Document: 415 U.S. 605 94 S.Ct. 1323 39 L.Ed.2d 630 MAYOR OF the CITY PHILADELPHIA, Petitioner,v.EDUCATIONAL EQUALITY LEAGUE et al. No. 72—1264. Argued Dec. 10, 1973. Decided March 25, 1974. Syllabus The Mayor of Philadelphia is empowered by city charter to appoint a Nominating Panel, which in turn submits him nominees fill vacancies on School Board. Panel consists 13 members. must four members from citizenry at large; each remaining nine be highest ranking officer one designated categories citywide organizations. A new convened every odd-numbered year. Respondents brought this action for declaratory and injunctive relief charging that Tate had violated Equal Protection Clause Fourteenth Amendment discriminating against Negroes appointments 1971 Panel. Following hearings, District Court found respondents failed prove racial discrimination dismissed their complaint. Appeals reversed, concluding established an unrebutted prima facie case unlawful exclusion consideration service Although was succeeded, while sub judice, Rizzo (as whose appointment practices record silent), court directed issuance certain with regard 1973 future Panels. Held: 1. Mayor's principal argument, federal courts may not interfere discretionary powers elected executive officer, greater importance than accorded it Appeals, but argument need addressed here since devoid reliable proof discrimination. Pp. 613—616. 2. Appeals' finding rests ambiguous testimony as statement 1969 then Board, Panel; unawareness organizations part official who did have final authority over challenged appointments; percentage comparisons correctly rejected meaningless context case. therefore erred overturning Court's findings conclusions. 616—621. 3. ordering Panels speaks solely Tate, his predecessor, left office 1972. 621—623. 4. issue throughout litigation has been whether Amendment. There no basis remanding resolution peripheral state law issues under court's pendent jurisdiction or, alternatively, abstention so tried anew court. 623—629. 3 Cir., 472 F.2d 612, reversed. John Mattioni, Philadelphia, Pa., petitioner. Edwin D. Wolf, respondents. Mr. Justice POWELL delivered opinion Court. 1 In 1965 voters approved public education supplement establishing present structure Board Education (the or Board). supplement, appears Art. XII charter,1 vests double power appoints he assisted task another entity also appoints, Educational Panel). function seek out qualified candidates polling civic large, interview those candidates, deliberate qualifications, submit selected Mayor. three vacancy discretion, request additional per vacancy. make among submitted 2 Under terms charter, large. Each institutions, such labor union council, commerce organization, school parent-teacher association, degree-granting institution higher learning, like.2 describes substantial specificity institutions leaders serve does designate any particular organization name. Accordingly, possible more qualify given category. two-year terms. appointed year, when, ordinary course, occur Board.3 Thus, there five James J. H. term expired 1972, 1965, 1967, 1969, Mayor, Frank Rizzo, 4 include Equality League,4 president League, citizen two students attending city's schools. Shortly after Tate's filed suit class United States Eastern Pennsylvania, relying 42 U.S.C. § 1983 28 1343(3). gravamen complaint, named defendants, sought injunction barring submitting judgment Constitution. They requested order directing 'fairly representative composition community.' 5 challenge consisted seven whites when complaint now six whites.5 allege discriminated its submission Mayor.6 Such attack would difficult mount event. Of were whites.7 Moreover, dispute validity qualifications set forth Finally, despite prayer community . .,' disclaimed effort impose quota Panel.8 establish unconstitutionally excluded membership remedy alleged defect prospectively well retrospectively.9 6 days respondents' League v. 333 F.Supp. 1202 (ED Pa.1971). fact, noted approximately 34% population 60% various schools Negroes. Id., 1202—1204. following 1971: 10 Negroes; 1967 11 12 Negro; Negroes.10 1204. further 'several reflecting views participation black community' could officers might Ibid. Deputy Zecca, person assigned assist selecting qualifying time hearing unaware existence many these 'black organizations.' 