McKenna v. Gregoire on Obamacare: Politics, yes, and a lot of semantics, too
Just as Bill Clinton argued the meaning of the word "is," the parties in this legal fight are debating interpretations of "shall."
Courtesy of the Office of Attorney General
State of Washington
One can find ambiguity in seemingly clear statutory language. And one can find plenty of it in the structure of our state government. Both were obvious last Thursday morning, when the state Supreme Court heard two cases that asked fundamental questions about the role of the attorney general and the nature of Washington's divided executive branch.
Does the attorney general have to bring a case on behalf of the state? Does he have discretion to not appeal a case on behalf of the commissioner of public lands?
For those who've been distracted by the election or the Seahawks or the never-ending cascade of lost jobs and homes, a recap: Attorney General Rob McKenna joined one of the lawsuits by state attorneys general against Obamacare, and he also refused to appeal an Okanogan District Court decision on behalf of the state Department of Natural Resources.
The DNR has asked the courts for a writ of mandamus, ordering McKenna to take its case. The DNR has argued that McKenna must represent it if the lands commissioner wants to appeal. The Seattle city attorney has asked for a writ of mandamus ordering McKenna to drop out of the Obamacare suit. It has argued that McKenna has no right to challenge Obamacare on behalf of the state unless the governor asks him to do so. The governor has filed an amicus brief in the case, arguing that — absent the governor's consent — McKenna can sue on his own as attorney general but not as the representative of the state.
Who's in charge here? The answer may be no one. The DNR case seems more straightforward. It is, at any rate, less burdened with with obvious political considerations and what seems to be blatant grandstanding. The Okanogan PUD wanted a right-of-way across state land managed by the DNR for a transmission line in the Methow Valley. The PUD filed a motion in Superior Court to take the right-of-way through condemnation. The DNR — represented by the attorney general — filed a motion for summary judgment, arguing that the PUD had no legal power to condemn state land.
The DNR lost on summary judgment and then lost on the underlying issue. Last spring, the Superior Court granted the PUD a declaration of necessity, so the condemnation could proceed.
The DNR wanted to appeal, and assumed that the attorney general would represent it again. On June 8, two days before the final date to file an appeal, the McKenna said he would not. “I plead with you to reconsider,” Commissioner of Public Lands Peter Goldmark responded. If McKenna really didn't want to take the case, Goldmark asked him to appoint a special assistant attorney general who could do it for him.
The attorney general did neither. On the last possible day, Conservation Northwest filed an appeal of its own, keeping the window open for another two weeks. The DNR, represented pro bono by environmental lawyer David Bricklin, filed a petition for mandamus. McKenna subsequently filed a contingent appeal. If he loses on the issue of mandamus, he'll stay in the fight; if he wins, he won't.
Arguing before the Supreme Court last week, Bricklin suggested that the real question was, “can the Attorney General leave a department unrepresented?” Because the attorney general did, “the Commissioner was left without an attorney in this case.” He suggested the issue was pretty straightforward. “In our briefing,” Bricklin said, “we referred to this as 'a power grab.'”
The semantic discussions were worthy of Bill Clinton. RCW 43.12.075 says “it shall be the duty of the attorney general, to institute, or defend, any action or proceeding . . . when requested so to do by the commissioner.” Alluding to that language, Justice Gerry Alexander suggested that “'it shall be the duty'. . . takes away a bit of the Attorney General's discretion, does it not?”
Bricklin certainly argued that it did. He suggested that the statute meant what is said, so that “there's no discretion.”
But just as Clinton famously discussed “what the meaning of the word 'is' is,” there is more than one way to interpret “shall.” Justice Debra Stephens cited the 1912 Rosbach decision in which the court said it couldn't order the attorney general to act. Although the statute said “The attorney general . . .. shall represent,” the court said he had discretion to do so or not. “The commencement of actions at law,” it said, “are matters resting wholly within the discretion of . . . the attorney general, a discretion which cannot be controlled by mandamus.”
Bricklin noted that the situation was different, and that because the commissioner of public lands is forbidden to hire outside counsel, if the attorney general won't represent him, he has no access to the courts. Deputy solicitor general Alan Cropsey pointed to the similarity of the language and suggested that “the Attorney General has a constitutional gatekeeping function.” Could the A.G. appeal a case even if the head of a department didn't want him to? Probably yes. Could he refuse to take a case at the trial level? Sure. Could he refuse to defend the DNR if somebody else sued? No, Cropsey said, that would be an abuse of his discretion.
Stephens said she was a mom, and that when her kids were young, they'd run to her to settle their disputes, but now that they're older, they have to work things out on their own. Maybe the A.G. and the commissioner, who both have discretion, will just have to work things out, too. Maybe “there is no mom.”
