mahan howell argued december decided february together city virginia beach howell et appeal weinberg prichard et appeal argued see infra virginia general assembly reapportioned state election state delegates senators apportionment statutes challenge appellees invalidated district ruled reapportionments impermissible violations one person one vote principle substituted electoral districts reducing percentage variation ideal district approximately variation permitted legislature plan contrary plan many instances following political subdivision lines held reapportionment electoral districts virginia house delegates complied equal protection clause fourteenth amendment since legislature maximum population percentage variation excessive resulted state rational objective preserving integrity political subdivision lines pp implementation basic constitutional principle houses bicameral state legislature apportioned substantially population basis reynolds sims flexibility permissible respect state legislative reapportionment respect congressional redistricting pp state objective preserving integrity political subdivision lines rational since furthers legislative purpose facilitating enactment statutes purely local concern preserves voters political subdivisions voice state legislature local matters pp given wider constitutional latitude state legislative reapportionment population disparities reflected legislature maximum percentage deviation within tolerable constitutional limits pp establishment legislature three numerically ideal senatorial electoral districts assigning one persons naval station norfolk regardless actually resided counted official census tracts constitutionally impermissible discrimination military personnel cf davis mann district severe time pressures abuse discretion prescribing interim plan combining three districts one multimember district pp rehnquist delivered opinion burger stewart white blackmun joined brennan filed opinion concurring part dissenting part douglas marshall joined post powell took part consideration decision cases andrew miller attorney general virginia argued cause appellants briefs vann lefcoe assistant attorney general anthony troy special assistant attorney general harry frazier iii argued cause appellant briefs dale bimson john ashton robert weinberg pro se filed jurisdictional statement appellant henry howell pro se argued cause appellees howell et al cases brief peter babalas clive duval ii pro se argued cause cases brief edmund campbell henry marsh iii tucker armand derfner stephen browning gary greenberg filed brief appellees thornton et al leonard davis gordon tayloe filed brief appellee city norfolk miller troy lefcoe filed motion affirm appellees justice rehnquist delivered opinion acting pursuant mandate newly revised state constitution virginia general assembly enacted statutes apportioning state election members house delegates senate two suits brought challenging constitutionality house redistricting statute grounds impermissible population variances districts multimember districts diluted representation use multimember districts constituted racial gerrymandering senate redistricting statute attacked separate suit alleged city norfolk unconstitutionally split three districts allocating navy personnel norfolk one district isolating negro voters one district three district courts convened hear suits pursuant suits consolidated heard four judges variously made three panels consolidated district entered interlocutory order inter alia declared legislative reapportionment statutes unconstitutional enjoined holding elections electoral districts established opinion howell mahan supp ed appellants secretary state board elections members city virginia beach appealed directly portions order invoking jurisdiction statute apportioning house provided combination multimember floater delegate districts delegates elected found lower ideal district virginia consisted persons per delegate maximum percentage variation ideal act district district population ratio two districts average percentage variance plan minimum population percentage necessary elect majority house districts within perfection nine exceeded variance ideal one exception delegate districts followed political jurisdictional lines counties cities exception fairfax county allotted delegates divided two districts relying kirkpatrick preisler wells rockefeller reynolds sims district concluded variation sufficient condemn house statute one person one vote doctrine noted variances traceable desire general assembly maintain integrity traditional county city boundaries impossible draft district lines overcome unconstitutional disparities still maintain integrity held state proved governmental necessity strictly adhering political subdivision lines accordingly undertook devised plan percentage variation slightly ideal district percentage believed came within passable constitutional limits effort achieve absolute equality kirkpatrick preisler howell mahan appellants contend district reliance kirkpatrick preisler supra wells rockefeller supra striking general assembly reapportionment plan erroneous proper application standards enunciated reynolds sims supra resulted finding statute constitutional kirkpatrick preisler wells rockefeller invalidated state reapportionment statutes federal congressional districts maximum percentage deviations respectively express purpose cases elucidate standard first announced holding wesberry sanders command art representatives chosen people several means nearly practicable one man vote congressional election worth much another footnotes omitted concluded command permits limited population variances unavoidable despite effort achieve absolute equality justification shown kirkpatrick preisler supra principal question thus presented review whether equal protection clause fourteenth amendment likewise permits limited population variances unavoidable despite effort achieve absolute equality context state legislative reapportionment first recognized equal protection clause requires houses bicameral state legislature apportioned substantially population basis