No. 98-1987
In the Supreme Court of the United States
ROBERT VALDESPINO, ET AL., PETITIONERS
v.
ALAMO HEIGHTS INDEPENDENT SCHOOL DISTRICT,
ET AL.
ON PETITION FOR A WRIT OF CERTIORARI
TO THE UNITED STATES COURT OF APPEALS
FOR THE FIFTH CIRCUIT
BRIEF FOR THE UNITED STATES
AS AMICUS CURIAE
SETH P. WAXMAN
Solicitor General
Counsel of Record
BILL LANN LEE
Acting Assistant Attorney
General
BARBARA D. UNDERWOOD
Deputy Solicitor General
PAUL R.Q. WOLFSON
Assistant to the Solicitor General
MARK L. GROSS
JENNIFER LEVIN
Attorneys
Department of Justice
Washington, D.C. 20530-0001
(202) 514-2217
QUESTION PRESENTED
Whether a racial or language minority plaintiff challenging an at-large
voting system under Section 2 of the Voting Rights Act of 1965, 42 U.S.C.
1973, may not make out a claim of vote dilution unless the plaintiff can
show that the minority could constitute a majority in a single-member district.
In the Supreme Court of the United States
No. 98-1747
ROBERT VALDESPINO, ET AL., PETITIONERS
v.
ALAMO HEIGHTS INDEPENDENT SCHOOL DISTRICT,
ET AL.
ON PETITION FOR A WRIT OF CERTIORARI
TO THE UNITED STATES COURT OF APPEALS
FOR THE FIFTH CIRCUIT
BRIEF FOR THE UNITED STATES
AS AMICUS CURIAE
INTEREST OF THE UNITED STATES
This brief is submitted in response to the Court's order inviting the Solicitor
General to express the views of the United States.
STATEMENT
1. This case is a challenge under Section 2 of the Voting Rights Act of
1965, 42 U.S.C. 1973, to the system used to elect the Board of Trustees
of the Alamo Heights (Texas) Independent School District (AHISD). The seven
members of the Board of Trustees of AHISD are all elected from the entire
school district at-large, by place, by majority vote, and for staggered
terms; single-shot voting is not permitted. AHISD uses only one polling
place for all elections. See Pet. 2.
Petitioners, Hispanic residents and citizens eligible to vote in AHISD elections,
alleged that AHISD's election system dilutes the voting strength of Hispanics
in violation of Section 2. At trial, petitioners presented several versions
of a "demonstration district" (District 1), designed to show that
a single-member district could be drawn in AHISD that would permit Hispanics
to elect representatives of their choice, in compliance with Section 2.
According to demographic information drawn from the 1990 decennial census,
Hispanics would constitute a majority of the voting age population (VAP)
and a majority of the citizen voting age population (CVAP) in each of the
demonstration districts presented by petitioners. Pet. App. 24a.
Petitioners also submitted evidence to the effect that Hispanic voters in
a comparison single-member district, District 3 of the North East Independent
School District (NEISD), had successfully elected a representative of their
choice. District 3 of NEISD borders directly on petitioners' proposed District
1, see 9/18/97 Tr. 639-640, and according to evidence at trial, the Hispanic
population of NEISD District 3 and petitioners' proposed District 1 actually
constitutes one Hispanic community, albeit split between the two school
districts, see 9/16/97 Tr. 403; 9/18/97 Tr. 448. Elections in NEISD were
originally held at-large, but after a Section 2 suit was brought by minority
residents, NEISD was divided into single-member districts. See Pet. Exh.
59. Hispanics make up only 47% of the CVAP of NEISD District 3, but a Hispanic
representative has been elected from that district. 9/18/97 Tr. 636, 639-640.
Respondents maintained at trial that, because of demographic changes since
the 1990 census, the census data did not accurately reflect the makeup of
the population of AHISD as of 1997, and that the district court should rely
instead on a report prepared by respondents' expert demographer, Bill Rives.
The Rives report concluded that, since the 1990 census, the total population
of AHISD had increased, but that both the total population and the Hispanic
CVAP in petitioners' demonstration districts had decreased. See Pet. App.
