Northwest Austin Municipal Utility District No. 1 v. Holder

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2009 United States Supreme Court case

Northwest Austin Municipal Utility District No. 1 v. Holder, 557 U.S. 193 (2009), was a decision of the United States Supreme Court regarding Section 5 of the Voting Rights Act of 1965 , and in particular its requirement that proposed electoral-law changes in certain states must be approved by the federal government. In a 9–0 decision, the Court concluded that the district was eligible to apply for an exemption (bailout) from this section per Section 4(a), because the definition of "political subdivision" in Section 14(c)(2) included a district of this nature. In an 8–1 opinion, the Court declined to rule on the constitutionality of that provision, citing the principle of constitutional avoidance .

Background

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The appellant, Northwest Austin Municipal Utility District No. 1 ,

is a small utility district located northwest of Austin, Texas . The district is run by an elected board.

The District never had any history or claims of racial discrimination in any of its elections. However, because the district is located in Texas, it was subject to the requirements of §5 of the Voting Rights Act of 1965 (the Act, which applies to states with a history of discrimination, especially in the South given Jim Crow -era laws) and extends to any "political subdivision" within the state.

However, another section of the Act, §4(a), allows a political subdivision to seek "bailout" (i.e., release from the preclearance requirements) if certain conditions are met. The District thus filed suit in the United States District Court for the District of Columbia , seeking bailout under §4(a). The District argued in the alternative that, if §5 were interpreted to render it ineligible for bailout, §5 was unconstitutional.

The District Court rejected both claims. It concluded that bailout under §4(a) is available only to counties, parishes, and subunits that register voters, not to an entity like the district that does not register its own voters. It also concluded that a 2006 amendment extending §5 for 25 years was constitutional.

Arguments were held on April 29, 2009. Chief Justice Roberts and Justice Alito questioned why Congress did not extend §5 to all 50 states.

Opinion of the Court

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Section I [legal and historical background]

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In Part A, Roberts described the Fifteenth Amendment 's problematic history of enforcement that led to the passage of the Voting Rights Act , much of which consists of a "scheme of stringent remedies aimed at areas where voting discrimination has been most flagrant." These remedies were bolstered by §5, which suspended any change in state election procedure until the federal government certified that it neither "has the purpose nor will have the effect of denying or abridging the right to vote on account of race or color." To confine these remedies to areas of flagrant disenfranchisement, the Act applied them only to States that met certain explicit standards. However, recognizing that this coverage formula "might bring within its sweep governmental units not guilty of any unlawful discriminatory voting practices, [Congress] afforded such jurisdictions immediately available protection in the form of ... [a] 'bailout' suit."

Roberts then laid out the requirements of such a suit under D. C. 42 U. S. C. §§1973b. He noted that §§4 and 5 were temporary provisions—they were originally expected to be in effect for only five years. §4(a), 79 Stat. 438. However, Congress reauthorized the Act in 1970 (for 5 years), 1975 (for 7 years), and 1982 (for 25 years); each reauthorization was litigated as unconstitutional, and each time the Supreme Court upheld its constitutionality. Most recently, in 2006, Congress extended §5 for yet another 25 years. It was this latest extension that was now before the court.

Part B characterized the procedural history of the District's suit.

Text of Section I

The Fifteenth Amendment promises that the "right of citizens of the United States to vote shall not be denied or abridged ... on account of race, color, or previous condition of servitude." U. S. Const., Amdt. 15, §1. In addition to that self-executing right, the Amendment also gives Congress the "power to enforce this article by appropriate legislation." §2. The first century of congressional enforcement of the Amendment, however, can only be regarded as a failure. Early enforcement Acts were inconsistently applied and repealed with the rise of Jim Crow. _South Carolina v. Katzenbach _, 383 U. S. 301, 310 (1966); A. Keyssar, The Right to Vote 105-111 (2000). Another series of enforcement statutes in the 1950s and 1960s depended on individual lawsuits filed by the Department of Justice. But litigation is slow and expensive, and the States were creative in "contriving new rules" to continue violating the Fifteenth Amendment "in the face of adverse federal court decrees." _Katzenbach _, supra, at 335; _Riley v. Kennedy _, 553 U. S. ___, ___ (2008) (slip op., at 2).

Congress responded with the Voting Rights Act. Section 2 of the Act operates nationwide; as it exists today, that provision forbids any "standard, practice, or procedure" that "results in a denial or abridgment of the right of any citizen of the United States to vote on account of race or color." 42 U. S. C. §1973(a). Section 2 is not at issue in this case.

The remainder of the Act constitutes a "scheme of stringent remedies aimed at areas where voting discrimination has been most flagrant." Katzenbach , supra, at 315. Rather than continuing to depend on case-by-case litigation, the Act directly pre-empted the most powerful tools of black disenfranchisement in the covered areas. All literacy tests and similar voting qualifications were abolished by §4 of the Act. Voting Rights Act of 1965, §§4(a)-(d), 79 Stat. 438-439. Although such tests may have been facially neutral, they were easily manipulated to keep blacks from voting. The Act also empowered federal examiners to override state determinations about who was eligible to vote. §§ 6, 7, 9, 13, id., at 439-442, 444-445.

These two remedies were bolstered by §5, which suspended all changes in state election procedure until they were submitted to and approved by a three-judge Federal District Court in Washington, D. C., or the Attorney General. Id., at 439, codified as amended at 42 U. S. C. §1973c(a). Such preclearance is granted only if the change neither "has the purpose nor will have the effect of denying or abridging the right to vote on account of race or color." Ibid. We have interpreted the requirements of §5 to apply not only to the ballot-access rights guaranteed by §4, but to drawing district lines as well. _Allen v. State Bd. of Elections _, 393 U. S. 544, 564-565 (1969).

To confine these remedies to areas of flagrant disenfranchisement, the Act applied them only to States that had used a forbidden test or device in November 1964, and had less than 50% voter registration or turnout in the 1964 Presidential election. §4(b), 79 Stat. 438. Congress recognized that the coverage formula it had adopted "might bring within its sweep governmental units not guilty of any unlawful discriminatory voting practices." _Briscoe v. Bell _, 432 U. S. 404, 411 (1977). It therefore "afforded such jurisdictions immediately available protection in the form of ... [a] 'bailout' suit." Ibid.

To bail out under the current provision, a jurisdiction must seek a declaratory judgment from a three-judge District Court in Washington, D. C. 42 U. S. C. §§1973b(a)(1), 1973c(a). It must show that for the previous 10 years it has not used any forbidden voting test, has not been subject to any valid objection under §5, and has not been found liable for other voting rights violations; it must also show that it has "engaged in constructive efforts to eliminate intimidation and harassment" of voters, and similar measures. §§1973b(a)(1)(A)-(F). The Attorney General can consent to entry of judgment in favor of bailout if the evidence warrants it, though other interested parties are allowed to intervene in the declaratory judgment action. §1973b(a)(9). There are other restrictions: To bail out, a covered jurisdiction must show that every jurisdiction in its territory has complied with all of these requirements. §1973b(a)(3). The District Court also retains continuing jurisdiction over a successful bailout suit for 10 years, and may reinstate coverage if any violation is found. §1973b(a)(5).

As enacted, §§4 and 5 of the Voting Rights Act were temporary provisions. They were expected to be in effect for only five years. §4(a), 79 Stat. 438. We upheld the temporary Voting Rights Act of 1965 as an appropriate exercise of congressional power in Katzenbach, explaining that "[t]he constitutional propriety of the Voting Rights Act of 1965 must be judged with reference to the historical ex

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