Filed 8/27/19

CERTIFIED FOR PUBLICATION

IN THE COURT OF APPEAL OF THE STATE OF CALIFORNIA

FIFTH APPELLATE DISTRICT

KESCHEL COLLINS et al.,

Plaintiffs and Appellants,

v.

TONY THURMOND, as Superintendent, etc., et 

al.,

Defendants and Respondents.

F075781

(Super. Ct. No. CV283224)

OPINION

APPEAL from a judgment of the Superior Court of Kern County. Sidney P. 

Chapin, Judge.

California Rural Legal Assistance, Inc., Cynthia L. Rice, Sahar Durali, Rebecca 

Buckley-Stein, Franchesca Verdin; Equal Justice Society, Eva Paterson, Allison Elgart; 

Mexican American Legal Defense & Educational Fund, Kip M. Hustace, Thomas A. 

Saenz; Greater Bakersfield Legal Assistance, Inc., Lyndsi Andreas, Celida Miramontes; 

Wilson Sonsini Goodrich & Rosati, Joni Ostler and Steven Guggenheim, for Plaintiffs 

and Appellants.

Christie Norris, as Amici Curiae on behalf of Plaintiffs and Appellants.

Amy Bisson Holloway, Edmundo R. Aguilar, Todd M. Smith, Bruce Yonehiro 

and Peter J. Stubbs for Defendants and Respondents.

-ooOoo-
2.

INTRODUCTION

The present case arises from information released to the public regarding 

suspensions, transfers, and other disciplinary proceedings in the Kern High School 

District of Kern County (KHSD). The data released allegedly demonstrates that racial 

bias has affected how KHSD disciplines minority students, and actions taken by KHSD 

allegedly demonstrate that KHSD actively attempted to hide this fact from the public.

Appellants in this case are a collection of parents, students, taxpayers, and 

community organizations. They sued a number of defendants, including both local- and 

state-level entities and individuals.1 Appellants’ claims against the local-level defendants 

were narrowed and allowed to proceed in the trial court, while all claims brought against 

the state-level defendants were dismissed with prejudice following various demurrers. In 

this appeal, appellants challenge the dismissal of several of the claims brought against the 

state-level defendants.

In the following opinion, we affirm the dismissal of most of appellants’ claims 

against the state-level defendants, either because such claims do not state a cause of 

action or because such claims may be brought against the local-level defendants but not 

the state-level defendants. We ultimately find, however, that appellants have stated a 

cause of action under the equal protection clause of the California Constitution and they 

have properly petitioned for a writ of mandate based on the state-level defendants’ 

ministerial duty to monitor the practices of local school districts for violations of federal 

1 These defendants are generally referred to in this opinion as either the local-level 

defendants or the state-level defendants. The local-level defendants include KHSD, the Board of 

Trustees of KHSD, members of the KHSD Board of Trustees in their official capacities (Chad 

Vegas, Mike Williams, Bryan Batey, Jeff Flores, and Philip Peters) and the KHSD 

Superintendent (Bryon Schaefer), the Kern County Office of Education, and Christine Lizardi 

Frazier, in her capacity as the Kern County Superintendent of Schools. The state-level 

defendants consist of Tom Torlakson, in his capacity as the State Superintendent of Public 

Instruction, and the California Department of Education (CDE). Appellants also sued the State 

of California. 
3.

law. We therefore conclude the trial court wrongly sustained the state-level defendants’ 

demurrer on those claims, along with appellants’ request for declaratory relief on the 

same issues. In a related conclusion, we determine that appellants’ complaint contains 

sufficient allegations to demonstrate associational standing for one of the community 

organizations to pursue these claims against the state-level defendants.

FACTUAL AND PROCEDURAL BACKGROUND

The information that prompted this case was first made available in the 2009-2010 

timeframe, although appellants allege that the subject conduct occurring in Kern County 

began before that time and has continued to the present day. The general crux of 

appellants’ complaint is that KHSD has adopted and implemented a district-wide 

disciplinary program that is biased toward minority students, students who speak limited 

English, and others similarly situated; KHSD and the state-level defendants became 

aware of this bias in or around 2009 and 2010; and rather than correct those biases, 

KHSD and the state-level defendants either willfully ignored the information or actively 

sought to hide their conduct from further public scrutiny.

In the second amended complaint (the complaint),2 appellants initially allege that 

“KHSD has developed and implemented written, verbal, formal and informal policies and 

practices regarding expulsion and referral for expulsion that are highly discretionary, and 

impose zero-tolerance standards that both violate express provisions of the California 

Education Code and result in the disproportionate suspension, expulsion and involuntary 

transfer of African-American and Latino students out of a general education setting and 

into alternative schools.” Appellants further allege that certain students are marked in 

their files as problems and subjected to additional unwarranted scrutiny. Identifying 

2 We recount the general allegations as detailed in appellants’ second amended complaint 

for the purposes of this overview. Where we discuss additional facts on a claim-by-claim basis 

below, we take our relevant facts from the allegations made in the version of the complaint 

relevant to that claim as identified in the headings.
4.

certain racially charged statements allegedly made by teachers, appellants contend these 

actions create a racially hostile educational environment for minority students.

With respect to the underlying disciplinary procedures, appellants allege that 

KHSD has implemented a code that is highly subjective, both in what constitutes a 

violation (e.g., defiance toward employees, continual or habitual use of profanity, and 

hate violence) and how such violations should be punished (e.g.,“‘Students who fail to 

comply with these rules and regulations will be counseled, reprimanded, suspended or 

expelled and/or arrested as the laws are applied.’”). It is this subjective system that 

appellants allege provides the cover for discriminatory practices at KHSD.

The complaint then details the underlying disciplinary statistics that appellants 

allege support their position. These include claims that in 2010, “KHSD gained 

statewide notoriety for its number of expulsions and suspensions reported to the U.S. 

Department of Education ....” This notoriety arose because, in 2009, KHSD reported 

2,205 total expulsions, “the highest number of expulsions of any district in the state of 

California, including school districts with much larger enrollment.” KHSD’s rate of 

expulsion was 54.47 per 1,000 students, dwarfing both Kern County’s rate of 14.87 per 

1,000 students and the state average of 3.49 per 1,000 students. When broken down into 

broad racial categories, the rates in KHSD split further. “KHSD[’s] average expulsion 

rate for White students was 18.70 per 1,000 students; the average for Latino students was 

65.85 expulsions per 1,000 students ...; and the average for African-American students 

was 110.21 expulsions per 1,000 students ....”

Following this disclosure and the publicity it brought, in 2010 KHSD reported a 

slightly lower total of 2,040 expulsions before reporting “no data on expulsions for the 

2011-2012 school year, although required to do so by state law.” “In 2013, the number 

of reported expulsions dropped to 256.”

This reduction in expulsions, according to the complaint, occurred because KHSD 

implemented “a significant change in reporting practices and a change in [KHSD’s] 
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approach to discipline that resulted in students being transferred out of a general 

education setting and into an alternative school through the use of involuntary transfers, 

rather than through formal expulsion.” Appellants also allege KHSD has “implemented a 

‘waiver’ system, under which students and parents are convinced through intimidation, 

coerced or tricked into waiving the due process protections accompanying formal 

discipline and accepting immediate placement in alternative schools.”

Appellants assert that, even with the reduction in expulsions, racial bias can be 

seen in the data. They note that in the 2012-2013 data, African-American students are 

still expelled at a rate of 24 per 1,000 students, compared to 7 per 1,000 students for 

Latinos, and 5 per 1,000 students for Whites. They also note that the types of behaviors 

resulting in expulsion are dramatically different depending on the race of the student. 

“While 58% of the White students ... were expelled for the more serious offenses of 

possession of drugs or weapons or inflicting injury on another, 51% of the Latinos and 

just 33% of African-Americans were expelled for these reasons. Put another way, 67% 

of expelled African-American students were expelled for offenses that did not include 

physical injury or possession of drugs or weapons, while only 42% of expelled Whites 

were expelled for these less serious offenses.”

Premised on the allegations that KHSD moved to suspensions and transfers over 

expulsions, appellants also allege that the racial disparities continued in the statistics 

regarding suspensions and alternative school placements. Thus, appellants allege that in 

2013, KHSD’s suspension rate was 16.3 percent of students, “or three times the state 

average.” Further, the rates of suspension were again skewed. Rates of “38.61 per one 

hundred African-American students,” “24.81 per one hundred Latino students,” and “18.7 

per one hundred White students” existed for suspensions that year. Moreover, “only 7.69 

per one hundred White students were suspended for willful defiance” while “27.69 per 

one hundred African-American students and 13.08 per one hundred Latino students were 

suspended for willful defiance.” In regard to what appellants assert are alternative school 
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placements, they allege that minority students are disproportionately placed in those 

settings too. Thus, where KHSD “enrollment for [2013-2014] was 63% Latino, 6% 

African-American and 25% White,” “enrollment in the alternative schools within 

[KHSD] was 79.65% Latino, and 7.29% African-American,” with only 16.83 percent 

enrollment being White students.3

Having set forth the racial disparities underlying their claims, appellants detail 

allegations that alternative schools “are not intended to provide the full educational 

opportunity of a general education setting,” thereby affecting the rights of minority 

students to obtain an education equal to their White counterparts. Appellants contend 

that “the relatively stable enrollment in alternative schools, with disproportionately 

greater percentages of Latinos and African-Americans, is due to the fact that KHSD is 

implementing the same policies and practices with respect to the involuntary transfer of 

students to these alternative schools as it did when assignments were the result of formal 

expulsion.” They allege such practices “have not only been intentional, but also 

influenced by implicit and/or unconscious biases concerning African-American and 

Latinos ... that exist in the United States, California, and Kern County today.”

Appellants add further allegations that KHSD’s policies are harmful to minority 

students, that specific plaintiffs in the litigation have been harmed by these policies, that 

employees in KHSD have “implemented policies and practices that incorporate negative 

stereotypes about African-Americans and Latinos,” and that students placed in 

alternatives schools receive a reduced set of educational opportunities. Appellants then 

3 Appellants further allege that “nearly 50% of White enrollment in alternative schools 

operated by [KHSD] is concentrated in one school.” They contend that nearly 80 percent of the 

schools in KHSD “are racially or ethnically over-represented to a statistically significant degree” 

and that suspension rates in predominately African-American schools are substantially higher 

than other schools in KHSD. Specifically, the “three schools with over 15% African-American 

enrollment had suspension rates of 20.5%, 25.6%, and 36.9% respectively, well over the districtwide rate of 16.3%.”
7.

identify several specific instances of conduct by KHSD corresponding with their 

allegations of harm that were allegedly suffered by various plaintiffs.

