alyeska pipeline wilderness society argued january decided may american rule attorneys fees ordinarily recoverable prevailing litigant federal litigation absence statutory authorization respondents instituted litigation prevent issuance government permits required construction oil pipeline recover attorneys fees petitioner based private attorney general approach erroneously approved appeals since congress courts authorize exception american rule pp app reversed white delivered opinion burger stewart blackmun rehnquist joined brennan post marshall post filed dissenting opinions douglas powell took part consideration decision case robert jordan iii argued cause petitioner brief paul mickey james pipkin john knodell dennis flannery argued cause respondents brief joseph onek john dienelt thomas stoel briefs amici curiae urging affirmance filed june resnick german haynes johnson nicholas robinson association bar city new york armand derfner albert jenner nicholas deb katzenbach elliot richardson bernard segal whitney north seymour barrett prettyman david tatel harold flannery paul dimond lawyers committee civil rights law jack greenberg james nabrit iii eric schnapper charles stephen ralston naacp legal defense educational fund henry geller abraham goldstein center law public interest justice white delivered opinion litigation initiated respondents wilderness society environmental defense fund friends earth attempt prevent issuance permits secretary interior required construction oil pipeline appeals awarded attorneys fees respondents petitioner alyeska pipeline service based upon equitable powers theory respondents entitled fees performing services private attorney general certiorari granted determine whether award attorneys fees appropriate reverse major oil field discovered north slope alaska june oil companies constituting consortium owning alyeska submitted application department interior pipeline transport oil north slope across land alaska owned major part transport system carry oil ultimate markets lower special interdepartmental task force studied proposal reported president federal task force alaskan oil development preliminary report president app amended application submitted december requested along applications special land use permits asking additional space alongside construction road along one segment pipeline respondents brought suit march sought declaratory injunctive relief secretary interior grounds intended issue special permits violation mineral leasing act stat amended without compliance national environmental policy act nepa stat et seq basis mineral leasing act nepa district granted preliminary injunction issuance permits supp dc subsequently state alaska petitioner alyeska allowed intervene march interior department released environmental impact statement economic security analysis period time set aside public comment secretary announced requested permits granted alyeska app mineral leasing act nepa issues point fully briefed argued district decided dissolve preliminary injunction deny permanent injunction dismiss complaint upon appeal appeals district columbia circuit reversed basing decision solely mineral leasing act app en banc finding nepa issues complex important deciding necessary time since pipeline construction enjoined result violation mineral leasing act involved issues fact still dispute desirable expedite decision much possible appeals declined decide merits respondents nepa contentions rejected district certiorari denied congress enacted legislation amended mineral leasing act allow granting permits sought alyeska declared action nepa necessary construction pipeline proceed merits litigation effectively terminated legislation appeals turned questions involved respondents request award attorneys fees app en banc since applicable statutory authorization award proceeded consider whether requested fee award fell within exceptions general american rule prevailing party may recover attorneys fees costs otherwise exception award party acted bad faith inapposite since position taken federal state parties alyeska manifestly reasonable assumed good faith application common benefit exception spreads cost litigation persons benefiting stretch totally outside basic rationale ibid appeals nevertheless held respondents acted vindicate important statutory rights citizens ensured governmental system functioned properly entitled attorneys fees lest great cost litigation kind particularly defendants alyeska deter private parties desiring see laws protecting environment properly enforced title thought bar taxing attorneys fees also deemed inappropriate burden state alaska part award alyeska appeals held fairly required pay full award respondents entitled performed functions private attorney general observing fee represent reasonable value services rendered taking account surrounding circumstances including limited time labor required case benefit public skill demanded novelty complexity issues incentive factor app appeals remanded case district assessment dollar amount award ii prevailing litigant ordinarily entitled collect reasonable attorneys fee loser asked fashion exception american rule considered origin development convinced inappropriate judiciary without legislative guidance reallocate burdens litigation manner extent urged respondents approved appeals common law costs allowed centuries england statutory authorization award costs including attorneys fees although matter discretion counsel fees regularly allowed prevailing party first years system congress provided legislation federal courts follow practice respect awarding attorneys fees courts federal courts located exception district courts admiralty maritime jurisdiction follow specific fee schedule statutes either expired repealed appears ruled judiciary create general rule independent statute allowing awards attorneys fees federal courts arcambel wiseman dall inclusion attorneys fees damages overturned ground general practice oposition sic even practice strictly correct principle entitled respect till changed modified statute consistently adhered early holding see day woodworth oelrichs spain wall flanders tweed wall stewart sonneborn fleischmann distilling maier brewing rich ex rel industrial lumber practice continued federal courts referring state rules governing awards counsel fees although express legislative authorization practice expired legislation congress give authority prescribe items amounts costs taxed federal courts took action statutory mandate see law jurisdiction powers courts congress undertook standardize costs allowable federal litigation support proposed legislation asserted great diversity practice among courts losing litigants unfairly saddled exorbitant fees victor attorney result act specifying detail nature amount taxable items cost federal courts one purposes limit allowances attorneys fees charged losing parties although act disclaimed intention limit amount fees attorney client might agree upon counsel fees collectible losing party expressly limited amounts stated act lieu compensation allowed law attorneys solicitors proctors courts district attorneys clerks district circuit courts marshals witnesses jurors commissioners printers several following compensation shall taxed allowed act shall construed prohibit attorneys solicitors