Legal Document

490 U.S. 296 109 S.Ct. 1814 104 L.Ed.2d 318 John E. MALLARD, Petitionerv.UNITED STATES DISTRICT COURT FOR the SOUTHERN OF IOWA et al. No. 87-1490. Argued Feb. 28, 1989. Decided May 1, Syllabus Petitioner Mallard, an attorney recently admitted to practice before District Court, was selected represent indigent inmates in their suit that court against prison officials under 42 U.S.C. § 1983. After a Magistrate denied his motion withdraw, he appealed contending forcing him complex action requiring trial skills did not possess would compel violate ethical obligation take on only those cases could handle competently and exceed court's authority 28 1915(d), which provides federal courts may "request" any person claiming forma pauperis status. The upheld Magistrate's decision, ruling, inter alia, 1915(d) empowers make compulsory appointments civil actions. Court of Appeals without opinion Mallard's petition for writ mandamus allow withdrawal. Held: 1. Section does authorize require unwilling litigant case. section's operative term is "request," bespeaks intent mandatory counsel. fact 1915(c)—which adopted at same time as 1915(d)—imposes duties officers witnesses demonstrates Congress knew how service when it deemed appropriate. conclusion evinces desire permit attorneys decline representation litigants if view personal, professional, or concerns bid them do so bolstered by Congress, passed 1892, aware of, but chose replicate, language various state statutes providing "appointment" "assignment" counsel proceedings; no reported pre-1892 American English decision held lawyer be sanctioned declining compensation; other pre- post-1892 court-ordered specify "assign" "appoint" attorneys, rather than merely they serve. Contrary respondents' assertion, construing ask lawyers render section nullity theory statutory authorization unnecessary simply ask, since meaningfully read legitimize equest therefore confront with important decision. Pp. 300-308. 2. Mallard discharged burden proving entitled mandamus, erred application. In resting its solely plainly acted beyond "jurisdiction." addition, had alternative remedy available him. Moreover, principal reasons this Court's reluctance condone use writ—the undesirability making district judge inefficiency piecemeal appellate litigation—are present here. 308-310. 3. Respondent's contention inherent serve will considered lower invoke such reaching decisions. P. 310. Reversed remanded. BRENNAN, J., delivered REHNQUIST, C.J., WHITE, SCALIA, KENNEDY, JJ., joined. filed concurring opinion, post, p. ----. STEVENS, dissenting MARSHALL, BLACKMUN, O'CONNOR, joined, Fairfield, Iowa, petitioner. Gordon Allen, respondents. Justice BRENNAN Court. 1 We are called upon decide whether authorizes hold not. 2 * provides: "The request [person status] unable employ dismiss case allegation poverty untrue, satisfied frivolous malicious." Nelson v. Redfield Lithograph Printing, 728 F.2d 1003, 1005 (1984), Eighth Circuit ordered "the chief each seek cooperation bar associations committees judge's obtain sufficient list practicing throughout supply competent who pro bono situations," proceedings conducted 1915. Southern Iowa heeded Appeals' command. Under system force February 1986, once has determined party qualifies Clerk forwards copy file Volunteer Lawyers Project (VLP), joint venture Legal Services Corporation State Bar Association. VLP keeps roster prepared all good standing. deleting names have volunteered referrals state-court cases, selects from nonalphabetically assignments.1 chosen plan apply reimbursement out-of-pocket costs. They also keep fee award provided statute, guaranteed even minimal compensation own services. assists assigned litigate areas law unfamiliar written materials, holding periodic seminars, facilitating consultations experienced attorneys. 3 January 1987, entered first appearance following month. June 1987 asked two current one former inmate sued 1983, alleging guards administrators false disciplinary reports them, mistreated physically, endangered lives exposing informants. reviewing file, withdraw motion, petitioner stated familiarity legal issues presented case, lacked experience deposing cross-examining witnesses, willingly volunteer services area possessed some expertise, bankruptcy securities law. App. 4-8. opposed petitioner's competent, duty whatever necessary try permitting exception rule assignment create dangerous precedent. A motion. 