Following these summaries of what allegedly happened to specific plaintiffs, the 

complaint alleges that KHSD’s conduct is part of a pattern that both state and local

agencies have an obligation to address. Appellants allege that instead of addressing these 

problems, “KHSD changed the method by which it reports suspensions and expulsions in 

an effort to conceal the disparate impacts of its policies and practices, and refused to 

report information to the State of California ....” The complaint details many of the ways 

KHSD’s actions allegedly continued to affect minority students despite KHSD’s 

knowledge of these impacts, and asserts that the state-level defendants “had actual notice 

of the disparities in education opportunity that resulted from the disproportionately high 

suspension, expulsion and assignment to alternative schools of Latinos and AfricanAmericans in KHSD ... but took no action to compel KHSD ... to address or rectify 

these disparities and, specifically, failed to even enforce the mandate that KHSD submit 

data regarding discipline disaggregated by race, ethnicity and offense.”

Based upon these allegations, the 90-page complaint raises several causes of 

action, many of which are discussed below.

Appellants’ lawsuit was amended several times as a result of three demurrers. At 

each demurrer, some portion of the suit was dismissed with respect to the state-level 

defendants. Although various claims against the local-level defendants were permitted to 

proceed, all claims brought against the state-level defendants eventually were dismissed. 

Appellants apparently settled their claims against the local-level defendants, and this 

appeal followed.

DISCUSSION

In this appeal, appellants contend the trial court wrongly dismissed various claims 

raised in multiple iterations of their lawsuit. These include, in the order in which we 

choose to consider them, equal protection claims under both the Federal and California 
8.

Constitutions, a claim under the common schools clause of the California Constitution 

(art. IX, §§ 1, 5), a claim brought under Government Code section 11135 et seq., an 

Equal Educational Opportunities Act (EEOA) claim arising under 20 United States Code 

section 1703, a taxpayer claim brought under Code of Civil Procedure section 526a, and a 

claim seeking a writ of mandate under Code of Civil Procedure section 1085. Appellants 

contend their requests for declaratory judgment on each of these claims are proper and 

that one of the community organizations named as a plaintiff properly alleged 

organizational standing to proceed on the dismissed claims.

We begin by setting forth the standard of review for appeals following a demurrer 

and then analyze each of the claims raised by appellants. We analyze each disputed 

claim separately, summarizing the contentions, identifying relevant facts, and discussing 

legal principles as needed, with the exception that we consider the equal protection 

claims together to the extent possible.

Standard of Review

“A demurrer tests the legal sufficiency of the factual allegations in a complaint.” 

(Regents of University of California v. Superior Court (2013) 220 Cal.App.4th 549, 558.) 

“When a demurrer is sustained, appellate courts conduct a de novo review to determine 

whether the pleading alleges facts sufficient to state a cause of action under any possible 

legal theory.” (Gutierrez v. Carmax Auto Superstores California (2018) 19 Cal.App.5th 

1234, 1242.) “When conducting this independent review, appellate courts ‘treat the 

demurrer as admitting all material facts properly pleaded, but do not assume the truth of 

contentions, deductions or conclusions of law. [Citations.]’” (Esparza v. Kaweah Delta 

Dist. Hospital (2016) 3 Cal.App.5th 547, 552.) We may also consider matters subject to 

judicial notice and will affirm the judgment if any ground for the demurrer is well taken. 

(Ramirez v. Tulare County Dist. Attorney’s Office (2017) 9 Cal.App.5th 911, 924.)
9.

Appellants’ Second Amended4 Complaint—Equal Protection Claims (Claims 1 & 4)5

Appellants’ complaint contained equal protection claims under both the United 

States Constitution and the California Constitution that were dismissed by the trial court. 

With respect to the state-level defendants, appellants’ California claim was brought 

against both CDE and Superintendent Torlakson. The federal claim only named 

Superintendent Torlakson. As the analyses for each claim parallel each other, although 

not being coextensive, we consider them in combination, adding additional discussion 

where differences between the federal and state law analyses exist.

Appellants’ federal allegations

Appellants presented multiple allegations regarding how the various defendants 

violated the federal Constitution. However, these allegations were not made against 

Superintendent Torlakson in all instances. In the first allegation, appellants alleged the 

state-level defendants and Superintendent Torlakson “acting under color of state law, 

knowingly and intentionally perpetuated widespread and persistent policies and practices 

in the administration of the discipline, suspension, expulsion, truancy, and involuntary 

transfer and alternative school assignment of students, in a manner that impermissibly 

and invidiously targets African-American and Latino students on account of their 

race ....” In the second, appellants alleged that all of defendants’ policies and practices 

in the administration of the discipline of students resulted in a hostile educational 

environment and caused a “harmful and invidious racially-disproportionate impact on 

African-American and Latino students ....”

4 For the remainder of the Discussion, we identify in the headings the version of the 

complaint in which the subject claim appears, as explained in footnote 2, ante.

5 We recognize and thank the 20 amici curiae who submitted a joint brief in support of 

appellants in this matter. We have reviewed the brief and respondents’ responsive filing in this 

matter. As we do not rely on any of the materials specifically identified by amici in this opinion, 

we deny respondents’ objections to considering extrajudicial material as moot.
10.

Appellants then alleged the local-level defendants covered up their discriminatory 

actions by changing their reporting policies and withholding data from the state in a way 

that “further demonstrates Defendant/Respondents’ malicious intent to continue 

discrimination ....” Appellants alleged there were no “non-pretextual, race-neutral” 

explanations for KHSD’s policies and that there was no rational basis for those policies. 

Appellants made three further allegations concerning “Defendants/Respondents’” actions 

and biases perpetuating “the gross race-based disparities in the provision of public 

education and the racially hostile educational environment that have been identified ....”

Appellants’ California equal protection allegations

Appellants took a different approach in alleging their state law equal protection 

claim. Appellants first noted that the “California Constitution guarantees all students in

California basic education equality” and that this right is violated when “a public 

educational program ‘falls fundamentally below prevailing statewide standards ....’” 

Appellants then alleged that the state-level defendants have a duty to provide basic 

educational equality. Finally, appellants contended the state-level defendants failed to 

provide the same educational opportunities to African-American and Latino students as 

provided to White students due to the alleged discriminatory practices generally alleged 

in the complaint.

General legal principles

The Fourteenth Amendment to the federal Constitution provides that “‘No State 

shall ... deny to any person within its jurisdiction the equal protection of the laws.’ The 

California Constitution likewise prohibits the denial of equal protection.” (Kimco 

Staffing Services, Inc. v. State of California (2015) 236 Cal.App.4th 875, 884.) Due to 

the similar protections afforded, California relies on principles elucidated under the 

Fourteenth Amendment when considering its own Constitution’s equal protection rights. 

Thus, California cases summarizing equal protection claims regularly recognize the 

similar federal standards. (Kimco, supra, at p. 884, fn. 7.) Of course, the California 
11.

constitutional protections are independent from those provided in the Fourteenth 

Amendment and may involve slightly different analyses depending on the claims 

brought. (See Molar v. Gates (1979) 98 Cal.App.3d 1, 12 [observing both that the equal 

protection provisions of our state may demand a different analysis from one conducted 

only under the Fourteenth Amendment and that California’s equal protection laws 

possess an independent validity from the Fourteenth Amendment].)

“As its name suggests, equal protection of the laws assures that people who are 

‘“similarly situated for purposes of [a] law”’ are generally treated similarly by the law.” 

(Vergara v. State of California (2016) 246 Cal.App.4th 619, 644.) “‘The first 

prerequisite to a meritorious claim under the equal protection clause is a showing that the 

state has adopted a classification that affects two or more similarly situated groups in an 

unequal manner.’ [Citations] This initial inquiry is not whether persons are similarly 

situated for all purposes, but ‘whether they are similarly situated for purposes of the law 

challenged.’” (Cooley v. Superior Court (2002) 29 Cal.4th 228, 253.) “If the two groups 

are not similarly situated or are not being treated differently, then there can be no equal 

protection violation.” (People v. Castel (2017) 12 Cal.App.5th 1321, 1326.)

Identification of similarly situated groups

The state-level defendants first contend appellants “fail to allege that they were 

treated differently from other similarly situated students.” Specifically, the state-level 

defendants argue appellants are focusing on comparisons with White students generally, 

that each student’s disciplinary story is unique, and that no allegations exist 

demonstrating a White student was in a similar situation to appellants and treated

differently. Appellants respond that their allegations are not so superficial and that they 

satisfy applicable pleading standards.

The allegations made in the complaint are, in fact, more comprehensive than the 

state-level defendants contend. Appellants incorporate by reference their general factual 

pleadings and their descriptions of specific incidents of discipline. At the most general 
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level, appellants allege that African-American and Latino students are being suspended 

and expelled at rates substantially higher than White students and that those rates increase 

even further when considering schools with higher enrollment of African-American 

students. Appellants go further, however, alleging that KHSD subjects all students to 

harsher punishments than necessary but that it incorporates into its disciplinary 

proceedings negative stereotypes about minorities, such as involvement in gang activity 

or low educational prospects, that resulted in increased punishment for African-American 

and Latino students.

Appellants then buttress these assertions with statistical support. Specifically, 

appellants allege “67% of expelled African-American students were expelled for offenses 

that did not include physical injury or possession of drugs or weapons, while only 42% of 

expelled Whites were expelled for these less serious offenses.” In this way, appellants 

allege through reasonable inference that African-American and Latino students are 

regularly subjected to suspensions and expulsions for offenses that are less severe than 

their White counterparts and, thus, are treated differently than similarly situated White 

students who are not subject to suspension or expulsion for the same or similar conduct.

Upon a demurrer, we proceed as if admitting all material facts pleaded. (Esparza

v. Kaweah Delta Dist. Hospital, supra, 3 Cal.App.5th at p. 552.) It is thus sufficient to 

allege with supporting facts that one group is sufficiently similar to another to allow a 

comparison as to whether they are being treated unequally under the law. (See Cooley v. 

Superior Court, supra, 29 Cal.4th at p. 253.) Appellants have sufficiently pleaded such 

an allegation here. Appellants have alleged, with statistical support, that minority 

students accused of similar behaviors as their White counterparts are subjected to 

expulsion and suspension for that conduct at different, and statistically significant levels. 

In this context, the nature of the evidence permits a comparison between similarly 

situated students—e.g., those accused of similarly serious offenses—based on identifiable 

groupings—e.g., race. That each individual decision may be dependent upon unique 
13.

facts does not undercut the overarching, statistically based claim that, for example, the 

differing rates of expulsion and suspension for less serious conduct shows that minority 

students are treated differently than similarly situated White students for substantially 

similar conduct under the disciplinary codes.

We therefore continue to consider whether proper allegations of disparate

treatment exist.

Allegations of disparate treatment under federal standards

The requirements for proving that one group is being treated differently from 

another under the federal and state law are generally similar but diverge in some 

important ways. Accordingly, we begin with the analysis under federal law before 

proceeding to analyze state law as applied to appellants’ allegations of disparate 

treatment.

