Document: 498 U.S. 237 111 S.Ct. 630 112 L.Ed.2d 715 BOARD OF EDUCATION OKLAHOMA CITY PUBLIC SCHOOLS, INDEPENDENT SCHOOL DISTRICT NO. 89, COUNTY, OKLAHOMA, Petitioner,v.Robert L. DOWELL, et al. No. 89-1080. Argued Oct. 2, 1990. Decided Jan. 15, 1991. Syllabus In 1972, finding that previous efforts had not been successful at eliminating de jure segregation, the District Court entered a decree imposing school desegregation plan on petitioner Board of Education. 1977, district achieved "unitary" status, court issued an order terminating case, which respondents, black students and their parents, did appeal. 1984, adopted its Student Reassignment Plan (SRP), under number previously desegregated schools would return to primarily one-race status for asserted purpose alleviating greater busing burdens young children caused by demographic changes. The thereafter denied respondents' motion reopen terminated holding, inter alia, 1977 unitariness was res judicata. Appeals reversed, holding respondents could challenge SRP because still subject decree, nothing in having indicated 1972 injunction itself terminated. On remand, dissolved injunction, finding, among other things, original no longer workable, complied good faith more than decade with court's orders, designed discriminatory intent. again remains effect until can show " 'grievous wrong evoked new unforeseen conditions,' United States v. Swift & Co., 286 106, 119, 52 460, 464, 76 L.Ed. 999, circumstances changed enough justify modification decree. Held: 1. Respondents may contest Court's dissolving injunction. Although appeal from order, dissolve and, since is unclear respect what it meant necessary result too ambiguous barrespond ents challenging later action Board. If be or dissolved, parties are entitled rather precise statement court. Pp. 244-246. 2. Appeals' test stringent required either this decisions dealing injunctions Equal Protection Clause Fourteenth Amendment. 246-251. (a) Considerations based allocation powers within federal system demonstrate does provide proper standard apply cases. Such decrees, unlike one Swift, intended operate perpetuity, supervision local systems always as temporary measure remedy past discrimination. legal justification displacement authority such cases violation Constitution, dissolution after authorities have operated compliance reasonable period proper. Thus, being Clause, unlikely former ways, purposes litigation fully achieved, additional showing "grievous conditions" 246-248. (b) also erred relying W.T. Grant 345 629, 633, 73 894, 897, 97 1303 proposition "compliance alone cannot become basis modifying injunction." That case involve but question whether should first place light wrongdoer's promise comply law. need accept face value board's profession will cease intentionally discriminate future, orders obviously relevant deciding modify passage time results changes board personnel enables observe complying improperly condemn judicial tutelage indefinite future. 248-249. (c) made sufficient constitutional 1985, when adopted, allow Court, address entered, whether, every facet operations, vestiges segregation eliminated extent practicable. decides terminated, proceed decide Board's decision implement complies appropriate equal protection principles. 249-251. 890 F.2d 1483 (CA10 1989), reversed remanded. REHNQUIST, C.J., delivered opinion WHITE, O'CONNOR, SCALIA, KENNEDY, JJ., joined. MARSHALL, J., filed dissenting opinion, BLACKMUN STEVENS, SOUTER, took part consideration case. Ronald Day, Oklahoma City, Okl., petitioner. Sol. Gen. Kenneth W. Starr, Washington, D.C., U.S., amicus curiae, support petitioner, special leave Court. Julius Chambers, New York respondents. Chief Justice REHNQUIST 1 Petitioner Education City sought plan. granted relief over objection Robert Dowell, al., parents. Tenth Circuit only upon '[n]othing less clear grievous conditions. . .' 1483, 1490 (1989) (citation omitted). We hold our 2 * This began almost 30 years ago. 1961, sued petitioners, (Board), end public schools. 1963, found segregated both housing past, operating "dual" system—one race. Dowell School Public Schools, 219 F.Supp. 427 (WD Okla.). 1965, attempt desegregate using neighborhood zoning failed residential resulted 244 971, 975 Residential once state imposed, lingered due discrimination some realtors financial institutions. Ibid. segregation. Id., 976-977. imposed ordered adopt "Finger Plan," 338 1256, aff'd, 465 1012 (CA10), cert. denied, 409 1041, 93 526, 34 490 (1972), kindergarteners assigned unless parents opted otherwise; grades 1-4 attend formerly all white schools, thus bused those schools; grade five upper various areas maintain integrated neighborhoods there stand-alone grades. 