Task: sc_issuearea

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Justice Brennan
announced the judgment of the Court and delivered an opinion in which Justice Marshall, Justice Blackmun, and Justice Powell join.
The question we must decide is whether relief awarded in this case, in the form of a one-black-for-one-white promotion requirement to be applied as an interim measure to state trooper promotions in the Alabama Department of Public Safety (Department), is permissible under the equal protection guarantee of the Fourteenth Amendment.
In 1972 the United States District Court for the Middle District of Alabama held that the Department had systematically excluded blacks from employment in violation of the Fourteenth Amendment. Some 11 years later, confronted with the Department’s failure to develop promotion procedures that did not have an adverse impact on blacks, the District Court ordered the promotion of one black trooper for each white trooper elevated in rank, as long as qualified black candidates were available, until the Department implemented an acceptable promotion procedure. The United States challenges the constitutionality of this order.
r-H
Because the Department’s prior employment practices and conduct during this lawsuit bear directly on the constitutionality of any race-conscious remedy imposed upon it, we must relate the tortuous course of this litigation in some detail.
A
In 1972 the National Association for the Advancement of Colored People (NAACP) brought this action challenging the Department’s longstanding practice of excluding blacks from employment. The United States was joined as a party plaintiff, and Phillip Paradise, Jr., intervened on behalf of a class of black plaintiffs. District Judge Frank M. Johnson, Jr., determined:
“Plaintiffs have shown without contradiction that the defendants have engaged in a blatant and continuous pattern and practice of discrimination in hiring in the Alabama Department of Public Safety, both as to troopers and supporting personnel. In the thirty-seven year history of the patrol there has never been a black trooper and the only Negroes ever employed by the department have been nonmerit system laborers. This unexplained and unexplainable discriminatory conduct by state officials is unquestionably a violation of the Fourteenth Amendment.” NAACP v. Allen, 340 F. Supp. 703, 705 (MD Ala. 1972).
He concluded:
“Under such circumstances... the courts have the authority and the duty not only to order an end to discriminatory practices, but also to correct and eliminate the present effects of past discrimination. The racial discrimination in this instance has so permeated the Department's] employment policies that both mandatory and prohibitory injunctive relief are necessary to end these discriminatory practices and to make some substantial progress toward eliminating their effects.” Id., at 705-706 (citations omitted).
As a result, the court issued an order (1972 order), enjoining the Department to hire one black trooper for each white trooper hired until blacks constituted approximately 25% of the state trooper force. Judge Johnson also enjoined the Department from “engaging in any employment practices, including recruitment, examination, appointment, training, promotion, retention or any other personnel action, for the purpose or with the effect of discriminating against any employee, or actual or potential applicant for employment, on the ground of race or color.” Id., at 706 (emphasis added). The court further required that “eligible and promotional registers heretofore used for the purpose of hiring troopers be and they are hereby abrogated to the extent necessary to comply with this decree.” Id., at 707.
The defendants appealed, but the Fifth Circuit upheld the hiring requirement:
“The use of quota relief in employment discrimination cases is bottomed on the chancellor’s duty to eradicate the continuing effects of past unlawful practices. By mandating the hiring of those who have been the object of discrimination, quota relief promptly operates to change the outward and visible signs of yesterday’s racial distinctions and thus, to provide an impetus to the process of dismantling the barriers, psychological or otherwise, erected by past practices. It is a temporary remedy that seeks to spend itself as promptly as it can by creating a climate in which objective, neutral employment criteria can successfully operate to select public employees solely on the basis of job-related merit.” NAACP v. Allen, 493 F. 2d 614, 621 (1974).
The Court of Appeals also held that white applicants who had higher eligibility rankings than blacks were not denied due process or equal protection of the laws by the one-for-one hiring order. The Department’s use of unvalidated selection procedures that disproportionately excluded blacks precluded any argument that “quota hiring produces unconstitutional ‘reverse’ discrimination, or a lowering of employment standards, or the appointment of less or unqualified persons.” Id., at 618.
