Minnick v. California Dept. of Corrections Brief Amicus Curiae City of Detroit

    No. 79-1213

In  the

£§>upnw UJnurt nf lb? lluiti'b States
October Term, 1980

W ayne Minnick , Henry J. Darden, California 
Correctional Officers A ssociation,

Petitioners,
-Y.----

California Department o f  Corrections, et al.,

Respondents.

ON WRIT OF CERTIORARI TO THE CALIFORNIA COURT OF APPEALS 
FIRST APPELLATE DISTRICT— DIVISION FOUR

BRIEF FOR AMICUS CURIAE 
CITY OF DETROIT

Jack Greenberg 
Eric Schnapper 
O. Peter Sherwood 
Beth L ief

Patrick 0. P atterson 
Judith Reed 
Deborah F ins

10 Columbus Circle 
New York, New York 10019

Barry L. Goldstein

806 15th Street, N.W.
Suite 940
Washington, D.C. 20005 

Attorneys fo r Amicus Curiae

Charles Stephen Ralston 
10 Columbus Circle 
New York, New York 10019 
(212) 586-8397

Counsel of Record 
fo r Amicus Curiae



TABLE OF CONTENTS

In te r e s t  o f  Amicus .........................................  1

Summary o f  Argument ........................................ 3

Argument ............................................ ..................  5

I .  The Questions Presented By
Respondents'  Actual Employment
Pract ices  Are Not The Questions
Asserted By P e t i t i o n e r s  ..................  5

A. H ir ing  .........................................  8

B. Promotions .................................  13

I I .  Respondents'  P rac t ices  Are
Necessary to Maintain Secur ity
At C a l i f o r n i a ' s  Correc t iona l
In s t i tu t io n s  .........................................  25

I I I .  The A f f i rm a t i v e  Act ion Plan 
Was J u s t i f i e d  As A Method Of 
Overcoming The E f f e c t s  Of
Past Discr iminat ion ...........................  50

IV. This Court Should Consider 
A l l  Evidence O f fered  In the
T r i a l  Court ....................................   57

Conclusion .......................................................... 61

Page

l



TABLE OF AUTHORITIES

Cases

Page

Arnold v. Ba l lard ,  390 F. Supp.
723 (N.D. Ohio 1975), a f f ' d ,
12 FEP Cases 1616 (6th Cir .
1976), vacated and remanded on 
other grounds, 16 FEP Cases 396 
(6th Cir.  1976) ................................. 45,46

Baker v. C ity  o f  D e t r o i t ,  483 
F. Supp. 933 (E.D. Mich.
1979) ...... ...............................................

Bateman v. Ar izona,  429 U.S.
1302 (1976) .......................................... 12

B e l l  v. Wol f ish ,  441 U.S. 520
(1979) .................................................... . .  48,50,56

Bridgeport Guardians Inc. v.  
Bridgeport C i v i l  Serv ice  
Commission, 482 F .2d 1333 
(2d Cir .  1973), c e r t ,  
denied, 421 U.S. 991 (1975 )_____ 45,46

Cruz v. Beto, 405 U.S. 319
(1972) .................................................... 56

Dayton Board o f  Education v.
Brinkman, 433 U.S. 406
(1977) ................................................... 46

DeFunis v. Odegaard, 416 U.S. 
312 (1974) ......................... 5



Page

D etro i t  P o l i c e  O f f i c e r s  Assoc ia ­
t ion ,  et a l .  v. Coleman A.
Young, et a l . , N o .79-1080 ................. 2

East Texas Motor F re igh t  System,
Inc. v.  Rodriguez, 431 U.S.
395 (1977) ...............................................  11

Franks v. Bowman Transportat ion
Co. , 424 U.S. 747 (1976) ................... 46

F u l l i l o v e  v. K lutzn ick,
U.S. , 65 L .E d .2d "
902 (1980) ................................................ 5,46,50

Green v. County School Board,
391 U.S. 430 (1968) .............................  56

Jones v. North Carolina
P r i s o n e r s ' Union, 433
U.S. 119 (1977) .....................................  48,49

Lee v. Washington, 390 U.S.
333 (1968) ...............................................  48,56

Louisiana v. United States,
380 U.S. 145 (1965) .............................  56

M i l l ik en  v. Bradley, 433 U.S.
267 (1977) ...............................................  46,56

NAACP v.  A l l en ,  493 F .2d 614
(5th Cir .  1974) .....................................  45,46

P e l l  v. Procunier,  417 U.S. 817
(1974) ........................................................ 33,48

- iii -



Page

Procunier v. H i l l a r y ,  No.
73-754 ................... ........................ .. ......... 50

Procunier v. Martinez,  416
U.S. 396 (1974) ..................... .. ........... .. 48,50

Regents o f  the U n ive rs i ty  o f  
C a l i f o rn ia  v. Bakke, 438
U.S. 265 (1978) ...... .............................. 5,13,44,46

S ie r ra  Club v. Morton, 405
U.S. 727 (1972) ...... ................ .............. 12

T ra f f i c a n t e  v. Metropo l i tan  
L i f e  Ins. C o . , 409 U.S.
205 (1972) ................................................ 11

United Steelworkers o f
America v. Weber, 443 U.S.
193 (1979) ......................................... . . .  5,50

Will iams v. Georgia, 349
U.S. 375 (1955) ......................    59

W o l f f  v.  McDonnell, 418
U.S. 568 (1974) .....................................  38

Const i tu t ion  & Statutes

A r t i c l e  I I I ,  United States
Const i tut ion  ............................................ 12

Fourteenth Amendment, United
States Const i tu t ion  .............................. 44

C a l i f o r n ia  Code o f  C i v i l
Procedure, §909 .....................................  58

- iv -



Page

Other Author i t i e s

American Prisons In Turmoil,
Hearings be fore  the House 
Se lect  Committee on Crime,
92nd Cong., 1st and 2nd
Sess. (1971 and 1972) .........................

Assoc ia t ion  o f  State  C orrec t iona l  
Admin is trators,  Uniform 
Correc t iona l  P o l i c i e s  and 
Procedures (1972) ...............................36,37

A t t i c a ,  The O f f i c i a l  Report of  
the New York State  Com­
mission on A t t i c a  (Bantam 
Ed., 1972) .......... ....................................

Convention on the E l im inat ion of
Discr iminat ion Against Women, 
opened f o r  s ignature Dec. 18,
1979, U.N. Doc. A. RES/34/180 
(1979), signed by the U.S.
July 11, 1980 .........................................

Final  Report o f  Joint Commission 
on Correc t iona l  Manpower and 
Tra in ing,  A Time To Act 
(October 1969) .......................................

42,49

40,41

41,49

51

37,43

v



Page

Higginbothom, J . ,  "From the Outside 
Looking In: Is Yes terday 's  
Racism Relevant to Today 's 
Correc t ions? " ,  Outside Looking 
In, A Ser ies  o f  Monographs 
Assessing the E f fe c t i v en es s  
of  Correct ions ,  Law Enforcement 
Assis tance Administrat ion ,
U.S. Department o f  Just ice
(A p r i l  1970) ................................... .. 42

The In te rna t iona l  Convention on the 
E l iminat ion o f  A l l  Forms o f  
Rac ia l D iscr iminat ion,  adopted 
Dec. 21, 1965, G.A. Res. ,  2106 
A, 20 U.N. GAOR, Supp. (N o .14)
47, U.N. Doc. A/1604 (1965) 
signed by the U.S. on Sept. 28,
1966 [Executive C. 95-2].
Transmitted to Senate, Feb. 23,
1978, c i t e d  in 4 T rea t ies  
Per ta in ing  to Human Rights ,
Message from the Pres, to the 
Senate, 95th Cong., 2nd Sess. ,
U.S. Gov ' t  P r in t in g  O f f i c e
1978 ..................... .......................... ............ 51

Joint Commission on Correc t iona l  
Manpower and Tra in ing,
Corrections 1968, A Climate
For Change (1968) .................................  43

Kutak, "New D irect ions  in
Correct ions,  Summary o f  
Workshop I I I  Reports , "
National Conference on 
Correct ions ,  Wil l iamsburg,
V i r g in ia  (Dec. 5-8, 1971) .......... .. 42

- vi -



Manpower fo r  Correct ions ,  Group 
Discussion Papers, Workshop 
I I ,  Nat ional Conference on

Page

Correct ions,  Wil l iamsburg, 
V i r g in ia  (Dec. 5-8, 1971) . . . . ........  42

McGee, "Manpower fo r  Corrections 
Summary o f  Workshop I I  
Reports, Nat ional  Conference 
on Correct ions ,  Wil l iamsburg, 
V i r g in ia  (Dec. 5-8, 1971) . . . . ........  42,49

M i tch e l l ,  "New Doors, Not Old
W a l l s , "  National  Conference 
on Correct ions ,  Wil l iamsburg, 
V i r g in ia  (Dec. 5-8, 1971) . . . . ____ 42

National  Advisory Commission on 
Criminal Just ice  Standards 
and Goals, Report on 
Corrections (1973) ..................... .37,40,41,43,49

National  Conference on
Correct ions,  Wil l iamsburg, 
V i r g in ia  (Dec. 5-8, 1971)........ ____37,41,42,43

Pepper, Prisons In Turmoil,
36 Federal Probation,
No. 4 (Dec. 1972) ....................... ______ 42

The P re s id en t ' s  Commission on 
Law Enforcement and 
Adminis tration o f  Justice ,
Task Force Report:  The 
Po l ic e  (1967) ............................... ........  32

- VI 1 -



Page

Procunier , "The Dilemma o f  Prisons 
National Conference on
Correct ions ,  Wi l l iamsburg,  
V i r g in ia  (Dec. 5-8, 1971) ............ . .  27,29,41

Report o f  the Nat ional Advisory 
Commission on C i v i l  
Disorders (1968) ............................... 32

S e r r i l l ,  " P r o f i l e / C a l i f o r n i a " ,
1 Correct ions Magazine No. 1 
(Sept. 1974) ....................................... 26,29

Skoler  and Loewenstein,
M in o r i t i e s  in Correct ion ,  
Nondiscrimination, Equal 
Opportunity and Legal 
Issues, 20 Crime and 
Delinquency, No. 4,
(Oct. 1974) ......................................... . .  37,42,49

The Task Force to Study
Vio lence,  Report and 
Recommendations (May, 1974) ........ . .  31,41,49

-  V I 11 -



No. 79-1213

IN THE

SUPREME COURT OF THE UNITED STATES 

October Term, 1980

WAYNE MINNICK, HENRY J. DARDEN, 
CALIFORNIA CORRECTIONAL OFFICERS 
ASSOCIATION,

P e t i t i o n e r s ,

v.

CALIFORNIA DEPARTMENT OF CORRECTIONS, 
et a l . ,

Respondents.

On Writ o f  C e r t i o ra r i  to  the C a l i f o rn ia  
Court of  Appeals 

F i r s t  Appe l la te  D i s t r i c t  
D iv is ion  Four

BRIEF FOR AMICUS CURIAE 
CITY OF DETROIT

In te res t  o f  Amicus *

The C i t y  o f  D e t r o i t ,  on whose b e h a l f  t h i s  

b r i e f  is  f i l e d ,  i s  a m u n i c ip a l i t y  whose law

* L e t te rs  o f  consent to the f i l i n g  o f  th is  B r ie f  
from counsel fo r  the pe t i t ione rs  and respondents 
have been f i l e d  w i th  the C le rk  o f  the Court.



2

enforcement agenc ies , p a r t i c u la r l y  i t s  Department 

o f  P o l i c e ,  have worked hard to  overcome past  

d iscr im inat ion against  m inor i t ies  and women, and 

the d e b i l i t a t in g  e f f e c t s  that d iscr im inat ion has 

had on the a b i l i t y  o f  the p o l i c e  to o p e r a t e .  

The in t e r e s t  o f  the C i ty  o f  De t ro i t  stems from 

the fac t  that i t  has in s t i tu ted  an a f f i rm a t iv e  

a c t i o n  p lan  in  i t s  Department o f  P o l i c e .  The 

outcome o f  th is  case may have a cruc ia l  impact on 

the c o n s t i tu t i o n a l i t y  o f  that plan. S p e c i f i c a l l y ,  

pending be fore  th is  Court i s  a P e t i t i o n  f o r  Writ 

o f  C e r t i o r a r i  in  a case  which r a i s e s  issues  

s im i la r  to those posed here, namely, whether the 

C ity  o f  D e t r o i t ' s  a f f i rm a t iv e  act ion plan fo r  the 

Department o f  P o l i c e  is a c on s t i tu t io n a l l y  per­

miss ib le  method o f  overcoming past in ten t iona l  

d i s c r i m in a t i o n  and o f  m ee t ing  the  com pe l l in g  

operat ional  need o f  the Department to safeguard 

the  community and to  m a in ta in  o r d e r .  D e t r o i t  

P o l i c e  O f f i c e r s  Assoc iat ion ,  et a l .  v. Coleman A. 

Young, et a l . , No. 79-1080. Counsel fo r  the C ity  

o f  D e t ro i t  are attorneys employed by the NAACP 

Legal Defense and Educational Fund, Inc.



SUMMARY OF ARGUMENT

The threshold problem posed by th is  case is 

to determine what race-conscious pract ices  respon­

dents  a c t u a l l y  u t i l i z e d .  The p a r t i e s  are in 

disagreement about th is ,  and the courts below made 

few re levant  f indings.  Because o f  the fragmented 

and con fu s in g  na ture  o f  the r e c o rd ,  we have 

descr ibed i t s  contents in d e ta i l .  In awarding 

promotions respondents did consider the race and 

sex o f  a p p l i c a n t s ,  but on ly  i f  both  ( a )  the 

minor ity  or female was as q u a l i f i e d  as the best 

q u a l i f i e d  white or male, and (b )  there was in fac t  

an operat ional need fo r  a minor ity  or female in 

the pa r t icu la r  pos i t ion  to be f i l l e d .  The record 

does not support p e t i t i o n e r s ' claim that respon­

dents reserved ce r ta in  pos it ions fo r  m inor i t ies  or 

women.

Department o f  Corrections o f f i c i a l s  reason­

ably concluded that there was a c r i t i c a l  need for  

m in o r i t y  c o r r e c t i o n s  o f f i c e r s .  Wardens and 

superintendents from s ix  C a l i fo rn ia  penal i n s t i t u ­

tions,  together with the present and past d i r e c ­

tors o f  the Department, stated that s ign i f i c a n t



numbers o f  m in o r i t y  o f f i c e r s  were r e q u i r e d  to  

m a in ta in  c o n t r o l  o f  the  p r i s o n s .  Every  year  

from 1970 t o  1974 an average  o f  25 inmates or 

guards were being k i l l e d  in C a l i f o r n i a ’ s prisons, 

and much o f  t h i s  v i o l e n c e  was r a c i a l .  To a 

substant ia l degree th is  dangerous ra c ia l  atmos­

phere had been caused by overt  d iscr iminat ion and 

b igo t ry  on the part o f  white guards. Experience 

demonstrated that minority  o f f i c e r s  were essen t ia l  

f o r  avoiding or  c on t ro l l in g  race r i o t s  and other 

ra c ia l  inc idents .  Minori ty  o f f i c e r s  were also 

b e t t e r  able to es tab l ish  the sort o f  construct ive  

re la t ionsh ips  with minority  inmates necessary for  

maintaining con tro l  o f  the in s t i tu t ion s .
The Department of  Corrections also adopted 

i t s  a f f i rm a t iv e  act ion  p o l i c i e s  to overcome the 

e f f e c t s  o f  past d iscr im inat ion against minor i t ies  

and women in h i r ing  and promotiort. Counsel fo r  

respondents expressly ra ised  th is  issue at t r i a l  

and o f f e r ed  substant ia l evidence that such d i s ­

c r im in a t i o n  had been s e r i o u s  and w idespread .



-  5 -  

ARGUMENT

I .  THE QUESTIONS PRESENTED BY RESPONDENTS' 
ACTUAL EMPLOYMENT PRACTICES ARE NOT THE 
QUESTIONS ASSERTED BY PETITIONERS.

This case presents at the outset a c r i t i c a l  

problem not posed to a s i g n i f i c a n t  degree by the 

a f f i r m a t i v e  a c t i o n  cases which th i s  Court has 

considered in the past. Here, unlike Defunis v . 

Odegaard, 416 U.S. 312 (1974); Regents o f  the

Un ivers i ty  o f  C a l i fo rn ia  v. Bakke, 438 U.S. 265 

(1978 ) ;  United Steelworkers o f  America v. Weber, 

443 U.S. 193 (1979) and F u l l i l o v e  v. K lu tzn ick ,

____ U.S. ____, 65 L. Ed. 2d 902 (1980), there is  a

basic and la rge ly  unresolved dispute between the 

par t ies  as to what pract ices  the Department o f  

Corrections actua l ly  engaged in under the rubric 

o f  a f f i rm a t i v e  action.  The f indings o f  the courts 

below are o f  only l im ited  assistance in reso lv ing  

that issue. The t r i a l  court held l i t t l e  more than 

that there were "pre ferences"  and "d iscr im inat ion"  

(P e t i t i o n ,  E-2, F -4 ) .  The court o f  appeals noted, 

but did not pass on, the c o n f l i c t s  in the evidence 

( i d . ,  A -6 ) ,  and summarized some o f  the evidence

without attempting to  d is t inguish between pract ices



6

which implemented the respondents' a f f i rm a t iv e  

act ion po l i c y  and those which v io la t ed  i t  ( P e t i ­

t ion ,  A-6, A-7 ) .

The p e t i t i o n e rs  create  the impression that 

s p e c i f i c  pos i t ions  were frequent ly  set aside for  

m inor i t ie s  or women (B r i e f  fo r  P e t i t i o n e rs ,  pp. 

