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Cases citing this case: Circuit Courts
U.S. Supreme Court
COHENS v. COM. OF VIRGINIA, 19 U.S. 264 (1821)
19 U.S. 264 (Wheat.)
COHENS
v.
VIRGINIA.
March 3, 1821
[19 U.S. 264, 265] THIS was a writ of
error to the Quarterly Session Court for the borough of Norfolk,
in the State of Virginia, under the 25th section of the
judiciary act of 1789, c. 20. it being the highest Court of law
or equity of that State having jurisdiction of the case.
Pleas at the Court House of Norfolk borough,
before the Mayor, Recorder, and Aldermen of the said borough, on
Saturday, the second day of September, one thousand eight
hundred and twenty, and in the forty-fifth year of the
Commonwealth.
Be it remembered, that heretofore, to wit: At
a Quarterly Session Court, held the twenty-sixth day of June,
one thousand eight hundred and twenty, the grand jury, duly
summoned and impaneled for the said borough of Norfolk, and
sworn and charged according to law, made a presentment in these
words:
We present P. J. and M. J. Cohen, for vending
and selling two halves and four quarter lottery tickets of the
National Lottery, to be drawn at Washington, to William H.
Jennings, at their office at the corner of Maxwell's wharf,
contrary to the act thus made and provided in that case, since
January, 1820. On the information of William H. Jennings.
[19 U.S. 264, 266]
Whereupon the regular process of law was awarded
against the said defendants, to answer the said presentment,
returnable to the next succeeding term, which was duly returned
by the Sergeant of the borough of Norfolk-'Executed.'
And at another Quarterly Session Court, held
for the said borough of Norfolk, the twenty-ninth day of August,
one thousand eight hundred and twenty, came, as well the
attorney prosecuting for the Commonwealth, in this Court, as the
defendants, by their attorney, and on the motion of the said
attorney, leave is given by the Court to file an information
against the defendants on the presentment aforesaid, which was
accordingly filed, and is in these words:
Norfolk borough, to wit: Be it remembered,
that James Nimmo, attorney for the Commonwealth of Virginia, in
the Court of the said borough of Norfolk, cometh into Court, in
his proper person, and with leave of the Court, giveth the said
Court to understand and be informed, that by an act of the
General Assembly of the said Commonwealth of Virginia, entitled,
'An act to reduce into one, the several acts, and parts of acts,
to prevent unlawful gaming.' It is, among other things, enacted
and declared, that no person or persons shall buy, or sell,
within the said Commonwealth, any lottery, or part or share of a
lottery ticket, except in such lottery or lotteries as may be
authorized by the laws thereof: and the said James Nimmo, as
attorney aforesaid, further giveth the Court to understand and
be informed, that P. J. and M. J. Cohen, traders and partners,
late of the parish of Elizabeth River, and
[19 U.S. 264, 267]
borough of Norfolk aforesaid, being evil disposed
persons, and totally regardless of the laws and statutes of the
said Commonwealth, since the first day of January, in the year
of our Lord one thousand eight hundred and twenty, that is to
say, on the first day of June, in that year, and within the said
Commonwealth of Virginia, to wit, at the parish of Elizabeth
River, in the said borough of Norfolk, and within the
jurisdiction of this Court, did then and there unlawfully vend,
sell, and deliver to a certain William H. Jennings, two half
lottery tickets, and four quarter lottery tickets, of the
National Lottery, to be drawn in the City of Washington, that
being a lottery not authorized by the laws of this Commonwealth,
to the evil example of all other persons, in the like case
offending, and against the form of the act of the General
Assembly, in that case made and provided.
JAMES NIMMO, for the Commonwealth.
And at this same Quarterly Session Court,
continued by adjournment, and held for the said borough of
Norfolk, the second day of September, eighteen hundred and
twenty, came, as well the attorney prosecuting for the
Commonwealth, in this Court, as the defendants, by their
attorney, and the said defendants, for plea, say, that they are
not guilty in manner and form, as in the information against
them is alleged, and of this they put themselves upon the
courtry, and the attorney for the Commonwealth doth the same;
whereupon a case
[19 U.S. 264, 268] was agreed by them to be argued
in lieu of a special verdict, and is in these words:
Commonwealth against Cohens-case agreed.
In this case, the following statement is
admitted and agreed by the parties in lieu of a special verdict:
that the defendants, on the first day of June, in the year of
our Lord eighteen hundred and twenty, within the borough of
Norfolk, in the Commonwealth of Virginia, sold to William H.
Jennings a lottery ticket, in the lottery called, and
denominated, the National Lottery, to be drawn in the City of
Washington, within the District of Columbia.
That the General Assembly of the State of
Virginia enacted a statute, or act of Assembly, which went into
operation on the first day of January, in the year of our Lord
1820, and which is still unrepealed, in the words following.
No person, in order to raise money for
himself or another, shall, publicly or privately, put up a
lottery to be drawn or adventured for, or any prize or thing to
be raffled or played for: And whosoever shall offend herein,
shall forfeit the whole sum of money proposed to be raised by
such lottery, raffling or playing, to be recovered by action of
debt, in the name of any one who shall sue for the same, or by
indictment or information in the name of the commonwealth, in
either case, for the use and benefit of the literary fund. Nor
shall any person or persons buy or sell, within this
Commonwealth, any lottery ticket, or part or share of a lottery
ticket, except in such lottery or lotteries as may be authorized
by the laws [19
U.S. 264, 269] thereof; and any person or persons
offending herein, shall forfeit and pay, for every such offence,
the sum of one hundred dollars, to be recovered and appropriated
in manner last aforesaid.
That the Congress of the United States
enacted a statute on the third day of May, in the year of our
Lord 1802, entitled, An Act, &c. in the words and figures
following:
An Act to incorporate the inhabitants of the
City of Washington, in the District of Columbia.
Be it enacted by the Senate and House of
Representatives of the United States of America, in Congress
assembled, That the inhabitants of the City of Washington be
constituted a body politic and corporate, by the name of a Mayor
and Council of the City of Washington, and by their corporate
name, may sue and be sued, implead and be impleaded, grant,
receive, and do all other acts as natural persons, and may
purchase and hold real, personal and mixed property, or dispose
of the same for the benefit of the said city; and may have and
use a city seal, which may be altered at pleasure. The City of
Washington shall be divided into three divisions or wards, as
now divided by the Levy Court for the county, for the purposes
of assessment; but the number may be increased hereafter, as in
the wisdom of the City Council shall seem most conducive to the
general interest and convenience.
Sec. 2. And be it further enacted, That the
Council of the City of Washington shall consist of twelve
[19 U.S. 264, 270]
members, residents of the city, and upwards of
twenty-five years of age, to be divided into two chambers; the
first chamber to consist of seven members, and the second
chamber of five members; the second chamber to be chosen from
the whole number of councillors, elected by their joint ballot.
The City Council to be elected annually by ballot, in a general
ticket, by the free white male inhabitants of full age, who have
resided twelve months in the city, and paid taxes therein the
year preceding the elections being held: the justices of the
county of Washington, resident in the city, or any three of
them, to preside as judges of election, with such associates as
the council may from time to time appoint.
Sec. 3. And be it further enacted, That the
first election of members of the City Council, shall be held on
the first Monday in June next, and in every year afterwards, at
such place in each ward as the judges of the election may
prescribe.
Sec. 4. And be it further enacted, That the
polls shall be kept open from eight o'clock in the morning, till
seven o'clock in the evening, and no longer, for the reception
of ballots. On the closing of the poll, the judges shall close
and seal their ballot boxes, and meet on the day following, in
the presence of the Marshal of the District, on the first
election, and the council afterwards, when the seals shall be
broken, and the votes counted: within three days after such
election, they shall give notice to the persons having the
greatest number of legal votes, that they are duly elected, and
shall make their return to the Mayor of the city.
[19 U.S. 264, 271]
Sec. 5. And be it. further enacted, That the Mayor
of the city shall be appointed annually by the President of the
United States; he must be a citizen of the United States, and a
resident of the city prior to his appointment.
Sec. 6. And be it further enacted, That the
City Council shall hold their sessions in the City Hall, or
until such building is erected, in such place as the Mayor may
provide for that purpose, on the second Monday in June, in each
year; but the Mayor may convene them oftener, if the public good
require their deliberations; three fourths of the members of
each Council, may be a quorum to do business, but a smaller
number may adjourn from day to day: they may compel the
attendance of absent members in such manner, and under such
penalties, as they may, by ordinance, provide: they shall
appoint their respective Presidents, who shall preside during
their sessions, and shall vote on all questions where there is
an equal division: they shall settle their rules of proceedings,
appoint their own officers, regulate their respective fees, and
remove them at pleasure: they shall judge of the elections,
returns, and qualifications of their own members, and may, with
the concurrence of three-fourths of the whole, expel any member
for disorderly behaviour, or malconduct in office, but not a
second time for the same offence: they shall keep a journal of
their proceedings, and enter the yeas and nays on any question,
resolve or ordinance, at the request of any member, and their
deliberations shall be public. The Mayor shall appoint to all
offices under the Corporation. All ordinances
[19 U.S. 264, 272]
or acts passed by the City Council, shall be sent
to the Mayor for his approbation, and when approved by him,
shall then be obligatory as such. But, if the said Mayor shall
not approve of such ordinance or act, he shall return the same
within five days, with his reasons in writing therefor; and if
three-fourths of both branches of the City Council, on
reconsideration thereof, approve of the same, it shall be in
force in like manner as if he had approved it, unless the City
Council, by their adjournment, prevent its return.
Sec. 7. And be it further enacted, That the
Corporation aforesaid shall have full power and authority to
pass all by-laws and ordinances to prevent and remove nuisances;
to prevent the introduction of contagious diseases within the
City; to establish night watches or patrols, and erect lamps; to
regulate the stationing, anchorage, and mooring of vessels; to
provide for licensing and regulating auctions, retailers of
liquors, hackney carriages, waggons, carts and drays, and
pawn-brokers within the city; to restrain or prohibit gambling,
and to provide for licensing, regulating, or restraining
theatrical or other public amusements within the City; to
regulate and establish markets; to erect and repair bridges; to
keep in repair all necessary streets, avenues, drains and
sewers, and to pass regulations necessary for the preservation
of the same, agreeably to the plan of the said City; to provide
for the safe keeping of the standard of weights and measures
fixed by Congress, and for the regulation of all weights and
measures used in the City; to provide
[19 U.S. 264, 273]
for the licensing and regulating the sweeping of
chimneys, and fixing the rates thereof; to establish and
regulate fire wards and fire companies; to regulate and
establish the size of bricks that are to be made and used in the
City; to sink wells, and erect and repair pumps in the streets;
to impose and appropriate fines, penalties and forfeitures for
breach of their ordinances; to lay and collect taxes; to enact
by-laws for the prevention and extinguishment of fires; and to
pass all ordinances necessary to give effect and operation to
all the powers vested in the Corporation of the City of
Washington: Provided, That the by-laws, or ordinances of the
said Corporation, shall be in no wise obligatory upon the
persons of non-residents of the said City, unless in cases of
intentional violation of the by-laws or ordinances previously
promulgated. All the fines, penalties and forfeitures imposed by
the Corporation of the City of Washington, if not exceeding
twenty dollars, shall be recovered before a single magistrate,
as small debts are by law recoverable; and if such fines,
penalties and forfeitures, exceed the sum of twenty dollars, the
same shall be recovered by action of debt, in the District Court
of Columbia, for the County of Washington, in the name of the
Corporation, and for the use of the City of Washington.
Sec. 8. And be it further enacted, That the
person or persons appointed to collect any tax imposed in virtue
of the powers granted by this Act, shall have authority to
collect the same, by distress and sale of the goods and chattels
of the person chargeable therewith; no sale shall be made,
unless ten days
[19 U.S. 264, 274] previous notice thereof be
given: no law shall be passed by the City Council subjecting
vacant or unimproved city lots, or parts of lots, to be sold for
taxes.
Sec. 9. And be it further enacted, That the
City Council shall provide for the support of the poor, infirm
and diseased of the City.
Sec. 10. Provided always, and be it further
enacted, That no tax shall be imposed by the City Council on
real property in the said City, at any higher rate than three
quarters of one per centum, on the assessment valuation of such
property.
Sec. 11. And be it further enacted, That this
Act shall be in force for two years from the passing thereof,
and from thence to the end of the next session of Congress
thereafter, and no longer.
And another act, on the 23d day of February,
1804, entitled 'An Act supplementary to an Act, entitled, an Act
to incorporate the inhabitants of the City of Washington, in the
District of Columbia.'
'Be it enacted by the Senate and House of
Representatives of the United States of America, in Congress
assembled, That the Act, entitled, an Act to incorporate the
inhabitants of the City of Washington, in the District of
Columbia, except so much of the same as is consistent with the
provisions of this Act, be, and the same is hereby continued
in force, for and during the term of fifteen years from the
end of the next session of Congress.
Sec. 2. And be it further enacted, That the
Council of the City of Washington, from and after the
[19 U.S. 264, 275]
period for which the members of the present Council
have been elected, shall consist of two chambers, each of which
shall be composed of nine members, to be chosen by distinct
ballots, according to the directions of the Act to which this is
a supplement; a majority of each chamber shall constitute a
quorum to do business. In case vacancies shall occur in the
Council, the chamber in which the same may happen, shall supply
the same by an election by ballot, from the three persons next
highest on the list to those elected at the preceding election,
and a majority of the whole number of the chamber in which such
vacancy may happen, shall be necessary to make an election.
Sec. 3. And be it further enacted, That the
Council shall have power to establish and regulate the
inspection of flour, tobacco, and salted provisions, the gauging
of casks and liquors, the storage of gunpowder, and all naval
and military stores, not the property of the United States, to
regulate the weight and quality of bread, to tax and license
hawkers and peddlers, to restrain or prohibit tippling houses,
lotteries, and all kinds of gaming, to superintend the health of
the City, to preserve the navigation of the Potomac and
Anacostia rivers adjoining the City, to erect, repair, and
regulate public wharves, and to deepen docks and basins, to
provide for the establishment and superintendence of public
schools, to license and regulate, exclusively, hackney coaches,
ordinary keepers, retailers and ferries, to provide for the
appointment of inspectors, constables, and such other officers
as may be necessary to execute the
[19 U.S. 264, 276]
laws of the Corporation, and to give such
compensation to the Mayor of the City as they may deem fit.
Sec. 4. And be it further enacted, That the
Levy Court of the county of Washington shall not hereafter
possess the power of imposing any tax on the inhabitants of the
City of Washington.'
That the Congress of the United States, on
the 4th day of May, in the year of our Lord 1812, enacted
another statute, entitled, An Act further to amend the Charter
of the City of Washington.
'Be it enacted by the Senate and House of
Representatives of the United States of America, in Congress
assembled, That from and after the first Monday in June next,
the Corporation of the City of Washington shall be composed of
a Mayor, a Board of Aldermen, and a Board of Common Council,
to be elected by ballot, as hereafter directed; the Board of
Aldermen shall consist of eight members, to be elected for two
years, two to be residents of, and chosen from, each ward, by
the qualified voters therein; and the Board of Common Council
shall consist of twelve members, to be elected for one year,
three to be residents of, and chosen from, each ward, in
manner aforesaid: and each board shall meet at the Council
Chamber on the second Monday in June next, (for the despatch
of business,) at ten o'clock in the morning, and on the same
day, and at the same hour, annually, thereafter. A majority of
each board shall be necessary to form a quorum to do business,
but a less number may adjourn from day to day. The Board of
Aldermen, immediately after they shall
[19 U.S. 264,
277] have assembled in consequence of the first
election, shall divide themselves by lot into two classes; the
seats of the first class shall be vacated at the expiration of
one year, and the seats of the second class shall be vacated
at the expiration of two years, so that one half may be chosen
every year. Each board shall appoint its own President from
among its own members, who shall preside during the sessions
of the board, and shall have a casting vote on all questions
where there is an equal division; provided such equality shall
not have been occasioned by his previous vote.
Sec. 2. And be it further enacted, That no
person shall be eligible to a seat in the Board of Aldermen or
Board of Common Council, unless he shall be more than
twenty-five years of age, a free white male citizen of the
United States, and shall have been a resident of the City of
Washington one whole year next preceding the day of the
election; and shall, at the time of his election, be a resident
of the ward for which he shall be elected, and possessed of a
freehold estate in the said City of Washington, and shall have
been assessed two months preceding the day of election. And
every free white male citizen of lawful age, who shall have
resided in the City of Washington for the space of one year next
preceding the day of election, and shall be a resident of the
ward in which he shall offer to vote, and who shall have been
assessed on the books of the Corporation, not less than two
months prior to the day of election, shall be qualified to vote
for members to serve in the said Board of Aldermen and Board of
Common [19 U.S.
264, 278] Council, and no other person whatever
shall exercise the right of suffrage at such election.
Sec. 3. And be it further enacted, That the
present Mayor of the City of Washington shall be, and continue
such, until the second Monday in June next, on which day, and on
the second Monday in June annually thereafter, the Mayor of the
said City shall be elected by ballot of the Board of Aldermen
and Board of Common Council, in joint meeting, and a majority of
the votes of all the members of both boards shall be necessary
to a choice; and if there should be an equality of votes between
two persons after the third ballot, the two houses shall
determine by lot. He shall, before he enters upon the duties of
his office, take an oath or affirmation in the presence of both
boards, 'lawfully to execute the duties of his office to the
best of his skill and judgment, without favour or partiality.'
He shall, ex officio, have, and exercise all the powers,
authority, and jurisdiction of a Justice of the Peace, for the
County of Washington, within the said county. He shall nominate,
and with the consent of a majority of the members of the Board
of Aldermen, appoint to all offices under the Corporation,
(except the commissioners of elections,) and every such officer
shall be removed from office on the concurrent remonstrance of a
majority of the two boards. He shall see that the laws of the
Corporation be duly executed, and shall report the negligence or
misconduct of any officer to the two boards. He shall appoint
proper persons to fill up all vacancies during the recess of the
Board of Aldermen, to hold such
[19 U.S. 264, 279] appointment until
the end of the then ensuing session. He shall have power to
convene the two Boards, when, in his opinion, the good of the
community may require it, and he shall lay before them, from
time to time, in writing, such alterations in the laws of the
Corporation as he shall deem necessary and proper, and shall
receive for his services annually, a just and reasonable
compensation, to be allowed and fixed by the two boards, which
shall neither be increased or diminished during the period for
which he shall have been elected. Any person shall be eligible
to the office of Mayor, who is a free white male citizen of the
United States, who shall have attained to the age of thirty
years, and who shall be a bona fide owner of a freehold estate
in the said City, and shall have been a resident in the said
City two years immediately preceding his election, and no other
person shall be eligible to the said office. In case of the
refusal of any person to accept the office of Mayor, upon his
election thereto, or of his death, resignation, inability or
removal from the City, the said two boards shall elect another
in his place, to serve the remainder of the year.
Sec. 4. And be it further enacted, That the
first election for members of the Board of Aldermen, and Board
of Common Council, shall be held on the first Monday in June
next, and on the first Monday in June annually thereafter. The
first election to be held by three commissioners to be appointed
in each ward by the Mayor of the City, and at such place in each
ward as he may direct; and all subsequent elections shall be
held by a like number
[19 U.S. 264, 280] of Commissioners,
to be appointed in each ward by the two boards, in joint
meeting, which several appointments, except the first, shall be
at least ten days previous to the day of each election. And it
shall be the duty of the Mayor for the first election, and of
the commissioners for all subsequent elections, to give at least
five days public notice of the place in each ward where such
elections are to be held. The said commissioners shall, before
they receive any ballot, severally take the following oath or
affirmation, to be administered by the Mayor of the City, or any
Justice of the Peace for the county of Washington: 'I, A. B. do
solemnly swear or affirm, (as the case may be) that I will truly
and faithfully receive, and return the votes of such persons as
are by law entitled to vote for members of the Board of
Aldermen, and Board of Common Council, in ward No. --, according
to the best of my judgment and understanding, and that I will
not, knowingly, receive or return the vote of any person who is
not legally entitled to the same, so help me God.' The polls
shall be opened at ten o'clock in the morning, and be closed at
seven o'clock in the evening, of the same day. Immediately on
closing the polls, the commissioners of each ward, or a majority
of them, shall count the ballots, and make out under their hands
and seals a correct return of the two persons for the first
election, and of the one person for all subsequent elections,
having the greatest number of legal votes, together with the
number of votes given to each, as members of the Board of
Aldermen: and of the three persons having the greatest number of
legal [19 U.S.
264, 281] votes, together with the number of votes
given to each, as Members of the Board of Common Council. And
the two persons at the first election, and the one person at all
subsequent elections, having the greatest number of legal votes
for the Board of Aldermen; and the three persons having the
greatest number of legal votes for the Board of Common Council,
shall be duly elected; and in all cases of an equality of votes,
the commissioners shall decide by lot. The said returns shall be
delivered to the Mayor of the City, on the succeeding day, who
shall cause the same to be published in some news-paper printed
in the city of Washington. A duplicate return, together with a
list of the persons who voted at such election, shall also be
made by the said commissioners, to the Register of the City, on
the day succeeding the election, who shall preserve and record
the same, and shall, within two days thereafter, notify the
several persons so returned, of their election; and each board
shall judge of the legality of the elections, returns and
qualifications of its own members, and shall supply vacancies in
its own body, by causing elections to be made to fill the same,
in the ward, and for the Board in which such vacancies shall
happen, giving at least five days notice previous thereto; and
each Board shall have full power to pass all rules necessary and
requisite to enable itself to come to a just decision in cases
of a contested election of its own members: and the several
members of each Board shall, before entering upon the duties of
their office, take the following oath or affirmation:
[19 U.S. 264, 282]
'I do swear, (or solemnly, sincerely, and truly
affirm and declare, as the case may be,) that I will faithfully
execute the office of to the best of my knowledge and ability,'
which oath or affirmation shall be administered by the Mayor, or
some Justice of the Peace, for the county of Washington.
