Legal Document

410 U.S. 315 93 Supreme Court Reporter 979 35 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 320 John S. MAHAN, Secretary, State Board of Elections, et al., Appellants,v.Henry E. HOWELL, Jr., al. CITY OF VIRGINIA BEACH, Appellant, versus Henry Robert L. WEINBERG, Edgar Atlantic PRICHARD Nos. 71—364, 71—373, and 71—444. Argued Dec. 12, 1972. Decided Feb. 21, 1973. As Modified on Rehearing April 2, See 1475. Syllabus The Virginia General Assembly in 1971 reapportioned the for election state delegates senators. apportionment statutes, challenge by appellees, were invalidated a three-judge District Court, which ruled reapportionments impermissible violations 'one person, one vote' principle. court substituted its own electoral districts, reducing to about 10% percentage variation from ideal district approximately 16% permitted legislature's plan but, contrary that plan, many instances not following political subdivision lines. Held: 1. Reapportionment electroal districts Virginia's House Delegates complied with Equal Protection Clause Fourteenth Amendment, since maximum population variation, was excessive, resulted State's rational objective preserving integrity Pp. 320—330. (a) In implementation basic constitutional principle both houses bicameral legislature be apportioned substantially basis (Reynolds Sims, 377 533, 84 1362, 12 506), more flexibility is permissible respect legislative reapportionment than congressional redistricting. 325—330. (b) lines it furthers purpose facilitating enactment statutes purely local concern preserves voters subdivisions voice matters. 325—328. (c) Given wider latitude reapportionment, disparities reflected deviation are within tolerable limits. 328—330. 2. establishment three numerically senatorial assigning them 36,700 persons who 'home-ported' at Naval Station, Norfolk, regardless where they actually resided, because counted official census tracts, constitutionally discrimination against military personnel, cf. Davis Mann, 678, 1441, 609, under severe time pressures, did abuse discretion prescribing an interim combining into multimember district. 330—333. 330 F.Supp. 1138, affirmed part, reversed part. Andrew Pacific KF135 P2 Miller, Richmond, Va., appellants Mahan others. Harry Frazier, III, appellant City Beach. Howell, pro. se Clive DuVal, 2d, se. Mr. Justice REHNQUIST delivered opinion Court. 1 Acting pursuant mandate newly revised constitution,1 enacted apportioning members Delegates2 Senate.3 Two suits brought challenging constitutionality redistricting statute grounds there variances diluted representation,4 use jdistricts constituted racial gerrymandering.5 Senate attacked separate suit, alleged city Norfolk unconstitutionally aplit allocating Navy personnel isolating Negro Three courts convened hear 28 Code KF62 §§ 2281 2284. consolidated heard four judges variously made up panels. 2 entered interlocutory order that, inter alia, declared unconstitutional enjoined holding elections other those established court's opinion. Howell Mahan, 1150 (ED Va.1971). Appellants, Secretary Elections Beach, have appealed directly this portions order, invoking our jurisdiction § 1253. 3 * provided combination 52 singlemember, multimember, floater delegate 100 would elected. found lower court, consisted 46,485 per delegate, Act 16.4%—the 12th being overrepresented 6.8% 16th underrepresented 9.6%.6 ratio between these two 1.18 average variance 3.89%, minimum necessary elect majority 49.29%. Of 4% perfection nine exceeded 6% ideal. With exception, followed jurisdictional counties cities. That Fairfax County, allotted 10 but divided five-member districts. 4 Relying Kirkpatrick Preisler, 394 526, 89 1225, 22 519 (1969); Wells Rockefeller, 542, 1234, 535 (1969), Reynolds 506 (1964), concluded 16.4% sufficient condemn doctrine. While noted traceable desire maintain traditional county boundaries, impossible draft overcome disparties still such integrity, held proved no governmental necessity strictly adhering Accordingly, undertook devised having slightly over district, believed came 'within passable limits as 'a good-faith effort achieve absolute equality.' Preisler . ..' F.Supp., 1147—1148. 5 Appellants contend Court's reliance supra, striking down Assembly's arroneous, proper application standards enunciated finding constitutional. 