6-9) and that whenever th is  was not done, p r e f e r ­

ences were g iven to m inor i t ies  or  women who were 

" s u b s t a n t i a l l y "  l e s s  q u a l i f i e d  than competing 

white males ( i d , p. 10), The "d ras t ic  degree" o f  

these pre ferences ,  p e t i t i on e rs  assert ,  is  i l l u s ­

t r a t e d  by what they  say i s  a s ta tem ent  by the 

Department's D irec to r  that "white males would have 

to wait  at least  f i v e  years to get  a promotion" 

( i d . , p. 11) (emphasis in o r i g i n a l ) .  Not only is  

there a dispute as to whether the statement was in 

fac t  made, but there is  no proof  o f  any such delay 

in the promotion of  white  applicants . D irector  

Enomoto f i rm ly  denied having said that no white 

males would be promoted f o r  f i v e  yea rs  (R .T .  

2 8 4 -285 ) ,—  ̂ and h i s  d e n ia l  was supported by 

severa l  w itnesses .—̂

1J "R .T . "  r e f e r s  to the r ep o r t e r ' s  transcr ipt  o f  
the  t r i a l .  " C . T . "  r e f e r s  to the c l e r k ' s  
transcr ipt .

2/ R.T. 378, 450. Mr. Minnick, whose testimony



7

Our review o f  the record indicates that the 

Department o f  Correct ions '  actual p ract ices  bear 

l i t t l e  resemblance to  the p i c t u r e  p a in t ed  by 

p e t i t i o n e rs .  The Department o f  Corrections, fa r  

from excluding white males from promotion, awarded
3 /more promotions to that group than to  any o ther ;— 

between h a l f  and two-thirds o f  a l l  those promoted 

under the A f f i rm a t iv e  Action Plan were white and 

about the  same p r o p o r t i o n  were men ( s e e  n. 3, 

supra) .

Because the evidence regarding the Depart­

ment's actual employment pract ices  is complex and 

c o n f l i c t i n g ,  and scattered throughout the record, 

we summarize i t  in  d e ta i l .

2/ continued

is  c i t ed  in th is  regard by p e t i t i on e rs ,  asserted 
only that Enomoto stated increased competit ion 
would reduce the number o f  white  males rece iv ing  
promotions, R.T. 46, and then equivocated about 
remembering even th a t .  R .T.  47. Only Harry 
LaFayette a l leged  Minnick had made the statement 
a s s e r t e d  in  P e t i t i o n e r s '  B r i e f .  R.T .  25-26,

3j Exhib it  K, Table 3 (white males rece ived  33% 
o f  promotions in the f i r s t  qu a r te r  o f  1975);  
Exhibit L, "Sex and Ethnic Orig ins o f  CDC Per­
sonnel Promotions" (white males rece ived 41% o f



A. Hiring

The c r i t i c a l  issue posed by the Department's 

h i r i n g  p r a c t i c e s  i s  not what type  o f  s p e c i a l  

considerat ion was af forded to minor ity  or female 

appl icants,  but whether such considerat ion was 

extended at a l l .  Both the complaint and the t r i a l

court opinion r e f e r  to d iscr im inat ion in "h ir ing
4/

and p r o m o t i o n " , ”  w i th ou t  d i s t i n g u i s h i n g  these  

two types o f  employment p ract ices .  The de ta i l ed  

a l l e g a t i o n s  r e g a r d in g  the named p l a i n t i f f s ,  

however, concerned th e i r  unsuccessful appl icat ions 

f o r  promotions (C.T. 7-11),  and most o f  the e v i ­

dence o f f e r e d  at  t r i a l  was about p rom ot iona l  

p r a c t i c e s .  The t r i a l  c ou r t  made no d e t a i l e d  

f indings regarding h i r in g  d iscr im inat ion.

On appeal the s ta te  court o f  appeals appar­

ent ly  be l i eved  that some form o f  pre ference had 

been extended  to  women and m in o r i t e s  seek ing

3J continued

promotions in  the  second q u a r te r  o f  1975);  
Exhibit D ( in  1975 white males rece ived  66% o f  a l l  
promotions to  Correct ional  Program Supervisor I I I ,  
and 75% o f  a l l  promotions to Correct ional  Program 
Supervisor I I ) ;  R.T. 379,381,679.

4/ C.T. 63-82; P e t i t i o n ,  E-2, F-4.



9

prom ot ions ,  but concluded o th e rw is e  r e g a r d in g  

h i r in g .  Concerning both women and m inor i t ies  the 

appel la te  court held:

The e x e r c i s e  o f  " p r e f e r e n c e "  i n  t h e i r  
favor in recent years,  as described above, 
was l im ited  to cases invo lv ing  the promotion, 
t rans fe r ,  or work assignments o f  employees 
only. There was no substant ia l evidence of  
any instance in which i t  had been exerc ised 
in  the " i n i t i a l  h i r i n g "  o f  a new employee 
( P e t i t i o n ,  A-7 to  A-8 ).

Re fe rr ing  to the t r i a l  court 's  holding on this

subject ,  the court o f  appeals stated:

A c co rd in g  to  our r e v i e w  o f  the e v id en ce ,  
i t  does not support a f i n d i n g  that  " p r e ­
f e r e n c e s  r e s u l t "  from the p r a c t i c e s  i n . . .  
the  " h i r i n g "  o f  employees ( i_d_. , A -1 7 ) .

The record f u l l y  supports this decis ion,  demon­

s t ra t ing  that the key method u t i l i z e d  to increase 

the h i r in g  o f  m inor i t ie s  and women was r e c r u i t ­

ing .— P e t i t i o n e r  sought review o f  the court o f

appeals opinion by the s ta te  supreme court, but
. . .  6/

not on th is  issue .—

5/ R.T. 381, 447, 461, 486, 547, 570; Exhibit  C, 
Appendix B, p. 22, Appendix D, p. C-24; Exhibit 
G, pp. 1, 6, 7, 8, 11, 15, 16, 41; E x h ib i t
Q3 P- 2.

6/ P l a i n t i f f s '  P e t i t i o n  f o r  a Hear ing  by the 
Supreme Court, pp. 2-3.



- 10 -

The P e t i t i o n  to th is  Court neither  r e fe r red  

to nor complained o f  the s ta te  court f ind ing  that 

no pre ferences had been extended with regard to 

h i r in g .  See P e t i t i o n ,  pp. 12-13. The P e t i t i o n  

sought rev iew o f  only two aspects o f  the court of  

appeals decis ion:  i t s  holding that employment 

p r e f e r e n c e s  were l e g a l l y  p e r m is s ib l e ,  and i t s  

f i n d in g  o f  a c om pe l l in g  s t a t e  i n t e r e s t .  I d . ,  

p. 3. N e i th e r  the P e t i t i o n  nor P e t i t i o n e r s '  

b r i e f  challenges or mentions the fac tua l  f ind ing 

by the C a l i f o rn ia  appe l la te  court with regard to 

h i r i n g .

Under these circumstances, we doubt whether 

the questions presented by th is  case reasonably 

encompass a c h a l l e n g e  t o  the court  o f  appeals  

f ind ing  that there were no preferences in h i r ing .  

S ince  c e r t i o r a r i  was g ran ted  to  d e c id e  l e g a l  

i s sues  p re s en ted  by r espon den ts '  p rom ot ion a l  

p rac t ices ,  no reason appears to depart from the 

usual rule  that only "questions set for th  in  the 

p e t i t i o n  or f a i r l y  in c luded  t h e r e in  w i l l  be 

considered by the Court . "  Rule 21.1 ( a ) .

Moreover, none o f  the p e t i t i on e rs  has stand­

ing to challenge the respondents' h i r in g  prac­

t i c e s .  The ind iv idua l  p l a i n t i f f s  are both already



- 11

employed by the Department;— ne i ther  has been 

denied a promotion or been otherwise personal ly  

injured by the challenged p o l i c i e s  (R.T. 921), and 

ne i ther  has a l leged  the type o f  harm that would 

have brought him with in  T ra f f i c a n te  v .  M etropo l i ­

tan L i f e  I n s . Co. , 409 U.S.  205 (1972 ) .  The 

C a l i f o r n i a  C o r r e c t i o n a l  O f f i c e r s  A s s o c i a t i o n  

("CCOA") i s  an organiza t ion o f  Department employ-
g j

ees, a l l  o f  whom have already been h i r ed .— The 

p l a i n t i f f s  sought c e r t i f i c a t i o n  o f  th is  case as a 

c l a s s  a c t i o n ,  which might have o b v ia t e d  the 

standing problem, but c e r t i f i c a t i o n  was denied and 

no appeal was taken from that denial .  Therefore ,  

they are in e s sen t ia l l y  the same posture as the 

p l a i n t i f f s  in East Texas Motor Freight System, 

Inc, v .  Rodriguez, 431 U.S. 395 (1977). That i s ,  

as persons who have not been injured in any way by 

any o f  the Department o f  Correc t ion 's  employment 

p o l i c i e s ,  they may not represent persons who claim 

such i n ju r y .  CCOA says i t  i s  in ju re d  by the 

Department's p ract ices  because CCOA is  "an organi-

7/ F i r s t  Amended Compla int ,  p. 2; C .T .  64.

8/ F i r s t  Amended Compla int ,  p. 3; C.T .  65.



- 12 -

zat ion  a c t i v e l y  opposed to  racism and sexism".— 

But th is  Court has c l e a r l y  held  that such a l l e g a ­

tions do not e s tab l ish  an in te res t  s u f f i c i e n t  to 

g ive  standing. S ierra  Club v. Morton, 405 U.S. 

727, 734-740 (1972).

The C a l i f o r n i a  cou r t  o f  appea ls  expressed  

s e r i o u s  r e s e r v a t i o n s  about the p e t i t i o n e r s '  

s tand ing  to  m a in ta in  t h i s  a c t i o n .  P e t i t i o n ,  

A -2 3 . Even i f ,  however ,  the  i n t e r e s t  o f  the 

p e t i t i o n e rs  was s u f f i c i e n t  to  provide them with 

standing be fo re  a C a l i f o rn ia  court , th is  Court can 

only exerc ise  ju r i s d i c t i o n  over a dispute which 

meets the requ irem ents  o f  A r t i c l e  I I I  o f  the 

Const i tut ion .  Bateman v. Ar izona, 429 U.S. 1302, 

1305 (1976) (Rehnquist, J. , in chambers). Any 

dispute about the respondents' h i r in g  pract ices  

does not meet those requirements.

9/

9/ F i r s t  Amended Compla int ,  p. 11; C .T .  73.



B. Promotions

Ascerta in ing  the nature o f  the Department's 

promotional process is complicated by the s i ze  and 

nature  o f  that agency.  U n l ike  the admissions 

decis ions in Regents o f  the Un ivers i ty  o f  C a l i f o r ­

nia v. Bakke, supra, these decis ions are not made 

by a s i n g l e  i n d i v i d u a l  or  group a c t in g  on an 

agreed upon and mechanically applied ru le .  Most 

promotions in the Department o f  Correct ions are 

made by ind iv idua l  supervisors in 12 in s t i tu t ion s ,  

four paro le  reg ions,  and a cen tra l  headquarters. 

While most promotions are made under th is  decen­

t r a l i z e d  system, the promotions o f  the highest 

o f f i c i a l s  in each in s t i tu t i o n  and reg ion are made 

by the D irec to r  o f  the Department, in l i g h t  o f ,  

but not necessar i ly  fo l low ing ,  the recommendations 

o f  the supervisors who are immediately concerned 

(R.T. 306-08). Severa l hundred pos i t ions  around 

the s tate  are apparently f i l l e d  in th is  manner.

A f f i rm a t iv e  act ion  w ith in  the Department did 

not begin with the 1974 a f f i rm a t iv e  act ion plan, 

and that plan has not remained unchanged. A f f i r ­

m at ive  e f f o r t s  to  h i r e  and promote women and 

m i n o r i t i e s  commenced in 1968 or  1969 at  the



- 14 -

d i r e c t i o n  o f  then D i r e c t o r  R . K. P r o c u n ie r . -—■

Although minority  employment in the Department of

Corrections had remained at about 9% from 1963

through 1968, a f t e r  1968 i t  rose s tead i ly  at a

rate  o f  about 175 employees a year, reaching 19.8%
11/

o f  the work force  m  1973.-— The actions i n i ­

t i a t e d  by P ro c u n ie r ,  however ,  were never  s e t  

out in  a f o rm a l ,  w r i t t e n  p lan .  The o r i g i n a l  

w r i t t en  plan at issue in  th is  case was issued on 

July  1, 1974 ( E x h ib i t  G, p . 4 8 ) .  That p lan  was

subsequent ly  r e v i s e d  on A p r i l  1, 1975, and on
12/

A p r i l  1, 1979.—  The adoption o f  th is  w r i t t en

plan did not increase the r a t i o  at which minor ity

employment had r isen  at the Department: m inor i t ies

r o s e  from 9% to  19.8% in  the 5 y ea rs  p r i o r  to

1973, an average o f  2.2% a year, and from 19.8% to
13/

27.6% in  the 6 y ea rs  s in c e  1973,— - an average  

o f  only 1.3% a year.

10/ Exh ib i t  Q, p . l ;  C.T. 702-711, Declaration 
o f  R.K. Procunier, pp. 1-10.

11/ C.T. 983-995, Exhibits  A-C to  Dec larat ion o f  
Mary Van Schaik.

12/ A copy o f  the 1979 plan has been lodged with 
the c le rk .

13/ See i d . , tab le  f o l low ing  p. 32.



- 15 -

The c r i t i c a l  fac tua l  issue i s  what steps the 

Department o f  Corrections is  taking to br ing  about 

the increase o f  m inor i t ies  and women in various 

pos i t ions  w ith in  the system. The record contains 

two documents apparently wide ly  d is t r ibu ted  with in  

the  Department which se t  f o r t h  the o f f i c i a l  

p o l i c i e s  and required pract ices  o f  the Department 

—• the A f f i rm a t iv e  Action Plan (Exhib it  G) and 

p o r t i o n s  o f  a t r a in in g  manual (E x h ib i t  34 ) .  

P e t i t i o n e rs  have no object ions to the provis ions 

o f  these documents, which c a l l  fo r  a po l i c y  o f  

equal employment opportunit ies ,  the establishment 

o f  committees to id e n t i f y  and reso lve  problems of  

d iscr im inat ion,  mechanisms to r ec ru i t  and t ra in  

m inor i t ies  and women, per iod ic  reports o f  per­

sonnel actions,  e tc .

The plan also es tab l ishes  "goa ls " ,  or desired 

l e v e l s  o f  minor ity  and female employment (Exhibit  

G, pp. 11 -13 ) ,  but does not d i r e c t  Department 

o f f i c i a l s  to take any par t icu la r  steps to r e a l i z e  

those goals other than the apparently unobjec­

t ionab le  measures described above.

In addit ion to the s p e c i f i c  steps required by 

the w r i t t en  Plan, i t  is c lea r  from the record that 

there was a p rac t ice ,  both authorized (R.T. 382) 

and personally  implemented (R.T. 289 et seq. , 373)



- 16 -

by the D i r e c t o r ,  o f  c o n s id e r in g  under c e r t a i n  

circumstances, and to a l im ited  degree, the race

or  sex o f  an i n d i v i d u a l  seek ing  a promot ion .

Race or sex was only taken into account i f  

two s p e c i f i c  circumstances were present. F i r s t ,

the m in o r i t y  o r  female  a p p l i c a n t  had to  be as
1 / /

q u a l i f i e d  as—~  or "reasonably equal ly  q u a l i f i e d "  
to  the highest ranking white  or male app l ican t .—  
I f  one applicant was s i g n i f i c a n t l y  b e t te r  q u a l i ­

f i e d  than the o t h e r s ,  he or  she was g i v e n  the
16/

promotion regardless o f  race or sex .— - Second,

14/ R.T. 195, 197, 201, 215, 333, 454, 592, 600.

15/ R.T. 183, 185, 203, 204, 289, 304-6, 312,
374,381. One witness used both phrases. Compare 
R.T. 183-5 with R.T. 195-7.

16/ R .T .  200, 201, 209, 210, 312, 558, 697. 
P e t i t i o n e rs  quote at length from the deposit ion 
o f  Ms. R o b y -S te v e n s , A s s i s t a n t  D i r e c t o r  f o r  
Women's A f f a i r s ,  where she stated that a female 
might be appointed though "subs tan t ia l l y "  less 
q u a l i f i e d  than a male applicant.  R.T. 113. At 
t r i a l ,  however, she ins is ted  that she was mis­
taken ,  and had misunderstood  the D i r e c t o r ' s  
p o l i c y .  R.T. 183, 188, 194-195, 201, 203-204,
208-210. I t  is  c l ea r  from the record that the 
D irec to r ,  not Ms. Roby-Stevens, ac tua l ly  made the 
decis ions regarding promotions. R.T. 360. The 
Director  made c l ea r  that race and sex would not 
matter i f  there was a substant ia l  d i f f e r en ce  in 
q u a l i f i c a t io n s .  R.T. 312.



17

there had to be an operat ional need for  a person

o f  a par t icu la r  race or sex to occupy a s p e c i f i c
17/

job at a pa r t i cu la r  in s t i t u t i o n .—  Because both

the comparative a b i l i t i e s  o f  applicants and the

o p e r a t i o n a l  needs o f  p a r t i c u l a r  i n s t i t u t i o n s
18/

v a r i e d  w i d e l y , so d id  the promotion  r a t e s .—

17/ R.T. 196 (re levance o f  race or sex depends on 
" th e  needs o f  the d e p a r tm e n t " ) ,  215 (Mex ican-  
American applicant who spoke Spanish seeking a 
p os i t ion  at an in s t i t u t i o n  with " la r g e  numbers o f  
L a t in o s  and M ex ican-Am er icans" )  , 227 (b la ck  
appl icant fo r  a pos i t ion  at "an in s t i tu t i o n  with 
60% black population and hardly any blacks at a l l  
on the s t a f f " ) ,  309 (importance of  app l icant 's  
race depends on "the r a c ia l  composition of  the 
work force  at the pa r t icu la r  in s t i tu t i o n  that had 
a vacancy" ) ,  333 (p re ference  f o r  Lat ino or Chicano 
appl icant only i f  "there  was a need . . .  at the 
pa r t icu la r  i n s t i t u t i o n " ) ,  373 (race a fac tor  for  
"a  j ob  in  the Department area  where we need 
m in o r i t i e s " ) ,  374 (choice among equ a l l y -qu a l i f i ed  
w h i t e ,  b la c k ,  and Mexican-Amer ican a p p l i c a n ts  
would "depend on where we are going to place the 
in d i v id u a l " ) .  See also R.T. 376-77, 383, 488, 605, 
670, 671.