Sec. 5. And be it further enacted, That in
addition to the powers heretofore granted to the Corporation of
the City of Washington, by an act, entitled, 'An Act to
incorporate the inhabitants of the City of Washington, in the
District of Columbia,' and an act, entitled, 'An Act,
supplementary to an act, entitled, an act to incorporate the
inhabitants of the City of Washington, in the District of
Columbia,' the said Corporation shall have power to lay taxes on
particular wards, parts, or sections of the City, for their
particular local improvements.
That after providing for all objects of a
general nature, the taxes raised on the assessable property in
each ward, shall be expended therein, and in no other; in
regulating, filling up and repairing of streets and avenues,
building of bridges, sinking of wells, erecting pumps, and
keeping them in repair; in conveying water in pumps, and in the
preservation of springs; in erecting and repairing wharves; in
providing fire engines and other apparatus for the extinction of
fires, and for other local improvements and purposes, in such
manner as the said Board of Aldermen and Board of Common Council
shall provide; but the sums raised for the support of the poor,
[19 U.S. 264, 283]
aged and infirm, shall be a charge on each ward in
proportion to its population or taxation, as the two Boards
shall decide. That whenever the proprietors of two thirds of the
inhabited houses, fronting on both sides of a street, or part of
a street, shall by petition to the two branches, express the
desire of improving the same, by laying the curbstone of the
foot pavement, and paving the gutters or carriage way thereof,
or otherwise improving said street, agreeably to its graduation,
the said Corporation shall have power to cause to be done at any
expense, not exceeding two dollars and fifty cents per front
foot, of the lots fronting on such improved street or part of a
street, and charge the same to the owners of the lots fronting
on said street, or part of a street, in due proportion; and also
on a like petition to provide for erecting lamps for lighting
any street or part of a street, and to defray the expense
thereof by a tax on the proprietors or inhabitants of such
houses, in proportion to their rental or valuation, as the two
Boards shall decide.
Sec. 6. And be it further enacted, That the
said Corporation shall have full power and authority to erect
and establish hospitals or pest houses, work houses, houses of
correction, penitentiary, and other public buildings for the use
of the City, and to lay and collect taxes for the defraying the
expenses thereof; to regulate party and other fences, and to
determine by whom the same shall be made and kept in repair; to
lay open streets, avenues, lanes and alleys, and to regulate or
prohibit all inclosures thereof, and to occupy and improve for
public purposes, by
[19 U.S. 264, 284] and with the
consent of the President of the United States, any part of the
public and open spaces or squares in said city, not interfering
with any private rights; to regulate the measurement of, and
weight, by which all articles brought into the city for sale
shall be disposed of; to provide for the appointment of
appraisers, and measurers of builders' work and materials, and
also of wood, coal, grain and lumber; to restrain and prohibit
the nightly and other disorderly meetings of slaves, free
negroes and mulattoes, and to punish such slaves by whipping,
not exceeding forty stripes, or by imprisonment not exceeding
six calendar months, for any one offence; and to punish such
free negroes and mulattoes for such offences, by fixed
penalties, not exceeding twenty dollars for any one offence; and
in case of inability of any such free negro or mulatto to pay
and satisfy and such penalty and costs thereon, to cause such
free negro or mulatto to be confined to labour for such
reasonable time, not exceeding six calendar months, for any one
offence, as may be deemed equivalent to such penalty and costs;
to cause all vagrants, idle or disorderly persons, all persons
of evil life or ill fame, and all such as have no visible means
of support, or are likely to become chargeable to the City as
paupers, or are found begging or drunk in or about the streets,
or loitering in or about tippling houses, or who can show no
reasonable cause of business or employment in the City; and all
suspicious persons, and all who have no fixed place of
residence, or cannot give a good account of themselves, all
eves-droppers and night walkers, all who
[19 U.S. 264, 285]
are guilty of open profanity, or grossly indecent
language or behaviour publicly in the streets, all public
prostitutes, and such as lead a notoriously lewd or lascivious
course of life, and all such as keep public gaming tables, or
gaming houses, to give security for their good behaviour for a
reasonable time, and to indemnify the City against any charge
for their support, and in case of their refusal or inability to
give such security, to cause them to be confined to labour for a
limited time, not exceeding one year at a time, unless such
security should be sooner given. But if they shall afterwards be
found again offending, such security may be again required, and
for want thereof, the like proceedings may again be had, from
time to time, as often as may be necessary; to prescribe the
terms and conditions upon which free negroes and mulattoes, and
others who can show no visible means of support, may reside in
the City; to cause the avenues, streets, lanes and alleys to be
kept clean, and to appoint officers for that purpose. To
authorize the drawing of lotteries for effecting any important
improvement in the City, which the ordinary funds or revenue
thereof will not accomplish. Provided, That the amount to be
raised in each year, shall not exceed the sum of ten thousand
dollars: And provided also, that the object for which the money
is intended to be raised, shall be first submitted to the
President of the United States, and shall be approved of by him.
To take care of, preserve and regulate the several burying
grounds within the City; to provide for registering of births,
deaths and marriages; to cause abstracts or minutes
[19 U.S. 264, 286]
of all transfers of real property, both freehold
and leasehold, to be lodged in the Registry of the City, at
stated periods; to authorize night watches and patroles, and the
taking up and confining by them, in the night time, of all
suspected persons; to punish by law corporally any servant or
slave guilty of a breach of any of their by-laws or ordinances,
unless the owner or holder of such servant or slave, shall pay
the fine annexed to the offence; and to pass all laws which
shall be deemed necessary and proper for carrying into execution
the foregoing powers, and all other powers vested in the
Corporation, or any of its officers, either by this act, or any
former act.
Sec. 7. And be it further enacted, That the
Marshal of the District of Columbia shall receive, and safely
keep, within the jail for Washington county, at the expense of
the City, all persons committed thereto under the sixth section
of this act, until other arrangements be made by the Corporation
for the confinement of offenders, within the provisions of the
said section; and in all cases where suit shall be brought
before a Justice of the Peace, for the recovery of any fine or
penalty arising or incurred for a breach of any by-law or
ordinance of the Corporation, upon a return of 'nulla bona' to
any fieri facias issued against the property of the defendant or
defendants, it shall be the duty of the Clerk of the Circuit
Court for the County of Washington, when required, to issue a
writ of capias ad satisfaciendum against every such defendant,
returnable to the next Circuit Court for the County of
Washington thereafter,
[19 U.S. 264, 287] and which shall be
proceeded on as in other writs of the like kind.
Sec. 8. And be it further enacted, That
unimproved lots in the City of Washington, on which two years
taxes remain due and unpaid, or so much thereof as may be
necessary to pay such taxes, may be sold at public sale for such
taxes due thereon: Provided, that public notice be given of the
time and place of sale, by advertising in some newspaper printed
in the City of Washington, at least six months, where the
property belongs to persons residing out of the United States;
three months where the property belongs to persons residing in
the United States, but without the limits of the District of
Columbia; and six weeks where the property belongs to persons
residing within the District of Columbia or City of Washington;
in which notice shall be stated the number of the lot or lots,
the number of the square or squares, the name of the person or
persons to whom the same may have been assessed, and also the
amount of taxes due thereon: And provided, also, that the
purchaser shall not be obliged to pay at the time of such sale,
more than the taxes due, and the expenses of sale; and that, if
within two years from the day of such sale, the proprietor or
proprietors of such lot or lots, or his or their heirs,
representatives, or agents, shall repay to such purchaser the
moneys paid for the taxes and expenses as aforesaid, together
with ten per centum per annum as interest thereon, or make a
tender of the same, he shall be reinstated in his original right
and title; but if no such payment or tender be made
[19 U.S. 264, 288]
within two years next after the said sale, then the
purchaser shall pay the balance of the purchase money of such
lot or lots into the City Treasury, where it shall remain
subject to the order of the original proprietor or proprietors,
his or their heirs, or legal representatives; and the purchaser
shall receive a title in fee simple to the said lot or lots,
under the hand of the Mayor, and seal of the Corporation, which
shall be deemed good and valid in law and equity.
Sec. 9. And be it further enacted, That the
said Corporation shall, in future, be named and styled, 'The
Mayor, Aldermen, and Common Council of the City of Washington;'
and that if there shall have been a non- election or informality
of a City Council, on the first Monday in June last, it shall
not be taken, construed, or adjudged, in any manner, to have
operated as a dissolution of the said Corporation, or to affect
any of its rights, privileges, or laws passed previous to the
second Monday in June last, but the same are hereby declared to
exist in full force.
Sec. 10. And be it further enacted, That the
Corporation shall, from time to time, cause the several wards of
the City to be so located, as to give, as nearly as may be, an
equal number of votes to each ward; and it shall be the duty of
the Register of the City, or such officer as the Corporation may
hereafter appoint, to furnish the commissioners of election for
each ward, on the first Monday in June, annually, previous to
the opening of the polls, a list of the persons having a right
to vote, agreeably to the provisions of the second section of
this act. [19 U.S.
264, 289] Sec. 11. And be it further enacted, That
so much of any former act as shall be repugnant to the
provisions of this act, be, and the same is hereby repealed.
Which statutes are still in force and
unrepealed. That the lottery, denominated the National Lottery,
before mentioned, the ticket of which was sold by the defendants
as aforesaid, was duly created by the said Corporation of
Washington, and the drawing thereof, and the sale of the said
ticket, was duly authorized by the said Corporation, for the
objects and purposes, and in the mode directed by the said
statute of the Congress of the United States. If, upon this
case, the Court shall be of opinion, that the acts of Congress
before mentioned were valid, and on the true construction of
these acts, the lottery ticket sold by the said defendants as
aforesaid, might lawfully be sold within the State of Virginia,
notwithstanding the act or statute of the General Assembly of
Virginia prohibiting such sale, then judgment to be entered for
the defendants. But if the Court should be of opinion, that the
statute or act of the General Assembly of the State of Virginia,
prohibiting such sale, is valid, notwithstanding the said acts
of Congress, then judgment to be entered, that the defendants
are guilty, and that the Commonwealth recover against them one
hundred dollars and costs.
TAYLOR, for defendants.
And thereupon the matters of law arising upon
the said case agreed being argued, it seems to the Court here,
that the law is for the Commonwealth, and
[19 U.S. 264, 290]
that the defendants are guilty in manner and form,
as in the information against them is alleged, and they do
assess their fine to one hundred dollars besides the costs.
Therefore, it is considered by the Court, that the Commonwealth
recover against the said defendants, to the use of the President
and Directors of the Literary Fund, one hundred dollars, the
fine by the Court aforesaid, in manner aforesaid assessed, and
the costs of this prosecution; and the said defendants may be
taken, &c.
From which judgment the defendants, by their
counsel, prayed an appeal to the next Superior Court of law of
Norfolk county, which was refused by the Court, inasmuch as
cases of this sort are not subject to revision by any other
Court of the Commonwealth. Commonwealth's costs, $31 50 cents.
February 18th.
Mr. Barbour, for the defendant in error,
moved to dismiss the writ of error in this case, and stated
three grounds upon which he should insist that the Court had not
jurisdiction: (1.) Because of the subject matter of the
controversy, without reference to the parties. (2.) That
considering the character of one of the parties, if the Court
could have jurisdiction at all, it must be original, and not
appellate. (3.) And, finally, that it can take neither original
nor appellate jurisdiction.
1. As to the first point: it is conceded by
all, that the Federal Government is one of limited powers. This
distinguishing trait equally characterises all its departments;
it is with the judicial department only, that the present
inquiry is connected. It is in the
[19 U.S. 264, 291]
2d section of the 3d article of the constitution,
that we find an enumeration of the objects to which the judicial
power of the Union extends. That part of it which relates to the
present discussion, declares, that 'the judicial power shall
extend to all cases in law and equity, arising under this
constitution, the laws of the United States, and treaties made,
or which shall be made, under their authority.' It is not
pretended, that any treaty has any sort of relation to the
present case: before, then, this Court can take jurisdiction, it
must be shown, that this is a case arising either under the
constitution, or a law of the United States. I shall endeavor to
prove, that it does not belong to either description. These two
classes of cases are obviously put in contradistinction to each
other; and there will be no difficulty in showing to the Court
the difference in their character. The constitution contains two
different kinds of provisions; the one, (if I may use the
expression,) self executed, or capable of self execution; the
other, only executory, and requiring legislative enactment to
give them operation; thus, the 2d section of the 4th article,
which declares, that 'the citizens of each State shall be
entitled to all privileges and immunities of citizens in the
several States;' the 10th section of the 1st article, which
prohibits any State from making any thing but gold and silver
coin, a tender in payment of debts; from passing any law
'impairing the obligation of contracts;' and the prohibition to
Congress, in the 9th section, and to the States in the 10th
section of the same article, to pass 'any bill of attainder, or
ex post facto law.'
[19 U.S. 264, 292] are all examples
of the self-executed provisions of the constitution; by which, I
mean to say, that the constitution, in these instances, is, per
se, operative, without the aid of legislation. On the contrary,
the various provisions of the 8th section of the same article,
such, for example, 'as the power to establish an uniform system
of naturalization, and uniform laws on the subject of
bankruptcy,' are executory only; that is, without an act of
legislation, they have no operative effect.
The cases, then, arising under the
constitution, are those which arise under its self-executed
provisions; and those arising under the laws of the United
States, are those which occur under some law, passed in virtue
of the executory provisions of the constitution. If this idea be
correct, then this is not a case arising under the constitution;
and it does not correspond with the other part of the
description, that is, it does not arise under a law of the
United States. In the first place, this Court, in the case of
Hepburn v. Elzy,1 decided, that the District of Columbia was not
a State, within the meaning of the constitution, and that,
therefore, a citizen of that District could not sustain an
action against a citizen of Virginia, in the Circuit Court of
that State. Now, it would sound curiously, to call a law passed
for a District, not itself exalted to the dignity of a State, a
law of the United States. It would seem more strange to call a
law passed by the Corporation of Washington, for the local
purposes of Washington,
[19 U.S. 264, 293] a law of the
United States, and yet such is the character of the law under
which this case arises; for the act of Congress did not itself
create the lottery, but authorized the Corporation of Washington
to do it.
As to this sub-legislation, legislative power
is a trust which cannot be transferred. Delegatus non potest
delegare. If this can be exercised by substitution, other
legislative powers can also. I would than inquire, whether in
execution of the power 'to lay and collect taxes,' 'to declare
war,' &c. Congress could authorize the State legislatures to do
these things. It is a misnomer, to call by the name of a law of
the United States, any act passed for the District of Columbia,
though enacted by Congress, without calling in the aid of a
Corporation. It has been well observed by a former member of
this Court, that every citizen in the United States, sustains a
two-fold political character, one in relation to the Federal,
the other in relation to the State Governments. To put the
proposition in other words, it may be stated thus: a two-fold
system of legislation pervades the United States; the one of
which I will call Federal, the other municipal. The first
belongs by the constitution of the United States to Congress,
and consists of the powers of war, peace, commerce, negotiation,
and those general powers, which make up our external relations,
together with a few powers of an internal kind, which require
uniformity in their operation: the second belongs to the States,
and consists of whatever is not included in the first, embracing
particularly every thing connected
[19 U.S. 264, 294]
with the internal police and economy of the several
States. If this system knew no exception in its operation, the
present question would never have arisen; for no man would ever
dream of calling a law of Virginia or Maryland, a law of the
United States. But there are certain portions of territory
within the United States, of which the District of Columbia is
one, in which there is no State government to act: in relation
to these, congress, by the constitution, exercises not only
federal, but municipal legislation also: and as the whole
difficulty in this case has arisen out of this blending together
of two different kinds of legislative power; so, that difficulty
will be removed by a careful attention to the difference in the
nature and character of these powers, and the extent of their
operation respectively. Whenever a question arises, whether a
law passed by Congress is a law of the United States, we have
only to inquire whether it is constitutionally passed in
execution of any of the federal powers: if it be, it is properly
a law of the United States; since the federal powers are
co-extensive with the limits of the United States; and this,
though the particular act, may be confined to certain persons,
places or things. Thus, a law establishing federal Courts in a
particular State, is a law of the United States; for though its
immediate operation is upon one State, yet it is in execution of
a power co-extensive with the United States; but if a law,
though passed by Congress, be passed in execution of a municipal
power, as a law to pave the streets of Washington, then it
cannot, in any propriety of language,
[19 U.S. 264, 295]
be called a law of the United States. It is an
axiom in politics, that legislative power has no operation,
beyond the territorial limits under its authority. I do not now
speak of the doctrine of the lex loci; of that comity, by which
the different States of the civilized world, receive the laws of
others, as governing in certain cases of contract, or questions
of a civil nature. I speak of the intrinsic energy of the
legislative power, its operation per se.
If this principle be true, is there any thing
in this case to impair its force? It is admitted on all hands,
that this law was passed in virtue of the power given by the
constitution to exercise exclusive legislation, over such
district, not exceeding ten miles square, as should become the
seat of the federal government. If we look into the history of
the country, the debates of the Conventions, or the declarations
of the Federalist, we shall alike arrive at the conclusion, that
his power was given in consequence of an incident which had
occurred in Philadelphia, and the necessity which thence seemed
to result, of Congress deliberating uninterrupted and unawed.
The motive, then, for granting this power, would not lead to an
extension of it; still less will the terms; for, they are as
restrictive as could by possibility be used. The district shall
not exceed ten miles square, and as was argued in the Convention
of Virginia, may not exceed one mile: so far from the principle
being impaired then, it is greatly strengthened by the language
of this provision. See to what consequences we should be led by
the doctrine, that because this lottery was authorized by
Congress, therefore, the tickets
[19 U.S. 264, 296] might be sold in
any State, against its laws, with impunity. The same charter
authorizes the Corporation of Washington to grant licenses to
auctioneers and retailers of spirituous liquors: now, upon the
doctrines contended for, what will hinder the Corporation from
granting licenses to persons, to vend goods and liquors in
Virginia, by a Corporation license, contrary to the laws of
Virginia? and thus, greatly impair the revenue which the State
raises from these licenses; as it is said, that a saleable
quality is of the essence, and constitutes the only value of a
lottery ticket, and that therefore it is not competent to any
State to abridge the value of that, which was rightfully created
by the Legislature of the Union? Would not the same reasoning
justify the holders of these Corporation licenses, equally to
trample upon the laws of the State; lest, for want of a market,
their merchandise and liquors might not be sold, and thus the
value of their license diminished. These are cases, in which the
revenue of a State would be impaired, as well as the laws for
the protection of its morals. Such is the law of Virginia,
prohibiting the use of billiard tables. If Congress should
authorize licenses to be issued, by the Corporation of
Washington, for using them, and if this law have an operation
beyond the territorial limits of the District, then has Virginia
lost all power of regulating the conduct of her own citizens.
The solution of the whole difficulty lies in
this: That though the laws of Congress, when passed in execution
of a federal power, extend over the Union, and being laws of the
United States, are a part of
[19 U.S. 264, 297] the supreme law of
the land: yet, a law passed like the one in question, in
execution of the power of municipal legislation, extends only so
far, as the power under which it was passed-that is, to the
boundaries of the District; that, therefore, it is no law of the
United States, and consequently not a part of the supreme law of
the land. Nor is there any thing novel in the idea of two powers
residing in the same body, at the same time, and over the same
subject, of a different kind. The idea is familiarly illustrated
by cases of ordinary occurrence in the judiciary. For the same
trespass, an action, or indictment, may be brought before the
same Court, and a different judgment pronounced, as one or the
other mode is pursued. So the same Court has frequently common
law and chancery jurisdiction, and pronounces a different
judgment in relation to the same subject, as they are exercising
the one or the other jurisdiction.
Let us look further at the consequences of
calling the laws of the District, laws of the United States. By
the sixth article of the Constitution, laws of the United States
made in pursuance of the Constitution, are declared a part of
the supreme law of the land, and the judges in every State shall
be bound thereby, any thing in the laws of their State to the
contrary notwithstanding. If, then, laws of the District be laws
of the United States, within the meaning of the constitution, it
will follow, that they may be carried to the extent of an
interference with every department of State legislation; and
whenever they shall so interfere, they are to be considered
[19 U.S. 264, 298]
of paramount authority. Suppose the law of Virginia
to declare a deed for land void against a purchaser for valuable
consideration, without notice, unless recorded upon the party's
acknowledgment, or the evidence of three witnesses. Suppose a
law of the District to dispense with record, or to be satisfied
with two witnesses. If one citizen should convey to another
citizen of the District, land lying in Virginia, in conformity
with the District law, upon the principle now contended for, the
party must recover, in the teeth of the law of Virginia. It will
be admitted, that a law passed, like the one in question, by one
State, might be repelled by another: it will, also, be admitted,
that if Congress had, (as some think they have a right to do,
but in which I do not concur,) established here a local
legislature, which had passed the law in question, its effects
might have been repelled from the States by penal sanctions.
