Document: 489 U.S. 688 109 S.Ct. 1433 103 L.Ed.2d 717 BOARD OF ESTIMATE CITY NEW YORK, et al., Appellants,v.Beverly MORRIS al. Frank V. PONTERIO, Appellant, v. Beverly MORRIS, Joy Clarke Holmes and Joanne Oplustil. Nos. 87-1022, 87-1112. Argued Dec. 7, 1988. Decided March 22, 1989. Syllabus New York City's Board of Estimate consists the mayor two other members elected citywide, each whom casts votes, plus presidents city's five boroughs, one vote. Appellees, residents voters Brooklyn, most populous borough, charging that city charter's sections governing board's composition are inconsistent with Equal Protection Clause Fourteenth Amendment, brought suit in District Court, which concluded board was a nonelective, nonlegislative body not subject to rule established by Reynolds Sims, 377 533, 84 1362, 12 506, reapportionment cases. The Court Appeals reversed, finding selection process must comply cases' so-called "one-person, one-vote" requirement, since its ultimately chosen popular On remand, determined applying Abate Mundt, 403 182, 91 1904, 29 399, population per representative methodology disparate borough populations produced total deviation 132.9% from voter equality among electorates, explanations for this range neither required nor justified such gross deviation. affirmed, holding, inter alia, presence citywide representatives did warrant departure and, thus, Court's correct. Held: Estimate's structure is Amendment because, although boroughs have widely populations, has equal representation on board. Pp. 692-703. (a) membership elections local review under prevailing doctrine. board, composed officials who become as matter law upon their elections, significant fiscal legislative functions common municipal governments, including assisting formulation budget, controlling land-use, contract, franchise powers. That enjoy 6-to-5 voting majority does render constitutional, control outcome decisions anytime do vote together always budgetary because no matters. Moreover, Reynolds- approach should be put aside favor theoretical Banzhaf Index—which produces standard 30.8% nonbudget matters larger figure budget items mathematically calculating voter's power determine an election—since latter tends ignore partisanship, race, habits, characteristics having impact general lection outcomes. 692-699. (b) major component factored into determining between more or less boroughs. This approach—which yields 78%—recognizes for, represented by, both president members, thus departing lower courts' treated single-member districts, single 699-701. (c) proffered governmental interests—that essential successful government City, effective, accommodates natural political boundaries well interests—do suffice justify 78% one-person, one-vote ideal, particularly could served alternative ways constituting would minimize discrimination power. 701-703. 831 F.2d 384 (CA2 1987) affirmed. WHITE, J., delivered opinion REHNQUIST, C.J., MARSHALL, O'CONNOR, SCALIA, KENNEDY, JJ., joined. BRENNAN, filed concurring part judgment, STEVENS, joined, post, p. 703. BLACKMUN, Peter L. Zimroth, appellants. Richard David Emery, appellees. Justice WHITE Court. 1 City three Because populations—yet board—the Second Circuit held Amendment. We affirm. 2 commenced action against December 1981.1 They charged charter govern Estimate2 construed applied various dealing districting apportionment purpose electing bodies. dismissed complaint, 551 F.Supp. 652 (EDNY 1982), ground 506 (1964), companion cases, progeny, 399 (1971), view body. reversed. 707 686 1983). all eight selected vote, court "one person, vote" requirement remanded ascertain whether compliance exists. Bifurcating proceedings, first, supra, these 592 1462 1984); second, several require electoral scheme's representation. 647 1463 1986). found it unnecessary hold identified se unconstitutional. 3 1987). Tracing imperative citizen's elect Sims Mundt beyond, endorsed focus representative. 132% Without deciding ever light flexibility accorded governments ordering affairs, Appeals, agreeing inadequate justifications protection elective bodies districts substantially population, especially measures address valid policy concerns at same time lessen districts. noted probable jurisdiction 87-1022 87-1112, 485 986, 108 1288, 99 498 (1988).3 4 As initial matter, we reject suggestion unique wielding non-legislative powers, guarantee extends only congressional plans, see Wesberry Sanders, 376 1, 526, 11 481 state districting, but also apportionment. Avery Midland County, 390 474, 479-481, 88 1114, 1117-1118, 20 45 (1968); U.S., 185, S.Ct., 1906. Both No distinction authority exercised assemblies, powers delegated assemblies local, officials, suffices insulate substantial equality. See 481, 1118. confirmed Hadley Junior College Dist. Metropolitan Kansas 397 50, 90 791, 25 (1970): 5 "[W]henever decides select persons election perform functions, requires qualified e given opportunity participate election, when separate district basis will insure, far practicable, numbers can proportionally officials." Id., 56, 795. 