Document: 521 U.S. 567117 S.Ct. 2186138 L.Ed.2d 669 C. Martin LAWYER, III, Appellant,v.DEPARTMENT OF JUSTICE et al. No. 95-2024. Supreme Court of the United States Argued Feb. 19, 1997. Decided June 25, Syllabus * Based on 1990 census, Florida Legislature adopted a reapportionment plan for State Senate and House districts. When Justice Department refused to preclear plan, entered an order encouraging state legislature adopt new plan. Advised that Governor would not convene extraordinary session neither President nor Speaker his respective house, court concluded legislative impasse had occurred revised redistricting itself producing Plan 330. In 1995, appellant other residents District 21 as in 330 filed suit against federal parties Federal Court, alleging violated Equal Protection Clause. The three-judge permitted intervention by Senate, Representatives others. Ultimately, all but agreed settlement revise under 386. At hearing, rejected appellant's objections was obliged find unconstitutional before approving settlement, 386 Miller v. Johnson, 515 900, 115 2475, 132 762, because only race could explain 21's contours. approved settlement. Held: 1.The did err agreement without formally holding unconstitutional. Pp. ____-____. (a) responsibility should be accorded primacy extent possible when exercises remedial power. Growe Emison, 507 34, 113 1075, 1081, 122 388. A given opportunity make its own decision so long is practically chooses take opportunity. Ibid.; Wise Lipscomb, 437 535, 540, 98 2493, 2497, 57 411. Court's deny State's devise here, has selected entering into agreement. There no reason suppose attorney general lacked authority propose incident represent litigation, participation counsel each chamber confirms this well legislature's continuing refusal address issue formal session. taken advantage recognized Wise. (b) bound adjudicate liability even though settle. impermissibly impose duties or obligations dispose claims. See Firefighters Cleveland, 478 501, 529, 106 3063, 3079, 92 405. It disposed claim forbidden sense cutting him off from remedy which he entitled, legitimate granting element very relief sought: elimination claimed Insofar also wanted constitutional, same position have been with decree: views 386's merits were heard, right attack it appeal unimpaired. He may demand adjudication demanded instead waived. 2.The finding subordinate traditional districting principles clearly erroneous. supra, at ----, S.Ct., 2488-2489. Appellant's contrary based charges encompasses more than one county, crosses body water, irregular shape, lacks compactness, contains percentage black voters significantly higher overall counties district drawn. His first four points ignore unrefuted evidence showing different what Florida's expected produce. As final point, never suggested exceed any created, required similar racial composition political districts avoid inference gerrymandering them. 920 F.Supp. 1248, affirmed. SOUTER, J., delivered opinion REHNQUIST, C.J., STEVENS, GINSBURG, BREYER, JJ., joined. SCALIA, dissenting opinion, O'CONNOR, KENNEDY, THOMAS, Robert J. Shapiro, Tampa, FL, appellant. Richard G. Taranto, Washington, DC, appellees. Irving L. Gornstein, appellee. SOUTER Court. 1 Appellant several plaintiffs challenging configuration All except reached provisional and, after fairness proposed claims acted giving adequate choice adjudicating legality original approve over objection, violates Constitution. We hold exercised entitled our cases, block failed point up unconstitutionality proposed. 2 After Decennial Census, 40 120 Following procedure set forth constitution, see Fla. Const., Art. §16(c) (1970), petitioned declaration comported law. That while noting time constraints imposed constitution precluded full review raised §2 Voting Rights Act 1965, 79 Stat. 437, amended, 42 U.S.C. §1973. retained jurisdiction entertain further re Constitutionality SJR 2G, 597 So.2d 276, 285-286 (Fla.), 601 543 (Fla.1992); Johnson De Grandy, 512 997, 1001, 114 2647, 2652, 129 775 (1994). 3 Since five counties, including Hillsborough County where city Tampa located, are covered jurisdictions §5 439, §1973c, 28 CFR pt. 51, App. (1996); n. 2, submitted preclearance. On 16, 1992, declined districts, grounds divided "politically cohesive minority populations'' county area create majority-minority region. Letter Assistant Attorney General John Dunne A. Butterworth (quoted 547 (Shaw, specially concurring)); Grandy Wetherell, 815 1550, 1556 (N.D.Fla.1992), aff'd. part rev'd part, supra. 4 then Department's if act, F.Supp., 1556; So.2d, 544-545. advised intent house. 