Federalism from federal statutes: Health reform, medicaid, and the old-fashioned federalists' gamble

Fordham Law Review

Volumn 81, Issue 4, 2013, Pages 1749-1775

  Gluck, Abbe R ^a  

^a YALE UNIVERSITY   (United States)

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[No Author keywords available]

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EID: 84876234667     PISSN: 0015704X     EISSN: None     Source Type: Journal    
DOI: None     Document Type: Conference Paper

References (94)

1. For a well-known example of one such treatment, see Larry Kramer, Putting the Politics Back into the Political Safeguards of Federalism, 100 COLUM. L. REV. 215, 227, 234 (2000)
2. See Herbert Wechsler, The Political Safeguards of Federalism: The Role of the States in the Composition and Selection of the National Government, 54 COLUM. L. REV. 543 (1954)
3. Pub. L. No. 111-148, 124 Stat. 119 (2010)
4. (codified as amended in scattered sections of 26 and 42 U. S. C).
5. Nat'l Fed'n of Indep. Bus. v. Sebelius (NFIB), 132 S. Ct. 2566 (2012).
6. NFIB, 132 S. Ct. at 2606-07
7. Since the Court held in Printz v. United States that Congress cannot commandeer state executive authority, Congress has given the states the choice to administer new federal programs or to opt out. 521 U. S. 898, 935 (1997).
8. see FEDERALISM AND HEALTH POLICY (John Holahan et al. eds., 2003)
9. and HEALTH POLICY, Federalism, and the American States (Robert F. Rich & William D. White eds., 1996).
10. See THE FRAGMENTATION OF U. S. HEALTH CARE: CAUSES AND SOLUTIONS (Einer Elhauge ed., 2010).
11. For an excellent treatment of the opposite view, see MALCOLM M. FEELEY & EDWARD RUBIN, FEDERALISM: POLITICAL IDENTITY AND TRAGIC COMPROMISE (2008) (arguing federalism without autonomy is simply decentralization).
12. NFIB, 132 S. Ct. 2642, 2660 (2012) (joint dissent).
13. Abbe R. Gluck, Intrastatutory Federalism and Statutory Interpretation: State Implementation of Federal Law in Health Reform and Beyond, 121 YALE L. J. 534 (2011).
14. This is because Congress can tax and spend as it wishes for the general welfare, see U. S. CONST, art. I, § 8, cl. 1, a power that even the conservative wing of the Court agrees gives Congress enormous authority over social policy.
15. See, e.g., NFIB, 132 S. Ct. at 2643 (joint dissent).
16. See Heather Gerken, The Federalis (m) Society, 36 HARV. J. L. & PUB. POL'Y (forthcoming 2013) (on file with author);
17. see also Ted Ruger, Health Policy Devolution and the Institutional Hydraulics of the Affordable Care Act, in THE HEALTH CARE CASE (Persily et al. eds., forthcoming 2013)
18. Clean Air Act Amendments of 1970, Pub. L. No. 91-604, 84 Stat. 1676
19. (codified as amended in 42 U. S. C. §§ 7401-7671 (2006)).
20. No Child Left Behind Act of 2001, Pub. L. No. 107-110, 115 Stat. 1425 (2002)
21. (codified in scattered sections of 20 U. S. C).
22. Patient Protection and Affordable Care Act, Pub. L. No. 111-148, 124 Stat. 119 (2010)
23. (codified as amended in scattered sections of 26 and 42 U. S. C).
24. See 3 BRUCE ACKERMAN, WE THE PEOPLE: THE CIVIL RIGHTS REVOLUTION (forthcoming 2014) (on file with author);
25. WILLIAM N. ESKRIDGE & JOHN FEREJOHN, A REPUBLIC OF STATUTES: THE NEW AMERICAN CONSTITUTION (2010);
26. Ernest A. Young, The Constitution Outside the Constitution, 117 YALE L. J. 408 (2007).
27. See Jerry L. Mashaw, Reluctant Nationalists: Federal Administration and Administrative Law in the Republican Era, 1801-1829, 116 YALE L. J. 1636, 1649-50 (2007)
28. See, e.g., Clean Air Act, 42 U. S. C. § 7543 (e) (2) (A) (2006) (providing California a special authorization to "adopt and enforce" emissions standards).
29. NFIB, 132 S. Ct. 2566, 2578 (2012).
30. 521 U. S. 898 (1997).