18/ For example, in the f i r s t  quarter o f  1976, 
minority  men rece ived 18% o f  the promotions at 
penal in s t i tu t i o n s ,  42% o f  the promotions among 
parole o f f i c e r s ,  and 0% o f  the promotions at the 
c e n t r a l  o f f i c e .  E x h ib i t  K, "CDC P ro m o t io n s . "



18

At t imes  t h i s  p r a c t i c e  was paraphrased

by s t a t i n g  th a t  b e in g  a woman or  member o f  a

minor ity  group might add to one’ s qu a l i f i c a t io n s

fo r  a pa r t i cu la r  job ,  though only by enough to
19/a f f e c t  the outcome in a c lose  case .—  Depart­

ment o f f i c i a l s  were s en s i t i v e  to the p o s s ib i l i t y  

that the a b i l i t y  o f  a black guard to deal  e f f e c ­

t i v e l y  with black inmates var ied  from appl icant to 
, • 20/ ^  ,

app l ican t .— • They a lso  were w i l l i n g  to recog­

n ize ,  and regard as a spec ia l  q u a l i f i c a t io n ,  a 

white app l ican t 's  pa r t i cu la r  a b i l i t y  to  work with 

minor ity  inmates (R.T. 453).

The p e t i t i on e rs  maintain that th is  pract ice  

v i o la t ed  both the Const i tut ion  and f ede ra l  law, 

and the s ta te  t r i a l  court so held. Whether that 

p r a c t i c e  i s  indeed un law fu l  c o n s t i t u t e s  the 

c e n t r a l  i s su e  in  t h i s  case .  P e t i t i o n e r s  a l s o  

a s s e r t  th a t  o v e r  and above th i s  p r a c t i c e ,  the 

Department o f  Corrections had a p o l i c y  o f  s e t t in g  

aside s p e c i f i c  pos i t ions  fo r  minor ity  or women 

a p p l i c a n t s  o n l y .  In  our v i e w  o f  the  law, the

19J R.T. 383, 667-68, 672.

20/ R .T .  314. See a l s o  i_d. at  453 (no t  a l l  
Chicanos are b i l i n g u a l ) ,  387, 597.



19

the exis tence of  such an add it iona l  p ract ice  would 

not be o f  c on t ro l l in g  s ign i f icance .  We recognize ,  

however, that under the standards announced by 

some members of  the Court, such a p ract ice  might 

ra is e  other and more d i f f i c u l t  issues. Accor­

d ing ly ,  we have reviewed the record to ascerta in  

whether i t  supports p e t i t i o n e r s '  assert ion  that 

c e r t a i n  jobs  were r e s e r v e d  f o r  m i n o r i t i e s  or 

women. We conclude that i t  does not.

The r e c o rd  r e v e a l s  two in s ta n ces  in  which 

o f f i c i a l s  at p a r t i c u l a r  p r i s o n s  asked s t a t e  

o f f i c i a l s  to  c e r t i f y  that four par t icu la r  openings 

r e q u i r e d  a fem a le  employee (E x h ib i t s  24, 25 ) .  

This occurred pursuant to  a p ract ice  which long 

predated the a f f i rm a t iv e  action a c t i v i t i e s  (R.T. 

70-71, 258) under which par t icu la r  jobs could be 

so l im ited  to  men or women. Such c e r t i f i c a t i o n s  

required the express approval o f  the State Per­

sonnel Board (R.T. 698), and Department o f  Correc­

t i o n s  o f f i c i a l s  t e s t i f i e d  tha t  the Department

sought to minimize the use o f  such r e s t r i c t i v e  

c e r t i f i c a t i o n s  ( i d . ) The record also contains a 

request that a par t icu la r  pos i t ion  be c e r t i f i e d  as 

"b i l i n g u a l "  (Exhib it  8 ),  although i t  is  not c lear

who cou ld  g ran t  t h i s  so r t  o f  c e r t i f i c a t i o n .



20 -

These c e r t i f i c a t i o n s ,  had they  a l l  been 

granted, would have a f f e c t ed  only 5 o f  the more 

than 8,000 p o s i t i o n s  w i t h in  the Department o f  

C o r r e c t i o n s .  In f a c t ,  however ,  th e r e  i s  no 

evidence that any o f  the requested c e r t i f i c a t i o n s  

were e v e r  i s sued .  M oreover ,  p e t i t i o n e r s  have 

e x p r e s s l y  d isavowed any o p p o s i t i o n  to  " f em a le  

on ly"  or "male on ly "  c e r t i f i c a t i o n s  at i n s t i t u ­

t ions with female and male inmates r e sp ec t i v e -  
2 1 /

l y -  and have not i n d i c a t e d  o p p o s i t i o n  in 

p r i n c i p l e  t o  a requ irem ent  tha t  a p a r t i c u l a r  

p os i t ion  be f i l l e d  by a Spanish-speaking o f f i c e r ,  

so lon g  as Span ish -speak ing  Ang los  were a ls o  

c o n s id e r ed .  The mere f a c t  tha t  in  the pas t  a 

hand fu l  o f  c e r t i f i c a t i o n s  were r equ es ted  i s  

i n s u f f i c i e n t  t o  e s t a b l i s h  tha t  th ere  was an 

a f f i rm a t i v e  act ion p o l i c y  o f  reserv ing  par t icu la r  

jobs f o r  women or m inor i t ie s .

There were, as w e l l ,  three i s o la t ed  instances 

in which job announcements stated that par t icu la r

21/ One o f  CCOA's o f f i c i a l s  t e s t i f i e d ,  " [W]e  f ind 
s i g n i f i c a n t  j u s t i f i c a t i o n  in a female sent to work 
at CIW in  a women's dormitory or in  a pos i t ion  
where one would n e c e s s a r i l y  have t o  su p e rv i s e  
women's a c t i v i t y  in  the shower, lava tory ,  things 
o f  that nature. "  R.T. 71; see also P l a i n t i f f s '  
Post T r i a l  B r i e f ,  p. 41; C.T. 364.



- 21

openings were l im ited  to m inor i t ies  or  women.—  

The r e c o rd  makes c l e a r ,  however ,  tha t  these  

incidents  were not w ith in  the scope of  the A f f i r ­

mative Act ion Plan, and that Departmental author i­

t i e s  took e f f e c t i v e  a c t i o n  to  p reven t  t h e i r

recurrence. Two o f  these annoncements were issued 

at about the  same time by a s i n g l e  pe rsonne l  

o f f i c i a l  at one prison. In response to a com­

p l a i n t  about one o f  th ese  announcements, the

Department s ta t ed  that  fu tu re  announcements
23/

would not be so r e s t r i c t e d ; —  the pe rsonne l

o f f i c e r  in v o l v e d  was admonished not t o  do so
24/

aga in ,  and d id  n o t . ---  A second o f f i c i a l  a t  a

d i f f e r e n t  in s t i tu t i o n  t e s t i f i e d  that a r e s t r i c ­

t i o n  in  an announcement she had issued  was a

22/ Exhibits  11,12,13. The record also contains 
such an announcement from the Board o f  Correc­
t ions ,  Exhibit  6. The Board, however, is  not part 
o f  the  Department o f  C o r r e c t i o n s .  R .T .  83.

23/ Exhib it 11. At t r i a l ,  p e t i t i on e rs  maintained 
that the par t icu la r  announcement had r e f l e c t e d  
Departmental p o l i c y ,  but acknowledged that  in 
response to the complaint, the Department decided 
to "change i t s  p o s i t i o n " .  R .T.  97. Any such 
change in pos i t ion  occurred in February, 1975, 10 
months be fore  th is  action commenced.

24/ R.T. 100; see Exhibit 13.



- 22

mistake.—  These three incidents  involved two 

unre lated ind iv idua ls ,  ac t ing  from no common plan 

or design, at two d i f f e r e n t  in s t i tu t ion s .  They 

occurred  w i t h in  the f i r s t  f i v e  months o f  the 

issuance o f  the A f f i rm a t iv e  Act ion Plan and, i f  

indeed causal ly  r e la ted  to that plan, were prompt­

ly  recognized as not being authorized by i t .  The 

las t  o f  these incidents  occurred 11 months be fore  

the complaint in th is  action was f i l e d .  Far from 

p r o v in g  th a t  the Department had a p o l i c y  o f  

r e s e r v i n g  p a r t i c u l a r  p o s i t i o n s  f o r  women or 

m inor i t i e s ,  these events ind icate  that the con­

trary  was the case.

P e t i t i o n e rs  a lso  ca l l ed  as witnesses in d i ­

v i d u a l s  who c la im ed  that  they had been den ied  

promot ions  because they  were w h i t e  males and 

a l l e g e d  in  some in s ta n ce s  th a t  p o s i t i o n s  were 

be ing  r e s e r v e d  f o r  m i n o r i t i e s  o r  women (R .T .

6-64, 117-57). Their  testimony was s p e c i f i c a l l y
26/

rebutted by a s e r ies  o f  defense witnesses —  ; 

in at l eas t  two instances the jobs being sought by

25/ R.T. 99; see Exhib it  12.

26/ R.T. 432-80 (regarding the named p l a i n t i f f s  
and complaining witness from Susanv i l l e ) ,  503-08 
(regarding Tommy Simpson), 530-35, 539-42, 577-78 
(regarding George Thomas).



- 23 -

th ese  com p la in ing  w i tn e s s e s  had in  f a c t  been
27/

f i l l e d  by white males.—  The t r i a l  judge con­

cluded that  none of  these indiv iduals  had been 

denied the pos i t ions in question because o f  th e i r  

race or  sex (R.T. 921), and no appeal was taken 

from that decis ion.  One other witness, Jack Mayo, 

t e s t i f i e d  th a t  he b e l i e v e d  he was r e q u i r e d  to

interv iew  only m inor i t ies  fo r  pos i t ions  w ith in  his
28/

unit ,  and that he had done so.—  Mayo's super­

v i s o r s ,  however, made c lear  that they regarded 

Mayo's view o f  h is  r e s p o n s ib i l i t i e s  as mistaken, 

and that when they learned o f  i t ,  they instructed

him to  in terv iew  a l l  applicants , regardless o f
29/ . .

ra ce  or  s e x .—  Counsel f o r  p e t i t i o n e r s  con­

ceded at t r i a l  that Mayo had been d irec ted  to stop 

t e l l i n g  whites that they would not be considered 

(R.T. 811).

27/ R.T. 494, 507. During the second quarter o f  
1976 a l l  seven promotions at S u s a n v i l l e  were 
awarded to whites.  Exhibit  32.

28/ R.T. 709-733; Exhibit  M.

29/ R.T. 773, 776, 777, 798-9, 800-01. See also 
R.T. 684-87. P r i o r  to th is  incident,  a l l  o f  the 
15 or 16 employees who worked for  Mayo were white, 
R.T. 774, and Mayo's superiors be l ieved  that he 
had in t en t io n a l l y  discr iminated against minor i t ies  
R.T. 774,798.



24 -

Although the w r i t t en  A f f i rm a t iv e  Act ion Plan 

sets ce r ta in  goals fo r  minor ity  and female em­

ployment,  36% m i n o r i t i e s  and 38% women, these  

goals appear to be o f  l i t t l e  operat iona l  impor­

tance. There c l e a r l y  is  not a numerical quota; 

no f ixed  port ion o f  promotions is set aside for  

e i t h e r  women o r  m i n o r i t i e s .  P e t i t i o n ,  A -1 6 . 

Although, in a c lose  case, Departmental o f f i c i a l s  

may consider whether there is  an operat ional  need 

f o r  a member o f  a minor ity  group or woman in a 

p a r t i c u l a r  p o s i t i o n ,  t h e i r  te s t im ony  does not 

i n d i c a t e  that  t h i s  assessment o f  these  needs 

fo l lows  from any mechanical ca lcu la t ion .  See n. 

17, supra . The pr imary  s i g n i f i c a n c e  o f  th ese  

g o a l s  i s  that  they  p ro v id e  a method by which

personnel o f f i c i a l s  in Sacramento id e n t i f y  i n s t i -
30/tut ions where there may be problems.—  Although 

the plan hoped fo r  achievement o f  these goals by 

1979, the Department obviously did not b e l i e v e  

tha t  d e a d l in e  had t o  be met, r e g a r d l e s s  o f  

how dras t ic  the necessary measures; as ear ly  as 

January, 1975, co r rec t iona l  o f f i c i a l s  concluded 

that the goals would in fact  not be met u n t i l  at

30/ Exhibit K, "Quarterly Management Review.



25

l e a s t  1983 ,—  and t he  r e c o r d  r e v e a l s  no change  

i n  p r a c t i c e s  o c c a s i o n e d  by t h i s  r e a l i z a t i o n .  The 

plan was r e v i s e d  and e x t e n d e d  an a d d i t i o n a l  f i v e  

y e a r s  i n  1979.

In sum, while  the record demonstrates that 

Departmental o f f i c i a l s  do at times consider the 

race  or  sex o f  a p p l i c a n t s  f o r  promot ion ,  th i s  

occurs as a rule  only when there are no s i g n i f i ­

cant d i f f e r en ces  in th e i r  q u a l i f i c a t io n s ,  and when 

the race  or  sex o f  an a p p l i c a n t  would in  f a c t  

a f f e c t  his or her a b i l i t y  to  perform the job at 

issue.  The Department did not set aside s p e c i f i c  

jobs f o r  women or m inor i t ies .

I I .  RESPONDENTS' PRACTICES ARE NECESSARY TO 
MAINTAIN SECURITY AT CALIFORNIA'S CORREC­
TIONAL INSTITUTIONS.

The a f f i r m a t i v e  a c t i o n  cases  p r e v i o u s l y  

before  th is  Court have involved public po l i c i e s  

in  a v a r i e t y  o f  important  a reas  - -  educa t ion ,

31/

31/ S e e  E x h i b i t  K,  " C a l i f o r n i a  D e p a r t m e n t  o f  
C o r r e c t i o n s ,  P r o j e c t i o n  f o r  A t t a i n m e n t  o f  CDC 
A f f i r m a t i v e  A c t i o n  G o a l s . "



- 26

employment, and the construction of  public  works. 

This case, however, concerns the most fundamental 

o f  a l l  governmental functions, the preservat ion o f  

o rd e r  and the p r o t e c t i o n  o f  i n d i v i d u a l s  from 

criminal v io lence .  In the a l l o ca t ion  o f  jobs or 

c o l l e g e  admissions the consequences o f  e r ro r  are 

important but ra re ly  catastrophic .  Under such 

circumstances some members o f  th is  Court have held 

i t  is  appropriate to  s c ru t in i z e  o f f i c i a l  decis ions 

predicated on operat ional needs and the a v a i l a b i l ­

i t y  o f  a l t e r n a t i v e  so lut ions .  In th is  case the 

C a l i f o rn ia  Department o f  Corrections concluded 

tha t  c e r t a i n  a f f i r m a t i v e  a c t i o n  p o l i c i e s  were 

e s s e n t i a l  to  the s e c u r i t y  o f  i t s  c o r r e c t i o n a l  

in s t i tu t ion s .  Any ju d i c i a l  dec is ion  in t e r f e r in g  

w i th  those  p o l i c i e s  cou ld  have s e ve r e  conse­

quences .

The problems which led to the adoption o f  the

Department 's  a f f i r m a t i v e  a c t i o n  p o l i c i e s  were

grave. There was "more v io lence  and k i l l i n g  in

C a l i f o r n i a ' s  p r i s on s  than in  any o th e r  s t a t e

system. In  the  f o u r  yea rs  p r i o r  to  1974, 400

inmates and s t a f f  ha[d] been wounded, and almost 
32/

100 k i l l e d . " —  That homicide ra te  represented a

32/ S e r r i l l ,  " P r o f i l e / C a l i f o r n i a " ,  1 Correct ions 
Magazine, No. 1, (Sept. 1974), p. 3.



27

400% in c r e a s e  ove r  the r a t e  p r e v a l e n t  in  the

m id -s ix t ies  (C.T. 746). In 1970-71 alone nine

cor re c t ion a l  o f f i c e r s  and twenty-eight inmates

were k i l l e d  (C .T .  703) compared to  on ly  four
33/employee homicides in the previous 17 years .—  

In 1975, in  San Quentin alone, there were f i v e  

murders (R.T. 489).

An increas ing number o f  these v io l en t  i n c i ­

dents were r a c ia l  in nature. A State  Task Force 

to Study V io lence in Prisons reported that between 

1963 and 1964 the proportion o f  such incidents 

caused by r a c ia l  h o s t i l i t i e s  jumped from 7.1% to

15.3% (C .T .  750) .  By 1973 about 29% o f  a l l
. .  . . , . . . 34/ ^stabbmgs were r a c ia l  m  o r i g in .—  The record

described rac ia l ly -based  assaults or murders at

co r rec t iona l  in s t i tu t ion s  at San Quentin (C.T.

703), San Luis Obispo ( i d . ) ,  Soledad (C.T. 504;

R .T .  559 ) ,  Jamestown (C .T .  494-95, 560) ,  and

Folsom (C.T. 703). The r a c ia l  atmosphere in many

in s t i tu t ion s  was exp los ive .

33/ Procunier, "The Dilemma o f  Pr isons" ,  National 
Conference on Corrections, Wil liamsburg, V i rg in ia ,  
(Dec. 5-8, 1971), p. 19.

34/ Exhibit C, Appendix C, Chart No. 7.



- 28

Most inmates in prisons such as Soledad and 
San Quentin [were] pre judiced against prison­
ers o f  o th e r  r a c e s . . . .Many o f  the c o r r e c ­
t io n a l  o f f i c e r s  exh ib i ted  l i t t l e  sympathy or 
understanding towards minor ity  inmates and 
frequent ly  made r a c i a l  s lurs  and openly to ld  
o f f en s i v e  ethnic  jokes (C.T. 501).

