In recent weeks we have been deluged by hand-wringing columns from “progressive” pundits bemoaning the filibuster rules in the Senate – which allow a determined and unified minority to block legislation that has fewer than 60 votes – and essentially declaring the filibuster to be proof that American democracy doesn’t work and should change the way it does business. (See Brian Darling’s discussion of one recent example of the genre from Paul Krugman declaring the filibuster to be the “downfall” of American greatness, and here for Ezra Klein declaring that “The Senate’s problem is not disagreement. It’s elections.”). The immediate cause of the shrieking is the inability to pass Obamacare through the Senate in the form in which it passed the House, which the progressives decry as proof that America can’t be governed, ignoring the alternative possibility that there are better approaches to health care that do not involve an Obamacare-style comprehensive bill at all. For some liberal critics, like Vice President Joe Biden (a man who participated in countless filibusters in 36 years in the Senate) or the New York Times editorial board, this is a posture of pure opportunism diametrically opposed to how they viewed the value of the legislative filibuster during the Bush presidency, while others, like Mickey Kaus, have long argued that the legislative filibuster* should go because of its role in obstructing progressive legislation.
Regardless of their motives, however, the progressive critics are wrong. The legislative filibuster is an essential, traditional check on a particular weakness of democracy – the very weakness the progressives seek to exploit by passing Obamacare before the 2010 elections.
This much is true: the filibuster is undeniably anti-majoritarian, and thus in a general sense anti-democratic. The House, even gerrymandered as it is, provides a roughly proportional representation of the American people; each Member represents a comparable if not identical number of people, all its members face re-election every two years, and a bare majority vote is needed to pass a bill. This has been true of the House throughout most of our history (the filibuster was abolished in the House in 1842).
If a recently constituted popular majority was the rule of the day, that would be all we need. But the Framers of the Constitution also gave us a Senate that is deliberately anti-majoritarian: Senators give equal representation to states of varying size, only a third of its members face the voters each biennial election cycle, and until the adoption of the 17th Amendment in 1913, Senators were selected by state legislatures as de facto representatives of state government rather than of the people. While the Constitution says no more about the filibuster than that “[e]ach House shall determine the Rules of its Proceedings,” (Art. I Sec. 5), the Senate by tradition allowed for unlimited debate (more here and here). That tradition has always had its critics; it was first challenged by Whig Senator Henry Clay in 1841 in a debate over bank legislation, was subjected to cloture by vote of two-thirds of the Senate by rule change in 1919 (a procedure first used to ratify the disastrous Treaty of Versailles against a Republican filibuster), and the threshold was lowered to 60 votes by the Democrat-controlled Senate in 1975. And there are exceptions: without going into exhaustive detail here, the major exception is the “reconciliation” process used for tax and spending bills, which cannot be filibustered and thus may pass with a bare majority. But the basic ability of the minority to prevent a floor vote on major domestic legislation has never been eliminated, and stretches back to the dawn of the American Republic.
For conservatives, of course, the fact that the filibuster has been time-tested as part of our Constitutional structure is reason in itself to be skeptical of efforts to eliminate it; experience is the lifeblood of conservatism, after all, because it represents the collected lessons of trial and error of the greatest number of people. But the progressive critics, most vocally the pundits who have never worked as anything but a pundit, tend not to put much stock in experience, so let me address them on their own terms.
I would give more consideration to the arguments against the filibuster were it not for one inescapable fact: for a variety of practical and political reasons, federal legislation, and in particular large, “comprehensive” federal programs and regulatory schemes, are almost never repealed, pretty much regardless of whether they work well or not. They’re generally designed that way: the President promises a for-all-time solution to a problem, bills are written so as not to require reauthorization or in some cases (for new entitlements) not to require even new appropriations, bureaucracies are created, unionized civil servants hired, businesses, lobbyists and legal advisers grow up around the regulatory scheme, and self-interested segments of the population grow dependent on the status quo. In other words, if you’re concerned about the dead hand of tradition ruling the future, the last thing you should want is a system that makes it easy for a political party that wins a majority in one election cycle to saddle us permanently with massive new federal legislation.
