Cite as: 519 U. S. 9 (1996)
Opinion of the Court
Art. VI, § 1 (1988). A few years later, California voters eliminated justice courts altogether. Art. VI, §§ 1, 5(b).)
Each of the municipal and justice courts operated separately and independently. Judges for each court were elected at large by the voters of their respective districts, and they served only the judicial district in which they were elected. The municipal and justice court districts varied widely in population and judicial workloads. For example, a 1972 survey showed that the Monterey-Carmel Municipal Court District had a population of 106,700, with more than enough work for two full-time judges. By contrast, the San Ardo Justice Court District had a population of 3,500, with a caseload that required less than a quarter of one judge's time.
Between 1972 and 1983, the County adopted six ordinances, which ultimately merged the seven justice court districts and the two municipal court districts into a single, countywide municipal court, served by nine judges whom County residents elected at large. (At present, 10 judges serve on the municipal court.) Each judge was elected to serve for a term of six years. Judicial elections were conducted under various interim schemes in 1974, 1976, 1978, and 1982. Additionally, the County conducted at-large, countywide judicial elections in 1986, 1988, and 1990.
The County's reorganization of its inferior court system took place against a backdrop of state laws governing the general administration and organization of state courts. State law authorizes a county board of supervisors, "[a]s public convenience requires, . . . [to] divide the county into judicial districts for the purpose of electing judges . . . ." Cal. Govt. Code Ann. § 71040 (West 1976). The board also "may change district boundaries and create other districts." Ibid.; see also Cal. Govt. Code Ann. § 25200 (West 1988) ("The board of supervisors may divide the county into election . . . and other districts required by law, change their boundaries, and create other districts, as convenience re-
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