Document: 377 U.S. 678 84 S.Ct. 1441 12 L.Ed.2d 609 Levin Nock DAVIS, Secretary, State Board of Elections, et al., Appellants,v.Harrison MANN al. No. 69. Argued Nov. 14 and 18, 1963. Decided June 15, 1964. [Syllabus from pages 678-679 intentionally omitted] David J. Mays Robert D. McIlwaine III, Richmond, Va., for appellants. Edmund Campbell, Arlington, Henry E. Howell, Jr., Norfolk, appellees. Archibald Cox, Sol. Gen., the United States, as amicus curiae, by special leave Court. Mr. Chief Justice WARREN delivered opinion 1 Presented decision in this case is validity, under Equal Protection Clause Fourteenth Amendment to Federal Constitution, apportionment seats legislature Commonwealth Virginia. I. 2 Plaintiffs below, residents, taxpayers qualified voters Arlington Fairfax Counties, filed a complaint on April 9, 1962, States District Court Eastern Virginia, their own behalf all Virginia similarly situated, challenging General Assembly. Defendants, sued representative capacities, were various officials charged with duties connection state elections. claimed rights provisions Civil Rights Act, 42 U.S.C. §§ 1983, 1988 asserted jurisdiction 28 § 1343(3). 3 The alleged that present statutory apportioning Legislature, amended result indivious discrimination against plaintiffs 'all other Senatorial House districts' which they reside, since Counties are given substantially less representation than living parts State. was violative well contended requirements could be met only redistribution legislative among counties independent cities 'substantially proportion respective populations.' 'possess an inherent right vote members Assembly * cast votes equally effective every citizen' being diluted effectively denied discriminatory both houses Legislature attacked unconstitutional. inequalities distortions allocation prevented 'being body people Commonwealth,' resulted minority controlling 4 requested convening three-judge With respect relief, sought declaratory judgment scheme prior subsequent 1962 amendments, contravenes thus unconstitutional void. also issuance prohibitory injunction restraining defendants performing official relating election pursuant provisions. further mandatory requiring conduct next primary general elections legislators at-large basis throughout 5 A promptly convened. Residents City Norfolk permitted intervene original certain additional defendants, Norfolk. On 20, obtained amend adding prayer relief that, unless 'promptly fairly' reapportioned districts, should reapportion districts its order so accord parties others situated 'fair proportionate' Legislature. 6 Evidence presented included basic figures showing populations senators delegates elected number assigned each. From data statistical comparisons derived. Since reapportionment measures enacted two days before made small changes apportionment, had been last 1958, evidence submitted covered previous apportionments. Defendants introduced exhibits numbers military military-related personnel disparities population-based Electoral College, results comparative study show ranking eighth representativeness, 1962. 7 November 28, Court, one judge dissenting, sustained plaintiffs' claim entered interlocutory holding Constitution. 213 F.Supp. 577. refused dismiss or stay action ground, required first procure views courts validity scheme. Instead, it held neither legislation nor relevant constitutional ambiguous, no question law necessitating abstention presented. In applying scheme, stated although population predominant consideration, factors may some relevance 'in assaying justness apportionment.' Stating Constitution requires 'accord citizens equal representation,' found information State's if unexplained, sufficiently showed 'individious discrimination' those situated. rejected any possibility different bases applicable stating each house has 'a direct, indeed same, relation people,' principal present-day justification bicameralism legislatures insure precipitate imposing greater deliberation upon proposed legislation. Because gross put burden explanation failed meet it. Consequently, concluded grave 'constitutionally impermissible' deprivation, Amendment. 8 while would have preferred itself correct unconstitutionality legislation, not defer deciding until after regular session January 1964, because 1963 hold office 1968 serve 1966. Deferring unreasonable delay correcting injustices Senate Delegates, 9 Court's declared violated accordingly void effect. It restrained enjoined proceeding conducting but stayed operation 31, 1963, either act appeal taken provided these steps taken, might apply relief. Finally, court below retained entry such orders required. 10 An timely noted defendants. application appellants, THE CHIEF JUSTICE, December granted o pending final disposition stay, conducted existing We probable 10, 374 803, 83 1692, 1029. II. 11 provides more 40 33 members, Art. IV, 41, Delegates 100 90 seats, 42. Senators quadrennially biennially. At times, statutes fixed at 100. Pursuant requirement least decennially, contained 43, senatorial 1932, 1942, 1952, 1958 amended.1 contains express standards, however, representation, leaves task establishing solely up discretion legislature. political subdivisions, 98 32 cities. Despite absence specific generally traditionally regarded most important factor consideration reapportioning redistricting. consistently split divided purposes multimember utilized whose entitle them single representative, resulting there always delegate districts. And, tradition respecting integrity boundaries drawing district lines, constructed combinations pieces them. This periodic utilization floterial districts2 where contiguous cannot combined yield totals reasonably close ratio figure determined dividing ate's total particular body. Various factors, addition population, historically considered Legislatures enacting include compactness contiguity territory forming geographic topographic features, community interests 13 Section 24—14 Code, Senate, divides into 36 3,966,949, according 1960 census, ideal senator 99,174 persons. Under statute, County 163,401 persons, .61 entitled strict basis. .65 share 305,872. And (including Falls Church), 285,194 people, .70 Senate. comparison, smallest district, 61,730, 63,703.3 Thus, maximum population-variance between populous 2.65-to-1. figures, approximately 41.1% reside electing majority body.4 Apportionment 24—12 creates 70 distributes Dividing 39,669 County, 285,194, allocated three provisions, .42 representation. While average per 95,064, Wythe 21,975 Shenandoah 21,825, seat House.5 imum ratio, 4.36-to-1. 