In many such in s t i tu t ion s  the inmates were 

o r g a n i z e d  in t o  r a c i a l  gangs,  p a r t i c u l a r l y  the

Aryan Brotherhood, the Black G uer i l la  Family, the
• 35 /Mexican M a f ia  and N ues t ra  F a m i l i a . ---  In at

leas t  s i x  f a c i l i t i e s  inmates of  one race refused 

to assoc iate  with inmates o f  other races, segre­

gat ing  themselves in dining h a l l s ,  movies, the 

recrea t ion  yard, or other loca t ions .— 7 At one 

prison the mere "s igh t  o f  a white o f f i c e r  stopping 

a Black inmate would o f ten  cause other Blacks to 

congregate in the v i c i n i t y ,  and would thus create

35/ R.T. 340, 476, 559-60, 642; C.T. 561.

36/ C.T. 789; R.T. 899 ( " I f  a new guy comes into 
the pen i ten t ia ry ,  see, and him and a white  guy, 
they may have been fr iends on the s t r ee ts ,  and 
l ik e  i f  they s tar t  ea t ing  together ,  w e l l ,  then 
peer group w i l l  put pressure on them to  make them 
stop. And I ' v e  seen th is  happen many times, you 
know").



29 -

37/
a v o l a t i l e  atmosphere".—

This exp los ive  and at times l e th a l  s i tu a t ion

had many causes ,  but one o f  them was c l e a r l y

r a c ia l  d is cr im inat ion  on the part o f  the v i r t u a l l y

a l l -w h i t e  c o r r e c t io n a l  s t a f f .  Fo l low ing a race

r i o t  a t  San Quent in ,  a c o r r e c t i o n a l  o f f i c i a l

th e r e  r e p o r t e d  tha t  the r i o t  a r o s e  out o f  a
. 3 8 /

p a t t e r n  o f  d i s c r i m i n a t i o n  and s e g r e g a t i o n , ---

Rac ia l  s lurs against minor i ty  inmates were com~ 
39/

mon;—  they were openly r e f e r r e d  to by the white

guards as " n i g g e r s " ,  " b o y " ,  "buckwheat "  and 
40/

" c o o n " . ---  M in o r i t y  inmates were r e l e g a t e d  to

men ia l  jobs  or  those  w i th  l i m i t e d  p o t e n t i a l

outs ide the pr ison,  and only white  inmates were
41 /

h i r e d  as c l e r k s . ---  D i s c r im in a t i o n  e x i s t e d  in

37/ C.T. 541.

38/ C.T. 827 ( " I n  almost every area of  prison 
l T f e , there is  one standard fo r  white  inmates and 
another for  Negro inmates") . See also C.T. 704-05; 
S e r r i l l ,  " P r o f i l e /Ca1i f o r n i a " , 1 C o r r e c t i o n s
Magazine, No. 1, (Sept. 1974), pp. 3, 31.

39/ C.T. 785, 938.

40/ C.T. 827, 864, 873, 926, 930

41/ C.T. 705, 776, 852, 860.



30 -

b o t h  v o c a t i o n a l  e d u c a t i o n —— and t he  a l l o c a t i o n
43/

o f  d e s i r a b l e  c e l l s . —— R a c i s m  by w h i t e  c o r r e c ­

t i o n a l  o f f i c e r s  a g a i n s t  m i n o r i t y  o f f i c e r s  w a s

v i r u l e n t  and  c o n t r i b u t e d  t o  r a c i a l  t e n s i o n .
44/

S l u r s  a g a m s  t m i n o r i t y  s t a f  f —  i n  t h e  p r e s e n c e  

o f  w h i t e  i n m a t e s  e n c o u r a g e d  w h i t e  i n m a t e s  t o  a dop t  

t h e  same a t t i t u d e s  ( C . T .  9 2 7 ) .  M i n o r i t y  i n m a t e s

w e r e  a l s o  awar e  o f  t h e  manner  i n  w h i c h  m i n o r i t y  

o f f i c e r s  w e r e  t r e a t e d  and saw i t  as a r e f l e c t i o n  

o f  t h e  d i s c r i m i n a t i o n  i n  t h e  p r i s o n  s y s t e m .  C . T .  

931.  N o t  s u r p r i s i n g l y ,  t h e  s y s t e m i c  d i s c r i m i n a ­

t i o n  a g a i n s t  m i n o r i t y  i n m a t e s  and s t a f f  r e i n f o r c e d  

r a c i a l  h o s t i l i t i e s .  The  M a r i n  County  Grand J u r y ,  

a f t e r  i n v e s t i g a t i n g  t h e  San  Q u e n t i n  r i o t ,  r e ­

p o r t e d  t h a t

R a c i s t  a t t i t u d e s  on  t h e  p a r t  o f  c u s t o d i a l  

p e r s o n n e l  p e r v a d e  t h e  d e p a r t m e n t  s o  as  t o  
become t h e  r u l e  and not  t he  e x c e p t i o n .  I n  
t h e  t i n d e r b o x  e n v i r o n m e n t  o f  San  Q u e n t i n ,  
r a c i a l  e p i t h e t s ,  e s p e c i a l l y  by  p r i s o n  p e r s o n ­
n e l ,  a r e  a s u r e  c a u s e  o f  t e n s i o n ,  i r r i t a b i l i t y ,  
and v i o l e n c e .  T h e r e  i s  no doubt  i n  t h e  mind 
o f  t h i s  Grand Ju r y  t h a t  v i r t u a l  i n s t i t u t i o n ­
a l i z a t i o n  o f  o v e r t  r a c i s m  has b e e n  t h e  d i r e c t  
c a u s e  o f  c o u n t l e s s  s e r i o u s  i n j u r i e s  t o  b o t h  
p r i s o n e r s  and  s t a f f  a l i k e  . . .  ( C . T .  9 2 0 ) .

42/

43/

C . T .  705,  778,  852.

C . T .  705,  970.

C.T. 864, 873, 926, 930.44/



31

A t a s k  f o r c e  e s t a b l i s h e d  t o  i n v e s t i g a t e  t h e  

San  Q u e n t i n  r i o t  u r g e d  t h e  D e p a r t m e n t  t o  t a k e  

s t e p s  t o  i n c r e a s e  t h e  number o f  m i n o r i t y  g r o up  

e m p l o y e e s  ( C . T .  7 0 4 ) .  Th e  i n i t i a l  a f f i r m a t i v e

a c t i o n  p o l i c i e s  w e r e  a d o p t e d  i n  r e s p o n s e  t o  t h i s  

p r o p o s a l  ( i d . ) .  I n  May ,  1974,  a s u bs e q u e n t  Ta sk  

F o r c e  t o  S t ud y  V i o l e n c e  u r g e d  r e n e we d  e f f o r t s  t o  

i n c r e a s e  m i n o r i t y  e mp l o y me n t ,  a r g u i n g  t h a t  i n ­

c r e a s i n g  t h e  p r o p o r t i o n s  o f  B l a c k  and  C h i c a n o

e m p l o y e e s  w i l l  r e l i e v e  a l t h o u g h  n o t  s o l v e  t h e  
45/

p r o b l e m s . —  A c t i n g  i n  p a r t  i n  r e l i a n c e  on t he

l a t t e r  r e p o r t  t h e  D i r e c t o r  o f  t h e  D e p a r t m e n t

i s s u e d  t h e  w r i t t e n  A f f i r m a t i v e  A c t i o n  P l a n

w h i ch  i s  unde r  a t t a c k  i n  t h i s  c a s e  ( R . T .  3 2 5 ) .

D e p a r t m e n t  o f f i c i a l s  h a v e  c o n c l u d e d  t h a t  t he

p r e s e n c e  o f  m i n o r i t y  e m p l o y e e s  i s  e s s e n t i a l  i n  a

v a r i e t y  o f  ways  t o  t he  m a i n t e n a n c e  o f  s e c u r i t y .

The most  d a ng e r o u s  r o l e  f o r  w h i c h  t h o s e  e m p l o y e e s

a r e  ne e d e d  i s  t o  h e l p  c o n t r o l  and p r e v e n t  r a c e

r i o t s  and o t h e r  r a c i a l  i n c i d e n t s  among t h e  i nmates
46/

o r  b e t w e e n  i n m a t e s  and g u a r d s . —  The  i m p o r t a n c e

45/ The Ta sk  F o r c e  t o  S tudy  V i o l e n c e ,  R e p o r t  and 
R e c o m m e n d a t i o n s , (May ,  1 9 7 4 ) ,  p.  1, p.  20.

46/ W i t h  r e s p e c t  t o  a n o t h e r  l a w  e n f o r c e m e n t  
b r a n c h ,  t h e  p o l i c e ,  t h e  p r e s e n c e  o f  b l a c k  o f -



32

o f  m i n o r i t y  g u a r d s  was g r a p h i c a l l y  i l l u s t r a t e d  by  

t h e  t e s t i m o n y  o f  a b l a c k  f o r m e r  gua r d  who a v e r t e d  

b l o o d s h e d  i n  t h e  wake  o f  a n e a r  r i o t  i n  t he  B i g  

Y a r d  a t  S a n  Q u e n t i n  i n  1 9 7 1 .  A f t e r  b l a c k  and 

w h i t e  i nma t e s  w e r e  p h y s i c a l l y  s e p a r a t e d ,  t h e  w h i t e  

Y a r d  L i e u t e n a n t  d i r e c t e d  t h e  b l a c k  i n m a t e s  t o  

r e t u r n  t o  t h e i r  c e l l s .  T h e y  r e f u s e d  t o  do s o ,  and 

d e f i e d  t he  w h i t e  o f f i c e r  t o  come c l o s e r  t o  them;  

he  r e f u s e d  t o  do s o ,  and c a l l e d  i n s t e a d  f o r  guns 

and t e a r  g a s .  A t  t h a t  p o i n t ,  a b l a c k  g u a r d  was 

c a l l e d  i n  and,  by m e r e l y  r e a s o n i n g  w i t h  t h e  b l a c k  

i n m a t e s ,  was a b l e  t o  end t h e  c o n f r o n t a t i o n .  He 

t e s t  i f i e d :

A .  T h e r e  w a s  no v i o l e n c e  t h e n ,  n o . . .  
But  I  am s a y i n g  by me b e i n g  b l a c k ,  I  had  a 
l i t t l e  —  I  h a d  t h a t  e x t r a  g o i n g  f o r  me 
b e c a u s e  t h e y  w o u l d n ' t  a r b i t r a r i l y  a t t a c k  me 
. . . .  I f  t h a t  o t h e r  [ w h i t e ]  L i e u t e n a n t  wo u l d  
h a v e  g one  up t h e r e ,  I ' m  q u i t e  s u r e  t h e y  wo u l d

46/ c o n t i n u e d

f i c e r s ,  p a r t i c u l a r l y  s u p e r v i s o r s ,  has  b e e n  c o n ­
s i d e r e d  i m p o r t a n t  i n  c o n t r o l l i n g  a n d  e a s i n g  
t e n s i o n s  d u r i n g  p o t e n t i a l  r a c i a l  c o n f r o n t a t i o n s .  
The  P r e s i d e n t ' s  C o m m i s s i o n  on Law E n f o r c e m e n t  and 
A d m i n i s t r a t i o n  o f  J u s t i c e ,  T a s k  F o r c e  R e p o r t :  The 
P o l i c e  ( 1 9 6 7 ) ,  pp .  1, 172;  R e p o r t  o f  t h e  N a t i o n a l  
A d v i s o r y  Commi ss i on  on C i v i l  D i s o r d e r s  ( 1 9 6 8 )  p p . 
1, 315.  ' ' “



33

h a v e  a t t a c k e d  h i m.  47/

The  r e c o r d  c o n t a i n s  o t h e r  e x am p l e s  o f  how m i n o r i t y -
48/

gua r d s  w e r e  a b l e  t o  a v e r t  r a c i a l  v i o l e n c e , —  and

how t h e  l a c k  o f  b l a c k  o f f i c e r s  h a m p e r e d  t h e

D e p a r t m e n t ' s  a b i l i t y  t o  d e a l  e f f e c t i v e l y  w i t h

r a c i a l  d i s t u r b a n c e s  ( C . T .  4 9 4 - 9 5 ) .

Ho w e v e r ,  t h e  i m p o r t a n c e  o f  m i n o r i t y  o f f i c e r s

i s  n o t  l i m i t e d  t o  e x t r e m e  s i t u a t i o n s .  U n d e r

n o r m a l  c i r c u m s t a n c e s  g u a r d s  a r e  c o n s t a n t l y  a t

r i s k .  W i t h  r a r e  e x c e p t i o n s ,  g ua r ds  do  no t  c a r r y  
49/

f i r e a r m s , —  and f r e q u e n t l y  t h e y  a r e  s u r r o u n de d  

b y  h u n d r e d s  o f  i n m a t e s ,  many  o f  whom " h a v e  

d e m o n s t r a t e d  a c a p a c i t y  f o r  v i o l e n c e " .  P e l l  v . 

P r o c u n i e r , 417 U . S .  817,  826 ( 1 9 7 4 ) .  T h e r e  i s  a

d a n g e r ,  as one  f o r m e r  gua rd  t e s t i f i e d ,  t h a t  " [ o ] u t  

o f  f r u s t r a t i o n ,  y o u r  c o l o r  g e t s  you k i l l e d ,  you 

know,  j u s t  f o r  no r e a s o n . "  ( R . T .  8 9 6 ) .

Unde r  t h e s e  " o r d i n a r y "  c i r c u m s t a n c e s  c o r r e c ­

t i o n s  o f f i c i a l s  m a i n t a i n  c o n t r o l  o f  t h e i r  i n s t i ­

t u t i o n s ,  no t  by  f o r c e  o f  arms o r  by i n t i m i d a t i o n

47/ R . T .  897.  T h i s  w h i t e  L i e u t e n a n t  o r d i n a r i l y  
had e x c e l l e n t  r e l a t i o n s  w i t h  b l a c k  i n m a t e s .  R . T .  
900 -901 .

49/ R . T .  336,  623.

48/ R.T. 551, 663; C.T. 503-04, 525.



34

and t h r e a t s ,  bu t  t h r o u g h  an e f f e c t i v e  and c o o p e r a ­

t i v e  r e l a t i o n s h i p  w i t h  t h e  i n m a t e s .  " [ T ] h e  

o p e r a t i o n  o f  a p r i s o n  f a c i l i t y  d e pe nds  upon t h e  

a b i l i t y  o f  t h e  s t a f f  t o  i n t e r a c t  w i t h  t he  i nma t e s  

and t o  come t o  some common a g r e e m e n t  as t o  how t he  

a c t i v i t y  s h o u l d  b e  c o n d u c t e d "  ( R . T .  6 2 1 ) .  The

most  i m p o r t a n t  q u a l i f i c a t i o n  a c o r r e c t  i o n  o f f i c e r  

must  h a v e  i s  t he  " a b i l i t y  t o  e f f e c t i v e l y  communi ­

c a t e .  No t  o n l y  t o  be a b l e  t o  p e r c e i v e  what  i s  

g o i n g  a r o und  h i m o r  h e r  i n  t h e  i n s t i t u t i o n ,  bu t  t o

be  a b l e  t o  d i f f u s e  p o t e n t i a l l y  d a n g e r o u s  o r  t e n s e  
,,50/

s i t u a t i o n s . —

T h e  C a l i f o r n i a  D e p a r t m e n t  o f  C o r r e c t i o n s  

c o n c l u d e d  t h a t  m i n o r i t y  o f f i c e r s  w e r e  l i k e l y  t o  

c o mmun i ca t e  more  e f f e c t i v e l y  w i t h  m i n o r i t y  i n ­

m a t e s .  T h i s  v i e w  was s h a r e d  by t h e  w ar de ns  o f  

F o l s o m  and San Q u e n t i n  p r i s o n s  ( R . T .  4 4 5 ;  C . T .

5 0 0 - 0 2 ) ,  t h e  s u p e r v i s o r s  o f  i n s t i t u t i o n s  a t  

S o l e d a d ,  D e u e l  and  J a m e s t o w n  ( C . T .  5 0 9 - 1 0 ,

5 4 1 - 4 2 ,  4 9 4 - 9 6 ) ,  t h e  D i r e c t o r  and P e r s o n n e l

D i r e c t o r  o f  t h e  D e p a r t m e n t  ( R . T .  3 2 2 - 2 3 ,  3 2 4 ,

3 4 3 - 4 4 ,  6 7 6 ) ,  and o t h e r  h i g h  r a n k i n g  s t a t e

c o r r e c t i o n s  o f f i c i a l s  ( R . T .  5 5 0 ,  5 9 1 ,  5 9 6 - 9 7 ,

50/ R.T. 6 76 ; see R.T. 336, 624, C.T. 496.



35 -

5 6 3 ) .  As t h e  D i r e c t o r  e x p l a i n e d :

I  do b e l i e v e ,  on  t h e  b a s i s  o f  my e x p e r i e n c e  
i n  t h i s  b u s i n e s s ,  t h a t  g e n e r a l l y  s p e a k i n g  
w h e n  y o u ' r e  d e a l i n g  w i t h  g r o u p s  o f  b l a c k  
i n m a t e s  i n  a p r i s o n ,  g e n e r a l l y  s p e a k i n g ,  t h e  
b l a c k  c o r r e c t i o n a l  o f f i c e r  w o u l d  g e n e r a l l y  
h a v e  a b e t t e r  c hanc e  o f  b e i n g  a c c e p t e d  and 
o f  d e a l i n g  w i t h  and r e l a t i n g  t o  t h o s e  b l a c k  
i n m a t e s  t h a n  a n y  o t h e r  e t h n i c  g r o u p  ( R . T .  
3 4 3 - 4 4 ) .

T h e i r  s h a r e d  h i s t o r y  as v i c t i m s  o f  s o c i e t a l  

d i s c r i m i n a t i o n  a f f o r d s  a p o t e n t i a l  bond b e t w e e n  

B l a c k  o r  M e x i c a n - A m e r i c a n  i n m a t e s  and gu a r d s  t h a t  

c o u l d  p r o v e  c r i t i c a l  a t  t i m e s  o f  s t r i f e  ( C . T .  

