Institutional Racism: Judicial Conduct and a New Theory of Racial Discrimination
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Article Institutional Racism: Judicial Conduct and a New Theory of Racial Discrimination Ian F. Haney L6peze CONTENTS I. INTRODUCTION .............................................................................. 1721 I1. DISCRIMINATION IN THE SELECTION OF Los ANGELES COUNTY G RAND JURORS .............................................................................. 1730 A . D iscretion Codified ................................................................. 1730 B. Judicial Practice:Friends and Neighbors.............................. 1732 C. Inside the Circle...................................................................... 1735 D . Outside the Circle ................................................................... 1737 E. ExtraracialDiscrimination ..................................................... 1740 F. Discriminationby the Numbers .............................................. 1741 G. Jury Discriminationand the Southwestern Justice System ..... 1743 H . Nondiscrimination................................................................... 1744 t Assistant Professor of Law, University of California, Berkeley (Boalt Hall). Many of the ideas developed here were first presented in faculty talks at the Yale and Harvard Law Schools, as well as before the Yale University Center for the Study of Race. Inequality, and Politics; the University of Rochester Department of Political Science; and the Department of Sociology and the American Cultures Program at the University of Michigan, Ann Arbor. I appreciate the many contributions made by participants in those exchanges. Others who deserve recognition and my thanks for their help with this project include Alan Lepp and my colleagues Robert Cooter, Lauren Edelman, Angela Harris, Daniel Rodrfguez, Edward Rubin. Jeff Selbin. and Charles Weisselberg. Linda Krieger, Rachel Moran, and Robert Post have been especially generous with their time and insights. Priscilla Battis deserves special recognition for her help and humor in her capacity as my legal assistant. I also wish to thank Ron Dor for his research assistance, and I gratefully acknowledge the generous support of the University of California, Berkeley, especially in its concrete expression as a semester's leave from teaching in the spring of 1999. Finally, mil gracias to my wife, Deborah Drickersen C6rtez. 1717 1718 The Yale Law Journal [Vol. 109: 1717 1. Ideals ................................................................................1744 2. PragmaticConcerns ......................................................... 1745 3. Symbolic Importance ........................................................ 1747 III. GRAND JURY REFORM ................................................................... 1748 A. Legislative GrandJury Reform .................................. 1749 1. Pressurefor Reform ......................................................... 1749 2. Criminal Grand Juries ..................................................... 1749 B. Judicial Grand Jury Reform ................................................... 1750 1. Early Cases....................................................................... 1750 2. Biltmore 6 ......................................................................... 1751 3. CaliforniaAppellate and Federal District Court Oversight .......................................................................... 1752 4. The Limits of Superior Court Reform ............................... 1753 5. GrandJuror Selection Practices in 1999 ......................... 1755 IV. THE LIMITS OF INTENTIONAL DISCRIMINATION MODELS ............. 1757 A. The Centrality of Intent in DiscriminationModels ................. 1757 B. Rational Choice Theories of Discrimination.......................... 1761 C. Intent in Rational DiscriminationTheories ............................ 1764 V. TOWARD AN INSTITUTIONAL APPROACH ...................................... 1769 A. New Institutionalismand Ethnomethodology ......................... 1770 I . Cognition and Rationality ................................................ 1770 a. Doubt ......................................................................... 1771 b. Trust and Sense-Making ............................................ 1772 c. Rules and Rationalities.............................................. 1774 2. Culture.............................................................................. 1774 a. The World in Common ............................................... 1775 b. Identity .......................................................................1776 B. New Institutionalismand Social Science Theories of Behavior.................................................................................. 1776 1. From Low to High Construction...................................... 1777 2. From Directed to Undirected Behavior ........................... 1779 C. Script and Path Institutionalism ............................................. 1781 D. New Institutionalismand Rational Choice Theory ................. 1783 VI. INSTITUTIONAL ANALYSIS AND THE Los ANGELES SUPERIOR COURT ........................................................................................... 1785 A. Discriminationby Script ......................................................... 1785 1. Believing the Judges ......................................................... 1785 2. Scripts in Organized, Office-Holding Environments........ 1786 3. Uniformity of Selection Practices..................................... 1790 4. Criteria,Routine, and Legitimacy in GrandJuror Selection ........................................................................... 1791 2000] Institutional Racism 1719 a. Criteriaand Instructions............................................ 1792 b. Routine Discrimination.............................................. 1793 c. Legitimate Discrimination......................................... 1796 B. The Persistenceof the "Pick Your Friends" System and Path Discrimination................................................................ 1799 1. Racial Animus ...................................................................1799 2. Patronage......................................................................... 1802 3. The Need for Qualified GrandJurors ..............................1802 4. The Nomination of Qualified Grand Jurors..................... 1803 5. Path Discrimination......................................................... 1804 VII. INSTITUTIONAL RACISM ................................................................1806 A. Racial Institutions and Unconscious Racism ..........................1806 B. Racism .....................................................................................1809 1. A Definition ......................................................................1809 2. A Typology ........................................................................1811 C. Racial Istitutions in Los Angeles ...........................................1812 D. Judicial Discrimination.......................................................... 1813 1. Script Discrimination....................................................... 1813 a. Favoring Whites .........................................................1813 b. Disfavoring M exican Americans................................ 1814 2. Path Discrimination......................................................... 1816 E. Judicial Racism .......................................................................1819 1. Script Racism ....................................................................1819 2. Path Racism ......................................................................1820 3. PurposefulRacism ............................................................1820 F. Reconsidering InstitutionalRacism Theory ............................1822 1. Script and Path Racism ....................................................1822 2. Institutionaland Purposeful Racism ................................1823 VIII. CONCLUSION: INSTITUTIONAL RACISM'S DOCTRINAL AND NORMATIVE IMPLICATIONS ...........................................................1825 A. The Ubiquity and Intractabilityof InstitutionalRacism .........1827 B. InstitutionalRacism and Equal Protection............................. 1830 1. Limiting Equal Protection................................................ 1832 2. Racism in Recent Supreme Court Equal Protection Cases ................................................................................1834 a. Redefining Racism .....................................................1835 b. Reserving the Power To Define Racism .....................1838 3. Social Costs ......................................................................1841 C. Some Normative Implications of an InstitutionalAccount of Racism .................................................................................1843 1720 The Yale Law Journal [Vol. 109: 1717 APPENDICES ............................................................................................ 1845 APPENDIX A: EXCERPTS FROM THE EAST LA 13 TRANSCRIPT REGARDING GRAND JURY NOMINEES ........................................... 1845 APPENDIX B: SUMMARY OF THE RELATIONSHIP BETWEEN JUDGES AND GRAND JURY NOMINEES ............................................................... 1876 APPENDIX C: THE CROSS-SECTION REQUIREMENT ................................ 1877 APPENDIX D: SUMMARY OF GRAND JUROR SELECTION METHODS IN TWENTY CALIFORNIA COUNTIES, 1999 ........................................ 1884 2000] Institutional