Legal Document

479 U.S. 6 107 S.Ct. 336 93 L.Ed.2d 188 NORTH CAROLINA DEPARTMENT OF TRANSPORTATION, et al., Petitionersv.CREST STREET COMMUNITY COUNCIL, INC., al. No. 85-767. Argued Oct. 7, 1986. Decided Nov. 4, Syllabus The Civil Rights Attorney's Fees Awards Act of 1976, 42 U.S.C. § 1988, provides that "[i]n any action or proceeding to enforce" certain enumerated civil rights laws, including Title VI the 1964, court may award attorney's fees prevailing party, other than United States. prohibits "any program activity receiving Federal financial assistance" from discriminating on basis race, color, national origin. Respondents filed an administrative complaint with States Department Transportation, challenging petitioner North Carolina Transportation's proposed extension a largely federally funded major expressway through established, predominantly black neighborhood in city Durham as violative VI. Subsequent negotiations resulted, after five years, Final Mitigation Plan executed by petitioners, respondents, and resolved controversy. In meantime, construction highway had been enjoined District Court unrelated alleging violations federal statutes did not include laws. instant case moved intervene asserting violations. subsequently entered consent judgment dissolving injunction dismissing also respondents' claims condition petitioners implement Plan. following day was executed. then for under 1988 services performed their counsel preparing negotiating resolution dispute. granted summary dismissed action. Appeals reversed remanded, holding covered actions taken respondents subsequent filing complaint, allowed separate fees. Held: 1. Under 1988's plain language legislative history, only enforce one laws listed Here, is not, never, those Pp. 11-15. 2. are entitled claim virtue motion They seek action, but rather agreed would be dismissed. considered adjudicating 15-16. 769 F.2d 1025 (4th Cir.1985), reversed. O'CONNOR, J., delivered opinion Court, which REHNQUIST, C.J., WHITE, POWELL, STEVENS, SCALIA, JJ., joined. BRENNAN, dissenting opinion, MARSHALL BLACKMUN, joined, post, p. 16. Lacy H. Thornburg, Atty. Gen., Raleigh, N.C., petitioners. Richard J. Lazarus, Washington, D.C., U.S., amicus curiae, support special leave Court. Michael David Calhoun, Durham, respondents. Justice O'CONNOR 1 This presents question whether solely recover 2 * 1957, City Council advised State Highway Commission need east-west city. Transportation Administration, Environmental Impact Statement FHWA-NC-EIS-7213-F, Historical Resume 15 (1982). Over years parts this were completed. (NCDOT) resumed planning highway. run Crest Street community, Durham. have displaced community park church many residents neighborhood. Respondents, Residents Community Save Our Church Committee, two unincorporated associations, retained Central Legal Assistance Program represent them regard extension. Despite opposition plans, issued revised draft continued propose community. App. 57. 3 costs large part funds. 1964 origin, 2000d, directs each agency authorized extend assistance issue regulations effectuate mandate, 2000d-1. Compliance 2000d effected termination funds, means law; however, "no such shall until department concerned has [recipient] failure comply requirement determined compliance cannot secured voluntary means." 4 Pursuant VI, (DOT) promulgated requiring recipients funds provide assurances compliance, periodic reports, access information relevant compliance. 49 CFR 21.9 (1985). DOT state "[a]ny person who believes himself specific class persons subjected discrimination prohibited [Title regulations] . file Secretary written complaint." 21.11(b). required investigate "whenever review, report, indicates possible part." 21.11(c). 5 September 1978, DOT. 73-89. challenged petitioners' requested NCDOT constructing conducted investigation, met representatives obtained documents February 1980 Director informed based DOT's "preliminary judgments," there "reasonable cause believe Expressway along alignment Draft [Environmental Statement] constitute prima facie violation and, particular, Section 21.5(b)(3) our Departmental regulation." Id., at 97-99. urged attempt negotiate After spanning months, 1982, reached preliminary agreement design mitigation adverse impact project, toward final plan. Since 1973, order proceedings ECOS, Inc. v. Brinegar, C-352-D-72 (MDNC, Feb. 20, 1973). plaintiffs ECOS nonprofit educational ecological organization, association Duke University students some its members, residents. alleged Federal-Aid Act, 23 §§ 128, 138, 1966, 1653(f), National Policy 1969, 4332. defendants, transportation officials company, achieved full above statutes. August 1982 dissolve injunction. Respondent Council, Inc., individual resident 103-107. While pending, negotiations, On December 14, dissolved It prejudice Plan, although never ruled intervene. formally 7 set out comprehensive requirements mitigate move right-of-way modify interchange so preserve park. develop new site same area. Respondents' spent more 1,200 hours over course assisting actively participating resolve dispute, informing progress negotiations. result diligent labor both substantial concrete. 