Appendix — Camp v. Wesch
Supreme Court brief1992
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No. 91-1553 | MAR 24 1992
EE
| oFFice OF iit ve. 7
IN THE
Supreme Court of the United States
OCTOBER TERM, 1991
BILLY JOE CAMP,
™ Appellant,
PAUL CHARLES WESCH,
Appellee.
Appeal from the United States District Court
for the Southern District of Alabama
APPENDIX TO
JURISDICTIONAL STATEMENT
JAMES H. EVANS
Attorney General of the
State of Alabama
ANDREW P. MILLER
(Counsel of Record)
MARK A. PACKMAN
MELINDA BURROWS
DICKSTEIN, SHAPIRO & MORIN
2101 L Street, N.W.
Washington, D.C. 20037
(202) 785-9700
Attorneys for Appellant
Billy Joe Camp
ae
WILSON - Epes PRINTING Co., INC. - 789-0096 - WASHINGTON, D.C. 20001
® celeiie 00
TABLE OF CONTENTS
poipg & Bl er |g y |) 7 ERR ROp enn tn sun Deen n NONI ete pErnD nen
FINAL JUDGMENT, Wesch v. Hunt (Civil Action
No. 91-0787, March 9, 1992) ......... ea iddaaenia aera a
MEMORANDUM OPINION, Wesh v. Hunt (Civil
Action No. 91-0787, March 9, 1992) ..........2.......2...22200
MOTION TO STAY, Wesch v. Hunt (Civil Action No.
5 Brae rnc een eee enn
MEMORANDUM OF LAW IN SUPPORT OF MO-
TION TO STAY, Wesch v. Hunt (Civil Action No.
ETT I Ty NN sities ticccniccressrcenteneens
ORDER DENYING MOTION TO STAY, Wesch v.
Hunt (Civil Action No. 91-0787, March 17, 1992)....
MOTION TO ADOPT STATE OF ALABAMA’S CON-
GRESSIONAL REDISTRICTING PLAN, Wesch v.
Hunt (Civil Action No. 91-0787, March 6, 1992) ......
ORDER DENYING MOTION TO ADOPT STATE
OF ALABAMA’S CONGRESSIONAL REDIS-
TRICTING PLAN, Wesch v. Hunt (Civil Action No.
Oe I a ealleespeboneean
COMPLAINT, Wesch v. Hunt (Civil Action No. 91-
ORDER REQUIRING GOVERNOR TO CALL A SPE-
CIAL LEGISLATIVE SESSION, Morris v. Hunt,
Case No. CV-91-145 (Circuit Court of Barbour
County, Alabama, December 19, 1991) ...........00......
FINAL ORDER REQUIRING GOVERNOR TO CALL
A SPECIAL LEGISLATIVE SESSION, Morris v.
Hunt, Case No. CV-91-145 (Circuit Court of Barbour
County, Alabama, December 19, 1991) ~...0.022....202....
ORDER STAYING CIRCUIT COURT’S ORDER RE-
QUIRING GOVERNOR TO CALL A SPECIAL
LEGISLATIVE SESSION, Morris v. Hunt, Case
No. CV-91-145 (Circuit Court of Barbour County,
Se NE “Fg SHE | sccetierievcnachccaleteacacuedstniataicesusit
135a
174a
178a
182a
183a
256a
257a
263a
267a
ii
TABLE OF CONTENTS—Continued
ORDER DISMISSING AS MOOT APPEAL OF FINAL
ORDER REQUIRING GOVERNOR TO CALL A
SPECIAL LEGISLATIVE SESSION, Morris v.
Hunt, Case No. CV-91-145 (Circuit Court of Barbour
County, Alabama, March 11, 1992) .......000..
TRANSCRIPT OF TESTIMONY OF SPEAKER
JAMES S. CLARK, Morris v. Hunt, Case No. CV-
91-145 (Circuit Court of Barbour County, Alabama,
to me | Speen em
TRANSCRIPT OF TESTIMONY OF JEROME GRAY,
Public Hearing, Joint Legislative Committee on Re-
apportionment (October 2, 1991) 000...
TRANSCRIPT OF TESTIMONY OF STATE SENA-
TOR MICHAEL FIGURES AND CAROL ZIPPERT,
Wesch v. Hunt (Civil Action No. 91-0787, January
SOG & Git, BOGE) nnn ccccieec esti
CONSTITUTIONAL AND STATUTORY PROVI-
NN cu anicshahassputastaleieoaies set rihnnnseistanntiessnptacadeumasuteeies
Page
273a
274a
279a
la
IN THE UNITED STATES DISTRICT COURT
FOR THE SOUTHERN DISTRICT OF ALABAMA
SOUTHERN DIVISION
Civil Action No. 91-0787
(Three Judge Court)
PAUL CHARLES WESCH,
a Plaintiff,
Guy Hunt, BILLY JOE CAMP, LIONEL W. NOONAN,
Harry D’OLIVE, DEVON WIGGINS, OTHA LEE BIGGS,
JERRY BOGAN, CLARENCE WATTERS, and TOM TURNER,
Defendants.
NOTICE OF APPEAL
[Filed Mar. 13, 1992]
COMES NOW defendant Billy Joe Camp, Secretary of
State of the State of Alabama, and gives notice that pur-
suant to 28 U.S.C.S. § 1253 he is appealing the Court’s
final judgment in this case, dated March 9, 1992, and the
Court’s order, dated March 9, 1992, denying defendant
Camp’s Motion to Adopt State of Alabama’s Congres-
sional Redistricting Plan to the Supreme Court of the
United States.
Respectfully submitted this 18th day of March, 1992.
