Document: 397 U.S. 50 90 S.Ct. 791 25 L.Ed.2d 45 Della HADLEY et al., Appellants,v.The JUNIOR COLLEGE DISTRICT OF METROPOLITAN KANSAS CITY, MISSOURI, al. No. 37. Argued Nov. 10, 1969. Decided Feb. 25, 1970. Irving Achtenberg, Kansas City, Mo., for appellants. William J. Burrell, and Louis C. DeFeo, Jr., Jefferson appellees. Mr. Justice BLACK delivered the opinion of Court. 1 This case involves extent to which Fourteenth Amendment 'one man, one vote' principle apply in election local governmental officials. Appellants are residents taxpayers City School District, eight separate school districts that have combined form Junior College District Metropolitan City. Under Missouri law may vote by referendum establish a consolidated junior college district elect six trustees conduct manage necessary affairs district.1 The state also provides these shall be apportioned among on basis 'school enumeration,' defined as number persons between ages 20 years, who reside each district.2 In this apportionment plan results three trustees, or 50% total from district. Since contains approximately 60% enumeration district,3 appellants brought suit claiming their right was being unconstitutionally diluted violation Equal Protection Clause Amendment. Supreme Court upheld trial court's dismissal suit, stating not applicable case. 432 S.W.2d 328 (1968). We noted probable jurisdiction appeal, 393 1115, 89 991, 22 120 (1969), reasons set forth below we reverse hold requires manner does deprive any voter his own given much weight, far is practicable, other 2 Wesberry v. Sanders, 376 1, 84 526, 11 481 (1964), held Constitution 'as nearly practicable man's congressional worth another's.' Id., at 7—8, 530. Because requirement struck down Georgia statute allowed glaring discrepancies populations State's districts. Reynolds Sims, 377 533, 1362, 12 506 companion cases,4 considered laws had legislatures way again showed people lived different legislative districts, an elaborate called attention prior cases indicating qualified has constitutional elections without having wrongfully denied, debased, diluted. Ex parte Siebold, 100 371, L.Ed. 717 (1880); Yarbrough, 110 651, 4 152, 28 274 (1884); United States Mosley, 238 383, 35 904, 59 1355 (1915); Guinn States, 347, 926, 1340 Lane Wilson, 307 268, 872, 83 1281 (1939); Classic, 313 299, 61 1031, 85 1368 (1941). Applying basic Wesberry, therefore various schemes denied some voters guaranteed votes same weight voters. Finally, Avery Midland County, 390 474, 88 1114, (1968), applied Texas county commissioners, holding counted with substantially where elected officials exercised 'general powers over entire geographic area served body.' 485, 1120. 3 argue general under State thus required apportion according population equal basis, practicable. since can levy collect taxes, issue bonds certain restrictions, hire fire teachers, make contracts, fees, supervise discipline students, pass petitions annex acquire property condemnation, operations college,5 equivalent, purposes, those commissioners Avery. feel powers, while fully broad County Commissioners,6 certainly show perform important functions within think enough sufficient impact throughout justify conclusion should here. consistently long series cases,7 situations involving elections, insure person's counts much, insofar it person's. elections. consistent theme decisions protected against dilution debasement. While particular offices involved varied, constant factor decision government citizens participate individually ballot selection carry out functions. Thus now before us, office trustee differs respects cases, exactly crucial factor—these popular vote. 5 When court asked decide whether give power open all, there no discernible, valid reason why distinctions drawn purpose election. If less through unequal apportionment, voting participation impaired just when he board member legislator. differences officials, consideration footing process. It remembered like they treatment, perspective harm treatment election, regardless selected. 6 were determining deciding entitled power, courts would faced difficult job distinguishing cannot readily perceive judicially manageable standards aid such task. might suggested only 'important' but good judgment common sense tell us what vital well routine another. instances sheriff more than Senator. importance choosing official, select official strong indication choice one. so because our country traditionally been method followed most desired. 7 urged distinguish purposes 'legislative' 'administrative' Such suggestion leave equally unmanageable activities 'cannot easily classified neat categories favored civics texts,' Avery, supra, 482, 1119, must rejected. today rule, whenever decides functions, opportunity members body chosen established will insure, numbers proportionally course possible elects functionaries whose duties removed normal disproportionately affect groups compliance Reynolds, required, see nothing present indicates fit category. Education function opened all voters, every relevant term. 8 already reflected statute. That act if component 33 1/3% district, then large. If, however, enumeration, two rest large remaining Similarly, 66 2/3% four trustees.8 scheme allocates increasingly represent increasing proportion enumeration. 