Document: 384 U.S. 73 86 S.Ct. 1286 16 L.Ed.2d 376 John A. BURNS, Governor of the State Hawaii, Appellant,v.William S. RICHARDSON et al. Elmer F. CRAVALHO al., Appellants, v. William Kazuhisa ABE Nos. 318, 323 and 409. Argued Feb. 21, 1966. Decided April 25, [Syllabus from pages 73-74 intentionally omitted] Bertram T. Kanbara, Honolulu, Dennis G. Lyons, Washington, D.C., for appellant in No. 318 appellees Yukio Naito, appellants 409 323. James Funaki, Robert Dodge Masaji Marumoto, all three cases. Mr. Justice BRENNAN delivered opinion Court. 1 This reapportionment case was brought District Court Hawaii by residents qualified voters City County each appeals consolidated here. They alleged that Hawaii's legislative apportionment unconstitutional under our decisions Reynolds Sims, 377 533, 84 1362, 12 506, companion cases.1 Richardson, Lieutenant also an appellee appeals, named defendant his capacity as state officer responsible supervising elections. Burns, intervened a party plaintiff. Members House Representatives, 323, members Senate, 409, parties defendant. 2 Under Constitution, adopted 1950 put into effect upon admission to statehood 1959, is divided four major counties, referred Constitution 'basic areas.' Each county made up group islands, separated other counties wide deep ocean waters. The principal island most populous county, Oahu. It State's industrial center, tourist attraction, site many federal military establishments located State. In 1960, 79% populationlived there. primarily rural agricultural, are County, Maui Kauai County.2 3 article framed assure small would choose controlling majority Senate population Oahu, control Representatives. Thus, Art. III, § 2, apportions 25-member senate among six fixed senatorial districts, assigning specified number seats each. Fifteen seats, majority, allocated Counties 10 assigned Alteration this very difficult provision 'that no constitutional amendment altering * representation any district shall become effective unless it be approved votes tallied question counties.'3 Const., XV, 6. 4 For on hand, establishes 18 representative which requires apportion 51-member body these districts basis registered first occurred just prior statehood, based registration figures 1958 territorial election. produced 13 multi-member five single-member 36 representatives, Oahu.4 required reapportion decennially, duty may enforced mandamus Supreme 5 scheme attacked within month after we decided Sims. That court refused pass validity at time. noted imminence 1964 election stated its belief that, consistent with judicial proceedings should await proposals or convention. Guntert 47 Haw. 662, 394 P.2d 444. Compare U.S., 585, S.Ct., 1393. A special session then called consider reapportionment. failed act. 6 suit August 13, 1964. three-judge convened, 28 U.S.C. §§ 2281, 2284 (1964 ed.). Interim relief denied view pendency elections hearings were set January 1965. published decision order February 17, 238 F.Supp. 468. declared provisions plan contained valid Equal Protection Clause except mentioned relating Senate. These affirmatively invalid unconstitutional. 7 17 not fashion own senate. Nor did instruct legislature propose amendments purpose.5 Instead, directed submit electorate immediate question, 'Shall there convention revision Constitution?' establish procedures according timetable set.6 retained jurisdiction purposes, including itself reapportioning event negative vote failure adopt suitable amendment, rejection 8 chose route over two reasons. necessary adoption proposed held basis. Legislative proposals, submitted only general starting machinery convention, hoped permanent could presented before next election, second reason doubted able agree proposal senate, previously 9 court's order, however, entailed substantial expense. On motion intervening legislators, showed progress towards March 9, 1965, modified order. As suggested parties, suspended instead enact separate statutes turning regular business. One statute interim plan, using basis, court. If approved, use 1966 embodying pertinent people approval third calling Three enacted. H.B. 987, one measures us,7 Sess.Laws Act 281. followed pattern house apportionment. established eight 25 senators apportioned voters.8 Using derived elections, Oahu 19 out senators, majority. 11 total resulted enactment, have either distribution such Oahu's representatives each, senators. single represented choosing fifth electing three. four, representative. senator representatives. elect 76% 71% house, 51 new immediately passage. By 28, disapproved it, reinstated earlir requiring resort method.9 240 724. expressly measure population. Its disapproval create singlemember but merely increase five. contended meet standard Sims if base offend Clause.10 May filed notice appeal certain orders thereafter participating notices parts orders.11 We probable argument. 382 807, 74, 15 57. aside vacate both remand further opinion. I. 14 All concede invalidity apportioning geography rather than population, 6, amend constitution. concluded matter law, plans severable. Lucas Forty-Fourth Colorado General Assembly, 713, 735, 1459, 1473. Even so, Maryland Committee Fair Representation Tawes, 656, 1429, 595, holds reviewing must whole. Implicit principle proposition creating compliance ordinarily left free devise overall argues committed 'fundamental error' preventing Legislature engaging delibertions, alone product inevitably tinged error. once permit action, clear modification well through amendment. approach enabled channel efforts temporary change. Indeed, invite thoroughgoing consideration particularly unfortunate connection requirement prepare plan. directing incorporate restricting choices available adopting significant restraints legislature's deliberations about seemed limit require used constraints, together Court's action explicitly sustaining constitutionality limited opportunities construct best suited needs.12 Our emphasized 'legislative determination, becomes appropriate when fails requisites timely having had adequate opportunity do so.' 586, 1394. Until point reached, freedom choice substitutes found whole part, restricted beyond commands Clause. dealing here, remains apportionment, present will remain longer time imminent, operation completed. context, embarrassment aside. 