But if it be said, that as the dominion over
the District flows from the same source with every other power
possessed by the government of the Union, as it is executed by
the same Congress, as it was created for the common good, and
for universal purposes, that it must be of equal obligation
throughout the Union in its effects, with any power known to the
constitution; from whence it is inferred, that the law in
question can encounter no geographical impediments, but that its
march is through the Union: The answer is, that the federal
powers of Congress, in their execution, encounter no
geographical impediments, because no limits, short of the
boundaries [19
U.S. 264, 299] of the Union, are prescribed to
them; but the legislative power over the District, in its
execution, does encounter geographical impediments, because the
limits of the District are distinctly prescribed, as the bound
of its extent, and as an insurmountable barrier to its further
march.
It may be said, too, that this case bears no
resemblance to that of one State repelling, by penal sanctions,
the effects of the laws of another; because it is said, one
State is no party to the laws of another; whereas here, the law
is its own law, as being represented in Congress, and thereby
contributing to its passage, and capable in part of effecting
its repeal. It will be seen at once, that this principle would
prove too much, and, therefore, that it cannot be a sound one;
for if the States are to acquiesce in this instance, because
they are represented in Congress, and have, therefore, an agency
in making and repealing laws, the same reasoning would justify
Congress in legislating beyond their delegated powers; for
example, prescribing a general course of descents. It is
obvious, that they might contribute as much to the passage and
repeal of this law, as any other, and yet this ground will not
be attempted to be sustained. If, then, they are not bound,
because of their representation in Congress, to acquiesce in the
assumption of a power not granted; they are surely as little
bound, upon that ground, to permit a power, confined to ten
miles square, to extend its operation with the limits of the
United States.
If, then, the law in question is not a law of
the United States, in the sense of that expression in the
[19 U.S. 264, 300]
constitution, this is not a case arising under the
law of the United States, and, consequently, the jurisdiction of
this Court fails as to the subject matter.
2. My second proposition is, that if this
Court could entertain jurisdiction of the case at all, it must
be original, and not appellate jurisdiction. This has reference
to the character of one of the parties in the present contest.
The constitution of the United States, after having carved out
the whole mass of jurisdiction which it gives to the federal
judiciary, and enumerated its several objects, proceeds in the
second clause of the second section of the third article to
distribute that jurisdiction amongst the several Courts. To the
Supreme Court, it gives original jurisdiction in two classes of
cases; to wit, 'in all cases affecting ambassadors, other public
ministers and consuls, and those in which a State shall be a
party;' in all the other cases to which the judicial power of
the United States extends, it gives the Supreme Court appellate
jurisdiction. This Court, in the case of Marbury v. Madison,2
thus expresses itself in relation to this clause of the
constitution: 'If Congress remains at liberty to give this Court
appellate jurisdiction, where the constitution has declared
their jurisdiction shall be original; and original jurisdiction,
where the constitution has declared their jurisdiction shall be
appellate, the distribution of jurisdiction made in the
constitution, is form without substance.' Again, the Court says,
'the plain import of the words seems to be, that in one
[19 U.S. 264, 301]
class of cases, its jurisdiction is original, not
appellate; in the other, it is appellate, not original;' and
accordingly, in that case, which was an application for a
mandamus to the then Secretary of State, to issue commissions to
certain Justices of the Peace in the District of Columbia, the
Court, after distinctly admitting that the parties had a right,
yet refused to grant the mandamus, upon the ground, that it
would be an exercise of original jurisdiction; that not being
one of the cases, in which that kind of jurisdiction was given
them by the constitution, it was not competent to Congress to
give it.
It appears, then, from the constitution, that
where a State is a party, this Court has original jurisdiction:
it appears from the opinion of this Court just quoted, that it
excludes appellate jurisdiction. But a State is a party to the
present case; it is a judgment for a penalty inflicted for the
violation of a public law; the prosecution commenced by a
presentment of a grand jury, carried on by an information filed
by the attorney for the Commonwealth, and the judgment rendered
in the name of the Commonwealth; and the case has come before
this Court by a writ of error, which is surely appellate
jurisdiction. If, then, when a State is a party, this Court have
original jurisdiction; if the grant of original, exclude
appellate jurisdiction; if, as in this case, a State be a party;
and if the jurisdiction now claimed is clearly appellate, then
it follows, as an inevitable conclusion, that in this case this
Court cannot take jurisdiction in this way, if they could take
it at all. [19
U.S. 264, 302] 3. My last proposition is, that
considering the nature of this case, and that a State is a
party, the judicial power of the United States does not extend
to the case, and that, therefore, this Court cannot take
jurisdiction at all. This is a criminal case, both upon
principle and authority. A crime is defined to be, an act
committed or omitted in violation of some public law commanding
or forbidding it. The offence in this case is one of commission.
A prosecution in the name of a State, by information, as this
has been shown to be, to inflict a punishment upon this offence,
is, therefore, a prosecution for a crime; in other words, a
criminal case. Upon authority, too, penal actions are called in
the books criminal actions. But if it be a criminal case, it is
conceded, that the Courts of the United States cannot take
original jurisdiction over it- inasmuch as that right fully
belongs to the Courts of the State whose laws have been
violated; and that jurisdiction having once rightfully attached,
they have a right to proceed to judgment; but if they have no
original jurisdiction, I have shown, in the discussion of the
second point, that they cannot have appellate jurisdiction, and
it consequently follows, that they cannot have jurisdiction at
all.
I will now endeavor to show, from general
principles, in connection with the fair construction of the
third article of the constitution, that without reference to the
particular character of the case, whether as criminal of civil,
the judicial power of the United States does not extend to it,
on account of the character of one of the parties; in other
words, [19 U.S.
264, 303] because one of the parties is a State. It
is an axiom in politics, that a sovereign and independent State
is not liable to the suit of any individual, nor amenable to any
judicial power, without its own consent. All the States of this
Union were sovereign and independent, before they became parties
to the federal compact: hence, I infer, that the judicial power
of the United States would not have extended to the States, if
it had not been so extended to them, eo nomine, upon the face of
the constitution. But if it can reach them only because it is
expressly given in relation to them, then it can only reach them
to the extent to which it is given. By the original text of the
constitution, the judicial power of the Union was extended to
the following cases, in which States were parties; to wit, to
controversies between two or more States, between a State and
citizens of another State, and between a State and foreign
States, citizens, and subjects. The case of a contest between a
State and one of its own citizens, is not included in this
enumeration; and, consequently, if the principle which I have
advanced be a sound one, the judicial power of the United States
does not extend to it; but the uniform decision of this Court
has been, that if a party claim to be a citizen of another
State, it must appear upon the record. As that does not appear
upon the record in this case, I am authorized to say, that the
plaintiffs in error are citizens of Virginia: then it is the
simple case of a contest between a State and one of its own
citizens, which does not fall within the pale of federal
judicial power.
[19 U.S. 264, 304] It is said, however, that the
judicial power is declared by the Constitution, to extend to all
cases in law or equity, arising under this Constitution, the
laws of the United States, and treaties made, &c.; and that by
reason of the expression 'all cases,' where the question is once
mentioned in the Constitution, the federal judicial power
attaches upon the case on account of the subject matter, without
reference to the parties. Notwithstanding the latitude of this
expression, it will be seen upon inquiry, that in the nature of
things, there must be some limitation imposed upon this
provision, which the gentlemen seem to consider unlimited. In
the first place there are questions arising, or which might
arise under the Constitution, which the forms of the
Constitution do not submit to judicial cognizance. Suppose, for
example, a State were to grant a title of nobility, how could
that be brought before a judicial tribunal, so as to render any
effectual judgment? If it were an office of profit, it might,
perhaps, be said, an information in the nature of a quo warranto
would lie; but I ask whether that would lie, in the case which I
have stated, or whether an effectual judgment could be rendered?
It is a title, a name which would still remain, after your
judgment had denounced it as unconstitutional. Where a quo
warranto lies, in relation to an office, the judgment of ouster
is followed by practical and effectual consequences. Again;
suppose a State should keep troops or ships of war, in time of
peace, or should engage in war, when neither actually invaded,
nor in imminent danger. Here would be alarming violations of the
[19 U.S. 264, 305]
constitution, assailing too directly the federal
powers; it would be a most serious question arising under the
constitution, and yet clearly such a case as this does not
belong to the judicial tribunal.
If it be said that the opposite counsel mean
all cases in their nature of a judicial character, still I shall
be able to show, that broad as this expression is, it does not
reach all these. It will be remembered by the Court, that the
words are, not all questions, but all cases. Although,
therefore, a question may arise, yet before there can be a case,
there must be parties over whom the Court can take jurisdiction;
and if there be no such parties, the Court cannot act upon the
subject, though the question may arise, though it may be clearly
of a judicial nature, and though there may be the clearest
violation of the constitution. By the 11th article of the
amendments to the constitution, it is declared, that 'the
judicial power of the United States shall not be construed to
extend to any suit in law or equity, commenced or prosecuted
against one of the United States, by citizens of another State,
or by citizens or subjects of any foreign State.' Now, suppose
that a State should, without the consent of Congress, lay a duty
on tonnage, which should be paid by a citizen of another State;
suppose, too, that a State should cause the lands of a British
subject to be escheated, contrary to the ninth article of the
treaty of 1794, upon the ground of alienage; or debts due to a
British subject from individuals of the United States, or money
or shares belonging to him, in the public funds or banks, to be
confiscated, contrary to the
[19 U.S. 264, 306] tenth article of
the same treaty, and deposit the proceeds in the public chest:
It will be agreed on all hands, that the first is a palpable
violation of the federal constitution, and the two others as
palpable violations of the solemn stipulations of a treaty; and
that, therefore, the first presents a question arising under the
constitution, and the others one arising under a treaty; yet,
will any man contend that the citizen of another State, in the
first case, or the subject of the foreign State, in the others,
could bring the offending State before the federal Court, for
the purpose of redressing their several wrongs? It will not be
pretended; and why not? for the reason which I have given, that
one of the parties in the cases supposed being a State, and the
amendment referred to having declared, that a State should not
be amenable to the suit of a citizen of another State, or the
subject of a foreign State; although the questions have arisen,
the cases have not; that is, the Court cannot take judicial
cognizance of the questions, because it cannot bring one of the
parties interested in litigating it before them. Let us now
suppose, that a State should collect a tonnage duty from one of
its own citizens; could that citizen bring his own State before
a federal Court? The words of the 11th amendment apply to the
case of a citizen of another State, or the citizen or subject of
a foreign State; but the reason is, that it was only to them
that the privilege of being parties in a controversy with a
State, had been extended in the text of the constitution. It was
only from them, therefore, that it was necessary to take away
that privilege;
[19 U.S. 264, 307] but, when from those to whom a
privilege had been given, that privilege had been taken away,
they surely then occupy the same ground, with those to whom it
had never been given. When I speak here of the right of these
persons under the constitution of suing a State, I speak of the
interpretation of this Court, particularly in the case of
Chisholm's ex'rs. v. Georgia, in which the Court decided, that a
State might be made a party defendant. It was that decision
which produced the 11th amendment. If I am right in the idea,
that since that amendment, no matter what the character of the
question, this Court could not take jurisdiction in favour of
the citizen of another State, or subject of a foreign State,
against a State as defendant, it is equally true, that without
the aid of that amendment, it never could take jurisdiction in
favour of a citizen against his own State; because that is not
one of the cases, in which the federal judicial power extends to
States, and because in this case, as in the others, although a
question has arisen under the constitution, &c. a case has not
arisen, inasmuch as you cannot bring one of the parties before
you. That the constitution never contemplated giving
jurisdiction to the federal Courts in cases between a State and
its own citizens, will appear manifestly, from the only reason
assigned for giving it in favour of the citizens of other
States, or foreign citizens. That reason was an insufficient
one, even for the purpose for which it was assigned; it being,
that as against foreigners and the citizens of other States,
State Courts might not be impartial where their States were
parties: but such as it is, it
[19 U.S. 264, 308] never could apply
as between a State and its own citizens, whom they were under
every moral and political obligation to protect, and towards
whom, therefore, there could be no apprehension of a want of
impartiality.
Upon a full view of this aspect of the
subject, the fair construction of the constitution will be found
to be this-that in carving out the general mass of jurisdiction,
it had reference only to the natural and habitual parties to
controversies, who are either natural persons, or Corporations,
short of political societies, not to States; that in relation to
these, they could not have been made parties at all, but by
express provision, and that, therefore, the extent to which they
can be so made, is limited by the extent of that provision. It
will be conceded, that the United States cannot be sued: and
why? Because it is incompatible with their sovereignty. The
States, before the adoption of the federal constitution, were
also sovereign; and the same principle applies, unless it can be
shown that they have surrendered this attribute of sovereignty;
which I have endeavored to show they have not.
Upon my construction, there is consistency
throughout the constitution. According to it, a State can never
be subjected, at the suit of any individual, to any judicial
tribunal, without its own consent; for it can never be made a
party defendant in any case, or by any party, except in the
cases between it, and another State, or a foreign State. If it
be a party plaintiff, I have already endeavored to prove that
this [19 U.S. 264,
309] Court could never take appellate, but only
original jurisdiction, and that therefore as between a State and
any individual, that State never could be placed in the attitude
of a defendant. This idea is further sustained by reference to
the history of the country. From that we learn, that the great
and radical defect in the first confederacy was, that its powers
operated upon political societies or States, not upon
individuals. The characteristic difference between that and the
present government is, that the latter operates upon the
citizens. Take, for example, the power of taxation, which
addresses itself directly to the people of the United States in
the shape of an individual demand-instead of a requisition upon
the States, for their respective quotas.
It has been said, that if this doctrine
prevail, the federal government will be prostrated at the feet
of the States, and that the various limitations and prohibitions
imposed upon the States by the constitution, will be a dead
letter, upon the face of that instrument, for the want of some
power to enforce them. Let it be remembered that the several
State legislatures and judiciaries, are all bound by the solemn
obligation of an oath, to support the federal constitution; that
to suppose a State legislature capable of wilfully legislating
in violation of that constitution, if it is to suppose that it
is so lost to the moral sense as to be guilty of perjury; a
supposition which, thank God! the character of your people
forbids us to make, nor can it be realized, until we shall have
reached a maturity of corruption, from which I trust we are
separated by a long tract of future
[19 U.S. 264, 310]
time. But if the legislatures could be supposed to
be so blind to the sacred dictates of conscience and of duty, as
to pass such a law, we have another safeguard in the character
of the State judiciaries. Before effect could be given to it, it
must be supposed that the sanctity of the judicial ermine was
also polluted. To him, who can for a moment entertain this
unjust and injurious apprehension, I have nothing to say, but to
ask him to look at the talents, the virtues, and integrity,
which adorn and illustrate the benches of our State Courts; and
I will add, that according to the doctrine maintained by this
Court, in the case of Hunter v. Martin, 3 the judgments of the
State Courts, in questions arising under the constitution,
between individuals, would be subject to the appellate
jurisdiction of this Court.
4 But if the States are under limitations by the
constitution, so also is the federal government. If the State
legislatures may be supposed possibly capable of violating that
instrument, and the State judiciaries disposed to sustain
[19 U.S. 264, 311]
them in that violation, it may as well be supposed,
that the federal legislature may be thus disposed, and the
federal judiciary prepared to sustain them.
Whenever the States shall be determined to
destroy the federal government, they will not find it necessary
to act, and to act in violation of the constitution. They can
quietly and effectually accomplish the purpose by not acting.
Upon the State legislatures it depends to appoint the Senators
and Presidential electors, or to provide for their election. Let
them merely not act in these particulars; the executive
department, and part of the legislative, ceases to exist, and
the federal government thus perishes by a sin of omission, not
of commission. But I will endeavor in another way to show, that
whenever the States shall have reached that point, either of
corruption, or hostility, to the federal government, which they
must arrive at before any of the extreme supposed violations of
the constitution could occur, the jurisdiction now claimed for
this Court would be utterly inadequate as a remedy. Let us
suppose one of the most glaring violations of the constitution;
a bill of attainder of ex post facto law, for example, passed by
a State; and that the State judiciary proceeds to conviction of
the party prosecuted. Let us suppose, that this Court, claiming
an appellate jurisdiction, forbids the execution of the party;
but the State Court orders its judgment to be executed, and it
is executed, by putting to death the prisoner. His life cannot
be recalled: that is beyond the reach of human power; can you
prosecute the judges or the officer for murder? It will not be
contended [19 U.S.
264, 312] Of what avail, then, the jurisdiction
contended for, even for the purpose for which it is claimed? I
answer, of none at all.
Mr. Smyth stated, that he should support the
motion to dismiss the writ of error granted in this case, for
two causes: (1.) Because the constitution gives no jurisdiction
to the Court in the case. (2.) Because the judiciary act gives
no jurisdiction to the Court in this case.
1. It is a question undecided, whether the
appellate jurisdiction of this Court, as declared by the
constitution, does or does not extend to this case. If it was in
all respects similar to the case of Hunter v. Martin,5 adjudged
in this Court, I should contend, that the constitutional
question of jurisdiction should not be regarded as settled. In
that case, the counsel conceded the constitutional question, and
no argument has been offered to this Court in support of the
jurisdiction of the State judiciary. One of the learned Judges6
of this Court said, in that case, when speaking of the claim of
power in this Court to exercise appellate jurisdiction over the
State tribunals, 'this is a momentous question, and one on which
I shall reserve myself uncommitted, for each particular case as
it shall occur.' And the Court said, that 'in several cases,
which have been formerly adjudged in this Court, the same point
was argued by counsel, and expressly overruled.' But the case
now before the Court, is very different from that of
[19 U.S. 264, 313]
Martin v. Hunter. This is a writ of error to revise
a judgment given in a criminal prosecution, and in a case
wherein a State was a party.
The government of the United States being one
of enumerated powers, it is not a sufficient justification of
the authority claimed, to say that there is nothing in the
constitution that prohibits the federal judiciary to take
cognizance, by way of appeal, of cases decided in the State
Courts. All the powers not granted are retained by the States;
judicial power is granted; but it is federal judicial power that
is granted, and not State judicial power. This grant neither
impairs the authority of the State Courts in suits remaining
within their jurisdiction, nor makes them inferior Courts of the
United States. The government of the United States operates
directly upon the people, and not at all upon the State
governments, or the several branches thereof. The State
governments are not subject to this government. The people are
subject to both governments. This government is in no respect
federal in its operation, although it is, in some respects,
federal in its organization. Power has, indeed, been vested, by
the constitution, in the State legislatures, to pass certain
laws necessary to organize and continue the existence of the
general government, and this power Congress may in part assume.
They may prescribe the time, place, and manner, of holding
elections of representatives; the time and manner of choosing
Senators by the State legislatures; and the time of choosing
electors of a President. This power is expressly given by
[19 U.S. 264, 314]
the constitution; it was necessary Congress should
possess it, for self- preservation; and, even in these cases,
they have no power to prescribe to the State legislature a
legislative act. This government cannot prescribe an executive
act to the executive of a State, a legislative act to the
legislature of a State, or (as I contend) a judicial act to the
judiciary of a State.
If the constitution does not confer on the
judiciary of the United States the appellate jurisdiction
claimed, it is not enough that the act of Congress may purport
to confer it. The framers of the judiciary act manifested a
distrust of their authority; they seem to have foreseen that the
State Courts would refuse to give judgment according to the
opinions of the Supreme Court. The case decided in the State
Court was not a case in law arising under the laws of the United
States. It was a prosecution under a law of the State. Should a
mandate issue in this case, and obedience be refused, this Court
will give judgment on a prosecution for violating State laws. If
the case decided in the State Court be regarded as a case in
which a State was a party, the Supreme Court has, by the
constitution, original, and not appellate jurisdiction. The
appellate jurisdiction of the Supreme Court is only conferred in
cases other than those whereof the Supreme Court has original
jurisdiction. Who has original jurisdiction of those other
cases? The inferior federal Courts. Some of those other cases
are those of admiralty and maritime jurisdiction, of which,
certainly, it was not intended
[19 U.S. 264, 315] that the original
jurisdiction should be in the State Courts.
If this writ of error be considered to be a
suit in law, this Court has no jurisdiction: for it is
prosecuted against a State; and, by the 11th amendment to the
constitution, no suit in law can be prosecuted by foreigners or
citizens of another State against one of the United States. The
amendment prohibits such suits commenced or prosecuted against a
State. This seems expressly to extend to this writ of error,
which, although not a suit in law commenced against a State, is
a suit in law prosecuted against a State. This amendment,
denying to foreigners and citizens of other States the right to
prosecute a suit against a State, and being silent as to
citizens of the same State, affords a proof that the federal
Courts never had jurisdiction of a suit between a citizen and
the State whereof he is a citizen: for it cannot be presumed,
that a right to prosecute a suit against a State would be taken
from a foreigner or citizen of another State, and left to
citizens of the same State. A release of all suits is a release
of a writ of error;7 and, consequently, a writ of error is 'a
suit in law,' and cannot be prosecuted against a State.
The appellate jurisdiction conferred by the
constitution on the Supreme Court, is merely authority to revise
the decisions of inferior Courts of the United States. Where the
Supreme Court have not original jurisdiction, they have, by the
constitution, appellate jurisdiction as to law and fact. Could
it have [19 U.S.