This is, of course, why reconciliation is different: while it is difficult to undo bad spending decisions, for some of these same reasons, it remains ultimately the case that tax and spending policy is set anew each year, as it is in states and municipalities across the country. It’s also why, when Congress does face a genuine need to act quickly, it can attract bipartisan, filibuster-proof majorities to enact bills like the Patriot Act and TARP that – whatever their other flaws – had to go back to Congress for reauthorization later. But in cases like Obamacare, there is no pretense by its supporters that this is intended to ever be revisited from scratch again.
Meanwhile, the transitory nature of the Democrats’ majority is already on display. The 2008 election cycle was already something of an aberration, given the role of the September-October financial crisis in boosting the Democrats’ fortunes; now it seems highly likely that Republicans will drastically narrow their margins, if not erase their majorities in one or both Houses, in this fall’s elections. Already, the margin of passage of Obamacare in the House is in doubt. Knowing that we sit at the likely high water-mark of the Democrats’ fortunes, why should our system make it easy for them to enact legislation that could outlive our grandchildren? If the public truly, after two years of reflection, wants Obamacare, it can always elect still more Democrats this fall to make it law.
Democracy, tradition, free markets, federalism and Constitutional originalism are all derived from the same basic observation: people make mistakes, and even electorates and markets can err in the short run – but the more people whose experience you involve in a decision, the larger your sample size, the better your chances of getting it right. Our democratic system respects the ultimate right and power of the majority, but it contains checks and balances precisely to prevent short-term majorities from saddling the country with long-term decisions. A Senate majority large enough to break a filibuster takes time and geographically broad-based appeal to develop, as it should – even the high Democratic tides of 2006 and 2008 weren’t robust enough to provide the margin of error against the death of a single Senator derailing the 60-vote majority. There is no reason why our system should disregard its longstanding defenses against the perpetual rule of a single election cycle’s fleeting majorities.
* – I’m limiting my discussion here to filibusters of legislation. I’ve discussed at length here and here my views on why filibusters of judicial and executive nominees are bad, some strategies for eliminating them, and why it may be unfortunately necessary for Republicans to use them in the short term to put pressure on recalcitrant Democrats to agree to mutual long-term limitations on their use. Worst of all, of course, is the tradition of single-Senator “holds,” often anonymous, a tradition that’s been badly abused by both parties, sometimes for nakedly personal gain or revenge.
Steve Maley
KnightsofMalta
Great Post Dan
Brian Darling (Diary) Tuesday, February 9th at 1:52PM EST (link)Great post and I don’t just say that because you mention me by name in your post. A comprehensive reply to the so called “progressives” who are advocating that the right of the minority party in the Senate be severely curtailed.
I do disagree on one point. If the filibuster is abolished on nominees, it will be abolished on legislation. If the Ds pull the trigger on the Nuclear Option and abolish the rule through a simple majority vote, there is no distinction in the rules between a legislative and nomations filibuster.
Also, the “hold” is merely the threat of a filibuster. The Majority Leader can ignore a hold and file cloture with no debate on legislation (like has been done with the Becker nomination). Holds are merely a Senate tradition and have no weight in the rules.
Excellent description of the need for the retention of the filibuster rule.
If I had to choose
Dan McLaughlin (Diary) Tuesday, February 9th at 1:54PM EST (link)and perhaps I do, I’d rather keep the filibuster for both than lose it for both. That’s a practical consideration I dealt with in some of those prior essays. But ideally, I’d still prefer to do away with indefinite filibusters of nominees.
“No compromise with the main purpose, no peace till victory, no pact with unrepentant wrong.” – Winston Churchill
I'm A Conservative That's Against The Filibuster
crosley (Diary) Tuesday, February 9th at 2:17PM EST (link)I absolutely think Republicans should use every tool at their disposal to kill this health care bill, so right now I’m a fan of the filibuster. I also think it’s incredibly hypocritical that Liberals are now screaming about the filibuster when all you heard during Bush’s Presidency was how sacred the filibuster was.
