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Published online by Cambridge University Press: 04 June 2004
Freedom of speech long has been regarded as one of the “preferred freedoms” in the United States: one of the freedoms the U.S. Supreme Court deems “implicit in the concept of ordered liberty.” However, what freedom of speech does—and should—mean is a highly charged question in American constitutional law. I will explore this question by examining how several prominent constitutional theorists have proposed particular approaches to free speech law in order to further their political objectives. I will examine the free speech theories of the nation's leading feminist legal theorist (regarding pornography), critical race theorists (regarding hate speech), libertarian (regarding commercial speech), and legal republican (regarding deliberative democracy). I also will discuss the principal criticisms of each of these theories, whether the courts have been influenced by any of them, and, in conclusion, whether it is possible to advance a nonpolitical (i.e., a purely law-based or value-free) theory of free speech.
Freedom of speech long has been regarded as one of the “preferred freedoms”1
Jones v. Opelika, 316 U.S. 584, 608 (1942) (Stone, C.J., dissenting). See also United States v. Carolene Products Company, 304 U.S. 144, 152 n.4 (1938) (Stone, J.).
Palko v. Connecticut, 302 U.S. 319 (1937) (Cardozo, J.).
'Politics' is, of course, an amorphous concept. See, e.g., e-mail from Jack Balkin to a discussion list for constitutional law professors [ConLawProf@listserv.UCLA.edu, posted online September 10, 2002]: “I guess the big problem in answering your question is figuring out how you want to divide the ‘political’ from the ‘purely law-based’…. It may be that you haven't found a nonpolitical principle of free speech because your conception of what makes something political is too capacious and your conception of what is ‘purely law-based’ is too demanding.” I use the term ‘politics’ primarily as a synonym for moral and social objectives. I do not mean to imply that any of the theorists discussed in this essay are doing anything wrong in attempting to advance their particular objectives.
I realize there are often differences of opinion among theorists within each jurisprudential perspective. For example, many feminists disagree with law professor Catharine A. MacKinnon's position on pornography. Space constraints require me to focus on the leading theorist or theorists (such as MacKinnon) within each category. My larger point about the politics of free speech should not be affected (see Section VII of this essay).
Given that the constitutional theorists discussed in this essay are arguing for a reconceptualization of at least some aspects of existing free speech law, a brief word about the Supreme Court's free speech jurisprudence is in order. (I will have more to say about the Court in Section VII.) The Court's docket was largely devoid of free speech cases until after World War I,5
See, e.g., David M. Rabban, Free Speech in Its Forgotten Years (New York: Cambridge University Press, 1997).
Daniel A. Farber, The First Amendment (New York: Foundation Press, 1998), 12.
For approximately the first fifty years of the Court's involvement with the Free Speech Clause of the First Amendment (“Congress shall make no law … abridging the freedom of speech”), the most visible test of constitutionality was Justice Oliver Wendell Holmes Jr.'s “clear and present danger” test. It specified that in order to suppress speech the government had to prove that the speech in question posed an immediate danger to society.7
The landmark case is Schenk v. United States, 249 U.S. 47 (1919), in which a unanimous Court, per Justice Holmes, upheld the Conspiracy Act conviction of the general secretary of the Socialist Party for urging young men, in a passionately worded leaflet, to resist the draft during World War I.
See, e.g., Abrams v. United States, 250 U.S. 616 (1919) (Holmes, J., dissenting from the Court's upholding of convictions under the Sedition Act of 1918). Justice Louis D. Brandeis voted consistently with Justice Holmes in the “clear and present danger” cases.
491 U.S. 397, 414 (1989). Johnson had publicly burned an American flag as part of a political protest. He was convicted of flag “desecration,” defined as damaging the flag “in a way that the actor knows will seriously offend one or more persons likely to observe … his action.” The Court reversed Johnson's conviction by a 5–4 vote.
R. A. V. v. City of St. Paul, 505 U.S. 377, 386 (1992). This case involved a teenager who had burned a cross on the lawn of a black family's home. He was subsequently convicted of violating a local ordinance that had prohibited the exhibition of symbols known by the exhibitor to arouse “anger, alarm or resentment in others on the basis of race, color, creed, religion, or gender….” The Court struck down the ordinance by a 9–0 vote.
At the heart of much of the Supreme Court's free speech jurisprudence, then, is the notion that the government has no right to suppress unpopular, false, or even hateful ideas. Put directly, prevailing free speech law is, on matters of content, substantially libertarian in orientation—perhaps surprisingly so given the composition of the Court in recent decades. After all, Justice Brennan was an egalitarian liberal on most issues, and Justice Scalia is a Burkean conservative. Nevertheless, for the reasons that I will explain below, the Court is correct to take a libertarian approach to free speech. All that remains to be done to get this area of constitutional law “right” is some tinkering at the margins. First, though, it is necessary to explore the free speech theories of several constitutional theorists who would do more—much more—than tinker.
Feminist legal theorists believe that gender significantly affects the manner in which the legal system functions.11
See generally Judith A. Baer, Our Lives Before the Law: Constructing a Feminist Jurisprudence (Princeton, NJ: Princeton University Press, 1999).
413 U.S. 15 (1973). Miller involved a mass mailing campaign to advertise a line of sexually explicit books. A brochure sent through the mail presented in highly graphic detail pictures of people engaged in sexual activity. Miller was convicted of violating a California law that had made it illegal to knowingly distribute obscene material. The Court redefined obscenity, vacated the California Superior Court's decision upholding Miller's conviction, and remanded the case for further proceedings in light of the new definition. The Court's previous definition was more permissive. See: Roth v. United States and Alberts v. California, 354 U.S. 476 (1957) (obscene material has a “dominant theme”of prurience, is “patently offensive” to the prevailing community standards of sexual candor, and is “utterly without redeeming social value”).