987 treated existing new, us whether, viewing resulting entirety without regard history, falls short standards. conclude reasons constitute has been shown fall direct enter applicable until adopted, deficiencies shown, another II. began analysis terms plan's concerned disparities, what considered difference representational effectiveness between single-members districts.13 informal memorandum circulated early April, advised doubts concerning districting saying: 'We believe redistricted although approve two-member can show therefor. There 2-member neighboring islands perceive justification whatsoever member Island heavily populated areas thereof.' clearly reveals still convinced appropriate. felt, example, 'built monoliths' making boundaries eighth same, thus enabling same constituency fashioning sixth almost entirely fifteenth district, elected. felt setting taken account 'community interests, community problems, socio-economic status, political racial factors'; and, finally, 'the adamant insistence four-member conscious unconscious—though unnatural—reluctance affected carve probability result duel-to-the-death fellow neighbor senator.' F.Supp., 730—731. 20 But does least bicameral consist districts. See Fortson Dorsey, 379 433, 85 498, 401. Where requirements met, schemes invidious discrimination 'designedly otherwise, scheme, circumstances particular case, operate minimize cancel voting strength elements population.' Id., 439, 501. 21 more easily if, contrast facts Fortson, large relation appropriately subdistricted legislators resident entire characterize houses one. demonstration effects appear evidence record. Cf. McGowan Maryland, 366 420, 81 1101, 393. here.14 relying conjecture demonstrated fact, acted manner drawing Speculations supply designed judgment unconstitutionality districting. while better insisted 'justify' proposal, insofar reserved ultimate vel non, assign choice.15 Once decided, properly, impose allow frame one, judgments exclusively make. subject challenge proper population.16 III. 22 dispute Hawaiian arises because sizable differences results measured census figures. 1960 share 79%. persons actually 73%. 40 representatives; entitled 37 representatives.17 Probably uneven residents—largely unregistered—the various even striking. ninth tenth sixteenth eight. voter claim 10.18 23 holding characterized cases day, 'both substantially basis.'19 start States equivalency measured. Although fact comparison others discussion carefully open being to. At several points, discussed equivalence citizen distinction acceptability test population.20 WMCA, Inc. Lomenzo, 633, 1418, 568, United presenting problems different apportionments measure. Neither nor include aliens, transients, short-term residents, conviction crime their distributed against measured.21 exclude involves nature constitutionally founded interfere. Unless forbids, cf., e.g., Carrington Rash, 380 89, 775, 675, offends bar, rule thereby. 24 Use actual presents additional problem. Such depends criteria govern citizenship, extent activity those eligible register vote. susceptible improper influences power might perpetuate underrepresentation groups participate electoral process, 'ghost malapportionment.'22 Moreover, 'fluctuations given sudden substantial, caused fortuitous factors peculiarly controversial issue, popular candidate, weather conditions.' Ellis Mayor & Council Baltimore, 352 F.2d 123, 130 (C.A.4th Cir. 1965).23 concern where, long years. considerations, hold satisfies record permissible noted, possible measures, voters, considering how Representatives apportioned. Apportionment Organic population; proved administer statistics readily available. Total disfavored tracts, determined reported, necessarily comport traditional local boundaries. Registered chosen reasonable approximation determinable, conveniently broken down which, somewhat favored fair say report reflected much compared. 26 led comparison. continuing presence numbers military: 'Hawaii States' bastion Pacific fluctuates violently Asiatic spots trouble arise disappear. acceptable criterion based, grossly absurd disastrous flow *.' 474.24 Similarly, distortion attributable tourists who continually purposes initially least, counted part 475. (Footnote omitted.) Both tend highly concentrated indeed, largely confined regions island. distorted reflection citizenry. finding approximate insufficient deficiency. enough appears approximates citizens base. 27 Because hard obtain extrapolate, obtained difficult. island, sufficient explain already apportionments, nothing per se excludes armed forces establishing residence becoming finds implementing exercise franchise aimed disenfranchising citizens.' No issue raised men excluded improperly base.25 stressed laws actively encourage registration. high proportion registered,26 'strong drives bring 88 93.6% during 1958, 1962.' 