Attorney Notes Pages 1688, 1690, 1703

    //.w
OMr.RnyNor,os.$Iell,Ithinkthattheef|ecJstestinsectionS,asl
tried to indicate earlier, has twoJrlngs, I do not-think the effects

test of section 5 in the 
"uuppo'ti5'mjnt 

are-a would be similar to

the effects ilii ir'i"rt;;-.;-dE;t;6na under section 2. That is a

test of ,,retrogTession.,, It talks;i'd; """i"*i"g 
chanses. measured

by what *;i;"}'l'# di.#i,;,*p;i";;the crrailee; if 
"there is a dif-

ference, " 
;t*fi;;;oi'^iii tir"'*i"oriti i"p""s6ntation from what

was in pr.J.iil"r?il iir?.i;;fi; to *t'Li"*""t!e1e. after the change,

then you .i" fu,i ":r.i;i;f 
t# s;liilB t"rt I think that proposed

section 2 is not a "retrogre"tio'";i t'-tqt,. in that we often will not

have a frame of referenc" "g"i**t 
*ttict' to compare what is being

scrutinized
We are'not just talking about changes I+'deT section 2' We are

also talking about systems or.?oii'i'i""t lhqt are in place' and

have been in place, for a consr&-rabl,e period of time: therefore the

measurement^is not ,,retr_ogreiiion;-6ut a m_eaF*r-Ing of election
,,results,, ii'i"J-iiii pi,i,if-iffi pelcentagesr ! jh]nk that involves

a different ii":ffi iL-rra-u"a ttrariwt g"-y5, ]ook only at a discrete

change ""a't"" 
ttt" pe1o"" ald after of that-change'

On the other hand, in revierfrni """"i"Uo"s 
inder section 5, the

courts h.#;il'i?r*ii"rv .d*ffit"4--1-["--t i:,a. of standard that I
think would be closer to ',rtr.iloi-*L"ta n"a in a section 2 "ef-

fects,, t ri:"ffi;;i"rr1v"r,itn*i,o'i""'*t "it 
e. an annexation does

indeed change the voting "t"""iri or ttie minorities in the particu-

Iar area ffiBi;i; ;;['ffi e;i;:; trh;I 
'iGv 

look to see whether the

p"oportio.,"i t"ii""i*"tio" JF [ii"- "iiiiotltv- 
gro'o remains the

same after annexation as it-wL #L;'i thiitt"tf'"ii" the analysis

applied #;;i;;6-;; ahJ*;;-d L-"""y close to the analvsis

"iE would """ ""a"" 
a gection 2 efrer,t' cac'f

J-cro--
.Mr.RryNoI.os.Well,Ithinkoneofthedifl.erencesLcLll'1rlrrg
proponents of tt" effec; teet r*[-t" aln"" thetesi as if it i-s going

to be used i; i;;;;';i-ti" ziyr^.r-fu"to.r, and that line of cases;

they there#"*.;il";i t'fi if ;;.;;tt" t*\ji it under those

criteria, the effecls test would i''oi teaa to proportional representa'

tion. The concerns we have "b.;; 
th;;igu;"'"t is that' if you look

at the House report' it does e"'y ;ih &1'1' of the Zimmer fac'

tors a-< uein"e *ifiilt';-ir" iti"l,.v''"a it'" \1lry"n" in section 2'

the effects test, does not speakio iny particular st8;dard or crite
ria, but ri*;iy';iil;ili'"1"d;;;*ll;. I think that, therefore,

the standard that we are gor"g tJ-f" a""ti"s v'ith-is something far

;;;;''"dr';;ffi ;;;;a;'etha:"dff;"f i;:";l;Tti,l:i:,}q"#sugge.ti"g would 
-be Put in Plt

that a result or effects test can-# fr""t"d iruch more neatly with

the title \r[I 
".ea 

of law ana yritr ruii"* of an-nexations under the

section b "H;;"G;. 
i-ifri"i. tfraiG *here the discrepancv.Iies' .,

The concera is that the courh are not' going to look to the

Zimmcr.;L.i" L[tt"ptf'"-tg' Lut they.will Ioolito an effects test

"t 
p"ii" pl";; i" ;i"itti f'"hiot' under title VII'
r.,te"estiir?ji;;Gii, q;d;; Titi; vII ihe legislative history said

clearly that-il was irot intended-L Fryi, t-he,,use of quotas in

terms of employment decisions; V"i-tt"t t exactly'where the law

went. I t{ilt';;h;;iir; ;"-d co.,c"rn here with respect to an

effects t 
"1j-r1i"1 

;;;ii;;J 6-*tih-quotas in th; electoral

Process't
aa.

.SenatorHATotr.Undert}re-reeultst€st.abouttheontl-ao!.Ice
which *orifr"fir"i^iit'U"i ir iii rt ti"tio t*t.Uud, if vou have a

lack of proportional r-epresenta;ion and an at-Iarge district' you

had better reconsider that- system' r[4;-fl;;;;:j;; t#tfdd.r*,t]",q1r9't Pq:.:-, *,.^+ ic

r senator Hercn. In othJr *ord", tiere is no standard. ThiF is nor

" 
tfft*;. 

It is ,,ot a standard until you reduce it to a stst*
tical formula, at which point it 

*iiiiJ 
"".i"t "presentation 

equa]s

discrimination.l

1703

oMr. Rrvuolos. Certainly that would be a consideration. I think
that one of the concerns, if we are talking about a test that leads to
a proportional representation, is that from a political science stand-
point we are encouragrng rather than discouraglng the notion that
blacks vote for blacks and whites vote for whites and in so doing I
think you wind up in the long run, if that becomes a standard,
doing a disservice to the minority community rather than serving
it. That certainly is one of the adverse effects of this kind of a test.o