Document: 422 U.S. 358 95 S.Ct. 2296 45 L.Ed.2d 245 CITY OF RICHMOND, VIRGINIA, Appellant,v.UNITED STATES et al. No. 74—201. Argued April 23, 1975. Decided June 24, Syllabus In 1969 a Virginia court approved annexation by the city of Richmond, effective January 1, 1970, an adjacent area in Chesterfield County, which reduced proportion Negroes Richmond from 52% to 42%. The preannexation nine-man council, was elected at large, had three members who were endorsed Negro civic organization. postannexation at-large election nine also that Following this Court's holding Perkins v. Matthews, 400 378, 91 431, 27 476, § 5 Voting Rights Act 1965 (Act) reaches extension city's boundaries through annexation, unsuccessfully sought Attorney General's approval County annexation. Meanwhile respondent Holt brought action federal challenging on constitutional grounds, and District Court issued decision, City 334 F.Supp. 228 (Holt I), illegal racial purpose, ordered new election. Appeals reversed. interim, another suit (Hotl II) seeking have invalidated under for lack required Act. As result II suit, stayed pending outcome instant litigation, further council elections been enjoined 1970 has remained office. Having received no response General renewed request, Columbia, relying Appeals' decision I. Shortly thereafter, decided Petersburg United States, 354 1021, aff'd, 410 962, 93 1441, 35 698, invalidating plan where rule before after but indicating could be obtained if 'modifications calculated neutralize . any adverse effect upon political participation black voters are adopted, i.e., plaintiff shift ward system electing its councilmen.' thereafter developed wards, four with substantial majorities, white ninth 59% white, 41% division. apposition intervenors, referred Special Master, concluded not met burden proving annexation's purpose dilute vote, did cure racially discriminatory purpose. Additionally, he diluting dissipated greatest extent possible, acceptable offsetting economic or administrative benefits shown, deannexation only remedy violations. Except recommendation, accepted Master's findings conclusions. '(i)f blacks citizenry annexed is appreciably less than living within old boundaries, particularly there history bloc voting city, power citizens as class diluted thus abridged.' matter fashioned left resolution stillpending II. Held: 1. An reducing relative strength minority race enlarged compared what it does violate long fairly recognizes, case, minority's potential. Pp. 367-372. (a) Although supra, held boundary changes sufficient potential discrimination require procedures, mean every effecting percentage reduction population prohibited 5. Though majority, combined councilmanic create enhance majority exclude totally consequence can satisfactorily obviated replaced choosing councilmen, affording representation reasonably equivalent their community. community, voting, will fewer different involved Negroes, moreover, underrepresented. 368-371. (b) here review undervalue denying abridging right vote meaning 371-372. 2. Since forbids made reasons, proceedings necessary update reassess evidence bearing issue whether sound, nondiscriminatory reasons retaining area, being clear Master adequately considered deciding now justifiable took place 1970. 372-379. 376 1344, vacated remanded. 1 Lawrence G. Wallace, Washington, D.C., appellee States support appellant. 2 Charles S. Rhyne, 3 Armand Derfner, appellees Crusade Voters others. 4 W. H. C. Venable, Va., Mr. Justice WHITE delivered opinion Court. 6 Under 1965, 79 Stat. 439, amended, 42 U.S.C. 1973c,1 State subdivision thereof subject may enforce change 'any qualification prerequisite voting' unless such either officer failed act 60 days submission him, Columbia declaratory judgment 'does account color ..' 379, 476 (1971), process Here, land formerly carried proof demonstrating neither nor community color. 7 * controlling statutes2 permit cities annex obtaining favorable specially constituted three-judge court. 1962, judicial two ordinances, one approximately 150 square miles Henrico other 51 County. protracted, proceeded first. authorized 16 County; because $55 million financial obligation which, turned out, would entail, determined best interest. case accordingly dismissed. 8 then case. May 1969, compromise line incorporated decree July 12, 1969,3 awarded 23 202,359, 104,207 citizens. therefore 249,621, whom 1,557 45,705 nonblack. 249,621 105,764 42% Negroes. became exercised jurisdiction over since time.4 9 Before immediately large. 1968, candidates organization, council. postannexation, endorsement Crusade. 10 On 14, 1971, divided applied annexations. 