BILL NUMBER: AB 280 AMENDED
BILL TEXT
AMENDED IN SENATE JUNE 18, 2014
AMENDED IN SENATE MAY 28, 2014
AMENDED IN SENATE SEPTEMBER 6, 2013
AMENDED IN SENATE JUNE 17, 2013
AMENDED IN ASSEMBLY MAY 15, 2013
AMENDED IN ASSEMBLY APRIL 11, 2013
INTRODUCED BY Assembly Member Alejo
( Principal coauthor: Senator
Padilla )
FEBRUARY 11, 2013
An act to add Chapter 5 (commencing with Section 400) to Division
0.5 of the Elections Code, relating to elections.
LEGISLATIVE COUNSEL'S DIGEST
AB 280, as amended, Alejo. Voting rights : preclearance
.
Existing law, the federal Voting Rights Act of 1965, provides that
a change in voting procedures may not take effect in a state or
political subdivision that is covered by the preclearance
requirements of the federal act until the change is approved by a
specified federal authority. A state or political subdivision is
covered by the preclearance requirements of the federal act if it
maintained a specified test or device as a prerequisite to voting,
and had low voter registration or turnout, in the 1960s and early
1970s. The federal act allows a state or political subdivision
covered by the act to obtain an exemption from the preclearance
requirements if it satisfies specified criteria. The United States
Supreme Court has held that the coverage formula of the federal act
is unconstitutional and may not be used as a basis for requiring a
jurisdiction to subject a proposed change in voting procedures to
federal preclearance. Prior to that holding, the Counties of Kings,
Monterey, and Yuba were covered jurisdictions subject to the federal
preclearance requirements.
This bill would establish a state preclearance system applicable
only to the Counties of Kings, Monterey, and Yuba. Under this system,
if a county enacts or seeks to administer a voting qualification or
prerequisite to voting, or a standard, practice, or procedure with
respect to voting, that is different from that in force or effect on
June 25, 2013, the county elections official would be required to
submit the qualification, prerequisite, standard, practice, or
procedure to the Attorney General for approval. This bill would
require the Attorney General to approve the qualification,
prerequisite, standard, practice, or procedure only if it neither has
the purpose nor will have the effect of denying or abridging the
right to vote on account of membership in a protected class, as
defined. This bill would provide that the qualification,
prerequisite, standard, practice, or procedure shall not take effect
or be administered in the county until the county receives the
approval of the Attorney General. The bill would allow the county to
seek review of the Attorney General's decision by means of an action
filed in the Superior Court of Sacramento. The bill would allow a
county to obtain an exemption from the state preclearance system if
it satisfies specified criteria. The bill would repeal these
provisions as of January 1, 2019. By requiring specified counties to
seek approval of the Attorney General for changes to voting
procedures, this bill would impose a state-mandated local program.
This bill would make legislative findings and declarations as to
the necessity of a special statute for the Counties of Kings,
Monterey, and Yuba.
This bill would establish a state preclearance system. Under this
system, if a political subdivision enacts or seeks to administer a
voting-related law, regulation, or policy, as specified, that is
different from that in force or effect on the date this act is
enacted, the governing body of the political subdivision would be
required to submit the law, regulation, or policy to the Secretary of
State for approval. The bill would require the Secretary of State to
approve the law, regulation, or policy only if specified conditions
are met. The bill would provide that the law, regulation, or policy
shall not take effect or be administered in the political subdivision
until the law, regulation, or policy is approved by the Secretary of
State. The bill would allow the governing body of the political
subdivision to seek review of the Secretary of State's decision by
means of an action filed in the Superior Court of Sacramento. By
requiring local governments to seek approval of the Secretary of
State for changes to voting procedures, this bill would impose a
state-mandated local program.
The California Constitution requires the state to reimburse local
agencies and school districts for certain costs mandated by the
state. Statutory provisions establish procedures for making that
reimbursement.