9 Although statutory reflects comport requirements. Act necessarily systematic discrimination populous occurs district's percentage falls range always allocated corresponding bottom range. Unless 1/3%, 50%, fewer small As pointed out, entitles trustees. frequently effective never more. built-in sustained mandate count another's, Consequently allocate formula employed case.9 question deviation presented resulted did contain bias favor rather inherent mathematical complications apportioning limited said exactitude 18, 535, 577, 1389; automatically discriminate is. 10 guarantee strength applies do inhibited finding ways legitimate political goals representation achieved. previously challenge candidates people. Dusch Davis, 387 112, 87 1554, 18 656 (1967). large, treatment.10 chooses appointment itself offend Constitution, fact 'represent' deny protection laws. Sailors Board Education, 105, 1549, 650 (1967); cf. Fortson Morris, 385 231, 446, 17 330 (1966). And may, limit group class before, '(v)iable governments need many innovations, numerous combinations old new devices, great flexibility municipal arrangements meet changing urban conditions. prevent experimentation.' Sailors, 110—111, 1553. But once decided use process 'once qualifications specified, equality evaded.' Gray 372 368, 381, 809 (1963). For above reversed remanded proceedings inconsistent opinion. Reversed remanded. 13 HARLAN, whom THE CHIEF JUSTICE STEWART join, dissenting. 14 Today's demonstrates, degree has, pervasiveness federal judicial intrusion into electoral processes unleashed rule (1964). 15 legislatures, thereby denying take account structuring historical, geographical, economic, social considerations, practical subtle factors recognized playing part practice politics. 16 Four years later, extended kinds units, affecting unknown organizational integrity 80,000 units country, constricting establishment ones. today, holds boards Missouri's system, forebodes, indeed decide, elective public body, matter its nature. I deem myself bound Avery—despite my continued disagreement them holdings (see dissenting opinions U.S., 589, 1395, 486, 1121)—I either Court, justifies decision. dissent, taking off about said. 19 * acknowledged 'the states' pragmatic approach establishing governments' produced 'a staggering number' units. that, 'while special-purpose organizations abound *, virtually American lives neighbors regard unit responsibility affairs.' Commissioners composition challenged found possess made 'representative governing bodies cities, counties, towns, villages,' pains bodies. 482—485, 1119—1120. Today discards limitation, 'there election.' Ante, 54-55. believe, contrary, preserve design serve specialized conditions, furnishes powerful refuse extend ruling beyond original limits. considered, substantial identity imposing uniformity structure, clear entities characterized precisely opposite identity. From irrigation air pollution control agencies vary magnitude upon constituencies benefits burdens interact elements economic picture. forbid adopting mechanisms variations account. opinion, imposes arbitrary limitation constituted. concedes means 'to achieved.' example, areas people, outright interest performed agency nonexistent slight, Kramer Union Free 395 621, 1886, 23 583 (1969); Cipriano Houma, 701, 1897, 647 abandon altogether allow appointed, equal-population principle, recognizes States' structing am unable selectively achieve flexibility. speculates, prove adaptation specific needs, presumably enable effectively accomplish whatever evils thinks preventing today's shown supervision flexible methods greater danger abuse achieving desirable goal specialization. Court's imposition justified name nicety. 21 believe even after result compelled absence 'judicially standards' 'difficult elections.' 55. Before S.Ct., professed temerity concluding body. mere recitation entity, ante, 53-54, n. 6, suffices conclusion. At time, argued seriously area. can, bonds, condemn detract sole exists operation college. adhered line, marginal arise face difficulty entity determination kind matters continually pass. ensuring organization government, uncertainty announced further countervailing interest, convince me proceed thicket gone II facts afford reasonable objectives sacrificed altar numerical equality. historical relic, present-day justification, stranglehold attained blindly resists redistribution. structure based enacted 1961. Prior date, individual create colleges, still do, apparently authorization cooperation 1961 concern legislature educational facilities expanding satisfactory rate, Three Rivers Poplar Bluff Statler, 421 235, 237 (Mo.1967).1 provisions evidence encourage expansion provision six-man summarized careful balancing