In 1974, only shortly after the Court of Appeals’ decision, the plaintiffs found it necessary to seek further relief from the District Court. Judge Johnson found that “defendants have, for the purpose of frustrating or delaying full relief to the plaintiff class, artificially restricted the size of the trooper force and the number of new troopers hired.” Paradise v. Dothard, Civ. Action No. 3561-N (MD Ala., Aug. 5, 1975). The court also addressed the disproportionate failure of blacks hired to achieve permanent trooper status:
“[T]he high attrition rate among blacks resulted from the selection of other than the best qualified blacks from the eligibility rosters, some social and official discrimination against blacks at the trooper training academy, preferential treatment of whites in some aspects of training and testing, and discipline of blacks harsher than that given whites for similar misconduct while on the force.” Ibid.
The court reaffirmed the 1972 hiring order, enjoining any further attempts by the Department to delay or frustrate compliance.
B
In September 1977 the plaintiffs again had to return to the District Court for supplemental relief, this time specifically on the question of the Department’s promotion practices. Following extensive discovery, the parties entered into a partial consent decree (1979 Decree), approved by the court in February 1979. In this decree, the Department agreed to develop within one year a promotion procedure that would be fair to all applicants and have “little or no adverse impact upon blacks seeking promotion to corporal.” App. 40. In the decree, the Department also agreed that the promotion procedure would conform with the 1978 Uniform Guidelines on Employee Selection Procedures, 28 CFR §50.14 (1978). Once such a procedure was in place for the rank of corporal, the decree required the defendants to develop similar procedures for the other upper ranks — sergeant, lieutenant, captain, and major. The decree expressly provided that the plaintiffs might apply to the court for enforcement of its terms or for other appropriate relief. App. 41.
Five days after approval of the 1979 Decree, the defendants sought clarification of the 1972 hiring order. The Department maintained that its goal — a 25% black trooper force — applied only to officers in entry-level positions and not to the upper ranks. The court responded:
“On this point, there is no ambiguity. The Court’s [1972] order required that one-to-one hiring be carried out until approximately twenty-five percent of the state trooper force is black. It is perfectly clear that the order did not distinguish among troopers by rank.” Paradise v. Shoemaker, 470 F. Supp. 439, 440 (MD Ala. 1979) (emphasis in original).
The Department also argued that because the 25% objective could not be achieved unless 37.5% of entry-level positions were held by blacks, “more qualified white applicants” were passed over than was constitutionally permissible. Id., at 441. The District Court rejected the argument, stating:
“To modify this order would be to do less than the law requires, which is to eradicate the continuing effects of past unlawful practices. In 1972, defendants were not just found guilty of discriminating against blacks in hiring to entry-level positions. The Court found that in thirty-seven years there had never been a black trooper at any rank. One continuing effect of that discrimination is that, as of November 1, 1978, out of 232 state troopers at the rank of corporal or above, there is still not one black. The [hiring] quota fashioned by the Court provides an impetus to promote blacks into those positions. To focus only on the entry-level positions would be to ignore that past discrimination by the Department was pervasive, that its effects persist, and that they are manifest.... The order in this case is but the necessary remedy for an intolerable wrong.” Id., at 442 (emphasis added).
In April 1981, more than a year after the deadline set in the 1979 Decree, the Department proposed a selection procedure for promotion to corporal and sought approval from the District Court. The United States and the plaintiff class both objected to implementation of the procedure, arguing that it had not been validated and that its use would be impermissible if it had an adverse impact on blacks. To resolve this dispute the parties executed a second consent decree (1981 Decree) which the District Court approved on August 18, 1981.
In the 1981 Decree, the Department reaffirmed its commitment made in 1979 to implement a promotion procedure with little or no adverse impact on blacks. The parties then agreed to the administration of the proposed promotion procedure and that its results would be “reviewed to determine whether the selection procedure has an adverse impact against black applicants.” App. 51. Whether there was adverse impact was to be determined by reference to the “four-fifths” rule of §4 of the Uniform Guidelines. See 28 CFR §50.14 (1978). If the parties proved unable to agree on a procedure, its determination would be submitted to the District Court. No promotions would occur until the “parties... agreed in writing or the Court... ruled upon the method to be used for making promotions with little or no adverse impact.” App. 53.
The defendants administered the test to 262 applicants of whom 60 (23%) were black. Of the 60 blacks who took the test, only 5 (8.3%) were listed in the top half of the promotion register; the highest ranked black candidate was number 80. Id., at 119. In response to an inquiry from the United States, the Department indicated that there was an immediate need to make between 8 and 10 promotions to corporal and announced its intention to elevate between 16 and 20 individuals before construction of a new list. 1 Record 222.
