Document: 506 U.S. 194 113 S.Ct. 716 121 L.Ed.2d 656 James ROWLAND, Former Director, California Department of Corrections, et al., Petitioners,v.CALIFORNIA MEN'S COLONY, UNIT II ADVISORY COUNCIL. No. 91-1188. Argued Oct. 6, 1992. Decided Jan. 12, 1993. Syllabus * In a suit filed in the District Court against petitioner state correctional officers, respondent, representative association inmates prison, sought leave to proceed forma pauperis under 28 U.S.C. § 1915(a), which permits litigation without prepayment fees, costs, or security "by person who makes affidavit that he is unable pay." The court denied motion for an inadequate showing indigency. reversing decision, Appeals noted "person" may be authorized 1915(a) "association" Dictionary Act, 1 1, relevant part provides "in determining meaning any Act Congress, unless context indicates otherwise" " 'person' includes "associations" and other artificial entities such as corporations societies. Held: Only natural qualify treatment 1915. Pp. ____. (a) "Context," used means text Congress surrounding word at issue texts related congressional acts, this simply instance word's ordinary meaning. Had intended point broader definition would include things legislative history, it have been use more spacious phrase. contrast narrow "context," "indication" bespeaks something than express contrary definition, addressing situation where no particular but seems not fit. (b) Four contextual features indicate refers only individuals. First, permissive language 1915(d)—that "court request attorney represent employ counsel" (emphasis added)—suggests assumed courts sometimes conduct on his own behalf, and, thus, also has legal capacity petition appointment counsel while unrepresented litigate pro se should denied. These assumptions suggest turn was thinking terms persons, because law corporations, see, e.g., Osborn v. Bank United States, 9 Wheat. 738, 829, 6 L.Ed. 204, entities, Eagle Associates Montreal, 926 F.2d 1305 (CA2 1991), appear federal through licensed counsel. Second, 1915(d) describes required by allegation "poverty," human condition does apply entity. Third, cannot take oaths, they make affidavits 1915(a). It difficult accept entity's behalf from officer agent statutory context, since hard determine affiant's authorization act amorphous creature respondent; term "he" 1915(a)'s requirement must "affiant's belief entitled redress" added) naturally "affiant" seeking status; serve its deterrent function fully when applied imprisoned perjurious statements. Fourth, 1915 gives hint how resolve issues raised applying "inability pay" standard entities. Although "necessities life" criterion apply, alternative can discerned 1915's there obvious analogy, including insolvency, organizational context. Nor guide "pierce veil" entity, necessary avoid abuse. Respondent's argument need formulate comprehensive rules instant case eligible set rejected, recognizing possibility eligibility force delve into policy administration guidance (c) Section manifests single purpose substantially frustrated limiting reach persons. Wilson Omaha Indian Tribe, 442 653, 666, 99 2529, 2537, 61 153; States A & P Trucking Co., 358 121, 79 203, 3 165, distinguished. addition, denying respondent status place unconstitutional burden members' First Amendment rights associate requiring them demonstrate their indigency status, could hardly ignore assets association's members making determination organization. 