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A Refreshing Jury COLA: Fulfilling the Duty to Compensate Jurors \\Server03\productn\n\nyl\5-2\nyl201.txt unknown Seq: 1 10-MAY-02 11:08 A REFRESHING JURY COLA:² FULFILLING THE DUTY TO COMPENSATE JURORS ADEQUATELY³ Evan R. Seamone* Introduction: State Inaction to Increase Jury Compensation and the Need to Identify Forward-Looking Standards ...... 291 R A. Jury Compensation and the Courts: A Neglected Issue ........................................... 295 R B. The Problem With Jury Compensation: Lack of an Index Accounting for Inflation or the Cost of Living .......................................... 298 R I. Legal Aspects of Jury Compensation ................. 301 R A. Constitutional Implications....................... 302 R 1. Inadequate Pay as an Infringement on the Juror's Fifth Amendment Interest in Just Compensation ............................... 302 R 2. Inadequate Pay as a Violation of the Thirteenth Amendment's Prohibition of Involuntary Servitude........................ 305 R B. Statutory Implications ........................... 306 R 1. The Fair Labor Standards Act and the Internal Revenue Code .............................. 306 R 2. The Intermediate Stance of the Internal Revenue Code .............................. 308 R 3. Jury Pay and State Workers' Compensation Statutes ..................................... 309 R ² Cost of Living Adjustment. ³ 2002 Evan R. Seamone. All rights reserved. * Legal Policy Analyst, University of Iowa Public Policy Center. Masters in Pub- lic Policy, School of Public Policy and Social Research, University of California, Los Angeles. B.A. Sociology, University of California, Los Angeles. I would like to thank Patrick Bauer, G. Thomas Munsterman, David J. Forkenbrock, and Berky Nel- son for their invaluable guidance and advice, and recognize Iowa College of Law students Aaron Ogden, Alex Perez, Stacey Morris, and Tracie Melvin for their re- search assistance in verifying the accuracy of the statutory citations appearing in this Article. I would also like to thank the entire staff of the New York University Journal of Legislation and Public Policy for all of their work. 289 \\Server03\productn\n\nyl\5-2\nyl201.txt unknown Seq: 2 10-MAY-02 11:08 290 LEGISLATION AND PUBLIC POLICY [Vol. 5:289 a) Cases Finding that Jurors Are Not Similar to Employees ........................... 310 R b) Cases Finding that Jurors Are Similar to Employees .............................. 311 R C. Justifications for Jury Compensation ............. 312 R 1. Compensating Jurors to Ensure Class Representation .............................. 313 R 2. Compensating Jurors to Recognize Their Many Societal Contributions ....................... 315 R a) Routine Jury Functions .................. 316 R b) Symbolic Jury Functions ................ 319 R c) Extralegal Jury Functions ................ 322 R D. The Weight of American Custom and the Inadequacy of the ªCivic Dutyº Justification for Compelling Jury Service that Creates Hardship . 323 R 1. Civic Duty, Militias, and the Nation's Armed Services .................................... 324 R 2. Civic Duty and Public Roadwork Requirements ............................... 327 R 3. Civic Duty and the Night Patrol ............. 328 R E. Crisis-Response and the Courts .................. 329 R 1. The Civic Virtue and Economic Models of Jury Service ................................ 329 R 2. The Civic Virtue Model Invites Historical Ambiguity .................................. 332 R II. Historical Standards that Influenced Jury Compensation and Their Relevance in Setting Fees in Modern Times .............................................. 334 R A. A Snapshot of Current Jury Compensation Methods and Amounts........................... 334 R 1. Compensation System Type ................. 339 R 2. Payment Amount............................ 340 R B. History as an Interpretive Tool ................... 342 R C. Hurtado's Fee-Tracking Methodology ............ 348 R D. Historical Methodology for Comparing State and Federal Jury Compensation ...................... 353 R E. A Proposed Jury Compensation Index ............ 362 R F. Relieving the Burdens of Legislators ............. 365 R III. Policy Considerations for States Considering a Jury COLA .............................................. 369 R A. Reasons Favoring Adoption of New Jury Compensation Standards ......................... 369 R \\Server03\productn\n\nyl\5-2\nyl201.txt unknown Seq: 3 10-MAY-02 11:08 2002] A REFRESHING JURY COLA 291 1. The Potential for Increasing Summons- Response Rates ............................. 369 R 2. Psychological Fulfillment and Maslow's Needs Hierarchy ................................... 372 R 3. Shortcomings of the Survey Research Results ..................................... 