4 then Although reiterated unfamiliarity 1983 actions, contended should permitted because inexperience interpreting statute law, litigator training temperament. Forcing depositions discovery, cross-examination skills, asserted, 1915(d). Id., 19-29. accompanying affidavit, added: "I like role confronting persons litigation setting, accusing misdeeds, questioning veracity. Because my become involved these activities, I feel confident effective litigating instant case." 38. 5 Unmoved, Pet. Cert. 2a-4a. Based quality brief support pronounced notwithstanding very slight acquaintance litigation. November sought opinion. 1a. granted certiorari resolve conflict among Courts over assignments cases.2 488 815, 51, 102 30 (1988). now reverse. II 6 Interpretation must begin statute's language. E.g., United States Ron Pair Enterprises, Inc., 489 235, 241, 1026, 1030, 103 290 (1989); Landreth Timber Co. Landreth, 471 681, 685, 105 2297, 2301, 85 692 (1985). 1915(d)'s "request": repres nt" litigant. import seems plain. To somebody something express it, though generally disciplined declines. Of course, frequently refuses another person's requests might win favor. soldier regularly fails fulfill superior's rise ranks rapidly someone more compliant. But request, word ordinarily used, penalized formally doing so, disobeyed orders court-martialed. everyday speech, closest synonyms verb "ask," "petition," "entreat." See, e.g., Webster's New International Dictionary 1929 (3d ed. 1981); Black's Law 1172 (5th 1979). verbs "require" "demand" usually interchangeable it. 7 There little reason think intend bear most common meaning used double "command" noun, particularly employed art connection wills, trusts, probate proceedings, ordinary natural signification precatory enacted provision appearing 1892. 1027 (1st 1891); B. Abbott, Terms Phrases Used Jurisprudence 415 (1879); Judicial Statutory Definitions Words 6120-6122 (West 1905). 8 Perhaps clearest proof license contrast between subsection 1915(c). Whereas proceeding pauperis, 1915(c) 1915(d)—treats differently: shall issue process, perform cases. Witnesses attend remedies cases." (Emphasis added.) evidently Its impoverished litigants, command, officers, counsel.3 9 An examination governing became bolsters conclusion. By late 19th century, least 12 assign litigants. undoubtedly statutes, otherwise unilluminating Report House Judiciary Committee states bill containing designed enable afford avail themselves courts, "[m]any humane enlightened States" similar laws allowed do. H.R.Rep. N . 1079, 52d Cong., 1st Sess., (1892). None however, compensation. All instead appoint Ark.Stat. 1053 (1884) (assign); Ill.Rev.Stat., ch. 26, (1845) Ind.Rev.Stat., Vol. 2, pt. Art. 15 (1852) Ky.Stat. 884 (1915) (Act 27, 1892) Mo.Rev.Stat. 2918 (1889) N.J.Gen.Stat., Practice 369, 2598 (1896) (enacted 1799) 1876 N.Y.Laws, 448, 3, 460 1869 N.C.Pub.Laws, 96, Tenn.Code 3980 (1858) (appoint assign); Tex.Rev.Stat., 1125 (1879) 1846) (appoint); Va.Code Ann. 3538 (1904) (appeared 1849 Code) W.Va.Code, 138, (1891) (assign). Cf. N.Mex.Comp.Laws 2289 (judge Territory Territory's sickness inability); Nev.Comp.Laws 3126 (1900) (court appear behalf absent defendant certain contract actions). extent denotes imposition undertake enforce, Congress' serve, full awareness stringent practices, evince so. 10 empowering authorized sanction refused unclear, few were made pursuant many went unrecorded, seem rarely balked courts' assignments. It nevertheless significant exists above prior 1892 compensation, see Shapiro, Enigma Lawyer's Duty Serve, 55 N.Y.U.L.Rev. 735, 749-762 (1980) (hereinafter Shapiro), suggests replicate coercive weaker place words "appoint." precedents 15th apparently relied mind, equally murky. Few either criminal cases; although sergeants-at-law expected demand court, public office much fuller sense advocates appeared Again, decisions involve sanctions See id., 740-749. Professor Shapiro concludes: "To justify coerced, uncompensated basis firm tradition England into story there." 