Document: 431 U.S. 407 97 S.Ct. 1828 52 L.Ed.2d 465 Peggy J. CONNOR et al., Appellants,v.Cliff FINCH, Governor of Mississippi, al. (two cases). Cliff Appellants, v. UNITED STATES, Appellant, Nos. 76-777, 76-933 to 76-935. Argued Feb. 28, 1977. Decided May 31, Syllabus 1. The Federal District Court's legislative reapportionment plan for Mississippi's Senate and House Representatives held not embody the equitable discretion necessary effectuate standards Equal Protection Clause Fourteenth Amendment in that failed meet Clause's most elemental requirement districts be "as nearly equal population as is practicable." Reynolds Sims, 377 533, 577, 84 1362, 1389-1390, 12 506. Pp. 413-421. (a) A court stricter than a state legislature devising plan, "unless there are persuasive justifications, court-ordered must avoid use multimember districts, and, well, ordinarily achieve goal equality with little more de minimis variation." Chapman Meier, 420 1, 26-27, 95 751, 765-766, 42 766. Here, where departed from "population equality" norm deference historic respect integrity county boundaries conjunction resulting maximum deviations 16.5% 19.3% cannot characterized minimis. 414-417. (b) "With any deviation approximate supported by enunciation historically significant policy or unique features," supra, at 26, Court here identify such "unique features" Mississippi political structure would permit judicial protection teeth duty "achieve 417-420. 2. With claims plan's some impermissibly dilutes Negro voting strength, on remand should either draw reasonably contiguous compact, so put rest suspicions strength being purposefully diluted, explain precisely why particular instance accomplished. 421-426. Reversed remanded. Frank R. Parker, Jackson, Miss., Connor Lawrence G. Wallace, Washington, D. C., United States. A. F. Summer, Atty. Gen., Jerris Leonard, Finch, Miss. Mr. Justice STEWART delivered opinion Court. 1 question this litigation concerns constitutional validity devised three-judge Representatives. In 76-777 76-935, appellants voters who originally brought class action They challenge court's entire aspects failing basic one-person, one-vote requirements Amendment, particularly plan.1 No. 76-934 appellant Government, an intervenor Court.2 These join asserting works impermissible dilution they well decree its failure order special elections all new significantly stronger majorities were created plan. officers named defendants assert have accorded greater respecting thus established further erred ordering all. 2 We do reach complicated issues raised various appellants, because we concluded both reapportionments ordered fail area 506; 3 * effort reapportion Legislature accordance has occupied attention federal courts years. This painfully protracted process began wake when challenged Southern extreme variances apportionment had been enacted 1962. invalidated Johnson, D.C.Miss., 256 F.Supp. 962.3 After waiting ultimately unsuccessful attempt enact reapportionment, then promulgated own 1967 quadrennial elections, relying rather extensively districting houses substantial equality.4 265 492. 4 1971, another apportionment; legislation was unconstitutional could find no justification continuing among districts. 330 consequently formulated govern 1971 rely districts,5 altogether formulate final State's three largest counties Hinds, Harrison, Jackson. Those instead given interim representation. interlocutory appeal order, pointed out single-member preferable large plans, accordingly stayed judgment instructed it "absent insurmountable difficulties, devise into effect district Hinds County."6 402 690, 692, 91 1760, 1762, 29 268. found itself confronted however, did divide County before election. 521. 5 On direct appeal, after taken place pursuant declined consider prospective continued absence redistricting Jackson Counties. Williams, 404 549, 92 656, 30 704. Relying stated intention appoint Special Master January 1972 subdivision those vacated remanded directions "(s)uch proceedings go forward promptly concluded." Id., 551, S.Ct., 658. 6 No appointed. anticipation 1975 April 1973 apportionment. hearing plaintiffs' prompt objections until February 1975. Before reached decision, yet almost identical but permanently adopting filing complaint addressing legislation, constitutional. Waller, 396 1308.7 reversed, holding effective law submitted received clearance under § Voting Rights Act 1965, amended, U.S.C. 1973c, considering validity. 421 2003, 44 486. 7 compliance Act, Attorney General When he objected legislation,8 proceeded temporary using conduct elections. delayed consideration permanent 1979 allowed petition writ mandamus compel enter embodying Legislature. Coleman, 425 675, 96 1814, 48 295.9 thereupon hearings entered See 419 1072, 1089, 422 1014. noted probable jurisdiction these appeals challenging judgment. 