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My point was that URMs who are admitted to medical school despite lesser academic qualifications will most likely be "relegated" to FM, IM, peds, ob/gyn. These are the fields in which the need for URM practitioners is greatest. As a result, you accomplish the same end by default.
This, of course, presupposes that candidates that are admitted with lower qualifications are also less capable, which isn't necessarily the case. I don't have any information about URM test score performance in medical school, but since certain schools have first choice match percentages > 90%, even with self-selection, I would anticipate that a significant percentage of URM medical students aren't going into primary care.
Where did you find numbers on physician participation in free clinics?
Every medical school that I've visited has at least one free clinic which is staffed by faculty volunteers. Some have far more than that. Of course this evidence is anecdotal but I would guess that this practice is not limited to the 10% of medical schools I've visited.
Statistics show that minority patients prefer minority physicians:
http://content.healthaffairs.org/cgi/reprint/19/4/76.pdf
and that URM physicians are more likely to practice in areas predominantly populated by racial minorities:
http://books.nap.edu/openbook.php?record_id=10186&page=57
That's fine but the current strategy makes assumptions that aren't a good way to dictate policy, namely, that URM candidates are going to serve underserved populations after graduating. Certainly they might be more likely to, but that doesn't mean that they will, or even that they should. Just because you happen to be a URM doesn't mean that you should be helping underserved populations.
Giving preference in admissions to URM candidates in return for a commitment to serve underserved areas is a much better way to achieve this goal because it rewards those that WANT to serve underserved populations.