7 On concluded violation It held differences between (34%) student body system (60%) (15%) significance. 1205—1207. large because number positions too small provide sample; addition subtraction single Negro meant 8% change composition. 1206. unreliable data show government other reflected disproportionately low pattern ocurt inadmissible hearsay newspaper account 8 Third Circuit 612 (1973).11 Relying statistical about going outside fact respects, 618. although changed hands judice nothing extensive 619. particular, ordered undertake ongoing supervision Ibid.12 9 We granted petition certiorari. 411 964, 93 2149, 36 684 (1973). conclude hold prospective devoted exclusively personal policies predecessor. * contention judicial review contravenes basic separation-of-powers principles. cites cases concerning Federal Executive Branch, Marbury Madison, Cranch 137, L.Ed. 60 (1803), Myers States, 272 52, 47 21, 71 160 (1926). He notes like Government, tripartite governmental structure, argues principles shaping appropriate scope are same level level. Neither nor length. expressed 'reservations' exerting control 'an chief exercise appointive F.Supp., 1206, based dismissal absence brushed aside Court, intended operate staff thus discretionary. F.2d, 617. And, seats subject restrictive embodied respondents, proceeded though where access open all citizens equally. Drawing analogy dealing incidents citizenship jury right nondiscrimination employment, e.g., Turner Fouche, 396 346, 90 532, 24 567 (1970), Smith Yeager, 465 (CA3), cert. denied, nom. New Jersey Smith, 409 1076, 685, 34 665 (1972), declared 'a demonstration blacks under-represented (on Panel) opportunity discrimination.' disagree conclusion view mayor self-evident, we understand functions But event irrelevant often vested officials stretch imagination appointing officer. judges familiar example. Likewise, reasonable measure. With holds accountable only polls. narrows range choice filling seats, remains true selection always oversight voters. our assign weight constitutional considerations raised To sure, reliance precedents misplaced, case, unlike authorities, do arrangement Constitution.13 But, degree cited reflect concern ability respond mandate constituency, they point. delicate federal-state relationships underlying federalism questions made particularly complex interplay Amendment, special status rights minority groups role Government protecting rights. difficulty stake alluded without elaboration, recently Carter Jury Comm'n Greene County, 320, 518, 549 (1970). concerned governor's discriminatory county commission. discrimination, nevertheless recognized 'the problems involved Governor State discretion way ..' 338, 528.14 14 Were process compelled address 'problems' Carter, supra, go far, however, find founders proof, even approach taken Appeals. II 15 bottomed indicia, Whether singly combination, factors adequate 16 First, relied already it. 615—616. presented items evidence statement. During cross-examination counsel Zecca's attention article Zecca denied accuracy account;15 ruled hearsay.16 mention account. Rather, noting subject, focused witnesses statement.17 apparently assumed truth statement, 'without contradiction objection ..'18 17 view, misplaced. Assuming admissibility reliability hearsay,19 unable purportedly proves anything motives years later if decided exclude inference drawn similar manner Panel.' 616 n. 9. That supposition. cannot viewed probative intent discriminate race different entity. Furthermore, refuted and, matter, itself. 18 Second, 'black-oriented organizations' charter. 616. thought that, important position 1971, ignorance 'support effect.' 13. This speculative inference. belonged Tate. unlikely ignorant viable institution, years. Thus unfamiliarity imputed automatically holding power. showing restricted what referred equally uninformed groups. 19 As third indicator Negroes, again went findings. earlier, unreliable, Philadelphia. 1207. unfortunate parties introduce expert statistician frequency 13-member fell expected factor 618, proportion 'significant.' led points toward possibility 20 Statistical analyses served will continue indirect bodies, where, service, duty falls citizens. E.g., (1970); Hernandez Texas, 347 475, 74 667, 98 866 (1954); Avery Georgia, 345 559, 73 891, 97 1244 (1953). See McDonnell Douglas Corp. Green, 792, 805, 1817, 1825, 668 (1973) (employment discrimination). simplistic undertaken lack real meaning whereby highest-ranking institutions. can fungible purposes determining unlawfully excluded. At least assuming, arguendo, meaningful involving appointments, relevant universe comparison specified overlooked distinction. smallness sample founded. failing recognize flaw straight comparisons. 