City of Tucson v. State of Arizona Southern Arizona Leadership Council Senator Jonathan Paton

FILED BY CLERK
IN THE COURT OF APPEALS APR 20 2011
STATE OF ARIZONA
DIVISION TWO COURT OF APPEALS
DIVISION TWO
CITY OF TUCSON, a municipal ) 2 CA-CV 2010-0083
corporation, ) DEPARTMENT A
)
Plaintiff/Appellant, ) OPINION
)
v. )
)
STATE OF ARIZONA, )
)
Defendant/Appellee, )
)
and )
)
SOUTHERN ARIZONA LEADERSHIP )
COUNCIL and SENATOR JONATHAN )
PATON, )
)
Defendant-Intervenors/Appellees. )
)
APPEAL FROM THE SUPERIOR COURT OF PIMA COUNTY
Cause No. C20097207
Honorable Michael O. Miller, Judge
REVERSED AND REMANDED
Michael G. Rankin, Tucson City Attorney
By Dennis McLaughlin Tucson
Attorneys for Plaintiff/Appellant
Thomas C. Horne, Arizona Attorney General
By Mary R. O‟Grady, Solicitor General, and
Barbara A. Bailey Phoenix
Attorneys for Defendant/Appellee
Lewis and Roca LLP
By S.L. Schorr, Kimberly A. Demarchi, and
John Hinderaker Tucson
Attorneys for Defendant-Intervenors/Appellees
H O W A R D, Chief Judge.
¶1 The City of Tucson appeals from the trial court‟s grant of summary
judgment in favor of appellees State of Arizona, Southern Arizona Leadership Council,
and former state senator Jonathan Paton (collectively “state”). The city argues the court
erred because the Tucson city charter regarding local elections supersedes the
legislature‟s 2009 amendments to A.R.S. § 9-821.01. Because the method and manner of
conducting municipal elections is solely a matter of local concern, we reverse and
remand.
Factual and Procedural Background
¶2 We view the facts and reasonable inferences from those facts in the light
most favorable to the party against whom summary judgment was granted. Andrews v.
Blake, 205 Ariz. 236, ¶ 12, 69 P.3d 7, 11 (2003). The City of Tucson is chartered under
the Arizona Constitution. City council members are nominated by ward but elected by
at-large, general elections, and both the primary and general elections are partisan in
nature. In 2009, the state enacted a law amending A.R.S. § 9-821.01, which addresses
elections in Arizona‟s cities and towns. 2009 Ariz. Sess. Laws, ch. 176, § 1.
¶3 Section 9-821.01 now states:
2
(B) Notwithstanding any other law, a city or town shall
not hold any election on candidates for which there is any
indication on the ballot of the source of the candidacy or of
the support of the candidate.
(C) Notwithstanding any other law, for any city or
town that provides for election of city or town council
members by district, ward, precinct or other geographical
designation, only those voters who are qualified electors of
the district, ward, precinct or other geographic designation are
eligible to vote for that council member candidate in the city
or town‟s primary, general, runoff or other election.
¶4 Claiming that the amended law would require the city to change its
elections process, the city sued the state1 seeking declaratory and injunctive relief.
Appellees Southern Arizona Leadership Council and Paton filed a stipulated motion to
intervene in the lawsuit, and the trial court granted their request. The state filed a motion
for judgment, and the city responded with a cross-motion for judgment. The parties
agreed their motions would be decided as cross-motions for summary judgment. The
court then entered summary judgment in favor of the state, and this appeal followed.
Charter Cities
¶5 The city argues that the trial court erred in granting summary judgment in
favor of the state because several provisions of the city‟s charter conflict with the
prohibition of partisan and at-large municipal elections in § 9-821.01(B) and (C) and the
charter supersedes the statute because the issues “relate to matters of purely local
concern.” The state asserts the statute and charter do not conflict with respect to the
1
The city also sued the governor and the secretary of state in their official
capacities, but the city agreed to their dismissal, and they are not parties to this appeal.
3
prohibition of partisan elections. We review de novo a grant of summary judgment.
Valder Law Offices v. Keenan Law Firm, 212 Ariz. 244, ¶ 14, 129 P.3d 966, 971 (App.
2006).
¶6 Under the Arizona Constitution, a city with a population over 3,500 is
entitled to establish a charter for its government. Ariz. Const. art. XIII, § 2. Our supreme
court has held that this charter generally grants a city autonomy over matters of solely
local concern. See, e.g., Strode v. Sullivan, 72 Ariz. 360, 364-65, 236 P.2d 48, 51 (1951).
