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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 Strange and Dangerous Attacks on the Recovery Plan’s Condition on State Tax Cuts
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Sunday, March 21, 2021
Strange and Dangerous Attacks on the Recovery Plan’s Condition on State Tax Cuts
David Super
Quite remarkably,
some Republican state officials are attacking
the constitutionality of the new section 602(c)(2)(A) of the Social Security
Act added by section 9901 of the recently-enacted American Recovery Plan Act (ARPA). This provision reduces federal fiscal aid to
states by the amount of any state tax cuts.
Congress included the ARPA provision at a time when several
Republican
governors
were
advocating dramatic tax cuts despite the economic weakness caused by the
pandemic. The assertion that this condition
is unconstitutional is remarkable in at least two ways. First, it is utterly without foundation on
even the most aggressive reading of the Constitution and the Supreme Court’s
precedents. And second, this theory’s
implications, far from being an advance of states’ rights, are utterly
devastating for the autonomy and independence of states. Those making this claim therefore are
privileging the sugar-high of tax cuts over principles of federalism that the
Republican Party once insisted were sacrosanct.
When combined with widespread Republican acceptance of the Trump Administration’s
flippant
federalism, this suggests that we are entering an era when neither of the
country’s two major political parties have any deep commitment to protecting
the prerogatives of the states. That shift
could transform the structure of this country’s governance. On the merits, the challenge to the
ARPA condition is absurd. Nothing in the
Constitution limits the federal government’s ability to transfer funds to the
states to promote the general welfare, and nothing prohibits it from imposing
conditions on receipt of those funds. The
federal government has been making conditional grants to the states for a very
long time. For a textualist or an
originalist, that ought to be enough to dismiss this claim out of hand. Caselaw provides no support for
this claim, either. The Supreme Court
has recognized
limits to Congress’s
authority to command state or local governments to carry out a federal agenda
against their will. But ARPA does not command
anything: it merely attaches a condition
to money being offered to states. And the ARPA tax-cut provision falls
well within the range of what the Court has accepted as funding conditions. The post-New Deal Supreme Court brushed aside
challenges to Congress’s ability to make conditional grants to states, ushering
in the modern era of cooperative federalism.
It also upheld
congressional efforts to influence state tax policy, approving sections of the
Social Security Act that effectively increase a federal tax on employers whose
states do not assess them a state tax to support unemployment compensation benefits. Numerous social welfare,
transportation, environmental, law enforcement, and other programs have
operated on the basis of conditional federal grants. Quoting Chief Justice Burger, Chief Justice
Rehnquist noted
that incident to its spending power, “Congress may attach conditions on the
receipt of federal funds, and has repeatedly employed the power ‘to further
broad policy objectives by conditioning receipt of federal moneys upon
compliance by the recipient with federal statutory and administrative
directives.’" He also reiterated a
pre-New Deal holding that “the power of Congress to authorize expenditure of
public moneys for public purposes is not limited by the direct grants of
legislative power found in the Constitution. Thus, objectives not thought to be
within Article I's enumerated legislative fields, may nevertheless be attained
through the use of the spending power and the conditional grant of federal
funds.” More recently, the Court has
recognized three limitations on Congress’s ability to condition funding to
states. None of these limitations,
however, comes anywhere near causing a problem for the ARPA provision. First, the Court has held that
conditions must be open and obvious so that states know to what they are committing
when they accept the funds. The tax-cut
condition appears explicitly on the face of ARPA: the fact that it has become controversial
days after enactment, long before any state submitted the certifications required
to receive Fiscal Recovery Funds, demonstrates how open and obvious the
condition is. Second, the Court has held that conditions
on funding must be reasonably related to the purpose of the funding. Congress probably could not condition Medicaid
funding on a state changing its state bird.
In an opinion by Chief Justice Rehnquist, however, the Court upheld conditioning
federal highway funding on adoption of a 21-year-old drinking age. The Court found that Congress was reasonable
in its belief that allowing younger persons to purchase and possess alcohol
could increase drunk-driving deaths. The
Court brushed aside the state’s argument that controlling the sale of liquor
was a core state power secured by the Twenty-First
Amendment, noting that Congress had not denied the state that power but
merely reduced its support for highways that it believed would be more
dangerous as a result of a particular choice.
The ARPA condition has an even closer substantive relationship to the
funding provided than does the drinking age that the Court upheld: it constrains how the very funds being
provided are spent. Finally, in the Court’s first case
on the Affordable Care Act (NFIB v. Sebelius),
it held that Congress could not suddenly increase the conditions on federal Medicaid
funding by requiring states to expand eligibility to large populations that the
program previously had not served. The problem,
Chief Justice Roberts wrote, was that states had become so dependent on
Medicaid funding that opting out was no longer a plausible option for
them. With states in this position, Congress
effectively put “a gun to the head” of any state wanting to deny Medicaid to non-elderly
adults without a disability or pregnancy.
With no other federal program providing remotely as much money to states,
the “gun-to-the-head” standard may not apply outside
of the Medicaid context. But it
certainly does not apply to money that states have no legal right to receive
and in fact have not been receiving. This is where the Republican officials’
argument becomes so remarkable. To
invoke the NFIB principle, they essentially must argue that denying
states fiscal relief in this crisis is pointing a gun to the states’ heads. The Court found the ACA’s Medicaid expansion condition
coercive only because it found that states had become so dependent on Medicaid
funding that they had developed an implicit right to have it continue. ARPA’s fiscal relief is not continuing
funding at all: states received some
fiscal relief under last year’s CARES Act, but congressional Republicans and
President Trump steadfastly opposed providing any more, reportedly sinking potential
bipartisan agreements on further coronavirus relief measures because they so
adamantly opposed Democrats’ insistence on more fiscal relief. Had the Democrats not won the two Georgia senatorial
run-offs, states almost certainly would not be receiving any further fiscal
relief, conditional or otherwise. To say
that states were so dependent on this money that it cannot legitimately be
conditioned is quite detached from its recent history. These attacks also posit a model of
federal-state relations radically at odds with the states’ rights position
Republicans have taken for the past half-century. The model Republican attorneys general seem
to advocate is one under which states reduce their own revenue-raising and rely
on federal funds instead. This is hardly
consistent with states as fully equal sovereigns. And this hardly seems a model that the
Supreme Court’s conservative majority would want to embrace. Even an obsessive focus on state
tax cuts funded by state program cuts leaves more and more problems unaddressed,
eventually leading to greater federal involvement. But insisting that states have a constitutional
right to unconditional federal fiscal assistance to fund state tax cuts is very
difficult to square with any coherent conception of federalism and would leave
states increasingly as spending agents for the federal government. That leading Republicans are making this
argument suggests that their party is ceasing to be a consistent defender of
states’ role in our system in favor of a relentless pursuit of tax cuts (and
other its other substantive priorities).
Although the Democrats did steadfastly
press for state fiscal relief, I do not see that party taking up the states’
banner on any consistent basis, either.
In a political environment where loyalties to parties are far stronger
than those to particular institutions of government, having neither major party
deeply committed to states’ vitality could result in a lasting weakening of their
position in our system. Whether or not
one believes the states’ traditional roles should be maintained, that is a big
change. @DavidASuper1
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