753.4 11 Comparing strengthens our appointments. sole antedating capital "to defence learned law" whom tried, thereof, immediately, counsel, exceeding two, desire. ." Act April 30, 1790, 9, 29, Stat. 118, presently codified amended 18 3005 (emphasis added). Thus, already part lexicon; depart usage fashioning cases5 involving taken display mandated serious defendants facing death penalty.6 This inference finds additional actions subsequent enactment. Every still after provide just 1790 statute. 3006A (1982 Supp. V) (appoint; defendant); 3503(c) (assign; deposition preserve testimony); 4109 verify offender's consent transfer States); 25 1912(b) Indian child custody proceedings); 1971(f) voting rights case); 2000a-3(a) complainant seeking injunction laws); 2000e-5(f)(1) Title VII complainant); 3413(1) commitment narcotics addict); Fed.Rule Crim.Proc. 44 cf. 827 (courts-martial "detail" defense counsel). promulgate books been extended cover well 25, 1910, Pub.L. 317, 435, 36 866,7 understood signify enactments believe plain intended meaning. 13 Brief Respondent 7-9, nullity. Respondents contend someone; superfluous hat, thus confer power courts. Respondents' major premise, too strong. provisions codify existing powers. example, "frivolous malicious" action, there doubt absence provision. Nor premises plays useful scheme informs assistance appropriate requests, hence ignored disregarded mistaken belief improper, cut short can go fishing. poor decision; need interpret order give purpose provision.8 III 14 followed denial application mandamus. traditional aid jurisdiction both confine inferior lawful exercise prescribed so." Roche Evaporated Milk Assn., 319 21, 63 938, 941, 87 L.Ed. 1185 (1943). Will Calvert Fire Ins. Co., 437 655, 661, 98 2552, 2556, 57 504 (1978); Kerr Northern California, 426 394, 402, 96 2119, 2123, 48 725 (1976); States, 389 90, 95, 88 269, 273, 19 305 (1967). alleged lawfully appointing grant appointment; wrongfully declined use. "we limited unduly narrow technical understanding what constitutes matter 'jurisdiction,' " Kerr, supra, U.S., S.Ct., 2124; 273 we required petitioners demonstrate "clear abuse discretion," Bankers Life & Casualty Holland, 346 379, 383, 74 145, 148, 106 (1953), conduct amounting "usurpation [the judicial] power," De Beers Consolidated Mines, Ltd. 325 212, 217, 65 1130, 1133, 89 1566 (1945), issuance writ. ensure remains extraordinary remedy, show lack adequate means relief seek, see, 403, Allied Chemical Corp. Daiflon, 449 33, 35, 101 188, 190, 66 193 (per cur am), carry showing [their] right 'clear indisputable,' Life, 384, quoting Duell, 172 576, 582, 286, 287, 43 559 (1899). met demanding standard. 1915(d)—the ground properly us—the "jurisdiction" interpreted term, for, today, And litigation, 402-403, 2123-2124; Corp., 190—are Judge never nor attempt sever element merits rest. IV 16 emphasize today mean question, let alone denigrate, lawyers' assist suggest lightly claim. On contrary, growing funding kept pace, publico manifest. question respondents amici urge us affirm judgment authority, below, offer denying leave day. Accordingly, reversed, remanded further consistent 17 So ordered. concurring. Our speaks interpretation requirements professional responsibility lawyer. Lawyers, profession, obligations calling State. virtue special status court. Accepting obligations. here otherwise. precisely demands ours noble profession. 20 join 21 O'CONNOR join, dissenting. 