Levenson v. Lippman

5 A.D.3d 86, 772 N.Y.S.2d 286, 2004 N.Y. App. Div. LEXIS 1976
CourtAppellate Division of the Supreme Court of the State of New York
DecidedFebruary 24, 2004
StatusPublished
Cited by3 cases

This text of 5 A.D.3d 86 (Levenson v. Lippman) is published on Counsel Stack Legal Research, covering Appellate Division of the Supreme Court of the State of New York primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Levenson v. Lippman, 5 A.D.3d 86, 772 N.Y.S.2d 286, 2004 N.Y. App. Div. LEXIS 1976 (N.Y. Ct. App. 2004).

Opinion

OPINION OF THE COURT

Rosenberger, J.

The primary question raised by this appeal is why this Court should be divested of the power conferred upon it by the Constitution (New York Constitution, art VI, § 4 [k]; § 5) and the rules of civil practice (CPLR 5501, 5701) to review an order issued by a justice of the Supreme Court. Of secondary concern is how this Court’s review power came to be vested in a Supreme Court justice who lacks any constitutional or statutory appellate authority and who is further constrained by the well-settled proscription against issuing a ruling in contravention of an order of a court of coordinate jurisdiction. In the absence of any basis for such a shift in the power expressly granted to this Court, defendants’ attempt to derive such power from the general administrative authority bestowed by the Legislature upon the Chief Administrator of the Courts is unavailing. We therefore conclude that the exercise of appellate jurisdiction by an administrative judge by modifying orders awarding legal fees pursuant to County Law § 722-b constitutes an impermissible [88]*88intrusion upon the appellate jurisdiction of this Court and is therefore ultra vires.

Plaintiffs are attorneys who were assigned to represent indigent defendants in criminal proceedings under a plan mandated by article 18-B of the County Law. Each of the five attorneys was awarded counsel fees in excess of the rates specified in County Law § 722-b based on the existence of “extraordinary circumstances” warranting enhanced compensation. These awards are contained in orders that were issued by the respective trial judge upon completion of the assigned representation. “In keeping with Part 127 of the Rules of the Chief Administrator,” the Director of the Assigned Counsel Plan requested review of the vouchers submitted in support of the applications for the fee awards, asking to be “advised of any modification of the order of the trial judge.” The Director’s requests culminated in five orders of the Administrative Judge of Supreme Court, Criminal Term, New York County striking the enhanced compensation and reducing the fee awards to the rates set forth in County Law § 722-b.

Plaintiffs ultimately commenced this action seeking a declaration that Rules of the Chief Administrator of the Courts (22 NYCRR) § 127.2 (b) (eff Apr. 16, 2001) is null and void as having been amended in excess of the authority granted to the Chief Administrator of the Courts by the Legislature and the New York Constitution.1 Supreme Court, however, declared the rule and the challenged orders to be valid, finding that authority is derived from the power conferred on the Chief Judge by New York Constitution, article VI, § 28 (b) to “adopt administrative rules for the efficient and orderly transaction of business in the trial courts,” as delegated to the Chief Administrator of the Courts by Administrative Delegations of the Chief Judge (22 NYCRR) § 80.1 (b) (6).

Nominally at issue on this appeal is the power of an administrative judge, pursuant to court rule, to reduce legal fees awarded to 18-B attorneys. Fundamentally at issue is the propriety of the original orders awarding assigned counsel fees in excess of the rates listed in County Law § 722-b, specifically whether enhanced compensation is warranted by extraordinary circumstances. The question is why those orders should be reviewed administratively rather than by appeal to the Appel[89]*89late Division in accordance with established rules of appellate practice. In either event, there is no dispute that the award of compensation in excess of statutory 18-B rates is a matter entrusted to the sound discretion of the trial court subject to review under the traditional standard of abuse (Rules of Chief Administrator of Cts [22 NYCRR] § 127.2).

As pertinent to this controversy, County Law § 722-b states:

“For representation on an appeal, compensation and reimbursement shall be fixed by the appellate court. For all other representation, compensation and reimbursement shall be fixed by the court where judgment of conviction or acquittal or order of dismissal was entered. In extraordinary circumstances a trial or appellate court may provide for compensation in excess of the foregoing limits and for payment of compensation and reimbursement for expenses before the completion of the representation” (as amended by L 1987, ch 317, § 2 [eff July 20, 1987]).2

Nothing in the statutory language suggests that the Legislature either considered the award of additional compensation to be a purely administrative act or intended that compensation awards should be foreclosed from appellate review. However, in an early case setting fees within the statutory maxima, the Court of Appeals concluded that the award of compensation pursuant to County Law §§ 722 and 722-b “do[es] not, for purposes of review, fall within either civil or criminal proceedings as the practice statutes are structured” (Matter of Werfel v Agresta, 36 NY2d 624, 626 [1975]; see also Matter of Fisher v Schenck, 39 AD2d 813 [1972]). With respect to the civil practice statute, it stated that “CPLR 7801 (subd 2) precludes the kind of determination petitioner seeks, which is, in effect, to obtain a higher allowance than he was awarded by respondent in a criminal action” (Werfel at 626). Therefore, the Court held, “The Appellate Division was correct in concluding that, in a full-fledged judicial proceeding, it lacked subject-matter jurisdiction and that, moreover, the petition fails to state a claim for relief under CPLR article 78” (id.). The Court added (at 627) that “the plan, the statute, and the manner of its operation provide no basis for justiciable review of allowances to counsel made within the maximums provided by the statute.”

[90]*90The notion that the Appellate Division is without jurisdiction to entertain an appeal from the award of counsel fees pursuant to County Law §§ 722 and 722-b together with the idea that CPLR article 78 affords no basis for review have since been abandoned. In Matter of Director of Assigned Counsel Plan of City of N.Y. (Bodek) (87 NY2d 191, 194 [1995]), the Court of Appeals noted obliquely that “the analyses in more recent cases . . . are fatal to the continuing validity of that rationale in the present context.” As the concurring opinion explains (id. at 196), the later cases “justify our treating these compensation orders ... as civil, rather than criminal in nature,” noting that payment is authorized “in a civil compilation of statutes.”

While finding the rationale of Werfel to be invalid, the Court nevertheless unanimously adhered to its conclusion that such orders are not judicially reviewable:

“Despite the technical appealability of the challenged orders, however, the Appellate Division did not err in refusing to entertain the merits of the Director’s challenge. As is indicated in the final paragraphs of Werfel (supra, at 627), trial court orders granting or denying increases in the statutorily recommended fees under County Law §§ 722, 722-b and 722-c ‘provide no basis for justiciable review’ ” (Bodek at 194).

Although the concept of nonjusticiability has been invoked to preclude appellate review of a discretionary award of attorney compensation (see Matter of Levenson v Lippman, 290 AD2d 211 [2002], appeal dismissed 98 NY2d 635 [2002]), the quoted passage does not accurately reflect either the holding in

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5 A.D.3d 86, 772 N.Y.S.2d 286, 2004 N.Y. App. Div. LEXIS 1976, Counsel Stack Legal Research, https://law.counselstack.com/opinion/levenson-v-lippman-nyappdiv-2004.