21 sum, responsibility racial-composition think meaningless. type fragmentary support serious charge proceeding.20 III 22 prefaced discussion district determine precise nature (respondents) entitled.' Nevertheless, held, part, 'should enjoin should require before selected, received proper consideration.' (Footnote omitted.) 23 succeeded January 3, issued 11, 1973, orders mandated run sole reason continued administration. 619 21. petitioner alleges, deny, Rizzo's stewardship, longer appointments. entire Nothing premise track Where prior pant patterns occuintervening adminstration, coercive successor rest, minimum, supplemental indicating Spomer Littleton, 414 514, 38 694 (1974). benefit instructed enter decision remedies, IV 25 turn, finally, dissent's remanded alternative, scratch ignores briefed argued us, espouses behalf claims barely colorable relevance instant suit, produce result inconsistent commonsense application doctrines. 26 dissent concedes, post, 642, arguments neither petition, briefs, articulated oral them us disregard admonition Supreme Rule 23, Subd. 1(c) '(o)nly fairly comprised therein considered court.' also, Mazer Stein, 201 206 5, 460, 464, 465, National Licorice Co. NLRB, 309 350, 357 2, 569, 574, 84 799 (1940); General Talking Pictures Western Electric Co., 304 175, 177—178, 58 849, 850 851, 82 1273 (1938). assertion first presumes color 'decided reference arising Constitution Siler Louisville & Nashville R. 213 193, 29 451, 455, 53 753 (1909). here. others: May 28, whereas Charter required 25; chairman allegedly restricts itself; appointees represented; contravention Charter. approached resolving provided granting laid claim. These wholly tangential theme lawsuit—an hardly surprising pursued either stage appellate review. scarcely 27 opening evidentiary asked describe suit. Counsel responded it, Tr., Aug. p. clearer litigant's turns federal, rather state, law. And drafted essentially exposition ignore compel decide nondispositive unique reading doctrine. Despite language counsel's characterization almost character record, attributes independent requires balanced whole. .' (Emphasis added.) Post, 683. misreading record. Midway through hearing, asserting claim Respondents' replied makes clear merely supportive general 'picture' 'image' requirement balance whole.21 reluctance assert whole focuses conceivably pertinent provision 12—206(c): 30 'In represent adequately community, shall large.' 31 immediately apparent, emphasized phrase, relies balance, at-large seats. phrase head plainly 'as whole.' assuming capable carrying import overlooking ground elsewhere, simply incapable lawsuit noted, 'failing (is) (to 1207.22 32 believe something akin matter sua sponte aborting proceedings 'It consistently doctrine plaintiff's right.' Mine Workers Gibbs, 383 715, 726, 86 1130, 1139, 218 (1966). C. Wright A. Miller, Practice Procedure 813 (1971). argue wipe levels off chance merit recognition doctrine's 'justification lies economy, convenience fairness litigants suppa, 1139.23 33 suggests alternative abstain start courts. proposal comes nearly filing delay attributable recent minimize. See, England Medical Examiners, 375 411, 425—426, 461, 470—471, 440 (1964) (DOUGLAS, J., concurring). pointless put forward insufficient treatment. 'paramount avoiding questions, strikes jarring note civil plaintiffs asserted occasion here, proposition favored equal protection, 1343.24 accord, decision-avoidance Brandeis Ashwander Tennessee Valley Authority, 297 288, 345—348, 56 466, 482—483, 80 688 (1936). standards susceptible misuse.25 commence relitigation insubstantial abandoned abuse standards. 'present some upon disposed of.' 347, 483. 35 Judgment APPENDIX TO OPINION THE COURT Home ARTICLE PUBLIC EDUCATION CHAPTER HOME RULE SCHOOL DISTRICT 37 Section 12—100. District. separate home rule hereby created known 'The Philadelphia.' 