[J-1-2018]
IN THE SUPREME COURT OF PENNSYLVANIA
MIDDLE DISTRICT
LEAGUE OF WOMEN VOTERS OF : No. 159 MM 2017
PENNSYLVANIA, CARMEN FEBO SAN :
MIGUEL, JAMES SOLOMON, JOHN :
GREINER, JOHN CAPOWSKI, :
GRETCHEN BRANDT, THOMAS :
RENTSCHLER, MARY ELIZABETH :
LAWN, LISA ISAACS, DON LANCASTER, :
JORDI COMAS, ROBERT SMITH, :
WILLIAM MARX, RICHARD MANTELL, :
PRISCILLA MCNULTY, THOMAS :
ULRICH, ROBERT MCKINSTRY, MARK :
LICHTY, LORRAINE PETROSKY, :
:
Petitioners :
:
:
v. :
:
:
THE COMMONWEALTH OF :
PENNSYLVANIA; THE PENNSYLVANIA :
GENERAL ASSEMBLY; THOMAS W. :
WOLF, IN HIS CAPACITY AS :
GOVERNOR OF PENNSYLVANIA; :
MICHAEL J. STACK III, IN HIS CAPACITY :
AS LIEUTENANT GOVERNOR OF :
PENNSYLVANIA AND PRESIDENT OF :
THE PENNSYLVANIA SENATE; :
MICHAEL C. TURZAI, IN HIS CAPACITY :
AS SPEAKER OF THE PENNSYLVANIA :
HOUSE OF REPRESENTATIVES; :
JOSEPH B. SCARNATI III, IN HIS :
CAPACITY AS PENNSYLVANIA SENATE :
PRESIDENT PRO TEMPORE; ROBERT :
TORRES, IN HIS CAPACITY AS ACTING :
SECRETARY OF THE :
COMMONWEALTH OF PENNSYLVANIA; :
JONATHAN M. MARKS, IN HIS :
CAPACITY AS COMMISSIONER OF THE :
BUREAU OF COMMISSIONS, :
ELECTIONS, AND LEGISLATION OF :
THE PENNSYLVANIA DEPARTMENT OF :
STATE, :
:
Respondents :
OPINION AND ORDER
PER CURIAM Filed: February 19, 2018
By Order dated January 22, 2018, this Court announced that the Pennsylvania
Congressional Redistricting Act of 2011, 25 P.S. § 3596.101 et seq. (the “2011 Plan”),
clearly, plainly and palpably violates the Pennsylvania Constitution. This adjudication
was based upon the uncontradicted evidentiary record developed in the Commonwealth
Court, wherein the Petitioners established that the 2011 Plan was a partisan
gerrymander and that this gerrymander was extreme and durable. It was designed to
dilute the votes of those who in prior elections voted for the party not in power in order
to give the party in power a lasting electoral advantage. In stark contrast, Article I,
Section 5 of our Constitution provides: “Elections shall be free and equal; and no
power, civil or military, shall at any time interfere to prevent the free exercise of the right
of suffrage.” Pa. Const. art. I, § 5. On this record, it is clear that the 2011 Plan violates
Article I, Section 5, since a diluted vote is not an equal vote.
Having determined that the 2011 Plan violates our Constitution, the question of
the appropriate remedy remained. This Court was compelled to decide whether to
perpetuate an unconstitutional districting plan, which would result in the unlawful dilution
of our citizens’ votes in the impending election, or to rectify the violation of our
Commonwealth’s Constitution immediately. So stated, our choice was clear. As this
Court has aptly recognized, the fundamental rights guaranteed by our organic charter
“cannot lawfully be infringed, even momentarily.” Pap’s A.M. v. City of Erie, 812 A.2d
591, 607 (Pa. 2002) (internal quotation marks omitted).
