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Balkinization Symposiums: A Continuing List                                                                E-mail: Jack Balkin: jackbalkin at yahoo.com Bruce Ackerman bruce.ackerman at yale.edu Ian Ayres ian.ayres at yale.edu Corey Brettschneider corey_brettschneider at brown.edu Mary Dudziak mary.l.dudziak at emory.edu Joey Fishkin joey.fishkin at gmail.com Heather Gerken heather.gerken at yale.edu Abbe Gluck abbe.gluck at yale.edu Mark Graber mgraber at law.umaryland.edu Stephen Griffin sgriffin at tulane.edu Jonathan Hafetz jonathan.hafetz at shu.edu Jeremy Kessler jkessler at law.columbia.edu Andrew Koppelman akoppelman at law.northwestern.edu Marty Lederman msl46 at law.georgetown.edu Sanford Levinson slevinson at law.utexas.edu David Luban david.luban at gmail.com Gerard Magliocca gmaglioc at iupui.edu Jason Mazzone mazzonej at illinois.edu Linda McClain lmcclain at bu.edu John Mikhail mikhail at law.georgetown.edu Frank Pasquale pasquale.frank at gmail.com Nate Persily npersily at gmail.com Michael Stokes Paulsen michaelstokespaulsen at gmail.com Deborah Pearlstein dpearlst at yu.edu Rick Pildes rick.pildes at nyu.edu David Pozen dpozen at law.columbia.edu Richard Primus raprimus at umich.edu K. Sabeel Rahmansabeel.rahman at brooklaw.edu Alice Ristroph alice.ristroph at shu.edu Neil Siegel siegel at law.duke.edu David Super david.super at law.georgetown.edu Brian Tamanaha btamanaha at wulaw.wustl.edu Nelson Tebbe nelson.tebbe at brooklaw.edu Mark Tushnet mtushnet at law.harvard.edu Adam Winkler winkler at ucla.edu Compendium of posts on Hobby Lobby and related cases The Anti-Torture Memos: Balkinization Posts on Torture, Interrogation, Detention, War Powers, and OLC The Anti-Torture Memos (arranged by topic) Recent Posts Asymmetric Specification, Professional Norms, And Abstention
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Friday, February 11, 2022
Asymmetric Specification, Professional Norms, And Abstention
Guest Blogger
For the Balkinization symposium on Aziz Huq, The Collapse of Constitutional Remedies (Oxford University Press, 2021). Lee Kovarsky The court hereby dismisses the excessive force claim because
the constitutional law wasn’t clearly established. The court hereby admits the constitutionally
tainted evidence because police reasonably believed they had legal authority
for unlawful seizure by force. The court hereby refuses to address the constitutional
error because at least one jurist might agree with the state decision. And so it goes. Aziq Huq’s The
Collapse of Constitutional Remedies (“Collapse”) is a brilliant-but-dispiriting
account of a very particular taste for judicial abstention. Per Huq, the Senate’s
advice-and-consent function combines with judicial self-interest to produce a federal
bench that skimps on remedies for unlawful state coercion. Huq starts with the
familiar observation that Constitution’s third
article was skeletal, and that it left much for subsequent institutional
settlement. Appointed judges were to be, in the Framers’ thinking, non-partisan
technocrats who resolved disputes by reference to reasonably determinate legal
texts. The “law” would be largely unresponsive to the fields of political
gravitation operating on the other branches. Huq argues that three developments proved the Framers’
assumption unwise. First, advising-and-consenting Senators developed national partisan
allegiances that trumped any institutional interest in depoliticized judicial
appointments. Second, democratized legal education expanded the political
spectrum of lawyers qualified for federal judging. Third, the area of legal
uncertainty exploded—both because of more federal legislation and because people
began acknowledging frankly the indeterminacy of legal texts. The result was a more
heavily politicized judiciary, the modern version of which had institutional
interests in reduced caseloads. Collapse moves through the history by tracing the
rise and fall of four remedies: causes of action against (1) state and (2) federal
officials, (3) the habeas corpus writ, and (4) the Fourth Amendment
exclusionary rule. The historical account leaves little doubt about the linkage
between constitutional structure and the modern remedial deficit in state
coercion cases. And as these remedies for unlawfully coercive behavior move in
one direction, remedies for claims of unconstitutional structure—sounding in
familiar registers of federalism and separated powers—move in the other. This
remedial distribution privileges the interests of structurally advantaged
groups over their more vulnerable counterparts. I agree with Huq’s explanatory modeling almost completely, and
what I tender here is merely a more fulsome account of (what I take to be) a
central claim about abstention. (I use “abstention” as a general category that
captures all remedial restriction.) Huq identifies structural biases “bred in
constitutional bone,” and he says that, when they encounter certain shifts in
national politics, those biases explain why the Court might abstain in state-coercion
cases. But if the structure is biased against relief, then such bias might be expressed
in at least two different ways—by (1) reducing the scope of the
substantive right, or by (2) limiting remedies for violations thereof. I offer some
additional explanation for how judges settle on a particular mix of the two
and, by extension, under what conditions they might prefer abstention. One can fairly infer from the book’s declared subject matter
that Huq believes the distribution of judicial effort as between substance and abstention
will depend on certain things. Indeed, he emphasizes subtlety as a reason
why those seeking to re-draw boundaries might favor abstention: (Emphasis mine.) I want to identify at least two other
considerations that dictate the relative desirability of abstention strategies.
