Document: 435 U.S. 110 98 S.Ct. 965 55 L.Ed.2d 148 UNITED STATES, Appellant,v.BOARD OF COMMISSIONERS SHEFFIELD, ALABAMA, et al., Appellees. No. 76-1662. Argued Oct. 11, 1977. Decided March 6, 1978. Syllabus Section 5 of the Voting Rights Act 1965 provides that whenever "a State or political subdivision with respect to which" § 4 is in effect shall enact any voting qualification standard, practice, procedure different from force on November 1, 1964, change has no as law unless such obtains, specified statute, a declaratory judgment does not have racially discriminatory purpose effect. Alternatively, may be enforced if it submitted Attorney General and he interposed objection within 60 days after submission, advised will made. The city Sheffield, Ala., had commission form government. Some months later sought put referendum question whether should adopt mayor-council government, respondent Board Commissioners for gave written notice proposal, Alabama being covered under Act. was held voters approved change. Thereafter, replied did object holding but since elected "the also subject preclearance requirement 5" detailed information through General. Following his receipt information, made phase involved at-large election councilmen. After nevertheless scheduled an council election, United States brought this suit enforce objection. District Court denied relief, Sheffield by because "political subdivision" term defined 14(c)(2) Act, which " 'political subdivision' mean county parish, except where registration conducted supervision include other conducts voting," therefore counties. court approving referendum, approv d government councilmen were at large, notwithstanding statement regarding preclearance. Held: 1. applies all entities having power over aspect electoral process designated jurisdictions, only counties units state perform function registering voters, erred 5. Pp. 117-135. (a) Court's interpretation comport Act's structure, makes coverage depend upon factor completely irrelevant purposes, thereby permits precisely kind circumvention congressional policy designed prevent. "was structured assure effectiveness dramatic step Congress [took] 4" "is clearly march lock-step 4." Allen v. Elections, 393 544, 584, 89 817, 841, 22 1 (Harlan, J., concurring dissenting). Since jurisdictions 4(b) reason actions officials who do register 4(a) imposes duties officials, they are voter registration, follows very structure must apply exercising control subdivisions. terms decisions indicate intended changes occurring specific entities. 118-125. (b) language require crippling construction given Court. In view explicit relationship between critical role play securing promise 4(a), wholly logical interpret "State . referring it. 126-129. (c) contemporaneous administrative legislative history enactment re-enactments compel conclusion always understood covers like Alabama. 129-135. 2. General's failure constitute clearance method electing new approval city's warned itself required prior federal scrutiny what would necessary purpose, might been passed, system councilmanic elections. 981-983. 430 F.Supp. 786, reversed. Drew S. Days, III, Washington, D. C., appellant. Vincent J. McAlister, Jr., appellees. Mr. Justice BRENNAN delivered opinion (Act), 79 Stat. 439, amended, 42 U.S.C. 1973c (1970 ed., Supp. V),1 requires States, Alabama, 438, 1973b V),2 obtain before changing practice 1964. questions decision case (1) never registration3 (2), so, adopted constitutes 2 * Ala. (City Sheffield), incorporated 1885 Legislature. As incorporated, City governed mayor eight councilmen, two directly each City's four wards. retained until 1912 when three commissioners, ran City. This 3 Sometime 20, 1975, decided return government.4 On date president wrote "give proposal submitting qualified City, present abandoned favor Mayor Alderman government."5 May 13, replied, occurred, 23, formally responded "not interpose referendum," "[s]ince requirements 5." letter stated event elect seek submit concerning change, including description aldermanic existed elected, i. e., number aldermen, qualifications aldermen large wards, there numbered post, residency, majority vote staggered seats, single shot prohibited." Thereafter informed proposed divide into wards substantially equal population, ward candidates run places. Subsequently furnished map showing boundaries, data population distribution race ward, black candidacy offices 1965. submission completed 5, 1976. 