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In our January 22 Order, 1 this Court directed that, “should the Pennsylvania
General Assembly choose to submit a congressional districting plan that satisfies the
requirements” of that Order, the General Assembly was to submit such a plan to the
Governor on or before February 9, 2018. If the Governor accepted the General
Assembly’s congressional districting plan, this Court ordered such plan to be submitted
to the Court on or before February 15, 2018. Thus, the General Assembly had a full
eighteen days to submit a plan to the Governor, and the Governor had five days to
consider and approve or disapprove the General Assembly’s plan. 2
This Court recognized that the primary responsibility for drawing congressional
districts rested squarely with the legislature, but we also acknowledged that, in the
eventuality of the General Assembly not submitting a plan to the Governor, or the
Governor not approving the General Assembly’s plan within the time specified, it would
1 Justice Baer filed a concurring and dissenting statement to the Order. Chief Justice
Saylor filed a dissenting statement in which Justice Mundy joined, and Justice Mundy
filed a dissenting statement.
2 In fashioning the remedy and the timeline, this Court took into consideration the
requests of the parties. At oral argument on January 17, 2018, counsel for the
Petitioners stated, “Our request on the remedy is that . . . the map be declared
unconstitutional and that the legislature be given two weeks to come up with another
map, subject obviously to the Governor’s review.” He further stated, “The map can be
done in a day.” “. . . frequently legislatures are given short time frames. . . . Yes, it’s a
serious task, but no, we don’t believe it’s unreasonable.”
Counsel for the Governor stated, “[W]e are recommending that, if the map is in place by
February 20 or before, we can show you that we can run this election, we can run the
congressional portion of the primary and all of the up and down ballot seats by May 15.”
This accords with the attestations by Commissioner of the Bureau of Commissions,
Elections and Legislation, Jonathan Marks, that it would be possible to hold the primary
on May 15, 2018 provided a plan was in place on or before February 20, 2018.
Counsel for Speaker Turzai and Senate President Pro Tempore Scarnati stated, “I think
we would like at least three weeks.” His co-counsel later opined that they “need a
month.”
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fall to this Court expeditiously to adopt a plan based upon the evidentiary record
developed in the Commonwealth Court. We also offered the opportunity for parties and
intervenors to submit proposed remedial districting plans to the Court on or before
February 15, 2018. The Court specified that, to comply with the January 22 Order, any
remedial congressional districting plan, whether enacted by the General Assembly and
Governor or submitted by the parties and intervenors, should consist of:
congressional districts composed of compact and contiguous territory; as
nearly equal in population as practicable; and which do not divide any
county, city, incorporated town, borough, township, or ward, except where
necessary to ensure equality of population.
Order of January 22, 2018, at Paragraph “Fourth”. Furthermore, the Court advised the
Executive Branch Respondents to anticipate that a remedial congressional districting
plan would be available by February 19, 2018, and they were directed to take all
measures, including adjusting the election calendar if necessary, to ensure that the
May 15, 2018 primary election would take place as scheduled under that remedial
districting plan.
The Court issued a supplemental Order on January 26, 2018, in which the Court
appointed Professor Nathaniel Persily as an advisor to assist the Court in adopting, if
necessary, a remedial congressional redistricting plan. 3 Moreover, in that Order, we
directed the Pennsylvania General Assembly and/or its Legislative Data Processing
Center to submit to the Court data files containing the current boundaries of all
Pennsylvania municipalities and precincts. In response, counsel for the General
Assembly indicated no such current files existed. 4
3 Justice Baer filed a concurring and dissenting statement. Chief Justice Saylor and
Justice Mundy dissented.
4 Specifically, by letter dated January 31, 2018, counsel for the General Assembly
indicated that such files are not updated or maintained by the General Assembly for the
(continued…)
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Thereafter, on February 7, 2018, this Court filed its Opinion in support of the
January 22 Order, setting forth its legal rationale for determining that the 2011 Plan is
violative of our Constitution. 5 In explaining the Court’s rationale, we emphasized that
nothing in the Opinion was intended to conflict with, or in any way alter, the mandate
contained in the January 22 Order.