25a. The Rives report further indicated that, in light of those demographic
changes, petitioners' demonstration districts either deviated from the ideal
population of a single-member district in AHISD by more than 10%, or no
longer contained a Hispanic majority CVAP. See id. at 26a. For those conclusions,
Rives relied on the fact that an apartment complex heavily tenanted by Hispanics
at the time of the 1990 census had been closed, renovated, and replaced
by a different complex with a lower occupancy rate and a smaller percentage
of Hispanic tenants. See id. at 5a, 31a. Rives also relied on 1990 census
data (which he assumed to be still accurate) showing that 89% of the voting-age
Hispanics in the demonstration district are citizens eligible to vote. See
Pet. Exh. 63, at 8-9 & Exh. 3; Pet. App. 24a.
The district court ruled that respondents had established that 1990 census
data do not accurately reflect current demographics within AHISD, Pet. App.
25a, and that the Rives report "is thoroughly documented, has a high
degree of accuracy, and is clear, cogent, and convincing," id. at 27a-28a.
The district court also found that the Rives report's "numbers reflect
the demographic reality of Alamo Heights." Id. at 26a. The district
court therefore decided to use the "adjustments made by the [Rives]
Report to the 1990 Census figures." Id. at 28a.
Based on the Rives report, the district court held that petitioners had
failed as a matter of law to establish a violation of Section 2. The court
noted (Pet. App. 20a-21a) that, in Thornburg v. Gingles, 478 U.S. 30, 47-48
(1986), this Court stated that plaintiffs in a Section 2 vote-dilution case
must make three showings, including, "[f]irst that the group is sufficiently
large and geographically compact to constitute a majority in a single-member
district." With regard to that "first Gingles factor," the
district court also stated that "it is the burden of the [petitioners]
to establish that it is possible to create a districting plan such that
at least one district has a majority of minority voting age citizens."
Pet. App. 21a. But according to the Rives report, two of the demonstration
districts proposed by petitioners "contain[] insufficient population"
to meet the constitutional requirement of equal apportionment, and the other
demonstration district "does not contain a majority of Hispanics among
[the] citizen-age [sic] voting population." Id. at 28a. Therefore,
the court held, petitioners "have not established by a preponderance
of the evidence that they can draw a district that satisfies the first requirement
of Gingles," and "their claim under Section 2 of the Voting Rights
Act must fail." Ibid.
2. The court of appeals affirmed. Pet. App. 1a-18a. The court stressed that
it "has interpreted the Gingles factors as a bright line test"
and that "failure to establish any one of these threshold requirements
is fatal" to a Section 2 claim. Id. at 8a. In addition, with respect
to the first Gingles factor, the court stated (id. at 9a) that it "has
required vote dilution claimants to prove that their minority group exceeds
50% of the relevant population in the demonstration district," and
observed that, in Gingles, this Court referred to a requirement that Section
2 plaintiffs demonstrate "a majority" (ibid.). The court accordingly
rejected petitioners' argument that, to establish that a particular election
system deprives minority voters of the opportunity to elect representatives
of their choice, minority voters should be able to show that they would
be able to elect such representatives in a single-member district under
a different system, even if they would not actually constitute a majority
of the CVAP in that district: "[Petitioners] still must meet their
burden of proving that Hispanics constitute more than 50% of the relevant
population in their demonstration district." Ibid. The court also made
clear that "the relevant population" consists of the citizens
of voting age in the demonstration district (id. at 9a-10a). Thus, according
to the court of appeals, as an absolute precondition to making out a Section
2 violation, minority plaintiffs must show that they would constitute a
majority of the CVAP in a single-member district.
The court of appeals also upheld the district court's decision to rely on
demographic information in the Rives report rather than the 1990 census.
Pet. App. 10a-12a. The court rejected petitioners' contentions that the
Rives report was flawed and based on incorrect assumptions, stating that
petitioners' "challenges are generally misdirected" (id. at 11a).
The court ruled that, whatever the report's possible errors, its conclusion
that petitioners could not identify a majority-minority district of Hispanic
voting age citizens remained valid (ibid.).