3 years, "Motion Close Case." held "Order Terminating Case": 4 "The has concluded [the Finger Plan] worked substantial requirements achieved. Board, oversight properly, foresee termination jurisdiction dismantlement any affirmative defendant undermine unitary so slowly painfully accomplished 16 during cause pending before 5 ". now constituted, manifested desire intent follow believes present members successors future continue requirements. 6 "Now sensitized implications conduct awareness responsibility citizens races, pursue legitimate policies without continuing 7 8 Jurisdiction ipso facto final disposition appeal." Civ-9452 Okla., 18, 1977); App. 174-176. 9 unpublished appealed. 10 faced led children. As became integrated, were established, further inner-city homes outlying areas. effort alleviate burden increase parental involvement, relied assignments K-4 beginning 1985-1986 year. Busing continued 5-12. Any student transfer where he she majority minority. Faculty staff integration retained, "equity officer" appointed. 11 Reopen Case," contending Under SRP, 64 elementary 90% black, 22 plus minorities, 31 racially mixed. refused judicata who then action, remained unitary. 606 1548 Okla.1985). administration, faculty, staff, body transportation, extracurricular activities facilities nondiscriminatory. Because court-ordered must end. 12 795 1516, 479 938, 107 420, 370 (1986). It that, while binding parties, reasoned merely ended active SRP. remanded determine lifted modified. 13 unworkable, done 25 promote good-faith orders. 677 1503 Okla.1987). private decisionmaking economics, attenuated vestige maintained assignment injunctive vacated returned control. 14 'an takes life own becomes edict quite independent law effectuate.' approached "not much desegregation, application remedies." 1486. Relying 999 (1932), unforseen conditions," S.Ct., "dramatic conditions impose extreme unexpectedly oppressive hardships obligor." F.2d, (quoting T. Jost, From Stotts Beyond: Modification Injunctions Federal Courts, Tex.L.Rev. 1101, 1110 (1986)). Given despite 'affirmative duty take impede process disestablishing dual effects.' 1504 Dayton Bd. Brinkman, 443 538, 99 2971, 2979, 61 720 (1979)). 15 petition certiorari, 494 1055, 110 1521, 108 761 (1990), resolve conflict between laid down Spangler Pasadena Education, 611 1239 (CA9 1979), Riddick Norfolk, 784 521 (CA4 1986). reverse Appeals. II consider 1987 petitioners contend bars contesting order. disagree, bar 17 lower courts inconsistent use term "unitary." Some used identify completely remedied See, e.g., Overton, 834 1171, 1175 (CA5 1987); supra, 533-534; Vaughns Prince George's Cty., 758 983, 988 1985). interpretation word, met mandate Brown 349 294, 75 753, 1083 (1955), Green Kent County 391 430, 88 1689, 20 716 (1968). Other courts, however, describe currently assignments, solely court-imposed 14. words, called nevertheless contain confusion evident Georgia State Conference Branches NAACP Georgia, 775 1403 (CA11 1985), drew distinction "unitary district" status." explained proscribed Swann Charlotte-Mecklenburg 402 1, 91 1267, 28 554 (1971), "for several years" unitary, said status" "has prior adjudicated through procedures." Conference, 1413, n. 12. 18 think mistake treat words if they actually Constitution. command Amendment "[n]o shall deny person laws." Courts terms denote engaged intentional race, brought into sure how useful define these precisely, create subclasses them. But doubt differences usage described above do exist. finding. therefore decline overturn conclusion bind character district, finally terminate litigation. Spangler, 424, 96 2697, 49 599 (1976), we obligations well like III 19 language modified absent conditions." 464. injunction," 1491, (1953). reliance mistaken. large meat-packing companies consent whereby agreed refrain forever entering grocery business. effective perpetuity. meatpackers allies attempted, often success frustrate operation context used. 21 Shoe Machinery Corp., 244, 1496, 562 (1968), read danger unlawful restraints trade existed. 248, 1499. "Swift teaches showing, holds incorporated achieved." (emphasis deleted). commands Amendment, No board. Milliken Bradley (Milliken ), 433 267, 2749, 53 745 (1977), said: 23 "[F]ederal-court decrees directly relate itself. inherent limitation authority, federal-court exceed limits aimed condition violate Constitution flow violation. ." 