Document: 407 U.S. 451 92 S.Ct. 2196 33 L.Ed.2d 51 Pecola Annette WRIGHT et al., Petitioners,v.COUNCIL OF the CITY EMPORIA al. No. 70—188. Argued March 1, 1972. Decided June 22, Syllabus In 1967, Emporia, Virginia, which is located in center of Greensville County, changed from a 'town' to politically independent 'city' authorized by state law provide its own public school system. By shared-cost agreement with county, Emporia 1968 continued an arrangement, antedated change status, use county system for education children. As consequence present desegregation lawsuit initiated 1965, single division was operating under 'freedom choice' plan approved District Court. Petitioners moved modify that following this Court's decision Green v. County School Board, etc., 391 430, 88 1689, 20 716. The Court, after hearing, on 25, 1969, ordered petitioners' 'pairing' plan, take effect as start 1969—1970 year. Two weeks entry decree, city announced operate separate and sought termination agreement. On August petitioners filed supplemental complaint seeking enjoin council board (named additional parties defendant) withdrawing children schools. Following hearings, Court found Emporia's withdrawal would be 'substantial increase proportion whites schools attended residents, concomitant decrease schools.' addition disparity racial percentages, court might drop county-school shifted private academies, while some return academies they previously atended; two formerly all-white (both better equipped than schools) are all surrounding were all-Negro; long had right establish system, did not decide do so until court's order prevented continuing long-maintained segregated concluded frustrate 25 enjoined respondents 1 Page 452 pursuing their plan. Holding question whether new district boundaries should permitted areas history state-enforced segregation must resolved terms 'dominant purpose (the) boundary realignment,' Appeals primary 'benign' mere 'cover-up' discrimination, reversed. Held: 1. determining realignment districts officials comports requirements Fourteenth Amendment, courts will guided, motivation officials, but action. Pp. 461—462. 2. totality circumstances case, justified concluding establishment impede process dismantling 463—471. 4 Cir. 442 F.2d 570, Samuel W. Tucker, Richmond, Va., petitioners. D. Dortch Warriner, respondents. djQ Mr. Justice STEWART delivered opinion We granted certiorari 70—130, United States Scotland Neck City Board Education,1 484, 2214, 75, consider 2 453 federal may or local carving out existing has yet completed enforced segregation. address ourselves rather narrow Swann Charlotte-Mecklenburg Education, 402 91 1267, 28 554, companion cases decided last Term,2 problem confronted other one form another numerous occasions recent years.3 Here, Neck, reversed enjoining creation district. Cir., 570. conclude erred interpretation legal principles applicable such these, proper case. I lies near largely rural area North Carolina border. Until 3 454 Virginia law, meant it part practically purposes, including providing residing county. apparently dissatisfied county's allocation revenues newly enacted sales tax, successfully designation 'city second class.'4 such, became undertook obligation free schooling within borders.5 To fulfill responsibility, at first continue virtually same basis before, sharing administration well financing schools.6 When refused enter into arrangement kind, agreed contract whereby educate students exchange payment specified share total cost Under agreement, signed April 1968, formal voice only through par- 455 ticipation selection superintendent. designated 'division' State Education,7 still time challenged This began when behalf Negro end Prior elementary high served white throughout assigned four schools, outside town boundary. January 1966, so-called been adopted previous Wright D.C., 252 F.Supp. 378. No ever 1968—1969 year 98 2,510 faculties remained completely segregated. our 716, holding freedom-of-choice unacceptable method where failed. 'to meaningful assurance prompt effective disestablishment dual system,' id., 438, 1694, motion further relief. demonstrate compliance Green, submit designed bring compliance. After various delays, during sy- 5 456 stem effect, submitted alternative plans. have preserved slight modifications, curricular choices standardized test scores. promptly rejected these proposals, took advisement. Meanwhile, proposal, enrolled particular grade level school, thus eliminating any possibility bias pupil assignments. evidentiary hearing 23, finding 'substitute . system.' dated implement petitioners, referred year.8 entered Council sent letter Supervisors announcing city's intention beginning September. stated 'in-depth study analysis directed reflects totally situation Citizens Emporia.' It asked city-county terminated mutual consent, title property transferred city. 6 457 advised enroll tuition basis.9 At no period meet discuss implementation pairing nor inform intentions respect either terminate transfer buildings citing belief proposed action 'not best interest County.' nevertheless steps toward implementing month July. Notices circulated inviting parents register request made Education certify division. tabled meeting, 'in light matters pending court.' According figures later supplied there 3,759 unitary contemplated whom 66% 34% white. Had established 1,123 48% undisputed 7 458 basis, attending school. naming members defendant,10 them conclusion 8, constitute 'an impermissible interference frustration of' preliminarily taking 'any interfere manner whatsoever heretofore entered. .' opened September order, work detailed plans budget estimates hope allow December, presented expert witness testify educational advantages preliminary injunction dissolved. 