Guest Post from Christian Fritz, Emeritus Professor, University of New Mexico School of Law: On the origins of his new book, Monitoring American Federalism: The History of State Legislative Resistance (Cambridge University Press, 2023). See news of the publication here.
Monitoring
American Federalism: The History of State Legislative Resistance is a digression
from a much broader study examining the practice of democracy in America. After
the publication of my earlier book, American
Sovereigns: The People and America’s Constitutional History Before the Civil
War, I was interested in exploring how
the widespread acceptance of popular sovereignty affected the relationship of
constituents to their representatives in the American context and how popular
sovereignty emboldened the people to play a more active role in the political process. In other words,
how did the constitutional premise of a sovereign people as the constituent
authority alter the understanding of the nature of political representation
after the American Revolution?
That inquiry
led me to examine the multiple tools through which the people, as constituents,
expressed their will beyond the mere fact of voting—including the mechanisms of
initiative, referendum, recall, and the right of instruction. Research into the
right of instruction opened the door to multiple different ways in which Americans
sought to instruct their representatives.
One expression
of this dynamic included so-called senatorial instruction, the practice of
state legislatures to instruct or direct the actions of their state’s representatives
in the Senate. State legislatures believed they were entitled to issue
instructions since state legislators selected U.S. Senators before the passage
of the 17th Amendment.
Scholars had
long been aware of the many resolutions state legislatures passed instructing
their Senators on a host of substantive issues, especially during the struggles
over the Bank of the United States during the Jacksonian period. Far less
appreciated was the fact of a small sub-set of instructions that identified the
legislature’s conclusion that the federal government was acting beyond its
rightful authority as the basis of their senatorial instruction. In effect,
state legislatures were “sounding the alarm” (a phrase they often employed)
about perceived constitutional overreaching by the federal government,
initiating a process seeking to redress the equilibrium of federalism between
nation and states by using the tool of interposition that is a centerpiece of Monitoring American Federalism.
The search for
the genesis of such a role for state legislatures led back to none other than
James Madison’s and Alexander Hamilton’s contributions in their Federalist essays.
Despite the barrels of ink spent over the years in examining the writings of Publius,
the monitoring role for state legislature has largely been overlooked. This is
but one new finding of the book.
Monitoring
American Federalism demonstrates how states played a
crucial role from the beginning of the republic in assessing the equilibrium of
federalism within the American constitutional order. Unlike judicial review, interposition did not have immediate
constitutional effect, but was designed to work through political pressure in
attempting to maintain an equilibrium between the national and state
governments by enabling state legislatures to express and coordinate their
discontent over federal laws and measures.
In its use before the Civil War, interposition by states involved the
conviction that elected officials, especially state legislators, but also
individual citizens, juries, or the press, could properly scrutinize any
expansive assertions by the federal government, not simply the Supreme Court.
State interposition would be used to oppose many perceived threats, including
the Alien and Sedition Acts, the War of 1812, federal tariffs, internal
improvements, and pro-slavery laws.
Interposition emerged as a response by critics worried that the
Constitution’s grant of national powers would obliterate state authority. This
early interposition formed an institutional way to acknowledge the divided
sovereignty and to preserve the equilibrium of federalism. Properly
understood at the time, interposition was not a claim that state
sovereignty could or should displace national authority, but a claim that
American federalism needed to preserve some balance between state and national
authority.
Interposition as a constitutional tool became distorted with the rise
of South Carolinian John C. Calhoun’s claims during the Nullification crisis of
the 1830s. Historians today describe interposition as inherent in the states’
rights political tradition of defending slavery, which inexorably led to
Southern secession and Civil War. This narrative ignores the practice of
interposition before its appropriation by nullifiers and those invested in
slavery who claimed the right of individual states to defy national laws and
decisions of the Supreme Court. Nonetheless, there was a great divide between
those who advocated for the rights of state legislatures to question the
federal government on any constitutional issue through interposition—and those
who supported nullification. The gulf between the two invocations of state
interposition was underscored in the 1830s, when many of those who embraced
interposition rejected nullification.
The decline of interposition after the Civil War can be traced to the
growth of powers that the federal government assumed during the war.
Inevitably, the Civil War Amendments placed additional power in the hands of
the national government. Thus, as the enhancement of national authority altered
the balance of federalism, states were left with their reserved rights, now
subject to the constraints imposed on them by the new powers granted to the
national government. Concerned that the balance of federalism had shifted
dramatically, it is no wonder that the slogan of states’ rights was embraced
after the war by those who resisted Reconstruction and the efforts to implement
the Civil War Amendments.
By the 1870s, enhanced federal authority and the growing
assumption that the Supreme Court was the natural arbiter of the constitutional
relationship between the federal and state governments largely eclipsed the
basic function of interposition to protest perceived imbalance in the
equilibrium of federalism.
Interposition only resurfaced in the 1950s as
some Americans sought a constitutional basis for white supremacy and racial
inequality, particularly in opposition to integration. Later, a version of
interposition termed “Judicial Federalism” emerged as a constraint on federal
legislative power in Printz v. United
States (1997) and use of interposition, “uncooperative federalism,” and
nullification-like efforts resumed in resistance to federal laws including the
Patriot Act of 2001, the Real ID Act of 2005, and the Affordable Care Act of
2010.
What remains is whether interposition as a
sounding the alarm function of the states serves any useful purpose today as an
expression of the people's sovereignty.