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Why Jacob Howard Matters: A Message to Progressive Constitutional Scholars

In response to my post on the purposes behind the Fourteenth Amendment and the light they shed on the right to keep and bear arms, Deborah Pearlstein says she "need[s] some help understanding the evidentiary weight I should accord Senator Howard's remarks about the Fourteenth Amendment to our understanding of the meaning of Second." I'm happy to comply. Although what I have to say is formally in response to Deborah's questions, in fact Deborah is really giving me an excuse to say a little bit about the constitutional history of Reconstruction, America's second founding. I offer these remarks to all of my fellow progressive constitutional scholars.

First, if you don't know much about the importance of the views of folks like Jacob Howard, John Bingham, Charles Sumner, or Thaddeus Stevens you need to learn more about them. They are as important to understanding the Fourteenth Amendment and America's new birth of freedom as Hamilton and Madison are to understanding the Federalist plan of 1787. The importance of Reconstruction has largely been submerged in Americans' understanding of their Constitution and its framers; in part this is due to the success of the post-bellum white south in resisting demands for racial equality and the north's desire for the political reconciliation of white men at the expense of blacks. (On which see Pamela Brandwein's 1999 book on the memory of Reconstruction). But every constitutional scholar, and particularly every progressive constitutional scholar, needs to know about this period in history and about the intellectual ideas that led to our country's second founding. Asking how much weight we should give to statements by Jacob Howard or John Bingham is like asking how much weight we should give to statements by James Wilson or James Madison or Gouverneur Morris or Alexander Hamilton. We idolize this latter group of men today, but we forget the men who gave us the constitutional text that we spend most of our time litigating, and that protects most of our constitutional rights against state and local governments, the Fourteenth Amendment. As I noted in the previous post, Howard was a pretty important framer of the Fourteenth Amendment. Not only was he a member of the Joint Committee on Reconstruction that drafted the Fourteenth Amendment and not only was he the floor manager of the bill in the Senate, he was also charged by the Committee of Fifteen with the job of explaining the new amendment and its purposes before the Senate, which he did in a well-known speech in May of 1866, a speech, which, by the way, was covered in the press and even quoted verbatim in two of the New York papers of the time. The language I've quoted in my earlier post is from that speech.

One of the central concerns of the framers of the Fourteenth Amendment was protecting citizens from violations of their basic rights by state governments. This is pretty clear from Howard's remarks. There is little doubt from the history that, to these men, the right to keep and bear arms in self-defense was part of the basic rights that blacks needed. Blacks needed to defend themselves from southern whites who were literally terrorizing them, and southern governments were doing little to protect blacks from these attacks. Indeed, if anything, southern governments wanted to disarm blacks-- as they did during the era of slavery-- the better to keep them docile and helpless. The importance of the right to keep and bear arms made perfect sense to the people who drafted the Fourteenth Amendment.

Second, Deborah asks why we should care about what framers like Howard said if the Court ignored their views in the Slaughter-House cases in 1873. I believe that in understanding the meaning of the Fourteenth Amendment, The Slaughter-House cases deserve just about as much respect as Plessy v. Ferguson or United States v. Harris or the Civil Rights Cases, which is to say, very little indeed. Slaughter-House was an outrageous rewriting of the Fourteenth Amendment barely five years after its ratification, which took the amendment's central clause and turned it into a nullity. Liberals often tend to give Slaughter-House a pass, thinking that even if it is wrong it is not as bad as the cases that came afterwards, including Plessy and the Civil Rights cases. This is a mistake. Slaughter-House largely buys into the southern interpretation of the meaning of the Civil War-- reunion, the end of slavery and nothing more-- and it paves the way for much of the retrenchment that followed.

Because of Slaughter-House, lawyers ever since have had to do the work designed for the Privileges or Immunities Clause through the Due Process clause, work for which that clause was not well suited. This led to a focus on the still controversial idea of "substantive due process," a debate that would have little importance today if we had instead asked the proper question, and the one that the framers of the 14th amendment asked-- namely, what are the privileges and immunities of citizens of the United States, the basic rights that all citizens, black or white, male or female, enjoy by virtue of being citizens. Like the Civil Rights cases, Slaughter-House sought to neuter the emancipatory promise of the Fourteenth Amendment, sacrificing its ideals on the altar of states rights and a policy of non-interference with white-controlled southern governments that quickly replaced Republicans in the South.

