I spend a lot of time in the weeds of health-care policy, because even a throwaway line in a 2,700-page law can have dramatic consequences for how individuals and their families obtain health care. But it’s important to remember that Obamacare is about fundamental philosophical questions: Do individuals have the right to make health-care decisions for themselves? Should America live within its means?
Judge Vinson’s ruling is a big deal. It reminds us that another, even more fundamental principle is at stake: Does Congress have unlimited power to do whatever it wants, or is Congress constrained by its enumerated powers under the Constitution? Here are a few further thoughts on these questions and others.
Commerce Clause Confusion. We are where we are today because of 75 years of tortured jurisprudence on the Commerce Clause. As a reminder, Article I, Section 8 of the Constitution grants Congress the power “to regulate Commerce with foreign Nations, and among the several States, and with the Indian Tribes.” However, thanks to the Supreme Court, the Commerce Clause has been twisted beyond all recognition.
Is a man growing wheat on his own land to feed his own chickens engaging in interstate commerce? Apparently, yes (Wickard v. Filburn, 1942). Is a 12th-grader carrying a concealed .38-caliber revolver to school engaging in interstate commerce? Not necessarily (United States v. Lopez, 1995). Is a woman growing marijuana in her own home, for her own use, engaging in interstate commerce? Apparently, yes (Gonzales v. Raich, 2005). Is a man who declines to purchase health insurance engaging in interstate commerce? To be determined.
Florida v. HHS gives the Supreme Court the opportunity to finally clean up this mess. However, with Anthony Kennedy effectively in charge, we can’t be optimistic that they will.
What Happens Next. The Vinson ruling has big implications for the 112th Congress. House Republicans are planning to launch legislation to repeal the individual mandate, if and when the initial PPACA repeal effort runs aground. Now that Vinson has overturned the law, however, it might be a mistake for Congress to repeal the mandate without allowing the Supreme Court the opportunity to first rule on its constitutionality. There is a non-zero chance that the Supremes could uphold Vinson’s opinion, overturning the entirety of Obamacare.
Even if the Supreme Court rules more narrowly, the likelihood that they void the individual mandate has gone significantly up. As Ezra Klein put it today, Vinson’s ruling makes Henry Hudson’s more narrow one — in which the mandate was overturned but the rest of PPACA preserved — “seem more modest and appealing.” In other words, the center has shifted rightward. Congress should afford the Supreme Court one more opportunity to constrain the Commerce Clause and thereby the power of the federal government.
There is a lot of uncertainty today as to what Vinson’s ruling means for the implementation of Obamacare. The likely answer is, not much. Vinson declared the entire law unconstitutional, but declined to enjoin it. A source of Jonathan Cohn’s believes this was a clever tactical move by Judge Vinson:
If he had entered an injunction, the US would immediately have sought a “stay pending appeal.” That means the injunction can’t be enforced while the case is on appeal. The US would seek the stay from him; if he denied it, from the 11th Circuit; if the 11th Circuit denied it — which would be inconceivable, in this case, in my view — from the [Supreme Court]. Technically, a [declaratory judgment] does not have to be stayed, because it doesn’t require the US to do anything. But my guess is that the US will seek a stay anyway, just to make things clear.
There is a risk that if the US seeks a stay, and the court of appeals says “we’re not granting a stay, because you don’t need it, since this is only a DJ” then that will be portrayed as a loss for the US. Vinson’s little maneuver — I’ll enter a DJ, and I’ll suggest you have to comply right away, but I won’t make it an injunction — is just jerkiness, designed to put the government in an awkward position without Vinson’s owning up to what he’s doing.
David Rivkin, lawyer for the 26 states represented in Florida v. HHS, has declared: “With regard to all parties to this lawsuit, the statute is dead.” However, the White House is promising to continue implementing Obamacare, and has expressed its intention to appeal the case to the Eleventh Circuit in Atlanta. Note that the Eleventh Circuit has a reputation as one of the most conservative appellate courts in the country, and there is therefore a reasonable likelihood that Vinson’s ruling will be upheld at the appellate level.