476 (footnote omitted). circumstances, find error conclusion achieved approximated appeared guide. understood deciding elsewhere. careful disclaim 'perfect basis.' agree. frequently every years, perhaps avoid hazards use. presidential year level participation reduce likelihood varying degrees interest outcome produce patterns Other system personal registration, contribute stability accuracy figure Future litigation reveal infirmities, permanent, record.27 use, IV. 29 apply mandating inoperative. precludes pending event. role bringing promptly reasonably retain take effective. note whether convened. see reason, why newly elected compelled precluded proposing them. doubtless act cause complies inquiry operation, substitute deficient forthcoming. 30 accordingly (1) (2) retaining purposes. 31 forthwith. 32 Vacated remanded. 33 FORTAS took case. 34 HARLAN, concurring result. 35 responsibility me, I things, bow authority despite my original wrong (see dissenting opinion, 589 seq., 1395), feel concur disposition Reynolds, cannot rationale, elaborated Part III sustained. read today's so they reached some type population-based Many questions judgment, policy administrative convenience, resolved determining precluding rational Reynolds' philosophy 'people,' think type, therefore regardless kind STEWART, judgment. 38 expressed demands basic attributes First, light characteristics needs, Secondly, systematic frustration State.' pp. 753—754, p. 1483 (dissenting opinion). 39 Time changed views. misconceived And surely room flexibility today accords Hawaii. Accordingly, 568; 595; Davis Mann, 678, 1441, 609; Roman Sincock, 695, 1449, 620; 632. Kalawao, Hansen's disease treatment lived However, legislators. treat areas, 632,772 follows: 500,409; 61,332; 42,855; 28,176. small, outlying comprise Honolulu negligible. refer hereafter 'this proviso specifically inserted freeze gave amounted right veto attempt change makeup senate.' 468, 472. uses method equal proportions distribute county. Congress. Complex mathematically, determines priority competing Schmeckebier, Method Proportions, Law Contemp.Prob. 302 (1952). distributing satisfy made, applying deny person protection unequal size. law supra. authorizes passage two-thirds housesin successive sessions. purpose. 3. Paragraph provided: '4. interfere convening conducting business Third save herein hereby enjoined taking final legislation, actions organize respective funds session, pursuant Article XV said providing submission later 1, question: Constitution?', acts implement enaced law. legislation provide affirmative, September 15, 1965 delegates provided Constitution. Section 4th paragraph, convene October deliberation 30, 1966, (but limiting thereto) therein make expenses convention.' 479. 986, 280, provides called. 773, 483, form passed hence again submited rejection. n. 5, constraints placed I, infra. house. 4, Douglas stayed determination appeals. agreeing Court, rested saved 727. filed. formally entered dated Notices 7, Whether judged date entry, Hark, 320 531, 64 359, L.Ed. 290; Fed.Rule Civ.Proc. 58, incorporated finally Crescent Amusement Co., 173, 177, 65 254, 256, 89 160, announced timely. 2101(b) overlooked limitations themselves. Nevertheless, consistently indicated possessed broad scope convention: '1. (Hawaii) continue (i.e., population), '2. composed justify floterial '3. decennial June 1st preceding Federal census—as now case—or soon census. lines ultimately 1970) redistricting tracts coordinated statistical changes (if any) reapportionment.' 478. 'In valid, positively complement vital equality representation. seemingly forgot conjoined, offer compensating advantages voters—not throughout While perforce overlap concentrate intensify senatorial-representative built-in disproportionate advantage 729. Appellant Burns concedes brief '(i)n multimember extensive proofs details submergence minorities.' may, merit argument encouraging block diminish minority win seats. evidence. proffered justifications were: '(1) therefrom localized issues ignore broader facing State, fragment state-wide programs detriment State; historically smaller constituencies tradition experience balance desirable; (3) significance individual's focusing attention spectrum opposed concern; (4) compound technical intricate problem boundaries; (5) shifts drastically affect districts—to greater degree larger citing boom subdivision development.' reject suggestion arbitrarily invidiously defined. drawn way minimizes contests incumbents invidiousness. support variances size governed since initial comprising representatives—two geographically large, relatively urban fourth comprised heart residential understandably compact. surmises drafters leaving expansion less function irrationality distribution. relevant dominated statehood. feature originate here consideration. calculated figures; 1959 28% 17% voters; 21% 29% voters. E.g., 653, 1428; 674, 1439. Thus spoke '(t)he weighted equally 576, 1389. said: '(I)t practical impossibility arrange identical citizens, voters.' 577, 1390. '(T)he overriding objective approximately weight 579, 691, 1448, rejected subdivisions Virginia 'constitutionally justifiable allegedly contain military-related personnel. Discrimination class individuals, employment, impermissible. 675. exclusion meeting requirements, principles apply. personnel, arbitrary classification. Buckley Hoff, 243 873, 876 (D.C.Vt.1965). governing council Maryland. Appeals yielded approximating World War II, constituted one-half Territory. situation, living bases electors bases. possibility, 'nontransient' urges infected exclusion. Territory, 48 619 (1958 ed.), 'No allowed Territory Army Navy attached troops service States.' restriction, imposed violate applies, persists where increased twice times 1958. Reapportionment work realignment principally denied, simple shifts, adjustment merited. certainly thereafter. 87.1%. asserted corrected, exceeds 80%. Note An percentages low-income lower groups. unclear reflect mailitary pay scales. unfair patterns. submerging voice appears. Of course, re-examined jurisdiction.

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