429 1010, 544, 50 620; 1060, 782, 775. II 8 approaching task 122-member 52-member Senate, announced certain guidelines analysis, drawn previous cases other policy. Population "near possible"; compact; minimized canceled; every made maintain lines.10 plaintiffs really criteria enunciated Court, argue abide putting together plans. defendants, cross-appellants, contrast went too far, lines required continue utilization 9 classic example proposition " 'the often going faced hard remedial problems' minimizing friction between their remedies legitimate policies." Taylor McKeithen, 191, 194, 1980, 1982, 32 648, quoting Sixty-seventh Minnesota State Beens, 406 187, 204, 1477, 1487, (dissenting opinion). essential whether properly exercised reconciling Constitution goals 10 Although fraught peculiar factual can hardly said guidance general applicability need failed. clear two important respects will accomplishing legislature: "(U)nless U.S., 11 high reflect unusual position draftsmen repeatedly emphasized "legislative primarily matter determination," 586, 1394,11 institution far best situated reconcile traditional policies within constitutionally mandated framework equality. possess distinctive mandate compromise sometimes conflicting people's name. legislature's goals, left unwelcome obligation performing stead, while lacking authoritativeness bring task. circumstances, inevitably exposed sensitive one accomplished circumspectly, manner "free taint arbitrariness discrimination." Roman Sincock, 695, 710, 1449, 1458, 620. Because practice contribute voter confusion, make representatives remote constituents, tend submerge electoral minorities overrepresent majorities, preferred plans unless articulate "singular combination factors" justifies different result. Mahan Howell, 410 315, 333, 93 979, 989, 35 320; 21, 763; East Carroll Parish School Board Marshall, 424 636, 639, 1083, 1085, 47 296. over defendants' objection, present case abandoned albeit reluctantly adherence districting. unallayed reliance against fragmenting insufficient overcome strong preference very litigation. 1762; B 13 requires population, each person's vote may weight election representatives. supra. It recognition fundamental tenet motivated involvement first what called "political thicket" Baker Carr, 369 186, 82 691, 663. nevertheless departs result, recognized, "greater percentages instances preferred." F.Supp., 1076. 14 Given 1970 2,216,912 apportioned districts,12 seat if absolute achieved 42,633. As computed Court,13 contains spopulation 16.5%,14 occurring (8.2% above norm) 38 (8.3% below norm). Fourteen 5%, plus minus, four 8% more, minus. 122 seats,15 18,171, 19.3%, (9.4% (9.9% norm).16 Forty-eight vary 5% way, way. 15 Such simply tolerated compelling justification: 16 features. 17 ". . (A) variation. Where considerations rationally departure standards, reapportioning responsibility minimal variance adopted." 765-766 (footnote omitted). 18 ; substantially exceed "under-10%" previously considered prima facie only context legislatively apportionments.17 Gaffney Cummings, 412 735, 2321, 37 298 (7.83% norm); White Regester, 755, 2332, 314 Hence even crafted magnitude justified "based incident effectuation rational policy." 579, 1391, quoted 325, 985. 19 fairly consistent maintaining borders allotting seats legislature, fact rationalized part lack powers entrusted counties, whose needs met private bills introduced members legislature.18 But recognized earlier stage breaking boundary virtually impossible accomplishment unevenly distributed which Senators elected. Only enough people elect Senator, Representative. 509. 20 inviolability strictly adhered to, collide standard person, vote. Indeed, insistent resulted invalidation successive apportionments impermissible. 962; 492; 21 Recognition seek protect subdivisions historical permits "minor deviations" 1458; 1390. degree. latitude considerably narrower legislatures, burden articulating reasons following face inequalities correspondingly higher. 22 Under less stringent governing adopted apportionments, sufficed justify 16.4% Virginia Delegates. 320. Mahan, uncontradicted evidence 'produces minimum norm, keeping intact boundaries.' 326, 986. By contrast, alternative served better adopted, also came closer achieving cut reduced so-called "Modified Henderson Plan" plaintiffs; 13.66%, number deviating 9. Chapman, "our reference (Henderson) show factors cited viewed controlling other, statistically offensive, already feasible." 765. Kilgarlin Hill, 386 120, 124, 87 820, 823, 771; Swann Adams, 385 440, 445-446, 569, 572-573, 501. 23 convincing terms efficacious actually proposed, set aside Clause.19 III 24 Since invalid elementary particularized challenges based upon strength. 446-447, 573-574.20 since horizon permissible drawn, appropriate give mind.21 Cf. 765-767. 