Institutional Structures of Penal Inequality

The U.S. penal apparatus is a bundle of wildly divergent practices. Police in some cities use more force than others. Prosecutors in some jurisdictions file charges automatically while others screen carefully. Public defenders in some counties lack zeal while others provide high quality representation. Offices that share the same name and perform the same basic legal functions—“police,” “prosecutor,” “public defender,” “criminal court”—actually operate according to highly disparate legal, professional, and normative standards. These differences give rise to a stratified criminal process in which a minority of defendants and cases are handled lawfully with attention and care, while a much larger group of defendants and cases are treated with legally sloppy inattention, disrespect, and even violence.

These variations are a function of, among other things, distinctive institutional choices: the strikingly diverse organizational arrangements, resource allocations, and routine decision-making cultures within each of our major penal institutions. Under the influence of both federalism and localism, we tolerate a highly decentralized and internally inconsistent criminal system which distributes resources, status, and accountability unequally. As a result, American defendants are subject to a broad and often conflicted spectrum of operative criminal practices, principles, and norms, some far more punitive than others.

These institutional differences represent a kind of systemic inequality, created and imposed by the workings of the criminal apparatus itself. While they reflect the well-studied inequalities that flow from defendant wealth, race, and neighborhood, they also inflict their own bespoke brand of unequal treatment through the unique processes, consequences, and normative values of criminalization. At the most foundational level, they alter the significance of basic legal principles such as due process, accuracy, and fairness, downgrading them under pressure from divergent institutional thinking and cultures. As a result, our very notions of criminality, justice, and equal treatment are unfairly protean: institutionally changeable and maldistributed throughout the penal system. This Article maps these maldistributions and the myriad ways in which the organization and operation of our basic criminal institutions shake out as powerful drivers of penal inequality.