Legal Document

402 U.S. 1 91 Supreme Court Reporter 1267 28 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 554 James E. SWANN et al., Petitioners,v.CHARLOTTE-MECKLENBURG BOARD OF EDUCATION al. CHARLOTTE-MECKLENBURG Petitioners, versus Nos. 281, 349. Argued Oct. 12, 1970. Decided April 20, 1971. Rehearing Denied June 7, See 403 912, 2201. Syllabus The Charlotte-Mecklenburg school system, which includes the city of Charlotte, North Carolina, had more than 84,000 students in 107 schools 1968—1969 year. Approximately 29% (24,000) pupils were Negro, about 14,000 whom attended 21 that at least 99% Negro. This resulted from a desegregation plan approved by District 1965, commencement this litigation. In 1968 petitioner Swann moved for further relief based on Green County School Board, 391 430, 88 1689, 20 716, required boards to 'come forward with promises realistically work * now until it is clear stateimposed segregation has been completely removed.' ordered board 1969 provide faculty and student desegregation. Finding board's submission unsatisfactory, appointed an expert submit plan. February 1970, presented plans, court adopted plan, as modified, junior senior high schools, expert's proposed elementary schools. Appeals affirmed Court's order secondary but vacated respecting fearing provisions pairing grouping would unreasonably burden board. case was remanded reconsideration plans. granted certiorari directed reinstatement pending proceedings court. On remand received two new adopt or remain effect. After 'acquiesced' Held: 1. Today's objective eliminate public all vestiges state-imposed held violative equal protection guarantees Brown v.Board Education, 347 483, 74 686, 98 L.Ed. 873, 1954. Pacific KF135 P2 15. 2. default authorities their affirmative obligation proffer acceptable remedies, district courts have broad power fashion remedies will assure unitary systems. 16. 3. Title IV Civil Rights Act 1964 does not restrict withdraw federal historic equitable remedial powers. proviso 42 Code KF62 § 2000c—6 designed simply foreclose any interpretation expanding existing powers enforce Equal Protection Clause. Pp. 16—18. 4. Policy practice regard faculty, staff, transportation, extracurricular activities, facilities are among most important indicia segregated first responsibility invidious racial distinctions those respects. Normal administrative should then produce like quality, facilities, staffs. 18—19. 5. Constitution prohibit using equity assignment teachers achieve particular degree Montgomery Board 395 225, 89 1670, 23 263, properly followed lower case. 19—20. 6. devising legally imposed segregation, local must see future construction abandonment used do serve perpetuate re-establish dual system. 21. 7. Four problem areas exist issue assignment: (1) Racial quotas. constitutional command desegregate mean every community always reflect composition system whole; here very limited use ratio—not inflexible requirement, starting point shaping remedy—was within its discretion. 22—25. (2) One-race While existence small number one-race, virtually itself denote still practices law, scrutinize such require satisfy result present past discriminatory action part. 25 26. An optional majority-to-minority transfer provision long recognized useful part be effective arrangement transferring free transportation available space he desires move. 26—27. (3) Attendance zones. altering attendance zones not, interim corrective measure, beyond A merely because appears neutral, may fail counteract continuing effects segregation. noncontiguous permissible tool; judicial steps going contiguous examined light objectives sought. No rigid rules can laid down govern conditions different localities. 27—29. (4) Transportation. conclusion children nearest home serving grade effectively dismantle supported record, technique requiring bus tool court's relief. objection validity when time distance travel so great risk either health significantly impinge educational process; limits vary many factors, probably none age students. 29—31. 8. Neither nor constitutionally make year-by-year adjustments bodies once achieved. 31—32. 4 Cir., 431 Federal Reporter, 2nd 138, parts judgment. August also affirmed. Julius LeVonne Chambers, N.C., Sol. Gen. Erwin N. Griswold, States, amicus curiae, special leave Court. William Judge Waggoner Benjamin S. Horack, Education M. Nabrit, III, New York City, Mr. Chief Justice BURGER delivered opinion We review issues duties scope under mandates racially separate established maintained state action. 873 (1954) (Brown I). 2 argued it1 arose having history maintaining sets single deliberately operated carry out governmental policy solely basis race. That what about. These cases us defining precise terms heretofore duty implementing & N Dec. Immigration Nationality Decisions mandate systems establish once. Meanwhile appeals struggled hundreds multitude variety problems general directive. Understandably, area evolving improvise experiment without detailed specific guidelines. Court, I, appropriately dealt large principles; other grapple flinty, intractable realities day-to-day implementation commands. Their efforts, necessity, embraced process 'trial error,' our effort formulate guidelines take into account experience. 