What Are the Implications for Repealing Obamacare via Reconciliation? Based on my “End of the Beginning” piece from a month ago, I’ve gotten a lot of questions as to what would happen if the Supreme Court overturned the individual mandate, but left the rest of PPACA intact.
The Congressional Budget Office, last June, projected that repealing the mandate would reduce the deficit by $252 billion in the 2011-2020 timeframe. If the Court were to overturn PPACA, but leave the rest of the law intact, à la Judge Hudson’s ruling in Virginia v. Sebelius, repealing the rest of Obamacare as a separate measure would correspondingly be scored by the CBO as increasing the deficit by a substantial amount: approximately the sum of the $252 billion from the mandate and the $145 billion from repealing PPACA as a whole. That’s roughly $400 billion.
In other words, if the Supreme Court overturns the individual mandate, but keeps the remainder of PPACA, repealing the remainder of PPACA via the reconciliation process will be scored as adding $400 billion to the deficit, and therefore not pass parliamentary muster, unless the Senate is able to compensate for that $400 billion with offsetting savings, or by successfully modifying the CBO’s assumptions.
The same problem holds true if the 112th Congress were to repeal the mandate without offsetting the $252 billion in savings by repealing some of PPACA’s spending cuts, such as its elimination of support for Medicare Advantage.
The bottom line: Congressional Republicans should think long and hard before they decide what to do next.
— Avik Roy is an equity research analyst at Monness, Crespi, Hardt & Co. in New York City. He blogs on health-care issues at The Apothecary.
"Now that Vinson has overturned the law, however, it might be a mistake for Congress to repeal the mandate without allowing the Supreme Court the opportunity to first rule on its constitutionality. There is a non-zero chance that the Supremes could uphold Vinson’s opinion, overturning the entirety of Obamacare."
That would be a dangerous strategy. Right now, Obamacare carries a temporary taint of unconstitutionality, which should help sway impressionable Senators to support repeal. Waiting for the Supreme Court to rule runs the risk that the Court will erase that taint and affix its imprimatur of Constitutionality.
And in practical terms, there's no point in waiting. The repeal effort, even if it succeeds in Congress, will be halted by a Presidential veto.
Reply to this commentLinkReport AbuseThere's actually a much more fundamental reason why repeal through reconciliation will never work. Reconciliation can't touch the community rating and guaranteed issue regulations, no matter what. And if we still have those, then we need a mandate to preserve the private insurance market, and if we have a mandate, we need some sort of subsidies.
They could rewrite the bill, but they can't change the regulate-mandate-subsidize framework unless they have 60 votes to get rid of community rating/guaranteed issue.
Reply to this commentLinkReport AbuseStuiec: Repealing the entirety of the law might be halted by a Presidential veto. But can we be sure that repealing the mandate alone would be? Perhaps pro-PPACA advocates would see this as a tactical move to eliminate the constitutional vulnerability of the rest of the law.
Jon: The reconciliation process can throw out individual provisions of a bill; if the bill has a single provision to repeal PPACA, it can get through, so long as repealing PPACA is scored as reducing the deficit.
The key question is: can PPACA be scored as reducing the deficit, by supplying the CBO with different assumptions than what the Democrats imposed?
One other point: if the mandate goes, especially via the courts, there will be political pressure to unravel the guaranteed issue etc., or come up with a mandate simulacrum like limited enrollment. Otherwise, the private insurance industry will collapse.
Reply to this commentLinkReport AbuseThis keeps confusing me. Isn't the mandate a revenue source? For congressional repeal, I understand that one might need to offset this loss of revenue with some corresponding monies from somewhere (let's say some spending), and that those monies would no longer be available for future repeal efforts. However, if the court simply removes the mandate and the associated revenue, how does that not simply "increase the cost" of PPACA? Doesn't that make the book-balancing part of repeal easier?