Thus, if a state law conflicts with the provisions of a city charter and if the relevant
interest is solely local, the city‟s charter supersedes the statute. Id. On the other hand, if
the interest affected is of statewide concern, the statute will supersede the conflicting
provisions of the city charter. Id. at 363, 236 P.2d at 50. Therefore, to the extent there is
a conflict, we must determine whether the issues are local or statewide.
Conflict
¶7 The state first argues that there is no conflict between the city‟s charter and
§ 9-821.01(B) concerning partisan elections because the charter does not require the city
to hold such elections.2 We consider the pertinent sections of the city‟s charter to
determine whether a conflict exists.
¶8 Chapter XVI, § 2, of the city‟s charter states, in relevant part:
The provisions of the general laws of the State of Arizona
relating to and governing primary elections and the
2
The state does not dispute that there is a conflict with respect to § 9-821.01(C),
which involves ward-based rather than at-large elections.
4
nomination of elective officers, whether by primary or
certificate of nomination (being the whole of title 16, Arizona
Revised Statutes, 1956, and each and every provision of said
title with all amendments and supplements thereto) applicable
to a city of the population and the class of this city, shall
apply and govern the holding of primaries and nominations of
elective officers. The mayor and council shall have power to
make any further and additional provisions relating to
primaries and nominations of officers not repugnant or
contrary to the provisions of the constitution and the laws of
the state or any amendments and supplements thereto.
Tucson City Charter, ch. XVI, § 2. Addressing the administration of the city‟s primary
elections and nomination of officers, this section incorporates state election law, found in
title 16, A.R.S. Id. The state election laws address, inter alia, partisan primary elections.
See, e.g., A.R.S. § 16-502(B), (C). And, although the state is correct that the statutes also
address nonpartisan nomination of candidates, see A.R.S. § 16-314(A), (C), the city
charter‟s incorporation of the statute on partisan elections is sufficient to demonstrate
that, at a minimum, the charter permits partisan primaries.
¶9 The state further argues there is no conflict because § 2 of the charter also
incorporates the amendments to § 9-821.01 at issue here. But the city contends § 2 does
not incorporate § 9-821.01, and its “interpretation of its own Charter is entitled to some
weight.” City of Tucson v. State (City of Tucson), 191 Ariz. 436, 437, 957 P.2d 341, 342
(App. 1997). Further, its interpretation is supported by the charter language, which
expressly refers to title 16 and incorporates “[t]he provisions of the general laws . . .
relating to and governing primary elections and the nomination of elective officers.”
Tucson City Charter, ch. XVI, § 2. Section 9-821.01 is not a general election law; rather
5
it is directed toward cities and is included in title 9, which is entitled, “Cities and Towns.”
Additionally, even if the last sentence required more general compliance with state law,
as the state contends, it would apply only to primaries, and the conflict would continue as
to the partisan general elections. Therefore, the city‟s charter does not incorporate § 9-
821.01.
¶10 Additionally, § 7 of the charter states:
The provisions of the general laws of the State of
Arizona, governing the elections of state and county officers,
not inconsistent with the provisions of this Charter, shall
govern the said elections, in matters for which no provision is
made in this Charter, or by ordinance, and the mayor and
council and clerk, respectively, shall exercise the powers and
perform the duties conferred or imposed by such laws on the
board of supervisors and clerks of counties concerning
elections.
Tucson City Charter, ch. XVI, § 7. But § 7 does not support the state‟s position because
it is a gap-filling provision that incorporates the general election laws concerning state
and county offices when there is no counterpart in the city‟s charter. Section 9-821.01,
on the other hand, governs solely municipal elections. Section 7 of the city‟s charter,
therefore, does not incorporate § 9-821.01.
¶11 Thus, at a minimum, and notwithstanding the amendments to § 9-821.01,
the city‟s charter does allow partisan elections through its incorporation of state election
law. See Tucson City Charter, ch. XVI, §§ 2, 7. And the city has been conducting
partisan elections for some time. So the statute‟s prohibition of partisan elections, in fact,
interferes with the city‟s authority to control its municipal affairs. Because the statute
6
conflicts with provisions of the city‟s charter concerning both issues, the relevant
determination is whether the interests affected are statewide or local.