3 43d largest Nation, encompasses Charlotte surrounding Mecklenburg County, Carolina. large—550 square miles—spanning roughly 22 miles east-west 36 north-south. During year served 71% found white As there approximately 24,000 Negro 21,000 Charlotte. Two-thirds 21,000—approximately students—attended totally situation came litigation 243 F.Supp. 667 (W.D.N.C.), aff'd, 369 29 (CA4 1966), upon geographic zoning free-transfer provision. initiated September Swann's motion 716 (1968), companion cases.2 All parties agree fell short achieving require. 5 numerous hearings voluminous evidence. addition finding certain actions discriminatory, residential patterns county federal, state, government decisions. these patterns, example, locating fixing size accommodate needs immediate neighborhoods, education. findings subsequently accepted Appeals. 6 come both Proposed plans only, file third November 1969. extension denied submitted partially completed December unacceptable education administration, Dr. John Finger, prepare Thereafter alternative pupil finalized 'board plan' 'Finger plan.' 7 Plan. finally submitted, closed seven reassigned pupils. It restructured greater balance structures rejected techniques clustering effort. created athletic league, eliminated previously provided mixed faculties staffs, modified majority-tominority 8 substantial Negroes nine system's 10 producing 17% 36% population each. projected 10th school, Independence, 2%. typically shaped wedges pie, extending outward center suburban rural afford residents access outlying 9 rezoned range 0% 38%. located heart area, left enrollment 90% respect relied entirely gerrymandering More half 86% 100% Negro; assigned white. 11 Finger court-appointed expert, one modification: additional 300 transported nearly all-white Independence High School. 12 employed much rezoning board, combined creation 'satellite' zones.3 Under satellite inner-city predominately thereby substantially desegregating 13 departed chiefly handling 76 Rather relying zoning, pairing, techniques, throughout 9% 38% Negro.4 14 described thus: 15 'Like lines reasonably accomplished. However, unlike stop there. goes desegregates rest three black inner school; transporting grades through four schools; fifth sixth school.' 16 grouped manner 24 17 5, 311 265. presented. Implementation stayed Fourth Circuit March declined disturb Circuit's order, 397 978, 90 1099, 389 (1970). 18 appeal agreeing disapproved concerning feared place unreasonble 138. certiorari, 399 926, 2247, 26 791, 19 schools: prepared Department Health, Welfare (the HEW plan) members nine-member minority same results apparently slightly less transportation. majority amend proposal. lengthy evidentiary hearing concluded own plan), earlier draft reasonable acceptable. new, equally own; effect event indicated 'acquiesce' reiterating view unreasonable. dated II Nearly years ago held, explicit terms, race denies laws. At no deviated slightest holding underpinnings. None before challenges decision May 17, 1954, 'in field doctrine 'separate equal' place. Separate inherently unqual. Therefore, we hold plaintiffs others similarly situated are, reason complained of, deprived laws guaranteed Fourteenth Amendment. 'Because class actions, wide applicability decision, conditions, formulation decrees presents considerable complexity.' supra, U.S., 495, S.Ct., 692. questions 1955 II, 'School primary elucidating, assessing, solving problems; consider whether constitutes good faith governing principles. Because proximity possible need hearings, originally heard best perform appraisal. Accordingly, believe appropriate courts. 'In fashioning effectuating decrees, guided Traditionally, characterized practical flexibility facility adjusting reconciling private needs. call exercise traditional attributes power. stake personal interest admission soon practicable nondiscriminatory basis. To effectuate elimination obstacles making transition accordance principles set forth decision. Courts systematic manner. But go saying vitality cannot allowed yield disagreement them.' 349 249, 299—300, 75 753, 756, 99 1083 (1955). Over since difficulties encountered basic requirement State discriminate between Nothing national experience prior anyone dealing changes magnitude complexity then. Deliberate resistance some impeded good-faith efforts bring compliance. detail nature dilatory tactics noted frequently 27 By considered 1968, little progress made where historically operation Green, confronted record freedom-of-choice program operate fact preserve decade after II. acknowledging concept could valid measure circumstances, failure that: 'The today 439, 1694. plain language, yet Term brought fresh evidence authorities. Alexander Holmes 396 19, 29, restated asserted Griffin 377 218, 234, 84 1226, 1234, 256 (1964), remedy implemented forthwith. 