Reply to this commentLinkReport AbuseI wonder if a collapse of the industry wouldn't be perfectly fine with Democrats. Most people think guaranteed issue and the other industry-destroying mandates are great - those are the popular parts of the bill. Few people like the mandate to buy - but most people don't understand how that mandate is necessary to making the "popular" stuff actually work. They don't get that either 1) premiums necessarily skyrocket for everyone so that insurers can recoup the huge costs of all those sick people they have to take, or 2) the industry collapses.
Dumping the mandate while keeping the rest puts Democrats in a great position - insurers will be pushing for huge increases - leading to easy demonization of them, and/or the industry will start to collapse. Democrats then swoop in and sell the public on the idea that the system is broken and since they can't have a mandate there should be single payer. Since Democrats never admit that government interference and regulation causes the problem in the first place (see Fannie and Freddie and the whole mortgage meltdown), they will simply press for new government "solutions" to the problem they created. And they may well win over more people the second time around.
Reply to this commentLinkReport AbuseNo Mitch - it's both. It's a revenue source in that the penalties for not purchasing are revenue, but the CBO has also tied the subsidies to the mandate - so not having the mandate means (to the CBO) that the government will not have to spend as much money on subsidies for those who can't afford it. Turns out they expect the feds to save more money by eliminating a lot of subsidy recipients than they would lose by eliminating the penalties.
Reply to this commentLinkReport AbuseHi Mitch,
Sorry for the confusion -- it's not the easiest concept to get one's head around, nor to write clearly about. Here's what the CBO had to say:
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Under the proposal [to repeal the individual mandate], the loss of revenues from the individual mandate penalties would increase the deficit by about $17 billion over the 2010-2019 period, but the savings from reduced subsidies and other sources would be greater. Of the $219 billion in offsetting savings over the 2010-2019 period, most (about $113 billion) would come from lower Medicaid enrollment. Exchange subsidies would be about $39 billion lower. Primarily because of the indirect effects of reductions in employer coverage, the removal of the mandate would increase tax revenues by about $60 billion. The remainder of the budgetary effect would come from a modest increase in employer penalties (about $5 billion) and a modest reduction in small business tax credits (about $2 billion). The net savings would thus total $202 billion through 2019.
We have not completed the task of updating our coverage baseline and model to include 2020. As an approximation, however, we expect that there would be additional savings from this proposal in 2020—on the order of $50 billion—bringing the total savings over the 2011-2020 period to about $252 billion.
Reply to this commentLinkReport Abuse“it might be a mistake for Congress to repeal the mandate without allowing the Supreme Court the opportunity to first rule on its constitutionality.”
It would certainly NOT be a mistake for Congress to repeal it first. There is zero chance Obama will sign a repeal, so Congress’ action in passing a repeal will not moot the question as a legal matter.
If four Democrat senators (e.g. Webb, Manchin, etc) go with the repeal, they just might be saving their seats in the next election. For Obama, for both houses to repeal and for him to veto the will on Congress, after having passed it with a razor-thin partisan majority using sleazy back-room deals, the political consequence would be very damaging indeed.
As to whether Democrats would be fine if the industry collapses, I believe from observing the design of the bill, that even with the mandate that is what was intended. The absurd mandated expense ratio serves as a barrier to entry to start-ups seeking to enter the health insurance marketplace, and with federal government officials dictating what all health insurance plans are allowed to cover, the industry would naturally evolve into a very few massive Fannie/Freddie-like quasi-government entities with Dem political hacks/executives (remember Franklin Raines? James Johnson? Jamie Gorelick?) making multi-millions overseeing the mess and running it in conjunction with their political buddies in Congress and at the regulatory agencies. Eventually, the Federal government would have to bailout the mess, and the Left would at last be allowed to convert it to a single-payer in the name of efficiency and to keep those evil corporate executives from skimming off the top (remember that argument from the recent student loan takeover?)
