Opinion ID: 2361634
Heading Depth: 1
Heading Rank: 3

Heading: Was DES required to be represented by an attorney?

Text: Initially, Haggard maintains that the LIRC erred in affirming the DES appeals tribunal's decision because DES was improperly represented by a non-lawyer managerial employee. She argues that this DES employee violated the prohibition against the unauthorized practice of law when he asked questions of witnesses and made a closing statement on DES's behalf. She contends that DES was required to be represented by a lawyer because it is not the type of entity to which Rule 5.29(c) provides an exception for the unauthorized practice of law. She asserts that the tribunal's decision is void and should be set aside because DES was improperly represented.
This Court regulates the practice of law and, although the General Assembly cannot interfere with this Court's power to determine what is the unauthorized practice of law, the legislature has provided penalties for acts determined to be the unauthorized practice of law. Reed v. Labor and Indus. Relations Comm'n, 789 S.W.2d 19, 20 (Mo. banc 1990); see section 484.010. [3] This Court has said: One is engaged in the practice of law when he, for a valuable consideration appears in a representative capacity as an advocate in proceedings pending or prospective, before any court, commissioner, referee, board, body, committee, or commission constituted by law or authorized to settle controversies, and there, in such representative capacity, performs any act or acts for the purpose of obtaining or defending the rights of their clients under the law. Reed, 789 S.W.2d at 21 (internal citations omitted). The unauthorized practice of law is prohibited so that the public is protected for provision of services deemed to require special fitness and training by those not having needed legal qualifications. Bray v. Brooks, 41 S.W.3d 7, 13 (Mo.App.2001). One cannot consent to the unauthorized practice of law, such that there can be no waiver of protections of section 484.010. See id.
This Court promulgated Rule 5.29 to address the unauthorized practice of law, but carved out an exception for representation in employment security proceedings. Rule 5.29(c) provides: In any employment security proceeding before the state division of employment security, a corporation, partnership or other business entity authorized by law may be represented by an officer of the entity or a person in the full time employment of the entity in a managerial capacity who shall be afforded the opportunity to participate in the proceeding. Rule 5.29(c). [4] At issue in Haggard's case is whether DES is included under Rule 5.29(c)'s exception permitting non-lawyer representation in employment security proceedings. DES contends that it may be considered a business entity under Rule 5.29(c), such that it need not be represented by legal counsel in its employment security cases. It asserts that it has been effectively represented by non-lawyer managerial employees for many years. The express language of Rule 5.29(c) provides an exception for only a corporation, partnership or other business entity authorized by law. DES is not a business entity authorized by lawit is a state agency. As such, DES is not entitled to be represented by a non-lawyer employee pursuant to Rule 5.29(c) at any of its proceedings. [5]
The parties disagree what effect DES's lack of attorney representation has on Haggard's case. Haggard asserts that the LIRC was without jurisdiction and its decision was void under Reed because DES was not represented by counsel before the appeals tribunal. DES maintains that the LIRC's jurisdiction was not defeated because DES was represented by a non-lawyer. In Reed , this Court held that a corporation was required to be represented by an attorney in an unemployment compensation benefits case before the LIRC. 789 S.W.2d at 23. This Court stated that matters pending at the time the Reed opinion was issued would be unaffected, but new filings that were filed by non-attorneys would be considered untimely filed and null and void. Id. Reed opined that the LIRC should have rejected any applications for review by non-lawyers. Id. at 23-24. This Court's decision in Reed was followed by the promulgation of Rule 5.29(c), such that corporations may now be represented by non-lawyers in employment security matters. This case is distinguishable from Reed because the application for review in this case was filed by Haggard's counsel, not by the party who was represented by a non-lawyer. Even were that not the case, however, this Court is not persuaded by Haggard's assertions that the LIRC's decision is null and void pursuant to Reed . This Court rejects any interpretation of Reed that suggests DES's failure to comply with Rule 5.29(c) is a jurisdictional issue. To the extent that Reed suggests that a judgment is null and void solely because a party to the decision was represented by a non-lawyer, it is no longer to be followed. Contrary to Haggard's assertions, nothing mandates dismissal of this action because DES was improperly represented by a non-lawyer unless the error was raised and preserved. During her hearing, Haggard made no objection to DES's representation by its non-lawyer managerial employee. Haggard's counsel only raised concerns that the DES employee would serve as DES's representative at the hearing as well as its chief witness. Haggard did not raise the issue of the employee's non-lawyer status until she sought judicial review of the LIRC's decision. Her failure to object at the time of the hearing waived this issue. [6] She is not entitled to relief in her employment security case because DES was not properly represented. Haggard also cites to Bray, 41 S.W.3d at 13, for the proposition that the unauthorized practice of law is not subject to waiver, consent, or lack of objection by the victim. The objection in this case, however, is not from the victim. DES claims it is unaffected by its failure to have a lawyer at Haggard's hearing. Consequently, in this case there are not concerns about undermining the purposes behind the prohibitions against the unauthorized practice of law. In any event, since representation by one not authorized to practice law is not jurisdictional and does not render a decision void, if it is not raised and preserved, it is waived.