Legal Document

479 U.S. 462 107 S.Ct. 794 93 L.Ed.2d 866 CITY OF PLEASANT GROVE, Appellantv.UNITED STATES. No. 85-1244. Argued Dec. 10, 1986. Decided Jan. 21, 1987. Syllabus Appellant, an Alabama city that has a long history of racial discrimination and until recently had all-white population, is covered by § 5 the Voting Rights Act 1965 (Act) accordingly must seek preclearance before instituting any change in standard, practice, or procedure affecting voting. Appellant sought approval Attorney General for annexation two parcels land, one vacant (hereinafter called Western Addition) other (Glasgow added at request its inhabitants, extended white family who wished their children to attend appellant's then school system. The objected annexations, finding with respect Addition refusal annex adjacent black neighborhood (Highlands) was indicative intent only areas. Pursuant Act, appellant filed this declaratory action United States District Court Columbia, which denied relief, Addition's location plans relatively expensive housing there indicated it likely be developed use persons only. court further found failed carry burden proving annexations issue did not have purpose abridging denying right vote on account race. Held: 1. Fundamental principles governing case, are inhabited land constitutes voting practice subject under 5, even residential development anticipated precleared those moving into area may annexing jurisdiction. Moreover, Congress intended unless both discriminatory effect absent, absence Pp. 467-469. 2. There no merit contention erred concluding carried showing were untainted racially purpose. In arriving decision, relied variety evidence, principally Highlands while areas motivated rather than, as asserted, based upon economic considerations. court's findings, weight evidence regarding issue, findings fact accepted clearly erroneous, established they erroneous. Appellant's argument if decision motivated, such respecting hence correct, but dispositive. failure simultaneously nonblack highly significant demonstrating purposefully designed perpetuate enlarged enclave voters. since voters time could caused impermissible thus cannot concluded purpose, incorrect assumption can relate present circumstances. Section looks effects changes, future well, and, likewise, well 469-472. 623 F.Supp. 782, affirmed. WHITE, J., delivered opinion Court, BRENNAN, MARSHALL, BLACKMUN, STEVENS, SCALIA, JJ., joined. POWELL, dissenting opinion, REHNQUIST, C.J., O'CONNOR, joined, post, p. 472. Thomas G. Corcoran, Jr., Washington, D.C., appellant. Jerrold J. Ganzfried, appellee. Justice WHITE Court. 1 Pleasant Grove, 1965, 79 Stat. 439, amended, 42 U.S.C. 1973c, voting.1 unsuccessfully few whites. also convince three-judge We noted probable jurisdiction, 476 1113, 106 1966, 90 651 (1986), now affirm. 2 * whose population numbers approximately 7,000, described "an otherwise mixed Alabama."2 568 1455, 1456 (DC 1983). discrimination. Court's opinions chronicle city's past practices some detail, we will repeat fully here. See 787-788 1985); F.Supp., 1456-1457. Suffice say housing, zoning, hiring, policies officials shown unambiguous opposition integration, after passage federal civil rights laws. 3 case Glasgow Addition, 40-acre parcel 1969, App. 7, 450-acre 1979. newly formed, district than desegregated Jefferson County system.3 uninhabited, "its City's [for housing] indicate only." 784, n. 5. 4 While Annexation pending Legislature, City Council voted withdraw fire paramedic services providing without charge known Grove (Highlands). response, inhabitants Highlands, comparable petitioned city. restored free protection, act petition.4 18-19. because he areas.5 Columbia.6 motion summary judgment, held, over judge's dissent, "a community applying wholly different standard failing them standard." 1460. subsequent merits, court, judge dissenting, holding race.7 This appeal followed. II 6 Before addressing arguments, find useful review fundamental Act. 7 First. An Richmond v. States, 422 358, 368, 95 2296, 2302, 45 245 (1975); Perkins Matthews, 400 379, 388, 91 431, 436, 27 (1971)). Even Rome 446 156, 100 1548, 64 119 (1980), affirmed denial 13 9 land. id., 194, 196, S.Ct., 1570, 1571 (POWELL, dissenting); Rome, Ga. 472 221, 246 1979). consistent well-established teaching Allen State Board Elections, 393 544, 89 817, 22 (1969), provisions given "the broadest possible scope," 567, 832, reach "any state enactment alter[s] election law minor way," 566, 832. Allowing circumvent requirement developments would disserve Congress' subtle, obvious, regulations citizens race." Id., 565, 831. General, interpretation entitled considerable deference, see, e.g., Sheffield Comm'rs, 435 110, 131, 98 965, 979, 55 148 (1978), consistently interpreted development.8 Finally, aware General's view regard, implicitly approved it, when reenacted 1982.9 Cf. 131-135, 979-981. 