And maybe it's not clear who speaks for the state. No sooner had Obama signed the healthcare bill than Republican state attorneys general started suing in a variety of courts. McKenna joined the Florida suit, which now includes 20 attorneys general. The big constitutional argument focuses on the “individual mandate” that requires everyone not covered by a government or employer-based insurance program to either buy insurance or pay a tax penalty.
Does the Commerce Clause give the federal government power to make a citizen buy a product from a private company? Courts have said that the Commerce Clause gives Congress power to regulate an implausibly wide range of activities, but can it regulate inactivity?
That depends on whom you ask. The issue will undoubtedly reach the U.S. Supreme Court, but for now, federal district court judges are split. A Michigan judge has dismissed the portions of an anti-Obamacare suit that deal with that constitutional question. The Florida judge has refused to do likewise. After the election, Senate Republican leader Mitch McConnell filed an amicus brief in the Florida court supporting the attorneys general. Governor Chris Gregoire (represented by a special assistant attorney general appointed by McKenna) is filing an amicus brief on the other side.
After McKenna filed suit on behalf of the state, Gregoire said, “He doesn't represent me," and the Seattle City Council passed a resolution supporting Obamacare. Then, Seattle City Attorney Pete Holmes filed a suit asking the court for a writ of mandamus, ordering McKenna to drop out.
Gregoire, in an amicus brief in that case, argues that the attorney general shouldn't be able to file a suit on behalf of the state unless the governor concurs, but he could still file a suit on his own behalf as attorney general.
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Comments:
Posted Mon, Nov 22, 12:52 p.m. Inappropriate
Thanks for the overview of the issues. I will be very interested to see how this turns out, as questions about AG authority could have national significance. In Alabama, there has been a conflict between the governor and the AG which stemmed from the AG's decision to file suit for recovery of damages from BP relating to the oil spill. The governor argues that this damages the state's ability to work with BP outside of the court system. I'm not sure if there is the same issue of the AG's authority here, but it does again illustrate the conflicts that can arise when the governor and AG are separately elected offices.
Also, don't you mean that the King County Council (instead of Seattle City Council) voted 5-4 for a resolution in favor of Obamacare? There's yet another layer of government getting involved.
Posted Mon, Nov 22, 1:06 p.m. Inappropriate
I hope Mr. McKenna questions the constitutionality of the government imposing laws differently on citizens based on their race. The Affordable Health Care Act requires citizens to either purchase health insurance or pay a fine. Except for members of indian tribes.
Posted Mon, Nov 22, 1:24 p.m. Inappropriate
When will somebody ask Wishik why the City of Seattle "picks and chooses" which laws will be obeyed and enforced and which ones will not. Hempfest has 100,000 people over three days in a public park violating the smoking ban. They chose to ignore them, yet if you try to open one cigar bar at El Goucho and you toast
Posted Mon, Nov 22, 1:38 p.m. Inappropriate
Would Crosscut consider not using the term "Obamacare" in headlines and in news stories like this piece about McKenna? As I'm sure the Crosscut editors know, it's become a pejorative term used by critics of the health reform law. The term isn't even accurate, since it was drafted by House and Senate Democratic leaders -- with plenty of compromises to win over at least Democratic conservatives -- as much as it was written by the Obama administration. By using this term, Crosscut is tying itself to Fox News and the right-wing media and blogosphere and encouraging uninformed and misinformed contempt for the law. Obviously, it's different for opinion commentators who choose to use the term as part of their critique of the health reform law. But I personally don't think it should be used in straight news coverage or in news headlines. Just my thoughts.
Posted Mon, Nov 22, 1:49 p.m. Inappropriate
Why would they do that Harris? They let people like Peter Jackson, Knute Berger use terms like Tea bagger all the time.
March 10, 2010
"Reasonable people will disagree about McKenna's judgment. A Profile in Courage a la Nebraska's George Norris, or an ill-considered suck-up to the ubiquitous Tea Baggers?"
I am sure you can search the website for your own examples of one group or another might consider "pejorative" by critics of all stripes.
Posted Mon, Nov 22, 2:21 p.m. Inappropriate
Notice that I distinguished between the use of the pejorative term in headlines and straight news pieces, where I don't think it's good journalism practice, versus opinion commentaries, where I see no problem with it.
Posted Mon, Nov 22, 2:56 p.m. Inappropriate
They all appear in Crosscut, there is no straight news reporting, it's all opinion and commentary.
Posted Mon, Nov 22, 3:02 p.m. Inappropriate
I myself have written straight news pieces for Crosscut, and I would call Chasan's piece pretty much a straight news piece.
Posted Mon, Nov 22, 9:13 p.m. Inappropriate
Bluelight, Indian tribes are provided federally-funded care through the Indian Health Care Act and have been since 1976. Considering we took their land and threw them onto reservations, I think that's only fair.