That being said, I agree with the argument that if the founders wanted a 60 plus majority to pass legislation in the Senate, they should have put that in the Constitution. I understand the Constitution allows the Senate to make it’s own rules, but the modern application of the filibuster has completely changed what the Founders intended.
As a hypothetical, what if the Democrats had won a few extra seats and had a 2/3rds majority in the Senate and changed the Senate rules where it took a 75 seat majority from then on to pass any legislation or change any rules? Democrats pass universal health care, amnesty, card-check etc. and then change the rules so it could never be reformed or repealed (what political party would ever have a 75 seat majority in the Senate?) It’s a silly hypothetical, but I think the Founder’s intent was clear, it takes a majority of Senators to pass a bill. There’s plenty of gridlock engineered into the system already.
I just know I was fuming mad that our side couldn’t even get an up or down vote on judges that were being nominated, which I thought that was a violation of the Constitution. When do you think Republicans will have a 60 plus majority in the Senate, a majority in the House and the White House? My guess is once in a 100 years if we’re lucky, which essentially shelves much of the conservative agenda.
You make a good point
Spiral (Diary) Wednesday, February 10th at 5:05AM EST (link)If this Senate were to enact a rule saying:
(1) It takes 75 votes to end debate on a piece of Senate business and
(2) It takes 75 votes to end debate on rule changes and
(3) All future Senates are bound by the rules enacted by the current Senate,
a future Senate would say, “Hogwash. One Senate can not bind all future Senates without amending the Constitution.”
Also, there have been many times when a simple majority of the Senate has changed the way the Senate operates in the middle of a Senate session.
A simple majority of Senators can change Senate procedure without changing the actual text of Senate rules by simply ignoring the written rules of the Senate. This can be done because the enforcer and interpreter of Senate rules is the Senate itself.
A point of order is often made when a Senator objects to the way the Senate is proceeding because that Senator believes the Senate is violating its own rules. The Presiding Officer of the Senate either sustains or overturns points of order by Senators and often these rulings are appealed by a Senator who disagrees with the Presiding Officer’s ruling. Then, another Senator usually asks that the appeal be “tabled” (killed) and this requires an immediate up or down vote by the full Senate.
This is how a simple majority can change the Precedents of the Senate without changing Senate Rules. And the Senate operates based on Senate Precedents as much or more than it operates on its Standing Rules.
So, we need to wake up and realize that the Senate already is a body that is based on majority rule. It’s just that, for now at least, the majority is willing to accept supermajority requirements for cloture. But once the majority decides it can no longer tolerate such supermajority requirements, it can just work its will.
We need to be ready for this when it happens, because it could happen this year or early next year.
The Obama Bread Lines
This should be in a text book. Well done Dan. nt
Aaron Gardner (Diary) Tuesday, February 9th at 2:20PM EST (link)conform and celebrate diversity….or else!!!
“We’d be much better off if We The People had desired small government enough to keep it.” acat
Follow @Aaron_RS
It boils down to a functioning government.
jeffreywturner (Diary) Tuesday, February 9th at 2:26PM EST (link)Liberals have to learn that just because they don’t get their way, it doesn’t mean the government doesn’t function.
The government still functions if we don’t pass Obamacare, Cap & Trade or Hate Crimes legislation, so having to garner more than a bare majority to pass those things is fine.
The government does not function if it is not funded, which is why we ARE able to pass budgets with only a bare majority. By the same token, the government doesn’t function if it is not staffed, which is why we SHOULD be able to confirm nominees with a bare majority.
“Life is too short, can’t we all just eat pork and kill some terrorists?”
Anyone who wants more power handed to them
anotherindyfilmguy (Diary) Tuesday, February 9th at 3:01PM EST (link)so they can “do good for others” should be denied that power. Possibly they should be investigated and tried for treason and then properly hung and left hanging for a few months as an example to the rest.
History has almost always shown that, with a very, very few rare examples, nothing good comes from giving more power to any one person or politically/single goal/monolithically aligned group.
Santorum? Well, at least he’s not Romney…
http://www.zazzle.com/enemy_of_the_statist_tshirt-235977043035297478
5 [nt]
qixlqatl (Diary) Tuesday, February 9th at 3:05PM EST (link)“Yet, Freedom! yet thy banner, torn, but flying,
Streams like the thunderstorm against the wind.”