5 0 2 ) .  S t a t e  o f f i c i a l s  a l s o  r e c o g n i z e d  t h a t  

a w h i t e  o f f i c e r  m i g h t  b e  l i t e r a l l y  u n a b l e  t o  

u n d e r s t a n d  M e x i c a n - A m e r i c a n  i n m a t e s ,  many o f  whom

s p e a k  o n l y  S p a n i s h ; ---- ^ s i m i l a r  c o n c e r n s  w e r e

e x p r e s s e d  ab ou t  t h e  use  o f  g h e t t o  d i a l e c t  on t he  

p a r t  o f  b l a c k  i n m a t e s  ( R . T .  6 5 4 - 5 5 ,  895,  9 0 4 ) .

C o r r e c t i o n a l  o f f i c i a l s  a l s o  f o u n d  t h a t  

m i n o r i t y  o f f i c e r s  w e r e  l i k e l y  t o  be e s s e n t i a l  i n  

c o n d u c t i n g  i n v e s t i g a t i o n s  o f  i n c i d e n t s  o r  c r i m i n a l  

c o n d u c t  w i t h i n  a f a c i l i t y  when one  o r  more o f  t he

51/ R . T .  321,  479,  625,  662;  C . T .  526.



36

w i t n e s s e s  w e r e  n o n - w h i t e . —  The r o l e  o f  m i n o r ­

i t y  s u p e r v i s o r s  i n  s h a p i n g  i n s t i t u t i o n a l  p o l i c i e s  

had  p r o v e d  c r i t i c a l  t o  a v o i d i n g  d e c i s i o n s  l i k e l y  

t o  p r o v o k e  r a c i a l  d i f f i c u l t i e s ,  and t o  a s c e r t a i n ­

i n g  s t e p s  t e n d i n g  t o  i m p r o v e  t h e  r a c i a l  a t m o s p h e r e  

( C . T .  5 0 4 - 0 5 ,  5 1 0 - 1 3 ,  R . T . 6 2 7 ) .

The  n e c e s s i t y  f o r  m i n o r i t y  o f f i c e r s  r e a c h e s  

t o  a l l  l e v e l s  o f  t h e  p r i s o n s .  The  p r e s e n c e  o f  

m i n o r i t y  s u p e r v i s o r s  p r e v e n t s  t h e  i m p l e m e n t a t i o n  

o f  p o l i c i e s  w h i c h  i n f l a m e  r a c i a l  a n t a g o n i s m s  

( C . T .  5 0 4 ) ,  and a f f e c t s  d e c i s i o n s  w h i c h  a f f i r m a ­

t i v e l y  i m p r o v e  r a c i a l  u n d e r s t a n d i n g s  and t h e  

f e e l i n g  among m i n o r i t y  i n m a t e s  t h a t  t h e  a d m i n i s ­

t r a t i o n  has  abandoned  i t s  d i s c r i m i n a t o r y  p r a c t i c e s  

and has  begun  t o  t r e a t  a l l  i n m a t e s  f a i r l y  ( e . g . ,  

C . T .  5 1 0 - 1 1 ) .  H a v i n g  m i n o r i t i e s  i n  s u p e r v i s o r y  

r o l e s  a l s o  i n s u r e s  t he  e l i m i n a t i o n  o f  s p e c i f i c  

d i s c r i m i n a t o r y  p r a c t i c e s ,  as  i n  i n m a t e  w o r k  

a s s i g n m e n t s  ( C . T .  5 2 6 ) .  As t h e  A s s o c i a t i o n  o f  

S t a t e  C o r r e c t i o n a l  A d m i n i s t r a t o r s  has  r e c o g n i z e d ,

52/ R . T .  562;  C . T .  502 ( " [ s ] h o u l d  a b l a c k  and 
w h i t e  i n m a t e  be  i n v o l v e d  i n  a r a c i a l  a s s a u l t ,  i t  
i s  e x t r a o r d i n a r i l y  h e l p f u l  f o r  t he  w h i t e  i nma t e s  
t o  be i n t e r v i e w e d  by a w h i t e  s t a f f  member and a 
b l a c k  by a b l a c k  " ) ,  509.



37

t h e r e  i s  a " c l e a r  ne ed  t o  i n c r e a s e  t h e  number o f  

m i n o r i t y  p e r s o n n e l  a t  e v e r y  l e v e l  o f  c o r r e c t i o n s  

. . . "  U n i f o r m  C o r r e c t i o n a l  P o l i c i e s  and P r o c e d u r e s

( 1 9 7 2 ) ,  pp.  2 2 - 2 4 . — 7

To c h a r a c t e r i z e  t h e  D e p a r t m e n t ' s  A f f i r m a t i v e  

A c t i o n  P l a n  as p a n d e r i n g  t o  i n m a t e s '  " c u s t o m e r  

p r e f e r e n c e " - - a s  i n  c a s e s  i n  w h i ch  a i r l i n e s  a r g u e d  

t h a t  t h e i r  p r e d o m i n a n t l y  ma l e  p a s s e n g e r s  p r e f e r ­

r e d  f e m a l e  f l i g h t  a t t e n d e n t s — t r i v i a l i z e s  a 

s e r i o u s  p r o b l e m  o f  i n s t i t u t i o n a l  and i n d i v i d u a l  

s e c u r i t y  t o  t he  p o i n t  o f  a b s u r d i t y .  F i r s t  o f  a l l ,  

u n l i k e  t h e  ma l e  a i r l i n e  p a s s e n g e r ' s  p r e d i l i c t i o n s , 

m i n o r i t y  i n m a t e s '  d i s t r u s t  o f  w h i t e  o f f i c e r s  i s  

g r o u n d e d  i n  a v e r y  r e a l  h i s t o r y  o f  o v e r t  r a c i s t  

c o n d u c t .  I n  t h e  c o n t e x t  o f  a s i m i l a r  argument

5 3/ A c c o r d , N a t i o n a l  A d v i s o r y  C o m m i s s i o n  on  
C r i m i n a l  J u s t i c e  S t a n d a r d s  and G o a l s ,  R e p o r t  on 
C o r r e c t i o n s  ( 1 9 7 3 )  p.  1, pp.  474 ,  599;  A s s o c i a t  i o n  
o f  S t a t e  C o r r e c t i o n a l  A d m i n i s t r a t o r s ,  U n i f o r m  
C o r r e c t i o n a l  P o l i c i e s  and P r o c e d u r e s , ( 1 9 7 2 )  p . T7  
pp.  2 3 - 24 ;  N a t i o n a l  C o n f e r e n c e  on C o r r e c t i o n s ,  
W i l l i a m s b u r g ,  V i r g i n i a ,  ( De c .  5 - 8 ) ,  1 9 7 1 ) ,  p. 19, 
pp.  50, 85,  91,  92;  F i n a l  R e p o r t  o f  J o i n t  Commis­
s i o n  on C o r r e c t i o n a l  Manpower  and T r a i n i n g ,  A Time 
To A c t , ( O c t o b e r  1 9 6 9 ) ,  p. 1, p.  14;  S k o l e r  and 
L o e w e n s t e i n ,  M i n o r  i t  i e s  i n  C o r r e c t i o n ,  N o n d i s ­
c r i m i n a t i o n ,  E q u a l  O p p o r t u n i t y  and L e g a l  I s s u e s ,  
20 C r i me  and D e l i n q u e n c y ,  N. 4,  l O c t ! 1974")",
339, p. 340.

P-



- 38

made by w h i t e  p o l i c e  o f f i c e r s  a g a i n s t  t he  D e t r o i t  

P o l i c e  D e p a r t m e n t ' s  a f f i r m a t i v e  a c t i o n  p l a n ,  Judge  

Damon K e i t h  n o t e d :

The  C i t y ' s  o p e r a t i o n a l  needs  d e f e n s e  c a nno t  

be s e p a r a t e d  f r om t h e  h i s t o r i c a l  c o n t e x t  i n  
w h i c h  i t  a r o s e .  I n  an i d e a l  w o r l d  t h e r e  i s  
no q u e s t i o n  t h a t  t h e  o p e r a t i o n a l  n e e d s  
d e f e n s e  w o u l d  be  u n t e n a b l e .  H o w e v e r ,  we do 
no t  l i v e  i n  an i d e a l  w o r l d ,  and t he  h i s t o r y  
o f  r a c e  r e l a t i o n s  i n  t h e  C i t y  o f  D e t r o i t  i s  
f a r  f r o m  i d e a l .

B a k e r  v .  C i t y  o f  D e t r o i t , 483 F.  Supp.  933,  996 

( E . D .  M i c h .  1 9 7 9 ) .

S e c o n d l y ,  t h e  e x p e r i e n c e  i n  C a l i f o r n i a ' s  

p r i s o n s  and e l s e w h e r e  has  b e e n  t h a t  t h e  p r e s e n c e  

o f  more  m i n o r i t y  c o r r e c t i o n a l  o f f i c e r s  d o e s  i n  

f a c t  f a c i l i t a t e  c o m m u n i c a t i o n  and c o o p e r a t i o n  

b e t w e e n  i n m a t e s  and s t a f f ,  d o e s  i n  f a c t  r e d u c e  

r a c i a l  t e n s i o n s ,  and d o e s  i n  f a c t  a v e r t  v i o l e n c e  

and a s s a u l t s .  " [ l ] n  t h e  c u r r e n t  e n v i r o n m e n t ,  

w h e r e  p r i s o n  d i s r u p t i o n  r e m a i n s  a s e r i o u s  c o n c e r n  

t o  a d m i n i s t r a t o r s , "  t h i s  C o u r t  has  n o t  " i g n o r e [ d ]  

t h e  d e s i r e  and e f f o r t  o f  many s t a t e s  . . .  t o  

a v o i d  s i t u a t i o n s  t h a t  may t r i g g e r  deep e m o t i o n s "  

and v i o l e n c e .  W o l f f  v .  M c D o n n e l l ,  s u p r a ,  418 U.S. 

a t  568.



- 39

F i n a l l y ,  t h e  a f f i r m a t i v e  a c t i o n  p r o g r a m  was 

no t  i n s t i t u t e d  b e c a u s e  b l a c k  i n m a t e s  o n l y  l i k e  

b l a c k  gu a r d s  ( R . T .  3 3 8 - 3 9 ) .  The t r i a l  c o u r t  i t s e l f  

r e c o g n i z e d  t h a t  m i n o r i t y  and f e m a l e  e m p l o y e e s  w e r e  

i n d e e d  ne e d e d  i n  c e r t a i n  p o s i t i o n s ,  and a p p r o v e d  

a s s i g n m e n t s  on t h e  b a s i s  o f  r a c e  and s e x .  P e t i ­

t i o n ,  F - 6  t o  F - 7 .

To  a s u b s t a n t i a l  d e g r e e ,  t h e  p u r p o s e s  s e r v e d  

by  m i n o r i t y  e m p l o y e e s  r e q u i r e  t h a t  t h e y  b e  a t  a l l  

l e v e l s  o f  t h e  D e p a r t m e n t ,  n o t  m e r e l y  i n  t h e  l o w e s t  

r a n k i n g  p o s i t i o n s .  The  Law E n f o r c e m e n t  A s s i s t a n c e  

A d m i n i s t r a t i o n  i n i t i a l l y  u r g e d  as a g u i d e l i n e  t h a t  

t he  p r o p o r t i o n  o f  m i n o r i t y  e m p l o y e e s  be  70% o f  t he  

p r o p o r t i o n  o f  m i n o r i t y  i n m a t e s .  E x h i b i t  G. I n  

1976,  a f t e r  LEAA w i t h d r e w  t h e  use  o f  t h e  p r o p o r ­

t i o n  o f  m i n o r i t y  i n m a t e s  as a s t a n d a r d ,  C a l i f o r n i a  

o f f i c i a l s ,  d r a w i n g  on f o u r  y e a r s  o f  e x p e r i e n c e  

u n d e r  t h e  A f f i r m a t i v e  A c t i o n  P l a n ,  d e c i d e d  t o  

c o n t i n u e  t h i s  g u i d e l i n e .  P e t i t i o n e r s  d i d  n o t  

r a i s e  as an i s s u e  o r  s e e k  t o  p r o v e  a t  t r i a l  t h a t  

t he  number o f  m i n o r i t y  and f e m a l e  e m p l o y e e s  was 

a l r e a d y  s u f f i c i e n t  t o  m e e t  t h e  D e p a r t m e n t ' s  

o p e r a t i o n a l  n e e d s ,  o r  t h a t  t h e  70% g u i d e l i n e  was 

t o o  h i g h ;  t h e y  u r g e d  i n s t e a d  s i m p l y  t h a t  t h e r e  

w e r e  no such o p e r a t i o n a l  n e e d s .  T h e i r  c l a i m  i n



- 40

t h i s  C o u r t  t h a t  t h e r e  w e r e  a m p l e  m i n o r i t y  em­

p l o y e e s  when t he  p l a n  was a d o p t e d  i s  c l e a r l y  no t
54/

s u p p o r t e d  by  t he  r e c o r d . - —

T h e s e  j u d g m e n t s  on  t h e  p a r t  o f  C a l i f o r n i a  

o f f i c i a l s ,  and t h e  a f f i r m a t i v e  a c t i o n  p o l i c i e s  

a d o p t e d  by t he  C a l i f o r n i a  D e p a r t m e n t  o f  C o r r e c ­

t i o n s ,  w e r e  not  u n i q u e .  R a c i a l  v i o l e n c e  i n  p r i s o n s  

i s  a n a t i o n w i d e  p r o b l e m ; - ^ -  and  c o r r e c t i o n a l  

a d m i n i s t r a t o r s  and e x p e r t s  h a v e  l o o k e d  c l o s e l y  a t  

t he  i n t e r a c t i o n  b e t w e e n  s t a f f  and i n m a t e s  as t he

k e y  i n  d i f f u s i n g  t h e  t e n s i o n
56/

T h e  New Y o r k

54/ F o r  e x a m p l e ,  among 25 t o p  a d m i n i s t r a t o r s ,  31 
t e a c h e r  s u p e r v i s o r s ,  61 p s y c h i a t r i s t s ,  37 c h a p ­
l a i n s  and 33 C o r r e c t i o n  C o u n s e l l o r  I l l ' s ,  t h e r e  
was n o t  a s i n g l e  M e x i c a n - A m e r i c a n .  T h e r e  was o n l y  
one  M e x i c a n  A m e r i c a n  among 65 a c a d e m i c  t e a c h e r s ,  
among  33 C o r r e c t i o n  C o u n s e l l o r  I I ' s ,  among  36 
p s y c h i a t r i s t s ,  and among 36 d e p u t y  o r  a s s o c i a t e  
a d m i n i s t r a t o r s .  E x h i b i t  G, p.  34.

55/ A s s o c i a t i o n  o f  S t a t e  C o r r e c t i o n a l  A d m i n i s ­
t r a t o r s ,  U n i f o r m  C o r r e c t i o n a l  P o l i c i e s  and P r o c e ­
d u r e s  , ( 1 9 7 2 )  p"! T, ppT 2 2 - 2 4 ;  N a t i o n a l  A d v i s o r y
C o m m i s s i o n  on  C r i m i n a l  J u s t i c e  S t a n d a r d s  and 
G o a l s ,  R e p o r t  on  C o r r e c t i o n s ,  ( 1 9 7 3 ) ,  p 1,  p.  
465.

56/ A s s o c i a t i o n  o f  S t a t e  C o r r e c t i o n a l  A d m i n i s ­
t r a t o r s  , U n i f o r m  Co r  r e c t i o  n a 1 P o 1 i  c i  e s and 
P r o c e d u r e s  , ( i 9 7~2) ~ p .  1,  p p .  2 2 - 2 4 ;  N a t i o n a l



- 41

c o m m i s s i on  i n v e s t i g a t i n g  t he  A t t i c a  t r a g e d y  f ound  

i t s  r o o t s  i n  t he  a b s e n c e  o f  m i n o r i t y  gua r d s  and i n  

r a c i a l  d i s c r i m i n a t i o n  on t h e  p a r t  o f  w h i t e  c o r r e c ­

t i o n s  o f f i c e r s . —  ̂ C o r r e c t i o n a l  a d m i n i s t r a t o r s , — ^

56/ c o n t i n u e d

A d v i s o r y  Commi ss i on  on C r i m i n a l  J u s t i c e  S t an d a r d s  
and G o a l s ,  R e p o r t  on C o r r e c t i o n s ,  ( 1 9 7 3 )  p .  1, pp.  
3 6 3 ,  3 6 5 ;  N a t  i o n a 1 C o n f e r e n c e  on  C o r r e c t i o n s ,
W i l l i a m s b u r g ,  V i r g i n i a  ( D e c .  5 - 8 ,  1 9 7 1 ) ,  p. 50;
A t t i c a , The  O f f i c i a l  R e p o r t  o f  t h e  New Y o r k  S t a t e  
Commi ss i on  on A t t i c a '  ( h e r e i n a f t e r  r e  £ e r r  eel t o as" 
McKay C ommi s s i on  R e p o r t ) ,  p r e f a c e  X V I I I ,  pp .  3,  4,  
7 9 - 8 2 ,  112,  113.

57/ McKay C ommi s s i on  R e p o r t ,  p.  1,  pp .  2 - 4 ,  3 8 - 4 0 ,  
80,  ( Ban tam E d . ,  19 7 2 ) .

58 / A s s o c i a t i o n  o f  S t a t e  C o r r e c t i o n a l  A d m i n i s ­
t r a t o r s ,  U n i f o r m  C o r r e c t i o n a l  P o l i c i e s  and P r o ­
c e d u r e s  , ( 1 9 7 2 ) ,  p"! “  pp .  2 3 - 2 4 ;  P r o c u n i e r , nThe
D i l e m m a  o f  P r i s o n s " ,  N a t i o n a l  C o n f e r e n c e  on 
C o r r e c t i o n s ,  W i l l i a m s b u r g ,  V i r g i n i a ,  ( D e c .  5 - 8 ,  
1 9 7 1 ) ,  p.  19,  p.  20;  Manpower  f o r  C o r r e c t i o n s , 
G r o u p  D i s c u s s i o n  P a p e r s ,  Wor k s h o p  I I ,  N a t i o n a l  
C o n f e r e n c e  on C o r r e c t i o n s ,  W i l l i a m s b u r g ,  V i r g i n i a ,  
( D e c .  5 - 8 ,  1 9 7 1 ) ,  p.  83 ( M c L a u g h l i n ) ,  91 ( B r e e d ) ,  
92 ( L u g e r ) ,  93 ( W a l l a c e ) ,  93 -95  ( N a g e l ) ,  96 -97  
( S a n f i 1 i p p o ) ,  103 ( O s w a l d ) ;  T h e  T a s k  F o r c e
t o  S t u d y  V i o l e n c e ,  R e p o r t  and  R e c o m m e n d a t i o n s , "  
' (May 1 9 7 4 ) , " p .  1. , p. 20.



