Memo RE: Trial Brief Drafts
Public Court Documents
October 16, 1998

18 pages
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Case Files, Sheff v. O'Neill Hardbacks. Memo RE: Trial Brief Drafts, 1998. 6354a7a7-a146-f011-8779-7c1e5267c7b6. LDF Archives, Thurgood Marshall Institute. https://ldfrecollection.org/archives/archives-search/archives-item/975e1fc5-c46f-4704-bb39-e04ef2bb3b25/memo-re-trial-brief-drafts. Accessed July 29, 2025.
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JEDF MEMORANDUM PRIVILEGED AND CONFIDENTIAL TO: Sheff Team FROM: Dennis Parker RE: Trial Brief Drafts DATE: October 16, 1998 Attached are very rough drafts of sections of the brief dealing with 1) issues of federal law (particularly relating to burden, 2) Bill Gordon’s testimony; and 3) a bullet outline of points to make re: Sergi. I am very uncomfortable about the first section. I'm afraid that I've lost track in my mind of precisely what the point we wanted to make regarding the Keyes presumptions, particularly since it seems to me that Keyes doesn’t necessarily advance us much beyond where we are anyway under the law of the nutmeg state. I look forward to any help in getting back on track. I elected to do Sergi as bullet points because I don’t have the time to do anything else and because I'm not convinced that most of the points have to be in the same section. Although I think Sergi must be reckoned with, its not because he said anything substantially different from the rest of the state’s witness. His strength seemed to be primarily in packaging. I think we can best deal with him by taking apart each of the programs throughout the brief and then including a small, more summary section saying that, beneath the surface, what Sergi argues is an innovative, carefully thought out approach is actually an unstructured, scatter shot reheating of leftover, early 1960’s Southern "remedies." At any rate, we can discuss this at greater length on Monday. DRAFT APPLICATION OF BURDENS IN FEDERAL SCHOOL DESEGREGATION CASES Federal Courts, which have a long and involved history of enforcement of cases of unconstitutional school segregation, have evolved allocations of burdens of proof and production regarding questions of compliance with orders designed to address constitutional violations school desegregation cases. Because of similarities in the goals of those cases and this one, these cases offer appropriate models for resolution of the issue presented in this hearing. As discussed below, federal court unequivocally apply the presumption that racial disparities in school districts previously found to have violated the constitution are vestiges of that unconstitutional conduct. Defendants, in order to avoid further remedial actions must demonstrate that the disparities are not vestiges of the prior unconstitutional conditions in order to avoid further liability. Case law has long utilized presumptions about racial identifiability in school systems which have been found to have operated dual systems of education and applied them against the party both responsible for the constitutional violation and in the best position to prevent evidence about its actions: In a system with a history of segregation the need for remedial criteria of sufficient specificity to assure a school authority’s compliance with its constitutional duty warrants a presumption against schools that are substantially disproportionate in their racial composition. Swann v. Charlotte-Mecklenburg Board of Education, 402 U.S. 1, 26 (1971); see also Freeman v. Pitts, 503 U.S. 467, 512 n.1 (Blackmun J., concurring) (presumption in former de jure school system that the board’s actions caused the racially identifiable schools and board’s obligations to rebut that presumption); Dayton Board of Education v. Brinkman, DRAFT Testimony of Bill Gordon Dr. Gordon, qualified by both thirty-year’s experience in creation, evaluation and maintaining of school desegregation plans and his prior testimony in and knowledge of the history of this case, testified about his opinion about the adequacy of the state’s response to the Connecticut Supreme Court’s direction to the legislative and executive branches to put the search for appropriate remedial measures to racial and ethnic isolation at the top of their respective agendas. In finding the state’s efforts inadequate, Dr. Gordon focused first on the current racial and ethnic enrollments in the twenty-two school districts as compared to their enrollments at the time of the trial, the Supreme Court’s opinion and in other years prior. Dr. Gordon also considered the state actions proffered as a response