A basic rule of ethics is that an attorney cannot simultaneously represent two or more clients whose interests are directly adverse to one another - this usually arises in criminal defense practice when an attorney attempts to represent two co-defendants in the same case. Lawyers are often confronted with co-defendants who will insist that their positions are not antagonistic and that they will present a unified front throughout the litigation; however, defense attorneys know that there is a substantial likelihood that this will not bear out through the end of the case. If defendant 1 exercises her constitutional right to testify in her own defense, then defendant 2's attorney has a duty to effectively cross-examine defendant 1 with only defendant 2's interests in mind, which in most cases will be difficult if not impossible to do. Often a situation arises where one defendant is more culpable than the other, or where one defendant can receive a better deal or even a dismissal for providing information on the other. These conflicts are often impossible to predict with any certainty at the beginning of a case.
An attorney may be tempted by the promise of more money for representing two clients instead of one, or may understand that hiring two attorneys instead of one will cause a financial hardship on some people, but the bottom line is that if and when the conflict develops the attorney will have to withdraw from representation of both defendants. Often an attorney who accepts representation of two or more co-defendants has no intention of taking that case to trial, and if they do take the case to trial then the prosecutor and the trial judge have a responsibility to raise the question of the conflict and potentially remove the attorney from the case.
The rule is designed to protect clients' interests and to ensure that the attorney's duties of loyalty and confidentiality to each client are not breached. Rule 1.7(a) states that a conflict of interest exists if:
(1) the representation of one client will be directly adverse to another client; or
(2) there is a significant risk that the representation of one or more clients will be materially limited by the lawyer's responsibilities to another client, a former client or a third person or by a personal interest of the lawyer.
1.7(b) says that a client can waive such a conflict if:
(1) the lawyer reasonably believes that the lawyer will be able to provide competent and diligent representation to each affected client;
(2) the representation is not prohibited by law;
(3) the representation does not involve the assertion of a claim by one client against another client represented by the lawyer in the same litigation or other proceeding before a tribunal; and
(4) each affected client gives informed consent, confirmed in writing.
Conflicts are imputed to members of a law firm who practice together for essentially the same reasons. Members of a law firm work together and typically discuss their cases and have access to one another's files. Rule 1.10(a) states:
(a) While lawyers are associated in a firm, none of them shall knowingly represent a client when any one of them practicing alone would be prohibited from doing so by Rules 1.7, 1.8(c), or 1.9, unless the prohibition is based on a personal interest of the prohibited lawyer and does not present a significant risk of materially limiting the representation of the client by the remaining lawyers in the firm.
With the budget problems affecting the public defender's offices, one way to significantly cut costs is to stop appointing private attorneys to conflict cases - for various reasons, it is more cost effective for a salaried public defender employee to handle a case than it is for a contract defender or a private appointed attorney. With this in mind, Rule 1.10 regarding conflicts was amended a few years ago to attempt to make it easier for public defender offices to keep conflict cases within their office. 1.10(e) now reads:
A lawyer representing a client of a public defender office, legal services association, or similar program serving indigent clients shall not be disqualified under this Rule because of the program’s representation of another client in the same or a substantially related matter if:
(1) the lawyer is screened in a timely manner from access to confidential information relating to and from any participation in the representation of the other client; and
(2) the lawyer retains authority over the objectives of the representation pursuant to Rule 5.4(c).
Due to the impracticability of providing ethical conflict-free representation and of effectively screening attorneys within a public defender office, most public defenders rightly ignored this amendment to Rule 1.10 and continued to send conflict cases out of their offices. Now more pressure is being placed on public defenders state-wide to represent conflict defendants within their offices, and some public defenders are giving in. Chief Justice Toal issued a memorandum in January of this year, in light of the budget crisis, instructing public defenders to keep conflict cases within their offices. Some circuit court judges are now telling public defenders that they must keep conflict cases within their office, and are threatening to refuse to sign appointment orders.
It is interesting that the same motivation exists for government to attempt to ignore conflicts as when private attorneys attempt to ignore conflicts - money. For the private attorney, it is more lucrative to take on both co-defendants and collect a fee from each. For the government, it is cheaper if the public defender keeps co-defendants in their office and the government does not have to pay an outside attorney. Indigent defendants are not entitled to less conflict-free representation than any other citizen, and the chief public defenders across the state should not be giving in to these demands, whether it comes from the legislature, the circuit court judges, or the chief justice.
A S.C. ethics opinion issued earlier this month answers the question: can a public defender's office retain four co-defendants within the same office where each co-defendant has inconsistent defenses? Predictably, the answer is not yes or no but the answer says look at the Rules - if the screening and autonomy requirements of Rule 1.10 are met there is no problem; however, if the screening and autonomy requirements of Rule 1.10 are not met, then the public defender must comply with Rule 1.7 the same as everyone else.
Screening under Rule 1.10 - each attorney cannot have access to the other's files and other confidential information regarding the other's case. Autonomy raises another troublesome issue - "the lawyer retains authority over the objectives of the representation pursuant to Rule 5.4(c)." Rule 5.4(c) states
A lawyer shall not permit a person who recommends, employs, or pays the lawyer to render legal services for another to direct or regulate the lawyer’s professional judgment in rendering such legal services.
Each rank and file public defender is employed by the chief public defender, who necessarily has supervisory authority over them and must monitor their work. This means that in an ordinary situation, the chief public defender must look at what her employees are doing in their cases and advise them when necessary.
There are several potential solutions:
- Conflict cases can be sent to an adjoining circuit's public defender office. This will add to the already overburdened case load of each office and require the additional driving time to visit conflict clients in jails and to appear in courthouses that are, in some cases, hours away from the office.
- Each public defender could create compartmentalized conflict case units, who would be housed in separate offices with separate filing systems and support staff, and who would not be subject to the supervisory authority of the chief public defender.
- The public defender can enter into contracts with private attorneys who would handle the conflict cases for a set compensation, in addition to their private practices. In several counties a system such as this was already in place, but in some areas has fallen apart due to the lack of funding. It is certainly less costly than appointing individual private attorneys to each conflict case.
- Private attorneys can be appointed from the appointment list to represent conflict defendants at a set hourly rate. This is what has been happening in most areas, and it is probably the most effective solution until the legislature stops appropriating funds to pay for the representation. It is the most effective, but also the most costly solution.
The Courts cannot and should not order public defenders to represent conflicted clients in order to save money. I've always been told that money is the motivating factor in most ethical violations, and apparently this is true whether it is a private attorney committing misconduct or whether it is institutionalized misconduct within the court system.