reynolds sims supra suggested implementation basic constitutional principle equality population among districts flexibility constitutionally permissible respect state legislative reapportionment congressional redistricting consideration given fact almost invariably significantly larger number seats state legislative bodies distributed within state congressional seats therefore may feasible state use political subdivision lines greater extent establishing state legislative districts congressional districts still affording adequate statewide representation ibid another possible justification deviation representation state legislatures stated hat insuring voice political subdivisions political subdivisions several factors make insubstantial claims state rationally consider according political subdivisions independent representation least one body state legislature long basic standard equality population among districts maintained local governmental entities frequently charged various responsibilities incident operation state government many much legislature activity involves enactment local legislation directed concerns particular political subdivisions state may legitimately desire construct districts along political subdivision lines deter possibilities gerrymandering contrast wesberry sanders supra recognized excuse failure meet objective equal representation equal numbers people congressional districting practical impossibility drawing equal districts mathematical precision thus whereas population alone sole criterion constitutionality congressional redistricting art broader latitude afforded equal protection clause state legislative redistricting considerations enumerated reynolds sims supra dichotomy two lines cases consistently maintained kirkpatrick preisler example one asserted justification population variances necessarily result state attempt avoid fragmenting political subdivisions drawing congressional district lines along existing political subdivision boundaries argument rejected congressional context abate mundt apportionment county legislature maximum deviation equality upheld face equal protection challenge part new york long history maintaining integrity existing local government units within county application absolute equality test kirkpatrick wells state legislative redistricting may impair normal functioning state local governments effect readily apparent analysis district plan case art vii virginia constitution general assembly given extensive power enact special legislation regarding organization exercise governmental powers counties cities towns political subdivisions statute redistricting house delegates consistently sought avoid fragmentation subdivisions assertedly afford voice richmond seek local legislation reapportionment based application kirkpatrick wells resulted maximum deviation slightly compared roughly maximum variation found plan adopted legislature achieve even limit variation plan extended single multimember districts across subdivision lines instances substituting population equality subdivision representation scott county example assembly plan placed first district population voted persons dickinson lee wise counties two delegates district thus established deviated ideal transferred five scott county enumeration districts containing persons contiguous second district composed city bristol smith washington counties population scott county representation thereby substantially reduced first district nonexistent second district opportunity voters champion local legislation relating scott county virtually nil countervailing benefit resulting readjustment fact first district deviation ideal reduced city virginia beach saw position deteriorate similar manner plan legislative plan virginia beach constituted district allocated three delegates population resulting underrepresentation cured providing floterial district also included portions cities chesapeake portsmouth plan district dissolved persons constituted deviation ideal district placed transferred norfolk district district multimember district includes persons make population city norfolk thus virginia beach residents cast vote district amount district population terms practical politics virginia beach complains representation representation far local legislation concerned people transferred district respect effectively disenfranchised conclude therefore constitutionality virginia legislative redistricting plan judged stringent standards kirkpatrick wells make applicable congressional reapportionment instead equal protection test enunciated reynolds sims supra reaffirm holding equal protection clause requires state make honest good faith effort construct districts houses legislature nearly equal population practicable likewise reaffirm conclusion long divergences strict population standard based legitimate considerations incident effectuation rational state policy deviations principle constitutionally permissible respect apportionment seats either two houses bicameral state legislature asserted justification divergences case state policy maintaining integrity political subdivision lines new one davis mann noted cities counties consistently split divided purposes legislative representation multimember districts utilized cities counties whose populations entitle single representative tradition respecting integrity boundaries cities counties drawing district lines districts constructed combinations counties cities pieces prepared say decision people virginia grant general assembly power enact local legislation dealing political subdivisions irrational decision general assembly provide representation subdivisions qua subdivisions order implement constitutional power likewise valid measured equal protection clause fourteenth amendment inquiry becomes whether reasonably said state policy urged virginia justify divergences legislative reapportionment plan house indeed furthered plan adopted legislature whether justified divergences also within tolerable limits state policy urged justification disparity district population however rational constitutionally permitted emasculate goal