proctors charging receiving clients government reasonable compensation services addition taxable costs may accordance general usage respective may agreed upon parties act stat intention act control attorneys fees recoverable prevailing party loser repeatedly enforced baltimore wall allowance counsel set aside reviewing history costs courts concluding fees costs allowed officers therein named regulated act february provides section lieu compensation allowed law attorneys solicitors proctors district attorneys clerks marshals witnesses jurors commissioners printers following compensation shall allowed attorneys solicitors proctors may charge clients reasonably services addition taxable costs nothing taxed cost opposite party incident judgment services except costs fees therein described enumerated may tax docket fee twenty dollars final hearing admiralty libellant recovers fifty dollars recovers less fifty dollars docket fee proctor shall ten dollars footnotes omitted fees costs allowed officers therein named regulated act congress passed purpose provides first section lieu compensation previously allowed law attorneys solicitors proctors district attorneys clerks marshals witnesses jurors commissioners printers following compensation shall allowed attorneys solicitors proctors may charge clients reasonably services addition taxable costs nothing taxed recovered cost opposite party incident judgment services except costs fees therein described enumerated may tax docket fee twenty dollars trial jury restricted charge ten dollars cases law judgment rendered without jury omitted although seen congress made specific provision attorneys fees certain federal statutes changed general statutory rule allowances counsel fees limited sums specified costs statute act carried forward revised statutes judicial code substance without apparent intent change controlling rules also included revised code may tax costs various items specified including docket fees section provides ttorney proctor docket fees courts may taxed costs follows background understandably declared exception small amounts allowed rule long attorney fees ordinarily recoverable fleischmann distilling recent cases also reaffirmed general rule absent statute enforceable contract litigants pay attorneys fees see rich hall cole sure fee statutes construed allow limited circumstances reasonable attorneys fee prevailing party excess small sums permitted trustees greenough act read interfering historic power equity permit trustee fund property party preserving recovering fund benefit others addition recover costs including attorneys fees fund property directly parties enjoying benefit rule consistently followed central railroad banking pettus harrison perea equitable trust sprague ticonic national bank mills electric hall cole supra cf hobbs mclean see generally dawson lawyers involuntary clients attorney fees funds harv rev also may assess attorneys fees willful disobedience order part fine levied defendant toledo scale computing scale fleischmann distilling maier brewing supra losing party acted bad faith vexatiously wantonly oppressive reasons rich citing vaughan atkinson cf universal oil products root refining exceptions unquestionably assertions inherent power courts allow attorneys fees particular situations unless forbidden congress none exceptions involved appeals expressly disclaimed reliance see supra congress repudiated judicially fashioned exceptions general rule allowing substantial attorneys fees neither retracted repealed modified limitations taxable fees contained statute successors extended roving authority judiciary allow counsel fees costs otherwise whenever courts might deem warranted congress done however fully recognizing accepting general rule make specific explicit provisions allowance attorneys fees selected statutes granting protecting various federal rights statutory allowances available variety circumstances also differ considerably among antitrust laws instance allowance attorneys fees plaintiff awarded treble damages mandatory patent litigation contrast exceptional cases may award reasonable attorney fees prevailing party emphasis added title ii civil rights act prevailing party entitled attorneys fees discretion held congress intended award made successful plaintiff absent exceptional circumstances newman piggie park enterprises see also northcross board education memphis city schools scheme things apparent circumstances attorneys fees awarded range discretion courts making awards matters congress determine true statutes providing allowance reasonable fees congress opted rely heavily private enforcement implement public policy allow counsel fees encourage private litigation fee shifting connection awards antitrust laws prime example cf hawaii standard oil noted title ii civil rights act intended simply penalize litigants deliberately advance arguments know untenable broadly encourage individuals injured racial discrimination seek judicial relief title ii newman supra omitted congressional utilization concept sense construed grant authority judiciary jettison traditional rule nonstatutory allowances prevailing party award attorneys fees whenever courts deem public policy furthered particular statute important enough warrant award congress presumably power judgment pick choose among statutes allow attorneys fees others difficult indeed courts without legislative guidance consider statutes important others unimportant allow attorneys fees connection former statutory limitation widths involved case matter gravest importance appear wide range statutes arguably satisfy criterion public importance justify award attorneys fees private litigant statutory policy deemed important enforcement must encouraged awards attorneys fees deny attorneys fees private litigants actions seeking vindicate constitutional rights moreover courts embark course urged respondents opt awards prevailing party whether plaintiff defendant prevailing plaintiff awards discretionary mandatory presumption operating ordinary case see newman supra exemplified case also evident rational application rule immediately collide express provision except otherwise provided statute section permits costs taxed including fees expenses attorneys civil action brought agency official acting official capacity respondents argue one main functions private attorney general call public officials account insist enforce law follow cases attorneys fees awarded government officials indeed claim asserted case face light legislative history generally bars awards allowable must expressly provided statute example title ii civil rights act need labor matter appears us rule suggested adopted appeals make major inroads policy matter congress reserved since approach taken congress issue carve specific exceptions general rule federal courts award attorneys fees beyond limits courts free fashion drastic new rules respect allowance attorneys fees prevailing party federal litigation pick choose among plaintiffs statutes sue award fees cases others depending upon courts assessment importance public policies involved particular cases federal courts purport adopt initiative rule awarding attorneys fees based approach judicial rule operate private parties government purport assess merits demerits american rule respect allowance attorneys fees