** FILE **In this undated file photo released by the California Department of Corrections, inmates sit in crowded conditions at California State Prison, Los Angeles. Two federal judges on Monday, July. 23, 2007, ordered creation of a special panel to examine ways to relieve California’s overcrowded prisons, a move that could lead to the capping of the inmate population or the early release of some prisoners. (AP Photo/California Department of Corrections)