Mirror of Justice

A blog dedicated to the development of Catholic legal theory.
Affiliated with the Program on Church, State & Society at Notre Dame Law School.

Saturday, February 11, 2012

A Thought About What Makes a Burden "Substantial"

There has been some discussion about what it is that would make a "burden" qualify as "substantial" under the terms of the Religious Freedom Restoration Act.  I had a thought about this that I wanted to try out here.  It seems to me that the gravity of a burden is frequently intimately connected with the centrality, or importance, of the belief that is felt to be burdened: the more central, or important, the religious tenet or view, the greater the obligation that the claimant will feel in adhering to it, and the more substantial will be the burden felt by the claimant in having to endure not adhering to it.  Yet RFRA eliminated the inquiry into centrality.  That decision was, I think, intended to prevent courts from making judgments about (a) how important a belief was, in order to determine (b) how severe or substantial the burden was.  One reason for eliminating the centrality inquiry was an establishmentarian concern; another was a concern about competence.  

The difficulty is that the standard continues to be a "substantial" burden.  That cannot only mean a burden as to which a claimant sincerely objects on religious grounds.  But how would one determine a burden's substantiality without being permitted to inquire at all about a belief or practice's centrality, or importance?  I'm not even sure what the inquiry would look like.  And that may be why, in the RFRA case law, one tends to see a great deal of deference to the claimant about what constitutes a "substantial" burden in the first place (and cases often get resolved under the compelling interest leg) -- exactly because of the danger that an inquiry into the burden's gravity, or substantiality, can easily bleed over into an inquiry about the belief or practice's centrality, or importance, within the religious system.  Sometimes one sees the statement that a substantial burden is one where the state puts "substantial pressure on an adherent to modify his behavior and to violate his beliefs."  Thomas v. Rev. Bd.  But that only seems to restate a kind of subjective test -- how much pressure is "substantial pressure" will depend upon an inquiry about the nature of the coercion felt by the claimant in light of the religious belief's importance to the claimant.  Pressure only matters if the belief is religious (not generally a question) and about something important...or central.  That is, a claimant is sensitive to pressure if government is squeezing a pressure point.  But because centrality is no longer a cognizable concern, we are necessarily left with a healthy measure of deference to the claimant's feelings about the quality of the burden.  Thoughts?

Friday, February 10, 2012

A Question from Marty Lederman

Marty Lederman sends in the following in response to some of the discussion here about the contraception mandate.  I've opened comments for substantive responses to the specific questions that Marty asks.

I, too, am a longstanding proponent of RFRA, and of religious exemptions where the standards of RFRA are satisfied.  But Marc, before one even gets to the question of the "least restrictive means" of advancing the government’s public health interest, the employer would have to demonstrate a substantial burden on its exercise of religion.  And on that question, I remain genuinely baffled, because it seems to me the burden on religious exercise—the compelled “complicity with evil”—has merely been presumed, rather than explained, by virtually everyone involved in this debate.  

I am taking as a given a particular employer’s sincere belief that the use of contraception is sinful or greviously wrong, on religious grounds—and that material cooperation with that wrong would itself be wrongful.  Nevertheless, I would welcome anyone's careful and reasoned articulation of how the HHS rule would substantially burden an employer's religious exercise or, more to the point, how it would require material cooperation with evil under Catholic doctrine (or the equivalent under other religious precepts), or (as we now so often hear) "force the employer to choose between complying with the law or religious commands."  

Any employer's funds are, after all, invariably and regularly, but indirectly, used for activities that the employer considers wrong or sinful—through the government's use of taxes, the employee's use of salary, the employee's use of the employer's phone and computer (which of course might be used to purchase contraception, procure abortion services, etc.), and so on.  How is this case materially different?

Here, the state would merely be requiring the employer to offer a group health plan to its employees that covers all forms of medical care beneficial to health, including contraception.  (Contraception, that is to say, is hardly the focus of such a plan—it is but one of countless forms of health care that are required to be covered.)  The cost of the premiums would presumably be shared by the employer and employees, although it's not clear that federal law actually requires an employer payment.  (I may be wrong about that, but I don't believe federal law would require the employer to subsidize that plan at all—such subsidization is a function of market arrangements between employers and insurance companies.  I'll proceed here, however, on the assumption that, at least as a practical matter, virtually all employers would choose to pay part of the cost of the plan, in order to lower the premiums for their employees.)  The cost to the employer in subsidizing the group plan will, in turn, be reflected in lower salary payments to its employees.  In other words, the employer would have transferred the money in question to employees, anyway, but now that exchange will take a different form, one that facilitates a lower cost of health care through efficiencies of scale.  

