Legal Document

400 U.S. 379 91 Supreme Court Reporter 431 27 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 476 Ernest PERKINS et al.v.L. S. MATTHEWS, Mayor of the City Canton, al. Number 46. Argued Oct. 20, 1970. Decided Jan. 14, 1971. Syllabus Appellants, voters and candidates for city offices, sought to enjoin 1969 election in Mississippi, alleging that requirements differed from those effect on November 1, 1964, at last 1965, enforce changed without following approval procedure set forth § 5 Voting Rights Act 1965. Section precludes a State or political subdivision covered by administering 'any voting qualification prerequisite voting, standard, practice, with respect different force 1964,' first submitting change Attorney General securing declaratory judgment District Columbia does not have racially discriminatory purpose effect. which is Act, changes (1) location polling places, (2) municipal boundaries through annexations adjacent areas, thus increasing number eligible voters, (3) ward atlarge aldermen. Though aldermen was called 1962 Mississippi statute, 1965 Canton wards. A single Judge, relying Allen versus Board Elections, 393 544, 89 817, 22 temporarily restrained election, but three-judge court, after examining challenged determine whether they had 'a effect,' dissolved injunction dismissed complaint. Held: 1. The court should considered only issue 'whether particular state enactment subject provisions therefore must be submitted before enforcement.' Allen, supra, 559, 828. Pp. 383—387. 2. Each falls within as 'standard, requires prior submission. 387—395. (a) Changed locations places come since such may affect one's ability vote 387—388. (b) Changes boundary lines annexations, determining who elections inclusion certain diluting weight votes franchise annexation, view great potential racial discrimination clearly scope 5. 388—394. (c) attlarge comes purview fact 'in effect' 394—395. 3. appropriate remedy determined hearing views parties. 395 397. 301 F.Supp. 565, reversed remanded. Armand Derfner, Jackson, Miss., appellants. Robert L. Goza, appellee. Mr. Justice BRENNAN delivered opinion Court. 1 79 Statutes-at-Large 439, 42 Code KF62 1973c (1964 ed., Supp. V),1 provides whenever Act2 shall enact seek administer 1964 * no person denied right failure comply qualification, prerequisite, procedure' if has obtained 'does will denying abridging account race color,' unless chief legal officer other official 'and interposed an objection sixty days submission.' question this case precluded enforcing mayor Columbia. 2 alderman, action brought Southern Mississippi.3 They alleged mayoral aldermanic because areas enlarged voters,4 at-large alleged, these them obtaining under Pending convening three judges required 5, judge elections, were originally scheduled spring 1969. however, hearing, temporary 565 (1969). then held October effect.5 We noted probable jurisdiction. 397 903, 90 901, 25 85 (1970). reverse. 3 misconceived permissible its inquiry into appellants' allegations. Our decision 817 (1969), handed down two months instituted, settled question. been limited determination requirement subjected federal scrutiny.' Id., 561, 829. explicitly '(t)he 558—559, For emphasis, we added: 4 'It important distinguish instant cases seeking new laws do In latter type substantive questions necessary (i.e., effect) are litigated, while here decided legislation approval.' 555—556, n. 19, S.Ct., 826. (emphasis supplied). acted convened recognized so inquiry. his unreported oral granting relief, he correctly stated: 6 'The designated, (are) any subdivisions way cause constitute practice meaning situation existed doing filed request asked *.' 7 He observed further that, although there proof city's made anyone guaranteed Fourteenth Fifteenth Amendments, 'the Elections it function prerogative Court, even now sitting motive extending boundary.' explicity between district courts 'Congress intended treat 'coverage' differently 'substantive discrimination' questions,' 828, therefore: 'we consider effect.' U.S., 570, 834. This say deciding close eyes congressional enacting 5—to prevent institution might color, Congress meant reach subtle, well obvious, regulations *' 831. What foreclosed what expressly reserved consideration General—the 'of color.' 8 examination claims concerning extensions selection permitted and, basis preliminary findings both granted injunction.6 But (which included judge) did adhere Allen's holding. As read examined merits emerges clarity court's annexations. Canton's obtain violate express ground black still majority less than 600 expansions effected.' F.Supp., 567. Similarly, considering aldermen, provided Miss.Code Ann. 3374—36 (Supp. 1968), remarked, 'Since equally true power, wish influenced alone elect all governing body.' 568. 