1556. invoking law, objection. 545. 5 amended known 330, called irregularly shaped 21, voting-age population 45.8% 9.4% hispanic comprising portions Bay area. Id., 546. included central County, eastern shore running south Bradenton Manatee St. Petersburg Pinellas narrow projection eastward through parts Polk Counties, finger north Clearwater. Juris. Statement 29a. Although acknowledged "more contorted'' plans might little common besides their race, decided such concerns "must give way ethnic fairness.'' Elections held 1992 1994.1 6 April 14, 1994, §§1331, 1343, 2201, seq., naming Florida, general, defendants, sought declaratory injunctive relief, requiring reconfigure district. 14. convened ultimately Representatives, Secretary State, Senator James T. Hargrett, Jr., group residing 21. Record 33; 78; 159 Tr. 30 (Sept. 27, 1995). 7 status conference July 6, shortly we 762 (1995), appointment mediator seek resolution suit,2 78, 2; 134 13, 16 (July 1995), pretrial proceedings continued during ensuing mediation. declared late October, 166 8 (Oct. 26, discussions November signed behalf 17-21. noted defendants defendant-intervenors denied plaintiffs' unconstitutional, concurred "there reasonable factual legal basis claim.'' 17. revising 386, subject public comment used elections unless 18-19. longer extend toward Clearwater, boundary length decreased 58%, include resident voting age reduced 45.0% 36.2%. 40. cover three continue land both sides Bay. 169, attachment 4. day agreement, received specific assurances lawyers they authorized government bodies litigation enter 180 23-24 (Nov. argued id., disagreed, simply litigable respect shorthand purposes referred ought proceed.. resolve [concerning it].'' 26. 9 scheduled hearing 20, notice 13 newspapers making details available clerk's office. 161. Before settling affidavits declarations addressing factors considered 188, wholly contained within 172, A4. summarized prehearing filings proponents rationale behind 160-172. motion ruling summary judgment saying " [i]t makes difference whether grant . - [I]f granted your motion, precise posture now.'' 173. redrawn still contours, 175-188, former legislator spoke effect. 188-190. 10 March 1996, 1257 (M.D.Fla.1996). panel majority existing While recognizing need "guard disingenuous adventures'' litigants, 1252, deprived "an expensive protracted contest possibility adverse disruptive adjudication'' rule insisting "a mea culpa'' sole condition dispensing dispositive, determination controlling constitutional issue.'' 2. To balance competing interests, substantial "evidentiary legal'' approved, standard satisfied. "Each party either states unequivocally unconstitutionally configured concedes, established prima facie unconstitutionality.'' 1253, 3. found "boundaries current markedly uneven some respects, extraordinary,'' "bears least conspicuous signs racially conscious contrivance,'' 1255. 11 turned determine formation "dominated single-minded focus'' understood constitutionally Miller. 1254. observed 20 "produced two dissenters, plaintiff Lawyer Senator, whom presented relevant offered germane argument.'' "constitutional objection established. shape composition, is, said done, demonstrably benign satisfactorily tidy, especially prevailing geography.'' Ibid. district's approximate features region surrounding better did, boundaries "less strained irregular'' those candidates, regardless office, "both fair chance win usual risk defeat.'' 1255, 1256. 12 Chief Judge Tjoflat specially. thought judicial was. 1256-1257. probable jurisdiction, 519 117 292, 136 212 (1996), now affirm. II 14 argues erred thereby denying Brief 23, 32-33. relies 388 (1993), ""reapportionment primarily duty body, rather court' [and that] [a]bsent these branches will fail timely perform must affirmatively obstruct apportionment permit impede it.'' 1081 (quoting Chapman Meier, 420 1, 95 751, 766, 766 (1975)). cites 411 (1978), proposition declares should, possible, afford meet requirements adopting substitute measure effect plan.'' 2497 (opinion White). approval impaired interest exercising "primary [its] congressional districts,'' Growe, derivative "eviserat[ing] individual rights of'' appellant, citizen voter, "the liberties derived diffusion sovereign power representative government,'' substance benefit nothing cases cites, U.S., 1081. decisions does opportunity, discretion limited runs afoul case, reasons out below Part II-B every do. And availed proposing embodied can question present record itself, there litigation.4 evidence, indeed, entirely favor. confirmed behalf.5 facts, consistent underlying ground affected government's entitlement originate policy. option instance, burden exercise unconstitutionality. B merit, either, apparently distinct that, responsibility, agree 27. "It supposed party-whether party, joined later, intervenor-could preclude disputes.'' 