Document: 462 U.S. 835 103 S.Ct. 2690 77 L.Ed.2d 214 Margaret R. BROWN, et al., Appellantsv.Thyra THOMSON, Secretary of State Wyoming, al. No. 82-65. Argued March 21, 1983. Decided June 22, Syllabus The Wyoming Legislature consists a Senate and House Representatives. Constitution provides that each the State's 23 counties shall constitute senatorial representative district have at least one senator representative, requires senators representatives to be apportioned among "as nearly as may according number their inhabitants." A 1981 statute reapportioned Based on 1980 census placing Wyoming's population 469,557, ideal apportionment would been 7,337 persons per representative. But reapportionment resulted in an average deviation from equality 16% maximum 89%. Niobrara County, populous county, was given even though its only 2,924, legislature having provided county if statutory formula rounded county's zero. also County's representation were held unconstitutional, it combined with neighboring single so consist 63 representatives. Appellants (members League Women Voters residents seven which is greater than state average) filed action Federal District Court, alleging granting County diluted voting privileges appellants other voters similarly situated violation Fourteenth Amendment, seeking declaratory injunctive relief. Court upheld constitutionality statute. Held: has not violated Equal Protection Clause Amendment by permitting own Pp. 842-848. (a) Some deviations necessary permit States pursue legitimate objectives such "maintain[ing] integrity various political subdivisions" "provid[ing] for compact districts contiguous territory." Reynolds v. Sims, 377 533, 578, 84 1362, 1390, 12 506. plan disparities larger 10% creates prima facie case discrimination therefore must justified State, ultimate inquiry being whether reasonably said advance rational policy and, so, resulting exceed constitutional limits. 842-843. (b) This presents unusually strong example variations are entirely result consistent nondiscriminatory application policy. since statehood, followed using ensuring Moreover, applied factor preserving subdivisions free any taint arbitrariness or discrimination. 843-846. (c) boundaries justifies additional provision County. Considerable remain eliminated. Under 63-member plan, 13% 66%. These statistics make clear grant significant cause Wyoming. differences between two plans basis above boundaries. By enacting 64-member ensured this applies nondiscriminatorily, whereas effect deprive 846-848. 536 F.Supp. 780, affirmed. Suellen L. Davidson, Cheyenne, Wyo., appellants. Randall T. Cox, respondents, pro hac vice, special leave Court. Justice POWELL delivered opinion 1 issue allocating 64 seats Representatives considerably lower 2 * Since became 1890, consisted "shall district" "[e]ach representative." required "apportioned Wyo. Const., Art. 3, § 3.1 had 1922. Because challenged three times past 20 years, some background helpful. 3 In 1963 six most suit challenging 25 61 three-judge Senate—one allocated counties, largest senators—so far departed principle unconstitutional. Schaefer Thomson, 240 247, 251-252 (Wyo.1964), supplemented, 251 450 (1965), aff'd sub nom. Harrison Schaefer, 383 269, 86 929, 15 750 (1966).2 court requirement produced equality: 16%, while percentage smallest 90%. See App. Exhibits 16. these justifiable "the honest attempt, based considerations, effectuate practical house under conditions they exist Wyoming." F.Supp., 251. 4 1971 similar 1963, 15% 86%. 18. Another challenge brought again House, observing "five minimal adjustments" made gaining losing because shifts. Thompson 344 1378, 1380 (Wyo.1972). 5 present reapportioning accordance requirements Constitution. Wyo.Stat. 28-2-109 (Supp.1982).3 placed 469,557. representatives, meaning Each including fell below 7,337. those prior decades, 19-20. 6 concerns county. Its 2,924 less half Accordingly, general dictated purposes down 28-2-109(a)(ii). deprived first time 1913. found, however, opportunity oppression people them guaranteed (1) representative."4 It Constitution's expressly receive 28-2-109(a)(iii). thus seat 64-seat House. district. then 28-2-109(a)(iv). 7 Appellants, members average, lawsuit They alleged "[b]y statutorily entitled, Plaintiffs citizens electors improperly illegally 14th Amendment. . ." 3-4. sought relief prevent giving separate implementing alternative calling 8 780 (1982). noted narrow presented discriminatory concluded, citing expert testimony, 'dilution' plaintiffs' votes de minimis when Id., 783. found indeed, particularly well suited needs 784.5 9 We probable jurisdiction, --- ----, 48, 75 (1982), now affirm. II A. 10 568, 1385, 506 (1964), both houses bicameral m st basis." holding "that good faith effort construct equal practicable," "it impossibility arrange legislative identical residents, citizens, voters." 