Document: 389 U.S. 217 88 S.Ct. 353 19 L.Ed.2d 426 UNITED MINE WORKERS OF AMERICA, DISTRICT 12, Petitioner,v.ILLINOIS STATE BAR ASSOCIATION et al. No. 33. Argued Oct. 17, 1967. Decided Dec. 5, Harrison Combs, Washington, D.C., for petitioner. Bernard H. Bertrand, East St. Louis, Ill., respondent. Mr. Justice BLACK delivered the opinion of Court. 1 The Illinois State Bar Association and others filed this complaint to enjoin United Mine Workers America, District from engaging in certain practices alleged constitute unauthorized practice law. essence was that Union had employed a licensed attorney on salary basis represent any its members who wished his services prosecute workmen's compensation claims before Industrial Commission. trial court found facts were not dispute employment an by association purpose did permanently enjoined '(e)mploying attorneys or retainer with respect Workmen's Compensation all other which they may have under statutes laws Illinois.'1 Supreme Court rejected Workers' contention decree abridged their freedom speech, petition, assembly First Fourteenth Amendments affirmed. We granted certiorari, 386 941, 87 973, 17 872 (1967), consider whether holding conflicts our decisions Broth. Railroad Trainmen v. Virginia ex rel. Bar, 377 1, 84 1113, 12 89 (1964), NAACP Button, 371 415, 83 328, 9 405 (1963). 2 As case, we deal here program has been successful operation decades. Shortly after enactment Statute2 1911, realized some form mutual protection necessary enable them enjoy many benefits statute promised theory. At Union's 1913 convention secretary-treasurer reported abuses already developed: 'the interests being juggled even when not, required pay forty fifty per cent amounts recovered damage suits, fees.' In response situation instructed incoming executive board establish 'legal department' is now attacked 3 undisputed concerning legal department are these. employs one dependents connection personal injury death Act. terms attorney's employment, as outlined letter acting president present attorney, include following specific provision: 'You will receive no further instructions directions interference District, nor officer, your obligations relations be only several persons you represent.' record shows departure agreement. provides injured forms entitled 'Report Attorney Accidents' advises fill out these send department. There language specifically requests file Commission application adjustment claim behalf member, but received, presumes it does such request. employ counsel if desire, fact frequently suggests can do so. event turn member's over new lawyer immediately. 4 applications prepared secretaries offices, then forwarded Secretaries Commission.3 After sent Commission, prepares case file, usually without discussing calim member involved. determines what he believes worth, presents views respondent coal company during prehearing negotiations, attempts reach settlement. If agreement between opposing reached, notify decides, light advice, accept offer. settlement hearing held unless occasion discuss proposal normally first time client come into contact each other. It understood membership, however, available conferences days at particular locations. full amount award paid directly member. receives part it, entire annual Union. 5 petitioner's right, protected Amendments, join together assist another assertion rights collectively hiring handle claims. That decision supra, plans workers advised consult attorneys, extend protect involving explicit union. recognized also plan recommended actually association, viewed Button concerned chiefly litigation characterized political expression. think so narrowly limited. hold assembly, petition guaranteed Fourteenth4 gives petitioner right hire rights. 6 start premise assemble peaceably redress grievances among most precious liberties safeguarded Bill Rights. These rights, moreover, intimately connected both origin purpose, Amendment free speech press. 'All these, though identical, inseparable.' Thomas Collins, 323 516, 530, 65 315, 323, L.Ed. 430 (1945). See De Jonge Oregon, 299 353, 364, 57 255, 259, 81 278 (1937). would, hollow promise left government destroy erode guarantees indirect restraints long law passed prohibits press, such. therefore repeatedly affect exercise vital cannot sustained merely because enacted dealing evil within State's legislative competence, provide helpful means evil. Schneider State, 308 147, 60 146, 155 (1939); Cantwell Connecticut, 310 296, 900, 1213 (1940). 