282, 2758. 24 very first, considered "complexities arising transition education freed racial discrimination" implementation "with deliberate speed." 299-301, 755-57 added). spoke "transition nonracial education." 436, 1693 system, think, view quoted Local control allows participate decisionmaking, innovation programs fit needs. I 418 717, 742, 94 3112, 3126, 41 1069 (1974); San Antonio Independent Rodriguez, 411 50, 1278, 1305, 36 (1973). authorities. Dissolving properly recognizes "necessary concern important values dictates regulatory extend beyond effects See [Milliken ], 280-82, 2757-58." 1245, (Kennedy, concurring). 26 Appeals, noted, injunction" 897. place. observed wrongdoer divest power enjoin wrongful engaged. 27 A discriminated relevant. seeks 1985. Not boards change time, same espoused governed discriminated, Neither principles governing entry nor require Draconian result. Petitioners urge reinstate preferable course remand decide, accordance dissolved.1 practicable.2 29 considering far practicable, look "to operations—faculty, extra-curricular facilities." Green, 435, 1693. Swann, 1277 ("[E]xisting policy practice regard activities, facilities" "among most indicia system"). After respondent's released requires authorization promulgation rules regulating matters like, evaluate Washington Davis, 426 229, 2040, 48 597 (1976); Arlington Heights Metropolitan Housing Development 429 252, 555, 50 450 (1977). judgment proceedings consistent opinion. 32 ordered. 33 SOUTER whom STEVENS join, dissenting. 35 gained statehood 1907. For next 65 initially laws requiring systems; thereafter, exploiting created legally enforced restrictive covenants. 1972—18 unconstitutional—a interrupted cycle, enjoining specific achieving actual practical us allowed many status. today suggests enough. remands evaluation decree's dissolution. However, inquiry commends fails recognize explicitly threatened reemergence "vestige" 37 my view, reflect central aim precedents. 347 483, 74 686, 98 873 (1954) (Brown unanimous declared "[s]eparate educational inherently unequal." 495, 692. rested recognition state-sponsored conveys message "inferiority th[e] [of Afro-American children] community affect hearts minds way ever undone." 494, 691. Remedying evil preventing recurrence motivations animating requirement districts feasible steps eliminate identifiable Bd., 442, 1696, (1968); 25-26, 1280-1281, (1971). 38 believe long likely inflict stigmatic injury condemned persist remain methods record here shows, found, taken avoid yet reinstatement affirmed. dissent.1 39 assess full consequence lifting issue explore history reveals nearly unflagging resistance dismantle City's system. 40 When admitted Union 1907, mandated separation races 427, 431 Okla.1963). addition enforcing covenants, supported law, established pattern City. 1503, 1506 (Board) exploited enforce locating "all-Negro" heart northeast quadrant, resided. 433-434. Matters (1955) ). boundaries resolution allowing placed submit requests case-by-case basis. F.Supp., 434. thousands each year race majority, undermined potential desegregation. id., 440-441, 446. 42 Parents relegated quadrant suit against 1961. Finding "designed perpetuate encourage segregation," 441, struck 442. Undeterred, proceeded another which, virtually policy—"perpetuat[ion] [of] system." Okla.1965), aff'd part, 375 158 387 931, 87 2054, 993 (1967). 43 noted failing certain respects. example, eight nine planned construction 1965 located serve all-white zones. 975. Rather locations, destroyed adopting inflexible attendance zones encouraged whites migrate pupil coincided initiated preserved augmented existing 44 plaintiffs I, resist respects worsened situation. Four admonition come forward realistic plans immediate relief, see 439, 1695, offered meaningful own. Instead, "[i]t rationalize[d] intransigence constitutionally unsound [was] opposed desegregation." 1270 Okla.), (1972). concluded: "This frustratingly interminable, insuperable difficulties Supreme unpardonable recalcitrance Board." 1271. Consequently, available exhibited desegregation—the Plan" plaintiffs. 1269. 1975, mere three Plan, arguing 'eliminated system.' 1548, 1551 Okla.1985) motion), rev'd, 1516 "operated [Finger] properly" stated "foresee 174-175. 45 implemented (SRP). superimposed residentially result, considerable imbalance reemerged bodies non-Afro-American. 1553. More specifically, ranged 96.9% 99.7% Afro-American, approximately 44% all-Afro-American 1510, 4. 1989) (Baldock, dissenting).2 46 response moved Ultimately, imbalances "personal preferences." 