22 relationship members defined alone. practitioner amalgam tradition, respect judiciary, commands set forth canons ethics, rules legislative enactments. involves parsing concern sufficiency lawyer's rea ons appointment1 imposed are, situations representation. He she interest, engaged trial, accepted fair share burdens fall qualifications particular assignment. As comes us, way else time. For me, answer quite 23 weeks ago Virgin Islands exclude nonresidents membership. Bar- nard Thorstenn, 546, 1294, (1989). expressly recognized legitimacy bar's interest entire membership 557, 1299. That recognition reflects firmly rooted define terms conditions bar, Frazier Heebe, 482 641, 107 2607, 557 (1987); Hvass, 355 570, 78 501, 496 (1958),3 "those powers protect functioning processes." Young ex rel. Vuitton Fils S.A., 481 787, 821, 2124, 2145, 95 740 (1987) (SCALIA, judgment). Sparks Parker, 368 So.2d 528 (Ala.) (rejecting constitutional challenges compelled defendants), appeal dism'd, 444 803, 100 22, 62 (1979). ancient traditions long several States.4 Field, sitting California Supreme declared century ago: 24 "[I]t general accused crime, destitute means, appointment inconsistent others; trust possible future ability parties. Counsel liberty reject, circumstances character, cause defenseless, law." Rowe Yuba County, Cal. 61, (1860). Or, Sutherland recently: "Attorneys bound appointment." Powell Alabama, 287 45, 73, 53 55, 65, 77 158 (1932). 26 embodies exhaust progressive exercised. dozen ante, 304, common-law States.5 "open courts" pace" States." 1-2 suing diverse parties liberal defeated defendant's removal faithful congressional design ensuring equal justice prosecuted construed reason, requested niggardly construction contrary departs track defeats beneficent purpose.6 27 attach significance difference, any, statutes. 302-303. introduced Senate empoweringcourts persons, Cong.Rec. 5199, 6264 (1892), uses interchangeably. Significantly, "An plaintiff sue court." Ch. 209, 252. contemporary describe secure Boyle Great R. F. 539 (CC Wash.1894); Whelan Manhattan 86 219, 220-221 SDNY 1898); Brinkley Louisville N.R. 345, 353 WD Tenn.1899); Phillips 153 795 ND Ala.1907), aff'd, 164 F 1022 (CA5 1908); Randolph Ross, 298 64 (CA6 1924). evident drafters impose assumed profession tasks notion absolute "motion withdraw" Court—and issue—is completely unacceptable me. sure adequately represented orderly prosecution lawsuit disrupted paramount personal terminating client. Ohntrup Firearms Center, 802 676 (CA3 1986); Mekdeci Merrell National Laboratories, 711 1510, 1521-1522 (CA11 1983). unique entering appearance—thus, appropriately captioned "petition excused performing nonexistent enter pending Indeed, "withdraw" evidence accept unless valid excuse 29 program operation member bar. admission implicitly included participate program.7 When established detailed procedure formal tantamount context, construe "respectfully command." If intended, virtually meaningless. substance speculation "disregarded improper." Ante, 308. anecdotal historical highly improbable speculation.8 gave endorsement judicial "requests," assuming "unthinkable"9 reason. 31 respectfully dissent. Association sent letter licensed Districts describing referral system. According letter, 130 1984 1985. combined lists embraced roughly 3,500 lawyers. Each eligibl every third year, her odds being years. 1-5. Compare, Caruth Pinkney, 683 1044, 1049 (CA7 1982) (§ appointments), cert. denied, 459 1214, 1212, 75 451 (1983); 30.64 Acres Land, 796, 801-803 (CA9 1986) (same), with, Peterson Nadler, 452 754, 757 (CA8 1971) permits assignments); Whisenant Yuam, 739 160, 163, n. (CA4 1984) (same). reference floor debate supports inference. response statement Representative Stone work pay, Culberson said: "We charity humanity compelling salaries, nothing. does. docket five hundred; ex-officio service." 5199 No spoke "state 314, dissent ignores recent scholarship casting unqualified poorly documented assertions existence writers, Cooley. 751-753. complete precedent evincing free representation, dissent's surmise meant judges, indeed judges "most progressive" exercised, somewhat extravagant. Lower federal-court within decade enactment, relies, 316, certainly tell 221 1898), cited approvingly year later regarding Tenn.1899), "If brought willing continue [without prevails recovers amount pay fee], plaintiff; not, find prosecute believed claim mirror tenuous departed States' "assign," distinguished salaried text sure, Houses "providing person, itself relevant Code, guides resolution dicta dissent, 312-314, appreciably strengthen argument licenses lend strong assistance. "admission participate" joined