Document: 439 U.S. 60 99 S.Ct. 383 58 L.Ed.2d 292 HOLT CIVIC CLUB et al.v.CITY OF TUSCALOOSA al. No. 77-515. Argued Oct. 11, 1978. Decided Nov. 28, Syllabus Appellants, a civic association and certain individual residents of Holt, Ala., small unincorporated community outside the corporate limits Tuscaloosa but within three miles thereof, brought this statewide class action challenging constitutionality "police jurisdiction" statutes that extend municipal police, sanitary, business-licensing powers over those residing boundaries without permitting such to vote in elections. A three-judge District Court granted appellees' motion dismiss complaint for failure state claim upon which relief could be granted. Held : 1. The convening court under then-applicable 28 U.S.C. § 2281 (1970 ed.) was proper since appellants challenged created system Alabama cities exercise extraterritorial powers. Moody v. Flowers, 387 97, 87 1544, 18 643, distinguished. Pp. 63-65. 2. Alabama's police jurisdiction do not violate Equal Protection Clause Fourteenth Amendment. 66-75. (a) government unit may legitimately restrict right participate its political processes who reside borders. Various voting qualification decisions on rely support their contention denial franchise them can stand only if justified by compelling interest are inapposite. In cases, unlike situation here, disfranchised individuals physically resided geographical governmental entity concerned. 66-70. (b) statutory scheme is rational legislative response problems faced State's burgeoning cities, legislature has legitimate ensuring areas adjoining city borders provided basic services as fire, health protection. Nor it unreasonable require contribute through license fees, they here reduced scale, expense services. 70-75. 3. due process have no constitutional P. 75. Affirmed. Edward Still, Birmingham, appellants. J. Wagner Finnell, Tuscaloosa, appellees. Mr. Justice REHNQUIST delivered opinion Court. 1 Holt small, largely rural, located northeastern outskirts fifth largest Alabama. Because three-mile circumscribing Tuscaloosa's limits, subject city's [and] sanitary regulations." Ala.Code 11-40-10 (1975).1 also criminal court, 12-14-1 (1975),2 power businesses, trades, professions, 11-51-91 (1975).3 however, collect from businesses one-half fee chargeable similar conducted limits. Ibid. 2 1973 appellants, an seven United States Northern Alabama,4 these statutes. They claimed residents, concomitant extension equal footing with denies rights secured Due Process Clauses denied appellants' request convene pursuant dismissed Characterizing enabling Acts, held lack requisite application necessary On appeal, Appeals Fifth Circuit ordered finding statute embodies " 'a policy concern.' Civic Club 525 F.2d 653, 655 (1975) quoting Spielman Motor Sales Co. Dodge, 295 89, 94, 55 678, 680, 79 L.Ed. 1322 (1935). 3 convened, claims fared better merits. Noting sought declaration regulation unconstitutional per se rather than simply "[e]qual protection been extended cover contention." App. Juris. Statement 2a. rejected comment. Accordingly, 4 Unsure whether attack satisfied requirements district we postponed consideration jurisdictional issue until hearing case 435 914, 98 1466, 504 (1978). We now conclude properly convened were rejected. 5 * Before repeal,5 required any preliminary or permanent injunction restrain "the enforcement, operation execution State restraining officer enforcement . ." Our interpreted "where regulation, albeit authorized legislature, effectuates policy." Board Regents New Left Education Project, 404 541, 542, 92 652, 30 697 (1972). Relying 643 (1967), appellees contend, original single-judge held, impact. 6 improperly Moody, because had "limited application, concerning particular county involved litigation Id., at 104, S.Ct., 1549. contrast, focuses creates mandatory terms, provides ordinances "shall force effect town thereof property rights-of-way belonging town."6 Clearly, application. See, e. g., Sailors Education, 105, 107, 1549, 1551, 650 (1967). That named defendants local officials irrelevant where, "functioning performing function." supra, U.S., 102, 1548; 94-95, 680. proper. II 7 Appellants' amended requested declare enjoin insofar authorize Seizing Court's observation "[appellants] seek themselves," suggest wrong remedy. 