Posted Mon, Nov 22, 9:21 p.m. Inappropriate
The double reference to "a divided Executive" is important to understanding an important, and unsettled, issue in our state constitution.
A central concept in both national and state systems is the separation of powers in Executive/Legislative/Judicial fashion. With respect to the Legislative and Judicial, "division" is taken for granted; the Legislative is politically divided, and the Judicial (while giving nods in the direction of Common Law precedent, 'stare decisis', and statutory direction) is if not politially, then philosophically, divided. On the Executive side, we can assume unity--but to the extent that elected Executives other than the Governor can form and pursue policy agendas (which has clearly been the case with the Insurance and Lands Commissioners, and now crucially arises in the context of legal services), there is an erosion and distribution of Executive powers beyond what was probably contemplated by our own state "framers."
In such an environment of disseminated power, the Governor is not truly the sole and unified Executive, but shares that distinction and that power with "elected others," whose conduct in office is but little understood by the electorate.
This is a conundrum of political science, and deserves deep thought--not just by the Justices who are in receipt of these prayers and amicus briefs, but also by the public at large, since the implications are profound.
Mr. McKenna's personal situation represents, of course, a particularly interesting "subtext" to the great questions associated with the course of actions he pursues: He is clearly the leading Republican candidate for Governor in 2012. Should the office he now occupies next be occupied by a Democrat with an analogous policy agenda to pursue, it will be interesting in the extreme to watch how he approaches the matter of a "divided Executive."
Posted Tue, Nov 23, 8:49 a.m. Inappropriate
very interesting piece, and how refreshing to have intelligent and thoughtful reader comments and debate, both on the underlying issue and the media stuff.
Posted Tue, Nov 23, 9:01 a.m. Inappropriate
Harris, I think a big part of the problem is that Crosscut pretty much leaves it up to the reader to distinguish which pieces are "News", "Analysis", and "Opinion". When you couple that with the perception that any piece which doesn't conform to one's world view is "biased" it's understandable that readers simply don't bother to make a distinction.
What I find absurd about the phrase "Obamacare" and the media's acceptance of it is that it connotes a government run health care system. This was of course the intention of whoever coined the term, but much to the chagrin of liberals it couldn't be further from the truth. The recent health care law maintains the current private health care industry for everyone under 65.
Posted Tue, Nov 23, 9:57 a.m. Inappropriate
The government may not be the insurer, Mr. Fox, but it is definitely running the system.
Posted Tue, Nov 23, 11:05 a.m. Inappropriate
I would hardly describe setting minimum standards and requiring full participation as "running the show". So dbreneman please elaborate.
Posted Tue, Nov 23, 2:33 p.m. Inappropriate
What's in that phone-book-sized health care bill that Congress just passed, Mr. Fox? There's a whole heck of a lot more there than just "setting minimum standards and requiring full participation." I'd say that you and I simply have different definitions of how much intrusion into a market constitutes "running" it. To me, when you require a person to purchase a product offered by another, that's coercion. That's "running the show." When you regulate something as heavily as the government is now regulating healthcare, you have a situation where the regulators are in charge, and the providers of the service are heavily constrained in the actions they can take. The providers of the service are not in charge. The regulators are.
Posted Tue, Nov 23, 3:29 p.m. Inappropriate
It's sort of like how the Government deals with Illegal Immigration. The Government sets minimum standards and requires full participation, but in the end they run away from any responsiblity or enforcement and they blame everyone but themselves.
Posted Thu, Nov 25, 11:22 a.m. Inappropriate
Health care is not a free-market, consumer-choice issue like buying a TV set. You don't absolutely need a TV set, or any particular brand, or any particular size. At some point in your life, you'll need health care, and at that point if you don't have reliable, affordable access to it, you will likely die. America already has a number of government-run programs: VA health care, Medicare, Indian Health, and Medicaid. No one is militating about getting rid of those programs, and because of regulation--yes, federal reguation--they work quite well. If you're going to complain about "intrusion into a market", you should logically be against those programs. Are you? If not, it will seem as though your complaint is really about President Obama and you're using health care as a straw man argument.
Posted Fri, Nov 26, 8:23 a.m. Inappropriate
Sounds reasonable Sarah, but we are all going to die, with or without reliable, affordable access to healthcare. If what you are suggesting is that if we eliminate the programs individually focused on special sub-groups within our society and allow them to be serviced by the existing free market medical providers, that suggestion would make us anti-veteran, anti-elderly, anti-native american. And if we are not for closing those facilities, any complaint about healthcare reform are simply a "strawman" arguement and you are probably a racist, ranting about the President. That is quite the cornor you have painted yourself into sarah, for maintaining the status quo and supporting the President. Everyone else is a racist bigot except people who believe like you do.
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