to the Connecticut Supreme Court’s mandate to determine if those actions constituted a plan which would have the requisite, likely, effect of reducing racial and ethnic isolation. Dr. Gordon’s examination of these two factors was conducted against the general backdrop of the Courts injunction and the education and social harm which he believes, based upon his experience and expertise, flows from the racial and ethnic isolation endemic to the school districts in the Hartford Metropolitan area. Although, the specific effect of isolation would be felt differently in the various schools, Dr. Gordon testified that students would suffer harm from the absence of racial diversity even if that harm was not reflected in deficits in achievement as measured by test scores, graduation rates on any of the other quantitative measures typically relied upon.’ With respect to the first part of Dr. Gordon’s consideration, the degree of reduction of racial isolation as reflected in student enrollment, the state’s performance to date has been deficient. Throughout its opinion, the Supreme Court took careful note of the degree of racial and ethnic isolation as reflected in the enrollment of school districts in the greater Hartford Metropolitan area: the Court observed that Latino and African American students accounted for 92.4 percent of student enrollment and that while "enrollment of African- American students in the twenty-one surrounding school districts has increased by more than 60 percent from 1980 to 1992, only seven of these schools had a minority student enrollment in excess of 10 percent in 1992. sheff v. O'Neill, 238 Conn. at 8. Relying on data supplied by the defendants and using exhibits which graphically displayed student enrollment in the twenty-two towns, Dr. Gordon demonstrated that the student enrollments were, for the most part, substantially unchanged from the percentages which so concerned the Court. Dr. Gordon testified that the current enrollment pattern in the region shows continued patterns of extreme isolation in Hartford and in all but the In recognizing that education involves more than those measured qualitatively and that students of disproportionately white school districts were denied the full benefits of a diverse education, Dr. Gordon echoed one of the Supreme Court’s concerns: Sound principles of public policy support our conclusion that the legislature’s affirmative constitutional responsibility for the education of all public school children encompasses responsibility for segregation to which the legislature has contributed, even unintentionally. The parties agree, as the trial court expressly found, that racial and ethnic segregation is harmful and that integration would likely have positive benefits for all children and for society as a whole. Sheff at 33. 2 443 U.S. 526, 537 (1979)(same). Once the presumption that the school board caused racial identifiability has been established, the school board then has the burden of showing that its past segregative acts did not create or contribute to the current segregated condition of the schools. Keyes v. School District No. 1 413 U.S. 189, 211 (1973). The different standards used in finding federal and state constitutional violations do not argue in favor of employing a different burden than that relied upon by the federal courts. As an initial matter, the difference is irrelevant because it pertains to the threshold question of liability for a constitutional violation. The fact of the state’s liability was established definitively by the Connecticut Supreme Court, and, notwithstanding the opinion of the state’s expert, Tr __, is beyond dispute at this stage of the proceedings. Secondly, the defendants in both the federal and state cases both operate under a similar affirmative obligation. The Connecticut Constitution "imposes an affirmative constitutional obligation on the legislature to provide a substantially equal educational opportunity for all public school children ...", Sheff v. O'Neill, 238 at 23, and, more specifically, imposes an affirmative obligation to respond to racial and ethnic isolation. Id at 34. Likewise, federal jurisprudence has imposed an obligation on defendants which requires more than just the cessation of unconstitutional acts. Defendant found liable for constitutional violations were "clearly charged with the affirmative duty to take whatever steps might be necessary to covert to a unitary system in which racial discrimination would be eliminated root and ! Under federal law, plaintiffs seeking to demonstrate an equal protection violation must demonstrate show intentional discrimination, see Washington v. Davis 426 U.S. 229 (1976). No such requirements obtains for a finding of a violation of the Connecticut Constitution of this type. See Sheff v. O'Neill, 238 Conn. 1, 17 (1995). 