substantial equality uncontradicted evidence offered district effect legislature plan subject minor qualifications produces minimum deviation norm keeping intact political boundaries defendants exhibit recognized equality impossible political boundaries kept intact process districting went hold since state proved governmental necessity strictly adhering political subdivision lines legislative plan constitutionally invalid howell mahan supra noted however proper equal protection test framed terms governmental necessity instead terms claim state may rationally consider reynolds sims supra district intimated one reason rejecting justification divergences offered state conclusion legislature fact implemented asserted policy witness division fairfax county howell mahan supra fairfax county divided fragmented divided one district fairfax county result might well thought disfavor result opinion connor johnson state scarcely condemned simultaneously attempting move toward smaller districts maintain integrity political subdivision lines appellees argue traditional adherence lines longer justification since virginia constitutional provision regarding reapportionment art ii supra neither specifically provides apportionment along political subdivision lines draws distinction standards congressional legislative districting standard case described nearly practicable language used wesberry sanders supra reynolds sims supra previously indicated latitude afforded legislative redistricting somewhat broader afforded congressional redistricting virginia free matter federal constitutional law construe mandate constitution liberally case legislative redistricting case congressional redistricting plan adopted legislature indicates done also reject argument state adhering tradition respecting boundaries political subdivisions congressional state senate redistricting may case redistricting house delegates nothing fact virginia followed constitutional mandate case congressional redistricting chosen instances ignore political subdivision lines case state senate detracts validity consistently applied policy least one house bicameral legislature responsive voters political subdivisions hold legislature plan apportionment house delegates may reasonably said advance rational state policy respecting boundaries political subdivisions remaining inquiry whether population disparities among districts resulted pursuit plan exceed constitutional limits conclude stringent mathematical standard heretofore imposed upon apportionment plan state legislature enunciated swann adams scheme maximum deviation disapproved case state florida offered evidence trial level support challenged variations respect either house senate emphasized fact variation norm approved one state little bearing validity similar variation another state therefore find citations numerous cases decided state lower federal courts limited use determining constitutionality virginia statute relatively minor variations present virginia plan contrast sharply larger variations state legislative reapportionment plans struck previous decisions see reynolds sims supra swann adams supra kilgarlin hill neither courts legislatures furnished specialized calipers enable extract general language equal protection clause fourteenth amendment mathematical formula establishes range percentage deviations permissible percent maximum deviation district found exist legislative plan reapportionment house substantially less percentage deviations found invalid previous decisions percentage may well approach tolerable limits believe exceeds virginia sacrificed substantial equality justifiable deviations policy maintaining integrity political subdivision lines process reapportioning state legislature policy consistently advanced virginia justification disparities population among districts elect members house delegates rational one reasonably said upon examination legislative plan fact advance policy population disparities permitted thereunder result maximum percentage deviation hold within tolerable constitutional limits therefore hold general assembly plan reapportionment house delegates constitutional reverse district conclusion contrary also affirm weinberg prichard et held pending disposition ii general assembly divided state senatorial districts plan portion city virginia beach added city norfolk entire area divided three districts found conformed almost ideally numerically one person one vote principle naval personnel naval station norfolk persons assigned fifth senatorial district counted official census tracts undisputed personnel lived aboard vessels assigned census tract within fifth district evidence lived outside fifth district within norfolk virginia beach areas true indicated malapportionment respect personnel lacking survey data sufficiently precise permit creation three districts closely representing actual population corrected disparities establishing one multimember district composed fifth sixth seventh districts encompassing city norfolk portion virginia beach howell mahan supra appellants charge district justified overturning districts established general assembly since assembly validly used census tracts apportioning area imposition multimember district contravened valid legislative policy favor districts conclude unusual unique circumstances case district err declining accord conclusive weight legislative reliance census figures justifiably found respect three districts question legislative plan resulted significant population disparities assignment military personnel vote districts admittedly reside since discriminatory treatment military personnel legislative reapportionment constitutionally impermissible davis mann supra hold interim relief granted district state senate within bounds discretion confided application interim remedial techniques voting rights cases largely left district courts reynolds sims supra courts bound apply equitable considerations reynolds stated awarding withholding immediate relief entitled consider proximity forthcoming election mechanics complexities state election laws ibid faced severe time pressures reapportionment plans