25 To support claim racial dilution,22 point unexplained departures neutral formulation apparent scattering concentrations white majority adequately adoption irregularly shaped exhibiting contiguity, compactness, lower acceptable hand. referred us types situations fails compact: entitles them several houses, aggregations smaller legislator. 26 exemplifies problem.23 site city, populous county, total 214,973 residents, 84,064 whom Negroes. divided five supervisory "beats"; beat elects supervisor sit Supervisors, charged executive local government responsibilities. Supervisors reapportioned 1969, creating oddly beats extend corners long corridors fragment city much concentrated. Kirksey County, 658 (S.D.Miss.), aff'd, 528 F.2d 536 (C.A.5), awaiting decision rehearing en banc. irregular shapes assertedly equalization road mileage, bridges, land equalize primary responsibilities supervisors maintenance roads bridges.24 Whatever justifications Supervisors' irrelevant problem apportioning seats, holders presumably concern themselves something bridges. Senator. 27 although note generally "we take Counties, Beats, (voting) precincts are." There is, longstanding mandating separate representation individual legislature.25 And practical barrier basis lines; turn 2,094 precincts, sufficiently small unit allow considerable flexibility record, neither custom nor necessity senatorial purposes 28 treatment Jefferson Claiborne Counties illustrates aggregating form district. western border Mississippi. 10,086, 7,522 9,295 6,996 suggested combining Copiah compact 55% voting-age population. Instead, without explanation, combined Lincoln Beat district; Beats 2, 4, Adams slight majority. Compared proposals, addition require fragmentation proposal fragmented none. results might expected flow lead, here, charge explicable purpose minimize minority group. avoided carefully abiding intent fully explaining goal. Twelve years passed began, still therefore imperative drawing up comply allay creation lead challenges.26 view serious questions concerning decree's unusually areas 31 facing approached great care, awareness expeditious accomplishment, citizens last enabled represents them. 33 REHNQUIST took cases. 34 BLACKMUN, THE CHIEF JUSTICE joins, concurring I Parts concur understand disapprove wherever possible, though cause variation otherwise appears produce disparities 986, 320 (1973). so, articulated precise evenly 27, 766, 766 (1975). 36 parties States case, concerned equal-population Their involved claimed dilute power.1 quite distinct: majoritarian principle, rights. Smith, Failure Reapportionment: Effect Reapportionment Election Blacks Legislative Bodies, How.L.J. 639 think does focus potential dissonance ideal fair minorities. decide issue time, observations Part indicate approach entirely appropriate. Details interrelated, helpful look isolated statewide determine improperly gerrymander place. Districts disfavor group counterbalanced favorable elsewhere. approach, therefore, examine overall opportunity voters. Statistics census reveal black 31.4%. Brief n. 40. nine (17.3%) (19.7%) 66. statistics unlikely provide equivalent strength.2 just proportional Whitcomb Chavis, 403 149-155, 1858, 1872-1875, 363 (1971). 39 normal system territorial normally legislature. extent translated depends factors, including (1) size group, (2) geographical dispersion, (3) (4) way drawn.3 probably sufficient result raising inference 40 Of course, seems preclude showing aspect discriminatory intent. disparate effect, piecemeal review misleading. For example, suggests single (with County). Ante, 424-425. combine (number 81), 70% votingage Moreover, reason believe entailed formation additional starting noncontiguous Simpson County. complete reshuffle southwestern implement alternative. One speculate 41 contiguity compactness assure 425-426. desirable characteristics doubt assuring groups.4 constraint gerrymandering imposed boundaries. conflict. attainment abandonment boundaries, easier.5 Conversely, places possibility gerrymander, discussion illustrates. 423-424. exactly ranging + 0.3% 1.3%. 43 None my preceding comments meant suggest intentional purest motives unavoidable groups natural districting, appearance partisanship possible POWELL, dissenting. 45 today strikes down violative principles 506 (1964). view, party urged Court1 unnecessary erroneous. question, correctly states, "whether 414. record abused broad necessarily exercise kind. 46 sound, depart our prior (Senate) (House). (1973), sustained Delegates 16.4%. lines, id., 985; see Davis Mann, 678, 686, 1441, 1445, 609 same comparable tradition sure, court, examined critically theory underlying demanding likely accurately unelected judges. attributable, explicit distinction becomes relatively unimportant.2 accepted litigation, true wholly irrelevant. presented argued agree BLACKMUN's case. assures State, 22, diluting 49 specific focuses six proposed preserve reconciliation competing interests -- equality, geographic vote.3 rejected alternatives, contentions review. Accordingly, findings comparing detail limit scope specifically readjustment alternatives proposed.4 affirm Court.5 award reasonable attorneys' fees, authorized amendments 1973l (e) (1970 ed., Supp. V), recent Civil Attorney's Fees Awards 1976, 90 Stat. 2641, 1988 (1976 ed.). reverse proceedings, resolve problem, instruct determination time remand. 