2 branch." Columbus Board of Education v. Pernick, 443 U.S. 449, 459 (1979) quoting Green v. County School Board, 391 US. 430, 437-38 (1968). The passage of time has not diminished this obligation, recent cases have reaffirmed repeatedly this bedrock principal. See Freedman v. Pitts, 503 U.S. 467, 486 (1992); Brown v. Board of Education, 978 F.2d 584, 592 (10th Cir. 19193), cert. denied, 349 U.S. 204 (1993). That this obligation is a dynamic one was also made clear as the Court required the defendant to continually rise to the challenge of eliminating the constitutional violation: "Each instance of a failure or refusal to fulfill this affirmative duty continues the violation of the Fourteenth Amendment:" Id, quoting Wright v. City of Emporia, 407 U.S. 451, 460 (1972); United States v. Scotland Neck Board of Education, 407 U.S. 484 (1972). Significantly for the purposes of this case, this affirmative obligation applied with equal force to school districts which had been found to violate the constitution by virtue of having practiced de jure or de facto segregation. Thus, both the affirmative obligation and the application of the presumptions described above were as strictly applied to states with explicit segregation law as it was for school districts in states which had no statutory requirements or authorization to operate segregated schools for nearly a century, Columbus Board of Education v. Pernick, 443 US. 449, 455 (imposing obligation on schools in Columbus notwithstanding absence of segregation laws after 1888) or, indeed, had never required segregation by law. See eg. Keyes v. School District No. 1, 413 USS. 189, 191 (1973) (involving Denver schools in state which never required segregation and in fact expressly forbade discrimination in its Constitution). Also instructive for purposes of this litigation is the federal standard for determining whether this obligation has been successfully discharged. Under this analysis, motive is immaterial. Instead, the benchmark of the efficacy of remedial measures is the degree to which it addresses the constitutional violation: "the measure of the post-Brown I conduct of a school board under an unsatisfied duty to liquidate a dual system is the effectiveness, not the purpose, of the actions in decreasing or increasing the segregation caused by the dual system. Dayton Board of Education v. Mark Brinkman, 443 U.S. 526, 538. Moreover, evaluating the effectiveness of a defendants’ desegregation efforts involved not only the likely effectiveness of a particular plan but also the defendant’s choice between existing alternatives: It is incumbent upon the school board to establish that its proposed plan promises meaningful and immediate progress toward disestablishing state-imposed segregation. It is incumbent upon the district court to weigh that claim in light of the facts at hand and in light of any alternatives which may be shown as feasible and more promising in their effectiveness ... Of course, the availability to the board of other more promising courses of action may indicate a lack of good faith; and at the least it places a heavy burden upon the board to explain its preference for an apparently less effective method. Green v. County School Board of New Kent County, 391 U.S. 430, 439 (1968). See also Swann v. Charlotte-Mecklenburg Board of Education, 402 U.S. 1. Invariably, consideration of the effectiveness of a defendant’s remedial plan began, and frequently ended, with an analysis of the racial enrollments in the school which the defendant operated. Any plan, no matter how well intended or supported by educational justification, was deemed insufficient if it failed to alter prevailing patterns of racial segregation resulting from the 4 original constitutional violation. See Green v. School Board of New Kent County, 391 U.S. 430, 411 (invalidating plan which relied solely on "freedom of choice" which resulted in some black students enrolling in formerly white schools but no whites in formerly black schools). Perhaps most noteworthy for this proceeding is the theme that informs the federal jurisprudence relating to school desegregation. While recognizing the existence of exigencies and acknowledging the ultimate goal of returning the operation of schools to local authorities, the courts uniformly stress the fact of the constitutional violation and the need to remedy past violations and assure that vestiges of the