Local versus Statewide Concern
¶12 The city preliminarily contends we should assess the state‟s arguments
using the test from Luhrs v. City of Phoenix, 52 Ariz. 438, 83 P.2d 283 (1938), City of
Tucson v. Tucson Sunshine Climate Club, 64 Ariz. 1, 164 P.2d 598 (1945), and McMann
v. City of Tucson, 202 Ariz. 468, 47 P.3d 672 (App. 2002), which considers a city activity
to be of statewide interest when the city acts as an agent of the state. See, e.g., McMann,
202 Ariz. 468, ¶ 9, 47 P.3d at 676. But this is a proprietary-versus-governmental-activity
test, which is not the favored test and is not helpful in determining whether the concern is
local or statewide. See 2 Eugene McQuillin, The Law of Municipal Corporations § 4.85,
at 204-05 (3d ed. 1996) (proprietary/governmental test does not address whether matter is
of state or local concern). Furthermore, that test was not used in Strode or other, more
recent supreme court cases. See Jett v. City of Tucson, 180 Ariz. 115, 121, 882 P.2d 426,
432 (1994); Flagstaff Vending Co. v. City of Flagstaff, 118 Ariz. 556, 559, 578 P.2d 985,
988 (1978); Strode, 72 Ariz. at 362-69, 236 P.2d at 50-54. Accordingly, we need not
apply this test.
¶13 In Strode, our supreme court did not apply any particular test but stated that
it could “conceive of no essentials more inherently of local interest or concern to the
electors of a city than who shall be its governing officers and how they shall be selected.”
72 Ariz. at 368, 236 P.2d at 54. The court went on to hold “that the method and manner
7
of conducting [municipal] elections . . . [are] peculiarly the subject of local interest and
[are] not . . . matter[s] of statewide concern.” Id. Strode, therefore, is the touchstone of
our analysis.
¶14 In determining whether a concern is statewide or local, this court does give
some deference to a statement of legislative intent. City of Tucson, 191 Ariz. at 439, 957
P.2d at 344. But “we must not merely rubber-stamp the legislature‟s decision.” Ariz.
Ctr. for Law in the Pub. Int. v. Hassell, 172 Ariz. 356, 369, 837 P.2d 158, 171 (App.
1991). The statement of intent reads:
Arizona courts have recognized that the Constitution
of Arizona requires the legislature‟s involvement in issues
relating to elections conducted by charter cities, including
initiative and referendum elections, the method of elections
other than by ballot, laws relating to primary elections, voter
registration laws to prevent abuse and fraud and campaign
finance laws. The legislature finds that the conduct of
elections described in this section is a matter of statewide
concern.
§ 9-821.01(A). But the particular areas of statewide interest identified in the statement do
not specifically concern at-large, partisan municipal elections, which are the subject of
the amendments to § 9-821.01. See § 9-821.01, as modified by 2009 Ariz. Sess. Laws,
ch. 176, § 1. And the statement does not identify separately what statewide interest “the
conduct of elections” in § 9-821.01 purportedly protects. Consequently, our deference in
this regard is minimal.3 Cf. Wonders v. Pima County, 207 Ariz. 576, ¶ 9, 89 P.3d 810,
3
See Hearing on S.B. 1123 Before the H. Comm. of the Whole No. 1, Part 2, 49th
Leg., 1st Reg. Sess. (Ariz. June 29, 2009), http://azleg.granicus.com/MediaPlayer.php?
view_id=13&clip_id=5915, at 1:56 (statement of Rep. Antenori, one of the bill‟s
8
813 (App. 2004) (state law can preempt city ordinance only when intent to preempt
clearly stated).
¶15 The state argues, however, that § 9-821.01 seeks to protect statewide
interests not described in the statute‟s statement of intent—preventing voter
discrimination and promoting good governance, both of which it contends were raised in
legislative debates. But neither of these issues was included specifically in the
legislature‟s statement of intent. And “comments of individual legislators „are not
necessarily determinative of legislative intent.‟” State v. Payne, 223 Ariz. 555, n.4, 225
P.3d 1131, 1139 n.4 (App. 2009), quoting Stein v. Sonus USA, Inc., 214 Ariz. 200, ¶ 13,
150 P.3d 773, 777 (App. 2007). Nevertheless, because we would have to determine
whether a statute protects a statewide interest even in the absence of a statement of intent,
see Strode, 72 Ariz. at 362-64, 236 P.2d at 49-51, we consider each issue in turn to
determine whether any statewide interests exist that would remove these issues from the
holding in Strode.
Nonpartisan Elections
¶16 Section 9-821.01(B) requires cities to hold nonpartisan elections. In
Strode, our supreme court was considering whether a state law requiring disclosure of
partisan affiliations in city council elections would supersede the charter of the City of
Phoenix, which required nonpartisan city council elections. 72 Ariz. at 361-62, 236 P.2d
sponsors, describing inclusion of finding of statewide interest as “standard boilerplate
language that the Rules Attorney says that based on previous court cases he recommends
that we place in the bill”).
9
at 49-50. The court held “that the method and manner of conducting [municipal]
elections . . . [are] peculiarly the subject of local interest and [are] not . . . matter[s] of
statewide concern.” Id. at 368, 236 P.2d at 54. This case is in part the flip side of the
Strode coin. And we are bound by the decisions of the Arizona Supreme Court. City of
Phoenix v. Leroy’s Liquors, Inc., 177 Ariz. 375, 378, 868 P.2d 958, 961 (App. 1993).