939 854 (CA9 reversed remanded. SOUTER, J., delivered opinion Court, REHNQUIST, C.J., WHITE, O'CONNOR, SCALIA, JJ., joined. KENNEDY, dissenting opinion. THOMAS, opinion, BLACKMUN, STEVENS, Ching, Sacramento, Cal., argued petitioners. Charles D. Weisselberg, Los Angeles, respondent. Justice SOUTER Court. Title 1915, providing appearances pauperis, authorizes favor meeting criteria with series benefits dispensation obligation prepay bringing, defending, appealing lawsuit. Here, we are asked decide whether so applies listed contained 1. We hold not, 2 Respondent Men's Colony, Unit Advisory Council prison organized behest one petitioners, Warden advise him complaints recommendations inmates, communicate administrative decisions back them. general population elects Council's members. complaint 1989, charged violations Eighth Fourteenth Amendments discontinuing practice free tobacco indigent inmates. claiming Chairman forbade funds own. indigency, though responded reconsideration suggestion willingness consider amended application containing "details each individual's indigency." 4 On appeal, allowed enable very question "whether organization, [the Council], pursuant 1915(a)," 90-55600 (CA9, July 20, 1990). requested lawyer 1915(d).1 5 reversed, noting provided being "association," within upon requisite proof found adequate regulations prohibited maintaining bank account, apparently, owning asset. granted certiorari, 503 ----, 112 1261, 117 490 (1992), conflict between decision holding FDM Manufacturing Co. Scottsdale Ins. 855 213 (CA5 1988) (per curiam) ("person," persons). reverse. A. 7 Both invoked excused prepaying filing controlling access four statute. qualifying "commenc[e], prosecut[e] defen[d] . suit, action proceeding, civil criminal, appeal therein, fees costs therefor." certain cases direct pay person's expenses printing record preparing transcript proceedings before magistrate. 1915(b). if counsel, "[t]he [him]." 1915(d). And, fourth, will below "if trial judge circuit certifies frivolous (but presents substantial question)." 753(f); see ibid. (detailing slightly different habeas proceedings). 8 "Persons" were always entitled, once available "citizens," held, two issue, exclude corporations. See Atlantic S.S. Corp. Kelley, 339, 340 (CCA5 1935) (construing predecessor 1915); Quittner Motion Picture Producers Distributors America, Inc., 70 331, 332 (CCA2 1934) (same). 1959, however, passed one-sentence provision "section title 28, Code, deleting 'citizen' inserting thereof 'person.' Pub.L. 86-320, 73 Stat. 590. For amendment, sole reason cited history extend aliens.2 B portion (as did 1959) 10 "[i]n otherwise — 11 12 "the wor[d] include[s] companies, associations, firms, partnerships, societies, joint stock well individuals." 13 (1958). "Context" here Acts, meaning: parts discourse preceding following 'text' passage word, intimately associated throw light meaning." Webster's New International 576 (2d ed. 1942). While "context" carry secondary "[a]ssociated surroundings, material mental," ibid., doubt sense here. uses give instruction about "determin[e] a[n] Congress," suggesting primary sense. If had meant further afield, example, phrase, like "evidence intent," "context." 14 thus compass, contemplated one. Act's reference direction thought express, specialized Act; construction prefer specific over Where needs help awkward There qualification "unless real job do, excusing forcing square peg round hole. 15 indication becomes insistent enough excuse poor fit course matter judgment, say "indicates" certainly imposes less than, say, "requires" "necessitates." One exception rule superfluous "indicate[d] incongruous invoke common mandate absurd results.3 See, McNary Haitian Refugee Center, 498 499, 111 888, 898, 1005 (1991) ("It presumable legislates knowledge our basic construction"). fine, raise specter short inanity, syllogistic force. III 16 individuals, first counsel." (Emphasis added.) This suggests many "request" Mallard 296, 301-302, 109 1814, 1818, 104 318 (1989) (holding authorize mandatory appointments counsel), leaving proceeding behalf.4 Underlying assumption probably others: enjoys represented professional beforehand, likewise chooses provide none, exercise discretion apparently conferred language. law, leaves highly unlikely made either entity association, just cover better centuries, corporation 204 (1824); Turner American Bar Assn., 407 F.Supp. 451, 476 (ND Tex., 1975) (citing "long line cases" 1824 present affirmance order sub nom. Taylor Montgomery, 539 715 (Table) (CA7 1976), aff'd Pilla 542 56 (CA8 1976). As recognized, rationale equally all Thus, save few aberrant cases,5 lower uniformly held 1654, "parties plead personally counsel," allow associations attorney. 