This bill would provide that, if the Commission on State Mandates
determines that the bill contains costs mandated by the state,
reimbursement for those costs shall be made pursuant to these
statutory provisions.
Vote: majority. Appropriation: no. Fiscal committee: yes.
State-mandated local program: yes.
THE PEOPLE OF THE STATE OF CALIFORNIA DO ENACT AS FOLLOWS:
SECTION 1. Chapter 5 (commencing with Section 400)
is added to Division 0.5 of the Elections Code
, to read:
CHAPTER 5. STATE PRECLEARANCE
400. For purposes of this chapter, the following terms have the
following meanings:
(a) "Citizen" means a citizen of the United States.
(b) "Citizen voting-age population" means the population of
citizens who are 18 years of age or older within a political
subdivision, as calculated by the United States Census Bureau in the
most recent federal decennial census.
(c) "Electoral jurisdiction" means a geographic area within which
reside the voters who are qualified to vote for an elective office.
(c) "Multilingual voting materials" means registration or voting
notices, forms, instructions, assistance, or other materials or
information relating to the electoral process, including ballots,
provided in the language of one or more language minority groups.
(d) "Political subdivision" means a geographic area of
representation created for the provision of government services,
including, but not limited to, a city, a school district, a community
college district, or other district organized pursuant to state law.
(e) "Protected class" means a class of voters who are members of a
race, color, or language minority group, as this class is referenced
and defined in the federal Voting Rights Act of 1965 (42 U.S.C. Sec.
1971 et seq.).
(f) "Voting locations" means places for casting a ballot.
401. To ensure that the right of citizens who reside in
California to vote is not denied or abridged on account of race,
color, or language minority status through the enforcement of a
voting-related law, regulation, or policy that is enacted or
administered after the enactment date of this chapter, the following
voting-related laws, regulations, and policies shall be subject to
this chapter:
(a) A change to an at-large method of election that adds offices
elected at-large or converts offices elected by single-member
districts to one or more at-large or multi-member districts.
(b) A change to the boundaries of an electoral jurisdiction or a
series of changes within a year to the boundaries of an electoral
jurisdiction that reduces the size of the citizen voting-age
population of a protected class by 3 or more percent.
(c) A change through redistricting that alters the boundaries of
an electoral jurisdiction in which a protected class has experienced
a population increase of at least 10,000 citizens or 20 percent of
the citizen voting-age population over the preceding decade, as
determined by the five-year estimates of the United States Census
American Community Survey.
(d) A change to voting locations that reduces, consolidates, or
relocates one or more voting locations, including an early, absentee,
or election-day voting location, and results in a net loss, on a per
voter basis, of voting locations in 20 percent of the total number
of census tracts in a political subdivision with the highest
proportion of voters from a protected class that represents at least
20 percent of the citizen voting-age population in the political
subdivision, provided that the net loss is greater than the net loss
resulting from the changes in 20 percent of the total number of
census tracts in a political subdivision with the highest proportion
of voters of any other protected class that represents at least 20
percent of the citizen voting-age population in the political
subdivision.
(e) A change to multilingual voting materials that reduces the
voting materials available in languages other than English, or alters
the manner in which the materials are provided or distributed, if no
similar reduction or alteration occurred in materials provided in
English.
402. (a) If a political subdivision enacts or seeks to administer
a voting-related law, regulation, or policy described in Section 401
that is different from that in force or effect on the date the act
adding this section is enacted, the governing body of the political
subdivision shall submit the law, regulation, or policy to the
Secretary of State for approval. The law, regulation, or policy shall
not take effect or be administered in the political subdivision
until the law, regulation, or policy is approved by the Secretary of
State.
(b) The Secretary of State shall provide a written decision to the
governing body of the political subdivision within 60 days of a
request to enact or administer a voting-related law, regulation, or
policy described in Section 401. If the Secretary of State fails to
provide a written decision within 60 days, the governing body of the
political subdivision may implement the law, regulation, or policy.