prior system do not continue to harm future generations. See Freeman v. Pitts, 503 U.S. 467, 485 (1992); Swann v. Charlotte-Mecklenburg, 402 U.S. 1, 15 (1971). immediate inner ring towns. Tr __ , Pl. Ex. . Indeed, according to State Department of Education data, the isolation in Hartford, the area of primary concern for the Court, has experienced the worsening of the racial and ethnic isolation that the Court sought to remedy, Sheff v. O'Neill, 238 Conn. 1, 33 increasing from 92 to 94% Latino and African American. Pl. Ex. 608. As for the overwhelmingly white outer ring suburbs, any changes that occurred were insubstantial. Tr _, Pl. Ex. 612. Dr. Gordon testified that be believed the examination of full-time enrollment in order to determine compliance was appropriate for a number of reasons. The first was his belief, based upon experience, that the benefit of desegregation would only be realized by students spending substantial time together on a regular basis. Tr. __. Moreover, Dr. Gordon testified that he was unaware of even a single case in which a court viewed part- time programs as satisfying a defendant’s obligation to desegregate. Tr. _ . In fact, Dr. Gordon’s reliance on full-time student enrollment figures, and reasons for supporting that reliance, is entirely consistent with the Supreme Court opinion. The use of full-time enrollment rather than part time figures comports with the decision because 1) the decision repeatedly frames its discussion of racially and ethnically isolated schools exclusively in terms of full-time enrollment, and 2) the Supreme Court specifically included part-time efforts at reduction of racial isolation as an example of "a number of laudable remedial efforts that unfortunately have not achieved their desired end." Sheff v. O'Neill, 238 Conn. 1, 23 fn. 28. The greatest support in the Supreme Court’s opinion for Dr. Gordon’s opinion, however, comes from the fact that the Court’s language appears to be a whole-hearted endorsement of Dr. Gordon’s belief that reduction of isolation necessarily involves students having the opportunity to spend substantial time together: [S]chools are an important socializing institution, imparting those shared values through which social order and stability are maintained .... When children attend racially and ethically isolated schools, these "shared values" are jeopardized: If children of different races and economic and social groups have no opportunity to know each other and to live together in school, they cannot be expected to gain the understanding and mutual respect necessary for the cohesion of our society. Sheff v. O'Neill, 238 Conn. at 34 (emphasis added) (internal quotation and citation omitted). In addition to testifying about the inefficacy of the state’s response to the Supreme Court’s order to date, Dr. Gordon offered an opinion on whether the omnibus legislation, touted as a response to Sheff, in fact constituted a remedial plan likely to lead to the reduction of racial and ethnic isolation. Dr. Gordon's criticism of the state’s efforts were at the most fundamental level. He testified that any desegregation effort, no matter what methods it employed, must have certain essential components in order to be considered a plan which will have the likely result of reducing racial isolation. Tr. __. Chief among these is a quantitative definition of desegregation. Tr. __. Dr. Gordon testified that typically this measure is arrived at by defining the area to be included in the desegregation area, and using the racial enrollments in that defied areas as a goal. Tr. __. Once that goal is established, successful reduction of racial isolation would be measured by whether the individual schools or districts were within a specified percentage (generally (10-20%) of the area-wide enrollment for each race. Tr. __. Once this percentage is set, the defendant can then decide how that percentage would be met. Tr. __. Included in that determination would be additional essential components such as the establishment of time lines. Tr. ___. Dr. Gordon faulted the school district for failing to even nod in the direction of including any of these essential components in its efforts. Thus, although the state was required to reduce racial isolation, it had not ever taken the fundamental steps of defining what reduction of racial isolation as desegregation is, or setting specific standards to judge what was required of states or school districts in order to successfully reduce segregation or in what time period the effort should be achieved. Tr. __. In essence, the state’s effort was tantamount to sending the individual