HomeMy WebLinkAbout(0060) RESOLUTION - Redistricting Task ForceA RESOLUTION
NO. 5375-04-2021
ACCEPTING THE FINAL REPORT OF THE REDISTRICTING TASK FORCE
AND ESTABLISHING CRITERIA AND PROCEDURES
FOR REDRAWING DISTRICT BOUNDARIES
WHEREAS the City Council on August 4, 2020, adopted Resolution No.
5259-08-2020, appointing a Redistricting Task Force (Task Force) and charging the
Task Force with responsibility for advising the Council about the criteria and
procedures by which the Council should redraw its district boundaries after the U.S.
Bureau of the Census has published block -level population data from the 2020
census; and
WHEREAS the Task Force has completed its assigned work and presented its
final report to the City Council at the Council's regular work session on March 2,
2021; and
WHEREAS the Task Force's final report consists of the presentation titled
"Final Report of the Redistricting Task Force," dated March 2, 2021, and attached
hereto as Exhibit A; and
WHEREAS the City Council wishes to accept the Task Force's findings and
recommendations as set forth in the final report and, accordingly, to use certain
criteria and procedures as described in this resolution to redraw its district boundaries;
and
WHEREAS the City Council wishes to engage Task Force members in the
redistricting process, even after the Task Force has accomplished its purpose and
ceased to exist as a formal entity;
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF
THE CITY OF FORT WORTH, TEXAS, as follows:
1. That the City Council accepts the final report of the Redistricting Task Force and
declares its intent to use the following criteria and procedures in redrawing its
district boundaries.
a. Criteria
(I)High-priority criteria, not in any order of priority
(a) Approximately equal size: The populations of all districts shall be
approximately equal. In no event shall the population of the largest
district be more than ten percent greater than the population of the
smallest district.
(b) Legal compliance: The redrawing of district boundaries shall comply
with the U.S. Constitution, the Voting Rights Act, the Texas
Constitution, and other applicable laws to avoid impermissible packing,
fragmentation, or retrogression in the ability of minorities to participate
in the electoral process.
(c) Minority opportunity districts: The City shall create minority
opportunity districts, to the extent possible and in compliance with
federal law, to reflect the City's growing diversity. Such districts are
intended to create opportunities for fair representation rather than to
promote electoral outcomes. Electability is a function of many factors,
including candidate qualifications, appeal to voters, voting -age
population, voter registration, and voter participation as well as
demographic characteristics.
(d) Communities of interest: The City shall contain communities of interest
in single districts, where feasible, with community of interest defined as
a local population with shared socio-economic characteristics and
political institutions that would benefit from unified representation.
Communities of interest may include neighborhoods, groups of
neighborhoods, school attendance zones, and similar geographic areas.
(e) Contiguous territory: To the extent feasible, each district shall consist
of contiguous territory.
(2) Lower -priority criteria, not in any order of priority
(a) Compactness: Each district shall be geographically compact, with the
goal of attaining a Polsby-Popper ratio greater than or equal to 0.050.
If any proposed district yields a compactness score that is less than
0.050, then a detailed justification must be stated.
(b) Identifiable geographic boundaries: District boundaries shall consist of
easily identifiable geographic features, such as streams, railroad tracks,
and major thoroughfares to the extent feasible. To the extent possible,
dwelling units that are located on opposite sides of the same residential
street shall be assigned to the same district.
(c) Voting, precincts: Districts shall consist of whole voting precincts,
where feasible.
(d) Census blocks and block -groups: To the extent possible, districts shall
consist of whole census blocks.
(e) Places of residence: In redrawing district boundaries, the City shall not
consider the place of residence of any incumbent or potential candidate.
b. Procedures: The process of redrawing Council district boundaries shall
promote public participation and transparency as follows.
(1)Registration for communities of interest: The City Council requests the
City Manager to establish a registration process whereby interested
residents might self -identify communities of interest and the geographic
boundaries of such communities. This process shall be voluntary and
advisory in nature and should occur during the months of April through
September 2021, before redistricting begins.
(2) Resident -produced redistricting plans: The City Council requests the City
Manager through appropriate staff to provide redistricting software training
for interested residents during the months of April through September
2021, to assist residents in preparing redistricting plans during the months
of October and November 2021, to analyze such plans submitted by
residents, and to brief the Council about the merits of such plans, including
the extent to which they meet the City Council's adopted criteria.
(a) No later than the end of April 2021, City staff shall publish a catalog of
training resources, including a schedule of classes in which staff will
train interested residents on the use of ESRI redistricting software.
(b) Residents will be able to download the redistricting software and use it
on their private computers. City staff will specify hardware and
software requirements for using this software on private computers.
(c) Residents will also be able to use the redistricting software on public
computers at designated libraries and community centers and at other
suitable locations.
(d) No demographic data available in the redistricting software shall refer
to the party affiliations of registered voters.
