Legal Document

420 U.S. 1 95 Supreme Court Reporter 751 42 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 766 Daniel CHAPMAN and Jacque Stockman, Appellants,v.Ben MEIER, etc. Number 73—1406. Argued Nov. 13, 1974. Decided Jan. 27, 1975. Syllabus This case involves the issue of constitutionality a federal-court-or-dered reapportionment North Dakota Legislative Assembly. Following protracted state federal litigation challenging various apportionment plans, statutes, constitutional provisions, including action in which three-judge District 1965 approved plan that included five multimember senatorial districts, appellants brought present against appellee, Secretary State, alleging substantial population shifts had occurred no longer met equal protection requirements, requesting court to order based on 1970 census figures, provide for single-member declare invalid, restrain appellee from administering election laws under plan. A Court, holding such failed meet standards, another called districts contained 20% variance between largest smallest districts. Held: 1. has jurisdiction appeal 28 Code KF62 § 1253. Although challenged was ordered, its enforcement is State's Constitution effectuation directly depends law machinery, itself court-imposed replacement provisions statutes. Pp. 13-14. 2. Absent persuasive justification district ordering legislative should refrain imposing upon State. Here articulate significant interest supporting departure general preference court-ordered plans this recognized Connor versus Johnson, 402 690, 91 1760, 29 268, unless can 'singular combination unique factors' as found exist Mahan Howell, 410 315, 333, 93 979, 989, 35 320, or 1975 Assembly appropriately acts, proceed expeditiously reinstate 14-21. 3. deviation magnitude involved here constitutionally impermissible absent policies other acceptable considerations requiring adoption. The burden elucidate reasons necessitating any approximate equality clearly relationship policy furthered. Court's allowance not justified, claimed, by absence 'electorally victimized minorities,' sparseness Dakota's population, division State caused Missouri River, asserted observing geographical boundaries existing political subdivisions, especially when it appears other, less statistically offensive, already devised are feasible. 21-26. 372 F.Supp. 371, reversed remanded. John D. Kelly, Fargo, N.D., appellants. Paul M. Sand, Bimarck, appellee. Mr. Justice BLACKMUN delivered opinion Court. presents federal-court-ordered Legislature, That like many others, struggled satisfy requirements delineated Baker Carr, 369 186, 82 691, 7 663 (1962); Reynolds Sims, 377 533, 84 1362, 12 506 (1964); WMCA, Incorporated Lomenzo, 633, 1418, 568 Maryland Committee Tawes, 656, 1429, 595 Davis Mann, 678, 1441, 609 Roman Sincock, 695, 1449, 620 Lucas Colorado General Assembly, 713, 1459, 632 (1964), cases. culmination struggle, totally ineffectual side, during past decade. 2 * Its Statutes 3 original Constitution, adopted at admission into Union 1889, still effect. It been amended, course, time time. Since 1918, 25 thereof read: 'The power shall be vested legislature consisting senate house representatives.' N.D.Const. Article II. 70 years subject initiative referendum. Ibid. further provided 'shall composed forty-nine members', 26, elected four-year term, with one-half every two years, 30, one senator he qualified elector district, attained age resident next preceding election, 28. 1960, 4 'Each effective date amendment permanently constitute district. Each represented more.'1 Laws 1959, chapter 438; 1961, 405. 5 document also states representatives than sixty, nor more hundred forty 32, two-year 33, representative 21 34. Section provides least each there counties district; after decennial census, apportion 'the balance members House Representatives', and, if fails duty, places task apportioning designated group officials State.2 6 There have complementary statutory provisions. An effected 1931, 7, N.D.Cent.Code 54—03 01 (1960), effect over 30 despite mandate census. II Prior Litigation Atlantic Things began stir even prior decision Carr 1962. 1961 following 1960 After decided level, 179 824 (MD Tenn.1959), argument reargument here, dismissed an prerogative writ enjoin Chief issuing proclamation would announced conclusions statutorily 'apportionment group' were then anticipated. petition group's unconstitutional manner according population. ruled function legislative; yet completed work; performing performed; that, until issued, challenge courts. ex rel. Aamoth Sathre, 110 Western Reporter, 2nd 228 (ND 1961). 