12—101. Take Over All Assets Assume Liabilities Predecessor 40 (a) succeed directly existing purposes, including, limited to, receipt grants, gifts, appropriations, subsidies payments; 41 (b) take assets, property, personal, tangible intangible, easements evidences ownership whole, records, pertaining thereto; (c) assume debt contractual obligations district, long issued, secured retired BOARD 43 12—200. Created; Its Function. 44 charged administration, management operation district. 45 12—201. Members Board; Method Selection. 46 lists names .. 12—202. Eligibility Membership. 48 registered City. No eligible full six-year 49 12—203. Terms Members. 50 begin Monday December except (1) ., years, 51 12—204. Removal 52 removed 12—205. Vacancies 54 member filled unexpired died resigned. If office, resulting 55 12—206. consisting thirteen (13) City dates appointment. 57 Nine City-wide are, respectively: council unions workers employes organized operated employes, 59 (2) chamber, purpose improvement industry, (3) parent-teachers 61 (4) education, (5) federation, non-partisan neighborhood associations, 62 (6) league, human inter-group relations, 63 (7) commitee, governmental, political, social, economic conditions, 64 (8) educational facilities located within 65 (9) dedicated planning health welfare services physical resources environment 66 67 (d) described clauses subsection exists City, voter qualifies clause subsection. 68 (e) died, resigned, removed. 69 (f) elect own adopt rules procedure. 70 12—207. Duties convene twenty-fifth whenever occurs Education. 72 forty (40) persons place filled. wishes list names, notify twenty (20) days. Thereupon thirty (30) send invite business, civic, professional, labor, organizations, individuals, situated resident herein preclude recommending nominating previously board provisions. 75 WHITE, whom BRENNAN MARSHALL join, DOUGLAS joins Part II, dissenting. 76 majority 'gravamen' grounded contended racially express provisions Supplement' Charter.1 1983, invoked 77 trial developed both claims, adversely claim, stated: 78 'Further, construe 12—206(c) Supplement 'representative refers balance. However, interpretation statute properly courts, thereto.'2 1202, 1206—1207 79 reversed ground, '(i)n reached plaintiffs' declined law—namely, Supplement—in Members.' (CA3 1973). reach legislative history 'serves background facts complain,' id., 615, Commission, Supplement, contemplated 'constitute representation cross-section people community—all community's ethnic, racial, economic, geographic element segments.' 614—615. 81 question 1343(3), protection clearly substantial. Hagans Lavine, 528, 1372, 577 statutory one, dispositive. 543, 1382. principle Hagans, relied, California Dept. Human Resources Development Java, 402 121, 124, 91 1347, 1350, 666 (1971); Dandridge Williams, 397 471, 475—476, 1153, 1156—1157, 491 Rosado Wyman, 397, 402, 1207, 1212, 442 King 392 309, 88 2128, 1118 (1968), ultimately premised come necessity, controversies grounds possible. TVA, 341, 480, (1936) (Brandeis, stated follows: pass of. grounds, question, construction law, latter. 191, 753; Light 220 523, 538, 485, 570.' 83 (1909), regulating rates attacked unconstitutional, due IV, statute. invalidated regulation grounds. began virtue questions. declaring preferable unnecessary determination questions: 'Where Constitution, course usually departed reasons. much better local nature, commission unnecessarily appearing record.' U.S., 455. 85 Kentucky. 194, 456. method adjudication 'avoids possible, permits lawsuit, two, resolve controversy.' Wright, Courts (2d ed. 1970). Hart Wechsler, System 922 policy proceeding avoid deciding Siler, achieved doctrinal Ashwander, 'well settled.' Hillsborough Cromwell, 326 620, 629, 445, 358 (1946). Since passed issue, I vacate remand assessment claim.3 87 bar available violations Supplement. merit, perhaps frivolous, would, event, answer question. Perhaps believed truly suggestion appear worth candle, productive delay. however. 89 assistance compile up group select category achieving supported constitute cross section Minutes meetings Commission hand, reads quite differently. testified description dictated Category employees.' Toohey, AFL—CIO position. When fit category, replied, 'I don't extent Council operates. broadest group.' 206. second provides industry.' Philadelphian Chamber Commerce Industry. why made, 'Well Commerce—I wording implicit referring Commerce, use word 'chamber.' restraints, framers practically everything dictate exactly wanted categories.' 