By the way, I almost stopped reading this post when you quoted Ezra Klein (‘the Constitution is so, like, over a hundred years ago’)!
Reply to this commentLinkReport AbuseMr. Roy,
Reply to this commentLinkReport AbuseIt would seem that there is a easy way to repeal Obamacare but I presume Republicans are saving this surprise for later. After all, are not the cuts in Medicare payments to doctors which were restored by the "Doc fix" counted as revenue to be used to pay for Obamacare and doesn't this "Doc fix" need to be renewed each year? If so, why can't House Republicans combine repeal of Obamacare with renewal of the "Doc fix?" After all, Obamacare requires these cuts. Shouldn't citizens be given a chance to see the full Obama? Surely Democrats would be anxious to demonstrate to seniors all the benefits of Obamacare.
Roy,
Is the court able to make any kind of judgment about the breadth of the law? It seems like we're assuming the individual mandate is the key issue. But the rest of the law is akin to upending the entire food distribution system, which enjoys similarly high levels of support, just because some can't cover their food bills. Is there any allowance to be given to the idea that if the issue is of dubious constitutionality, its overreaching nature in other regards should incline judges to reject it?
Also - I know the bill was passed in a shell house bill, but the actual legislation clearly originated in the senate. Is there no basis to challenge it on that level, since Obama is arguing that the mandate is a tax?
Thanks for answering peoples' comments.
Greg
Reply to this commentLinkReport AbuseHow about repealing all but the tax increases? This undeniably lowers the deficit, and then the tax increases can be repealed later, as part of the general budget.
What I don't get is that Obamacare was passed with 2009 numbers, so 10 years of revenues vs 6 years of benefits. Repeal should be scored as 10 years of revenues vs 8 years of benefits, so shouldn't that be enough to change the deficit impact in the other direction?
Reply to this commentLinkReport AbuseRalph - unfortunately you have it backwards. If Republicans engage in additional spending, by continuing the "doc fix," that would expand the deficit and make reconciliation harder. Republicans will have to find ways to either cut spending or raise taxes in order to gain a favorable CBO score. The doc fix involves raising, not cutting, spending.
Greg - According to the principle of stare decisis, lower-court judges are supposed to defer to Supreme Court case law. Hence, it will be up to the Supreme Court to rewrite old precedents. This is why the lower courts (both Hudson and Vinson) have focused on explaining why the individual mandate is an entirely new kind of Congressional power-grab.
Reply to this commentLinkReport AbuseHi Mr. Roy,
My question wasn't clear. Let's assume that the court is on the fence RE the constitutionality of the mandate, or that it is narrowly leaning toward supporting it. Is it then possible that the depth and breadth of the law may turn them ultimately against it? In other words, assuming a mandate is constitutional, does it then follow that the 85% cap, the elimination of catastrophic insurance and health savings accounts, and the dictating of policy terms are also legitimate? Could the congress not then conceivably have included, for instance, really regimented and naked death panels? In other words again, isn't the gross disruption of commerce - arguably unnecessary - also somehow unconstitutional, or at least potentially a factor in their decision?
RE the CBO scoring: Could the GOP pass two bills: One that replaced every Obamacare element with market alternatives, and one that did the same, but left the taxes intact? If the CBO scores both bills, at least the second might show significant deficit reduction. We could revisit the taxes later. Thanks again.
Reply to this commentLinkReport AbuseHi Greg, to your first point: it's possible that individual Justices might take that into account subconsciously, but from a Constitutional standpoint, I'm not sure it would dispositively drive the debate.
To your second question: my understanding is that under reconciliation, *every provision* under consideration has to, by itself, reduce the deficit. Individual provisions that don't reduce the deficit can be thrown out by the parliamentarian on points of order. So the reconciliation bill will have to be crafted quite carefully.
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