We conclude, therefore, that the concern here is local and that Strode controls this issue.
¶17 The state, relying in part on City of Tucson, argues that Strode does not
control because there was an express legislative statement of intent in § 9-821.01 and
because Strode does not prohibit all legislation affecting municipal elections. In City of
Tucson, the state had identified a statewide interest in having all elections in the state
conducted on four particular days, to increase voter turnout and lower expense. 191 Ariz.
at 437, 957 P.2d at 342. The purpose of the legislation, which benefited the state, could
not be accomplished unless municipalities complied. Id. at 439, 957 P.2d at 344. The
nonpartisan requirement in § 9-821.01(B), on the other hand, is directed at municipalities
and does not advance any identified statewide interest under Strode.
¶18 And the mere presence of a statement of legislative intent is not dispositive.
See City of Tucson, 191 Ariz. at 439, 957 P.2d at 344 (noting statement of intent entitled
to deference; then analyzing magnitude of statewide concern). Furthermore, although
Strode does not categorically prohibit all legislation regarding local elections, its holding
covered one of the precise issues raised here—partisan elections—and went on to state
10
that the “method and manner of conducting [municipal] elections” is primarily an issue of
local concern. See 72 Ariz. at 368, 236 P.2d at 54.
¶19 The state further contends it has an interest in the effective and efficient
local governance that it claims nonpartisan elections promote. But, even if nonpartisan
elections may have this effect, the relationship of voters to their municipality is purely a
local matter.4 See id.; Mayor and Common Council of Prescott v. Randall, 67 Ariz. 369,
371, 196 P.2d 477, 478 (1948) (charter city sovereign in municipal affairs); City of
Tucson v. Walker, 60 Ariz. 232, 239, 135 P.2d 223, 226 (1943) (“„The purpose of the
home rule charter provision of the Constitution was to render the cities adopting such
charter provisions as nearly independent of state legislation as was possible.‟”), quoting
Axberg v. City of Lincoln, 2 N.W.2d 613, 614-15 (Neb. 1942). And, based on the
constitution, the charter is the “organic law” of the city. Ariz. Const. art. XIII, § 2. So
even if the legislature determines generally that nonpartisan elections are a better form of
municipal government, Tucson voters have the right to make their own choice in that
regard. Consequently, this interest is not sufficient to remove this case from Strode‟s
holding and reasoning. Therefore, the city‟s charter supersedes § 9-821.01(B), the
provision requiring nonpartisan municipal elections.
4
Furthermore, the legislative debates cited by the state do not demonstrate any
genuine statewide interest but rather make clear that the legislators were interested solely
in changing how Tucson‟s municipal elections would be conducted.
11
At-Large Elections
¶20 Citing article II, § 21 of the Arizona Constitution, the state asserts it has a
constitutionally mandated interest in ensuring the integrity and fairness of the democratic
process, which is not diminished depending on whether it involves municipal, as opposed
to statewide, elections. See also Ariz. Const. art. VII, § 12. The state points out that at-
large voting systems have been associated with voting abuses in other jurisdictions, such
as vote dilution and voter discrimination, and argues that “[p]rohibiting potentially
discriminatory election practices in elections at all levels is a valid and statewide
interest.” The state further urged at oral argument and also in its supplemental brief that
at-large elections pose a statewide concern because a violation of the Voting Rights Act
(“VRA”) would preclude it from being able to take advantage of the “bailout” provision
of 42 U.S.C. § 1973b. The asserted interest is that the city‟s at-large elections could be
found to be in violation of the VRA, preventing the state from making use of the bailout
provision. As we already have noted, even in a matter of declared local concern, such as
municipal elections, if a statewide concern exists, a statute can supersede a city‟s charter.
City of Tucson, 191 Ariz. at 438, 957 P.2d at 343. We must, therefore, determine
whether the interests advanced by the state remove this issue from Strode‟s holding.
¶21 A “bailout” would mean that the state, a “covered jurisdiction,” no longer
has to seek preclearance from the Department of Justice prior to implementing changes
that could impact voting or voter registration. 42 U.S.C. §§ 1973b, 1973c. To invoke
this provision, Arizona would be required to show that, for the last ten years, it had not,
12
nor had any political subdivision within its territory, engaged in any discriminatory
voting practice. § 1973b(a). The state would be required to show, inter alia, that it had
“eliminated voting procedures and methods of election which inhibit or dilute equal
access to the electoral process.” § 1973b(a)(1)(F).