42

e x p e r t s  i n  t h e  f i e l d ,
59/ „  60/
----  C o n g r e s s , — ■ and

59/ H i g g i n b o t h a m ,  J.  , " F r o m  t h e  O u t s i d e  L o o k i n g  
I n :  I s  Y e s t e r d a y ' s  R a c i s m  R e l e v a n t  t o  T o d a y ' s  
C o r r e c t i o n s ? " ,  O u t s i d e  L o o k i n g  I n ,  A S e r i e s  o f  
M o n o g r a p h s  A s s e s s i n g  t h e  E f f e c t i v e n e s s  o f  C o r r e c t  
t i o n s , Law E n f o r c e m e n t  A s s i s t a n c e  A d m i n i s t r a t i o n ,  
U .S .  D e p a r t m e n t  o f  J u s t i c e ,  ( A p r i l  1 9 7 0 ) ;  S k o l e r  
and L o e w e n s t e i n ,  M i n o r i t i e s  i n  C o r r e c t i o n ,  Non­
d i s c r i m i n a t i o n ,  E q u a l  O p p o r t u n i t y  and  L e g a l  
I s s u e s  i 20 Cr i me  and D e l i n q u e n c y ,  No.  4^ ( O c t . 
1 9 7 4 ) ,  p.  339,  340 ;  M i t c h e l l ,  "New D o o r s ,  No t  O l d  
W a l l s , "  N a t i o n a l  C o n f e r e n c e  on  C o r r e c t i o n s ,  
W i l l i a m s b u r g ,  V i r g i n i a ,  ( D e c .  5 - 8 ,  1 9 7 1 ) ,  p.  5,  p. 
8;  McGee ,  "Manpower  F o r  C o r r e c t i o n s ,  Summary o f  
W o r k s h o p  I I  R e p o r t s , "  N a t i o n a l  C o n f e r e n c e  on 
C o r r e c t i o n s ,  W i l l i a m s b u r g ,  V i r g i n i a ,  ( D e c .  5 -8 ,  
1 9 7 1 ) ,  p . 4 9 ,  p .  5 0 ;  K u t a k ,  " N e w  D i r e c t i o n s  i n  
C o r r e c t i o n s ,  Summary o f  Workshop  I I I  R e p o r t s , "  
N a t i o n a l  C o n f e r e n c e  on C o r r e c t i o n s ,  W i l l i a m s b u r g ,  
V i r g i n i a ,  ( D e c .  5 - 8 ,  1 9 7 1 ) ,  p.  52, p.  53;  Manpower  
f o r  C o r r e c t i o n s ,  Group D i s c u s s i o n  P a p e r s ,  Workshop 
I I ) Na t  i o n a l  C o n f e r e n c e  on C o r r e c t  i o n s , W i 11i  ams-  
b u r g ,  V i r g i n i a ,  ( De c .  5 - 8 ,  1971 )  p. 83, pp.  83,  84 
( M o e l l e r ) ,  85 ( C o n r a d ) .

6 0 / A m e r i c a n  P r i s o n s  I n  T u r m o i l ,  H e a r i n g s  b e f o r e  
t he  House S e l e c t  C o m m i t t e e  on  C r i m e , 92nd C o n g . ,  
1 s t  and 2nd S e s s . , (1971 arid 1 9 7 2 ) ,  p. 1, pp.  8,  
21,  22,  40 ,  41 ,  58,  59,  80,  81,  140-43 ,  148,  149,  
1 5 4 - 5 7 ,  1 6 8 ,  1 6 9 ,  2 2 4 ,  2 2 7 ,  3 1 8 ,  3 1 9 ;  P e p p e r ,  
P r i s o n s  I n  T u r m o i l , 36 F e d e r a l  P r o b a t i o n ,  No.  4, 
( D e c . 1 9 7 2 ) ,  p.  3, p .  4.



- 43

s e r i e s  o f  n a t i o n a l  c o m m i s s i o n s — ■ h a v e  c o n s i s t ­

e n t l y  u r g e d  t h a t  t he  number o f  m i n o r i t y  c o r r e c ­

t i o n a l  e m p l o y e e s  be  s h a r p l y  i n c r e a s e d .  The  R e p o r t  

on C o r r e c t i o n s  o f  t h e  N a t i o n a l  A d v i s o r y  Commi ss i on  

on C r i m i n a l  J u s t i c e  and S t a n d a r d s  r ecommended t h a t  

c o r r e c t i o n a l  o f f i c i a l s  " t a k e  i m m e d i a t e ,  a f f i r m a ­

t i v e  a c t i o n  t o  r e c r u i t  and emp l oy  m i n o r i t y  g r oup  
62/

i n d i v i d u a l s . " —  The  A t t o r n e y  G e n e r a l  r e p o r t e d  

i n  1971 t h a t  t h e  F e d e r a l  Bureau o f  P r i s o n s  had a 

g o a l  o f  o n e - t h i r d  m i n o r i t y  emp l oyment  i n  a l l  new 

h i r i n g  a nd  s t r o n g l y  s u p p o r t e d  s u c h  e f f o r t s ,  

a r g u i n g  t h e y  " w o u l d  g r e a t l y  i n c r e a s e  t h e  e f f e c ­

t i v e n e s s  o f  c o u n s e l i n g  and  g u i d a n c e  . . .  [ a n d ]

6J.J N a t i o n a l  A d v i s o r y  C o m m i s s i o n  on  C r i m i n a l  
J u s t i c e  S t a n d a r d s  and G o a l s ,  R e p o r t  on C o r r e c -
t i o n s ,  ( 1 9 7 3 ) ,  p.  1,  p .  3 6 3 ,  ~ 5 3  5,  4 6 5 ]  166",
471"  474 ,  475 ,  599;  J o i n t  Commiss i o n  on C o r r e c ­
t i o n a l  Manpower  and T r a i n i n g ,  C o r r e c t i o n s ,  1968,  
A C l i m a t e  F o r  C h a ng e , ( 1 9 6 8 ) ,  pi T~, p i  ' l b ; F i n a l  
R e p o r t  o f  J o i n t  Commi ss i on  on C o r r e c t i o n a l  Man­
powe r  and T r a i n i n g ,  A T ime  To A c t ,  ( O c t .  1 9 6 9 ) ,  p.  
1, p. 76.

62/ N a t i o n a l  A d v i s o r y  C o m m i s s i o n  on  C r i m i n a l  
J u s t i c e  S t a n d a r d s  and G o a l s ,  R e p o r t  on C o r r e c -
t i o n s  ( 1 9 7 3 ) ,  p. 1, p .  4 7 4 ;  s e e  a l s o ,  i d .  a t  pp.
363,  435,  4 6 5 - 6 6 ,  471 ,  4 7 4 - 7 5 ,  599.



- 44 -

, c . . . ,63/
g e n u i n e l y  b e n e f i t  t h e  c o r r e c t  i o n s  p r o c e s s . —-

The F o u r t e e n t h  Amendment  does  no t  p r e v e n t  a 

s t a t e  o r  l o c a l  g o v e r n m e n t  f r o m  i m p l e m e n t i n g  

r a c e - c o n s c i o u s  m e a s u r e s  t o  mee t  a s u f f i c i e n t l y  

i m p o r t a n t  o r  c o m p e l l i n g  g o v e r n m e n t  i n t e r e s t .  

R e g e n t s  o f  t h e  U n i v e r s i t y  o f  C a l i f o r n i a  v .  B a k k e , 

s u p r a , 438 U . S .  a t  362 - 6 9  ( O p i n i o n  o f  B r ennan ,  

W h i t e ,  M a r s h a l l ,  and B l ackmun,  J J . ) ;  i ^  a t  310-15  

( O p i n i o n  o f  P o w e l l ,  J . ) .  I n  B a k k e , J u s t i c e s  

Br ennan ,  W h i t e ,  M a r s h a l l ,  and B l ackmun h e l d  t h a t  

b e c a u s e  o f  t h e  c l e a r  and s u b s t a n t i a l  d i s c r i m i n a ­

t i o n  a g a i n s t  m i n o r i t i e s  i n  e d u c a t i o n  t h e r e  was "no  

q u e s t i o n "  t h a t  t h e  s t a t e  m e d i c a l  s c h o o l ' s  a f f i r ­

m a t i v e  a c t i o n  a d m i s s i o n s  p r o g r a m  was c o n s t i t u ­

t i o n a l .  I d . a t  369.  J u s t i c e  P o w e l l  n o t e d  t h a t  a 

s t a t e ' s  i n t e r e s t  i n  f a c i l i t a t i n g  t he  h e a l t h  c a r e  

o f  i t s  c i t i z e n s  o r  i n  a t t a i n i n g  a d i v e r s e  s t u d e n t  

b o d y  i n  i t s  e d u c a t i o n a l  i n s t i t u t i o n s  w o u l d  

be  s u f  f  i c  i e n t l y  c o m p e l l i n g  t o  s u p p o r t  t he  u s e  o f  

r a c i a l  c l a s s i f i c a t i o n s .  _Id_. a t  3 1 0 - 1 2 .  Th e  

s t a t e ' s  need  t o  m a i n t a i n  s e c u r i t y  i n  i t s  p r i s o n s  

i s  a t  l e a s t  as  c o m p e l l i n g  as  t h e  g o v e r n m e n t a l  

i n t e r e s t s  w h i c h  w e r e  a t  s t a k e  i n  Bakke .

63/ N a t i o n a l  C o n f e r e n c e  on C o r r e c t i o n s ,  W i l l i a m s ­
b u r g ,  V i r g i n i a  ( D e c .  5 - 8 ,  1 9 7 1 ) ,  p.  5,  p.  8.



- 45

I n  emp l oyment  d i s c r i m i n a t i o n  c a s e s ,  c o u r t s  

h a v e  a p p r o p r i a t e l y  a c k n o w l e d g e d  t h e  p e c u l i a r  n e eds  

o f  g o v e r n m e n t a l  l a w  e n f o r c e m e n t  a g e n c i e s ,  as  

d i s t i n g u i s h e d  f r o m  p r i v a t e  e m p l o y e r s ,  t o  h a v e  

m i n o r i t y  e m p l o y e e s  i n  o r d e r  t o  p e r f o r m  t h e i r  

e s s e n t i a l  f u n c t i o n s .  C o u r t s  h a v e  r e p e a t e d l y  

d e t e r m i n e d  t h a t ,  w h e r e  t h e r e  i s  a d i s p r o p o r ­

t i o n a t e l y  l o w  number  o f  m i n o r i t y  p o l i c e  o f f i c e r s  

c ompar e d  t o  t he  r e p r e s e n t a t i o n  o f  m i n o r i t i e s  i n  

t h e  p o p u l a t i o n ,  an  i n c r e a s e  i n  t h e  nu m b e r  o f  

m i n o r i t y  o f f i c e r s  w i l l  s u b s t a n t i a l l y  i m p r o v e  

t he  q u a l i t y  o f  l aw  e n f o r c e m e n t ;  and a c c o r d i n g l y ,  

t h e  c o u r t s  h a v e  t a k e n  t h i s  f a c t o r  i n t o  a c c o u n t  i n  

d e t e r m i n i n g  an a p p r o p r i a t e  r e m e d i a l  o r d e r ,  s e e ,  

e . g . ,  B r i d g e p o r t  G u a r d i a n s  I n c  v .  B r i d g e p o r t  C i v i l  

S e r v i c e  C o m m i s s i o n , 482 F . 2d 1333,  1341 ( 2d  C i r .

1 9 7 3 ) ,  c e r t . d e n i e d , 421 U .S .  991 ( 1 9 7 5 ) ;  NAACP v . 

A l l e n , 493 F . 2 d  614,  621 ( 5 t h  C i r .  1 9 7 4 ) ;  A r n o l d

v . B a l l a r d , 390  F .  S u p p .  7 23,  7 36 ( N . D .  O h i o  

1 9 7 5 ) ,  a f f ' d , 12 FEP Cases  1616 ( 6 t h  C i r .  1976 )  

v a c ,  and  r e m .  on  o t h e r  g r o u n d s , 16 FEP C a s e s  

396 ( 6 t h  C i r .  1 9 7 6 ) .  I n  a p p r o v i n g  an a f f i r m a t i v e  

a c t i o n  remedy f o r  a p o l i c e  d e p a r t m e n t ,  t h e  Second  

C i r c u i t  e m p h a s i z e d  t h a t



- 46

t h i s  i s  n o t  a p r i v a t e  e m p l o y e r  a nd  n o t  
s i m p l y  an e x e r c i s e  i n  p r o v i d i n g  m i n o r i t i e s  
w i t h  e q u a l  o p p o r t u n i t y  emp l o y me n t .  T h i s  i s  a 
p o l i c e  d e p a r t m e n t  and t he  v i s i b i l i t y  o f  t he  
B l a c k  p a t r o l m a n  i s  a d e c i d e d  a d v a n t a g e  f o r  
a l l  s e g m e n t s  o f  t h e  p u b l i c  a t  a t i m e  w he n  
r a c i a l  d i v i s i v e n e s s  i s  p l a g u i n g  l a w  e n f o r c e ­
ment  .

B r i d g e p o r t  G u a r d i a n s ,  I n c ,  v .  B r i d g e p o r t  C i v i l  

S e r v i c e  Commi s s i on ,  s u p r a  a t  1341.  A c c o r d , NAACP 

v .  A l l e n , s u p r a  a t  621 ; A r n o l d  v .  B a l l a r d , s u p r a , 

390 F .  Supp.  a t  736 ; B a k e r  v .  C i t y  o f  D e t r o i t , 

s u p r a ,  488 F .  Supp.  a t  966 -67 .

T h e  n e e d  t o  m a i n t a i n  o r d e r  a nd  s e c u r i t y  

i n  p r i s o n s  i s  e s s e n t i a l  t o  t h e  s t a t e ' s  j o b  o f  

p r o v i d i n g  a d e q u a t e  c o r r e c t i o n a l  i n s t i t u t i o n s .  The 

r e c o r d  i n  t h i s  c a s e  as w e l l  as t h e  f i n d i n g s  o f  

e x p e r t s  t h r o u g h o u t  t he  n a t i o n ,  show t h a t  m i n o r i t y  

c o r r e c t i o n a l  o f f i c e r s  a r e  an e s s e n t i a l  component  

i n  t h e  m a i n t e n a n c e  o f  o r d e r .  Once ,  as  h e r e ,  t h e  

s u b s t a n t i a l  o r  c o m p e l l i n g  g o v e r n m e n t  i n t e r e s t  i s  

e s t a b l i s h e d ,  t h e  i s s u e  becomes  w h e t h e r  t h e  a f f i r ­

m a t i v e  a c t i o n  p r o g r a m  a t  i s s u e  i s  d e s i g n e d  t o  
. 64 /

f u r t h e r  t h a t  i n t e r e s t , —  and w h e t h e r  t h e  remedy

64/ F u l l i l o v e ,  s u p r a ,  65 L . E d . 2 d  a t  9 2 5 - 3 2  
i B u r g e r ^  C . J . , j o i n e d  by W h i t e  and P o w e l l ,  J J . ) ,  
9 3 7 ,  945 ( P o w e l l ,  J . ) ;  9 5 1 - 5 2  ( M a r s h a l l ,  J . ,
j o i n e d  b y  B r e n n a n  and B l a c k m u n ,  J J .  ) ;  B a k k e , 
s u p r a , 438 U.S a t  2 7 5 - 7 6 ,  317-18  ( P o w e l l ,  J . ) "  "359 
( B r e n n a n ,  W h i t e ,  M a r s h a l l ,  and Blackmun,  J J . ) .



- 47 -

i s  t a i l o r e d  " t o  f i t  t h e  n a t u r e  and e x t e n t  o f  t h e  

. . .  v i o l a t i o n . "  D a y t o n  B o a r d  o f  E d u c a t i o n  v . 

B r i nk m a n , 433 U . S .  406 ,  4 1 9 - 4 2 0  ( 1 9 7 7 ) ,  q u o t i n g

M i l l i k e n  v .  B r a d l e y , 418 U . S .  717,  738 ( 1 9 7 4 ) ,

c i t e d  w i t h  a p p r o v a l  i n  F u l l i l o v e  v .  K l u t z n i c k , 

s u p r a , 65 L . E d . 2 d  a t  927.

