The Judicial Bookshelf D. Grier Stephenson, Jr. As scholars assess developments in Ameri can constitutional government a halfcenturyor even a full century hence, theywill look back to the extraordinarily rich and varied writings of those who preceded them. This is the opportu nity afforded today’s students as well. One’s insights into a particular period are enhanced by those who wrote at another time. ConsiderPopularGovernment, a collection of four essays written barely more than a cen turyagobytheEnglish legalhistorianSirHenry Sumner Maine,1 whowrote approximatelyhalf way between establishment of government under the Constitution and our own time. For the contemporary reader who looks at the volume from a distance of 106 years, his treatment of thejudiciary contains both the familiar and the unfamiliar-the Court of today as well as the Court of yesterday. Then as now, one sees an institution beset by the tension posed in the American political system between popular sov ereignty and limited government, between “governmentbythepeople” and legalrestraints on the people’s government. The tension is the hallmark of a government founded on both the consent ofthe governed and the expectation, in Justice Jackson’s words, “that we submit our selves to rulers only if under rules.”2 In Maine’s British-based observations on the American political system fifteen years before the turn of the twentieth century, the Supreme Court “was not only a most interesting but a virtuallyunique creation ofthe founders ofthe Constitution.” In his view, the division of pol icy-makingauthoritybetweenthePresidentand Congress, the concept ofanationalgovernment of limited powers, and the existence of the statesmeantthat thepolitical systemneeded an institution both to expound the Constitution and to clarifytheboundariesofpoliticalauthor ity. For Maine, judicial reviewwas essential to American government. “The success of this experiment [judicialreview] hasblindedmen to its novelty,” Maine wrote. “There is no exact precedent for it, either in the ancient or in the modern world.” The Court’s constitutional role was the product of “the unsatisfactory condition of English Constitutional law [at the time of the American Revolution], and of its manygrave and dangerous uncertainties.” The Framerswantedto avoid“asystemunderwhich legal questions were debated with the utmost acrimony, but hardly ever solved....”3 Yet there are sharp contrasts between the Court Maine knew and the Court of today. Maine wrote at a time when the Court was chiefly a supreme court of errors. Constitu tional issues still accounted for a small part of the Court’sbusiness. In 1875, for example, they occupied only about six percent of the docket, compared to about half the docket a century later. It was not until sixyears after publication of Popular Government that Congress created the Circuit Courts ofAppeals in 1891, the first true and lasting intermediate appellate bodies in the federal judicial system. With introduc tionofsomecertiorarijurisdiction (tobegreatly expanded in 1925) and a soon-to-be-enlarged corpus offederal legislation (being in Congress in Maine’s day was very much a part timejob), a different role for the Court could emerge. In contrast to the docket of the nineteenth cen tury, public law in both its constitutional and statutoryformsnowconsumes the Court’s time. Moving beyond its dispute-resolution role, the Court has become mainly a maker of public policy for uniform application across the na tion. Maine also wrote before a sizeable fraction of the constitutional cases which did arise in volved the Bill of Rights. The dominant con ception of the Bill of Rights in the late nine teenth century may well have had more in common with the late eighteenth century than 106 JOURNAL 1991 with the late twentieth century. For Maine, the BillofRights consisted of “a certain number of amendments on comparatively unimportant points.”4 Although he does not elaborate, one suspects that by “comparatively unimportant” he meant unimportantjudicially—that they had not become a common source of federal litiga tion. That could not happen to any significant degree without two occurrences: first, the pro visions of the Bill of Rights would have to be applied to the states through the Fourteenth Amendment (given the large place, relative to the national government, state and local gov ernmentshad inthe lives oftheir citizens). This extension had not yet begun in 1885. Indeed, only the year before in Hurtado v. California5...
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