8 predicament assertedly found themselves remedied two ways: (1) negated invalidating authorizing (2) elections jurisdiction. agree federal should meritorious seeks one remedy another plainly appropriate one. Under Federal Rules Civil Procedure "every final judgment shall grant party whose favor rendered entitled, even demanded his pleadings." Rule 54(c). Thus, although prayer looked illumination when there doubt substantive theory plaintiff proceeding, omissions barrier redress claim. Moore, W. Taggert, & Wicker, Moore's Practice ¶ 54.62, pp. 1261-1265 (2d ed. 1976). But while will want relief, lacking merit obviously think clear pleadings alleged cognizable Constitution. A. 9 Appellants focus 11-40-10, fixing giving ordinances. Citing Kramer Union Free School Dist., 395 621, 89 1886, 23 583 (1969), cases following wake, argue section classification infringing urge, interest. 10 At York voter limited school otherwise qualified either owned leased taxable real district, married persons owning leasing qualifying property, (3) parents guardians children enrolled specified time during preceding year. Without deciding some circumstances limit primarily interested affected activities given unit, sufficiently tailored meet classifications excluded many bona fide distinct direct interests board included affairs were, best, remote indirect. 11 same day, Cipriano City Houma, 701, 1897, 647 upheld challenge Louisiana law providing "property taxpayers" called approve issuance revenue bonds utility system. Operation virtually every resident city, just owners, way financed tax revenue. benefits burdens bond fell indiscriminately owner nonproperty alike, impermissibly substantially directly matter put referendum. rationale subsequently invalidate Arizona restricting taxpayers general obligation bonds. Phoenix Kolodziejski, 399 204, 90 1990, 26 523 (1970). 12 place heavy reliance Evans Cornman, 398 419, 1752, 370 Permanent Registry Montgomery County, Md., ruled living grounds National Institutes Health (NIH), enclave State, did residency requirement Maryland NIH This notion Maryland: 13 "Appellees clearly live Maryland, treated census determining congressional apportionment. ceased part created. However, 'fiction ' specifically Howard Commissioners Louisville, 344 624, 627, 73 465, 467, 97 617 (1953), cannot resurrected deny vote." 421-422, 1754. 14 inhabitants "just connected electoral prior 1953 area came neighbors off enclave," id., 426, 1757, 15 From our other qualifications common characteristic emerges: each geographic Hill Stone, 421 289, 95 1637, 44 172 (invalidating provision Texas Constitution "rendered" listed real, mixed, personal taxation election district); Harper Virginia Elections, 663, 86 1079, 16 169 (1966) conditioning payment poll tax); cf. Turner Fouche, 396 346, 532, 24 567 (1970) Georgia membership county). No decision "one man, vote" principle beyond confines concerned, subdivisions. contrary, uniformly recognized Dunn Blumstein, 405 330, 343-344, 995, 1003-1004, 31 274 (1972); 422, 1754; 625, 1888; Carrington Rash, 380 91, 85 775, 777, 675 (1965); Pope Williams, 193 573, 48 817 (1904). Bona residence alone, does automatically confer all matters, least context special constitutionally disfranchise election. See Salyer Land Tulare Lake Basin Water Storage 410 719, 93 1224, 35 659 (1973); Associated Enterprises, Inc. Toltec Watershed Improvement 743, 1237, (1973). argument requires proves too much. imaginary line defining corral influence actions. inescapably affect immediately granting building permits high rise apartments, industrial plants, like fringe unavoidably contributes traffic congestion, districting, city. rate change sales ad valorem well significant impact retailers values bordering condemnation edge construction garbage dump waste treatment plant would obvious implications neighboring nonresidents. Indeed, indirect effects purely internal actions conceivably heavier surrounding environs contemplated Yet nonresidents likely sort bringing about. And unless adopts idea Austinian sovereignty, presumably embodied extent authority jurisdiction, distinguishes though equally dramatic actions, makes little sense say not. 17 Given country's tradition popular logical