F r o m  t h e  s t a n d p o i n t  o f  o p e r a t i o n a l  n e e d ,  

t h e  p u r p o s e  o f  t h e  A f f i r m a t i v e  A c t i o n  P l a n  i s  no t  

t o  make v i c t i m s  o f  p a s t  emp l oyment  d i s c r i m i n a t i o n  

w h o l e .  C f . F r a n k s  v .  Bowman T r a n s p o r t a t i o n  C o . , 

424 U . S .  747 ( 1 9 7 6 ) .  R a t h e r ,  t h e  p u r p o s e  i s  t o  

undo the  d e b i l i t a t i n g  and d a n g e r o u s  e f f e c t s  t h a t  

p a s t  d i s c r i m i n a t i o n  has had on t he  a b i l i t y  o f  t he  

s t a t e  t o  m a i n t a i n  o r d e r  i n  i t s  p r i s o n s .  T h e  

c o m p e l l i n g  n e e d  t o  h a v e  m i n o r i t y  gua r d s  v i s i b l e  

and a v a i l a b l e  t h r o u g h o u t  an i n s t i t u t i o n  t o  q u e l l  

r a c i a l  t e n s i o n s  and a v e r t  v i o l e n c e  i s  d i r e c t l y  

r e l a t e d  t o  t he  p r e s e n c e  o f  m i n o r i t y  i n m a t e s  i n  t he  

p r i s o n  p o p u l a t i o n .  I t  has l i t t l e ,  i f  a ny ,  r e l a ­

t i o n s h i p  t o  t h e  n u m b e r  o f  m i n o r i t i e s  i n  t h e  

r e l e v a n t  l a b o r  m a r k e t .  I n  o r d e r  t o  t a i l o r  a 

r e m e d y  t o  m e e t  t h a t  n e e d ,  t h e  p e r c e n t a g e  o r  

number o f  m i n o r i t y  i n m a t e s  i n  the  p r i s o n s  i s  t he  

i d e a l  f r a mewor k  f r o m  wh i ch  t o  a s s e s s  the  a f f i r m a ­



48 -

t i v e  a c t i o n  p l a n . —

C o u r t s  h a v e  an o b l i g a t i o n  t o  a s s e s s  t h e  

r e a s o n a b l e n e s s  o f  t h e  p a r a m e t e r s  o f  an a f f i r m a t i v e  

a c t i o n  p l a n .  H o w e v e r ,  i n  t h e  c o n t e x t  o f  l a w  

e n f o r c e m e n t  a g e n c i e s ,  and  i n  p r i s o n  a d m i n i s ­

t r a t i o n  i n  p a r t i c u l a r ,  t h e  p r e c i s e  manner  i n  w h i c h  

t h e  g o a l s  o f  t h e  p l a n  a r e  r e l a t e d  t o  t h e  p r i s o n  

p o p u l a t i o n  encompa s s e s  c o m p l e x  " c o n s i d e r a t i o n s  

[ w h i c h ]  a r e  p e c u l i a r l y  w i t h i n  t h e  p r o v i n c e  and 

p r o f e s s i o n a l  e x p e r t i s e  o f  c o r r e c t i o n a l  o f f i c i a l s . "  

P e l l  v .  P r o c u n i e r , 417 U . S .  817,  827,  ( 1 9 7 4 )  c i t e d  

i n  B e l l  v .  W o l f i s h , 441  U . S .  5 2 0 ,  5 4 0 ,  n . 2 3

( 1 9 7 9 ) ;  S e e  Jone s  v .  N o r t h  C a r o l i n a  P r i s o n e r s '  

U n i on ,  433 U .S .  119 ( 1 9 7 7 ) ;  P r o c u n i e r  v .  M a r t i n e z ,  

416 U . S .  396 ( 1 9 7 4 ) ,  s e e  a l s o ,  L e e  v .  W a s h i n g t o n ,  

390 U.S a t  333,  334 ( 1 9 6 8 )  ( B l a c k ,  H a r l a n ,

65/ A l t h o u g h  t h e r e  i s  e v i d e n c e  t o  s u p p o r t  t h e  
o p e r a t i o n a l  n e e d  f o r  women c o r r e c t i o n a l  o f f i c e r s  
( R . T .  445 ,  485,  555,  583,  594,  6 1 1 - 1 7 ;  C . T .  505,  
5 1 1 ) ,  t h i s  C o u r t  ne ed  no t  d e c i d e  w h e t h e r  t h a t  ne ed  
j u s t i f i e s  an a f f i r m a t i v e  a c t i o n  p l a n  f o r  women. 
The  p l a n ' s  g o a l  f o r  women i s  t i e d  t o  t h e  l a b o r  
f o r c e  ( u n l i k e  t h e  g o a l  f o r  m i n o r i t i e s ,  w h i c h  i s  
t i e d  t o  t he  i nmat e  p o p u l a t i o n ) ,  and i s  j u s t i f i e d  
as  a me a ns  t o  o v e r c o m e  p r i o r  i n t e n t i o n a l  d i s ­
c r i m i n a t i o n  a g a i n s t  women i n  e m p l o y m e n t .  S e e  
P o i n t  I I I ,  i n f r a .



- 49

S t e w a r t ,  JJ.  , c o n c u r r i n g ) .  The  g o a l  i n  r e s p o n ­

d e n t s '  p l a n ,  70% o f  t h e  m i n o r i t y  i n m a t e  p o p u l a ­

t i o n ,  was one r e c o g n i z e d  as a p p r o p r i a t e  by LEAA

and e x p l i c i t l y  o r  i m p l i c i t l y  a p p r o v e d  o f  by s c o r e s
6 6 /

o f  p r i s o n  a u t h o r i t i e s . ----  And  a s  s e t  f o r t h  i n

P o i n t  I ,  s u p r a , t he  a c t u a l  p r a c t i c e s  o f  r e s p o n ­

d e n t s  w e r e  f l e x i b l e  a nd  d i r e c t l y  r e l a t e d  t o  

p r o m o t i n g  q u a l i f i e d  members o f  m i n o r i t y  g r o u p s  and 

f e m a l e s  wh e r e  t h e y  w e r e  n e e d e d .  " B e c a u s e  [ t h e s e ]  

r e a l i t i e s  o f  r u n n i n g  a p e n a l  i n s t i t u t i o n  a r e  

c o m p l e x  and d i f f i c u l t , "  t h i s  C o u r t  has  " r e c o g n i z e d  

t h e  w i d e - r a n g i n g  d e f e r e n c e  t o  b e  a c c o r d e d  t h e  

d e c i s i o n s  o f  p r i s o n  a d m i n i s t r a t o r s . "  J o n e s  v . 

N o r t h  C a r o l i n a  P r i s o n e r s '  U n i o n ,  433 U . S .  a t  126.

66/ N a t i o n a l  A d v i s o r y  C o m m i s s i o n  on C r i m i n a l  
J u s t i c e  S t a n d a r d s  and G o a l s ,  R e p o r t  on C o r r e c t i o n s  

( 1 9 7 3 ) ,  p.  1,  p .  4 3 5 ;  S k o l e r  and  L o e w e n s t e i n ,  
M i n o r i t i e s  i n  C o r r e c t i o n ,  N o n d i s c r i m i n a t i o n ,  E q u a l  
O p p o r t u n i t y  a nd  L e g a l  I s s u e s ,  20 C r i m e  and 
D e l i  nque  n c y , N o . 4 ,  ( 0c  t . 1 9 7 4 ) ,  pp .  3 3 9 ,  3 4 0 ;
Ame r  i  c a n  P r i s o n s  I n  T u r m o i l  H e a r i n g s  B e f o r e  
t h e  House S e l e c t  Co mmi t t e e  on C r i m e , 92nd C o n g . ,  
1 s t  and 2nd S e s s . , ( 1 9 7 1  and 1 9 7 2 ) ,  s u p r a ;
T h e  T a s k  F o r c e  T o  S t u d y  V i o l e n c e ,  R e p o r t  and 
Recommendat  i o n s , (May 1 9 7 4 ) ,  p . 1 , p ! 20;  McKay 
Commi ss i on  R e p o r t , pp.  2,  3 ;  McGee ,  "Manpower  F o r
C o r r e c t i o n s  Summary  o f  W o r k s h o p  I I  R e p o r t s ,  
N a t i o n a l  C o n f e r e n c e  on C o r r e c t i o n s ,  W i l l i a m s b u r g ,  
V i r g i n i a ,  ( D e c .  5 - 8 ,  1 9 7 1 ) ,  p,  49 ,  p.  50.



- 50 -

C o u n s e l  f o r  a m i c u s  h a s  a t  t i m e s  d i s a g r e e d  
. . u . _ 67/

w i t h  t h i s  a p p r o a c h . —-  N e v e r t h e l e s s ,  t h e  d e f e r ­

e n c e  h i s t o r i c a l l y  a c c o r d e d  t h e s e  g o v e r n m e n t a l  

o f f i c i a l s  i n  t h e  a r e a  o f  p r i s o n  s e c u r i t y  s h o u l d  be  

no d i f f e r e n t  i n  t h i s  c o n t e x t ,  f o r  t h e  o p e r a t i o n a l  

r e a s o n s  p r o m p t i n g  t h e  a d o p t i o n  o f  t h e  A f f i r m a t i v e  

A c t i o n  P l a n  a r e  d i r e c t l y  r e l a t e d  t o  m a i n t a i n i n g  

p r i s o n  s e c u r i t y  and a c c o r d i n g l y  t he  d e f e r e n c e  t h a t  

h a s  b e e n  g i v e n  i n  t h e  p a s t  a p p l i e s  w i t h  e q u a l  

f o r c e  h e r e .

I I I .  RE SP ONDENT S '  P R A C T I C E S  ARE J U S T I F I E D  

AS A METHOD OF OVERCOMING THE EFFECTS OF 
PAST DISCRIMINATION.

F u l l i l o v e  v .  K l u t z n i c k , s u p r a , a nd  U n i t e d

S t e e l w o r k e r s  o f  A m e r i c a  v .  W e b e r , s u p r a ,  made

c l e a r  t h a t  an e m p l o y e r  can a do p t  r a c e - c o n s c i o u s

p o l i c i e s  t o  r e d r e s s  t h e  e f f e c t s  o f  p a s t  d i s c r i m i -
68 /

n a t i o n . —  T h o s e  h o l d i n g s  p r o v i d e  an a l t e r n a t i v e

67 / S e e ,  e . g . ,  B r i e f  f o r  A p p e l l e e s  H i l l a r y ,  e t  
a l  . , P r o c u n i e r  v .  H i l l a r y , No .  7 3 - 7 5 4  ; B r i e f  
Ami cus  C u r i a e  f o r  t h e  N . A . A . C . P .  L e g a l  D e f e n s e  
and  E d u c a t i o n a l  F u n d ,  I n c . ,  B e l l  v .  W o l f i s h ,  
No.  77 - 18 29 .  '

68/ I n t e r n a t i o n a l  human r i g h t s  norms r e c o g n i z e  
t h e  p r o p r i e t y  o f  a f f i r m a t i v e  a c t i o n .  The I n t e r n a ­
t i o n a l  C o n v e n t i o n  on t he  E l i m i n a t i o n  o f  A l l  Forms



51

b a s i s  f o r  t h e  a f f i r m a t i v e  a c t i o n  p r a c t i c e s  i n  t h i s  

c a s e .

As we n o t e d  i n  P o i n t  I ,  s u p r a , a f f i r m a t i v e  

a c t i o n  e f f o r t s  o r i g i n a t e d  i n  1968 when D i r e c t o r  

P r o c u n i e r  l e a r n e d  t h a t  i n c r e a s e d  r a c i a l  v i o l e n c e  

i n  t h e  p r i s o n  had i t s  r o o t s  i n  d i s c r i m i n a t i o n  by 

w h i t e  o f f i c e r s .  P r o c u n i e r ' s i n v e s t i g a t i o n  r e ­

v e a l e d  t h a t  t he  p a u c i t y  o f  m i n o r i t y  o f f i c e r s  was 

due t o  w i d e s p r e a d  and i n t e n t i o n a l  d i s c r i m i n a t i o n  

a g a i n s t  m i n o r i t i e s  i n  h i r i n g  and p r o m o t i o n  ( C . T .  

7 0 4 - 7 0 9 ) .  He s t a t e d  t h a t  b o t h  t h e  p o l i c i e s  i n i t i ­

a t e d  i n  1968  and t h e  w r i t t e n  1 9 7 4  p l a n  w e r e  

" d e s i g n e d  i n  p a r t  t o  b r i n g  t h e s e  d i s c r i m i n a t o r y

68 / c o n t i n u e d

o f  R a c i a l  D i s c r i m i n a t i o n ,  a d o p t e d  Dec .  21,  1965,  
G .A .  Re s ,  2106A,  20 U.N.  GAOR, Supp.  ( No .  14)  47 ,  
U.N.  Doc .  A/1604 ( 1 9 6 5 ) ,  s i g n e d  by t he  U .S .  on 
S e p t .  28,  1966 [ E x e c u t i v e  C. 9 5 - 2 ] ,  t r a n s m i t t e d
t o  S e n a t e ,  F e b .  23 ,  1 9 7 8 ,  c i t e d  i n  4 T r e a t i e s  
P e r t a i n i n g  t o  Human R i g h t s ,  Me s s a g e  f r o m  t h e  P r e s ,  
t o  t he  S e n a t e ,  95 th  C o n g . ,  2nd S e s s . ,  U .S .  G o v ' t  
P r i n t i n g  O f f i c e  1978,  p r o v i d e s  ( A r t i c l e  1 )  t h a t :  
" [ s ] p e c i a l  measur es  t a k e n  f o r  t he  s o l e  p u r p o s e  
o f  s e c u r i n g  a d e q u a t e  a dva nc emen t  o f  c e r t a i n  r a c i a l  
o r  e t h n i c  g r oup s  . . .  s h a l l  n o t  be deemed r a c i a l  
d i s c r i m i n a t i o n . "  T h e r e  i s  a s i m i l a r  p r o v i s i o n  f o r  
women.  C o n v e n t i o n  on t he  E l i m i n a t i o n  o f  D i s c r i m i ­
n a t i o n  A g a i n s t  Women, op e ne d  f o r  s i g n a t u r e  Dec .  
18,  1979,  U .N .  Doc .  A. RES/34/18H I  9791", s i g n e d  
by  t h e  U . S .  J u l y  11,  1980.



- 52 -

p r a c t i c e s  t o  a n  e n d  and  t o  u nd o  t h e  e f f e c t  o f  

t h e s e  p r a c t i c e s  o v e r  so many y e a r s "  ( C . T .  7 1 0 ) .

The p r e s e n t  D i r e c t o r ,  Enomoto ,  c o r r o b o r a t e d  t h i s  

a t  t r i a l  ( s e e  R . T .  3 3 8 ) .  An a s s i s t a n t  d i r e c t o r  

s t a t e d  t h a t  t he  i n i t i a t i v e s  t a k e n  i n  1968 w e r e  

b a se d  on t he  r e c o g n i t i o n  t h a t  " r a c i s m ,  o v e r t  and 

s u b t l e ,  e x i s t e d  i n  t he  D e p a r t m e n t  and t o  c a l l  i t  

t h a t ,  as o p p o s e d  t o  some o f  t h e  p o p u l a r  euphem­

i s m s ,  and t h e n  t o  t r y  t o  d e a l  w i t h  p r a c t i c a l  

r e a l i t i e s "  ( E x h i b i t  Q, p .  1 ) .

D e s p i t e  p e t i t i o n e r s '  a s s e r t i o n s  t o  t h e

c o n t r a r y ,  c o u n s e l  f o r  r e s p o n d e n t s  a dv a nc e d  p r i o r

d i s c r i m i n a t i o n  a g a i n s t  women and m i n o r i t i e s  as a

j u s t i f i c a t i o n  f o r  t h e  p l a n ,  and t h e  t r i a l  c o u r t

made no f i n d i n g s  e i t h e r  t h a t  t he  p l a n  had n o t  b e e n

a d o p t e d  t o  r e m e d y  p a s t  d i s c r i m i n a t i o n  o r  t h a t

r e s p o n d e n t s  had no t  a dv a n c e d  p a s t  d i s c r i m i n a t i o n
69/

as a r e a s o n  f o r  a d o p t i n g  t h e  p l a n . —

I n d e e d ,  a t  t r i a l ,  w i t n e s s e s  r e p e a t e d l y  

t e s t i f i e d  a s  t o  t h e  D e p a r t m e n t ' s  h i s t o r y  o f  

d i s c r i m i n a t i o n  a g a i n s t  m i n o r i t i e s  and women ( R . T .  

212,  213,  327,  4 4 2 - 4 3 ,  8 7 1 - 7 2 ) .  D i s c r i m i n a t i o n  i n

69/ Compare B r i e f  f o r  P e t i t i o n e r s ,  p.  

F i n d i n g  o f  F a c t  (M3 ,  P e t i t i o n  F - 5 .

19 w i t h



53

t h e  c o n d u c t  o f  o r a l  e x a m i n a t i o n s  was c i t e d  as a

method  o f  e x c l u d i n g  m i n o r i t i e s ,  a l o n g  w i t h  t e s t i n g

( R . T .  3 7 1 - 3 7 2 ,  4 4 2 - 4 3 ,  824 et_ s e q . , 8 7 2 - 3 0 ) .

U n t i l  a t  l e a s t  1972 t h e  D e p a r t m e n t  s e t  h i g h e r

e d u c a t i o n a l  r e q u i r e m e n t s  f o r  women o f f i c e r s  than

f o r  men i n  t h e  same p o s i t i o n s ,  a nd  r e f u s e d  t o

p e r m i t  women t o  h o l d  m o s t  p o s i t i o n s  i n  m a l e

i n s t i t u t i o n s .  ( R . T .  211,  327,  485 ,  529;  s e e  R . T .

6 0 5 ) .  On t h r e e  s e p a r a t e  o c c a s i o n s  t h e  t r i a l  j u d g e

i n d i c a t e d  t h a t  he  was p e r s u a d e d  t h a t  t h e r e  had

b e e n  such d i s c r i m i n a t i o n ,  and he  e v e n  u r g e d  t h e

p l a i n t i f f s  t o  s t i p u l a t e  t h a t  i t  h a d  o c c u r r e d .

( R . T .  344,  3 7 9 - 8 0 ,  4 2 6 - 2 7 ) .

O t h e r  e v i d e n c e  d e m o n s t r a t e d  t h e  v i r u l e n t

n a t u r e  o f  t h e  D e p a r t m e n t ' s  p a s t  d i s c r i m i n a t o r y

p r a c t i c e s .  D i r e c t o r  P r o c u n i e r  e x p l a i n e d  t h a t

t h e  D e p a r t m e n t  had d e l i b e r a t e l y  r e f u s e d  t o  r e c r u i t

t h r o u g h  m i n o r i t y  m e d i a ,  had f a l s i f i e d  p h y s i c a l
. . 70/

e x a m i n a t i o n  r e c o r d s  o f  m i n o r i t i e s , — - h a d  d e n i e d  

m i n o r i t i e s  a p p l i c a t i o n s  and i n f o r m a t i o n  a b o u t  

upcomi ng  e x a m i n a t i o n s ,  had i n t e n t i o n a l l y  used  a

70/ F o r  e x a m p l e ,  one  b l a c k  f e m a l e  a p p l i c a n t  was 
t o l d  b l a c k s  had " b a d  b l o o d " ,  w h i c h  was " h e r e d i t a r y  
s y p h i l l i s " .  She s u b m i t t e d  t o  a s p i n a l  t ap  and 
o t h e r  t e s t s  t o  show she  had  no s y p h i l i t i c  t r a i t s .  
C . T .  836.



