“The VRA was nevertheless a seismic shift in thought, action, and execution for the U.S. government when compared with the Civil Rights Act of 1957 and its equally enfeebled companion legislation of 1960. Rather than passively waiting for locales to violate the rights of American citizens and then sitting still until those who had been routinely brutalized by this system made a formal complaint, the VRA put the responsibility for adhering to the Constitution onto state and local governments.”