Document: 425 U.S. 284 96 S.Ct. 1538 47 L.Ed.2d 792 Carla A. HILLS, Secretary of Housing and Urban Development, Petitioner,v.Dorothy GAUTREAUX et al. No. 74-1047. Argued Jan. 20, 1976. Decided April Syllabus Respondents, Negro tenants in or applicants for public housing Chicago, brought separate class actions against the Chicago Authority (CHA) Department Development (HUD), alleging that CHA had deliberately selected family sites to "avoid placement families white neighborhoods" violation federal statutes Fourteenth Amendment, HUD assisted policy by providing financial assistance other support CHA's discriminatory projects. The District Court on basis evidence entered summary judgment CHA, which was ordered take remedial action. court then granted a motion dismiss action, meanwhile been held abeyance. Appeals reversed, having found committed constitutional statutory violations sanctioning assisting program. thereafter consolidated cases and, rejected respondents' consider metropolitan area relief, adopted petitioner's proposed order corrective action Chicago. reversed remanded case "for additional further consideration issue relief." Held : A remedy this is not impermissible as matter law. Milliken v. Bradley, 418 717, 94 3112, 41 1069, distinguished. Pp. 296-306. (a) affecting its conduct beyond Chicago's geographic boundaries but within market relevant options warranted here because HUD, contrast suburban school districts Milliken, Constitution statutes. imposes no Per se rule courts lack authority municipal where occurred. 297-300. (b) HUD's would impermissibly interfere with local governments authorities were implicated unconstitutional conduct. Under § 8 Lower-Income Assistance program Community Act 1974 may contract directly private owners developers make leased units available eligible lower income persons, governmental retaining right comment specific proposals, reject certain programs are inconsistent their approved plans, require zoning land use restrictions be observed builders. 300-306. 503 F.2d 930, 7 Cir., affirmed. Sol. Gen. Robert H. Bork, Washington, D. C., petitioner. Alexander Polikoff, Ill., respondents. Mr. Justice STEWART delivered opinion Court. 1 United States (HUD) has judicially have violated Fifth Amendment Civil Rights 1964 connection selection city before us whether trial extend territorial boundaries. 2 * This extended litigation began 1966 when respondents, six behalf themselves all similarly situated HUD.1 complaint filed Northern Illinois alleged between 1950 1965 substantially City Council "at time such selection, now," located "within areas known Ghetto." respondents Amendment. In companion suit claimed it "assisted carrying continues assist racially system Chicago" projects.2 3 stayed pending resolution suit.3 February 1969, ground rights selecting assigning race.4 Gautreaux Authority, 296 F.Supp. 907. Uncontradicted submitd established operated segregated, four overwhelmingly projects neighborhoods 991/2% Of remaining 99% those occupied tenants. Id., at 910.5 prohibit future effects past practices, directed build next 700 predominantly locate least 75% new inside Cook County. D.C., 304 736, 738-739.6 addition, modify tenant-assignment site-selection procedures best efforts increase supply dwelling rapidly possible conformity judgment. 739-741. 4 turned HUD. September 1970, jurisdiction failure state claim relief could granted. Seventh Circuit enter holding both 601 1964, 78 Stat. 252, 42 U.S.C. 2000d, knowingly Romney, 448 731, 739-740.7 5 On remand, addressed difficult problem an effective segregated created HUD.8 consolidate parties formulate "a comprehensive plan site procedures." "provide broad range alternatives seem . feasible" including "alternatives confined scope boundary Chicago." After plans submitted adduced support, denied requiring increasing enjoining from funding previous CHA. unwarranted "the wrongs limits solely residents City" there allegations "CHA discriminated fostered racial discrimination suburbs." 6 appeal, Circuit, one judge dissenting, adoption will only disestablish possible." 939. Shortly announced decision, Sixth consolidation 54 Detroit operation schools. Understanding "to hold sought impractical unreasonable over-response limited district," concluded decision did bar extending present equitable administrative distinctions numerous districts. F.2d, 935-936. appellate that, likelihood "extra-cy impact" "intra-city discrimination." 936-937, 939-940. court's determination "necessary equitable" rested part agreement expert witnesses single locality low rent purposes city-only work." 936-937. subsequently review permissibility light "inter-district absence finding inter-district violation."9 We certiorari important question. 421 962, 95 1948, 44 448. II supra, considered proper equity decree context desegregation case. race result official establishing " 'a unitary, nonracial system.' U.S., 723, 3116, 1079. School Board officials contributed segregation schools, proceeded formulation remedy. Although neither proof neighboring nor demonstration produced significant segregative districts, panel prepare consolidating 53 independent 733-734, 3121-22, 1084-85.10 affirmed view composition system, feasible required crossing lines adjacent nearby districts." 