I will jump around in commenting on the Dred Scott, not
because I think the work itself is disorganized. It is that I write these posts on the run, or
in the air, and so it is just how I am thinking about the parts.
In part three, Graber argues that the Southern interests had
some grounds for complaint with the election of Lincoln and a Republican
controlled Congress. Two of the
arguments are that the Southern states entered into the Constitution on the
understanding that it would control two of three branches, ensuring that
resolution of the slave issue would be based at every step on decisions
acceptable to Southern States. One of
the other arguments is that the failure of the electoral process to preserve
Southern state control over two branches destroyed the purpose of the
Constitution, at least for those states. The two arguments are linked, and tie I think to a certain set of views
about the US Constitution. I do not think
either argument works, but they are worth considering.
The Constitution as adopted ensured that Southern States
would likely control two or three of the branches of government, and perhaps
all three. The structure of the Electoral
College and the weighted representation given Southern states ensured their
political control. Absent that
expectation, the Southern states would not have adopted the Constitution. With the Republic victory, Southern states
were no longer in a position to ensure that decisions on national issues, or at
least on slavery, would meet with their approval. Thus, Lincoln’s ascent breached a key, albeit
unwritten provision of the Constitutional arrangements. As consequence, the Southern states had
freedom to exit the national relationship marked by the Constitution. Underlying the argument is a general view
that the Constitution is, if not actually a contract, so much like one that
virtually the same interpretive approaches are appropriate. I think the notion
is wrong, that it does not make sense in the end to think of the US
Constitution as a contract. Before
getting to that, it will be helpful to see that the line of argument sketched
by Graber fails on its own terms.
If we treat the Constitution as contract, we also assume
that the parties put into the contract the provisions they most cared about; we
assume all material provisions are incorporated in the text. But nothing in the Constitution could
plausibly be read to incorporate the idea that Southern states are assured any
control of the federal government. While
there are procedural provisions, none allocates roles to particular regions. If such control had been a material
provision, it should be in the contract. Its absence is compelling evidence that it was not material. Indeed, the text addresses procedures for
obtaining control over the branches. Those provisions were all complied with, suggesting, at the very least,
that Lincoln’s ascent was legitimate. It
may be that Southern states assumed that the procedures embedded in the
Constitution assured them of control, but such assumptions should not be
allowed to trump the express provisions. More to the point, such predictions are not the basis for retroactive
rewriting of an agreement. For related
reasons, the claim that Lincoln’s ascent constituted frustration of purpose
can’t be sustained. The purpose of the
Constitution was not, and I think could not have been, to assure Southern
control over the national government. The Constitution can fulfill its functions without Southern control over
the government. (It is also hard to see
how that could have been the purpose of Northern states, and, if it had been
the purpose why no one just said that in the document.)
Sticking for a moment longer with this contract notion, we
should see that Lincoln’s election was legitimate, i.e., conformed to all legal
requirements. His ascent was not the
result of a coup. Admittedly, his
success was due at least in part to divisions among the opposing parties and
blocs. But that surprise does not render
the outcome invalid. Because it was
fully in accord with the express provisions, it should be presumed to be
legitimate.
That I think is an important point because that word
illuminates some of why contract interpretations fail. If one wants to argue
that Lincoln lacked legitimacy, then one will need to walk away from the
contract theory, not toward it. Given
compliance with the express terms and the absence of conditions which negate
application of the express terms (Lincoln did not have an army at his
beckoning), then the notion of legitimacy at work must be a non-legal
notion. The complaint about frustrating
the expectations of the Southern states also leads in this direction. One could argue that political legitimacy
leaches away when there is a shift in legal power such as to destroy the
political power of the respective sections. Southerners abandoned the Constitution as they discover it does not
guarantee them control over the federal government. The notion at work there is political
legitimacy (or perhaps something like a Kelsenian norm).
There are other sorts of reason not to accept contract
approaches to the Constitution, which do not come into play here. A final note for today: one of the very
interesting sidelights to Graber’s analysis is that it highlights variability
in the role of a national or supranational constitution. That tomorrow.
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