Persons seeking structural reform of powerful institutions have increasingly used public law litigation' in their continuing and multi-faceted struggle to realize the ideal of human dignity in the administration of justice. Such complex civil litigation is invariably emotional and can polarize whole communities: the plaintiffs raise grievances essential to their economic and spiritual welfare, while the defendants see such suits as affronts to their carefully-considered, even-handed professional and administrative judgments. In the ensuing all-out legal warfare, the parties may expend extravagant amounts of money and time before the issues are finally decided.