• Politicians. That's why they're so screwed up. Just look up the word "Gerrymandering".
  • State Legislatures. Gerrymandering is indeed a by-product, and sometimes the original intent, of the legislatures. But unless a court finds the districts exceptionally egregious, they are whatever the state legislature decides. In many cases, the two parties get together and produce gerrymandered "safe districts" for many of their respective candidates.

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