76-934, 76-935 hereinafter plaintiffs. 1962 regime elected 40% voters; 38% 976-977. Thirty-four Most half constituted Thus Members 509-516. advised worked Harrison contained floterial subdistricts House. (Floterial legislators districtwide.) 1324-1325, 1333-1339. June 10, 1975, Acts ground denying abridging right account race. subsequently permitted intervene plaintiff. 1090-1091. directed trial await decisions questions. assumption hold days entry deferred 17, 1976. postulated integrity: "1. If Representative shall least Senator chosen solely county. largely conform, degree, subject, Howell (410 320). "2. Except Constitution, Section 254, split segments." (Emphasis original.) 766; 552 658, 704; Burns Richardson, 384 73, 85, 86 1286, 1293, 376. Miss.Const., Art. 13, 255. gauging norms, accept calculation populations deviations. this, controversy proper figures are. estimate frozen moment time. tract along precinct relevant extrapolated. That major shifts occurred census, proportionally Negroes whites ineligible age. "enter imbroglio mathematical manipulation," "confine court." 319 6, 982 91-93, 1296-1297. remand, confusion characterizes now us, genesis relies. simple error understating 29. According figures, 9.96%, 18.29%. 254. calculated 18.5%, December amending judgment, increased -9.1% -9.9%. refused assume Meier 5.95% satisfy "emphasize(d) exceedingly low 1% 181 persons difficult" i. e., means underinclusion overinclusion incremental 1112. sparsely populated North Dakota 121, "legitimate 24, Instead "each election" "particular emphasis placed establishing exact possible." 25, whole Sims. blanket Sims doctrine, "go(ing) toward alleviating plans." did, excessively malapportioned (arguing, 18.2% Washington Issaquena Counties), pointing norm. sort systemic violation revealed confine scrutiny egregious, localized examples violations relied parties. appropriately implicitly parties, authority exceptional circumstances notice federal-court errors exception taken, "seriously affect fairness, public reputation proceedings." Atkinson, 297 157, 160, 56 391, 392, 80 L.Ed. 555, Silber States, 370 717, 718, 1287, 1288, 798. Blonder-Tongue Laboratories University Foundation, 313, 1434, 1438, 788; Sibbach Wilson, 312 16, 61 422, 427-428, 85 479; Stern & E. Gressman, Supreme Practice 6.37 (4th ed. 1969). remedy deficiencies arguments, too, become moot invalidity us. decree, Fifteenth Amendments. Our limited addressed remedying Legislature's valid Ashwander TVA, 288, 347, 466, 483, 688 (Brandeis, J., concurring). See, e. g., 314; 363; Abate Mundt, 182, 184 1904, 1906, 399; 88-89, 1294-1295; Fortson Dorsey, 379 433, 439, 498, 501, 401. textual illustrative exhaustive catalogue Similar criticisms possibly contours counties. currently attack pending Appeals Fifth Circuit reargument understood pretermitting Unlike "boundaries fixed statute generations," units government, frequently changed Boards Supervisors. Court: "Beat follow governmental laid section, township, range words invisible all, unknown most. rare knows line ." 518. step eliminating setting mean obscure significance advance. immediately available fruits affirmed vacates retain power permit. fact, improving 49a (Hinds districts); 55a (Warren Private Appellants 45-46 (Adams districts). racial-dilution predicated common questionable blacks receive compose 28-36; 33-59. perhaps excluded process. 765-770, 2339-2340, Separate race, certainly optimal solution temporary, expedient remedy. Rae, Political Consequences Electoral Laws (1967); Tufte, Relationship Seats Votes Two-Party Systems, 67 Am.Pol.Sci.Rev. 540 workable evaluating available, event promote Dixon, Democratic Representation 460-461 (1968); Mayhew, Congressional Representation: Theory Drawing Districts, N. Polsby, 1970s, pp. 253-255 578-579, 1390-1391, (1964); Wells Rockefeller, 394 542, 551-552, 89 1234, 1240, 535 (1969) (Harlan, dissenting); 554-555, 1242 (White, dissenting). Baker, Gerrymandering: Privileged Sanctuary Next Judicial Target?, 137-138 (1971); Elliott, Reapportionment, U.Chi.L.Rev. 474, 481-490 (1970). Clause. basis. : "It favors strict lines." follows: (Senate 31-35); Warren (House 53-55); Forrest 103-106); 32-35), 37-38). 74-92, 45a-71a. 53-55) 56. 54a n.* 38) apparently surrounding 68a-71a. notes, 75-2212. pretermit it. redrawn, re-examine corresponding dilution, offer affected urge aside. sound text, reject challenges. claiming larger (59.5%) obtains (50.7%). contention merit. disposition makes discuss

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