Neither the General Assembly nor the Governor sought an extension of the dates
set forth in our January 22 Order. The General Assembly failed to pass legislation for
the Governor’s approval, thereby making it impossible for our sister branches to meet
the Court’s deadline. As a result, it has become the judiciary’s duty to fashion an
appropriate remedial districting plan, and this Court has proceeded to prepare such a
plan, a role which our Court has full constitutional authority and responsibility to
assume. 6
(…continued)
years between each decennial Census. Counsel for Speaker Turzai informed the Court
by letter dated January 31, 2018 that Speaker Turzai “[had] no data or documents
responsive to the [Court’s Order].” and that Speaker Turzai “understands that the
General Assembly has submitted a letter addressing the data and documents
requested…” Finally, by letter dated January 31, 2018, counsel for Senator Scarnati
responded that “[i]n light of the unconstitutionality of the Court’s Orders and the Court’s
plain intent to usurp the General Assembly’s constitutionally delegated role of drafting
Pennsylvania’s congressional districting plan, Senator Scarnati will not be turning over
any data identified in the Court’s Orders,” while also footnoting that Senator Scarnati
“does not possess any documents responsive to paragraph “Fourth” of the Court’s
January 26 Order.”
5 In response thereto, Justice Baer filed a concurring and dissenting opinion. Chief
Justice Saylor filed a dissenting opinion, joined by Justice Mundy. Finally, Justice
Mundy filed a dissenting opinion.
6 When the legislature is unable or chooses not to act, it becomes the judiciary's role to
ensure a valid districting scheme. As explained in our Opinion, our Court possesses
broad authority to craft meaningful remedies when required. Pa. Const. art. V, §§ 1, 2,
10; 42 Pa.C.S. § 726 (granting power to “enter a final order or otherwise cause right and
justice to be done”). Thus, the prospect of a judicially-imposed remedial plan was well
within our judicial authority, and is supported by our Constitution and laws.
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Pursuant to the January 22 Order, certain parties, the intervenors, and several
amici submitted to the Court proposed remedial districting plans for the Court’s
consideration, all of which were carefully reviewed by the Court. 7 Proceeding
expeditiously, the Court prepared a constitutionally sound plan in accordance with our
announced criteria.
After full deliberation and consideration, the Court hereby adopts this remedial
plan (“Remedial Plan”) 8, as specifically described below, which shall be implemented
forthwith in preparation for the May 15, 2018 primary election. 9 The Remedial Plan is
based upon the record developed in the Commonwealth Court, and it draws heavily
upon the submissions provided by the parties, intervenors, and amici. It is composed of
congressional districts which follow the traditional redistricting criteria of compactness,
contiguity, equality of population, and respect for the integrity of political subdivisions.
The Remedial Plan splits only 13 counties. 10 Of those, four counties are split into three
7 The applications for leave to file amicus briefs, filed by Concerned Citizens for
Democracy, Fair Democracy, Adele Schneider and Stephen Wolf, and the American
Civil Rights Union, are hereby granted. Moreover, we accepted for filing a “Brief in
Opposition to Proposed Remedial Congressional Districting Maps Submitted by
Petitioners, Governor Wolf, Lieutenant Governor Stack, Democratic Caucus of the
Pennsylvania Senate and Democratic Caucus of the Pennsylvania House of
Representatives” filed by Speaker Turzai and Senator Scarnati. Finally, Petitioners’
application for leave to file a reply to that brief is hereby granted.
8For this process, the Court utilized the 2011 U.S. Census population data, as adjusted
by Pennsylvania, available at http://www.redistricting.state.pa.us/Data.cfm.
9 Although we provide herein a brief description of the statistical measures used to
analyze the Remedial Plan, a full, computer-generated report detailing additional
statistical information is available on the Court’s website at
http://www.pacourts.us/news-and-statistics/cases-of-public-interest/league-of-women-
voters-et-al-v-the-commonwealth-of-pennsylvania-et-al-159-mm-2017.
10 An additional county split may appear in some GIS program calculations, but that is
due to the fact that a non-contiguous Chester County census block with zero population
is located inside Delaware County. That census block and its adjoining water is
appropriately placed inside the district that contains Delaware County.
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districts and nine are split into two districts. The parties, intervenors, and amici differ in
how they calculate municipal and precinct splits, and, as noted earlier, the Legislative
Respondents suggest that updated data on precinct and municipal boundaries does not
exist. The Remedial Plan is superior or comparable to all plans submitted by the
parties, the intervenors, and amici, by whichever Census-provided definition one
employs (Minor Civil Divisions, Cities, Boroughs, Townships, and Census Places)11.
