"Congres created this Commission on Structural Alternatives for the Federal Courts of Appeals in late 1997. It did so in the wake of controversy over whether the court of appeals for the Ninth Circuit - the largest federal court of appeals - has grown to a point that it cannot function effectively and whether, in response, Congress should split the Ninth Circuit to create two or more smaller courts. The statute directed the Commission to study the present circuit configuration and the structure and alignment of the courts of appeals, with particular reference to the Ninth Circuit. It further directed it to submit to Congress by December 18, 1998, recommendations to the President and Congress on changes in circuit boundaries or structure as may be appropriate for the expeditious and effective disposition of the appellate caseload, consistent with fundamental concepts of fairness and due process." -- p. ix.