appeal. mindful, Holmes' Hudson McCarter, 209 349, 355, 529, 531, 52 828 (1908): "All tend absolute extreme. fact neighborhood principles founded, become strong enough hold own point reached. boundary conflicting balance determined formula advance, points line, helping establish it, fixed concrete falls nearer farther side." 19 heretofore marked coincides issue, case, homes, side. B 20 Thus stripped attire, presented becomes bear relationship purpose. San Antonio Independent Dist. Rodriguez, 411 1, 1278, 36 "The Amendment prohibit legislation merely special, subdivision state." Fort Smith Light Paving 387, 391, 47 595, 597, 71 1112 (1927). Rather, offended statute's "rests wholly achievement objective." McGowan 366 420, 425, 81 1101, 1104, 393 (1961); Kotch River Port Pilot Comm'rs, 330 552, 556, 67 910, 912, 91 1093 (1947). 21 Government, observed Johnson, "is science experiment," Anderson Dunn, Wheat. 226, 242, 247 (1821), afforded wide leeway experimenting allocation power. often subdivisions counties "as convenient agencies exercising entrusted them." Hunter Pittsburgh, 207 161, 178, 40, 46, 151 (1907). also, 108, 1552; Reynolds Sims, 377 533, 575, 84 1362, 1388, 506 (1964). Pittsburgh discussed length between subdivisions, remarking: number, nature duration conferred [municipal] corporations territory exercised rests discretion 46. While broad statements control contained undoubtedly holdings later continues substantial significance emphasizing extraordinarily latitude creating various types conferring them.7 22 technique neither recent origin nor unique R. Maddox, Extraterritorial Powers Municipalities (1955). country Comment, Constitutionality Exercise Municipalities, 45 U.Chi.L.Rev. (1977). Although vary widely, several more extensive intrusive statutes.8 claim, number "constitutionally preferable" alternatives jurisdictions. For example, exclusive management officials, maintain, "practical." standpoint, suggestions sound, sit determine chosen soundest most practical form possible. Authority make judgments resides citizens free urge proposals body. 179, inquiry question "any facts reasonably conceived justify" jurisdictions, 732, 1231, takes momentary reflection arrive affirmative answer. Legislature decided measure carried "city limit" signs, particularly today's tomorrow's annexation need concern enacted Urbanization brings long both quiet suburban career opportunities offered working environment. Unincorporated communities dot rim major population centers elsewhere, legislatures seeing segment go Established experienced delivery services, incremental cost extending responsibility less establishing new service organizations community. fees limitation half amount exacted assures victimized government. 25 "Viable governments innovations, numerous combinations old devices, great flexibility arrangements changing urban conditions." 110-111, 1553. doubtless true turn century, throughout temporally closer revolution. statute, 1907, cities. apparently content results experiment, nothing try something new. C "governance fundamental violation clause." Brief 28. Support proposition come Texas, 252 F.Supp. 234 (WD Tex.) (three-judge Court), summarily aff'd, 384 155, 1383, 434 (1966), voters voters. proceeds assumption, earlier shown erroneous, 66-70, Their conclusion premise. III 27 sum, 29 STEVENS, concurring. today holds municipalities unconstitutional. I join Court, write separately emphasize holding exercises municipality immune Legislature, elected including prescribed program jurisdictions by, receive from, adjacent return, engaged business charged businesses. my view, necessarily about Certainly prevent suburb contracting nearby provide voice formulation rules. essentially what accomplished representatives legislature.1 32 Of course, structuring system, enacting consent waiver constituents process. "when delegates lawmaking districts ordinance, charter, must insure effective process." Avery Midland 390 474, 480, 88 1114, 1118, 45. 33 regulations itself "qualified Unlike Institute 370, govern affairs. county, state, primary day-to-day lives. interaction completely voice: representatives, then virtue law, entitled "equally effective" responsible governing municipalities. 34 judgment, "all applicants actually fulfill residence." 