Taking Liberties with the First Amendment: Congress, Section 5, and the Religious Freedom Restoration Act

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Taking Liberties with the First Amendment: Congress, Section 5, and the Religious Freedom Restoration Act Scholarly Commons @ UNLV Boyd Law Scholarly Works Faculty Scholarship 1995 Taking Liberties with the First Amendment: Congress, Section 5, and the Religious Freedom Restoration Act Jay S. Bybee University of Nevada, Las Vegas -- William S. Boyd School of Law Follow this and additional works at: https://scholars.law.unlv.edu/facpub Part of the Constitutional Law Commons Recommended Citation Bybee, Jay S., "Taking Liberties with the First Amendment: Congress, Section 5, and the Religious Freedom Restoration Act" (1995). Scholarly Works. 351. https://scholars.law.unlv.edu/facpub/351 This Article is brought to you by the Scholarly Commons @ UNLV Boyd Law, an institutional repository administered by the Wiener-Rogers Law Library at the William S. Boyd School of Law. For more information, please contact [email protected]. VANDERBILT LAW REVIEW VOLUME 48 NOVEMBER 1995 NUMBER 6 Taking Liberties With the First Amendment: Congress, Section 5, and the Religious Freedom Restoration Act Jay S. Bybee* I. INTRODUCTION ................................................................... 1542 II. THE FIRST AMENDMENT AND THE BILL OF RIGHTS: TEXT AND THE FOUNDING ............................................................ 1546 A The Structure of ConstitutionalPowers: Of Powers, Immunities, and Disabilities................... 1546 B. The Structure of the Bill of Rights......................... 1552 1. The Second through Eighth Amendments: A Bill of Privileges and Immunities .......................................... 1552 2. The First Amendment: A Congressional Disability .................................................... 1555 a. "Congress"as Congress, and not the states.......................................... 1557 b. "Congress"as Congress, and not the federaljudiciary ........................ 1560 3. Reconciling Text and Theory ...................... 1563 * Associate Professor of Law, Louisiana State University; B.A., 1977; J.D., 1980, Brigham Young University. I am grateful to the following who read earlier drafts of this Article and offered their encouragement and comments: Joseph T. Bockrath, Daniel 0. Conkle, John Devlin, Frederick Mark Gedicks, Randall D. Guynn, Marci A. Hamilton, Kurt T. Lash, John 0. McGinnis, Val D. Ricks, Gregory C. Sisk, and Steven D. Smith. I received fime research and editorial assistance from J. Todd Benson. Any remaining errors are my own. 1539 HeinOnline -- 48 Vand. L. Rev. 1539 1995 1540 VANDERBILT LAW REVIEW [Vol. 48:1539 C. The FirstAmendment in the Interregnum: Government Disabilityor PersonalPrivilege? . .... 1567 1. The First Amendment in Congress: The Sedition Act Debates .................................. 1567 2. The First Amendment in the Supreme Court ........................................................... 1571 III. THE FIRST AND FOURTEENTH AMENDMENTS: TEXT AND THE RECONSTRUCTION ....................................................... 1577 A. The FirstAmendment and the Thirty-Ninth Congress ................................................................. 1578 1. The First Amendment and the Debate Over John Bingham's Proposed Amendment, February 1866 ...................... 1579 2. The First Amendment and the Debates Over the Proposed Fourteenth Amendment, May-June 1866 ..................... 1584 B. The Firstand FourteenthAmendments in the Wake of Ratification............................................... 1589 1. The First and Fourteenth Amendments in Congress: The Enforcement Debates .... 1589 a. The FirstAmendment as a congressionallyenforceable personal privilege................................................. 1590 b. The FirstAmendment as a court- enforced disability................................. 1592 c. Epilogue: The strange case of the Blaine Amendment ............................... 1596 2. The First and Fourteenth Amendments in the Supreme Court ................................. 1598 IV. THE FIRST AND FOURTEENTH AMENDMENTS: FORGOTTEN TEXT AND MODERN THEORIES ........................................... 1605 A. The Textual Basis for Incorporation...................... 1605 1. The Privileges or Immunities Clause ........ 1605 a. The Privileges or Immunities Clause as a mandate for substantive rights ..... 1606 b. The Privileges or Immunities Clause as a mandate for equal privileges or immunities........................................ 1610 2. The Due Process Clause ............................. 1612 a. The Due Process Clause and "absorption"of the FirstAmendment... 1613 HeinOnline -- 48 Vand. L. Rev. 1540 1995 1995] TAKING LIBERTIES 1541 b. The Due Process Clause and "incorporation"of the First Amendment ........................................... 