## Facts

- New York law permitted a county to adopt a new county charter by referendum only if approved by separate majorities of (1) voters residing in cities within the county and (2) voters residing outside the cities.
- Niagara County submitted a proposed county charter to voters under this dual-majority scheme.
- A countywide majority of all voters favored the proposed charter.
- The charter nonetheless failed because it did not obtain a majority among noncity voters, even though city voters approved it.
- County voters and an organization challenged the dual-majority requirement in federal court as violating the Equal Protection Clause by diluting votes based on residence.
- A three-judge district court held the concurrent-majority requirement unconstitutional and invalidated the provisions.
- Local government entities and officials appealed directly to the U.S. Supreme Court.

## Issues

1. Whether requiring separate majority approval by city voters and noncity voters to adopt a county charter violates the Equal Protection Clause by impermissibly weighting votes based on place of residence.
2. Whether “one person, one vote” principles applicable to elections for representative bodies control the constitutionality of a referendum on local governmental reorganization.

## Decision

- The Supreme Court reversed the district court and upheld New York’s concurrent-majority requirement.
- The Court held that the Equal Protection Clause does not forbid a state from conditioning a county charter’s adoption on separate majorities of city and noncity voters.
- The Court declined to apply the strict “one person, one vote” approach used in legislative apportionment cases, treating the referendum as a vote on governmental structure rather than representation.
- The Court concluded the city/noncity classification was justified because residents of these territorial units could be directly and differentially affected by a charter reallocating governmental authority among overlapping local entities.

## Legal Principles

- Equal protection vote-weighting rules developed for electing representatives do not automatically apply with the same force to referenda on restructuring local government.
- A state may require concurrent majorities of territorially defined groups in a governmental reorganization referendum when the groups have distinct interests affected by the proposed change.
- Residence-based classifications in this setting are constitutional if rationally related to legitimate state objectives, such as accounting for differing impacts of shifting authority among counties, cities, towns, and villages.

## Conclusion

The Court held that New York may require separate majority approval by city and noncity voters before a county charter takes effect because the referendum concerned governmental structure, and the territorial classification rationally reflected differing stakes in local reorganization under the Equal Protection Clause.


Town of Lockport v. Citizens for Cmty. Action at the Local Level, Inc., 430 U.S. 259 (1977)