The governing body of the political subdivision may make a written
request for an expedited review of a law, regulation, or policy if
the political subdivision has a demonstrated need to implement the
proposed change before the end of the 60-day review period. The
written request shall describe the basis for the request in light of
conditions in the political subdivision and shall specify the date by
which a decision is needed. The Secretary of State shall attempt to
accommodate a reasonable request.
(c) The governing body of the political subdivision shall have the
burden of establishing, by objective and compelling evidence, that
the law, regulation, or policy satisfies both of the following:
(1) Is not likely to result in a discriminatory effect on the
participation of voters from a protected class that constitutes at
least 20 percent of the political subdivision's citizen voting-age
population.
(2) Is not motivated in whole or substantially in part by an
intent to reduce the participation of voters from a protected class.
(d) If the Secretary of State denies a request to enact or
administer a law, regulation, or policy, the governing body of the
political subdivision may seek review of the decision by means of an
action filed in superior court.
(e) The Secretary of State may file suit to enjoin the governing
body of a political subdivision from implementing a law, regulation,
or policy in violation of this section.
(f) Venue for an action filed pursuant to subdivision (d) or (e)
shall lie exclusively in the Superior Court for the County of
Sacramento.
403. A political subdivision with two or more protected classes
that each represent 20 percent of the citizen voting-age population
shall not implement a previously enacted or adopted voting-related
law, regulation, or policy described in Section 401 that has not yet
been implemented, unless the law, regulation, or policy is approved
pursuant to Section 402.
404. (a) The Attorney General, or a registered voter who resides
in a political subdivision where the change to a voting-related law,
regulation, or policy occurred, may file an action in superior court
to compel the political subdivision to satisfy the obligations set
forth in this chapter.
(b) In an action brought pursuant to this section, a court shall
provide as a remedy that the voting-related law, regulation, or
policy be enjoined unless the court determines that the law,
regulation, or policy is not subject to this chapter or has been
precleared by the procedures established in Section 402.
405. For purposes of this chapter, any data provided by the
United States Census Bureau, whether based on enumeration or
statistical sampling, shall not be subject to challenge or review by
any court.
SEC. 2. If the Commission on State Mandates
determines that this act contains costs mandated by the state,
reimbursement to local agencies and school districts for those costs
shall be made pursuant to Part 7 (commencing with Section 17500) of
Division 4 of Title 2 of the Government Code.
SECTION 1. The Legislature finds and declares
all of the following:
(a) The United States Congress enacted the federal Voting Rights
Act of 1965 (42 U.S.C. Sec. 1971 et seq.) to address the numerous
obstacles and barriers that had been erected by many states and local
governments to prevent the free exercise of the right to vote and to
participate on an equal basis in the electoral process by members of
racial minorities.
(b) Section 4 of the federal act provides a coverage formula
identifying jurisdictions with histories of discriminatory voting
practices. Under the coverage formula, a covered jurisdiction is a
state or political subdivision that maintained a specified test or
device as a prerequisite to voting, and had low voter registration or
turnout, in the 1960s and early 1970s. Section 4 prohibits a covered
jurisdiction from denying a person the right to vote because of his
or her failure to comply with that test or device.
(c) Section 5 of the federal act requires federal approval before
a covered jurisdiction may enact or seek to administer any voting
qualification or prerequisite to voting, or standard, practice, or
procedure with respect to voting. This approval process is known as
"preclearance." A jurisdiction may obtain preclearance only by
proving that the change has neither the purpose nor the effect of
denying or abridging the right to vote on account of race or color.
(d) In this state, the Counties of Kings, Monterey, and Yuba were
each identified as a covered jurisdiction for purposes of federal
preclearance, which required each county to receive federal approval
for a proposed change to its voting procedures.
(e) Sections 4 and 5 of the federal act have contributed to the
immense progress in protecting and expanding the right to vote over
the past few decades by ensuring that state and local election
practices are just and fair.