6 These cases based propositions country people themselves through "each every citizen inalienable right full effective participation processes" Nation, State, locality case may be. 565, 1378. Since "[m]ost citizens achieve legislators represent them," "that equally voice his . legislature." Ibid. Daniel Webster once said, "the choose man's portion sovereign power." Luther Borden, 48 (7 How.) 30, L.Ed. 581 (1849) (statement counsel). Electoral systems strive make equal. If unequal number representatives, constituencies debased those smaller share than Hence insisted seats apportioned populations. Achieving " 'fair basic aim apportionment,' [Reynolds, supra ], [377 U.S.] 565-566 [84 1383-1384] [it is] reason [Reynolds ] districts." Gaffney Cummings, 412 735, 748, 93 2321, 2329, 37 298 (1973). 7 trigger constitutional safeguard certain. All elections. Charter § 61 (1986). mayor, comptroller, council, constitute number, votes entire electorate. Each cast except acceptance modification proposal. Similarly, Bronx, Manhattan, Queens, Richmond (Staten Island)—elect respective presidents, decide borough's 8 assigns governments.4 Fiscal responsibilities include sewer water rates, tax abatements, property taxes urban development projects. manages property; exercises plenary zoning authority; dispenses franchises leases fixes generally salaries officers compensated moneys; grants contracts. array shares government, aforementioned scheme: six votes; counterparts, each. 9 In addition, significance, council respect modifying approving capital expense budgets. submits proposed adopt alter Approval agreement council. matters, therefore, consist four at-large members; five, presidents. 10 considerable formulate last year surpassed $25 billion, land use, franchise, contracting over million inhabitants, situate comfortably within category whose "powers enough sufficient throughout district" strictures. Dist., 54, 794. erroneously implies survives challenge hence position actions. however, courts below observed, often together; they not, Two help least Bronx Staten Island, prevail disagreeing coalition third member contain large population. Furthermore, issues, alone cannot decisions. primary argument erred methodolog whether, what extent, method gives some Specifically, focuses relative affect decisions, involves recognizing weighted members. 13 described F.2d, 386, n. (the description essentially same, Brief Municipal Appellants 35-36), urged individual first calculates then voters' member. method, termed Index, applies follows: 552 possible combinations exist any (giving him "voting power" 8.7%), while 104 (18.8%). A calculated dividing representative's square root represented; aggregates representatives—borough president, president. Deviation ideal comparing arrived considers Calculated manner, maximum outcomes mayor's absence, higher issues. 14 gave careful attention rejected submission. agree reasons population-based our litigation. note before, different context, declined accept now city. Whitcomb Chavis, 124, 1858, 363 (1971). observed "remains one" unrealistic taking account "any factors might actual residents, party affiliation, previous go situation." 145-146, 1870. 15 personal value itself, is, without shortchanged if he neighboring district, two; another way, half size Even desired motivating factor bringing polls, considered Index habits 16 thought "seriously defective way members' vote." 390. difficulty reflect actually works practice; rather, explanation member's It b terms assuring fair representation, reflected line itself imperfect, assure in, size. attempt inquire how legislature practice, outcome. difficult ever-changing task, hardly met mathematical calculation stops short examining day-to-day operations event there insufficient depart prior agree.5 17 Having decided follow resolving issues inquired need taken respond constituencies. obviously interests; but, Appeals' responsive yet despite dramatic inequalities boroughs' Consideration different, explained, "[i]f bloc simply majority, necessarily body, play decidedly subsidiary role. ." 