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Testifying at her confirmation hearings that same year, Justice Ketanji Brown Jackson seemed to endorse originalism. “I believe that the Constitution is fixed in its meaning,” she said, noting approvingly, “that’s a limitation on my authority to import my own policy.”

To Breyer, that supposed constraint is illusory at best. Instead, he endorses an interpretive method that came before, under which judges would read text, yes, but also look to additional sources, from legislative history to statutory purpose to simple common sense.

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It starts with snails.

Breyer, a noted Francophile, uses a story from a French newspaper to illustrate the role of the appellate judge. A woman is riding a train from Nantes to Paris with a basket of 20 live snails. The conductor told her she had to pay up, citing rules that required each “animal” to have a ticket. The woman protests, insisting that the requirement was surely meant for cats and dogs, not escargots.

“There you have the interpretive job of an appellate judge,” Breyer writes. “How do we find the ‘right’ answer?” (Breyer doesn’t rule definitively, but it’s safe to guess he would come down anti-snail-tax.)

The more important part of Breyer’s book is his takedown of conservatives’ belief that the Constitution must be discerned by plumbing the language of the document and historical practice at the time of its enactment.

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Thus, in Breyer’s final term, the six-justice conservative supermajority junked what had become the universally accepted test for determining the constitutionality of gun restrictions, balancing the potential infringement on the rights of gun owners with the need for public protection. Instead, the court, in New York State Rifle & Pistol Association v. Bruen, insisted that those defending a gun restriction identify a historical “analogue,” an “American tradition” justifying the limitation.

The following day, in Dobbs v. Jackson Women’s Health Organization, a slimmer majority overruled the right to abortion. As Breyer writes in his book: “The majority’s reasoning boiled down to one basic proposition: Because the people who ratified the original Constitution and the Fourteenth Amendment did not understand the document to protect reproductive rights, the document could not be read, now, as protecting those rights.” Of course, the “people” who ratified the document were only White men. But we are, originalists insist, forever captive — absent constitutional amendment — to their limited horizons.

In fact, Breyer writes, the framers themselves “understood that they were defining a framework intended to endure and adapt to changing circumstances over hundreds of years. This flexible feature of our Constitution has permitted American society, including the courts, to recognize new facets of the right to liberty and equality that the document protects: the right to contraception, to same-sex intimacy, to interracial marriage, to gay marriage.”

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Breyer ticks through the many other problems with originalism: That its intentionally broad phrases, “representing general values subject to a degree of change over time,” aren’t amenable to a search for “original meaning.” That tasking judges with engaging in that enterprise is to force them to do something, rooting their way through history, for which they are not well suited.

And: That it is inherently “regressive,” forestalling “modern solutions to modern problems.” That by insisting on “rigid, perhaps dogmatic, broad rules,” it “can lead the law away from, not toward, protection” of the Constitution’s “underlying values.” That the tension between applying original meaning and respecting precedent “threatens the law’s stability” and, contrary to the protestations of originalists, lets judges decide constitutional cases “according to what they think is ‘good.’”

So, what would Breyer put in its place? He proposes a return to a judicial interpretation that takes text as one among many tools in the judicial toolbox (legislative history, historical practice, underlying purpose) but that also focuses on — this is Breyer’s favorite word — workability. There is, he writes, “an overarching, practical need to maintain the values that lie at the heart of a document meant to last; in other words, to maintain a workable Constitution.”

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This is a view nearly as old as the Constitution itself. It dates to Chief Justice John Marshall’s 1819 decision in McCulloch v. Maryland, upholding Congress’s authority to charter a federal bank even though creating such an institution was not among the national legislature’s enumerated powers. Marshall wrote of a document “intended to endure for ages to come, and consequently to be adapted to the various crises of human affairs.”

