JOURNAL OF CONSTITUTIONAL LAW SPECIAL EDITION EMERGENCY FRAMEWORK JUNE 2020 VOLUME 1 / 2020 BRUCE ACKERMAN THE EMERGENCY CONSTITUTION ERIC A. POSNER DEFERENCE TO THE EXECUTIVE IN THE UNITED STATES AFTER SEPTEMBER 11 BRUCE ACKERMAN STATES OF EMERGENCY CLARISA LONG PRIVACY AND PANDEMICS NODAR KHERKHEULIDZE RELATIONSHIP BETWEEN THE PROCESS OF EMERGENCY-RELATED NORM-MAKING AND THE PRINCIPLE OF THE LEGAL STATE IN LIGHT OF A STATE OF EMERGENCY IN GEORGIA DECLARED ON 21 MARCH 2020 TAMAR KHAVTASI THE RIGHT TO PROPERTY IN A STATE OF EMERGENCY ANA JABAURI STATE OF EMERGENCY: A SHORTCUT TO AUTHORITARIANISM NANA UZNADZE, GIORGI MELIKIDZE PARLIAMENTS DURING THE EMERGENCY REGIMES CONSTITUTIONAL GRIGOL ROBAKIDZE COURT OF GEORGIA UNIVERSITY UDC (უაკ) 34 ISSN-2587-5329 CONSTITUTIONAL COURT OF GEORGIA GRIGOL ROBAKIDZE UNIVERSITY CHAIRMAN OF THE EDITORIAL BOARD ZAZA TAVADZE MEMBERS OF THE EDITORIAL BOARD TEIMURAZ TUGHUSHI GIORGI MIRIANASHVILI ANNA PHIRTSKHALASHVILI IRINE URUSHADZE BESIK LOLADZE VAKHTANG MENABDE GIORGI CHKHEIDZE ECKHARD PACHE EDITING AND PUBLISHING – IRINE URUSHADZE STYLIST – EVA CHIKASHUA TRANSLATING – ANA JABAURI, IRINE URUSHADZE COVER DESIGN – MIKHEIL SARISHVILI This material, with the exception of the works by Bruce Ackerman, Eric A. Posner and Clarisa Long, is licensed under Creative Commons Attribution (CC BY) 2.0. To view a copy of this license: https://creativecommons.org/licenses/by/2.0/legalcode The papers by Bruce Ackerman “The Emergency Constitution” and “States of Emergency”, Eric A. Posner “Deference To The Executive In The United States After September 11” and Clarisa Long “Privacy And Pandemics” are distributed under Creative Commons Attribution Non-Commercial Share-Alike 3.0 License. To view a copy of this license: https://creativecommons.org/licenses/by-nc-sa/3.0/ 8/10 K. Gamsakhurdia str. | 16/18 M. Abashidze str. Batumi 6010, Georgia E-MAIL: [email protected] FOREWORD The Novel Coronavirus (COVID-19) pandemic fun- damentally transformed life in the world. By a scale of their reach in such a short period of time, the measures taken by the states to contain the spread of the virus are unprecedented. The critical need to protect public health prompted the states to restrict human rights by instant decision-making. It will not be exaggerated to assert that the foregoing tendency puts a present-day liberal democracy to a test, since it risks the concen- tration of excessive powers within the executive. Intrinsically, against a backdrop of crisis governance caused by the pandemic, questions were raised from the standpoint of modern constitutionalism and the existing literature, due to insufficiency of research, did not prove to be able to answer those. The need to engage into academic discussion on managing the containment of the pandemic and, in general, on a crisis governance model thus becomes evident. This is further attested by several cases pending before the Constitutional Court of Georgia, whereby emergency legislation on measures adopted by the state is subjected to a dispute. In order to ensure the effectiveness of the existing constitutional order and strengthen its viability, it is es- sential to set forth clear, consistent and uniform constitutional standards in relation to the functioning of emergency regime and crisis governance. The present publication of the “Journal of Constitutional Law” is a special issue, which is devoted to the emergency regulation in constitutional law and the protection of human rights. The publication consists of eight academic pieces both from Georgian and foreign authors. The journal combines the articles of young Georgian researchers on important legal topics, such as the law-making procedure during the emergency (by Nodar Kherkheulidze), the protection of the right to property during the pandemic (by Tamar Khavtasi), the threats emanating from the emergency regime (by Ana Jabauri), and the functioning of the parliament during the emergency (by Giorgi Melikidze and Nana Uz- nadze). I am glad that the present issue, also encompasses the work of three authoritative and highly-cited foreign scholars – Bruce Ackerman, Eric A. Posner and Clarisa Long – on the regulation of emergency in the United States of America, alongside the protection of private information during the pandemic. The article by Professor Bruce Ackerman, which discusses the accordance of power to the executive in the aftermath of 9/11 terror- ist attacks from the constitutional perspective, is one of the most authoritative contributions regarding the emergency governance. He authors the second piece where he presents an opinion on what may be done to balance the executive power during the emergency. The article by Professor Eric A. Posner considers the doctrine of deference to the executive authority and its scope in the United States of America. The newly pub- lished article by Professor Clarisa Long on the collection of private information by the states during the COVID-19 pandemic is just as interesting and pertinent. I wish to express my sincere gratitude towards foreign Scholars – Bruce Ackerman, Eric A. Posner and Clarisa Long, as well as Professor Cass R. Sunstein for their cooperation with the publication of the Constitutional Court of Georgia and for making their academ- ic work available to Georgian readership. I wholeheartedly hope that the present issue of the “Journal of Constitutional Law” will be a valuable contribution in understanding the emergency regulatory regime from con- stitutional law perspective and will facilitate further academic discourse in this direction. ZAZA TAVADZE PRESIDENT OF THE CONSTITUTIONAL COURT OF GEORGIA TABLE OF CONTENTS BRUCE ACKERMAN THE EMERGENCY CONSTITUTION ................................................................... 9 Abstract ................................................................................................................................. 9 Introduction........................................................................................................................... 9 I. Between War And Crime ............................................................................................ 12 A. War? ......................................................................................................................... 12 B. Crime? ...................................................................................................................... 14 C. Reassurance ............................................................................................................. 16 II. Re-Rationalizing Emergency ...................................................................................... 17 III. The Model Of Judicial Management ........................................................................... 20 IV. Checks And Balances .................................................................................................. 24 A. From Ancient to Modern .......................................................................................... 24 B. The Supermajoritarian Escalator ............................................................................ 25 C. Minority Control of Information .............................................................................. 28 D. The Need for Constitutional Revision ...................................................................... 30 V. Questions Of Scope ..................................................................................................... 33 VI. Compensation .............................................................................................................. 38 VII. The Place Of Judges .................................................................................................... 42 A. Macromanagement ................................................................................................... 42 B. Microadjudication .................................................................................................... 44 C. The Power of Hindsight ........................................................................................... 49 D. An Overview ............................................................................................................. 50 VIII. Tragic Compromise .......................................................................................... 51 A. Past Experience ........................................................................................................ 51 B. A Thought Experiment .............................................................................................. 54 C. Constitutional Questions .......................................................................................... 57 1. Suspension of Habeas Corpus ............................................................................... 57 2. Supermajorities? .................................................................................................... 60 IX. The Race Against Time ............................................................................................... 63 ERIC A. POSNER DEFERENCE TO THE EXECUTIVE IN THE UNITED STATES AFTER SEPTEMBER 11 ...................................................................................................... 65 Abstract ............................................................................................................................... 65 Introduction........................................................................................................................