1512. establish "the [decree] alleviate, violation, eradicated." 1491. 47 agree determining litigation, Ante, 247, citing (1932). 1499, 436-437, 2704-2705, 444, 2708 (MARSHALL, dissenting) ("We compel 'dangers, substantial, shadow,' quoting, 464.)3 strongly disagree shown realized.4 account unique harm associated expressly demand elimination Our pointed focus explains insistence extinguish concept stigma gives guidance deemed served purpose. leading up attempted curtail ugly legacy Plessy Ferguson, 163 537, 1138, 256 (1896), insisting searching "separate" genuinely "equal" physical facilities, curricula, quality faculty "intangible" considerations. Sweatt Painter, 339 70 848, 1114 (1950); Sipuel Regents Univ. 332 631, 68 299, 92 247 (1948). liberated doctrinal tethers Plessy, declaring "in field doctrine 'separate equal' Separate particular social 51 "To separate them others similar age qualifications generates feeling inferiority undone. opportunities Kansas felt compelled rule Negro plaintiffs: 'Segregation colored detrimental impact sanction law; separating usually interpreted denoting negro group. sense affects motivation child learn. Segregation therefore, tendency [retard] mental development deprive benefits receive racial[ly] 54 avoiding stigmatizing guiding objectives jurisprudence since. These concerns inform determines effectiveness proposed remedy. supra. "freedom choice" individual specify two attend. inadequate redress "every By construing obligations, demands indicium "[r]acial[ly] identifi[able]" cure. Accord, 1275. 55 Concern victims "make whole" relief. Bradley, (1974) "restore position occupied absence conduct." 746, 3128. achieve traceable 281-288, 2757-2761, (1977) ) (upholding remedial measures substandard communication skills schools). upheld needed help prevent stamp becoming self-perpetuating phenomenon. 287, 2760. 56 Similarly, accounts remedies insure lasting systems. greatest possible degree [to] concerned schools." 26, 1281 (1979); Columbus Penick, 449, 2941, 2948, 666 Raney Gould Dist., 443, 1697, 1700, 727 (1968) (endorsing 'goal desegregated, non-racially [that] rapidly achieved,' quoting Kelley Altheimer, 378 489 (CA8 1967) added)). "achieving preserving system," Keyes Dist. Denver, Colo., 413 189, 251, 31, 2686, 2718, 548 (1973) (Powell, concurring anddissent ing part) added), stems revive implicit state-enforced segregation.5 57 Just evaluating formation ultimate about" "a suggested realized officials "eliminate[d] state-imposed 1275 inhere school's "faculty, facilities," 1693, even administration['s] attitudes toward [a] school," Keyes, 196, 2691. never defined constitutes function hasper formed extends convey So persist, B 58 vague fear, milder standard. Ignoring identified asserts find [is now] Clause" "it [is] ways." 247. Insofar instructs "conside[r] ha[ve] practicable," ante, 250, presumably views "operat[ing] Clause." scope meaning "vestiges," says little. 59 focusing heavily majority's ignores ceases actively segregation.6 withdraw enforcement leaving families "choose" choices shaped state-created district's historical involvement sum, school-desegregation establishes chargeable regardless lack eliminated. 60 Applying outlined, affirm ordering restore removal significant 62 "Racially primary eliminate. '[t]he judge necessarily schools.' [91 1281]. There 'a presumption,' stated, 'against substantially disproportionate composition.' And cases, ourselves discontinued County, supra; Wright Council Emporia, [407 451, 2196, (1972) ]. principal ensure 'possible "white school" "Negro ' [402 U.S.], 1277]. dismantling '[r]acial identification system's 435 [88 1693]. goal schools—a 'just 442 1696]. authority's judged 1280]; Davis [v. Comm'rs Mobile 33, 37, 1289, 1292, 577 (1971) ]; [391 439 1695]." 802-803, 3155-3156 dissenting). 63 Against background state-sponsorship persistence perpetuates Therefore, whenever feasible. undisputed replacing one-half ----, ----. persists, clearly premature point. East Baton Rouge Parish 721 1425, 1434 1983) ("the existence unacceptable alternatives exist"). equivocates given 'most system' eliminated, reciting facets operations Green—" 'faculty, facilities.' 250. And, rendering "res nova" ante accepts least theoretical possibility exist Green. Nonetheless, hints ignore perpetuating finds economics." Finally, warns "Draconian" fate "judicial future." 249.7 66 equivocation unsatisfying. First, "may profound reciprocal composition neighborhoods." 