7 foregoing principles invoked dealt cases members. States broad power regulate is, course, beyond question. Trainmen, 6, 1116. But equally apparent rules framed public preserve administration justice actual significantly impair value associational freedoms. Thus prospective litigants seek assistance instances itself. dangers baseless conflicting individual far too speculative justify remedy would seriously crippled efforts vindicate court. Likewise there theoretical possibility union's diverge litigant members, divergence ever occurred, cut off referral business could induce sacrifice client. Again ruled very distant harm complete prohibition Trainmen's aid assuring justly compensated injuries. 8 controlling here. question bound up matters acute social moment, extent political. 'Great secular causes, small ones, guarded. insured, solely religious ones. And press confined field human interest.' 531, 323. course where was, here, designed compensate victims industrial accidents, made dissent, see U.S., 10, 1118 (Clark, J.), announced applicable purposes. 8, 1117. Nor bar distinguished persuasive way.5 Here, sure, Union, beneficiary recommendations. situations economic welfare dependent considerable good union, temptation client's best stronger situation, virtually imperceptible degree. cases, absolutely indication theoretically imaginable union arose context lawsuit; indeed itself described as, most, 'conceivabl(e).' 10 suggested achieve goals referring lawyers reimbursing common fund fees paid. Although committee American Association, informal opinion, approved arrangement,6 view more relevant point. stressed recommends 'any 'financial kind" illegal.7 argued, therefore, alternative arrangement proper Illinois. 11 issue thus substantially impairs needed interest high standards ethics. years operation, light, aware, single instance abuse, clients, disadvantage profession, resulting mere financial represents Since operative portion stand; forbids must fall. judgment vacated remanded proceedings inconsistent opinion. ordered. 13 Judgment remanded. 14 STEWART concurs result upon sole ground disposition controlled Brotherhood 89. 15 HARLAN, dissenting. 16 This cuts deeply traditional state concerns, maintenance profession. I find myself unable subscribe it. Canons Professional Ethics forbid lay agency.1 Court, canons common-law supervision Bar,2 prohibited employing salaried actions believe regulation profession infringes assured Amendment. I. 18 stated greater length my dissenting 448, 452—455, 345, 347, 349, 405, expression against includes liberty individuals speak unite make effective. latter encompasses obtain judicial redress. However, than speech; conduct. reasonably conduct related pivotal point how competing should resolved instance. My brethren apparently accord. majority begins noting activity type sheltered Constitution. majority's inquiry stop there; goes examine concerns concludes 'is ethics.' ante, 357.3 agree, 'balancing' approach. See, e.g., 347—349 (dissenting opinion); Konigsberg California 366 36, 49—51, 997, 1005—1007, 105; Talley California, 362 60, 66, 80 536, 539, 559 (concurring opinion). Indeed, conceive sound method attacking problem. For 'absolute' approach adopted, insisted 'First Amendment' cases,4 given weight, reason why, example, group might layman agency felt low fee deficiencies knowledge. Cf. Hackin Arizona, 143, 325, 347 (Douglas, J., dissenting). II. 20 agree balancing majority, scales tip differently. weighed badly, according much force little those stake. indicated previously, stems members' constitutionally courts or, agency. By issue, sought easier Act.5 evidently help three ways: (1) knowledge access capable handling claims; (2) guaranteeing charged excessive fees; (3) protecting crippling, reasonable, making costs payable through dues. legitimate laudable goals. achievement. They methods 21 repeated statement prior properly known names deems types claims.6 Such notification serve assure competent lawyers. 22 regards charging unreasonable fees, fully efficient safeguard seem Act An amendment 1915, shortly initial passage,7 provided 23 'shall determine reasonableness fix person service performed Act, payment rendered securing Act.'8 24 1927, words 'including physicians, surgeons hospitals' added phrase 'or person.'9 Thus, appear reasonable grounds fearing subjected fees. 25 final promoted collective objective presumably imposing assessments establishment reimbursed expenses.10 improper law, since obligation run attorney. 