Document: 491 U.S. 95 109 S.Ct. 2324 105 L.Ed.2d 74 Robert J. QUINN, Jr., and Patricia Kampsen, etc., Appellantsv.Wayne L. MILLSAP et al. No. 88-1048. Argued April 25, 1989. Decided June 15, Syllabus Article VI, § 30, of the Missouri Constitution (hereafter 30) provides that governments city St. Louis County may be reorganized by a vote electorate upon plan reorganization drafted "board freeholders." The State Circuit Court interpreted "freeholder" as not entailing condition property ownership and, with only tentative discussion Equal Protection Clause, entered declaratory judgment 30 is valid both on its face applied to present board freeholders. Supreme affirmed, but relied exclusively interpretation Clause held had no relevancy because does exercise general governmental powers. Held: 1. This has jurisdiction over appeal. Pp. 101-104. 2. Court's ruling case freeholders exercises power reflects significant misreading this precedents. fact serves recommend voters enact any laws own cannot immunize it from equal protection scrutiny. 104-106. 3. A land-ownership requirement for appointment violates Turner v. Fouche, 396 346, 90 532, 24 567 (1970); Chappelle Greater Baton Rouge Airport District, 431 159, 97 2162, 52 223 (1977); form invidious discrimination require land all appointees body authorized propose local government. 106-109. 757 S.W.2d 591 (Mo.1988), reversed. BLACKMUN, J., delivered opinion unanimous Court. Kevin M. O'Keefe, Louis, Mo., appellants. Simon Bolivar Buckner, IV, Jefferson City, appellees. Justice BLACKMUN 1 county Appellants contend provision Fourteenth Amendment United States requires every member official real property. Missouri, without disputing appellants' premise prerequisite freeholders, ruled "the here" "exercises powers." 591, 595 (1988). our precedents, accordingly, we reverse. 2 * In 1987, pursuant Art. Constitution,1 sufficient number signed petitions "to establish area owners (freeholders)" consider "governmental structures responsibilities" county. App. 20, 30. As result, under city's mayor executive were required each appoint nine members board, Governor was one.2 3 After chosen individuals based several criteria, including history community service demonstrated leadership ability, he informed counsel membership. One persons selected mayor, Reverend Paul C. Reinert,3 did He removed mayor's list replaced an appointee who satisfied real-property requirement. 4 similarly told county's necessary also considered qualification. Thus, 19 appointed in 1987 owned property, inevitable given prevailing belief result. 5 November appellants Quinn, Kampsen filed District Western class-action complaint behalf claimed violated face, insofar order serve proposals reorganizing governments. Quinn 681 F.Supp. 1422, 1433 (W.D.Mo.1988). applied, instance "appointment [of freeholders] actually limited those ascertained property." Ibid. Relying decisions (1970), Dist., (1977), asserted property—whether contained within itself or resulting misinterpretation provision—is rationally related legitimate state purpose. 6 Appellants' federal-court complaint, amended, named defendants executive, Governor, well itself. These defendants, appellees here, turn sued violate Federal Constitution. counterclaimed court, raising same claims they presented their complaint. 7 Once qualification issue became embroiled litigation, view changed. Whereas assumed during process membership, (together other appellees) have argued court use term 30—contrary generally accepted meaning entail ownership. Because 30(a) states "a freeholders" shall consist "nine . electors one elector some county," "elector" relevant jurisdiction. 8 Based contention unsettled question law, urged abstain adjudicating merits while state-court proceeding pending. refused abstain, F.Supp., at 1427-1432, finding appellees' "strained best," id., 1430, contrary recognized decisional law. Reaching constitutional claim, agreed conclusion (construed contain requirement) Clause. 1433-1436. Appeals, after preliminary order, see 839 F.2d 425 (CA8 1988), reversed, holding should abstained. Juris. Statement 61; 855 856 1988). 9 Thereafter, unpublished memorandum, adopted Although law means someone fee similar estate land, reasoned "public law" phrase equivalent commissioners." 