Document: 446 U.S. 719 100 S.Ct. 1967 64 L.Ed.2d 641 SUPREME COURT OF VIRGINIA et al., Appellants,v.CONSUMERS UNION the UNITED STATES, INC., al. No. 79-198. Argued Feb. 19, 1980. Decided June 2, Syllabus Appellant Virginia Supreme Court, which claims inherent authority to regulate and discipline attorneys, also has statutory do so. Pursuant these powers, court promulgated Code of Professional Responsibility (Code) organized State Bar act as an administrative agency report investigate violations Code. The statute reserves state courts sole power adjudicate alleged Code, Court other record have independent on their own initiate proceedings against attorneys. When one appellees sought prepare a legal services directory, attorneys who were canvassed refused supply requested information for fear violating Code's prohibition attorney advertising (DR 2-102(A)(6)). Appellees then brought action in Federal District under 42 U.S.C. § 1983 against, inter alios, its chief justice (also appellant) both his individual official capacities, seeking declaration that defendants had violated appellees' First Fourteenth Amendment rights gather, publish, receive factual concerning involved, permanent injunction enforcement operation DR 2-102(A)(6). Ultimately, after declined amend 2-102(A)(6) despite Bar's recommendation so intervening decision Bates v. Arizona, 433 350, 97 2691, 53 810, holding ban would violate advertise fees charged certain routine services, declared unconstitutional face permanently enjoined from enforcing it. further held Civil Rights Attorney's Fees Awards Act 1976, provides any enforce 1983, alia, district court, discretion, may award prevailing party, than United States, reasonable attorney's fee part costs, authorized proper circumstances capacity, here such was not unjust because denied petition failed it conform Bates, supra. Held : 1. In promulgating acts legislative capacity members are immune suit. Pp. 731-734. 2. But properly liable capacities. Since gives suit declaratory injunctive relief, just officers agencies are. 734-737. 3. abused discretion awarding premised or omissions appellants enjoy absolute immunity. There is nothing history suggest Congress intended permit be 737-739. 470 F.Supp. 1055, vacated remanded. Marshall Coleman, Atty. Gen., Richmond, Va., appellants. Ellen Broadman, Washington, D.C., appellees. Mr. Justice WHITE delivered opinion Court. 1 This case raises questions whether (Virginia Court) officially challenging Court's disciplinary rules governing conduct awarded 1988, capacity. 2 * It will prove helpful at outset describe role regulating disciplining firmly view Button Day, 204 Va. 547, 552-555, 132 S.E.2d 292, 295-298 (1963). Section 54-48 (1978) authorizes "promulgate regulations . [p]rescribing code ethics professional attorneys-at-law ."1 3 (State Code), provisions substantially identical American Association's Responsibility. no standards follow attorneys; apparent insofar substantive content concerned, vested virtually entire regulatory over profession. 4 prescribe "procedure disciplining, suspending, disbarring attorneys-at-law"; 54-49 promulgate "organizing association known Bar, composed this State, purpose investigating reporting violation[s] ."2 Acting authority, Bar) been committee various committees. 54-51 Code,3 hence limited investigation filing appropriate complaints courts. Under 54-74, procedure involves complaint record, issuance rule show cause attorney, prosecution by commonwealth hearing judge issuing together with two judges designated Court.4 Appeal lies 5 Virginia, including thus play adjudicative similar function adopted Legislature they legislature. 6 however, additional power. As we said, asserts Also, 54-74 expressly if observes unprofessional conduct, itself, without being filed third issue offending attorney. Although once issues, cases prosecuted beyond adjudicating others normal punish contempt. II 7 arose when, 1974, appellees, Consumers Union Inc. (Consumers Union), directory designed assist consumers making informed decisions utilization services. canvass all practicing law Arlington County, asking each education, activities, areas specialization, office location, billing practices, business affiliations, client relations. However, encountered difficulty lawyers strict advertising. Rule prohibited included directories listing kind publish.5 8 On February 27, 1975, Citizens Consumer Council pursuant Association, and, president chairman Legal Ethics Committee. With respect identified only Plaintiffs 9 A three-judge convened 28 2281 (1970 ed.). Defendants moved indefinite continuance trial grounds ABA preparing amendments relax prohibitions contained Over plaintiff-appellees' opposition, granted until March 25, 1976. 10 17, hours, initial consultation fees, credit arrangements. obtained consider amending amendments. body recommended adopt 2-102, April 20, ground "not serve best interests public profession." 11 proceeded May decided December Assn., 427 506 (ED Va.1976). concluded abstention inappropriate light defendants' failure continuances based speculation relaxed. Id., 513-516. unconstitutionally restricted right plaintiff-appellees gather nonfee fees. save fee. 523. 