Document: 470 U.S. 274 105 S.Ct. 1272 84 L.Ed.2d 205 SUPREME COURT OF NEW HAMPSHIRE, Appellantv.Kathryn A. PIPER No. 83-1466. Argued Oct. 31, 1984. Decided March 4, 1985. Syllabus Appellee, a resident of Vermont, was allowed to take, and passed, the New Hampshire bar examination. But pursuant Rule 42 Supreme Court, which limits admission state residents, she not permitted be sworn in. After Court denied appellee's request that an exception made in her case, filed action Federal District alleging violates Privileges Immunities Clause Art. IV, § 2, United States Constitution. The agreed granted motion for summary judgment. Appeals affirmed. Held: 2. Pp. 279-288. (a) Derived, like Commerce Clause, from fourth Articles Confederation, intended create national economic union. "[O]ne privileges guarantees citizens State A is doing business B on terms substantial equality with State." Toomer v. Witsell, 334 385, 396, 68 1156, 1162, 92 L.Ed. 1460. Moreover, although lawyer "an officer court," he does hold position can entrusted only "full-fledged member political community" thus "officer" any sense. In re Griffiths, 413 717, 93 2851, 37 910. Therefore, nonresident's interest practicing law "privilege" protected by Clause. 279-283. (b) may discriminate against nonresidents where its reasons are "substantial" difference treatment bears close or relationship those reasons. None offered appellant refusal admit bar—nonresidents would less likely keep abreast local rules procedures, behave ethically, available court proceedings, do pro bono other volunteer work State—meets test "substantiality," means chosen bear necessary State's objectives. 284-287. 723 F.2d 110 (CA1 1983), Martin L. Gross, Concord, N.H., appellant. Jon Meyer, appellee. Justice POWELL delivered opinion Court. 1 Rules limit residents. We here consider whether this restriction Constitution, 2 * 3 Kathryn Piper lives Lower Waterford, about 400 yards border. 1979, applied take February 1980 submitted application statement intent become resident. Following investigation, Board Bar Examiners found good moral character met requirements admission. She informed have establish home address prior being 4 On May 7, 1980, requested Clerk dispensation residency requirement. Although had "possible job" Littleton, Hampshire, stated becoming inconvenient. Her house Vermont secured mortgage favorable rate, husband recently parents. According Piper, these "problems peculiar [her] situation . warrant[ed] made." Letter Appellee Ralph H. Wood, Esq., N.H. App. 13. 5 13, been denied. then formally petitioned permission bar. asserted well qualified "situation [was] sufficiently unique granting [would] result setting undesired precedent." Nov. 8, Hon. William Grimes, Chief 15. Piper's formal December 1980. 6 22, 1982, Hampshire. named as defendants five Justices, Clerk. alleged excludes bar,1 Constitution.2 7 17, 539 F.Supp. 1064. first opportunity practice "fundamental" right within meaning Baldwin Montana Fish & Game Comm'n, 436 371, 98 1852, 56 354 (1978). It absence "substantial reason," F.Supp., at 1072, "closely tailored" achieve goals, id., 1073. therefore concluded Hampshire's requirement violated Clause.3 8 An evenly divided First Circuit, sitting en banc, affirmed judgment favor Piper. (1983).4 prevailing judges held finding protects individual's " 'pursue livelihood than his own,' 112, (quoting supra, 386, S.Ct., 1861), two-part set forth Hicklin Orbeck, 437 518, 2482, 57 397 They there no reason" different challenged discrimination bore relationship" objectives.5 See 525-527, 2487-2488. 9 dissenting Court's did violate While recognizing "serve commendable purpose insulating practitioners out-of-state competition," F.2d, 119, they several justify nonresidents. If were abolished, "large firms distant states" might exert significant influence over Ibid. These nonresident lawyers unfamiliar customs perform State. further believed inconsistent our decision Leis Flynt, 439 438, 99 698, 58 717 (1979) (per curiam ). 10 timely notice appeal, we noted probable jurisdiction. 466 949, 104 2149, 80 535 (1984). now affirm below. II 11 Article Constitution provides "Citizens each shall entitled all Citizens States."6 This "fuse into one Nation collection independent, sovereign States." 395, 1460 (1948). Recognizing purpose, it "[o]nly respect 'privileges' 'immunities' bearing vitality single entity" must accord residents equal treatment. 383, 1860. Baldwin, example, charge more charges same elk-hunting license. Because elk hunting "recreation" rather "means livelihood," license promotion interstate harmony. U.S., 388, 1863. 