Breyer worries, with good reason, the court is on the verge of (I’d argue that it has already fallen prey to) a paradigm shift on the order of the discredited Lochner era of the early 20th century, when the Supreme Court routinely frustrated progressive legislation and regulations. But Breyer’s hope that the new conservative justices brethren will somehow abandon originalism—“There are many years left for the newly appointed justices to decide whether they want to build the law using only textualism and originalism,” he writes — strikes me as grasping at straws. Yes, conservatives will look to purpose and consequence — when it serves their purpose, and the text is inconvenient. See, for example, the recent ruling on whether Colorado could kick Trump off the primary ballot.

Still, to read “Reading the Constitution” is to better understand Breyer’s reluctance to leave, and thereby cede the field to proponents of textualism and originalism. He laments that in two cases in the term following his retirement — cutting back on the scope of the Clean Water Act and barring colleges from taking race into account in admissions — even the liberal justices were playing the textualist-originalist game. They could have focused on the purpose of the Clean Water Act, not just dictionary definitions of “adjacent,” Breyer suggested. Instead of plumbing historical practice in the college admissions case, they could have emphasized, as Breyer did in the school integration case, the “basic objective of those who wrote the Equal Protection Clause”: to “forbid practices that lead to racial exclusion.”

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Breyer’s book isn’t going to cause the scales to fall from the eyes of committed originalists. They aren’t likely to be convinced of the error of their ways or that Breyer’s workability path is preferable. For my part, not that anyone’s giving me life tenure anytime soon, I would probably put more weight on text, especially in the statutory context, than Breyer does, but far more emphasis on purpose and legislative history than strict textualists countenance.

The real value of “Reading the Constitution” lies in having Breyer’s voice, as passionate as it is authoritative, on the other side of the debate. It is a dissent for the ages, even if it is, for this moment, a dissent.

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Over the course of his 28 years on the Supreme Court, Justice Stephen G. Breyer authored some 200 dissents, on everything from school integration to the death penalty to gun rights. But Breyer’s most important dissent might be the one that awaited his retirement: his new book taking on textualism and originalism, the dominant conservative approach to interpreting laws and the Constitution.

During his time on the bench, Breyer practiced what he preaches in “Reading the Constitution: Why I Chose Pragmatism, Not Textualism.” What the book contributes is a comprehensive refutation of the claimed virtues of justices hewing solely to statutory and constitutional text. Equally, if not more important, it offers what has been missing from the debate: laying out an alternative method of constitutional interpretation that explicitly considers the purposes underlying the language and the consequences of the resulting ruling.

Textualism and its constitutional big cousin — originalism — became the intellectual coin of the realm in the late 1980s, with the arrival of Justice Antonin Scalia. Conservatives embraced these theories as tools necessary to constrain judges from substituting their own policy preferences for the supposedly discernible dictates of language.

Meanwhile, the influence of the approach — much to Breyer’s evident frustration — extended beyond conservative justices and judges. “We’re all textualists now,” Justice Elena Kagan announced in 2015, although she would later amend that assessment in a biting 2022 dissent, noting, “the current Court is textualist only when being so suits it.”

Testifying at her confirmation hearings that same year, Justice Ketanji Brown Jackson seemed to endorse originalism. “I believe that the Constitution is fixed in its meaning,” she said, noting approvingly, “that’s a limitation on my authority to import my own policy.”

To Breyer, that supposed constraint is illusory at best. Instead, he endorses an interpretive method that came before, under which judges would read text, yes, but also look to additional sources, from legislative history to statutory purpose to simple common sense.

It starts with snails.

Breyer, a noted Francophile, uses a story from a French newspaper to illustrate the role of the appellate judge. A woman is riding a train from Nantes to Paris with a basket of 20 live snails. The conductor told her she had to pay up, citing rules that required each “animal” to have a ticket. The woman protests, insisting that the requirement was surely meant for cats and dogs, not escargots.

“There you have the interpretive job of an appellate judge,” Breyer writes. “How do we find the ‘right’ answer?” (Breyer doesn’t rule definitively, but it’s safe to guess he would come down anti-snail-tax.)