JAMES H. EVANS
Attorney General
/s/ Mare Givhan
MARC GIVHAN (GIVHR 4774)
Assistant Attorney General
/s/ Mort P. Ames
Mort P. AMES (AMESM 7570)
Deputy Attorney General
Two of the Attorneys for
Defendant Camp
2a
CERTIFICATE OF SERVICE
I hereby certify that I have on this 13th day of March,
1992, served a copy of the foregoing on all parties of
record by mailing a copy of same by United States Mail,
postage prepaid and properly addressed as follows:
John H. England, Jr., Esq.
England & Bivens, P.C.
2616 8th Street
Tuscaloosa, Alabama
Ronnie L. Williams, Esq.
814 St. Francis
Mobile, Alabama 36602
David Boyd, Esq.
Dorman Walker, Esq.
Balch & Bingham
P. O. Box 78
Montgomery, Alabama 36101
Ferrel 8S. Anders, Esq.
David A. Boyett, III, Esq.
Hamilton, Butler, Riddick, Tarlton, &
Sullivan, P.C.
P. O. Box 1743
Mobile, Alabama 36633
Algert S. Agricola, Jr., Esq.
(Attorney for defendant, Guy Hunt)
Interstate Park Center
2000 Interstate Park Drive
Suite 204
Montgomery, Alabama 36109
James C. Wood, Esq.
(Attorney for defendant, Lionel W. Noonan)
1010 Van Antwerp Building
Mobile, AL 36602
3a
Honorable Harry D’Olive
Probate Judge
Probate Court of Baldwin County
Baldwin County Courthouse
Bay Minette, Alabama 36507
Honorable Devon Wiggins
Probate Judge
Probate Jourt of Escambia County
Escambia County Courthouse
Brewton, Alabama 36427
Honorable Otha Lee Biggs
Probate Judge
Probate Court of Monroe County
Monroe County Courthouse
Monroeville, Alabama 36461
Honorable Jerry Bogan
Probate Judge
Probate Court of Wilcox County
Wilcox County Courthouse
Camden, Alabama 36726
Honorable Clarence Watters
Probate Judge
Probate Court of Clarke County
Clarke County Courthouse
Grove Hill, Alabama 36451
Honorable Tom W. Turner
Probate Judge
Probate Court of Washington County
Washington County Courthouse
Chatom, Alabama 36518
/s/ Mort P. Ames
Mort P. AMES
Deputy Attorney General
4a
Address of Counsel:
Office of the Attorney General
Alabama State House
11 South Union Street
Montgomery, Alabama 36130
(205) 242-7300
1266A
5a
IN THE UNITED STATES DISTRICT COURT
FOR THE SOUTHERN DISTRICT OF ALABAMA
SOUTHERN DIVISION
Civil Action No. 91-0787
PAUL CHARLES WESCH,
Plaintiff,
MICHAEL FIGURES, et al.,
Intervenor-Plaintiffs,
vs.
Guy HuNT, JAMES H. EVANS, BILLY JOE CAMP, LIONEL
W. NooNnaN, HARRY D’OLIVE, DEVON WIGGINS, OTHA
LEE BIGGS, JERRY BOGAN, CLARENCE WATTERS, and
ToM TURNER,
Defendants.
FINAL JUDGMENT
[Filed Mar. 9, 1992]
Before COX, Circuit Judge, HAND, Senior District
Judge, and ALBRITTON, District Judge.
BY THE COURT
It is ordered, adjudged, and decreed as follows:
i. It is declared that Ala. Code § 17-20-1 (1987), as
it read prior to its amendment in 1992, if applied to
congressional elections in 1992, violates Art. I, § 2 of the
United States Constitution.
2. The defendants, individually, and their successors,
agents, employees, attorneys, and those persons otherwise
6a
acting in concert or in participation with them who re-
ceive actual notice of this order, are ENJOINED from:
(a) conducting congressional elections in the State of
Alabama under the districting plan heretofore established
by Ala. Code § 17-20-1 (1987) as that section read prior
to its 1992 amendment;
(b) failing to conduct congressional elections in 1992
in accurdance with a redistricting plan adopted by this
court and called “The 1992 Alabama Redistricting Plan,”
which is verbally described in Appendix A to this order.
Appendix B to this order is a map depicting the plan.
(The map is appended simply to illustrate the plan, and
Appendix A shall control in the event of any conflict be-
tween it and Appendix B). Provided, however, that the
“injunction contained in this paragraph (b) shall not be
effective if the Alabama Legislature duly enacts a redis-
tricting plan for the conduct of congressional elections in
1992 and has the same precleared no later than 12:00
noon, Central Time, March 27, 1992; and
(c) failing to conduct congressional elections in calen-
dar years after 1992 in accordance with the 1992 Ala-
bama Redistricting Plan described in paragraph (b)
above. Provided, however, that the injunction contained
in this paragraph (c) shall not be effective in the event
the Alabama Legislature duly enacts a redistricting plan
and has the same precleared in accordance with federal
law in time for congressional elections to proceed without
delay under then applicable state and federal law.
All the judges concur.
7a
APPENDIX A
“Units Assigned to a District”
The following description lists the census geographical
units (as contained within the State computer’s reappor-
tionment data base) composing each congressional dis-
trict. When a county is entirely within a congressional
district the county and its population are listed as a
single line. For the seven counties split by congressional
district lines, the county name is listed without population
figures and subsequent lines give voting precincts and
population figures for each precinct in that county. For
the ten voting precincts split by congressional district
lines, the name of the precinct is listed without popula-
tion figures, followed by lines listing the census tract, the
census block group number, and then the census block
within each tract and block group, with population fig-
ures. Lines at the end of each block group, tract, pre-
cinct, or county listing give summary population totals
for that unit in the particular congressional district.