30 try amplify guidelines, however incomplete imperfect, assistance courts.5 meet obligations aggravated massive converting state-enforced discrimination rendered difficult 1954 structure communities, growth population,6 movement families, changes, marked impact planning, sometimes neutralizing negating fully implemented. Rural accustomed century consolidated readily metropolitan dense shifting population, congested complex traffic patterns. III 31 remains Segregation evil struck contrary Constitution. violation sought corrected measures 'clearly charged whatever might necessary convert root branch.' 437—438, 32 If holdings, authority invoked. Once right shown, wrongs broad, breadth inherent remedies. 33 essence jurisdiction Chancellor mould each decree necessities Flexibility rather rigidity distinguished it. qualities mercy practicality instrument nice adjustment reconciliation well competing claims.' Hecht company Bowles, 321 321, 329—330, 64 587, 592, 754 (1944), cited 300, 756. 34 allocation made, attempted judge's discretion reviewing function appeals. differ fundamentally involving framing repair denial right. task correct, balancing individual collective interests, condition offends 35 seeking define even how far extends remember exercised only violation. Remedial put judges automatically shoes whose plenary. Judicial enters defaults. traditionally implement conclude, live pluralistic society prescribed ratio reflecting proportion whole. discretionary authorities; absent violation, however, case, determines remedy. 37 argue 1964, 2000c seq. language show enacted limit role Government authorizes Commissioner technical preparation arrange 'training institutes' personnel involved grants directly ease Attorney General, specified initate suits. Section 2000c(b) defines 'desegregation' IV: 38 "Desegregation' means race, color, religion, origin, shall overcome imbalance.' 39 2000c—6, authorizing General institute suits, contains following proviso: 40 'nothing herein empower official another balance, otherwise enlarge insure compliance standards.' 41 face, sections quoted support read granting There suggestion intention legislative indicates Congress concerned creating Amendment so-called 'de facto segregation,' imbalance exists showing short, nothing provides material answering question I. prohibition 'deny person laws.' turn particularity responsibilities Although several related primarily assignment, helpful begin brief discussion aspects process. 43 pointed 435, 1692. Independent identify 'white school' 'Negro reference reachers quality buildings equipment, organization sports prima facie substantive rights Clause shown. 44 When respects, distinctions. With matters supporting personnel, necessary. Similar taken maintenance distribution equipment. areas, normal Something said, construction. 45 Davis 33, 1289, Mobile requires 'color blind' argues prohibits reject contention. 46 365 263 (1969), goal predicated 47 real immediately substitute teachers, night faculties, evolvement really adequate commencing 69.' Quoted 232, 1674. 48 proceeded initial whole given school. eliminating regarded 'fixed mathematica' ratios substituted 'substantially approximately' five-to-one ratio. future, numerical tested achievement proportions. Id., 1675. 49 reverse restored entirety, 50 'was spirit his 'promises work, now.' modifications panel Appeals, while course intended so, would, think, capacity expedite, commands, day unified, unitary, becomes reality instead hope. circumstances follow original outlined accepting expeditious (District) Johnson *.' 235—236, 1675 (emphasis original). 51 52 closing old ones functions complex. They decide location growth, finances, land values, site availability, almost endless list factors considered. which, determine body run, consequences choices reaching. People gravitate toward just response people. thus influence development neighborhoods. 53 past, potent weapon state-segregated classic pattern building specifically students, sometimes, Brown, appeared likely become neighborhood accompanied expansion farthest centers maintain separation races minimum departure formal 'neighborhood zoning.' Such short-run promote zoning,' lock mold races. Upon proper 54 ascertaining factor weight. established, necessary, retain carried out. Cf. Public Instruction, 66 (CA5 1968); Brewer 1968). V 55 central essentially areas: 56 extent quotas correct system; 57 all-Negro indispensable desegregation; 58 if any, rearrangement districts zones, measure; 59 60 Balances Quotas. 