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Attorneys who represent governments in judicial proceedings or provide legal counsel to government policy makers are “government lawyers.” Government lawyers perform a variety of roles, from routine criminal prosecutions to advising presidents or parliaments on the broader policy concerns embedded in legal controversies. The policy-making role of government lawyers, like the role of courts, varies greatly from one political system to the next. Nevertheless, there are common dimensions to the work of government lawyers, and their role as policy makers has grown alongside that of courts and the legal-administrative state.

The Size and Structure of Governmental Law Offices

The size and structure of the government's legal administrative offices will depend upon the constitutional features and policy-making processes of the political system. Federal systems of government usually require separate legal offices at both the national level and the state or local level. Separation of powers systems (with a presidential executive) tend to have more legal offices than parliamentary systems, since during periods of conflict each branch seeks independent legal advice and representation. Federalism, the separation of powers, and the sweeping policy-making powers of courts have made government lawyers in the United States both numerous and important policy actors.

United States

There is no accurate count of the total number of lawyers employed by governments in the United States or around the world. In 2004, the U.S. Department of Justice employed more than 11,000 attorneys and had a budget in excess of $22 billion. Thousands more lawyers are employed in counsels' offices of executive branch agencies and departments, including the White House Legal Counsel's Office, and in Congress as staff counsel to legislative committees or in the House and Senate's counsels offices. Even the Supreme Court has its own in-house legal counsel's office to advise Court members. At the state level, governmental law offices range in size from the Department of Law in California, which employs over a thousand lawyers, to relatively small attorney generals' offices in states like Montana that employ only a few full-time attorneys. In addition, many more government attorneys work as prosecutors or legal counsel for cities, counties, municipalities, and other local governmental units.

The premier government lawyer in the United States is the attorney general (AG). The AG's office was established under the Judiciary Act of 1789, and originally operated as a quasi-judicial institution. In 1870, Congress created the Justice Department and placed the AG at its head. The AG is appointed by the president and confirmed by the Senate. The AG is a member of the president's cabinet and a key adviser to the White House on judicial selection and legal policy matters. Originally the AG had little authority over the U.S. district attorneys (prosecutors in each federal judicial district) or over the solicitors and legal counsel in other executive branch departments and agencies. The early history of the AG's office was marked by struggles to consolidate control over the work of these and other government law officers. In 1870, the district attorneys' offices were brought within the Justice Department and placed under the control of the AG. Gradually a division of authority over government lawyering functions emerged in the federal government, and today, with few exceptions, federal departments and agencies are advised on routine legal matters by in-house counsels, while Justice Department lawyers control most federal litigation and prosecution.

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