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A Contribution to the Study of Administrative Power in a Philosophical Perspective

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A Contribution to the Study of Administrative Power in a Philosophical Perspective A Contribution to the Study of Administrative Power in a Philosophical Perspective by Daniel Alejandro Castano Parra A dissertation submitted in partial satisfaction of the requirements for the degree of Doctor of Juridical Science – Scientiae Juridicae Doctor (JSD) in The School of Law of the University of California, Berkeley Committee in charge: Professor Anne Joseph O’Connell, Chair Professor Robert Kagan Professor Martin Shapiro Professor David Vogel Summer 2017 A Contribution to the Study of Administrative Power in a Philosophical Perspective © 2017 by Daniel Alejandro Castano Parra Abstract A Contribution to the Study of Administrative Power in a Philosophical Perspective by Daniel Alejandro Castano Parra Doctor of Juridical Science University of California, Berkeley Professor Anne Joseph O’Connell, Chair This dissertation explores the challenges that administrative reasoning places on classical theories about the nature of law or adjudication, the structure of the legal process, and the separation of powers, particularly in its relationship with legality and the active role of the administrative power in modern governance. It describes how traditional theories about the nature of law and adjudication have explicitly addressed the philosophical foundations of judicial reasoning in hard cases, but they have been oblivious about how administrative decision-makers should decide them. This dissertation argues for an eclectic model where administrative reasoning should ideally be informed by publicly validated expert knowledge that requires a moral and political compass oriented towards the fulfillment of the purposes and aspirations of a democratic polity that lives under the rule of law. To that end, it proposes that the administrative power ought to decide hard cases regardless of the empirical, theoretical or meta-interpretive nature of the disagreement they may elicit. It suggests that, unlike the judiciary, the administrative power is ideally endowed with original or delegated lawmaking authority, vested with democratic legitimacy, and equipped with specialized expertise and the procedural mechanisms to allow the active participation of the citizenry in the administrative process. Furthermore, it proposes that these features entail that administrative decision-makers should reason from principle and policy in deciding hard cases about the planning and allocation of valuable resources in a community by construing the grounds of law or deciding meta- interpretive disagreements based on publicly validated expertise. Finally, this dissertation ventures to speculate that the existence of administrative novelty may challenge the truism embraced by traditional jurisprudence according to which the solution to the tension between law’s certainty and its responsiveness is usually reserved to the interplay legislature-courts that regards the administrative power as a mere executor of legislation. 1 A mi madre, luchadora infatigable i TABLE OF CONTENTS INTRODUCTION ................................................................................................................ 1 HARD CASES ....................................................................................................................... 5 What Are Hard Cases and Why Do They Matter? ............................................................. 7 Law’s Determinacy ............................................................................................................. 9 Law’s Determinacy in Comparative Perspective .............................................................. 11 A Jurisprudential Approach: Is Law’s Determinacy Attainable? ..................................... 13 Legal Formalism ............................................................................................................... 15 Legal Realism ................................................................................................................... 19 Legal Positivism................................................................................................................ 24 Law as Integrity ................................................................................................................ 29 The Planning Theory of Law ............................................................................................ 33 Hard Cases Revisited ........................................................................................................ 38 ADMINISTRATIVE REASONING & DISAGREEMENT ABOUT LAW ................. 42 Four Real-World Administrative Hard Cases ................................................................... 43 The Story of the “Bubble Policy” ..................................................................................... 44 The Story of a Jurisdictional Mirage ................................................................................ 57 The Story of the “Gratuitousness Principle” ..................................................................... 63 The Story of Old Providence’s McBean Lagoon Natural Reservoir ................................ 69 Disagreement About Law ................................................................................................. 75 Empirical Disagreement About Law ................................................................................ 78 Theoretical Disagreement About Law .............................................................................. 79 Meta-Interpretive Disagreement About Law .................................................................... 80 Administrative Hard Cases ............................................................................................... 81 THE PHILOSOPHICAL ARCHITECTURE OF ADMINISTRATIVE REASONING ............................................................................................................................................... 86 The Transmission Belt Theory .......................................................................................... 88 Administrative Justice ....................................................................................................... 95 The Hartian Challenge .................................................................................................... 102 Hercules: The Administrator? ......................................................................................... 108 A Planning Theory of Administrative Law .................................................................... 114 The Boundaries of Administrative Reasoning ................................................................ 122 THE ADMINISTRATIVE POWER: UNTAMED? ...................................................... 126 Three Objections Against Administrative Novelty or Creativity ................................... 127 The Administrative Power to Say What the Law Is: A Preliminary Inquiry .................. 130 Judging and Administrating: A Hard Nut to Crack? ...................................................... 131 The Administrative Power’s Political or Democratic Accountability ............................ 136 The Administration and the Legislature ......................................................................... 138 The Administration and the President ............................................................................. 139 The Administration and the Judiciary ............................................................................. 141 Administrative Reasoning & Expertise .......................................................................... 147 The Administrative Power to Say What the Law Is in Comparative Law Perspective .. 155 Legal Realism, Legal Process, and the American Administrative State ......................... 158 Legal Positivism, Hercules, and the Colombian Public Administration ........................ 162 ii THE LANGUAGE OF LEGALITY ............................................................................... 169 Enlightenment Constitutionalism: Mapping the Origins of the Administrative Power .. 171 The Language of Legality and Its Values ....................................................................... 173 The Path of the Law ........................................................................................................ 178 The Rise of the Administrative Power ............................................................................ 182 Administrative Novelty ................................................................................................... 188 Hermes Awakens ............................................................................................................ 194 EPILOGUE: A LITTLE BIT OF LAW ABOUT ADMINISTRATIVE LAW .......... 204 BIBLIOGRAPHY ............................................................................................................. 208 APPENDIX ........................................................................................................................ 230 iii ACKNOWLEDGEMENTS Writing this dissertation was a wonderful personal and academic journey. Many individuals and institutions contributed to the opportunity of pursuing it. I owe thanks to many people. I am grateful to Berkeley Law School, particularly to my dissertation committee: Anne Joseph O’Connell, Robert Kagan, Martin Shapiro, and David Vogel. They provided support, advice, encouragement, and freedom to take the road I deemed the most appropriate to develop this project. I received generous financial support from Banco de
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