UNITED STATES DISTRICT COURT

WESTERN DISTRICT OF MICHIGAN

MICHIGAN UNITED Case No. 20-cv-00335

CONSERVATION CLUBS, a
Michigan nonprofit corporation, Honorable _____________________

Plaintiff,

v.

GRETCHEN WHITMER, in her

official capacity as Governor of the
State of Michigan, and DANIEL
EICHINGER, in his official capacity as
Director of the Michigan Department
of Natural Resources,

Defendants.

COMPLAINT

Plaintiff, Michigan United Conservation Clubs ("MUCC"), by and through

its counsel, Varnum LLP, hereby states as its Complaint against Defendants

Gretchen Whitmer, in her official capacity as Governor of the State of Michigan,

("Governor Whitmer"), and Daniel Eichinger, in his official capacity as Director of

the Michigan Department of Natural Resources, ("Director Eichinger"), as follows:

NATURE OF ACTION

1. Boating is a cornerstone of Michigan culture, not to mention a

psychological refuge in the current crisis. But families who untie a skiff from
their dock could be jailed for 90 days for violating Governor Whitmer's directives,

which purport to criminalize all "motorized" boating.

2. Criminal charges for engaging in Michigan's pastime will come as a

shock to any boater who actually reads Governor Whitmer's Executive Order

2020-42, because the Order itself expressly and unequivocally allows all "outdoor

physical activity." There can be no doubt that boating is an "outdoor physical

activity."

3. But contrary to the plain text of the Order, Governor Whitmer and

Director Eichinger have published responses to "Frequently Asked Questions"

about Executive Order 2020-42. There, Governor Whitmer and Director

Eichinger purport to prohibit all motorboat use, in every corner of the State of

Michigan, on every body of water, for any purpose, and whether the boat operator

is alone, with family, or a pet.

4. Pursuant to these FAQ responses, the State has closed public access to

waterways, and criminally charged MUCC members for using motorboats as their

form of "outdoor physical activity."

5. This has left MUCC members, and other members of the angling and

boating community, in an untenable position. Follow the terms of the Executive

Order, but risk criminal prosecution. Or abandon constitutional, statutory, and

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common law riparian rights to reasonable use of Michigan waters based on

nothing more than an FAQ response.

6. Plaintiff MUCC – the largest statewide conservation organization in

the nation – brings this civil rights action on behalf of its 40,000 members under

the Fourteenth Amendment and Commerce Clause of the United States

Constitution, 42 U.S.C. § 1983, and the Michigan Constitution, challenging

Governor Whitmer and Director Eichinger's authority to unilaterally criminalize

boating activity in the State of Michigan.

PARTIES, JURISDICTION AND VENUE

7. Michigan United Conservation Clubs is a Michigan nonprofit

conservation organization located in Lansing, Michigan, that represents over 200

affiliate clubs and 40,000 members in the State of Michigan.

8. Defendant, Gretchen Whitmer, is and at all times relevant to this

Complaint was the Governor of the State of Michigan and responsible for

enforcing the laws of the State of Michigan, and charged with implementing policy

through executive orders, including the Executive Orders which took effect on

March 24, 2020 and April 9, 2020.

9. Defendant Whitmer issued Executive Order 2020-42 and its

accompanying FAQs at issue in this Complaint under color of state law.

10. Defendant Whitmer is sued in her official capacity only.

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 11. Defendant Daniel Eichinger is, and at all times relevant to this

Complaint was, the Director of the Michigan Department of Natural Resources,

acting under color of state law.

12. Defendant Eichinger is sued in his official capacity only.

13. Pursuant to his authority as Director of the MDNR, Director Eichinger

is empowered to enforce the laws of the State of Michigan with regard to the use of

Michigan's waterways and other natural resources.

14. As described below, the MDNR has enforced Executive Order 2020-

42 and its accompanying FAQs by writing citations and issuing warnings to those

who violate (in MDNR's opinion) those restrictions.

15. This Court has jurisdiction to hear this case under 28 U.S.C. §§ 1331

and 1343, which confer original jurisdiction on federal district courts to hear suits

alleging violation of rights and privileges under the United States Constitution.

16. This action is brought by Plaintiff to obtain relief under 28 U.S.C. §§

2201 and 2202, 42 U.S.C. §§ 1983 and 1988, the Fourteenth Amendment, U.S.

Const. Amend. XIV, the Commerce Clause of the U.S. Constitution, the Michigan

1963 Constitution, Rules 57 and 65 of the Federal Rules of Procedure, Ex Parte

Young, 209 U.S. 123 (1908), and the general legal and equitable powers of this

Court.

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 17. Plaintiff's claim for an award of their reasonable costs of litigation,

including attorneys' fees and expenses, is authorized by 42 U.S.C. § 1988 and other

applicable law.

18. Venue is proper under 28 U.S.C. § 1391(b), because a substantial part

of the events giving rise to Plaintiff's claims occurred in this district and Defendant

is a resident of the State in which this district is located.

GENERAL ALLEGATIONS

A. Michigan Citizens' Right to Use the Great Lakes, the Shores of the
Great Lakes, and Michigan's Navigable Inland Lakes and Streams.

19. Each Michigan resident has a recognized right under the public trust

doctrine, the Michigan Constitution, and Michigan statutes to use the Great Lakes,

the shores of the Great Lakes, and navigable inland lakes and streams for fishing

and boating.

20. For inland lakes and streams, the traditional activities that are

protected by the public trust doctrine are bathing, swimming, wading, fishing, and

boating, including the temporary anchoring of boats.

21. Members of the public who gain access to a navigable waterbody

have a right to use the surface of the water in a reasonable manner.

22. Michigan's Public Trust Doctrine is embodied in Michigan statutes

which expressly recognize the public's right to activities such as fishing and

boating.
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 23. The Michigan Constitution, Article 4, Section 52 states that "[t]he

conservation and development of the natural resources of the state are hereby

declared to be the paramount public concern in the interest of the health, safety,

and general welfare of the people."