DISCUSSION
The court of appeals ruled in this case that, as an absolute precondition
to establishing a violation of Section 2 of the Voting Rights Act, a minority
plaintiff making a vote dilution challenge to an at-large election system
must show that the minority could constitute a majority of the citizen voting
age population in a single-member district. The court of appeals concluded
that that threshold showing is required by this Court's decision in Thornburg
v. Gingles, 478 U.S. 30 (1986). In our view, Section 2 and Gingles do not
impose an absolute requirement that a minority be shown to constitute a
majority in a single-member district. Rather, because a Section 2 plaintiff
must show that the challenged system impairs the minority community's ability
to elect representatives of its choice, such a plaintiff may rely on evidence
showing that, under a different election system, the minority community
would be able to elect representatives of its choice, even if it would not
constitute an absolute majority of the population (by any particular measure)
in a single-member district.1 The court of appeals' contrary decision is
therefore incorrect. Further, because that decision raises issues of recurring
significance in the administration and enforcement of Section 2--issues
that will be of particular importance in the next round of redistricting
following the upcoming decennial census--this Court should grant review
to determine whether Section 2 imposes the absolute 50% rule applied by
the lower courts in this case.
Depending on how the Court answers that question, it may be necessary for
the Court to consider as well another aspect of the court of appeals' decision-
namely, that to satisfy the first threshold requirement of Gingles, a vote
dilution plaintiff must show that the minority would constitute the majority
of the citizen voting age population (CVAP), rather than the voting age
population (VAP), of a single-member district. If the Court agrees with
our submission that a vote dilution claim does not require that the minority
constitute an absolute numerical majority of a single-member district, then
the difference between CVAP and VAP may have no significance in this particular
case. But if the Court concludes that an absolute numerical majority is
required, then it may be necessary to decide whether that majority must
be determined by reference to the single-member district's CVAP, or whether
there are circumstances in which the parties' evidence of the CVAP of a
proposed demonstration district, even if drawn from census data, may not
accurately reflect a minority's potential to elect a representative of its
choice from that district. One such possible concern may arise in this case
from the district court's reliance on changes in the actual population of
petitioners' demonstration district after the 1990 census while also using
unadjusted data about the citizenship ratio of Hispanics from the 1990 census.
1. Section 2(a) of the Voting Rights Act of 1965, 42 U.S.C. 1973(a), provides
that no voting practice may be enforced "in a manner which results
in a denial or abridgement of the right of any citizen of the United States
to vote on account of race or color" or membership in a language minority
group. Under Section 2(b) of the Act, a violation is established "if,
based on the totality of circumstances, it is shown that the political processes
leading to the nomination or election in the State or political subdivision
are not equally open to participation by members of a [protected minority]
class of citizens * * * in that its members have less opportunity than other
members of the electorate to participate in the political process and to
elect representatives of their choice." 42 U.S.C. 1973(b).
The text of Section 2 does not itself require that a member of a minority
group claiming a violation such as vote dilution establish that the minority
could constitute a majority in a single-member district. In Gingles and
later cases, however, this Court established a framework for determining
whether a challenged electoral practice (there, multimember districts) results
in vote dilution in violation of Section 2. Stressing that "[m]inority
voters who contend that the multimember form of districting violates §
2 must prove that the use of a multimember electoral structure operates
to minimize or cancel out their ability to elect their preferred candidates,"
478 U.S. at 48, the Court in Gingles identified three "necessary preconditions"
(id. at 50) for a showing that multimember districts operate in such a way:
First, the minority group must be able to demonstrate that it is sufficiently
large and geographically compact to constitute a majority in a single-member
district. If it is not, as would be the case in a substantially integrated
district, the multimember form of the district cannot be responsible for
minority voters' inability to elect its candidates. Second, the minority
group must be able to show that it is politically cohesive. If the minority
group is not politically cohesive, it cannot be said that the selection
of a multimember electoral structure thwarts distinctive minority group
interests. Third, the minority must be able to demonstrate that the white
majority votes sufficiently as a bloc to enable it--in the absence of special
circumstances, such as the minority candidate running unopposed--usually
to defeat the minority's preferred candidate. In establishing this last
circumstance, the minority group demonstrates that submergence in a white
multimember district impedes its ability to elect its chosen representatives.