207. squarely joined charter.4 fitting into pool balances Evidently, most picked balancing diversity types represented predominantly white group, work minimize reflects predominant far clear, 92 grips footnote, stating: coupled commission's preserve accountability polls check actions opinion.' Ante, 626—627, 22. confine reviewed see away controversy merits left, instance, Court.5 indicates, Wholly 'lack awareness' read testimony, claimed know trade city, representatives necessary proceed further. requirements prevail petitioner's, give rise requested. leave abstain. follow retain pending forum. means meets test 'special circumstances,' Lake Carriers' Assn. MacMullan, 406 498, 509, 1749, 1756, 257 certain. raise stressing deemed appropriate, indicate still refrain issue. paramount persists. inevitably gives expense, 418, (1964), late date litigation. 95 bearing litigation, notice 'plain error' specified,' Brotherhood Carpenters Joiners America 330 395, 412, 775, 784, 973 (1947), error Silber 370 717, 1287, 798 (1962). 96 Alma Motor Timken-Detroit Axle 329 129, 231, 128 (1946), decided, nonconstitutional alone appeal. party urge ground. certiorari heard October 1944 Term After down 1945 Term, intervenor action, pointed moved adopted 'This said repeatedly ought constitutionality act Congress unless unavoidable. raised, non-constitutional former decided.' 136, 234. presence below, until observed: 99 'We agree wasted earlier failure indicate, see, followed. This, wrong course. conceived sound traditional courts.' 142, 236. 100 fails accept my reaching feel thoughts 101 discriminatorily chosen. sufficiency arguable, substitute overturn respect. constituted population, ordinance stimulate including minorities. is, therefore, especially significant, distant vantage point, evident municipal authorities city-wide associations interest groups, responsible, short confessed nominations meritorious suggestions membership. highly respect facts, seen eyes occurred, significance lost printed page them. Sometimes word, gesture attitude tells story surrounding milieu. situations, amd purport reassess 102 complains entitled credence. 618 19. nowhere denial say indicated. His declaration intention admissible evidence. 103 '(W)henever itself distinct material chain circumstances, proved contemporaneous written declarations party. 104 being proved, direct be.' Mutual Life Insurance Hillmon, 145 285, 295, 909, 912, 706 (1892). eminent commentator 105 '(I)t out-of-court statements tend plan, design, declarant admissible, usual limitations remoteness apparent sincerity common mental carried declarant.' McCormick, Evidence 697 1972). 106 More importantly, evidencing hearsay. assertedly related witness saw television,6 lawsuit. admission elementary draftsmen Proposed Rules Magistrates. 801(d)(2) expressly acknowledges party-opponent offered actually individual capacity. Advisory Committee's Note succinctly outlines reasons justifying rule: 107 'Admissions theory adversary satisfaction conditions rule. Strahorn, Reconsideration Hearsay Admissions, U.Pa.L.Rev. 484, 564 (1937); Morgan, Basic Problems 265 (1962); Wigmore 1048. guarantee trustworthiness admission. freedom admissions enjoyed technical demands searching assurance against-interest circumstance, influences ruquiring firsthand knowledge, prevalent results, calls generous treatment avenue admissibility.' 108 refusing admit evidence, correct considering giving deserved. formation says strong insufficient, along sustain judgment. precisely profess superior insight 'local' override 109 My disagreement beyond consider improvident factfinding long-established responsibility, affirmative duty, ensure frittered away. 110 elaboration principles; constitutionally applied.' York Times Sullivan, 376 254, 710, 728, 686 (1964). 111 Similarly, 112 'That relieve denied. examination made. Otherwise, fail safeguarding rights.' Norris Alabama, 294 587, 589—590, 579, 580, 1074 (1935). 113 obligation scrutinize raising detachment circumspection, eye impact factual determinations asserted. 114 never license rummage looking shreds discredit suggest contrary conclusion. Quite assuredly, men can, will, differ records coming contain complicated, interwoven 'law fact.' 601—610. impossible(, however,) conceive how effectively afresh disputes containing issues.' Time, Inc. Pape, 401 279, 294, 633, 641, (1971) (Harlan, dissenting). 