577, S.Ct., 1390. Gaffney Cummings, 412 735, 745-748, 93 2321, 2327-2329, 37 298 (1973) (describing difficulties measurement population). 11 recognized Reynolds, supra, U.S., As stated Gaffney, "[a]n unrealistic overemphasis raw figures, mere nose count districts, submerge considerations itself furnish ready tool ignoring factors day-to-day operation important acceptable arrangement." 749, 2329. view we "minor mathematical insufficient out invidious require justification State." 745, 2327. Our decisions established, matter, falls within category minor deviations. See, e.g., Connor Finch, 431 407, 418, 97 1828, 1835, 52 465 (1977); White Regester, 755, 764, 2332, 2338, 314 (1973). population, State. Swann Adams, 385 440, 444, 87 569, 572, 17 501 (1967) ("De unavoidable, but 30% senate 40% can hardly deemed none our cases suggests magnitude will accepted, without satisfactory explanation grounded policy.") inquiry, therefore, legislature's "may [a] policy" "whether pursuit limits." Mahan Howell, 410 315, 328, 979, 987, 35 320 B 13 there no question equality—60% mean—is more minor. There policy—followed statehood—of supported substantial concerns. Abate Mundt, 403 182, 185, 91 1904, 1906-1907, 29 399 (1971), "a desire preserve justify departs numerical equality." 329, 987. Indeed, singled preservation clearly 580-581, 1391-1392. 14 undisputed manner "free discrimination." Roman Sincock, 695, 710, 1449, 1458, 620 (1964). Constitution, consistently throughout particular force peculiar size nature governmental structure. n. 5, supra; 784. addition, sole criterion used, ensures districts. 326, 986 (evidence " 'produces minimum norm, keeping intact boundaries' "). Finally, evidence built-in bias tending favor interests geographic areas." 187, 1907-1908. Judge Doyle below, "there slightest sign group discriminated against here. indication cities towns against; contrary, Laramie, Casper, Sheridan, shown suffered degree. preference cattle-raising agricultural areas such." 788 (Doyle, J., specially concurring). 16 short, policy.6 does mean necessarily acceptable. Even neutral use frustrate Reynolds' mandate fair effective excessively high.7 "[A] urged disparity however rational, cannot constitutionally permitted emasculate goal 986. remains true, noted, consideration "to character degree strict 581, 1392. consistency neutrality nonpopulation criteria considered along determining contravenes Clause. C Here decide adherence deliberately limited dilution power County.8 89% deviation, considering whole, permissible. Rather, County.9 18 scarcely denied terms actual appellants' power, matters little r used. example, reside elect 28 either plan. difference, 43.75% (28 members) 44.44% members). 783.10 aptly described difference "de minimis." Ibid. 19 do suggest create allocate way chooses simply remainder voters. allocation subdivision still violate greatly exceeds existing rest justifications creation seat. Here, considerable 22. believe longstanding 841, 2696 - 2697. Particularly where "taint discrimination," deference accorded acting through elected noteworthy nondiscriminatorily. constituted facilitate 784; id., 786 circumstances, persuaded judgment 21 Affirmed. 22 O'CONNOR, whom STEVENS joins, concurring. today Karcher Daggett, 2653, ---, upholds, former, strikes down, latter, congressional New Jersey 0.6984%. member majority cases, I feel compelled explain reasons my joinder apparently divergent decisions. 24 view, "one-person, one-vote" guiding evaluating redistricting schemes. situations, matter numbers. flexibility assessing importance, consistency, policies disparities. Both opinions recognize need examining asserted policies.1 Karcher, demonstrated variances minority strength—the offered 2665. contrast, doubt product 26 emphasizes, whether, that, "Wyoming's districts." Ante, 846. Thus, relevant viewed 27 regard, emphasize point acknowledged majority. ante, Although figure controlling element challenge, eviscerate one-person, one-vote principle. observes, ibid., outer limit permissible face strongest justifications. past, scheme exceeding (1977). (1973), suggested 16.4% approach tolerable limits."2 gravest doubts statewide could survive scrutiny despite presence interest join Court's understanding nothing uphold scheme. BRENNAN, WHITE, MARSHALL, BLACKMUN join, dissenting. 30 upholds featuring equality. agree. 