Pornography consumers are not consuming an idea any more than eating a loaf of bread is consuming the ideas on its wrapper or the ideas in its recipe…. With pornography, men masturbate to women being exposed, humiliated, violated, degraded, mutilated, dismembered, bound, gagged, tortured, and killed. In the visual materials, they experience this being done. What is real here is not that the materials are pictures, but that they are part of a sex act. The women are in two dimensions, but the men have sex with them in their own three-dimensional bodies, not in their minds alone. Men come doing this. This, too, is a behavior, not a thought or an argument. It is not ideas they are ejaculating over.13
Catharine A. MacKinnon, Only Words (Cambridge, MA: Harvard University Press, 1993), 16–17 (emphasis in original).
MacKinnon had provided additional support for her claim that pornography is sex, not speech, when in one of her earlier writings she confronted head-on the classic free speech response to “speech” the listener does not like: remedy the disfavored “speech” with more “speech,” not censorship. She countered that “the assumptions the law of the First Amendment makes about adults—that adults are autonomous, self-defining, freely acting, equal individuals—are exactly those qualities that pornography systematically denies and undermines for women…. Pornography makes women into objects. Objects do not speak.”14
Catharine A. MacKinnon, Feminism Unmodified: Discourses on Life and Law (Cambridge, MA: Harvard University Press, 1987), 182 (emphasis in original).
Unlike many legal theorists, MacKinnon has done more than simply announce her theory of free speech like Moses from Mount Sinai. For example, she and like-minded feminist Andrea Dworkin drafted a model antipornography, civil rights ordinance that they also helped get adopted in several localities. Importantly, the ordinance has been struck down on First Amendment grounds in seemingly every American jurisdiction that has adopted it. The most detailed judicial opinion about the ordinance is that of libertarian U.S. Court of Appeals Judge Frank Easterbrook in American Booksellers Association v. Hudnut (1985), a case involving Indianapolis, Indiana. Easterbrook, a former law professor at the University of Chicago, wrote for a Seventh Circuit panel that the ordinance in question (one limited to violent materials) amounted to unconstitutional viewpoint discrimination. He found particular fault with the ordinance's failure in its definition of pornography to address considerations mandated by the Supreme Court in Miller v. California: prurient interest, offensiveness, community standards, the work as a whole, and whether the work has literary, artistic, political, or scientific value. Judge Easterbrook wrote:
We do not try to balance the arguments for and against an ordinance such as this. This ordinance discriminates on the ground of the content of the speech. Speech treating women in the approved way—in sexual encounters “premised on equality” …—is lawful no matter how sexually explicit. Speech treating women in the disapproved way—as submissive in matters sexual or as enjoying humiliation—is unlawful no matter how significant the literary, artistic, or political qualities of the work taken as a whole. The state may not ordain preferred viewpoints in this way. The Constitution forbids the state to declare one perspective right and silence opponents…. This is thought control.15
American Booksellers Association v. Hudnut, 771 F.2d 323, 325, 328 (7th Cir. 1985), summarily aff'd, 475 U.S. 1001 (1986).
MacKinnon responded to the Hudnut decision by declaring that Judge Easterbrook, who had discussed her scholarship in his opinion, did not understand the point of the ordinance. She wrote: “[I]f a woman is subjected, why should it matter that the work has other value?”16
Catharine A. MacKinnon, “Pornography, Civil Rights, and Speech,” Harvard Civil Rights–Civil Liberties Review 20, no. 1 (1985): 21.
Regina v. Butler, [1992] 1 S.C.R. 452, 497. The Canadian law provided: “[A]ny publication a dominant character of which is the undue exploitation of sex, or of sex and any one or more of the following subjects, namely, crime, horror, cruelty and violence, shall be deemed to be obscene.”
MacKinnon's approach to pornography has been criticized by a number of legal scholars, including Nadine Strossen, a professor at New York Law School and the longtime president of the American Civil Liberties Union (ACLU). Strossen objects, like Judge Easterbrook did before her, on free speech grounds. She writes in Defending Pornography: Free Speech, Sex, and the Fight for Women's Rights (2000):
If MacDworkinism [i.e., the position advanced by MacKinnon and Dworkin] should prevail in the courts, it would jeopardize all of the foregoing free speech precedents and principles. The government could outlaw flag burning and the teaching of Marxist doctrine because they might lead to the erosion of patriotism and our capitalist system; white supremacist and black nationalist speeches could be criminalized because they might lead to racial segregation; peaceful demonstrations for (or against) civil rights, women's rights, gay rights, and, indeed, any other potentially controversial causes could be banned because they might provoke violent counter-demonstrations; advertising for alcohol, tobacco, and innumerable other products could be prohibited because it might cause adverse health effects; feminist expression could be stifled because it might threaten “traditional family values” and the attendant domestic order and tranquility; abortion clinic advertising and other pro-choice expression could be suppressed because it might lead to the termination of potential life; indeed, feminist anti-pornography advocacy could itself be suppressed because it could endanger cherished constitutional rights! The list is literally endless.18
Nadine Strossen, Defending Pornography: Free Speech, Sex, and the Fight for Women's Rights, new ed. (New York: New York University Press, 2000), 39–40.
In short, it is for lawyer/law professor Strossen, as it was for judge/former law professor Easterbrook, contrary to the Free Speech Clause of the First Amendment to suggest that speech of any kind, no matter how reprehensible, should be censored. To conclude otherwise is to forget that there is freedom of speech at all.19
But see Scott Douglas Gerber, The Law Clerk: A Novel (currently under publication review) (suggesting that the impact of pornography on the performers has been underappreciated by existing free speech law).
