The Volokh Conspiracy

Federal Partial Birth Abortion Ban: A Violation of the Interstate Commerce Clause?

As David Bernstein points out, Justice Thomas (in a concurrence joined by Justice Scalia) raised the possibility that the federal ban may be outside the scope of congressional powers under the interstate commerce clause. In "Taking Federalism Seriously: Lopez and the Partial-Birth Abortion Ban," 30 Connecticut Law Review 59 (1997), Glenn Reynolds and I argued that a federal ban on a particular abortion procedure is beyond the scope of congressional powers to regulate interstate commerce -- at least if the interstate commerce power is construed to mean anything less than a grant of powers to Congress to legislate on all possible subjects.

As Justice Thomas noted in his concurrence, the plaintiffs never raised the commerce clause issue. It is easy to understand why. If we are going to start actually obeying the commerce clause in regard to abortion restrictions, then, logically, the federal law against abortion clinic picketing (Freedom of Access to Clinic Entrances Act, "FACE") is also probably unconstitutional.

Reynolds and I suggest that, as a general matter, one way in which a nation can avoid being torn apart by contentious social issues, including abortion, is not to impose uniform national rules, but rather to let different jurisdictions establish different rules. Our approach is consistent with the text of the Constitution, which plainly grants Congress power to create national uniformity over certain specified subjects, but not over everything.

BruceM (mail) (www):
Clarence Thomas is such a stinking hypocrite. In the abortion case, he notes that he will not comment about it's unconstutitionality as beyond the scope of congress' powers under the commerce clause because none of the parties raised or briefed that issue. But in US v. James, the criminal case decided today, his dissent notes that he feels the Armed Career Criminal Act is unconstitutional because it is a violation of the 6th Amendment under Apprindi and its progeny... even though nobody raised that issue. Thomas will raise constitutional infirmity sua sponte when it suits his personal preferences. You'd think he'd at least spread out two opinions of his which makes that abundantly clear by more than 24 hours. I can't stand Thomas.
4.18.2007 1:51pm
Realist Liberal:

If we are going to start actually obeying the commerce clause in regard to abortion restrictions, then, logically, the federal law against abortion clinic picketing (Freedom of Access to Clinic Entrances Act, "FACE") is also probably unconstitutional.

Is that necessarily true? I thought (though it has been a while since I've looked at the law) that FACE was based not on the Commerce Clause but on the 14th Amendment. Please correct me if I am wrong.


[DK: It's based on both, and the commerce issue was litigated extensively in the lower federal courts.]
4.18.2007 1:53pm
blcjr (mail):
Might not this same reasoning apply to the NFA and its progeny?


[The NFA is based on the tax power, not the commerce power. However, the Gun Control Act is based on the commerce clause. Reynolds and I argued that some aspects of the GCA, particularly those pertaining solely to in-state possession, are outside the scope of the commmerce power, properly construed.]
4.18.2007 1:58pm
Dan28 (mail):

Reynolds and I suggest that, as a general matter, one way in which a nation can avoid being torn apart by contentious social issues, including abortion, is not to impose uniform national rules, but rather to let different jurisdictions establish different rules.

Well, if different states adopted different policies in relation to abortion, then that would inevitably mean that people who want abortions are going to cross state lines in order to get abortions (unless they are too poor to do so, poor people in pro-life states will just have to have the kid). Pro-life states will see their abortion laws subverted by the free interstate movement of other people. Meanwhile, pro-choice people will have lost the argument that the choice to have an abortion is fundamentally within the domain of individual choice; your solution would admit that the government has a right to legislate on this issue. In other words, this idea doesn't get us out of the cultural conflict, it just answers the cultural conflict in a particularly ineffective way that is unlikely to get support (or deserve support) from either side of the cultural divide. And of course, because federal laws related to abortion discourage people from crossing state lines seeking abortions, those federal laws affect interstate commerce, so there's no constitutional reason to adopt this position.
4.18.2007 2:14pm
Guest 3L (mail):
Bruce - then why would Thomas even mention the commerce clause issue? The opinion you mention in James was a mere 3 paragraphs; Thomas just quickly summarized his view that the statute at issue allowed for the sort of judicial fact-finding that was ruled unconstitutional in Booker. In James, he disagreed with the court's opinion, so it makes sense for him state the reasons why. In Gonzales, he concurred. Because he ultimately agreed with the court that the statute was valid, it perhaps doesn't make as much sense for him to go through what might be a lengthy analysis of why the statute was invalid under the commerce clause. Perhaps he thought it was prudent merely to mention the issue, thinking that it might provoke a suit. Then, the court would be able to fully consider the issue, with the aid of briefs, oral arguments, etc.
4.18.2007 2:21pm
AF:
Abortion-rights-related statutes are valid under the Section 5 power. However, that might no longer be the case if Roe v. Wade is overturned. I suspect that is the real reason abortion-rights advocates avoid the Commerce Clause argument.
4.18.2007 2:23pm
Jeremy T:
Any national ban on abortion would be valid if pinned on the 14th Amendment, as AF correctly notes. I agree that the PBA is not authorized under the commerce clause power.