Under federal law, “[t]o state a claim for violation of the Equal Protection Clause, 

a plaintiff must show that the defendant acted with an intent or purpose to discriminate 

against him based upon his membership in a protected class. [Citation.] ‘Intentional 

discrimination means that a defendant acted at least in part because of a plaintiff's 

protected status.’” (Serrano v. Francis (9th Cir. 2003) 345 F.3d 1071, 1082, italics 

omitted.) This requires more than a disparate impact on protected groups. Thus, “‘“even 

if a neutral law has a disproportionately adverse impact upon a racial minority, it is 

unconstitutional under the Equal Protection Clause only if that impact can be traced to a 

discriminatory purpose.”’” (United States v. Coleman (9th Cir. 1994) 24 F.3d 37, 39.) 

Moreover, failure to address known racial impacts does not satisfy the requirements for 

demonstrating discriminatory intent as “‘awareness of consequences alone does not 

establish discriminatory intent.’” (Ibid.) While the federal standards do not require one 

to demonstrate discriminatory intent was the sole motivating factor, it must be one 

motivating factor underlying the contested actions, and can be shown through analysis of 

the events leading up to the challenged actions, statements made by relevant parties, or 
14.

the departure from normal procedures, among other ways. (See Avenue 6E Investments, 

LLC v. City of Yuma (9th Cir. 2016) 818 F.3d 493, 504.)

In this case, the allegations made against the state-level defendants are insufficient 

to state a legal claim under the federal standards. As to the local-level defendants, 

appellants alleged a widespread pattern and practice of targeting minority students based 

on protected characteristics and actively covering up those actions by failing to report 

them as required. Other than naming Superintendent Torlakson in these claims, however, 

their complaint does not allege he participated in these actions and is thus wholly 

conclusory regarding his alleged direct liability.

As reflected in the briefing submitted, the principle allegation made against the 

state-level defendants is that they became aware of a discriminatory impact in the 

punishments imposed by the local-level defendants and failed to take adequate curative 

action. This failure included not following up on allegedly inadequate and incomplete 

reporting of punishments by the local-level defendants and failing to adequately fund 

supervision of the local-level defendants. There is no allegation of a discriminatory 

motive behind the state-level defendants’ actions.

At best, the allegations show problems with inefficient bureaucratic action. 

Certain information, useful to identifying discriminatory intent harbored by local actors, 

was allegedly not collected at the state level based on a reporting system that was being 

poorly monitored. These failures led to the inability to cure what are alleged as racially 

disparate impacts occurring at the local level. These failures, however, are not alleged to 

have arisen from any identifiable racial animus on the part of the state. Accordingly, we 

conclude that appellants have failed to state a claim under the federal equal protection 

clause.

Allegations of disparate treatment under state standards

Equal protection claims under the California Constitution differ from claims under 

the federal Constitution based upon how education is viewed under each Constitution. 
15.

Under the federal Constitution, “[p]ublic education is not a ‘right’ granted to 

individuals ....” (Plyler v. Doe (1982) 457 U.S. 202, 221.) While certainly recognized as 

a fundamental and necessary part of our social structure, under federal equal protection 

laws, “a State need not justify by compelling necessity every variation in the manner in 

which education is provided to its population.” (Id. at p. 223.) In contrast, California has 

enshrined the right to education within its own Constitution. Accordingly, “established 

California case law holds that there is a fundamental right of equal access to public 

education, warranting strict scrutiny of legislative and executive action that is alleged to 

infringe on that right.” (O’Connell v. Superior Court (2006) 141 Cal.App.4th 1452, 

1465.)

In part due to this fundamental right to education, the California Supreme Court 

long ago recognized that cases “authoritatively establish that in this state school boards 

do bear a constitutional obligation to take reasonable steps to alleviate segregation in the 

public schools, whether the segregation be de facto or de jure in origin.” (Crawford v. 

Board of Education (1976) 17 Cal.3d 280, 290; see id. at p. 297 (Crawford).) Although 

focused principally on the effects of residential segregation on school assignments, 

Crawford was clear in explaining that this obligation exists “regardless of the cause of 

such segregation.” (Id. at p. 284.) Accordingly, “a school board in this state is not 

constitutionally free to adopt any facially neutral policy it chooses, oblivious to such 

policy’s actual differential impact on the minority children in its schools. As recent 

California decisions concerning the constitutional obligations of state officials have held, 

public officials in some circumstances bear an affirmative obligation to design programs 

or frame policies so as to avoid discriminatory results.” (Id. at pp. 296–297.)

Accordingly, under California’s equal protection clause, a claim is stated when a 

policy adopted in California has a substantial disparate impact on the minority children of 

its schools, causing de facto segregation of the schools and an appreciable impact to a 

district’s educational quality, and no action is taken to correct that policy when its 
16.

impacts are identified. These are precisely the allegations made by appellants in this case 

and are sufficient to survive demurrer.

Respondents contend, however, that even with such allegations made, appellants 

cannot state a claim for relief. First, respondents allege that the state has no duty to act, 

and, consequently, the equal protection claims may only be directed to the local-level 

defendants, absent the presence of extreme interdistrict disparities such as those found in 

Butt v. State of California (1992) 4 Cal.4th 668 (Butt). In Butt, the court found that all 

students of one district would be subjected to unequal educational opportunities by the 

premature cessation of the school year. Respondents argue that appellants have failed to 

provide any allegations of district wide effects based on disciplinary practices and, 

therefore, have failed to demonstrate this case rises to the unprecedented, extreme, and 

emergency situation found to warrant state-level intervention as in Butt. We do not 

agree.

Respondents overstate the conditions that trigger state-level overview of local 

school districts under Butt. In Butt, students of the Richmond Unified School District 

faced the imminent closure of all schools based on a budgetary crisis. (Butt, supra, 4 

Cal.4th at p. 673.) They filed suit, claiming the district’s conduct would violate their 

fundamental rights to education, and obtained a preliminary injunction that was appealed 

to the California Supreme Court. (Id. at p. 674.) In generally affirming the preliminary 

injunction, the California Supreme Court outlined the state’s obligations with respect to 

protecting Californians’ fundamental right to education. In summary, the court explained 

that “[p]ublic education is an obligation which the State assumed by the adoption of the 

Constitution”; “‘[m]anagement and control of the public schools [is] a matter of state[, 

not local,] care and supervision’”; and “the State’s ultimate responsibility for public 

education cannot be delegated to any other entity [citations].” (Id. at pp. 680–681.) 

Thus, “[d]espite contrary federal authority, California constitutional principles require 

State assistance to correct basic ‘interdistrict’ disparities in the system of common 
17.

schools, even when the discriminatory effect was not produced by the purposeful conduct 

of the State or its agents.” (Id. at p. 681.)

The analysis continued as to when the state’s obligations to act would be triggered. 

Relying principally on the two Serrano cases, Serrano v. Priest (1971) 5 Cal.3d 584 

(Serrano I) and Serrano v. Priest (1976) 18 Cal.3d 728 (Serrano II), along with Tinsley v. 

Palo Alto Unified School Dist. (1979) 91 Cal.App.3d 871 (Tinsley), the court explained 

the state’s role as follows. “It therefore appears well settled that the California 

Constitution makes public education uniquely a fundamental concern of the State and 

prohibits maintenance and operation of the common public school system in a way which 

denies basic educational equality to the students of particular districts. The State itself 

bears the ultimate authority and responsibility to ensure that its district-based system of 

common schools provides basic equality of educational opportunity.” (Butt, supra, 4 

Cal.4th at p. 685.) In this vein, “the equal protection clause precludes the State from 

maintaining its common school system in a manner that denies the students of one district 

an education basically equivalent to that provided elsewhere throughout the State.” 

(Ibid.)

Recognizing that not all variances in educational quality are sufficient to trigger 

constitutional concerns, the Richmond Unified School District in Butt argued there was 

no real and appreciable harm to the educational equality provided to children of the 

district by closing early. (Butt, supra, 4 Cal.4th at p. 686.) The high court found, 

however, that the evidence presented in that case demonstrated closure “would cause an 

extreme and unprecedented disparity in educational service and progress.” (Id. at p. 687.) 

Although the court did not specifically set forth the basic pleading requirements for a 

claim of “an extreme and unprecedented” harm (ibid.), the court repeatedly explained that 

the standard is whether “the actual quality of the district’s program, viewed as a whole, 

falls fundamentally below prevailing statewide standards” (id. at pp. 686–687), thereby 

demonstrating “a real and appreciable impact on the affected students’ fundamental 
18.

California right to basic educational equality” (id. at p. 688; see id. at p. 692). In Butt, the 

early closure of all schools would place educators in an extreme position, as they were 

unprepared for early closure, and would result in students being provided a lower quality 

education than that provided elsewhere in the state. Such a result triggered the state’s 

duty to act.

In this case, appellants’ pleadings track the requirements for relief set out in Butt. 

Appellants have alleged that students within KHSD are being subjected to racially 

discriminatory disciplinary proceedings and that the state became aware of the resulting 

discriminatory impact. Appellants have pleaded facts suggesting that minority students 

subjected to these policies are provided with a lower quality education than White 

students. They further allege that KHSD’s disciplinary policies have created a segregated 

school system whereby minority students are placed in allegedly lower quality school 

settings in substantially higher proportions than their population or disciplinary 

requirements warrant.

Respondents are correct that appellants do not make allegations about interdistrict 

differences arising from KHSD’s alleged segregating practices. But, as the California 

Supreme Court explained in Crawford, it has been widely accepted since Brown v. Board 

of Education (1954) 347 U.S. 483, 493 that racial segregation of any kind in school 

harms students by depriving them of an equal educational opportunity. (Crawford, 

supra, 17 Cal.3d at p. 295.) For purposes of stating a claim, it is reasonable to conclude 

that students of a district subject to de facto racial segregation due to racially 

discriminatory disciplinary practices are receiving an education that is fundamentally 

below the standards provided elsewhere throughout the state where the legal 

proscriptions on such discriminatory practices are being enforced.

Respondents next argue that, even if appellants have met the general pleading 

requirements set forth at the time of cases such as Tinsley, those pleadings are no longer 

sufficient given Proposition 1, which amended article 1, section 7, subdivision (a) of the 
19.

California Constitution in 1979 to provide: “[N]othing contained herein or elsewhere in 

this Constitution imposes upon the State of California or any public entity, board, or 

official any obligations or responsibilities which exceed those imposed by the Equal 

Protection Clause of the 14th Amendment to the United States Constitution with respect 

to the use of pupil school assignment or pupil transportation.” This argument is readily 

rejected. As the California Supreme Court explained in Butt, “Whatever effect this 

amendment may have on Tinsley’s result, it does not affect consistent interpretations of 

the California equal protection guaranty where, as here, assignment or transportation of 

students is not at issue.” (Butt, supra, 4 Cal.4th at p. 685, fn. 13.)