desirability population-based problems creation force districts; left initiative interested providing junior-college education children. recognition lack funds support own, authorized voluntary joint formation cooperating greatly preponderates size, enters arrangement knowing somewhat smaller strictly relative 24 features system surely sensibly designed facilitate guaranteeing entirely swallowed up partner. free avoid alliance highly populated neighbor, prefer link others size provide viable base very probably capable forming prefers consolidate, terms statute, neighbors. On hand, work together find beneficial arrangement.2 participation, here, seven larger represents concerned courses action. bizarre conclude effects unconstitutional 'dilution' largest rejected proposed analogy Federal Congress, relied heavily 'are merely involuntary created administration government.' 548, 1374. contrast, National Government union formerly independent States.' Congress 'conceived compromise concession' States. 574, 1388. shares character compromise. true closer negotiate terms, uniform scale; read strike agreement Insistence simplistic measure instance disregard salutary underlying scheme. III 26 particularly perplexing portion explaining dogma. embodies 'built-in districts.' 57. seems suggest discrepancy muster could mathematically unavoidable permissible simply legislature's foster goal. reasoning hard follow disturbing scores. 27 First, rigor especially single-function characteristics legislatures. dissent 488—490, 1122, malapportionment exist avenues redress similarly available correct Further, above, diversity creates structure. considerations inadequate stave extension least persuasive rationale applying play joints. foreclosed previous cases. 577—581, 1389—1391, 506, catalogued '(s)omewhat flexibility' districting. Compare Swann Adams, 440, 569, 501 (1967), Kirkpatrick Preisler, 394 1225, 519 Wells Rockefeller, 542, 1234, 535 (1969). becomes spectrum single-purpose entity. 29 disparities order case, commissioner despite 67,906, 852, 414, 828. born extreme here rigidity finds justification gave birth. Cf. 553, 1241 (White, J., dissenting). disparity relatively minor. Even important, unexplained unjustified equality, 445—446, 572—573, enlightened policy encouraging join voluntarily expand facilities. 30 Second, leaves unexplored premises practicable.' forbidden will, instances, approximate how devised application share alleged faults. falling pecentage top, bottom, range, produce, theory, discrimination' 31 Thus, instead improvisation contours settled. reasonably determine mechanics operating unduly burdensome better statewide formula. Would achieves practicable'? discuss problem, invalidation premise desire constitutionally divergence 'equality.' not, spell administrative convenience deserve 'practicable.' incongruous light deference determinations Why require increased six, reduce roughness approximated? three-man small? willing accept inequality derives similar districting counties? 579—581, 1390—1391; 444, 572. achieved practicable' standard at-large trustees? Is something gives status possessed application? 32 beneath surface lie unspoken answers questions, questions characterize judgment. adoption rigid, turns saved balance judge merit another not. courts, final arbiters continue, fear, inevitable consequence shallow represented theory. lessen disruptive level approving minor strict ground concluded interests. affirm Missouri. What done run afield values embodied ordained Constitution. 34 Chief BURGER, concur HARLAN. add comment emphasize subjective quality doctrine primary (that) *,' commands weighted cast electors. 36 failue guidelines rule' exacerbated implies stringent 'mathematical exactitude' controlling added relevance HARLAN'S observation '(t)he entity.' 67. Yet amost nonpopulation interests legitimately devising local, government. 37 Ultimately, finally rules' interim judges speculate best them. With fails meaningful guidelines. Mo.Rev.Stat. §§ 178.800, 178.820 (Cum. Supp.1967). § 167.011 (Cum.Supp.1967). 1963 1967, actual varied 63.55% 59.49%. App. 38. WMCA, Inc. Lomenzo, 633, 1418, 568 (1964); Maryland Committee Fair Representation Tawes, 656, 1429, 595, Davis Mann, 678, 1441, 609 Roman Sincock, 695, 1449, 620 Lucas Colorado Gen. Assembly, 713, 1459, 632 167.161, 171.011, 177.031, 177.041, 178.770, 178.850—178.890 maintained jail, appointed built roads bridges, administered welfare connection tax issued adopted budget, ran hospitals, airports, libraries, fixed boundaries, housing authority, determined commissioners. 476—477, 1115—1116. supra; cited 4, 801, 821 (1963); Burns Richardson, 384 73, 86 1286, (1966); (Cum.Supp. 1967). There figures, used apportionment. 90—95, 1295—1298 time since, constitutionally. elected. 178.820(2) Counsel appellees informed oral argument passage college, enrollment 5,000 students. participate, 30,000 filed, nine formed pursuant procedures. Of these, bring fractional formula;

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