Document: 478 U.S. 546 106 S.Ct. 3088 92 L.Ed.2d 439 PENNSYLVANIA, et al., Petitionersv.DELAWARE VALLEY CITIZENS' COUNCIL FOR CLEAN AIR al. No. 85-5. Argued March 3, 1986. Decided July 2, Syllabus Section 304(d) of the Clean Air Act provides that "in any action" to enforce court "may award costs litigation (including reasonable attorney and expert witness fees) party, whenever determines such is appropriate." In 1977, respondent Delaware Valley Citizens' Council for (hereafter respondent) United States each filed suit in Federal District Court compel Pennsylvania implement a vehicle emission inspection maintenance program (I/M program) as required by Act. Pursuant consent decree approved 1978, State agreed establish an I/M certain counties. The Department Transportation (PennDOT) seek legislation instituting franchise program, but, if was not approved, promulgate regulations allowing certify private garage facilities perform inspections. Implementation however, did proceed smoothly. factual developments following entry divided into several phases, including Phase II which respondent, after PennDOT had published proposed regulations, continued monitor State's performance under submitted comments on regulations; V Legislature enacted statute prohibiting expenditure state funds successfully opposed motion stay decree, held contempt ordered Secretary refrain from approving projects or grants highways area covered with exceptions, Appeals upheld Court; IX involved work done hearings before Environmental Protection Agency, during unsuccessfully sought agency's approval covering smaller geographic than called decree. Respondent, pursuant § 304(d), attorney's fees performed issuance awarded included time spent counsel Phases IX, holding, over objection, because would have affected respondent's rights it unique interest federal administrative proceedings made its counsel's sufficiently related be compensable. As V, Court, based "superior quality" phase, applied multiplier two adjust lodestar amount (the product hours times rate) fees. affirmed fee awards II, IX. Held: 1. authorizes fact those phases occur context traditional judicial does preclude work. Participation crucial vindication compensation these activities entirely proper well within "zone discretion" afforded Court. Pp. 557-561. 2. lower courts erred increasing performance. 561-568. (a) figure includes most, all, relevant factors constituting "reasonable" fee, unnecessary enhance superior order serve statutory purpose enabling plaintiffs receive legal assistance. 561-566. (b) Here, evidence support petition indicate why provide reflecting quality representation provided V. Respondent presented no what results obtained phase so "outstanding" far below similar cases. Neither nor findings unreasonable. absence findings, there reason increase representation. 566-568. 762 F.2d 272 (CA3 1985), part reversed part. WHITE, J., delivered opinion BURGER, C.J., POWELL, REHNQUIST, STEVENS, O'CONNOR, JJ., joined, Parts I BRENNAN, MARSHALL, BLACKMUN, joined. concurring dissenting part, Part post, p. Jay C. Waldman, Harrisburg, Pa., petitioners. Kathryn A. Oberly, Washington, D.C., James Douglas Crawford, Philadelphia, respondents. Justice WHITE 1 questions this case are first, whether Act, 42 U.S.C. 7401 seq., participating regulatory proceedings; second, may reflect rendered plaintiff's counsel; third, enhancement risk prevailing merits. 2 * (Delaware Valley) Commonwealth See 7410. 10 counties Philadelphia Pittsburgh areas August 1, 1980. system contract owners establishment stations. If legislature failed approve system, then number addition, pay $30,000 incurred prior 3 Entry marked only beginning story, implementation For simplicity's sake, we will summarize nine relating different aspect litigation. Not method used parties followed both courts, but analyzing requests appears useful protracted 4 I. After refused enact system. Under until 1979 publish necessary regulations. When comply, moved contempt; scheduled hearing motion. thus refrained finding contempt, revised schedule 5 II. Commonwealth's were Bulletin. 6 III. late 1979, requested modification delaying May 1981. With Valley's approval, extension 7 IV. By February 1981, still final type equipment garages needed become certified asked further postponement date January 1983. argued Agency recommended analyzer one at manufacturer produced even prototype machinery. 