8 baron Citizens sought declaratory injunctive relief Civil Rights Acts, §§ 1983 1988. By issued proclamation. held presence eliminated aspect prematurity characterized earlier court. But 'basic issues,' concluded dissent, presented Dakota. 'We believe opportunity passing all questions herein'. court, accordingly, abstained those issues; stayed proceedings before it, but did dismiss action. Lein 201 535, 542 1962). 9 C. plaintiffs promptly took their attack group. assumed jurisdiction. 113 679, 681 noted question arising presented, id., 681—682, concerned validity allotment prescribed first sentence 683. inherent direction 'a limited discretion make will approach, nearly reasonably possible, mathematical equality.' Id., 685. went hold made 'violates several void', 687, 1931 statute continued superseded valid Constitution. 687 688. 10 same turned again judge dissenting, denied request ground only challenged. 205 536 January, mandatory duty' house, presume perform duty. Jurisdiction retained, observation act, plaintiffs, appropriate complaint, might relief. 540. 11 E. 1963 reapportion. 1963, 345. Federal KF105 F3 506, companion cases June 1964. new suit instituted invalidate entire system grounds. Sections 29, these violative Equal Protection Clause. Paulson Meier, 232 183 1964). apportionment, being last apportionment,' described legislators elected, invalid. Thus, 'there existence time.' 187. encountered difficulty remedy. concluded, adequate available within formulate proper forthcoming 1964 elections, 188; de facto status; devise system. Injunctive denied. 190. 13 G. produced act although disapproved Governor. 1965, 338. 14 Haw. Hawai‘i KFH45 A2 defendant moved requirements. however, otherwise. 246 36, 43 1965). remedy now duty take affirmative 43—44. considered introduced centered attention Smith 'not perfect' (five districts,3 county lines violated instances), plan, 'slightly' modified, standards ('impressive exactness,' namely, 39 5% average four slightly 5%, exceeding 9%). 44—45. 'slight' modification reapportionment, really finally since therefore accomplished federal-court intervention. 15 I. Still proceeding instituted. right senators office. claimed multiple membership more.' judgment res judicata plaintiffs; initial 'freezing' portion invalid; concluding portion, restricting representation senator, desired people without 'balance' freezing portion; unit must fall portection. Stockman Anderson, 184 53 (1971). result illegal III Present 16 taken due course. 1971 November. alleged place, complied requested figures districts; declared restrained 17 On May 22, 1972, entered attempt Jurisdictional Statement A—54. appointed commission days, submitted guidelines commission. With respect provided: 18 matter 'multi-member' conclude insufficient 1972 elections fully explore resolve issues involved. studied depth Commission results study us.' A—55. 19 filed 363 (ND). recited eight separate court; resulted variations among Commissioner Dobson substantially reduced disproportionate representation, decreased number increased four.4 '(C)ertain weaknesses' recognized, 'some . which, few instances, seems substantial', continuation 366. These cities. created, enactment decision, observed, idbid.: 'In light subsequent (United States) pronouncements, we improper permit court-fashioned plan.' 268 (1971), Williams, 404 549, 551, 92 658, 704 (1972), cited. felt 20 'constrained multi-member continue avoid extreme disruptions elective processes. We feel electorate better served minimizing confusion surrounding impending abolition eleventh hour.' F.Supp., 'for only.' 367. alternative, Ostenson commended 'further study,' modify 'so eliminate districts'. 367—368. Judge Benson dissented limitation election; him, distinguishable racial grounds desirability 368—369. retained. 22 November 8, immediately year, suspended notice directed Attorney report 1973 23 passed Act overrode veto Governor.5 1973, 411, Note, 1178. 37 having representatives, except specifically (plus 3.3% minus 3.5%, total 6.8%; plus 408 persons 432 persons, 840 persons) 12,355 per senator. 24 effectiveness referendum petition. See Page 1549. petition, proposed; created reapportion addition, mandated special place December 4, 1973. Both defeated. Assembly's work thus nullified people. could suggested, apparently was, reacted elimination In event, thereupon readopt temporarily 1972. resisted. Circuit Bright 'permanent' providing out statewide 51. 379 1974). probable 416 966, 94 1988, 40 556 (1974). IV 26 threshold mild pressed parties. 