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Walsh on Greenhouse

My friend Kevin Walsh has a smart reaction to the Linda Greenhouse column that I wrote about yesterday, noting that the least restrictive means portion of the RFRA standard is an almost sure loser for the Administration.  A bit from Kevin's analysis:

After beginning by criticizing the rhetoric of mandate opponents and noting the silence of mandate supporters on the question of conscience, Greenhouse states that “the purpose of this column is to examine the conscience claim itself, directly, to see whether it holds up.” But Greenhouse’s framing of the analysis reflects a basic misapprehension of the legal protections for religious liberty already embedded in federal law. Greenhouse writes that objecting religious institutions claim “a right to special treatment: to conscience that trumps law.” That is wrong: the objecting religious institutions claim that the mandate violates federal law. They do not argue that conscience “trumps law.” Far from placing conscience over law, the objecting institutions advance a claim under the law . . . .

The RFRA provides that the federal government cannot substantially burden the exercise of religion unless doing so is the least restrictive means of accomplishing a compelling government interest. Yet Greenhouse’s discussion contains no mention at all of the “least restrictive means” part of the test. Instead, Greenhouse says that a RFRA challenge “would pit the well-rehearsed public health arguments . . . against religious doctrine.” The omission is telling, because the weakest part of the government’s case will be this least restrictive means requirement. There are so many other ways for the federal government to accomplish its objectives that it should lose the RFRA claims on precisely this point.

Earlier in her column, Greenhouse notes the lack of a “full-throated defense” of the contraceptives mandate, “except on pure policy grounds.” The best explanation for the silence of the mandate supporters with respect to religious liberty may be the simplest: nobody likes to pick a fight that they cannot win.

Thursday, February 9, 2012

The Rhetoric and the Reality of Employment Division v. Smith

This column by Linda Greenhouse offering a defense of the HHS contraception mandate begins mistakenly, in my opinion, when it claims that the "obvious starting point" in considering the question of the claims of conscience being made against the mandate is "the 98 percent of sexually active Catholic women who, just like other American women, have exercised their own consciences and availed themselves of birth control at some point in their reproductive lives."  I think that is not the right place to begin, but it's territory that has been covered at length here and elsewhere.

The more interesting point that Greenhouse makes is that Employment Division v. Smith demonstrates that the claim made by those who are opposed to the contraception mandate -- a claim "to conscience that trumps law" -- is one which the Supreme Court emphatically rejected in Smith.  "[T]hat," Greenhouse writes, "is not a principle that our legal system embraces."

Both the way of posing the proposition and the conclusion seem, again, mistaken to me, but let's concede the former and explore the latter.  Suppose it is really true that we are dealing with a claim that "conscience trumps law."  "Our legal system," in fact, "embraces" just this claim in a great variety of situations.  If it did not, the Roman Catholic Church would be compelled to appoint female priests; it would be forbidden from offering sacramental wine to children; religious communities would be compelled to hire those who don't share their religious commitments.  Moreover, as Greenhouse recognizes later, "our legal system" responded to Smith by passing some statutes which make it highly likely that in some situations, "conscience trumps law."  So it simply is not true that "our legal system" does not make any room for the protection of conscience when it conflicts with law.

Greenhouse's praise for Smith also represents, I think, a widespread misconception about Smith.  The misconception is that Smith is an iron rule with no exceptions -- that any law which appears "neutral" when considered in some sort of antiseptic laboratory (i.e., neutral by the plain meaning of the text) is permissible.  But in fact, that isn't at all what Smith held.  As I and Michael have discussed here, Smith's exceptions are, or are rapidly becoming, at least as important as its rule.  The rhetorical appeal of Smith's hard-edged language has given people the misimpression that "our legal system" admits of no exceptions for religious conscience, ever.  And this, from my point of view, is another problem with Smith.  It confuses the discourse about religious liberty -- it warps it by suggesting a hard, exceptionless rule as somehow constitutive of "our" political and legal traditions.  But that rule -- and the values which underwrite it -- have never, in fact, represented our approach to religious liberty.  

Wednesday, February 8, 2012

Cathy Kaveny at St. John's Law School

The Center for Law and Religion is delighted to announce that Professor Cathleen Kaveny (Notre Dame) will visit us at St. John's Law School next Monday, February 13, at 4:15.  Hers is the second session in our ongoing seminar, Colloquium in Law: Law and Religion.  Cathy's very interesting paper is titled, Love, Justice, and Law: The Strange Case of Watts v. Watts.  Academics in the New York area and beyond are welcome to attend.  Please contact me if you wish to do so.

Tuesday, February 7, 2012

Religious Legal Theory: Religion in Law, Law in Religion

I am pleased to announce that the St. John's Law Review has published several papers from a symposium of the Second Religious Legal Theory Conference, which our Center for Law and Religion, directed by Mark Movsesian, organized and hosted (and for which compatriot MOJ-er Steve Shiffrin gave a wonderful keynote address).  There are many excellent contributions, including a terrific keynote piece by Steve Smith, Nonestablishment, Standing, and the Soft Constitution, the text of which can be accessed at the link. 

