In accordance with C.A.R. 21.1, the following question of law was certified to this court by the United States Court of Appeals for the Tenth Circuit:
“Under the law of Colorado is there an effective available procedure by which a person confined in a Colorado correctional facility can seek state judicial review of the denial of parole by the Colorado State Board of Parole? See 28 U.S.C. § 2254(b) and (c).”
This court has agreed to respond to this question and notice thereof has been given to all parties concerned. Because most of the parties concerned appear pro se, briefs and oral argument have been dispensed with. See C.A.R. 21.1(f).
The question arises from four separate habeas corpus proceedings in the United States District Court for Colorado, wherein the petitioners have challenged the constitutionality of the denial of parole by the Colorado State Board of Parole (Board). Different judges heard the cases and reached conflicting determinations as to whether the petitions should be dismissed for the failure to exhaust state remedies.
A simple “yes” or “no” answer to this question cannot be given because the power of judicial review varies substantially based upon the nature of the claim made against the Board.
Cf. People v. Malacara,
Colo.,
The Board is an arm of the executive branch of government.
See
C.R.S.1963, 39-18-1(6); C.R.S. ’53, 39-17-3(6).
See also
67A C.J.S.
Pardon and Parole
§ 41. Judicial review of decisions by other branches of government is restricted by the separation of powers doctrine set out in
Colo.Const.
Art. III.
See Colorado Land Use Commission v. Board of County Commissioners,
Colo.,
District courts are constitutional courts of general jurisdiction. Colo.Const. Art. VI., Sec. 9. Courts of general jurisdiction may issue common law writs, including those in the nature of mandamus to inferior tribunals, boards, agencies, and officers of the state.
Pursuant to its rulemaking power under Colo.Const. Art. VI, Sec. 21, this court has set forth the procedures for the issuance of common law writs in the district courts. C.R.C.P. 106(a)(2) provides for relief in the district court
“[wjhere the relief sought is to compel an inferior tribunal, corporation, board, officer or person to perform an act which the law specially enjoins as a duty resulting from an office, trust or station . . .”
Since this power of review has not been modified by statute with respect to judicial review of Board actions,
1
a person denied parole can seek judicial review only as provided by C.R.C.P. 106(a)(2). This type of judicial review permits the district court to direct the Board “to
proceed and exercise”
its discretion, but not to “direct
how
discretion is to be exercised.”
Lamm v. Barber,
The decision of the Board to grant or deny parole is clearly discretionary since parole is “a privilege, and no prisoner is entitled to it as a matter of right.”
Silva v. People,
Due to the limited record which has been supplied to this court regarding the four cases which gave rise to this question of state judicial review, it is difficult for this court to give a definitive answer to the question as it applies to each of the petitioners for habeas corpus in the United States District Court. However, it does appear that each of the petitioners was given an interview by the Board in compliance with statutory requirements. If the statutory duties of the Board have been performed by it as to each petitioner, then
Notes
. The actions which are addressed here deal only with the granting or denial of parole. There are also hearings for the revocation of parole. These hearings are subject to judicial review pursuant to sections 17-2-201(3)(e) and 18 — 1—410(l)(h), C.R.S. 1973 (1978 Repl.Vol. 8). Both
Folks v. Patterson,