- 54 -

w r i t t e n  t e s t  w h i c h  i t  ha d  k n o w n  f o r  y e a r s  was  

" d i s c r i m i n a t o r y  and c u l t u r a l l y  b i a s e d " ,  had g i v e n  

m i n o r i t i e s  u n w a r r a n t e d  l ow  p e r f o r m a n c e  e v a l u a t i o n s  

i n  o r d e r  t o  deny  them p r o m o t i o n s ,  and g e n e r a l l y  

had g i v e n  m i n o r i t i e s  " a  r u n - a r o u n d  t o  d i s c o u r a g e  

t h e i r  a p p l y i n g  f o r  emp l oyment  i n  t he  D e p a r t m e n t "  

( C . T .  7 0 2 - 7 0 9 ) .  P r o c u n i e r ' s  s t a t e m e n t s  w e r e  

c o n f i r m e d  by c o r r e c t i o n a l  o f f i c i a l s  f r om f a c i l i ­

t i e s  t h r o u g h o u t  t h e  s t a t e .

The  w ar d e n  a t  F o l s o m  p a r t i c i p a t e d  i n  i n t e r ­

v i e w  p a n e l s  f o r  j o b  a p p l i c a n t s  w h e r e  d e c i s i o n s  

w e r e  made no t  t o  h i r e  o t h e r w i s e  q u a l i f i e d  m i n o r i t y  

a p p l i c a n t s  on t he  g r ound  t h a t  m i n o r i t i e s  w e r e  no t  

a c c e p t a b l e  i n  t h e  p r e d o m i n a n t l y  w h i t e  c o mm u n i t i e s  

w h e r e  c e r t a i n  p r i s o n s  w e r e  l o c a t e d .  C . T .  832.  As 

l a t e  as 1974 t h r o u g h  1976,  m i n o r i t y  o f f i c e r s  a t  

S o l e d a d , p a r t i c u l a r l y  b l a c k s ,  r e c e i v e d  l e s s  

f a v o r a b l e  a s s i g n m e n t s ,  and w e r e  v i c t i m s  o f  

r a c i a l  s l u r s  a n d  o t h e r  a b u s e s  ( C . T  8 6 4 ,  8 7 3 ) .  

As  o n e  w h i t e  c o r r e c t i o n a l  o f f i c e r  a d m i t t e d :

O f t e n  t h e  h a r a s s m e n t  was  p e t t y  i n  n a t u r e ;  

l u n c h e s  w o u l d  m y s t e r i o u s l y  d i s a p p e a r  f r o m  
l unch  rooms o r  be f o und  t o  c o n t a i n  u r i n e .  I n  

o t h e r  c a s e s ,  t h e  b e h a v i o r  r an  t o  f u n d a m e n t a l  
i s s u e s  o f  e f f e c t i v e n e s s  and p r i s o n  s e c u r i t y ,  
as when w h i t e  i nma t e s  w e r e  i n c i t e d  t o  h a r a s s  
C h i c a n o  and  b l a c k  o f f i c e r s  ( C . T .  8 7 3 ) .



55

The w o r k f o r c e  a n a l y s i s  on w h i c h  t he  1974 p l a n  

was b a s e d  showed t h e  e x t e n t  t o  w h i c h  t h e  e f f e c t s  

o f  p a s t  d i s c r i m i n a t i o n  r e m a i n e d .  Among s e c u r i t y  

o f f i c i a l s  and c o r r e c t i o n a l  c o u n s e l o r s ,  p o s i t i o n s  

t h a t  a c c o u n t  f o r  t h e  v a s t  m a j o r i t y  o f  j o b s  i n  t h e  

i n s t i t u t i o n s ,  m i n o r i t i e s  we r e  l a r g e l y  e x c l u d e d  

f r o m  s u p e r v i s o r y  r o l e s  d e s p i t e  t h e i r  p r e s e n c e  a t

t h e  l o w e r  l e v e l  p o s i t i o n s , as shown by t he  f o l

l o w i n g  t a b l e .

M i n o r i t y  St a f  f ,

S e p t e m b e r , 1973

C o r r e c t i o n a l  C o u n s e l o r s

S p a n i s h -
B l a c k Surnamed

C o r r e c t i o n a l  C o u n s e l o r  I 9.0% 5.4%
C o r r e c t i o n a l  C o u n s e l o r  I I 8.2% 1.4%
C o r r e c t i o n a l  C o u n s e l o r  I I I 0% 0%

Guards

C o r r e c t i o n  O f f i c e r 11.1% 11.2%
C o r r e c t i o n  S e r g e a n t 5.0% 5.5%
L i e u t e n a n t 1.1% 4. 3%
S u p e r v i s o r ,  C a p t a i n 4.4% 6.4% 71/

71/ Source: Exhibit G, 34.



- 56

As o f  1974,  t h e  p r o p o r t i o n s  o f  Me x i  c an-Ame r  i  c an 

and f e m a l e  e m p l o y e e s  i n  t h e  D e p a r t me n t  w e r e  s t i l l  

o n l y  h a l f  t h e i r  p r o p o r t i o n s  i n  t he  s t a t e  l a b o r  

f o r c e  ( E x h i b i t  G, 2 6 - 2 7 ) .

As we d e m o n s t r a t e d  i n  P o i n t  I I ,  s u p r a , t he  

D e p a r t m e n t ' s  p a s t  d i s c r i m i n a t o r y  p r a c t i c e s  h a v e  

no t  o n l y  v i c t i m i z e d  m i n o r i t y  a p p l i c a n t s  and em­

p l o y e e s  but  h a v e  a l s o  c o n t r i b u t e d  t o  t he  p e r v a ­

s i v e  c l i m a t e  o f  r a c i a l  t e n s i o n  and v i o l e n c e  i n  t he  

s t a t e ' s  p r i s o n s .  The s t a t e  has a d u t y  t o  r emedy  

t h o s e  c o n s e q u e n c e s  o f  i t s  own d i s c r i m i n a t o r y  

c o n d u c t .  S e e , e ■g . ,  M i l l i k e n  v .  B r a d l e y , 433 U . S .  

267,  281 ( 1 9 7 7 ) ;  L o u i s i a n a  v .  U n i t e d  S t a t e s ,  380

U . S .  1 4 5 ,  154  ( 1 9 6 5 ) ;  G r e e n  v .  C o u n t y  S c h o o l  

B o a r d , 391 U . S .  430 ,  438 ( 1 9 6 8 ) .  W h a t e v e r  r i g h t s  

i n m a t e s  l o s e  upon e n t e r i n g  a p r i s o n ,  t h e y  do n o t  

r e l i n q u i s h  t h e  r i g h t  t o  be  p r o t e c t e d  a g a i n s t  

i n v i d i o u s  d i s c r i m i n a t i o n  on  t h e  b a s i s  o f  r a c e  

u n d e r  t h e  E q u a l  P r o t e c t i o n  C l a u s e .  B e l l  v .  

W o l f i s h , 441 U . S .  520,  545 ( 1 9 7 9 ) ;  Cruz  v .  B e t o ,

405 U . S .  319,  321 ( 1 9 7 2 ) ;  L e e  v .  W a s h i n g t o n , 390 

U . S .  333 ( 1 9 6 8 ) .  U n d e r  t h e s e  c i r c u m s t a n c e s ,

c o n t i n u e d  a f f i r m a t i v e  a c t i o n  was c l e a r l y  s t i l l

w a r r a n t e d .



57 -

I V .  T H I S  COURT SHOULD CONSIDER A L L  EVIDENCE 
OFFERED I N  THE TR IAL  COURT.

The  e v i d e n c e  i n  t h i s  c a s e  was o f f e r e d  i n  t he  

t r i a l  c o u r t  i n  t h r e e  d i s t i n c t  p h a s e s .  F i r s t ,  

t h e  t r i a l  i t s e l f  b e g a n  l e s s  t h a n  e i g h t  m o n t h s  

a f t e r  t h e  f i l i n g  o f  t h e  c o m p l a i n t ,  and was com­

p l e t e d  on O c t o b e r  12, 1976.  S e c o n d ,  i n  r e s p o n s e  

t o  a m o t i o n  f o r  a p r e l i m i n a r y  i n j u n c t i o n  i n  

F e b r u a r y ,  1977,  r e s p o n d e n t s  s u b m i t t e d  a f f i d a v i t s  

o f  s e v e r a l  c o r r e c t i o n a l  o f f i c i a l s  r e g a r d i n g  t h e  

o p e r a t i o n a l  need  f o r  m i n o r i t y  and f e m a l e  s t a f f  

( C . T .  4 9 4 - 6 0 2 ) .  T h i r d ,  r e s p o n d e n t s  on A p r i l  7, 

1977,  f i l e d  a m o t i o n  t o  augment  t he  r e c o r d ,  t o  

w h i c h  was  a n n e x e d  a f f i d a v i t s  o f  m o r e  t h a n  t w o  

d o z e n  c o r r e c t i o n a l  o f f i c i a l s  c o n c e r n i n g  p a s t  

d i s c r i m i n a t i o n  i n  h i r i n g  and p r o m o t i o n  a g a i n s t  

m i n o r i t i e s  and women ( C . T .  7 0 1 - 9 8 3 ) .  The t r i a l  

c o u r t  e n t e r e d  i t s  F i n d i n g s  o f  F a c t  and C o n c l u s i o n s  

o f  Law on  O c t o b e r  11 ,  1 9 7 7 ,  s i x  m o n t h s  a f t e r  

r e s p o n d e n t s  f i l e d  t h e i r  m o t i o n  t o  a u g m e n t  t h e  

r e c o r d .

The  t r i a l  c o u r t ,  p r i o r  t o  i t s  f i n a l  d e c i s i o n ,  

d e n i e d  t he  m o t i o n  t o  augment  the  r e c o r d ,  and p e t i ­

t i o n e r s  a p p e a r  t o  s u g g e s t  t h a t  t h i s  C o u r t  s h o u l d



- 58

t h e r e f o r e  d i s r e g a r d  t h e  i n f o r m a t i o n  c o n t a i n e d  

t h e r e i n  ( B r i e f  f o r  P e t i t i o n e r s ,  1 5 ) .  The  t r i a l  

c o u r t  r e j e c t e d  t h a t  m o t i o n  on  t h e  g r o u n d  t h a t  

such e v i d e n c e  was i r r e l e v a n t ;  i t  e x p r e s s l y  r e ­

j e c t e d  p e t i t i o n e r s '  r e q u e s t  t h a t  i t  r u l e  t h e  

m o t i o n  u n t i m e l y  ( R . T .  1 4 3 2 - 3 3 ) .

The C a l i f o r n i a  c o u r t  o f  a p p e a l s  d i d  n o t  f i n d  

t h e  p r o f f e r e d  e v i d e n c e  i r r e l e v a n t ,  b u t  h e l d  

t h a t  t h e  t r i a l  c o u r t  " d i d  n o t  abuse  i t s  d i s c r e t i o n  

i n  d e n y i n g  t he  m o t i o n ,  w h i c h  was made by a f t e r ­

t h o u g h t  and much t o o  l a t e  " ( P e t i t i o n ,  A - 2 3 ) . Even  

had t h e  e v i d e n c e  n e v e r  b e e n  o f f e r e d  i n  t h e  t r i a l  

c o u r t ,  h o w e v e r ,  C a l i f o r n i a  l aw  g i v e s  an a p p e l l a t e

c o u r t  d i s c r e t i o n  t o  c o n s i d e r  any new e v i d e n c e  i n  
72/

a n o n - j u r y  c a s e . — -  i n  t h e  r e s o l u t i o n  o f  a c a s e  

o f  c o n s t i t u t i o n a l  m a g n i t u d e ,  t h e  p o w e r  o f  t h i s

72/ C a l i f o r n i a  Code o f  C i v i l  P r o c e d u r e ,  § 909,  
p r o v i d e s :

I n  a l l  c a s e s  w h e r e  t r i a l  by  j u r y  i s  not  
a m a t t e r  o f  r i g h t  o r  w h e r e  t r i a l  by j u r y  has 
b e e n  w a i v e d ,  t h e  r e v i e w i n g  c o u r t  may make 
f i n d i n g s  o f  f a c t  c o n t r a r y  t o  o r  i n  a d d i t i o n  
t o  t h o s e  made  by  t h e  t r i a l  c o u r t .  Such  
f i n d i n g s  may be b a se d  on t h e  e v i d e n c e  adduced  
b e f o r e  the  t r i a l  c o u r t  e i t h e r  w i t h  o r  w i t h o u t  
t h e  t a k i n g  o f  e v i d e n c e  by  t h e  r e v i e w i n g  
c o u r t .  T h e  r e v i e w i n g  c o u r t  may f o r  t h e



- 59

Co u r t  i s  n o t  l i m i t e d  by such e x e r c i s e s  o f  d i s c r e ­

t i o n  by t he  s t a t e  c o u r t s  b e l o w .  See  W i l l i a m s  v . 

G e o r g i a , 349  U . S .  3 7 5 ,  3 8 2 - 8 3  ( 1 9 5 5 ) .  A t  t h e  

l e a s t ,  t h i s  C o u r t  may e x e r c i s e  t he  same d i s c r e t i o n  

i n  d e c i d i n g  w h e t h e r  t o  c o n s i d e r  such e v i d e n c e  as 

c o u l d  be e x e r c i s e d  by a s t a t e  a p p e l l a t e  c o u r t .

T h e  i s s u e s  p r e s e n t e d  b y  t h i s  c a s e  a r e  t o o  

i m p o r t a n t  t o  p e r m i t  a d e c i s i o n  b a s e d  on an i n ­

c o m p l e t e  p i c t u r e  o f  t h e  h i s t o r y  and h a r s h  r e a l i ­

t i e s  o f  t h e  C a l i f o r n i a  p r i s o n  s y s t e m .  I m m e d i a t e l y  

a t  s t a k e  a r e  p r a c t i c e s  w h i c h  may a f f e c t  t h e  s a f e t y  

and t he  v e r y  l i v e s  o f  t h e  t h o u s a n d s  o f  i n m a t e s  and 

c o r r e c t i o n a l  o f f i c e r s  i n  C a l i f o r n i a .  Any d e c i -

72/ c o n t i n u e d

p u r p o s e  o f  mak i ng  such  f i n d i n g s  o f  f a c t  o r  
f o r  any  o t h e r  p u r p o s e  i n  t h e  i n t e r e s t s  o f  
j u s t i c e ,  t a k e  a d d i t i o n a l  e v i d e n c e  o f  o r  
c o n c e r n i n g  f a c t s  o c c u r r i n g  a t  a ny  t i m e  
p r i o r  t o  t he  d e c i s i o n  o f  t h e  a p p e a l ,  and may 
g i v e  o r  d i r e c t  t he  e n t r y  o f  any judgment  o r  
o r d e r  and may make  s u c h  f u r t h e r  o r  o t h e r  
o r d e r  as t he  c a s e  may r e q u i r e .  T h i s  s e c t i o n  
s h a l l  be  l i b e r a l l y  c o n s t r u e d  t o  t h e  end  
among o t h e r s  t h a t ,  w h e r e  f e a s i b l e ,  c a u s e s  may 
be  f i n a l l y  d i s p o s e d  o f  by a s i n g l e  a p p e a l  and 
w i t h o u t  f u r t h e r  p r o c e e d i n g s  i n  t h e  t r i a l  
c o u r t  e x c e p t  w h e r e  i n  t h e  i n t e r e s t s  o f  
j u s t i c e  a new t r i a l  i s  r e q u i r e d  on some o r  
a l l  o f  t he  i s s u e s .



60

s i o n  on Che m e r i t s  o f  t h i s  c a s e ,  no m a t t e r  how 

c a r e f u l l y  c o n f i n e d  t o  t h e  r e c o r d  d e s c r i b e d  by  t he  

C o u r t ,  w i l l  h a v e  p r o f o u n d  e f f e c t s  on t h e  a b i l i t y  

o f  c o r r e c t i o n a l  a d m i n i s t r a t o r s  i n  o t h e r  s t a t e s  t o  

d e a l  w i t h  t he  p r o b l e m s  o f  r a c i a l  v i o l e n c e .  T h i s  

C o u r t  has  t h e  p o we r  t o ,  and ami cus  s u b m i t s  i t  i s  

a p p r o p r i a t e  t o ,  c o n s i d e r  a l l  e v i d e n c e  p r o f f e r e d  by 

r e s p o n d e n t s  i n  t h e  t r i a l  c o u r t .



61

CONCLUSION

F o r  t h e  f o r e g o i n g  r e a s o n s  i t  i s  r e s p e c t f u l l y  

s u b m i t t e d  t h a t  t h e  j u d g m e n t  o f  t h e  C a l i f o r n i a  

C o u r t  o f  A p p e a l s  s h o u l d  be a f f i r m e d .

R e s p e c t f u l l y  s u b m i t t e d ,

JACK GREENBERG 
ERIC SCHNAPPER 
0. PETER SHERWOOD 
BETH LIEF
PATRICK 0. PATTERSON 
JUDITH REED 
DEBORAH FINS

10 Columbus C i r c l e  
New Y o r k ,  New Y o r k

CHARLES STEPHEN RALSTON 
10 Columbus C i r c l e  
New Y o r k ,  New Y o r k  10019 
( 2 1 2 )  586-8397

COUNSEL OF RECORD
FOR AMICUS CURIAE 
C I TY  OF DETROIT

10019

BARRY L .  GOLDSTEIN
806 15th S t r e e t ,  N.W. 
S u i t e  940
W a s h i n g t o n ,  D.C.  20005 

ATTORNEYS FOR AMICUS CURIAE
CITY  OF DETROIT



MEILEN PRESS INC. — N. Y. C. 219