first forwarded attorney general march april three cases filed consolidated first hearing scheduled may may attorney general interposed objections pursuant voting rights act result may hearing largely devoted arguing effect objections hearing directed cases continued june also postponed primary elections set june september cases finally heard june interlocutory order entered july two weeks prior revised july filing deadline primary candidates prior time acted handed whitcomb chavis recognizing multimember districts per se violative equal protection clause conscientiously considered legislative policy admonition connor johnson supra fashioning apportionment remedies use districts preferred confronted plausible evidence substantial malapportionment respect military personnel mandate voting discrimination military personnel constitutionally impermissible davis mann supra fear much delay seriously disrupted fall elections facing singular combination unique factors say district abused discretion fashioning interim remedy combining three districts one multimember district therefore affirm order insofar dealt state senate affirmed part reversed part footnotes members house representatives members senate house delegates general assembly shall elected electoral districts established general assembly every electoral district shall composed contiguous compact territory shall constituted give nearly practicable representation proportion population district general assembly shall reapportion commonwealth electoral districts accordance section year every ten years thereafter reapportionment law shall take effect immediately subject limitations contained article iv section constitution code ann supp code ann amended acts assembly june reapportionment statutes originally passed march may attorney general acting pursuant voting rights act stat interposed objections house senate plans objections house plan based use five multimember districts certain metropolitan areas interposition trial cases decided whitcomb chavis attorney general objections house plan subsequently withdrawn objection senate plan cured amendment contained supra initially noted probable jurisdiction related case thornton prichard appeal primarily involved question whether multimember districts discriminatory effect rights negro voters voting rights act supra well fourteenth fifteenth amendments appellant motion appeal dismissed figures found district appellee duval argues another method computation involving virginia floterial districts results maximum deviation state city virginia beach disputed deviation district relied duval figure much claimed lower made finding dispute concluding variation sufficient condemn plan supp decline enter imbroglio mathematical manipulation confine consideration figures actually found used support holding unconstitutionality connor williams expressly reserved decision issue lower concluded spread slightly arithmetic consider two counties asserted isolation remainder state howell mahan supp appellees also contend clear state abandoned traditional adherence political subdivision boundaries since provided reapportionment statute districts shall change even though boundaries result annexation example short answer general assembly dual goal maintaining lines providing population equality reapportionment constitutionally required every years redistricting assembly decision years redistricting one goals conflict one based known population variances prevail determination render constitutionally defective otherwise valid plan companion case appellant weinberg challenges order district insofar sustains validity districts established house delegates apportionment statute argues reapportionment exercise supervisory power require equality required legislative reapportionment also contends method computation floterial district deviations utilized district erroneous since house delegates apportionment statute constitutional since deviation district appellant method computation substantially lower approximately deviation today upheld affirm portions judgment appealed personnel attached ships norfolk enumerated census tract location encompassing series ship piers counted way accordance instructions director bureau census george brown ship commanders directed obtain enumeration personnel assigned ships specifically instructions provided ship commanders include married personnel enumeration even though may home families april wives personnel assigned vessels instructed include husbands complete census forms legislative use census enumeration support conclusion navy personnel ship actually resided within state senatorial district ship docked placed upon census figures weight intended bear navy used rule thumb estimate personnel occupied housing units shore district found remaining lived base within fifth senatorial district note order appealed interlocutory lower retained jurisdiction nothing order prevent virginia general assembly enacting apportionment plan fifth sixth seventh districts differs ordered nonetheless consistent constitutional requirements justice brennan justice douglas justice marshall join concurring part dissenting part agree city virginia beach howell joinder district three senatorial districts beach area create one multimember senatorial district election permissible special circumstances case cf whitcomb chavis douglas concurring dissenting see fortson dorsey burns richardson dissent however mahan howell action setting aside district finding apportionment state house delegates violated equal protection clause fourteenth amendment approves legislative apportionment plan conceded produce total deviation least constitutional ideal course fact variation norm approved one state little bearing validity similar variation another state swann adams marginally permissible one state may unsatisfactory another depending particular circumstances case reynolds sims since every reapportionment case presents factual predicate unique combination circumstances decisions upholding invalidating legislative plan normally great precedential significance abate mundt brennan dissenting language opinion today