28, 7, requesting receiving additional materials declined approve change, deemed represent, saying substantially increased whites decreased 'inevitably tends voters.' App. 24. suggested, however, '(y)ou may, course, wish consider means accomplishing avoid producing impermissible impact including techniques single-member districts.' Ibid. reversal Chavis Whitcomb, 305 1364 (SD Ind.1969), rev'd, 403 124, 1858, 29 363 relied disapproving request reconsideration denied September 30, again suggestion 'single-member, non-racially drawn districts' 'one minimzing 32. 11 February 4, Curtis I) Eastern Virginia, asserting rights Fifteenth Amendment. November ruled seven councilmen large primarily area. 228. Fourth Circuit, sitting en banc, reversed 3, 1972, Cir., 459 F.2d 1093, cert. denied, 408 931, 92 2510, 33 343 (1972), Amendment violated, valid record finding motivated same considerations. 12 December 9, began time declared invalid failure secured Columbia. present 13 Upon denial certiorari I, asked modify his disapproval Circuit's accompanied violated. Receiving General, filed August 25, Respondent intervened. 14 1021 There, unvalid both indicated 'on condition modifications possible Id., 1031. We affirmed judgment. 698 (1973). 15 Thereafter, submitted various plans establishing districts city. With some modification, agreed, these plans. This nine-ward proposal wards division black. district form consent intervenors opposed it, hearings recommendations.5 recommended fact conclusions law. Based statements officials events found taken place, persons accompanying addition, event demonstrated counterbalancing benefits, violations found. Court, 1344 (1974), essentially except recommendation respect deannexation. '1970 practices following violative Section 5's substantive standards well section's procedural command prior court.' 1352. went hold invidious underlying eliminated 'objectively verifiable, legitimate annexation' shown effectively eliminate sufficiently compensate dilution resulting 1353—1354. Furthermore, fashioning not, held, minimized extent, conclusion presented improved chance control five out wards. approved, therefore, forbidden Richmond. 17 order deannexation, II, still Virginia. noted probable jurisdiction, 419 1067, 653, 663 (1974). 18 deal first contemplation 19 becoming they must But difficult conceive composition least extent; we hold, asserted, abridged,' F.Supp., 1348 (footnote omitted), violates cannot approved. 20 proposed satisfied Councilmen large; up more half population, voters; contained heavy majority. A although context elections, perpetuate and, positing prevalent, group's always deny abridge 5: 21 'If view Diamond concerning constitutes abridgment cases prevail, ever areas covered bloc-voting local office balance even smallest degree It essential continued health municipality favored all races; demographic makeup surrounding produce another, disapprove without considering evidence, locked into original boundaries. agree intent Congress when enacted Act.' 1030 omitted). 22 5, exist cured city: 'The concludes then, insofar mere expansion system, kind prevent; concludes, accordance findings, 24 entered refusing retained directed 'plaintiff prepare conducting requirements interpreted Jurisdictional Statement 72—865, O.T.1972, p. 25a. appeal, question, among others, correct conditioning adoption elect opinion. 25 Petersbury correctly decided. facts presented, created enhanced governing membership councilmen. our designed circumstances prevent total exclusion afford them 26 accept position nevertheless constitute lesser given seats If having annexes largely redrawn, rather before, alone do demonstrate vote. reflects exists specific legislative directions, barred true council; effected deline Negroes' influence undervalued, underrepresented true, To otherwise forbid annexations require, price assigned hence perhaps permanently overrepresenting underrepresenting elements nonblack unwilling intended enacting 28 convinced us, finally agreed us included each greater 64% Four heavily white. 40.9%. view, annexation; rested stand. III foregoing principles should govern application procedures grounds section proscribes grounds. eventually adopted precise purge itself prove factors, successfully shown: (1) objectively adopting 1973; (2) 'the reduced, eliminated, caused 1353 current, warranting second requirement, comparable enjoyed soon controlled because, event, doubtful system. 30 requirement allocate larger excess underrepresent fundamentally odds expressed earlier opinion, treating satisfy proscribed 31 Accepting forward infected based perpetuating elections,6 persuaded verifiable demonstrable designed, need sustained most extraordinary permitted overrepresented councils very those case; for, far concerned, quite ready receive back capital improvements, resume governance seem obvious accrue prospects worsened 32 determine now, however; if, clear, factor bring date issue. gave adequate consideration special, award, giving great weight agreement, 'Richmond entitled Obviously manner grow territory face disastrous social problems.' 