24. Under Section 324.40113a of the Michigan Natural Resources and

Environmental Protection Act ("NREPA"), the Michigan Legislature recognizes

that "[t]he fish and wildlife populations of the state and their habitat are of

paramount importance to the citizens of this state."

25. The Michigan legislature has "declare[d] that hunting, fishing, and the

taking of game are a valued part of the cultural heritage of this state and should be

forever preserved. The legislature further declares that these activities play an

important part in the state's economy and in the conservation, preservation, and

management of the state's natural resources. Therefore, the legislature declares

that the citizens of this state have a right to hunt, fish, and take game, subject to the

regulations and restrictions prescribed by subsection (2) and law."

MCL324.40113a(3).

26. Additionally, the Michigan Administrative Code recognizes the "the

paramount right of the public to navigate and fish in all inland lakes and streams

that are navigable" and "the perpetual duty of the state to preserve and protect the

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public's right to navigate and fish in all inland lakes and streams that are

navigable." AC R 281.811.

B. The Michigan United Conservation Clubs.

27. Plaintiff MUCC was founded in 1937 with the mission of uniting

citizens to conserve, protect and enhance Michigan's natural resources and outdoor

heritage.

28. MUCC's membership is a diverse collection of organizations and

individual members whose missions involve conservation of fisheries, wildlife and

natural resources, as well as the promotion of hunting, fishing and trapping

activities.

29. MUCC is the largest statewide conservation organization in the

nation.

30. MUCC's members, as set forth below, have been directly affected by

the Order and FAQs, including by being criminally charged under those directives.

C. Governor Whitmer and Director Eichinger Ban Navigation, Fishing,

and All Other Activities in Connection With Motor Boating.

31. After the World Health Organization ("WHO") and the Center for

Disease Control and Prevention ("CDC") identified the novel coronavirus

("COVID-19") as a "public health emergency of international concern", Governor

Whitmer proclaimed the existence of a state of emergency throughout the State of

Michigan on March 10, 2020.

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 32. Since March 10, 2020, Governor Whitmer has issued no fewer than

39 separate executive orders in response to COVID-19.

33. Executive Order 2020-21, attached as Exhibit A, took effect on

March 24, 2020. Order 2020-21 restricted travel throughout the State of Michigan

and ordered all business (with limited exceptions) to cease operations. Order

2020-21 remained in effect until April 13, 2020, and was subsequently revoked

and replaced by Order 2020-42.

34. Initially, Governor Whitmer permitted all boating as an outdoor

recreational activity. Specifically, the Governor's website stated that "boating falls

within the outdoor activities permitted under the order."

35. Executive Order 2020-42, attached as Exhibit B, took effect on April

9, 2020. It extends the timeline originally set by Order 2020-21 and grossly

expands restrictions on entities and individuals' constitutional rights.

36. By its own terms, Executive Order 2020-42 will remain in effect until

April 30, 2020 at 11:59 pm. Governor Whitmer has publicly expressed a desire to

extend the measures of Executive Order 2020-42 into May/June 2020.

37. A "willful violation" of Executive Order 2020-42 is a misdemeanor.

The penalty for a misdemeanor is up to $1,000 fine and/or up to 90 days in jail.

38. Executive Order 2020-42 arbitrarily and unreasonably criminalizes

the exercise of fundamental rights and liberty by MUCC members.

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 39. Executive Order 2020-42 did not mention motor boating; in fact, it

encouraged outdoor physical activity:

a. Individuals may leave their home or place of residence, and travel as

necessary:

1. To engage in outdoor physical activity, consistent with

remaining at least six from people from outside the individual's household.
Outdoor physical activity includes walking, hiking, running, cycling,
kayaking, canoeing, or other similar physical activity, as well as any
comparable activity for those with limited mobility.

40. Navigating waters, fishing, hunting and performing similar activities

in connection with a motorized boat are commonly understood by Michigan

residents to encompass such "outdoor physical activity."

41. However, the issue became confused when the Governor published

responses to "Frequently Asked Questions" on April 10, 2020. The Governor and

Director Eichinger opined that Executive Order 2020-42 prohibited any use of

motorized boats, anywhere in the State of Michigan and its surrounding waters. A

copy of the FAQs pages as they appeared on the Governor's website on April 13,

2020 is attached as Exhibit C.

42. The FAQ at issue states the following regarding boating:

Q: Does boating constitute "outdoor activity" under the new executive

order?

A: Physical outdoor activity like kayaking, canoeing, and sailing is

permitted under the order, but using a motorboat, a jet ski, or other similar
watercraft is not. Any outdoor activity permitted under the order, including
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 boating, must be done in a manner consistent with social distancing, and
individuals should use only their own equipment to prevent the transmission
of the virus through the touching of shared surfaces. Additionally, in
accordance with section 2 of the order, persons not part of a single
household may not boat together.

While some boating is permitted under the order, the provision of boating
services or supplies does not itself constitute critical infrastructure work, and
business and operations may not designate workers to come to work for that
purpose. As needed, these businesses and operations may designate workers
to leave their home for work if their in-person presence is strictly necessary
to conduct the minimum basic operations listed in section 4(b) of the order.
Minimum basic operations do not include serving members of the public.
The order, however, does permit in-person work necessary to maintain the
safety and sanitation of sites otherwise open to the public for outdoor
physical activity permitted under the order. All in-person work permitted
under the order must be done in accordance with mitigation measures listed
in section 10 of the order.

43. In other words, the Governor's FAQs opine that the use of a

"motorboat, jet ski, or similar watercraft" at any time, in any way, anywhere in the

State of Michigan and surrounding waters, is prohibited.

44. Governor Whitmer also instructed the MDNR to prohibit the use of

any motorized boats, anytime, anywhere. A copy of the MDNR's guidance is

attached as Exhibit D and can be found at

https://www.michigan.gov/dnr/0,4570,7-350-79137_79770_98926---,00.html. The

MDNR's guidance stated:

Am I able to use my motor-powered boat for recreational purposes,

including fishing?