61 constant theme thrust date violates commanded 62 systems, myriad human cause ways racial, religious, ethnic grounds. target retarded broader purposes lying One vehicle amount baggage. seek scope, although ultimately forms discrimination. reach consequence types action, authorities, decree. therefore 63 Our exclude indirectly, race; embrace prejudice, contribute disproportionate concentrations urged 71%—29% actually achieved—and appear impossible—tends blunt claim, 1, 1969, find directing 65 'that 71—29 various contending *, (t)hat (should) all-black predominantly body, (and) way levels students.' went acknowledge variation 'from norm unavoidable.' intimations 'norm' fixed mathematical constituency require, matter right, mixing, approach obliged reverse. 67 shows,7 predicate twofold: first, express finding, challenged here, 1969; second, defaulted acknowledged own, notwithstanding patient who, occasions, plans.8 statement facts shows, abundantly record. total qualified sources, designated assist done. 68 remedy, requirement. From frame powers, circumstances.9 said authority's judged effectiveness. Awareness violations. sum, 69 reveals familiar phenomenon groups often concentrated city. largely change. Schools close scrutiny assignments 70 above, mark law. judge greatest actual necessarily one-race per se rule adequately interests involved; criteria sufficient specificity warrants presumption against composition. Where conversion contemplates continued they genuinely nondiscriminatory. 71 Provision group willing lessen them stigma effective, grant Ellis 423 203, 206 1970). orders option. 72 Altering Zones. 73 maps graphically domonstrate principal tools planners break up frank—and drastic—gerrymandering step 'clustering,' 'grouping' accomplish formerly neither compact10 contiguous; indeed opposite ends Absent judicially ordering things being equal, discrimination, desirable assign homes. constructed administratively awkward, inconvenient, bizarre situations impose burdens some; awkwardness inconvenience avoided period go, limits. 'Racially neutral' inadequate; resulting sites distortion artificial separation. 'loaded game board,' form truly non-discriminatory assignments. neutral. necessity rely extent, years, informed judgment instance 77 combinations subdivisions (1), (2), Maps tell story accessible critical time, highways, geographically closer together. Conditions localities widely situations. 78 Transportation Students. 79 never defined precision. application infinite thousands Bus integral perhaps one-room schoolhouse Eighteen million Nation's children, 39% 1969—1970 country. 80 importance discernible Davis, supra.11 did purport drawn 1965 unlimited privileges. dismantling 81 Thus relief; authority. 82 buses direct routes. Students picked near homes attend. trips average 'not over minutes most.'12 compares favorably 26,600 trip hour. employ Desegregation walk-in 83 weigh soundness above. hardly stating values is, course, sensitive facets employed. VI searching term courts, 'reasonableness.' 'feasible' implication, 'workable,' 'effective,' 'realistic' develop 'a unable conclude reasonable, feasible workable. deal words poor instruments convey sense fairness equity. Substance, semantics, govern, suggest limitations frustrating 85 point, achieved full 'unitary' decisions Alexander. 86 communities demographically stable, growing, mobile society, few so. accomplished absence agency fix alter demographic affect intervention 87 For reasons forth, ordered. Judgment part; McDaniel Barresi, Number 420, 39, 1287, 582; Commissioners 436, 577; Moore 444, 47, 1292, 590; Carolina Swann, 498, 43, 1284, 586. cross-petitions 281 treated referred 'this case.' Raney 443, 1697, 727 Monroe Commissioners, 450, 1700, 733 (1968). 'satellite zone' main zone later incorporated appointing consultant, stated: 'Fixed set. tries desegregation, approve variations ratios. start thought others, understand 306 1299, 1312. suggested Fifth 166 2, 24, Elementary (grades 1—6) grew 17,447,000 23,103,000 (beyond 6) 11,183,000 20,775,000 Digest Educational Statistics, Table 3, Office Pub. 10024—64; 28, 10024—70. remembered entered score findings, memorandum opinion. Considering pressure expect inconsistencies apparent avoided. review, amended, final categorically discussed below, identified, devices. Additionally, unless 60% arbitrary limitation steps. 'reasonable' standard appeal, explained follows: 'This ruled, 'racial balance' Constitution; cities unlawful; violate court.' (Emphasis original.) Schools. reliance 'revision compact units,' 756 supplied), misplaced. enumeration considerations patently suggestive exhaustive. decided premised recognition foresee announced. 1695: been, assess effectiveness universal answer obviously job assessed options instance.' 1967—1968, 207 transport 22,094 daily round miles. 1966—1967, 7,116 bused daily. Charlotte-Mecklenburg, whole, planned 23,000 year, bused, four- five-year-olds longest routes 138 operated. 105 already easily obtained. who one-half N.C.Gen.Stat. 115—186(b) (1966).

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