264, 316] been intended to confer a power to
re-examine decisions in the State Courts; to try again the facts
tried in those Courts, and this even in criminal prosecutions?
Surely not. Appellate jurisdiction signifies judicial power over
the decisions of the inferior tribunals of the same sovereignty.
Congress have power to 'constitute' such tribunals; and it is
made their duty to 'ordain and establish' such. The framers of
the constitution intended to create a new judiciary, to exercise
the judicial power of a new government, unconnected with the
judiciaries of the several States. Congress is not authorized to
make the Supreme Court, or any other Court of a State, an
inferior Court. They do not 'constitute' such a Court; they do
not 'ordain and establish it.' The judges cannot be impeached
before the Senate of the United States; they receive no
compensation for their services from the United States; and,
consequently, cannot be required to render any services to the
United States. The inferior Courts, spoken of in the
constitution, are manifestly to be held by federal judges. The
judicial power to be exercised, is the judicial power of the
United States; the errors to be corrected are those of that
judicial power; and there can be no inferior Courts exercising
the judicial power of the United States, other than those
constituted, ordained, and established by Congress.
The Supreme Court has appellate jurisdiction
in cases to which the judicial power of the United States shall
extend; but unless the original jurisdiction has extended to the
case, the appellate jurisdiction
[19 U.S. 264, 317] can never reach
it. The original jurisdiction alone is qualified to lay hold of
it. If it shall be deemed proper to extend the judicial power to
all the cases enumerated, the original jurisdiction must be thus
extended. The Court exercising appellate jurisdiction, must not
only have jurisdiction over such a cause, and such parties, but
it must have jurisdiction over the tribunal before which the
cause has been depending. Judicial power, includes power to
decide, and power to enforce the decision. This Court has rather
disclaimed power to enforce its mandate to the Supreme Court of
a State. If you have not power to compel State tribunals to obey
your decisions, you have no appellate jurisdiction in cases
depending before them. Suppose it should be found necessary to
direct a new trial in a cause removed from a State Court, and
that the State Court refuses to obey your mandate; where shall
the new trial be had? If you have appellate jurisdiction in a
case decided by a State Court, you must have power to make your
decisions a part of the record of the State Court. The
Constitution provides that full faith and credit shall be given
in each State, to the judicial proceedings of every other State.
A plaintiff recovers in the Courts of Virginia judgment for a
sum of money; you reverse the judgment; but, the State Court
does not record your decision; the plaintiff obtains a copy of
the record of the judicial proceedings of the State, and
presents them as evidence before the Court of another State; he
must recover, notwithstanding your judgment, which
[19 U.S. 264, 318]
has not been made a part of that record, to which
full faith and credit is to be given.
To give jurisdiction over the State Courts,
it is not sufficient that the constitution has said that the
Supreme Court shall have appellate jurisdiction; for that will
be understood to signify, jurisdiction over inferior federal
Courts. To confer the jurisdiction claimed, the constitution
should have said, that the judicial power of the United States
shall have appellate jurisdiction over the judicial power of the
several States. If it had been intended to give appellate
jurisdiction over the State Courts, the proper expressions would
have been used. There is not a word in the constitution that
goes to set up the federal judiciary above the state judiciary.
The state judiciary is not once named. The subjects spoken of
are the judicial power of the United States; the supreme and
inferior Courts of the United States; and the original and
appellate jurisdiction of the Supreme Court. Appellate
jurisdiction is not granted to the judicial power of the United
States. It is granted to the Supreme Court of the United States.
Federal judicial power is authorized to correct the errors of
federal judicial power. I contend, that in no case can the
federal Courts revise the decisions of the State Courts; no such
power is expressly given by the constitution: and can it be
believed that it was meant that the greatest, the most
consolidating of all the powers of this Government, should pass
by an unnecessary implication? The States have granted to the
United States power to pronounce their own judgment in certain
cases; but they have not
[19 U.S. 264, 319] granted the State
Courts to the federal Government; nor power to revise State
decisions.
The power of the House of Lords to hear
appeals from the highest Court in Scotland, has been mentioned
as a precedent for the exercise of such a power as is claimed
for this Court; but the cases are by no means similar: Scotland
is consolidated with England under the same executive and
legislature; and, therefore, ought to be subject, in the last
resort, to the same judicial tribunal. If the States had no
executive except the President, and no legislature except
Congress, the cases would have some resemblance.
If you correct the errors of the Courts of
Virginia, you either make them Courts of the United States, or
you make the Supreme Court of the United States a part of the
judiciary of Virginia. The United States can only pronounce the
judgment of the United States. Virginia alone can pronounce the
judgment of Virginia. Consequently, none but a Virginia Court
can correct the errors of a Virginia Court.
There is nothing in the constitution that
indicates a design to make the State judiciaries subordinate to
the judiciary of the United States. The argument that Congress
must establish a Supreme Court, and might have omitted to
establish inferior Courts, thereby depriving the Supreme Court
of its appellate jurisdiction, unless it should be exercised
over the State Courts, seems to be without foundation. The
judicial power of the United States is vested in the Supreme
Court, and inferior Courts; the judges of
[19 U.S. 264, 320]
the inferior Courts shall receive a compensation.
The possibility of Congress omitting to perform a duty
positively enjoined on them, cannot change the constitution, or
affect the jurisdiction of the State Courts.
The federal judiciary and State judiciaries
possess concurrent power in certain cases; but no authority is
conferred on the one to reverse the decisions of the other. The
State Courts retain a concurrent authority in cases wherein they
had jurisdiction previous to the adoption of the constitution,
unless it is taken away by the operation of that instrument. I
say a concurrent authority, not a subordinate authority. The
power of the judiciary of the United States is either exclusive
or concurrent, but not paramount power. And where it is
concurrent only, then, whichsoever judiciary gets possession of
the case, should proceed to final judgment, from which there
should be no appeal. If it shall be established that this Court
has appellate jurisdiction over the State Courts in all cases
enumerated in the third article of the constitution, a complete
consolidation of the States, so far as respects judicial power,
is produced; and it is presumed that it was not the intention of
the people to consolidate the judicial systems of the States,
with that of the United States. It has been said, that the
Courts of the United States can revise the proceedings of the
executive and legislative authorities of the States, and, if
they are found to be contrary to the constitution, may declare
them to be of no legal validity; and that the exercise of the
same right over judicial tribunals, is not a higher or
[19 U.S. 264, 321]
more dangerous act of sovereign power.
8 This conclusion seems to be erroneous. When the federal
Courts declare an act of a State legislature unconstitutional,
or an act of the State executive unlawful, they exercise no
higher authority than the State Courts exercise, who will not
only declare an act of the State legislature, but even an act of
Congress, unconstitutional and void. This only proves that the
federal and State judiciaries have equally authority to judge of
the validity of the acts of the other branches of both
governments, and has no tendency whatever to establish the claim
set up by federal judicial power, of supremacy over State
judicial power.
This writ of error brings up the judgment
rendered in a State Court, in a criminal prosecution. Every
government must possess within itself, and independently, the
power to punish offences against its laws. It would degrade the
State governments, and devest them of every pretension to
sovereignty, to determine that they cannot punish offences
without their decisions being liable to a re-examination, both
as to law and fact, (if Congress please,) before the Supreme
Court of the United States. The claim set up would make the
States dependent for the execution of their criminal codes, upon
the federal judiciary. The cases 'in which a State shall be a
party,' of which the Supreme Court may take cognizance, are
civil controversies. This seems obvious; because, to the Supreme
Court is granted original jurisdiction of them. And it will not
be contended [19
U.S. 264, 322] that the Supreme Court shall have
original jurisdiction of prosecutions carried on by a State,
against those who violate its laws. If 'cases in law and equity,
arising under the laws of the United States,' comprehend
criminal prosecutions in the State Courts, then every
prosecution against a citizen of the State, in which he may
claim some exemption under an act of Congress or a treaty,
however unfounded the claim, may be re-examined, both as to law
and fact, (if Congress please,) in the Supreme Court. And if
'controversies' include such prosecutions, then every
prosecution against an alien, or the citizen of another State,
may be so re-examined, whether he claim such exemption or not.
Can this Court bring up a capital case, wherein some exemption
under a federal law is claimed by a prisoner in a State Court?
Would an appeal lie, (should Congress so direct,) from a jury?
It would not, even if the trial was had in a federal Court; for
the accused has a right to a trial by a jury in the State and
district wherein the crime shall be charged to have been
committed. In all cases within the appellate jurisdiction of the
Supreme Court, that jurisdiction may extend to the law and the
fact. But such jurisdiction, as to the fact, cannot extend to
criminal cases; consequently, it was not intended that the
appellate jurisdiction should extend to criminal cases; and,
therefore, the Supreme Court have no appellate jurisdiction in
criminal cases. Can, then, the Court take jurisdiction in this
case, which was a criminal prosecution, founded on the
presentment of a grand jury? Surely they cannot. This case was
not a qui [19 U.S.
264, 323] tam action, which is regarded as a civil
suit.
9 It was, both in form and substance, a criminal
prosecution. And it has been declared by a judge of this Court,
that 'the Courts of the United States are vested with no power
to scrutinize into the proceedings of the State Courts, in
criminal cases.'
10
That which is fixed by the constitution,
Congress have no power to change. The jurisdiction of the State
Courts is fixed by the constitution. It is not a subject for
congressional legislation. The people of Virginia, in adopting
the constitution of the United States, had power to diminish the
jurisdiction of the State judiciary: but Congress have no power
over it; they can neither diminish nor extend it; they can
neither take from the State tribunals one cause, or give them
one to decide. As they cannot impose on the State Courts any
duties, so neither can they take from them any powers. Congress
can neither add to or diminish the legislative power, the
executive power, or the judicial power of a State, as fixed by
the constitution. Congress may pass all laws necessary and
proper to execute that power which is vested by the constitution
in the judiciary of the United States; but this does not
sanction a violation of the authority of the State Courts. None
can enlarge or abridge the jurisdiction of the judiciary of
Virginia, except the people of Virginia, or the legislature of
that State. As was the jurisdiction of the State judiciary on
the 4th day of March, 1789, so it stands at this day, unless
altered by the [19
U.S. 264, 324] State. If on that day the States
retained jurisdiction of most of the cases enumerated in the
third article of the constitution, that jurisdiction must have
been left to them by the constitution, and cannot be taken from
them by Congress. The power either of a State legislature or a
State judiciary, cannot depend on the use of, or neglect to use,
a power, by Congress. Such State power is fixed by the
constitution; the same to day as to-morrow, however Congress may
legislate.
The judicial power of the United States is
conferred by the constitution, and Congress cannot add to that
power. Congress may distribute the federal judicial power among
the federal Courts, so far as the distribution has not been made
by the constitution. If the constitution does not confer on this
Court, or on the federal judiciary, the power sought to be
exercised, it is in vain that the act of Congress purports to
confer it. And where the constitution confers original
jurisdiction, (as in cases where a State is a party,) Congress
cannot change it into appellate jurisdiction. The extent of the
judicial power of the United States being fixed by the
constitution, it cannot be made exclusive or concurrent, at the
will of Congress. They cannot decide whether it is exclusive of
the State Courts or not; for that is a judicial question,
arising under the constitution. If the judicial power of the
United States is exclusive, Congress cannot communicate a part
of it to the State Courts, giving to the federal Courts
appellate jurisdiction over them. If by the constitution the
State judiciary has concurrent jurisdiction,
[19 U.S. 264, 325]
Congress cannot grant to the federal Courts an
appellate jurisdiction over the exercise of such concurrent
power. The state judiciary cannot have independent or
subordinate power, at the will and pleasure of Congress.
The State judiciary have concurrent
jurisdiction, by the constitution, over all the cases enumerated
in the third article of the constitution, except, 1.
Prosecutions for violating federal laws; 2. Cases of admiralty
and maritime jurisdiction; and, 3. Cases affecting ambassadors,
other public ministers, and consuls. No government can execute
the criminal laws of another government. The States have parted
with exterior sovereignty. As they cannot make treaties, perhaps
they have not jurisdiction in the case of ministers sent to the
federal government; as they cannot make war and peace, regulate
commerce, define and punish piracies and offences on the high
seas, and against the law of nations, or make rules concerning
captures on the water, perhaps they have no admiralty
jurisdiction. The jurisdiction of the State Courts over civil
causes, arising under the constitution, laws, and treaties,
seems to me to be unquestionable. The State judges are sworn to
support the constitution, which declares them bound by the
constitution, laws, and treaties. This was useless, unless they
have jurisdiction of causes arising under the constitution,
laws, and treaties, which are equally supreme law to the State
Courts as to the federal Courts. The State judges are bound by
oath to obey the constitutional acts of Congress; but they are
not so bound to obey the decisions of
[19 U.S. 264, 326]
the federal Courts: the constitution and laws of
the United States are supreme; but the several branches of the
government of the United States have no supremacy over the
corresponding branches of the State governments.
The jurisdiction of the State Courts is
admitted by Congress, in the judiciary act: for, by an odious
provision therein, which does not seem to be impartial, the
decision of the State Court, if given in favour of him who
claims under federal law, is final and conclusive. Thus, the
State Courts have acknowledged jurisdiction; and if that
jurisdiction is constitutional, Congress cannot control it.
Congress cannot authorize the Supreme Court
to exercise appellate jurisdiction over the decisions of the
State Courts, unless they have legislative power over those
Courts. Can Congress give an appeal from a federal District
Court to a State Court of appeal? I presume it will be admitted
that they cannot. And why can they not? Because they have no
power over the State Court. And if they cannot give an appeal to
that Court, they cannot give an appeal from that Court.
The constitution provides, that the judicial
power of the United States shall 'extend to' certain enumerated
cases. These words signify plainly, that the federal Courts
shall have jurisdiction in those cases; but this does not imply
exclusive jurisdiction, except in those cases where the
jurisdiction of the State Courts would be contrary to the
necessary effect of the provisions of the constitution. Civil
[19 U.S. 264, 327]
suits, arising under the laws of the United States,
may be brought and finally determined in the Courts of foreign
nations; and, consequently, may be brought and finally
determined in the State Courts.
The judiciary of every government must judge
of its own jurisdiction. The federal judiciary and the State
judiciary may each determine that it has, or that it has not,
jurisdiction of the case brought before it: but neither can
withdraw a case from the jurisdiction of the other. The
question, whether a State Court has jurisdiction or not, is a
judicial question, to be settled by the State judiciary, and not
by an act of Congress, nor by the judgment of the Supreme Court
of the United States. Shall the States be denied the power of
judging of their own laws? As their legislation is subject to no
negative, so their judgment is subject to no appeal. Sovereignty
consists essentially in the power to legislate, judge of, and
execute laws. The States are as properly sovereign now as they
were under the confederacy; and we have their united declaration
that they then, individually, retained their sovereignty,
freedom, and independence. The constitution recognizes the
sovereignty of the States: for it admits, that treason may be
committed against them. They would not be entitled to the
appellation of 'States' if they were not sovereign.
Although the State Courts should maintain a
concurrent jurisdiction with the federal Courts, yet foreigners
would have what, before the adoption of the constitution they
had not, a choice of tribunals, before which to bring their
actions; and the State
[19 U.S. 264, 328] judges are now
bound by treaties as supreme law. If an alien plaintiff sues in
the State Courts, he ought to be bound by their decision; and if
an alien is sued in a State Court, he ought to be bound by the
decision of the State in which he resides or sojourns, which
protects him, to which he owes a temporary allegiance, and to
whose laws he should yield obedience. The people could not have
intended to give to strangers a double chance to recover, while
citizens should be held bound by the first decision; that the
citizen should be bound by the judgment of the State alone,
while the stranger should not be bound but by the judgment of
the State, and also of the United States. A statute contrary to
reason, is void. An act of Congress which should violate the
principles of natural justice, should also be deemed void. It is
worthy of consideration, whether this clause in the judiciary
act, which grants an appeal to one party, and denies it to the
other, is not void, as being partial and unjust. If, in any case
brought before them, the State Courts shall not have
jurisdiction, the defendant may plead to the jurisdiction, and
the Supreme Court of the State will finally decide the point. If
this is not a sufficient security for justice, as I apprehend it
is, an amendment to the constitution may provide another remedy.
If the defendant submits to the jurisdiction of the State Court,
and takes a chance of a fair trial, it is reasonable that he
should be bound by the result.
As I deny to this Court authority to remove,
by writ of error, a cause from a State Court, so I likewise
[19 U.S. 264, 329]
deny the authority of this Court to remove, before
judgment, from a State Court, a suit brought therein. It will be
equally an invasion of the jurisdiction of the State Court,
although less offensive in form, than a removal after judgment
has been rendered. Congress can neither regulate the State
Courts, or touch them by regulation.
Let the Supreme Court declare (for it is a
judicial question) what cases are within the exclusive
jurisdiction of the federal Courts, by the constitution; and let
Congress pass the necessary and proper laws for carrying that
power into effect. Although I do not admit that the State Courts
would be absolutely bound by such a declaration, yet I have no
doubt that the State Courts would acquiesce. It is not for
jurisdiction over certain cases that the State Courts contend.
It is for independence in the exercise of the jurisdiction that
is left to them by the constitution.
2. Does the 25th section of the judiciary act
comprehend this case, so that the Court may take jurisdiction
thereof?
In this case the construction of a statute of
the United States is said to have been drawn in question, and
the decision in the State Court was against the exemption
claimed by the defendant in that Court. This Court has no
jurisdiction, if it shall appear that the defendant really had
no exemption to set up in the State Court, under a statute of
the United States. If the act of Congress has no application, no
bearing [19 U.S.
264, 330] on the case, the Court has no
jurisdiction.
11 The parties cannot, by making an act of Congress, which
does not affect the cause, a part of the record, give this Court
jurisdiction.
This Court have said, that 'the sovereignty
of a State in the exercise of its legislation, is not to be
impaired, unless it be clear that it has transcended its
legitimate authority; nor ought any power to be sought, much
less to be adjudged, in favour of the United States, unless it
be clearly within the reach of their constitutional charter.'
12 This Court have also said, that 'the sovereign powers
vested in the State governments by their respective
constitutions, remained unaltered and unimpaired, except so far
as they were granted to the government of the United States.'
13 The State legislatures retain the powers not granted, and
not repugnant to the exercise of the powers granted to Congress;
and it is not denied, that the legislature of Virginia
possessed, previous to the passage of the act of Congress for
incorporating the city of Washington, authority to prohibit the
sale of lottery tickets in Virginia. That legislature still
possesses the power, unless the exercise thereof obstructs some
means adopted by Congress for executing their delegated powers.
Actions are lawful or criminal, as the laws
of the land determine. Whether an action done in Virginia is
lawful or criminal, depends on the laws of that
[19 U.S. 264, 331]
State, unless the action has been authorized or
prohibited by Congress in carrying into execution some power
granted to them, or the power of some department or officer of
the government. The State governments are charged with the
police of the States. They, considering certain acts as having a
demoralizing tendency, have prohibited them. Shall Congress
authorize those very acts to be done within the body of a State?
So entirely is the police of a State to be
regulated by its own laws, that if Congress taxed licenses to
sell lottery tickets, the payment of the tax would not confer on
him who paid it, any authority to sell tickets contrary to the
laws of a State. Congress imposed a tax on licenses to sell
spirituous liquors by retail; but that did not prevent the State
governments from regarding tippling houses as nuisances, and
punishing those retailers of spirits who were not licensed
tavern keepers. The license is grantable by the State; when
granted, the federal government may tax it; but they have no
power to grant it. The police belongs to the State government;
and the federal government cannot, by the power of taxation,
interfere with the police, so as to legalize any act which a
State prohibits.
It is said that a lottery ticket owes it
value to its saleable quality. It is true that the salability of
the ticket by the managers is essential to make the lottery of
value to the corporation: But, those sales may be made in
Washington. And, if they cannot, must the constitution yield to
a lottery? The proprietor of property has not a right every
where to [19 U.S.
264, 332] dispose of it as he pleases. A man may
own poison, but he must not sell it as a medicine. He may own
money; but he may not, in Virginia, part with it at public
gaming. He may come to Washington and purchase a lottery ticket;
but if he takes it to Virginia he must not sell it there. A
lottery ticket is a chose in action, and not assignable by the
common law. The State laws determine whether bonds, bills,
notes, &c. are assignable or not. Spirituous liquors are
property; but they cannot be sold by retail, without the license
of the State government.
The act of Congress under which this lottery
has been authorized, is not an act passed in the execution of
any of those specific powers which Congress may exercise over
the States. The acts of Congress must be passed in pursuance of
the constitution, or they are void. If they have passed a
statute authorizing an act to be done in a State which they had
no power to authorize in a State, their statute is void. The
acts of Congress, to be supreme law in a State, must be passed
in execution of some of the powers delegated to Congress, or to
some department or officer of the government. Congress may pass
all laws necessary and proper to carry a given power into
effect: but they must have a given power. Now, what is the given
power for the execution of which the sale of lottery tickets in
the States is an appropriate means? It is sufficient to show
that the act passed is a means of carrying into execution some
delegated power. The degree of its necessity or propriety will
not be questioned by this Court; but it must obviously tend to
the execution [19
U.S. 264, 333] or sanction of some enumerated
power. If it shall appear on the face of the act, that it is not
passed for the purpose of carrying into effect an enumerated
power, and that it is passed for some other purpose, the act
would not be constitutional.