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134a
APPENDIX B
on
135a
IN THE UNITED STATES COURT FOR THE
SOUTHERN DISTRICT OF ALABAMA
SOUTHERN DIVISION
Civil Action No. 91-0787
PAUL CHARLES WESCH,
Plaintiff,
MICHAEL FIGURES, et al.,
Intervenor-Plainttf »,
Vs.
Guy HunT, et al.,
Defendants.
MEMORANDUM OPINION
{Filed Mar. 9, 1992]
Before COX, Circuit Judge, HAND, Senior District
Judge, and ALBRITTON, District Judge.
BY THE COURT
~ INTRODUCTION
On September 23, 1991, Plaintiff Paul Charles Wesch
brought this action seeking declaratory and injunctive re-
lief against the Governor of Alabama, as well as other
state officials, contending, inter alia, that the present
State law defining congressional districts in the State of
Alabama violates Art. I, § 2 of the Constitution. Based
on 1990 census data, Wesch specifically alleges that if
the 1992 congressional elections were to be held under the
present districting plan, it would violate his right to the
constitutionally mandated “one-person, one-vote” scheme
of representation.
e-
136a
Pursuant to 28 U.S.C. § 2284(a), this three-judge court
was convened. On December 9, 1991, Michael Figures and
others, who assert a claim under the Voting Rights Act,
42 U.S.C. § 1973 et seg., were granted leave to intervene.
A two day trial was held.
Having considered the evidence and the post-trial sub-
missions of the parties, the court enters the following
findings of fact and conclusions of law.
FINDINGS OF FACT
1. The Plaintiff Paul Charles Wesch is a citizen of the
United States and is a resident and registered voter in
the First Congressional District of Alabama as presently
configured.
2. The Intervenor-Plaintiffs, Michael Figures and
others, are African-American citizens of the United
States and the State of Alabama. They have been allowed
to intervene in this litigation both on their own behalf
and on behalf of all African-American citizens of the
State of Alabama.
3. It was agreed by all parties, including the Plaintiff-
Intervenors, that the complaint of intervention would pro-
ceed on an allegation that § 2 of the Voting Rights Act
has been violated, insofar as the class represented by the
intervenors had been denied meaningful access to the vot-
ing process that would allow them to elect candidates of
their choice.
4. The court notes that the original complaint was filed
in September, a fact known to the Plaintiff-Intervenors
who chose not to intervene until December 4, 1991. There-
fore, the Plaintiff-Intervenors were permitted to inter-
vene only after they agreed to comply with all procedures
and deadlines in place.
5. The Defendant Guy Hunt is the Governor of Ala-
bama. The Defendant Billy Joe Camp is the Secretary
of State of Alabama. The Defendants Lionel W. Noonan,
——
137a
Harry D’Olive, Devon Wiggins, Otha Lee Biggs, Jerry
Bogan, Clarence Watters, and Tom W. Turner are the
Probate Judges of the seven counties which presently
comprise the First Congressional District of Alabama. All
Defendants are sued both in their individual and official
capacities. All Defendants have significant duties in the
administration of congressional elections in Alabama.
6. This court advised the parties of its intent to em-
ploy Professor Harold W. Stanley as the court’s expert
to assist in considering any and all plans for redistricting
that might be submitted, and to advise the court on the
statistical issues in regard to any possible redistricting.
The court extended to the parties the opportunity to state
if there were any objections to the court’s selection of this
expert. No objections were filed. After the trial, the
parties were also given the opportunity to object to the
statistical information relied on by Professor Stanley, the
same information underlying this order. No objections
were filed.
7. In 1981, the Alabama Legislature enacted the cur-
rent version of Ala. Code § 17-20-1 (1987), which divided
the state into seven congressional districts. During 1990,
the Bureau of the Census of the United States Depart-
ment of Commerce conducted a census of the United
States, including the State of Alabama, pursuant to con-
stitutional authority. On January 16, 1991, the Clerk of
the United States House of Representatives notified Gov-
ernor Hunt that Alabama would retain seven seats in the
House of Representatives following the 1990 census.
(Statement of Agreed Facts and Exhibit A thereto.)
8. According to the 1990 census, Alabama’s total popu-
lation is 4,040,587 persons. In order to achieve exact
population equality among each of Alabama’s seven con-
gressional districts, the ideal population of each district
would be 577,227 persons. (Statement of Agreed Facts
and Exhibit B thereto. )
9. Alabama’s most populous congressional district is
District 5, which has 603,726 persons. Accordingly, Dis-
138a
trict 5 varies from the “ideal” population by 26,499 per-
sons, or 4.59%. Alabama’s least populous congressional
district is District 6, which has 532,748 persons. Accord-
ingly, District 6 varies from the “ideal” population by
44,479 persons, or 7.71%. The difference between the
populations of the most populous and least populous dis-
tricts is 70,978 persons, which constitutes a relative over-
all variance from the ideal population of 12.8%. (State-
ment of Agreed Facts, Exhibit B.)
10. African-Americans do not constitute a majority in
any of Alabama’s existing congressional districts. (State-
ment of Agreed Facts, Exhibit C.) However, according
to the 1990 census data, the African-American population
in Alabama is sufficiently compact and contiguous to per-
mit the creation of a congressional district in which 65%
or more of the residents are African-Americans. The
parties agree that such a district should be created. (Sup-
plemental Stipulation filed January 3, 1992.)
11. On February 8, 1991, the Alabama Legislature re-
ceived the 1990 census data on magnetic tape from the
Bureau of Census, and this information was loaded, as
received, into the computer system maintained by the Ala-
hama Legislature’s Permanent Joint Legislative Commit-
Lee on Reapportionment (“Reapportionment Committee’’).