1991) (partnership); Knapp, 871 803, 806 (CA9) (nonprofit formed inmates), cert. denied, 493 868, 110 192, 107 146 (1989); Jones Niagara Frontier Transportation Authority, 722 22 1983) (corporation); Richdel, Inc. Sunspool Corp., 699 1366 (CA Fed.1983) Southwest Express ICC, 670 53, 55 1982) re Victor Publishers, 545 285, 286 (CA1 1976) Strong Delivery Ministry Assn. Board Cook County, 543 32, 34 9.19 Acres Land, 416 1244, 1245 (CA6 1969) Simbraw, 367 373, 374 (CA3 1966) (corporation). Viewing background tradition, litigants themselves tells us "persons" se, is, persons only. 17 second revealing feature description "allegation poverty." Poverty, sense, condition, "[w]anting riches goods; lacking comforts life; needy," 1919 1942), distinctly established long considered extending "citizens" "persons." said 1948, "[w]e think sufficient states poverty 'pay still able provide' himself dependents 'with necessities life.' Adkins E.I. DuPont de Nemours 335 69 85, 89, 93 43. But do description. Whatever treasury, "lac[k] life," sensibly ask itself, let alone dependents, life's "necessities." Artificial insolvent, spoken "poor." So eccentric lightly imputed Congress. 18 third clue much second. therefor," requires "state nature action, defense redress." Because affidavits. Empire Refining 548, 549 (SD Cal.1932) course, conceded corporate name. inanimate thing incapable voicing oath"); Moya Enterprises, Harry Anderson Trucking, 162 Ga.App. 39, 290 S.E.2d 145 (1982); Strand Restaurant Parks Engineering 91 A.2d 711 (D.C.1952); 9A T. Bjur C. Slezak, Fletcher Cyclopedia Law Private Corporations 4629 (Perm 1992) ("A document purporting void, sworn statement") (footnote omitted). 19 Of true often coupled recognition corporation's incapacity even applicable statute doing so. Ben Weiss 271 234 1959). Any accommodation least three difficulties however. be, first, frequent problem establishing authorization. covered lines authority creatures unincorporated readily member styled "president" "chairman" whatnot, business bind affidavit. Next, some weight given added). "He," read naturally, entitlement. affiant wrench grammar referring entity.6 Finally, most significantly, "[o]ne exposes 'to pains perjury bad faith.' constitutes sanction important protection public false fraudulent invocation statute's benefits." Adkins, supra, U.S., 338, S.Ct., 89 (quoting Pothier Rodman, 261 307, 309, 43 374, 375, 67 (1923)). serves protect misuse litigant own, "frivolous malicious" lawsuits funded purse. §§ these sanctions pales Natural perjury, fined. And monetary mean whose lied ability security, teeth lie goes entitlement redress.7 far, then, threat conviction deter impoverished malicious lawsuit, individual. 20 fourth understanding failure resolution true, food traditional Yet find analogy promising candidate might seem commercial-law "insolvency," commercial actually knows number insolvency concepts. 101(32) (1988 ed., Supp.III) (defining Federal Bankruptcy Code); Kreps Commissioner, 351 1965) (discussing type "equity" insolvency); Uniform Commercial Code 1-201(23), U.L.A. 65 (combining types insolvency). event, perfectly retain paid spite temporarily "insolvent" definitions, far clear appropriately analogous individual indigency.8 21 yields neither look beyond owners pay. necessarily abuse, silence subject granting nonetheless devised tests telling owners, none based implicit it. leading subject, dissent majority never reached appears frame shareholders "have adopted form subterfuge payment costs." S.O.U.P., FTC, U.S.App.D.C. 66, 68, 449 1142, 1144 (1971) (Bazelon, dissenting) test emphasizes why organization stems nothing slight treated cheat courts.9 23 argument, accepted below, however file facing difficulty case, circumstances rules. construe sidestepping implications deciding way other, assume band escaped indicators, wholly conclusively establish obvious, inability maintain separate account pauper one-cent balance conclusive. Account Council, thousands source revenue donations donate conclusive difference indirectly intermediate transmits files complaint?10 supposedly "extreme" character "person."11 IV 24 forget broad incongruities strong, stronger, those produced cases, aspect independently indicated reading. 