Critical race theorists—scholars of color such as law professors Richard Delgado, Charles R. Lawrence III, and Mari J. Matsuda, who seek to reenergize the fight for racial justice in the United States—advance arguments similar to those of MacKinnon. Indeed, they frequently cite her in their work. They also frequently disagree with the more cautious strategy of the traditional civil rights community (e.g., the NAACP). Critical race theorists are characterized most strongly by their belief that race consciousness is a necessary element in any analysis that seeks to explain how legal and cultural institutions operate in the United States.20
See, e.g., Kimberlé Crenshaw et al., Critical Race Theory: The Key Writings That Formed the Movement (New York: New Press, 1995).
For an examination of the critical race position on desegregation, voting rights, and affirmative action, see Scott Douglas Gerber, First Principles: The Jurisprudence of Clarence Thomas, exp. ed. (New York: New York University Press, 2002), chap. 3.
The most convenient collection of writings on free speech by critical race theorists is Mari J. Matsuda et al., Words That Wound: Critical Race Theory, Assaultive Speech, and the First Amendment (Boulder, CO: Westview Press, 1993) (reprinting the groundbreaking law review articles of Richard Delgado, Charles R. Lawrence III, and Mari J. Matsuda).
Delgado, Lawrence, and Matsuda first try to work within the parameters of existing free speech law in their efforts to ban hate speech. For example, they insist that the Supreme Court's 1942 Chaplinsky v. New Hampshire decision, which held that “fighting words” are not entitled to First Amendment protection, can be invoked to outlaw racist speech. According to the Court in this case, there were certain types of words that “by their very utterance inflict injury or tend to incite an immediate breach of the peace.” For the Court, these words included calling a city marshal a “God damned racketeer” and “a damned Fascist.”23
315 U.S. 568, 569 (1942). Chaplinsky involved a state statute that had made it a crime for a person to address “any offensive, derisive or annoying word to any other person” in a public place. The Supreme Court, in a unanimous decision, upheld the defendant's conviction.
Matsuda et al., Words That Wound, 89.
Ibid., 68.
Ibid., 24.
Lawrence and Matsuda also appeal to the law of defamation27
I was going to write the “existing” law of defamation, but most legal scholars believe that the Supreme Court's group defamation decision Beauharnais v. Illinois, 343 U.S. 250 (1952) (unprotected libelous statements include defamations of groups as well as those of individuals), was overruled by New York Times v. Sullivan, 376 U.S. 254 (1964) (the free speech guarantee requires “a federal rule that prohibits a public official from recovering damages for a defamatory falsehood relating to his official conduct unless he proves that the statement was made with ‘actual malice’ ”). Lawrence disagrees. He also insists that Brown v. Board of Education, 347 U.S. 483 (1954)—the Warren Court's landmark desegregation decision—is best interpreted as a group defamation case. Matsuda et al., Words That Wound, 75. Many legal scholars also question whether Chaplinsky remains good law. See, e.g., John Hart Ely, Democracy and Distrust: A Theory of Judicial Review (Cambridge, MA: Harvard University Press, 1980), 114 (suggesting that subsequent Supreme Court decisions have limited the “fighting words” doctrine to, at most, “a quite unambiguous invitation to brawl”).
When the legal mind understands that reputational interests … must be balanced against [F]irst [A]mendment interests, it recognizes the concrete reality of what happens to people who are defamed. Their lives are changed. Their standing in the community, their opportunities, their self-worth, their free enjoyment of life are limited. Their political capital—their ability to speak and be heard—is diminished. To see this, and yet to fail to see that the very same things happen to victims of racist speech, is selective vision.28
Matsuda et al., Words That Wound, 47.
Critical race theorists do not limit their efforts to the application of First Amendment precedents. They also maintain that existing free speech law should be fundamentally rethought. To make the point more directly, they insist that the central tenet of the Supreme Court's free speech jurisprudence—content neutrality—should be abandoned. To reiterate, the Court long has held that it is unconstitutional for the government to prohibit speech because of its subject matter (with a few exceptions, such as obscenity) or because the “powers that be” do not like the point of view being expressed by the speaker. Importantly, it was the desire to jettison the existing law's commitment to content neutrality that was behind many of the anti–hate speech codes that popped up on college and university campuses during the past decade or so. Indeed, criticism of the critical race theorists' approach to hate speech is best addressed through a brief examination of the campus speech codes.
The University of Michigan instituted in 1988 one of the first and broadest of the campus anti–hate speech codes. The code prohibited behavior that “stigmatizes or victimizes an individual on the basis of race” (or other status) and that also involves a threat to, or foreseeably interferes with, an individual's academic pursuits. An interpretative guide that accompanied the code listed examples of violations of the policy, including the distribution in a residence hall of flyers containing racist threats or the transmission of racist computer messages.
The code was struck down on free speech grounds by a federal district court in Michigan. Judge Avern Cohn, who decided the case, opened his opinion by stating, “It is an unfortunate fact of our constitutional system that the ideals of freedom and equality are often in conflict.” However, he noted that as a matter of constitutional law the case was an easy one for him to decide. Judge Cohn wrote:
What the University could not do … was establish an anti-discrimination policy which had the effect of prohibiting certain speech because it disagreed with ideas or messages sought to be conveyed…. Nor could the University proscribe speech simply because it was found to be offensive, even gravely so, by large numbers of people.29
Doe v. University of Michigan, 721 F. Supp. 852, 853, 862, 863 (E.D. Mich., 1989). The Supreme Court's subsequent decision in R. A. V. v. City of St. Paul (1992) striking down a local ordinance against cross burning provides additional support for the district court's decision in the University of Michigan case. See generally Robert M. O'Neil, Free Speech in the College Community (Bloomington: Indiana University Press, 1999).
The federal court in the University of Michigan anti–hate speech case, like the federal court in the Indianapolis antipornography case, plainly took a libertarian approach to the free speech question before it.30
Judge Cohn included an addendum to his opinion that referred to one of Matsuda's early articles on hate speech. That article was not brought to the court's attention until “after its Opinion was docketed…. An earlier awareness of Professor Matsuda's paper certainly would have sharpened the Court's view of the issues.” Doe v. University of Michigan, 721 F. Supp. at 869.