criticized recent years courts urged find exceptions also apparent national experience encouragement private action implement public policy viewed desirable variety circumstances rule followed courts respect attorneys fees survived deeply rooted history congressional policy us invade legislature province redistributing litigation costs manner suggested respondents followed appeals decision must therefore reversed ordered footnotes atlantic richfield humble oil refining british petroleum formed pipeline system entity submitted applications permits federal task force alaskan oil development preliminary report president app dominick brody supra pipeline system replaced petitioner alyeska alyeska stock owned arco pipeline sohio pipeline humble pipeline mobil pipeline phillips petroleum amerada hess union oil california see app application requested primary feet additional parallel adjacent construction purposes feet another feet construction road prudhoe bay north slope town livengood distance slightly less half length proposed pipeline see wilderness society morton app amended application asked single special permit additional feet one side feet side another special permit space feet width prudhoe bay livengood app title provided pertinent part public lands including forest reserves may granted secretary interior purposes transportation oil natural gas applicant possessing prescribed qualifications extent ground occupied said pipe line feet side regulations conditions survey location application use may prescribed secretary interior upon express condition pipe lines shall constructed operated maintained common carriers shall accept convey transport purchase without discrimination oil natural gas produced government lands vicinity pipe line proportionate amounts secretary interior may full hearing due notice thereof interested parties proper finding facts determine reasonable provided shall hereafter granted said lands transportation oil natural gas except subject provisions limitations conditions section failure comply provisions section regulations conditions prescribed secretary interior shall ground forfeiture grant district district property part thereof located appropriate proceeding appeals described heart respondents nepa contention secretary adequately consider alternative pipeline app interventions occurred september approximately months district granted preliminary injunction preventing issuance permits secretary department interior released draft impact statement january decision reported see time appeals upheld grant certain state alaska also considered challenge special permit issued forest supervisor alyeska predecessor find issue ripe adjudication pub tit stat supp iii pipeline authorization act pub tit ii stat et seq supp iii respondents bill costs includes total hours attorneys time spent litigation app litigation may well provided substantial benefits particular individuals indeed every citizen interest proper functioning system government imposing attorneys fees alyeska operate spread costs litigation proportionately among beneficiaries app see infra circumstances case inappropriate tax fees appellee state alaska state voluntarily participated suit effect present different version public interest implications pipeline taxing attorneys fees alaska view undermine rather goal ensuring adequate spokesmen public interests app appeals also directed fee award need limited amount actually paid owed respondents may well counsel serve organizations like respondents compensation obtainable market believe organizations public interest litigation sort rely charity counsel rely charity parties volunteering serve private attorneys general attorneys worked case reimbursed reasonable value services despite absence obligation part respondents pay attorneys fees early courts england authorized award counsel fees successful plaintiffs litigation similarly since english courts empowered award counsel fees defendants actions awards might made plaintiffs rules governing administration related provisions developed years customary england litigation substantive claims terminated conduct separate hearings special taxing masters order determine appropriateness size award counsel fees prevent ancillary proceedings becoming unduly protracted burdensome fees may included award usually prescribed even including amounts may recovered letters drafted behalf client fleischmann distilling maier brewing footnotes omitted see generally goodhart costs yale mccormick law damages federal judiciary act stat touched upon costs counsel fees provided specifically attorney district shall receive compensation services fees shall taxed therefor respective courts suits prosecutions shall five days later however congress enacted legislation regulating processes provided provision shall made except act statutes otherwise provided rates fees except fees judges circuit district courts suits common law shall state respectively used allowed courts causes equity admiralty maritime jurisdiction rates fees shall last allowed respectively exercising jurisdiction causes act stat legislation effect end next congressional session extended twice see act may stat act stat repealed however legislation enacted may stat prior time repeal legislation passed providing additional compensation attorneys cover traveling expenses act mar stat legislation also repealed act may supra latter enactment substituted new provision compensation attorneys entitled fees state respectively allowed courts plus certain traveling expenses stat provision repealed february stat statute provided new specific rates compensation attorneys see see also march congress enacted general provision governing awarding costs prevailing parties federal courts allowed taxed circuit district courts favour parties obtaining judgments therein compensation travel attendance attornies counsellors fees except district courts cases admiralty maritime jurisdiction allowed superior courts respective stat provision force one year end next session congress continued effect act stat act mar stat period two years end next session congress point expired congressional legislation dealt awarding attorneys fees federal courts except act infra gave authority prescribe taxable attorneys fees legislation dealing compensation attorneys see act mar stat act may stat see summary legislation dealing costs throughout period law jurisdiction powers courts legislation september federal courts follow state practice respect rates fees admiralty maritime jurisdiction see supra act mar stat established set fees attorneys district courts admiralty maritime proceedings act supra provision expired end century see baltimore wall circuit allowed counsel fees estimate damages costs record arcambel see street federal equity practice pp law supra costs civil cases cas ccsdny purpose diminishing costs expenses suits proceedings said courts shall full power authority time time make prescribe regulations said district circuit courts taxation payment costs suits proceedings therein make prescribe table various items costs shall taxable allowed suits parties attorneys solicitors proctors clerk marshal district deputies officers serving process witnesses persons whose services usually taxable bills costs items stated said table none others shall taxable allowed bills