Id. at 50-51 (citations, footnotes, and emphasis omitted). If those preconditions
are met, the court must then determine whether, under the "totality
of circumstances," the minority group has been denied an equal opportunity
to participate in the political processes and to elect candidates of their
choice. See Johnson v. De Grandy, 512 U.S. 997, 1011-1012 (1994).
Although the Court in Gingles stated that vote dilution plaintiffs must
show that the minority would constitute "a majority in a single-member
district," 478 U.S. at 50, that statement must be understood in its
context, namely, as explaining how vote dilution plaintiffs could claim
to be injured by a multimember districting system. As the Court explained,
"[t]he reason that a minority group making such a challenge must show,
as a threshold matter, that it is sufficiently large and geographically
compact to constitute a majority in a single-member district is this: Unless
minority voters possess the potential to elect representatives in the absence
of the challenged structure or practice, they cannot claim to have been
injured by that structure or practice." Id. at 50 n.17. Thus, the Court's
focus in Gingles was on the minority group's potential to elect representatives
of its choice in the context of racially polarized and bloc voting. Where
a white majority usually votes to defeat the preferred representative of
the minority community, a majority-minority district would give the minority
at least the potential to elect the representative of its choice.
The Court did not state in Gingles, however, that minority voters could
have the potential to elect representatives of their choice only when they
constitute the majority of an election district. This Court has not decided
whether or how the Gingles analysis, or some variation on that framework,
should be applied in cases in which the minority population would constitute
slightly less than 50% of a single-member district, but minority voters
nonetheless would have the potential to elect representatives of their choice
with the assistance of limited crossover voting from the majority or other
racial or language minorities, and minority plaintiffs can prove that that
potential to elect is diluted by an election system. In fact, the Court
has noted on several occasions that it has reserved that question. See Gingles,
478 U.S. at 46 n.12; id. at 89 n.1 (O'Connor, J., concurring in the judgment);
see also De Grandy, 512 U.S. at 1008-1009; Voinovich v. Quilter, 507 U.S.
146, 154 (1993); Growe v. Emison, 507 U.S. 25, 41 n.5 (1993).2
In our view, the flat 50% rule applied by the court of appeals is inappropriate,
for a variety of circumstances may give a minority voting population that
is compact, politically cohesive, and substantial in size yet just short
of a majority the potential to elect a representative of its choice. Most
importantly, even if voting in a particular jurisdiction is generally polarized
by race, nonetheless there may be a small amount of consistent crossover
voting from the majority (or from a different racial or language minority
in the district) that would give the minority voters the potential to elect
their representative of choice. Indeed, a rule invariably requiring that
minority voters be able to make up the majority in a single-member district
could only be justified on the assumption that a Section 2 claim also requires
that voting be totally polarized by race, i.e., that no white voter will
ever vote for the candidate preferred by the minority. But in our experience,
that is almost never the case; although racially polarized voting does in
some places reach extreme degrees, it is rarely if ever total. And indeed,
in Gingles, the Court observed that, "in general, a white bloc vote
that normally will defeat the combined strength of minority support plus
white 'crossover' votes rises to the level of legally significant white
bloc voting." 478 U.S. at 56 (emphasis added).3
The 50% rule applied by the court of appeals is also difficult to square
with this Court's admonition that the Gingles factors "cannot be applied
mechanically and without regard to the nature of the claim." De Grandy,
512 U.S. at 1007; Voinovich, 507 U.S. at 158; see also Gingles, 478 U.S.
at 45 (Section 2 requires a "searching practical evaluation of the
past and present reality" based on "a functional view of the political
process") (internal quotation marks omitted); White v. Regester, 412
U.S. 755, 769-770 (1973) ("blend of history and an intensely local
appraisal of the design and impact of [an electoral system] in the light
of past and present reality, political and otherwise"). The other Gingles
preconditions to establishing a vote dilution claim-the requirements that
a minority population be compact, that the minority be politically cohesive,
and that the white majority usually vote as a bloc to defeat the minority's
candidate (see 478 U.S. at 50-51)-do not lend themselves to strict numerical
cutoffs but rather require the application of judgment to the facts of each
case, informed by evidence about voting patterns in the jurisdiction at
issue.4 There is no reason why a similar approach cannot be followed with
respect to the requirement that a minority population be sufficiently substantial
in size to have the potential to elect a representative.
