Document: 412 U.S. 755 93 S.Ct. 2332 37 L.Ed.2d 314 Mark WHITE, Jr., et al., Appellantsv.Diana REGESTER al. No. 72—147. Argued Feb. 26, 1973. Decided June 18, Syllabus In this litigation challenging the Texas 1970 legislative reapportionment scheme, a three-judge District Court held that House plan, statewide, contained constitutionally impermissible deviations from population equality, and multimember districts provided for Bexar Dallas Counties invidiously discriminated against cognizable racial or ethnic groups. Though entire plan was declared invalid, court permitted its use 1972 election except injunction order requiring those two county to be reconstituted into single-member districts. Held: 1. This has jurisdiction under 28 U.S.C. § 1253 consider appeal over applicable County districting, since had been properly convened, can review declaratory part of judgment below. Roe v. Wade, 410 113, 705, 35 147. Pp. 759—761. 2. State statutes are not subject stricter standards congressional Art. I, 2, erred in concluding case, where total maximum variation between 9.9%, but average deviation ideal 1.82%, involved invidious discrimination violation Equal Protection Clause. Cf. Gaffney Cummings, 735, 2321, 298. 761—764. 3. The Court's disestablishment multi-member warranted light history political Negroes Mexican-Americans residing, respectively, counties residual effects such upon 765—770. D.C., 343 F.Supp. 704, affirmed part, reversed remanded. 1 Leon Jaworski, Houston, Tex., appellants. 2 David R. Richards, Austin, appellees Regester others. 3 Ed Idar, San Antonio, Mexican-American appellees, Bernal 4 Thomas Gibbs Gee, Republican Willeford 5 Mr. Justice WHITE delivered opinion Court. 6 case raises questions concerning validity Representatives adopted by Legislative Redistricting Board: First, whether there were unconstitutionally large variations among defined plan; second, found have discriminatory groups counties. 7 Constitution requires state legislature reapportion Senate at first regular session following decennial census. Tex.Const., III, Vernon's Ann. St.1 1970, proceeded failed agree on redistricting Senate. Litigation immediately commenced constitutionality reapportionment. Supreme legislature's violated Constitution.2 Smith Craddick, 471 S.W.2d 375 (1971). Meanwhile, pursuant requirements Constitution, Board formed begin task Although initially confined work Senate, it eventually ordered, judicial invalidation also House. Mauzy Board, 570 8 On October 15, 1971, Board's released, and, 22, promulgated. Only remains issue case. That divided 150-member body 79 11 Four lawsuits, consolidated, filed plans asserting with respect equality operated dilute voting strength minorities. 9 A sustained unconstitutional. Graves Barnes, 704 (W.D.Tex.1972). contain deemed invalid. gave Legislature until July 1, 1973, House, used purposes election, election. 10 Appellants appealed statewide substitution district County.3 Powell denied stay Court, 405 1201, 92 752, 30 769 we noted probable sub nom., Bullock Regester, 409 840, 70, 34 79. * We deal outset challenge our 1253, which permits injunctions suits required heard determined directly Court.4 It is suggested one court. contention frivolous. statute challenged asked enforcement. constitutional raised insubstantial their face, complaint clearly called convening apportionment entered an only implementation elections Counties, no way indicates single judge. therefore here direct dealing directed literally 'granting . any civil action three judges' within meaning 1253. 12 hold appellants, because they entry injunction, entitled accompanying declaration proposed Representatives, including portions providing invalid statewide. predicate court's reapportioned districts; 'unless before accordance guidelines set out will so Texas'; Secretary 'adopt implement all procedures necessary effectuate orders conformance Opinion ..' F.Supp., 737. these circumstances, although appellants could unaccompanied injunctive relief, Gunn University Committee, 399 383, 90 2013, 26 684 (1970); Mitchell Donovan, 398 427, 1763, 378 (1970), conclude appeal. 147 (1973); Florida Lime & Avocado Growers Jacobsen, 362 73, 80 568, 568 (1960). With it, interest economy avoidance piecemeal claims when substantial claim alleged, us, once here, same reach. supra, 123, 711; Carter Jury Comm'n, 396 320, 518, 24 549 80, 573. II 13 provides 150 representatives selected 74,645 persons. range 71,597 78,943 per representative, 5.8% overrepresentation 4.1% underrepresentation. largest smallest thus 9.9%.5 14 read prior cases require equal justified 'acceptable reasons' grounded policy; relied Kirkpatrick Preisler, 394 526, 89 1225, 22 519 (1969), permissible tolerances Reynolds Sims, 377 533, 84 1362, 506 (1964), substantially eroded; Abate Mundt, 403 182, 91 1904, 29 (1971), accepting 11.9% sui generis; considered 'critical issue' 'the (has) variances, however small, basis consistent, rational policy.' 