31 disagree today's holding, worth stressing how extraordinarily is, empty likely precedential value. goes chosen attack small feature scheme, weighs marginal unequalizing feature, overall entire 846, nn. 8-9; see 849 (O'CONNOR, Hence, although reaches wrong hand, unlikely future plaintiffs unconstitutional unwise scheme's objectionable feature. Whether thing speed cost litigation seen. henceforth know better exercise moderation restraint mounting attacks statutes, lest forfeit claim omitting assert big one. 32 apportioning legislature, "make practicable." certain permits absolute districts,1 carefully circumscribed range kind. What faithful population-based representation, occur recognizing "[T]he overriding objective vote citizen approximately weight 579, 33 clarified structure into apportionments, setting up what amounts four-step test. First, plaintiff show sufficiently large come establish rough threshold (adding together underrepresented overrepresented districts); level, ordinarily minimis. 842-843; 763-764, 2338-2339, Second, consider quality advanced Acceptable "legitimate incident effectuation policy," 1391, Roman, 1458. 325-326, 985-986, Third, divergences furthered plan," showing significantly serve policy; another substantially providing smaller equality, Kilgarlin Hill, 386 120, 123-124, 820, 822-823, 771 (1967); Mahan, 319-320, 982-983, 986; Connor, 420-421, 1836-1837. Fourth, succeeds furtherance policy, nevertheless enough tolerable. "For 34 takes manifestly test established considers instance alone combination conceded all around, course, "under 10%" threshold; great inequality set On might concede met second third steps. long-standing basic units one, untainted appears reduced (at increasing Representatives) goals lines assuring plausibly argued, passes fourth test—that deviations, size. 36 warned maintenance allowed negate fundamental person, vote. E.g., 419, 1836. Likewise, always feasible, constraints, guarantee own. "Carried too far, (for county) easily result, many States, total subversion equalpopulation body." 1391 (footnote omitted); 349, 11, 997, (BRENNAN, concurring part dissenting part). And unambiguously rejected reliance very urges reason stating sparseness excusing actually increases districts: "[S]parseness departure sparse problems different faced concentrated more, average. individual election highly populated emphasis should establishing exact possible." Chapman Meier, 420 1, 24-25, 95 751, 765, 42 766 (1975) (emphasis added). 38 Accord, 418-419, 18, 1836, 18; 580, 1391. 39 implicitly acknowledges, 843, overrepresentation—60% compared size—cannot kind 'minor' variatio[n] Sims indicated local counseling plans." Kilgarlin, 123, 822. expressed 26% ever permitted, ibid. fully 1907-1908, (1971). strength voter, triple counties.2 "[I]f provide times, five contended right residing disfavored effectively diluted." 562, 1381-1382. represents disregard it. "on wholly unrelated population." WMCA, Inc. Lomenzo, 633, 645, 1418, 1424, 568 constitutes representation." 40 If well, picture becomes worse. treatment single, isolated abuse, merely worst features. Of nine much proportionality. populations Sublette Crook Counties are, respectively, 38% 28% average; Washakie Teton 29% 28%, figure. 16%. figures spun further, unnecessary. surprising, then, makes whole. Members express "gravest constitutiona boundaries." 850 41 attempts escape stark facts reasoning, relying unspoken legal premise. Neither withstands examination. assumes aspect unequal voter. 847. mistaken. Severe relatively perhaps disturbing attend invalid unfortunate victims virtually disfranchised. evil combatted, however. equally illegal enact over -represented, expense Such "rotten borough"3 tend yield supposedly measuring harm individuals, illustrates; analysis overlooks fact numbers adversely affected.4 plaintiffs, dilute. Just class forbid elevation "supervoters" granted powerful franchise. elections, double- triple-counted named Jones, licensed practice law—even enactment would, rights Why, exalted location residence? 43 relies directly assumption judge severing weighing incremental system 44 "Appellants County." 846 (footnotes omitted). 45 leg logic—that problem legally severable plan—is contradicted leg—that examine effect—leads exceptionally perverse results. 46 confronted analogous situation Maryland Committee Fair Representation Tawes, 656, 1429, 595 argued Tawes allegedly apportioned, courts passed house, house. flatly argumen : 47 "Regardless possible concessions parties scope reviewing necessity whole entirety, meets federal requisites. impossible upon validity abstract, employed respect proper, indeed indispensable, subject judicial focus controversy voters, legislature. reject [the State's] contention precluded Delegates." 673, 1438-1439. 