¶22 Section 9-821.01(C), however, is not a blanket prohibition on at-large
elections, as the state asserts. It is, rather, a prohibition of the kind of at-large elections
currently conducted by the city—ward-based primaries followed by at-large general
elections for city council. See § 9-821.01(C). The state acknowledges that only Tucson
used this system at the time the statute was amended. The record does not show whether
any other cities currently conduct at-large elections. But nothing in the statute would
prohibit the City of Tucson or any other city from implementing at-large elections. As a
result, to the extent that a prohibition on at-large elections may enhance the state‟s
chances of securing a bailout, § 9-821.01(C) does not mandate such a prohibition.
Furthermore, the prohibition does not apply to counties. See id. Consequently, the
measure the legislature enacted does not meaningfully support the state‟s purported
interest under the VRA.
¶23 The state asserts an interest in fair elections outside the VRA. Article II,
§ 21 of the Arizona Constitution provides that “[a]ll elections shall be free and equal, and
no power, civil or military, shall at any time interfere to prevent the free exercise of the
right of suffrage.” And article VII, § 12 of the Arizona Constitution states that “[t]here
shall be enacted registration and other laws to secure the purity of elections and guard
13
against abuses of the elective franchise.” At-large elections do not always dilute votes
and are not per se unconstitutional. See Thornburg v. Gingles, 478 U.S. 30, 48 (1986).
They have, however, been found in some instances to have a discriminatory effect. See,
e.g., United States v. Charleston County, 365 F.3d 341, 353 (4th Cir. 2004); United States
v. Blaine County, 363 F.3d 897, 916 (9th Cir. 2004); Large v. Fremont County, 709
F. Supp. 2d 1176, 1228, 1231 (D. Wyo. 2010); United States v. Vill. of Port Chester, 704
F. Supp. 2d 411, 446 (S.D.N.Y. 2010). But no evidence of such discriminatory effects
have been either alleged or shown in Arizona. Furthermore, because the legislature did
not meaningfully limit at-large elections, the statute does not combat any potential
discriminatory effect, nor does it, therefore, ensure that elections will be “free and equal,”
Ariz. Const. art. II, § 21, protect the “purity of elections,” or “guard against abuses of the
elective franchise,” Ariz. Const. art. VII, § 12. Consequently, this asserted state interest
is not valid and does not support enforcement of this statute against the city.
¶24 The only possible remaining state interest is in preventing the will of the
citywide majority from overruling the will of the majority of the ward‟s electors. But the
state has identified no interest in, or any benefit it receives by, preventing this situation
from developing in its cities. And this interest again invades the area our supreme court
has held to be one of solely local interest—the relationship between the charter city and
its voters. See Strode, 72 Ariz. at 368, 236 P.2d at 54 (“We can conceive of no essentials
more inherently of local interest or concern to the electors of a city than who shall be its
14
governing officers and how they shall be selected.”).5 It is up to the supreme court to
redefine the limits of the legislative authority in this area, should it choose to do so.
Consequently, in light of Strode, we hold that § 9-821.01(C) does not apply to the City of
Tucson because the state‟s interests in requiring the city to hold ward-based general
elections do not trump the city‟s charter providing otherwise.
The Dissent
¶25 Our dissenting colleague concludes that the invocation of the bailout
provision of the VRA is a “legitimate” and “strong” state interest. Although we agree
that the VRA could—not would, as our dissenting colleague suggests—provide a
satisfactory state interest, in this case it does not. First, the bailout provision of the VRA
was not mentioned in the legislative hearings, the statement of intent, the amendments
themselves, the trial court, or the original briefs filed in this appeal. Rather, it was
mentioned for the first time at oral argument. Consequently, we are not dealing with an
expression of legislative intent but with an after-the-fact justification by skillful counsel.
We owe no deference to this justification. Cf. Wonders v. Pima County, 207 Ariz. 576,
¶ 9, 89 P.3d 810, 813 (App. 2004) (state law can preempt city ordinance only when
legislative intent to preempt clearly stated); City of Tucson, 191 Ariz. at 439, 957 P.2d at
5
In its final footnote, the dissent speculates that our supreme court, had it been
deciding Strode after the passage of the VRA, would have used different language. The
court did consider the issue of city elections after the passage of the VRA and, citing
Strode with approval, reiterated its position that they are matters of local concern. See
Triano v. Massion, 109 Ariz. 506, 508, 513 P.2d 935, 937 (1973) (“Municipal elections
are matters of local interest and not matters of statewide concern.”).
15
344 (in determining whether concern is statewide or local, court gives some deference to
statement of legislative intent).
¶26 Second, the legislative hearings make it clear that these amendments were
an attack on the city‟s form of government rather than any attempt to protect the state‟s
opportunity to bailout from the preclearance requirements of the VRA. And statements
during the hearings make it clear that Tucson is the only city to employ this system and
that the bill does not impact counties. Additionally, the record lacks any evidence that
the state intends to request that it be relieved from preclearance in the near future,6 any
information on other impediments to the state seeking a bailout, or any other facts
necessary for the legislature or this court to resolve whether a valid state interest exists.