6 July 1976, notified while "interpose district lines council," implementation "unable conclude reside districts effect." 7 Notwithstanding objection, August 10, 9, instituted Northern its A temporary restraining order denied. held, three-judge convened dismissed suit. 786 (1977). unanimously held6 445, 1973l (c)(2), regist ation voting." See F.Supp., 788-789 790-792. one judge dissenting, "by fact Mayor-Council [in large] [his statement] preclearance." Id., 789. reasoned constituted those aspects knew known implemented passed obliged follow Ala.Code 11-43-40 (1975)—formerly Ala.Code, Tit. 37, 426 (Supp.1973)—which cities, populations less than 20,000. 789-790. We noted probable jurisdiction. 433 906, 97 2970, 53 1090 reverse. II 8 first consider exclude units, registration. concluding did, [designated] construed provide that, entirety coverage, subdivisions" meaning 14(c)(2). Because refers imposed 9 There abundant evidence contrary intent. First, most significantly, inconsistent Second, interpretation, rather susceptible reading fully implement objectives. Finally, flatly consistent interpretations re-enactments. language, history, purposes persuade us constitutional provisions implement, whatever voters. A. 10 Although described workings cases, see, e. g., (1969); South Carolina Katzenbach, 383 301, 86 803, 15 769 (1966), appropriate again summarize special Fifteenth Amendment erase blight racial discrimination voting. U.S., 308, S.Ct., 808. core complex scheme ringent remedies aimed areas flagrant." 315, 812. resorted these stern measures experience shown them eradicate "insidious pervasive evil [racial voting] perpetuated certain parts country." 309, Earlier efforts end facilitating case-by-case litigation proved ineffective part suits "unusually onerous prepare" "exceedingly slow" produce results. And even favorable obtained, affected often "merely switched devices decrees." id., 313-314, 811. 11 operation relatively simple. Sections 4(a)7 4(b)8 determine measures. found high probability employed literacy tests similar addition, low turnouts figures, provided "triggered" maintained "test device"9 turnout 50% age during Presidential When formula met entire State, triggered satisfies formula. 4(c) defines device" "prerequisite 1973b(c) (emphasis supplied), clear General, making determination, jurisdiction, procedures followed polling use employs places cast ballot plainly 4(b). 12 If 4(b), jurisdiction become establishes, judicial action, used discriminate basis remedial provisions. determined continued employment perpetuate discrimination, suspended their 4(a). Just every unit elections relevant so duty entity process, registers That geographic reach both official 4(a)'s provision suspension operates "in subdivision." (Emphasis supplied.) objectives throughout jurisdiction.10 scope, past ingenious defiance spirit law, could easily circumvented by, discontinuing requiring citizens pass 13 potent weapon, recognized alone ensure areas. past, decrees outlawing practices "resort[ing] extraordinary stratagem contriving rules various kinds sole perpetuating ." 335, 822. To prevent future policy, wishes laws, demonstrate instrumentality nondiscriminatory. By freezing jurisdiction's procedures, shifted advantages time inertia perpetrators victims. 14 foregoing discussion key belies ould conduct apparent taken 841 appears necessarily processes case, unthinkable persuasive either affecting manifested intention restrict local But supports neither conclusion. process. "any prerequisite voting, statutory definition "voting" includes "all action make effective including, limited to, casting ballot, counted properly .," (c)(1), 5's laws comprehensive. 