The United States objected to any rank-ordered use of the list, stating that such use “would result in substantial adverse impact against black applicants” and suggested that the defendants submit an alternative proposal that would comply with the requirements of the 1979 and 1981 Decrees. Id., at 220-221. No proposal was submitted, and no promotions were made during the next nine months.
In April 1983, plaintiffs returned to District Court and sought an order enforcing the terms of the two consent decrees. Specifically, they requested that defendants be required to promote blacks to corporal “at the same rate at which they have been hired, 1 for 1, until such time as the defendants implement a valid promotional procedure.” Id., at 112. The plaintiff class contended that such an order would “encourage defendants to develop a valid promotional procedure as soon as possible,” and would “help to alleviate the gross underrepresentation of blacks in the supervisory ranks of the Department” — an underrepresentation caused by the Department’s past discrimination and exacerbated by its continuing refusal to implement a fair procedure. Ibid.
Although it opposed the one-for-one promotion requirement, the United States agreed that the consent decrees should be enforced. It stated that defendants had failed to offer “any reason[s] why promotions should not be made,” nor had they offered an explanation as to why they had halted “progress towards remedying the effects of past discrimination.” Id., at 199-201. The United States further observed that the Department’s failure to produce a promotion plan in compliance with the 1979 and 1981 Decrees “suggests that a pattern of discrimination against blacks in the Department... may be continuing.” Id., at 200.
After the motion to enforce was filed, four white applicants for promotion to corporal sought to intervene on behalf of a class composed of those white applicants who took the proposed corporal’s examination and ranked number 1 through number 79. App. 81-87. They argued that the 1979 and 1981 Decrees and the relief proposed by the plaintiffs in their motion to enforce were “unreasonable, illegal, unconstitutional or against public policy.” Id., at 99.
In an order entered October 28, 1983, the District Court held that the Department’s selection procedure had an adverse impact on blacks. Paradise v. Prescott, 580 F. Supp. 171, 174 (MD Ala.). Observing that even if 79 corporals were promoted in rank order, rather than the 15 contemplated, none would be black, the court concluded that “[s]hort of outright exclusion based on race, it is hard to conceive of a selection procedure which would have a greater discriminatory impact.” Id., at 173. The Department was ordered to submit, by November 10, 1983, “a plan to promote to corporal, from qualified candidates, at least 15 persons in a manner that will not have an adverse racial impact.” Id., at 175.
The Department subsequently submitted a proposal to promote 15 persons to the rank of corporal, of whom 4 would be black. In addition, the Department requested that the department of personnel be given more time to develop and submit for court approval a nondiscriminatory promotion procedure.
The United States did not oppose the Department’s proposal, but the plaintiffs did. They argued that the proposal “totally disregards the injury plaintiffs have suffered due to the defendants’ four-and-a-half year delay [since the 1979 Decree] and fails to provide any mechanism that will insure the present scenario will not reoccur.” 2 Record 382.
On December 15,1983, the District Court granted the plaintiffs’ motion to enforce the 1979 and 1981 Decrees. Paradise v. Prescott, 585 F. Supp. 72 (MD Ala.). Confronted with the Department’s immediate need to promote 15 troopers to corporal and the parties’ inability to agree, the court was required by the 1979 and 1981 Decrees to fashion a promotion procedure. The District Judge summarized the situation:
“On February 10, 1984, less than two months from today, twelve years will have passed since this court condemned the racially discriminatory policies and practices of the Alabama Department of Public Safety. Nevertheless, the effects of these policies and practices remain pervasive and conspicuous at all ranks above the entry-level position. Of the 6 majors, there is still not one black. Of the 25 captains, there is still not one black. Of the 35 lieutenants, there is still not one black. Of the 65 sergeants, there is still not one black. Of the 66 corporals, only four are black. Thus, the department still operates an upper rank structure in which almost every trooper obtained his position through procedures that totally excluded black persons. Moreover, the department is still without acceptable procedures for advancement of black troopers into this structure, and it does not appear that any procedures will be in place within the near future. The preceding scenario is intolerable and must not continue. The time has now arrived for the department to take affirmative and substantial steps to open the upper ranks to black troopers.” Id., at 74 (emphasis in original).
