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OggggO Ahhhh, you are getting to the heart of the matter. Bad-ass Republicans tried to pass it but didn't have the votes. Democrats however wanted it to pass in hope that it would send Hispanic Americans into an anti-Republican rage. At that time in history, Democrats thought that they owned the Hispanic vote, much like they owned the Black vote. Many Hispanics likewise had considered the Democrats as their avenue to their piece of the American pie. Hispanic political organizations, like LULAC, were seen in the same light as the NAACP, minority subsidiaries of the Democrat party. So to put 4437 into action and send the Hispanics into a rage, enough Democrat house members voted for it and it passed.
But then it backfired. Many of the Hispanic leaders saw it as a betrayal by the Democrat; that the Democrats were far more interested in promoting a race war than they were in bringing America together. Quite a few Hispanic leaders were publicly vocal about the betrayal and those Hispanics that told them to shut-up were tagged as being more beholding to the Democrat party than they were to their Hispanic communities.
And that's where Sam Brownback earned his wings. Sam had denounced 4437 since its inception and publicly supported Kansas's Hispanic communities ... many of which are rooted in the railroad days, but had to fight segregation issues as bad as what blacks had to fight. So between the Racist Republicans and betraying Democrats, Sam Brownback was the only politician to be trusted.