6 federal deviations 5.97% 13.1% respectively. express cases elucidate standard first announced Wesberry Sanders, 376 1, 11 481 'the command Article I, Representatives chosen 'by People several States' means nearly practicable man's vote worth much another's.' Id., 7—8, S.Ct., 530 (footnotes omitted). And 'permits only limited unavoidable despite equality, or justification shown.' 531, 1229. principal question thus presented review whether Amendment likewise permits equality' context reapportionment.7 7 This recognized requires supra. so doing, suggested principle—equality among districts—more U.S., 578, 1390. Consideration given fact almost invariably, significantly larger number seats bodies distributed seats, therefore may feasible greater extent establishing while affording adequate statewide representation. Ibid. Another possible population-based representation legislatures stated be: 8 '(T)hat insuring some subdivisions, subdivisions. Several factors make insubstantial claims can rationally consider according independent least body legislature, long equality maintained. Local entities frequently charged various responsibilities incident operation government. activity involves so-called legislation, directed concerns particular legitimately construct along deter possibilities gerrymandering. .' 580—581, 1391. 9 reiterated overriding must 'substantial any citizen equal weight state.' 579, By contrast, excuse failure meet numbers people districting practical impossibility drawing mathematical precision. Thus, whereas alone has been sole criterion broader afforded considerations enumerated dichotomy consistently example, asserted necessarily result attempt avoid fragmenting existing boundaries. argument rejected context. But Abate Mundt, 403 182, 91 1904, 29 399 (1971), 11.9% upheld face protection challenge, part New York had history maintaining government units county. Application 'absolute test impair normal functioning governments. Such effect readily apparent analysis case. Under VII, Constitution, extensive power enact special legislation regarding organization of, exercise powers by, counties, cities, towns, sought fragmentation assertedly afford Richmond seek legislation. based Wells, 10%,8 compared roughly adopted legislature. even limit extended single across instances, substituting Scott placed 24,376 voted 76,346 Dickinson, Lee, Wise Counties delegates. deviated 8.3% transferred five County's enumeration containing 6,063 persons, contiguous second composed Bristol, Smyth Washington Counties, 87,041. thereby reduced all nonexistent opportunity champion relating County virtually nil. countervailing benefit resulting readjustment district's now 1.8%. 13 Beach saw position deteriorate similar manner court-imposed plan. 40th allocated 172,106. underrepresentation cured providing floterial 42d, also included cities Chesapeake Portsmouth. 42d dissolved. 32,651 3,515 40th, 29,136 Norfolk's 39th includes 307,951 Norfolk. residents cast their amount 8.6% population. terms politics, complains far concerned, effectively disenfranchised. 14 We conclude, therefore, judged stringent applicable instead reaffirm honest good faith practicable.' 577, conclusion '(s)o divergences strict legitimate effectuation policy, equal-population either legislature.' 15 case policy lines—is new 686, 1445, 609 noted: 16 'Because split purposes representation, utilized whose populations entitle representative .. And, tradition respecting boundaries lines, constructed combinations pieces them. 17 then-existing substantial Houses defeated case, possibility precluded existed 'such minor occur recognizing certain free taint arbitrariness discrimination.' Roman Sincock, 695, 710, 1449, 1458, 620 (1964). 18 prepared say decision grant dealing irrational. if so, provide qua implement valid when measured Amendment. inquiry then becomes reasonably said urged justify is, indeed, furthered whether, justified, For disparity population, however rational, cannot emasculate goal equality. 19 There uncontradicted evidence offered subject qualifications, 'produces above below norm, keeping intact (Defendants' Exhibit 8.) itself kept process districting. went hold 'proved lines,' invalid. 1140. we above, however, framed 'governmental necessity,' claim 'rationally consider.' 