8 extensive negotiations request, reach agreement. asking grant second delay starting response, declare violation numerous modifications On 20, issued denying extension, Valley. App. 25a-28a. June 16, denied reconsideration, 1982, new deadline program. Id., 44a-49a. appealed 20 16 orders, Appeals. Citizens v. Commonwealth, 674 976 (CA3), cert. denied, 459 905, 103 206, 74 165 (1982). 9 Following Court's General Assembly statute, H.B. 456, Governor's veto, prohibited Executive Branch Oct. 5, 99, 1981 Pa. Laws 4. remainder promptly ceased all implementing except publication establishing specifications emissions analysis wishing participate locations. 11 Pa.Bull. 3519 (Oct. 10, 1981). light 456. motion, apply sanctions. civil contempt. 533 F.Supp. 869 (ED Pa.1982). sanction, projects, awarding grants, purposes safety, mass transit, air improvement. 884-885. Once again, appealed, once orders. 678 470 969, 298, 280 VI. filing city groups legislators attempted intervene attempts. 970 458 1125, 14, 73 1400 12 VII. noted above, portion prevented authorizing highway fall categories. seven funding, certifying they either improve safety quality. These certifications found five qualify exemptions terms order, proposals funding. 551 827 13 VIII. 1983, finally passed Governor signed bill law next day. 75 Pa.Cons.Stat. §§ 4706-4707 (1984). Subsequently, negotiated compliance schedule, begin 1984. vacated earlier 14 This which, inter alia, area.1 15 1978. 50a-86a. $209,813 additional $6,675.03 costs. 581 1412, 1433 Pa.1984). To calculate award, first determined: "[T]he reasonably services sought. multiplied hourly rate providing services, latter being court's determination reputation, status activity seeking compensation. sum figures 'lodestar' can adjusted upward downward contingency success, instances burden entitlement claimed adjustment 'lodestar.' " 1419 [citations omitted]. 17 three separate rates making award. Work "most difficult" compensated $100. could been "by working associate level," set $65. And "which little ability," allowed $25. 1422. 18 most postdecree itself.2 objected tangentially proceedings. rejected argument, id., 1423, 1429-1430. 19 determining "lodestar" amounts litigation, considered request "multipliers" "the contingent nature case, obtained." 1431, citing Hensley Eckerhart, 461 424, 434-435, 1933, 1940, 76 40 (1983). Given theories precedent, forced go up against Government obtain initially protect overturned, "[t]he [Delaware Valley's] success [to have] apparent throughout litigation." Supp., 1431. also "superior," "[a]n culminated outstanding result fully justified." Ibid. (citation omitted). Accordingly, IV, VII low likelihood faced stages added high phase. calculation follows:3 Lodestar Multiplier Total $ 4,478.50 — 1,722.50 III 1,745.00 IV 36,711.50 73,423.00 27,372.50 109,490.00 VI 1,820.00 5,370.50 10,741.00 VIII 1,560.00 21 1,453.00 Third Circuit affirmed. analogized counsels' fees, other provisions, jurisprudence regarding attorneys developed connection statutes—particularly [42 U.S.C.] 1988—is applicable cases brought 304(d)." F.2d, 275. 22 commenting reasons stated 276-277. devoted "because adoption plan impaired won Valley] decree." 277. took note Webb Board Ed. Dyer County, 471 234, 105 1923, 85 233 (1985), "optional proceedings" compensable 1988 "both ordinarily advance . litigation" point where party succeeded. 243, S.Ct., 1928. "was securing full enforcement decree," consistent Webb. 277, n. 7. 23 respect use multipliers, concluded "this 'the rare applicant offer[ed] specific show service should expect charged "exceptional." ' 280, quoting Blum Stenson, 465 886, 899, 104 1541, 1549, 79 891 "contingency" multipliers compensate prevailing. stated: "Unlike Blum, specifically identified risks inherent brief district and, although Supreme considers open question properly justify increase, resolved court. Hall Borough Roselle, 747 838 (3d Cir.1984); Lindy [Brothers Builders, Inc. American Radiator & Standard Sanitary Corp.], 540 [102,] [117 1976) (en banc)]." 282. 