costs shall fixed low reasonably due regard nature duties services shall performed various officers persons aforesaid shall case exceed costs expenses authorized provided existing laws act stat brief legislative history section indicates language purpose reduce federal courts cong globe remarks berrien one opponents senator buchanan said following congress conforms courts control state courts expected great main objection transfer legislative power congress ibid see remarks senator bradbury cong globe uniform rule either compensating ministerial officers courts regulation costs actions private suitors one system prevails one district totally different one another cases difficult ascertain attention paid law whatever designed regulate proceedings hence seen compensation officers costs taxed civil suits made depend great degree allowed state courts two allowance system adopted semblance equality exist sixteen laws prescribed certain taxable costs attorneys prosecution defense suits several since added union cost allowed others amount inconsiderable state fee bills made far rule compensation federal courts senate perceive totally different systems taxation prevail different districts officers courts suitors also affected present unequal extravagant often oppressive system abuses grown taxation attorneys fees losing party compelled pay civil suits matter serious complaint papers committee show cases costs swelled amount exceedingly oppressive suitors altogether disproportionate magnitude importance causes taxed labor bestowed correct evils remedy defects present system bill prepared passed house representatives attempts simplify taxation fees prescribing limited number definite items allowed see also sess street supra fees attorneys solicitors proctors trial jury civil criminal causes referees final hearing equity admiralty docket fee twenty dollars provided cases admiralty maritime jurisdiction libellant shall recover less fifty dollars docket fee proctor shall ten dollars cases law judgment rendered without jury ten dollars five dollars cause discontinued scire facias proceedings recognizances five dollars deposition taken admitted evidence cause two dollars fifty cents compensation five dollars shall allowed services rendered cases removed district circuit writ error appeal stat following compensation shall taxed allowed attorneys solicitors proctors courts district attorneys clerks circuit district courts marshals commissioners witnesses jurors printers several territories except cases otherwise expressly provided law nothing herein shall construed prohibit attorneys solicitors proctors charging receiving clients government reasonable compensation services addition taxable costs may accordance general usage respective may agreed upon parties rev stat schedule fees see schedule remained one act supra revised stat repealed judicial code hence remain force effect extent act passed stat judicial code included title code sections appeared minor changes wording including deletion latter section compensation services rendered case went circuit appeal writ error judge clerk may tax costs following docket fees section title supp ii attorney proctor docket fees courts may taxed costs follows trial final hearing civil criminal admiralty cases except cases admiralty maritime jurisdiction libellant recovers less proctor docket fee shall admiralty appeals involving admiralty appeals involving admiralty appeals involving discontinuance civil action motion judgment proceedings recognizances deposition admitted evidence supp ii code contain language used act carried nearly years fees prescribed statute compensation shall taxed allowed nothing code indicates congressional intention depart rule reviser note new ection consolidates sections title ed section provision limiting awards fees prescribed see supra conclusion code change longstanding rule limiting awards attorneys fees statutorily provided amounts consistent established view function revisers code generally limited consolidation codification consequently principle governing interpretation provisions altered revision change presumed unless clearly expressed tidewater oil omitted justice marshall noted senate report covering new code observed great care exercised make changes existing law meet substantially unanimous approval reviser note explains shift mandatory shall taxed discretionary may taxed made view rule federal rules civil procedure providing allowance costs prevailing party course unless otherwise directs note following supp ii justice bradley writing greenough said following act intended regulate fees costs strictly chargeable party party regulate fees counsel expenses charges solicitor client power equity cases administration funds control make allowance parties fund justice equity may require expressly provides shall construed prohibit attorneys solicitors proctors charging receiving clients government reasonable compensation services addition taxable costs may accordance general usage respective may agreed upon parties act stat rev sect act contains nothing fairly construed deprive chancery control costs charges litigation exercised equity justice may require including proper allowances instituted proceedings benefit general fund sprague ticonic national bank might read suggesting greenough said federal tax losing party solicitor client costs excess amounts prescribed act suggestion without support either opinion greenough limited rationale express terms statute costs simply left unregulated federal statute permit taxing costs client adversary see baltimore wall flanders tweed wall foster federal practice conkling organization jurisdiction practice courts ed boyce manual practice circuit courts cf one package clothing cas ccsdny justice marshall reliance upon sprague proposition costs taxed client opponent see post thus misplaced conflicts fair reading greenough supra act different situation presented federal sits diversity case ordinary diversity case state law run counter valid federal statute rule usually state law denying right attorney fees giving right thereto reflects substantial policy state followed moore federal practice pp ed footnotes omitted see also speiser attorneys fees hereinafter speiser annotation prevailing party right recover counsel fees federal courts prior decision erie tompkins held state statute requiring award attorneys fees applied case removed state courts federal courts clear policy state allow plaintiffs recover attorney fee certain cases made policy effective making allowance fee mandatory courts cases least anomalous policy thwarted right plainly given destroyed removal cause federal courts people sioux county national surety limitations awards attorneys fees federal courts deriving act found bar award see nothing erie requiring departure result see hanna plumer clearly hold judicially created rule although question proper rule govern awarding attorneys fees federal diversity cases absence state statutory authorization loses much practical significance light fact follow restrictive american rule see speiser see nn supra see amendments freedom information act pub stat amending packers stockyards act stat perishable agricultural commodities act stat bankruptcy act clayton act stat unfair competition act stat securities act stat amended stat trust indenture