528-529, 3078-3079, 405 (1986).6 heard consider "does decree merely withholding [his] consent.'' 3079; cf. 7B Charles Alan Wright, Arthur R. Miller, & Mary Kay Kane, Practice Procedure §1797.1, 412 (2d ed.1986) (fact opposition necessitate disapproval class action Rule Civil 23). nonclass unconsenting "dispose'' claims, Firefighters, here none things. sought. requested gave relief. formality addition allow sore winner obscure suit. most civil particular, end means. rainbow lies judgment, (or cessation action) defendant produces real value pronouncement-what proper "case controversy' advisory opinion-is dispute affects behavior towards plaintiff. '' Hewitt Helms, 482 755, 761, 107 2672, 2676, 96 654 (1987). Appellant, course, something being rid constitutional. But insofar following court, enjoyed anything more, trying do previously do: represented indeed demanded, 1081; Wise, White, J.), III race.7 1254-1255. clear error, 2488-2489, none. looked them "demonstrably tidy.'' located area, end-to-end distance greater districts,8 stand numerous 60-75. water showed characteristics products geography fact superimposed 67 counties. 28, 32-33.9 Addressing "regard themselves community.'' Evidence indicated comprises predominantly urban, low-income population, poorest nine among whose white members alike share similarly depressed economic condition, 30-31, 49-51, interests reflect it, 149-154. district, 36.2%, supports "safe'' black-preferred "offers candidate, regard opportunity'' elected considerations,10 subordinated drawing calls erroneous, charging Hillsborough, Manatee, 40-45. __-__. necessary difficult, all, just varies place place, depend size location, facts about necessarily entail conclusions other. short, amply trial court's predominate provided conclusion question, much less error. accordingly affirm ordered. THOMAS join, dissenting. today affirms redrawing despite determined whatever contained. my view, actions unprecedented intrusion upon sovereignty. Fourteenth Amendment "compel nullification re-establishment boundaries'' violation Amendment, case presents sufficient evidentiary warrant thebona fide matters typically reserved state.'' 1251-1252 acknowledging ""[d]efendants assertions [of unconstitutionality],''' 1252-1253, Settlement Agreement), "fairly litigable,'' ibid., enough justify order. cited mandate O'CONNOR's concurring Wygant Jackson Bd. Ed., 476 267, 284, 1842, 1852, 90 260 (1986). bearing case. dealt school board could, Constitution, implement affirmative program contemporaneous findings justified instances past discrimination. 289-291, 1854-1856. Quite obviously, voluntary determining law evidently believes unnecessary consent accepting imposition For (1986), "it parties' serves source [District Court's] 522, 3075. However, passage help Court-even putting aside "agreement'' issue, unlike unlawful conduct (a "pattern discrimination'') adjudged, 506, 511-512, 3067, 3069-3070.1Firefighters Title VII firefighters, discriminated promotions. union representing city's firefighters intervened party-plaintiff objected contending, things, decree. disagreed. city, said, out-of-court dispute. 522-523, 3075-3076, 13. "The enforcement scheme-whether rely contractual remedies decree-is made voluntarily parties.'' 523, 3076. today's contrast, (now appellees) binding "redistricting agreement'' representatives Legislature, general-and contend otherwise. §16, requires draw "by joint resolution,'' provides so.2 Any officials obviously null void. purport remediation adjudged cannot binding. 3075-3076. also, e.g., Perkins Chicago Heights, 47 F.3d 212, 216 (C.A.7 These suffice invalidate unauthorized private ordinary apply rigorously purportedly supporting reapportionment, described "unwelcome obligation,'' Connor Finch, 431 407, 415, 97 1828, 1834, 52 465 (1977), undertaken last resort, see, White Weiser, 783, 93 2348, 37 335 (1973). Indeed, authorize negotiate decree, think special solicitude shown preservation States' cause clearer credentials who speak legislature.3 asserted "Florida's manifested consent,'' 1251, conferring legislators court; least, exists. letter Howard Forman reading follows: "This intended communicate you strongest terms collegial open debate entire body. duly Member I waived participate matters. And, circumstances Senators, name "Therefore, challenge representation case.'' 152. inquiries authorization agreements supererogatory. Even serve explicitly, unmistakable terms, [f]ederal courts barred intervening absence law.'' Voinovich Quilter, 146, 156, 1149, 1156, 500 (1993) (emphasis added). Tjoflat's concurrence correctly stated, "to unconstitutional.'' adhere principle. Finally, merit apparent suggestion, ante, __, standing complain defect. mooted Surely sustain appeal. failure pre-existing alone require reversal judgment. committed second failing redraw imposing court-ordered solution. repeatedly emphasized interference "represents serious vital local functions,'' 2488, "reapportionment[, which] State,'' (1975), ""is matter consideration determination.''' 