Case 17-1558, Document 67, 07/12/2017, 2077483, Page1 of 42 17-1558-cv United States Court of Appeals for the Second Circuit LIBERIAN COMMUNITY ASSOCIATION OF CONNECTICUT, on behalf of themselves and those similarly situated, LOUISE MENSAH-SIEH, on behalf of herself and her minor children B.D. and S.N., on behalf of themselves and those similarly situated, VICTOR SIEH, on behalf of themselves and those similarly situated, EMMANUEL KAMARA, on behalf of themselves and those similarly situated, ASSUNTA NIMLEY-PHILLIPS, on behalf of themselves and those similarly situated, LAURA SKRIP, on behalf of themselves and those similarly situated, RYAN BOYKO, on behalf of themselves and those similarly situated, ESTHER YALARTAI, on behalf of themselves and those similarly situated, BISHOP HARMON YALARTAI, on behalf of themselves and those similarly situated, MARY JEAN O, on behalf of themselves and those similarly situated, Plaintiffs-Appellants, NATHANIEL SIEH, on behalf of themselves and those similarly situated. Plaintiff, (For Continuation of Caption See Inside Cover) –––––––––––––––––––––––––––––– ON APPEAL FROM THE UNITED STATES DISTRICT COURT FOR THE DISTRICT OF CONNECTICUT BRIEF FOR AMICI CURIAE MARK BARNES AND LEANA WEN IN SUPPORT OF APPELLANTS DAVID A. BARRETT ANN O’LEARY KATHLEEN HARTNETT YOTAM BARKAI BOIES SCHILLER FLEXNER LLP Attorneys for Amici Curiae Mark Barnes and Leana Wen 575 Lexington Avenue New York, New York 10022 (212) 446-2300 Case 17-1558, Document 67, 07/12/2017, 2077483, Page2 of 42 – v. – DANNEL P. MALLOY, Governor, RAUL PINO, Commissioner of Public Health, JEWEL MULLEN, Former Commissioner of Public Health, Defendants-Appellees. Case 17-1558, Document 67, 07/12/2017, 2077483, Page3 of 42 TABLE OF CONTENTS TABLE OF AUTHORITIES ................................................................................... iii INTEREST OF AMICI CURIAE ............................................................................... 1 INTRODUCTION AND BACKGROUND .............................................................. 2 ARGUMENT ............................................................................................................. 7 I. The Court Should Address the Constitutional Parameters of Sound Quarantine Policy, Which Is a Pressing Legal and Health Policy Issue ......... 7 A. Epidemics of Dangerous Infectious Diseases Present Particular Challenges to the Legal System ............................................................ 7 B. In Deciding this Case, the Court Can Articulate Legal Principles that Will Guide Government Response to the Next Epidemic .................... 9 C. A Measured, Scientifically Based Response Is Essential to Effective Control of Epidemics .......................................................................... 12 II. State Public Health Officials Have Front-Line Responsibilities to Protect the Public by Implementing Scientifically Sound Quarantine Practices in Accordance with Due Process Principles ...................................................... 16 A. Protecting Public Health and Safety by Responding to Epidemics Is Primarily the Responsibility of State and Local Officials .................. 16 B. Due Process Requires an Appropriate Scientific Basis for Quarantine Decisions ............................................................................................. 18 C. Quarantined Individuals Must Be Afforded Due Process Protections ........................................................................................... 23 III. As a Matter of Constitutional Right, Quarantine Policies and Practices Must Be Scientifically Supported and Provide Fundamental Procedural Protections ..................................................................................................... 26 i Case 17-1558, Document 67, 07/12/2017, 2077483, Page4 of 42 A. Quarantines Must Be Scientifically Justified ...................................... 27 B. Quarantine Decisions Must Be Individualized, with Quarantines Implemented Only Where They Are the Least Restrictive Means Available ............................................................................................. 28 C. There Must Be Appropriate Procedural Safeguards for Individuals Subject to Quarantines ........................................................................ 30 CONCLUSION ........................................................................................................ 32 ii Case 17-1558, Document 67, 07/12/2017, 2077483, Page5 of 42 TABLE OF AUTHORITIES Cases Addington v. Texas, 441 U.S. 418 (1979) ............................................................................................. 17 Bailey v. Pataki, 708 F.3d 391 (2d Cir. 2013) ................................................................................. 