act stat securities exchange act stat amended truth lending act stat motor vehicle information cost savings act tit iv stat supp ii copyrights organized crime control act education amendments stat supp ii act stat fair labor standards act stat amended longshoremen harbor workers compensation act stat amended stat supp ii federal water pollution control act added stat supp ii marine protection research sanctuaries act supp ii patent infringement servicemen readjustment act clean air act added stat civil rights act tit ii stat tit vii stat fair housing act stat noise control act stat supp ii railway labor act stat amended stat amended merchant marine act stat communications act stat interstate commerce act stat added stat amended fed rules civ proc see generally speiser annotation supra person shall injured business property reason anything forbidden antitrust laws may sue therefor shall recover threefold damages sustained cost suit including reasonable attorney fee emphasis added statutes mandatory terms awarding attorneys fees include fair labor standards act truth lending act merchant marine act action commenced pursuant subchapter discretion may allow prevailing party reasonable attorney fee part costs shall liable costs private person statutory examples discretion awarding attorneys fees securities act trust indenture act securities exchange act civil rights act tit vii clean air act noise control act supp ii quite apart specific authorizations fee shifting particular statutes congress recently confronted question general availability legal services persons economically unable retain private attorney see legal services corporation act pub stat et seq supp iv section supp iv addresses one type fee shifting action commenced corporation recipient final order entered favor defendant corporation recipient plaintiff may upon motion defendant upon finding action commenced pursued sole purpose harassment defendant corporation recipient plaintiff maliciously abused legal process enter order shall appealable made final awarding reasonable costs legal fees incurred defendant defense action except contravention state law rule statute general applicability costs fees shall directly paid corporation hand remarks made debates legislation indicate intent restrict plaintiff recovery attorneys fees actions commenced corporation recipient circumstances plaintiffs awarded fees cong rec meeds steiger cranston mondale kennedy thus plaintiffs might recover theory might corporation congress course provided counsel fees various statutes basis find nothing remarks indicating congressional approval judicially created fee awards congress specific statutory authorizations fee shifting instances provided either party given award depending upon outcome litigation discretion see patent infringement civil rights act others specified one litigants awarded fees see antitrust laws fair labor standards act congress specifically provided statutes allowing awards fees whether awards mandatory particular conditions whether discretion governs see nn supra justice marshall post concluding federal courts equitable power used create implement rule attempts solve problems manageability rule necessarily raise however emasculates theory instead straightforward award attorneys fees winning plaintiff undertakes enforce statutes embodying important public policies appeals proposed justice marshall tax attorneys fees favor private attorney general award said impose burden benefit enforcement law theory adopt rule rather expanded version approach awarding attorneys fees congress provided allowance attorneys fees private attorney general imposed conditions upon award dissenting opinion errs finding authority courts award attorneys fees without legislative guidance plaintiffs courts willing recognize private attorneys general also disserves basis fee shifting imposing limiting condition characteristic justifications condition ill suits litigation purported benefits accrue general public decisions classes beneficiaries small number easily identifiable benefits traced accuracy reason confidence costs indeed shifted exactitude benefiting case however sophisticated economic analysis required gauge extent general public supposed beneficiary distinguished selected elements bear costs appeals familiar litigation parties dealing merits suit concluded imposing attorneys fees alyeska operate spread costs litigation proportionately among beneficiaries app justice marshall apparently hold factual assessment clearly wrong see post one accepts justice marshall appears limitations absence authority statutes forbids award attorneys fees agency official see nn infra becomes extremely difficult predict version basis allowing fees produce award private party litigation involving enforcement federal statute involved case contrast typical result federal statutes provide private actions award attorneys fees successful private plaintiff example antitrust laws remains private plaintiff whose suit enforce federal state law pressed defendants include state one agencies officers instance typical suit even eleventh amendment hurdles must overcome see infra may remaining defendants satisfy dissenting opinion description litigant may saddled opponent attorneys fees add test suggested justice marshall post administering judicially created rule criterion purports enable determine statutes enforced application rule first important right protected one actually necessarily shared general public class thereof absent judicially manageable standard gauging importance criterion apply substantive congressional legislation providing rights duties generally applicable virtually congressional output result solve problem courts selectively applying rule accordance particular preferences priorities breadth requires justification justice marshall provides citing cases justice marshall application suggested rule case however demonstrates problems raised courts generally assaying public benefits particular litigation produced conclusion dissenting opinion hardly room doubt respondents litigation protected important right actually necessarily shared general public class thereof post whether conclusion correct appear least instance conflicting views room doubt side opinions evidence fact see app majority opinion mackinnon dissenting wilkey dissenting unavoidable doubt calls specific authority congress courts apply rule awarding attorneys fees except otherwise specifically provided statute judgment costs enumerated section title including fees expenses attorneys may awarded prevailing party civil action brought agency official acting official capacity jurisdiction action judgment costs taxed government shall amount established statute rule order limited reimbursing whole part prevailing party costs incurred litigation payment judgment costs shall provided section section title payment judgments see supra act mar provided bringing suits covered awarding costs government following section government shall put issue right plaintiff recover may discretion allow costs prevailing party time joining issue costs however shall include actually incurred witnesses summoning fees paid clerk stat section included judicial code stat federal tort claims act provided costs shall allowed courts successful claimant extent private litigant except costs shall