HARRELL, J.
Gerald Isadore Katz, an attorney admitted to practice in Maryland on 2 June 1983, was charged by criminal information on 18 June 2010 in the Circuit Court for Anne Arundel County with willful failure to file Maryland state income tax returns for 2004 and 2005.
Being made aware of Katz's initial convictions, the jurisdictions in which Katz was admitted to practice law (other than Maryland) took interlocutory and/or formal disciplinary actions. The first to act, Virginia, suspended him for six months, effective 30 September 2011.
Maryland Bar Counsel filed, on 22 March 2012, this reciprocal discipline petition for disciplinary or remedial action. Katz's misconduct forming the predicate of the petition was his willful failure to file Maryland tax returns for 2004 and 2005. It was asserted that such misconduct violated the following provisions of the Maryland Lawyers' Rules of Professional Conduct
The petition was brought as a reciprocal discipline matter, under Maryland Rules 16-773(b) and 16-751(a)(2),
We issued a show cause order, based on Virginia's six-month suspension, requiring Katz to show cause (pursuant to Maryland Rule 16-773(e))
Consistent with its views expressed in the joint petition for a six-month suspension
On 25 June 2012, this Court entered an order scheduling for argument before the Court the question:
Bar Counsel and Katz accepted our invitation to address this question through supplemental memoranda and appeared for oral argument on 10 September 2012.
Pursuant to Maryland Rule 16-773(g), in reciprocal discipline cases, the factual findings and conclusions of the sister jurisdiction(s) are treated generally as conclusive evidence of an attorney's misconduct.
Among other considerations in this Court's calculus to impose reciprocal discipline, Rule 16-773(e) precludes the order
In the present case, Bar Counsel and Katz maintain that Virginia's six-month suspension is "consistent" with our precedent. That appears to be true, as far as it goes. This Court, however, has the long-established duty to impose discipline that is consistent with our attorney disciplinary jurisprudence by assessing, independently, the propriety of the sanction imposed by a sister jurisdiction, as well as the sanction recommended by Bar Counsel. Attorney Grievance Comm'n v. Cafferty, 376 Md. 700, 727, 831 A.2d 1042, 1058 (2003); see Whitehead, 390 Md. at 669, 890 A.2d at 755 (noting that it is "within the Court's discretion as to which sanction should be imposed upon the attorney"). As a result, the sanction imposed will depend not only on the decision of the sister jurisdiction, but also on the specific facts of each case, balanced against Maryland precedent. Gordon, 413 Md. at 56, 991 A.2d at 57.
The central issue in this case is what "sanction a lawyer in Maryland could expect in response to similar conduct, were it to have occurred in Maryland." Gordon, 413 Md. at 56, 991 A.2d at 57 (emphasis added). To determine what discipline is reciprocal, we must identify and examine the sanctions imposed in factually-similar Maryland cases. Id. at 57, 991 A.2d at 57.
"Many kinds of illegal conduct reflect adversely on fitness to practice law, such as ... the offense of willful failure to file an income tax return[,]" because "[b]y willfully failing to file his tax returns, a lawyer appears to the public to be placing himself above [the] law." Attorney Grievance Comm'n v. Atkinson, 357 Md. at 652, 745 A.2d 1086, 1089-90 (2000); Attorney Grievance Comm'n v. Baldwin, 308 Md. 397, 408, 519 A.2d 1291, 1297 (1987). The intention and motive of the attorney are important considerations in determining the appropriate sanction for failure to file income tax returns. Atkinson, 357 Md. at 656-57, 745 A.2d at 1092. In failure to file cases, an intentional and voluntary violation of a known legal duty is sufficient to constitute a willful failure to file, while a deceitful or fraudulent motive is not necessary, but is a relevant factor in deciding the severity of the sanction for such misconduct. Attorney Grievance Comm'n v. Tayback, 378 Md. 578, 589, 837 A.2d 158, 165 (2003); Attorney Grievance Comm'n v. Thompson, 376 Md. 500, 514-15 n. 6, 830 A.2d 474, 483 n. 6 (2003); see Attorney Grievance Comm'n v. Breschi, 340 Md. 590, 602, 667 A.2d 659, 666 (1995) (noting that our line of "failure to file" cases has produced diverse sanctions over the years because the attorney's motive is deceitful in some cases, but in others is not).
Maryland lawyers and the citizenry are best served when "consistent dispositions
Two particular cases in our precedent illustrate the fact-specific assessment we make in determining the proper sanction in willful failure to file cases when no fraudulent intent is found. First, in Atkinson, where the attorney failed willfully to file her federal income tax returns for eleven years, without fraudulent intent, and cooperated with the Internal Revenue Service to reach a payment plan to discharge a tax obligation of over $90,000, we held that the appropriate sanction was an indefinite suspension, with the right to reapply within one year. 357 Md. at 648-50, 745 A.2d at 1087-88. We noted that, although an attorney's after-the-fact cooperation with the authorities is commendable, such cooperation does not "`serve to palliate the evil of his [or her] offense.'" Id. at 658, 745 A.2d at 1092 (quoting Attorney Grievance Comm'n v. Casalino, 335 Md. 446, 452, 644 A.2d 43, 46 (1994) (citation omitted)). In determining the proper sanction, we considered the fact that no criminal prosecution occurred, and that this was Atkinson's first formal professional misconduct encounter. Id. at 656-59, 745 A.2d at 1092-93.