16 years broad scope suggested supra. our examination original led give broadest possible scope," 567, 832, altered minor way." 566, 832. construing we rejected11 —as plain themselves seemingly required—the argument appellee enactments vote. 564, 831. Our location places, see Perkins Matthews, 400 379, 91 431, 27 476 (1971), adopting systems ibid.; Fairley Patterson (decided Allen, supra ); providing appointment previously officials,Bunton regulating candidacy,Whitley Williams ; annexations, Richmond 422 358, 95 2296, 45 245 (1975); Petersburg 410 962, 93 1441, 35 698 (1973), summarily aff'g 354 1021 (DC 1972); reapportionment redistricting, Beer 425 130, 96 1357, 47 629 (1976); Georgia 411 526, 1702, 36 472 (1973); Jewish Organizations Carey, 144, 996, 51 229 potential deny dilute rights conferred 17 Significantly, several applied cities without ever inquiring supra; It doubtful, moreover, applicable least cases law.12 assumption decisions—that registration—perhaps little stare decisis significance—the issue raised, Brown Shoe Co. 370 294, 307, 82 1502, 1513, 510 (1962)—these underscore obvious can defeat minority group members, further illustrate 18 embodies outside race, irrational turn enacting administering quite apart cramped cannot squared reasonable set objectives, permit precise eliminate. Under it, free respond pressure limit minorities take steps would, temporarily least, entirely minorities, moving members safely travel, count ballots recourse implicitly unsatisfactory: repeated litigation. supra, 156, 1005. thus place back and, equally seriously, invite circumvent allowing consequence nullify applications.13 B 19 absurd result. arriving focused prohibitions forth [§ 4(a)] based determinations 4(b)] While phrase arguably inference territorial actual suggest coterminous 4(a)'s. specifically implies 4—not 14(c)(2)—is content view. "with subdivisions territories just governments must, seem, territorially well. 20 Quite textual interrelationship affirmatively suggests reach, operative statute suggestion limits Where, here, significance determining 5: "[designated] State." more treating limiting 21 Broader considerations support terms. course, some respects, Fourteenth Amendment, Katzenbach Morgan, 384 641, 1717, 828 (1966); (1966). One expect substantive constituti nal governmental acting name exercise Cf. Hunter Erickson, 385, 557, 616 Terry Adams, 345 461, 73 809, L.Ed. 1152 (1953). is, "State" For example, designate theory "state action"; designation, territory entirety. once State. actors, relied reveals understanding reference it.14 appear sufficient action. So irrelevance State," need how entity. observe subdivision," parallel background 14(c)(2)'s reflects define nondesignated State,15 functional levels operate separately 4(b).16 wished as, school board same token, area covered; actors Stat , generally action" areas, logically 4, requirement.17 C 23 related aids ascertaining intent leave doubt always—and certainly 1975—been narrow extensively discussed enactment, little, anything, way Court.18 At course debate strongly draw distinction amendment stricken Senator Talmadge Georgia—minutes Senate voted reject amendment—argued section "far-fetched" administer 111 Cong.Rec. 10729 (1965). opponent proponents, whom floor defending Talmadge's assertion, 10728 (1965) (remarks Sen. Tydings), disagree assessment. Thus, intentions, possesses significant pertinence. Arizona California, 373 546, 583 n. 85, 83 1468, 1489, 542 (1963). 24 What perhaps compelling original, subsequent, has, 1965, interpreted preclear changes.19 understanding, especially light extensive played drafting explaining Congress.20 Trafficante Metropolitan Life Ins. Co., 409 205, 210, 364, 367, 34 415 (1972); Udall Tallman, 380 16, 85 792, recognition formulation great deference 390-394, 437-439.21 Moreover, longstanding reported Department connection 1975 extension testimony Assistant Stanley Pottinger Hearings H.R. 939, al. Subcommittee Civil Constitutional House Committee Judiciary, 94th Cong., 1st Sess., 166 (1975) (1975 Hearings); exhibits 407, 598-599 Hearings).22 25 1970 compellingly shared 1970, aware reaching contemplated continue construed. See, 4249 91st 18, 83, 130-131, 133, 147-149, 154-155, 182-184, 402-454 818 2d 48, 195-196, 369-370, 397-398, 426-427, 469 (1970). assumed affect principal factual arguments advanced renewal Anniston, Ala.