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Shane on Noel Canning

Posted By Frank Pasquale On January 27, 2013 @ 8:35 pm In Constitutional Law,Politics | 7 Comments

The recent DC Circuit opinion invalidating [1] the President’s recess appointments to the NLRB may alter the balance of power between the branches as much as INS v. Chadha did. Peter Shane [2] (no great fan of executive power grabs [3]) makes the case:

[In Chadha, the Supreme Court said that the Constitution] gives Congress only one way to legislate: Majorities in both the House and the Senate must agree on a text to enact, and the president must sign it, or two-thirds of each House must vote to override the presidential veto. Neither the House, nor the Senate is entitled to make law all by itself. In a January 25 ruling, however, the U.S. Court of Appeals for the DC Circuit pretty much assured the Senate exactly that power. Even worse, it afforded that power not to a majority of senators, but to a minority. . . .

Chiefly because of obstruction from the senators in the Republican minority, the Senate had already established a record of allowing administrative nominees to languish before confirming even noncontroversial appointments. . . . Under [the D.C. Circuit's view,] it is painfully evident what a president may do if (a) he sends to the Senate a timely nomination for an executive branch position that becomes vacant while the Senate is formally convened and (b) a minority of senators just sit on the nomination and refuse to bring it to a vote. In a word, “nothing.”

The constitutional impotence that the DC Circuit would impose on the president means that filibustering senators can prevent an agency from functioning — thus effectively repealing the law that created the agency and authorizing its functions — simply by refusing to confirm an agency head or enough voting members to constitute a quorum.

At least one admin law prof I know has tried to downplay the importance of the ruling, by insisting that these types of power shifts end up hurting both parties equally (there will not be a Democratic President forever [4]). That may be too sanguine. Limiting the power to enforce the law helps whichever party has a more laissez-faire, small government [5] agenda. Moreover, as anyone who followed the divergent rulings in the HillaryCare [6] and Cheney Energy [7] open government cases knows, the precedent may be applied quite differently in different circumstances.


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7 Comments To "Shane on Noel Canning"

#1 Comment By Brett Bellmore On January 28, 2013 @ 7:15 am

“Under [the D.C. Circuit's view,] it is painfully evident what a president may do if (a) he sends to the Senate a timely nomination for an executive branch position that becomes vacant while the Senate is formally convened and (b) a minority of senators just sit on the nomination and refuse to bring it to a vote. In a word, “nothing.””

Yes, precisely, and that’s what the President is supposed to be able to do under such circumstances: Nothing.

Just like, if one or the other chamber refuses to bring to a vote a law the President wants, he may do, “nothing”, rather than just going ahead and enforcing the law Congress didn’t enact.

We’ve got a Constitution which creates a system of legislative supremacy. Legislative refusal to act is SUPPOSED to trump Executive desires.

#2 Comment By Joe On January 28, 2013 @ 11:05 am

“We’ve got a Constitution which creates a system of legislative supremacy.”

We don’t. A supporter of gun rights knows this obviously so the term is being used here loosely to mean supreme in a certain fashion. Few systems don’t give the legislature SOME sort of supremacy in that limited fashion.

Now the debate remains what being vacant means under the terms of the clause, a matter that is far from crystal clear as is use of phony sessions (as is argued) to block an out here, recess appointments. The (in)ability to really get advise and consent in the forty five seconds of a pro forma session, for instance.

We should avoid stupidity and bad results when possible. Sometimes we can’t. Sometimes, especially if we don’t use “originalist” arguments that were in some fashion rejected when some framers were still alive, we can.

#3 Comment By Brett Bellmore On January 28, 2013 @ 12:50 pm

Yes, we do.

The Legislature can remove a President or Judge. Presidents and judges can not remove members of the legislature.

The legislature can enact laws over a Presidential veto. The President can not enact laws over legislative inaction.

The legislature, in cooperation with the states, can amend the Constitution. The President has no imput or veto over this.

Declaring war is reserved for the legislature, not the executive.

Fundamentally, if the executive comes into conflict with a united legislature, the legislature in all cases prevails under the Constitution. I think this is fairly characterized as “legislative supremacy”, and one aspect of it is that the Executive is not entitled to his own choice of subordinates, if the Senate does not agree to them.

#4 Comment By Joe On January 28, 2013 @ 1:27 pm

Presidents and judges also can do things that legislatures cannot do. Legislatures also cannot do anything they want. There are various constitutional checks. This means that legislature is not supreme. That is unless “supremacy” is given a curiously narrow definition.

Presidents can prosecute and have prosecuted sitting legislators and judges. Congress can not do that. They can at best remove people from certain offices and it’s harder for them to do that in practice.

Presidents execute the laws and legislatures cannot execute the laws. Congress cannot send police offices out to make sure their laws are enforced generally speaking.

Presidents have their own powers, including pardons, that legislatures don’t have much “input” over either.

The executive has the power to address sudden attacks, including ways that can lead to extended conflicts. It has a c-i-c function that is some way, such was the very point, that is unilateral. Congress can restrain it only so much. At some point, the President makes command decisions.

In reality, the legislature is repeatedly not “united” given the nature of the body, which is partially why the Constitution gives the President certain powers not given to the legislature. It is not “fairly” considered supremacy when it is far from supreme. The other branches can do things it cannot and no branch has the (licit) power to overrule certain limits put on all.

No, we don’t.

#5 Comment By Jost Joust On January 28, 2013 @ 1:56 pm

Of possible interest: “the justices may not be willing to upend settled practice on the basis of a grammatical distinction that may or may not have been intended by the Framers two centuries ago.”
[8]

#6 Comment By TS On January 28, 2013 @ 3:30 pm

I think the DC Circuit got it right, but do think J. Griffiths was correct to say the court should have stopped with the resolution of “the Recess” issue.

The upshot of this case will be to force the resolution of the filibuster “nuclear option” discussion. Yes, the Senate must be consulted, but it should also be able to act with a majority where the text of the Constitution doesn’t prescribe a super-majority requirement.

#7 Comment By Joe On January 28, 2013 @ 3:59 pm

If the opinion was decided on narrow grounds, particularly, it probably would have applied to too few cases for it to settle the discussion cited. I’m doubtful it will do so even if the USSC upholds the opinion in full.


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URL to article: http://www.concurringopinions.com/archives/2013/01/shane-on-noel-canning.html

URLs in this post:

[1] invalidating: http://www.creditslips.org/creditslips/2013/01/nlrb-and-cfpb-recess-appointments.html

[2] Peter Shane: http://www.huffingtonpost.com/peter-m-shane/legislative-veto-senate_b_2562663.html

[3] executive power grabs: http://www.petermshane.com/id2.html

[4] Democratic President forever: http://pinterest.com/pin/133278470194668529/

[5] small government: http://www.pbs.org/moyers/journal/08012008/profile3.html

[6] HillaryCare: http://connection.ebscohost.com/c/articles/164303/judge-rules-physician-hillary-clinton-cover-up-case

[7] Cheney Energy: http://en.wikipedia.org/wiki/Cheney_v._United_States_District_Court

[8] : http://jostonjustice.blogspot.com/2013/01/d-c-circuits-astounding-decision-on.html

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