17-18. Additionally, suggested that, notwithstanding Chappelle, might even if imposes real-property-ownership Speculating about possible rational basis this, enhance work issues faces whether change boundaries between 19. court's remained tentative, however, specifically explain constitutionality Nonetheless, accompanying board. Id., 20-21.4 10 affirmed judgment, address argument impose property-ownership requirement, except say: "We recognize membership Board Freeholders restricted S.W.2d, 595. continued: "However, hold composition rejected facial as-applied challenges inapplicable 11 Contesting appeal now before us, noted probable 489 1009, 1116, 103 179 (1989).5 II 12 Appellees dispute hear appeal, offering four separate arguments attempt avoid decision merits. First, effort rely adequate independent ground doctrine, Fox Film Corp. Muller, 296 207, 210, 56 183, 184, 80 L.Ed. 158 (1935), would persuade us They point following passage opinion: 13 "Following certification petitions, section supervisor 'electors' Board. addition Board." 592 (footnote omitted). 14 passage, introductory opinion, simply repeats language See n. 1, supra. It reasonably more than sitting We are convinced 15 Rather, explained Part I, supra, rests solely relevancy" case. these circumstances, there can federal decided court: "Where decide against petitioner appellant ground, deeming it, entertains decides adversely right asserted, review if, final judgment." Indiana ex rel. Anderson Brand, 303 95, 98, 58 443, 445, 82 685 (1938). "That [state] have, not, invoke foreclose here." Zacchini Scripps-Howard Broadcasting Co., 433 562, 568, 2849, 2854, 53 965 (1977).6 16 Appellees' remaining three jurisdictional rather surprising brought action argue validity nonjusticiable political question, although lawsuit seeking judicial determination 30's 6. event, argument—that Guarantee Clause7 precludes issue—was expressly Baker Carr, 369 186, 228, 691, 716, 663 (1962). 17 Next, lack III standing bring stated petition "controversy" exists "adverse" parties involving "legally protectable interests." 5. While wish repudiate view, doubt "retains essentials adversary proceeding, real, hypotheti al, controversy," Nashville, & R. Co. Wallace, 288 249, 264, 345, 348, 77 730 (1933), therefore qualifies "Cas[e]" purposes III, ASARCO Inc. Kadish, 490 605, 2037, 104 696 (1989). Indeed, person challenge state-law particular government U.S., 361-362, 23, S.Ct., 540-541, 23. Given Turner, necessarily inapplicable.8 18 Finally, adjudication interfere officials make discretionary appointments, although, again, declaration legal frivolous. dicta two cases, which district courts authority appointments way. Mayor Philadelphia Educational Equality League, 415 615, 94 1323, 1331, 39 630 (1974); Carter Jury Comm'n Greene County, 320, 338, 518, 528, 549 (1970). Whatever limits remedy violations plainly irrelevant when asked violation occurred or, question. When supreme denies existence basis, unquestionably court. To suggest otherwise contradict principles laid down Judiciary Act 1789, Stat. 73, 85, settled since Martin Hunter's Lessee, Wheat. 304, (1816). Satisfied A. 20 school unconstitutional interest. 362-364, 541-542. Subsequently, strike local-property airport commission. (summarily rev'g 329 So.2d 810 (La.App.1976)). Here, "Turner control dealt unit w ich 594. Court, instead, turned Ball James, 451 355, 101 1811, 68 150 (1981), Salyer Land Tulare Lake Basin Water Storage 410 719, 93 1224, 35 659 (1973), Associated Enterprises, Toltec Watershed Improvement 743, 1237, 675 believing support do conclusion. 21 sustained water-district voting scheme But reach result ruling, kind functions performed officials. On contrary, analysis concluded qualifications passed Ball, 371, 1821; Salyer, 730-731, 1230-1231; Toltec, 744, 1237. Precisely cases analysis, stand proposition "when [has no] erred thinking allowed application 22 exempt constraints "Board City County" own. explained, protects "right public burden invidiously discriminatory disqualifications." 