12 Confederation,7 union.8 surprising repeatedly has "one 1162. Ward Maryland, Wall. 418, 20 449 (1871), invalidated statute under required pay $300 per year trade goods manufactured while traders paid fee varying $12 $150. Similarly, Toomer, fishermen could $2,500 shrimp boat owned when charged $25 boat. Finally, (1978), violative containing hiring preference employment related development oil gas resources.9 13 There nothing Ward, suggesting should viewed 2.10 Like occupations considered earlier cases, important economy. As Goldfarb Virginia Bar, 421 773, 788, 95 2004, 2014, 44 572, "activities play part commercial intercourse." 14 lawyer's role economy reason "fundamental right." believe legal profession noncommercial duty reinforce view falls ambit Clause.11 Out-of-state may—and often represent persons who raise unpopular federal claims. some representation counsel vindication rights. 450, 704 (STEVENS, J., dissenting). champions causes surely "maintenance well-being Union," 1863, fisherman pipeline worker Hicklin. 15 Appellant asserts inapplicable because activities "bound up exercise judicial power administration justice."12 Its contention based premise "officer "exercises daily basis." concludes if cannot exclude bar, ability function body will threatened.13 16 Lawyers enjoy "broad monopoly things lawfully do." 731, 2859, 910 (1973). believe, however, involves "exercise power" justifying alien ground 'officer who' 'exercise actual governmental power.' Id., 728, 2858 Brief O.T.1972, 71-1336, p. 5). ordinary word. 2858. He 'makes own decisions, follows best judgment, collects fees runs business.' 729, Cammer States, 350 399, 405, 76 456, 459, 100 474 (1956)). powers "involve matters policy acts such responsibility entrust them citizens." 724, 2856.14 17 Because, sense,15 conclude Clause.16 III 18 conclusion deprives privilege end inquiry. "[l]ike many constitutional provisions, immunities clause absolute." 1162; see Building Construction Trades Council Mayor Camden, 465 208, 222, 1020, 1029, 79 249 preclude (i) treatment; (ii) practiced objective. deciding objective, availability restrictive means.17 offers justifications members become, remain, familiar procedures; ethically; (iii) proceedings; (iv) State.18 find none meets 19 evidence support appellant's claim procedures. Nor assume lawyer—any resident—would disserve clients failing familiarize himself rules. practical matter, think unless has, anticipates, considerable courts, unlikely examination annual dues $125.19 also second justification without merit, conduct dishonest manner. professional reputation provide incentive maintain high ethical standards lawyers. concerned community practices, regardless live. Furthermore, disciplined unethical conduct. authority discipline reside. N.H.Sup.Ct. 37.20 21 merit assertion times unavailable proceedings. course litigation, pretrial hearings various short notice. At need confer immediately counsel. Even most conscientious residing unable appear unscheduled hearing proceeding.21 Nevertheless, type problem justifies exclusion One percentage willing reside places reasonably convenient cases notice, protect interests through means. trial court, rule discretion, require resides great distance retain attorney meetings hearings. 22 final advanced disinclined their share work. Perhaps true limited extent, particularly location. reasonable endeavor services. sort participation, course, serve practices member, indigents perhaps participate legal-aid work.22 23 summary, neither advances applicants bar,23 nor demonstrates proffered IV 24 community." "substantial," relation No showing case. Accordingly, Appeals. 25 so ordered. 26 WHITE, concurring result. 27 passed intends Indeed, insofar record reveals, office commute latter 28 I doubt invalid appellee Except fact indistinguishable every able competence, stay sudden hearings, satisfy nonresidency presents special threat shared living Hence, forbids Bar. 29 foregoing enough dispose not, itself reach out decide facial validity postpone another day questions constitutionally condition membership upon maintaining 30 concur invalidating 31 REHNQUIST, dissenting. 32 Today holds live just form frequently across lines interchangeable actors; long apply States' attempts seek ply interstate. many, clearly disregards is—almost definition—fundamentally deviation free, large number areas, independently laws governance citizens, fundamental precept that, submit, stature cohesive What issue people ways intimately deal self-governance 33 states "was 'fuse States.' Ante, 279 1161, (1948)). To end, told, construed substantially citizens. effectuate Clause's "create union." 280. And "the economy." 281. concluding applies lawyers, goes reject limiting state. either labels insubstantial, advances, assurance inveterate second-guesser, "less means" attack perceived problem. 