Opinion ID: 1296917
Heading Depth: 1
Heading Rank: 4

Heading: The Historical Role of Counties in Legislative Redistricting

Text: Before we begin our analysis, we briefly review the importance of counties as political subdivisions of the State of North Carolina. Counties are creatures of the General Assembly and serve as agents and instrumentalities of State government. High Point Surplus Co. v. Pleasants, 264 N.C. 650, 654, 142 S.E.2d 697, 701 (1965); DeLoatch v. Beamon, 252 N.C. 754, 757, 114 S.E.2d 711, 714 (1960). Counties are subject to almost unlimited legislative control, except to the extent set out in the State Constitution. Martin v. Board of Comm'rs of Wake Cty., 208 N.C. 354, 365, 180 S.E. 777, 783 (1935). [T]he powers and functions of a county bear reference to the general policy of the State, and are in fact an integral portion of the general administration of State policy. O'Berry v. Mecklenburg Cty., 198 N.C. 357, 360, 151 S.E. 880, 882 (1930), quoted in Martin, 208 N.C. at 365, 180 S.E. at 783. Counties serve as the State's agents in administering statewide programs, while also functioning as local governments that devise rules and provide essential services to their citizens. This Court has long recognized the importance of the county to our system of government: The counties of this state ... are ... organized for political and civil purposes.... The leading and principal purpose in establishing them is[ ] to effectuate the political organization and civil administration of the state, in respect to its general purposes and policy which require local direction, supervision and control, such as matters of local finance, education, provisions for the poor, ... and in large measure, the administration of public justice. It is through them, mainly, that the powers of government reach and operate directly upon the people, and the people direct and control the government. They are indeed a necessary part and parcel of the subordinate instrumentalities employed in carrying out the general policy of the state in the administration of government. They constitute a distinguishing feature in our free system of government. It is through them, in large degree, that the people enjoy the benefits arising from local self-government, and foster and perpetuate that spirit of independence and love of liberty that withers and dies under the baneful influence of centralized systems of government. White v. Commissioners of Chowan Cty., 90 N.C. 437, 438 (1884); see also Southern Ry. Co. v. Mecklenburg Cty., 231 N.C. 148, 150-51, 56 S.E.2d 438, 439-40 (1949). Counties play a vital role in many areas touching the everyday lives of North Carolinians. For example, each county effects the administration of justice within its borders, and each has a jail and a courthouse where cases arising in the county are usually tried. A. Fleming Bell, II, & Warren Jake Wicker, County Government in North Carolina 938-39, 943 (4th ed.1998). Each county elects a sheriff. Id. at 930. Soil and water conservation districts oversee watershed programs and drainage issues in almost every county. Id. at 682-83. Each county is responsible for administering the public schools by way of a county board of education. Id. at 823-29. Not surprisingly, people identify themselves as residents of their counties and customarily interact most frequently with their government at the county level. See generally id. at vii-xi. Based on the clear identity and common interests that counties provide, the impetus for the preservation of county lines, as reflected within the WCP, is easily understood within the redistricting context. There is a long-standing tradition of respecting county lines during the redistricting process in this State. Indeed, this custom and practice arose hundreds of years before federal limitations were placed upon state redistricting and reapportionment procedures during the 1960s. North Carolina's initial state constitution, enacted in 1776, provided that representation in both the Senate and the House of Commons was based on counties. See John V. Orth, The North Carolina State Constitution: A Reference Guide 81 (1993) [hereinafter Orth, State Constitution]. In the enactment of amendments in 1835, the General Assembly provided that counties were not to be divided between two or more senate districts and that each county was to be guaranteed at least one representative. See id. The 1868 Constitution provided that no County shall be divided in the formation of a Senate District, unless entitled to two or more Senators, and further provided the House of Representatives shall be composed of 120 members to be elected by the Counties respectively, according to their population, with each county to have at least one Representative. N.C. Const. of 1868, art. II, §§ 5, 6 (amended 1968).