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“§5 [of the 14th Amendment] does not grant Congress power to exercise discretion in the other direction and to enact ‘statutes so as in effect to dilute equal protection and due process decisions of this Court.’ We emphasize that Congress’s power under §5 is limited to adopting measures to enforce the guarantees of the Amendment; §5 grants Congress no power to restrict, abrogate, or dilute these guarantees.” J. Brennan, Katzenbach v. Morgan, 384 U.S. 641 (1966).