12 Plaintiff-appellees appealed refusal enjoin cross-appeal, arguing should upheld entirety. While appeals pending, 810 (1977), judgment below remanded consideration. 917, 2993, 1104 (1977). 13 remand, agreed could constitutionally enforced prohibit providing publish directory. proposed entered barring them information. 8, 1979, it.6 14 1988.7 objected grounds, judicial They did object paying costs. liability 1059-1061 Va.1979). 15 went conclude special made capacities but change unsuccessfully persuade what deemed constitutional standards. requirements Bigelow 421 809, 95 2222, 44 600 (1975), inBates Hence, "[i]t hardly order pay plaintiffs continued [the Code] requirements." F.Supp., 1063. parties directed attempt reach agreement sum, failing determine fee.8 16 23, rehearing, first time, immunity exempt having relief them. argued event abuse enter justice. 17 Following denial appealed, presenting following questions: 18 Is doctrine immunity? 19 1976 construed attorneys' acts? 20 Does preclude correct challenged subject litigation? 21 4. facts before it, Court? 22 dismiss affirm, motion urging claim timely raised therefore waived. We noted probable jurisdiction, 444 914, 226, 62 168 (1979). III 23 Title amended (Act), 90 Stat. 2641, pertinent part: 24 "In proceeding provision sections 1981, 1982, 1985, 1986 title allow costs." 25 favor Appellants urge error. Their primary contention excluded hand assert neither nor immunized distinguished damages award; insist stand itself shares direct prospective judgments officials are.9 26 particular propounded clear propounding adjudication rulemaking. referred function, conclusive upon us deciding entitled 1983. Judge Warriner, dissenting prior Hirschkop 1137, 1156 Va.1976), rev'd sub nom. Snead, 594 F.2d 356 (CA4 1979), acted Warriner said: 27 "Disciplinary general application character. litigant those practice Virginia. arise out controversy must adjudicated, instead need protection citizens. evident that, enacting rules, constituted legislature." 1064. agree analysis inquire performed 29 already Speech Debate Clause immunizes Congressmen suits either damages. Eastland States Servicemen's Fund, 491, 502-503, 1813, 1820-1821, 324 (1975). insure independently outside interference. Ibid. To preserve independence, "legislators engaged 'in sphere legitimate activity,' Tenney Brandhove [341 367, 376, 71 783, 788, L.Ed. 1019 (1951)], protected consequences litigation's results burden defending themselves." Dombrowski Eastland, 387 82, 85, 87 1425, 1427, 577 (1967). 30 recognized legislators common-law acts, origin rationale accorded Clause, Brandhove, 341 (1951). intend abrogate legislators. involved equally applicable actions relief.10 "does create civil liability" undertaken "in field where traditionally act," id., 379, S.Ct., 789, distinguish between relief. Indeed, elsewhere "a private action, damages, creates distraction forces [legislators] divert energy, attention tasks defend litigation." supra, 503, 1821. separation-of-powers justifies broader privilege criminal actions, Gillock, 445 360, 1185, 63 454 (1980), generally equated Constitution. U.S., 505, 506, 1822, 1823; 84-85, 1427-1428; Johnson, 383 169, 180, 86 749, 755, 681 (1966); 377-379, 788-789.11 Thus, there little doubt enacted legislature, committees, refusing wake our indicating some respects invalid, successfully dismissal immunity.12 31 submit whatever true legislators, same merely exercising delegated make manner many executive wield wide variety circumstances. All officials, urged, absolutely much conceded, exercise event, indicated, State's Thus when acting B 32 If basis of, amend, foreclose pointed out, performs more hears lower cases, traditional task; addition, own. 33 Adhering Bradley Fisher, Wall. 335, 646 (1872), Pierson Ray, 386 1213, 288 (1967); Stump Sparkman, 435 349, 98 1099, 55 331 (1978). never insulates acts. Courts Appeals appear divided question bars relief;13 addressed question.14 34 decide bar believe For reason were.15 35 Prosecutors liability, Imbler Pachtman, 424 409, 96 984, 47 128 (1976), natural targets since threatening law. Gerstein Pugh, 420 103, 854, 43 54 myriad Ex parte Young, 209 123, 441, 52 714 (1908), federal barred Eleventh Amendment. prosecutors personnel cannot putative await institution state-court claims. way developed, does shield case.16 IV 36 Because prevailed Act, discretion," fee," recovered sued Hutto Finney, 437 678, 694, 2565, 2576, 57 522 Applying standard Newman Piggie Park Enterprises, 390 400, 402, 88 964, 966, 1263 (1968), indicated ordinarily " 'unless render unjust.' 1061.17 Accordingly, authorities whom nevertheless considered require thought required proposal. No excused held, very 37 unable reasons relied role, roles. Yet enjoyed 38 waive otherwise officers, express indication House Committee Report indicates awards awards, H.R.Rep. 94-1558, p. themselves insulated even functions, runs counter court's allowing guided considerations centering nonexercise powers. 