No. Under the governor's revised "Stay Home, Stay Safe" Executive Order
2020-42, physical outdoor activity, such as kayaking, canoeing, and sailing,
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 remains permissible. However, the use of a motorboat, jet ski or similar
watercraft (includes gas and electric motors) is not permitted for the
duration of the Executive Order, which is currently set to expire at 11:59
p.m., April 30. Prohibition on the use of motorized watercraft is reflected in
the governor's Frequently Asked Questions document that explains and
interprets Executive Order 2020-42.

The DNR has received many reports about heavy use of boat launches
across the state and the subsequent congregation of people at these launches
in violation of social distancing requirements, and in a manner that threatens
public health. In addition, people who use motorized watercraft typically
need to procure secondary services for their craft, such as parts and gasoline,
that could unnecessarily increase contact with others and spread disease.
The hope is that the prohibition on the use of motorized watercraft will
reduce the movement of, and contact among, people with the intent of
slowing the spread of the coronavirus.
Please recreate locally and responsibly. Long distance travel is prohibited
unless it is for a purpose considered critical under the governor's "Stay
Home, Stay Safe" Executive Order.
(Updated April 13, 2020)

45. Governor Whitmer and Director Eichinger are now criminally

penalizing, and threatening to criminally penalize, MUCC members (and Michigan

residents generally), for violating a FAQ page on the Governor and MDNR's

website.

46. According to an April 13, 2020 article in the Detroit News, on April

11 and 12, 2020, Governor Whitmer and Director Eichinger, through the MDNR

and law enforcement, issued five citations and 323 warnings for violating

Executive Order 2020-42. A copy of this article is attached as Exhibit E and can

be found at

https://www.detroitnews.com/story/news/local/michigan/2020/04/13/michigan-
11
dnr-issued-boaters-5-tickets-323-warnings-violating-stay-home-

order/2986076001/.

47. Governor Whitmer's FAQs do not define what a "motorboat," "jet

ski," or "similar watercraft" is.

48. The FAQs, for example, state that sailboats are permitted, but

sailboats longer than five meters generally have motors, and are thus reasonably

considered a "motorboat."

49. The FAQs also state that canoes and rowboats are permitted, but many

canoes and rowboats also have motors, and can thus reasonably be considered a

"motorboat" or "similar watercraft."

50. Moreover, most angling boats might be considered a "motorboat" or

"similar watercraft" because they use trolling motors, but those are often electric,

not gasoline. Batteries for electric motors are charged at home and do not require a

stop for gasoline.

D. Governor Whitmer and Director Eichinger's Arbitrary Enforcement of

the Order and Accompanying FAQs.

51. MUCC is cognizant of the public health crisis associated with

COVID-19 and supports the administration in taking well-informed action to curb

the spread of this novel virus.

52. MUCC's members, friends, and families have been greatly impacted

by this virus and affected by the losses suffered by the State of Michigan.
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 53. Through Governor Whitmer and Director Eichinger's latest Order and

FAQs, however, MUCC's members, including anglers, boaters, hunters, and

recreationists, have been subjected to unlawful and arbitrary deprivations of their

constitutional, statutory, and common law rights that have nothing to do with the

ostensible purpose of the Order.

54. MUCC members have been left confused and frustrated with the

prohibition of navigation, fishing, hunting and other activities in connection with

motorboats, among other arbitrary prohibitions, and the gross violations of their

fundamental rights.

55. While some may see snow and hail in April as a reason to stay home,

anglers have the greatest diversity of fishing available this time of year.

56. Many MUCC members rely on this fishing not only as a locally

sourced, high-quality protein for their family and friends, but also as an activity

important to their mental health during the stresses of this pandemic. For some

members, fishing and boating activities are their only source of income.

57. MUCC members, however, need access to the waters and the fisheries

to participate in this activity, which collectively contributes not only state license

revenue to manage and protect the State of Michigan's fisheries, but $2.3 billion to

the State of Michigan's economy annually.

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 58. While MUCC and its members support measures to mitigate risks to

exposure of COVID-19, these arbitrary measures entirely fail to do so.

59. Thousands of public and private accesses to water exist throughout

Michigan that are infrequently visited by people with motorboats and are vital to

Michiganders' mental health and wellbeing during this time.

60. The Governor's Order and FAQs impact even more drastically MUCC

members who live directly on the water. These homeowners are unable to leave

their back door and get on their boat.

61. Mark Zona is a current member of MUCC. Mr. Zona is a citizen of

the State of Michigan and resides in St. Joseph County.

62. Mr. Zona lives on a Michigan inland lake, Klinger Lake. Mr. Zona

currently owns a legally registered, motorized boat docked in the lake and

available for him to use by walking from his home to the lake. Mr. Zona also has a

valid Michigan fishing license.

63. Due to Governor Whitmer's Order and accompanying FAQs, Mr.

Zona risks imminent criminal prosecution if he uses his boat, even by himself.

But-for the threat of criminal prosecution, Mr. Zona would be using his boat on a

regular, if not daily, basis.

64. Governor Whitmer's boating ban is also far more than a recreational

inconvenience for Mr. Zona. Mr. Zona is a professional fisherman and derives

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significant income from videos and other content generated while he is using a

motorized boat. He also has a prominent presence on fishing shows on cable.

Consequently, both Mr. Zona's professional and recreational activities are directly

and adversely affected by Governor Whitmer's Order and accompanying FAQs.

65. Louie Stout is a current member of MUCC. Mr. Stout is a citizen of

the State of Michigan and resides in Cass County, Michigan.

66. Mr. Stout lives on Driskels Lake. Mr. Stout owns a registered,

motorized fishing boat and would normally be regularly using that boat on his lake

at this time. Mr. Stout also has a valid Michigan fishing license.

67. However, under fear of criminal prosecution from Governor

Whitmer's Order and accompanying FAQs, Mr. Stout has been unable to use his

boat on his private property, even though he would be using it by himself and in

immediate proximity to his residence.

68. Patrick Cummings is a current member of MUCC. Mr. Cummings is

a citizen of the State of Michigan and resides in Salinac County, Michigan.