34 Framers undoubtedly wished ensure newly created Union revert component parts jealousies insular tendencies, seems clear concerns. system federalism deliberately independent operation legislators judges. assumption beginning same; lawmakers endorse philosophies respond differing constituents, factors inherently character. Any student Nation's history aware represented Philadelphia; despite tremendous improvements transportation communication served homogeneous country differences among hardly disappeared. 35 but small step facts recognition very strong seeing come constituency better understand respond. contest point; recognizes running afoul ante, 282, n. 36 Unlike next step, recognize constituency. begin two principles forgotten: first, reviewing statutes "States leeway analyzing evils prescribing appropriate cures," 223, 1030, (1984) (citing 1162), second, regulation generally "left exclusively ." 442, 700, My belief differs trades businesses purposes notion superior profession. treated differently occupation readily translate lines.1 Certain aspects distinctly intentionally nonnational; regard country's antithesis norms embodied Put simply, creating responsive interests, trained analyze equipped write adjudicate arising them. maximizing increase quality pool drawn.2 obvious way accomplish goals. Since given time certain outof-state necessarily takes in-state lawyer, otherwise functions promoting.3 enlarging lawmakers. similarly determine formulation adversary representation, conversant concerns inform policies. likewise bring useful expertise benefit governments—such trusteeships, directorships corporations charitable organizations, school board positions, merely interested citizen town meeting. Thus, suggests bars "represent work," 287, ignores host performed members. interest—as opposing harmony 2—itself genesis language structure Constitution.4 38 answer arguments simply functions, equally well, devise alternatives accomplishing Conclusory second-guessing difficult legislative resorts today, attractive courts engage review. whatever reality how much expect gain having State, point hope services mentioned above, end. noted, provided With services, undertake 39 addition, analysis both ill-advised potentially unmanageable. Initially note, Members before, Central Hudson Gas Elec. Corp. Public Service Comm'n York, 447 557, 599-600, 2343, 2368-2369, 65 341 (1980) (REHNQUIST, dissenting) Illinois Elections Bd. Socialist Workers Party, 440 173, 188-189, 983, 992, 59 230 (BLACKMUN, concurring)); cf. Florida Royer, 460 491, 528-529, 103 1319, 1340-1341, 75 229 (1983) dissenting), analysis, carried too far, ultimately lead striking down almost restrictive" it. approach review, far usual standard tends place matters. Surely consequence desired. 40 event, less-restrictive-means borrowed Amendment jurisprudence, context 529-530, 2489, indicate employed "close relation" objectives, speak "tailored" goal. place: extent goal apparent, follow path another, legitimate mind. challenge overcome exists pursuing path. event game played here—independently scrutinizing Here primarily argues really allow leave after joining remain argument Circuit: "[T]he pull stakes continue bureaucracy track comings goings worth trouble 110, 122, (opinion Campbell, C.J., Breyer, J.). 41 yet pose situations brushes aside, speculating "a Hampshire," alleviate requiring 286-287. Assuming suggestion constitute unlawful test, nevertheless why get structuring attorney-client relationships retention emergency explained client, allocation between cause problems cure. confined admits even litigation judge want notice; uncertainties managing docket rarely date begin; "stand by"—or terminology is—for days time, expected ready matter hours, witnesses, case front suddenly settles. added present scheduling difficulties delays fostered 1,000 miles systems delay litigation—a subject profusely explored literature past years. See, e.g., Attacking Litigation Costs Delay, Final Report Action Commission Reduce Delay (American Association 1984); S. Wasby, T. Marvell, Aikman, Volume Appellate Courts: Problems Responses (1979). taking steps minimize 43 reasons" IV. explicitly admitted require, applicant file there. N.H.Sup.Ct.Rule 42(3). affidavit said Rule, bona fide oath administered." Affidavit John W. King, 32. parties agree 42. excluded totally hac vice court. alternative, appearing associated argument. 