The publication occurs at an auspicious moment, as the Third Religious Legal Theory Conference will occur at Pepperdine Law School at month's end, under the auspices of the Nootbar Institute on Law, Religion, and Ethics, and with the able organization of Bob Cochran and Michael Helfand.

Monday, February 6, 2012

What We Get When We Talk About Religion and Politics

I found this piece by Frank Bruni in Saturday's New York Times to be interesting in several respects.  One of Bruni's claims is that we have not yet really tried to explain the various character flaws and other personality quirks that we (by which I mean the Times writers) see in Mitt Romney by reference to his religious background.  It is important that we do this, says Bruni.  So, for example, we should try to understand Romney's "muffled soul" by engaging in some extended religious psychology about Mormonism.  Here's a bit from Bruni:

One longtime Republican strategist I talked with predicted that Gingrich would broach Romney’s Mormonism yet, with the aim of mobilizing the Mormon-wary evangelicals who vote in southern primaries on March 6, “Super Tuesday.”

That’s a regrettable motive. But there are valid reasons for the rest of us to home in on Romney’s religion, not in terms of its historical eccentricities but in terms of its cultural, psychological and emotional imprint on him.

His aloofness, guardedness and sporadic defensiveness: are these entwined with the experience of belonging to a minority tribe that has often been maligned and has operated in secret? Do his stamina and resilience as a candidate reflect his years of Mormon missionary work in France, during which he learned not to be daunted in the face of so much resistance that he won a mere 10 to 20 converts . . . .

And what of his sometimes huffy expectation that voters accept his current stances against abortion and gun control, to name two flips, and stop fussing over so many contrary positions in the past? Does that track with Mormonism’s blithe reluctance, according to its critics, to explain controversial tenets that it has jettisoned, like a ban on black clergy members that was in place until 1978?

I've noted before that I am increasingly skeptical that encouraging the drawing of these connections is worthwhile -- that the rhetoric of "talking" about religion in these contexts is at all helpful.  Bruni's column does little to dissuade me from that view.  Just as it would be inappropriate to understand, say, Secretary of HHS Kathleen Sebelius's decisions to do away with conscience protections on the ground that she is a lapsed Catholic with a deep-seated animus toward the Catholic Church based on some strategically chosen anecdotes about her early upbringing which, it is claimed, illuminate her "muffled soul" for the voting public to see in its full journalistic nakedness, and to draw a general connection between lapsed Catholics and support for the HHS mandate, so, too, ought it be inappropriate in this case. 

More generally, though, this is precisely the sort of low-level partisan psychologizing that we are likely to get by imagining that we can explain personality flaws on the basis of religious association.  Aloofness?  Well, sure, that's a Mormon trait.  Opportunistic waffling on the issues, coupled with inexplicable indignation?  Yes, Mormons do that.  It's part of their psychology, you see.  And if you pay attention closely enough, we the press will bare a person's soul to you.  We will explain them to you by recourse to their religious commitments, all the while reinforcing our (and, now, your) suspicions about them.  I think this is a mistake, but perhaps one which ought to have been predictable to those who advocate greater public discourse about religion.  To be clear, I am proud to be part of that group.  But increasingly I see definite costs to that approach, too.

Wednesday, February 1, 2012

Coke on the Common Law

Today is the 460th anniversary of Sir Edward Coke's birth.  Coke is widely known in part for his role in the prosecution of the Gunpowder Plot.  But Coke was also an astute student of the law.  Here's a memorable passage from Coke's report of Bonham's Case, which involved the question whether a London physician could be prevented from practicing medicine and imprisoned pursuant to the newly formed charter of the Royal College of Physicians -- and later ratified by an act of Parliament -- which altered the common law practice.  The "censors" of the College had acted as both party and judge in the case, contravening the ancient rule.  As those more learned than I have observed, Bonham's Case has almost nothing to do with the contemporary power of judicial review and everything to do with the power of the common law to control the unfettered will of decision-makers -- to restrain the rule of men by the common law, not to unleash it:

The censors cannot be judges, ministers, and parties . . . . And it appears in our books, that in many cases, the common law will controul Acts of Parliament, and sometimes adjudge them to be utterly void: for when an Act of Parliament is against common right and reason, or repugnant, or impossible to be performed, the common law will controul it, and adjudge such Act to be void.  

Sunday, January 29, 2012

The Taming of Employment Division v. Smith

When Employment Division v. Smith was decided, it had committed opponents and supporters.  Opponents claimed that it represented the end of free exercise; supporters argued that at long last, the Court adopted an appropriately equal, predictable, and univocal principle of free exercise which limited the scope of its political interventions.  There was disagreement about the wisdom of Smith (including in Congress, which reacted negatively to Smith with some statutes), but few doubted that Smith was a very big deal for constitutional religious liberty.