Accordingly, the lower courts should not have dismissed petitioners' Section
2 claim based on a finding that Hispanics could constitute only 48% of the
CVAP of petitioners' single-member district that satisfied the equal apportionment
requirement, but should have considered more generally whether Hispanics
in that proposed single-member district could have the potential to elect
a representative. In making that judgment, the court should have considered
petitioners' evidence that, in a similar neighboring district where Hispanics
make up slightly less than a majority of the CVAP of the district, Hispanic
voters had succeeded in electing their candidate of choice. Election results
from a closely similar neighboring jurisdiction or another existing jurisdiction
within the boundaries of the plaintiffs' proposed district are relevant
to determining whether minority voters in a proposed district could have
the potential to elect their candidates of choice.
The application of the 50% rule by the court of appeals, moreover, raises
a recurring issue of considerable importance to the administration of Section
2. The question whether Section 2 plaintiffs claiming vote dilution must
invariably show that the minority would constitute a majority of a single-member
district has been raised, and continues to be raised, in numerous cases
and should be definitively resolved by this Court.5 It is particularly important,
moreover, that the question be resolved before the round of redistricting
following the next decennial census, so that jurisdictions understand the
extent of their obligations under Section 2.
2. It may also be necessary to decide in this case whether the court of
appeals erred in ruling that petitioners' ability to draw a single-member
district from which a representative of the Hispanic community could be
elected must be evaluated only with respect to the CVAP of such a district.
That issue is of particular importance with respect to vote dilution claims
made by certain language minorities, such as Hispanics, in those circumstances
where there is reason to believe that there is a significant disparity between
the citizenship rates of the VAP of that minority and that of other ethnic
groups, including the majority, in the demonstration district. This Court
has not decided whether there is only one appropriate population to assess
all vote dilution claims, i.e., whether a court must assess dilution based
on the minority's proportion of the general population, VAP, CVAP, or some
other measure of population. See De Grandy, 512 U.S. at 1008-1009.6
That issue will be significant in this case if this Court rules, contrary
to our submission, that a vote dilution claim necessarily depends on a showing
that a racial or language minority could constitute an absolute numerical
majority in a single-member district. If this Court were to agree with the
court of appeals on that point, then the question would necessarily arise
as to how plaintiffs may show that the minority could constitute the "majority"--i.e.,
whether the minority must make up the majority of the total population,
VAP, or CVAP of such a district.7
As a general matter, we agree with one premise of the court of appeals'
decision, namely, that it is the right of citizens to vote that is pertinent
to the concept of vote dilution under Section 2. Section 2(a) prohibits
any practice that results in the denial or abridgment of "the right
of any citizen of the United States" to vote on account of race or
language-minority status. 42 U.S.C. 1973(a). Section 2(b) further provides
that a violation of Section 2(a) is established if the political process
is not equally open to participation "by members of a class of citizens"
constituting a racial or language minority. 42 U.S.C. 1973(b).
There are, however, some significant practical difficulties with a rule
that would require courts in all circumstances to rely on CVAP data from
the census to determine whether a minority group could elect a representative
of its choice from a single-member district. In the first place, as petitioners
have pointed out (Pet. 6), citizenship data from the decennial census necessary
to determine the CVAP of a demonstration district is generally not available
until after most postcensus redistricting is completed.8 Thus, a requirement
that vote dilution always be evaluated by reference to CVAP could make it
difficult, and perhaps impossible, for certain minority groups, including
Hispanics, to show that a newly adopted redistricting plan would result
in dilution of their vote until at least one election under the assertedly
dilutive, and therefore illegal, plan had taken place. In addition, as petitioners
have also pointed out (Pet. 7), CVAP census information is less refined
than VAP census information, because the CVAP is drawn from census block
group data whereas VAP is drawn from the more detailed census block data.
In some cases, therefore, CVAP census data may mask the possibility that
members of the minority group who are citizens are concentrated in one part
of the census block group. That information, if it were available, might
show that it would be possible to draw a demonstration district in which
the minority constituted a majority of the CVAP.