The population data in the Reapportionment Committee’s
computer data base is the official 1990 census data com-
piled and released by the Bureau of the Census and is
accurate and reliable information for redistricting pur-
poses. (Statement of Agreed Facts.) On July 15, 1991,
the Secretary of Commerce advised that there would be
no adjustment to the 1990 census figures as originally
transmitted to the Alabama Legislature.
12. The total population of each existing congressional
district is reflected in Appendix A to this opinion. The
total population of each existing congressional district by
race is reflected in Appendix B; the total population by
race of each of Alabama’s 67 counties is reflected in Ap-
vendix C; and the voting age population by race of each
139a
of the 67 counties is reflected in Appendix D. The names,
dates when first elected, and home addresses of Alabama’s
incumbent congressmen are reflected in Appendix E.
13. On Apri! 2, 1991, the Reapportionment Committee
adopted a set of guidelines for redistricting. (Plaintiff's
Exhibit 1; deposition of Marilyn Terry, pp. 24-25.) The
Guidelines set forth a fair set of criteria for congressional
redistricting. In addition to mandating compliance with
population equality or the “one-person, one-vote” rule and
the requirements of the Voting Rights Act, these guide-
lines included the followings criteria:
3. All Jegisiative and congressional distric!s will be
composed of contiguous and reasonahiy compact geo-
graphy.
4. Where >ossible, legislative and congressional dis-
tricts should attempt to preserve communities of in-
terest, including without limitation municipilities
and concentrations of blacks and other ethnic minori-
ties, where such efforts do not violate the other stated
criteria.
5. Counties should be used as district building blocks
where possible, and to the extent consistent with other
aspects of these criteria.
a. Where county lines cannot be maintained, dis-
trict boundaries should follow «2s closely as prac-
ticable the local voting precinct boundary lines
in order to minimize voter confusion and cost of
election administration.
b. Where voting precinct boundary lines cannot
be followed and also meet the geographic guide-
lines as stated in this section, district lines must,
follow census block geozraphy in order to main-
tain the integrity of the statistical analysis.
6. Efforts will be made to preserve cores of existing
districts where such efforts are consistent with and
do not violate the other criteria stated herein.
140a
14. The Alabama Legislature adjourned its 1991 reg-
ular session on July 29, 1991, without enacting a con-
gressional redistricting plan. (Statement of Agreed Facts,
Paragraph 13.) It was argued that the Legislature might
delay the primaries for congressional elections, allowing
it time to adopt and have precleared a constitutional re-
districting plan. If that were done, two primaries would
have to be held, entailing added cost to the taxpayers.
15. By statute, Alabama’s congressional primaries will
be held June 2, 1992. The qualifying deadline for candi-
dates is sixty days prior to the primary, or April 3, 1992.
In order for a legislatively-enacted congressicnal redis-
tricting plan to receive the “preclearance” from the Jus-
tice Department required by § 5 of the Voting Rights Act,
42 U.S.C. § 1973c, in time for the April 3 qualifying dead-
line, such a plan should have been submitted to the Jus-
tice Department no later than February 3, 1992.
16. Under Alabama law, the calling of special sessions
of the Legislature is a discretionary call on the part of
the Governor. Ala. Const. Art. V, § 122. The Governor’s
answer filed on October 29, 1991, indicated that the Gov-
ernor did not plan to call a special session of the Legisla-
ture for the purposes of redistricting.
17. At the time this case was filed, this court con-
sidered it highly unlikely that the legislative process could
produce a congressional redistricting plan and have it
precleared in time for the 1992 congressional primaries
to be held as scheduled. Nothing was presented to this
court to indicate that the Legislature would convene for
the purpose of adopting a plan of redistricting in time
to be precleared for these elections. Nothing was pre-
sented to indicate that even if a special session was called
for the purpose of considering redistricting, that a suc-
cessful effort would follow, or that even if the Legislature
1 Ala. Code §§ 17-16-6 to -11 (Supp. 1990).
14la
was allowed to consider the matter after the regular term
commenced on February 4, 1992, that a plan would be
forthcoming, and if forthcoming, there would be time to
have such plan precleared. The court considered this case
on a fast track in light of the impending primary. All
parties participating in this case were put on notice of
this fact.
18. Consequently, the court finds that the only means
by which Alabama’s 1992 congressional primaries may be
held in a timely manner (other than under the current
districting scheme which, for reasons enumerated in the
Conclusions of Law, the court rejects) is pursuant to an
interim redistricting plan ordered by this court.
19. The parties have submitted six proposed redistrict-
ing plans to the court for its consideration: (1) the “Reed
Plan,” Plaintiff’s Exhibits 3 and 7; (2) the “Sam Pierce
Zero Plan,” Plaintiff’s Exhibits 2 and 6 (hereafter the
“Pierce Plan’); (3) the “Hilliard Plan,” Intervenors’
Exhibits 3 and 3A; (4) the “Unity Plan,” Intervenors’
Exhibits 1 and 1A; (5) the “Modified Unity Plan,” In-
tervenors’ Exhibits 2 and 2A; and (6) the “CD25 Plan,”
Intervenors’ Exhibits 4 and 4A.
20. Of the six plans submitted, only the Reed Plan was
considered in its final form by the Reapportionment Com-
mittee. The Pierce Plan, however, is a modification of a
plan called the “Larry Dixon Plan” which was considered
by the Reapportionment Committee. The Pierce Plan
modified the Larry Dixon Plan to some extent, but the
basic format is similar, The Legislature of the State of
Alabama created an Int.vim Task Force on Reapportion-
ment by Act #87-356. By Act #90-388 that task force
became the staff to the Permanent Committee on Reap-
portionment of the Alabama Legislature. The task force
scheduled a series of public hearings in regard to redis-
tricting matters, and under the instructions given to the
Reapportionment Committee, as set forth in the Guide-
142a
lines for Legislative and Congressional Redistricting, the
Reapportionment Committee meetings and public hearings
were open to the public and all plans presented to the Re-
apportionment Committee were to be made available to
the public for its input. These public meetings were held
in accordance with the schedule outlined in the appendix
to the motion to dissolve filed by Evans (Tab #14).