The more important part of Breyer’s book is his takedown of conservatives’ belief that the Constitution must be discerned by plumbing the language of the document and historical practice at the time of its enactment.

Thus, in Breyer’s final term, the six-justice conservative supermajority junked what had become the universally accepted test for determining the constitutionality of gun restrictions, balancing the potential infringement on the rights of gun owners with the need for public protection. Instead, the court, in New York State Rifle & Pistol Association v. Bruen, insisted that those defending a gun restriction identify a historical “analogue,” an “American tradition” justifying the limitation.

The following day, in Dobbs v. Jackson Women’s Health Organization, a slimmer majority overruled the right to abortion. As Breyer writes in his book: “The majority’s reasoning boiled down to one basic proposition: Because the people who ratified the original Constitution and the Fourteenth Amendment did not understand the document to protect reproductive rights, the document could not be read, now, as protecting those rights.” Of course, the “people” who ratified the document were only White men. But we are, originalists insist, forever captive — absent constitutional amendment — to their limited horizons.

In fact, Breyer writes, the framers themselves “understood that they were defining a framework intended to endure and adapt to changing circumstances over hundreds of years. This flexible feature of our Constitution has permitted American society, including the courts, to recognize new facets of the right to liberty and equality that the document protects: the right to contraception, to same-sex intimacy, to interracial marriage, to gay marriage.”

Breyer ticks through the many other problems with originalism: That its intentionally broad phrases, “representing general values subject to a degree of change over time,” aren’t amenable to a search for “original meaning.” That tasking judges with engaging in that enterprise is to force them to do something, rooting their way through history, for which they are not well suited.

And: That it is inherently “regressive,” forestalling “modern solutions to modern problems.” That by insisting on “rigid, perhaps dogmatic, broad rules,” it “can lead the law away from, not toward, protection” of the Constitution’s “underlying values.” That the tension between applying original meaning and respecting precedent “threatens the law’s stability” and, contrary to the protestations of originalists, lets judges decide constitutional cases “according to what they think is ‘good.’”

So, what would Breyer put in its place? He proposes a return to a judicial interpretation that takes text as one among many tools in the judicial toolbox (legislative history, historical practice, underlying purpose) but that also focuses on — this is Breyer’s favorite word — workability. There is, he writes, “an overarching, practical need to maintain the values that lie at the heart of a document meant to last; in other words, to maintain a workable Constitution.”

This is a view nearly as old as the Constitution itself. It dates to Chief Justice John Marshall’s 1819 decision in McCulloch v. Maryland, upholding Congress’s authority to charter a federal bank even though creating such an institution was not among the national legislature’s enumerated powers. Marshall wrote of a document “intended to endure for ages to come, and consequently to be adapted to the various crises of human affairs.”

Breyer worries, with good reason, the court is on the verge of (I’d argue that it has already fallen prey to) a paradigm shift on the order of the discredited Lochner era of the early 20th century, when the Supreme Court routinely frustrated progressive legislation and regulations. But Breyer’s hope that the new conservative justices brethren will somehow abandon originalism—“There are many years left for the newly appointed justices to decide whether they want to build the law using only textualism and originalism,” he writes — strikes me as grasping at straws. Yes, conservatives will look to purpose and consequence — when it serves their purpose, and the text is inconvenient. See, for example, the recent ruling on whether Colorado could kick Trump off the primary ballot.

Still, to read “Reading the Constitution” is to better understand Breyer’s reluctance to leave, and thereby cede the field to proponents of textualism and originalism. He laments that in two cases in the term following his retirement — cutting back on the scope of the Clean Water Act and barring colleges from taking race into account in admissions — even the liberal justices were playing the textualist-originalist game. They could have focused on the purpose of the Clean Water Act, not just dictionary definitions of “adjacent,” Breyer suggested. Instead of plumbing historical practice in the college admissions case, they could have emphasized, as Breyer did in the school integration case, the “basic objective of those who wrote the Equal Protection Clause”: to “forbid practices that lead to racial exclusion.”