713. Noting fact 85 concluded justification discover acceptable policy support deviations. critical actions Reapportionment doubted 'that (the) board did sort deliberative job worthy abstinence.' Id., 717. combination 'haphazard,' particularly Houston other metropolitan areas, 'irrationality, without reasoned justification, may separate distinct ground declaring unconstitutional.'6 Ibid. Finally, specifically invalidated as group. 15 ultimate conclusion unconstitutional unjustifiably remote 'one man, vote,' districting schemes relate votes minorities.' 735.7 16 Insofar rested differential 9.9% made prima facie protection Fourteenth Amendment, absent special error. plain Mahan Howell, 315, 979, 320 (1973), 298, strict seats. Preisler contemplated Sims Swann Adams, 385 440, 87 569, 17 501 (1967), Kilgarlin Hill, 386 120, 820, 771 later absolute equiality, must satisfaction judiciary avoid For reasons do relatively minor weight individual larger deprive individuals fair effective representation. Those Connecticut; cannot glean differ another much compared district. Very likely, differences would tolerable 'based legitimate considerations incident effectuation policy,' U.S., 579, 1391; 325, 985, confident carry burden proof insofar sought establish Clause alone. 1.82%. 23 districts, single-member, overrepresented underrepresented more than 3%, 5%. unable alone satisfied threshold requirement proving Because contrary view, respect.8 III affirm judgment, however, ordered redrawn Plainly, cases, se unconstitutional, nor necessarily parts State. Whitcomb Chavis, 124, 1858, 363 (1971); supra; see Burns Richardson, 384 86 1286, 376 (1966); Fortson Dorsey, 379 433, 498, 401 (1965); Lucas Colorado General Assembly, 713, 1459, 632 (1964); supra.9 But entertained being cancel minimize See supra. To sustain claims, enough group allegedly seats proportion potential. plaintiffs' produce evidence findings processes leading nomination equally open participation question—that members less opportunity residents participate elect legislators choice. 149—150, 1872. 18 due regard standards, referred official Texas, times touched right register vote democratic processes. 725. rule majority prerequisite primary so-called 'place' limiting candidacy office specified ticket, result reduced head-to-head contest each position. These characteristics electoral system, neither themselves improper invidious, enhanced discrimination, thought.10 More fundamentally, Reconstruction days, delegation ever slated Committee Responsible Government (DCRG), white-dominated organization control Democratic Party candidate slating County.11 organization, found, need Negro community win county, exhibit good-faith concern needs aspirations community. recently DCRG relying 'racial campaign tactics white precincts defeat candidates who overwhelming black community.' 727. Based effectively excluded selection process,' id., 726, generally enter process reliable meaningful manner. conclusions sufficient record, reason disturb them. IV 19 true County. Consistently Hernandez 347 475, 74 667, 98 L.Ed. 866 (1954), identifiable class Amendment inquire impact constituted discrimination. Surveying historic present condition community, concentrated most west side city observed, based record along Texas,12 long 'suffered from, continues suffer results treatment fields education, employment, economics, health, politics others.' 728. bulk occupied Barrio, area consisting about contiguous census tracts Antonio. Over 78% Barrio Mexican-Americans, making up 29% county's population. poor housing; low income high rate unemployment. typical suffers cultural language barrier13 makes his extremely difficult, particularly, thought, life '(A) incompatibility conjoined poll tax restrictive voter registration nation deny access even longer Blacks formally primary.' 731. reflected itself remained very that, five 1880 served Of these, area.14 insufficiently responsive interests. 20 totality evolved assessment district, overlaid, was, economic realities relationship rest county. Its 'are removed (County) whatever numbers County.' 733. Single-member thought remedy past Mexican-Americans,' ibid., bring full stream encouraging further registration, voting, activities. 