484 215, 249. Appeals, multidistrict contemplated erroneous exercise courts. discussed many practical problems encountered judicial decree, Court's rejecting actually based fundamental limitations powers restructure entities. That power plenary. It "may exercised 'only violation.' 738, S.Ct., 3124, L.Ed.2d, 1087, quoting Swann Charlotte-Mecklenburg Education, 402 1, 16, 91 1267, 1276, 28 554, 566-67. See Rizzo Goode, 423 362, 377, 598, 607, 46 561. Once found, tailor remedy" fit nature extent violation." 744, S.Ct.t 3127, 1091; Swann, any suburbs. 745, 748, 3129, 1091, 1093. thus constituted direct interference entities without necessary predicate identification them resulting officials' these circumstances, interdistrict commensurate repaired. 9 Since basic balancing particular considerations presented cases, apparent erred inapplicable case.11 nonetheless understanding discussion power. As noted, district cannot "casually ignored treated mere convenience" they responsible autonomous systems. 741-743, 3125-26, 1089-90. effect reflected substantive impact districts.12 envisioned wrongdoer occurred restructuring violation. III 10 question concerns outside does dispute Appeals' program, appropriateness designed alleviate practices developed afford opportunity reside desegregated neighborhoods. But contends bars two reasons. First, asserts constitute grant incommensurate And, second, claims regulating inevitably "consolidat(ing) purposes" violations. address each arguments turn. 11 contention since precludes affect greater area. critical distinction Constitution. provided entry indeed, imposed duty appropriate relief. 3126-27, 1090-91. Our prior decisions counsel event "all reasonable methods remedy," North Carolina State Education 43, 46, 1284, 1286, 586, 589, every effort should made employ achieve greatest degree (relief), taking into account practicalities situation." Davis Comm'rs Mobile County, 33, 37, 1289, 1292, 577, 581. "Once shown, broad, breadth flexibility inherent remedies." 15, 566. 12 Nothing suggests undertake occurred.13 we noted Part II, Supra, political Here, unlike directing necessarily entail coercion uninvolved units, operate limits.14 13 case, entirely consistent attempt create Here wrong housing. market, limits. recognizes reality evident administration through "housing areas" encompassing 'within .' competition another users housing." FHA Techniques Market Analysis (Jan. 1970), Institute Land Use Studies, Analysis: Study Theory Methods, c. (1953). "usually extends limits" larger markets several adjoining counties." Analysis, 12.15 An do more than opportunities wholly "nature 1091. To foreclose took place transform Milliken's principled limitation arbitrary mechanical shield engaged B 14 substantial under examining issue, note endorse even discuss "any plan" instead left remand. 936. rehearing, characterized remand calling Supreme Bradley." 940. current posture law must oral argument "that court-ordered how gently it's gone about, framed, bound ignore safeguards autonomy processes" therefore violate Milliken. addressing called upon, words, evaluate validity order, yet formulated. 15 position, think, underestimates ability entitled overstepping discretion regarding proposals well recent statute low-income can clearly toward preempting undercutting role scheme. 16 various foster supportive well-established policy.16 Title VI prohibits federally including, course, programs.17 Based upon prohibition, 1967 issued site-approval rules low-rent avoid expand minority group members (minority) concentration." Low-Rent Manual, 205.1, P 4g (Feb. rev.). VIII 1968 expressly "administer activities relating urban development manner affirmatively further" Act's fair policy. 82 85, 3608(d)(5). 17 Among steps taken discharge promote project-selection criteria "eliminating unacceptable priorities assure funded first." Evaluation Rent Supplement Projects Applications, 37 Fed.Reg. 203 (1972). structuring component criteria, attempted building goes forward after truly exist minorities elsewhere" encouraging mixed areas. 204. 24 CFR 200.710 (1975). generally Maxwell, Project Selection Criteria Cure "Impermissible Color Blindness"?, 48 Notre Dame Law. 92 (1972).18 More recently, 1974, Congress emphasized importance locating so choice undue concentrations persons. 88 633, §§ 5301(c)(6), 5304(a)(4)(A), (C)(ii) (1970 ed., Supp. IV); H.R.Rep.No.93-1114, p. (1974). 18 insure utilize affording need abrogate housing-assistance programs. major existence pertaining application funds approve money available. 1415(7)(b), 1421b(a)(2). force unwilling localities apply merely reinforce regulations guiding locally authorized funds. 19 amending 1937, 653, 1437 Et seq. IV), significantly enlarged creation opportunities. largely replaced older programs,19 persons.20 acknowledged "local approval longer explicitly condition program's applicability locality." Brief Petitioner 33-34. Regulations governing permit select constructed," 880.203(b) (1975), chosen "promote concentration persons containing high proportion persons." 880.112(d), 883.209(a)(3). 