¶27 Third, and most importantly, the amendments prohibit at-large elections
only when a city or town “provides for election of city or town council members by
district.” As explained above, the statute does not restrict the entirely at-large elections
that have been attacked as discriminatory by the Department of Justice. Therefore, the
amendments fail to support the purported justification based on the VRA.
6
It is worth noting that, in support of the United States Attorney General, the state
was a party to a recent amicus brief that emphasized the benefits of the Voting Rights
Act‟s preclearance requirements and argued against any assertion that those requirements
are onerous or burdensome. Brief for the States of N.C., Ariz., Cal., La., Miss. and N.Y.
as Amici Curiae Supporting Appellee, Nw. Austin Mun. Util. Dist. No. One v. Holder,
___ U.S. ___, 129 S. Ct. 2504 (2009) (No. 08-322), 2009 WL 815239.
16
Conclusion
¶28 In light of the foregoing, we reverse the trial court‟s grant of summary
judgment in favor of the state and remand the case for entry of summary judgment in
favor of the city.
/s/ Joseph W. Howard
JOSEPH W. HOWARD, Chief Judge
CONCURRING:
/s/ J. William Brammer, Jr.
J. WILLIAM BRAMMER, JR., Presiding Judge
E S P I N O S A, Judge, dissenting in part and concurring in part.
¶29 I respectfully disagree with my colleagues‟ narrow and, in my estimation,
somewhat parochial view of what constitutes a legitimate statewide interest with regard
to the integrity of Arizona‟s elections, as well as its conclusion that § 9-821.01(C) does
not advance that interest and the requirements of the federal Voting Rights Act (VRA).
Due to past voting inequities, Arizona is a “covered jurisdiction” under Section Five of
the Act and is one of only nine states subjected to additional scrutiny by the United States
Department of Justice (DOJ). See 28 C.F.R. pt. 51 app. Accordingly, as a covered
jurisdiction, before any law, ordinance, or regulation affecting voting in any of its
political subdivisions may be enacted or repealed, the state must either file a declaratory
judgment action in United States District Court for the District of Columbia or submit a
17
copy of the enactment to the United States Attorney General, along with explanations,
statements, and information required and suggested by 28 C.F.R. § 51.27, and then wait
for approval or denial. 42 U.S.C. § 1973c.7 As the majority acknowledges, in order to be
exempted from this preclearance requirement under the so-called “bailout” provision of
42 U.S.C. § 1973b, the state would be required to demonstrate that, for the last ten years,
neither it nor any of its political subdivisions had engaged in any discriminatory voting
practice, § 1973b(a), and that it had “eliminated voting procedures and methods of
election which inhibit or dilute equal access to the electoral process,” § 1973b(a)(1)(F).8
¶30 The majority does not truly dispute that satisfying the requirements of the
VRA would constitute a valid state interest. And it acknowledges that at-large elections
in other jurisdictions have been associated with voting abuses, including vote dilution and
voter discrimination. My colleagues conclude, however, that our legislature‟s expression
of the state‟s interest, § 9-821.01(C), does not “meaningfully support” the state‟s concern
7
Sections 51.27 and 51.28, 28 C.F.R., identify eighteen items that must be
submitted, including statements related to purposes and likely effects of proposed
changes, and eight supplemental submissions that are “most likely to be needed with”
complex proposals. The supplemental list includes, inter alia, demographic information,
records of media coverage, and specific election returns.
8
Contrary to the majority‟s assertion, the federal bailout provision was not merely
an unheralded “after-the-fact justification by skillful counsel,” but instead was prompted
by this court‟s preliminary draft decision, distributed to the parties in advance of oral
argument, in which it was observed that only the city, not the state, would be subject to a
federal action for a violation of voting rights perpetrated by the city. Moreover, although
the state may not have used the word “bailout” in its answering brief, it clearly referred to
the preclearance requirement of the Voting Rights Act (VRA) and Arizona‟s interest in
complying with that law.
18
because it is not “a blanket prohibition on at-large elections,” but rather is tailored to only
one type of at-large election.
¶31 In my view, this reasoning disregards the preventative obligation imposed
both by our state constitution and the VRA and thus misconstrues the state‟s interest here.
