statement is made in, or for use in, a judicial proceeding or any
proceeding before a board or official, wherein such board or official is authorized
to take testimony.
B. Whoever commits the crime of false swearing shall be fined not more than five
hundred dollars, or imprisoned for not more than one year, or both.

7 An affidavit must be based on personal knowledge and show affirmatively that an affiant was
competent to testify to the matters stated therein. “The fact that it is stated as a conclusion that the
affiant has personal knowledge of the facts will not suffice. The facts as set forth in the affidavit
must show that he has such knowledge.” Barnes v. Sun Oil Co., 362 So.2d 761, 763 (La. 1978),
citing La. C.C.P. art. 967, Antonio v. Barnes, 464 F.2d 584 (4th Cir. 1972); Benoit v. Burger Chef
Systems of Lafayette, Inc., 257 So.2d 439 (La. App. 1st Cir. 1972)

8 Moreover, in contrast to the majority, I do not find the lower courts’ interpretations that Perkins’
misrepresentations under these circumstances warrant disqualification to constitute “ mere[]
judicial gloss.” For the reasons set forth herein, both the trial court and the court of appeal
employed an appropriate statutory interpretation in harmony with our obligation to honor the
integrity of the electoral process.

9Not specifically prescribed in the election code in Revised Statutes Title 18, the notion of
interpreting objections to candidacy in favor of the candidate, while applicable in many cases, is a

4

notice of candidacy form, filed in the public record, belies the purpose of the form
itself and is inconsistent with the integrity with which elections must be conducted.
As the Second Circuit stated in Sellar v. Nance , 54, 617 (La. App. 2 Cir. 3/1/22),
336 So.3d 103, 112-13 (citing Percle v. Taylor, 20-244 (La. App. 5 Cir. 8/5/20), 301
So.3d 1219, writ denied, 20-0983 (La. 8/10/20)), “any information on the notice of
candidacy required to be given by oath is substantive and/or material information
and that ‘any inaccuracies, mistakes, or false statements’ made under oath regarding
this information are grounds for disqualification under La. R.S. 18:492(A), as a
failure to qualify in the manner prescribed by law.” To be clear, this case does not
involve a typographical, clerical , or grammatical error on a Notice of
Candidacy Form, and my research has yielded no case in the State of Louisiana
in which an intermediate appe llate court or this Court has disqualified a
candidate on that basis. None. Zero. Nor can the majority cite to any case with
such an absurd result . It is quite the opposite here, as Perkins submitted and
certified knowingly false substantive information on a sworn form filed in the public
record. Such a statutory interpretation is not mandating perfection. It is mandating
the truth under oath. The magnitude of Perkins’ deliberate action in this case cannot
be understated.
It is of no moment that both residences belonging to Perkins are within the
city limits of Shreveport, as this does not alter the fact that he made a false
certification under oath. His own actions have placed him in direct violation of La.
R.S. 18:463(A)(2)(a)(viii) and thereby failing “to qualify for the primary election in

jurisprudential creation that does not have a place under these facts and circumstances . See
Landiak v. Richmond, 05-758 (La. 3/24/05), 899 So.2d 535, 541, citing Becker v. Dean, 03–2493,
p. 7 (La.9/18/03), 854 So.2d 864, 869 (a court determin ing whether the person objecting to
candidacy has carried his burden of proof must liberally construe the laws governing the conduct
of elections “so as to promote rather than defeat candidacy.”)

5

the manner prescribed by law” under La. R.S. 18:492(A)(1). 10 The maj ority’s
position, which rejects the sound ruling of the trial court and a unanimous decision
from the court of appeal,11 renders the Notice of Candidacy form meaningless. The
law exacts a procedure and the citizens of this state expect their highest court to
honor it. In my view, the majority makes a critical error in failing to enforce both
the letter and spirit of the election code, thus compromising the integrity and sanctity
of the process. Accordingly, I would affirm the decisions of the lower courts, finding
Perkins disqualified from seeking re-election for the office of Mayor of the City of
Shreveport.
Finally, today’s opinion highlights the necessity of legislative intervention to
make clear that all material and substantive statements enumerated in a sworn notice
of candidacy must actually be true , and any violation thereof is grounds for
disqualification.12 13 The absence of such a specific requirement has paved the way

10See also, Veronica Braggs v. Simeon Dickerson et al. 22- 1227 (La. 8/13/22), -- So.3d --
(Crichton, J., concurring, noting that pursuant to La. R.S. 18:492(A)(1) and (7), candidate has
failed to qualify in a manner prescribed by law by falsely certifying he filed his tax returns, and
any other interpretation would render the Notice of Candidacy meaningless.).