153 (1979), "white person" involved property dispute color, belongs race, adjective "white" describe strongest indicators imaginable covers concede inconsistent conclusion Tribe another important, countervailing indication. larger whole laws revealed "to Indians claims non-Indian squatters lands," id., 665, recognized construing disability placed persons" individuals virtually frustrate purpose. "[I]n protective purposes Acts was] part, little burdens, escape merely incorporating carrying usual." Id., 2537. 25 165 (1958), comparable involving criminal statutes truckers, expressly imposed liability "whoever" knowingly violated ICC transporting dangerous articles. partnerships violate statutes. knowing violations, partnership deemed suit. 124, 206. Nonetheless, both [was] clear: ensure compliance motor carriers, among others, safety requirements laid down Interstate Commerce Commission duty regulate operations interstate carriers hire," 123-124, 206, concluded violating trucking "merely business." 206 26 manifested frustration Denying render nugatory confirm focus turned here.12 V 27 argues associate, broadly. NLRB Catholic Bishop Chicago, 440 490, 500, 1313, 1318, 59 533 (1979) ("[A]n ought construed Constitution possible remains available"). merit argument. name, such, "X, Y, Z, known Rowland," X, Z stating met Nothing, burdensome titled "The Rowland"; prior discussion shows determination. extension lighten practical requirements, limitation puts right manner suggested. VI judgment remanded instructions 29 ordered. 30 dissenting. 31 intent confine me permissible compatible workable To extent attempts uncover significant barriers analysis quite appropriate condemned policymaking. problem, my view, succeed attempt. Thomas illustrates, "person," prefer, implementation 32 With observation, I join Thomas's 33 whom KENNEDY join, parties agree interpretive departure statute, section Code. presented formulated follows: Must presumption codified 1—namely, association—be effect overcome "indicates otherwise"? answer ultimately turns phrase otherwise." Court's rests impermissibly reading basis concluding status. 35 "means Acts." Ante, then scope "context"; "imposes 'requires' 'necessitates' "; "a 'indication' force." share "context."1 "indicates," gloss (and perhaps requires) words judgments based. (It enables case.) susceptible precise judgment." means, sound reasons 36 "[1] commencement, prosecution therefor, [2] [3] contemplates characteristics: He sue sued, affidavit, costs. An clearly things, that, end matter. 37 sued (and, circumstances, not). Fed.Rule Civ.Proc. 17(b).2 agent. Davidson Jones, Sullivan 196 S.W. 571, 572 (Tex.Civ.App.1917) Sime Hunter, 50 Cal.App. 629, 634, 195 P. 935, 937 (1920) McGill's Estate, 52 Nev. 35, 44, 280 321, 323 (1929) Payne Civil Service Employees Misc.2d 1006, 1006-1007, 218 N.Y.S.2d 871, 872 (Sup.) (association), aff'd, A.D.2d 265, 222 725 (1961); Kepl Manzanita 246 Or. 170, 178, 424 P.2d 674, 678 (1967) Land St. Paul Anderson, 401 N.W.2d 709, 712 (N.D.1987) (corporation).3 litigant, lack wherewithal 38 Permitting unwise, inefficient Government's limited resources, indicating chosen law. "context indicates" disabilities,4 same impecunious litigants—a class encompassing "persons."5 39 view "contextual features," ante, ____, "features" select problems arise seek pauperis. believe contains provision, rely what bottom considerations features" discussed combination "person." 