Legal Document

439 U.S. 32 99 Supreme Court Reporter 368 58 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 269 DOUGHERTY COUNTY, GEORGIA, BOARD OF EDUCATION et al.,v.WHITE. Number 77-120. Argued Oct. 2-3, 1978. Decided Nov. 28, Syllabus Shortly after appellee, a Negro employee of the Dougherty County Board Education, announced his candidacy for Georgia House Representatives, adopted requirement (Rule 58) that its employees take unpaid leaves absence while campaigning elective political office. As consequence Rule 58, who sought election to on three occasions, was forced leave and lost over $11,000 in salary. When compelled third absence, appellee brought this action District Court, alleging unenforceable because it had not been precleared under § 5 Voting Rights Act 1965 (Act). Concluding "potential discrimination," enjoined enforcement pending compliance with 5. Held : 1. is "standard, practice, or procedure respect voting" within meaning Act. Pp. 36-43. (a) Informed by legislative history Attorney General's interpretation 5, has consistently given phrase "broadest possible scope," construed encompass any state enactments altering law covered State "in even minor way," Allen versus Elections, 393 544, 566, 89 817, 832, 22 37-40. (b) like filing fee, imposes substantial economic disincentives seek public office, circumstances surrounding adoption effect process suggest potential discrimination. 40-43. 2. A county school board, although does itself conduct elections, subdivision purview when exercises control electoral process. Comm'rs Sheffield, 435 110, 98 965, 55 148. 43-47. 431 F.Supp. 919, affirmed. Jesse W. Walters, Albany, N. Y., appellants. John R. Myer, Atlanta, Ga., appellee. Lawrence G. Wallace, Washington, D. C., States, as amicus curiae, support Mr. Justice MARSHALL delivered opinion Court. 1 Under 1965,1 all subdivisions 4 Act2 must submit proposed change affecting voting, preclearance General Columbia. At issue appeal whether board education approval rule requiring they campaign Resolution question necessitates two related inquiries: first, governing candidates Act; second, "political subdivision" 2 * The facts case are dispute. Appellee, Negro, employed Assistant Coordinator Student Personnel Services appellant Education (Board). In May 1972, he Representatives. Less than month later, June 12, without seeking prior federal approval. provides: 3 "POLITICAL OFFICE. Any system becomes candidate will be required pay, such becoming effective upon qualifying office continuing duration activity, during period service if elected thereto." Appellee qualified Democratic primary pay. After defeat August primary, reinstated. Again 1974, leave. He successful both November general election. Accordingly, continued through mid-November 1974. took 1976, run re-election. became clear September would unopposed 1976 election, reinstated.3 those mandatory leaves, pay amount $2,810 $4,780 $3,750 1976. filed Middle entity therefore subject requirements Act.4 averred first recent memory, perhaps since Reconstruction, Assembly from County. did contest fact, further acknowledged aware no individual other an Education. 6 On cross motions summary judgment, three-judge held should have submitted before implementation. 919 (1977). so ruling, court correctly declined decide ultimate Columbia face submission 5—whether fact discriminatory purpose effect. See Perkins Matthews, 400 379, 383-385, 91 431, 434-435, 27 476 (1971). Rather, confined review preliminary "potential" discrimination hence 411 526, 534, 93 1702, 1707, 36 472 (1973). concluding potential, interpreted (1969), supra, mandate modification "which restricts ability citizens office." F.Supp., at 922. reasoned because: 7 "By imposing financial loss [Board] choose become candidates, [the Rule] makes more difficult them participate democratic and, consequently, field which voters may select their representatives." Ibid. 8 We noted probable jurisdiction. 921, 1482, 514 (1978). Since we find 148 (1978), dispositive issues presented appeal, affirm. II 9 Section provides whenever "shall enact administer voting qualification prerequisite standard, different force 1, 1964," implement until either secures determination "does denying abridging right vote account race color" submits interposes objection 60 days. 42 Code KF62 1973c (emphasis added). Although 14(c)(1) expansively defines term "voting" "include necessary make effective," 79 Statutes-at-Large 445, 1973l (c)(1), nowhere amplifies voting." our previous constructions guidance Atlantic 10 This considered scope critical language involving consolidated appeals cases Mississippi one Virginia. canvassing Act, concluded Congress meant "to reach enactment altered way." U.S., S.Ct., 832.5 Conceived "nearly century systematic resistance Fifteenth Amendment," South Carolina Katzenbach, 383 301, 328, 86 803, 818, 15 769 (1966),6 was, emphasized, "aimed subtle, well obvious, regulations race." 565, 831 (footnote omitted). To effectuate "articulated purposes legislation," id., 570, 835, procedure" 567, requirements. Id., 834 (Whitley Williams, companion decided Allen, supra ). burdens independent "increasing difficulty [him] gain position ballot" measure could "undermine effectiveness" wish elect nonaffiliated representatives. 