(e) After City staff assesses the extent to which each resident -produced
plan meets the City Council's adopted criteria, staff shall discuss its
findings directly with the residents who produced each such plan.
(3) Selection of initial map as starting point for further mapping: The City
Council shall designate one of the maps submitted to the Council by City
staff, or by residents and resident groups, to serve as the starting point for
further map drawing deliberations.
(4) Rationale for proposed changes to initial map: After the City Council has
selected an initial map as the starting point for map drawing deliberations,
all changes to the initial map shall include a statement explaining the
rationale for each such change and the impact of such change on all of the
redistricting criteria established by the Council.
(5) Redistricting as a single agenda item: All map drawing meetings of the
City Council shall be conducted as separate meetings with no other items
on the meeting agenda and at least ten (10) days public notice shall be
given in advance of each such meeting.
(6) Public hearings
(a) During the month of January 2022, a quorum of the City Council shall
conduct at least two in -person, virtual, or hybrid public hearings,
including:
(i) At least one hearing after the Council has received plans from
residents and City staff, but before the Council selects an initial map
as a starting point for map drawing deliberations; and
(H)At least one hearing after the Council has selected an initial map but
before the Council considers any changes to that map.
(b) During the month of April 2022, after the City Council has produced a
proposed map, a quorum of the Council shall conduct at least four in -
person, virtual, or hybrid public hearings before adopting the proposed
map. At least one of these public hearings shall be conducted for each
of four pairs of existing adjacent districts.
(7) Transparency: The City Council shall conduct all deliberations about
redistricting in official meetings, subject to all provisions of the Texas
Open Meetings Act. Any communications about map drawing among City
Council members shall occur in such meetings, with any relevant computer
screen visible to the Council and public observers.
2. That the City Council acknowledges the following recommendations by the
Redistricting Task Force but defers action on these recommendations pending
consideration after the 2021 municipal elections.
a. Plans to be produced by consultant(s): The City shall retain one or more
consultants to propose an initial map or maps applying the criteria adopted by
the Council, such map or maps to be considered, along with initial maps
proposed by City staff and residents or resident groups, as a starting point for
further map drawing deliberations.
b. Charter review task force: The City Council shall appoint a charter review task
force that would study and make recommendations concerning the advisability
of establishing an independent redistricting commission. Upon formation, the
charter review task force shall, after providing for full and meaningful public
participation, submit its recommendations to the City Council in time for
redistricting to proceed on an orderly basis promptly after the 2030 federal
census.
3. That the City Council requests the City Manager to arrange a joint work session
of the Council and Task Force members for an appropriate date, time, and
location after the U.S. Bureau of the Census has published block -level population
data from the 2020 census but before the Council has begun the redistricting
process.
Adopted this 6th day of April 2021.
ATTEST:
M�'
Mary J. Kayser, City Secretary
FINAL REPORT OF THE REDISTRICTING TASK FORCE
Lorraine Miller, Chair
Linda Kennedy
Sal Espino
March 2, 2021
Members
Place 1:
Place 2:
Place 3:
Place 4:
Place 5:
Place 6:
Place 7:
Place 8:
Place 9:
Place 10:
Place 11:
Redistricting Task Force
Lorraine Miller (Chair)
Salvador Espino
Graham Norris
Craig Allen
Bert Williams
Linda Kennedy
Tony DeVito
Tracy Scott
Kent Bradshaw
Bill Schur
Teresa Ayala
Staff
City Manager's Office
City Secretary's Office
Law
Planning and Data Analytics
Information Technology Solutions
Communications and Public Engagement
Diversity and Inclusion
Resolution No. 5259-08-2020, Appointing a Redistricting Task Force
Adopted August 4, 2020
"The Redistricting Task Force is charged with
evaluating the criteria and procedures by
which the City Council has redrawn Council
district boundaries in the past and,
accordingly, advising the City Council about
redistricting criteria and procedures that the
City Council should use in the future."
Why are we redistricting?
• To ensure that districts contain roughly equal populations as required
by federal law.
• To create two new districts, as required by the City Charter, in view of
Fort Worth's rapid growth.
i
4
2,000,000
1,800,000
1,600,000
1,400,000
1,200,000
1,000,000
800,000
600,000
400,000
200,000
0
1950
Population Growth, 1950-2045:
Fort Worth, Dallas, and Arlington
1960 1970 1980 1990 2000 2010 2020 2030 2040
—Fort Worth —Dallas —Arlington
Sources: U.S. Census Bureau estimate for July 1, 2019; NCTCOG 5
...