69. Mr. Cummings owns a registered, motorized fishing boat and would

regularly use that boat on Michigan's waterways at this time for fishing and other

recreational activities. Mr. Cummings also has a Michigan fishing license.

70. When Mr. Cummings exercised his fundamental rights to navigate

Michigan's waterways and lakes (Lake Huron) and engage in fishing and other

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recreational activities on April 14, 2020, he was cited and ticketed by an MDNR

compliance officer for "Motorboat/Fishing" in violation of Governor Whitmer's

"Executive Order 2020-42". A copy of the ticket issued to Mr. Cummings is

attached as Exhibit F.

71. Due to this citation, Mr. Cummings must now appear for a hearing in

the 73A District Court of Salinac County, for the alleged crime of navigating the

interstate and Michigan waters of Lake Huron to fish in his own motorboat.

72. Timothy Quist is a MUCC member. Mr. Quist, his wife and son are

citizens of the State of Michigan and reside on Big Whitefish Lake in Montcalm

County, Michigan.

73. Mr. Quist owns three motorized boats that he would be using for

recreational and fishing purposes but-for the Governor and Director's threatened

prosecution of the Order and FAQs.

74. As a riparian owner, Mr. Quist would be putting his pontoon boat on

the lake now so that he and his immediate household could use it on the water.

75. It is also steelhead season, and Mr. Quist and his son would otherwise

be using one of their motorized boats to fish together on Michigan rivers. The boat

Mr. Quist uses for steelhead fishing uses very little gas and would not require

fueling at a public gas station before or after a fishing trip, nor would the fishing

trip necessitate any other contact with the general public.

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 76. Steelhead fishing is time-sensitive. By May 1, the fish will be headed

back out to the Great Lakes, and no longer accessible to Mr. Quist. Mr. Quist's

river boat is a very expensive jet boat custom-built for steelhead fishing. If he

cannot use it until after May 1, he will not be able to use it for the entire 2020 year.

77. The Governor and Director's threatened prosecution has forced Mr.

Quist and his family to avoid these lawful boating activities.

78. Another MUCC member, Gary Gorniak, is the president of the Straits

Area Sportsmen's Club. The Straits Area Sportsmen's Club members participate in

a legal cormorant harassment program on the 4,200-acre Brevort Lake under

authority from the United States Department of Agriculture Animal and Plant

Health Inspection Service (USDA APHIS) Wildlife Services.

79. Cormorants migrate through sometimes 500 at a time to the lake, and

the Club uses chase motorboats to keep the cormorants out of the walleye

spawning areas and to keep them moving off the lake.

80. Mr. Gorniak and the Club have spent tens of thousands of dollars in

the past few years raising and stocking walleye in this public lake. As a result of

the Governor Order and FAQs, Mr. Gorniak cannot protect his hard work and

investment.

81. Jordan Pena is a MUCC member, a Michigan resident, and a

supervisor from Midland Public Works. He read Governor Whitmer's Order

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before going fishing and, based on that reading, did not believe that navigating and

fishing on a lake in a motorboat was prohibited.

82. On April 11, 2020, Mr. Pena went fishing on the Saginaw Bay with a

friend who is a former member of the U.S. Coast Guard. Mr. Pena's boat is 23 feet

long, and the two friends complied with social distancing requirements on the trip.

83. Nevertheless, a MDNR compliance officer cited Mr. Pena for

"[v]iolat[ing] Executive Order 2020-42." A copy of the citation issued to Mr. Pena

is attached as Exhibit G.

84. Due to this citation, Mr. Pena must now appear for a hearing in the

district court in Bay County, for the alleged crime of "Fishing Together" on the

Saginaw Bay waters in his own motorboat.

85. Due to the outbreak of COVID-19, MUCC members, including Mr.

Zona, Mr. Stout, Mr. Cummings, Mr. Quist, Mr. Pena and Mr. Gorniak, have

implemented social distancing measures recommended by the Centers for Disease

Control and Prevention, specifically including at least six feet from people not in

the same household.

86. MUCC members, including Mr. Zona, Mr. Stout, Mr. Cummings, Mr.

Quist Mr. Pena and Mr. Gorniak, desire to and have paid registration and licensing

fees to the State of Michigan to use their motorized boats for navigation, fishing

and recreation, among other purposes, either alone, or with members of their

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immediate household, and to do so while respecting the recommended social

distancing measures.

87. As a result of the Governor and Director's interpretation of Executive

Order 2020-42, if MUCC's members, including Mr. Zona, Mr. Stout, Mr.

Cummings, Mr. Quist, Mr. Pena and Mr. Gorniak exercise their statutorily and

constitutionally-protected rights, they would be subject to prosecution, fines, and

criminal penalties. Some already have.

88. As a result, MUCC's members, including the above members, have

ceased boating activities. MUCC and its members have no recourse for this

deprivation of their liberty and property rights other than seeking redress in this

Court.

E. Governor Whitmer and Director Eichinger's Enforcement of the

Boating Ban Does Not Advance Public Safety.

89. There is no reasonable justification for restricting Michigan residents

from fishing, hunting, or engaging in any other recreational activities on a

motorized boat during this pandemic.

90. Indeed, under Executive Order 2020-42, an Illinois resident could

travel from his State over navigable waterways in Michigan without violating

Executive Order 2020-42 and its FAQs.

91. Thus, the Executive Order 2020-42 and its accompanying FAQs

discriminate against individuals, including members of MUCC, based upon their

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State of residence, impair their right to travel and navigate Michigan's waterways,

and deprive them of their use and enjoyment of their constitutional liberties and

property.

92. Prohibiting individuals from engaging in navigation, fishing, hunting,

and other recreational and outdoor activities in a motorized boat, including on their

own private property, has no real or substantial relation to promoting the ostensible

objectives of Executive Order 2020-42 and accompanying FAQs, particularly in

light of the exceptions permitted under the same.

93. If Governor Whitmer actually sought to safeguard and preserve the

public and welfare against COVID-19 and enforce social distancing requirements,

she could adopt narrowly tailored measures to that end.