8 Second. "Congress plainly absent." supra, U.S., 172, 1559 (emphasis original). also, Richmond, 378, 2307. See, 183, 18, 1565, 18. III does claim either though uninhabited.10 Neither disagree prove neither nor prohibited Its challenge conclusion motivated. These accept convinced us are. 10 insists, below, justification mere pretext race-biased decisions." 784. true basis Highlands. 784-785. Furthermore, reflect realities number respects. For example, calculation costs included cost already gratis neighborhood. 786-787. consider generate immediate ad valorem taxes possibly fees from construction new homes. 786. At same time, comparative estimate revenues generated take necessary station, major traffic artery, park. 787, 21. refusing 11 argues That point correct dispositive; Solicitor argues: "[T]he [black] areas, non-black here voters." Brief 12. 12 relies relevant decisions made, so reduce proportion deny existing representation equivalent political strength community. 370-371, 2303-2304. contends voting, makes sense one's immediately affected. 467-468, 8. Likewise, circumstances.11 It quite plausible see Additions part, minimizing strength.12 Common teaches indefinitely stave off influx residents indeed, process overdue, begun. 465, One means thwarting provide growth monolithic block, thereby effectively diluting advance. just dilution strength. To hold make extraordinary success resisting integration far shield resistance. Nothing purposes 14 light record us, left definite firm conviction mistaken insufficient proof forbidden Those not, therefore, Anderson Bessemer City, 470 564, 105 1504, 84 518 (1985). 15 judgment 16 Affirmed. 17 whom THE CHIEF JUSTICE O'CONNOR join, dissenting. 18 today affirms "den[y] abridg[e]" rights, actions individual purely speculative. Because violation inconsistent language I dissent. 19 examining appropriate restate articulated noted: "The provides applies proposed changes procedures." Beer 425 130, 138, 96 1357, 1362, 47 629 (1976) added). (1969). (1971), first constitute "change" procedures explained reason holding: "[Section] cover having potential inheres composition electorate affected annexation." 388-389, 436-437 Port Arthur 459 159, 161, 103 530, 532, 74 334 (1982) ("Perkins . held boundary lines enlarge eligible events 5") Thus, establish required when—an previous "voting procedures" altering municipal 20 defined type violates Act: " '[T]he always been insure voting-procedure made lead retrogression position minorities effective exercise franchise.' Lockhart 460 125, 134, 998, 1004, 863 (1983) (quoting 141, 1363). retrogressive blacks "dilut[ing] votes franchise limited 437. But inquiry terminated "reduc[es] relative minority race compared what 2307, (1975). dilutes "is statutory post-annexation electoral system fairly recognizes minority's potential." Ibid. 21 clear lack survive scrutiny, 1559, recognized within meaning broad statement read context: "An official action, whether otherwise, taken discriminating against Negroes legitimacy all our Constitution statute. forbids grounds color. surely power prevent gross slurs, 'to despoil colored citizens, theretofore enjoyed rights.' Gomillion Lightfoot, 364 339, 347 [81 110] (1960)." 2307 23 explicitly intend blacks. 1004. 24 "of color." 1973c. challenged much less effect, acted case. A. 25 When annexed contained Now, more years later, tract still contains currently Of course, addition handful 7,000 "enlarge[d] 532. said voter. out touch reality. "dilution" resident's Addition—20 residents—could No made—and indeed none made—that 15-year period rights. Nor way "change[d] electorate." 