2, 1970, memorandum denying respondents' making permanent. 309 671. 8 459 Fourth Circuit reversed, stayed mandate petition certiorari, we granted. 404 820, 56, 30 48. II takes position since political jurisdiction entitled upon acted invalid, drawn exclude Negroes, balance itself violates Constitution. read opinion, findings; we. constitutional violation formed predicate enforcement 1969 always part. That challenged, questioned propriety remedy condition offended Both before city, educated Only clear—15 years Brown 347 483, 74 686, L.Ed. 873—that finally abolished, attempt circumstances, power need rest violation. remedial invoked violated Constitution, constituted 9 460 unit student assignments entire maintained, properly treated issue board's adoption adequate 349 294, 75 753, 99 1083 (Brown II). hold unconstitutional. Rather, 'unacceptable' 'fails U.S., 1694. Monroe Commissioners, 450, 1700, 733, applied principle rejecting 'free transfer' desegregation: 'We can place But like choice,' if cannot shown delay conversion unitary, nonracial, nondiscriminatory held unacceptable.' Id., 459, 1705. proposal erect lines attendance existed, flourished. Monroe, judged according hinders furthers desegregation. If then court, exercise discretion, being carried out. believe case governed 10 461 Monroe.11 realignment.' 'If aim quality secondarily modification balance, short resegregation, interfere. If, however, creating retain much separation races possible, affirmative duty supported segregation.' 572. Although sense, race factor secede,' F.Supp., 680, 'benign,' 'merely cover-up' discrimination. F.2d, 574. purpose' finds precedent decisions. true authorities motivated demonstrated discriminatory purpose, existence add intensifying stigma implied inferiority. And offers nonracial justifications less alternatives taken consideration weight given proffered justification. 11 462 Cf. supra, 439, said Palmer Thompson, 403 217, 225, 1940, 1945, 29 'is difficult impossible determine 'sole' 'dominant' behind group legislators,' board. addition, inquiry irrelevant fruitless. desegregate '(t)he measure effectiveness.' Davis Commissioners Mobile 33, 37, 1289, 1292, 577. Thus, focused effect—not motivation—of permissible sustain effect. reasoning odds splinter created 'where effect—to say nothing purpose—of secession substantial adverse district.' Lee Macon 448 746, 752. See also Stout (Jefferson Pleasant Grove), 403, 404; Haney 410 920, 924; Burleson Election 308 352, 356, aff'd, 432 1356; Aytch Mitchell, 320 1372, 1377. Though many cases, courts' holdings rested systems involved. focus approach proper. 12 463 III ruling allowed Negroes remaining deprived what promised them: vestiges eliminated. noted 680. departure students, leadership, financial support, together possible loss teachers diminish chances transition prove 'successful.' Certainly, achieved splitting 'white schools' 'Negro systems, each borders, is, fact, 'white' 'Negro.' Nor does supervising discretion responsibly approves that, 'quality education' children, available others. readily perceived subdivision produce both results. likelihood results apparent. latter examination record shows conclusions adequately evidence. 13 464 Data December showed operation composition Negro. enrollment same, 52% Negro, 28% 72% sufficient reason, standing alone, fact leaves among alone make unacceptable.12 observed Swann, command mean every community reflect whole.' 24, 1280. more percentages reflected place, withdraw 'may anticipated those who academies,' enrolled. judgment statistical breakdown between residents 14 465 Second, significance enhanced all-Negro. sites factors themselves indicate perpetuated: 'Independent assignment, identify school' simply reference staff, equipment, organization sports activities, prima facie substantive rights Equal Protection Clause shown.' 18, S.Ct., 1277. Just required remedying neither ratios sole account devising workable remedy. timing third assessing While came of—and, conceded, reaction to—a maintaining longer lingered 15 I. words Judge Winter, dissenting 466 Appeals, '(i)f enjoined, black watch nearly one-half number abandon substantially whiter 588, 590. message action, coming did, escaped I: 'To (Negro children) others similar age qualifications solely because generates feeling inferiority status affect hearts minds way unlikely undone.' 