The underlying claim in this case does not revolve around school assignments or 

transportation to correct school segregation, but rather focuses on the effects of allegedly 

discriminatory disciplinary practices that it seeks to both monitor and prevent. As such, 

any changes to California’s equal protection laws brought on by Proposition 1 would not 

affect the pleading and proof requirements of the claims in this case. (See Crawford v. 

Los Angeles Board of Education (1982) 458 U.S. 527, 535 [“Moreover, even after 

Proposition I, the California Constitution still imposes a greater duty of desegregation 

than does the Federal Constitution. The state courts of California continue to have an 

obligation under state law to order segregated school districts to use voluntary 

desegregation techniques, whether or not there has been a finding of intentional 

segregation.”]; McKinny v. Board of Trustees (1982) 31 Cal.3d 79, 92–93 [“However, the 

amendment neither releases school districts from their state constitutional obligation to 

take reasonably feasible steps to alleviate segregation regardless of its cause, nor divests 

California courts of authority to order desegregation measures other than pupil school 

assignment or pupil transportation. [Citation.] When a school district fails to fulfill its 

state constitutional obligations, we retain our power to compel, for example, school 

closure, school site selection, creation of special ‘magnet schools,’ curriculum changes, 

or other steps to overcome the adverse effects of school segregation.”].)
20.

Finally, respondents present some general arguments concerning the pleadings, 

including that appellants did not allege intentional discrimination or notice of that 

intentional discrimination, that appellants’ statistics are insufficient to demonstrate a 

discriminatory intent, and that appellants’ assertions of inaction in the face of knowing 

discrimination are false. To the extent these broader arguments relate to appellants’ 

California equal protection claim, we reject them. With respect to the claims appellants 

have failed to allege intentional discrimination on the part of the state-level defendants, 

notice of that discrimination, or statistics that demonstrate intentional discrimination, our 

discussion of the differences between federal and state equal protection requirements 

demonstrates that, at least with respect to the state claims, evidence of a disparate impact 

is sufficient to support an equal protection claim based on unequal treatment affecting the 

fundamental right to an appropriate education. As there is no obligation to demonstrate 

intentional discrimination under California’s equal protection clause when otherwise 

neutral polices adversely impact the fundamental right to education, respondents’ claims 

that the allegations made do not reach the level of intentional discrimination are 

unconvincing.

For the reasons discussed, we conclude appellants stated an equal protection claim 

against the state-level defendants under California’s equal protection guarantees 

predicated upon a disparate impact theory of liability.

Appellants’ Second Amended Complaint—Common Schools Clause Claim (Claim 2)

Appellants’ second claim of their complaint was brought pursuant to article IX, 

sections 1 and 5 of the California Constitution (the common schools clause). These 

provisions state that a “general diffusion of knowledge and intelligence” is essential to 

the preservation of rights and liberties of the people and require the Legislature to 

“encourage by all suitable means” the promotion of “intellectual, scientific, moral, and 

agricultural improvement,” including by providing “for a system of common schools by 

which a free school shall be kept up and supported in each district at least six months in 
21.

every year ....” Because the law is settled that these provisions do not require any 

particular quality or level of education, we conclude appellants have not stated a claim 

under the common schools clause based on the facts alleged.

Appellants’ contentions

Appellants allege the relevant constitutional provisions “impose on 

Defendants/Respondents the duty to provide Student Plaintiffs/Petitioners with an 

education that will teach them the skills they need to succeed as productive members of 

modern society.” Appellants allege a breach of this duty through the expulsion and 

involuntary assignment of African-American and Latino students “to alternative 

education programs” because the quality of education offered by these schools “is 

substantially inferior to the quality of education provided by comprehensive high schools 

in KHSD.” Appellants further contend that White students subject to discipline are 

“disproportionately sent” to a different school that “has more space and resources, 

including teachers, per student; a better-maintained physical plant; more diverse course 

offerings; and fewer and less visible security guards” than the other schools utilized for 

this purpose.

Applicable law

Article IX, sections 1 and 5 of the California Constitution have been described as 

declarations of “‘“great principles and fundamental truths, to influence and direct the 

judgment and conscience of legislators in making laws, rather than to limit and control 

them, by directing what precise laws they shall make”’” that “do not mandate the 

Legislature to act in a particular manner regarding what precise laws shall be made to 

implement these principles and truths.” (Campaign for Quality Education v. State of 

California (2016) 246 Cal.App.4th 896, 910.) As such, these provisions have not been 

considered to enshrine the right “to an education of some quality” or, indeed, any 

particular quality, and do not impose on the Legislature any affirmative duty to provide 

for a particular level of education expenditures. (Id. at p. 908; see id. at p. 915.) The 
22.

provisions are part of a larger set of constitutional mandates supporting California’s 

assumption “of a specific responsibility for a statewide public education system open on 

equal terms to all.” (Butt, supra, 4 Cal.4th at p. 680.) This broader undertaking, 

however, is distinct from the provisions expressly provided in sections 1 and 5 of 

article IX of the California Constitution. (See Butt, supra, at p. 685 [noting that the equal 

protection clause may protect against denying students in one district an education 

basically equivalent to that provided elsewhere without restrictions based on the fact 

section 5 of art. IX of the Cal. Const. only provides for a guaranteed six-month minimum 

school term].)

Appellants cannot state a claim under the common schools clause

Appellants’ factual assertions, and their arguments on appeal, all focus upon the 

recognized importance of a student’s right to an adequate education and the differences in 

education allegedly being provided to African-American and Latino students in Kern 

County. However, as they relate to a common-schools claim, these arguments miss the 

point. Appellants admit, through their contentions, that free schooling is being provided 

for African-American and Latino students subjected to the contested disciplinary actions. 

The argument raised is that this education is woefully inadequate in light of various 

factors, such as the location of the schools and educational and extracurricular activities 

being offered. However, the provisions relied upon do not guarantee a right to any 

particular quality or level of education. (Campaign for Quality Education v. State of 

California, supra, 246 Cal.App.4th at p. 908.) With no possibility that appellants can 

plead a violation of the one necessary requirement of the common schools clause, that a 

free school be kept up and supported at least six months a year,6their complaints about 

6 We reject appellants’ suggestion that Hartzell v. Connell (1984) 35 Cal.3d 899, 909 

permits a common-schools claim because extracurricular activities, such as those allegedly 

withheld in this case, are integral components of public education. Hartzell only concluded that 

such activities must remain free. Although the court left no doubt that such activities are integral 

components of an educational system based on their educational character, it made no 
23.

equality between the educational offerings of the various school settings involved do not 

raise a common schools cause of action. The trial court, thus, correctly dismissed this 

claim.

Appellants’ Second Amended Complaint—Government Code Section 11135 Claim (Claim 3)

Appellants argue the trial court wrongly dismissed their claim under Government 

Code sections 11135 and 11139 because the CDE and Superintendent Torlakson have 

statutory duties to determine whether there is probable cause that discrimination occurred 

in a state sponsored activity and, if such discrimination is found, take action to curtail 

state funding for that activity. Respondents raise several objections, alleging this claim 

was mooted by statutory amendments made in 2017, that no allegations of discrimination 

on the part of the state-level defendants were made, that the state-level defendants are not 

“recipient[s]” of funds subject to the law, that the law is not self-executing or subject to a 

private right of action, and that exhaustion of administrative remedies is required. We 

agree with respondents that the claims are moot.

Appellants’ contentions

The complaint alleges a violation of Government Code section 11135 by all 

defendants, but provides different theories for the local- and state-level defendants. After 

providing an overview of Government Code section 11135 and its purported 

requirements, appellants allege that the local-level defendants are funded by the state and 

the local-level defendants subjected appellants to discrimination by failing to remedy 

known disparities in their discipline policies. Appellants then identify CDE and 

Superintendent Torlakson as defendants funded by the state who have funds appropriated 

for the purpose of monitoring and overseeing of local school districts’ compliance with 

pronouncement that the common schools clause mandated such activities in the first instance nor 

did it rely upon the clause in determining the educational character of the activities. (Id. at 

pp. 909–913.) Accordingly, we conclude appellants’ argument again raises equal protection, not 

common schools, concerns.
24.

equal educational opportunity laws. Appellants then allege these state-level defendants 

were “aware of the racial and ethnic disparities in suspension, expulsion, involuntary 

transfer and educational opportunity as alleged in this complaint, but took no action to 

ensure that KHSD and/or KERN [COUNTY OFFICE OF EDUCATION] were in 

compliance with the state and federal anti-discrimination provisions ....”

Applicable law

The relevant code sections discussed with respect to this issue, beginning with 

Government Code section 11135, appear in article 9.5 of the statute, an article entitled 

“Discrimination.” These code sections are not only interrelated but are tied to other laws. 

Accordingly, we set out several of them to illustrate the legal framework in which 

appellants seek relief. Where appropriate, we also note the regulations adopted to 

enforce these laws.

Government Code section 11135, subdivision (a), currently reads, “No person in 

the State of California shall, on the basis of sex, race, color, religion, ancestry, national 

origin, ethnic group identification, age, mental disability, physical disability, medical 

condition, genetic information, marital status, or sexual orientation, be unlawfully denied 

full and equal access to the benefits of, or be unlawfully subjected to discrimination 

under, any program or activity that is conducted, operated, or administered by the state or 

by any state agency, is funded directly by the state, or receives any financial assistance 

from the state....”7

Government Code section 11136 states that, “Whenever a state agency that 

administers a program or activity that is funded directly by the state or receives any 

financial assistance from the state, has reasonable cause to believe that a contractor, 

7 The current version of the relevant statutes became effective on January 1, 2017. The 

law has thus changed since appellants filed their complaint in July 2015. However, other than 

respondents’ mootness argument, the parties do not argue that the changes affected appellants’ 

ability to state a claim. Accordingly, for clarity, we recount the law and consider appellants’ 

claims as the law is currently written.
25.

grantee, or local agency has violated the provisions of Section 11135, Part 2.8 

(commencing with Section 12900) of this code, Section 51, 51.5, 51.7, 54, 54.1, or 54.2 

of the Civil Code, or any regulation adopted to implement these sections or Article 1 

(commencing with Section 12960) of Chapter 7 of this code, the head of the state agency, 

or his or her designee, shall notify the contractor, grantee, or local agency of such 

violation and shall submit a complaint detailing the alleged violations to the Department 

of Fair Employment and Housing for investigation and determination pursuant to 

Article 1 (commencing with Section 12960) of Chapter 7 of this code.”

The powers and duties statutorily granted to the Department of Fair Employment 

and Housing (DFEH) are contained in Government Code section 12930. These powers 

specifically reference Government Code section 11135, stating DFEH has the power and 

duty, “To receive, investigate, conciliate, mediate, and prosecute complaints alleging 

practices made unlawful pursuant to Article 9.5 (commencing with Section 11135) of 

Chapter 1 of Part 1, except for complaints relating to educational equity brought under 

Chapter 2 (commencing with Section 200) of Part 1 of Division 1 of Title 1 of the 

Education Code and investigated pursuant to the procedures set forth in Subchapter 5.1 

of Title 5 of the California Code of Regulations, and not otherwise within the jurisdiction 

of the department.” (Gov. Code, § 12930, subd. (f)(4), italics added.)