Among those plans considered by the Reapportionment
Committee, and one that apparently was to be presented
to the Legislature, was the Larry Dixon Plan.
The Reapportionment Committee conducting the hear-
ings was made up both African-Americans and Whites.
Public input to the Reapportionment Committee in regard
to the respective plans was from both African-Americans
and Whites.
21. Neither The Pierce Plan nor the Larry Dixon Plan
was adopted by the Alabama Legislature.
22. We take judicial notice of the fact that the Legisla-
ture has since adopted a plan which substantially differs’
from any plan that was submitted to this court. We also
note the fact that the adopted Pian has neither been pre-
cleared by the Justice Department nor approved by the
District Court for the District of Columbia.
23. Only two of the plans submitted—the Pierce Plan
and the Reed Plan—achieve population equality among
the districts. Under the Pierce Plan two districts contain
one person less than the ideal district population of
577,227. Under the Reed Plan, one district has two fewer
voters than the ideal. The Hilliard Plan has a total devia-
tion of .71% and an average deviation of .683%. The
Modified Unity Plan shows a deviation of 1.6% with an
average of .52%. The Unity Plan exhibits a total devia-
tion of 1.15% and an average of .27%. Finally, the CD25
Plan has a deviation of .02°. Deviations in all these
plans are not justified by any particular goal or interest.
143a
24. Both the Pierce and Reed Plans contain a district
with more than 65% African-American population. Under
the Pierce Plan, District 7 contains an African-American
nopulation comprising 67.69% of the total residents of
that District and 63.58% of that District’s voting age
residents. These percentages slightly exceed those in the
majority African-American district (District 4) created
by the Reed Plan: 66.69% total population and 62.93%
voting age population. (Plaintiff’s Exhibits 2 and 3; TR
15-16.) More significantly, as of December 1990, the
African-American percentage of registered voters in the
Pierce Plan’s District 7 was 55.55%, which is 3°. greater
than the African-American percentage of registered voters
in the Reed Plan’s District 4.
25. Both the Reed Plan and the Pierce Plan provide
African-Americans in Alabama with a substantial ma-
jority so as to permit them an opportunity to elect a can-
didate of their choice. The district in the Pierce Plan
is slightly more weighted because it includes higher per-
centages of African-Americans in total population, voting
age population and registered voter population.
26. The Hilliard Plan includes two majority African-
American districts, with an African-American population
of 59.33% and 61.98%respectively. Although this plan
was submitted by the intervenors, they took the position
that the Hilliard Plan probably provided obstacles of suffi-
cient nature to cast doubt on their opportunity to elect
candidates of their choice in these districts.
27. There are significant differences between the Pierce
Plan and the Reed Plan in terms of compactness of their
districts. District 1 of the Pierce Plan includes six closely
contiguous counties in southwest Alabama, whereas Dis-
trict 1 under the Reed Plan includes Mobile County to the
south and Tuscaloosa County to the north. District 2
under the Pierce Plan is largely composed of counties in
the southeast corner of the state, while the Reed Plan’s
144a
District 2 stretches from Mobile County, in the extreme
southwest corner of the State, to Lee County, in east
central Alabama. The Pierce Plan is superior to the Reed
Plan in terms of compactness.?
28. The Pierce Plan maintains the integrity of individ-
ual voting precincts to a far greater degree than does the
Reed Plan. The Pierce Plan splits only 10 voting pre-
cincts statewide, whereas the Reed Plan splits at least
57. (Plaintiff’s Exhibits 2 and 3.) A redistricting plan
should minimize precinct splitting when possible because of
administrative problems encountered in the conduct of
elections when precincts are split.
Furthermore, it is possible to construct a majority
African-American district in Alabama using precincts as
building blocks.
29. The Pierce Plan splits seven counties. The Reed
Plan splits eight counties. The Hilliard Plan splits thirty-
one counties.
30. The Pierce Plan also maintains the cores of exist-
ing districts to a much greater extent than the Reed
Plan. Again, the most striking differences between the
plans in this regard are apparent in Districts 1 and 2.
There are also significant differences in District 3. The
following table reflects the percentage of residents of ex-
isting Districts 1, 2, and 3 who remain in those districts
under the Pierce and Reed Plans:
2 The Reock Test indicates that the Reed Plan contains a district
which is the least compact of any of the 35 districts analyzed
by the Reapportionment Office. The Reed Plan’s District 1 has a
Reock Test measurement with less than 0.2 and by comparison, the
average of the Pierce districts under the Reock Test is 0.41.
The Reock Test is a relatively simple method of measuring the
relationship between the area of the district and the area of the
smallest possible circumscribing circle. The resulting measure is a
number between 1 to 0, with numbers closer to one being more com-
pact. See Karcher v. Dagget, 462 U.S. 725, 756-57 (1983).