202, 2694; 465, 13, 2950, (acknowledging evidence "that contributing segregation"). amply demonstrates form complicity Board.8 early "serve[d] exten[d] housing, destroying already thereby increasing 977. permit superimpose isolated quadrant. 67 Second, apparent suggestion different perpetuated "private decisionmaking." identity subsists preference[s]," 1512, pays insufficient attention roles State, officials, creating patterns Even important, role clouded segregation—schools opt send negative preferences" absolve played "preferences" obligation maximum possible.9 reject length valid factor assessing correct contemplated perpetual districts. requires, job completed recur fulfilled resolved favor affected litigation.10 69 spare "indefinite" tutelage," 249, risks subordination rights interest autonomy.11 control, relates feasibility measure, II, 280-281, 2757-2758, remedied. "reasonable, feasible, workable," 1283, undertaken. task complete, dispositive capable inflicting practicably done. "on record, [to schools]." F. 2d, 1505. argue unworkable proven doubting keep mind ceased 1977. Retaining supervision. improve give flexibility minimizing retaining seems slight compared risk delivering system.12 IV 71 Consistent unconditional identifiability condition. Whether simply ignored point contemplating separation, unequal. 72 dissent. viewed adoption technically been. just respondent penalized failure hindsight ambiguous, express breach above, earlier erroneous, operative "clearly erroneous" paragraph subpart VI-D perfectly plausible erroneous findings issues To dispel doubt, direct nova us. out demonstrating burdensome means. affording redressing lingering warranted. infra, 268. closings, According Brief 17. 246. sheer importance objectives, mean mount wish segregative subsequent actions, detailed explanation standards met. "active jurisdiction" statement, review Perhaps preoccupation overturning invocation wrong" 243-244, conception entirely clear. 263-264. relative indifference suffer high student-faculty ratios, teachers, inferior conditions, offerings programs. Note, Colum.L.Rev. 794, 801 (1987); Camp, Thompson, Crain, Within-District Equity: Desegregation Microeconomic Analysis, Impacts Litigation Legislation Finance 273, 282-286 (1990) (J. Underwood D. Verstegen eds.) (citing recent studies indicating systematic biases, predominately minority typically fewer resources district). Indeed, poor severe short radical transformation suffice vestiges. Jenkins Missouri, 855 1295, 1301-1307 1988), rev'd grounds, 495 1651, 109 (desegregation school, middle half magnet Faithful admittedly faithful assure committed ideal Cf. Morgan Nucci, 831 313, 321 (CA1 1987) (addressing indicate [student] forestall imminent unconstitutional intervention"). "as 1985," readoption arbitrarily. court, warranted, harms lacking tangible unremoved vestiges, anticipate Again, commitment injurious flowing 287-288, 2760-2761, concerning "root [the] record." 288, 2761. board, conduct. vestige, shows actions "contributing cause" (1979). Resistence attract key incorporating plans. Selig, Reagan Department Civil Rights: What Went Wrong, 1985 U.Ill.L.Rev. 785, 802, (noting Administration's touting 'special schools' means improving 'forced transportation' "). untapped changing towards discuss proof presumption (1979) (conduct resulting increased presumed affirmatively remedied); 208, (proof portion prima facie system-wide shifting current discrimination); 1281, (establishing shown, discrimination). Moreover, "affirmative duty" discrimination, 437-438, 1694, coming establishing effective. 1695. "heavy burden" resegregative methods. Dayton, 2979; 407 467, 2205 seeking bear proving fulfilled. 211, 17, 2699, "non-attenuation"). tutelage" late date largely advantage disposal outset. abolished promoting shaping (rather following) 254. plan—a tailored concerns, including busing. failures regard, lead charged assuring violations remedied, renounce unfinished tasks lateness hour. concepts temporariness permanence relevance courts' turn underlying 'permanent' last. justified violence induced counteracts intimidation. Familiar equity procedure assures opportunity vacating continuance warranted." Milk Wagon Drivers Meadowmoor Dairies, Inc., 312 298, 552, 557, 85 836 (1941). Research indicates concentrations access experienced, teachers slow pace instruction "hinder[ing] students' academic progress, net aptitude levels." Gamoran, Resource Allocation Effects Schooling: Sociological Perspective, Microlevel Finance: Issues Implications Policy 207, 214 (D. Monk J. eds. 1988.)

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