96, 780, 675. draw lines "are neighbors" vote, statutes, face, so. limited. zoning schools. traditionally municipalities—the parks, hospitals, schools, libraries repair bridges highways government, fully representative Holt. generally drawn invidiously costs receive. means all—of return pay paid residents. Such showing insufficient justify applied anywhere State. decides today. suit three-judge-court statutes.2 represent contiguous zones, declared applications It very reason concluded case. (1975). be, recognizes, ante, 72-73, n. 8, much might sometimes operate share neighbors. question, appeal 697; Rorick 307 208, 59 808, 83 1242. BRENNAN, whom WHITE MARSHALL join, dissenting. 37 encompassing 6,000 more. Within "[o]rdinances enforcing prescribing fines penalties violations .." addition "may fix licenses business, trade profession done provided, collected (1975).2 lawsuit commenced August 7, 1973, vested prosecution breaches occurring recorder's court,3 recorder being commissioners. Ala.Code, Tit. 37, 584 (1958).4 38 lies Ala.5 thus ordinances, court,6 licensing permitted elections, initiate referenda recall disparity "infringes (under clauses) government." Complaint 11. below claims.7 reaching reverse sustained. 39 is, established once "franchise electorate, inconsistent Amendment." Bd. 665, 1081, (1966). "statutes distributing constitute foundation society," 626, 1889, subjected "exacting judicial scrutiny." 628, 1890.8 "if grants others, 'the exclusions promote interest.' [Kramer Dist.,] 1890 (emphasis added)." 337, 1000, rule "whenever select perform functions, opportunity Hadley Junior College 397 50, 56, 791, 795, 40 before acceptable distinguishing unqualified 343, 1003. today, restriction requirement. "a borders." Ante, 68-69. insulates strict scrutiny ordinarily laws franchise. so doing, cedes geography talismanic contrary meaning past voting-rights cases. 41 previously depend requirements, state-law characterizations controlling purposes (1970); (1965). careful exempt "appropriately defined applied." touchstone defined" derives purpose which, stated "to preserve conception community." 344, 1004. heart "political community," reciprocal choosing authoritative application.9 Cf. 485, 1120, (1968). Statutes fracture severing connection governed places residency, undermine led requirements. 42 There city.10 "governing" "law-making" Homewood Wofford Oil Co., 232 Ala. 634, 637, So. 288, 290 (1936). Residents regulations, enforced penal sanctions court. Birmingham Lake, 243 367, 372, So.2d 24, (1942). seems imply, eminent domain, zoning, taxation. 8. position sharply previous holdings. InKramer someone did, school, nevertheless Clause. Similarly, limiting 43 vastly decisionmaking plaintiffs unconstitutionally excluded. create enforce represents reservoir prevent, anticipation danger come, doing curb tendency." Gilchrist Drug 174 609, 612 (1937). Cooper Town Valley Head, 212 125, 126, 101 874, 875 (1924). municipality, use regulate, ban, professions "In exertion sound distinction useful harmless occupations trades hurtful public morals, safety, productive disorder injurious good. applying last mentioned exerted destroy." Chappell 236 363, 365, 181 906, 907 (1938). explain why suffice bring standards "governed enough" trigger protections criterion relied assistance analysis. Just integrity taxpayers, restrictions accomplish end. teaching Cornman. Appeals, lived (NIH) County rested "treated apportionment," 421, 1754, "residents enclave." 1757. assuredly "interested with" Maryland. True, "within Maryland," similarly perimeters "legislative powers." Leeds 294 496, 501, 319 246 entirely arbitrary fails why, consistently Clause, "government unit" exclude composed together irrationally classes citizens, (insofar domicile intention criteria), residency. 46 argues, indirectly simple non sequitur. crystal-clear therefore decisions. Roberson Montgomery, 285 233 69 (1970), consistent with, mandated underlying recognition expressed: withhold others situated, articulated Neither regulating "activities [its] 'city limit' signs," 392, ibid., presently municipality,11 venerable age, factors, (1964), made clear, serve practices impermissible Therefore, distinguish among justification, full text provides: having towns, mile town. "Ordinances town." prosecutions breach jurisdiction." 