834. 11 subsequent interpreting adhered principles broad construction set forth Allen. Hadnott Amos, 394 358, 1101, 336 Alabama statute declare intention months earlier procedures imposed "increased barriers" warranted scrutiny. 366, 1105. Similarly contexts qualification, changes location polling places, supra; alterations municipal boundaries, Richmond 422 95 2296, 45 245 (1975); Petersburg 410 962, 1441, 35 698 (1973), summarily aff'g 354 1021 (DC 1972); reapportionment redistricting plans, supra. 12 Had disagreed presumably clarified intent re-enacting 1970 1975. Yet, observed "[a]fter extensive deliberations bills extend repeatedly discussed, extended five years, substantive 5." 533, 1707 1975, Senate Judiciary Committees, recommending extension "broad interpretations 5" Matthews. S.Rep.No.94-295, Page 16 (1975) (hereinafter S.Rep.); H.R.Rep.No.94-196, H.R.Rep); U.S.Code Cong. & Admin.News 774. Confirming view Committee stated, "[s]ection requires implementation jurisdictions." S.Rep. 15; H.R.Rep. 8, 781 13 regulations, 1971, reflect equally inclusive understanding They provide "[a]ll though appears indirect," 28 Federal Regulations 51.4(a) More particularly, require "[a]ny alteration eligibility persons remain obtain ballot elections officeholders." 51.4(c)(4). Pursuant these General, being apprised requested clearance.7 Given central role formulating implementing entitled particular deference. 131, 979; 391, 438. 536-539, 1708-1710. B 14 Despite expansive appellants contend erred treating rather simply "a means getting full days work pay—nothing nothing less." Brief Appellants 20. appellants' view, intend internal personnel measures activity superintendence. mischaracterizes policy. neutral practice forms absenteeism. specifically addresses process, singling out disabling activity. form operates precisely same fashion. By entry into campaigns concomitantly, limits choices available voters. thousands dollars Board's policy operate inhibition many filing-fee only hundreds successfully interposed objections.8 That objections apparent supporting 16-17; 10, Pages 782-783.9 concerned simple inventory procedures, but reality changed practices affect voters." 531, 1706. here 58's impact previously preclearance. (1969); 551, 824.10 Moreover, practical matter, implicates extent do modifications recognized encompass, casting write-in vote, 17 not, course, constraints voter choice violate Presumably, most regulation involvement found invidious Yet said almost According figures available, Civil Division processes annually some 1,800 submissions 3,100 less 2%. Ann.Rep. 159-160 Approximately 91% receive clearance exchange correspondence. Tr. Oral Arg. 53. Thus, determining triggers scrutiny, provision innocuous likely approved, 1707; 434-435; 555-556, n. 19, 558-559, 570-571, 826, 827-828, 18 Without intimating views legitimacy nonracial measure, believe sufficiently suggestive demonstrate need years County, area long racial voting.11 candidacy, concededly experience absenteeism among made leave-of-absence contingent working hours underscores Rule's inhibiting participation process.12 19 Plainly, erects formidable date 1105 (2 months), 824 (20 days). follows directly recognition "the broadest encompassing "subtle, obvious," 831. similarly administrative understandings perimeters hold obstacles involved "standard[s], practice[s], procedure[s] III 20 applies subdivision[s]" designated coverage pursuant acknowledging law,13 meet definition rely 14(c)(2) (c)(2), 21 "any parish, except where registration conducted supervision shall include conducts Because neither county, nor registration, maintain come 23 contention squarely foreclosed decision last Term 765, There, expressly rejected suggestion city Sheffield beyond ambit register defined "language, structure, history, persuade[d] us constitutional provisions designed implement, entities having power aspect jurisdictions . ." 118, 972. once coverage, 14(c)(2)'s "operative significance 126, 976. 24 attempt distinguish ground Board, unlike elections. direct responsibilities conjunction officials, argue "exercise control" 127, 977, 25 cramped reading "control." Our concern there obviate necessity expedient "allowing local aspects process." 125, thus adopting entity's responsibilities, coverage. Here, discussion Part II, indicates, unit nominal functions can nonetheless exercise attaching price tag participation. Appellants' analysis achieve what avert; enable circumvent delegating registration. subdivision, byde facto delegation, "thereby instrumentalities preclearance." 139, 983 (POWELL, J., concurring judgment). If governmental units official obligations actuate "nullif[ied] large number applications." 976 26 Nothing compels anomalous result. terms, adopts voting. No stated none fairly implied.14 observed, reflects Congress' firm resolve end blight infected parts country nearly century." 