94. Banning all navigation, fishing, recreation and other activities on

motorized boating only (including on private property by single persons) does not

further the Order and FAQs' ostensible purpose.

95. For example, under the Governor's Order and FAQs as written,

persons using sailboats, rowboats, kayaks, and other watercraft can and still will

congregate by boat launches.

96. Under Governor Whitmer's Order and accompanying FAQs, several

persons (of a household) could go out and operate a 30-foot sailboat.

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 97. In contrast, motorboats generally only require one person to operate,

but are arbitrarily banned by Governor Whitmer and Director Eichinger's vague

and contradictory FAQs.

98. The challenged measures of Executive Order 2020-42 and its

accompanying FAQs, as set forth in this Complaint, lack any rational basis, are

arbitrary, capricious, and vague, have no real or substantial relationship to the

objectives of those measures, and are a plain, palpable invasion of rights secured

by fundamental law.

99. Governor Whitmer's Order and FAQs also entirely fail to take into

account the actual design, structure, and operation of water craft in relation to the

possible risk for transmission of COVID-19.

100. For example, Governor Whitmer and Director Eichinger's directives

expressly note that sailboats are permitted, but sailboats longer than five meters

generally have motors.

101. Moreover, Governor Whitmer's Order and FAQs ban most angling

boats as "motorboats" because they use trolling motors, but trolling motors are

electric, not gasoline.

102. Governor Whitmer and Director Eichinger's purported concerns about

the procurement of secondary services such as parts and gasoline are dubious.

Parts (even if needed) can be procured online. And if the services or parts are not

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available, those individuals would simply not be able to use their motorboat.

Gasoline, even if needed, can easily be obtained while maintaining social

distancing and paying at the pump.

103. Sailboats generally take multiple people to operate, but are permitted.

Motorboats and jet skis, which generally only require one person to operate, are

banned.

104. Governor Whitmer and Director Eichinger's directives are also

extremely overbroad, prohibiting any use of motorboats anywhere in Michigan and

its surrounding waters.

105. Instead of utilizing narrowly tailored means, the Order and FAQs are

a scattershot approach that arbitrarily penalizes (with criminal penalties) all users

of motorized boats for any purpose everywhere, even residents who live on private

lakes and/or never use a boat launch at all.

106. Governor Whitmer and Director Eichinger's directives are so vague

that at least five different county sheriffs have issued public statements that they

cannot enforce the directives.

107. On April 15, 2020, the Sheriffs of Mason County, Manistee County,

Benzie County, and Leelanau County declared that they would not be enforcing

Governor Whitmer's Executive Order 2020-42. A copy of the April 15, 2020

County Press Release is attached as Exhibit H.

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 108. The Sheriffs stated "[w]hile we understand her desire to protect the

public, we question some restrictions that she has imposed as overstepping her

executive authority. She has created a vague framework of emergency laws that

only confuse Michigan citizens."

109. The Manistee County Sheriff expressly highlighted the unfairness of

Governor Whitmer's Order and FAQs as it relates to motorboats: "[t]he motorboat

thing, that was a real big kicker . . . [y]ou can take a kayak or canoe out but you

can't take a motorboat out because you're going to use gas? You're going to touch

that gas pump one more time a day or week, that's just a little much." April 15,

2020 Upnorthlive.com Article, Exhibit I.

110. On April 16, 2020, the Barry County Sheriff, Dar Leaf, became the

fifth Sheriff to state that his department would not strictly enforce Governor

Whitmer's Order and FAQs. See April 16, 2020 WWMT Article, Exhibit J.

Sheriff Leaf agreed that Governor Whitmer's Order and FAQs were confusing and

"really out of line" in some cases. Id. "People are out in the boat in the middle of

the lake, what are the chances of spreading that virus? . . . Here in Barry County,

we've got 327 lakes. For people to go out and start patrolling all those lakes, and

start writing everybody tickets, that's not possible." Id.

111. The Mason County Sheriff, Kim Cole, also highlighted the Governor's

Order and FAQs' absurdity on Fox News, stating "[a] person can break out their

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ORV and go ride trails, but a person can't break out a 16-foot boat and fish." April

17, 2020 Mlive article, Exhibit K.

112. Governor Whitmer and Director Eichinger's directives are so vague

that the Baraga County Prosecuting Attorney Joseph O'Leary has issued a public

statement interpreting Governor Whitmer's Executive Order 2020-42 as permitting

motorized boating, in contradiction to the Governor and Director's directives. A

copy of the April 16, 2020 Baraga County Press Release is attached as Exhibit L

and can be found at https://www.baragacounty.org/ufaqs/test-

question/?entity_template=default.

113. Specifically, the Baraga County Prosecutor interpreted Executive

Order 2020-42 as providing that "fishing is an outdoor physical activity with or

without a motor attached to a particular fishing vessel." Moreover, in the

prosecutor's opinion, Executive Order 2020-42 "allows persons NOT from the

same household to fish together provided they follow CDC social distancing

guidelines . . . ."

114. The Baraga County Prosecutor's press release explicitly noted that:

BE ADVISED THAT I AM INFORMED, AND DO BELIEVE, THAT

THE DNR DISAGREES WITH MY ANSWER TO THIS FAQ.
ACCORDINGLY SOMEONE COULD VERY WELL BE TICKETED
EVEN IF THEY ARE USING GOOD COMMON SENSE AND SAFETY
PRECAUTIONS. IF THAT HAPPENS DO NOT FIGHT OR ARGUE
WITH THE DNR OR ANY OTHER LAW ENFORCEMENT OFFICER.
THOSE WHO PHYSICALLY RESIST OR OBSTRUCT SUCH

24
 OFFICERS WILL BE PROSECUTED FOR THAT OFFENSE, EVEN IF
THEY ARE NOT PROSECUTED FOR AN EEO VIOLATION.

BE ADVISED THAT THE ATTORNEY GENERAL HAS AUTHORITY

TO ENFORCE STATE LAW THROUGHOUT MICHIGAN AND IF SHE
DISAGREES WITH MY DECISION ON ANY PARTICULAR CASE,
SHE MAY BRING A PROSECUTION EVEN IF I DECLINE TO DO SO.
ACCORDINGLY, PROCEED WITH CAUTION AND/OR CONSULT
YOUR OWN ATTORNEY BEFORE MAKING DECISIONS BASED
SOLELY ON THIS FAQ SITE.