Laurence H. Tribe, American Constitutional Law, 2d ed. (Mineola, NY: Foundation Press, 1988), 838 n.17. Harvard Law School, “whose illustrious alumni have helped define the nation's free-speech rights,” is the most prominent of the academic institutions recently said to be considering adopting an anti–hate speech code. Harvey Silverglate, a Harvard Law graduate and civil liberties litigator, was quoted as saying, “What I … find amazing is that it [i.e., an anti–hate speech code] should be considered at a law school, any law school, because one thing that law schools do is study the constitution, and these codes are clearly in violation of the First Amendment.” As quoted in Jennifer Peter, “Harvard Law Considering Speech Code,” Tallahassee Democrat, November 22, 2002, 5.
The far Left is not alone in wishing to change at least some aspects of existing free speech law. Libertarian scholars—who maintain that each individual has the right and responsibility to make decisions that are important to his or her life32
See, e.g., David Boaz, Libertarianism: A Primer (New York: Free Press, 1997), 291. I discuss the differences between “conservative” libertarianism and “civil” libertarianism in Section VII of this essay. See generally Mark A. Graber, Transforming Free Speech: The Ambiguous Legacy of Civil Libertarianism (Berkeley: University of California Press, 1991).
I am grateful to Thomas W. Hazlett for this anecdote. See generally Alex Kozinski and Stuart Banner, “Who's Afraid of Commercial Speech?” Virginia Law Review 76, no. 4 (1990): 652. A former law clerk to Judge Kozinski, Banner is now a law professor at the University of California at Los Angeles.
Innumerable constitutional theorists have advanced a host of arguments over the years to try to explain why commercial speech deserves less protection than other types of speech (for example, it is not about literature, art, politics, or science). However, no one has convincingly explained why the Supreme Court came to view commercial speech as deserving less protection than other speech—and in 1942 (see below), no protection at all. In fact, one of the best known articles on the subject, Judge Kozinski's “The Anti-History and Pre-History of Commercial Speech,” suggests that it just sort of happened.34
Alex Kozinski and Stuart Banner, “The Anti-History and Pre-History of Commercial Speech,” Texas Law Review 71, no. 4 (1993): 747. But see C. Edwin Baker, “Commercial Speech: A Problem in the Theory of Freedom,” Iowa Law Review 62, no. 1 (1976): 3 (“in our present historical setting, commercial speech is not a manifestation of individual freedom of choice”); and Thomas H. Jackson and John C. Jeffries Jr., “Commercial Speech: Economic Due Process and the First Amendment,” Virginia Law Review 65, no. 1 (1979): 2 (“At bottom, the doctrine of commercial speech rests on a clean distinction between the market for ideas and the market for goods and services. In the realm of ideas, the [F]irst [A]mendment erects stringent safeguards against governmental restraint. In the economic sphere, by contrast, the majoritarian political process controls. Under the doctrine of commercial speech, ordinary business advertising is part and parcel of the economic marketplace and therefore is excluded from the protections of the [F]irst [A]mendment.”).
Doctrinally, Valentine v. Chrestensen (1942) was the watershed. In this case, a businessman claimed that a city ordinance that had made it illegal to distribute commercial and business ads in the streets violated his right to freedom of speech. In a two-and-a-half page opinion for a unanimous Court that amounted to little more than an assertion, Justice Owen J. Roberts disagreed. He wrote:
This court has unequivocally held that streets are proper places for the exercise of the freedom of communicating information and disseminating opinion and that, though the states and municipalities may appropriately regulate the privilege in the public interest, they may not unduly burden or proscribe its employment in these public thoroughfares. We are equally clear that the Constitution imposes no such restraint on government as respects purely commercial advertising.35
Valentine v. Christensen, 316 U.S. 52, 54 (1942).
Although the Court now affords some protection to commercial speech—the road to how the Court reached its current destination is a bumpy one littered with the justices' efforts both to articulate and to apply a series of virtually indecipherable multipart tests36
For more on this subject, see Gerber, First Principles, 154–61.
Kozinski and Banner, “Who's Afraid of Commercial Speech?” 628, 631, 634–38, 639.
Ibid., 648, 651–52.
Ibid., 652–53.
Judge Kozinski's call for the elimination of the distinction in the level of protection afforded to commercial and noncommercial speech has been cited in well over a hundred law review articles. Not surprisingly, some scholars agree with his position, and some do not. For example, the Harvard Journal of Law and Public Policy, arguably the nation's most libertarian law review, published a “recent development” commentary on the Supreme Court's 1997 commercial speech case Glickman v. Wileman Brothers & Elliot, Inc., endorsing Judge Kozinski's position.40
Aaron A. Goach, “Recent Development: The Supreme Court of the United States, 1996 Term: Free Speech and Freer Speech: Glickman v. Wileman Brothers & Elliot, Inc., 117 S. Ct. 2130 (1997),” Harvard Journal of Law and Public Policy 21, no. 2 (1998): 623. Glickman upheld compelled contributions to generic advertising expenses of fruit.
See, e.g., Ronald K. L. Collins and David M. Skover, The Death of Discourse (Boulder, CO: Westview Press, 1996); and Ronald K. L. Collins and David M. Skover, The Trials of Lenny Bruce: The Fall and Rise of an American Icon (Naperville, IL: Sourcebooks, 2002).
Ronald K. L. Collins and David M. Skover, “The Psychology of First Amendment Scholarship: A Reply,” Texas Law Review 71, no. 4 (1993): 829. In fairness to Collins and Skover, their work on commercial speech is less concerned with providing a particular “answer” to the commercial speech debate than it is with exploring the various consequences of the answers suggested by others, including Judge Kozinski. (The phrase “history-based or theory-based” in the quotation from Collins and Skover refers to Judge Kozinski's dualist approach to the origins of the modern commercial speech doctrine.)