suggests may stake application principles novel set facts view problem case us sense one first impression squarely controlled prior decisions see kirkpatrick preisler swann adams supra reynolds sims supra davis mann roman sincock appropriate therefore call mind controlling principles show properly applied facts case us preclude reversal district decision virginia recently amended constitution provides members senate house delegates general assembly shall elected electoral districts established general assembly electoral district shall composed contiguous compact territory shall constituted give nearly practicable representation proportion population district art ii pursuant requirement general assembly divided commonwealth legislative districts members house delegates elected basis census figures set population commonwealth delegate ideally represent persons legislature plan disregard constitutional requirements flagrant extent many earlier cases nevertheless demonstrate systematic pattern substantial deviation constitutional ideal plan delegates elected districts population deviates ideal almost delegates represent districts deviate four legislators elected districts overrepresented underrepresented maximum deviation spread overrepresented underrepresented districts least might high depending method calculation assuming maximum deviation legislature plan still significantly less representative many plans previously struck state lower federal courts appellees maintain however total deviation properly computed fact figure closely approximating deviation led us invalidate senate plan swann adams supra deviation led us invalidate house plan kilgarlin hill deviation led us invalidate house plan whitcomb chavis appellees arrive figure taking account deviations floterial districts see app appellants seem concede accurate indicator total deviation see brief appellant commonwealth virginia district pointed range deviation may exceed supp ed occasion consider whether accurate figure finding nder either mode calculation statewide range deviation pass constitutional muster ibid although conceding district reject disparage appellees assertion deviation nevertheless reaches perplexing conclusion confine consideration figures actually found used support holding unconstitutionality ante legislature plan fact pass constitutional muster assumption deviation surely fair ask whether plan still valid assuming total deviation refuses either confront question directly render moot determining figure irrelevant improperly derived instead attempts obscure issue contending commonwealth city virginia beach disputed appellees assertion total deviation contention wholly incorrect neither answers filed district briefs oral argument commonwealth city virginia beach quarrel appellee method calculating deviation floterial districts see supra refusal consider question mean appellees option reopening litigation district attempt persuade true measure deviation deviation order fatal commonwealth plan view need prolong litigation resolution issue inexplicably decide district correctly held deviations magnitude even sufficient invalidate legislature plan added correctly reapportionment cases burden state justify deviations parity legitimate considerations incident effectuation rational state policy reynolds sims see swann adams state proved governmental necessity strictly adhering political subdivision lines accordingly district promulgated apportionment plan significantly reduced extent deviation district plan maximum deviation excluding one district geographically isolated mainland commonwealth even including isolated district maximum total deviation exceed substantial reduction maximum deviation make clear full measure improvement achieved district plan number delegates whose districts deviate norm almost cut half districts still exceeding mark one geographically isolated district exceed mean short district achieve stated goal perfect mathematical division multiplicity delegates geography state diversity population concentrations plan still produce measurably greater equality representation appellants necessarily concede district plan reduce inequality population per district defend legislature plan ground tolerance political jurisdictional lines justification deviation brief appellant commonwealth virginia maintain legislature plan achieved highest degree equality possible without fragmenting political subdivisions principal question presented decision whether facts case asserted state interest preserving integrity county lines justify resulting substantial deviations population equality ii holdings prior decisions restated two unequivocal propositions first paramount goal reapportionment must drawing district lines achieve precise equality population district equal protection clause requires state make honest good faith effort construct districts houses legislature nearly equal population practicable reynolds sims see also kirkpatrick preisler constitution permit state relegate considerations equality secondary status reserve primary goal apportionment service state interest second open state event fail achieve goal population equality attempt justify failure demonstrating precise equality achieved without jeopardizing critical governmental interest equal protection clause exalt principle equal representation point nullifying every competing interest state held firmly view variations weight accorded vote approved state meets burden presenting cogent reasons explanation variations even variations small see abate mundt kirkpatrick preisler supra swann adams supra validity propositions applicability case us diminished fact kirkpatrick preisler wells rockefeller two many cases propositions refined applied concerned division federal congressional districts rather legislative reapportionment prior today decision never held different constitutional standards applicable two situations true significant differences congressional districting legislative apportionment repeatedly recognized differences reynolds sims example termed insubstantial argument state rationally consider according political subdivisions