115. To withstand constitutional scrutiny, criminal prohibitions must be

objectively clear and unambiguous. When law enforcement and the prosecuting

attorney themselves cannot discern what is permitted and what is not, or reach

conflicting opinions based on the same language, criminally prosecuting the

citizens of a State for violating those vague and unclear prohibitions is patently

unconstitutional.

116. MUCC's members need clear and specific laws presented to them, not

subjective responses to FAQs untethered from common sense and reality.

117. MUCC's members have a long-established constitutional right to

clearly understand the penalties they may face. The current contradictions between

Defendant Whitmer's Order and FAQs and the MUCC members' constitutional

rights are unacceptable and unenforceable.

118. Governor Whitmer and Director Eichinger's contradictory, imprecise

and nonsensical use of the terms "motorboat," "similar watercraft," and "outdoor

physical activity" in their directives has encouraged and resulted in arbitrary and
25
discriminatory enforcement of the Order against MUCC members, as discussed

above.

119. But for Governor Whitmer and Director Eichinger's ambiguous and

vague directives and arbitrary enforcement of the same, MUCC members would

freely exercise their constitutional rights to navigate Michigan's waterways, and

fish, hunt, and otherwise enjoy the outdoors in motorboats, similar watercraft or

otherwise.

F. Governor Whitmer and Director Eichinger's Enforcement of the Order

Conflicts With the Enactments of Other States, Thereby
Unconstitutionally Burdening Interstate Commerce.

120. In contrast to Governor Whitmer and Director Eichinger's Order and

FAQs, several neighboring states have permitted and encourage all types of

navigation, boating and fishing as outdoor recreational activity under those states'

stay-at-home orders.

121. For example, Illinois, Indiana, Ohio, and Wisconsin all allow boating

and fishing, with no bans for motorized boats, as Governor Whitmer and Director

Eichinger have done.

122. In fact, boat launch sites in Illinois and Wisconsin are operating free

of charge where a fee is ordinarily required.

123. Businesses in Ohio that support boaters with servicing and

maintenance have also been permitted to remain open.

26
 124. Minnesota allows boating and fishing, and has excluded several parts

of the boating industry from its stay-at-home order as an "essential business" in

order to encourage boaters. Those who install and support docks, lifts, and other

water-related equipment, and those servicing boat delivery all remain open as well.

125. State laws which conflict with enactments of other States are

unconstitutional if they unduly burden interstate commerce.

126. Governor Whitmer's Order and FAQs is entirely inconsistent with

other States' stay-at-home orders, with the adverse effect of eliminating navigation,

fishing, and other activities conducted in connection with motorboats between

States and in connection with interstate commerce.

127. Moreover, because Governor Whitmer's Order and FAQs ban

navigation, fishing, and other activities in connection with motorized watercraft

anywhere in the interstate and inland waters of the State of Michigan, including the

Great Lakes, the directives impermissibly regulate interstate commerce occurring

entirely outside the borders of the State of Michigan by preventing and otherwise

regulating navigation, travel, distribution, transportation, and other activities

occurring outside of Michigan.

128. Defendants' overbroad and draconian directives and enforcement also

impermissibly forces states to comply with Governor Whitmer and Director

Eichinger's ban on navigation, fishing, and other activities on motorized watercraft.

27
 129. For example, as a direct result of Defendants' drastic restrictions as

described herein, the Wisconsin Department of Natural Resources ("WDNR") has

been forced to warn Wisconsin boaters about Michigan's Executive Order 2020-42

and its ban on any use of motorized watercraft and the risk of criminal prosecution

for violations of that Order in Michigan-Wisconsin Boundary Waters.

130. For the above-mentioned reasons, among others, Governor Whitmer's

Order has been described as "going to radical extremes," and "one of the most

restrictive stay-at-home orders in the country," by prominent news organizations

such as NBC and Fox News, among others. See articles attached as Exhibit M.

131. The burdens Governor Whitmer's extreme directives place on

interstate commerce, including but not limited to the entire elimination of

motorized boating anywhere on the State of Michigan's interstate and inland

waters, is excessive in relation to Governor Whitmer's ostensible interest in

preventing the spread of COVID-19 through activities conducted on motorboats.

COUNT I
DECLARATORY JUDGMENT

132. Governor Whitmer's Executive Order 2020-42, by its plain terms,

allows motorboat use, and MUCC ask this Court to enter a judgment declaring

motorboat use as an allowed "outdoor physical activity" under the Order.

133. Further, to the extent Governor Whitmer and Director Eichinger

contend that the Order prohibits motorboat use, it is void for vagueness under the
28
Fourteenth Amendment and the Michigan 1963 Constitution, violates the equal

protection and due process principles of the Fourteenth Amendment, and

contravenes the Commerce Clause of the U.S. Constitution. Additionally, the

foregoing directives by the Governor are not authorized by the Emergency

Management Act 390 of 1976, MCL § 30.403, or the Emergency Powers of

Governor Act 302 of 1945, MCL § 10.31, or any other statute, and otherwise

exceed the scope of Governor Whitmer's emergency powers.

134. Plaintiff seeks a declaratory judgment finding that Governor

Whitmer's Order and FAQs to the extent they ban all navigation, fishing, and other

activities conducted in connection with motor boating, and as applied to MUCC

and its members, are unconstitutional and in violation of the Due Process and

Equal Protection Clauses of the Fourteenth Amendment to the U.S. Constitution,

the Commerce Clause of the United States Constitution, and Article 1, Section 17

of Michigan's 1963 Constitution.

COUNT II
VOID FOR VAGUENESS

135. Plaintiff hereby incorporates by reference the allegations contained in

the preceding paragraphs.