40 feature" identified corporation, partnership, appoint says, "was 'persons' only." 41 follow all. Congress' "may" entirely consistent rest "assumption themselves." Ibid. respect appointing When seeks refuse Under obtain elsewhere se. permit fewer options person: lose opportunity court. That heard court, prove bears benefit bearing benefit. after all, case. 42 focuses "poverty" "Poverty," "human condition"; "may 'poor.' am sure.6 "Poverty" "primary sense," using connection departs settled principles English usage. search examples "poor" nonhuman entities—and, indeed, No figure Holmes occasion write issuance dividends renders "no poorer" distribution, Towne Eisner, 245 418, 426, 158, 159, 62 372 (1918), judges (or derivatives) similar fashion, Ordinetz Springfield Family 142 Vt. 466, 468, 457 282, 283 (1983) ("[A] nonprofit wealthy impoverished"); Whitley Klauber, 51 N.Y.2d 555, 579, N.E.2d 569, 581 (1980) (Fuchsberg, ("[T]he richer poorer transaction"). More purposes, itself provisions world's "poorest countries"—a synonym developed so-called "developing" countries. 262p-4f(a)(3), 2151d(d)(4). seen country "poor," notion "imputed Congress." ____.7 44 requirement, which, raises "difficulties." "difficulty" "problem authorization"; trouble "has affidavit." Another requirement's served "fully" "[n]atural fined," prosecuting 'second-best' solution," n. 7. 45 classic considerations—the concerns legislature, Unlike majority, willing adding took fact speak sufficiently. otherwise," second-guessed judgments.8 46 "issues 'inability pay' entities," "when pay," These, too, matters presumed inserted choice.9 47 Petitioners essentially "test indigency" create "procedural problems" "practical effects justice." Brief 17. Today accepts unanimous rejected Terms ago Neitzke Williams, 319, 1827, 338 (1989), fails claim Rule 12(b)(6) Rules Procedure "frivolous" Rejecting affirmative "efficient judicial administration," stated "our role appraising petitioners' policy, interpret statute," proposed "as broadbrush pruning meritless docket," untenable." 326, 1832. 48 confront "difficult administration." Far avoiding determinations, effectively engages policymaking refusing credit override too broad. spoken, words. 49 created (an "person") otherwise"), permitted devour rule. reads ran way—as otherwise, associations." done respectfully dissent. syllabus prepared Reporter Decisions convenience reader. Detroit Lumber 200 337, 287, 499. relationship infra, House Report "extend[ing] privilege now afforded citizens." H.R.Rep. 650, 86th Cong., 1st Sess., (1959). "[i]t proposal consonant ideas policies States." Judicial Conference recommending legislation pointed out distinction citizens aliens existing unconstitutional." "it violation various treaties entered foreign countries guarantees [sic] Ibid.; S.Rep. 947, 2, U.S.Code Admin.News pp. 2663, 2664 reasons). None supports anyone drafting evaluating extension. debate bill deportation alien criminals, obviously 105 Cong.Rec. 13714 (1959) (remarks Rep. Gross Rogers); debates additional information. ibid.; 18909 Sen. Eastland). throughout predecessors. Green Bock Laundry Machine 504, 510-511, 1981, 1984-1985, 557 Trans Alaska Pipeline Rate Cases, 436 631, 643, 98 2053, 2061, 591 (1978); Commissioner Brown, 380 563, 85 1162, 1166, 75 (1965); Helvering Hammel, 311 368, 371-372, 303 (1941); Katz, 354, 357, 513, 514, 986 (1926); Caminetti 242 470, 196, (1917); Kirby, Wall. 482, 486-487, 278 (1869). reflects reality community. Turner, Prisoners Sue: Study Prisoner 1983 Suits Courts, 92 Harv.L.Rev. 610, 617 (study prisoners five districts "overwhelming majority" "almost all" ). Two two, aware, attorneys: Reeves, 431 1187 1970) (partner partnership), Holliday's Tax Services, 417 182 (EDNY (sole shareholder closely-held corporation), Hauptman, 614 1287 1979). precedent, nor followed. 