It’s standard to distinguish between constitutional requirements and mere policies. An appropriation for Head Start is a policy, which can be changed however Congress wishes; by contrast, the principle of free speech overrides whatever Congress seeks to do. But there’s something important, rarely unnoticed, and in between — much firmer than mere policies, but falling short of constitutional requirements. These are constitutive commitments. (We’re still talking, or at least not not talking, about FDR’s Second Bill of Rights.)
Constitutive commitments have a special place in the sense that they’re widely accepted and can’t be eliminated without a fundamental change in national understandings. These rights are “constitutive” in the sense that they help to create, or to constitute, a society’s basic values. They are also commitments, in the sense that they have a degree of stability over time. A violation would amount to a kind of breach – a violation of a trust.
Current examples include the right to some kind of social security program; the right not to be fired by a private employer because of your skin color or your sex; the right to protection through some kind of antitrust law. As with constitutional provisions, we disagree about what, specifically, these rights entail; but there isn’t much national disagreement about the rights themselves. (At least not at the moment.)
We could learn a lot about a nation’s history if we explored what falls in the category of constitutional rights, constitutive commitments, and mere policies — and even more if we identified migrations over time. Maybe some of the commitments just mentioned will turn into mere policies. Sometimes policies are rapidly converted into constitutive commitments (consider the 1964 Civil Rights Act). Sometimes constitutive commitments end up getting constitutional status (the right to sexual privacy is, to some extent, an example, with the line of cases from Griswold v. Connecticut to Lawrence v. Texas).
Back to FDR’s Second Bill of Rights: He wasn’t proposing a formal constitutional change; he didn’t want to alter a word of the founding document. He was proposing to identify a set of constitutive commitments. One possible advantage of that strategy is that it avoids a role for federal judges; another possible advantage is that it allows a lot of democratic debate, over time, about what the constitutive commitments specifically entail.
Johnson and Reagan also tried to redefine the nation’s constitutive commitments, but FDR was much more ambitious. He didn’t quite succeed in turning the Second Bill of Rights into constitutive commitments; but if you go over the list, you’ll see that he didn’t exactly fail.
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