20 intimated reason rejecting implemented 'as witness division County.' divided, fragmented. ten-member might well thought disfavor Connor Johnson, 402 690, 692, 1760 1762, 268 (1971). scarcely condemned simultaneously attempting move toward smaller 21 Appellees argue adherence longer provision II, 6, n. neither specifically provides nor draws distinction each described practicable' language used But, previously indicated, somewhat matter law construe Constitution liberally redistricting, indicates done so. reject do Delegates. Nothing ignore Senate, detracts validity applied house responsive such.9 23 advance remaining pursuit exceed conclude not. 24 most heretofore imposed upon Swann Adams, 385 440, 87 569, 501 (1967), scheme 26% disapproved. Florida trial level support challenged variations Senate. 446, 573. emphasized 15% norm approved little bearing another State.' 445, 572. We, find citations numerous decided determining statute. relatively present contrast sharply plans struck previous decisions See, e.g., supra; Kilgarlin Hill, 386 120, 820, 771 (1967). 25 Neither furnished specialized calipers enable extract general formula establishes what range permissible, 16-odd percent exist less invalid approach limits, believe exceeds sacrificed justifiable deviations. 26 reapportioning advanced Delegates, one. It said, examination does policy. thereunder reverse contrary. affirm Weinberg Prichard Number 71—444, pending disposition.10 II 27 40 single-member portion added entire area conformed ideally, numerically, naval assigned Fifth Senatorial tracts.11 undisputed 8,100 lived aboard vessels tract District. before 18,000 outside areas, true, indicated malapportionment personnel.12 Lacking survey data sufficiently precise permit creation closely representing actual corrected Fifth, Sixth, Seventh Districts, encompassing charge justified overturning validly tracts imposition contravened favor unusual, unique, circumstances err declining accord conclusive figures. justifiably question, significant assignment admittedly reside. Since discriminatory treatment impermissible, 691, 1448, relief granted bounds confided it. remedial techniques voting rights largely left courts. 585, 1393, 1394. bound apply equitable '(i)n awarding withholding immediate relief, entitled should proximity forthcoming mechanics complexities laws 30 faced pressures. forwarded Attorney March 1971. 7, filed consolidated. hearing scheduled May 24, interposed his objections Voting Rights Act. result, devoted arguing after hearing, continued until June 15. postponed primary elections, set 8, September 14. finally 16, July just weeks prior filing deadline candidates. 31 Prior acted, handed Whitcomb Chavis, 124, 1858, 363 violative Clause. conscientiously considered admonition fashioning remedies, preferred. confronted plausible 691—692, fear too delay seriously disrupted fall elections. Facing singular unique factors, abused remedy district.13 insofar dealt 32 Affirmed 33 POWELL took consideration cases. 34 BRENNAN, whom DOUGLAS MARSHALL join, concurring dissenting & N Immigration Nationality Decisions agree joinder Norfolk-Virginia create Cf. 176 179, 1886—1888, (1973) (Douglas, J., dissenting); see Fortson Dorsey, 379 433, 439, 85 498, 501, 401 (1965); Burns Richardson, 384 73, 88, 86 1286, 1294, (1966). dissent, action setting aside violated 36 approves conceded produce total ideal.1 course, 572, 'What marginally unsatisfactory another, depending case.' 1390, every presents factual predicate circumstances, upholding invalidating normally great precedential significance. 189, 1909, (1971) (Brennan, dissenting). today suggests stake well-established principles novel facts. my view, problem us sense impression, squarely controlled decisions. (1964); appropriate, call mind again controlling show properly facts us, preclude reversal decision. 37 recently amended 'members shall elected Assembly,' '(e)very compact territory give, practicable, proportion district.' 6. Pursuant requirement, Commonwealth 38 On 1970 figures, 4,648,494, ideally represent persons. disregard requirements flagrant earlier cases,2 does, nevertheless, demonstrate systematic pattern 25% deviates 5%. Almost 60% deviate 3%. Four legislators 8%. deviation—the spread districts—would 16.4%, high 23.6%, method calculation. 