362, 541. Membership service, recommends proposal directly. "invidiously rationale render white males. reasoning leads obviously untenable. conclude incorrect say, did, apply votes "does case—like commission Chappelle—is subject B 23 course, remains passes fails could remand good reason delay resolution further. briefed throughout first then Cf. Revere Massachusetts General Hospital, 463 239, 244, 6, 2979, 2983, 605 (1983); Minnesota Clover Leaf Creamery 449 456, 470-471, 14, S.C 715, 727-728, 66 (1981). already been 1433-1436.9 Moreover, straightforward: need rationality articulated conclusion.10 brief, offer justifications "first-hand knowledge value schools, sewer systems problems amenities urban life." Brief 41 Second, assert owner "has tangible stake long future his area." arguments, precisely ones 25 first, ability understand concerning one's depend eal "It seriously citizen respects qualified sit must participate responsibly educational decisions." 363-364, 542. Similarly indefensible proposes consideration just 26 squarely second recognizing attached owning "However reasonable assumption realty possess such attachment, [the State] presume quality wanting citizens whose estates less freehold." 364, forecloses Missouri's reliance justification requirement.11 27 At oral argument, suggestion justifiable considers relate land. Tr. Oral Arg. 39.12 Of made affecting vicinity. excluding anyone Turner. mere considersland-use suffice sustain 28 here unlike bodies cases. limit rights landowners, 1821, "constitutionally fact" "that water [those districts was] distributed according ownership," 367, 1819. purpose so directly linked 357, 1814 (emphasizing peculiarly narrow function [the] body" "special relationship" class landowners). Even land-use issues, scope mandate far encompassing: draft submit reorganize entire structure thus affects county, regardless Consequently, entirely exclude eligibility commitment community. 29 sum, agree previously construed land-owners alone eligible empowered wholesale revision "Whatever objectives" obtain [a] 'freeholder' secured, least, finely tailored achieve desired goal." 0 Accordingly, Chappelle. 31 ordered. provides: "The people (1) consolidate territories into subdivision municipal Louis; (2) extend territorial embrace territory adjust relations united, thereafter manner provided cities; (3) enlarge annexing thereto part confer exclusive annexed city; (4) metropolitan functional administration services common included therein; (5) formulate adopt partial complete exercised prepared consisting nineteen members, whom county." Section further "Upon filing charge elections proposing powers hereby granted, shall, approval majority aldermen, five affiliated party." contains regarding members. 30(b) governor resident state, reside either Father Reinert, Jesuit priest, University least 1948. served professor, dean, president, university chancellor. Who's Who America 2567 (45th ed. certified 20. appealed, representatives, class. Since then, stayed vote, scheduled 1989, proposed 17, 46; 11; cited certainly qualify "plain statement" alternative holding. Michigan Long, 1032, 1041, 3469, 3476, 1201 (1983). absence statement," rests. 1042, 3477. 4, guarantee Union Republican Form Government, protect them Invasion; Application Legislature, Executive (when Legislature convened) domestic Violence." concede contend, applied. 27. beside point, Court—whether scrutiny concerns (as undoubtedly ), Nor failed settle parties' we. Our especially peculiar circumstances "freeholder," used elsewhere Constitution, carries usual See, e.g., Shively Lankford, 174 Mo. 535, 548, S.W. 835, 838 (1903) (defining mean "one owns 'a freehold estate, is, lands, tenements, hereditaments indeterminate duration, will sufferance' "); 48 (conceding "owner property" provisions Constitution); 1430-1431 (reviewing authorities). indication (at prior litigation) understood something ordinary usage. 50-51. referred (freeholders)." (emphasis added). retains interpret 30; substantial believe accepted. Third, appointing misinterpreted very means, effect, represented appellants, posture comes appropriate assume positions survive Turner's review, strict standard applies virtue Bullock Carter, 405 134, 92 849, (1972), Lubin Panish, 709, 1315, 702 (1974). 541 (declining higher level applies). absurdity position vividly property-based exclusion experience professor officer gave him conditions choice 3,

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