33(1); N.H.Super.Ct.Rule 19. grant status purely discretionary. claims 42: deprived property due process law, violation Fourteenth Amendment; protection placed undue burden commerce, I, claims, resolution makes unnecessary us panel, dissenting, reversed (1983). thought three Courts requirements. Sargus West Law Examiners, W.Va., 294 S.E.2d (1982); Noll Alaska Assn., 649 P.2d 241 (Alaska 1982); Gordon Committee Character Fitness, 48 N.Y.2d 266, 422 N.Y.S.2d 641, N.E.2d 1309 reached conclusion. Jadd, 391 Mass. 227, 461 760 Under "citizen" "resident" used interchangeably. Austin 420 656, 662, 1191, 1195, 530 (1975). Amendment, "[a]ll born naturalized wherein reside." Confederation provided: "The secure perpetuate mutual friendship intercourse Union, free inhabitants States; ingress regress therein duties, impositions restrictions thereof. Charles Pinckney, drafted "formed exactly 4th article Confederation." M. Farrand, Records Convention 1787, 112 (1911). recognized "mutually reinforcing 531, 2490, (1984), pursuit common calling Clause." 219, 1028. "[m]any, most, expounding dealt basic essential activity." Corfield Coryell, F.Cas. 546 (No. 3,230) (CCED Pa.1825), Bushrod Washington, Circuit Justice, rights" included: pass through, state, trade, agriculture, pursuits, otherwise; writ habeas corpus; institute actions kind state; property, real personal. 552. Thus initial interpretation "professional pursuits," protected. "natural theory underlay discarded ago. Hague CIO, 307 496, 511, 954, 962, 83 1423 (1939) Roberts, J.); Paul Virginia, 168, 357 (1869). Washington's list still 387, 1862, never interests. Doe Bolton, 410 179, 739, 201 (1973) (Georgia permitting abortions Clause). REHNQUIST similar dissent. clients' "play policy." Post, 293. "intimately policies." argument, raised foreclosed reasoning There, licensed person core make him "formulator government "would cease separate communit[y] text plain w[as] contemplated." Simson, Discrimination Against Nonresidents 128 U.Pa.L.Rev. 379, 387 restrict vote, Dunn Blumstein, 405 330, 343, 344, 995, 1004, (1972), elective office. aliens. Such usually enhanced level scrutiny. Graham Richardson, 403 365, 91 1848, 534 (1971). levels scrutiny Equal Protection affect relevance Griffiths. "strict scrutiny" court" power." Instead, classification. 727, 2857. traditionally leaders affairs—political cultural, religious, civic. Their training qualifies participation. sense officials virtue Our consistent Leis, denied, hearing, vice. left "prescribe qualifications conduct" courts. 700. holding interfere regulate bars. seeks join unlike applicant, personal full force disciplinary 37. 23, infra. (1948), eliminate danger excessive trawling means: restricting equipment fisheries, graduating according size boats, charging differential compensate enforcement imposed. 398-399, 1163. dissent relevant "had mind." Presumably, "illegitimate" sake. context. goals unnecessarily discriminating former president American suggested possible rule: "Many erected fences done competition." Smith, Time National Practice Act, 64 A.B.A.J. 557 "substantial." designed prevent protectionism. markedly overinclusive, alternative mandatory attendance periodic seminars practice. already new admittees complete "practical skills course" 42(7). "simple residency" underinclusive permits move away active lived manner disciplines Judicial Massachusetts 5,000 "obtaining jurisdiction purposes." Mass., 234, N.E.2d, 765. committee Oregon voiced sentiment: "[W]hy Multnomah County control Vancouver, Lakeview, Oregon, attorneys discipline?" Admissions Study Committee, (Jan. 19, 1979). situations, minimal lawyer. Conference telephone calls increasingly expeditious dispatching Hanson, Olson, Shuart, Thornton, Telephone Hearings Civil Trial Do Attorneys Think?, 66 Judicature 408, 408-409 El Paso, Texas, adopted plan, handle divorce year. Pro Bono Publico: Legal-Aid Cuts Spur Increase Free Work Poor, Wall Street Journal, Mar. 30, 1984, pp. 1, 12. requirement: "interest drawn." 292. Only 424 bicameral legislature Statistics compiled House Representatives Senate. see, Mich. Const., 6, prohibit nonlawyers serving N.H.Rev.Stat.Ann. 490:1 et seq., (1983 Supp.1983), intermediate appellate 491:1 seq. Supp.1983). dissent's addressed mean suggest occupations, two-step outlined little me prong implicated, thrust my discrimination. wonder logical extensions loose concerning means," 284-287, contemplates permissible note certainly forward reasons, valid involve particular business. indicated last Term rebut statistics indicating presently Legislature. 287-288, 23. am convinced usefulness statistics, neglects 124 nonlawyers, 89 Justices nonlawyers. border Boston easily devote clients. occurred amount wind Boston, along (1973), controlling here. Griffiths "officers actually wield powers. 727-729, 2857-2858. Whatever merits conclusion, different; powers, harms identify allowing posited addition established alienage classifications equated review

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