include attorneys fees stat code provided supp ii shall liable fees costs liability expressly provided act congress reviser observed section new follows rule sovereign liable costs unless specific provision liability made law noting many statutes exempt liability fees costs reviser concluded uniform rule embodied section make specific exceptions unnecessary amended present form stat senate report proposed bill stated costs referred section include fees expenses attorneys see also attorney general transmitting proposal legislation led amendment said bill makes clear fees expenses attorneys may taxed see pyramid lake paiute tribe indians morton app cert denied without departing pattern federal tort claims act addition limited fees courts allow attorneys charge clients provided fees paid addition amount judgment award settlement recovered attorneys representing claimant stat see also section maintained code supp ii percentage limitations raised stat see supra see also amendments freedom information act pub stat amending although award foreclosed absence statutory authorization award state government raise question respect permissibility eleventh amendment question lower courts divided compare souza travisono class norton jordan fusari gates collier petition rehearing en banc granted brandenburger thompson sims amos supp md summarily aff jordan gilligan taylor perini named individual members texas highway skehan board trustees bloomsburg state college case appeals rely upon eleventh amendment declining award fees alaska see supra therefore occasion address question see mclaughlin recovery attorney fees new method financing legal services ford rev ehrenzweig reimbursement counsel fees great society rev stoebuck counsel fees included costs logical development rev kuenzel attorney fee cost litigation iowa rev mccormick counsel fees expenses litigation element damages rev comment awarded attorney fees equal access rev note attorney fees shall ultimate burden lie vand rev see also speiser posner economic approach legal procedure judicial administration legal studies recent years lower federal courts erroneously think employed approach award attorneys fees see souza travisono supra hoitt vitek knight auciello cornist richland parish school board fairley patterson cooper allen lee southern home sites taylor perini supra morales haines donahue staunton cert denied fowler schwarzwalder brandenburger thompson supra la raza unida volpe nd cal appeals fourth circuit refused adopt rule bradley school board city richmond vacated grounds cf bridgeport guardians members bridgeport civil service summary affirmance decision sims amos supra taken acceptance judicially created rule district sims indicated alternative ground available bad faith defendants upon base award fees see also edelman jordan senate subcommittee representation citizen interests recently conducted hearings general question awards attorneys fees prevailing parties litigation attempted ascertain whether affords representation otherwise unrepresented interests whether restriction encouragement development needed place legislation area hearings legal fees subcommittee representation citizen interests senate committee judiciary pt iii tunney justice marshall said rich ex rel industrial lumber respect fee shifting miller act stat amended et congress aware issue omitted case arguments departure american rule properly addressed congress ibid justice brennan dissenting agree justice marshall federal equity courts power award attorneys fees rationale moreover reasons stated judge wright appeals hold case proper one exercise power judge wright concluded acting private attorneys general respondents ensured proper functioning system government advanced protected concrete manner substantial public interests award fees unjustly discouraged petitioner alyeska defending case denying fees might well deterred respondents undertaking heavy burden litigation app mr reversing award attorneys fees respondent environmentalist groups today disavows power federal equity courts award attorneys fees interests justice require traditional american rule courts ordinarily refrain allowing attorneys fees recognized several judicial exceptions rule classes cases equity seemed favor fee shifting see sprague ticonic national bank mills electric hall cole imposing absolute bar use private attorney general rationale basis awarding attorneys fees today takes extremely narrow view independent power courts area view flies squarely face prior cases relies primarily statute concluding american rule grounded statute courts may award counsel fees unless determine congress intended various exceptions rule fee shifting created past explained constructions fee statute ante addition notes congress provided attorneys fees number statutes made provision others concludes selective treatment award attorneys fees expressly authorized courts deny matter course finally suggests policy questions bearing whether grant attorneys fees particular case ones judiciary well equipped handle fee shifting rationale quickly degenerate arbitrary lawless process concludes granting attorneys fees private attorneys general beyond equitable power federal courts reach question whether award proper alyeska case rationale view case questions must answered see basis precedent policy holding courts award attorneys fees interests justice require recovery simply claim fit comfortably within one previously sanctioned judicial exceptions american rule past regarded award attorneys fees matter reserved legislature certainly read statute general bar judicial fee shifting concern difficulty applying meaningful standards awarding attorneys fees successful public benefit litigants legitimate one view overstates novelty private attorney general theory guidelines developed closely analogous statutory nonstatutory attorneys fee cases readily applied cases one bar therefore disagree flat rejection rationale fee shifting moreover view equities case support award attorneys fees alyeska accordingly must respectfully dissent contrary suggestion opinion cases unequivocally establish granting withholding attorneys fees strictly matter statutory construction independent basis equitable powers courts sprague ticonic national bank supra lower courts denied request attorneys fees proceeds certain bond sales petitioners success litigation accrue benefit number similarly situated persons reversed holding allowance attorneys fees costs beyond included ordinary taxable costs recognized statute within traditional equity jurisdiction federal courts regarded equitable foundation power allow fees beyond serious question allowance costs appropriate situations part historic equity jurisdiction federal courts plainly foundation historic practice granting reimbursement costs litigation conventional statutory taxable costs part original authority chancellor equity particular situation mills found absence statutory authorization barrier extending theory include nonmonetary benefits basis awarding fees stockholders derivative suit discovering nothing applicable provisions securities exchange act indicate congress intended circumscribe courts power grant appropriate remedies concluded district free determine whether special circumstances justify award attorneys fees litigation costs excess statutory