42. find 'requirements necessity important all, expediency,' id., 47, expediency sense "advantageous' furtherance policy 'urban urban government rural county government." 44. attacked purposeful deprive race, plaintiffs proved design rights. expressly annexing part 1962 inadequate show purposes 1969. come contrary but, according Appeals, 'found firm non-racial necessary, expedient inevitable.'7 dissenting judges that, absent legally though thereby diminished. One dissenters said: reason question geographical scope, decreed run course since, my reading record, people consequent I judge's relief solely ordering conditions diluted.' F.2d, 1111 (Winter, J., dissenting). 34 stated doubt 'Richmond's leadership goals filing suit,' 1354 n. 52, advantages justifying asserted '(t)hese evidentiary references were, making findings,' summarily concluded, discussion, 'persuade wrong, dissipate permeates record.' omitted).8 appears testimony administrator obviously interested witness. At indication attention record. claims issues encompass Given responsibilities confident adequacy lower court's it. above, complete retain believe desirable. IV 36 statutory violation post-annexation electoral recognizes so, how achieving perfectly legal why remand alone. answer plain, labor official action, otherwise, discriminating against legitimacy Constitution statute. surely gross slurs, point 'to despoil colored citizens, theretofore rights.' Gomillion Lightfoot, 364 339, 347, 81 125, 130, 110 (1960). Annexations animated credentials whatsoevers '(a)cts generally lawful become unlawful done accomplish end Western Union Telegraph Co. Foster, 247 105, 114, 38 438, 62 L.Ed. 1006 (1918); U.S., S.Ct., 130. basis whatever actual be. 37 remanded consistent So ordered. 39 POWELL 40 BRENNAN, DOUGLAS MARSHALL join, dissenting. 41 applying proper standards, portions Richmond's finding, clearly erroneous, amply supported below, properly dissent. 19651 grew sorry resistance Amendment's ringing proscription voting. That history, reviewed upholding Act's constitutionality South Carolina Katzenbach, 383 301, 308—315, 86 803, 808—812, 769 (1966), showed persistent often ingenious use tests devices disenfranchise citizens.2 Congress, response, banned restricted many familiar devices;3 recognizing 'that 4(b) resorted stratagem contriving rules kinds sole (and) might try similar maneuvers future evade remedies itself,'4 broad prophylactic Act, prohibiting implementing 'voting standard, practice, procedure securing effort delays uncertainties fostered statutes, affected parties forced assume initiative practices, placed proceeding squarely acting free effect.5 locality past discrimination.6 43 short, imposed stringent comprehensive set controls falling coverage. heretofore language give broadest scope,' changes, small, subjected scrutiny,' Allen Board Elections, 393 544, 567—568, 89 817, 832—833, (1969); reapportionments, annexations, state actions potentially 569—571, 833—835; Georgia 411 526, 1702, 472 (1973); (1971). 44 frontline responsibility interpreting rests exclusively Columbia,7 considerable experience acquired dealing enhances judgments appellate virtue unique position. recognized bears 'heavy responsibility' 'responsibility ensure realization promise equal process.' 1346—1347 exercising determinations, equally devoted majestic promise. flagrantly hastily settled compelled replete beyond predominant (if sole) motive desire negotiators settlement acquire 44,000 avert transfer fast black-population majority.8 explicit: 46 focus negotiations number obtain interest geographic considerations tax revenues, vacant land, utilities, schools. mayor assurances suit. And conditioned final acceptance agreement going make eligible Council 1970.'9 47 Against background, represented victory entrenched establishment: realized net gain predominantly Forward organization 6—3 48 succeeded patently enterprise, argues taint dredging supposed objective justifications replacing practice ward-voting implications discussed Part III, infra; meanwhile, grave difficulty idea can, dispelled sort post hoc rationalization offers. 49 below initiating 'by expansion.' 1351. By pushed background unseemly haste establishment protect solidify power. quoted above fully establish negotiated atmosphere devoid concern issues; own Boundary Expansion Coordinator consulted about so-called Horner-Bagley until several weeks drawn.10 contours particular shaped considerations, inference merely reasonable indeed significantly motivation present.11 50 reached validated offered years fact, wholly negates 5.12 nevertheless, remands taking presence annexation.' Even assuming, did, validate originally necessary. appointed Fed.Rule Civ.Proc. 53, "has annexation." 