31. Cf Judith Resnik, Lessons in Federalism from the 1960s Class Action Rule and the 2005 Class Action Fairness Act: "The Political Safeguards" of Aggregate Translocal Actions, 156 U. PA. L. REV. 1929, 1966 (2008)
32. Wendy K. Mariner, Social Solidarity and Personal Responsibility in Health Reform, 14 CONN. INS. L. J. 199, 205, 207 (2008).
33. See generally Tom Baker, Health Insurance, Risk and Responsibility After the Patient Protection and Affordable Care Act, 159 U. PA. L. REV. 1577 (2011);
34. Jessica L. Roberts, Health Law As Disability Rights Law, MINN. L. REV. (forthcoming 2013).
35. Patient Protection and Affordable Care Act, Pub. L. No. 111-148, § 10106 (b), 124 Stat. 119, 909-11 (2010)
36. (codified at 26 U. S. C. § 5000A (Supp. V 2011)).
37. Charles E. Lindblom, The Science of "Muddling Through", 19 PUB. ADMIN. REV. 79, 84 (1959).
38. See Social Security Amendments of 1965, Pub. L. No. 89-97, 79 Stat. 286
39. (codified as amended in scattered sections of 42 U. S. C.).
40. STUART ALTMAN & DAVID SHACTMAN, POWER, POLITICS, AND UNIVERSAL HEALTH CARE: THE INSIDE STORY OF A CENTURY-LONG BATTLE 139 (2011).
41. Nicole Huberfeld, Federalizing Medicaid, 14 U. PA. J. CONST. L. 431, 445-47 (2012).
42. State control over private insurance essentially continued until the 1974 ERISA statute partially eroded it. Employee Retirement Income Security Act of 1974, Pub. L. No. 93-406, § 514, 88 Stat. 829, 897 (1974)
43. (codified at 29 U. S. C. § 1144 (2006)).
44. Food Security Act of 1985, Pub. L. No. 99-198, 99 Stat. 1354
45. (codified as amended in scattered sections of 7, 15, 16, and 21 U. S. C);
46. Hunger Prevention Act of 1988, Pub. L. No. 100-435, 102 Stat. 1645
47. (codified as amended in scattered sections of 7 U. S. C).
48. NFIB, 132 S. Ct. 2566, 2639 n. 23 (2012) (Ginsburg, J., concurring in part, concurring in judgment in part, and dissenting in part).
49. The first Federal Clean Air Act, enacted in 1963, provided grants to state and local air pollution control districts. Pub. L. No. 88-206, 77 Stat. 392 (1963).
50. The first Federal Clean Water Act of 1948 (also known as the Federal Water Pollution Control Act) was "primarily based on state and local efforts." The Clean Water Act: Protecting and Restoring our Nation's Waters, EPA, http://water.epa.gov/action/cleanwater40/cwal01.cfm (last visited Feb. 15, 2013)
51. (citing Water Pollution Control Act, Pub. L. No. 80-845, 62 Stat. 1155 (1948)).
52. NFIB, 132 S. Ct. at 2639 n. 23 (Ginsburg, J., concurring in part, concurring in judgment in part, and dissenting in part).
53. See Allen Rostron, Incrementalism, Comprehensive Rationality, and the Future of Gun Control, 67 MD. L. REV. 511, 516 (2008).
54. See New State Ice Co. v. Liebmann, 285 U. S. 262, 311 (1932) (Brandeis, J., dissenting)
55. See Vince Kuraitis, Pilots, Demonstration & Innovation in the PPACA Health Reform Legislation, e-CAREMANAGEMENT BLOG (Mar. 28, 2010), http://e-caremanagement.com/pilots-demons trations-innovation-in-the-ppaca- healthcare-reform-legislation.
56. Patient Protection and Affordable Care Act, Pub. L. No. 111-148, §§ 1311, 1321, 1331, 1411, 1412, 124 Stat. 119, 186, 199, 231 (2010)
57. (codified as amended in 42 U. S. C. §§ 18041, 18051, 18082 (Supp. V 2011)).
58. No Child Left Behind Act of 2001, Pub. L. No. 107-110, § 9401, 115 Stat. 1425, 1972-75 (2002)
59. (codified at 20 U. S. C. § 7861 (2006)).
60. 42 U. S. C. § 1315 (2006).
61. Patient Protection and Affordable Care Act § 1332
62. (codified at 42 U. S. C. § 18052 (Supp. V 2011)).
63. New State Ice Co. v. Liebmann, 285 U. S. 262, 311 (1932) (Brandeis, J., dissenting).
64. See Susan Rose-Ackerman, Risk Taking and Reelection: Does Federalism Promote Innovation?, 9 J. Legal Stud. 593, 594, 610-11 (1980);