As noted above, in order to be relieved of the federal preclearance requirements by way
of the bailout provision, the state must demonstrate that neither it nor any political
subdivision had engaged in any discriminatory voting practice and show it has
“eliminated voting procedures and methods of election which inhibit or dilute equal
access to the electoral process.” §§ 1973b(a), 1973b(a)(1)(F). Here, through
§ 9-821.01(C), the legislature has responded to the only method of at-large voting in the
record, which is the method employed in Tucson. In so doing, it has acted to preempt
any finding that Tucson has engaged in any discriminatory voting practice through its at-
large voting system, a finding that would jeopardize the state‟s compliance with the Act
and eligibility for relief from the preclearance requirements of § 1973c. See § 1973b(a).
In addition, the legislature has acted to “eliminate[] voting procedures and methods of
election which inhibit or dilute equal access to the electoral process,” consistent with
article VII, § 12 of the Arizona Constitution, which provides: “There shall be enacted
registration and other laws to secure the purity of elections and guard against abuses of
the elective franchise” (emphasis added), and the showing required under the bailout
provision. § 1973b(a)(1)(F).
19
¶32 Although the legislature could have prohibited other hypothetical types of
at-large voting in addition to addressing an actual situation, it was not required to take
such steps under the mandates of the Act. See §§ 1973b(a), 1973b(a)(1)(F). Indeed, the
scrutiny federal authorities have given various at-large voting schemes in other states was
based on actual voting systems currently in place. See, e.g., Charleston County, 365 F.3d
at 343 (federal suit brought against Charleston County‟s at-large elections of county
council members; voting method alleged to have diluted minority voting strength); Blaine
County, 363 F.3d at 900 (government alleged Blaine County‟s “at-large voting system for
electing members to the County Commission prevent[ed] American Indians from
participating equally in the County‟s political process”); Vill. of Port Chester, 704
F. Supp. 2d at 416 (federal suit alleged Village of Port Chester‟s at-large voting system
for electing members of Port Chester Board of Trustees denied Hispanic population equal
opportunity to participate in political process and elect representatives of their choice).
¶33 Moreover, contrary to the majority‟s theory that the state cannot rely on an
interest relating to the VRA because “the statute does not restrict the entirely at-large
elections that have been attacked as discriminatory by the DOJ,” there is no meaningful
way to distinguish the potential discriminatory effect arising from entirely at-large
elections from the type of at-large elections taking place in Tucson because they both
employ the same potentially discriminatory method. See Growe v. Emison, 507 U.S. 25,
40 (1993) (“We have . . . stated on many occasions that . . . at-large plans . . . generally
pose greater threats to minority-voter participation in the political process than do single-
20
member districts . . . .”). Significantly, voting systems similar to the one employed in
Tucson have been the subject of VRA litigation. See, e.g., Badillo v. City of Stockton,
956 F.2d 884, 886-87 (9th Cir. 1992) (city council voting system used single-district
primary elections to advance two most successful candidates from each district to at-large
general election where all city voters selected which of the two nominees from each
district would serve on council; system “embod[ies] many of the classic devices for
reducing a minority‟s ability to elect representatives”).
¶34 Nor is the legislature prevented from later addressing other types of at-large
voting that may be implemented by Tucson or other cities. Thus, contrary to the
majority‟s reasoning, that § 9-821.01(C) does not contain a “blanket prohibition” of at-
large elections does nothing to undermine the fact that the legislation has furthered the
state‟s ability to guard against discriminatory election practices as well as comply with
the Act and qualify for its bailout provision.9 Stated differently, under the majority‟s
9
As the majority decision recognizes, whether the legislature articulates a specific
interest, or, as in this case, one that is sufficiently specific, is not dispositive of whether
the legislation in fact furthers a valid state interest. See City of Tucson, 191 Ariz. at 439,
957 P.2d at 344; cf. Lerma v. Keck, 186 Ariz. 228, 233, 921 P.2d 28, 33 (App. 1996) (in
determining whether legislation advances legitimate interest for purposes of equal
protection challenge, court may consider not only legislature‟s articulated purpose, but
any hypothetical basis for enacting legislation). Furthermore, while the majority gleans
from the legislative history a comment of one sponsor that appears to undermine the
expressed purpose of the statute‟s declaration of intent, it ignores the statements of
another, whose exhortations to legislative committees went to the heart of the issue here,
specifically invoking the potential for voting abuses under at-large elections and the
VRA. See Hearing on S.B. 1123 Before the H. Comm. on Judiciary, 49th Leg., 1st Reg.
Sess. (Ariz. June 25, 2009), http://azleg.granicus.com/MediaPlayer.php?view_id=16&
clip_id=5817, at 2:28-2:30 (statement of Sen. Jonathan Paton, co-sponsor of S.B. 1123);
Hearing on S.B. 1123 Before the S. Comm. on Judiciary, 49th Leg., 1st Reg. Sess. (Ariz.
21
reasoning, the state cannot protect and further its own interest by addressing a specific
potential harm of which it is aware unless, at the same time, it also addresses all types of
other potential and theoretical types of harm as well.