The court then fashioned the relief at issue here. It held that “for a period of time,” at least 50% of the promotions to corporal must be awarded to black troopers, if qualified black candidates were available. The court also held that “if there is to be within the near future an orderly path for black troopers to enter the upper ranks, any relief fashioned by the court must address the department’s delay in developing acceptable promotion procedures for all ranks.” Id., at 75. Thus, the court imposed a 50% promotional quota in the upper ranks, but only if there were qualified black candidates, if the rank were less than 25% black, and if the Department had not developed and implemented a promotion plan without adverse impact for the relevant rank. The court concluded that the effects of past discrimination in the Department “will not wither away of their own accord” and that “without promotional quotas the continuing effects of this discrimination cannot be eliminated.” Id., at 75 and 76. The court highlighted the temporary nature and flexible design of the relief ordered, stating that it was “specifically tailored” to eliminate the lingering effects of past discrimination, to remedy the delayed compliance with the consent decrees, and to ensure prompt implementation of lawful procedures. Ibid.
Finally, the Department was ordered to submit within 30 days a schedule for the development of promotion procedures for all ranks above the entry level. The schedule was to be “based upon realistic expectations” as the court intended that “the use of the quotas... be a one-time occurrence.” Ibid. The District Court reasoned that, under the order it had entered, the Department had “the prerogative to end the promotional quotas at any time, simply by developing acceptable promotion procedures.” Id., at 76.
Numerous motions for reconsideration of the court’s order and for the alteration or amendment of the court’s judgment were denied by the District Court. In its motion, the Department set forth the “new contention” that it was “without legal authority and sufficiently trained personnel to design any promotional procedures” because “this function is allocated by statute to the Department of Personnel.” Paradise v. Prescott, Civ. Action No. 3561-N (MD Ala., Jan. 13, 1984). The District Court responded that the Department had signed consent decrees in 1979 and 1981 mandating development of an acceptable procedure and that Department counsel had represented at the January 5,1984, hearing that “it was anticipated that the development of these procedures would take only a few months.” Ibid. The judge concluded:
“It is now years later and this court will not entertain the excuse that the department is now without legal authority to meet its obligations under the consent decrees.
... [T]he Department of Personnel, which is also a party to these proceedings, assured the court at the January 5, [1984] hearing that it would work closely with the Public Safety Department to develop acceptable promotion procedures. The Public Safety Department’s contention that it is without legal authority is not only meritless, it is frivolous.
“Moreover, that the Department of Public Safety would even advance this argument dramatically demonstrates the need for the relief imposed by this court. Such frivolous arguments serve no purpose other than to prolong the discriminatory effects of the department’s 37-year history of racial discrimination” Ibid, (emphasis added).
In February 1984, the Department promoted eight blacks and eight whites to corporal pursuant to the District Court’s order enforcing the consent decrees.
Four months later, the Department submitted for the court’s approval its proposed procedure for promotions to the rank of corporal. The District Court ruled that the Department could promote up to 13 troopers utilizing this procedure and suspended application of the one-for-one requirement for that purpose. App. 163-164. In October 1984, following approval of the Department’s new selection procedure for promotion to sergeant, the court similarly suspended application of the quota at that rank. Id., at 176-177.
On appeal the Court of Appeals for the Eleventh Circuit affirmed the District Court’s order. The Court of Appeals concluded that the relief at issue was designed to remedy the present effects of past discrimination — “effects which, as the history of this case amply demonstrates, ‘will not wither away of their own accord.’” Paradise v. Prescott, 767 F. 2d 1514, 1533 (1985) (quoting 585 F. Supp., at 75). In addition, the relief awarded was deemed to “exten[d] no further than necessary to accomplish the objective of remedying the ‘egregious’ and longstanding racial imbalances in the upper ranks of the Department.” 767 F. 2d, at 1532-1533.
We granted certiorari. 478 U. S. 1019 (1986). We affirm.
II
The United States maintains that the race-conscious relief ordered in this case violates the Equal Protection Clause of the Fourteenth Amendment to the Constitution of the United States.