8 stated they waive right fees, denied liability 1988. cross-motions judgment, 598 F.Supp. 258 (MDNC 1984). appeal, remanded. (CA4 1985). concluded explicit allowing recovery "prevailing party" "proceeding [T]itle 1964" complaint. 1028. could bring independent "solely already settled." 1033. held it acknowledged contrary holdings courts. See Horacek Thone, 710 496, 499 (CA8 1983); Estes Tuscaloosa County, 696 898, 901 (CA11 Latino Project, Camden, 701 262 (CA3 1983). We certiorari, Circuit conflict, 474 1049, 106 784, 88 762 (1986), now reverse. II 9 cases litigation preceded proceedings, occasion consider time particular processes. Webb Dyer County Board Education, 471 234, 241, 105 1923, 1927-1928, 85 233 (1985) (state tenure hearing New York Gaslight Club, Carey, 447 54, 100 2024, 64 723 (1980) (mandatory employment VII). similar raised Carey: are, "proceedings posed prior cases: can sought party seeks Because latter resolves case, we do reach former. 10 pertinent part, provides: 11 "In provision ., court, discretion, allow States, reasonable fee costs." 12 suggests answer awarded section states listed—42 1981, 1983, 1985, 1986, IX, VI—the before us these face, does authorize except 13 history supports import statutory language. As noted before, replete references "the enforcement 'in suits,' 'through courts' 'judicial process.' " supra, n. 16, 1928, 16 (quoting S.Rep. 94-1011, pp. 2, (1976); H.R.Rep. 94-1558, (1976)), Code Cong. & Admin. News 5908, 5909, 5913. Moreover, statement "parties prevailed when vindicate without obtaining relief," Senate Report cited involved minimum judicial (citing Kopet Esquire Realty Co., 523 1005 (CA2 1975); Parham Southwestern Bell Telephone 433 421 1970); Thomas Honeybrook Mines, 428 981 Richards Griffith Rubber Mills, 300 338 (Ore.1969); Aspira York, Education City, 65 F.R.D. 541 (SDNY 1975)). House Report, even while stressed 'prevailing party' intended limited victor entry trial merits," clearly contemplated parties initiated litigation: 14 "If terminates decree, example, proper A 'prevailing' should penalized seeking out-of-court settlement, thus helping lessen docket congestion. Similarly, filed, defendant might voluntarily cease unlawful practice." (citations omitted; emphasis supplied). statements involved, minimum, Evers Dwyer, 358 202, 79 178, 222 (1958); Incarcerated Men Allen Jail Fair, 507 281 (CA6 1974); Brown Gaston Dyeing Machine 457 1377 1972); Lea Cone Mills Corp., 438 86 1971); Parham, supra; Parker Matthews, 411 1059 (DC 1976); Aspira, supra. recognize dicta opinions suggest authorization awards anomalous. 65-66, S.Ct., 2031-2032. But see id., 71, 2034 (STEVENS, concurring judgment) ("Whether Congress costs, doubtful plainly presented record"). White Hampshire Dept. Employment Security, 455 445, 451, 13, 102 1162, 1166, 71 325 if must ignore statute avoid possibly anomalous result, '[t]he short write way.' Garcia 469 70, 79, 479, 485, 83 472 (1984), quoting Russello 464 23, 104 296, 78 17 (1983) (in turn Naftalin, 441 768, 773, 99 2077, 2081, 60 624 (1979)). envisions followed lawsuit. paradoxical nature exaggerated. There types behavior lead others For employee, talking his lawyer, choose discuss hiring promotion practices employer, discussion employer alter fully sense employee's initiative depends results obtained, what needed achieve results. entirely limit who, obtain relief, found necessary court. 18 suggested past today's create incentive protective lawsuits 66, 6, 2032, 6. Upon reflection, think better view expressed conclusion Webb, 15, 1927, "competent will motivated interests client pursue remedies available prove successful." An interpretation assumption "an attorney advise forgo avenue relief because ." Ibid. creates legitimate potential defendants disputes expeditiously, risk connected litigation. 19 still supra (so identical "discrete portion work product proceedings" "was useful type ordinarily advance stage settlement" 243, 1928-1929; Hensley Eckerhart, 461 424, 103 1933, 76 40 (1983). III 20 Appeals, alternative response argument "[e]ven trigger provision, [respondents] action." F.2d, 1034. misconstrues flaw Whatever role instead dismissed, brought completely Whether doubtful,1 irrelevant. 21 22 ordered. whom BLACKMUN join, dissenting. 24 Today holds litigants, prevail expressly created rights, recoup incurred, produced victory. What ensures no challenge ever settled ignores decisions purpose burden places district courts, I respectfully dissent. 25 reveals substantially result—with attendant unnecessary inefficient consequences—is compelled statute. 26 title 27 From this, reasons own terms, contemplates court" entertained substantive Plaintiffs fail lawsuit therefore bringing 28 Certainly nothing requires outcome. Claimants follows successful pursuit level within meaning battle won. so-called is, logical matter, involved. 