39 Assuming courts.3 maintain, deviation, computed, 23.6%—a figure approximating 25.65% led invalidate 26.48% 24.78% 161—163, 1878, 1879, arrive 23.6% taking account App. 81—83, seem concede accurate indicator deviation. Brief Appellant 7.4 pointed out 'range 16.4%,' 1139 (E.D.Va.1971), occasion '(u)nder mode calculation will pass muster.' Although conceding disparage appellees' assertion nevertheless reaches perplexing 'confine figures unconstitutionality'—16.4%. Ante, 319, fact, 'pass muster' assumption surely fair ask assuming 23.6%. refuses confront render moot irrelevant improperly derived. Instead, attempts obscure issue contending disputed contention wholly incorrect. answers briefs, oral quarrel calculating 4, refusal mean appellees option reopening litigation persuade true measure fatal Commonwealth's 41 need prolong resolution should, inexplicably not, decide. correctly magnitude added—again correctly—that burden parity 'legitimate policy.' 444, lines.' promulgated 42 7.2%,5 excluding geographically isolated mainland Commonwealth.6 including 10.2%. reduction clear full improvement achieved 3% cut half, 58 32. exceeding mark, one—the district—would 3.7%. short, 'perfect division' 'multiplicity delegates, geography diversity concentrations,' 1147, measurably 43 reduce inequality defend ground 'tolerance deviation,' 24. They highest degree without interest 44 holdings restated unequivocal propositions. First, paramount district.7 '(T)he 1390; relegate secondary status reserve service interest. 45 Second, open State, event fail demonstrating could jeopardizing critical exalt point nullifying competing State. firmly view accorded meets presenting cogent reasons explanation variations, small. (1971); 46 propositions applicability diminished (1969)—two refined applied—concerned rather reapportionment. today's decision, never different situations. True, differences apportionment, repeatedly differences. termed 'more insubstantial' maintained.' 580, id., recognition hardly tantamount distinct standards. What interests pertinent relevance preserve may, small malapportioned follows lighter proof distinguishable. 47 Our requirement 530, 'there fixed numerical enough de minimis satisfy standard. 'equal (is) fundamental Representatives,' 18, 481, (1964).' 530—531, 1228. Moreover, held, 532, 1230, '(i)t 'to acceptable (385 U.S.) 443—444, (569) 572 (17 501).' 48 undergirded very supported involving suggest contrary, concerned identical Sims controversies apportionment. 1389—1390. Hadley Junior College District, 397 50, 56, 90 791, 795, (1970). bear justifying rested exclusively defined quotation Swann. 49 Adams presentation 'acceptable variations.' 443, 571—572. comparison views expressed Justices 447—448, 573 574 (Harlan, dissenting), decisively refutes suggestion unequal found. A showing necessity, rationality, requires. 50 If establish clarity, elucidated Swann, removes doubt. There, sustained grounds, 'burden proof' ruling. 'had remonstrating 'negat(ing) existence sustain legislation.' 252 404, 414.' 122, 822. statement legal standard, 'it quite unless satisfactorily record, size significance evident here (a 26.48%) plan.' decision: namely, amply attempt, wherever possible, Significantly, '(w)e doubtful kind 'minor' policies counseling maintenance plans. 578—579, 506. reach convinced Texas necessitated here.' 123, (emphasis supplied). III 51 because, failed—just failed Hill—to panel judges, Virginia, share unanimous prove insure upheld, determine, turning justifications defense 'free 325, quoting 1458. indeed discriminate region State—the Northern suburbs Washington, D.C. Each seat 4.3% 6.3%. 'pervasive under-representation Virginia,' 1146, ordered transfer systematically Tidewater Virginia. 53 185—186, 1907, 54 'never geographic areas disproportionate 55 'Accordingly, underscored danger structures contain built-in bias tending tend favor, populous highly populated neighbors, 57—58, (1970).' 56 include 'built-in areas.' Conveniently, discerns acknowledge sets explanation. concluding clearly erroneous, affirmance regard inequalities 57 'taint discrimination,' inequalities. insist consistent practice conformity step follow practice. explicitly districting, drawn insure, practicable,' population.8 origins pre-eminent goal.9 asserting offers nothing vague references 'local legislation,' describing precision, indicating amounts business, materially affect legislation.10 59 assumes important ante, 326—328, give (the legislature) daily governs.' 