For its part, Education Code section 200 provides that, “It is the policy of the State 

of California to afford all persons in public schools, regardless of their disability, gender, 

gender identity, gender expression, nationality, race or ethnicity, religion, sexual 

orientation, or any other characteristic that is contained in the definition of hate crimes set 

forth in Section 422.55 of the Penal Code, including immigration status, equal rights, and 

opportunities in the educational institutions of the state....” Education Code section 201, 

subdivision (g), notes that the law “shall be interpreted as consistent with Article 9.5 

(commencing with Section 11135) of Chapter 1 of Part 1 of Division 3 of Title 2 of the 

Government Code,” among others.
26.

Returning to the Government Code, section 11137 provides that, “If it is 

determined that a contractor, grantee, or local agency has violated the provisions of this 

article, pursuant to the process described in Section 11136, the state agency that 

administers the program or activity involved shall take action to curtail state funding in 

whole or in part to such contractor, grantee, or local agency.”

Finally, Government Code section 11139 clarifies that, “The prohibitions and 

sanctions imposed by this article are in addition to any other prohibitions and sanctions 

imposed by law.” It goes on to expressly confirm that “This article and regulations 

adopted pursuant to this article may be enforced by a civil action for equitable relief, 

which shall be independent of any other rights and remedies.” (Ibid.)

Appellants’ claim is now moot

Respondents contend appellants’ claim is moot given the recently enacted 

statutory framework noted above. Specifically, respondents argue that the amendments 

modifying Government Code section 11136 included the changes to Government Code 

section 12930 that excluded “‘educational equity’” claims that could be brought under 

Government Code section 11135 from DFEH’s authority. Respondents allege that this 

removed educational claims such as those raised by appellants from the ambit of 

Government Code section 11135 and, consequently, Government Code section 11139 

does not provide a right to sue separately on the grounds alleged. In this instance, we 

agree.

The statutory framework shows that Government Code section 11135 et seq. 

provides an alternative and coexistent right to sue over discriminatory practices 

implemented by recipients of state funding. As an alternative right, however, its 

existence is not essential to ensure that aggrieved individuals have access to the court 

system and, as such, is readily subject to modification by the Legislature. Here, the 

legislative history shows the Legislature intentionally chose to modify enforcement of 

Government Code section 11135 by placing the full scope of the complaint process 
27.

allowed under Government Code section 11136 within DFEH’s authority. At the same 

time, it purposefully excluded “educational equity claim[s]”—such as those brought 

under Education Code section 200, another statute generally covering discriminatory 

behavior, although limited to the educational field and not otherwise falling within the 

grant of authority—from DFEH’s investigative authority. In this way, it is apparent that 

the Legislature intended to remove such claims from the scope of Government Code 

section 11135. The Legislature was well within its authority, particularly so here, where 

multiple constitutional and statutory provisions already exist to remedy educational 

equity claims.

Were we to find appellants could state a claim under the modified statutory 

scheme as alleged in this instance, we would create a catch-22. Upon showing the statelevel defendants were aware of students being subjected to discriminatory behaviors 

under Government Code section 11135, appellants’ relief would come in the form of 

enforcement of the provisions of Government Code sections 11136 and 11137. However, 

these provisions would only require the state-level defendants to “submit a complaint 

detailing the alleged violations to [DFEH] for investigation and determination.” Yet, 

when that complaint arrived, DFEH would be without statutory authority to investigate 

and make a determination on the complaint under Government Code section 12930. 

Knowing appellants retain rights under the equal protection clause and Education Code 

section 200, we find the Legislature could rationally choose to exclude appellants’ claims 

from the purview of Government Code section 11135 and, accordingly, conclude 

appellants’ claims are mooted by the current statutory scheme. Thus, the trial court 

correctly dismissed this claim.

Appellants’ Initial Complaint—EEOA Claim (Claim 7)

Appellants’ initial complaint contained a claim brought under the EEOA (20 

U.S.C. § 1703). The trial court dismissed this claim, stating “In addition to failing to 

state facts sufficient to constitute a cause of action, it appears the presumption of 
28.

concurrent state jurisdiction [citation] is overcome by implication [citation], and a claim 

under the EEOA must be filed exclusively in federal court.” Appellants contend the trial 

court was incorrect on both bases. We agree with the trial court that claims under the 

EEOA are exclusively federal actions.

Applicable law

In Driscoll v. Superior Court (2014) 223 Cal.App.4th 630 (Driscoll), this court 

provided a detailed discussion of the process undertaken to determine when state courts 

have concurrent jurisdiction over federal claims in the context of the federal False Claims 

Act (31 U.S.C. § 3729 et seq.) actions. In summary, courts begin with a presumption of 

concurrent jurisdiction over federal law claims. (Driscoll, supra, at p. 637.) This 

presumption may be overcome in one of three ways: “‘[(1)] by an explicit statutory 

directive, [(2)] by unmistakable implication from legislative history, or [(3)] by a clear 

incompatibility between state-court jurisdiction and federal interests.’” (Ibid.) Notably, 

“‘the mere grant of jurisdiction to a federal court does not operate to oust a state court 

from concurrent jurisdiction ....’” (Id. at p. 638.) When it comes to considering the 

incompatibility of concurrent jurisdiction, “‘[F]actors indicating clear incompatibility 

“include the desirability of uniform interpretation, the expertise of federal judges in 

federal law, and the assumed greater hospitality of federal courts to peculiarly federal 

claims.”’” (Id. at p. 640.)

There are at least two provisions incompatible with concurrent jurisdiction

Respondents focus only on an alleged incompatibility with concurrent jurisdiction 

and rely exclusively on one federal court’s statement that concurrent jurisdiction is 

precluded by the language of the EEOA.8 (See Stanley v. Darlington County School 

8 Neither party cites to any on-point California determination. In our own research, we 

have been unable to identify any California cases substantively analyzing an EEOA claim or 

considering this jurisdictional issue. We have also been unable to identify, and have not been 

pointed to, any other state that has expressly considered this issue, although it appears from 

unpublished opinions that Illinois state courts may recognize the availability of EEOA claims in 
29.

Dist. (U.S. Dist. Ct., S.C. 1995) 879 F.Supp. 1341, 1367, reversed in part (4th Cir. 1996) 

84 F.3d 707 (Stanley).) Although dicta, as the court expressly noted it need not resolve 

the issue, the Stanley court looked to various provisions of the EEOA and concluded “the 

EEOA does not create any administrative remedy and does not provide for suit in state 

court.” (Stanley, supra, 879 F.Supp. at p. 1367 & fn. 17.) We agree with this conclusion.

Following the analysis required under Driscoll, we first consider generally 

whether state court jurisdiction is incompatible with federal interests before looking more 

specifically at whether there are any instances of clear incompatibility. At a general 

level, we see no conflict between state court adjudication of the federal equal 

opportunities law and the federal interest in having its laws enforced. As respondents 

explain in their substantive argument, the EEOA is generally interpreted as preventing 

behavior “coextensive with that prohibited by the fourteenth amendment ....” 

(Castaneda v. Pickard (5th Cir. 1981) 648 F.2d 989, 1000–1001.) California courts 

regularly consider and resolve equal protection claims brought under the Fourteenth 

Amendment, including in this case, and are well versed in the federal nuances of the law, 

both because we consider these federal claims directly and because we generally interpret 

our state equal protection guarantees in light of the federal requirements. We thus have 

no doubt that California courts could adequately and fairly adjudicate federal claims 

under the EEOA, supporting the presumption of concurrent jurisdiction.

The question then becomes whether specific aspects of the EEOA are clearly 

incompatible with concurrent state court jurisdiction. The Stanley court relied on two 

aspects of the EEOA to support its position, general statements referencing “‘courts of 

the United States’” and the express provision in 20 United States Code section 1753 that 

certain contexts. (See Board of Education of Joliet Township High School District No. 204 v. 

Will County Regional Board of School Trustees (Mar. 8, 2019, No. 3-17-0376) 2019 Ill.App. 

Unpub. Lexis 385, *P20.) We thus conclude there is no broad recognition or practice of 

concurrent jurisdiction with respect to EEOA claims.
30.

the “rules of evidence required to prove that State or local authorities are practicing racial 

discrimination ... shall be uniform throughout the United States.” (Accord, Stanley, 

supra, 879 F.Supp. at p. 1367, fn. 17.) We are not persuaded, as the Stanley court was, 

that the general references suggesting actions only by courts of the United States show 

incompatibility with state court jurisdiction.9

However, we have identified two provisions of the law that we conclude are 

incompatible with concurrent jurisdiction, 20 United States Code sections 1752 and 1753. 

Section 1752, which has now expired,10 provided that “any order on the part of any 

United States district court which requires” transferring students to overcome 

discriminatory imbalances shall not become effective “until all appeals in connection 

with such order have been exhausted” or timed out. Although no longer applicable, this 

language is inconsistent with an intent for concurrent jurisdiction, as it only delayed 

enforcement of remedial orders by United States district courts and not all courts of initial 

or competent jurisdiction.

Next, as noted in Stanley, 20 United States Code section 1753 provides that the 

“‘rules of evidence required to prove that State or local authorities are practicing racial 

9 An example of such a general reference is found at 20 United States Code section 1712: 

“a court, department, or agency of the United States shall seek or impose only such remedies as 

are essential to correct particular denials of equal educational opportunity or equal protection of 

the laws.” We read this statement similarly to how we must read the general jurisdictional 

provision of 20 United States Code section 1708: “[t]he appropriate district court of the United 

States shall have and exercise jurisdiction ....” Neither statement limits jurisdiction only to 

federal courts. (Driscoll, supra, 223 Cal.App.4th at p. 638.) We also note that several 

provisions of the law only refer to courts of competent jurisdiction or otherwise suggest the 

possibility of concurrent jurisdiction. (See 20 U.S.C. §§ 1707 [“[w]hen a court of competent 

jurisdiction determines”], 1718 [“[t]he court of initial jurisdiction”].)

10 Title 20 United States Code section 1752 expired on its own terms “at midnight on 

June 30, 1978.” The section was considered a temporary extension of a prior law designed to 

postpone the effectiveness of certain desegregation orders where district courts had misused their 

remedial powers. (See Morgan v. Kerrigan (1st Cir. 1975) 523 F.2d 917, 920.) Although 

expired, we view the statute as an indication of what types of action Congress considered 

covered under the law.
31.

discrimination in assigning students to public schools shall be uniform throughout the 

United States.’” (Stanley, supra, 879 F.Supp. at p. 1367, fn. 17.) We agree with the 

Stanley court that such a provision cannot be fully effectuated should state courts have 

concurrent jurisdiction because Congress cannot force a uniform and complete set of 

evidentiary rules upon the states. (Ibid.) This desire for uniform application of 

evidentiary rules is clearly incompatible with the presumption of concurrent jurisdiction 

and, taken with the expired provision discussed above, demonstrates clear incompatibility 

with concurrent jurisdiction. Thus, the trial court correctly dismissed this claim.