494, 691. think could rationally psychological likely result weighing delicate task aided sensitivity conditions, primarily responsibility judge. II, 299, 755.13 Given actually 16 467 IV Against considerations, advances arguments necessary achieve unfair event force send over character very little control. These exercising equitable feasibility practicality Charlotte-Mecklengurg 31, 1283. But, availability 'more promising courses action' dismantle 'at least places heavy burden explain preference efective method.' 1695. evaluating claims, remembered represents interests one-third desegregated. argue preferable encompassing whole against resolution stating respondents—not board—who expressed 'preference method' final budgetary proposals evidence demonstrating 17 468 diverse expensive program accustomed developed issued classes scheduled open, intent despite lease, contract, specific persuasiveness rationale open question. More important, increased provided would, purchased price viability attractive accomplished expense A weighty put forth lack control argument addressed 1292: 'Having once violation, judge effort greatest degree actual desegregation, practicalities situation.' regarded dis- 18 469 trict 'reasonable, feasible workable.' underestimate deficiencies, standpoint, Direct decisions vitally affecting one's strongly felt society, 1967 citizens find practical up decree summer 1969. testified prior time, it. They argued intolerable entered, lacked desire work. accept contention enthusiasm leaders block successful 'desire leaders, coupled obvious leadership ability,' absence system's operation, important facet court-ordered plan.' 679. continuation workable.'14 19 470 explicitly locking time. already noted, today resulting absent unacceptable. effectiveness existed area. Once accepted, desires so, without able satisfactory joint essentially factual determination 'we necessity rely large extent, years, informed instance appeals.' 28, 1282. 471 abuse discretion. For reasons, Reversed. Chief BURGER, BLACKMUN, POWELL, REHNQUIST join, dissenting. appeared perpetuate otherwise area, unhesitatingly join reversing reinstating However, supports findings abused preventing lawful accepting 'impede necessarily implies severance something persist classrooms articulate standard reaches conclusion, far exceeds contemplation 873 (1954), succeeding 554 (1971). proceed, assignment depend residence. attend Assignment sense 21 472 race. Such geographic pattern consistent Clause. Spencer Kugler, 326 1235 (D.C.N.J.1971), 1027, 707, 723 (1972). operated past, ostensibly neutral zones none close eyes facts favor theory. 716 (1968), ruled cease exist objective law. apparent elimination mandatory privided imposed boards 'fashion promise realistically convert 'Negro' just 442, 1696. That, believe, precisely system—schools white, 'but majority former slightly half, two-thirds. island county.' 573. Moreover, exceed Emporia. conducted desegregated systems. comparable inordinate 22 473 one-race Comm'rs, 577 Rather perpetuating eliminate traces quite differ, disparities mission 1280: require, matter right, mixing, disapproved obliged reverse. norm sought, imbalance requiring judicial pointlessness 'racial balancing' illustrated Courtand placed great emphasis estimated six-percent withdrawal. see how difference per class1 even noticed, let render 23 474 seen normal movement populations about shifts relatively Obsession minor differences gravely mistaken view somehow tolerates balance. Since goal reproduce classroom microcosmic reflection proportions geographical saying uniform constitutionally preferred. wish pursue policy, plain mandated. 16, 1276. disavows approach, seeks justify relying several thought aggravate disparity. real negligible suggest inbalance most First, raises specter resegregation best, highly speculative. suggests reasons why shift Emporia: leave projections compare nature 24 475 Thus possibility, assumes families most, marginal, seems improbable all. postulated equally unlikely; withdrawn due impending having pupils. mention mass migration outlying Of course, adjoining differing compositions, conceivable accentuated flight' phenomenon. danger remote predominantly population concern. attaches used all-Negro intimates facilities generally poorer support suggestion point. Admittedly dissatisfaction auditorium. three modern building identical respect. 476 fair reading record, de minimis. Finally, states impeded 'adverse effect' again, discretionary reliance never considered court. surpasses bounds reason equate impact majorities, feelings engendered emphasized policy separating inevitably observations common human experience reinforced authority. Here setting child accorded treatment wholly speculative observation scientific Even giving maximum rational mentioned anything fully nonracial. foundation superstructure dissolved, factually preserve past. 