The informed readership at MOJ of course knows that Smith carved out various exceptions to the rule that neutral laws of general application are constitutional.  The first exception dealt with the idea of hybrid rights.  The idea was that a less than independently viable free exercise claim, when coupled with another constitutional right of uncertain strength, would become viable.  Lower courts have adopted various interpretations of this exception: some have treated it as non-binding dicta, while others have tried to operationalize it in various ways.  The second exception has proved to be far more important: where the law at issue is not truly a law of general application -- where a system of individualized assessments with respect to exemption from the law has been adopted -- then the law is again subject to strict scrutiny.  I've looked into the question of how much, and how often, lower courts are using this exception (and I also inquired a bit about the extent to which litigants are using it).  It turns out...a whole lot.  Indeed, the latest example of the application of the individual assessment exception appears in a case just decided in the Sixth Circuit, where Judge Sutton held that a student who was dismissed from a counseling program because she refused on religious grounds to counsel homosexual couples and non-married couples could proceed with her claim.  The court held that the school's "no referral to other counselors" policy was not one of general application, because referrals for secular reasons had been permitted.  For more on the case, see this item.  You might wonder just how powerful the individualized assessment exception is...you will have to wait for my book to see just how much!

The third exception carved out by Smith was for the church autonomy cases, and at one time it was not clear whether the ministerial exception would fall into that exception.  In Hosanna-Tabor, the Court made clear that it did.  And now (courtesy of the excellent Professor Friedman at Religion Clause blog), it seems that the South Dakota Supreme Court has extended Hosanna-Tabor to apply outside the employment context to a case about the potential dissolution of a particular religious group.  It is too early to tell what will happen...but...it may be that because of Hosanna-Tabor's uncertain scope, lower courts (state and federal) will extend it in unexpected directions -- and directions which differ one from another.  

If this does happen, I think we may witness (in conjunction with the continuing expansion and complication of some of the other exceptions) the taming of Employment Division v. SmithSmith will not be overruled, but it may be substantially chipped away in various ways.  And so what appeared once -- to opponents and supporters alike -- to be a rule of iron predictability, will in fact become something very different.   

Thursday, January 26, 2012

Incarceration and the Bill of Rights

One of the great pleasures of teaching multiple courses is to see the many threads that connect them.  This is not to say that law is a seamless web.  It isn't.  But there are twisting and turning concatenations.  This is happening for me this semester with criminal law and constitutional law.  One little example is that my view of the congressional delegation to the US Sentencing Commission in Mistretta is colored by the knowledge that the Sentencing Reform Act contains a panoply of justifications of punishment -- and so my first reaction after reading the case was to wonder whether a group of folks with no electoral accountability and no obvious constitutional warrant should be charged with the eminently political task of balancing conflicting theories of punishment that will bind the rest of us. 

I spotted another perhaps more macrocosmic crossover in this column by Adam Gopnik, which discusses some of the claims by the late Professor William Stuntz in his book, The Collapse of the American Criminal Justice System.  The argument in Gopnik's piece, which he attributes to Stuntz, that especially interested me was this.  In searching for a reason why the United States incarcerates more people than other Western European countries, Gopnik writes that Stuntz traces the problem:

all the way to the Bill of Rights.  In a society where Constitution worship is a requisite on right and left alike, Stuntz startlingly suggests that the Bill of Rights is a terrible document with which to start a justice system -- much inferior to the exactly contemporary French Declaration of the Rights of Man....

The trouble with the Bill of Rights, he argues, is that it emphasizes process and procedure rather than principles.  The Declaration of the Rights of Man says, Be just!  The Bill of Rights says, Be fair!  Instead of announcing general principles -- no one should be accused of something that wasn't a crime when he did it; cruel punishments are always wrong; the goal of justice is, above all, that justice be done -- it talks procedurally.  You can't search someone without a reason; you can't accuse him without allowing him to see the evidence; and so on.  This emphasis, Stuntz thinks, has led to the current mess, where accused criminals get laboriously articulated protection against procedural errors and no protection at all against outrageous and obvious violations of simple justice....

The obsession with due process and the cult of brutal prisons, the argument goes, share an essential impersonality.  The more professionalized and procedural a system is, the more insulated we become from its real effects on real people.  That's why America is famous both for its process-driven judicial system...and for the harshness and inhumanity of its prisons.  Though all industrialized societies started sending more people to prison and fewer to the gallows in the eighteenth century, it was in Enlightenment-inspired America that the taste for long-term, profoundly depersonalized punishment became most aggravated.

It's an interesting piece, and I should mention that I haven't read Professor Stuntz's book.  But I'm dubious about at least some of these claims.  Some questions about this thesis after the jump.

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