I has always surprised me that the commerce clause issue was not raised by the NOW types.
4.18.2007 2:29pm
Jeremy T:
Oh, and BruceM, I can't stand you!
4.18.2007 2:30pm
BruceM (mail) (www):
Guest3L: It doesn't matter if he was concurring or dissenting. To the extent he may have let on that deep down inside he feels the abortion ban is an unconstitutional exercise of commerce clause power, he was dissenting. But that dissent was moot because nobody else felt that way, the law was upheld, and he agreed with the logic of the majority in upholding it. Most importantly, he states that he will not address the commerce clause aspect of potential unconstitutionality because the parties did not raise/brief it. But in James, he says the law is unconstitutional on 6th Amend. grounds, even though the parties did not raise/brief that issue, either. In one breath he says the court has no ability to declare something unconstitutional if that issue was not raised and briefed by the parties in the lower court. In the second breath he says just the opposite (and would in fact find the ACCA unconstitutional). HYPOCRITE.
4.18.2007 2:32pm
Guest 3L (mail):
Bruce - you're wrong that the parties didn't raise/brief the 6th Amend issue in James.

US v. James, p.20 - "Finally, James argues that construing attempted burglary as a violent felony raises Sixth Amendment issuesunder Apprendi v. New Jersey, 530 U. S. 466 (2000), and its progeny because it is based on “judicial fact finding” about the risk presented by “the acts that underlie ‘most’ convictions for attempted burglary.” Brief for Petitioner 34, 35."
4.18.2007 2:38pm
Steve:
I find it very difficult to believe that the USA would be any more or less "torn apart" by the abortion issue if it were left up to the individual States to decide. It's not like we would agree to hold 50 individual referenda followed by both sides joining hands and singing kumbaya. You'd simply have 50 battlegrounds instead of 1, and at the federal level, you'd surely have both sides continuing to push for a Constitutional amendment.
4.18.2007 2:42pm
PaddyL (mail):
BruceM: I don't see how sliming and your hate of a Justice adds anything to an otherwise civil discussion about the validity of abortion ban legislation. I suggest that you reserve these remarks for Huffington Post and similar blogs.
4.18.2007 2:51pm
Jake (Guest):
Isn't a key contention of the article that Wickard aggregation would only be applied to "economic regulations"? And didn't Raich render that contention untenable? Once Wickard aggregation is in, what's left of the article's argument?
4.18.2007 2:57pm
Frederick Baker (mail):
Were you formerly known as David Kop-El? From the WaPo (vi Instapundit):

· A Reliable Source item in the April 17 Style section incorrectly said that actor Nicolas Cage's son Kal-El was named for Superman's father. Kal-El is an alternate name for the comic-book superhero himself; Superman's father was Jor-El.
4.18.2007 3:08pm
Frederick Baker (mail):
Were you formerly known as David Kop-El? From the WaPo (via Instapundit):

· A Reliable Source item in the April 17 Style section incorrectly said that actor Nicolas Cage's son Kal-El was named for Superman's father. Kal-El is an alternate name for the comic-book superhero himself; Superman's father was Jor-El.
4.18.2007 3:08pm
Bored Lawyer:
I have not read the article. However, my initial observation is that, given that abortions are overwhelmingly performed for payment by the medical profession, there is certainly a commercial aspect to the procedures. How different is regulation of abortion from regulation of other medical procedures? Of pharmaceuticals and medical devices?
4.18.2007 3:11pm
BruceM (mail) (www):
Guest 3L: ahh I did not catch that. Good find. Was it actually raised in the court below, though? Or just on certiorari? If it was raised, I certainly saw nothing about it in the majority opinion, let alone an explanation as to why that point of error is overruled.
4.18.2007 3:12pm
Thorley Winston (mail) (www):
I find it very difficult to believe that the USA would be any more or less "torn apart" by the abortion issue if it were left up to the individual States to decide. It's not like we would agree to hold 50 individual referenda followed by both sides joining hands and singing kumbaya. You'd simply have 50 battlegrounds instead of 1, and at the federal level, you'd surely have both sides continuing to push for a Constitutional amendment.


I don’t see how that’s true at all. A large part of what’s driving the debate now is based on the fact that many people (rightfully) see Roe as the Court taking what was for 200 years a public policy issue decided democratically by the people through their elected legislators and imposing by fiat the views of their own members. So long as the issue was decided democratically, they might disagree with the outcome but could accept its legitimacy because they knew they could always had the opportunity to work to change it.