308, 808. Whether potentially bears relation directs attention duties it. turn confided formal responsibility clearly serve consonant objectives statutory scheme. Nor comport ascertainable congressional intent. 1975 extension, controlling here, doubt intended trigger Both supporters opponents appear shared common jurisdiction enforce obtaining Hearings S. 407 al. Subcommittee Constitutional Judiciary, 94th Cong., 1st Sess., 75-76 (testimony Arthur Flemming, Chairman U. Commission Rights) (e. g., laws, practices, every stage process"); H.R. 939 Flemming); 121 Cong.Rec. 23744 (remarks Sen. Stennis) ("Any changes, far officials [are] concerned, precincts, districts, municipalities, legislatures [have] submitted"); 24114 Allen). Committees witnesses referred 5's past prospective application districts. See, e. Stennis); 407, 467-470 George Korbel, EEOC Regional Attorney); 939, 387 -390 Korbel); 27-28; 19-20, 793-794. discussions suggests contrary, fair conclusion determined mechanism coping whose source anticipate significant. change. conclude enacted judgment 29 Affirmed. 30 STEWART dissents reasons expressed N Dec. Immigration Nationality Decisions dissenting POWELL. 31 STEVENS, concurring. convinced Court's accurately it, see 140-150, 984-988, (STEVENS, dissenting), demonstrated rationale decisions result reaches today. join 33 POWELL, whom THE CHIEF JUSTICE REHNQUIST join, dissenting. 34 Today again expands 1965, ruling authority taken liberties today's precedent. Standard, Practice, Procedure marked radical departure traditional notions federalism, several Members regarded unconstitutional.1 Indeed, represents "uncommon power," 334, 822, (1966), Department conceded testimony "substantial ordinary concepts system." 536 Stanley Pottinger, Asst. Atty. Gen., Division). tempered intrusion Government affairs, however, limiting Act's regulations. very title shows thrust directed protection rights. forbids use "voting added) deny anyone race. Similarly, sharply curtails rights certain "tests devices" prerequisites eligibility, "[T]est device" 4(c), 1973b(c), 37 person (1) read, write, understand, interpret (2) educational achievement knowledge subject, (3) possess good moral character, (4) prove qualifications voucher registered members class." (Emphasis added.) 38 Finally, " added).2 39 language, therefore, pertains Contrary opinion, ante, 42-43, answer turns against instruments terms limited use; rather, extends regardless uses. affected party's counsel irrelevant 25-27; timing significance. stating cause allege basis race.3 holding relies perceived doing, disregards explicit factors parties irrelevant.4 40 Separated mistaken references discrimination, understand. It tortures regulation, such, "with denied vote; anyone's franchise impaired. 41 constructed tenuous theory, reasoning that, includes whoever discouragement deprive someone vote. constructing 41, Bullock Carter, 405 134, 92 849, (1972); (1969)—cases barriers fees Fourteenth Amendment Bullock. states "reality Ante, 41. But notion locality "qualification" refusing funds reason arguably governs resolution case, draws dictum context, meaningless.5 For example, suggested alter[s] Even were viewed decision. each relied today,6 considering relating way conducted: structuring method balloting, setting permitted These hand, effects regulating so. problem: expenditure time energies devoted campaigning, counseling schoolchildren. 43 extending anything indicated precedent, attempts limit suggesting somehow differs "neutral absenteeism," "specifically ante 40. intimates extracurricular frequently absent duties—whether derived friend running fulfilling civic duties, entering gainful employment second employer. goes on, give principal rules What fails note absenteeism" School Board. go just 58; difference rationale, making reference cleared truly incidental sufficient then imagine sorts fall section.7 Political Subdivision 44 State. institutions "conduc[t] voting," ruled applied Ala., authority, undertake restructuring government selected.8 referendum, commission mayor-council government. Councilmen large, numbered seats corresponding council city's four wards. spite lack "contention term" Sheffield. 44. now declares so, case. based grounds, present here. First, "congressional intent" structure," Act," re-enactments," consistent 117-118, Second, frustration basic withdrawing selected cities, counties, parishes, subdivisions.9 46 There 5; cited "consistent interpretation" supports holding.10 Looking structure argues applicable. 45-46. "directs it." Neither actions however remote powers importance emphasized Sheffield's "power process."11 120, 122, 972, 973, 974, 977. rational consideration enacting authority; not. 47 professing cites committee report statement supporter powerless try connect boards entirely irrelevant. neglects pertained elected, something do.12 (school ward at-large members); 793 Texas "[e]lection changes" avoid minority groups boards). 