Appellants’ Third Amended Complaint—Taxpayer Claim (Claim 7)

11

Appellants’ third amended complaint contained a taxpayer claim brought pursuant 

to Code of Civil Procedure section 526a. The trial court dismissed this claim for a “lack 

of factual allegations upon which to base standing; failure to state cause of action, [Code 

of Civil Procedure] section 430.10[, subdivision ](e); and failure to exhaust 

administrative remedies.” (Full capitalization omitted.) On appeal, appellants contend it 

is proper to name the state-level defendants in a taxpayer suit, that they alleged 

governmental waste under two distinct and appropriate theories, and that there was no 

need to exhaust administrative remedies to bring its claim. While we agree a cause of 

action exists, we conclude appellants were required to exhaust administrative remedies to 

proceed in this instance.

Appellants’ contentions

Appellants’ third amended complaint provides factual support for two general 

theories of liability under the taxpayer cause of action. For the first general theory, 

appellants contend CDE and Superintendent Torlakson “are responsible for maintaining 

and reporting current and accurate educational data, ..., along several indicators required 

11 Appellants’ taxpayer claim, originally the eighth claim, was renumbered as the seventh 

claim in the third amended complaint.
32.

by state and federal law.” Appellants allege, however, that aside from “administration of 

data-gathering tools” and “the online data-reporting tool of ‘DataQuest,’” CDE and 

Superintendent Torlakson “have failed to establish, operate, or maintain appropriate 

systems of monitoring or accountability for this required data gathering and reporting by 

districts and counties ....” Appellants point specifically to alleged failures “to require 

corrective action” when local districts failed to certify or verify mandated data and 

failures to “perform any subsequent audit or implement other accountability mechanisms 

in order to ensure correction of erroneous data sets or reporting practices.” Appellants 

also appear to allege a similar complaint with respect to a failure to “comply[] with state 

and federal mandates regarding specialized education programs for students,” in 

particular with respect to ensuring “equal educational access for English language learner 

(‘ELL’) students ....”

In the second general theory, appellants allege CDE and Superintendent Torlakson 

“have approved budgets and authorized payments” to local school districts despite 

knowledge those districts “engaged in practices that discriminated against or impacted 

Latinos and African American students.” Appellants contend that money is provided “to 

pay for the personnel and services necessary to supervise, monitor and oversee the 

performance of local school districts and county offices of education with respect to their 

obligations under state and federal constitutions,” that CDE and Superintendent 

Torlakson have an “obligation to curtail funding when an agency has engaged in 

prohibited discrimination,” and that CDE and Superintendent Torlakson failed “to 

execute its monitoring power to prevent and provide redress” for violations of laws in 

these regards. 

Applicable law

“[Code of Civil Procedure] [s]ection 526a creates a taxpayer private right of action 

to restrain the illegal or wasteful expenditure of public funds. It provides in pertinent 

part: ‘An action to obtain a judgment, restraining and preventing any illegal expenditure 
33.

of, waste of, or injury to, the estate, funds, or other property of a county, town, city or 

city and county of the state, may be maintained against any officer thereof, or any agent, 

or other person, acting in its behalf, either by a citizen resident therein, or by a 

corporation, who is assessed for and is liable to pay, or, within one year before the 

commencement of the action, has paid, a tax therein.’ Although the statutory language 

authorizes a taxpayer action only as to local governmental units and their officers, courts 

have extended section 526a’s reach to state agencies.” (Animal Legal Defense Fund v. 

California Exposition & State Fairs (2015) 239 Cal.App.4th 1286, 1291.)

A “‘taxpayer action must involve an actual or threatened expenditure of public 

funds. [Citation.] [¶] General allegations, innuendo, and legal conclusions are not 

sufficient [citation]; rather, the plaintiff must cite specific facts and reasons for a belief 

that some illegal expenditure or injury to the public fisc is occurring or will occur.’” 

(County of Santa Clara v. Superior Court (2009) 171 Cal.App.4th 119, 130.) Similarly, 

the “term ‘waste’ as used in [Code of Civil Procedure] section 526a means something 

more than an alleged mistake by public officials in matters involving the exercise of 

judgment or discretion.” (Sagaser v. McCarthy (1986) 176 Cal.App.3d 288, 310.) 

Rather, it is more readily understood as “a ‘useless expenditure of funds.’” (Sundance v. 

Municipal Court (1986) 42 Cal.3d 1101, 1138.) Accordingly, “the statute should not be 

applied to principally ‘political’ issues or issues involving the exercise of the discretion 

of either the legislative or executive branches of government.” (Humane Society of the 

United States v. State Bd. of Equalization (2007) 152 Cal.App.4th 349, 356.) Likewise, 

no claim will “lie where the challenged governmental conduct is legal.” (Coshow v. City 

of Escondido (2005) 132 Cal.App.4th 687, 714.)

Discussion

The underlying theory for appellants’ taxpayer claim is one of waste through 

inaction. Appellants contend the state-level defendants have a duty to act to monitor and 

correct potentially discriminatory activities and to curtail funding for school districts 
34.

where such discrimination is found. Respondents contend that no claim can be brought 

under the facts alleged here because there is no mandatory duty to act on the part of the 

state-level defendants—meaning all of their contested actions are discretionary political 

issues—and their budgetary decisions are both ministerial and legal.

We begin with the allegations that the state-level defendants are engaging in waste 

by approving the local-level defendants’ budgets. To state a claim, appellants must 

allege some illegal action by the state-level defendants. As to approving educational 

budgets, the state-level defendants assert that their duties and obligations are pursuant to 

Education Code section 14000 and are limited to verifying that the budget requests 

submitted by the local-level defendants meet statutory requirements. Appellants do not 

contest this position, but argue that respondents were aware of evidence of discriminatory 

actions and approved the budgets regardless, failing in an alleged duty to correct those 

actions. 

Although appellants’ contentions are vague as to the nature of the state-level 

defendants’ actions, appellants do minimally allege that the state-level defendants are 

authorizing funds that they know are being illegally used by their recipients, that 

illegality arising, at a minimum, from a violation of the equal protection clause. 

Respondents’ objections to these pleadings are based on the proposition that the only 

actions taken by the state-level defendants are mandated by the Education Code and do 

not involve any budgetary decisions other than verifying state mandated formulas are 

followed. Therefore, the state-level defendants are not knowingly wasting funds but, 

instead, are only confirming preexisting funding standards are met—leaving any claim 

about waste to fall on those local-level actors who then determine how to spend those 

funds.

We must treat the state-level defendants’ demurrer(s) as admitting properly 

pleaded material facts, including appellants’ allegation that the state-level defendants 

approved budgets with knowledge that local-level defendants would use approved funds 
35.

to engage in discriminatory and illegal practices. The proposition that the state-level 

defendants only verify that state-level formulas are being followed begs the relevant 

question. While defendants may dispute the nature of, and procedures followed in, the 

budget approval process, disputes of fact do not defeat the statement of a claim. Nor does 

the state-level defendants’ argument that their budget review is limited in scope 

overcome appellants’ allegations that defendants had knowledge of illegal activity being 

supported by their budgets. This undercuts defendants’ implied theory that they could 

not have known about any illegal expenditures as a result of the budget approval process. 

At the pleading phase, the question is only whether the allegations constitute a cognizable 

cause of action, not whether the allegations will be proved or defeated by a defense to the 

claim.12

Appellants have failed to exhaust administrative remedies

A taxpayer suit is designed to facilitate the resolution of legal issues that may not 

otherwise be justiciable due to standing issues. Thus, “where the Legislature has 

provided an administrative remedy, a taxpayer action cannot be used in lieu of that 

remedy.” (Animal Legal Defense Fund v. California Exposition & State Fairs, supra, 

239 Cal.App.4th at p. 1301.) The question raised in this case is whether the Uniform 

Complaint Procedure administrative remedy available to those suffering from 

discriminatory practices at the local level is a process that must be completed to bring a 

12 While appellants have stated a viable taxpayer claim, we note that it is limited to the 

theory discussed above. To the extent appellants claim the state-level defendants are wasting 

state funds by failing to fully implement a monitoring system for discriminatory practices, their 

claims are undercut by their own contentions. Appellants’ pleadings confirm that the state level 

defendants have utilized funds to monitor potential discriminatory actions, but they take issue 

with how that system has been designed. The extent to which those funds are appropriately 

spent is, absent additional allegations that the assignment of funds to that program is illegal, a 

political issue involving Legislative discretion on how to comply with their legal obligations. 

Such claims are not allegations of waste. (See Humane Society of the United States v. State Bd. 

of Equalization, supra, 152 Cal.App.4th at p. 356.)
36.

taxpayer lawsuit based on allegations the state is wasting money by funding such 

practices. We conclude that it is.

The Uniform Complaint Procedures (UCP) set forth administrative procedures for 

resolving grievances “regarding an alleged violation by a local agency of federal or state 

law or regulations governing educational programs, including allegations of unlawful 

discrimination ....” (Cal. Code Regs., tit. 5, § 4610, subd. (a).) The regulations apply to 

“the filing of complaints which allege unlawful discrimination ... against any protected 

group as identified under Education Code section 200 and 220 ... in any program or 

activity conducted by a local agency, which is funded directly by, or that receives or 

benefits from any state financial assistance.” (Id., subd. (c).) The referenced complaints 

are typically filed with the local agency, which then has 60 days to conduct and complete 

an investigation. (See id., § 4631, subds. (a), (e).) The resulting conclusion can be 

appealed to CDE, which must again complete its review in 60 days. (Id., §§ 4632, 4633.) 

The regulations do not appear to restrict who may file complaints and appellants have 

pointed to no reason why the taxpayer plaintiff could not have filed an administrative 

complaint in the first instance.

These proceedings are specifically designed to administratively resolve allegations 

of discrimination under Education Code section 200, as well as similar complaints. (See 

Ed. Code, § 221.1.) They would thus appear to bar any taxpayer action alleging 

discrimination in the first instance. Appellants argue, however, that the administrative 

remedies are inapplicable both by their terms and under the law. First, appellants point to 

California Code of Regulations, title 5, section 4631, subdivision (f), which provides that 

“Nothing in this chapter shall prohibit the parties from utilizing alternative methods to 

resolve the allegations in the complaint, including, but not limited to, mediation.” 

Appellants contend this means the process can be avoided completely by immediately 

filing an action in court. But the plain language of the provision suggests just the 

opposite, the filing of an administrative complaint is a requirement to resolving 
37.

allegations of discrimination and the provision only provides that once a complaint is 

filed, the parties can submit it to an alternate method for resolution.