This case presents an additional concern about a rule requiring exclusive
reliance on CVAP to determine whether petitioners could draw a single-member
district as a remedy for a Section 2 violation. As noted above (pp. 2-3,
supra), the district court relied on changes in population in petitioners'
demostration district between 1990 and 1997, as reported by respondents'
expert demographer, to justify setting aside the census results. Respondents'
demographer and the district court assumed, however, that the 89% citizenship
figure for Hispanics in the demonstration district, drawn from the 1990
census, remained valid. See Pet. Exh. 63, at 8-9 & Exh. 3; Pet. App.
24a. Respondents and the district court therefore appear to have overlooked
the possibility that the citizenship rate of Hispanics of voting age in
that district might have increased since 1990. Thus, the figures for the
CVAP of petitioners' demonstration district may have been understated, and
in single-member districts as small as those involved in this case, even
a very small error in the citizenship rate might have improperly prevented
petitioners from establishing that Hispanics consituted the majority of
the CVAP of their demonstration district. This case may therefore present
a circumstance in which the CVAP data used by the district court did not
give the court a fully accurate understanding of whether it is possible
to draw a single-member district in which a minority could elect a representative
of its choice.
CONCLUSION
The petition for a writ of certiorari should be granted.
Respectfully submitted.
SETH P. WAXMAN
Solicitor General
Counsel of Record
BILL LANN LEE
Acting Assistant Attorney
General
BARBARA D. UNDERWOOD
Deputy Solicitor General
PAUL R.Q. WOLFSON
Assistant to the Solicitor General
MARK L. GROSS
JENNIFER LEVIN
Attorneys
DECEMBER 1999
1 The United States has taken that position in Section 2 litigation in the
lower courts. See U.S. Amicus Br. at 12-17, Campos v. City of Houston, 113
F.3d 544 (5th Cir. 1997); U.S. Br. at 52-56, Garza v. County of Los Angeles,
918 F.2d 763 (9th Cir. 1990), cert. denied, 498 U.S. 1028 (1991).
2 The Court has occasionally referred to such a claim as alleging a dilution
of the minority's potential to "influence" elections. See, e.g.,
Gingles, 478 U.S. at 47 n.12; see also De Grandy, 512 U.S. at 1009 ("influence
district"); Voinovich, 507 U.S. at 154 (same). Lower courts, however,
have not used that term with a consistent meaning, and the term is best
avoided in a case like this, where the claim is that, although racially
polarized bloc voting does exist, a minimal amount of crossover voting (or
other fact patterns such as a disproportionately large turnout by the minority)
would enable minority voters to elect representatives of their choice. That
fact pattern must be distinguished from one in which racial or language
minority voters would constitute substantially less than a majority in a
single-member district, but through coalition politics would have the opportunity
to influence the election of a representative, although not necessarily
elect the representatives of their own choice. See, e.g., Uno v. City of
Holyoke, 72 F.3d 973, 990-991 (1st Cir. 1995) (using "influence district"
to refer to district with approximately 28% minority voters who could affect
the selection of candidates, but not elect their candidate of choice).
3 At some point, of course, the amount of crossover voting may be sufficiently
substantial that it would not be possible to sustain a finding that voting
is racially polarized or that the majority votes as a bloc to defeat the
candidate preferred by minority voters. Lower courts reviewing Section 2
claims have generally concluded, however, that a small but consistent amount
of crossover voting does not defeat a finding of racially polarized or bloc
voting. See, e.g., Sanchez v. Colorado, 97 F.3d 1303, 1319 (10th Cir. 1996)
(observing that Gingles "doesn't require an absolute monolith in the
Anglo or Hispanic bloc vote and recognizes the existence and role of white
crossover voting"), cert. denied, 520 U.S. 1229 (1997); Teague v. Attala
County, 92 F.3d 283, 289 (5th Cir. 1996) (finding bloc voting even though
15% of whites had voted for black candidate), cert. denied, 522 U.S. 807
(1997); NAACP v. City of Niagara Falls, 65 F.3d 1002, 1009-1010 (2d Cir.