48 Lucas Colorado General Assembly, 713, 27, 1459, 1473, 632 (1964).5 49 invariably adhered rule regard led us houses, complaint, deviation—a deal carry policy—might tolerated, same unacceptable Lucas, 27. Where present, case, common sense created representation—a 23% increase equality—is cumulative imposed system. playing artificial tricks fairness body connection seats, allocation. method contradicts suggestion severable. willing system's inequalities give weight—only wishes infra, page 860. agree vacuum; seems me, existence numerous instances ought undesirable n t saving Only "in totality," constitutional. bound referendum Voters. 8. 50 error double compounded impermissibly Supra, 855. Yet, astonishingly, manages turn damning favor: 51 "The further withstand attack. senseless whereby gross occurs otherwise letter-perfect, flagrantly violates That, precisely today.6 D 53 joined STEVENS, states she (concurring opinion). holds just scrutiny. dissent. Article part: "Each district; composed every (2) years. inhabitants. representative; twice nor senate." An Laramie 60,149 people, 3,062 people. 250, (1966). "(a) ratios fixed follows: (ii) ratio divided official results decennial fractions nearest sixty-three (63) representatives; (iii) zero (0) paragraph (a)(ii) section, addition section; (iv) provisions (a)(iii) section Goshen section." following findings: "It hereby declared needs, characteristics finds unique voice utilize article constitution standard reappo tionment guarantees making declarations trivial weighed maintain beyond act order meet obligations apportion declaration." Wyo.Sess.Laws, ch. 76, 3. stated: "Wyoming her sister states. encompassed area. major form government economic social needs. distinctive. Given probably i.e., Goshen, unprotected. public facilities, administration, work personal problems. action, deny borders abridging represented determination futures. primary administrative agencies government. historically position. taxing powers statutes. Supplemental monies distributed appropriations designated Legislature. comes surprise financial different. Without Representatives, forgotten." invalidating lack proof good-faith districting criteria. 25, ("It apparent North Dakota currently favors lines. Furthermore, devised master] demonstrates maintaining township [does not] preven[t] attaining variance."); 124, 823, (per curiam ) (district did "demonstrate why deviations" "articulate grounds rejecting court, respected deviations"); 445-446, 572-573, (no disparities). ex lained: equal-protection body. especially true sparsely populated, counties." 1391-1392, 1835-1836, (1977) ("[T]he breaking boundary accomplishment unevenly 82 Senators 122 elected"). discussion illustrated invalidated 1963. senator, two. varied substantially, extremely resulted. 65% eight senators, 8% senators. 251, 5. counties. Counsel appellants, who represent Voters, explained oral argument authorized portion felt membership leadership broader authority ramifications arguments attacking authority." Tr. Oral Arg. dissent pass post, 857-859 dissenting). addressed house's never so. For Connecticut noting "Senate Court" "[a]ppellees ground deviations." 739, 2324, choices filing lawsuit. Similarly, appellees note 46.65% theoretically 51.56% 50.79% 32-33. notes "consideration 'to basis.' Clause." 845-846 (citation observes: flexible, depending importance interests, reflects availability alternatives vindicate yet approximate closely. necessity, case-by-case attention factors." 2663-2664. enjoy somewhat latitude tested standards, I, governing standard. 763, notes, demanding 320-325, 983-985, generally ante; Weiser, 783, 2348, 335 (1973); Kirkpatrick Preiser, 394 526, 89 1225, 519 (1969). size—statewide seats—is 7,337; 2,924. 2.59 constituents 3.25 3.19 each. 567-568, 44, 1384-1385, 44; Baker Carr, 369 186, 302-307, 691, 756-759, 663 (1962) (Frankfurter, Cf. 443, 571-572, (1967). "[In] discussed regardless raised decided below. Consistent approach, made, after evaluation totality determine sufficient compliance requisites Burns Richardson, 384 73, 83, 1286, 1292, 376 accorded. At minimum, requested appellants—the district, 840. That yielded perfect size, plan's improvement alone—23%—is approved, justification. 854. devise entirety. Whitcomb Chavis, 1858, 363 complaint attacked Indiana's 137, 1865-1866. reversed unconstitutionally apportioned. Nevertheless, approved decision expand include "After Marion reapportionment, concluded 'it forth Supreme call Assembly.' 161, 1878 (plurality opinion), quoting 305 1391; 172-173, 179-180, 1884-1885, 1888-1889 (Douglas, 857-859, 5; Fed.Rule Civ.Proc. 54(c).

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