65. Edward L. Rubin & Malcolm Feeley, Federalism: Some Notes on a National Neurosis, 41 UCLA L. REV. 903, 925-26 (1994).
66. See generally David A. Super, Laboratories of Destitution: Democratic Experimentalism and the Failure of Antipoverty Law, 157 U. PA. L. REV. 541 (2008).
67. 2006 Mass. Acts ch. 58.
68. Ryan Lizza, Romney's Dilemma, NEW YORKER, June 6, 2011, at 38, 40.
69. NFIB, 132 S. Ct. 2566, 2607 (2012)
70. Bowen v. Owens, 476 U. S. 340, 348 (1986).
71. Ronald Reagan Speaks Out Against Socialized Medicine, YOUTUBE (Aug. 1, 2007), http://www.youtube.com/watch?v=fRdLpem-AAs (audio of 1961 LP of the same name).
72. Elizabeth Crisp, Federal Government Will Start Setting Up Missouri's Health Exchange, ST. LOUIS TODAY (Nov. 12, 2012), http://www.stltoday.com/news/ local/govt-andpolitics/political-fix/federal-government-will-start-setting-up- missouri-s-health-exchange/article-4bee6ae8-6b8d-5c6c-9ecf-e90dd36234b6.html (statement of Gov. Jay Nixon).
73. See Douglas Holtlz-Eakin, Yes to State Exchanges, NAT'L REV. ONLINE (Dec. 6, 2012, 12:00 PM), http://www.nationalreview.com/articles/334956/yes-state- exchangesdouglas-holtz-eakin.
74. ROBERT A. DAHL & CHARLES E. LINDBLOM, POLITICS, ECONOMICS, & WELFARE 83 (1953).
75. NFIB, 132 S. Ct. 2566, 2662 (2012) (joint dissent).
76. U. S. CONST, art. I, § 8, cl. 1.
77. NFIB, 132 S. Ct. at 2578.
78. See Herbert Wechsler, The Political Safeguards of Federalism: The Role of the States in the Composition and Selection of the National Government, 54 COLUM. L. REV. 543, 544 (1954).
79. NFIB, 132 S. Ct. at 2657-58.
80. See, e.g., JOHN NUGENT, SAFEGUARDING FEDERALISM: HOW STATES PROTECT THEIR INTERESTS IN NATIONAL POLICYMAKING 201 (2009);
81. Lynn A. Baker, Putting the Safeguards Back into the Political Safeguards of Federalism, 46 VILL. L. REV. 951, 966 (2001)
82. See Brief for the Respondent, New York v. United States, 505 U. S. 144 (1992)
83. *4-5 ("A task force headed by seven Governors, working under the auspices of the National Governors' Association (NGA), proposed a 'state solution' to the [low-level radioactive waste] disposal problem, which the NGA then presented to Congress with the unanimous support of its members.");
84. see also New York v. United States, 505 U. S. 144, 150-51 (1992)
85. See Judith Resnik, Joshua Civin & Joseph Frueh, Ratifying Kyoto at the Local Level: Sovereigntism, Federalism, and Translocal Organizations of Government Actors (TOGAS), 50 ARIZ. L. REV. 709, 749-51, (2008).
86. NFIB, 132 S. Ct. at 2629 (Ginsburg, J., concurring in part, concurring in the judgment in part, and dissenting in part).
87. See Pennhurst State Sch. & Hosp. v. Halderman, 451 U. S. 1, 17 (1981).
88. 42 U. S. C. § 1304 (2006).
89. See NFIB, 132 S. Ct. at 2600-01.
90. See Judith Resnik, Globalization (s), Privatization (s), Constitutionalizations, and Statization: Icons and Experiences of Sovereignty in the 21st century, 11 INT'L J. CONST. L. 162 (2013).
91. See Abbe R. Gluck & Lisa Schultz Bressman, Statutory Interpretation from the Inside-An Empirical Study of Congressional Drafting, Delegation and the Canons: Part I, 65 STAN. L. REV. (forthcoming 2013) (manuscript on file with author).
92. See, e.g., Jason Millman, Chris Christie Nixes State-Run Insurance Exchange, POLITICO (Dec. 7, 2012, 5:03 AM), http://www.politico.com/story/2012/ 12/christie-nixesstate-run-insurance-exchange-84718.html.
93. Erin Ryan, Federalism and the Tug of War Within: Seeking Checks and Balance in the Interjurisdictional Gray Area, 66 MD. L. REV. 503, 650-65 (2007).
94. See also Andrzej Rapaczynski, From Sovereignty to Process, the Jurisprudence of Federalism After Garcia, 1985 SUP. CT. REV. 341, 418-19