It is now well established that government bodies, including courts, may constitutionally employ racial classifications essential to remedy unlawful treatment of racial or ethnic groups subject to discrimination. See Sheet Metal Workers v. EEOC, 478 U. S. 421, 480 (1986), and cases cited therein. See also Wygant v. Jackson Board of Education, 476 U. S. 267, 286 (1986) (“The Court is in agreement that... remedying past or present racial discrimination... is a sufficiently weighty state interest to warrant the remedial use of a carefully constructed affirmative action program”) (O’Connor, J., concurring in part and concurring in judgment). But although this Court has consistently held that some elevated level of scrutiny is required when a racial or ethnic distinction is made for remedial purposes, it has yet to reach consensus on the appropriate constitutional analysis. We need not do so in this case, however, because we conclude that the relief ordered survives even strict scrutiny analysis: it is “narrowly tailored” to serve a “compelling [governmental] purpose.” Id., at 274 (opinion of Powell, J.).
The Government unquestionably has a compelling interest in remedying past and present discrimination by a state actor. See ibid.; id., at 286 (O’Connor, J., concurring); Sheet Metal Workers, supra, at 480 (opinion of Brennan, J.). See also Franks v. Bowman Transportation Co., 424 U. S. 747, 763 (1976) (prevention and remedying of racial discrimination and its effects is a national policy of “highest priority”). In 1972 the District Court found, and the Court of Appeals affirmed, that for almost four decades the Department had excluded blacks from all positions, including jobs in the upper ranks. Such egregious discriminatory conduct was “unquestionably a violation of the Fourteenth Amendment.” NAACP v. Allen, 340 F. Supp., at 705. As the United States concedes, Brief for United States 21, the pervasive, systematic, and obstinate discriminatory conduct of the Department created a profound need and a firm justification for the race-conscious relief ordered by the District Court.
The Department and the intervenors, however, maintain that the Department was found guilty only of discrimination in hiring, and not in its promotional practices. They argue that no remedial relief is justified in the promotion context because the intentional discrimination in hiring was without effect in the upper ranks, and because the Department’s promotional procedure was not discriminatory. There is no merit in either premise.
Discrimination at the entry level necessarily precluded blacks from competing for promotions, and resulted in a departmental hierarchy dominated exclusively by nonminor-ities. The lower courts determined that this situation was explicable only by reference to the Department’s past discriminatory conduct. In 1972 the Department was “not just found guilty of discriminating against blacks in hiring to entry-level positions. The court found that in 37 years there had never been a black trooper at any rank.” Paradise v. Shoemaker, 470 F. Supp., at 442. In 1979 the District Judge stated that one continuing effect of the Department’s historical discrimination was that, “as of November 1, 1978, out of 232 state troopers at the rank of corporal or above, there is still not one black. ” Ibid. The court explained that the hiring quota it had fashioned was intended to provide “an impetus to promote blacks into those positions” and that “[t]o focus only on the entry-level positions would be to ignore that past discrimination by the Department was pervasive, that its effects persist, and that they are manifest.” Ibid. The District Court crafted the relief it did due to “the department’s failure after almost twelve years to eradicate the continuing effects of its own discrimination.” 585 F. Supp., at 75, n. 1. It is too late for the Department to attempt to segregate the results achieved by its hiring practices and those achieved by its promotional practices.
The argument that the Department’s promotion procedure was not discriminatory is belied by the record. In 1979, faced with additional allegations of discrimination, the Department agreed to adopt promotion procedures without an adverse impact on black candidates within one year. See 767 F. 2d, at 1532. By 1983 the Department had promoted only four blacks, and these promotions had been made pursuant to the 1979 Decree, and “not the voluntary action of the Department.” Id., at 1533, n. 16. In December 1983, the District Court found, despite the commitments made in the consent decrees, that the Department’s proposed promotion plan would have an adverse impact upon blacks, 580 F. Supp., at 174, and that “the department still operate[d] an upper rank structure in which almost every trooper obtained his position through procedures that totally excluded black persons.” 585 F. Supp., at 74 (emphasis in original). On appeal, the Eleventh Circuit summarily rejected the argument of the Department and the intervenors:
“[I]t is no answer in this case to say that plaintiffs have not proven that the Department has discriminated against blacks above the entry-level seeking promotions.... [I]t cannot be gainsaid that white troopers promoted since 1972 were the specific beneficiaries of an official policy which systematically excluded all blacks.” 767 F. 2d, at 1533, n. 16 (emphasis added).
Promotion, like hiring, has been a central concern of the District Court since the commencement of this action; since 1972, the relief crafted has included strictures against promotion procedures that have a discriminatory purpose or effect. The race-conscious relief at issue here is justified by a compelling interest in remedying the discrimination that permeated entry-level hiring practices and the promotional process alike.