Following Slaughter-House, the Supreme Court began a long process of denying women and blacks basic rights through the logic that the decision created. That same logic helped avoid what the framers of the Fourteenth Amendment clearly intended: The application and enforcement of basic rights against the former rebel states, state governments that had violated the rights not only of blacks but also of those whites who dared to disagree with the policies of the slaveocracy. In Slaughter-House and later cases, courts afraid of too much justice systematically downgraded the great promises of the Fourteenth Amendment. It was only in the twentieth century that the courts began to apply the Bill of Rights against recalcitrant state governments, this time under the fiction of "incorporation" through the due process clause, using the made-up test of "essential to a scheme of ordered liberty" offered in the 1937 decision in Palko v. Connecticut. However much we revere Benjamin Cardozo today, this test has nothing to do with the purposes behind the Fourteenth Amendment, and what Cardozo did in Palko was to rationalize a series of previous cases that, like Slaughter-House itself, had limited the scope of federal civil rights enforcement.

Finally, Deborah's attempted parsing of Howard's speech is ahistorical. Howard is not trying to make a distinction between fundamental rights on the one hand, and the Bill of Rights on the other. The personal rights found within the Bill of Rights were paradigmatic examples of fundamental liberties to the generation that framed the Fourteenth Amendment. The issue was not whether those rights mentioned in the Constitution were fundamental, but whether any other rights were as well. That is why Howard looked to Corfield v. Coryell to emphasize the existence of natural rights that are not enumerated, as the Bill of Rights are (and as the right to habeas corpus, the right against bills of attainder, and the right against ex post facto laws are.). Howard's speech, arguing for both the enforcement of the Bill of Rights against the states and for the protection of natural rights, makes perfect sense against the background of abolitionist and Republican thinking of the time. And it is of great importance when we consider the question of unenumerated rights today. The people who drafted the Fourteenth Amendment believed that governments existed to protect natural rights, and they created the Privileges or Immunities Clause to protect those rights whether or not they were specifically listed in the Constitution's text.

If I could make one request of progressive constitutional scholars, it would be this: there is a very rich and important history of civil rights and civil liberties buried in our country's second founding to which most constitutional scholars pay relatively little attention. Instead we spend most of our time studying and worshiping the men who created a Constitution with slavery, rather than the men who tried to rid us of that awful curse. The framers of the Fourteenth Amendment were hardly perfect, and many were not very egalitarian by our present standards, but they believed that equality and equal liberty were central constitutional values, and they helped set us on a better path. Progressive scholars would do well to study the history of the second founding, which is the source of our some of our Constitution's most important and enduring commitments to equality, anti-subordination, and equal citizenship. They will be both surprised and delighted by what they find there.

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  • Deborah Pearlstein asks what evidence we have that the right to keep and bear arms is a fundamental right of the same kind as other fundamental rights, such as those mentioned in the Bill of Rights. I can offer no better evidence than the speech offered by Senator Jacob Howard, a member of the Joint Committee on Reconstruction that drafted the Fourteenth Amendment and the floor manager of the Fourteenth Amendment. He was given the task of introducing the amendment before the United States Senate and explaining its purposes.

    * * * * *

    SENATOR JACOB HOWARD, SPEECH INTRODUCING THE FOURTEENTH AMENDMENT
    Speech delivered in the U.S. Senate, May 23, 1866 [CONG. GLOBE, 39th Cong., 1st Sess. 2765-66 (1866).]

    Mr. HOWARD. . . . I can only promise to present to the Senate, in a very succinct way, the views and the motives which influenced th[e] committee, so far as I understand those views and motives, in presenting the report which is now before us for consideration, and the ends it aims to accomplish. . . . .

  • Putting on my doctrinalist's hat, rather than my historian's hat, I was nonplussed by Deborah Pearlstein's casual statement that if we recognized a fundamental right to keep and bear arms "that citizens would be able to carry guns with them pretty much anywhere, anyplace, for any reason. For such is the result at least traditional strict scrutiny of regulation of a fundamental right would most likely bring."

    Where did the idea come from that the fundamental rights listed in the Bill of Rights are generally protected by a test of strict scrutiny?

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  • Many supporters of Second Amendment rights are, pardon the pun, up in arms over the Bush Administration Justice Department's amicus brief in Heller, the Second Amendment case now before the Supreme Court. The government's brief recognizes an individual right to bear arms but argues that historically the right excluded felons (even though they are presumably part of "the People"). Moreover, it argues that the Second Amendment may permit a wide range of reasonable regulations of firearms.

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  • David Strauss

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  • Jonathan Hafetz
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