independent representation least one body state legislature long basic standard equality population among districts maintained see also abate mundt supra recognition differences hardly tantamount establishment two distinct controlling standards decisions made clear certain state interests pertinent legislative reapportionment possible relevance congressional districting thus need preserve integrity political subdivisions political subdivisions may instances justify small variations population districts state legislators elected interest hardly asserted justification malapportioned congressional districts kirkpatrick preisler supra state may broader range interests point attempting justify failure achieve precise equality context legislative apportionment means follows state subject lighter burden proof controlling constitutional standard sense distinguishable concern kirkpatrick preisler constitutional requirement nearly practicable one man vote congressional election worth much another wesberry sanders rejected state argument fixed numerical percentage population variance small enough considered de minimis satisfy without question nearly practicable standard since equal representation equal numbers people fundamental goal house representatives wesberry sanders supra nearly practicable standard requires state make effort achieve precise mathematical equality see reynolds sims kirkpatrick preisler supra moreover held burden state present acceptable reasons variations among populations various districts swann adams supra principles undergirded decision kirkpatrick preisler principles supported decision swann adams case involving apportionment state legislature opinion kirkpatrick suggest different standard might applicable congressional districting contrary nearly practicable standard concerned identical standard reynolds sims specifically made applicable controversies state legislative apportionment see reynolds sims supra see also hadley junior college district holding kirkpatrick state must bear burden justifying deviations population equality rested squarely exclusively holding swann adams even defined test quotation swann see kirkpatrick preisler supra swann adams held variations population legislative districts must justified state presentation acceptable reasons variations comparison opinion swann views expressed two justices dissent see swann adams supra harlan dissenting decisively refutes suggestion unequal representation upheld long rational basis discrimination found showing necessity rationality decision swann requires swann establish point sufficient clarity surely decision kilgarlin hill elucidated applied principles swann removes doubt district sustained state apportionment plan two grounds one termed burden proof ruling lower held appellants burden demonstrating degree variance equality principle also negat ing existence state facts sustain constitutionality legislation supp squarely rejected statement controlling legal standard held swann adams quite clear unless satisfactorily justified evidence record population variances size significance evident total deviation sufficient invalidate apportionment plan ibid also rejected district second ground decision namely deviations amply justified state attempt wherever possible respect county boundaries significantly opinion stated doubtful deviations evident kind minor variations reynolds sims indicated might justified local policies counselling maintenance established political subdivisions apportionment plans need reach constitutional question convinced announced policy state texas necessitated range deviations legislative districts evident emphasis supplied iii affirm district decision record commonwealth virginia failed state florida failed swann adams state texas failed kilgarlin hill justify substantial variations population districts members house delegates elected panel heard case consisted four judges virginia share unanimous view commonwealth failed prove variations justified need insure representation political subdivisions need respect county boundaries drawing district lines variations population legislative districts upheld must determine turning justifications asserted defense variations free taint arbitrariness discrimination ante quoting roman sincock appellees alleged district legislature reapportionment plan indeed discriminate one region state northern virginia suburbs washington house seat northern virginia underrepresented average plan several underrepresented much view termed pervasive districts northern virginia district ordered transfer one delegate systematically overrepresented tidewater region northern virginia abate mundt supra pointed never suggested certain geographic areas political interests entitled disproportionate representation accordingly underscored danger apportionment structures contain bias tending favor particular geographic areas political interests necessarily tend favor example less populous districts highly populated neighbors see hadley junior college district even assuming commonwealth plan considered free taint arbitrariness discrimination appellants failed meet burden justifying inequalities insist legislature followed consistent practice drawing district lines conformity county boundaries showing state followed practice still long step necessary showing state must follow practice neither virginia constitution act assembly virginia explicitly indicated interest preserving integrity county lines providing representation political subdivisions political subdivisions cf reynolds sims supra contrary constitution establishes single standard legislative apportionment congressional districting standard requires lines drawn insure nearly practicable representation proportion population origins constitutional provision make clear equality district population representation political subdivisions commonwealth goal moreover asserting interest preserving integrity county boundaries commonwealth offers nothing vague references local legislation without describing legislation precision without indicating whether legislation amounts significant proportion legislature business