As to the object being a national one for
which the money is raised by the lottery in question: the nation
has no particular interest in any thing in the City of
Washington, except the public property and buildings belonging
to the United States. The improvements to be made in the City by
the proceeds of this lottery, are not national buildings for the
accommodation of the federal government; they are Corporation
buildings for the accommodation of the City, the charge of which
is to be borne out of the revenues of the City. But, it is not
admitted, that if the money was to be applied to building of the
capitol, that Congress would have power, for that purpose, to
authorize the sale of lottery tickets in a State, contrary to
State laws.
The nation is interested in the prosperity of
every city within the limits of the Union. All may be made to
contribute to the public treasury- the City of Washington as
well as others. If these improvements in the City of Washington
are such as the United States should pay for, let the money be
advanced from the treasury, and raised by taxes or by loans in a
constitutional manner, and let the taxes imposed on the City of
Washington, for the purpose of making these improvements, be
declared unconstitutional. They doubtless are so if the people
of Washington alone are taxed for purposes truly national.
[19 U.S. 264, 334]
This measure is not adopted to aid the revenue of
the United States. It is adopted for the purpose of aiding the
revenue of the City of Washington; for effecting objects which
the revenue of the City should effect, but which the ordinary
revenue is unequal to. It is to raise an extraordinary revenue
for the City of Washington. Virginia, in which State it has been
attempted to raise a part of this extraordinary revenue, has no
more interest in the penitentiaries and city halls of Washington
than in those of Baltimore.
Our opponents must maintain that this is an
act of Congress authorizing the sale of lottery tickets in
Virginia: For if it is not, the question is at an end. I call
upon them to show a power granted to Congress, which the sale of
lottery tickets in a State is an appropriate means of executing.
Suppose that Congress had passed an act expressly authorizing P.
& M. Cohen to vend lottery tickets in Virginia, for the purpose
of raising a fund to diminish the taxes laid by the Corporation
of Washington on the inhabitants, for their own benefit: would
such an act have been constitutional? Which of the enumerated
powers of Congress would such an act have been an appropriate
means of carrying into effect? Suppose that Congress had
considered lotteries as pernicious gambling: could they have
prohibited the sale of lottery tickets in the States? It will be
admitted that they could not. And if they cannot prohibit the
sale of tickets in a State, it is contended that they cannot
authorize such a sale. Let us suppose that Congress have passed
an act authorizing the sale of lottery
[19 U.S. 264, 335]
tickets in the States, for the purpose of raising
money to build a city hall in the City of Washington: Is such an
act within the constitutional powers of Congress? Is it a mode
of laying and collecting taxes? Or is it a mode of borrowing
money? And is it for the purpose of paying the debts or
providing for the general welfare of the United States? Should
it even be said that this lottery is a tax, or a mode of
borrowing money, yet the tax is laid, or the money borrowed, not
by and for the United States, but by the Corporation for the
City of Washington.
Congress have two kinds or grades of power:
(1.) Power to legislate over the States in certain enumerated
cases. (2.) Power to legislate over the ten miles square, and
the sites of forts and arsenals, in all cases whatsoever. These
powers, so very dissimilar, should be kept separate and
distinct. The advocates of the Corporation confound them. They
pass the act of Congress by the power to legislate over the ten
miles square, unlimited as to objects, but confined within the
lines of the District, and they extend its operations over the
States, by the power to legislate over them, limited as to
objects, but co-extensive with the Union. The act incorporating
the City of Washington was certainly not passed to carry into
execution any power of Congress, other than the power to
legislate over the District of Columbia. If the clause
conferring power to legislate in all cases over the ten miles
square, had been omitted, could Congress establish lotteries?
Could an act establishing a lottery be ascribed to any of the
specific [19 U.S.
264, 336] powers, in the execution of which
Congress may legislate over all the States?
If the act authorizing a lottery is justified
by the powers which extend to the States, there is no occasion
to rest it on the power to legislate in all cases over Columbia.
And if it is not justified by the powers which extend to the
States, it cannot be justified by that power which, being
limited to the District, does not extend to the States. If the
act of Congress has effect in Virginia, it is a law over the
States, and must have been passed by a power to legislate over
the States. Now, a law over the States cannot be passed by a
power to legislate over Columbia. But it is the power to
legislate over Columbia that has been exercised. Therefore, no
law has been passed over the States. Consequently, no law has
been passed having effect in the States. It is, then, by the
power to legislate over the ten miles square that the authority
to sell lottery tickets in the States must be defended.
The power to legislate over the ten miles
square, is strictly confined to its limits, and does not
authorize the passage of a law for the sale of lottery tickets
in the States.
14 When Congress legislate exclusively for Columbia, they
are restrained to objects within the District. An act of
Congress, passed by the authority to legislate over the
District, cannot be the supreme law in a State; for if, by the
power to legislate, in all cases whatsoever, over the District,
Congress may legislate over the States, it will necessarily
[19 U.S. 264, 337]
follow, that Congress may legislate over the States
in all cases whatsoever.
The constitution gives to Congress power to
exercise exclusive legislation over the ten miles square, in all
cases whatsoever. In the case of Loughborough v. Blake, the
Court said, that 'on the extent of these terms, according to the
common understanding of mankind, there can be no difference of
opinion.'
15 What is the opinion in which all mankind will unite as to
the extent of those terms? Not an opinion that the laws passed
in legislating over the District, shall operate in the States.
The opinion in which it is presumed that mankind generally will
unite, is, that all acts of Congress, not contrary to reason or
the restrictions of the constitution, passed in legislating over
the District, shall operate exclusively within its limits, but
not at all beyond them. The power given to Congress, is power to
legislate exclusively in all cases over the District. What are
the appropriate means of executing that power? To frame a code
of laws having effect within the District only; to establish
Courts having jurisdiction within the District only, &c. But
what are the powers claimed? Power to repeal the penal laws of a
State; power to pass laws 'that know no locality in the Union;'
laws 'that can encounter no geographical impediments;' laws
'whose march is through the Union.' I admit, that all the powers
of Congress, except this of exclusive legislation in all cases,
extend throughout the Union; but this, by
[19 U.S. 264, 338]
the most express words, and from its nature, is
local. Yet, in this case, by a power to legislate for a District
ten miles square, Congress is made to assume a power to
legislate over the whole Union; and because an act is authorized
to be done in Columbia, over which Congress may legislate in all
cases whatsoever, it is, therefore, to be a legal act when done
in a State, the laws of such State notwithstanding.
The power given to Congress to legislate over
the District in all cases whatsoever, is precisely of the same
extent as if this had been the only power conferred on them.
Now, had it been the only power conferred on Congress, could
there have arisen any doubt about its extent? When Congress
legislate for the District of Columbia, they are a local
legislature. The authority to legislate over the District in all
cases whatsoever, is as strictly limited as is that of the
legislature of Delaware to legislate only over Delaware. The
acts of the local legislature have no operation beyond the
limits of the place for which they legislate.
If this clause confers on Congress any
legislative power over the States, it must be of the kind
granted. But the power granted is exclusive, and no one will
contend, that an exclusive power to legislate over the States is
conferred on Congress. The power given extends to all cases
whatsoever, and no one will contend, that Congress have power to
legislate over the States in all cases whatsoever. The grant is
of an exclusive power in all cases over ten miles square. The
claim set up is a claim of paramount power over the whole United
States. [19 U.S.
264, 339] Any single measure which Congress may
adopt, must be justified by some single grant of power, or not
at all. No combination of several powers can authorize Congress
to adopt a single measure which they could not adopt either by
one or another of those powers, combined with the power to pass
necessary and proper laws for carrying such single power into
effect.
There is no repugnancy between the acts of
Virginia against selling lottery tickets within that State, and
the power granted to Congress to legislate over the District of
Columbia. There can be none; for the line of the District
completely separates them. The act passed by Congress is
confined to the District; the act of the State legislature is
confined to the State: How can there be any repugnancy? A power
to legislate over Virginia cannot come into collision with a
power to legislate over the District, unless those to whom they
are entrusted pass the limits of their jurisdiction. It is not
alleged, that the legislature of Virginia have passed the limits
of their jurisdiction. If Congress have authorized a lottery to
be drawn within the city, the sale of tickets, and the drawing
of the lottery are thereby legalized within the city. Congress
have never said that lottery tickets may be sold in the States.
Those tickets may be sold in any place where the local laws will
admit. But that they should be sold in Virginia, where such a
sale is unlawful, Congress have neither enacted, nor had power
to enact. It is said, that without a power to sell the tickets,
the power to draw the lottery is
[19 U.S. 264, 340] ineffectual. I
answer, if a power to sell lottery tickets necessarily follows a
power to draw lotteries, as the lotteries must be drawn in the
city, so there the tickets must be sold. The authority to sell
is the authority to draw; and as the principal authority (to
draw) is confined to the city, so is the consequent authority,
(to sell.) Can the Corporation draw lotteries in the States? If
not, where is their authority to sell where they have no
authority to draw? If the seller of lottery tickets is the agent
of the Corporation, then they can clothe him with no legal
authority to be executed in a State, contrary to the law of the
State. The Corporation must sell their tickets where they have
authority, or where they are permitted to sell. If the seller
was a purchaser of tickets, and desires to sell again, the City
has no interest in that subsequent sale; and the purchaser must
sell where he is permitted to sell. Why should the owners of
these tickets have an exclusive privilege in Virginia, to sell
their tickets, contrary to the laws of the land?
It has been, in effect, maintained, that
Congress may not only themselves legislate over the Union, but
that they may exercise this power by substitute. Power to
legislate over a State must be derived from the people; and
cannot be transferred. If the power to legislate over the City
may be vested in the representatives of the people thereof; yet,
surely, a power to legislate over the States cannot be
transferred to the representatives of the people of the City.
When Congress pass an act which shall have the
[19 U.S. 264, 341]
effect of law in the States, it must be passed in
pursuance of power delegated to them by the people of the
States. The constitution declares, that 'all legislative power
herein granted shall be vested in a Congress of the United
States.' This vested power cannot be transferred to a
Corporation. It must be exercised by Congress, and in the manner
prescribed by the constitution. Legislative power is not, in its
nature, transferrable. The people do not consent to obey any
laws except those passed by their representatives according to
the constitution. They who legislate for the nation must
represent the nation. The Corporation of Washington cannot
receive power to legislate over the people of the United States.
To incorporate the people of the City of Washington with power
to make by-laws for the government and police of the city, is no
transfer of power. It is an authority to exercise an inherent
power. There is in every body of people a natural inherent right
to legislate for themselves: but small societies must have
permission or authority, from the great societies, of which they
form a part. Thus, Congress authorized the people of Missouri to
form a constitution, and govern themselves. Is this a transfer
of power? No, certainly: it is an authority to exercise the
inherent power of the people in governing themselves. Congress
may authorize the people of Washington, or the people of
Arkansas, to govern themselves; but it was never heard, until
this case arose, that a local Corporation, authorized by
Congress to legislate for themselves, could pass laws of
[19 U.S. 264, 342]
obligation throughout the Union: laws paramount in
the States to the laws of the States.
It seems to have been considered by the
advocates of the Corporation, that what Congress authorizes to
be done, that they do. This is not so. Congress authorized
Missouri to form a constitution; but Congress did not therefore
form the constitution of Missouri. The Corporation of Washington
were left free to act on the subject of lotteries. They were
empowered to authorize the drawing of lotteries, and to pass the
laws necessary and proper for carrying that power into effect.
The law establishing the lottery in question, is the by-law of
the Corporation. The by-laws of the City of London are not acts
of Parliament, or laws of the realm; neither have the by-laws of
the City of Washington any force beyond the limits of the City.
Congress have not said that the lottery
tickets should be sold in the States. They have not even said
that there shall be a lottery. Congress empowered the
Corporation to pass the law, and the Corporation passed it; the
ordinance of the Corporation establishing a lottery, is no more
a part of the act of Congress, than the territorial laws now
passing in Arkansas will be parts of the acts of Congress. It is
not an act of Congress under which these tickets have been sold
in Virginia, contrary to the laws of that State: it is a by-law
of the Corporation of Washington that gave existence to this
lottery. An act of Congress does not apply to the case; and
therefore this Court have no jurisdiction under the judiciary
act. [19 U.S. 264,
343] The powers of the Corporation of Washington
are confined within the limits of the City. Being a Corporation
for government, all within the corporate limits are subject to
them; but no others.
16 They cannot make a by-law affecting even their own
members, beyond the corporate limits; they have no power to pass
a law authorizing the sale of lottery tickets in Georgetown,
much less have they the power to authorize the sale of them in a
State, contrary to its laws. This by-law either extends beyond
the limits of the City, or it does not. If it does, it is void:
and if it does not, it can have no effect in Virginia. The
by-laws of a Corporation are to be subject to the laws of the
land, even within their limits. The laws of the States are the
laws of the land, within their limits, on subjects not committed
to Congress. To those laws all corporate laws are subject.
17 But there cannot be that kind of collision between
by-laws of the Corporation of Washington and State laws, as
between the by-laws of the Corporation of the City of London,
and the laws of England. As the by-laws of London may come in
collision with the laws of England, but cannot come in collision
with the laws of Ireland and Scotland, in those countries; so
the by-laws of the Corporation of
[19 U.S. 264, 344]
Washington may come in collision with the laws of
the United States in the ten miles square; but can never come in
collision with the laws of a State, for they cannot have
operation in a State.
The Court will maintain the powers of
Congress as granted by the people, and for the purposes for
which they were granted by the people; and will, if possible, to
preserve harmony, prevent the clashing of federal and State
powers. Let each operate within their respective spheres; and
let each be confined to their assigned limits. We are all bound
to support the constitution. How will that be best effected? Not
by claiming and exercising unacknowledged power. The strength
thus obtained will prove pernicious. The confidence of the
people constitutes the real strength of this government. Nothing
can so much endanger it as exciting the hostility of the State
governments. With them it is to determine how long this
government shall endure. I shall conclude by again reminding the
Court of a declaration of their own, that, 'no power ought to be
sought, much less adjudged, in favour of the United States,
unless it be clearly within the reach of their constitutional
charter.'
Mr. D. B. Ogden, contra, (1.) stated, that he
should not argue the general question whether this Court had an
appellate jurisdiction, in any case, from the State Courts,
because it had been already solemnly adjudged by this Court, in
the case of Martin v. Hunter.
18 [19 U.S.
264, 345] 2. This is a case arising under the
constitution and laws of the Union, and therefore the
jurisdiction of the federal Courts extends to it by the express
letter of the constitution; and the case of Martin v. Hunter has
determined that this jurisdiction may be exercised by this Court
in an appellate form. But it is said, that the present case does
not arise under the constitution and laws of the United States,
because the legislative powers of Congress, as respects the
District of Columbia, are limited and confined to that District.
But, if the law be thus limited in its operation, how is this to
be discovered but by examining the constitution? and how is this
examination to be had but by taking jurisdiction of the case? In
the whole argument, constant reference was had, and necessarily
had, to the constitution, in order to decide the case between
the parties, upon this question of jurisdiction; and yet it is
said to be a case not arising under the constitution. It is also
contended, that it is not an act of Congress, the validity of
which is drawn in question in the present case; but an ordinance
of the Corporation of the City of Washington; and the maxim of
delegatus non potest delegare, is referred to, in order to show
that the Corporation cannot exercise the legislative power of
Congress. Is it meant by this to assert that Congress cannot
authorize the Corporation to make by-laws? Even the soundness of
this position cannot be determined without examining the
constitution and acts of Congress, and adjudging upon their
interpretation. The whole District of Columbia, and all its
subordinate municipal Corporations, are the creatures
[19 U.S. 264, 346]
of the constitution; and the acts of Congress,
relative to it, must be determined by the constitution, and must
be laws of the United States. Are not the extent of the powers
vested in Congress, and the manner in which these powers are to
be executed, necessarily, questions arising under the
constitution, by which the powers are given? How can the
question, whether this is a lottery authorized by an ordinance
of the Corporation, and not by a law of the United States, be
decided, but by a reference to the laws of the Union, and the
constitution under which they were enacted? The plaintiffs in
error set up a right to sell lottery tickets in the State of
Virginia, under the constitution and laws of the United States,
and the State denies it. By whom is this question to be decided?
It is a privilege or exemption, within the very words of the
judiciary act, set up or claimed, by the party, under the
constitution and laws of the Union. It is immaterial for the
present purpose whether the claim be well or ill founded. The
question is, whether the party setting up the claim, is to be
turned out of Court, without being heard upon the merits of his
case. If you have not jurisdiction, you cannot hear him upon the
merits. Upon this motion to quash the writ of error, you can
only inquire into the jurisdiction, and cannot look into the
merits: but you are asked to turn the party out of Court for
defect of jurisdiction, and without giving him an opportunity to
show that by the laws and constitution of the Union, he is
entitled to the privilege and exemption which he claims. It is
no answer to say that
[19 U.S. 264, 347] any individual may
allege that he has such a privilege, in order to remove his case
from the State Court to this; because no injury would ensue, as
the case would be sent back with damages: and even if there
might be some inconveniences, from improperly bringing causes
here, they ought rather to be submitted to, than to hazard the
possible violation of the constitutional rights of a citizen.
3. It is no objection to the exercise of the
judicial powers of this Court, that the defendant in error is
one of the States of the Union. Its authority extends, in terms,
to ALL cases arising under the constitution, laws, and treaties
of the United States; and if there be any implied exceptions, it
is incumbent on the party setting up the exception to show it.
In order to except the States, it is said that they are
sovereign and independent societies, and therefore not subject
to the jurisdiction of any human tribunal. But we deny, that
since the establishment of the national constitution, there is
any such thing as a sovereign State, independent of the Union.
The people of the United States are the sole sovereign authority
of this country. By them, and for them, the constitution was
established. The people of the United States in general, and
that of Virginia in particular, have taken away from the State
governments certain authorities which they had before, so that
they are no longer sovereign and independent in that sense which
exempts them from all coercion by judicial tribunals. Every
State is limited in its powers by the provisions of the
constitution; and whether a State passes those limits, is a
question [19 U.S.
264, 348] which the people of the Union have not
thought fit to trust to the State legislatures or judiciaries,
but have conferred it exclusively on this Court. The Court would
have the jurisdiction without the word State being mentioned in
the constitution. The term 'all cases,' means all, without
exception; and the States of the Union cannot be excepted, by
implication, because they have ceased to be absolutely sovereign
and independent. The constitution declares that every citizen of
one State, shall have all the privileges of the citizens of
every other State. Suppose Virginia were to declare the citizens
of Maryland aliens, and proceed to escheat their lands by
inquest of office: the party is without a remedy; unless he can
look for protection to this Court, which is the guardian of
constitutional rights. Because the State, which is the wrong
doer, is a party to the suit, is that a reason why he should not
have redress? By the original text of the constitution, there is
no limitation in respect to the character of the parties, where
the case arises under the constitution, laws, and treaties of
the Union: and the amendment to the constitution respecting the
suability of States, merely applies to the other class of cases,
where it is the character of the parties, and not the nature of
the controversy, which alone gives jurisdiction. The original
clause giving jurisdiction on account of the character of the
parties, as aliens, citizens of different States, &c. does not
limit, but extends the judicial power of the Union. The
amendment applies to that alone. It leaves a suit between a
State and a citizen, arising under the constitution, laws, &c.
[19 U.S. 264, 349]
where it found it; and the States are still liable
to be sued by a citizen, where the jurisdiction arises in this
manner, and not merely out of the character of the parties. The
jurisdiction in the present case arises out of the subject
matter of the controversy, and not out of the character of the
parties; and, consequently, is not affected by the amendment.
But it is said, that admitting the Court has
jurisdiction where a State is a party, still that jurisdiction
must be original, and not appellate; because the constitution
declares, that in cases in which a State shall be party, the
Supreme Court shall have original jurisdiction, and in all other
cases, appellate jurisdiction. The answer is, that this
provision was merely intended to prevent States from being sued
in the inferior Courts of the Union; that the Supreme Court is
to have appellate jurisdiction in all cases arising under the
constitution, laws, and treaties of the United States; that
where, in such a case, a State sues in its own Courts, it must
be understood as renouncing its privilege or exemption, and to
submit itself to the appellate power of this Court; since, if
the jurisdiction in this class of cases be concurrent, it cannot
be exercised originally in the Supreme Court, wherever the State
chooses to commence the suit in its own Courts. Nor is there any
hardship in this construction. The State cannot be sued in its
own Courts; but if it commences a suit there against a citizen,
and a question arises in that suit under the constitution, laws,
and treaties of the Union, there must be power in this Court to
revise the decision of the State Court, in order to
[19 U.S. 264, 350]
produce uniformity in the construction of the
Constitution, &c. So, if a consul sues in the Circuit Court,
this Court has appellate jurisdiction, although the consul could
not be sued in the Circuit Court. And if the United States, who
cannot be sued any where, think proper to sue in the District or
Circuit Court, they are amenable to the appellate jurisdiction
of this Court. Even granting, therefore, that a State cannot be
sued in any case; the State is not sued here: she has sued a
citizen, in her own tribunals, who implores the protection of
this high Court to give him the benefit of the constitution and
laws of the Union. The jurisdiction does not act on the State;
it merely prevents the State from acting on a citizen, and
depriving him of his constitutional and legal rights.