Judge Kozinski's position also has been cited in more than a dozen cases. The most important of the cases is 44 Liquormart, Inc. v. State of Rhode Island (1996).43
44 Liquormart, Inc. v. Rhode Island, 517 U.S. 484 (1996).
See Scott D. Gerber and Keeok Park, “The Quixotic Search for Consensus on the U.S. Supreme Court: A Cross-Judicial Empirical Analysis of the Rehnquist Court Justices,” American Political Science Review 91, no. 2 (1997): 390.
Central Hudson Gas & Electric Corporation v. Public Service Commission of New York, 447 U.S. 557 (1980). The Central Hudson test consists of the following criteria: (1) the commercial speech must concern a lawful activity and not be misleading, (2) the asserted governmental interest must be substantial, (3) the regulation must directly advance the governmental interest, and (4) the regulation must not be more extensive than is necessary to serve that interest. A perusal of the Court's post–Central Hudson decisions reveals that these criteria are not easy to apply.
44 Liquormart, 517 U.S. at 522–23 (Thomas, J., concurring in part and concurring in the judgment).
Justice Thomas, like Judge Kozinski before him, is plainly a libertarian on at least some aspects of free speech law—including on the need to afford commercial speech the same level of protection as noncommercial speech. Consequently, Judge Kozinski has one member of the Supreme Court in his corner.47
See also: Lorillard Tobacco Company v. Reilly, 533 U.S. 525, 575 (2001) (Thomas, J., concurring in part and concurring in the judgment) (citing Judge Kozinski's article).
Some constitutional theorists have taken a strong interest in republicanism—the ideology, not the political party affiliation (academics are notoriously leftist in partisan orientation)48
See generally Robert H. Bork, Slouching Towards Gomorrah: Modern Liberalism and American Decline (New York: Regan Books, 1996). See also Scott Douglas Gerber, The Ivory Tower: A Novel (New Orleans, LA: University Press of the South, 2002); and Scott D. Gerber, “Whose Judges Are They?” Legal Times, November 25, 2002, 38.
See generally Scott D. Gerber, “The Republican Revival in American Constitutional Theory,” Political Research Quarterly 47, no. 4 (1994): 985.
Cass R. Sunstein, The Partial Constitution (Cambridge, MA: Harvard University Press, 1993), v, 9, 17, 137.
In contrast to some of the other leading legal republicans who merely state their respective theories without offering suggestions for how their theories can be actualized, Sunstein supplements his theory with reform proposals. It is in these reform proposals where his theory of free speech takes center stage.
Sunstein advances what he claims is a Madisonian reading of the Free Speech Clause—an approach that he insists makes the protection of political speech the dominant purpose of the First Amendment.51
Professor J. M. Balkin of Yale Law School quipped in a review of Sunstein's book Democracy and the Problem of Free Speech that “Sunstein's ‘Madisonian’ theory of the First Amendment is about as Madisonian as Madison, Wisconsin: It is a tribute to a great man and his achievements, but bears only a limited connection to his actual views.” J. M. Balkin, “Populism and Progressivism as Constitutional Categories,” Yale Law Journal 104, no. 7 (1995): 1955.
See Robert H. Bork, “Neutral Principles and Some First Amendment Problems,” Indiana Law Journal 47, no. 1 (1971): 1.
Cass R. Sunstein, Democracy and the Problem of Free Speech (New York: Free Press, 1993), 192–93, 214–16, 105–7, 114–18, 98–100, 104–5, 85–87, 82–85, 238–39.
It is difficult to know quite what to make of Sunstein's proposals. Indeed, Burt Neuborne, a law professor at New York University and the former executive director of the ACLU, concludes in a review of Sunstein's book Democracy and the Problem of Free Speech (1993) that “many of Professor Sunstein's distinctions lack a principled basis, other than Cass Sunstein's own view of what should or should not be censored…. In the end, his argument comes down to allowing [his] social class to use the government to elevate its speech preferences over everyone else's.”54
Burt Neuborne, “Review: Blues for the Left Hand: A Critique of Cass Sunstein's Democracy and the Problem of Free Speech,” University of Chicago Law Review 62, no. 1 (1995): 423, 436, 440.
Ibid., 425, 430.
Neuborne appears to disagree with almost everything Sunstein says in his book. For example, he rejects the “prime value” that Sunstein chooses to “run his machine”: political equality.56
Ibid., 441.
Ibid. (citing Thomas I. Emerson, The System of Freedom of Expression [New York: Random House, 1970]).
Ibid., 432.
My hope is that egalitarian reformers will stop trying to make things better by managing speech. It is only a matter of time until the left recharges its intellectual batteries and begins, once again, to produce serious political ideas calculated to change things for the better. When that happens, every inch of free speech protection is going to be needed to shield those ideas from censorship designed to block change. How sad it would be to have those ideas frustrated because impatient intellectuals couldn't wait.59
Ibid., 446.
Neuborne would be pleased to know that Sunstein's theory of free speech has been fully embraced by only one judge of record. In Painter v. Graley (1994), a tort action by a former municipal chief deputy clerk who claimed he was wrongfully discharged for running for city council, Justice James A. Brogan of the Ohio Supreme Court wrote:
Professor Cass Sunstein, the Karl Llewellyn Professor of Jurisprudence at the University of Chicago, embraces the notion that the First Amendment difficulties should be resolved with reference to Madisonian principles of free debate, political discourse, and civic participation…. I believe this court should embrace the Sunstein view and hold that our Ohio Constitution protects the rights of all citizens to seek political office, whether it be as a part-time village councilman or councilwoman or as a full-time state office holder, and that any restriction on that activity by the state must be justified by the demonstration of a compelling governmental interest.60
Painter v. Graley, 639 N.E.2d 51, 63 (Ohio 1994) (Brogan, J., dissenting). See also: National Association of Social Workers v. Harwood, 69 F.3d 622 (1st Cir. 1995) (Lynch, J., dissenting) (citing Sunstein's position that the Free Speech Clause is concerned primarily with political speech).