—which, registration—had failed highly changes. Joint View Members Judiciary Relating Extension 116 5521 26 clearer extension, which, legislation controls bar. Both bill reflect unlimited widely unchallenged. addition aforementioned then significance, numerous witnesses expressed view, indirectly. 75-76 (in changes, objections entered stage process), 112-114 (describing Montgomery, Ala.), 463-464 (stating Texas, districts, voters23 ), 568 (statement clarify redistricting 5); 332 (referring Bessemer, "covered jurisdiction") 631-632 lengthy Charleston, S.C.—a ation).24 More Reports preclude territorially. Not reports "[i]n jurisdictions," S.Rep. 94-295, p. Report); H.R.Rep. 94-196, U.S.Code Cong. & Admin.News 774 announce benefit portions Texas districts—neither registered voters—would requirement. Report 27-28; 19-20. none opponents took common States. Indeed, apparently 121 S13072 (July 21, 1975) Stennis) ("[a]ny [voting changes] precincts, municipalities, legislatures, officers, ha[ve] General"). S13331 22, Allen). Whatever think advanced, re-enactment conclusive us. re-enacts voices thereof, treated bound thereby. Don E. Commissioner, 429 569, 576-577, 850, 855 (1977); Albemarle Paper Moody, 405, 414 8, 2362, 2370, 280 H. Hart Sacks, Legal Process: Basic Problems Making Application Law 1404 (tent. ed. 1958); cf. Zenith Radio Corp. Hazeltine Research, Inc., 401 321, 336 7, 795, 28 77 (1971); Girouard 328 61, 69 -70, 66 826, 829-830, 90 1084 (1946). instructive. re-enacted there, showed agreed leading ratified 574-577, 854-855. quarrel Brother STEVENS' impermissible inferences unexplained inaction Congress, 149, citing Hodgson Lodge 851, Int'l Assn. Mach. Aerospace Workers, 454 F.2d 545, 562 (CA7 1971) (Stevens, dissenting), principle applicability case. Here, "slumbering army" twice "aroused," occasion jurisdictions.25 short, compels suggest, Accordingly hold oes Sheffield. III 29 Having concluded Only few words needed point. 30 bears re-emphasizing outset establish scrutinized effective. basic mechanism proceeding Columbia, establishes alternative State[s] rapid rendering enforceable." Education, 549, 823. statute's terms, "has [him] [he] sixty indicated made." V) supplied). 540, 1710. may, circumstances, subverted deemed nor evaluated him. that. 31 record—and find otherwise—that not, letter, request Sheffield's referendum.26 own regulation, validity questioned, because, stated, details yet worked out. CFR 51.7 (1976).27 32 intend approve done so. told scrutiny, apprised supply f attempt court. 33 elections.28 placed taking completion (1976), stating desired itself, §§ 51.5, 51.10(a)—it properly, referendum. Accordingly, adoption election. Reversed. BLACKMUN, concurring. 37 I closer much indicate, join opinion. feel persuasively decade ago, ante, 132-135, result reaches today. 38 POWELL, judgment. 39 Given decisions, particularly (1969), concur Part 40 my reservations constitutionality abated,* believe today's correct precedents effectuate c nstrued Perkins. sense charged observes, 124, enable allow assume responsibility achieve instrumentalities 41 agree sensible accord treat responsible equivalent subdivision. accords Congress' cited Court, designation imply situation, separately. Their eligibility designated. Rather, delegated authority true 14(c)(2), too comply requirements. STEVENS, Chief BURGER REHNQUIST join, dissenting. 43 presented 1965.1 answered solely easy one. written, nearly simple implies. separate inquiries: 5; second, negative, regarded section. 44 Briefly subdivision, pursuant seeks Columbia States.2 so-called "preclearance" remedies. Even "substantial departure ordinary concepts system";3 encroachment sovereignty undeniable. therefore, read care. starting point, types "each State" 89th pp. 2437, 2456. however, provides: 46 "The Consequently, subdivision."4 48 demonstrates originally drafted, Ervin, among others, encompass minor, units. allay concern included 49 "Senator ERVIN. [an early version Act] .. 