11 The court of appeal also highlighted the magnitude of Perkins’ misrepresentation:

The record before us contains stipulations, expressly agreed to by Perkins, that
establish that at the time he signed, under oath, the Notice of Candidacy, he was
not registered to vote in the precinct in which he claimed homestead exemption.
La. R.S. 18:101(B). Indeed, Perkins was elected Mayor in 2018 and bought the
home on Marshall Street in 2019, at which time he cla imed homestead exemption
on that residence. Thus, Perkins held the Office of Mayor of the City of Shreveport
for approximately three years without changing his voter registration to comply
with the statute and changed his voter registration only after the realization that he
had falsely signed the Notice of Candidacy. Against these undisputed facts, we do
not find compelling Perkins’s argument that his false certification was an honest,
technical, and immaterial mistake having no legal significance, for which he should
not be disqualified.

Francis Deal v. Adrian Perkins and Caddo Parish Clerk of Court, Mike Spence, in his
Official Capacity, 54,892, pp. 8-9 (La. App 2 Cir. 8/8/22), -- So.3d --.

12 “The legislature shall adopt an election code which shall provide for permanent registration of
voters and for the conduct of all elections.” La. Const. art. 11, § 1.

13 And apparently, the legislature should make clear what I deem to be elementary and obvious:
that a mere typographical, clerical, or grammatical error on a Notice of Candidacy Form shall not
be cause for disqualification.

6

for this decision, wherein Perkins’ neglect, inattention, and asserted distraction have
evidently excused his admittedly false statements on a sworn qualifying form filed
in the public record.
As noted in Percle v. Taylor, what is at stake here is no less than the integrity
of the process of qualifying for elected public office. In my view, allowing a
candidate to provide false or inaccurate information under oath, without allowing
the corre sponding remedy of disqualification for making those false state ments,
renders the Notice of Candidacy (Qualifying Form) meaningless. See Percle v.
Taylor, 20-244, p. 12 (La. App. 5 Cir. 8/5/20), 301 So.3d 1219, 1228, writ denied,
20-0983 (La. 8/10/20).

S
UPREME COURT OF LOUISIANA
No
. 2022-C-01212
FRANCI
S DEAL
VS.
ADRIAN PERKINS AND CADDO PARISH CLERK OF COURT, MIKE
SPENCE, IN HIS OFFICIAL CAPACITY
O
n Writ of Certiorari to the Court of Appeal, Second Circuit, Parish of Caddo
McCALLUM, J., dissents for the reasons assigned by Justice Crichton and
assigns additional reasons.
T
he fidelity of the results of any process is dependent on the integrity of the
inputs or component parts. So it is in science and manufacturing, and so it is with
our system of elections. The people of Louisiana, through their elected
representatives, have enacted the Louisiana Election Code in an effort to secure a
fair and honest system of elections. Public confidence in the integrity of elections is
critical in an ordered society. Even though this writer might disagree with the
application of the statutes and potential harsh results that may result, it is the
province of the people, through the legislature, to enact these laws. Therefore,
although I applaud the majority for the equity of the result rendered, I am
unfortunately unable to join with them.
This case requires the mere reading of statutes, not divination of legislative
intent. The majority correctly recognizes that “[t]he manner of qualifying as a
candidate is set forth in La. R.S. 18:461, which requires a person desiring to become
a candidate to timely file a notice of his candidacy. La. R.S. 18:461(A)(1). The
requirements for a notice of candidacy are stated in La. R.S. 18:463[.]” Deal v.
Perkins, 22-1212, p. 9 (La. 8/19/22), --- So. 3d ---. A simple reading of the statutes
should then resolve the case.

2

The Court should read the clear statutory language and apply that language to
the undisputed facts. We need not look to the intent of t he legislature, nor the
jurisprudential policy previously set forth by this Court in dicta, when the statutory
language and facts of the matter before us are unambiguous and clear, and provide
all we need to render a correct decision.
Our civilian traditio n guides our inquiry. “ When a law is clear and
unambiguous and its application does not lead to absurd consequences, the law shall
be applied as written, and no further interpretation may be made in search of the
intent of the legislature.” La. C.C. art. 9. Here, there is no ambiguity in the statutes.
They may bring about severe consequences, but they are certainly not absurd. The
most simple and direct reading of a statute renders its meaning.
“When the language of the law is susceptible of different meanings, it must
be interpreted as having the meaning that best conforms to the purpose of the law.”
La. C.C. art. 10. The language of the statutes clearly conforms to the purpose of the
Louisiana Election Code (Title 18); that is to “regulate the conduct of elections.”
La. R.S. 18:1 B. The legislature obviously wants to ensure the orderliness and
integrity of elections. These statutes work towards that purpose.
“The words of a law must be given their generally prevailing meaning. Words
of art and technical terms must be given their technical meaning when the law
involves a technical matter.” La. C.C. art. 11. “When the words of a law are
ambiguous, their meaning must be sought by examining the context in which they
occur and the text of the law as a whole.” La. C.C. art. 12. The subject statutes
contain no words of art, technical or ambiguous terms. The words used are plain,
simple and in common usage. Language is the servant of the people and not the
other way around. We do not have to cede interpretation of statutes to legal
professionals alone. If the words of a statute are understandable to lay people, as in
this case, jurists should not seek deeper, esoteric meanings in the name of legislative