Unfortunately for legal republicans, Justice Brogan's opinion was a dissent. (It is also not clear from this dissent that Justice Brogan understands Sunstein's often open-ended argument.)
See the classic country song “Looking for Love in All the Wrong Places” written by Wanda Mallette, Patti Ryan, and Bob Morrison.
If the prior pages of this essay have demonstrated anything, they have demonstrated that politics is at the heart of the theories of free speech articulated by a number of the nation's most prominent constitutional theorists. Feminists such as MacKinnon and critical race theorists such as Delgado, Lawrence, and Matsuda are seeking to make the Free Speech Clause more egalitarian than the Supreme Court's existing free speech jurisprudence permits. (MacKinnon focuses on women's rights, while Delgado, Lawrence, and Matsuda concentrate on the rights of minorities.) Judge Kozinski, as a libertarian, wants the Court to limit the government's power to curtail all forms of freedom, including the freedom to express the virtues or vices of particular commercial transactions. Finally, Sunstein, a legal republican, wishes to ensure that the American people are being exposed to the “right” kind of speech so that the community as a whole will be better off.
After examining these specific free speech theories, the question that quickly came to my mind was: Is it possible to articulate a theory of free speech that is not simply a vehicle for effectuating a given set of preconceived political value choices, whatever those value choices might be (e.g., the empowerment of women; the empowerment of blacks; the expansion of the sphere of individual liberty; making individuals and, hence, the community better)? My hunch, as someone who has written about the relationship of political values to constitutional law at a more generalized level than free speech—that of the Constitution as a whole—was that it is not.62
See Scott Douglas Gerber, To Secure These Rights: The Declaration of Independence and Constitutional Interpretation (New York: New York University Press, 1995).
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I'm currently working on a paper … on free speech. My paper, tentatively titled “The Politics of Free Speech,” addresses how particular … groups [of scholars] have advanced particular approaches to free speech in order to advance their particular political agendas. I anticipate examining the free speech theories of feminists (regarding pornography), critical race theorists (regarding hate speech), libertarians (regarding commercial speech), and [legal republicans] (regarding deliberative democracy). I also will address the criticisms of each of these approaches (I realize there are differences of opinion within each category), whether the courts have been influenced by any of the groups' arguments, and, in conclusion, whether it is possible to advance a non-political theory of free speech. It's this last point with which I'm having trouble. More specifically, I've yet to encounter a purely law-based theory of free speech. Perhaps the Crits are right. If not, I would be grateful for citations to any scholarship that attempts to articulate a purely-law based theory of free speech.64
E-mail from Scott D. Gerber to ConLawProf discussion list [posted online September 9, 2002].
Gregory C. Sisk, then a law professor at Drake University, replied that the “absolutist approach” of the late Supreme Court Justice Hugo L. Black might fit the bill. “[F]rom a textual and legalistic standpoint, one might argue that the seemingly mandatory and absolute prohibition of ‘no law’ creates a rather powerful presumption against limiting any expression for any reason, regardless of theory or politics or even (mostly) practical policy arguments.”65
E-mail from Gregory C. Sisk to ConLawProf discussion list [posted online September 10, 2002].
E-mail from Craig N. Oren to ConLawProf discussion list [posted online September 10, 2002].
While “speech” may not be self-defining in all circumstances, it plainly covers political speech and presumably would cover most other types of expression on any topic. To read this language [of the First Amendment] as meaning that the government is barred from prohibiting, regulating, limiting expression in almost all situations—political speech, artistic expression, books, films, and even pornography—strikes me as theoretically coherent and textually faithful. The burden is then heavily upon anyone claiming exceptions.67
E-mail from Sisk to ConLawProf discussion list [posted online September 10, 2002].
Oren, of course, remained committed to his view that the answer cannot be found in Justice Black's absolutism.68
E-mail from Oren to ConLawProf discussion list [posted online September 10, 2002].
I agree with Oren. However, before I explain why, I need to explore in more detail than Sisk was able to do in his post what Justice Black's “theory” of free speech was. Justice Black, who was appointed to the Supreme Court from the Senate by President Franklin Delano Roosevelt in 1937 and who served on the high bench until his death in 1971, insisted that the First Amendment declaration that the government69
The First Amendment speaks of “Congress,” but Justice Black applied the amendment to the states as well. The purely law-based description of his theory of free speech arguably should fail on this point alone. In other words, although Justice Black's view that the Due Process Clause of the Fourteenth Amendment made the Bill of Rights applicable to the states is a widely shared one, this view is based on something other than a literal reading of the text. See generally Tinsley E. Yarbrough, Mr. Justice Black and His Critics (Durham, NC: Duke University Press, 1988).
I learned a long time ago that there are affirmative and negative words. The beginning of the First Amendment is that “Congress shall make no law.” I understand that it is rather old-fashioned and shows a slight naivete to say that “no law” means no law. It is one of the most amazing things about the ingeniousness of the times that strong arguments are made, which almost convince me, that it is very foolish of me to think “no law” means no law. But what it says is “Congress shall make no law respecting an establishment of religion,” and so on… .
Then I move on to the words “abridging the freedom of speech or of the press.” It says Congress shall make no law doing that…. And being a rather backward country fellow, I understand it to mean what the words say. Gesticulations apart, I know of no way in the world to communicate ideas except by words…. It says “no law,” and that is what I believe it means… .