389, composed solely Addition. therefore whatsoever dilute 26 attempts avoid ascertaining motivation, gauged hypothetical According speculative reasoning, assumes move future, remain unchanged, diluted absent annexation.1 speculation part actor illogical unprecedented. Although stated reaches "potential voting," 437, "potential" refers concrete effects, might happen future. Under looked subdivision. (The comparison assessing potential" between annexation").2 Where annexation's hypothetical, inference motivation related unsupportable. B 1979, "change "enlarge difficult how justifies all. apply, proscribed imputing abridge annexes completely exclude include single voter Grove. voters, black, 28 again "purpose reasoning employed invalidate became populated whites moved occurred. theory applied ensure individuals do Fourteenth Amendment various laws prohibit fair private discourage area. only," 1457, 1983), sheer speculation. Whites lawfully area, prescience courts predict extent occur ever blacks.3 C 29 seeks support declined three predominantly communities.4 his dissent Judge MacKinnon persuasively pointed policy plausible. 793-795 1985). agreed flawed, Government concedes legislative contrary. relevance occur. desire family, combined communities, all—only inferred desired race, deny, abridge, individual's nevertheless impair justification. 30 As opinion: "There may, fact, actionable constitutional violations occurring City." 1462. existence conduct unrelated justify liable normally presume actors guarantees Constitution, require alleges purposeful Arlington Heights Metropolitan Housing Development Corp., 429 252, 265, 97 555, 563, 50 450 (1977); Washington Davis, 426 229, 240, 2040, 2047, 48 597 (1976). shifts upheld unusual intrusion sovereignty specifically rationally Fifteenth Amendment's guarantee vote. South Carolina Katzenbach, 383 301, 325, 337, 86 803, 816, 823, 769 (1966). shift justified relates Here, finds relationship exist. 31 sum, reading divorces justification—protecting rights—and represents extension beyond "broadest Accordingly, set forth part: "Whenever subdivision prohibitions section 1973b(a) title determinations sentence 1973b(b) shall enact administer qualification prerequisite force November 1, 1964 institute Columbia qualification, prerequisite, color, enters person comply procedure: Provided, enforced proceeding submitted chief legal officer interposed objection sixty days submission, good cause shown, facilitate expedited affirmatively made." undisputed appellant, being Alabama, Fed.Reg. 9897 (1965). 32 nursing home. these registered vote, apparently unaware latest treated white. 1456, 3. informs home, families, Tr. Oral Arg. 7. Two families homes limits. subsequently attempt thwart implementation unitary Stout Education, 448 F.2d 403 (CA5 1971). ordered bus transportation assigned schools, so. Ultimately, abolished transferred control schools back County. 466 1213 1972), cert. sub nom. Education Stout, 411 930, 1891, 36 389 (1973). resumed continued provision police services. 785 protection Dolomite neighborhood, likewise annexation. address detail separately. During hearings 1981 asked Department summaries cases. summarizing stated: certain projected areas." Extension Hearings Subcommittee Civil Constitutional House Committee Judiciary, 97th Cong., 1st Sess., 2567 (1982). complaint relief never precleared, amend well. observed "would difficulty is, design, racially-discriminatory Act." 788, 30. 26, 26. follows: "Certain designated public park, review. concerned procedures, submission uninhabited place. Rather, requires jurisdictions submit jurisdiction." Indeed, 1982 apprised preclear supra. 128 Cong.Rec. 14297 (remarks Sen. Helms) (criticizing undeveloped Wilson, N.C.); S.Rep. 97-417, (1982), U.S.Code Cong. & Admin.News 1982, pp. 177, 187 (citing Commission Rights, Unfulfilled Goals 65, turn notes zoned middle-income housing). "difficult all" Post, 477. delayed seeking desiring 8, understandable chose earlier juncture: developing proposition, marketability depend assurances buyers benefits residency city—including permit accommodates interests insofar implies jurisdiction short-circuit arguing result objective inquiry. Much dissent's effect. 474-477. rejected There, deprived majority status, recognize[d] reducing was, standing alone, perfectly legal, remand doing, "[I]t achieving why need proceedings alone. answer plain, labor it. proved kind justifiable whatever actual be." 378-379, 2307-2308. doubt subject, should remembered 469. hypothesize situation foreseeable 20-member anything de minimis. impute irrational. square miles preannexation 202,359, 104,207 52% citizens. 47,262 people 1,557 black. postannexation 249,621, 105,764 42% 363, 2300. significantly changed substantially reduced If engage speculation, equally logical, compelling, increase contain 700 residences. With sale each possibility exists become resident. home Logically, causes probability buy 1971, including historically all-black Woodward School. requests

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