12536 required 2281.7 27 suggested but, instead, court-or-dered become circumstances hence, 2281 satisfied. merit. indeed doubly machinery are, been, primary objects attack. highly anomalous follow single evolved approved, so be, some before. Subject kind regular grist route typically employed conditions similar here. See, e.g., Skolnick Electoral Board Illinois, 336 839 Ill.1971). think correct procedure V Multimember Districts From above review facts emerge: multimembership side traditionally existed. plainly qualifies established policy.8 second contrast, never existed imposed (a) decision; (b) majority temporary expedient only; (c) referendum; (d) different solution review. Thus once effort aborted. Every provision history imposed. therefore, obviously does qualify policy. refrained legislatures se unconstitutional. White Regester, 412 755, 765, 2332, 2339, 314 (1973), cited therein. contrary, upheld numerous state-initiated schemes utilizing Kilgarlin Hill, 386 120, 87 820, 771 (1967); Burns Richardson, 384 73, 86 1286, 376 (1966); Fortson Dorsey, 433, 85 498, 401 (1965). And, beginning U.S., 577, S.Ct., 1389, indicated bicameral body long maintained. Notwithstanding acceptance districting recognize practical weaknesses schemes. First, seats increases, voter making intelligent choices candidates increases. 731, 1470. Ballots tend unwieldy, confusing, too lengthy allow thoughtful consideration. Second, large, residents particular areas may they specially responsible them. Ibid.9 Third, possible bloc voting delegates undue relative voters possibility, rejected, concrete proof, Whitcomb Chavis, 403 124, 147, 1858, 1871, Criticism frequent widespread. 157—160,10 articles generally Carpeneti, Apportionment: Fair Representation, 120 U.Pa.L.Rev. 666 (1972); Banzhaf, Multi-Member Districts—Do They Violate 'One Man, One Vote' Principle, 75 Yale L.J. 1309 (1966). 31 supra, mere assertion legislature's establish denial protection. Rather, shown 32 'designedly otherwise, constituency scheme, case, operate minimize cancel strength elements population.' 439, 501. 33 Further, evidence simple disproportionality potential won access process groups. 765—766, 2339—2340. Such easily developed where compose large part legislature, both bodies utilize members' residences concentrated 88, 1294.11 Whether factors not, proof lessening cancellation offered. 34 requirement prove minimizes cancels applied involving legislatures. came us application stay, scheme legislature. stated explicitly 'when courts forced fashion singlemember preferable matter.' 692, 1762. Exercising our supervisory power, 'absent insurmountable difficulties.' emphasis reaffirmed 320 (1973). latter acted forming interim alleviate underrepresentation military personnel election.12 evaluating use differ depending whether initiated use. simultaneity Johnson demonstrates. When often deserve deference. Indeed, always reason rule favoring type districting. 36 Appellants do contend group13 discriminated ordered suggest followed departure. agree. particularly pressing features calling them cannot labeling see 377, resolved Dakota, said disingenuous judicial creation became simply passage nine years. treatment conflicts allowed asked evaluate qualifications 'most formidable' task. Taking note remain because great otherwise result. abandoned position, suggestion abrupt change. Special Master who initially proposed disavowed permanent Reapportionment Problems, 48 N.D.L.Rev. 281, 289 (1972). 38 dissent suggests wide range attributes 391. advantage obvious: engendered offices removed. Other advantages perhaps speculative: prevent domination slate narrow majority, ease direct communication one's reduce campaign costs, voting. Of virtues guarantee feature specific Neither legitimate abandonment Johnson.14 fact allegation minority discrimination raised inapplicable. true voted down re-established tradition At rejected format unable infer simultaneous actions attitude toward satisfied proposal, frustrated invalidated. confident aid Masters, able reinstitute while attaining necessary goal equality. "would terribly difficult adopt districts." 392.15 Unless VI Population Variance 41 divergence 617,761, court's 51, contain 12,112 achieved. fact, 13,176 underrepresented 8.71%, 10,728 over-represented 11.43%. consequently 20.14%, ratio 1.23 houses apportioned 'as practicable.' 1390. While '(m)athematical exactness precision' required, compliance gross disparity Reynolds, observe attempts achieve evaluated own facts, ideal permissible Swann Adams, 385 440, 445, 569, 572, 501 (1967), certain determining basic person, vote. 25.65% 33.55% satisfactory explanation grounded policy.' 