The compactness of the plan is superior or comparable to the other submissions,
according to the Reock, Schwartzberg, Polsby-Popper, Population Polygon, and
Minimum Convex Polygon measures described in the Court’s January 26 Order. Here,
too, the parties, intervenors, and amici disagree on the precise ways to calculate these
measures, and some failed to deliver compactness scores with their submissions. By
whichever calculation methodology employed, the Remedial Plan is superior or
comparable. Finally, no district has more than a one-person difference in population
from any other district, and, therefore, the Remedial Plan achieves the constitutional
guarantee of one person, one vote.
Accordingly, this 19th day of February, 2018, the Court orders as follows:
First, the Pennsylvania primary and general elections for seats in the United
States House of Representatives commencing in the year 2018 shall be conducted in
accordance with the Remedial Plan as described by the 2010 Census block equivalency
(denominated the “Remedial Plan Census Block Equivalency Files”) and ESRI shape
files (denominated the “Remedial Plan Shape Files”) uploaded to this Court’s website at
http://www.pacourts.us/news-and-statistics/cases-of-public-interest/league-of-women-
11The Remedial Plan follows, to the extent possible, the boundaries of wards in
Philadelphia.
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voters-et-al-v-the-commonwealth-of-pennsylvania-et-al-159-mm-2017, under the
heading “Order Adopting Remedial Plan”. The Remedial Plan, in its constituent parts, is
hereby made part of this Order, and is hereby adopted as the division of this
Commonwealth into eighteen congressional districts, unless and until the same shall be
lawfully changed. For reference, images of the Remedial Plan are attached at Appendix
A, and available in high resolution at the above website; and images of the 2011 Plan
are attached at Appendix B, and available in high resolution at the above website. Also
uploaded to the above website are computer generated reports describing the Remedial
Plan, identifying (1) county/minor civil division/voting district splits, (2) census place and
municipal splits, and (3) compactness scores.
Second, Executive Respondents and Respondent General Assembly, including
its Legislative Data Processing Center (“LDPC”), 12 shall forthwith prepare textual
language that describes the Remedial Plan 13 and submit the same to the Secretary of
the Commonwealth without delay. The Secretary of the Commonwealth shall thereafter
file with this Court’s Prothonotary a certification of compliance of the preparation of the
textual description of the Remedial Plan, along with a copy of the textual description.
Third, Respondent Secretary of the Commonwealth shall, without delay, following
the preparation of the textual description of the Remedial Plan, publish notice of the
Congressional Districts in the Pennsylvania Bulletin.
12The LDPC was established under the Act of Dec. 10, 1968, P.L. 1158, No. 365, and
routinely provides technical services relating to congressional and legislative
redistricting.
13 The textual descriptions should be expressed in a form consistent with the text found
in Section 301 of the Congressional Redistricting Act of 2011, 25 P.S. § 3596.301;
Section 301 of the Congressional Redistricting Act of 2002, 25 P.S. § 3595.301
(superseded); and Appendix A to the Order entered by this Court in Mellow v. Mitchell,
607 A.2d 204, 237-43 (Pa. 1992).
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Fourth, to provide for an orderly election process, the schedule for the primary
election to be held May 15, 2018 for the election of Representatives to the United States
Congress shall be implemented by the Secretary of the Commonwealth and all election
officers within the Commonwealth in accordance with the Revised Election Calendar as
proposed by the Secretary of the Commonwealth and Commissioner of the Bureau of
Commissions, Elections and Legislation, 14 which Calendar is hereby approved, and is
attached to this Order as Appendix C.
Fifth, should there be any congressional vacancies existing now or occurring
after the entry of this Order, but prior to the commencement of the terms of the
members to be elected in the General Election of 2018, they shall be filled for the
remainder of the unexpired terms from the districts formerly prescribed in the
Congressional Redistricting Act of 2011, 25 P.S. § 3596.301.
Sixth, the Secretary of the Commonwealth is directed to notify this Court by 4:00
p.m. on Tuesday, February 20, 2018, should it foresee any technical issues concerning
the implementation of the Remedial Plan.
So Ordered.
Jurisdiction retained.
Chief Justice Saylor and Justices Baer and Mundy file dissenting opinions.