1353. entire (ED Va.1971), rev'd 1093 (CA4), stipulated,13 ample consequences weighed conflicting carry showing consummated 1969.14 52 Federal Rule 52(a) compels called erroneous. impossible, attach label indeed, never goes so so. Nevertheless, apparent disagreement resolved court, proceedings, hopes re-evaluation result. me inconsistent role operating strictures 52(a). 53 prong inquiry applies 54 'Clearly, revision lines ways: certain leaving others outside, determines municipal not; dilutes votes franchise limited suffrage debasement citizen's just exercise franchise.' Reynolds Sims, 377 533, 555, 84 1362, 1378, 506 (1964). Moreover, cover inheres electorate 388-389, 437. 55 guidelines discussion follows: 56 'Perkins implicit obvious: 57 Measured dilutive semantics realities. Blacks 44.8% voting-age 37.3% population. significant remedied, purposes, simply allocating proportionate share 58 forth discloses impose thwart subtle attempts elsewhere described 'an unusual, aspects severe, insuring discriminate enforcement laws.'15 certainly aware hardships inconvenience localities; passing form, unmistakably outweighed protection 59 Today's seriously weakens emphatically accorded Municipal politicians fearful losing emerging majorities today notice secure concentrations expand begun approach opportunity responsive voice conduct affairs, finds 'guarantees' makes elusive fifth seat remote before. offer, consolation, enjoy fair available community; rationale added seats, fractions seat. reliance fairness take fundamental namely, levels effectiveness suggests, interpretation preclude undertaking desperately needed programs Certainly nothing suggests disproportionately high impossible invidiously groups see 'demographics' situation insuperable problem Act; 'municipal hardship' exception vis-a -vis originate courts. 61 least, adopt standard "calculated voters." 1352.16 intervenor providing 'swing district' afforded plan; light alternative submissions reference patterns, possible,' minimize 1356—1357. basis, affirm absence More elapsed last Richmond.17 Hopes lifted year ago dashed, litigation; continue governed, years, slate 5.18 justifiably suspicious 'protection' suspended limbo, deprived select meeting years. let business appropriate expeditiously possible. 1973c, provides: 'Whenever prohibitions 1973b(a) title determinations sentence 1973b(b) shall enact seek administer force 1964, whenever institute qualification, prerequisite, color, enters person comply procedure: Provided, enforced chief interposed objection sixty submission, object bar subsequent enjoin procedure. Any heard provisions 2284 Title appeal lie Supreme Court.' Va.Code Ann. 15.1—1032 seq. (1973 Supp.1975). writ error refused Deerbourne Civic & Recreation Ass'n 210 Va. li—lii (1969), 397 1038, 90 1357, 649 (1970). motion stay separately individual Justices stipulated heard. See 1349 (DC 1974). contends estoppel behind binding participating participate asserts rejected argument pointing pro- ceedings bases cases, authorities applicable each. 1352 43. Whatever merits collateral-estoppel issue, nonparticipation explicitly reject Brief Parties 17, presently gives recommends purpose: 'We However, trial directly litigate question. parties, concentrated City's effects permissibility Petersburg, justify retention Thus develop relating intervening defendants full rebut evidence.' 34—35. conclude said respect, 1097 (1972): 'In 1961 compelling thinking terms cleavage between voters. Race Indeed, territory, preponderance voters, recognized, institution prosecution. body urgency growing opposition Forward' candidates, thoughts believed minds nonracial inevitable.' study Urban Institute 1971 fiscal surplus said, 'could remove doubts hearing.' 51. 437, 314, 1973 Beer 374 363, 377—378 (D.C.1974); H.R.Rep.No.439, 89th Cong., 1st Sess., 8—13 (1965), U.S.Code Cong. Admin.News, P. 2437; S.Rep.No.162, pt. 3—12 2508. These literacy tests, 'good moral character,' voucher requirements, §§ 4(a)—(d), 1973b(a)—(d), poll taxes, 10, 1973h. 335, 822, (1966). 538, 1709, 1027 (D.C.1972), (1973) consistently litigated Columbia; open approval. 383—386, 434—436, (1971); 555 559, 826—828, Connor Waller, 421 656, 2003, 486 (1975). 1349—1350 (D.c1974). 29, then-Mayor Bagley, hardly indirect. 1350 (footnotes 352—354. Several phase dispute belief, founded prodded hasty pendency elections. 1108 (CA4) dissenting), (1972); 228, 236 supra. Had clearance place. fall scope came effect; quirk timing, escaped preimplementation scrutiny entirely. remains grim reminder existence birth. 1349. Much dealt abstract. Annexation abstract, here; critical contemporary justification factors expanded base, like. 556, 827 version 71; conducted narrowed 'effect' test today. Moreover occurred Perkins, attempt submit violated respects.

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