50 "Attorney KATZENBACH. Senator. means. body here talking about people registered, registering. comes this, smaller parish. Do you better amend your provide, North Carolina, municipality sanitary Also bond, school-bond, 52 way, intended." 1564 (1965 Hearings). 6400 54 Later, Ervin referred above dialogue contradiction, avoid "confer Federal Government intervene town bill." 9270 point bluntly: "This parish supervises 162, pt. 3, (1965); Admin. News, 2569.5 56 ambiguities them. excludes 57 remaining "State," action," sense. However, word extend purely matters defining 58 comments quoted below level. repeatedly addressed Unquestionably, recognizes,ante, 128-129, protects small boards, concerns motivated exclusion 5.6 perfectly explanation why deliberately well subdivisions," 59 engaged principally concerned emphasized, "bill really getting registered." 21.7 review sitting Columbia. frequently outrage limitation, arguing unfair travel "250 1,000 3,000 miles gain access justice." Ervin); 10371 Ellender) Proponents justified ground difficult unusual county, comparable C. Hearing (testimony Katzenbach). Javits' typical line argument: 61 "Finally, claimed litigants dealing unable pursue legal remedy. proceedings appearances expensive. attorneys general come many things, Washington merely participate arise 10363 62 Obviously, townships, small, Whether "fair" argue drafters supporters assurances intended. surely loose 63 logistical problems inherent reviewing Statistics show staff now processing requests rate per year,8 means indicative submissions complied requirement, General.9 Furthermore, submission. volume work product, part, Allen.10 strict consideration submissions, importance themselves.11 achieved restricting subdivisions, 64 Neither "contemporaneous" subsequent amendments judgment, undermine asserts changes." Ante, 131. unambiguous historical contrary. 65 regulations implementing September 1971, six passage Allen. Fed.Reg. 18186; 472. attempted develop standards enforcing 537 Pottinger). promulgating decision, simply covered. sheds passing Nor, reliable guides drafted language. extensions alter "[a]n [a] controversial integrated fairly predicated Congresses years." (dissenting opinion).12 67 sum, am persuaded today faithful reflection enacted statute. respectfully dissent. V), pertinent part: "Whenever 1973b(a) title amended], sentence 1973b(b) institute qualification, prerequisite, denying abridging right account color, enters person procedure: Provided, chief officer good cause shown, facilitate expedited Pursuant 9897, "less centum [those] persons residing Alabama] [the 1964 election]." V). established hence appointed officials. 17, 17-4-40 record considering time. During late 1960's, raised mechanics reply, electorate abandon "as adopted." Art. Title Code Alabama—by presumably meant Chapter 11-44-150 seq. (1977)—that "[p]resent existing changed (but equitably adjusted date)"—as were—and "if type abandoned, [mayor-aldermanic 1912] automatically reinstated." initially 1976 day out ineffective. petition rehearing holiday, timely. 787. considered grounds, infra. "To citi[z]ens abridged citizen Federal, test device sentences subsection unit, against seventeen preceding filing color determines device, (2) Director Census therein presidential 1964." "mean ability read, write, understand, matter, educational achievement knowledge particular subject, (3) possess moral character, (4) prove voucher class." 1973b(c). eliminate prohibition jurisdictions. 