It is true, there are some cases where this
Court cannot take jurisdiction, though the constitution and laws
of the Union are violated by a State. But wherever a case is fit
for judicial cognizance, or wherever the State tribunals take
cognisance of it, whether properly or not, the appellate power
of this Court may intervene, and protect the constitution and
laws of the Union from violation. Doubtless, a State might grant
titles of nobility, raise and support armies and navies, and
commit many other attacks upon the constitution, which this
Court could not repel. But if these attacks were made by
judicial means, or if judicial means were used to compel
obedience to these illegal measures, the authority of this Court
could, and would, intervene. Nor can
[19 U.S. 264, 351]
this argument apply to a case, which is entirely
judicial in its very origin, and, therefore, steers clear of the
supposed difficulty of vindicating the constitution and laws of
the Union from violation in other cases which may be imagined.
Neither is this a criminal case. The offence
in question is not made a misdemeanor by the law of Virginia.
That law merely imposes a penalty, which may be recovered by
action of debt, or information, or indictment. The present
prosecution is a mere mode of recovering the penalty. But
suppose it is a criminal case. The constitution declares, that
the Court shall have jurisdiction in ALL cases arising under it,
or the laws and treaties of the Union; which includes criminal
as well as civil cases; unless, indeed, Congress has refused
jurisdiction over the former in the judiciary act, which we
insist it has not.
Mr. Pinkney, on the same side, (1.) argued,
that there was no authority produced, or which could be
produced, for the position on the other side, that this Court
could not, constitutionally, exercise an appellate jurisdiction
over the judgments or decrees of the State Courts, in cases
arising under the constitution, laws, and treaties of the Union.
The judiciary act of 1789, c. 20. contains a contemporaneous
construction of the constitution in this respect, of great
weight, considering who were the authors of that law; and which
has been since confirmed by the repeated decisions of this
Court, constantly exercising
[19 U.S. 264, 352] the jurisdiction
in question.
19 This legislative and judicial exposition has been
acquiesced in, since no attempt has ever been made to repeal the
law upon the ground of its repugnancy to the constitution:
Transiit in rem judicatam. But even before the constitution was
adopted, and whilst it was submitted to public discussion, this
interpretation was given to it by its friends, who were anxious
to avoid every objection which could render it obnoxious to
State jealousy. But they well knew that this interpretation was
unavoidable, and the authors of the celebrated Letters of
Publius, or the Federalist, have stated it in explicit terms.
20 [19 U.S.
264, 353] But it is said, that the jurisdiction of
the State Courts is concurrent with those of the Union, over
that class of cases arising under the constitution, laws, and
treaties of the United States. This, however, is not of absolute
necessity, but at the discretion of Congress, who may restrain
and modify this concurrent jurisdiction, or render it exclusive
in the federal tribunals at their pleasure. The supremacy of the
national constitution and laws, is a fundamental principle of
the federal government, and would be entirely surrendered to
State usurpation, if Congress
[19 U.S. 264, 354] could not, at its
option, invest the Courts of the Union with exclusive
jurisdiction over this class of cases, or give those Courts an
appellate jurisdiction over them from the decisions of the State
tribunals. Every other branch of federal authority might as well
be surrendered. To part with this, leaves the Union a mere
league or confederacy of States entirely sovereign and
independent. This particular portion of the judicial power of
the Union is indispensably necessary to the existence of the
Union. It is an axiom of political science, that the judicial
power of every government must be commensurate with its
legislative authority: it must be adequate to the protection,
enforcement, and assertion of all the other powers of the
government. In some cases this power must necessarily be
directly exercised by the federal tribunals, as in enforcing the
penal laws of the Union. But in other cases, it is merely a
protecting power, and cannot, from the very nature of things, be
exercised in the first instance, by the Courts of the Union.
Such are suits between citizen and citizen on contract. Here the
State Courts must necessarily have original jurisdiction; but if
the party defendant sets up a defence, founded (for example)
upon an act of the State legislature supposed to impair the
obligation of contracts, and the decision of the State Court is
in favour of the law thus set up, the judicial authority of the
Union must be exerted over the cause, or that clause of the
constitution which prohibits any State from making a law
impairing the obligation of contracts is a dead letter. There is
nothing in the constitution which prohibits
[19 U.S. 264, 355]
the exercise of such a controlling authority. On
the contrary, it is expressly declared, that where the case
arises under the constitution and laws of the Union, the
judicial power of the Union shall extend to it. It is the case,
then, and not the forum in which it arises, that is to determine
whether the judicial authority of the Union shall be exercised
over it. But there is a class of cases which must necessarily
originate in the State tribunals, because it cannot be known at
the time the suit is commenced, whether it will or will not
involve any question arising under the constitution and laws of
the Union. Over this class of cases, then, the Courts of the
Union must have appellate jurisdiction. The appellate power of
this Court is extended by the constitution to all cases within
the judicial authority of the Union, and not included within the
original jurisdiction of this Court. Its appellate power, so far
as respects the constitution, depends, then, on two questions
only: is the case within the judicial power of the Union? and is
it within the original cognizance of this Court? The first
question being answered affirmatively, and the second
negatively, the appellate power under the constitution is
completely established in any given case.
But the power of removing this class of
causes, pendente lite, is also denied; and it is said, that the
authority to remove, before judgment, a suit brought in the
State Court, into the federal Court, is repugnant to the
constitution. In Martin v. Hunter,21 the argument was the other
way, and it was insisted, that Congress ought to have given to
this Court the [19
U.S. 264, 356] power of evoking this description of
causes from the State tribunals, the moment any question arose
respecting the constitution and laws of the Union, in order to
avoid the offensive exercise of an appellate jurisdiction over
the State Courts. Quacunque via data-it is immaterial; for the
power of removal, if it be not unconstitutional, is an appellate
power, and analogous to a writ of error. If it be
unconstitutional, the necessity for the controlling power of a
writ of error, is only the more manifest. Take away both, and
the constitution, laws, and treaties of the Union lie at the
mercy of the State judicatures.
Again. It is said, that the judges of the
State Courts take an oath to support the constitution of the
Union, and the laws and treaties of the Union are their supreme
law: and it is inferred, that the constitution reposes implicit
confidence in them, and there ought to be no revision of their
judgments. But, it may be asked, if the constitution reposes
this implicit confidence in the State tribunals, why does it
authorize the establishment of federal Courts, which, upon this
supposition, would be wholly useless? And why are the members of
the State legislatures and executives required to take the same
oath? They are bound to support the constitution by the same
solemn sanctions, and yet their acts may confessedly be set
aside by the national judicatures, ad being repugnant to that
constitution. The actual constitution of this country is not a
government of confidence; it is a scheme of government
[19 U.S. 264, 357]
conceived in the spirit of jealousy, and rendered
adequate to all its own purposes, by its own means: and the
judicial power of the Union is the principal means of giving
effect to it. This it is which distinguishes it from the
Confederation. Experience has shown the necessity and wisdom of
this provision. If the State Courts may adjudicate conclusively
for the Union, why may not the State legislatures legislate for
it; and where is the utility of distinct and appropriate powers,
if it cannot maintain them from violation? In Martin v.
Hunter,22 the Court considered this argument fully, and thought
it operated the other way. The care which the constitution takes
to make the State Courts respect it, and the laws and treaties
made under it, proves that it was supposed that cases might come
before them by original suit, which would involve the rights and
interests of the Union, and lay a foundation for appeal or
revision. This was anticipated, and the constitution endeavors
to make the first decision correct, by the sanction of an oath.
But it does not improvidently rely upon that alone. The judges
of the inferior Courts of the Union take the same oath, and lie
under the same obligation; but they are not the less subject to
the appellate jurisdiction of the Supreme Court.
But it is asked, can Congress grant an appeal
from the District or Circuit Court, to a State Court? The
question is answered in the negative, and it is thence inferred
that they cannot grant an appeal
[19 U.S. 264, 358] from a State to a
federal Court. This seems to imply that you can do nothing
unless you can do its opposite. Such a proposition would repeal
all the physical and moral laws of the universe. As well might
it be asked, can Congress grant an appeal from the Supreme to
the District Court; and because there is something absurd in the
idea of an appeal from a superior to an inferior tribunal, it
would be inferred that the opposite appeal could not be granted.
But, until the relation of supreme and subordinate is destroyed,
the State laws and judicatures must be considered as subordinate
to those of the Union, in all cases within the scope of its
powers and jurisdiction. Such was once the doctrine asserted by
Virginia herself, and to which it is confidently believed she
will revert in a moment of calmer reflection.
23 [19 U.S.
264, 359] 2. It is further contended on the other
side, that this Court has no jurisdiction of the present case,
because the writ of error presents no question arising
[19 U.S. 264, 360]
under the constitution or laws of the United
States. And to show this, it is said that the record speaks only
of the validity of the act of Congress,
[19 U.S. 264, 361]
and nobody denies its validity, and therefore no
question arises under an act of Congress. But the words of the
judiciary act are pursued by this writ of error, as they always
have been in other cases. It is the validity of the act of
Congress, and the validity of the act of Virginia, as compared
with it, which are drawn into question. The Court below decided
against the first, and in favour of the last, to the full extent
of the case. The validity of the act of Congress, means the
effect attributed to it by the defendant who sets it up as a
defence against so much of the act of the State as inflicts a
penalty upon him for doing what the act of Congress authorizes.
The defendant relies upon the act of Congress, as creating an
exception in favour of his case, out of the act of Virginia. He
says it is valid, or available, or efficacious to create such an
exception. That was the question which the record shows was
before the Court below; and the Court decided that it was not so
valid, or available, or efficacious. Whether it is so or not, is
the question which the writ of error presents for inquiry; and
it is such a question as the
[19 U.S. 264, 362] appellate power of
this Court can deal with. But the question on this motion to
dismiss the writ of error, is not whether the act of Congress is
valid as against the act of Virginia; but whether that question
is presented by the record, so that this Court can determine it,
after it has concluded to entertain the writ of error. It is the
claim of a right, privilege, or exemption under the statute of
the United States, which gives the jurisdiction.
24 The decision upon that claim, as it appears upon the
record, is the exercise of the jurisdiction. That the claim to
exemption appears upon the record, cannot be denied in this case
more than any other. The claim may even be an absurd one: but
this Court cannot be called upon, on a motion to dismiss the
writ of error, to condemn it as such. All argument upon the
sufficiency of the claim is premature, so long as it is, sub
judice, whether the Court can examine its sufficiency.
But it is said, that the question does not
arise under any statute of the United States, but under a mere
by-law of the City of Washington; and that the case involves
nothing but that by-law: and it is said to be absurd to call a
by-law of the City of Washington a law of the United States. It
is immaterial whether it be so or not. The by-law is the
execution of a power given by a law of the United States. The
effect of the execution of that power, involves the effect of
the law; and although the execution of the power is not a law of
the United [19
U.S. 264, 363] States, yet that which gives the
power is. The question, therefore, is, not what is the mere
effect of the execution of the power in the abstract, or
unconnected with the law which gives it, but what is the effect
of the power by force of the law which gives it: and that
question compels you to mount up to the constitution itself.
The course of the inquiry will then be, (1.)
What has the party done? and what is the immediate authority
under which he did it? (2.) What is the nature and extent of
that authority? what its qualities under the law which gave it,
and the constitution under which that law was passed?
If an officer of the United States does any
act for which a State Court calls him to account, and he relies
in his defence upon the authority, real or supposed, of a
statute of Congress, his act is not a law of the United States;
but his defence is referred to the effect and validity of a law
of the United States, and that is again referred to the
constitution, which is the paramount law. The last act done need
not be a law of the United States. It is sufficient, if it is
attempted to be justified, or its consequences maintained, under
a law of the United States, which it is alleged gave to it a
protecting power in the case before the Court.
It is, however, asserted, that the
constitution gives jurisdiction only in cases arising under it,
or the laws, or treaties of the United States; and that this
case does not arise under a law of the United States, because
the act of Congress now in question is not a law of the United
States. An act of the Congress,
[19 U.S. 264, 364] in its capacity of
local sovereign of the District of Columbia, is said not to be a
law of the United States. But whose law, then, is it? The United
States in Congress assembled, are the local sovereigns of the
District, and it is by them that this law is passed. Is it less
a law of the United States, because it does not operate directly
upon the Union at large? A statute is not a law of the United
States on account of the subject on which it acts being limited
or unlimited. It is a law of the United States, because it is
passed by the legislative power of the United States. The
legislative authority over the District of Columbia, is that of
the Union. Its sphere is limited, but the power itself is even
greater than the general federal power of the Union. It is the
power of the People and the States combined, exerted upon their
peculiar domain. It is the same Congress which passes both
description of laws. The question, whether the law operates
beyond the District, is the question upon the merits hereafter
to be discussed.
Again; it is said, that the by-law alone is
in question, and not the act of Congress: because the by-law is
not passed by virtue of the act of Congress, but by virtue of
the inherent power of the people of the District to govern
themselves. The act of Congress only calls this inherent power
into action: and this inherent power, when so called into
action, is the only power which this Court can deal with. The
fallacy of this argument consists in its confounding inherent
power with an inherent capacity to receive power. The
subordinate legislative power of the
[19 U.S. 264, 365]
territories and Districts, which belong to the
Union in full sovereignty, is not their power, but that of their
superior. But admit this abstract doctrine of inherent power:
the question still recurs, what is the constitutional effect of
this power being excited into action by the paramount power. The
action of the inherent power will still depend upon the power by
which it is set in motion; and what it can, or cannot, do, under
that impulse, is just the same question with the other.
It is also objected, that a law emanating
from the local power of Congress over the District of Columbia,
cannot bind the Union. But whether it can or not is the very
question to be determined, when the merits come to be discussed;
which the writ of error gives authority to decide; and which
cannot be decided without entertaining the writ of error. The
argument on the other side, proceeds in a vicious circle. It is
asserted, that you must quash the writ of error, because you
have no jurisdiction over the case or question. It is, then,
said, that you must take jurisdiction of, and inquire into, the
case and the question, in order that you may dismiss the writ of
error: or, in other words, you have, and you have not,
jurisdiction over the case and question, and you ought to decide
them in order to see that you ought not to decide them. And here
again the supposed absurdity of the claim of protection, by the
defendant on the record, against the act of Virginia, is urged
to authorize a refusal to inquire upon the writ of error,
whether it is absurd or not.
[19 U.S. 264, 366] 3. The next ground
of objection to the jurisdiction is, that the writ of error is
itself a suit against a State by a citizen of that or some other
State. And Bac. Abr. tit. Error, (L.) is cited as an authority
to show that a release of all suits is a release of a writ of
error. But, even admitting that it may sometimes be technically
called a suit, it is not such a suit as is contemplated by the
constitution. A writ of error, where a party is to be restored
to something, may be released by a release of all suits or
actions, because in this respect it resembles an action. But
this writ of error is not a suit, because the party is not to be
restored to any thing. A reversal of the judgment below will
leave things just as they were before the judgment. But the
State of Virginia is not compelled to come into this Court by
the writ of error. A citation, or scire facias ad audiendum
errores, is only notice to the State, leaving it at her option
voluntarily to appear. It does not act compulsorily upon the
State. It acts upon the Court, which she has used as the
instrument to enforce her law. A case is presented by the
interference of the judiciary of the State, for the
interposition of the appellate power of this Court. The object
is to reverse the judgment, and that done, there is an end of
the exercise of power. The United States are liable to the same
coercion. They may be called before this Court in the same
manner, and the judgments obtained in their favour may be
reversed. And is it then derogatory to the sovereignty of a
particular State, that its judgments should be liable to be
controlled in the same manner, in cases within the judicial
[19 U.S. 264, 367]
power of the Union? This control is exerted upon
the judiciary; upon the judgments of the judiciary. The State is
incidentally affected; but that has been already determined in
this Court to be immaterial.
25 Nor is this sort of control more exceptionable than that
which is constantly exercised, in suits between private parties,
over the acts of the State legislatures and executives, upon the
same ground of their repugnancy to the constitution and laws of
the Union.
If it be asked whether you can give costs
against the State, and enforce the payment; the answer is, that
you cannot do so in any case upon a mere reversal of a judgment.
And even if you could in a case between private parties, is it
any objection to the appellate jurisdiction of this Court, where
the United States are plaintiffs below, that you cannot award
and enforce the payment of costs against them? It is not
jurisdiction over the State of Virginia that is claimed, but
over a question arising under the laws of that State, and over
the judgments of her Courts construing those laws. This point is
incidentally touched in Martin v. Hunter,26 in considering the
question as to removal of suits, before judgment, and it is
there said by the Court that the remedy of removal of suits
would be utterly inadequate to the purposes of the constitution,
if it could act only on the parties, and not upon the State
Courts. [19 U.S.
264, 368] 4. Lastly. It is insisted, for the
defendant in error, that this Court has no jurisdiction in the
present case, because a State is a party to the original
controversy which the writ of error brings before the Court:
That the jurisdiction of this Court in all cases, where a State
is a party, is original, and therefore it cannot have appellate
jurisdiction in this case.
The obvious answer to this argument is, that
the jurisdiction now claimed does not arise under that part of
the constitution which gives original jurisdiction to the
Supreme Court in cases in which a State is a party; but the
jurisdiction is asserted under that clause which gives the
federal judiciary cognizance of all cases arising under the
constitution, laws, and treaties of the United States, without
regard to the character of the parties. In this latter class of
cases the Supreme Court has appellate jurisdiction. In some of
this description of cases, the jurisdiction could not be
originally exercised. The penal laws of a State cannot be
originally enforced, or enforced at all, by a judicature of the
Union. They cannot therefore form the subjects of, or create
subjects for, its original jurisdiction. The Courts of the
United States can here exert only a controlling or restraining
power for the protection of the rights of the Union, and this
can only be done by appeal or writ of error. This view of the
subject is taken in Martin v. Hunter. The Court there says,27
'Suppose an indictment for a crime in a State Court, and the
defendant should allege in his defence, that the crime was
committed by an ex post facto act of the State; must not the
State Court, in
[19 U.S. 264, 369] the exercise of a jurisdiction
which has already rightfully attached, have a right to pronounce
on the sufficiency and validity of the defence? It would be
extremely difficult, upon any legal principles, to give a
negative answer to these inquiries. Innumerable instances of the
same sort might be stated in illustration of the position; and
unless the State Courts could sustain jurisdiction in such
cases, this clause of the sixth article would be without meaning
or effect, and public mischiefs of a most enormous magnitude
would inevitably ensue.' So the Court afterwards say, in the
context of the passage before cited, speaking of the inadequacy
of the remedy of removal of suits to accomplish the purposes of
the constitution, 'in respect to criminal prosecutions, the
difficulty seems admitted to be insurmountable,'&c.
28 What difficulty? The difficulty of controlling them by
the Courts of the United States without the aid of a writ of
error, because those Courts could take no original cognizance of
this description of cases, and they could not be removed before
judgment. As, then, the federal Courts have no original
jurisdiction of cases arising merely under the constitution,
laws, and treaties of the Union, it follows, that the clause of
the constitution which speaks of cases in which a State shall be
a party, does not apply to it: and the appellate power, now in
question, is to be sought for in that part of the same article
which declares, that the judicial power of the Union shall
extend to all cases arising under the
[19 U.S. 264, 370]
constitution, laws, and treaties of the Union,
coupled with the subsequent provision, which declares, that in
all cases to which that judicial power extends, this Court shall
have appellate, where it has not original jurisdiction, with
such exceptions, and under such regulations as Congress may
prescribe. That it has appellate jurisdiction in all cases
arising under the constitution, laws, and treaties of the United
States, is established by the authority of the case of Martin v.
Hunter: and that this appellate power is competent to control
the State Courts, is also proved by that case.
29 There is, therefore, no open question but this, does the
fact of a State being a party prosecutor in the State Court,
make this case an exception, and take it out of the general
rule? Upon the plain policy and purpose of the constitution it
does not. This jurisdiction has already been shown to be
different in its nature from the original jurisdiction which was
exercised over States before the amendment of the constitution.
But that other jurisdiction will go far to show, that there is
nothing unnatural in giving appellate power over State Courts in
cases where a State is a party plaintiff. The constitution
authorized direct coercion over States or private citizens
indifferently. The amendment has partly taken this away; but the
spirit of the constitution is still manifested by the former
provision. The same constitution also authorized appellate
control over State Courts; and is it natural that it should
condemn the same control, merely because
[19 U.S. 264, 371]
a State has obtained the judgment to be revised?