375 R B. Reasons Disfavoring Adoption of New Jury Compensation Standards ......................... 377 R 1. The Potential for Encouraging Professional Jurors Who Would Transform the Meaning of Jury Service to Mere Employment ........... 377 R 2. Studies Showing that Jurors of Low Incomes Are Still Satisfied with Jury Duty and Their Resulting Psychological Compensation ....... 379 R 3. The Impossibility of Proving a Causal Link Between Increased Jury Compensation and Increased Summons Response Rates ......... 380 R Conclusion ................................................. 381 R APPENDIX A: History of State Jury Compensation Since 1870................................................ 385 R INTRODUCTION: STATE INACTION TO INCREASE JURY COMPENSATION AND THE NEED TO IDENTIFY FORWARD-LOOKING STANDARDS ªI consider [the trial by jury] as the only anchor, ever yet imagined by man, by which a government can be held to the principles of it's [sic] constitution.º1 ÐThomas Jefferson, 1789 Jury service touches the lives of many Americans.2 As a binding obligation to the government, jury participation is virtually unique. Aside from paying taxes or registering with the Selective Service, it is the only public service that is presently compulsory in American soci- ety.3 Because Americans theoretically cannot refuse to participate 1. Letter from Thomas Jefferson to Thomas Paine (July 11, 1789), in 15 THE PA- PERS OF THOMAS JEFFERSON 269 (Julian P. Boyd ed., 1958). 2. According to varied studies, between sixteen and twenty-nine percent of Ameri- cans serve as jurors. Abraham Abramovsky & Jonathan I. Edelstein, Anonymous Ju- ries: In Exigent Circumstances Only, 13 ST. JOHN'S J. LEGAL COMMENT. 457, 474 (1999); see also John Cornyn, Texas Courts: Deliberating Jury Reform, TEX. LAW., June 3, 1996, at 26, LEXIS, Txlawr File (reviewing studies indicating that fifteen million Americans are summoned to appear for jury duty each year and partake in approximately 160,000 jury trials). 3. LYN CARSON & BRIAN MARTIN, RANDOM SELECTION IN POLITICS 67 (1999) (ªJury duty is one of a small number of things that the modern liberal state compels citizens to do.º). \\Server03\productn\n\nyl\5-2\nyl201.txt unknown Seq: 4 10-MAY-02 11:08 292 LEGISLATION AND PUBLIC POLICY [Vol. 5:289 when summoned, jurors sacrifice both their time and their potential earnings during that time to the service of the justice system. While the average trial lasts only a week,4 jurors potentially endure severe stresses that can stay with them for a lifetime, including trauma result- ing from exposure to violence, guilt over sentencing decisions, or lost wages.5 But for those who do serve on a jury, the experience is re- portedly overwhelmingly positive.6 While critics have argued that the jury should be revamped,7 or even abolished altogether,8 the Supreme 4. See Patrick E. Longan, The Case for Jury Fees in Federal Civil Litigation, 74 OR. L. REV. 909, 936 (1995) (estimating five days); Joanna Sobol, Note, Hardship Excuses and Occupational Exemptions: The Impairment of the ªFair Cross-Section of the Communityº, 69 S. CAL. L. REV. 155, 173 (1995) (observing, based on extensive interviews with court personnel, that ª[a]n average jury trial lasts about a week, in- cluding deliberationsº). 5. See, e.g., Thomas L. Hafemeister & W. Larry Ventis, Juror Stress: What Bur- den Have We Placed on Our Juries?, 56 TEX. B.J. 586, 588 (1993) (describing inci- dences of psychological and physical harm resulting from jury service); Stanley M. Kaplan & Carolyn Winget, The Occupational Hazards of Jury Duty, 20 BULL. AM. ACAD. PSYCHIATRY & L. 325 (1992) (on file with the New York University Journal of Legislation and Public Policy) (reporting research results indicating health problems related to jurors' unpleasant experiences during criminal trials). One juror, who served during the trial of serial killer Jeffrey Dahmer, revealed how that trial influ- enced his life: ªSomewhere down the road, this may hit me like a ton of bricks. I am beginning to think there is no such thing as normal after this.º Hafemeister & Ventis, supra, at 588. 6. See, e.g.,JANICE T. MUNSTERMAN ET AL., NAT'L CTR. FOR STATE COURTS, THE RELATIONSHIP OF JUROR FEES AND TERMS OF SERVICE TO JURY SYSTEM PERFORM- ANCE 5±11 (1991) (on file with the New York University Journal of Legislation and Public Policy) (reporting results of national study of multiple different courts, in which eighty-one percent of respondents rated their experiences positively and con- cluding that ª[j]urors are very satisfied with their jury service and reported hardship is minimalº); Steven Cann & Michael Kaye, Juror Satisfaction with the Kansas Court System 6 (1998) (unpublished report to the Honorable Kay McFarland, Chief Justice of the Kansas Supreme Court, on file with the New York University Journal of Legis- lation and Public
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