The first involves the degree to which remedial limits are decisionally
specified, relative to substantive ones. The second involves how narrow
professional communities of legal elites dispense esteem. First, if a judge disfavors relief for unlawful coercion, then
they would prefer abstention to substance under conditions of what I’ll call “asymmetric
specification.” All other things being equal, the judge would find it easier to
disable relief by adopting whatever strategy—remedial or substantive—is less
decisionally specified. If the judge is precedent-abiding, then professional
norms against overruling prior decisions do less constraining in
under-specified environments. On this theory, the judge’s appetite for
abstention is contingent upon specification. The law of state coercion is
specified asymmetrically because there are lot of decisions that specify substantive
limits, and fewer specifying remedial ones. A substantive revision simply faces
more decisional obstacles than does a new abstention rule. I do not want to
short-change Huq. His reference to “low-key” activity might be something along
the lines of what I’ve described here—because the judge’s distaste for relief in
state-coercion cases requires no frontal assault on established substance. In
crassly economic terms, the degree of decisional specification influences the
“cost” of abstention. Second, and with respect to what one might conceptualize as “demand,”
judges’ preference for abstention obviously depends on how that approach is
received by communities that they care about. When does a subtle move towards
state coercion exceed the psychic returns of a more open embrace? The answer
turns on the response of the relevant communities to which a judge belongs,
including a national political coalition and a narrower
cohort of legal elites. A national community of lightly informed laypeople is
unlikely to generate strong incentives for abstention; a subtle kiss to state
coercion may not produce political rejection, but it will produce little political
celebration. Judges, however, are also part of elite legal communities that
dispense chunks of professional esteem;
the availability of that esteem plausibly affects norms and judicial behavior. And
that community (of legal elites) certainly rewards rear-guard abstention
strategies—creating psychic upside and professional payoffs without political
blowback. I confess that I’m modeling at ten-thousand feet, but the
two points combine roughly as follows. Given constitutional structure, one can
expect more abstention when (1) substantive law is more densely populated with
decisional constraints and (2) more judges belong to professional communities
that perceive the effect of, and dispense esteem for, abstention rules. Maybe
its variables are a little obvious, but this model fits the data reasonably
well. For purposes of an accessible illustration, simply consider the
development and judicial consideration of SB8, the Texas abortion
restriction. (I am going to refer to abortion restrictions as coercive for the
purposes of illustrating the point, although I expect that certain people will
find that characterization off-putting.) Start with specification symmetry. On the substantive side
of the coercion equation, and as of today, controlling Supreme Court decisions foreclose
certain abortion restrictions. SB8 therefore includes a clever remedial umbrella.
Private parties unaffected by an abortion can
sue for civil penalties (statutory damages)
against people who facilitated (or intended to facilitate) an abortion
taking place after fetal cardiac activity, with no official involvement
required—other than the judge necessary to adjudicate the civil suit. The
statutory penalty is high enough to dissuade abortion providers from performing
abortions, and others from facilitating them. Because the statute barred
nonjudicial officials from any enforcement role, SB8 made it difficult to get a
pre-enforcement injunction against the unconstitutional abortion constraint. Sovereign
immunity shielded the state itself, and Texas plausibly argued that there was
no enforcing official to sue under Ex parte Young.
(Young formalized a long tradition of permitting, as a preemptive strike
against unconstitutional state action, pre-enforcement suits against state
officers.) On the substantive side, SB8 had nowhere to hide; the
underlying restrictions were invalid under Planned
Parenthood v. Casey and Roe v. Wade.
Because of asymmetric specification, however, there was room for creative
abstention. Young had language disfavoring injunctive suits against
state judges, although the language had never been considered in reference to a
state legislative framework like SB8: designed for the sole purpose of exploiting
a state-judge exception. In other words, the pertinent law of remedies was under-specified.
That under-specification created room for the SB8 proponents to argue, and
judges to entertain, the idea that state judges were immune from Young suits,
which had the broader effect of validating remedial abstention. The decision in
the Supreme
Court’s SB8 case—seizing on the remedial indeterminacy from Young—did
not “overturn Roe,” but it’s now near impossible to get an abortion in
Texas. And SB8 certainly demonstrates the professional esteem that
comes with comes with innovative abstention strategies. Former Antonin Scalia
Clerk and former Texas Solicitor General Jonathan Mitchell has been broadly
credited as the architect of SB8’s remedial trick, and he is hailed as a
conquering hero in certain conservative legal circles. The norming professional
affiliations that Mitchell cares about are not some broad cross-section of a
political community; they are The Hoover
Institute and The
Federalist Society. He is not a judge, but Mitchell’s rocketing profile
proves the important point: an elite professional community stands ready to
dispense the esteem crucial to encourage abstention strategies. * * * And so it went, again. The contemporary Supreme Court is controlled by Justices who
share not just broad political preferences, but also membership in a
small-and-well-defined cohort of conservative legal elites. When confronted
with precedent that defines more boundaries for substantive change than for remedial
innovation, one should expect such jurists, operating under the structural
influences that Huq describes, to gravitate towards abstention rules in state
coercion cases. Lee Kovarsky is the Bryant Smith Chair in Law and the
Co-Director of the Capital Punishment Center at the University of Texas School
of Law
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Press 2006) Andrew Koppelman, Same Sex, Different States: When Same-Sex Marriages Cross State Lines (Yale University Press 2006) Brian Tamanaha, Law as a Means to an End (Cambridge University Press 2006) Sanford Levinson, Our Undemocratic Constitution (Oxford University Press 2006) Mark Graber, Dred Scott and the Problem of Constitutional Evil (Cambridge University Press 2006) Jack M. Balkin, ed., What Roe v. Wade Should Have Said (N.Y.U. Press 2005) Sanford Levinson, ed., Torture: A Collection (Oxford University Press 2004) Balkin.com homepage Bibliography Conlaw.net Cultural Software Writings Opeds The Information Society Project BrownvBoard.com Useful Links Syllabi and Exams |