136. Governor Whitmer's Executive Order 2020-42 and accompanying

FAQs are void for vagueness under the Fourteenth Amendment to the United

States Constitution and Article 1, Section 17 of Michigan's 1963 Constitution.

29
 137. First, the Order itself expressly allows "outdoor physical activity"

including (but not limited to) activities similar to canoeing and kayaking. MUCC

members and any person of ordinary intelligence would reasonably conclude that

boating is a protected "outdoor physical activity" generally, and boating is certainly

"similar" to canoeing and kayaking. Yet, that reasonable conclusion would

subject, and has already subjected, MUCC members to criminal prosecution.

138. Second, the only mention of prohibited motorboat use is in the FAQs.

FAQs, however, are not law and no citizen of the State is required read,

understand, or follow non-binding responses to FAQs. Thus, the very existence of

the FAQs does nothing to clarify that motorboat use is actually prohibited by the

Order, instead of allowed by the Order (as it reads).

139. Finally, even if FAQs were legally consequential, those at issue fail to

define the term "motorboat" and "similar watercraft" with sufficient precision and

particularity to give Plaintiff and its members, or any person of ordinary

intelligence, fair notice of whether and to what extent Plaintiff and its members

may exercise their fundamental right to navigate Michigan's waterways, and fish,

hunt and engage in other activities protected by Michigan law.

140. The Order and accompanying FAQs are also void for vagueness

because they have resulted in arbitrary and discriminatory enforcement by

Governor Whitmer and Director Eichinger against Plaintiff and its members.

30
 141. Relying on the vagueness inherent in the Order and FAQs'

restrictions, Governor Whitmer and Director Eichinger have fined, threatened to

fine, and otherwise criminally prosecuted and penalized Plaintiff and its members

for engaging in constitutionally-protected conduct based solely upon the arbitrary

determination that MUCC members have navigated on, fished with, or otherwise

operated motorized boats, while allowing others to engage in the same or similar

activities using ostensibly non-motorized water craft.

142. Governor Whitmer and Director Eichinger's arbitrary and

discriminatory enforcement of the unconstitutionally vague restrictions prevents

Plaintiff and its members from knowing whether they or others will be arrested,

fined, or otherwise penalized for violating those restrictions should they exercise

their constitutionally protected rights, as discussed above.

143. As a direct and proximate result of Defendants' violation of the

Fourteenth Amendment as set forth in this Complaint, Plaintiff and its members

have suffered irreparable harm, including the loss of their fundamental

constitutional rights, entitling them to declaratory and injunctive relief.

COUNT III
EQUAL PROTECTION – FOURTEENTH AMENDMENT

144. Plaintiff hereby incorporates by reference the allegations contained in

the preceding paragraphs.

31
 145. By reason of the aforementioned acts, policies, practices, procedures,

and/or customs, created, adopted, and enforced under color of State law, Governor

Whitmer and Director Eichinger have deprived Plaintiff and its members of the

equal protection of the law guaranteed under the Equal Protection Clause of the

Fourteenth Amendment to the United States Constitution and 42 U.S.C. § 1983.

146. As set forth in this Complaint, Executive Order 2020-42 and its

accompanying FAQs deprive Plaintiff MUCC and its members of their

fundamental rights and freedom, yet the restrictions provide exceptions for other

activity and conduct that is similar in its impact and effects. The challenged

measures lack any rational basis, are arbitrary, capricious, and vague, have no real

or substantial relation to the objectives of the Order and accompanying FAQs, and

are a palpable invasion of rights secured by fundamental law in violation of the

Equal Protection Clause.

147. When the government treats an individual disparately as compared to

similarly-situated persons and that disparate treatment burdens a fundamental right,

targets a suspect class, or has no rational basis, such treatment violates the equal

protection guarantee of the Fourteenth Amendment. As set forth in this Complaint,

the challenged measures of Executive Order 2020-42 and its FAQs violate the

equal protection guarantees of the Fourteenth Amendment.

32
 148. As a direct and proximate result of Defendants' violation of the equal

protection guarantee of the Fourteenth Amendment as set forth in this Complaint,

Plaintiff MUCC and its members have suffered irreparable harm, including the loss

of their fundamental constitutional rights, entitling them to declaratory and

injunctive relief.

COUNT IV
DUE PROCESS – FOURTEENTH AMENDMENT

149. Plaintiff hereby incorporates by reference the allegations contained in

the preceding paragraphs.

150. By reason of the aforementioned acts, policies, practices, procedures,

and/or customs, created, adopted, and enforced under color of State law, Defendant

Whitmer and Director Eichinger have deprived Plaintiff MUCC and its members

of their right to due process in violation of the Fourteenth Amendment to the

United States Constitution and 42 U.S.C. § 1983.

151. The challenged measures of Executive Order 2020-42 and its

accompanying FAQs, as set forth in this Complaint, lack any rational basis, are

arbitrary, capricious, and vague, have no real or substantial relation to the

objectives of the Order and its FAQs, and are a palpable invasion of rights secured

by fundamental law in violation of the Due Process Clause of the Fourteenth

Amendment.

33
 152. Defendant Whitmer and Director Eichinger's actions, as set forth in

this Complaint, deprived Plaintiff MUCC and its members of the use and

enjoyment of their property without due process in violation of the Fourteenth

Amendment.

153. The Due Process Clause of the Fourteenth Amendment protects the

right to travel locally through public spaces and on navigable waterways.

154. The Due Process Clause of the Fourteenth Amendment also protects

Plaintiff MUCC and its members' property interests in the use of their fishing

licenses and State-registered motorized boats.

155. Plaintiff MUCC and its members also have protected liberty interests

in their right to live without arbitrary governmental interference, and fundamental

property rights to use and enjoy land and their riparian rights in which they hold a

recognized interest.

156. Executive Order 2020-42 fails all levels of scrutiny because it broadly

prohibits Plaintiff MUCC and its members from traveling through public spaces

and navigable waterways, and yet the Order permits other travel with the same

impact and effect of Plaintiff and its members' forbidden travel, in violation of the

Fourteenth Amendment.