26 regulatory potential abuse inherent plan. operates follows. basis11 Members told wish. selected Executive Board specify represented Injured furnished Upon receipt form, assumes request contained form. instances, neither seen talked stage, consultation specified times. filing presentation resorting application, conferring Ordinarily meet 27 thinks worth settle employer's negotiations. result. occurs, merits retains himself 28 contains features which, danger lowering quality representation He processes mass basis. Evidently, negotiates about same time. conclude that, removed ready client, insulated employer, independent results achieved, faced heavy caseload,12 possibly activities time,13 tempted place undue emphasis quick case. Conceivably, desire process rapidly influence check regarding ambiguities omissions miss circumstances face-to-face brought light. led, consider, compromise reasons unrelated own intrinsic merits, need 'get on' negotiations concessions relating cases. cause forgo appeals awarded seemed unusually low.14 III. 29 solid support Court's conclusion regulated bar. buttressed numerous decisions, elsewhere, groups benefit members.15 30 dismisses pointing proven 225. caused harm.16 instead, settled absence dominant enforce prophylactic measures calculated ward foreseeable abuses, yet produced undesirable consequences exempt regulation. Hoopeston Canning Co. Cullen, 318 313, 321—322, 63 602, 607, 777; Daniel Family Sec. Life Ins. Co., 336 220, 222—225, 69 550, 551—553, 93 632. 31 irrelevant proscribe sitting judges legislators. us forbidden unduly impinges finding arbitrary one, limitation slight, permissible alternatives still open them, denial constitutional occasioned Illinois' IV. 32 decision, again manifests peculiar insensitivity seeking appropriate balance federal authority recent Amendment, puts supervising various States. From standpoint, done today unnecessary, undesirable, wrong. demonstrated discriminatory regulation, legislatures govern Bars, Court.17 Nothing different accords longstanding unquestioned tradition elementary demands system. 33 affirm. addition just quoted, court's enjoins from: '1. Giving advice '2. Rendering opinions '3. Representing '4. (Quoted above) '5. Practicing either indirectly.' conceded provisions injunction, claimed otherwise engaged Our limited aspect activities. Ill.Rev.Stat. c. 48, § 138.1 seq. witness matter, testified dictated him secretaries, direction. R. 18, 40. 58 (Union's answers interrogatories). freedoms encroachment infringement New York Times Sullivan, 376 254, 276—277, 710, 723—724, 686 cited. involved statutory created Congress, while state-created based violation Supremacy Clause rather extensive discussion local concern. Standing Committee Ethics, Informal Opinion 469 (December 26, 1961). ABA problem presented pays strongly implied situation: 'there nothing unethical describe participation reimbursement expenses only.' 35 Ill.2d 112, 118, 219 N.E.2d 503, 506 (1966), quoting re R.R. 391, 150 163 (1958). 35, 47, Association. identical corresponding Even statutes, themselves empowered promulgate professional drawn closely prohibitions Ethics. Maclub Inc., 295 Mass. 45, 272, 105 A.L.R. 1360, therein generally Drinker, Legal 26—30, 35—48. weighing used struck whenever different, asserting stem Constitution statute, sources respectively 429—431, 441—444, 335—337, 342—343 3—6, 1115—1116. Furthermore, differs involves union-salaried lawyer. Similarly, indigent. representing indigent clients expressly below. 121, 508. Lathrop Donohue, 367 820, 865, 871—874, 1826, 1849, 1852—1854, 1191 56, 60—71, 1009, 1011—1017, Ill.2d, 118—119, N.E.2d, 506-507. earlier referred 163. significant instituted 1913, 219. Ill.Laws, p. 408. 511. 1961) (union reimburse expenses). action $12,400 annum. handled 400 year. senator private representation. Of 351 sources, appealed period 1936 1967, miner affiliated 12. No 1942. Respondents' Brief, 17—18. People Courtney Real Estate Tax-payers' 354 Ill. 102, 187 N.E. 823; cited; Richmond Assn. Credit Men, Inc. Richmond, 167 Va. 327, 189 S.E. 153. interpreted forbidding arrangements kind Unauthorized Practice Law, Informative A 1950, 36 A.B.A.J. 677. possible receiving lower had. average $1,160 predecessor secured $1,350, rates recovery predecessor's tenure. Record, 53—54, 58—60; Brief Respondents 18. n. 14, supra. cf. dissenting), prevailing customs modified keep pace needs developments, Federal Poverty Program. well true, considerations furnish justification today's heavyhanded bodies throughout country consideration. 1964 Reports 381—383 (establishment Special Ethical Standards); 1966 589—594 (Report Availability Services); 39 Calif.State Journal 639—742 Group Services). Moreover, complexity makes especially suitable experimentation level. And, else failing, Congress undoubtedly implement programs establishing overriding governing therewith.

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