Next, appellants contend the proffered administrative remedy is inadequate 

because it cannot force the state-level defendants “to expend funds or stop expending 

funds in support of a process that fails to meet their constitutional obligations and 

promotes discrimination.” We disagree. The administrative complaint procedures 

provide an opportunity to correct discriminatory practices undertaken by the local 

agency. While appellants would prefer the state-level defendants simply cease funding 

activities that are discriminatory or provide funds for certain remedial practices, the 

gravamen of its complaint is the allegedly continuing discrimination taking place at the 

schools themselves. Identifying and correcting such practices through the administrative 

process reaches the same goal and, thus, provides an adequate remedy. (See AIDS 

Healthcare Foundation v. State Dept. of Healthcare Services (2015) 241 Cal.App.4th 

1327, 1351 [“an administrative remedy is not inadequate simply because it is not the 

result desired”].)

Finally, appellants suggest that the case law requiring exhaustion of administrative 

remedies for taxpayer actions is inapplicable here because the cases cited involved 

underlying criminal matters. We see no merit in this assertion. Nothing in the case law 

suggests that the exhaustion requirement is limited to instances where the underlying 

conduct is criminal. Although our Supreme Court in Nathan H. Schur, Inc. v. City of 

Santa Monica (1956) 47 Cal.2d 11 (Schur) was dealing with contentions that the granting 

of certain gaming licenses violated criminal laws, their discussion of the scope of 

taxpayer actions to enjoin such conduct had a broader message. As the court explained, 

“There appears to be no reason, however, why a municipal corporation with valid 

authority to do so, holding a public hearing and making a quasi-judicial determination 

with reference to the issuance of a license to engage in a certain business, should be 

required to justify its action in a trial de novo in the court whether the one attacking its 
38.

determination is a taxpayer or one of the applicants for a license. The local officials are 

vested with the power of determination and such determination is reviewable by 

mandamus or certiorari ....” (Schur, supra, 47 Cal.2d at pp. 17–18.)

While the issue in Schur was the granting of gaming licenses, we see no difference 

between the authority to issue such licenses in that case and the authority to correct 

complaints of discrimination in this case. In both instances, the government has the 

statutory right to investigate and reach a conclusion that is subject to review by 

mandamus if necessary. There is no principled reason to permit taxpayer actions to 

bypass acceptable administrative remedies that are otherwise required to be pursued 

merely because the underlying conduct allegedly violates civil rights rather than criminal 

laws. The trial court thus properly dismissed this claim.

Appellants’ Third Amended Complaint—Writ of Mandate Claim (Claim 8)

Appellants’ third amended complaint also contained an action seeking a writ of 

mandate brought pursuant to Code of Civil Procedure section 1085. The trial court 

dismissed this claim on the same grounds as the taxpayer action; for a “lack of factual 

allegations upon which to base standing; failure to state cause of action, [Code of Civil 

Procedure] section 430.10[, subdivision ](e); and failure to exhaust administrative 

remedies.” (Full capitalization omitted.) On appeal, appellants contend they identified 

multiple ministerial duties that would support a writ of mandate, including the duty to 

provide equal access to the public school system, to initiate proceedings under 

Government Code section 11136, and to monitor legal compliance by local education 

agencies under federal law. Appellants further contend they were not required to exhaust 

any administrative remedies through the UCP process with respect to these claims.

Applicable law

A court may issue a writ of mandate to compel a public agency or officer to 

perform a mandatory duty. (Ellena v. Department of Ins. (2014) 230 Cal.App.4th 198, 

205 (Ellena).) “This type of writ petition ‘seeks to enforce a mandatory and ministerial 
39.

duty to act on the part of an administrative agency or its officers.’” (The H.N. & 

Frances C. Berger Foundation v. Perez (2013) 218 Cal.App.4th 37, 46.) “‘[T]he writ 

will not lie to control discretion conferred upon a public officer or agency.’” (Ellena, 

supra, at p. 205.)

Mandatory duties are often invoked in the context of ministerial acts. “A 

ministerial act is one that a public functionary ‘“‘is required to perform in a prescribed 

manner in obedience to the mandate of legal authority,’”’ without regard to his or her 

own judgment or opinion concerning the propriety of such act.” (Ellena, supra, 230 

Cal.App.4th at p. 205.) “In order to construe a statute as imposing a mandatory duty, the 

mandatory nature of the duty must be phrased in explicit and forceful language.” 

(Quackenbush v. Superior Court (1997) 57 Cal.App.4th 660, 663.) However, “[w]hile a 

party may not invoke mandamus to force a public entity to exercise discretionary powers 

in any particular manner, if the entity refuses to act, mandate is available to compel the 

exercise of those discretionary powers in some way.” (Ellena, supra, at p. 205.)

Thus, “‘[i]n most cases, the appellate court must determine whether the agency 

had a ministerial duty capable of direct enforcement or a quasi-legislative duty entitled to 

a considerable degree of deference. This question is generally subject to de novo review 

on appeal because it is one of statutory interpretation, a question of law for the court.’ 

[Citation.] ‘Even if mandatory language appears in the statute creating a duty, the duty is 

discretionary if the [entity] must exercise significant discretion to perform the duty.’” 

(Alejo v. Torlakson (2013) 212 Cal.App.4th 768, 779–780 (Alejo).)

To state a cause of action for a writ of mandate, one must plead facts showing 

(1) a clear duty to act by the defendant; (2) a beneficial interest in the defendant’s 

performance of that duty; (3) the defendant’s ability to perform the duty; (4) the 

defendant’s failure to perform that duty or abuse of discretion if acting; and (5) no other 

plain, speedy, or adequate remedy exists. (See Elmore v. Imperial Irrigation Dist. (1984) 

159 Cal.App.3d 185, 193.)
40.

Discussion

To petition for a writ of mandate, therefore, appellants must initially identify a 

clear, nondiscretionary duty on the part of the state-level defendants to act upon the facts 

alleged or an abuse of discretion in how they chose to act. In their opening brief, 

appellants first point to the general constitutional requirement that the state avoid 

discriminatory practices and provide equal access to educational services as one alleged 

ministerial duty. Under this claim, the state-level defendants were required to act upon 

notice of the alleged discriminatory impact of actions taken by the local-level defendants.

To the extent appellants seek to rely upon the state constitutional right to equal 

access to education, we have determined the facts stated do not support a claim. Thus, 

those same facts cannot demonstrate the state-level defendants had any ministerial or 

nondiscretionary duty to act. To the extent appellants rely on their continuing equal 

protection claim, we find this basis insufficient to support the requested writ. The 

underlying responsibilities of the state are broadly to ensure equal protection under the 

laws with respect to the fundamental right to education. The manner in which the state 

provides education to its citizens is a highly discretionary area and one not broadly 

amenable to a writ designed to dictate specific conduct. It is not surprising, then, that 

appellants point to no constitutional mandate to the state-level defendants to act in any 

particular way and, in our own research, we have found no such ministerial mandate 

either. Accordingly, the allegations that respondents were aware of disparate impacts and 

failed to act do not demonstrate that the state-level defendants failed to act in the face of 

nondiscretionary duties imposed by the law.13

13 To the extent appellants claim there is a discretionary duty on the part of the state-level 

defendants to affirmatively act upon learning of the facts alleged, and that their failure to act is 

resolvable through a writ of mandate, we likewise reject their logic. We see no clear mandate in 

the law for the state to act at any particular moment upon learning of potential violations of the 

equal protection clause. Further, the fact that the state has set forth an administrative complaint 

procedure shows, at a minimum, that there is some discretionary authority in the state with 

respect to how and when to act to remedy claims of constitutional violations.
41.

Second, appellants’ opening brief argues the state-level defendants had a 

ministerial duty to act under Government Code section 11136 and its failure to do so is 

improper. Consistent with our conclusion concerning the equal access constitutional 

claim, however, we reject this claim on the basis that the facts asserted by appellants do 

not support a claim under the law as written. As such, they cannot support the writ cause 

of action.

Next, appellants rely upon allegations that federal law requires the state-level 

defendants to actively monitor equal access issues and prohibit discrimination under 20 

United States Code section 1703(f) and 42 United States Code section 2000d. Appellants 

contend that these laws have been consistently construed “to impose a monitoring 

obligation as part of the obligation to establish minimum anti-discrimination standards 

and guidelines for the public schools they fund.”14 

The state-level defendants respond that the state has broad discretion in the 

manner in which it implements these requirements, a discretion shown by the fact that 

state law requires local agencies to gather and report the information required. The statelevel defendants further rely on arguments that appellants do not have a beneficial 

interest in the data collection and failed to exhaust administrative remedies and, thus, had 

other remedies available.15

14 Appellants’ complaint lists several state law statutes potentially supporting the writ as 

well, including Education Code sections 14040, 51745, 58511 and former section 52886, along 

with the identification of several more code sections that appear to be directed solely at the locallevel defendants. Although not raised in the opening brief, the state-level defendants discussed 

these in their responsive briefs. We have reviewed these statutes and find no basis for a writ of 

mandate claim against the state-level defendants within them.

15 Although unclear as to which arguments it precisely applies, the state-level defendants 

also raise the allegation that appellants have since settled their lawsuit with the local-level 

defendants in a manner that resolves various portions of their claims against the state-level 

defendants. Such evidence, occurring after the court’s rulings, is not part of the evidence before 

the trial court and, thus, not part of its reasoning. We decline to consider allegations concerning 

settlement for the first time on appeal.
42.

In our review of the general legal framework of appellants’ claim, we recognize 

that a valid claim could be made under this theory with appropriately pled facts. With 

respect to the existence of an enforceable duty to act and a beneficial interest in the 

completion of that duty, we find this case analogous to California Hospital Assn. v. 

Maxwell-Jolly (2010) 188 Cal.App.4th 559 (Maxwell-Jolly). In Maxwell-Jolly the 

California Hospital Association sought a writ of mandate challenging the manner in 

which certain hospitals were being reimbursed for services tied to the federal Medicare 

laws. (Id. at p. 564.) The reimbursement payments were set based on a formula 

developed by the California Department of Health Care Services. The Department 

argued its rate-setting was a discretionary act that was not the proper focus of mandamus 

relief and that the California Hospital Association lacked any beneficial interest in the 

setting of reimbursement rates.

Both of these contentions were rejected. Although there was a discretionary 

aspect to the reimbursement rate determination, a writ of mandate could still issue if that 

discretion was abused. (Maxwell-Jolly, supra, 188 Cal.App.4th at p. 570.) Moreover, the 

concept of a beneficial interest in the appropriate conduct was much broader than what is 

necessary to maintain standing in a litigation. All that is required to demonstrate a 

beneficial interest is “‘a special interest over and above the interest of the public at 

large.’” (Id. at p. 569.) Appellants’ allegations in this case sufficiently allege an abuse of 

discretion in the nonperformance of required duties on the part of the state-level 

defendants. In addition, appellants have alleged a greater interest than the public at large 

in the performance of these duties, both as parents and students attending the schools in 

question and as community based organizations working to combat improper practices at 

these schools. We discuss both conclusions below.