In contrast, this Court held that a six-month suspension was the appropriate discipline in Breschi, where Breschi pled guilty and was sentenced to probation for failing to file his federal 1989 tax return, and was ordered to pay all tax obligations for 1989, plus interest and penalties, according to a payment schedule agreed to by Breschi and the probation department. 340 Md. at 594, 667 A.2d at 661. Breschi failed to file his 1990 federal tax return as well, but those taxes, interest, and penalties had been paid. Id. We commented specifically that, although Breschi had not been prosecuted for failing to file the 1990 return, the absence of criminal prosecution "does not necessarily mean [MLRPC 8.4(d)] has not been violated" because there was evidence to prosecute Breschi
During oral arguments in the present case, Bar Counsel maintained that for us to follow Virginia's six-month suspension would not result in a "grave injustice," Maryland Rule 16-773(e)(3), and that Katz's misconduct did not warrant "substantially different discipline in this state." Rule 16-773(e)(4). The failure to file tax returns, however, is a serious crime that reflects adversely on Katz's fitness as a lawyer. Although following Virginia's closed-end six-month suspension may not result in a "grave injustice" under Rule 16-773(e)(3), Katz's conduct warrants "substantially different discipline in this state." Rule 16-773(e)(4); see Atkinson, 357 Md. at 652, 745 A.2d at 1089-90; Baldwin, 308 Md. at 408, 519 A.2d at 1297. We must consider the facts and circumstances of the specific case in light of our precedent, in order "not to punish the errant attorney, but rather ... to maintain public trust in the legal profession by demonstrating intolerance for unprofessional conduct." Breschi, 340 Md. at 602, 667 A.2d at 665; Myers, 333 Md. at 446-47, 635 A.2d at 1318.
Following his six-month suspension from the Virginia bar, Katz has been suspended in four other jurisdictions, including the Court of Appeals of the District of Columbia, the U.S. District Court for the District of Columbia, the U.S. District Court for the District of Maryland, and the U.S. Court of Federal Claims. He has been reinstated in each of these jurisdictions (or apparently will be in short order), saving the U.S. Court of Appeals for the District of Columbia Circuit, in which court the disciplinary matter remains pending at this time. We are told that Katz has been consistent and current in meeting his obligations under the payment agreement for all taxes, penalties, and interests owed to the State of Maryland and according to the conditions of his probation of his now-stayed criminal conviction for his misconduct. His misconduct, though serious, appears not to have involved fraudulent intent.
BATTAGLIA, ADKINS, and BARBERA, JJ., dissent.
ADKINS, J., Dissenting.
I agree with the Majority's declining to impose reciprocal discipline. Yet I most respectfully dissent because the Majority imposes a sanction knowing virtually nothing about the circumstances of Respondent's failure to file his Maryland tax returns. It thus ignores our precedent that, in failure to file cases, particular circumstances are important. Instead, I would suspend Respondent effective immediately under Rule 16-773(d) and designate a judge of the Circuit Court of Anne Arundel County pursuant to Rule 16-773(f) to hold a hearing to develop the factual record in the current case.
This case comes to the Court as a reciprocal discipline case. Both Bar Counsel and Respondent ask this Court to impose corresponding discipline of a six month suspension as was ordered in the state of Virginia. I concur in the Majority's holding that reciprocal discipline is not appropriate in this case because Maryland should impose a substantially different sanction for attorneys who willfully fail to file income tax returns.
In deviating from imposing reciprocal discipline, I stress the locale of Respondent's misconduct in this case. First, it is important that the misconduct occurred in Maryland. It was the State of Maryland that was deprived of over $700,000 in tax revenue, and it was the State of Maryland that convicted Respondent of willfully failing to file his income tax returns. This Court should not be constrained to a six month reciprocal discipline sanction simply because Virginia acted first in initiating disciplinary proceedings against Respondent. Second, as I explain below, "[t]he repeated failure to timely file tax returns is a serious violation of the MRPC." Attorney Grievance Comm'n v. Tayback, 378 Md. 578, 588, 837 A.2d 158, 164 (2003).
Once we decide against reciprocal discipline, the question then becomes what sanction Maryland should impose on an attorney who willfully fails to file his income tax returns. I concede that the caselaw supports the Majority's imposition of
This Court's seminal case for failure to file income tax return cases is Attorney Grievance Commission v. Walman.