14The Application of Respondents Acting Secretary Robert Torres and Commissioner
Jonathan Marks for Approval of Election Calendar Adjustments is hereby granted.
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APPENDIX A
The Remedial Plan
APPENDIX A
The Remedial Plan
District 1
APPENDIX A
The Remedial Plan
District 2
APPENDIX A
The Remedial Plan
District 3
APPENDIX A
The Remedial Plan
District 4
APPENDIX A
The Remedial Plan
District 5
APPENDIX A
The Remedial Plan
District 6
APPENDIX A
The Remedial Plan
District 7
APPENDIX A
The Remedial Plan
District 8
APPENDIX A
The Remedial Plan
District 9
APPENDIX A
The Remedial Plan
District 10
APPENDIX A
The Remedial Plan
District 11
APPENDIX A
The Remedial Plan
District 12
APPENDIX A
The Remedial Plan
District 13
APPENDIX A
The Remedial Plan
District 14
APPENDIX A
The Remedial Plan
District 15
APPENDIX A
The Remedial Plan
District 16
APPENDIX A
The Remedial Plan
District 17
APPENDIX A
The Remedial Plan
District 18
APPENDIX B
The Congressional Redistricting Act of 2011
APPENDIX B
The Congressional Redistricting Act of 2011
District 1
APPENDIX B
The Congressional Redistricting Act of 2011
District 2
APPENDIX B
The Congressional Redistricting Act of 2011
District 3
APPENDIX B
The Congressional Redistricting Act of 2011
District 4
APPENDIX B
The Congressional Redistricting Act of 2011
District 5
APPENDIX B
The Congressional Redistricting Act of 2011
District 6
APPENDIX B
The Congressional Redistricting Act of 2011
District 7
APPENDIX B
The Congressional Redistricting Act of 2011
District 8
APPENDIX B
The Congressional Redistricting Act of 2011
District 9
APPENDIX B
The Congressional Redistricting Act of 2011
District 10
APPENDIX B
The Congressional Redistricting Act of 2011
District 11
APPENDIX B
The Congressional Redistricting Act of 2011
District 12
APPENDIX B
The Congressional Redistricting Act of 2011
District 13
APPENDIX B
The Congressional Redistricting Act of 2011
District 14
APPENDIX B
The Congressional Redistricting Act of 2011
District 15
APPENDIX B
The Congressional Redistricting Act of 2011
District 16
APPENDIX B
The Congressional Redistricting Act of 2011
District 17
APPENDIX B
The Congressional Redistricting Act of 2011
District 18
APPENDIX C
REVISED ELECTION CALENDAR FOR
OFFICE OF REPRESENTATIVE IN CONGRESS
2018 GENERAL PRIMARY ELECTION
First day to circulate and file nomination petitions...........................................February 27
First day to circulate and file nomination papers...................................................March 7
Last day to circulate and file nomination petitions...............................................March 20
Day for casting of lots in the office of the Secretary of the
Commonwealth for position of names on the primary ballot ...............................March 22
Date by which the Secretary of the Commonwealth must
transmit to the County Boards of Elections a list of candidates
who filed nomination petitions with him and who are not known
to have withdrawn or been disqualified .............................................................. March 26
Date by which County Boards of Elections must begin to transmit absentee
ballots and balloting materials to military-overseas voters in extremely
remote or isolated areas who by this date submitted a valid application............ March 26
Last day for withdrawal by candidates who filed nomination petitions ................March 27
Last day to file objections to nomination petitions...............................................March 27
Date by which County Boards of Elections must transmit absentee
ballots and balloting materials to all military-overseas voters who
by this date submitted a valid application........................................................... March 30
Last day that may be fixed by the Commonwealth Court for
hearings on objections that have been filed to nomination petitions................. March 30
Last day for the Commonwealth Court to render decisions in
cases involving objections to nomination petitions................................................. April 4
Last day to apply for a civilian absentee ballot.........................................................May 8
Last day for County Boards of Elections to receive voted
civilian absentee ballots .........................................................................................May 11
GENERAL PRIMARY ........................................................................................... May 15
Last day for County Boards of Elections to receive voted
military-overseas absentee ballots .........................................................................May 22