157. Executive Order 2020-42 is arbitrary, capricious, irrational and

abusive conduct which unlawfully interferes with Plaintiff MUCC and its

34
members' liberty and property interests protected by the Due Process Clause of the

Fourteenth Amendment.

158. As a direct and proximate result of Defendant Whitmer's violation of

the Fourteenth Amendment as set forth in this Complaint, Plaintiff MUCC and its

members have suffered irreparable harm, including the loss of their fundamental

constitutional rights, entitling them to declaratory and injunctive relief.

COUNT V
DORMANT COMMERCE CLAUSE
(EXCESSIVE BURDEN ON INTERSTATE COMMERCE)

159. Plaintiff hereby incorporates by reference the allegations contained in

the preceding paragraphs.

160. The Governor's Order and FAQs contradict and are inconsistent with

other States' stay-at-home orders, with the adverse effect of eliminating navigation,

fishing, and other activities conducted in connection with motorized boats between

States and in relation to interstate commerce.

161. The burdens Governor Whitmer's Order and FAQs place on interstate

commerce, including but not limited to the complete ban of the use of motorized

boats anywhere in the State of Michigan's interstate and inland waters, are clearly

excessive in relation to the ostensible state interest in preventing the spread of

COVID-19 through activities conducted on motorized boats.

35
 162. As a result, Governor Whitmer's Order and FAQs violate the

Commerce Clause, art. I, § 8, cl. 3 of the United States Constitution.

163. MUCC and its members will suffer irreparable harm if Defendants are

permitted to continue to enforce the Order and FAQs and its attendant bans on

interstate commerce.

164. MUCC is therefore entitled to a declaratory judgment that the ban on

navigation, fishing, and other activities in connection with motorized boating,

created and enforced by the Governor's Order and FAQs, is unconstitutional under

the Commerce Clause.

165. MUCC is further entitled to an injunction prohibiting Defendants

from enforcing the ban on motorized boating activities embodied in Governor

Whitmer and Director Eichinger's directives.

COUNT VI
DORMANT COMMERCE CLAUSE
(EXTRATERRITORIALITY)

166. Plaintiff hereby incorporates by reference the allegations contained in

the preceding paragraphs.

167. Because Governor Whitmer's Order and FAQs bans navigation,

fishing, and other activities in connection with motorized watercraft anywhere in

the interstate and inland waters of the State of Michigan, including the Great

Lakes, the directives impermissibly regulate commerce occurring entirely outside

36
the borders of the State of Michigan by preventing and otherwise regulating

navigation, travel, distribution, transportation, and other activities occurring

outside of Michigan.

168. Additionally, Governor Whitmer's overbroad directives force other

states to comply with the ban on navigation, fishing, and other activities on

motorized watercraft to be able to navigate on the interstate and inland waters of

the State of Michigan.

169. Governor Whitmer's directives thereby exceed the inherent limits of

Michigan's authority in violation of the Commerce Clause of the United States

Constitution, art. 1, § 8, cl. 3.

170. MUCC and its members will suffer irreparable harm if Defendants are

permitted to continue to enforce Governor Whitmer's Order and FAQs as described

in this Complaint.

171. Plaintiff is therefore entitled to a declaratory judgment that Governor

Whitmer's Order and FAQs violate the Commerce Clause.

172. Plaintiff is further entitled to an injunction prohibiting Defendants

from enforcing the motor boating ban in Governor Whitmer and Director

Eichinger's directives.

37
 PRAYER FOR RELIEF

Plaintiff respectfully requests that this Court, on an expedited basis, enter

judgment in its favor and against Governor Gretchen Whitmer and Director Daniel

Eichinger, as follows:

A. Declaring Governor Whitmer's Executive Order 2020-42, as it

purports to relate to motorized boating, void for vagueness in

violation of the Fourteenth Amendment of the United States

Constitution and Article 1, Section 17 of Michigan's 1963

Constitution.

B. Declaring that Governor Whitmer and Director Eichinger violated

Plaintiff MUCC and its members' fundamental constitutional rights as

set forth in this Complaint;

C. Declaring that Governor Whitmer's Executive Order 2020-42 and

FAQs, as they relate to motorized boating, violate the Commerce

Clause of the United States Constitution, Art. I, § 8, cl. 3, and is

therefore unconstitutional to the extent that it prohibits navigation and

other related activities in connection with motorized boats;

D. Temporarily, preliminarily, and permanently enjoining and restraining

Governor Whitmer and Director Eichinger, and any other person

acting under authority of the Governor and Director, from enforcing

38
 the challenged measures of Executive Order 2020-42 and/or the FAQs

as set forth in this Complaint, including but not limited to impeding

use of otherwise lawful public access to Michigan waters;

E. Awarding Plaintiff compensatory and punitive damages;

F. Awarding Plaintiff its reasonable attorneys' fees, costs, and expenses

pursuant to 42 U.S.C. § 1988 and other applicable law; and

G. Awarding all other relief to which Plaintiff may be entitled.

VARNUM LLP
Attorneys for Plaintiffs

Date: April 19, 2020 By: /s/ Aaron M. Phelps

Aaron M. Phelps (P64790)
Herman D. Hofman (P81297)
Seth B. Arthur (P82033)
Business Address & Telephone:
Bridgewater Place, PO Box 352
Grand Rapids, MI, 49501-0352
Phone: (616) 336-6000
Fax: (616) 336-7000
[email protected]
[email protected]
[email protected]

39
 JURY DEMAND

Plaintiff demands a jury trial on all counts contained in the Complaint.

VARNUM LLP
Attorneys for Plaintiffs

Date: April 19, 2020 By: /s/ Aaron M. Phelps

Aaron M. Phelps (P64790)
Herman D. Hofman (P81297)
Seth B. Arthur (P82033)
Business Address & Telephone:
Bridgewater Place, PO Box 352
Grand Rapids, MI, 49501-0352
Phone: (616) 336-6000
Fax: (616) 336-7000
[email protected]
[email protected]
[email protected]

16293033_1.DOC

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