Finally, in this case, as in Sheet Metal Workers, 478 U. S., at 485 (Powell, J., concurring in part and concurring in judgment), the District Court’s enforcement order is “supported not only by the governmental interest in eradicating [the Department’s] discriminatory practices, it is also supported by the societal interest in compliance with the judgments of federal courts.” The relief at issue was imposed upon a defendant with a consistent history of resistance to the District Court’s orders, and only after the Department failed to live up to its court-approved commitments.
HH hH I — I
While conceding that the District Court s order serves a compelling interest, the Government insists that it was not narrowly tailored to accomplish its purposes —to remedy past discrimination and eliminate its lingering effects, to enforce compliance with the 1979 and 1981 Decrees by bringing about the speedy implementation of a promotion procedure that would not have an adverse impact on blacks, and to eradicate the ill effects of the Department’s delay in producing such a procedure. We cannot agree.
In determining whether race-conscious remedies are appropriate, we look to several factors, including the necessity for the relief and the efficacy of alternative remedies; the flexibility and duration of the relief, including the availability of waiver provisions; the relationship of the numerical goals to the relevant labor market; and the impact of the relief on the rights of third parties. Sheet Metal Workers, 478 U. S., at 481 (opinion of Brennan, J.); id., at 486 (Powell, J., concurring in part and concurring in judgment). When considered in light of these factors, it was amply established, and we find that the one-for-one promotion requirement was narrowly tailored to serve its several purposes, both as applied to the initial set of promotions to the rank of corporal and as a continuing contingent order with respect to the upper ranks.
A
To evaluate the District Court’s determination that it was necessary to order the promotion of eight whites and eight blacks to the rank of corporal at the time of the motion to enforce, we must examine the purposes the order was intended to serve. First, the court sought to eliminate the effects of the Department’s “long term, open, and pervasive” discrimination, including the absolute exclusion of blacks from its upper ranks. Second, the judge sought to ensure expeditious compliance with the 1979 and 1981 Decrees by inducing the Department to implement a promotion procedure that would not have an adverse impact on blacks. Finally, the court needed to eliminate so far as possible the effects of the Department’s delay in producing such a procedure. Confronted by the Department’s urgent need to promote at least 15 troopers to corporal, see Paradise v. Prescott, 580 F. Supp., at 173, the District Court determined that all of its purposes could be served only by ordering the promotion of eight blacks and eight whites, as requested by the plaintiff class.
The options proffered by the Government and the Department would not have served the court’s purposes. The Department proposed, as a stopgap measure, to promote 4 blacks and 11 whites and requested additional time to allow the department of personnel to develop and submit a nondiscriminatory promotion procedure. The United States argues that the Department’s proposal would have allowed this round of promotions to be made without adverse impact on black candidates.
The Department’s proposal was inadequate because it completely failed to address two of the purposes cited above. The Department’s ad hoc offer to make one round of promotions without an adverse impact ignored the court’s concern that an acceptable procedure be adopted with alacrity. As early as 1972, the Department had been enjoined from engaging in any promotional practices “for the purpose or with the effect of discriminating against any employee... on the ground of race or color.” NAACP v. Allen, 340 F. Supp., at 706. In 1979, the Department had promised in a court-approved consent decree to develop and implement a procedure without adverse impact by 1980. By 1983, such a procedure still had not been established, and Paradise sought enforcement of the consent decrees. Given the record of delay, we find it astonishing that the Department should suggest that in 1983 the District Court was constitutionally required to settle for yet another promise that such a procedure would be forthcoming “as soon as possible.” 2 Record 358.
Moreover, the Department’s proposal ignored the injury to the plaintiff class that resulted from its delay in complying with the terms of the 1972 order and the 1979 and 1981 Decrees. As the Eleventh Circuit pointed out, no blacks were promoted between 1972 and 1979; the four blacks promoted in 1979 were elevated pursuant to the 1979 Decree and not as a result of the voluntary action of the Department; and, finally, the whites promoted since 1972 “were the specific beneficiaries of an official policy which systematically excluded all blacks.” 767 F. 2d, at 1533, n. 16. To permit ad hoc decisionmaking to continue and allow only 4 of 15 slots to be filled by blacks would have denied relief to black troopers who had irretrievably lost promotion opportunities. Thus, adoption of the Department’s proposal would have fallen far short of the remedy necessary to eliminate the effects of the Department’s past discrimination, would not have ensured adoption of a procedure without adverse impact, and would not have vitiated the effects of the defendant’s delay.