Turning to the issues raised in this case, appellants point out that federal courts 

impose a ministerial duty upon state-level agencies to monitor their school systems for 

compliance with federal equal protection requirements under both 20 United States Code 
43.

section 1703(f), focusing on students with language barriers, and 42 United States Code 

section 2000d, covering the right to be free from discrimination generally. (See Idaho 

Migrant Council v. Board of Ed. (9th Cir. 1981) 647 F.2d 69, 70–71 [finding Idaho could 

not rely on fact that local districts were responsible for contested actions where state 

Constitution provided for supervision of state educational institutions and state provided 

oversight in educational matters].) As discussed with respect to the equal protection and 

equal educational opportunity claims, California’s state-level constitutional and statutory 

duty to oversee the education process is well settled. California’s acceptance of such 

oversight duties appears at least on par with the obligations triggering duties under the 

federal law in Idaho Migrant Council. Accordingly, we see no reason why the case law 

would not indicate a clear ministerial duty on the part of the state to monitor compliance 

with federal laws.

Recognizing such a duty exists, it is apparent that how one engages in monitoring 

for compliance with federal law, like how one sets rates for Medicare reimbursements, is 

discretionary in nature. Indeed, appellants point to no laws or cases stating any one 

specific method for monitoring compliance must be used. Accordingly, any claim arising 

from the way in which the state implements such a duty must demonstrate an abuse of 

discretion. The question thus becomes, to what degree must appellants allege the statelevel defendants’ actions constitute an abuse of discretion?

The state-level defendants point us to Alejo, supra, 212 Cal.App.4th 768. In Alejo, 

the plaintiffs sought a writ of mandate to compel compliance with the requirements of 20 

United States Code section 1703(f), arguing that the discontinuation of on-site monitoring 

programs violated the statutory duty to take appropriate action to ensure compliance with 

the federal laws. (Alejo, supra, at p. 781.) The Alejo court disagreed that such 

contentions were sufficient to state a claim. Relevant to this case, the court reasoned that 

the ministerial duty to monitor was a broad duty and, therefore, a plaintiff must allege 

that the monitoring program in whole is sufficiently flawed such that its continued use
44.

constitutes an abuse of discretion. Allegations against a single component of that 

discretionary program will not suffice. (Id. at pp. 781–782.) The state-level defendants 

thus broadly contend that appellants simply cannot state an abuse of discretion mandamus 

claim where the failure is based not on the reporting system implemented as a whole, but 

upon the actions of certain local entities that failed to comply with their reporting 

responsibilities. We agree in principle.

Resolving this dispute, therefore, turns to the nature of appellants’ allegations 

concerning the duty to monitor. Although appellants’ third amended complaint is not 

perfectly clear with respect to allegations against the state-level versus the local-level 

defendants in its writ of mandate claim, upon review we find that appellants have stated a 

broad challenge to the state-level defendants’ conduct sufficient to support their writ 

claim. Specifically, appellants allege that the local-level defendants failed to submit the 

data required of them for the 2011-2012 school year, yet the state-level defendants “have 

taken no action to procure that data and have failed to implement any program or process 

for ensuring that the data is accurately submitted to sanction KHSD or other districts that 

fail to do so.” Thus, unlike Alejo, appellants are not contesting only one portion of the 

program. Rather, they are alleging that the state-level defendants, having a mandatory 

duty to monitor for compliance with federal law, have abused their discretion to do so by 

failing to implement any review of the program they implemented to ensure they are 

receiving the data necessary to meet their duty. This holistic attack on the state-level 

defendants’ use of their discretion when implementing the law is the type of challenge 

contemplated by Alejo and is sufficient to state a claim.

The state-level defendants’ attacks on the writ action do not end there, however, as 

they also claim that appellants were required to exhaust their administrative remedies 

through the UCP process in order to proceed with the writ claim. Although we found this 

argument persuasive with respect to the taxpayer cause of action, we do not reach the 

same conclusion with respect to the writ action. In order to require exhaustion of 
45.

administrative remedies, those remedies must provide the complainant with relief. (See 

SJCBC LLC v. Horwedel (2011) 201 Cal.App.4th 339, 348–349 [exhaustion not required 

where the plaintiff could not initiate administrative proceedings].) With respect to the 

taxpayer claim, appellants could use the administrative complaint procedures to correct 

discriminatory practices undertaken by the local agency and thus obtain relief. However, 

the relief sought under the writ claim is of a different nature. Rather than changing 

conduct at the local level, the relief sought is a wholesale change in the monitoring 

process at the state level. We see nothing in the structure of the UCP that would allow 

for such relief if an administrative complaint were filed. Accordingly, we do not agree 

that exhaustion of that administrative remedy is required to bring the writ of mandate 

action at issue here.

For these reasons, we conclude appellants stated a claim for a writ of mandate in 

this case.16

Associational Standing 

With the substantive claims resolved, we turn to a limited standing issue raised by 

the parties. Appellants in this case consist of a number of parents, students, and 

community organizations interested in the practices occurring in KHSD. As to the claims 

moving forward following this appeal, an issue has been raised regarding the standing of 

at least one of these organizations—the Delores Huerta Foundation (DHF). Because 

there appears to be some confusion regarding the nature of appellants’ assertions on this 

issue, we first identify the scope of the appeal on this point before reaching its merits. In 

this case, there are three organizational plaintiffs, DHF, the National Brotherhood 

Association (NBA), and Faith in Action Kern County (FIAKC). The trial court found 

16 The parties agree that appellants’ requests for declaratory relief with respect to each 

claim rise and fall with the discussion of their merits. Thus, where we have affirmed the trial 

court’s dismissal of claims, no declaratory relief exists on those causes of action. But where we 

have determined appellants have stated a proper claim against the state-level defendants, their 

requests for declaratory judgment should be reinstated.
46.

each had standing under the public interest exception to proceed with the writ of mandate 

claim, which was originally identified as the ninth cause of action, but is identified as the 

eighth cause of action in the third amended complaint.

In their opening brief, appellants state they are “appeal[ing] the ruling on the 

FIRST through EIGHTH causes of action in the [second amended complaint] as to 

DHF.” (Italics added.) Accordingly, given our prior discussion on the merits, 

appellants’ allegation limits the issue to DHF’s standing to pursue an equal protection 

claim under the California Constitution.

Recounting the procedural history of the case, appellants acknowledge that a 

demurrer based on associational standing was also brought against NBA and FIAKC 

following the complaint. The court sustained the demurrer with respect to NBA and 

overruled it with respect to FIAKC. In this appeal, appellants make no arguments 

regarding NBA’s standing, but do argue “in an abundance of caution” that FIAKC has 

standing. For their part, the state-level defendants make no counterargument regarding 

FIAKC, but do argue that both DHF and NBA lack associational standing. 

For clarity, we confirm that the issues on appeal are limited to those affecting 

DHF. As the trial court overruled the demurrer as to FIAKC and respondents make no 

argument that FIAKC failed to demonstrate associational standing, we accept the parties’ 

implicit acknowledgment that the trial court’s ruling on the demurrer to the third 

amended complaint does not overrule its prior ruling regarding FIAKC’s associational 

standing in this matter.

Applicable law

“Under the doctrine of associational standing, an association that does not have 

standing in its own right may nevertheless have standing to bring a lawsuit on behalf of 

its members.” (Amalgamated Transit Union, Local 1756, AFL-CIO v. Superior Court

(2009) 46 Cal.4th 993, 1003.) “Associational standing exists when: ‘(a) [the 

association’s] members would otherwise have standing to sue in their own right; (b) the 
47.

interests [the association] seeks to protect are germane to the organization’s purpose; and 

(c) neither the claim asserted nor the relief requested requires the participation of 

individual members in the lawsuit.’” (Id. at p. 1004.)

Appellants’ pleadings

With respect to the nature of DHF as an organization and its member’s injuries in 

this matter, appellants alleged that DHF is “a non-profit membership organization whose 

mission includes pursuing social justice through systemic and structural transformation 

and advocating for systemic change to ensure academic success for all students. Some of 

its members are parents of students or students who reside in KHSD who have been 

subjected or may in the future be subjected to disciplinary action ....” Appellants further 

alleged that one “of DHF’s current primary focuses is to address the high incidence of 

suspensions, expulsions, involuntary transfers and high dropout rates of AfricanAmerican and Latino students in KHSD” and provided examples of DHF’s past actions 

in this area. Appellants concluded by reciting the three requirements for associational 

standing with respect to DHF.

Discussion

Despite appellants’ pleadings generally satisfying the standards set forth above 

with respect to DHF, the state-level defendants assert the court correctly found there was 

no organizational standing because DHF failed “to allege specific facts that establish 

standing for all causes of action” and by alluding to a lack of affidavits on the issue. We 

do not find these arguments compelling. At the demurrer stage, we treat all properly 

pleaded facts as admitted and can rely upon those facts to determine the correctness of 

the trial court’s ruling, including with respect to standing. (See Market Lofts Community 

Assn. v. 9th Street Market Lofts, LLC (2014) 222 Cal.App.4th 924, 930–932 [relying 

upon facts pled in complaint to support standing to sue].) Appellants have properly pled 

that DHF members are affected by the allegedly discriminatory actions taken by KHSD, 

that the organization’s mission consists of remedying such actions and otherwise 
48.

improving the local school districts, and that none of the individual members are needed 

to pursue the organization’s claims. This is sufficient to survive the demurrer.

DISPOSITION17

The judgment of the trial court is affirmed in part and reversed in part. As 

discussed above, we conclude appellants have stated a claim under California’s equal 

protection clause utilizing a disparate impact theory and properly sought a writ of 

mandate based on the state-level defendants’ alleged failure to meet their federally 

mandated monitoring requirements. The trial court thus incorrectly granted demurrers as 

to these causes of action and any related requests for declaratory relief. The trial court 

also incorrectly determined that DHF lacked associational standing. In all other respects, 

the trial court’s order is affirmed.

__________________________

MEEHAN, J.

WE CONCUR:

__________________________

DETJEN, Acting P.J.

__________________________

SMITH, J.

17 Appellants’ briefing raises a dispute concerning the trial court’s decision to take judicial 

notice of certain documents submitted with respondents’ demurrer to the complaint. They admit, 

however, that the trial court did not expressly rely on any of these documents in its ruling. For 

their part, respondents claim judicial notice was proper and that the documents demonstrated the 

falsity of appellants’ allegations that respondents did nothing in response to the disclosure of 

disparate impacts in discipline and provided relevant facts related to appellants’ use of the UCP. 

Our review of the issues does not turn on whether these documents were before the trial court or 

whether they properly could be considered on demurrer. We therefore do not reach this dispute.