24 arguments make abused discretion size multipliers. Ibid.4 We granted certiorari, 474 815, 57, 88 46 now affirm reverse 25 84 Stat. 1706, 7604(d), provides, pertinent follows: 26 "The court, issuing action subsection section, 27 argues plain language clearly limits "costs "action[s] brought" submission draft agencies. echoes assertions, contends "actions" contemplated actions, reject limiting constructions scope 304(d). 28 Although true "judicial" sense courtroom involve "traditional" examination witnesses selection jurors trial, attainment adequate relief their client secured initial obtaining single tortious act resulted discrete injury Valley, harm alleged kind remedied mere damages declaratory relief. Instead, force comply obligations develop surrounding major metropolitan areas. end, detailed instructions how dates tasks accomplished. 29 safeguard interests asserted Valley; judge, front agency power modify substance cost 304. kind, measures remedy cannot divorced matters upon prevailed 30 Several that, Civil Rights Attorney's Fees Awards 1976, 1988, post-judgment monitoring entitled fee. See, e.g., Garrity Sununu, 752 727, 738-739 (CA1 1984); Bond Stanton, 630 1231, 1233 (CA7 1980); Miller Carson, 628 346, 348 (CA5 Northcross Memphis City Schools, 611 624, 637 (CA6 1979), 447 911, 100 2999, 64 862 (1980). "any proceeding" Acts, applies distinction sufficient indication Congress intended judicial, administrative, 31 First, legislative history words "action" "proceeding" interchangeably. S.Rep. 91-1196, 37 (1970); Legislative History Amendments 1970 (Committee Print compiled Senate Committee Public Works Library Congress), Ser. 93-18, 136 (1974) (Senate Consideration Report Conference Committee, Dec. 18, 1970) (Leg.Hist.). lack phrase "or face necessarily indicative section. 32 Second, more importantly, behind nearly identical, lends credence idea interpreted manner. Ed., 412 427, 428, 93 2201, 2202, 48 (1973). insure citizens meaningful opportunity vindicate protected Acts. U.S., 429, 1937. 94-1011, (1976). effective statutes depends largely efforts citizens," unless bringing many legitimate claims redressed. H.R.Rep. 94-1558, 33 Similarly, 304(a) sue person violating appropriate. 304 encourage "citizen participation standards established Act," 36 (1970), section "to afford very broad opportunities effort prevent abate pollution." Leg.Hist., 138 (remarks Sen. Eagleton). "Government initiative has restrained," 36, urged "recognize actions performing public party." 38. 34 common promote citizen important policies, find interpret provisions governing same hold, therefore, portions present action.5 35 conclusion our (1985). There, pursuing optional must "useful necessary" secure Application standard left 243-244, 1929. regulation "based desire ensure [its] thereunder. usefulness manifested revisions original regulations." F.Supp., 1423. helped adversely 1430. agree Hensley, supra, 442, 1944 (BRENNAN, part). It "American Rule," litigant collect attorneys' loser." Alyeska Pipeline Service Co. Wilderness Society, 421 240, 247, 95 1612, 1616, 44 141 (1975). There exceptions principle, congressional authorization require other.6 fees; cover wide variety contexts causes action, benchmark "reasonable." 38 Courts struggled formulate measure "reasonableness" particular One method, employed Fifth Johnson Georgia Highway Express, Inc., 488 714 (1974), consideration factors.7 widely cited House when law. (1976); 39 approach trial consider elements propriety appellate substantial objective records review determinations. Johnson, 717. mode analysis, without shortcomings. Its fault gave actual guidance courts. Setting reference series sometimes subjective placed unlimited judges disparate results. reason, another calculating known approach, steps. "lodestar," determined multiplying involved. Bros. Corp., 487 161, 167 1973) (Lindy ). using point, adjustments figure, "(1) invested expenses assurance compensation; (2) evidenced observed, complexity issues recovery Merola Atlantic Richfield Co., 515 165, 168 1975); 102, 117 formulation emphasized expended attorneys, analytical framework follow unguided "factors" Johnson. hand, considerations "riskiness" lawsuit produce inconsistent arbitrary awards. 41 addressed manner determine 424 adopted hybrid shared calculation. rate. basis estimate value lawyer's services." 433, 1939. extent, endorsed follows Circuit's description step approach. Moreover, went state: end inquiry. remain lead downward. ." 