school districts on a mission without telling them the goal or the date by which it must be completed. As such, the state’s efforts were akin to shooting in the dark without a target and clearly not an appropriate approach to achieve the vindication of constitutional rights. In order to understand the impact of Dr. Gordon’s testimony, it is essential to understand the scope of his testimony. First, Dr. Gordon did not seek to question the validity of some of the programs, with regard to their educational value. Tr. __. In fact, Dr. Gordon testified that many of the programs were likely to have an educationally salutary effect and were ones which he would support. Tr. __. The problem was that these programs were not related to the goal of reducing racial isolation and were ones which any school district should and would undertake regardless of whether they were under court order to remedy unconstitutional condition of racial and ethnic isolation. Tr. Secondly, Dr. Gordon’s testimony did not stem from disagreement with a particular method of desegregation. Tr. __. Although he testified about some possible approaches to desegregation ranging from re-assignment to the use of magnets or controlled choice and although he stated that he believed it was possible to create a desegregation plan based upon the size of the Hartford metropolitan area’, he did not himself create plan for the region. Tr. __. His complaint was not that he disagreed with a plan or its elements but that the state had not reached even the threshold level where they could be said to constitute a plan. 2 Among the exhibits which Dr. Gordon was Pl. Ex. __, which superemporium concertize circles draws at 5, 10, 15 and 20 miles radius from central Hartford. Based on the fact that most of the metropolitan area fell within 20 miles of central Hartford, Dr. Gordon testified that the area was compact and comparable in size or smaller than other areas which had implemented successful desegregation plans. Tr. 6 Sergi Examination Points 97-290 eRange of state actions, including parental and community involvement, school safety, school readiness and reading takeover are educational steps the state would have undertaken regardless of Sheff. eTakeover of Hartford schools was in process prior to the Supreme Court decision and likely would have happened anyway. elLanguage in 97-290 regarding "opportunity to interact" 1is legislative creation and does not reflect any language 1n the decision. Pl. Bx. 601"'and decision. Effectiveness of 97-290 is only effective to the degree individual towns embrace 1it. ®8Elements of "plan" were in effect prior to the Supreme Court opinion and were specifically found by the Supreme Court to be ineffective: interdistrict after school programs, inter and intra district choice, interdistrict collaborative programs, minority staff recruitment and distance learning all specifically referenced. Sheff ac 23, £n 28. ®eNo guidelines in 97-290 regarding the number of programs a district must adopt, the number of students in each program, the amount of time spent in program, distribution among grades and schools. eno definition of what constitutes "desegregated". eno timeline for implementation by school districts. eState enforcement under 10-4b rare and only 1n cases where clear standards were articulated by statute. eno requirement that districts address reduction of racial, ethnic and economic isolation until 1999, wouldn’t effect schools until 2000-2001 school year. 01998 budget figures are based upon Governor’s figures and do not reflect need, in fact no needs assessment done. Def. Ex. 2. eDraft of January 1999 fails to include new initiatives or any quantitative goals or timelines. Pl. Ex. 753. eState has set specific standards and guidelines in areas of minimum’ school year length, length of school day, teacher certification and curriculum: but ‘not "for. reduction of racial isolation. Racial Imbalance Act ®Racial imbalance act only applies intra district. Def. Ex. 39 eRegulations not implemented for first ten years of act, operation suspended for two years in time when West and East Hartford out of compliance. eUnlike for reduction of interdistrict racial and ethnic isolation Imbalance Act and regulations recognized need and provided for extremely specific standards and guidelines regarding record-keeping, definitions of groups of students covered, standards for determining imbalance, levels at which notification of non-compliance would occur and creation of plan to address. Def. Exe. 39, 40 and Pl. Ex. _ = 4September 19, 1997 Board Minutes). eIntradistrict imbalance remedial plan must include