29 enforcing primary adjudicator violations, agency, authority range attainable law. upon prevailed. using broad enough encompass done specifies procedure award, namely, petition 30 Court's position odds underlying designed "promote acts, intended, uniformity justice all citizens." (1976). By enactment, recognized "fee proved essential remedy private citizens meaningful opportunity important Congressional policies contain." (1976), U.S.Code Admin.News 5909. demonstrates, often vindicated proceedings. Fee equally effective use fora. 31 enacted specifically decision Alyeska Pipeline Service Co. Wilderness Society, 240, 95 1612, 44 141 (1975). Alyeska, respondent succeeded enjoining Interior issuing permits oil pipeline. Although ultimately amended Mineral Leasing issuance question, organization's application ground acted "private general" advancing high priority congressional policy. Society Morton, 161 U.S.App.D.C. 446, 450, 495 1026, 1030-1031 (1974). 32 decision, theory inappropriate "legislative guidance" engage feeshifting. 247, 1616. One consequence longer claims. 33 became litigants unable protect court." makes plain: 34 "[T]he Committee [§ 1988] applies enforced. find effects ancillary incident securing integral compliance." 5, 5913 (footnote omitted). 35 promise forum vindication one's meaningless absent ability adequate representation, "remedy gaps Supreme Alyeska. 1, 36 visible militates favor success indigent citizen afford hire lawyer sue similarly agency. Allowing furthers policy ensuring encouraging "vigorous enforcement" citizens. 4. 37 light surprising rejected holding. (1980), VII constitutes "action proceeding" phrase utilized 2000e-5(k), complainant proceeding. addition, availability depend claimant body. reasoned: 38 "It unsuccessful partially local remedies, deny fulfilling Congress' plan level. clear conclude 706(f)(1)'s suit encompasses legal proceedings." 2032 added). 39 More recently (1982), explained analysis observing "a claimed entitlement sufficiently merits 'solely proceedings.' 451-452, 2032). Carey distinguished us. employs phraseology virtually used Carey,1 Reports underline intent model provision.2 herein reasoning IV 41 most troubling effect pointless place unfettered exhaust remedies—Title claimants included category3—will immediately prevail. (1985), mandate automatic prevails Specifically, "to here scheme VI." Instead sweeps aside possibility mandatory optional, peripheral scheme—unless files concurrent Unless automatically precludes 43 bright-line solution problem great cost. First, rule allows differential treatment function existence (or lack thereof) Unfairness "complainants meritorious succeed less lose happen fees." Blow Lascaris, 913, 917 (NDNY 1981), aff'd, 668 670 (CA2), cert. denied, 459 914, 225, 74 179 (1982).4 Second, despite contrary, "create Ante, 14. Of course, observes, successful," 15. Simultaneously, ensure he she eligible comes forum. assume fees," ibid., encourage responsible attorneys complaints. No forgone; avenues concurrently alternately) pursued.5 45 explicitly complainants representation prospect accompany outcome.6 true lawsuits. whose source payment court-awarded select forum, particularly option failing all. "[t]he get into almost abandon soon possible." Now bypass mechanisms altogether, since exhaustion mandatory, assure herself prevailing. court's inability entertain "will promote bypass." Parness Woodruff, Proceedings Recover Prevailing Parties 1983 Claims Administrative Agencies, Ga.L.Rev. 83, 46 Nor courts evade series determinations schemes "proceeding[s] Once handed down, counsel," When return forced confront 47 Finally, suggests, "creat[e] litigation." Ante incorrectly assumes fact, plaintiffs' complaints lie dormant during either engaged "both settlement." 1929. Thus, remain incurring process runs course. 48 Initial resort settlement encouraged, discouraged. "[a] [court] congestion." made reference postcivil process, logic equal force where utilization eliminate my view, formalism treat differently stayed completion resuscitated victory.7 V 50 little good significant harm emerging decision. notice hope bad news inevitably suits. mischievous consequences, allege motion, signing Assuming, arguendo, litigation, identified related 258, 266 time, court; neither nor declaration violated VI; catalytic imminent motion. Compare 2000e-5(k) ("In VII] costs") costs"). See, e.g., (1976) (Title contain "appropriate [standards]" 1988); (same). 70-71, 9, 2034, (Section legislation VII's provision). Guardians Assn. Comm'n 463 582, 593-595, 3221, 3227-3228, 77 866 (WHITE, J.); Cannon Chicago, 677, 710-716, 1946, 1964-1967, 560 (1979); California Regents Bakke, 265, 419-421, 28, 98 2733, 2813-2815, 57 750 (1978) J.). points "[t]here laws," ante, informally discussing consulting attorney. suggestion logically refuse informal However, drawn line between activity, chosen participation "proceeding[s]" neglecting initiatives. circumstances, participants withholding identically situated not. analogy, initiatives occur pending refusal filed. practical following: (1) (2) remedy, (3) stay (4) rarely doubt necessary" case. Consequently, allowed. encouraged; wasteful concern echoed times Act. 122 Cong.Rec. 35128 (remarks Rep. Seiberling) ("Unless you just lot words"); 33313 Sen. Tunney) ways resources, Nation expect basic fundamental objectively repealed economic fact life people meant benefit take advantage them. Attorneys' extremely way resources ."). fails intervene, that, entertaining survive entertains initial complainant. worth noting prejudice, disposition Hence, agree

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