145a
District Pierce Reed
1 97.2 64.3
2 86.7 57.0
3 85.2 75.0
31. As a consequence of its apparent disregard for
maintaining the cores of existing Districts 1 and 2, the
Reed Plan would also separate the incumbent congress-
men in those districts from a large percentage of their
current constituents. Under the Reed Plan, Congressman
Callahan, the incumbent in the present District 1, would
be placed in District 2. (Plaintiff’s Exhibit 20.) Dis-
trict 2 under the Reed Plan contains only 25.6% of Con-
gressman Callahan’s existing constituents. Likewise, the
Reed Plan would place Congressman Dickinson, the pres-
ent incumbent in District 2, in District 3 against Dis-
trict 3’s incumbent, Congressman Browder. (Plaintiff’s
Exhibit 20.) 75.0% of the current residents of District
3—Congressman Browder’s present constituents—are in-
cluded in the Reed Plan’s District 3. However, only
19.0% of Congressman Dickinson’s present constituents
are included in that District.
32. Another consequence of the Reed Plan’s distortion
of Districts 1 and 2 is that the Pierce Plan better pre-
serves the communities of interests in those two districts.
CONCLUSIONS OF LAW
33. The court has jurisdiction pursuant to the au-
thority contained in 28 U.S.C. §§ 1831, 13843, 2284 and 42
U.S.C. § 1971 et seq.
34. Congressional redistricting is primarily and fore-
most a state legislative responsibility. It is therefore with
great reluctance that we order an interim plan to be-
come effective for the upcoming 1992 elections. It is out
of deference to the Legislature that we have delayed our
ruling until this time. In fact, we have afforded it every
146a
opportunity to fashion its own plan in order that it could
fulfill its responsibility under the Constitution.*
35. Unfortunately, the Legislature has not yet pre-
cleared its adopted plan so that it can be in place for the
impending elections, and we are bound by the Constitu-
tion not to permit these elections under the present dis-
tricts.*
36. First and foremost, any court ordered redistricting
plan must achieve precise population equality among its
districts. Wesberry v. Sanders, 376 U.S. 1 (1964) ; Kirk-
patrick v. Preisler, 394 U.S. 526 (1969). This is to en-
sure that “as nearly as is practicable one man’s vote in
a congressional election will be worth as much as
3 It was argued that the Legislature was unable to fulfill its obli-
gation to redistrict because the census information it received in
February 1991 might be subject to correction. This argument fails
because the Supreme Court has previously indicated that the fact
that the latest correction of the census is not available at the time
the problem is addressed is of no moment to that effort. Karcher
v. Dagget, 462 U.S. 725, 729 (1983).
*The Alabama law establishes the qualifying date for upcoming
primary elections at April 3, 1992, and as noted supra, the ability
of the Legislature to preclear its newly adopted plan appears illu-
sory. Those who may desire to seek congressional office, and who
must qualify by April 3, 1992, are left in a quandary as to what
will be their district, when they are to qualify, when will the
primaries actually be conducted, and, potentially, whether an election
will be held at all. In addition to candidates being left in such a
quandary, certain requirements of the law impact on the election
officials, including the Probate Judges and others, who must conduct
these elections. Lastly, the voters are impacted by the effect of
potential delays as it affects the quality of their representation
in the national legislature. For these reasons, this court finds that
there is an emergency that requires judicial attention under the
law in order to provide adequate relief for all affected, including
the plaintiff. Since this is so, it becomes necessary for the court to
consider an appropriate plan in light of the judiciai standards im-
posed in drafting such plans as against those that might be consid-
ered by a legislature. Chapman v. Meier, 420 U.S. 1 (1975); Connor
v. Finch, 431 U.S. 407 (1977).
147a
2. ath asa lel
another's.” Wesberry, 376 U.S. at 7-8. Put another way,
Art. I, §2 prohibits any population deviations among
districts in a congressional redistricting plan without
proper justification. Kirkpatrick, 394 U.S. at 531.
37. Among the plans submitted, only two meet this
rigorous standard "—the Pierce Plan and the Reed Plan.
All the other plans which were submitted have unac-
ceptable deviations, Further, none of the proponents of
these plans provide an adequate justification for the de-
viation and we have “no authority to depart from the
constitutional mandate of perfect equality in order to
achieve some non-constitutional policy” that we believe
will serve the public good.* Connor, 431 U.S. at 417.
38. If it is possible under constitutional restrictions,
a court should consider expressed state policies and pref-
erences. The Reapportionment Committee estabiished
5 Precise population equality is a demanding standard requiring
the states to “justify each variance no matter how small.” Karcher,
462 U.S. at 730 (quoting Kirkpatrick, 394 U.S. at 530-31 (citations
omitted)). See Hastert v. State Bd. of Elections, 777 F. Supp. 634
(N.D. Ill. 1991) (rejecting a plan with a .00297% population devia-
tion because the plan’s proponent could not justify its equality
inferiority in comparison with another submitted plan with a
.00017% deviation).
The advancement of information processing technologies in the
last decade since Karcher have raised the deviation standard to an
“absolute population equality,” giving greater authority to the
Court’s 1983 statement that “rapid“advances in computer technology
and education during the last two decades make it relatively simply
to draw contiguous districts of equal population and at the same
time to further whatever secondary goals the state has.” Karcher,
462 U.S. at 732.
®Some of these parties argue that the population deviations in
their plans can be zeroed out easily. This may be so, but we remind
the parties that this type of computation is not this court’s responsi-
bility. If a party wishes to propose a plan for adoption by a court,
then it is incumbent upon that party to fashion a plan that comports
with the law.
148a
guidelines by which to measure a proposed apportionment
plan. These guidelines reflect constitutional considera-
tions established by case and statutory law. Any redis-
tricting plan should take into consideration: compact-
ness/contiguity; preservation of political subdivisions;
maintenance of communities of interest; and preserva-
tion of the core areas of existing districts.