The Government suggests that the trial judge could have imposed heavy fines and fees on the Department pending compliance. This alternative was never proposed to the District Court. Furthermore, the Department had been ordered to pay the plaintiffs’ attorney’s fees and costs throughout this lengthy litigation; these court orders had done little to prevent future foot-dragging. See, e. g., United States v. Frazer, 317 F. Supp. 1079, 1093 (1970); NAACP v. Allen, 340 F. Supp., at 708-710. In addition, imposing fines on the defendant does nothing to compensate the plaintiffs for the long delays in implementing acceptable promotion procedures. Finally, the Department had expressed an immediate and urgent need to make 15 promotions, and the District Court took this need into consideration in constructing its remedy. As we observed only last Term, “a district court may find it necessary to order interim hiring or promotional goals pending the development of nondiscriminatory hiring or promotion procedures. In these cases, the use of numerical goals provides a compromise between unacceptable alternatives: an outright ban on hiring or promotions... [or] continued use of a discriminatory selection procedure,” or, we might add, use of no selection procedure at all.
By 1984 the District Court was plainly justified in imposing the remedy chosen. Any order allowing further delay by the Department was entirely unacceptable. Cf. Green v. New Kent County School Board, 391 U. S. 430, 438, 439 (1968) (“[A] plan that at this late date fails to provide meaningful assurance of prompt and effective disestablishment of a dual system is... intolerable.... The burden on a school board today is to come forward with a plan that promises realistically to work, and promises realistically to work now”). Not only was the immediate promotion of blacks to the rank of corporal essential, but, if the need for continuing judicial oversight was to end, it was also essential that the Department be required to develop a procedure without adverse impact on blacks, and that the effect of past delays be eliminated.
We conclude that in 1983, when the District Judge entered his order, “it is doubtful, given [the Department’s] history in this litigation, that the District Court had available to it any other effective remedy.” Sheet Metal Workers, 478 U. S., at 486 (Powell, J., concurring in part and concurring in judgment).
B
The features of the one-for-one requirement and its actual operation indicate that it is flexible in application at all ranks. The requirement may be waived if no qualified black candidates are available. The Department has, for example, been permitted to promote only white troopers to the ranks of lieutenant and captain since no black troopers have qualified for those positions. Further, it applies only when the Department needs to make promotions. Thus, if external forces, such as budget cuts, necessitate a promotion freeze, the Department will not be required to make gratuitous promotions to remain in compliance with the court’s order.
Most significantly, the one-for-one requirement is ephemeral; the term of its application is contingent upon the Department’s own conduct. The requirement endures only until the Department comes up with a procedure that does not have a discriminatory impact on blacks — something the Department was enjoined to do in 1972 and expressly promised to do by 1980. As noted at n. 21, supra, the court has taken into account the difficulty of validating a test and does not require validation as a prerequisite for suspension of the promotional requirement. The one-for-one requirement evaporated at the ranks of corporal and sergeant upon implementation of promotion procedures without an adverse impact, demonstrating that it is not a disguised means to achieve racial balance. Cf. Sheet Metal Workers, supra, at 487 (Powell, J., concurring in part and concurring in judgment).
Finally, the record reveals that this requirement was flexible, waivable, and temporary in application. When the District Court imposed the provision, the judge expressed the hope that its use would be “a one-time occurrence.” 585 F. Supp., at 76. The court believed that this hope would be fulfilled: at the January 15, 1984, hearing on the plaintiffs’ motion to enforce the consent decrees, “the Personnel Department pledged that it would now devote its full resources to assisting the Public Safety Department in not only developing acceptable promotion procedures as required by the two consent decrees, but in doing so within the near future.” App. 141. The Department has

Question: What is the issue area of the decision?
A. Criminal Procedure
B. Civil Rights
C. First Amendment
D. Due Process
E. Privacy
F. Attorneys
G. Unions
H. Economic Activity
I. Judicial Power
J. Federalism
K. Interstate Relations
L. Federal Taxation
M. Miscellaneous
N. Private Action
Answer:

Answer: B