414, 1833 Reynolds Sims, 377 533, 586, 84 1362, 1394, 506 (1964)). ""[J]udicial becomes appropriate,''' ""only fails reapportion according requisites fashion having so.''' 794-795, 2354 Reynolds, 1394). 33-34, 1080-1081, (1993); Upham Seamon, 456 37, 41-42, 102 1518, 1521-1522, 71 725 (1982); McDaniel Sanchez, 452 130, 142, 101 2224, 2232, 68 724 (1981); (1978) J.). craft solution unconstitutional-or (since made) litigable''-was assuredly "legislative solution,'' "plan proposed,'' 1257. characterization overcome reality. participated negotiations consented magically convert "opportunity apportion'' afforded apportion normal processes, courthouse attended member House, followed Appellees actually redistrict, declined. This contention informed prior merits, likely sua sponte response reports 5. requisite describe extant ruled unconstitutional-not announced lead McDaniel, 2232; 585-586, 1393-1394. obligation redistrict until ****** Because violation; intention proceed plan), reverse remand proceedings. Given challenges occasion constitutionality court-drawn respectfully dissent *The syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Timber Lumber Co., 200 321, 337, 26 282, 287, 50 L.Ed. 499. separate vote dilution attacking certain Miami Pensacola areas created (as modified 330). time, intervene, 33, yet motions intervene Hargrett pending treated prospective intervenors parties. file intervene. 24. No submitting conference. reject appellees' preserve 173, statements asking supreme fairly here. 36-37, 39, 1995); 15-16 Article Constitution exclusive means place. post, __-__, article decennial convene. Const. §16(a). says "implicitly reapportion'' implication'' event invalidates grounds. disagree implicit limit broad possessed litigation. See, Ervin Collins, 85 852, 854 (Fla.1956) (noting chief officer absent express restriction contrary, premises [the litigate] require''); ex rel. Shevin Yarborough, 257 891, 894-896 (Fla.1972) (Ervin concurring). Absent placing general's doubt, contrary. look initial 18-19, 21-22 directed appellees monthly "report informing initiated official branch regarding senatorial "reapportionment plan.''' directed, indicating apart ongoing 121, 141, 160. authorized, "demand credentials'' part. __. However be, virtue subsequent not, prevent again. 19. Notwithstanding dissent's claim, limits decrees follow liability. expressly principle [consent] all,'' 3075, reference 35. deference due 1256 (M.D.Fla.1996) ("Plan passes pertinent test fairness''). miles indicates 15 end-to-end. presence connecting bridge necessitates travel outside reach violate contiguity Constitution.'' 280 (Fla.1992). addition, single Dade County. 33. Multicounty increases number goal traditionally pursued State. 32, 7. design satisfy one-person, one-vote requirements, desire retain partisan 31, out-of-cycle elections, 28-29. Apportionment Law, 414 1040, 1047-1050 (Fla.1982) (special changed, disrupting staggered senate terms). am puzzled assertion "our [Firefighters] liability.'' Ante, 6. said: "Judge Lambros "[t]he documents, statistics, testimony [the] hearings reveal historical pattern discrimination promotions City Cleveland Fire Department.''' 3070 Vanguards Civ. Action. C-80-1964 (N.D.Ohio, Jan. 1983), reprinted Opposition O.T.1986, 84-1999, pp. A3-A4). explicitly "at regular year census.'' seems obvious implicitly Joint Resolution 543, 544 29-30 1995) (view Representatives); 93, incumbent Senator). imagine asserting anyone else, (by "settling authority,'' 4), invalidated. correct 4, comes close permitting asserts, citation, "counsel behalf.'' unaware confirmation, suggests Moreover, prescribed act §16; (absent preclearance, hence implication federal-court invalidation, view beside settle lawsuit legislature. know support proposition, (M.D.Fla.1996); 1255 ("Foremost commending ''); ibid. ("proposed like advanced preeminently reason'' added)).

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