¶35 Because I conclude § 9-821.01(C) furthers valid state interests, and because
the majority does not reach the issue of whether the state‟s compliance with the bailout
provision is a legitimate statewide concern, I offer this additional discussion.
¶36 As noted earlier, both the Arizona Constitution and federal law serve as
incentives to our state legislature to prevent voting abuses. See Ariz. Const. art. VII, § 12
(“There shall be enacted registration and other laws to secure the purity of elections and
guard against abuses of the elective franchise.”); 42 U.S.C. § 1973b (outlining bailout
standards). Were the state able to meet the terms and added requirements of § 1973b it
could seek a declaratory judgment exempting it from the burdens of the preclearance
process required by § 1973c. See Nw. Austin Mun. Util. Dist. No. One, ___ U.S. at ___,
129 S. Ct. at 2508 (observing preclearance and bailout requirements impose “rigorous
conditions”).10 I see no reason why the state legislature, acting pursuant to its state
June 8, 2009), http://azleg.granicus.com/MediaPlayer.php? view_id=16&clip_id=5557, at
6-7 (same).
10
The majority‟s discovery of an unrelated 2009 amicus brief in which the former
Arizona Attorney General joined in describing the federal preclearance process as “not
plac[ing] an onerous burden on states” in view of its “allowing our Nation to make
substantial progress toward eliminating voting discrimination” in no way diminishes the
validity of this compelling state interest. Brief for the States of N.C., Ariz., Cal., La.,
Miss. and N.Y. as Amici Curiae Supporting Appellee, Nw. Austin Mun. Util. Dist. No.
One, ___ U.S. ___, 129 S. Ct. 2504 (No. 08-322), 2009 WL 815239, at *1. Moreover,
whenever preclearance is required, there is potential for significant burden and delay.
For example, in 2002, Arizona submitted a proposed redistricting plan to the Department
22
constitutional duty to protect elections, need wait for a challenge or pronouncement from
the federal government that the at-large voting system as practiced in Tucson is
discriminatory and constitutionally deficient before forbidding it. Indeed, in light of the
purposes of, and consequences under, the VRA, see 42 U.S.C. §§ 1973, 1973a, restricting
the state from enacting targeted legislation to prevent such a finding before it occurs
seems counterproductive and at odds with the spirit of federal and state efforts to protect
voting rights. Although the majority relies heavily on Strode, when there is a valid
statewide concern, as I believe to be the case here, Strode mandates that the statute
supersede the conflicting city charter.11 72 Ariz. at 363, 236 P.2d at 50; see also City of
Tucson, 191 Ariz. at 438, 957 P.2d at 343.
of Justice (DOJ) for preclearance, but a decision was delayed for months by the DOJ‟s
request for additional information. See Navajo Nation v. Ariz. Indep. Redistricting
Comm’n, 230 F. Supp. 2d 998, 1002-04 (D. Ariz. 2002). This meant that candidates, who
faced imminent deadlines for collecting signatures, qualifying for public contributions,
and filing petitions, did not know which district boundaries to use. Id. Affected parties
and entities appealed to the state legislature for assistance, which responded by enacting
an emergency measure addressing the situation. But this legislation also had to be
submitted to the DOJ for preclearance, leading to litigation in federal court. Id. The DOJ
ultimately denied the plan, and additional changes had to be adopted before it was finally
approved. Id. at 1004.
11
Although my colleagues repeatedly rely on our supreme court‟s language in
Strode that it could “conceive of no essentials more inherently of local interest or concern
to the electors of a city than who shall be its governing officers and how they shall be
selected,” 72 Ariz. at 368, 236 P.2d at 54, this 1951 case was decided over ten years
before the enactment of the VRA. Had this sweeping federal legislation, which made
states accountable for the voting practices of their political subdivisions, been in effect at
the time, it is possible, if not likely, the Strode court would have tempered some of its
broad language. In any event, Strode supports the result reached by the trial court here in
light of the legitimate state interest at stake. See id. at 363, 236 P.2d at 50. The
majority‟s additional citation to Triano, decided after passage of the VRA, is inapposite.
23
¶37 Because the at-large voting prohibition in § 9-821.01(C) was enacted
pursuant to a strong statewide interest informed by federal law and state constitutional
mandate, Tucson‟s city charter does not trump § 9-821.01(C). Accordingly, the trial
court did not err in so finding and I would affirm this portion of its order granting
summary judgment.
/s/ Philip G. Espinosa
PHILIP G. ESPINOSA, Judge
Triano dealt with candidates‟ residency requirements and did not implicate the state‟s
compliance with federal law. 109 Ariz. at 508, 513 P.2d at 937.
24