George Gordon Noel Byron
old-fashioned filibuster
jomo2009 Tuesday, February 9th at 3:12PM EST (link)Perhaps the number of tendentious filibusters would abate if senators had to take the floor and hold it by literally talking the bill to death ala “Mr Smith goes to Washington.” Ever since the creation of the so called “cadillac filibuster,” we’ve seen an explosion of these kind of obstructionist tactics.
The party in power always wants to abolish
freedawk Tuesday, February 9th at 3:40PM EST (link)the filibuster until they are out of power. Sheer desperation on the part of the liberals.
The filibuster can be abolished with 51 votes at any time
Spiral (Diary) Tuesday, February 9th at 5:52PM EST (link)What gets too little attention is the fact that the filibuster (also known as the 60 vote cloture rule) can be abolished or ignored at any time with 51 votes. All it would take would be the following:
(1) The Senate debates health care reform for 10 hours.
(2) Senate Majority Leader Harry Reid announces “I move that we end debate on this legislation and take an up or down vote.”
(3) Vice President Joe Biden, acting as the Presiding Officer of the Senate, announces, “The Senator’s motion is sustained.”
(4) Senate Minority Leader Mitch McConnell says, “I move to appeal the ruling of the chair.”
(5) Senate Majority Leader Harry Reid says, “I move to table the Senator’s appeal.”
(6) Vice President Joe Biden says, “The clerk will call the roll.”
(7) 53 Democrats vote “Aye,” 6 Democrats and 41 Republicans vote “Nay,” The motion to table succeeds on a 53 to 47 vote.
(8) Health care reform passes on a 55 to 45 vote.
This is known as The Byrd Option or The Constitutional Option. It was done by Senate Majority Leader Robert Byrd 4 times from 1977 through 1987.
The Obama Bread Lines
The filibuster is an unsecured check and balance
Spiral (Diary) Tuesday, February 9th at 5:58PM EST (link)I’ll pull a Kowalski for a moment here……
The filibuster is different from other checks and balances that we have against majority rule.
Whereas the Presidential Veto power, the division of the legislative branch into two separate legislative chambers (House and Senate) and the independent judiciary are written into our Constitution, the 60 vote cloture requirement is simply a Senate Rule that isn’t even applicable during budget reconciliation.
And since the 60 vote cloture requirement is only a Senate Rule, it can be ignored or changed at any time by a simple majority of Senators (or 50 Senators and the tie-braking vote of the Vice President).
In fact, the reason why we currently have a 60 vote cloture requirement is because in 1975, a simple majority of US Senators wanted to junk the previous 2/3rds cloture requirement. Once this majority used the Constitutional Option, the minority gave up and accepted a three-fifths cloture requirement.
If today simple majority of Senators decided that they wanted a 51/100ths cloture requirement, they could force the situation.
So, we must realize that the filibuster is a bit unstable, and we should always realize that it might be changed or ignored by the majority at any time because it isn’t “etched in stone” the way those other checks and balances are.
The Obama Bread Lines
I would support the GOP "nuking" the filibuster
Spiral (Diary) Tuesday, February 9th at 6:19PM EST (link)If by 2013 the GOP holds a majority in the US Senate and holds the White House, I would support using the nuclear option (a.k.a. the Byrd Option or the Constitutional Option) to get around the filibuster in order to put conservatives on the federal court of appeals and the US Supreme Court.
The fact that the Democrats were successful in filibustering Miguel Estrata and a host of other Bush nominees to the federal court of appeals still irritates me.
The fact that John McCain tried to pull the wool over conservative eyes and say, “We have to keep the filibuster because we might want to filibuster liberal judges,” even though McCain voted for Ruth Bader Ginsberg also made me mad. It’s as though McCain figured that conservatives don’t have memories of anything that happened more than two months ago.
Either amend the constitution to put the 60 vote requirement in the Constitution or junk the filibuster. That’s my opinion.
The Obama Bread Lines