39 say absent addition disclosed case. convinced unfair help Fee run-of-the-mill occurrences, though, occasion, legislature reacted different manner, lawsuit injunction. Nor disagree role. hold rulemaking satisfied vacate remand consistent opinion. 40 ordered. 41 POWELL took consideration "§ 54-48. Rules defining prescribing students, codes procedure.—The may, time prescribe, adopt, regulations: "(a) Defining "(a1) Prescribing third-year students. "(b) patent through corporations, associations partnerships, ethics. "(c) attorneys-at-law." 54-49. Organization government Bar.—The organizing violation article necessary, requiring persons thereof good standing." 54-51. Restrictions regulations. Notwithstanding foregoing article, shall attorneys-at-law, inconsistent statute; regulation method eliminate jurisdiction deal provided law; demands tried competent manner." 54-74. Procedure suspension revocation license.—(1) Issuance rule.—If observes, complaint, verified affidavit, person malpractice unlawful dishonest unworthy corrupt duly licensed shall, deems why license revoked suspended. "(2) Judges case.—At issued certify fact place thereon, designate judges, rule, circuit cities class hear conjunction compensation ten dollars per day necessary expenses while actually performance duties, paid treasury, appropriation charges. "(3) Duty Commonwealth's attorney.—It duty Commonwealth county city pending prosecute "(4) Action court.—Upon hearing, defendant found guilty revoked, suspended prescribe; provided, lieu suspension, reprimand "(5) Appeal.—The defendant, right, appeal transcript up certified defendant's appeal." Effective July 1, participate heard three pending. At Disciplinary 2-102(A) "A lawyer firm use cards, announcement signs, letterheads, telephone listings, lists, notices devices, except used dignified form: (6) reputable list giving brief biographical informative data. published data include following: name, name names associates; addresses numbers; fields concentrates; statement specializes .; date birth; admission courts; schools attended, dates graduation, degrees, scholastic distinctions; quasi-public offices; military service; posts honor; authorships; teaching positions; memberships, offices, assignments, section memberships associations; offices fraternities societies; technical foreign language ability; references, consent, clients regularly represented." final "1. publication described plaintiff's amended, valid protected; "2. face; "3. defendants, successors office, agents concert therewith 2-102(A)(6)." into October five months decision. apply passed. 694-695, n. dissented supreme absence showing bad faith. text, rested earlier time. merits again urged alone entry arguments, like appellants, centered issues seems Second Circuit recent Star Distributors, Ltd. Marino, 613 (1980). That Understanding similarity reasoned protect afforded Congressmen. Fifth Eighth Circuits dismissed separately addressing Safety Harbor Birchfield, 529 1251 (CA5 1976); Smith Klecker, 554 848 (CA8 1977); Green DeCamp, 612 368 1980). Fourth Circuit, takes contrary rejects notion Jordan Hutcheson, 323 597 (1963); Eslinger Thomas, 476 225, 230 (1973). Both opinions rendered Ninth regional Jacobson Tahoe Regional Planning Agency, 566 1353 Contrary suggestion, Lake Country Estates, 440 391, 99 1171, 59 401 (1979), approval officers. Estates reached entirely clear, seemed equitable Agency (TRPA). specify founded immunity, occasion TRPA aspect Appeals' simply affirmed Of course, might succeed obtaining dismissals lack controversy. Second, Fourth, Seventh extend Heimbach Village Lyons, 344, 347 (CA2 1979); Timmerman Brown, 528 811, 814 1975); Fowler Alexander, 478 696 1973); Harris Harvey, 605 330, (CA7 Hansen Ahlgrimm, 520 768, 769 Schaefer, 441 127, 130 1971). Three Appeals, Eighth, Ninth, Columbia seem agree. Kelsey Fitzgerald, 574 443, 1978); Williams Williams, 532 120, 121-122 Shipp Todd, 568 133, 134 (CA9 Briggs Goodwin, 186 U.S.App.D.C. 179, 184, 4, 569 10, 15, rare, restrain control affect future Such recurringly often arise. address issue, among Mitchum Foster, 407 92 2151, 705 (1972), served pierce 2283 enjoining proceedings. say, quoting 339, 346, 676 (1880), effect, executive, legislative, judicial. proponents insisted harass injure citizens, perhaps powerless stop deprivations league bent abrogating federally rights. 242, 2162. Boyle Landry, 77, 91 758, (1971), O'Shea Littleton, 414 488, 94 669, 674 (1974), injunctions judges. case, reversed Court; O'Shea, assuming controversy, insufficient presented. suggest, prosecuting declaring statutes. prosecutor Florida procedures Younger Harris, 37, 746, 669 addressed. indicate, mere official; sufficiently concrete dispute well enforcer itself. See Person Association New York, 534, 536-537 1977). entity "person" suable capacity; remains proper. appellate 1253 issue. Cf. Rosado Wyman, 397 397, 404-405, 1207, 1213-1214, 442 (1970). derived Senate stated: "It 1964 Act. party statutes covered Act], successful, 'should recover unless Inc., (1968)." S.Rep. 94-1011, U.S.Code Cong. & Admin.News pp. 5908, 5912.

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