3

intent. “Laws on the same subject matter are to be interpreted in reference to each
other.” La. C.C. art. 13. Indeed, La. R.S. 18:461 A (1) and La. R.S. 18:463 work
together, hand in glove. The context within which they occur only serves to underpin
their plain meaning. Additionally, as the majority acknowledges, the legislature has
been sternly clear that “[w] hen the wording of a Section is clear and free of
ambiguity, the letter of it shall not be disregarded under the pretext of pursuing its
spirit.” La. R.S. 1:4.
Titled “Notice of candidacy; campaign finance disclosure; political
advertising; penalties,” La. R.S. 18:463 provides the requirements for the mandatory
written notice of candidacy. More specifically, La. R.S. 18:463 A (2)(a)(viii)
provides:
A. (2)(a) The notice of candidacy also shall include a certificate, signed
by the candidate, certifying all of the following:
…
(viii) Except for a candidate for United States senator or
representative in congress or a candidate who resides in a nursing
home as defined in R.S. 40:2009.2 or in a veterans' home
operated by the state or federal government, that if he claims a
homestead exemption on a residence pursuant to Article VII,
Section 20 of the Constitution of Louisiana, he is registered and
votes in the precinct in which that residence is located.

Titled, “Grounds for an objection to candidacy,” La. R.S. 18:492 provides the
following:
A. An action objecting to the candidacy of a person who qualified as a
candidate in a primary election shall be based on one or more of the
following grounds:

(1) The defendant failed to qualify for the primary election in the
manner prescribed by law.

The plain language of La. R.S. 18:492 A (1) is unambiguous that one ground
for objecting to the candidacy of a person who qualified as a candidate in a primary
election is that the candidate failed to qualify for the primary election in the manner
prescribed by law. The plain language of La. R.S. 18:463 is equal ly unambiguous,
as it mandates the clear, unequivocal manner prescribed by law in which a candidate

4

must qualify for a primary election, which includes La. R.S. 18:463 A (2)(a)(viii).
Applicant simply failed to adhere to the manner prescribed by law to qualify for the
primary election. He candidly admitted such error.
Our consideration of the relevant parts of the Louisiana Election Code should
end there. However, the majority goes beyond our civilian rules of statutory
interpretation, and instead relie s heavily on judicially created means. This it does
even as it acknowledges in passing that “the starting point in the interpretation of
any statute is the language of the statute itself.” Deal, 22-1212, p. 15, --- So. 3d ---
(citing M.J. Farms, Ltd. v. Exxon Mobil Corp. , 07-2371, p. 13 (La. 7/1/08), 998
So.2d 16, 26-27).
As the majority states: “Further, it is presumed that every word, sentence, or
provision in a statute was intended to serve some useful purpose, that some effect is
to be given to each such provision, and that no unnecessary words or provision were
employed. Consequently, courts are bound, if possible, to give effect to all parts of
a statute and to construe no sentence, clause, or word as meaningless and surplusage
if a construction giving force to, and preserving, all words can legitimately be
found.” Deal, 22-1212, p. 16, --- So. 3d --- (internal citation omitted) (citing Moss
v. State, 05-1963, p. 15 (La. 4/4/06), 925 So. 2d 1185, 1196, 925 So.2d at 1196).
Yet, it is the majority that renders La. R.S. 18:492 A (1-4) meaningless and of no
effect; legislative prattle.
1
Justice Antonin Scalia warned:
As Dean Landis of Harvard Law School (a believer in the search for
legislative intent) put it in a 1930 article: ‘The gravest sins are
perpetrated in the name of the intent of the legislature. Judges are rarely
willing to admit their role as actual lawgiv ers, and such admissions as

1 See Deal, 22-1212, p.1, --- So. 3d --- (“Resolving a split in the courts of appeal, this court holds
that only those false certifications specifically listed in La. R.S. 18:492(A)(5) through (7) constitute
grounds for objecting to a candidate.”).

5

are wrung from their unwilling lips lie in the field of common and not
statute law.’2

2 Deciphering A Civil Code: Sources of Law and Methods of Interpretation, Alain A. Levasseur,
Carolina Academic Press, 2016, p. 72-73 (citing A Matter of Interpretation, An Essay by Antonin
Scalia, Princeton Univ. Press, 1997, p.16-18).