Following Walman, we held that the failure to file involved moral turpitude when the intention of the attorney was to cheat and defraud the government. See, e.g., Attorney Grievance Comm'n v. Barnes, 286 Md. 474, 480, 408 A.2d 719, 723 (1979) ("We think that Barnes' [willful failure to file income tax returns] involved moral turpitude since his intention was to cheat the government and his fellow citizens by avoiding payment of the substantial taxes justly due."). This Court explained:
Attorney Grievance Comm'n v. Gilland, 293 Md. 316, 318, 443 A.2d 603, 605 (1982). In 1987, the term "moral turpitude" was removed from the rules of professional responsibility.
The professional rules detailing attorney misconduct use different terminology today than they did when Walman and Barnes were decided. A 1987 law review commented,
See Survey: Development In Maryland Law, 1985-86, 46 Md. L.Rev. 541, 577 (1987). This Court has explained:
Attorney Grievance Comm'n v. Atkinson, 357 Md. 646, 650, 745 A.2d 1086, 1088 (2000). A willful failure to file is also conduct prejudicial to the administration of justice in violation of Rule 8.4(d). Id. at 651, 745 A.2d at 1088-89.
This Court has since continued to require a finding of an intent to cheat or defraud the government
We should not lose sight of the importance of intention and motive in fashioning a sanction for the failure to file tax returns. Attorney Grievance Comm'n v. Gavin, 350 Md. 176, 197, 711 A.2d 193, 204 (1998); Attorney Grievance Comm'n v. Breschi, 340 Md. 590, 602, 667 A.2d 659, 665 (1995) ("Because motive plays a large part in the determination of proper sanctions, and because in failure to file cases the motive is sometimes deceitful and sometimes not, we have rendered diverse sanctions in such cases over the years.").
The question of when the failure to file income tax returns qualifies as an intentional
First, if the failure to file income tax returns is found to be willful, then it is an intentional act. This Court has long accepted that the word "willfully" "requires only that the Government prove a voluntary, intentional violation of a known legal duty, and that the failure to file was not through accident or mistake or other innocent cause." Walman, 280 Md. at 460, 374 A.2d at 359 (citations omitted); see also Tayback, 378 Md. at 589, 837 A.2d at 165 ("In attorney grievance matters based on the willful failure to file tax returns, this Court has consistently defined willfulness as the voluntary, intentional violation of a known legal duty not requiring a deceitful or fraudulent motive." (citations and quotation marks omitted)).
Second, finding the crime of willful failure to file income tax returns to be a dishonest act will be the "most logically expected conclusion." Atkinson, 357 Md. at 654, 745 A.2d at 1091. This Court has previously observed that "[t]he repeated failure to file tax returns ... is not a minor criminal offense, [it]
When an attorney fails to file an income tax return, he fails "to do that which every citizen of this republic knows that he must do if his income is more than a mere pittance." Walman, 280 Md. at 471, 374 A.2d at 365 (Smith, J., dissenting). By failing to fulfill this most basic of civic duties, "a lawyer appears to the public to be placing himself above [the] law" and "may seriously impair public confidence in the entire profession." Id. at 465, 464, 374 A.2d at 361 (majority opinion).
In Barnes, the attorney failed to file tax returns for two years, and presented substantial mitigating evidence — medical evidence of serious health problems, as well as evidence that he and his family were the subject of serious harassment by the Ku Klux Clan motivated by his representation of African-Americans as well as wives of Clan members in divorce proceedings. Nevertheless, the Court assessed his failure to file as serious misconduct justifying disbarment:
Barnes, 286 Md. at 480, 408 A.2d at 723.
In short, an attorney's willful failure to file income tax returns represents either (1) a lie that the attorney did not make sufficient income to be required to file a return, or (2) is a blatant disregard for the most basic requirement of all citizens of this country. In either case, the willful failure to file is marked by a lack of honesty, and the conduct constitutes a dishonest act.
Unfortunately, Virginia, in its proceedings against Respondent, developed no factual record for us to rely on. We have no information other than that Respondent intentionally failed to file income tax returns. The Majority has pronounced its willingness to act on a bare record, suspending him, without considering facts and circumstances mandated by our cases. In the absence of extenuating circumstances, in my view, Respondent's admitted crime is an intentional dishonest act subject to the most severe sanction of disbarment. I would suspend Respondent effective immediately pursuant to Rule 16-773(d) and designate a judge of the Circuit Court of Anne Arundel County to hold a hearing on the current case. See Md. R. 16-773(f). At the hearing, facts should be developed that reflect on Respondent's intent to cheat the government as well as any extenuating circumstances that would justify imposing a lesser sanction than disbarment.
Judges BATTAGLIA and BARBERA authorize me to state that they agree with the views set forth herein.
(Emphasis added.)
(Emphasis added.) The court found that Katz's criminal convictions did not consist of "misrepresentation, fraud ... [or] deceit." In Re Gerald I. Katz, at 3. It is reasonable to deduce, therefore, that the court did not find that Katz's willful failure to file his Maryland tax returns involved an element of fraud, deceit, or misrepresentation. Hence, fraudulent intent was not found to be part of Katz's misconduct.