39. Compactness addresses the geographic shape of dis-
tricts. The most compact district is the district that is
configured in the smallest possible area. See Karcher, 462
U.S. at 756-57. Preservation of political subdivisions
promotes efficient representation, empowers a constit-
uency’s ability to organize productively, and serves as a
deterrent to partisa. gerrymandering. Burton v. Hobbie,
561 F. Supp. 1029, 1035 (M.D. Ala. 1983); Ely v. Klahr,
403 U.S. 108 (1971). Protecting communities of interest
is meant to keep intact “distinctive units which share
common concerns with respect to one or more identifiable
features such as geography, demugraphy, ethnicity, cul-
ture, socio-economic status or trade.” Carstens v. Lamm,
543 F. Supp. 68 (D.C. Colo. 1982). Preserving cores of
existing congressional districts prevents needless modifi-
cations and avoids pitting two incumbent congressmen
against one another. Karcher, 462 U.S. at 740. Based
on the findings made above, we conclude that the Pierce
Plan better satisfies the above criteria than does the Reed
Plan, or any of the other plans.
40. With regard to the majority African-American
district, the parties entered into the following stipulation:
According to 1990 data compiled and released by
the United States Bureau of the Census, the African
American population in the State of Alabama is suffi-
ciently compact and contiguous to comprise a single
member significant majority (65% or more) Afri-
can American Congressional district. Consequently,
all parties agree that a significant majority African
American Congressional district should be created.
149a
(Supplemental Stipulation dated January 3, 1992.) This
stipulation avoided the necessity of the court considering
prolonged testimony regarding whether § 2 of the Voting
Rights Act requires the creation of such a district under
the circumstances present in this case. This court will
honor the stipulation, and accordingly, will not make an
independent determination of whether § 2 of the Voting
Rights Act requires the creation of a majority African-
American congressional district in Alabama at this time.
The court has found that the Pierce Plan creates a ma-
jority African-American district that provides African-
Americans a reasonable opportunity to elect a candidate
of their choice, and does so without the need for exten-
sive gerrymandering. The court deems it inappropriate
to make a judicial determination relative to what § 2
requires under the circumstances present in this case in
light of the stipulation; the parties do not contest the
matter and therefore it would be imprudent for the court
to address it. This case does not require this court to
decide whether the creation of a majority African-Ameri-
ean district is mandated by either § 2 or the Constitution
and as a matter of judicial restraint we do not under-
take to do so.
41. Therefore, having followed the mandate in Karcher,
while keeping in mind the desirability of preserving com-
pactness, cores of all districts, communities of interest,
and political subdivisions, we adopt the Pierce Plan ex-
cept to the extent mentioned below.’
First, we have discovered no justifiable basis for the
fact that the Pierce Plan places Congressman Erdreich
and Congressman Harris in the same district. The Su-
7 When no plan submitted to a court fully comports with objec-
tives and criteria that should be incorporated in a judicially approved
plan, a court should fashion its own plan to satisfy relevant legal
criteria and incorporate the most desirable aspects of the plans pre-
sented to the court. Carstens v. Lamm, 543 F. Supp. 68 (D.C. Colo.
1982).
150a
preme Court has recognized the policy of “avoiding con-
tests between incumbent representatives” as a legitimate
objective. Karcher, 462 U.S. at 740. See also Burton v.
Hobbie, 561 F. Supp. at 1035. Accordingly, we have mod-
ified the Pierce Plan so that the two congressmen will
not be in the same district. Second, in working to achieve
zero population deviation and redesign Districts 6 and 7,
the affected districts were made marginally more compact
in Jefferson and Tuscaloosa counties.
42. The court adopts a redistricting plan to be used
in the conduct of congressional elections for the State of
Alabama (tobe called “The 1992 Alabama Redistrict-
ing Plan”) in the event the Alabama Legislaure fails to
have precleared a redistricting plan in time for the con-
duct of those elections without delay under applicable
state and federal laws. The plan is verbally described in
Appendix A to Professor Stanley’s report dated January
22, 1992. (See Order, Doc. #97). Appendix B to that
report is a map depicting the plan. The map is appended
simply to illustrate the plan, and Appendix A shall con-
trol in the event of any conflict between it and Appendix
B. Appendix C to that report includes certain statistical
data which the court finds to be accurate; none of the
parties having posed objections to that data in response
to this court’s order.
43. A motion pending seeks a stay of any order by
this court adopting a plan pending preclearance. We have
reserved ruling on the motion until now. We conclude
that there is no requirement that the plan which we now
adopt be precleared before it becomes operative.®
® Section 5 of the Voting Rights Act, as amended, 42 U.S.C.
§ 1973c, requires a governmental bedy to obtain preclearance of a
proposed plan either by securing a declaratory judgment from the
United States District Court for the District of Columbia or by
submitting the change to the Attorney General of the United States.
As long as the Attorney General has not interposed an objection
within sixty days after such submission, the state may enforce the
change.
eee
15la
44, First, the plan that we now adopt is a “court de-
creed” plan. Conner v. Johnson, 402 U.S. 690 (1971).
It is clear that a plan must be precleared only if it is a
“legislative plan.” McDaniel v. Sanchez, 452 U.S. 180,
137 (1981). “{T]he essential characteristic of a legisla-
tive plan is the exercise of legislative judgment .. .
{that is], a proposal reflecting the policy choices of the
elected representatives of the people... .” Jd. at 152-
53. See also 28 C.F.R. § 51.18 (1991) (stating that, in
general, “changes affecting voting that are ordered by a
federal court are subject to the preclearance requirements
of section 5 to the extent that they reflect the policy
choices of the submitting authority.”).
The plan which this court adopts today is substantially
the same as the plan offered by Plaintiff Wesch. Neither
he, nor the party he is affiliated with, can claim to be
exercising legislative judgment. We are certain that the
Pierce Plan does not reflect the policy choices of the
elected representative of the people. Cf. McDaniel v.