1972 notices, forms, instructions, assistance, materials relating ballots, English five minority[,]" 401, 1973b(f)(3) indisputable Altho gh Harlan Black dissented disagreed proposition cover 591-593, 844-845 dissenting); 595, 846 (Black, Virginia. citywide basis, is—and case—performed, employees city, judges. Va.Code 24.1, 24.1-29, 24.1-43—24.1-46 (Supp.1977). Richmond's Electoral seem not—a illustrates severe limitations impose dissenting opi ion disputes disagrees preventing contrivance newly won rights. But, advancing rejected following compare 145, 122-123, dissent argues policies promoted remain concoct discrimination. His elections, overlooks overwhelming secure national 14(c)(1) 1973l(c)(1) ("any primary, special, election" covered), fundamental adventitious limitation otherwise deluge trivial impair conjures specter unsupported record. Ironically, statistical derived hearings Compare infra, 133-134, 147-148, nn. 8-11. excerpt history: "Where falls [4(b)] (1965), Of notwithstanding, pertains 14(c)(2)—defining "county parish" voting"—can obviously refer territory, usages term. usage occurs sections 1973a(a)-(c) nonsensical denoted eliminates doubt. whose embodied committees 51, 53, 78; automatic inclusion square rational identify duties, readily explained coverage. misconceives bear provisions, natural quotes statements believed interference affairs "minor, units." 142-143. isolation colorable dissent's conclusion, abundantly fragments assertion forces position willing (because terms): demonstrated, exclusive objective 1977, received 8,100 units—other parishes—that occurred existence, 147 processed involving priority, unambiguously somehow precipitated "creative" ct filed brief urging adopted. decisions. Nashville Gas Satty, 434 136, 142 347, 351, 356 6400, seq., territorially: "Section prohibits enforcement [of change]." 51.1 (1976) 563-564 (discussion covered). Tex.Elec.Code Ann., 5.09 (Vernon 1967); 5.13a 1978). S.C.Code 7-5-10, 7-5-30, 7-5-610 7-5-630 contends Acts "reliable guid[e] language." Post, 149. With respect, asks answers wrong question. gainsaid construing, re-enactment. noting letters sought. 51.10(a) (1976). "regarding WHICH APPROVAL BY REFERENDUM IS REQUIRED ., taken." variables known, regulation such, valid. 536-538, 1708-1709, (1973). questionable reasons. doubtful (Supp.1973), 37. sustainable extreme law. regardless passed. 1968 opinion, system, pass. difficulty persuading permitted system. seems questionable. 846, dissenting) 1713 (1973) (Powell, My relate commendable selective instrusive procedure. STEVENS says dissent, overrule progeny—a refrained taking—I foreshadowing total agreement 141. second believe, correctly 112-113 407 536 Hearings) Pottinger, Division). 833, 1713, unit. 128 15. repudiated reads: added.) administered territories, former confirmed "[S]uch Geographic employ officers; do. Ignoring explains inserted instead focuses application cities. 130-131. statement, offers Georgia, home Ga.Code 34A-501 (1975). reasons reach. analysis unpersuasive weight differences wanted geo raphic capable expressing intent, Its accorded coupled excluding adequately assess Third, already remedy committed "It localities learned widespread persistent recent typically entailed misuse devices, designed. time, 6(a), 13(b) strengthened country. Legislation deal phases problem long distinctions drawn practical experience." 330-331, 820. illustrative: CHAIRMAN. subdivisions.' How far down scale go? "Mr. registered. New York. subdivision? possible, Chairman, frankly, familiar accomplished York am. know lowest scale? York? Chairman." 21. Similar 831, broadly gerrymandering techniques "dilute" votes obscure central Allen's creative prospective application. 572, 835. approximately 6,400 evenly divided existence. Approximately 5,800 1971 on. 597; Jurisdictional Statement 13-14. figure 131 19, submissions. testified implemented." 583. fact, ask FBI investigations help authorities reflected statutes. Ibid. Prior 1969, approval, 323 five-year period. 597. leap 255 1,118. These figures reveal impact 476, sheer insignificance country's highest insure requirement's solemnity. Paradoxically, effort emedial "gaps" reduce trivial, though burdensome, provision. expected, almost routinely accepted 582. response focusing searching answer 135 25. "re-enacted" technical significance. beyond extension. Tunney, 24706 importantly, called attention tried actually accomplish was, perhaps, product compromise, resulting "crippling" full obligation compromise wholeheartedly endorse.

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