1614 3. Reconstructing the First Amendment; The Consequences of Text and Theory ...... 1615 B. Section 5 and the Enforcement of the Fourteenth Am endm ent ............................................................ 1616 1. Judicial Enforcement of Section 1 ............. 1616 2. Remedial Congressional Enforcement of Section 1 ..................................................... 1619 3. Independent Congressional Enforcement of Section 1 ................................................. 1620 V. SECTION 5 AND THE FIRST AMENDMENT: THE CONSTITUTIONALITY OF THE RELIGIOUS FREEDOM RESTORATIONACT .............................................................. 1624 A. Section 5 and the Reconstructionof the First Am endment ............................................................ 1624 B. Reconciling Section 5, the FirstAmendment, and R FRA ...................................................................... 1628 VI. CONCLUSION ...................................................................... 1632 No act of Congress can authorize or make a law respecting an establishment of religion, or prohibiting the free exercise thereof.... Would it be appropriate legislation to enforce [the Fourteenth Amendment] that Congress should pass an act prohibiting a State from doing so or directing it to do so? Congress is simply restrained from doing this itself. [A]n attempt on the part of Congress to exercise powers not granted, and much more, powers prohibited, is a usurpation that cannot be justified by any legislation under the fourteenth amendment .... I [The States] shall not substantially burden a person's exercise of religion .... 2 1. Cong. Globe, 42d Cong., 1st Sess. 572 (1871) (statement of Sen. Stockton). 2. Religious Freedom Restoration Act of 1993, Pub. L. No. 103-141, § 3(a), 107 Stat. 1488 (1993), codified at 42 U.S.C. § 2000bb (Supp. V 1993). HeinOnline -- 48 Vand. L. Rev. 1541 1995 1542 VANDERBILT LAW REVIEW [Vol. 48:1539 I. INTRODUCTION In July 1788 the North Carolina legislature was considering ratification of the Constitution, a constitution that did not contain a Bill of Rights. As the delegates reached the Religious Test Clause,3 Henry Abbot remarked: Some are afraid... that, should the Constitution be received, they would be deprived of the privilege of worshiping God according to their consciences, which would be taking from them a benefit they enjoy under the present con- stitution. They wish to know if their religious and civil liberties be secured under this system, or whether the general government may not make laws in- fringing their religious liberties.... Many wish to know what religion shall be established. 4 James Iredell, Federalist, former North Carolina Attorney General, and future Supreme Court justice, responded that he was "astonished" that anyone should conceive that Congress had "authority to interfere in the establishment of any religion whatso- ever."' He went on, "If any future Congress should pass an act con- cerning the religion of the country, it would be an act which they are not authorized to pass .... Every one would ask, 'Who authorized the government to pass such an act?' It is not warranted by the Constitution, and is barefaced usurpation."6 Iredell then referred to the Guaranty Clause 7 and asked, rhetorically, "why a guaranty of religious freedom was not included." Iredell answered his own ques- tion: "Had Congress undertaken to guaranty religious freedom, or any particular species of it, they would then have had a pretence to interfere in a subject they have nothing to do with. Each state, so far as the [Guaranty Clause] does not interfere, must be left to the opera- tion of its own principles."8 In 1993 Congress enacted the Religious Freedom Restoration Act ('RFRA") 9 which provided that government, including the United States and the states, "shall not substantially burden a person's exer- 3. U.S. Const., Art. VI, cl. 3 ("N]o religious Test shall ever be required as a Qualification to any Office or public Trust under the United States"). 4. Jonathan Elliot, ed., 4 The Debates in the Several State Conventions on the Adoption of the Federal Constitution 191-92 (Burt Franklin, 2d ed. 1888) ("Elliot's Debates"). 5. Id. at 194. 6. Id. 7. U.S. Const., Art. IV, § 4 ("The United States shall guarantee to every State in this Union a Republican Form of Government"). 8. 4 Elliot's Debates at 195 (cited in note 4). 9. Religious Freedom Restoration Act of 1993, Pub. L. No. 103-141, 107 Stat. 1448 (1993), codified at 42 U.S.C. § 2000bb (Supp. V 1993). HeinOnline -- 48 Vand. L. Rev. 1542 1995 19951 TAKING LIBERTIES 1543 cise of religion even if the burden results from a rule of general appli- cability" except where the government can demonstrate that the burden furthers "a compelling governmental interest" and is "the least restrictive means of furthering that... interest."1 In his Rose Garden ceremony upon
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