(f) Recently, in Shelby County v. Holder (2013) 133 S.Ct. 2612,
the United States Supreme Court held that the coverage formula in
Section 4 of the federal act is unconstitutional in violation of the
Tenth Amendment to the United States Constitution and can no longer
be used as a basis for requiring jurisdictions to subject proposed
changes in voting procedures to federal preclearance. As a result, a
covered jurisdiction will no longer be required to submit proposed
changes to its voting procedures for federal preclearance, leaving
states and political subdivisions that have histories of voter
discrimination without safeguards to protect against discriminatory
voting practices.
(g) In an effort to remedy the abrupt ending to the federal
preclearance safeguards against discriminatory voting practices, this
bill establishes a state preclearance system, under which the
Counties of Kings, Monterey, and Yuba must receive the approval of
the state Attorney General before a change to voting procedures may
take effect in that county.
(h) It is the intent of the Legislature in enacting this act that
the preclearance safeguards against discriminatory voting practices
under the federal Voting Rights Act of 1965 (42 U.S.C. Sec. 1971 et
seq.) that existed before the ruling in Shelby County v. Holder
remain in effect in the Counties of Kings, Monterey, and Yuba until
the United States Congress updates the coverage formula of the
federal act.
(i) This act shall not be construed to suggest that a county shall
not be subject to a federal preclearance system enacted at a future
date if the county is able to obtain an exemption from the state
preclearance system pursuant to this act.
SEC. 2. Chapter 5 (commencing with Section 400)
is added to Division 0.5 of the Elections Code, to read:
CHAPTER 5. STATE PRECLEARANCE
400. This chapter applies only to Kings County, Monterey County,
and Yuba County.
401. For purposes of this chapter, the following terms have the
following meanings:
(a) "Minority" means a person who is a member of a protected
class.
(b) "Protected class" means a class of voters who are members of a
race, color, or language minority group, as this class is referenced
and defined in the federal Voting Rights Act of 1965 (42 U.S.C. Sec.
1971 et seq.).
(c) "Test or device" means any requirement that a person as a
prerequisite for voting, or registration for voting, demonstrate the
ability to read, write, understand, or interpret any matter,
demonstrate any educational achievement or his or her knowledge of
any particular subject, possess good moral character, or prove his or
her qualifications by the voucher of registered voters or members of
any other class.
402. (a) If a county enacts or seeks to administer a voting
qualification or prerequisite to voting, or a standard, practice, or
procedure with respect to voting, that is different from that in
force or effect on June 25, 2013, the county elections official shall
submit the qualification, prerequisite, standard, practice, or
procedure to the Attorney General for approval. The Attorney General
shall approve the qualification, prerequisite, standard, practice, or
procedure only if it neither has the purpose nor will have the
effect of denying or abridging the right to vote on account of
membership in a protected class. The qualification, prerequisite,
standard, practice, or procedure shall not take effect or be
administered in the county until the county receives the approval of
the Attorney General.
(b) The Attorney General shall provide a written decision to the
county within 60 days of a request to enact or administer a voting
qualification or prerequisite to voting, or a standard, practice, or
procedure with respect to voting. If the Attorney General fails to
provide a written decision within 60 days, the county may implement
the qualification, prerequisite, standard, practice, or procedure. A
county may make a written request for an expedited review of the
qualification, prerequisite, standard, practice, or procedure if the
county has a demonstrated need to implement the proposed change
before the end of the 60-day review period. The written request shall
describe the basis for the request in light of conditions in the
county and specify the date by which a decision is needed. The
Attorney General shall attempt to accommodate a reasonable request.
(c) The county shall have the burden of establishing, by objective
and compelling evidence, that the qualification, prerequisite,
standard, practice, or procedure has neither the purpose nor will
have the effect of denying or abridging the right to vote on account
of membership in a protected class.
(d) If the Attorney General denies a request to enact or
administer a qualification, prerequisite, standard, practice, or
procedure, the county may seek review of the decision by means of an
action filed in superior court.
(e) The Attorney General may file suit to enjoin a county from
implementing a qualification, prerequisite, standard, practice, or
procedure in violation of this section.