305,872 six 163,401, three. 40.5% live members. Twenty-seven times twice six, 15 No adequate remedy obtain appears exist Virginia.6 initiative procedure law. calling convention initially Assembly.7 Only approval measure referendum vote. Legislative questions do appear non-justiciable courts, however,8 appellees possibly Court.9 III. 16 Reynolds v. Sims, 533, 1362, we bicameral must apportioned Neither Assembly, here attacked, constitutionally sustainable. Accordingly, properly invalid. 17 Appellants' contention abstained permit decide involved litigation without merit. Where federal court's invoked, plain unambiguous, necessity abstain determination court. McNeese Education, 373 668, 1433, 622. especially where, here, instituted when invoked. conclude did err refusing recourse courts. 18 Undoubtedly, situation differs insignificantly Alabama. contrast Alabama, decennially Nevertheless, malapportionment, whether prolonged inaction failure comply requisites, accomplished periodically, falls within proscription Clause. 19 reject appellants' argument underrepresentation justifiable allegedly part fact areas contain large personnel. Discrimination class individuals, merely nature employment, shown, impermissible. Additionally, took account allocating representation.10 policy, evidenced Virginia's laws, actually favors fosters voting personnel.11 Furthermore, even persons excluded determining disfavored hardly satisfactorily explained, because, deducting personnel, ratios still 2.22-to-1 3.53-to-1 House. 20 sustainable involving attempt balance urban rural power Not does lack legal merit, fails conform facts. Some areas, comparison quite adequately represented reasons Reynolds,12 rejecting so-called analogy, Gray Sanders, 372 368, 378, 801, 807, 821, reliance analogy deviations College misplaced. variances extreme composition provide cognizable sustaining 21 find unnecessary inappropriate discuss remedies time.13 will occur 1965, ample time remains enact valid election. After opportunity plan, can then proceed, become necessary, grant equitable principles retaining seek appropriate presumably intends take fail remedying defects plan. therefore affirm merits litigation, remand proceedings consistent our Sims. ordered. 22 Affirmed remanded. 23 CLARK concurs affirmance his concurring 587, 1395. 24 Dissenting HARLAN printed Nos. 23, 27, 589, 25 STEWART. 26 case, recognized 'population sole definitive Clause.' F.Supp., 584. reaching clear 'intend say wide differences sound reason advanced discrepancies.' Id., 585. 'no rational disfavoring Norfolk.' Ibid. my appellants trial erred conclusion. keeping view expressed dissenting Lucas Forty-Fourth Colorado, 744, 1477. I extent plan conclusively shown basis, violates Pro ection Reapportionment 1952 Governor convened purpose, adjourned reallocating anticipation mandate Governor, 1961, appointed commission doing work, employed assistance Bureau Public Administration University Suggesting be, nearly practicable, alternative plans seats. These followed criteria apportionments, complied prescribed size limitations houses. late report recommending redistricting Bureau. Its based compromise Bureau's suggested plans, deviated proposals. session, completely disregarded prepared Bureau, adopted schemes house, practical effect making minimal enactments, course, ones principally complained litigation. term 'floterial district' used refer includes several separate subdivisions independently conglomerate entitles entire area another apportioned. See Baker Carr, 369 186, 256, 82 691, 730, 663 (CLARK, J., concurring). As example, Lynchburg, 54,790, Amherst 22,953, But Lynchburg 77,743. Presumably, felt House, significantly exceeded 36,669. However, Lynchburg's approach figure, apparently decided entitled, itself, added seat. Adjacent smaller size, solution creation comprising thereby giving voice having create subdivisions. illustrating disparties chart (by cities) of, allotted to, comparing 581—582. Appellees pointed out, underrepresented increasing rapidly alleg dly overrepresented ones, continually increase 10-year period reapportionment. discussing included, opinion, accorded 582—584. For discussion significance presence available remedy, see U.S., pp. 736—737, S.Ct., 1473—1474, date. Va.Const., XV, 196, 197. Brown Saunders, 159 Va. 166 S.E. 105 (1932), Supreme Appeals congressional districting statute invalid conflicted 55, 'as inhabitants.' Of districting, whereas detailed Appellants argued, indicates adjudicate Tyler Davis, suit March 26, almost four months instant Circuit Richmond dismissed merits, Although raised justiciable nature, ground invidiously laws enable armed forces registration payment poll tax. Va.Code Ann., 1950 (Repl. Vol. 1964) 24—23.1. literal language provision grants privilege active service war,' Electors currently. stationing give residence, interpret mean residence same manner citizens. Military families who residents year, county, city town months, precinct 30 categories disabled voting. 24—18. 571—576, 1386—1389. id., 585, 1393.

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