ion and Authority Frank H. Easterbrookt Our Constitution creates a government of laws and not of men. The distinction is more than slogan. It is embedded in structure. Congress must proceed by law, using intelligible standards and principles with sufficient breadth to be more than bills of attainder. Rules are proposed, debated, voted on, and published. Process matters: failure at any step means no law. There are no common law crimes. Sudden changes in norms may transgress the Ex Post Facto Clause, the Due Process Clause, or both. Executive officials must act under standards they can defend in (and before courts); judges too must support their decisions by reasons of general application. Yet the law teems with devices that defeat uniformity and predictability. Laws may create plastic standards. They may, for example, charge an agency to act in the public interest, convenience, and necessity. Judges attempt to define unreasonable restraints of trade. Balancing tests blossom in constitutional law-although lists of factors do not create tests, for a combination of a lack of weights for the factors and the tension in a 200year stock of precedent enables judges to go any which way. As society becomes more complex and actors-Presidents, administrators, legislators, judges-have less time to spend on each subject, it becomes both tempting and essential (if business is to be finished at all) to muddle through with standards rather than rules. Even in theory it is difficult to know when a rule is preferable to a standard;1 in practice neither information nor time permits a confident choice.2 Language itself is too crude for full specificat Judge, United States Court of Appeals for the Seventh Circuit; Senior Lecturer, The Law School, The University of Chicago. This Article was prepared for The Bill of Rights in the Welfare State: A Bicentennial Symposium, held at The University of Chicago Law School on October 25-26, 1991. I 1991 by Frank H. Easterbrook. I thank Thomas Collier, G. Michael Halfenger, Alan J. Meese and Richard A. Posner for helpful comments on an earlier draft. ' Isaac Ehrlich and Richard A. Posner, An Economic Analysis of Legal Rulemaking, 3 J Legal Stud 257 (1974). See also Donald Wittman, Prior Regulation versus Post Liability: The Choice Between Input and Output Monitoring, 6 J Legal Stud 193 (1977). 2 See Frank H. Easterbrook, What's So Special About Judges?, 61 U Colo L Rev 773,
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