unavailing. derived putative 1003 1984). Whether incurred depends argue reverse—that accepting place, program, derivatively obligation, legitimate 1915(d)—is bootstrapping. pertains commencement, suit, proceeding, criminal, therein," 1915(a), originally drafted applied suits commenced person. July 20, Since private individual institute prosecution, scope bringing suits. history corroborates refers exclusively property. plaintiffs. whether, conditions, service. constitutionality These 1915 attained broad coverage. Aug. 10, 1956, 1028, 827, 70A 46, 827; 88-455, 552 (1964), 3006A; 91-452, 84 934 (1970), 3503(c); 95-144, 91 1218 (1977), 4109; 95-608, 92 3071 (1978), 1912(b); 88-352, 241 1971(f); 244 2000a-3(a); 259 2000e-5(f)(1); 89-793, 80 1445 (1966), 3413(1). reach Part IV, infra, bears noting function correct, seriously undermine assertion direct reasoning otiose; conclude, seems, failing heed charge. tried persuade wanting convicted felons guards, found insufficient 2a-3a, accuracy finding. stated: final offered Rule 56(b)'s residency substantial, ultimately 16, active Island remain defendants. affidavit President Association, expect receive about four times per year. Once appointed, 'to communicate incarceration promptly days date clerk's mailing appointment.' specifically provide, interprets appointed defendant. that, light requirement strict constraints Speedy Trial Act, §§ 3161-3174, impossible nonresident "As point out, handling Bar, knows himself arrange resident w en unavailable. arrangements defendant, action. possibility blanket exclusion nonresidents." Barnard 557-558, 1301-1302, (1989) (citations omitted). Hampshire Piper, 470 274, 1272, 1280, 205 (1985) ("Furthermore, member, indigents perhaps legal-aid work"). Cardozo York Appeals: 'Membership privilege burdened conditions.' appellant received fellowship gain. officer and, itself, instrument agency advance ends justice. His co-operation due whenever imperilled withheld. needy, causes civil, serving pay." People Karlin Culkin, 248 N.Y. 465, 470-471, 162 N.E. 487, (1928) (citation Brown, Promotion 253-254 (1938) ("Because oath gratuitous customary cannot furnish attorney"); H. Drinker, Ethics 62-63 (1963); Smith, Poor (1967) ("In addition agents ministers justice, jurisdictions conferring discretion"). (1860); Lamont Solano 49 (1874); Elam Johnson, Ga. 348 (1873); Hall Washington Greene 473, 476 (Iowa 1850); Case Board County Comm'rs Shawnee Kan. 511 (1868); Simmons, La.Ann. 991, So. 382 (1891); Bacon Wayne Mich. 461 (1850); Dismukes Supervisors Noxubee 58 Miss. 612 (1881); Johnston Lewis Clarke Mont. 159 Whitis, Tenn. 690 (1875); Dane Wis. 585, 587 (1861). Heckman Mackey, 32 574 1887) (noting "[t]he allowing paupers original writs subpoenas gratis, fee, paying costs plaintiffs, dates back reign Henry VII"). treatise Constitutional Limitations 1868, Cooley wrote: "[T]he prisoner designate defend paid government; made, designated owes withhold spare best exertions, misfortune stricken crime. appointment, few, hoped, disposed T. Cooley, 334 (2d 1871) (footnote footnote, "[A] not; pecuniary unworthy responsible administration justice." 334, reliance review article casts largely misses point. posture, arising party, obey order. Justices Cardozo, enacted, routinely obliged understanding, legislated, "recent scholarship," 4, guide "[R]epresentation order, condition modified applicant justly joining, know obligated order." Dillon, 633, 635 1965), 978, 550, 469 approval Hurtado 410 578, 589, 93 1157, 1164, 35 508 (1973). passage Criminal 1964, 3006A, related indicates indigent. 305-306. defects n t "appointed needy until arraigned" "then committed [would] expenses." S.Rep. 346, 88th (1963) (letter Attorney General Robert Kennedy Kennedy). Tr. Oral Arg. 8. Blackmar Missouri expressed sentiments cases: often served appointments, am brethren also. said, 'help me out,' really felt choice. mind old army maxim commanding officer's subaltern's thought power. found, sensitive advanced, explore alternatives. issuing writ, strip respondent judge] bargaining power." Scott Roper, 688 S.W.2d 757, 773

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