9 It disclaimed reliance lack holding 5; stated rested law antedated complied 'regardless (the city) 1965.' Ibid. finding 'no merit' challenge relocation based proofs one place space machines, others moved situated private property (bank lobbies) permission use withdrawn, another out courthouse school building facilities more ample move eliminated interference sessions various courthouse.' Nevertheless, considerations, far relevant, relevant 10 However, interest judicial economy, remand making properly record adequate enable us decide approval, shall, therefore, II 11 given broadest possible scope' altered minor way.' 566, 567, 832. significant chose include exceptions (e.g., changing paper ballots machines) indicating intention changes, matter how small, 568, 833. Tested each 'voting voting,' events 1964.' 12 Even going beyond plain words think clear constitutes voting.' abstract means little becomes reality day. accessibility, prominence, facilities, notice place's person's exercise franchise. Given 5's explicit concern procedure,' section's coverage. Moreover, legislative history support conclusion cover places. Before Senate Judiciary Committee, testified registration' 'from ballot machine' kind designed reach.7 Plainly precisely same change. inheres obvious 'denying V). Locations distances remote communities calculated intimidate blacks entering, publicize adequately Consequently, submission 13 Changing enlarge also Clearly, revision ways: including leaving outside, determines not; dilutes whom suffrage can debasement dilution citizen's just effectively wholly prohibiting free franchise.' Reynolds Sims, 377 533, 555, 84 1362, 1378, 506 (1964). having composition electorate affected annexation. Gomillion Lightfoot, 364 339, 81 125, 110 (1960), clear-cut illustration addition, 18-month study operation Civil Commission, Commission's director reported gerrymandering become prime weapons discriminating against Negro voters: 14 white domination South adaptiveness, passage Acts increased registration followed resulted methods maintain control process. 15 'For example, legislatures party committees Alabama adopted rules act newly enfranchised voters. These measures taken form switching where strength concentrated districts, facilitating consolidation predominantly counties, redrawing districts divide concentrations strength.' Hearings Extension Subcommittee House Committee Judiciary, 91st Cong., 1st Sess., ser. 3, Page 17 (1969) (remarks Glickstein).8 16 Fairley Patterson, companion applied county supervisors power absolute prohibition casting ballot. See (1964).' 569, 18 Harlan's separate accurately Court's adopt concept articulated (1964), protect Negroes their power.' 588, 843. terms difference annexation follow hold applies case. 19 draws interpretation administration statute. '(T)his shows deference statute officers agency charged administration.' Udall Tallman, 380 16, 792, 801, 616 (1965). General's recently officials Department testimony related extension Act.9 regarded relocating annexing territory10 falling Act. Their indicated accepted least some subdivisions, approval. Amendments Constitutional 248 id., 20 testimony, formal table showing 313 upon him divided responses submissions categories: object; objected discriminatory. Every lines11 every shown Pages 308 21 course coverage dispositive arises peculiar context. mandated enacted 1962. ignored mandate conduct 1961, elected wards.12 argues choice elections. concluded, nevertheless, scrutiny That section reaches 'different our view, reference mean would date. necessarily inference 1964. drawing inference, reason blind ourselves evidence restricting gaze occurred Ordinarily presume accordance law. First National Bank Albuquerque Albright, 208 548, 553, 28 349, 350, 52 L.Ed. 614 (1908). If available facts showed conducted 1961 wards Legislature subsequently requiring future large, entitled presumption. 23 With benefit hindsight, know June election. reflects suggest seven earlier. conclude sufficed bring clear, when (Canton) became Act; bearing decide. III 24 appellants urged addition reversing judgment, aside 1969, order forthwith enforced. declined like invitation gave prospective effect, primarily impression 'subject rational disagreement.' 572, 835. reasoning inapplicable dates arguing emphasize desire ensure institute On history, achieve goal voluntary them. Failure governments statutory nullify entire scheme resources police see 556, 826—827 suits seem unlikely sufficiently supplement supervision. repeated evasion decrees extended litigation delay implementation constitutional rights, rather citizens bear burden delays litigation.13 26 At time, recognize remedy, factors nature complained of, reasonably time circumstances enter affording local opportunity ordering fail forthcoming. Since familiar nuances we, heard case, determine, instance, parties.14 reversed, remanded instructions injunctions restraining enforcement until appellees demonstrate compliance proceedings consistent opinion. ordered. 