As far as having 50 battlegrounds, I think there’s probably more consensus as far as when abortion should be allowed and what restrictions should be placed on it within the 50 States than people might think. There will always be people on the outliers dissatisfied but the issue didn’t seem to dominate politics pre-Roe the way it does today.
4.18.2007 3:15pm
BruceM (mail) (www):
I just re-read the James decision and sure enough, at the very end, in about 3 sentences and a footnotes, the court mentions the 6th amendment argument. I didn't catch that the first time i read (skimmed) it earlier today. My mistake. I apologize.
4.18.2007 3:25pm
KeithK (mail):
If the abortion issue were returned to the states, you wouldn't have 50 battlegrounds. There wouldn't be any significant battle in Massachussets, where the populace presumably would strongly support legalized abortion in most cases. There wouldn'tbe much of a battle in South Dakota, where the populace is overwhelming in favor of outlawing abortions. You'd end up with battle only in some subset of the states where the populace is divided.

It's true that both sides would clamor for a constitutional amendment. But I don't see a problem with that. First of all, amendments are really hard to pass so one wouldn't pass unless and until the issue were largely resolved on a national level. Second, the amendment process is a democratic process whereby the will of the people is expressed. That's all I'm looking for when I say I want Roe to be overturned.
4.18.2007 3:26pm
Steve:
So long as the issue was decided democratically, they might disagree with the outcome but could accept its legitimacy because they knew they could always had the opportunity to work to change it.

I guess I just don't see the difference between people who are outraged by a judicial decision and people who are outraged by a legislative decision. If a state legislature votes to uphold abortion rights, someone who believes "abortion is murder" is not simply going to shrug and accept the legitimacy of the democratic process. They're going to work just as hard to undo that decision as they would have if it were a judicial issue; probably moreso, in fact, because they know that electing a pro-life legislator is directly going to impact the state of the law, whereas you have no similar ability to impact the Supreme Court.

It seems to me that people care far more passionately about the merits of the issue - should abortion be legal or not? - than they do about the procedural issue of which branch of government should decide. Sure, there are people on the pro-life side who complain about the Supreme Court's legitimacy, the same way people have complained about the Supreme Court's legitimacy since the inception of the institution every time a decision came down they didn't like. (Brown v. Board of Education is a classic case.)

Who are the people that work passionately to overturn Roe v. Wade, but won't work passionately to make abortion illegal in their state if Roe v. Wade is reversed, because all they really care about is the "legitimacy" of the process? I haven't met any such people. If anything, Roe v. Wade is what keeps abortion from being a far bigger issue in every Congressional election, in every state legislative election. It seems to me we'd have far more political activism involving abortion if Roe v. Wade ceased to exist.
4.18.2007 3:36pm
Steve:
There wouldn't be any significant battle in Massachussets, where the populace presumably would strongly support legalized abortion in most cases.

And people from outside Massachusetts, then, wouldn't care at all about the fact that abortion was legal in Massachusetts, even if they felt abortion was murder. They'd simply shrug and say it's up to each State to make their own rules, just like people in the North didn't care about slavery so long as their own State didn't have it. Massachusetts would make their law and everyone would just accept it, no one would pursue an incremental strategy for chipping away at abortion rights, that's your view?

There wouldn'tbe much of a battle in South Dakota, where the populace is overwhelming in favor of outlawing abortions.

You have a funny definition of overwhelming. But putting that aside, if an abortion ban were passed, you think pro-choice advocates would just shrug and accept it? They wouldn't keep fighting, they wouldn't try to elect pro-choice legislators, they wouldn't try to pursue an incremental approach in order to restore abortion rights?

Consider that South Dakota, the first state that came to your mind as an example of a place so pro-life that the issue would be off the table, DID pass an abortion ban through the legislative process, the "legitimate" route that you're assuring me will take the issue off the table. And the people who opposed the ban DIDN'T just shrug their shoulders and accept the legitimacy of the ban, they organized a ballot referendum and got the ban overturned. No one thinks this will be the last battle, either.

I have no problem with any of that; it sounds like healthy democracy to me. But it hardly sounds like the issue is off the table just because it's being handled through the legislative process (indeed, that very statement is self-contradictory); according to the linked article, $4 million was spent on the referendum vote, which should tide everyone over until the next time the issue comes up.

I think there's a far greater chance of people coming to accept Roe v. Wade, the same way they've come to accept Brown v. Board of Education, than there is of people coming to accept the endlessly malleable legislative results in their own state. It's like you're arguing there will be less debate and controversy over an issue if we make it part of the political process.
4.18.2007 3:50pm
nunzio:
What would be the denominator here in the Commerce Clause challenge? The number of intact D&Es a year, the number of abortions a year, the number of medical procedures a year, or the service industry generally? The level of generality the issue is framed at would determine the result.