I am for the First Amendment from the first word to the last. I believe it means what it says, and it says to me, “Government shall keep its hands off religion. Government shall not attempt to control the ideas a man has. Government shall not attempt to establish a religion of any kind. Government shall not abridge freedom of the press or speech. It shall let anybody in this country talk.70
Edmond N. Cahn, “Justice Black and First Amendment ‘Absolutes’: A Public Interview,” New York University Law Review 37, no. 4 (1962): 553–54, 563 (emphasis in original).
Justice Black's commitment to free speech absolutism was not limited to public conversations with law professors. He wrote numerous judicial opinions employing the approach, and in those opinions he purported to oppose any prior restraint of the press and any regulation of speech. For example, with respect to prior restraint of the press, in a concurring opinion in New York Times v. United States (1971), the so-called Pentagon Papers case in which the Court held by a 6–3 margin that a court order stopping publication of excerpts from a top-secret Defense Department history of the Vietnam War violated the First Amendment, Justice Black stated that, even when national security might be at stake, “the history and language of the First Amendment support the view that the press must be left to publish news, whatever the source, without censorship, injunctions, or prior restraints.”71
New York Times v. United States, 403 U.S. 713, 717 (1971) (Black, J., concurring).
See, e.g., Konigsberg v. State Bar of California, 366 U.S. 36, 77–80 (1961) (Black, J., dissenting from the Court's holding that the California Supreme Court's refusal to admit the petitioner to the state bar because of his refusal to answer questions pertaining to his membership in the Communist Party did not violate the Free Speech Clause); Barenblatt v. United States, 360 U.S. 109, 145–46 (1959) (Black, J., dissenting from the Court's upholding of the conviction of an individual who refused to tell the House Un-American Activities Committee whether he was or ever had been a Communist); and Dennis v. United States, 341 U.S. 494, 579–80 (1951) (Black, J., dissenting from the Court's affirmation of the petitioner's conviction of conspiracy to organize a Communist party).
The opinions for affirmance [of the conviction] indicate that the chief reason for jettisoning the [“clear and present danger”] rule is the expressed fear that advocacy of Communist doctrine endangers the safety of the Republic. Undoubtedly, a governmental policy of unfettered communication of ideas does entail dangers. To the Founders of this Nation, however, the benefits derived from free expression were worth the risk. They embodied this philosophy in the First Amendment's command that “Congress shall make no law … abridging the freedom of speech, or of the press….” I have always believed that the First Amendment is the keystone of our Government, that the freedoms it guarantees provide the best insurance against the destruction of all freedom.73
Dennis, 341 U.S. at 580 (Black, J., dissenting).
It is difficult not to be moved by Justice Black's evocative words. However, only one other member of the Supreme Court consistently shared his absolutist interpretation of the First Amendment: Justice William O. Douglas. Importantly, Justices Black and Douglas parted company on the so-called symbolic speech cases—a state of affairs that calls into serious question whether the absolutist approach to free speech is a purely law-based approach after all. Two cases decided a year apart illustrate the point: Street v. New York (1969)74
Street v. New York, 394 U.S. 576 (1969).
Tinker v. Des Moines Independent Community School District, 393 U.S. 503 (1968).
Street found the Court, in a 5–4 vote, reversing the conviction of appellant Sidney Street for violating a New York law that had made it a crime publicly to mutilate or “publicly [to] defy … or cast contempt upon [any American flag] either by words or act.” Street, outraged that civil rights activist James Meredith had been shot and wounded, took an American flag he owned to a street corner near his Brooklyn home and ignited it. He shouted: “We don't need no damn flag…. If they let this happen to Meredith, we don't need an American flag.”
Justice John Marshall Harlan II wrote for the Court that the New York law violated Street's right to freedom of speech because the record indicated that Street's conviction was either based solely upon his words or upon his words and his conduct. Justice Harlan explained:
We have no doubt that the constitutionally guaranteed “freedom to be intellectually … diverse or even contrary,” and the “right to differ as to things that touch the heart of the existing order,” encompass the freedom to express publicly one's opinions about our flag, including those opinions which are defiant or contemptuous.76
Street, 394 U.S. at 593 (quoting West Virginia State Board of Education v. Barnette, 319 U.S. 624 [1943]).
Justice Douglas signed on to Justice Harlan's opinion for the Court. Justice Black, however, filed a dissenting opinion.77
There were four separate dissents in the case: those of Justice Black, Chief Justice Earl Warren, Justice Byron R. White, and Justice Abe Fortas.
Street, 394 U.S. at 609 (Black, J., dissenting).
Id.
Tinker found the Court striking down, in a 7–2 vote, a public school regulation banning the wearing of armbands, as applied to the wearing of black armbands in protest of the Vietnam War. The Court, speaking through Justice Abe Fortas, treated this symbolic conduct as “pure speech” and concluded that the regulation discriminated on the basis of the speakers' viewpoint. The Court recognized that students' speech is not immune from regulation when it “materially and substantially interfere[s] with the requirements of appropriate discipline in the operation of the school,” but concluded that such was not the case with the speech at issue because the three students in question had been quiet and passive when wearing the armbands. In Justice Fortas's memorable phrase, students do not leave their free speech rights “at the schoolhouse gate.”80
Tinker, 393 U.S. at 505, 509, 506.
Justice Douglas joined Justice Fortas's opinion for the Court. Justice Black filed another impassioned dissent. Importantly, he assumed for the sake of argument that the wearing of the armbands by the students in protest of the war was speech. This type of speech could be banned, however. He wrote: “[I]f the time has come when pupils of state-supported schools, kindergartens, grammar schools, or high schools, can defy and flout orders of school officials to keep their minds on their own schoolwork, it is the beginning of a new revolutionary era of permissiveness in this country fostered by the judiciary.”81
Id. at 515, 518 (Black, J., dissenting). Justice John Marshall Harlan II also dissented. He viewed the wearing of the armbands as proscribable conduct. Id. at 526 (Harlan, J., dissenting).