48 Furthermore, circumvention inapposite (unlike Sheffield) regulate danger, place scrutiny 49 case: relevant "language "Act's "legislative history," enactments. used parallel theory between 50 Finding falls back "all process" 5—language merely expressing drawn here.13 normal sense words. purport appellee's Representatives; affirmatively paying wages despite neglect inevitably occur. Such protect fisc hardly rises level 51 sum, reverse below grounds. deemed standard respectful am my Brothers' opinions, judicial revision unsupported purpose, history. 439, amended, 1973c. part: "Whenever prohibitions [§ 4(a) Act] determinations sentence 4(b) 1964, institute declaratory prerequisite, color, unless enters failure comply procedure: Provided, enforced proceeding chief legal officer appropriate sixty submission, shown, facilitate expedited made. 438, 1973b. 4. Fed.Reg. 9897 (1965). Solicitor advise also annual 21/2-month sittings 1977, Amicus Curiae 1; 6. challenge below. consider interval actually due responsibilities. Jurisdiction predicated 1973c, 2284 1343. 554-563, 825-830, (1969). played drafting testified "practice" "was all-inclusive 1564 89th pt. 192 (1965), 2437, quoted 566-567, 31, 832-833. protean strategies led adopt often discussed 118-121, 972-974, (1978); 308-315, 808-811, reviewed commencement litigation, Justice. Two one-half complaint, Pottinger informed Superintendent System response. Rights, Act: Ten Years 134-137 $360 fee Commissioner Mobile, Alabama, 1973; $818 Mayor Rock Hill, Carolina, 1973). addition, heavily findings After, 131-142, document length including fees, faced candidates. 21, 24; 16, 787, 790. invalidating schemes Amendment, "we ignore reality" acknowledge barrier "falls unequal weight voters, candidates," "tends opportunity choosing." 144, 856, (1972) (filing $1,424.60 Commissioner, $1,000 Land Office, $6,300 Judge). Lubin Panish, 415 709, 94 1315, 702 (1974) $701.60 Supervisor). litigation seat containing 80% population, Paige Gray, 399 459, 461-463 (MD Ga.1975), vacated part, 538 Reporter, 2nd 1108 (CA5 1976), remand, 437 137, 149-158 Ga.1977). dissent suggests, post. 53, towards barring schoolchildren." Insofar about employees' discharge contractual standing variety vindicate interest. may, prescribe absenteeism, terminate suspend contracts willfully professional Ga.Code 32-2101c Ransum Chattooga 144 Ga.App. 783, 242 Eastern 374 explicitly §§ 32-901, 23-1716 Campbell Red Bud Consolidated Dist., 186 Ga. 541, 548, 198 Southeastern KF135 S6 225, 229 (1938); Ty Dist. Colquitt Lumber Co., 153 426, 427, 112 561 (1922). tests devices "anywhere territory" prescribed years. 1973b(a). territorial coterminous jurisdictional 4(a). 120-129, 973-978. Black believed "so distorts render distinction Constitution meaningless." 834, (1966) (concurring opinion). Other misgivings. 586, 4, 842, (1969) (Harlan, dissenting); Holt Richmond, 406 903 (BURGER, C. concurring); 545, 1713, (1973) dissenting). constitutional. "vote" special, including, to, listing subchapter, ballot, counted properly included totals votes cast party propositions received election." Appellee's alleged only: "The defendants complained herein violation Sec. seq., instituted 'voting 1964' submitting Columbia, Five 1965. Defendants 'covered jurisdiction' Act." claims Amendments 1983. causes action, probative establishing acted unconstitutionally 58. addressed us. sure, "banish States. end, unlimited proscription activities others crime "intimidate, threaten, coerce urging vote." 1973i(b). Unlike identifiable deal procedure, methods ends. laws—irrespective intent, effect, use. 39-40. quotes precleared. 39. specificity concerning paid assistance hand. demands cleared, indication accords longstanding Department. admits little [the] appellant[s'] 58." 14. circumstances, purported deference position—apparently voiced case—is makeweight. district Schools appointive position, stiffening 550-552, 823-825. alludes regulations: (annexation); (reapportionment); (annexations); (1971) (annexation redistricting); (requirements candidates). progeny pertaining implicit ratification bearing Little imagination decision: "declare candidacy" thereby avoiding drawing answered, close "loophole" Government's brief foreclose possibility trivialities proscribed bodies, however: boards, planning commissions, sanitary zoning like. Many easier course allowing privilege taxpayers' expense, going unwelcome frustrating clearing bureaucracy. bodies eventually prevail sufferance runs counter self-government. Ala.Code, Tit. 11, 44-150 44-162 (1975). joined similar reasons: "I correct precedents order Perkins. charged [S]uch allow assume changing 983. discussing whatsoever General. "compelling argument" 979, wholly relying much read lock-step 4." 974 (quoting 584, 841 dissenting)). apply system, proscribes literacy devices, devices. analysis, test device system. charges administering Georgia. 2-5302 (Supp.1977). appointed Grand Jury maintaining concludes empowered "potentially enactments" construes professes deciding questions, telescopes one: Every (that is, discriminatory)

Classification Label: 1