Paying for an intact D&E is a commercial transaction, but given the small number of them a year the aggregate impact on the national economy would be negligible. But the number of abortions a year and certainly the number of medical procedures a year would have an effect on interstate commerce.
4.18.2007 3:58pm
Falafalafocus (mail):

I guess I just don't see the difference between people who are outraged by a judicial decision and people who are outraged by a legislative decision. If a state legislature votes to uphold abortion rights, someone who believes "abortion is murder" is not simply going to shrug and accept the legitimacy of the democratic process. They're going to work just as hard to undo that decision as they would have if it were a judicial issue; probably moreso, in fact, because they know that electing a pro-life legislator is directly going to impact the state of the law, whereas you have no similar ability to impact the Supreme Court.

You honestly do not see a difference between a person aggressively campaigning for policy that they prefer and voting for legislators who support that policy and a person subverting the judicial process through "test cases" and confirming judges based on what they think the judge's policy preferences are? Regardless of whether you believe that the later ("campaigning for a judicial change in law") is a legitimate activity of the population, government, lawyer, etc., surely you cannot believe that it is the same as undergoing the normal political process.


Who are the people that work passionately to overturn Roe v. Wade, but won't work passionately to make abortion illegal in their state if Roe v. Wade is reversed, because all they really care about is the "legitimacy" of the process? I haven't met any such people.

Hi, Steve! I'm falafalafocus. I personally believe in rule of law and legislative response to bad policy. There is plenty of law that I view as bad and I do vote for those who promise to pass what I view to be good laws or repeal bad laws, but I accept that those laws are valid until repealed. I think that that is a fair statement on the "legitimacy" of the process (as you put it).

On the general post, however. I always worked under the impression that, because I did see the interstate commerce claim on abortion, the U.S. Congress was taking its authority based on the 14th Amendment, Section 5 and passing abortion law to ensure due process and equal protection of a constitutional right. Of course that always raised the problem of whether Congress would have any authority when the U.S. Supreme Court gets out of the business of calling this a right and demanding its protection. To that, I have no answer.
4.18.2007 4:08pm
Steve:
There is plenty of law that I view as bad and I do vote for those who promise to pass what I view to be good laws or repeal bad laws, but I accept that those laws are valid until repealed.

Of course they're valid. Are you saying you don't accept that Roe v. Wade is the law of the land, like it or not, until it gets reversed?

People disagree over whether Bush v. Gore was a proper exercise of the judicial power; does everyone get to decide for themselves if Bush is the real President? The notion of "legitimacy" seems to be rather elusive.
4.18.2007 4:15pm
KeithK (mail):
Steve, I had forgotten about the SD ballot repeal. Obviously I was trying to give examples of states that are close the poles on this issue. I think the point stands even if my example wasn't as good as I thought.


I still maintain that if the issue is debated and decided via the democratic process it will come to a workable equilibrium that is accepted by the a larger fraction of the populace than if the solution is chosen by the court. It would take time to reach that equilibrium and in the meantime abortion would be a hot issue in many political campaigns. But it already is.
4.18.2007 5:09pm
DJ (mail):
Wait a second, doesn't the federal partial-birth abortion ban have a jurisdictional hook? Oh yeah, it does: 18 USC 1531 says that "Any physician who, in or affecting interstate or foreign commerce, knowingly performs a partial-birth abortion and thereby kills a human fetus shall be fined under this title or imprisoned not more than 2 years, or both."

The Controlled Substances Act has no such jurisdictional hook, and, thanks to Justice Stevens, none is implied in the Act or needs to be proven at trial. But, by its plain language, 18 USC 1531 provides otherwise. The bar might be low--proving, for example, no more than the fact that money exchanged hands for the abortion or that the equipment the abotionist used moved in interstate commerce. But the element remains.
4.18.2007 5:13pm
Steve2:

Thorley Winston (mail) (www):

So long as the issue was decided democratically, they might disagree with the outcome but could accept its legitimacy because they knew they could always had the opportunity to work to change it.


Unless they see it as the sort of fundamental right where Jackson's good old Barnette quote applies, and the activity is beyond the right of any legislature, no matter how democratic, to restrict: "The very purpose of a Bill of Rights was to withdraw certain subjects from the vicissitudes of political controversy, to place them beyond the reach of majorities and officials, and to establish them as legal principles to be applied by the courts. One's right to life, liberty, and property, to free speech, a free press, freedom of worship and assembly, and other fundamental rights may not be submitted to vote; they depend on the outcome of no elections."
4.18.2007 11:45pm
student1:
For an interesting discussion of the lurking commerce clause issue in the Gonzales case, an amicus brief was filed by Claremont Institute for Constitutional Jurisprudence that goes to the heart of the issue.
http://www.claremont.org/repository/doclib/PBAbrief.pdf
4.19.2007 3:47pm