880.112(b), (c), 883.209(a)(2), (b)(2). most grants unit government specified preclude approving application. 1439(a)-(c) IV).21 coercive municipalities. For retain land-use adhered 20 sum, decision. way units. submit displace accorded existing laws. same discretionary provide 21 conclude law, affirm remanding engage interpreted order. discretion, views. 22 affirmed, proceedings opinion. 23 ordered. Affirmed. 25 STEVENS 26 MARSHALL, whom BRENNAN WHITE join, concurring. 27 I dissented 1069 (1974), continue believe Cot's unduly courts' remedies segregation. distinguishes paves full join except insofar appears reaffirm original named Administration, corporate agency defendant. petitioner uses terms "petitioner" "HUD" interchangeably. enjoin making used aspects system. requested "such deem just equitable." Before stay certified plaintiff counts intentionally desegregating patterns. 265 582. admitted followed informally clearing alderman whose ward eliminating opposed alderman. 907, 910, 913. procedure resulted rejection initially suitable 912. With regard tenant assignments, quota restrict number residing projects, built 1944, populations 7%, 6%, 4%, 1% Despite fact Negroes composed about 90% similar percentage waiting list. testified until listed Authority's tenant-selection form only. 909. July 1968, total 30,848 Statistics aside n. 4, 92% two-thirds 95% residents. 910. divided County "General Public Area" "Limited Area." consisted census tracts 30% Or nonwhite population mile tract. remainder included F.Supp., 737. Following commencement construction General Area permitted up one-third portion id., 738-739. "HUD retained large amount assignment authority" "in perpetuated 739. stated "fully sympathetic" "very real 'dilemma' ruled demand justify Secretary's (which) own right." Ibid. 1969 submission Council. subsequent 1,500 eventually prompted spring 1971, inaction development. 332 366, 368. measures implement orders May agreed letter intent process commence acquisition 1,700 accordance timetable. released Model Cities show progress meeting goals set forth letter. fell far behind schedule, request injunction withhold $26 million remedied deficit 368-370. injunction, abused ordering cut off. 457 124. Between 1971 1972, failed hearings respect property sites. 342 827, 829. filing supplemental naming mayor defendants, prevented orders. effectuate provision "shall applicable purpose Dwelling Units." 830. upheld 480 210. participated proceeding seek plan, contain detailed guidelines appointed draft plan. 345 914 (ED Mich.). framework division designated 54-school-district clusters, Within framework, charged responsibility devising produce maximum actual desegregation. 918, 928-929. 1084-85. complexities deeply-rooted tradition control balance factors weighed remedies. premised controlling principle permissible power, context. surmised either There con- clusion. sole Exhibit illustrating location Urbanized exhibit showed hearing November tract less 70% White population. offered illustrate scarcity integrated indicate why "expect cooperation predominately discussing data underlying exhibit, "possible misconception" he asserting municipalities "guilty wrongdoing." Chicago," mistaken supposing constitutes justifying brief asserted "it record" intracity paranoia encouraged 'white flight' phenomenon exacerbated achieving integration." speculation contrary testimony record conclusions Such unsupported falls short "significant district" showing "(b)efore purposes." Amicus memorandum argued entities" "judicial prerogatives concerning organization governments." Michigan contributing 734-735, 3122, 1085, wrongful dealt "an system," 746, 3128, 1092, State's educational structure vested over affairs 742-744, necessity abrogated 742, 3126, 1089-90, 20. contrast, involving III-B, Infra. "area operation" defined include three miles city, village, incorporated town. act body authority. Ill.Rev.Stat. 671/2, 17(b), 27c (1973). across lines, eliminated displaced 13, Supra. principal Standard Metropolitan Statistical coterminous 1970); (1966). Court, appendix detailing secure better represented needs families." prohibition 740. study implementation revealed criterion depends definition concentration" "racially mixed" employed field office. meaning terms, regulations, varied among offices offices. Implementation Subsidized Housing: 116-117 (Dec. 1972). fiscal year 1975, commitments approximately $10.7 billion, compared estimated $16.35 billion subsidized comparable figures 1976 $22.725 $24.8 Hearings Independent Agencies Appropriations 1976, Subcommittee House Committee Appropriations, 94th Cong., 1st Sess., pt. 5, pp. 85-86 also 119 (testimony Hills). contracts payments agencies difference tenant. pays 15% And 25% gross rent. 1437f IV). If give entity 30 days proposal, project unless determines assistance. 1439(c) covered afforded 30-day period object municipality's objection filed, if proposal 1439(a). applications fewer 1439(b). block size provisions plans. Act, assess expected community general locations objective "promoting avoiding Hartford Hills, 408 889 (Conn.1976). requirements communities'

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