389, 5. Like Judge Newman concurrence, true Board.6 18 focused Board, Applying formula utilized exception 1971, 184 1906 1; 737, 2323; Brown Thomson, 462 835, 2690, 77 214 (1983), agreed Co rt percentage 132.9%.7 19 approach. relevant inquiry approximately weight citizen," 579, 1390, being provide "fair citizens," id., 565-566, 1383-1384. Here ignored.8 followed judicial concerning account. pleadings appellees indicated, agreed, 78%. App. 47, 206, 375-376. oral argument.9 Tr. Oral Arg. 14-15, 39-40. And participate, somewhat larger. purposes parties. 21 ours indicated justified. -847, 2697-2699; Connor Finch, 431 407, 410-420, 97 1828, 1831-1837, 52 465 (1977); Chapman Meier, 420 21-26, 95 751, 763-766, 42 766 (1975); Mahan Howell, 410 315, 329, 979, 987, 35 320 At very least, seeking support difference bear burden, prepared differ holding burden been carried. presents nothing below, arguing chiefly presently structured, regional entity, York. interests. disturbed. this, urges, supported history. course, much better assess arguments, interests were either invalid 132%,10 boroughs.11 Their analysis applicable deviation, conclude ideal. 22 Accordingly judgment 23 Affirmed. 24 STEVENS joins, judgment. I insofar holds For exclude calculation. 26 27 I, too, affirm many doing so. 28 measuring degree inequality inclusion Estimate. suspect correct rejecting here. But, notes, ante, 698, still measure too 1986), asserted No. Estimate, intervenor-defendant, Robert Straniere, State Assembly Ponterio, resident intervening defendant appellant Section (1986) reads: "Membership. shall estimate." 62 "Voting Board. a. estimate, comptroller entitled b. Except otherwise provided law, act resolution adopted whole authorized d. quorum thereof each." 120(d) provides adoption issue. appellants intervenor-appellant Straniere notices appeal October 15, 1987, November 6, respectively. Intervenor-appellant Pontiero notice 16, 1987. correctly observes set forth charter, legislation, Administrative Code. Plaintiffs-appellees submitted following list powers: "A. exclusively "i. determines impr vement owned City; "ii. approves standards, scopes final designs capitol [sic projects "iii. negotiates enters contracts behalf "iv. granted "v. use; "vi. sets rates purchases "vii. charges services "viii. modifies "ix. abatements. "B. acting conjunction Council recommends Mayor; periodically budgets confers reached; overrides mayoral vetoes hearings "C. administers Bureau Franchises; Secretary; public whenever called so Mayor discretion interest; abatements administrative agencies; makes recommendations regard policy." Statement Facts Pursuant Local Rule 9(g) 8-CV-3920 (EDNY), 44-46. W.H.K. Communications Associations, Inc., Structure, Powers, Functions (1973), 54 (Kramarsky Study). Ponterio's submission, disagrees Ponterio puts citizens' ability tie-breaking Appellant pp. 17-23. suffers criticisms generally. insistence context people, economic See, e.g., 561, 562, 1381, 1382, (1964); Dunn Blumstein, 405 330, 336, 92 995, 999, 31 274 (1972). writes: "Though insists referring 'an bloc,' fact 'bloc.' Rather, supposed 'bloc' free to, do, sides Only bound carry day. certain win follows majority-at-large removed hypotheticals offered Amicus Banzhaf." (citation omitted). sum (population 2,230,936), exceeds (1,414,206), (352,151), falls Queens' stipulated 1,891,325; Manhattan's, 1,427,533; Bronx's, 1,169,115. parties stipulated, 7,071,030. Juris. 9-10, 11. Appellees point out (1968), struck down county scheme consisting considering effect case, faced task disparity population; issue before decision requiring legislatures 478-479, 1116-1118. Nothing even remotely suggests ignored violates Clause. conceded point: "QUESTION: use took them analysis, be? Or record? Mr. ZIMROTH [counsel city]: depends you in. There's factoring divide city-wide proportionately counties ]. .If come up 76 percent. [T]hat's answer your question. That's result get methodology." 14-15. Appellees' counsel stated "came 78 percent allocated way." Although reliance modified test. already stated, misplaced. persuaded arguments explain debasement exigencies history convenience. Reynolds, 579-580, 1390-1391 ("Citizens, interests, votes"); Maryland Committee Fair Representation Tawes, 656, 675, 1429, 1439, 595 Lucas Forty-Fourth Colorado General Assembly, 713, 738, 1459, 1474, 632 (1964). presented question constitutionality structures suggested Appeals.

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