,326
,260
Population by Council District, 2019
Citywide Total = 909,585
District Average = 113,698t
District 7 = 135.4231 (16% above average)
District 9 = 101,952 (12% below average)
'Based on U.S. Census ACS 5-Year Estimates (2015-2019)
tAdjusted Values per Annual 2019 1-Year Estimates
Keoistrlcting uata - Population Estimates -
Total Population
101,952
. 105,560
- 108,011 .�
108.390
113,974
r 120,637 Y
135,231
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1. Prevent gerrymandering
Three Broad Goals
2. Provide best opportunities to elect Council members
who reflect Fort Worth's diverse population
3. Promote education and public participation
?AIL-
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Other Races
6%
Hispanic
34%
' African 1
American
18%
Race/Ethnicity, 2010 Census
Task Force Schedule, August — December 2020
Month
Activity
August
City Council adopts resolution appointing Redistricting Task Force.
Staff presents informational briefings.
o Task force charge
September
o Open Meetings Act training
o Redistricting history and schedule
o Legal basis for redistricting
o Demonstration of redistricting software
Task force interviews representatives from Austin and San Antonio.
October
Staff presents additional informational briefings.
o Voting Rights Act
o Local demographic trends
Staff provides task force with additional demographic data.
November
Task force discusses preliminary findings.
Task force discusses arrangements for Redistricting 101 seminar and public hearings.
December
Task force presents interim report to City Council.
Task Force Schedule, January — April 2021
Month
Activity
Task force chair and staff present virtual Redistricting 101 seminar.
January
Task force conducts series of three virtual public hearings.
Task force discusses comments from public hearings, agrees on final recommendations.
February
Task force members review and comment on draft final report.
Interested task force members submit minority report.
Tuesday, March 2, 3:00 p.m.: Task force presents final report to City Council.
March
Tuesday, March 9, 7:00 p.m.: City Council authorizes contract with outside counsel.
Outside counsel reviews and comments on proposed criteria and procedures.
Tuesday, April 6, 7:00 p.m.: City Council adopts resolution accepting final report and establishing
April
criteria and procedures.
Public Participation in Task Force Activities
Event
Facebook
Views
Webex
Participants
Speakers
Written
Statements
September 17 meeting
--
--
2
--
October 22 meeting
--
--
9
1
November 19 meeting
--
--
10
4
January 4 seminar
2,550
--
--
17
January 11 hearing
2,971
65
11
5
January 19 hearing
1,983
19
3
1
January 21 hearing
2,530
58
20
11
10
Most Common Themes Expressed in Public Comments
1. Desirability of creating an independent redistricting commission
2. Need for greater public participation
3. Need for greater transparency
11
Proposed Redistricting Criteria
High Priority: Not in any order of priority
1.
Approximately equal size: Population of largest district < 10 percent more than population of smallest district
2.
Compliance with U.S. Constitution, Voting Rights Act, Texas Constitution, and other applicable laws, with no packing
of minority voters, no fragmentation of minority communities, and no retrogression in ability of minorities to
participate in electoral process
3.
Create minority opportunity districts, in compliance with federal law, to reflect growing diversity of City. Such
districts -- in which African Americans, Hispanics, and other minorities collectively represent fifty percent or more of
the voting -age population -- are intended to create opportunities for fair representation rather than to promote
electoral outcomes. Electability is a function of many factors, including candidate qualifications, appeal to voters,
voting -age population, voter registration, and voter participation as well as demographic characteristics.
4.
Contain communities of interest in single districts, with community of interest defined as "a local population with
shared socio-economic characteristics and political institutions that would benefit from unified representation."
Communities of interest may include neighborhoods, groups of neighborhoods, school attendance zones, and similar
geographic areas.
5.
Contiguous territory
12
Proposed Redistricting Criteria (continued)
Lower Priority: Not in any order of priority
6.
Compact districts, with goal of Polsby-Popper ratio > 0.050. If any proposed district yields a compactness score that is
less than 0.050, then a detailed justification must be stated.
7.
Identifiable geographic boundaries, such as streams, railroad tracks, and highways. To the extent possible, dwelling
units that are located on opposite sides of the same residential street shall be assigned to the same district.
8.
Contain whole voting precincts
9.
Contain whole census blocks or block groups
10.
Do not consider place of residence of incumbents or potential candidates
13
Why does a majority of the task force at this time favor the current
procedure whereby elected officials draw the Council districts map?
• The City Council has already addressed the issue of an
independent redistricting commission and has been clear
about its intent not to create such a commission.
• The task force has not analyzed the pros and cons of an
independent redistricting commission in any depth.
• This issue is too important to make a hasty decision.
• A charter review task force should study this issue carefully
and make recommendations in advance of the 2030 census.
14
Why does a majority of the task force not support certain proposed
restrictions on communications among City Council members?
• The majority of the task force recommends that the
redistricting process be as transparent as possible,
without being so restrictive that productive
communications will become impractical.
enc
• Certain proposed restrictions on written, electronic, Transpary Practicality -
and oral communications among City Council members
would be overly burdensome and would not provide
commensurate public benefits.