'that small one-race, mark practices law.' 26 477 26, 1281. numbers here 'one-race, schools,' removed. Constitution commands. permissible, insist effective' county-wide (1955) II), conferred enforce failed principles. flexibility process, invocation equivalent receivership. implicit devise effectively unless strong different perferred. stop improve ought cast aside evolve accomplishes result, he considers percent, six percent composition. gives controlling sociological theories, doctrine. limitation involves polite deference role 27 478 governments. Local vital overriding importance standpoint well. success depends vast range lie beyond competence courts. Curricular decisions, structuring levels, planning extracurricular few, lying province maintain day-to-day supervision cannot. devised apt attuned relevant goals; deemed abstract overlook undermine concerns. limited where, here, deals entities. proposes unit. another. Richmond Henrico 199 Va. 679, 684, 101 S.E.2d 641, 644 (1958); Murray Roanoke, 192 321, 324, 64 804, 807 (1951). anomaly municipal jurisprudence, Virginia's anomaly; ancient origin, forbidden bar strip governmental deny entity. serious step and, persuade me contrary Neck,2 today, am unwilling go far. 479 powers bona fide entity cloak evasive nullified intervention way. crosses threshold achieving overstep prerogatives alternative. Judicial ends ceased exist. compromise decision. 'heavy burden' applies doubt efficacy means here. Nonetheless, establishing merits comment. makes create high-quality, citizens. doing, disregards explicit Court: 'The clearly contemplates superior program. require higher tax payments residents. kindergarten program, ungraded health services, adult education, low pupil-teacher ratio included 674. Furthermore, top-flight anticipated, worsen sure, cause concern relative offered schools; 480 observed, embrace enthusiasm.' year, per-pupil expenditures lagged median, insufficient keep abreast inflation, transportation costs. alleviate participate absolutely funding purchaser whatever services offer. Out understandable alter contractual There assuming suffer relies 'the ability, administer jointly uncontradicted line communications governments, government unable get cooperation government, atmosphere active antagonism With trier appears wanted 481 'obvious ability' exert influence reluctant laudable abstract, adjust remedies bear central acknowledging '(d)irect (its) children', tolerable now heard complain. choice. From formation administration, threatened 30, 1968. then—under virtual duress—did contractal arrangement. counsel illegal. Steps strained relationship. Recognizing tensions inherent indicates future passage injunction. states, destined fail understand undue risk future. 31 482 realistic danger, disregard ties County. terms, assume back tomorrow renew past relieved court-imposed purchase sees fit provide. discussion warranted relevance these. correct effectiveness,' stops redeemed benevolent motives. dismantled, plainly alert sure actions eclude aware progress 1954 hampered persistent resistance evasion places. reluctance probe motives purposes underlying official acts yield realities sensitive adjudication. Compare Griffin Prince Edward 377 218, 84 1226, 256 (1964), 438 concluding, manifestation purpose. strongest sense' decision; context, ambiguous relate 32 483 invidious relied testimony chairman board: 'Race, affected again say, think, capable putting monies ..' kind objectionable. doubts commitment high-quality come play presume obviously Gomillion Lightfoot, 364 339, 81 125, 110 (1960). awkward gerrymander striking proportions. modest affords inference motivation. cumbersome features hastened inevitable manipulate Read whole, acting reaching hypothetical perfection simplest adopting goes too Together 70—187, Cotton Education. 577; McDaniel Barresi, 39, 1287, 582; 43, 1284, 586; Moore 47, 590.3 day orders affirmed Carolina. Turner Littleton-Lake Gaston District, 584. Other dealing attempts split 746; 403; 920; Texas, 321 1043, 1052, 447 441; 1372. Va.Code Ann. § 15.1—982.5 22—93; Colonial Heights Chesterfield, 196 155, 82 566 (1954).6 chose because, board, seem July combined believed citizens, City-County division, subdivisions full benefits larger stood basic administration. §§ 22—30, 22—34, 22—100.1. modified certain respects Because limits proximity involved students. special note accompanying assured permit transfers permission ultimate originally lawsuit. bound 'and successors,' members, insofar intended replace administrators 'successors' rendered 554. bodies ranging 9% 38% 'Full solution varied problems. elucidating, assessing, solving problems; constitutes good faith governing conditions perform appraisal.' 756. objections space years. Dr. Tracey, respondents, aspect undesirable effects educator's point view. argument, Indeed, met participated hearings preceded decree. 'delighted entertain motions amendment (pairing) time.' App. 185a. Assuming rough correspondence size classes, 6% represent identity 1.5 class average. 75.

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