allotment petitioners lawsuit presumably accrued benefit corporation shareholders permitting others benefit petitioners efforts without contributing costs litigation result form unjust enrichment held petitioners given attorneys fee award assessed respondent corporation acknowledged mills exception american rule undergone considerable expansion since earliest applications cases simply ordered contribution litigation costs common fund produced benefit number nonparty beneficiaries doctrine apply wrote fund simply benefit sort conferred class contribution sought long jurisdiction entity contribution effected fairer course relieve plaintiff exclusive responsibility burden finally noted even impossible assign monetary value benefit conferred stress placed congress importance fair informed corporate suffrage leads conclusion vindicating statutory policy petitioners rendered substantial service corporation shareholders benefit discerned mills went beyond simple monetary relief included benefit shareholders available important means enforcement proxy statute ibid two years ago member suit union free speech provisions reporting disclosure act held within equitable power federal courts grant attorneys fees union since plaintiff conferred substantial benefit members union vindicating free speech interests hall cole award attorneys fees suit free speech provision lmrda promoted congress intention afford meaningful protection rights employees public generally without provision attorneys fees aggrieved union member unlikely able finance necessary litigation held allowance counsel fees consistent lmrda historic equitable power federal courts grant relief interests justice view cases simply squared majority suggestion availability attorneys fees entirely matter statutory authority cases plainly establish independent basis equity courts grant attorneys fees several rather generous rubrics acknowledges much says independent authority award fees cases bad faith means taxing costs special beneficiaries loss understand also say independent judicial power succumbs procrustean statutory restrictions indeed statutory silence soon far bright line common benefit public benefit crossed conclude willing tolerate equitable exceptions analysis squared well established casually dispensed tension today opinion less rigid treatment attorneys fees past reflected particularly analysis statute general statutory embodiment american rule held past congress restrict availability attorneys fees particular statute either expressly implication see fleischmann distilling maier brewing refused construe plenary restraint attorneys fee awards starting early cases consistently read statute narrowly act interposed restriction equitable powers award attorneys fees trustees greenough held statute imposed bar award attorneys fees fund collected result plaintiff efforts since fee bill statute addressed fees costs strictly chargeable party party regulate fees counsel expenses charges solicitor client act contains nothing fairly construed deprive chancery control costs charges litigation exercised equity justice may require recently gave formal sanction line lower cases holding fee statute imposed restriction equity power include attorneys fees plaintiff award defendant unjustifiably put plaintiff expense litigation order obtain benefit latter plainly entitled vaughan atkinson distinguishing baltimore wall case upon today heavily relies vaughan noted question one costs statutory sense since attorneys fee award legitimately included part primary relief plaintiff entitled rather ancillary adjustment litigation expenses finally fleischmann distilling maier brewing undertook comprehensive review assessment attorneys fees actions noting nonstatutory exceptions american rule sanctioned overriding considerations justice seemed compel result held meticulous provision remedies available lanham act history unsuccessful attempts include attorneys fee provision act precluded implying right attorneys fees trademark actions however purport find statutory basis american rule fact treated general exception american rule statutory embodiment brother white concedes language statute indicating awards provided therein exclusive compensation longer part fee statute told fee statute read language still act since indication legislative history revision judicial code revisers intended alter meaning yet even language still act think construction act cases creating judicial exceptions american rule suffice dispose argument since language longer part fee statute seems even less reasonable read fee statute uncompromising bar equitable fee awards support fairly drawn congress failure provide expressly attorneys fees either national environmental policy act mineral leasing act provided fee awards statutes confronted forceful argument sections statute included express provisions recovery attorneys fees twice held provisions sections interpreted evidencing congressional intent deny courts power award counsel fees actions brought sections act mention attorneys fees hall cole mills electric indeed mills interpreted congressional silence prohibition authorization decide issue exercise coordinate equitable power rejecting argument congressional silence mills hall relied established rule implied restrictions power equity disfavored hecht bowles principle applies fortiori case implication must drawn presence attorneys fees provisions unrelated pieces legislation sum primary contention congress enjoys hegemony fee shifting statute occasional express provisions attorneys fees withstand even casual reading precedents recognition several exceptions american rule demonstrates inadequacy analysis whatever view wisdom fee shifting public benefit cases general think serious misstep abdicate equitable authority area name statutory construction ii statutory analysis aside points difficulties formulating private attorney general exception swallow american rule find problem vexing majority fact guidelines proper application rationale suggested several recent cases statutory attorneys fee provisions exception newman piggie park enterprises held successful plaintiffs sue provision title ii civil rights act entitled recovery fees unless special circumstances render award unjust reasoned congress intended authorize fees basis bad faith new legislation required view long history exception decision newman stands necessity fee shifting permit meaningful private enforcement protected rights significant public impact noted title ii provide monetary award equitable relief absent provision litigants required suffer financial loss order vindicate policy congress considered highest priority accordingly read provision title ii generously since successful plaintiffs routinely forced bear attorneys fees aggrieved parties position advance public interest invoking injunctive powers federal courts analyzing provision education amendments act bradley school board city richmond made similar point school board publicly funded governmental entity engaged litigation parents district observed two parties vastly disparate resources litigation plaintiffs rendered substantial service board bringing compliance constitutional mandate community large securing benefits assumed flow nondiscriminatory educational system although analysis newman directed construing provision