15
Proposed Redistricting Procedures
1. Registration for communities of interest
2. Resident -produced redistricting plans
I Plans to be produced by independent contractor
4. Selection of initial map as starting point for further mapping
5. Rationale for proposed changes to initial map
6. Redistricting as a single agenda item
7. Public hearings
• At least one hearing after City Council has received plans from residents, independent contractor, and
staff, but before Council selects initial map as starting point for map drawing deliberations
• At least one hearing after City Council has selected initial map, but before Council considers any
changes to that map
• At least four hearings after the City Council has produced a proposed map
8. Transparency: Any communications to occur in official meetings.
9. Charter review task force
16
Proposed Redistricting Schedule, April — September 2021
Month
Activity
April through September
2021
Staff provides software training for interested residents, using unofficial population
estimates pending release of official population counts.
Residents register communities of interest for redistricting purposes.
City hires independent contractor to propose initial map in compliance with criteria.
May
City conducts 2021 election.
August
City Council and Redistricting Task Force members hold joint work session.
September 30
Census Bureau releases block -level census data for state and local redistricting.
Proposed Redistricting Schedule, October 2021— May 2023
Month
Activity
Residents and independent contractor prepare and submit redistricting plans to City staff.
October and November
Staff assesses extent to which each plan meets adopted criteria and discusses its findings
2021
with pertinent residents. Staff prepares its own plan, drawing upon features of resident and
contractor plans.
December
Staff briefs City Council about redistricting plans prepared by residents, contractor, and staff.
City Council conducts at least one public hearing on redistricting plans.
City Council selects initial map.
January 2022
City Council conducts at least one public hearing before considering any changes to initial
map.
February and March
City Council produces proposed map.
April 2022
City Council conducts four or more public hearings, including one for each pair of existing
adjacent districts, and adopts proposed map.
Mid -July 2022: 180 days
before qualifying begins for
Deadline for candidates to establish residency within Council districts that they wish to
May 2023 municipal election
represent.
Mid -January to mid -
Candidates file for places on 2023 municipal election ballot.
February 2
May 2023
City conducts 2023 election. io
Minority Report
o Independent Redistricting Commission
o Transparency
o Criteria Adjustments
19
Independent Redistricting Commission
(Ayala, Bradshaw, Espino, Schur, and Scott)
After the May 2021 election and the June 2021 runoff, by ordinance or resolution, create an
Independent Redistricting Commission to manage the process of remapping Fort Worth City
Council districts before the May 2023 City Council election, with the final redistricting map
subject to City Council approval by ordinance.
According to Texas redistricting expert Steve Bickerstaff (1946-2019),
an independent redistricting commission is more likely to:
• Choose unbiased staff based on merit,
• Make decisions based on redistricting criteria alone,
• React responsibly and openly to public comment,
• Be transparent in its decision -making, and
• Hear witness testimony and legal advice.
"Therefore, it is not surprising that independent city commissions have generally won public plaudits."
20
Transparency
(Ayala, Bradshaw, Espino, and Schur)
All written and electronic communications between the Mayor and Council members
with City staff and any contractor(s) retained by the City to propose initial redistricting
maps or map changes shall be recorded and preserved as public records and made
available to the members of the public on request.
All oral communications between the Mayor and Council members with City staff and
any contractor(s) retained by the City relating to proposed initial redistricting maps or
map changes shall be documented, and such documented communications shall be
recorded and preserved as public records and made available to the public on request.
• All communications between two or more Council Members relating to the choice of the
initial redistricting map that will serve as a starting point for map drawing deliberations,
and all communications between two or more Council Members relating to proposed
changes to the initial map, shall occur at public map drawing meetings with computer
screens visible to all parties.
21
Criteria Adjustments
• Reclassify Criteria (Espino and Schur)
✓Highest -priority criteria: Approximately equal size and legal compliance.
✓Additional high -priority criteria: Minority opportunity districts, communities of interest,
and contiguous territory.
✓Lower -priority criteria: Compactness, identifiable geographic boundaries, census blocks and
block groups, and places of residence.
• Minority Opportunity Districts (Espino and Schur)
✓Make expressly subject to highest -priority requirements of approximately equal size and
legal compliance.
✓Add the word "meaningful" to state the purpose as being "...intended to create meaningful
opportunities for fair representation rather than to promote electoral outcomes."
• Compactness Measures (Bradshaw): Do not use Polsby-Popper ratio as the only
measure of compactness.
• Voting precincts (Espino and Schur): Delete this criterion.
22
Next Steps
• Tuesday, March 9, 7:00 p.m.: City Council authorizes contract with outside counsel,
which shall review and comment on proposed criteria and procedures.
• Tuesday, April 6, 7:00 p.m.: City Council adopts resolution accepting final report and
establishing criteria and procedures.
Questions?