434, 1940. expansive view "other considerations" might be, noting [the] 714, 717-719 1974), though usually subsumed rate." 9, refined views restated multiply 888, 1544. emphasized, resulting "rough guess" approximation made. "[w]hen carried his showing reasonable, presumed fee" entitled. 897, 1548 (emphasis added). 43 limited amount. Expanding "are calculation" lodestar, "novelty [and] issues," special skill experience counsel," "quality representation," "results obtained" presumably reflected amount, independent bases basic 898-900, 1548-1550. permissible, 901, 1550, "rare" "exceptional" cases, supported "specific evidence" record 898-901, A strong presumption figure—the rate—represents wholly rationale usual fee-shifting case. designed form economic financial lot replicate exactly earn through arrangement client. aim enable help redress injuries threatened laws. Hence, plaintiffs, possible engage lawyer he paid "reasonable fee," satisfied. 45 accepts agrees represent client, obligates himself best ability commensurate client's interests. Calculating accounts factors, setting rate, adequately compensates attorney, leaves room enhancing post-engagement short, B teaching mind, sustain contention Relying statement justified offers "exceptional," concerning "outstanding result" holding factor 280-282. 47 agree. Because party's normally overall removing danger "double counting." Furthermore, unpersuaded competence lawyers. approximately 620 1427. Of these, 324 hours. elimination large grounds unnecessary, unreasonable, unproductive supportive later remaining represented quality." 49 compensated, $25 per hour, billed $65, 210 $100 hour. 1427-1428. own definition, $65 "that level." one-third difficult," hard see "superior" reinforced expressly "plainly appropriate" given "inexperienced attorne[y]" significant experience." 279, 10. 1422 (District evaluation status, reputation individual who activity"). 50 sum, viewing Clearly, able promise reward extraordinary "outstanding," equally Finally, neither particular, 51 remains adjustment, way put way, loss. accord. resolution issue benefited reargument hence do decide now. restoring argument docket insofar raises chargeable losing defendant comparable enhanced loss, so, extent. 52 judgment therefore risk, otherwise reversed. 53 ordered. 54 whom MARSHALL joins, BRENNAN joins 55 dissent piecemeal adjudication entire just it, Term. rush confuse decided. But insists merits turn them. 56 join opinion. III, purports (1984), available 'exceptional.' 435, today, improperly heightens virtually impossible plaintiff meet. Compare ante, ----. 57 decision accord subsequently laid down Blum. 1431 Pa.1984), 1549. abuse discretion. Evans Jeff D., 475 717, 742-743, 1531, 1545, 89 (1986); 896, 1547. think majority proper, deferential rather substituting ---- - ----, reached do. state-court Burd Dept. Transportation, 66 Pa.Commw. 129, 443 A.2d 1197 (1982), rev'd sub nom. Scanlon 502 577, 467 1108 (1983), group challenge Branch's authority appeal, amicus supporting Commonwealth. officials enter "nullity," 590, A.2d, 1115, remanded enjoined vacate Rule Procedure 60(b). 755 819, 67, amounts, eliminated Some documented detail. 1420-1421. Additional excluded disallowed preparing attending principal advocate. 1421. "excessive," less 1425, 1429. $3,380 itself. Judge Becker dissented affirmance "simply insufficient court," proof 282, 12. four "even assuming appropriate ., recalculated multiplier." (citations express connected recoverable. addition exception, traditionally recognized Rule." orders assessing wilfull order. Alyeska, 258, 1622. empowered acted bad faith, vexatiously, wantonly, oppressive reasons. 258-259, 1622-1623. finally, equitable powers allow commercial recovered "common fund" themselves others securities antitrust 257, 1621. None situations are: (1) labor required; novelty difficulty question; (3) requisite properly; (4) preclusion employment due acceptance case; (5) customary fee; (6) fixed contingent; (7) limitations imposed circumstances; (8) obtained; (9) experience, attorney; (10) "undesirability" (11) length professional relationship client; (12) 717-719. taken Bar Association Code Professional Responsibility, Disciplinary 2-106

Category: 5