29 Reversed instructions. 30 BLACKMUN, THE CHIEF JUSTICE joins, concurring judgment. 31 cited & N Dec. Immigration Nationality Decisions join reversal remand. 32 HARLAN, part dissenting part. 33 role recognizes, V), proposed run reason, am unable BLACK, post, 401, although, him, likelihood involved 34 agree substantially reasons gives, cannot obliged matters issue. 35 Whether could constitutionally require submit cf. Carolina Katzenbach, 383 301, 358—362, 86 803, 833—835, 769 (1966) (separate Black, J.), purport so. 'with voting' only. seems interpret restriction Ante, 389. limitation implied clause prove meaningless practical matter. conceived almost heavily another. voting. phrase—'with voting'—was compass. 36 564—571, 588—591, 831—835, 843—845, No useful served retraversing there. concluded reivew 'intended opinions devoid intent go State's incidentally peripherally. remarks Solicitor amicus brief plainly distinguishable basis. absence contrary administrative interpretation, assertion me give too much passing remark Assistant General. Cf. 568—569, 833.1 37 Patterson large procedures interprets quoted phrase probably crucial date, regardless controlling While unreasonable, find preferred thought about problem. Resolution hypothetical factual test quite inconvenient, unmanageable, Columbia, scene.2 test, results turn seeming fortuity forgot statewide application citizen suit aside. Barring attempts resurrect long-ignored statutes, 'procedure Under effective date 38 confess somewhat mystified discussion my partial dissent 593—594, 845—846, direct if, fails reasonable time. forthcoming, justification rerun page. violation interpreted possibility exceptional foresee. event, guidance score provides. 39 dissenting. 40 (1966), upheld legitimate Amendment. agreed broad Amendment ban dissented vigorously majority's constitutional. fears precipitated Katzenbach fully realized majority, actually holds town 10,000 persons, four 41 Washington favorable Columbia.1 belief, dissents violates Constitution deprives few make own govern themselves advance Founding Fathers drafted people amended it, believe initiate easily away. poignantly demonstrates extent Federal Government usurped government hands General, being over thousand miles away Mississippi. used five majority. One alderman large. Detailed pertained solely concerns proper involve discrimination. 43 Polling Places.—The Two old located owners longer consent incredible travel get rent Another sufficient accommodate machines. Finally, fourth public eliminate courtroom proceedings. difficult imagine peculiarly exclusively fit Nor slightest indication motivated unanimously undisputed attack merit.'2 Yet, politically appointed Presumably, ready hold, necessary, machines similar utter degradation affairs. 44 Boundary Extensions.—The finds violated City's limits added 46 voter rolls. 1966 187 1968 eight 144 sum, 82 331 figures viewed relation population January 12, 2,052 2,794 voters.3 apparent annexed additions alter balance Canton. black. found stratagem deliberately overturn polls.'4 45 prohibits effective. Proposals veto Convention overwhelmingly rejected.5 basic structure system government. bar attempted practices initiated. accomplish end banning General—that letter spirit Constitution. goes further: permits unconstitutional parties At-large Elections.—In 1962, passed cities large.6 revealed record, failed again secure abide admittedly valid State. 47 intend permit perversion unprecedented grounds comprehension discriminate 48 vice shortcut Government's job policing radically curtailing restraint. unnecessary serve irritation pernicious divisiveness applies. When abridges rights race, halted. Of course, proceedings, presumed valid, up Only established Supremacy Clause interfere 49 reverse things. Now presumes—a presumption upholds—that statutes regulating enpolitically joins convince distant suspend effectiveness proved. inevitable roles happened case—a nondiscriminatory voided authority. 