1305, 1309-1310 (criticizing Reeves ); ____ 22, (distinguishing narrowing Services occasion, party minor incompetent, cooperate appointed timely guardian ad litem By accepting bend believes relief. deny peculiar disabled nature, meet requirements. ignoring prosecuted perjury. However, "second-best" solution; normally presume misbehavior adequately deterred solely threatening punish agents. plausible motive aid organizations bankruptcy proceedings. almost years proceedings, Kras, 409 434, 440, 635, 626 (1973), foreclose speculation motive. allowing importance "public interest" question. River Valley, Dubuque 63 F.R.D. 123, 125 Iowa 1974) (noting assisting underprivileged"); Harlem Consumers Cooperative, Associated Grocers Harlem, 71 93, 96 (SDNY (finding "[t]here interest quality goal formed" "there private treble damages antitrust laws"). indifference pursued, malicious. evidence inmate directly personal coordinate donations. asserts drawing inference silence, "depart[ ] 'context' beginning [our] opinion." Post, [__ 9]. dimensionless draw conclusion. Rather, face "unable security. affirm problems, confident workable, uncontroversial solutions drawn (that whenever says name) inspire confidence. interpretation 1]. text, preclude reasoning contrary, "[s]tatutes inert exercises literary composition[, but] instruments government," Shirey, 359 255, 260, 746, 749, 789 Frankfurter, J.), inextricably intertwined purpose, enactment embedded pedantically expressed words." 261, 749. note, apportioning disputes person." Instead relying purports defends ground "purpose" understandable, exceedingly defend textual grounds. surrounds wrongly decided decided. They correct. strong misinterpreted Wilson. not—if correct (because "indicat[e] otherwise")—the associatio n inescapable. remotely "white," observes, "one imaginable," race." 17(b), determined organized, State district located. lacks forum brought enforcement right. Before acknowledging pauses itself. suppose metaphysical significance, fail relevant, takes noteworthy proposition recognize behalf. ("On speak"); 711, (D.C.1952).) theoretical otherwise—between Utah Farm Production Credit Watts, 737 154, 157 (Utah 1987) ("Where officer, generally itself"); Soda Fountain Stolzenbach, N.J.L. 721, 734, 68 1078, 1083 (1908) ("[W]here .; contemplation, agent"). 6001(5) Ed., Supp.II) ("The 'developmental disability' severe, chronic person"); 135b(a) ("[P]reference shall times blind physically handicapped persons"). dealing marriage, 101(31) 'spouse' opposite sex wife husband"); 103(a) ("any widow widower veteran"), military, 244 wearing uniform armed forces States"); 101(2) 'veteran' active naval, air service, discharged released therefrom conditions dishonorable"), drug addiction, 201(k) 'addict' habitually habit-forming narcotics drugs"), drunk driving, 3118(a) ("such driving influence alcohol"), kidnaping, 1201(a) ("[w]hoever unlawfully seizes, confines, kidnaps, abducts, carries away holds ransom person"), sexual assault, 2241(a) ("[w]hoever, special maritime territorial jurisdiction causes engage act"), language, 1827(b)(1) ("persons primarily language"), jury duty, 1865(a) chief unqualified for, exempt, service"), "missing persons," 534(a)(3) Attorney General acquire, collect, classify, preserve information assist location missing confirmation entry parent, guardian, next kin "homeless 12705(b)(2)(C) ("helping homeless transition permanent housing independent living"). Nor, At oral petitioners "helps" him, "usually Tr. Oral Arg. 11. response, "really d[id] bankrupt poverty," "pin much" "standard eligibility" "distinctly terms," (1948), quotes case: "We 89. cast terms" quoted taken 334, 86-87. majority's suggestion, priori "some weight," 1915(a)' "an entity," according 'he' entity." so, premise Since Black's (4th 1951), agent, unreasonable understand made. Such reasonable 3, supra. discussing silence" "congressional indicator," again opinion: Rather accords significance absence Cf. reliance apparent "ability demonstrates kind

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