The constitution had no delicacy with regard to States on this
matter. It considered them as directly amenable where original
jurisdiction can be exerted. Why not empower its tribunals to
affect their interests in an appellate form, by acting, not on
the State, but on its Courts, as unquestionably it does in all
cases where individuals are parties below? The appellate power
is trifling, compared with the original as it formerly stood:
and a constitution which gave the last could have no scruples
about the first. The appellate control is respectful to the
State sovereignties compared with the original; and it stands
upon high considerations of self defence, upon grounds of
constitutional necessity not applicable to the other. The
suability of the States might have been dispensed with, and the
constitution still be safe. But the judicial control of the
Union over State encroachments and usurpations, was
indispensable to the sovereignty of the constitution-to its
integrity-to its very existence. Take it away, and the Union
becomes again a loose and feeble confederacy-a government of
false and foolish confidence-a delusion and a mockery! Why is it
in cases, in which individuals are parties in a State Court,
that the judgment may be revised in this Court? Because the
judiciary of the Union ought to possess ample power to preserve
the constitution, and laws, and treaties of the Union, from
violation by other judicatures. Its judicial powers should be
commensurate with its other powers, and rights, and
prerogatives. They might else be evaded and
[19 U.S. 264, 372]
trampled under foot by judicatures in which the
constitution does not confide. This high motive is as strong, at
least, where a State is plaintiff or prosecutor in its own
Courts, as where it is not. Indeed, it is far stronger; for all
the motives to judicial leanings and partialities here operate
in their fullest force, though the State judges may not be
conscious of their influence. The sovereignty of the State
law-State pride- State interests-are here in paramount vigour as
inducements to error; and judicial usurpation is countenanced by
legislative support and popular prejudice. Let the Court look to
the consequences of this distinction. A State passes a law
repugnant to the national constitution. It gives a remedy in the
name of an individual-a common informer. You may control this
law, if the State judiciary acts upon it. But the State may
avoid this (as it seems) by authorizing the remedy in its own
name; and you thus lose your protecting jurisdiction over the
subject, although you might still exercise it, as in the other
case, in the inoffensive mode of confining your control to the
State judiciary. The whole constitution of the Union might thus
be overturned unless force should be resorted to: and the object
of the constitution was to avoid force, by giving ordinary
judicial power of correction.
It has been said that a sovereign State of
the Union is not amenable to judicature, unless made so by
express words-eo nomine. I deny this as respects appellate
jurisdiction, which acts, not on the State, but on its Courts.
The words of the constitution
[19 U.S. 264, 373] are sufficiently
express, and all reason is on that side: especially since it is,
or must be admitted, that these Courts may be thus controlled,
and the legislative power of the State be reached through them,
and controlled also: and especially too, when the constitution
has not scrupled, in other cases, to subject the States to
direct control.
But it is contended, that there are cases
arising under the constitution and laws of the Union, which,
from their very nature, are not the subjects of judicial
cognizance, and consequently are exceptions out of the general
grant of judicial power under the constitution; such as the
prohibition to the States to grant titles of nobility, &c.: and
that the present case may be such an exception. But the very
supposition admits, that if the case in question is suited to
the exertion of judicial power, it is not an exception: and the
moment a State judiciary intervenes, judicial jurisdiction can,
and ought to be exerted. It is unnecessary to inquire how the
case must, in general, exist, in order to become the proper
object of judicial cognizance; for here it does exist in a
proper shape for that purpose. A State Court has intervened, and
the regular appellate power of this Court may act. Nor does the
proof of some exceptions arising from necessity, establish other
exceptions free from that necessity. Many unlawful things cannot
be restrained by judicature: but does it follow that where they
can be restrained, they shall not?
Again: It is said that the States may destroy
the federal Government at their pleasure, merely by forbearing
[19 U.S. 264, 374]
to elect Senators, and to provide for the election
of a President and Representatives, and that the authority of
the Union is incompetent to coerce them. Such extreme arguments
prove nothing to the present purpose: but suppose the States
could not be coerced in such a case to do their duty, because no
intervening Court or agent is necessary to the accomplishment of
such a desperate purpose, does this prove that you cannot
defensively control active violations of the constitution or
laws, when a controllable judicature or agent intervenes to
perpetrate these violations?
It is also said, that this is a prosecution
under a penal statute, and that criminal cases peculiarly belong
to the domestic forum. The answer is, that so was the case of
M'Culloch v. Maryland, a qui tam action, under a penal law of
that State, giving one half of the penalty to the State, and the
other half to the informer; yet this Court did not consider the
nature of the suit, or the circumstance of a State being a
party, as forming a valid objection to the jurisdiction.
30 Nobody objects to a State enforcing its own penal laws:
all that is claimed is, that in executing them, it should not
violate the laws of the Union, which are paramount: Sic utere
tuo ut alienum non laedas.
The other suppositions which have been stated
of bills of attainder and ex post facto laws passed by the
States, and attempted to be executed, but decided by this Court
to be unconstitutional, and yet the
[19 U.S. 264, 375]
State Courts persisting in carrying them into
effect, even in capital cases, are too wild and extravagant, to
illustrate any question which can ever practically arise.
March 3d.
Mr. Chief Justice MARSHALL delivered the
opinion of the Court.
This is a writ of error to a judgment
rendered in the Court of Hustings for the borough of Norfolk, on
an information for selling lottery tickets, contrary to an act
of the Legislature of Virginia. In the State Court, the
defendant claimed the protection of an act of Congress. A case
was agreed between the parties, which states the act of Assembly
on which the prosecution was founded, and the act of Congress on
which the defendant relied, and concludes in these words: 'If
upon this case the Court shall be of opinion that the acts of
Congress before mentioned were valid, and, on the true
construction of those acts, the lottery tickets sold by the
defendants as aforesaid, might lawfully be sold within the State
of Virginia, notwithstanding the act or statute of the general
assembly of Virginia prohibiting such sale, then judgment to be
entered for the defendants; And if the Court should be of
opinion that the statute or act of the General Assembly of the
State of Virginia, prohibiting such sale, is valid,
notwithstanding the said acts of Congress, then judgment to be
entered that the defendants are guilty, and that the
Commonwealth recover against them one hundred dollars and
costs.' [19 U.S.
264, 376] Judgment was rendered against the
defendants; and the Court in which it was rendered being the
highest Court of the State in which the cause was cognizable,
the record has been brought into this Court by writ of error.
31
The defendant in error moves to dismiss this
writ, for want of jurisdiction.
In support of this motion, three points have
been made, and argued with the ability which the importance of
the question merits. These points are-
1st. That a State is a defendant.
2d. That no writ of error lies from this
Court to a State Court.
3d. The third point has been presented in
different forms by the gentlemen who have argued it. The counsel
who opened the cause said, that the want of jurisdiction was
shown by the subject matter of the case. The counsel who
followed him said, that jurisdiction was not given by the
judiciary act. The Court has bestowed all its attention on the
arguments of both gentlemen, and supposes that their tendency is
to show that this Court has no jurisdiction of the case, or, in
other words, has no right to review the judgment of the State
Court, because neither the constitution nor any law of the
United States has been violated by that judgment.
The questions presented to the Court by the
two first [19 U.S.
264, 377] points made at the bar are of great
magnitude, and may be truly said vitally to affect the Union.
They exclude the inquiry whether the constitution and laws of
the United States have been violated by the judgment which the
plaintiffs in error seek to review; and maintain that, admitting
such violation, it is not in the power of the government to
apply a corrective. They maintain that the nation does not
possess a department capable of restraining peaceably, and by
authority of law, any attempts which may be made, by a part,
against the legitimate powers of the whole; and that the
government is reduced to the alternative of submitting to such
attempts, or of resisting them by force. They maintain that the
constitution of the United States has provided no tribunal for
the final construction of itself, or of the laws or treaties of
the nation; but that this power may be exercised in the last
resort by the Courts of every State in the Union. That the
constitution, laws, and treaties, may receive as many
constructions as there are States; and that this is not a
mischief, or, if a mischief, is irremediable. These abstract
propositions are to be determined; for he who demands decision
without permitting inquiry, affirms that the decision he asks
does not depend on inquiry.
If such be the constitution, it is the duty
of the Court to bow with respectful submission to its
provisions. If such be not the constitution, it is equally the
duty of this Court to say so; and to perform that task which the
American people have assigned to the judicial department.
[19 U.S. 264, 378]
1st. The first question to be considered is,
whether the jurisdiction of this Court is excluded by the
character of the parties, one of them being a State, and the
other a citizen of that State?
The second section of the third article of
the constitution defines the extent of the judicial power of the
United States. Jurisdiction is given to the Courts of the Union
in two classes of cases. In the first, their jurisdiction
depends on the character of the cause, whoever may be the
parties. This class comprehends 'all cases in law and equity
arising under this constitution, the laws of the United States,
and treaties made, or which shall be made, under their
authority.' This clause extends the jurisdiction of the Court to
all the cases described, without making in its terms any
exception whatever, and without any regard to the condition of
the party. If there by any exception, it is to be implied
against the express words of the article.
In the second class, the jurisdiction depends
entirely on the character of the parties. In this are
comprehended 'controversies between two or more States, between
a State and citizens of another State,' 'and between a State and
foreign States, citizens or subjects.' If these be the parties,
it is entirely unimportant what may be the subject of
controversy. Be it what it may, these parties have a
constitutional right to come into the Courts of the Union.
The counsel for the defendant in error have
stated that the cases which arise under the constitution must
grow out of those provisions which are capable
[19 U.S. 264, 379]
of self-execution; examples of which are to be
found in the 2d section of the 4th article, and in the 10th
section of the 1st article.
A case which arises under a law of the United
States must, we are likewise told, be a right given by some act
which becomes necessary to execute the powers given in the
constitution, of which the law of naturalization is mentioned as
an example.
The use intended to be made of this
exposition of the first part of the section, defining the extent
of the judicial power, is not clearly understood. If the
intention be merely to distinguish cases arising under the
constitution, from those arising under a law, for the sake of
precision in the application of this argument, these
propositions will not be controverted. If it be to maintain that
a case arising under the constitution, or a law, must be one in
which a party comes into Court to demand something conferred on
him by the constitution or a law, we think the construction too
narrow. A case in law or equity consists of the right of the one
party, as well as of the other, and may truly be said to arise
under the constitution or a law of the United States, whenever
its correct decision depends on the construction of either.
Congress seems to have intended to give its own construction of
this part of the constitution in the 25th section of the
judiciary act; and we perceive no reason to depart from that
construction.
The jurisdiction of the Court, then, being
extended by the letter of the constitution to all cases arising
under it, or under the laws of the United States, it follows
that those who would withdraw
[19 U.S. 264, 380] any case of this
description from that jurisdiction, must sustain the exemption
they claim on the spirit and true meaning of the constitution,
which spirit and true meaning must be so apparent as to overrule
the words which its framers have employed.
The counsel for the defendant in error have
undertaken to do this; and have laid down the general
proposition, that a sovereign independent State is not suable,
except by its own consent.
This general proposition will not be
controverted. But its consent is not requisite in each
particular case. It may be given in a general law. And if a
State has surrendered any portion of its sovereignty, the
question whether a liability to suit be a part of this portion,
depends on the instrument by which the surrender is made. If,
upon a just construction of that instrument, it shall appear
that the State has submitted to be sued, then it has parted with
this sovereign right of judging in every case on the justice of
its own pretensions, and has entrusted that power to a tribunal
in whose impartiality it confides.
The American States, as well as the American
people, have believed a close and firm Union to be essential to
their liberty and to their happiness. They have been taught by
experience, that this Union cannot exist without a government
for the whole; and they have been taught by the same experience
that this government would be a mere shadow, that must
disappoint all their hopes, unless invested with large portions
of that sovereignty which belongs to independent States. Under
the influence of this opinion, and thus instructed by
experience, [19
U.S. 264, 381] the American people, in the
conventions of their respective States, adopted the present
constitution.
If it could be doubted, whether from its
nature, it were not supreme in all cases where it is empowered
to act, that doubt would be removed by the declaration, that
'this constitution, and the laws of the United States, which
shall be made in pursuance thereof, and all treaties made, or
which shall be made, under the authority of the United States,
shall be the supreme law of the land; and the judges in every
State shall be bound thereby; any thing in the constitution or
laws of any State to the contrary notwithstanding.'
This is the authoritative language of the
American people; and, if gentlemen please, of the American
States. It marks, with lines too strong to be mistaken, the
characteristic distinction between the government of the Union,
and those of the States. The general government, though limited
as to its objects, is supreme with respect to those objects.
This principle is a part of the constitution; and if there be
any who deny its necessity, none can deny its authority.
To this supreme government ample powers are
confided; and if it were possible to doubt the great purposes
for which they were so confided, the people of the United States
have declared, that they are given 'in order to form a more
perfect union, establish justice, ensure domestic tranquillity,
provide for the common defence, promote the general welfare, and
secure the blessings of liberty to themselves and their
posterity.' [19
U.S. 264, 382] With the ample powers confided to
this supreme government, for these interesting purposes, are
connected many express and important limitations on the
sovereignty of the States, which are made for the same purposes.
The powers of the Union, on the great subjects of war, peace,
and commerce, and on many others, are in themselves limitations
of the sovereignty of the States; but in addition to these, the
sovereignty of the States is surrendered in many instances where
the surrender can only operate to the benefit of the people, and
where, perhaps, no other power is conferred on Congress than a
conservative power to maintain the principles established in the
constitution. The maintenance of these principles in their
purity, is certainly among the great duties of the government.
One of the instruments by which this duty may be peaceably
performed, is the judicial department. It is authorized to
decide all cases of every description, arising under the
constitution or laws of the United States. From this general
grant of jurisdiction, no exception is made of those cases in
which a State may be a party. When we consider the situation of
the government of the Union and of a State, in relation to each
other; the nature of our constitution; the subordination of the
State governments to that constitution; the great purpose for
which jurisdiction over all cases arising under the constitution
and laws of the United States, is confided to the judicial
department; are we at liberty to insert in this general grant,
an exception of those cases in which a State may be a
[19 U.S. 264, 383]
party? Will the spirit of the constitution justify
this attempt to control its words? We think it will not. We
think a case arising under the constitution or laws of the
United States, is cognizable in the Courts of the Union, whoever
may be the parties to that case.
Had any doubt existed with respect to the
just construction of this part of the section, that doubt would
have been removed by the enumeration of those cases to which the
jurisdiction of the federal Courts is extended, in consequence
of the character of the parties. In that enumeration, we find
'controversies between two or more States, between a State and
citizens of another State,' 'and between a State and foreign
States, citizens, or subjects.'
On of the express objects, then, for which
the judicial department was established, is the decision of
controversies between States, and between a State and
individuals. The mere circumstance, that a State is a party,
gives jurisdiction to the Court. How, then, can it be contended,
that the very same instrument, in the very same section, should
be so construed, as that this same circumstance should withdraw
a case from the jurisdiction of the Court, where the
constitution or laws of the United States are supposed to have
been violated? The constitution gave to every person having a
claim upon a State, a right to submit his case to the Court of
the nation. However unimportant his claim might be, however
little the community might be interested in its decision, the
framers of our constitution thought it necessary for the
purposes of justice, to provide a
[19 U.S. 264, 384]
tribunal as superior to influence as possible, in
which that claim might be decided. Can it be imagined, that the
same persons considered a case involving the constitution of our
country and the majesty of the laws, questions in which every
American citizen must be deeply interested, as withdrawn from
this tribunal, because a State is a party?
While weighing arguments drawn from the
nature of government, and from the general spirit of an
instrument, and urged for the purpose of narrowing the
construction which the words of that instrument seem to require,
it is proper to place in the opposite scale those principles,
drawn from the same sources, which go to sustain the words in
their full operation and natural import. One of these, which has
been pressed with great force by the counsel for the plaintiffs
in error, is, that the judicial power of every well constituted
government must be co-extensive with the legislative, and must
be capable of deciding every judicial question which grows out
of the constitution and laws.
If any proposition may be considered as a
political axiom, this, we think, may be so considered. In
reasoning upon it as an abstract question, there would,
probably, exist no contrariety of opinion respecting it. Every
argument, proving the necessity of the department, proves also
the propriety of giving this extent to it. We do not mean to
say, that the jurisdiction of the Courts of the Union should be
construed to be co- extensive with the legislative, merely
because it is fit that it should be so; but we mean to say, that
this fitness furnishes an argument
[19 U.S. 264, 385]
in construing the constitution which ought never to
be overlooked, and which is most especially entitled to
consideration, when we are inquiring, whether the words of the
instrument which purport to establish this principle, shall be
contracted for the purpose of destroying it.
The mischievous consequences of the
construction contended for on the part of Virginia, are also
entitled to great consideration. It would prostrate, it has been
said, the government and its laws at the feet of every State in
the Union. And would not this be its effect? What power of the
government could be executed by its own means, in any State
disposed to resist its execution by a course of legislation? The
laws must be executed by individuals acting within the several
States. If these individuals may be exposed to penalties, and if
the Courts of the Union cannot correct the judgments by which
these penalties may be enforced, the course of the government
may be, at any time, arrested by the will of one of its members.
Each member will possess a veto on the will of the whole.
The answer which has been given to this
argument, does not deny its truth, but insists that confidence
is reposed, and may be safely reposed, in the State
institutions; and that, if they shall ever become so insane or
so wicked as to seek the destruction of the government, they may
accomplish their object by refusing to perform the functions
assigned to them.
We readily concur with the counsel for the
defendant, [19
U.S. 264, 386] in the declaration, that the cases
which have been put of direct legislative resistance for the
purpose of opposing the acknowledged powers of the government,
are extreme cases, and in the hope, that they will never occur;
but we cannot help believing, that a general conviction of the
total incapacity of the government to protect itself and its
laws in such cases, would contribute in no inconsiderable degree
to their occurrence.
Let it be admitted, that the cases which have
been put are extreme and improbable, yet there are gradations of
opposition to the laws, far short to those cases, which might
have a baneful influence on the affairs of the nation. Different
States may entertain different opinions on the true construction
of the constitutional powers of Congress. We know, that at one
time, the assumption of the debts contracted by the several
States, during the war of our revolution, was deemed
unconstitutional by some of them. We know, too, that at other
times, certain taxes, imposed by Congress, have been pronounced
unconstitutional. Other laws have been questioned partially,
while they were supported by the great majority of the American
people. We have no assurance that we shall be less divided than
we have been. States may legislate in conformity to their
opinions, and may enforce those opinions by penalties. It would
be hazarding too much to assert, that the judicatures of the
States will be exempt from the prejudices by which the
legislatures and people are influenced, and will constitute
perfectly impartial tribunals. In many States the judges are
dependent for office and
[19 U.S. 264, 387] for salary on the
will of the legislature. The constitution of the United States
furnishes no security against the universal adoption of this
principle. When we observe the importance which that
constitution attaches to the independence of judges, we are the
less inclined to suppose that it can have intended to leave
these constitutional questions to tribunals where this
independence may not exist, in all cases where a State shall
prosecute an individual who claims the protection of an act of
Congress. These prosecutions may take place even without a
legislative act. A person making a seizure under an act of
Congress, may be indicted as a trespasser, if force has been
employed, and of this a jury may judge. How extensive may be the
mischief if the first decisions in such cases should be final!
These collisions may take place in times of
no extraordinary commotion. But a constitution is framed for
ages to come, and is designed to approach immortality as nearly
as human institutions can approach it. Its course cannot always
be tranquil. It is exposed to storms and tempests, and its
framers must be unwise statesmen indeed, if they have not
provided it, as far as its nature will permit, with the means of
self-preservation from the perils it may be destined to
encounter. No government ought to be so defective in its
organization, as not to contain within itself the means of
securing the execution of its own laws against other dangers
than those which occur every day. Courts of justice are the
means most usually employed; and it is reasonable to expect that
a government should repose on its
[19 U.S. 264, 388]
own Courts, rather than on others. There is
certainly nothing in the circumstances under which our
constitution was formed; nothing in the history of the times,
which would justify the opinion that the confidence reposed in
the States was so implicit as to leave in them and their
tribunals the power of resisting or defeating, in the form of
law, the legitimate measures of the Union. The requisitions of
Congress, under the confederation, were as constitutionally
obligatory as the laws enacted by the present Congress. That
they were habitually disregarded, is a fact of universal
notoriety. With the knowledge of this fact, and under its full
pressure, a convention was assembled to change the system. Is it
so improbable that they should confer on the judicial department
the power of construing the constitution and laws of the Union
in every case, in the last resort, and of preserving them from
all violation from every quarter, so far as judicial decisions
can preserve them, that this improbability should essentially
affect the construction of the new system? We are told, and we
are truly told, that the great change which is to give efficacy
to the present system, is its ability to act on individuals
directly, instead of acting through the instrumentality of State
governments. But, ought not this ability, in reason and sound
policy, to be applied directly to the protection of individuals
employed in the execution of the laws, as well as to their
coercion. Your laws reach the individual without the aid of any
other power; why may they not protect him from punishment for
performing his duty in executing them?
[19 U.S. 264, 389]
The counsel for Virginia endeavor to obviate the
force of these arguments by saying, that the dangers they
suggest, if not imaginary, are inevitable; that the constitution
can make no provision against them; and that, therefore, in
construing that instrument, they ought to be excluded from our
consideration. This state of things, they say, cannot arise
until there shall be a disposition so hostile to the present
political system as to produce a determination to destroy it;
and, when that determination shall be produced, its effects will
not be restrained by parchment stipulations. The fate of the
constitution will not then depend on judicial decisions. But,
should no appeal be made to force, the States can put an end to
the government by refusing to act. They have only not to elect
Senators, and it expires without a struggle.
It is very true that, whenever hostility to
the existing system shall become universal, it will be also
irresistible. The people made the constitution, and the people
can unmake it. It is the creature of their will, and lives only
by their will. But this supreme and irresistible power to make
or to unmake, resides only in the whole body of the people; not
in any sub-division of them. The attempt of any of the parts to
exercise it is usurpation, and ought to be repelled by those to
whom the people have delegated their power of repelling it.
The acknowledged inability of the government,
then, to sustain itself against the public will, and, by force
or otherwise, to control the whole nation, is no sound argument
in support of its constitutional
[19 U.S. 264, 390] inability to
preserve itself against a section of the nation acting in
opposition to the general will.