33. goal, falls short objective. describe terms: 60 'Under situation arise 1602 citizens Wythe Sixth Legislative opposed opposition 91,620 Carroll, Floyd Montgomery Radford, oppose 20,537 fellow 27. 61 issues impact impact, differing surrounding areas. affecting whole presumably vast issues—the precisely votes Commonwealth. predominant voters. form government, participate indirectly through obvious voter's regional state-wide increases relative issues, correspondingly diminish. 62 primarily county, deep voters, serve provide, terms, effective fourth consists Wythe, Grayson, Bland Galax. Yet alone, appellants' comprises 22,139 49,279 resident makes one-half likely cause pits Grayson 63 best efforts secure unspecified likelihood overwhelmingly county; affected represents large delegate.11 were, strong Commonwealth, upheld. higher accomplish salutary minimal disruption counties. 134 More significant, shifted 64,738, 4,648,494. making logical empirical assumptions implicit violating disenfranchise 1/2% IV 64 record—without specific how meaningfully submerged multicounty district—I whatsoever judgment Revised provides: 'Members Assembly. Every reapportion accordance section year ten years thereafter. 'Any take immediately limitations contained IV, Section 13, Constitution.' Va.Code Ann. 24.1—12.1 (Supp.1972). 24.1—14.1 chapter 246, Acts Assembly, 14, originally passed 1971, States, acting 1965, 79 Statutes-at-Large 1973c, Objections metropolitan Between interposition cases, General's subsequently withdrawn. objection amendment 3. initially probable related Thornton Prichard, 405 1063, 92 1490, 793. appeal involved Act, Fifteenth Amendments. appellant's motion, dismissed, 409 802, 25, 62. These Appellee DuVal argues computation results relied claimed. dispute, 'sufficient 1139—1140. decline enter imbroglio manipulation confine unconstitutionality. Williams, 404 549, 656, 704 (1972), expressly reserved issue. 7%, arithmetic isolation remainder 1147 8. abandoned change though annexation, example. answer dual required during goals conflict other, known prevail. determination defective otherwise companion challenges sustains 22d 23d He court-ordered ought supervisory require contends erroneous. constitutional, 3.9%, attached ships Census Tract 000999, location series ship piers. way instructions Director Bureau Census, George Haw. Hawai‘i KFH45 A2 Brown. All commanders obtain ships. Specifically to: 'Include married home families April. Wives instructed husbands complete forms.' wives families, resided docked intended bear. 'rule thumb' estimate 50% occupied housing shore. 10,000 off base note retained jurisdiction. prevent enacting Districts differs nonetheless requirements. excess seemingly concede. infra, 335—338. Avery Midland 390 474, 88 1114, (1968); 620-(1964). Cummings Meskill, 341 139 (D.Conn.1972) (maximum House, 7.83%, 1.81%); re Districting Iowa, 193 North Western Reporter, 2nd 784 (1972) (house, 3.8%, senate, 3.2%); Graves Barnes, 343 (WD Tex.1972) (9.9%); Troxler St. Baptist Parish Police Jury, 331 222 (E.D.La.1971) (6.2%); 175 (1970) (House, 13%, 12.1%); Driggers Gallion, 308 632 (M.D.Ala.1969) (at 10%); Skolnick Illinois Electoral Bd., 307 691 (N.D.Ill.1969) 16.9%, 14.7%); Long Docking, 282 256, 283 539 (D.Kan.1968) (16.6%). 'The arrived ranged plus 9.6% over-representation minus 6.8%, 16.4%. 42nd shared Chesapeake, Portsmouth instance increased 23.6%.' (Emphasis supplied.) Reply 3—4. 8% weighted 9. Accomack Northampton Counties. Eastern Shore, separated Bay Ocean. Maryland. 46th, 6.5%. 567, 1384, remains, remain, unchanged—the citizen's depend he lives. Population starting controversies.' Cf., Indiana Constitution. 136 1865 (1971): 'A Representative constitute counties; ever divided.' '(t)he apportion corresponding respresentatives Congress States; inhabitants.' 55. At same time, provided, continue; nineteen hundred thirty-two thereafter.' 43. Plainly, adoption provision, govern minds draftsmen Commission Constitutional Revision, Report 117 (1969): 'There reason, proposed (Art. 6) combines provisions sections common applies seats.' that: '(L)ocal governments carry direct enactments. justifies jurisdictions. allows Those formerly services citizens.' refer declares act organization, city, town, taxation, assessment determine noted, delegation broad speak issue—obviously subdivision—of delegated exercised To realize would, representative. generating 'federal analogy.' 571—577, 1386—1390.

Classification Label: 1