Breyer’s book isn’t going to cause the scales to fall from the eyes of committed originalists. They aren’t likely to be convinced of the error of their ways or that Breyer’s workability path is preferable. For my part, not that anyone’s giving me life tenure anytime soon, I would probably put more weight on text, especially in the statutory context, than Breyer does, but far more emphasis on purpose and legislative history than strict textualists countenance.

The real value of “Reading the Constitution” lies in having Breyer’s voice, as passionate as it is authoritative, on the other side of the debate. It is a dissent for the ages, even if it is, for this moment, a dissent.

QOSHE - In a new book, Breyer makes the case for setting originalism aside - Ruth Marcus
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In a new book, Breyer makes the case for setting originalism aside

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22.03.2024

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Testifying at her confirmation hearings that same year, Justice Ketanji Brown Jackson seemed to endorse originalism. “I believe that the Constitution is fixed in its meaning,” she said, noting approvingly, “that’s a limitation on my authority to import my own policy.”

To Breyer, that supposed constraint is illusory at best. Instead, he endorses an interpretive method that came before, under which judges would read text, yes, but also look to additional sources, from legislative history to statutory purpose to simple common sense.

Advertisement

It starts with snails.

Breyer, a noted Francophile, uses a story from a French newspaper to illustrate the role of the appellate judge. A woman is riding a train from Nantes to Paris with a basket of 20 live snails. The conductor told her she had to pay up, citing rules that required each “animal” to have a ticket. The woman protests, insisting that the requirement was surely meant for cats and dogs, not escargots.

“There you have the interpretive job of an appellate judge,” Breyer writes. “How do we find the ‘right’ answer?” (Breyer doesn’t rule definitively, but it’s safe to guess he would come down anti-snail-tax.)

The more important part of Breyer’s book is his takedown of conservatives’ belief that the Constitution must be discerned by plumbing the language of the document and historical practice at the time of its enactment.

Advertisement

Thus, in Breyer’s final term, the six-justice conservative supermajority junked what had become the universally accepted test for determining the constitutionality of gun restrictions, balancing the potential infringement on the rights of gun owners with the need for public protection. Instead, the court, in New York State Rifle & Pistol Association v. Bruen, insisted that those defending a gun restriction identify a historical “analogue,” an “American tradition” justifying the limitation.

The following day, in Dobbs v. Jackson Women’s Health Organization, a slimmer majority overruled the right to abortion. As Breyer writes in his book: “The majority’s reasoning boiled down to one basic proposition: Because the people who ratified the original Constitution and the Fourteenth Amendment did not understand the document to protect reproductive rights, the document could not be read, now, as protecting those rights.” Of course, the “people” who ratified the document were only White men. But we are, originalists insist, forever captive — absent constitutional amendment — to their limited horizons.

In fact, Breyer writes, the framers themselves “understood that they were defining a framework intended to endure and adapt to changing circumstances over hundreds of years. This flexible feature of our Constitution has permitted American society, including the courts, to recognize new facets of the right to liberty and equality that the document protects: the right to contraception, to same-sex intimacy, to interracial marriage, to gay marriage.”

Advertisement

Breyer ticks through the many other problems with originalism: That its intentionally broad phrases, “representing general values subject to a degree of change over time,” aren’t amenable to a search for “original meaning.” That tasking judges with engaging in that enterprise is to force them to do something, rooting their way through history, for which they are not well suited.

And: That it is inherently “regressive,” forestalling “modern solutions to modern problems.” That by insisting on “rigid, perhaps dogmatic, broad rules,” it “can lead the law away from, not toward, protection” of the Constitution’s “underlying values.” That the tension between applying original meaning and respecting precedent “threatens the law’s stability” and, contrary to the protestations of originalists, lets judges decide constitutional cases “according to what they think is ‘good.’”

So, what would Breyer put in its place? He proposes a return to a judicial interpretation that takes text as one........

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