12-14-1(b) pertinent "Any thereof; town, 11-52-8 imposes duty planning commission adopt master plan physical development commission's relation municipality." §§ 11-52-30 11-52-31 (1975), contested land includes lying five municipality's municipality. instituted 1975 recompilation Code. Other minor stylistic changes, identical predecessors, 733 (1958) respectively. Section abolished courts predecessor, 585 (1958), replaced Pub.L. 94-381, Aug. 12, 1976, Stat. 1119. added). Supreme 11-40-10. 242 had, discontinuing fire "waived relinquished area." 502, So.2d, 246. "Since barter away delegated follows waive relinquish power." Trailway Mobile, 271 218, 224, 122 757, 762 (1960) ("[Section] Title [now 11-40-10], describing territorial incidents 11-51-91], amended, collecting laws, and, such, considered charter"); Coursey Andalusia, Ala.App. 247, 247-248, 134 671 (1931) ("Under [§ 11-40-10] extends said thereof"). participation "denial franchise," anything far-reaching consequences pointed out "[i]n nearly election, federal, local, offices Presidency board, entire variety ballot propositions, stake residents." Treatment repercussions respect national, referendum almost unrestricted territories. South Dakota "have places, except ground park promoting health, welfare community, resolutions relating thereto." S.D.Comp. Laws Ann. 9-29-1 North Dakota's broad: "Except body jurisdiction: "2. quarantine adopted peace, order, N.D.Cent.Code 40-06-01(2) Cities statutorily zone extraterritorially, see, Ariz.Rev.Stat.Ann. 9-240-B-21(c) (1977); Mich.Comp. 125.36 11-35-02 (1976), By setting forth provisions respecting mean imply pass muster. us, annexed outlying name, precisely Little Thunder Dakota, 518 1253 (CA8 1975). where "important aspects powers" Maryland's levy income, gasoline, sales, taxes" live[d] 423, 424, 1756, allegation minute catalog set dissenting Brethren, post, 82-84, 10, notable include does. burden difference violative bound observe "addendum" brief referred dissent vital traditional authorities towns taxes, invoke uses. recognize suburb's contract requiring suburbs situations delegation not, view delegations invalid. ed.), repealed commenced, codified (1958). filed complaint, Minor changes wording effected recodification. Code, provided: "It keep office hear by-laws him, he report, month, fines, forfeitures imposed councilman stead. especially quasi impose ordinance ex-officio justice civil matters. December 27, Municipal judges appointed vacancies filled Ala.Const., Amdt. 328, 6.065. contains 65,773 16,000 17,000 17-19. 4, supra. leave further amend days specify deprive liberty property." "[S]tatutes units exacting examination fairly elected. 481 6, (1968)." 628 1890. accepts strongly implying, limits" "pass muster." unchallenged addendum listing Code (1962, Supplemented, 1975), "Licenses: 4-1 ambulance 9-4, 9-18, 9-33 bottle dealers 19-1 junk 20-5 20-67 florists 20-102 hotels, motels, etc. 20-163 industry "Buildings: 10-1 inspection enforces codes 10-10 dams 10-21 Southern Standard Building 10-25 13-3 Electrical 14-23 Fire Prevention 14-65 incinerators 14-81 discharge cinders Chapter 21A mobile home parks 25-1 Plumbing 33-79 disposal human 33-114, 118 wells 'Public Health: 5-4 birds protected 5-4C, 42, dogs running large bitches heat prohibited 14-4 smoking buses 14-15 self-service gas stations 15-2 sale produce trucks 15-4 food establishments water supply 15-16 food, meat, milk inspectors 15-37 thru regulates boardinghouses 15-52 code 17-5 mosquito 'Traffic Regulations: 22-2 stop yield signs erected chief 22-3 mufflers 22-4 brakes 22-5 vehicle 22-6 22-9 hitchhiking roadway 22-9.1 permit solicit funds 22-11 impounding cars 22-14 load 22-15 damage stickers after accident 22-25 driving intoxicated 22-26 reckless 22-27 22-33 sign 22-34 22-38 across median 22-40 emergency 22-42 cutting private 22-54 speed 22-72 78 truck routes "Criminal Ordinances: 23-1 misdemeanors 23-7.1 wrecked premises 23-15 nuisances 23-17 obscene literature 23-20 destruction plants 23-37 swimming nude 23-38 trespass boats 26-51 shooting galleries (downtown area) 28-31 films "Miscellaneous: 20-120 cigarette 24-31 recreation 26-18 admission streets 30-23 taxis meters.

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