1995) (finding bloc voting even though 9-26% of whites had voted for black
candidates); Collins v. City of Norfolk, 883 F.2d 1232, 1242 (4th Cir. 1989)
(bloc voting even though black candidate had received 14% of white vote),
cert. denied, 498 U.S. 938 (1990). Moreover, the lower courts have accumulated
considerable experience in making judgments about racially polarized and
bloc voting and are able to distinguish between fact patterns in which racially
polarized, bloc voting exists and those in which it does not exist. Thus,
there is no danger that permitting minority voters to pass the first Gingles
threshold even if they could not constitute 50% of the population of a single-member
district will undermine Gingles' other requirement of bloc voting.
4 See, e.g., Clark v. Calhoun County, 21 F.3d 92, 95 (5th Cir. 1994) (observing
that "[t]he first Gingles precondition does not require some aesthetic
ideal of compactness, but simply that the black population be sufficiently
compact to constitute a majority in a single-member district"); see
also cases cited note 3, supra (addressing showing necessary to establish
bloc voting).
5 In addition to the decision below and Perez v. Pasadena Independent School
District, 165 F.3d 368 (5th Cir. 1999), petition for cert. pending, No.
98-1747, see Negron v. City of Miami Beach, 113 F.3d 1563, 1567-1568 (11th
Cir. 1997) (holding that Hispanics could not make out Section 2 claim because
they could not constitute majority of CVAP in single-member district); Romero
v. City of Pomona, 883 F.2d 1418, 1426 (9th Cir. 1989) (stating that "a
section 2 claim will fail unless the plaintiff can establish that the minority
group constitutes an effective voting majority in a single-member district";
affirming district court dismissal on Section 2 claim because blacks and
Hispanics had not made that showing); McNeil v. Springfield Park Dist.,
851 F.2d 937, 942-945 (7th Cir. 1988) (rejecting Section 2 claim brought
by black voters to at-large voting system because "[b]lacks comprising
less than a majority in a district would not necessarily have the requisite
potential to elect their candidates of choice"), cert. denied, 490
U.S. 1031 (1989); cf. Sanchez, 97 F.3d at 1314-1315 (finding Section 2 violation
and potential for "majority-Hispanic district" as remedy where
pre-existing district had 48.82% Hispanic population).
6 There appears to be some difference of views between the Fifth and Eleventh
Circuits as to whether CVAP must always be used to evaluate vote dilution
claims. In this case, the Fifth Circuit appears to have ruled that CVAP
data must always be used for vote dilution analysis. Pet. App. 10a. The
Eleventh Circuit, however, has only required use of citizenship percentages
(in conjunction with VAP data) when there is "reliable information
indicating a significant difference in citizenship rates between the majority
and minority populations." Negron, 113 F.3d at 1569 (approximately
88% v. 50% citizenship rates for non-Hispanic and Hispanic residents, respectively).
"[S]uch a disparity is unlikely except in areas where the population
includes a substantial number of immigrants." Ibid.; cf. Barnett v.
City of Chicago, 141 F.3d 699, 704-705 (7th Cir.) (CVAP data appropriate
to evaluate proportionality in Section 2 challenge to single-member district,
particularly when noncitizens are a significant part of the population in
issue), cert. denied, 118 S. Ct. 2372 (1998).
7 That question is less likely to be significant in this particular case
if this Court holds that a Section 2 vote dilution claim does not require
the minority to be an absolute numerical majority in a single-member district.
Petitioners have shown that Hispanics would be very close to a majority
of the CVAP of their demonstration district, and have also submitted evidence
to show that Hispanics in a comparison district with a similar Hispanic
percentage of CVAP have elected a representative of their choice. Even if
the Court agrees with us that the court of appeals' 50% rule is unwarranted,
however, the question whether a court hearing a Section 2 vote dilution
claim should look to CVAP or VAP may nonetheless have significance in some
cases. To establish a vote dilution claim, the plaintiff must show that
the minority would be "sufficiently large" in a single-member
district. Gingles, 478 U.S. at 50. At some point the minority population
may simply be too small in any single-member district to elect its representative
of choice, and the question whether a court should look to CVAP or VAP to
make that determination may be important in some cases.
8 Citizenship rates are drawn, not from the short-form census questionnaires
distributed to every household, but from data taken from the long-form questionnaires
distributed to a statistical sample of the population. See 9/16/97 Tr. 258.