444, 572. 123—124, 822—823. Swann, divergences attempted. Possible justifications, Among 'such integrity maintenance compactness contiguity recognition natural historical boundary lines.' 578—581, 1390—1392. 44 hand, acknowledged leeway equal-population afforded devising plans. As contrasted congressional districting, preeminent, sole, criterion adjudge constitutionality. Wesberry Sanders, 1, 526, 481 Kirkpatrick Preisler, 394 89 1225, 519 (1969); Wells Rockefeller, 542, 1234, 535 Weiser, 783, 2348, 335 minor deviations prima facie violation. For example, Gaffney Cummings, 735, 2321, 298 permitted 7.83% showing invidious discrimination. variation 9.9% likewise permitted. 45 illustrative approach area. Virginia Legislature fashioned 16.4% sufficient require analysis justification. fulfill rational refraining splitting subdivisions accepted notwithstanding subdivision splits 'based incident policy,' 579, 1391, standards. 46 observed measure enacted formulated adoption variance. equality, 47 basis lie sparsely populated, subdivisions. find none necessitate embraced degree justified whose minimized canceled. All citizens affected strength, lose something belong 49 sparse face problems faced more, average. small individual vote important populated placed establishing exact possible. bare statement inadequate justification.16 50 River warrant persuasive. far apparent currently requires favors strict adherence lines. dissenting noted, appellee's counsel broke lines, 393 n. decade ago 42—43. Furthermore, demonstrates neither maintaining township prevents significantly lower variance.17 imply 5.95% necessarily What intend reference show viewed controlling feasible.18 rationale rejection 51 Examination justifications variances bodies. fail criteria enunciated Howell Adams. higher supported enunciation historically features. clarify greater responsibility severe occasioned redistricting confusion. VII 52 today persausive well, ordinarily little minimis variation.19 Where rationally reapportioning precisely why minimal adopted. say what occasions: primarily through body, rather 586, 1394; 676, 1140. hoped enact If task, falls dispatch seemingly interminable problem. 54 remanded consistent opinion. 55 ordered. 56 Judgment amendment, assembly fix senators, divide inhabitants entitled representation. compact contiguous territory; attached county, thereof, form ascertained determined changed law.' reads full follows: Representatives comprised addition shall, session limits herein chief justice supreme attorney general, secretary state, leaders ninety days adjournment announcing force though Assembly.' (seemingly years) 'to law' 'within constitution' 'proceed constitution, districts', proviso redistrict respectively.' later radical precedent'. Chapman Weier, 382 1974) (dissenting opinion). Cf. Sixty-Seventh Minnesota Senate Beens, 406 187, 1477, Governor's principal objection, his message, failure Return Compliance Order, March 1253: 'Except law, party granting denying, hearing, interlocutory injunction civil action, Congress heard three judges.' 2281: 'An restraining enforcement, operation execution officer granted unconstitutionality judges section 2284 title.' oral argument, oppose allocation Tr. Oral Arg. 16—17. Cf., 438, 501, (1965), at-large serves subdistricts. mentioned 731 21, 1471, 'do intimate subdivision, defective. merely point aspects well undesirable residing counties.' 158—159, 1877, 'criticism (of districts) rooted winner-take-all aspects, tendency submerge minorities overrepresent winning compared party's electoral reflecting community interests closely disenchantment parties devices settle differences contending interests.' criticism amount 'inherently invidious' Fourteenth Amendment. 160, 1877. criticized helpful. 666, 694—695 'was confronted plausible malapportionment personnel, impermissible, Mann (377 678,) 691—692 (84 (1964)), fear much delay seriously disrupted elections. Facing singular factors, abused fashioning combining district.' too, problem bases near Grand Forks Minot. acknowledge conceivably, 10. size Indians, affects differently example conceivable 11, 695—696, insure city- region-wide views represented. late Smith, 392. early suggestions settled becoming (geographically) availability impaired' unconvincing. 580, 1391. Appendix B memorandum Judges Van Sickle (the plan), App. 12—22. 5.95%. Another appearing Reapportionment, referred Bright's opinion, 23. say, attain preciseness

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