(f) Venue for an action filed pursuant to subdivision (d) or (e)
shall lie exclusively in the Superior Court of the County of
Sacramento.
403. (a) Section 401 shall not apply to a county that obtains a
declaratory judgment pursuant to this section from the Superior Court
of the County of Sacramento.
(b) To obtain a declaratory judgment pursuant to this section, a
county shall demonstrate, by objective and compelling evidence, that
during the 10 years preceding the filing of the action, and during
the pendency of the action, the county has satisfied all of the
following:
(1) A test or device has not been used within the county for the
purpose of, or with the effect of, denying or abridging the right to
vote on account of membership in a protected class.
(2) Any change by the county to a voting qualification or
prerequisite to voting, or a standard, practice, or procedure with
respect to voting, has been approved under Section 5 of the federal
Voting Rights Act of 1965 (42 U.S.C. Sec. 1971 et seq.) or Section
401 of this code before its implementation.
(3) A change by the county affecting a voting qualification or
prerequisite to voting, or a standard, practice, or procedure with
respect to voting, has not been the subject of an injunction obtained
by the United States Attorney General or the state Attorney General
or a denial of a declaratory judgment under Section 5 of the federal
Voting Rights Act of 1965 (42 U.S.C. Sec. 1971 et seq.) or this
section.
(4) There have been no judgments adverse to the county in lawsuits
alleging voting discrimination on account of membership in a
protected class.
(5) There have been no consent decrees or settlement agreements
that resulted in the abandonment by the county of a discriminatory
voting practice on account of membership in a protected class.
(6) There are no pending lawsuits against the county that allege
voting discrimination on account of membership in a protected class.
(7) Federal examiners or observers have not been assigned in the
county under the federal Voting Rights Act of 1965 (42 U.S.C. Sec.
1971 et seq.).
(8) There have been no violations by the county, as determined by
a court of law, of the Constitution or federal, state, or local laws
with respect to discrimination in voting on account of membership in
a protected class, unless the county establishes that the violation
was trivial, promptly corrected, and not repeated.
(9) Voting procedures and methods of election in the county that
inhibit or dilute equal access to the electoral process have been
eliminated.
(10) Constructive efforts have been made by the county to
eliminate intimidation and harassment of persons seeking to register
and vote, to expand opportunities for voter participation, including,
but not limited to, opportunities for registration and voting, and
to appoint minority officials throughout the county and at all levels
and stages of the electoral process.
(c) To assist the court in determining whether to issue a
declaratory judgment under this section, the county shall present
evidence of minority participation, including evidence of the levels
of minority group registration and voting, changes in the levels over
time, and disparities between minority-group and non-minority-group
participation.
(d) A county seeking a declaratory judgment under this section
shall publicize the intended commencement and any proposed settlement
of the action in the media serving the county and in the United
States post offices located in the county.
(e) A county seeking a declaratory judgment under this section
shall establish that every city, town, school district, or other
political subdivision within its boundaries has satisfied the
requirements of this section.
(f) Any aggrieved party may as of right intervene at any stage in
an action under this section. An appeal from an action under this
section shall be made directly to the California Supreme Court.
(g) This section shall not prohibit the Attorney General from
consenting to entry of a declaratory judgment if, based upon a
showing of objective and compelling evidence by the county, and upon
investigation, the Attorney General is satisfied that the county has
complied with the requirements of this section.
404. This chapter shall remain in effect only until January 1,
2019, and as of that date is repealed.
SEC. 3. The Legislature finds and declares that
a special law is necessary and that a general law cannot be made
applicable within the meaning of Section 16 of Article IV of the
California Constitution because of the history of discriminatory
voting practices in the Counties of Kings, Monterey, and Yuba.
SEC. 4. If the Commission on State Mandates
determines that this act contains costs mandated by the state,
reimbursement to local agencies and school districts for those costs
shall be made pursuant to Part 7 (commencing with Section 17500) of
Division 4 of Title 2 of the Government Code.