To borrow a line from the late singer Marvin Gaye, “What's going on?”82
Marvin Gaye, “What's Going On” (Detroit, MI: Motown Records, 1971).
My experiences with and for our government have filled my heart with gratitude and devotion to the Constitution which made my public life possible…. I have thoroughly enjoyed my small part in trying to preserve our Constitution with the earnest desire that it may meet the fondest hope of its creators, which was to keep this nation strong and great through countless ages.83
Hugo L. Black, A Constitutional Faith (New York: Knopf, 1968), 65–66.
Justice Black's patriotism was not lost on his biographers. Indeed, Roger K. Newman describes the public outpouring of emotion at Justice Black's funeral as tears shed for a patriot:
Part of the reason he was being so deeply mourned was his open and passionate love affair with the Constitution and with America. He cherished this “sweet land of liberty,” silently bearing the mountains of calumny that came his way. He proudly called himself a patriot. For he had confidence in the good sense of a free people, the Blue and the Gray going forward together, under the Stars and Stripes, the children of the Flag advancing to the march of inevitable progress while retaining timeless human decencies.84
Roger K. Newman, Hugo Black: A Biography, 2d ed. (New York: Fordham University Press, 1997), xv–xvi.
Apparently, for Justice Black, as for the members of the Court who dissented from Texas v. Johnson twenty years later, the flag was “different,”85
Texas v. Johnson, 491 U.S. at 431 (Rehnquist, C.J., dissenting).
Turning to the armband case—the case in which Justice Black was willing to assume that the wearing of a black armband in public school in protest of the Vietnam War was speech—Justice Black's belief in the importance of education, coupled with his obvious subscription to the adage that children should be “seen and not heard” in school, was apparently so strong that it trumped his absolutist reading of the First Amendment. His memoirs are replete with so many passages illuminating how highly he valued education86
See, e.g., Black, A Constitutional Faith, 65; and Hugo L. Black and Elizabeth Black, Mr. Justice and Mrs. Black: The Memoirs of Hugo L. Black and Elizabeth Black (New York: Random House, 1986), 8–10.
Clearly, not even Justice Black subscribed to a purely law-based approach to free speech, which confirms my initial hunch that there is apparently no such thing.87
Professor Michael A. Froomkin of the University of Miami School of Law mentions the work of Jurgen Habermas as a possibility. E-mail from Michael A. Froomkin to Scott D. Gerber, September 9, 2002. I disagree. As Professor Larry A. Alexander of the University of San Diego School of Law has demonstrated, Habermas's procedural conditions for his “ideal speech situation” are based on preexisting partisan substantive positions. Larry A. Alexander, “Trouble on Track Two: Incidental Regulations of Speech and Free Speech Theory,” Hastings Law Journal 44, no. 4 (1993): 941–43.
Sanford Levinson and Steven Mailloux, preface to Interpreting Law and Literature: A Hermeneutic Reader, ed. Sanford Levinson and Steven Mailloux (Evanston, IL: Northwestern University Press, 1988), xii.
Revealingly, critics of the feminist, critical race, and legal republican theories of free speech detailed above complain that those theories are inconsistent with a libertarian approach to the First Amendment. (I will explain below how a particular strand of libertarianism is synonymous with classical liberalism.) For example, Strossen and Judge Easterbrook object on libertarian grounds to MacKinnon's efforts to ban pornography, and Tribe and the federal district judge who struck down the University of Michigan's anti–hate speech code disapprove on libertarian grounds of critical race theorists' attempts to prohibit racist speech. Similarly, Neuborne is making a libertarian argument when he opposes Sunstein's legal republican efforts to establish a deliberative democracy in the United States. Whereas critics of the feminist, critical race, and legal republican theories invoke libertarian principles to refute these approaches to the First Amendment, Judge Kozinski relies on such principles to advance his claim that commercial speech deserves as much protection as noncommercial speech.
Perhaps most important of all, the Supreme Court itself, as Section I suggested, has taken a largely libertarian approach to the subject over the years (at least in theory, although not always in practice, as Justice Holmes's dissents from his own “clear and present danger” test make clear). My prior research on the general theory of American constitutional law is consistent with the idea that a libertarian approach to the First Amendment is the proper approach to take. In To Secure These Rights: The Declaration of Independence and Constitutional Interpretation (1995), I argued that the Constitution should be interpreted in light of the classical liberal principles of the Declaration of Independence.89
Gerber, To Secure These Rights.
With respect to deciding specific questions of free speech law, a free speech theory that takes the Declaration of Independence seriously does not necessarily mean that free speech cases should be decided the way the Supreme Court has decided them over the years. Political scientist Mark A. Graber points out in his book Transforming Free Speech: The Ambiguous Legacy of Civil Libertarianism (1991)90
Graber, Transforming Free Speech.
See, e.g., Zechariah Chafee Jr., Freedom of Speech (New York: Harcourt, Brace, and Howe, 1920).
The conservative libertarian approach is more consistent with the classical liberal conception of the American regime in general and the U.S. Constitution in particular that I explored in To Secure These Rights, and it is the approach I endorse for interpreting the First Amendment. Both perspectives stress a commitment to individual freedom from government regulation and both do so on the basis of individual autonomy. Importantly, however, it is the civil libertarian approach that has most influenced the Court.92
See David M. Rabban, “The Emergence of Modern First Amendment Doctrine,” University of Chicago Law Review 50, no. 4 (1983): 1215–16.
44 Liquormart, 517 U.S. at 522 (Thomas, J., concurring in part and concurring in the judgment).
Federalist No. 10 (J. Madison), in Clinton Rossiter, ed., The Federalist Papers (New York: New American Library, 1961), 77–84, 78.
In The Works of John Adams, ed. Charles Francis Adams, vol. 6 (Boston, MA: C. C. Little and J. Brown, 1850–56), 280.