32 Compagnie Francaise de Navigation a Vapeur v. State Bd. of Health, La., 186 U.S. 380 (1902) ............................................................................................. 17 Jacobson v. Massachusetts, 197 U.S. 11 (1905) ........................................................................................ 16, 17 Mathews v. Eldridge, 424 U.S. 319 (1976) ...................................................................................... 30, 31 Mayhew v. Hickox, No. CV-2014-36, slip op. (Me. Dist. Ct. Oct. 31, 2014). ...................................... 9 Zinermon v. Burch, 494 U.S. 113 (1990) ............................................................................................. 32 Rules and Statutes 28 U.S.C. § 2241 ...................................................................................................... 11 Conn. Gen. Stat. Ann. § 19a-131b ...................................................................... 5, 25 Control of Communicable Diseases, 82 Fed. Reg. 6890 (Jan. 19, 2017) (to be codified at 42 C.F.R.) ........................................... 2, 4, 6, 11, 16, 17, 20, 24, 31 iii Case 17-1558, Document 67, 07/12/2017, 2077483, Page6 of 42 Other Authorities ACLU & YALE GLOB. HEALTH JUSTICE P’SHIP, FEAR, POLITICS, AND EBOLA: HOW QUARANTINES HURT THE FIGHT AGAINST EBOLA AND VIOLATE THE CONSTITUTION (2015). ................ 8, 14, 16, 18 Ass’n for Profs. in Infection Control & Epidemiology, Joint Statement: Leading infectious disease medical societies oppose quarantine for asymptomatic healthcare personnel traveling from West Africa (Oct. 31, 2014) ................................................................... 4, 18, 22, 29, 30 Cécile M. Bensimon, Evidence and Effectiveness in Decisionmaking for Quarantine, AM. J. PUB. HEALTH, Apr. 2007 ...................................................................................... 19 Nahid Bhadelia, Has The World Learned The Wrong Lessons From The Ebola Outbreak?, NPR (Jan. 19, 2016) ............................................................................................. 10 Larry Brilliant, Ebola: What Should We Do Now?, WALL ST. J. (Oct. 17, 2014) ........................ 20 Declan Butler, How to Beat the Next Ebola, NATURE (Aug. 5, 2015) ......................................... 10 Council of State & Territorial Epidemiologists, Press Release (Oct. 28, 2014) ................................................................... 4, 18, 23 Ctrs. for Disease Control & Prevention, 2014-2016 Ebola Outbreak in West Africa (updated June 22, 2016) .................... 3 Ctrs. for Disease Control & Prevention, Cases of Ebola Diagnosed in the United States (updated Dec. 16, 2014) ............ 3 Ctrs. for Disease Control & Prevention, Interim Table of State Ebola Screening and Monitoring Policies for Asymptomatic Individuals (Aug. 31, 2015) ........................................................... 6 Ctrs. for Disease Control & Prevention, Notes on the Interim U.S. Guidance for Monitoring and Movement of Persons with Potential Ebola Virus Exposure (updated Feb. 19, 2016) ...................................................................... 3, 21, 28, 29 iv Case 17-1558, Document 67, 07/12/2017, 2077483, Page7 of 42 Ctrs. for Disease Control & Prevention, Travel and Border Health Measures to Prevent the International Spread of Ebola (July 8, 2016) .................................................................................... 8, 21 W. Bruine de Bruin et al., Expert judgments of pandemic influenza risks, GLOB. PUB. HEALTH, June 2006 ............................................................................................................. 10 Jeffrey M. Drazen et al., Ebola and Quarantine, 371 NEW ENG. J. MEDICINE 2029 (Nov. 2014) ............................................................................. 6, 12, 15, 19, 27, 28 Paul Farmer, Diary, LONDON REV. BOOKS, Oct. 2014. ............................................................. 13 Lawrence O. Gostin, The United States’ Misguided Self-Interest On Ebola, HEALTH AFFAIRS BLOG (Oct. 31, 2014) ........................................................................................... 14 Clyde Haberman, Chasing Cures for Deadly Scourges, and Getting in Our Own Way, N.Y. TIMES (May 14, 2017) .......................................................................................... 10 Infectious Diseases Soc’y of Am., IDSA Ebola Guidance (Aug. 21, 2014) .............................................. 4, 18, 22, 29 Infectious Diseases Soc’y of Am., IDSA Statement on Involuntary Quarantine of Healthcare Workers Returning From Ebola-Affected Countries .......................................................... 21 Roger Magnusson, Advancing the