50 Except renewed Reconstruction, country never stand separation authority governments. Never New York California begging enactments legislature. emerged committee States. jealous bold seizure authority.7 51 adds insult injury remanding always heretofore rightly hesitant interfering grossest abuses. departs many precedents restraint suggests invalidate village undergo expense tremendous disruption Such inappropriate reasons. First, predicated actual merely de minimis machinery. pretend proved Citations Commission past instances statements Congressmen supported affirmative discrimination, abuse remedial discretion vested judiciary compel Second, Brethren neglecting duty full disposition May already postponed once. By disposed jurisdictional statement inevitably follow, 1973 around corner. posture, wrong harsh oppressive punishment unwarranted directing 'shotgun' sanction, damaging Useless campaign expenses borne candidates. And town, sales taxes imposed citizens, white, rich poor, collect tax money pay need remind Judges below expensive southern towns rich. convinced confront now, void To contrary, violations very technical. forget easy neither nor inexpensive order. above affirm Court.8 text 1473c provides: 'Whenever prohibitions 1973b(a) title enters procedure: Provided, enforced proceeding submission, except object entered subsequent procedure. Any 2284 Title appeal lie Court.' Fed.Reg. 9897 (Aug. 6, 1965). '(A)n individual injunctive claiming 829, construed court. Appellants 200 qualified electors. trial lawsuit, approximately 3,050 registered electors 2,850 electors, Based average index per residence, 176 land area 50% conform limits. primary general 28, injunction. claim amendment. Chairman: say, keystone talking about, machine, likely 15th amendment? 'Mr. Katzenbach: sense most innocent law, experiences again, used. You registration, instance.' H.R. 6400 89th 2, 62 Congressman observed, 'When voted hoped years resistance progress subtle possible. whole arsenal racist perfected. gerrymandered, switched basis, counties consolidated, elective offices abolished chance winning, appointment process substituted process, withheld information running office, physical economic intimidation employed. 'Section devices. apparently rarely obeyed section, timid 3—4 Rep. McCulloch). life 1970 1975. 1970, Public Law 91—285, 314. 25, O.T.1968, took position 'laws (that) constituency *. There surely doubt today curtailed impermissible demarcation official's destruction refusal access booth.' Memorandum Amicus Curiae 13. reached germane present Harlan Department's position, clouded unsubmitted Government, Fairley, specifically significance attributed suit. redistricting reapportionment 'Nor (bring suit) involving undermining refuting provision scope. assumed silence prepared interpose effected Curiae, 22. aware referred opinion; mention appears extensive materials activities recent Sess. (1969, 1970); attributing particularly hazardous acknowledged anticipated inability Department—given resources—to investigate independently 13, infra. polities discover not, circumstances, surprising, cast serious rigorously Through 252 (and consolidation) approved legislature Carolina, initiative. Georgia 60 districts. Session Laws reflect numerous equal obviously submitted. acts, applicable municipality, General: acts qualifications completely revising codes, vote, instead plurality, officials. 1968, officials, creating residency oath qualifications, code. exhaustive list years. remaining Act—Mississippi, Alabama, Louisiana, Virginia—have combined total changes. drawn unfortunate regularly complying requirement. appear record. argument, appellee's counsel lapse due overlooking E.g., 60, 72 (1965); 1564 pt. 111 Cong.Rec. 10727 (1965) Sen. Tydings); 15645, 15648 Celler); 16221 Corman). Opponents severity requirements. 10725 Talmadge); 15657 Willis). add restriction: decides required, expressed handful border presented dismissing face enormous done nothing about. fiscal year beginning July 1967, Carolina. 1967—1968 Report Secretary 165—166. None 310 312 reveal 100 cities. lines. So March 1966, 235, Ga.Laws 2729, reveals, map city. hand, simply Assuming question, instance. sparse why operative defendants prevail theory plaintiffs forward address 566—567. Debates 1787 James Madison Documents Illustrative Formation Union American 605, 789, 856 (1927). Chapter 537 'All selected municipality. Those municipalities select (4) resident said municipality.' strong argument prohibited absent reminiscent treatment accorded Colonies British King. Some Colonies' complaints 4, 1776, were: 'He refused Assent Laws, wholesome good.—He forbidden Governors pass immediate pressing importance, suspended till obtained; suspended, utterly neglected attend them.—He accommodation people, relinquish Representation Legislature, inestimable formidable tyrants only.—He together bodies unusual, uncomfortable, depository Records, sole fatiguing measures. Declaration Independence (July 1776). My Brothers BLACKMUN '(g)iven (they) judgment' admit understand 'given Allen.' Neither member decided. certainly bound mistakes think, do, mistake. Allen,' wrongly overrule now. acceptance necessitates compelling either

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