proposed changes in assignment, proposed construction sites, projections of racial enrollments, timetable. eThese requirements not present in 97-290. eDepartment did not promulgate regs to enforce 97-290 and in Commissioner’s opinion does not have authority to do so. Record Collection ®Except for form required for racial imbalance law, none of the state vearly reporting forms call for reporting of race, ethnicicy or economic status. Def. Ex. 51. eData collected from the form would not reveal participation by race, ethnicity or economic status. Choice Program ®Roussel comparison between Project Choice and M-to-M programs not accurate because of lack of racial controls in Choice Program. eOther than broad requirements to reduce racial and ethnic isolation in 97-290, no requirement that individual school district participate in Project Choice. eWith exception of magnet and choice programs, attendance in Ct. schools is wandatory both as to district and school. eSchool districts are permitted to select schools participating in Choice program. eNumbers of students participating in Choice this year 1is below level of highest point of Project Concern and less than at the time of the hearing. eNo time line for when level will match past high points. eState relies on district determination of capacity and sets no specific guidelines for districts to report. Does not look at other state capacities to compare. Ex. Avon reported 25 times availability than state report showed. Def. Ex. 3, 50. él.atino representation small and no goals for increasing latino participation. eno time line for reaching levels of participation recommended in Region 9 Guidelines. Charters enot originally intended for reduction of racial isolation. eIncluded six million for charters as targeted for reduction even when there was nothing requiring charters to consider this. Pl. Bx. 709, Def. Ex. 6. eNo estimate prepared showing number of charters necessary to reduce racial isolation. Interdistrict Magnets initiated by school district, not required by state. ®No determination of number of schools required to reduce racial and ethnic isolation, no goals. ®No specific consideration of race for admissions. Bilingual Education enothing new relating to bilingual anticipated in 1999 report. eNot likely Latino student needing bilingual services would attend schools in outer ring. Can not state when level of racial isolation in Hartford will be reduced or if it will be reduced. *% TX STATUS REPORT AS OF OCT 16 'S8 17:19 PAGE.D1 NAACP LEGAL DEF FUND DATE TIME TO/FROM MODE MIN/SEC PGS CMDH STATUS @9 18/16 15:4@ 713 313 1049 EC--S 96°13" 017 156 OK 10 18/16 15:47 915164967934 G3--S ©@6°55" O11 156 INC 11 18/16 15:56 2124314276 EC--S @4’'26" 017 156 OK 12 18/16 16:01 2127304652 EC--S 22'17" 217 156 OK 14 18/16 16:28 98825968 EC--S ©6°56" B17 156 OK 15 18/16 16:36 283 541 5050 EC——S 26°48" B17 156 OK 16 18/16 16:43 527 3305 ECS ©5'54" B17 156 OK 18 18/16 16:51 860 728 @287 ECS @7'21" 017 156 OK 21 18-16 17:03 8607280401 EC--S ©4’'41" 917 156 OK 22 10/16 17:08 918605705256 EC--S ©4’36" 917 156 OK 26 10-16 17:19 915164967934 --—-S5 ©2’0@" 911 156 BUSY TO: John Brittain 713/313-1049 Sandy DeValle 516/496-7934 Juan Figueroa 212/431-4276 Chris Hansen 212/549-2651 Wes Horton 860/728-0401 Marianne Lado 212/802-5968 Willy Rodriguez 860/541-5050 Elizabeth Sheff 860/527-3305 Martha Stone 860/570-5256 Phil Teleger 860/728-0287 FROM: Dennis Parker RE: Trial Brief Drafts DATE: October 16, 1998 NUMBER OF PAGES (INCLUDING THE COVER SHEET) 16 IF YOU DO NOT RECEIVE THE NUMBER OF PAGES INDICATED ABOVE, PLEASE NOTIFY US IMMEDIATELY AT 212\219-1900. FAX COVER SHEET TO: John Brittain 713/313-1049 Sandy DeValle 516/496-7934 Juan Figueroa 212/431-4276 Chris Hansen 212/549-2651 Wes Horton 860/728-0401 Marianne Lado 212/802-5968 Willy Rodriguez 860/541-5050 Elizabeth Sheff 860/527-3305 Martha Stone 860/570-5256 Phil Teleger 860/728-0287 FROM: Dennis Parker RE: Trial Brief Drafts DATE: October 16, 1998 NUMBER OF PAGES (INCLUDING THE COVER SHEET) 16 IF YOU DO NOT RECEIVE THE NUMBER OF PAGES INDICATED ABOVE, PLEASE NOTIFY US IMMEDIATELY AT 212\219-1900. FAX COVER SHEET TO: John Brittain 860/570-5242 Sandy DeValle 516/496-7934 Juan Figueroa 212/431-4276 Chris Hansen 212/549-2651 Wes Horton 860/728-0401 Marianne Lado 212/802-5968 Willy Rodriguez 860/541-5050 Elizabeth Sheff 860/527-3305 Martha Stone 860/570-5256 Phil Teleger 860/728-0287 FROM: Dennis Parker RE: Trial Brief Drafts DATE: October 16, 1998 NUMBER OF PAGES (INCLUDING THE COVER SHEET) 16 IF YOU DO NOT RECEIVE THE NUMBER OF PAGES INDICATED ABOVE, PLEASE NOTIFY US IMMEDIATELY AT 212\219-1900.