analysis bradley went question whether fees provision applied services rendered enactment arguments cases reading attorneys fee provisions broadly quite applicable nonstatutory cases well indeed already recognized several factors recent cases mills emphasized benefit class shareholders meaningful remedy corporate misconduct private enforcement proxy regulations since beneficiaries fairly taxed benefit held fee award made available similarly hall pointed imbalance litigating power union one members order ensure right question enforced held attorneys fees provided appropriate cases additionally noted enforcement rights question accrue special benefit union members justified assessing attorneys fees treasury defendant union cases others possible discern confidence factors guide equity determining whether award attorneys fees appropriate reasonable cost plaintiff representation placed upon defendant important right protected one actually necessarily shared general public class thereof plaintiff pecuniary interest outcome normally justify incurring cost counsel shifting cost defendant effectively place class benefits litigation hardly room doubt first criteria met present case significant public benefits derived citizen litigation vindicate expressions congressional constitutional policy see newman piggie park enterprises supra result litigation respondents forced congress revise mineral leasing act rather permit continued evasion see pub stat amendments impose stringent safety liability standards require alyeska pay fair market value bear costs applying permit monitoring although nepa issues actually decided lawsuit served catalyst ensure thorough analysis pipeline environmental impact requiring interior department comply nepa draft impact statement satisfied public statutory right information environmental consequences project stat also forced delay construction safeguards included conditions new grants petitioner contends beneficial results might occurred without litigation brief petitioner record demonstrates alyeska unwilling observe government unwilling enforce congressional policy private action necessary assure compliance mineral leasing act new environmental technological safeguards written amendments act directly traceable respondents success litigation like manner continued action needed prod interior department filing impact statement prior litigation department alyeska prepared proceed construction pipeline basis without considering overall risks environment physical integrity pipeline second criterion equally well satisfied case respondents willingness undertake litigation largely altruistic course stand benefit additional protections sought area potentially affected pipeline see sierra club morton direct benefit citizen organizations truly dwarfed demands litigation proportion extensive factual discovery expert scientific analysis legal research broad range environmental technological issues required see affidavit counsel bill costs app disparity respondents direct stake outcome resources required pursue case exceeded disparity resources opponents federal government consortium giant oil companies respondents claim also fulfills third criterion alyeska proper party bear spread cost litigation undertaken interest general public department interior course bears legal responsibility adopting position later determined unlawful since class beneficiaries outcome litigation probably class citizens government fairness bear costs respondents representation appeals concluded impose attorneys fees view statute providing assessment costs government permits award ordinary costs includ fees expenses attorneys since respondents point occasion rule correctness construction statute department courts alyeska advocated adoption position taken interior playing major role aspects case litigation conferred direct concrete economic benefits alyeska principals affording protection physical integrity pipeline reasonably confident ultimate incidence costs imposed upon applicant public permit indeed general public equitable shift costs applicant connection alyeska consortium oil companies business account national oil market indeed able redistribute additional cost general public view ability pass cost forward consuming public warrants award decision bypass congress avoid analysis environmental consequences pipeline made first instance alyeska principals secretary interior award punish consortium actions recognizes effective substitute public beneficiaries successfully challenged actions since appeals held alyeska accountable fair share fees ease burden citizen litigators affirm judgment see also kansas city southern guardian trust universal oil products root refining several recent occasions recognized exceptions well established equity jurisprudence see rich ex rel industrial lumber hall cole fleischmann distilling maier brewing see also newman piggie park enterprises moore federal practice ed rich ex rel industrial lumber held attorneys fees granted matter course provision miller act granted claimants right sums justly due stat amended overturn american rule matter statutory construction improper held better evidence congressional intent provide attorneys fees context everyday commercial litigation miller act although vaughan admiralty case therefore subject possibly narrow reading case evincing special concern plaintiff seamen wards admiralty given case narrow construction see hall cole rich ex rel industrial lumber indeed vaughan relied rolax atlantic coast line nonadmiralty case plaintiff awarded attorneys fees equitable matter obduracy defendant opposing plaintiff civil rights claim words hecht apply well case hand essence equity jurisdiction power chancellor equity mould decree necessities particular case flexibility rather rigidity distinguished qualities mercy practicality made equity instrument nice adjustment reconciliation public interest private needs well competing private claims believe major departure long tradition proposed lightly implied makes point generally precludes grant attorneys fees federal government officers even true fail see supports view rationale jettisoned altogether many situations entities private public sued public interest cases attorneys fees properly imposed parties see reason statutory immunity federal government bearing matter teachings lost lower courts elements rationale fully explored see souza travisono hoitt vitek knight auciello cornist richland parish school board fairley patterson cooper allen lee southern home sites taylor perini morales haines donahue staunton cert denied fowler schwarzwalder brandenburger thompson la raza unida volpe nd cal wyatt stickney supp md naacp allen supp md see hearings senate committee interior insular affairs pt pp statute construed light rule implied restrictions equity jurisdiction may foreclose attorneys fee awards cases section ordinary recoverable costs shall include attorneys fees may read bar fee awards ordinary taxable costs equity demands event plainly circumstances bar attorneys fee awards see natural resources defense council environmental protection agency requiring alyeska pay half fee appeals correctly recognized absent statutory bar government equal position shift costs public beneficiaries see dawson lawyers involuntary clients public interest litigation harv rev