115 interrelated 'factual' presented: so, enough Appeals? consider. accepted making conclusion, '(i)f receiving consideration, disagrees unanimous ever surely historical command attention, absent unusually extraordinary complicating factors. issue—whether discrimination—I equipped counterparts 116 having crutch critical factor, reject, motion, Matlock, 164, 177, 988, 996, 242 (1974), determined erroneously hearsay, admitted, posture rely own. 117 am unconvinced reverse ultimate arrived instance. ample supports appeals' assessments room deferring appeals. intensely appraisal' 'in light past reality White Regester, 412 755, 769—770, 2332, 2341, 314 dissent.7 appendix, infra, 629. 12—203(b) provides: 'Nine '(1) '(2) '(3) '(4) '(5) '(6) '(7) committee, '(8) '(9) City.' resignation, removal, unexpected nonprofit corporation regardless race. founded 1932 presently hundred 1204 Pa.1971); Tr. Oral Arg. 14. 'proper representation' commented 'are attacking panel.' 44. 24. contend mean undo done. Indeed, invalidate actions, discriminatory, voidable. nn. 9, 12, infra. 25. well. cure taint deriving remove nominated 37, 43—44. Given mix removal whites. initially Negro. convened, leadership hands, replaced reaffirmed produced 11-to-2 'person' affirmed 614 holding, office. 20. unsuccessful rehearing modify 'and specifically equitable remedies assure unconstitutional processes promptly conforms necessity operating times.' say, Pennsylvania scheme sees fit. plan distribution powers. Sweezy Hampshire, 354 234, 256, 1203, 1214, 1311 (1957) (Frankfurter, concurring Black revealed 'problems,' conclusive. grants governor reject defeat 529. Black's not, interchange App. 91a—93a, 'BY MR. WOLF: 'Q. discussing you didn't recall 'A. Well, right. 'May very bad copy Inquirer, Saturday, indicated, good serving 'Do article? 'THE WITNESS: doesn't name member. indicated wouldn't member; reporter's version this, quote 'They is; just excellent story. You recall, happened? No.' counsel, testified: 'At (in 1969) because, feeling, someone Education.' 41a. contradicted counsel. 15, supra. witness' knowledge derived source. informed television, conceded 31. television report, nonetheless met exception inadmissible. dissenting opinion, piece 'highly evidence' 644. rule, certainly was—and value dubious ignored called side accordingly testify. 'nowhere indicated.' 645. share 'when them.' 'with (it) reversing judge 'familiar facts) occurred obviously Judge, presented. detracting salutary great turning peculiarly circumstances. Register, 755 2341—2342, COURT. Do your connection makeup panel generally? Is saying? 'MR. WOLF. 'represent community,' want try presentation around hook hang on. expect picture, paint image pieces picture context, panel, entere community. arguing X whathaveyou; saying relevant. 'If weren't there, maybe stronger Blacks supposed something. exactly, direction find— sticks bundle weigh. That's statute.' pp. 75—76. 'balanced opinion. instructive chairman's election said: follows panel's arranged elements convert dissent, said. Assuming, substance perceived appropriateness jurisdiction. concedes (respondents' case) arguable urging avoidance favor matters yet amounts tail wag dog, 925 1973), efficacious Timken issues, issues. point championed conferring McNeese Education, 373 668, 1433, 622 (1963); Harrison NAACP, 360 167, 180, 1025, 1032, 1152 (1959) WARREN, C.J., BRENNAN, J, dissenting); ALI Study Division Jurisdiction Between 1371(g), commentary (1969). Gunther, Subtle Vices 'Passive Virtues'—A Comment Principle Expediency Judicial Review, Col.L.Rev. 1, 16—17 'short plain claim,' Conley Gibson, 355 41, 48, 99, 103, (1957), '(t)he pleading game skill misstep decisive outcome facilitate merits.' fair shows allegations addition' subsidiary 'Similarly, charges raises entirely posed (1966), inapplicable, once premised, trial. transcript shows, remained 'one pieces' taken, press post-trial brief, demonstrates central documents introduced defendant alternatives. mechanism counterpart popular election; fully anticipate tendered court, decision. insubstantial, attacks straw man. assumes relates advanced organizational 206(b), combined atlarge selections, incumbent improvident.

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