21 apparently paid heed every represented legislature, did, own vantage point, designed County, life, Representatives. inclined overturn findings, representing blend intensely local appraisal design reality, otherwise. Affirmed APPENDIX TO OPINION OF THE COURT embodied districts: Percent Average Deviation Multi- (Under) Population member 76,285 1,640 2.2 77,102 2,457 3.3 4,298 5.8 71,928 (2,717) (3.6) 75,014 369 .5 76,051 1,406 1.9 (3) 221,314 73,771 (874) (1.2) 74,303 (342) ( .5) 76,813 2,168 2.9 72,410 (2,235) (3.0) 73,136 (1,509) (2.0) 74,704 59 .1 75,929 1,284 1.7 76,597 1,952 2.6 76,701 2,056 2.8 74,218 427) .6) 72,941 (1,704) (2.3) 77,159 2,514 3.4 (2) 150,209 75,104 459 .6 75,592 947 1.3 74,651 .0 73,311 (1,334) (1.8) 75,777 1,132 1.5 73,966 679) .9) 25 75,633 988 (18) 1,327,321 73,740 905) 27 77,788 3,143 4.2 72,367 (2,278) (3.1) 76,505 1,860 2.5 77,008 2,363 3.2 31 75,025 380 32 (9) 675,499 75,055 33 73,071 (1,574) (2.1) 76,071 1,426 147,553 73,777 (868) 36 74,633 (12) .0) (4) 295,516 73,879 (766) (1.0) Page 38 78,897 4,252 5.7 39 77,363 2,718 3.6 40 (3,048) (4.1) 41 73,678 967) (1.3) 42 74,706 61 43 74,160 (485) 44 75,278 633 .8 45 78,090 3,445 4.6 46 (11) 826,698 75,154 509 .7 47 76,319 1,674 48 220,056 73,352 (1,293) (1.7) 49 76,254 1,609 50 74,268 377) 51 75,800 1,155 52 76,601 1,956 53 74,499 146) .2) 54 77,505 2,860 3.8 55 76,947 2,302 3.1 56 74,070 575) .8) 57 77,211 2,566 58 75,120 475 144,995 72,497 (2,148) (2.9) 60 75,054 73,356 (1,289) 62 72,240 (2,405) (3.2) 63 75,191 546 64 74,546 99) .1) 65 75,720 1,075 1.4 66 72,310 (2,335) 67 75,034 389 68 74,524 121) 69 74,765 120 .2 70 77,827 3,182 4.3 71 73,711 934) 72 297,770 74,442 203) .3) 73 74,309 336) 73,743 902) 75 147,722 73,861 784) (1.1) 76 76,083 1,438 77 77,704 3,059 4.1 78 71,900 (2,745) (3.7) 75,164 75,111 466 81 75,674 1,029 82 76,006 1,361 1.8 772 83 75,752 1,107 75,634 989 71,564 (3,084) 73,157 (1,488) 73,045 (1,600) 88 75,076 431 74,206 439) 74,377 268) .4) 73,381 (1,264) 71,908 (2,737) 72,761 (1,884) (2.5) 94 73,328 (1,317) 95 73,825 820) 96 72,505 (2,140) 97 74,202 443) 72,380 (2,265) 99 74,123 522) .7) 100 75,682 1,037 101 75,204 559 Article 28, provides: 'The shall, after publication United States census, apportion senatorial representative agreeable provisions Sections 25, 26-a Article. event shall fail make apportionment, done hereby created, composed (5) members, follows: Lieutenant Governor, Speaker Attorney General, Comptroller Public Accounts Commissioner Land Office, whom constitute quorum. Said assemble City Austin ninety (90) days final adjournment session. sixty (60) assembling, failure necessary. Such writing signed duly acknowledged act deed executed State, force effect law. become next succeeding general compel Commission (Board) perform duties section writ mandamus extraordinary writs conformable usages provide funds clerical technical aid expenses incidental Governor receive diem travel expense during manner amount while attending Legislature. amendment January 1951. As amended Nov. 1948.' apportioned several counties, according number each, nearly be, ratio obtained dividing ascertained recent composed; provided, whenever Representative, Representative District, representation, other; surplus joined counties.' appeal, summarily portion upholding plan. Archer Smith, 808, 62, (1972). 'Except otherwise law, party granting denying, notice hearing, interlocutory permanent action, suit proceeding Act Congress judges.' Appendix post, p. 2342. sure, what irrational mixture Thus, questioning urban remarking 'compelling' 'rational' explanation differing treatment, merely classification 'may be' independent invalidating authorities proposition mere discriminatory, construe remarks advance advice concluded, assertions certain plaintiffs, scheme 'unconstitutionally faction party.' 735. Harris votes. would, event, reconsideration reversal (1973). expresses cutting lines wherever possible forming recognized but, benefit too great policy. perhaps sufficiently consistently followed here. appears us limits cut some achieved accommodation principles 141—148, 1867—1871, discussed n. opinion, rejection petitioners' multimember, floterial 'an 'crazy quilt." 121, 821. There reside subdistricts outside residential area. 'it difficult secure either expresentative seat endorsement Government.' 726. approximately 20% Texas. '(t)he (Mexican-Americans) reared sub-culture dialect Spanish impediments educational vocational advancement creates traumatic problems.' 730. Two Anglo-American,

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