Sanchez, 452 U.S. 1380 (1981) (holding that a reappor-
tionment plan submitted to a court by the legislative body
of a covered jurisdiction was a legislative plan) ; Campos
v. City of Baytown, Texas, 840 F.2d 1240 (5th Cir. 1988)
(holding that plan proposed by the city was a legislative
plan), cert. denied, 492 U.S. 905 (1989); Farnum v.
Burns, 561 F. Supp. 83, 92 (D. R.I. 1983) (holding
that plan drafted by a legislative consultant under the
direction of the legislative body reflected the policy
choices of the elected representative and was therefore
a legislative plan).
- 45. Alternatively, it appears that the Legislature will
not have a plan precleared in time to be in place for the
April 3, 1992 qualifying deadline. For that reason, the
situation calls for emergency action by this court. The
Supreme Court acknowledged this exception to preclear-
ance in Upham v. Seamon, 456 U.S. 37, 44 (1982):
It is true that we have authorized District Courts
to order or to permit elections to be held pursuant
152a
to apportionment plans that do not in all respects
measure up to the legal requirements, even constitu-
tional requirements. Necessity has been the moti-
vating factor in these situations. (citations omitted).
The Court later reaffirmed this exception in McDaniel v.
Sanchez, 452 U.S, 130, 153 n.35 (1981), noting the ample
power of the district courts to fashion interim plans.
See also Burton v. Hobbie, 561 F. Supp. at 1036 (recog-
nizing the authority of a court to implement an interim
plan so that an election can be held); 28 C.F.R. § 51.18
(c) (1991) (acknowledging a federal court’s authority
to approve a plan without preclearance: “A federal
court’s authorization of the emergency interim use with-
out preclearance of a voting change does not exempt
from section 5 review any use of the practice not ex-
plicitly authorized by the court.”’).
For the foregoing reasons, the Motion is Denied.
46. We find that, at a minimum, district lines should
become fixed one week prior to the April 3, 1992. quali-
fying date for candidates to allow both candidates and
election officials the necessary time to evaluate them and
choose their future conduct accordingly.
CONCLUSION
Congressional redistricting is a state legislature’s fun-
damental task, but it becomes a judicial duty when a
legislature fails to adopt and preclear a plan after hav-
ing adequate opportunity to do so.
At the time this opinion is released, it is reported,
although evidence of such is not before the court, that the
Alabama legislature has passed a redistricting plan. It
is also reported that the plan has not received preclear-
ance by the Attorney General of the United States under
§ 5 of the Voting Rights Act of 1965.
Since this court recognizes that congressional redistrict-
ing is properly a matter to be determined by the legisla-
158a
ture and that the federal courts should intervene only if
the legislature fails to act in a constitutional manner, the
question arises: Why should the court not consider the
legislature’s belatedly adopted plan and, if it is found
by the ceurt to comply with constitutional and legal re-
quirements, adopt this expression of the legislative will
as the court’s plan and order it into effect immediately?
The answer is that this court has no legal authority to
do so.
Section 5 of the Voting Rights Act requires a legisla-
tive plan to be submitted to the Attorney General for
approval before it can be put into effect. The Attorney
General has a period of 60 days to study the plan and
express any objections he might have to it or to any of
its provisions.
The Supreme Court has made clear that this require-
ment of the Voting Rights Act cannot be put aside by
having a legislative plan approved by a federal district
court (other than the U.S. District Court for the District
of Columbia). McDaniel v. Sanchez, 452 U.S. at 130;
United States v. Board of Supervisors, 429 U.S. 642
(1977).
Thus, if we adopted the reported legislative plan, it
would still be subject to the preclearance requirement,
which might well require postponement of the primaries.
This we are unwilling to do.
It should be clearly understood that this court does not
wish to compete with the state legislature as to where
congressional district lines should be drawn. It is, how-
ever, our responsibility to ensure that the voters of this
state have the opportunity to choose their members of
Congress from constitutionally drawn districts when elec-
tions are held at the time set by state law.
If the plan reportedly adopted by the legislature should
be precleared by some expedited method no later than
12:00 noon, Central Time, March 27, 1992, one week be-
fore the statutory deadline for candidates to qualify to
run, as set out herein, then that plan will take effect and
154a
those will be the congressional districts for the 1992 elec-
tion. Otherwise, the legislature will have defaulted in its
obligation to the people of the state and the plan de-
scribed herein will take effect.
The plan adopted by this court shall become operative
and controlling for the 1992 congressional elections. Ad-
ditionally, it shall govern the conduct of congressional
elections after 1992 unless and until the Legislature for
the State of Alabama adopts a plan and has it precleared
in time for such elections to proceed without delay under
applicable law.
The court will by separate document enter judgment
consistent with this opinion.
;
i
'
'
'
|
;
DB: Alabama
155a
APPENDIX A
1990 Total Population
State of Alabama Congressional Districts
District Statistics
Total Populations, All Ages
~Plan: Cong. Districts
Plan type: Congressional Districts
District Number Total Ideal District
Name Members Population Population Variance
District 1 1 593,911 577,227 16,684
District 2 1 569,423 577,227 —7,804
District 3 1 565,135 577,227 — 12,092
District 4 1 573,868 577,227 — 3,359
District 5 1 603,726 577,227 26,499
District 6 1 532,748 577,227 —44,479
District 7 1 601,776 577,227 24,549
PLANWIDE STATISTICS:
Range of populations: 532,748 to 603,726
Ratio range: 1.1332
Absolute range:
Absolute overall range:
Relative range:
Relative overall range:
Absolute mean deviation:
Relative mean deviation:
Standard deviation:
— 44,479 to 26,499
70,978
—7.71 to 4.59%
12.30%
19352.29
3.35%
23237.8677
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