without demonstrating district plan materially affect treatment legislation assumes county representation important goal virginia reapportionment plan ante appellants suggest plan justified least part effort give independent voice cities counties legislature daily governs brief appellant commonwealth virginia county representation indeed commonwealth goal apportionment plan adopted falls far short objective appellants describe problem following terms plan situation arise citizens wythe county virginia placed sixth legislative district opposed local legislation pending general assembly county must voice opposition delegates representing persons sixth legislative district composed counties carroll floyd montgomery city radford rather oppose fellow citizens wythe county brief appellant commonwealth virginia even substantial number issues impact primarily single county even issues deep concern voters still follow legislature apportionment plan rational attempt serve important state interest plan means provide even legislature terms effective representation county thus fourth legislative district elect one delegate plan consists wythe grayson bland counties along city galax yet wythe county alone according appellants figures comprises persons resident district since wythe county makes almost population fourth district district delegate likely champion wythe county cause issue arise pits interest interests grayson bland county city galax short best said appellants efforts secure county representation plan effective respect unspecified likelihood small number issues affect single county overwhelmingly important voters county even provides effective representation affected county represents large enough percentage voters district significant impact election delegate even county representation fact strong legitimate goal commonwealth even plan represent rational effort serve goal still clear legislature plan upheld plan prepared district achieve much higher degree equality district population accomplish salutary goal minimal disruption legislature effort avoid fragmenting counties political subdivisions commonwealth divided district plan significant number persons resident voting districts cut one county city shifted another total state population thus even making logical empirical assumptions implicit view violating county lines effectively disenfranchise certain persons certain local issues number persons affected still less total state population iv record without showing specific need county representation showing representation meaningfully provided small counties whose votes submerged district see basis whatsoever upholding assembly plan resulting substantial variations district population accordingly affirm judgment district holding plan invalid equal protection clause fourteenth amendment full extent deviation may fact substantially excess appellees maintain appellants seemingly concede see infra see avery midland county reynolds sims roman sincock see cummings meskill supp maximum deviation house senate legislative districting general assembly house senate graves barnes supp wd tex troxler john baptist parish police jury supp ed la legislative districting general assembly house senate driggers gallion supp md least skolnick illinois state electoral supp nd house senate long docking supp supp deviations absolute equality population arrived redistricting house ranged plus minus total variance noted however district floater shared cities chesapeake portsmouth virginia beach one instance increased total variation emphasis supplied see also reply brief appellant city virginia beach deviation slightly excess floterial districts weighted according appellees method calculation supp isolated district comprises accomack northampton counties counties known eastern shore separated mainland virginia chesapeake bay atlantic ocean contiguous state maryland district overrepresented reynolds sims supra basic principle representative government remains must remain unchanged weight citizen vote made depend lives population necessity starting point consideration controlling criterion judgment legislative apportionment controversies see also apportionment provision indiana constitution whitcomb chavis senatorial representative district one county shall constitute district shall composed contiguous counties county senatorial apportionment shall ever divided art emphasis supplied prior amendment constitution provided general assembly shall law apportion state districts corresponding number representatives may entitled house representatives congress districts shall composed contiguous compact territory containing nearly practicable equal number inhabitants time constitution provided respect legislative apportionment present apportionment commonwealth senatorial house districts shall continue reapportionment shall made year nineteen hundred every ten years thereafter plainly adoption provision art ii sets single standard govern legislative districting congressional apportionment indicates minds draftsmen considerations apply two situations see commission constitutional revision report constitution virginia reason make distinction general assembly congressional apportionment reason proposed section art ii combines provisions sections common set principles applies apportionment legislative seats congressional seats appellants maintain ocal governments carry much various responsibilities state government well direct concern enactment numerous local legislative enactments alone justifies virginia tradition adherence political jurisdictions moreover revised virginia constitution allows first time special local legislation counties well cities revised constitution virginia article vii section provisions permit counties constitutional flexibility formerly afforded cities providing services citizens brief appellant commonwealth virginia realize goal county representation course necessary accord county least one representative case virginia plan implemented without generating vast unconstitutional disparities population districts plan clearly justified invoking federal analogy see reynolds sims supra