It is true, that if all the States, or a
majority of them, refuse to elect Senators, the legislative
powers of the Union will be suspended. But if any one State
shall refuse to elect them, the Senate will not, on that
account, be the less capable of performing all its functions.
The argument founded on this fact would seem rather to prove the
subordination of the parts to the whole, than the complete
independence of any one of them. The framers of the constitution
were, indeed, unable to make any provisions which should protect
that instrument against a general combination of the States, or
of the people, for its destruction; and, conscious of this
inability, they have not made the attempt. But they were able to
provide against the operation of measures adopted in any one
State, whose tendency might be to arrest the execution of the
laws, and this it was the part of true wisdom to attempt. We
think they have attempted it.
It has been also urged, as an additional
objection to the jurisdiction of the Court, that cases between a
State and one of its own citizens, do not come within the
general scope of the constitution; and were obviously never
intended to be made cognizable in the federal Courts. The State
tribunals might be suspected of partiality in cases between
itself or its citizens and aliens, or the citizens of another
State, but not in proceedings by a State against its own
citizens. That jealousy which might exist in the first case,
could not exist in the last, and therefore the judicial power is
not extended to the last.
[19 U.S. 264, 391] This is very true,
so far as jurisdiction depends on the character of the parties;
and the argument would have great force if urged to prove that
this Court could not establish the demand of a citizen upon his
State, but is not entitled to the same force when urged to prove
that this Court cannot inquire whether the constitution or laws
of the United States protect a citizen from a prosecution
instituted against him by a State. If jurisdiction depended
entirely on the character of the parties, and was not given
where the parties have not an original right to come into Court,
that part of the 2d section of the 3d article, which extends the
judicial power to all cases arising under the constitution and
laws of the United States, would be mere surplusage. It is to
give jurisdiction where the character of the parties would not
give it, that this very important part of the clause was
inserted. It may be true, that the partiality of the State
tribunals, in ordinary controversies between a State and its
citizens, was not apprehended, and therefore the judicial power
of the Union was not extended to such cases; but this was not
the sole nor the greatest object for which this department was
created. A more important, a much more interesting object, was
the preservation of the constitution and laws of the United
States, so far as they can be preserved by judicial authority;
and therefore the jurisdiction of the Courts of the Union was
expressly extended to all cases arising under that constitution
and those laws. If the constitution or laws may be violated by
proceedings [19
U.S. 264, 392] instituted by a State against its
own citizens, and if that violation may be such as essentially
to affect the constitution and the laws, such as to arrest the
progress of government in its constitutional course, why should
these cases be excepted from that provision which expressly
extends the judicial power of the Union to all cases arising
under the constitution and laws?
After bestowing on this subject the most
attentive consideration, the Court can perceive no reason
founded on the character of the parties for introducing an
exception which the constitution has not made; and we think that
the judicial power, as originally given, extends to all cases
arising under the constitution or a law of the United States,
whoever may be the parties.
It has been also contended, that this
jurisdiction, if given, is original, and cannot be exercised in
the appellate form.
The words of the constitution are, 'in all
cases affecting ambassadors, other public ministers, and
consuls, and those in which a State shall be a party, the
Supreme Court shall have original jurisdiction. In all the other
cases before mentioned, the Supreme Court shall have appellate
jurisdiction.'
This distinction between original and
appellate jurisdiction, excludes, we are told, in all cases, the
exercise of the one where the other is given.
The constitution gives the Supreme Court
original jurisdiction in certain enumerated cases, and gives it
appellate jurisdiction in all others. Among those in which
jurisdiction must be exercised in the appellate
[19 U.S. 264, 393]
form, are cases arising under the constitution and
laws of the United States. These provisions of the constitution
are equally obligatory, and are to be equally respected. If a
State be a party, the jurisdiction of this Court is original; if
the case arise under a constitution or a law, the jurisdiction
is appellate. But a case to which a State is a party may arise
under the constitution or a law of the United States. What rule
is applicable to such a case? What, then, becomes the duty of
the Court? Certainly, we think, so to construe the constitution
as to give effect to both provisions, as far as it is possible
to reconcile them, and not to permit their seeming repugnancy to
destroy each other. We must endeavor so to construe them as to
preserve the true intent and meaning of the instrument.
In one description of cases, the jurisdiction
of the Court is founded entirely on the character of the
parties; and the nature of the controversy is not contemplated
by the constitution. The character of the parties is every
thing, the nature of the case nothing. In the other description
of cases, the jurisdiction is founded entirely on the character
of the case, and the parties are not contemplated by the
constitution. In these, the nature of the case is every thing,
the character of the parties nothing. When, then, the
constitution declares the jurisdiction, in cases where a State
shall be a party, to be original, and in all cases arising under
the constitution or a law, to be appellate- the conclusion seems
irresistible, that its framers designed to include in the first
class [19 U.S.
264, 394] those cases in which jurisdiction is
given, because a State is a party; and to include in the second,
those in which jurisdiction is given, because the case arises
under the constitution or a law.
This reasonable construction is rendered
necessary by other considerations.
That the constitution or a law of the United
States, is involved in a case, and makes a part of it, may
appear in the progress of a cause, in which the Courts of the
Union, but for that circumstance, would have no jurisdiction,
and which of consequence could not originate in the Supreme
Court. In such a case, the jurisdiction can be exercised only in
its appellate form. To deny its exercise in this form is to deny
its existence, and would be to construe a clause, dividing the
power of the Supreme Court, in such manner, as in a considerable
degree to defeat the power itself. All must perceive, that this
construction can be justified only where it is absolutely
necessary. We do not think the article under consideration
presents that necessity.
It is observable, that in this distributive
clause, no negative words are introduced. This observation is
not made for the purpose of contending, that the legislature may
'apportion the judicial power between the Supreme and inferior
Courts according to its will.' That would be, as was said by
this Court in the case of Marbury v. Madison, to render the
distributive clause 'mere surplusage,' to make it 'form without
substance.' This cannot, therefore, be the true construction of
the article. [19
U.S. 264, 395] But although the absence of negative
words will not authorize the legislature to disregard the
distribution of the power previously granted, their absence will
justify a sound construction of the whole article, so as to give
every part its intended effect. It is admitted, that
'affirmative words are often, in their operation, negative of
other objects than those affirmed;' and that where 'a negative
or exclusive sense must be given to them, or they have no
operation at all,' they must receive that negative or exclusive
sense. But where they have full operation without it; where it
would destroy some of the most important objects for which the
power was created; then, we think, affirmative words ought not
to be construed negatively.
The constitution declares, that in cases
where a State is a party, the Supreme Court shall have original
jurisdiction; but does not say that its appellate jurisdiction
shall not be exercised in cases where, from their nature,
appellate jurisdiction is given, whether a State be or be not a
party. It may be conceded, that where the case is of such a
nature as to admit of its originating in the Supreme Court, it
ought to originate there; but where, from its nature, it cannot
originate in that Court, these words ought not to be so
construed as to require it. There are many cases in which it
would be found extremely difficult, and subversive of the spirit
of the constitution, to maintain the construction, that
appellate jurisdiction cannot be exercised where one of the
parties might sue or be sued in this Court.
The constitution defines the jurisdiction of
the [19 U.S. 264,
396] Supreme Court, but does not define that of the
inferior Courts. Can it be affirmed, that a State might not sue
the citizen of another State in a Circuit Court? Should the
Circuit Court decide for or against its jurisdiction, should it
dismiss the suit, or give judgment against the State, might not
its decision be revised in the Supreme Court? The argument is,
that it could not; and the very clause which is urged to prove,
that the Circuit Court could give no judgment in the case, is
also urged to prove, that its judgment is irreversible. A
supervising Court, whose peculiar province it is to correct the
errors of an inferior Court, has no power to correct a judgment
given without jurisdiction, because, in the same case, that
supervising Court has original jurisdiction. Had negative words
been employed, it would be difficult to give them this
construction if they would admit of any other. But, without
negative words, this irrational construction can never be
maintained.
So, too, in the same clause, the jurisdiction
of the Court is declared to be original, 'in cases affecting
ambassadors, other public ministers, and consuls.' There is,
perhaps, no part of the article under consideration so much
required by national policy as this; unless it be that part
which extends the judicial power 'to all cases arising under the
constitution, laws, and treaties of the United States.' It has
been generally held, that the State Courts have a concurrent
jurisdiction with the federal Courts, in cases to which the
judicial power is extended, unless the jurisdiction of the
federal Courts be rendered exclusive
[19 U.S. 264, 397]
by the words of the third article. If the words,
'to all cases,' give exclusive jurisdiction in eases affecting
foreign ministers, they may also give exclusive jurisdiction, if
such be the will of Congress, in cases arising under the
constitution, laws, and treaties of the United States. Now,
suppose an individual were to sue a foreign minister in a State
Court, and that Court were to maintain its jurisdiction, and
render judgment against the minister, could it be contended,
that this Court would be incapable of revising such judgment,
because the constitution had given it original jurisdiction in
the case? If this could be maintained, then a clause inserted
for the purpose of excluding the jurisdiction of all other
Courts than this, in a particular case, would have the effect of
excluding the jurisdiction of this Court in that very case, if
the suit were to be brought in another Court, and that Court
were to assert jurisdiction. This tribunal, according to the
argument which has been urged, could neither revise the judgment
of such other Court, nor suspend its proceedings: for a writ of
prohibition, or any other similar writ, is in the nature of
appellate process.
Foreign consuls frequently assert, in our
Prize Courts, the claims of their fellow subjects. These suits
are maintained by them as consuls. The appellate power of this
Court has been frequently exercised in such cases, and has never
been questioned. It would be extremely mischievous to withhold
its exercise. Yet the consul is a party on the record. The truth
is, that where the words confer only appellate jurisdiction,
original jurisdiction is most
[19 U.S. 264, 398] clearly not given;
but where the words admit of appellate jurisdiction, the power
to take cognizance of the suit originally, does not necessarily
negative the power to decide upon it on an appeal, if it may
originate in a different Court.
It is, we think, apparent, that to give this
distributive clause the interpretation contended for, to give to
its affirmative words a negative operation, in every possible
case, would, in some instances, defeat the obvious intention of
the article. Such an interpretation would not consist with those
rules which, from time immemorial, have guided Courts, in their
construction of instruments brought under their consideration.
It must, therefore, be discarded. Every part of the article must
be taken into view, and that construction adopted which will
consist with its words, and promote its general intention. The
Court may imply a negative from affirmative words, where the
implication promotes, not where it defeats the intention.
If we apply this principle, the correctness
of which we believe will not be controverted, to the
distributive clause under consideration, the result, we think,
would be this: the original jurisdiction of the Supreme Court,
in cases where a State is a party, refers to those cases in
which, according to the grant of power made in the preceding
clause, jurisdiction might be exercised in consequence of the
character of the party, and an original suit might be instituted
in any of the federal Courts; not to those cases in which an
original suit might not be
[19 U.S. 264, 399] instituted in a
federal Court. Of the last description, is every case between a
State and its citizens, and, perhaps, every case in which a
State is enforcing its penal laws. In such cases, therefore, the
Supreme Court cannot take original jurisdiction. In every other
case, that is, in every case to which the judicial power
extends, and in which original jurisdiction is not expressly
given, that judicial power shall be exercised in the appellate,
and only in the appellate form. The original jurisdiction of
this Court cannot be enlarged, but its appellate jurisdiction
may be exercised in every case cognizable under the third
article of the constitution, in the federal Courts, in which
original jurisdiction cannot be exercised; and the extent of
this judicial power is to be measured, not by giving the
affirmative words of the distributive clause a negative
operation in every possible case, but by giving their true
meaning to the words which define its extent.
The counsel for the defendant in error urge,
in opposition to this rule of construction, some dicta of the
Court, in the case of Marbury v. Madison.
It is a maxim not to be disregarded, that
general expressions, in every opinion, are to be taken in
connection with the case in which those expressions are used. If
they go beyond the case, they may be respected, but ought not to
control the judgment in a subsequent suit when the very point is
presented for decision. The reason of this maxim is obvious. The
question actually before the Court is investigated with care,
and considered in its full extent. Other principles which may
serve to illustrate it, are considered
[19 U.S. 264, 400]
in their relation to the case decided, but their
possible bearing on all other cases is seldom completely
investigated.
In the case of Marbury v. Madison, the single
question before the Court, so far as that case can be applied to
this, was, whether the legislature could give this Court
original jurisdiction in a case in which the constitution had
clearly not given it, and in which no doubt respecting the
construction of the article could possibly be raised. The Court
decided, and we think very properly, that the legislature could
not give original jurisdiction in such a case. But, in the
reasoning of the Court in support of this decision, some
expressions are used which go far beyond it. The counsel for
Marbury had insisted on the unlimited discretion of the
legislature in the apportionment of the judicial power; and it
is against this argument that the reasoning of the Court is
directed. They say that, if such had been the intention of the
article, 'it would certainly have been useless to proceed
farther than to define the judicial power, and the tribunals in
which it should be vested.' The Court says, that such a
construction would render the clause, dividing the jurisdiction
of the Court into original and appellate, totally useless; that
'affirmative words are often, in their operation, negative of
other objects than those which are affirmed; and, in this case,
(in the case of Marbury v. Madison,) a negative or exclusive
sense must be given to them, or they have no operation at all.'
'It cannot be presumed,' adds the Court, 'that any clause in the
constitution is intended to be without
[19 U.S. 264, 401]
effect; and, therefore, such a construction is
inadmissible, unless the words require it.'
The whole reasoning of the Court proceeds
upon the idea that the affirmative words of the clause giving
one sort of jurisdiction, must imply a negative of any other
sort of jurisdiction, because otherwise the words would be
totally inoperative, and this reasoning is advanced in a case to
which it was strictly applicable. If in that case original
jurisdiction could have been exercised, the clause under
consideration would have been entirely useless. Having such
cases only in its view, the Court lays down a principle which is
generally correct, in terms much broader than the decision, and
not only much broader than the reasoning with which that
decision is supported, but in some instances contradictory to
its principle. The reasoning sustains the negative operation of
the words in that case, because otherwise the clause would have
no meaning whatever, and because such operation was necessary to
give effect to the intention of the article. The effort now made
is, to apply the conclusion to which the Court was conducted by
that reasoning in the particular case, to one in which the words
have their full operation when understood affirmatively, and in
which the negative, or exclusive sense, is to be so used as to
defeat some of the great objects of the article.
To this construction the Court cannot give
its assent. The general expressions in the case of Marbury v.
Madison must be understood with the limitations which are given
to them in this opinion; limitations
[19 U.S. 264, 402]
which in no degree affect the decision in that
case, or the tenor of its reasoning.
The counsel who closed the argument, put
several cases for the purpose of illustration, which he supposed
to arise under the constitution, and yet to be, apparently,
without the jurisdiction of the Court.
Were a State to lay a duty on exports, to
collect the money and place it in her treasury, could the
citizen two paid it, he asks, maintain a suit in this Court
against such State, to recover back the money?
Perhaps not. Without, however, deciding such
supposed case, we may say, that it is entirely unlike that under
consideration.
The citizen who has paid his money to his
State, under a law that is void, is in the same situation with
every other person who has paid money by mistake. The law raises
an assumpsit to return the money, and it is upon that assumpsit
that the action is to be maintained. To refuse to comply with
this assumpsit may be no more a violation of the constitution,
than to refuse to comply with any other; and as the federal
Courts never had jurisdiction over contracts between a State and
its citizens, they may have none over this. But let us so vary
the supposed case, as to give it a real resemblance to that
under consideration. Suppose a citizen to refuse to pay this
export duty, and a suit to be instituted for the purpose of
compelling him to pay it. He pleads the constitution of the
United States in bar of the action, notwithstanding which the
Court gives judgment against him. This would be a case arising
under [19 U.S.
264, 403] the constitution, and would be the very
case now before the Court.
We are also asked, if a State should
confiscate property secured by a treaty, whether the individual
could maintain an action for that property?
If the property confiscated be debts, our own
experience informs us that the remedy of the creditor against
his debtor remains. If it be land, which is secured by a treaty,
and afterwards confiscated by a State, the argument does not
assume that this title, thus secured, could be extinguished by
an act of confiscation. The injured party, therefore, has his
remedy against the occupant of the land for that which the
treaty secures to him, not against the State for money which is
not secured to him.
The case of a State which pays off its own
debts with paper money, no more resembles this than do those to
which we have already adverted. The Courts have no jurisdiction
over the contract. They cannot enforce it, nor judge of its
violation. Let it be that the act discharging the debt is a mere
nullity and that it is still due. Yet the federal Courts have no
cognizance of the case. But suppose a State to institute
proceedings against an individual, which depended on the
validity of an act emitting bills of credit: suppose a State to
prosecute one of its citizens for refusing paper money, who
should plead the constitution in bar of such prosecution. If his
plea should be overruled, and judgment rendered against him, his
case would resemble this; and, unless the jurisdiction of this
Court might be exercised over it, the constitution would
[19 U.S. 264, 404]
be violated, and the injured party be unable to
bring his case before that tribunal to which the people of the
United States have assigned all such cases.
It is most true that this Court will not take
jurisdiction if it should not: but it is equally true, that it
must take jurisdiction if it should. The judiciary cannot, as
the legislature may, avoid a measure because it approaches the
confines of the constitution. We cannot pass it by because it is
doubtful. With whatever doubts, with whatever difficulties, a
case may be attended, we must decide it, if it be brought before
us. We have no more right to decline the exercise of
jurisdiction which is given, than to usurp that which is not
given. The one or the other would be treason to the
constitution. Questions may occur which we would gladly avoid;
but we cannot avoid them. All we can do is, to exercise our best
judgment, and conscientiously to perform our duty. In doing
this, on the present occasion, we find this tribunal invested
with appellate jurisdiction in all cases arising under the
constitution and laws of the United States. We find no exception
to this grant, and we cannot insert one.
To escape the operation of these
comprehensive words, the counsel for the defendant has mentioned
instances in which the constitution might be violated without
giving jurisdiction to this Court. These words, therefore,
however universal in their expression, must, he contends, be
limited and controlled in their construction by circumstances.
One of these instances is, the grant by a State of a patent of
nobility. The Court, he says, cannot annul this grant.
[19 U.S. 264, 405]
This may be very true; but by no means justifies
the inference drawn from it. The article does not extend the
judicial power to every violation of the constitution which may
possibly take place, but to 'a case in law or equity,' in which
a right, under such law, is asserted in a Court of justice. If
the question cannot be brought into a Court, then there is no
case in law or equity, and no jurisdiction is given by the words
of the article. But if, in any controversy depending in a Court,
the cause should depend on the validity of such a law, that
would be a case arising under the constitution, to which the
judicial power of the United States would extend. The same
observation applies to the other instances with which the
counsel who opened the cause has illustrated this argument.
Although they show that there may be violations of the
constitution, of which the Courts can take no cognizance, they
do not show that an interpretation more restrictive than the
words themselves import ought to be given to this article. They
do not show that there can be 'a case in law or equity,' arising
under the constitution, to which the judicial power does not
extend.
We think, then, that, as the constitution
originally stood, the appellate jurisdiction of this Court, in
all cases arising under the constitution, laws, or treaties of
the United States, was not arrested by the circumstance that a
State was a party.
This leads to a consideration of the 11th
amendment.
It is in these words: 'The judicial power of
the United States shall not be construed to extend to any
[19 U.S. 264, 406]
suit in law or equity commenced or prosecuted
against one of the United States, by citizens of another State,
or by citizens or subjects of any foreign State.'
It is a part of our history, that, at the
adoption of the constitution, all the States were greatly
indebted; and the apprehension that these debts might be
prosecuted in the federal Courts, formed a very serious
objection to that instrument. Suits were instituted; and the
Court maintained its jurisdiction. The alarm was general; and,
to quiet the apprehensions that were so extensively entertained,
this amendment was proposed in Congress, and adopted by the
State legislatures. That its motive was not to maintain the
sovereignty of a State from the degradation supposed to attend a
compulsory appearance before the tribunal of the nation, may be
inferred from the terms of the amendment. It does not comprehend
controversies between two or more States, or between a State and
a foreign State. The jurisdiction of the Court still extends to
these cases: and in these a State may still be sued. We must
ascribe the amendment, then, to some other cause than the
dignity of a State. There is no difficulty in finding this
cause. Those who were inhibited from commencing a suit against a
State, or from prosecuting one which might be commenced before
the adoption of the amendment, were persons who might probably
be its creditors. There was not much reason to fear that foreign
or sister States would be creditors to any considerable amount,
and there was reason to retain the jurisdiction of the Court in
those [19 U.S.
264, 407] cases, because it might be essential to
the preservation of peace. The amendment, therefore, extended to
suits commenced or prosecuted by individuals, but not to those
brought by States.
The first impression made on the mind by this
amendment is, that it was intended for those cases, and for
those only, in which some demand against a State is made by an
individual in the Courts of the Union. If we consider the causes
to which it is to be traced, we are conducted to the same
conclusion. A general interest might well be felt in leaving to
a State the full power of consulting its convenience in the
adjustment of its debts, or of other claims upon it; but no
interest could be felt in so changing the relations between the
whole and its parts, as to strip the government of the means of
protecting, by the instrumentality of its Courts, the
constitution and laws from active violation.
The words of the amendment appear to the
Court to justify and require this construction. The judicial
power is not 'to extend to any suit in law or equity commenced
or prosecuted against one of the United States by citizens of
another State, &c.'
What is a suit? We understand it to be the
prosecution, or pursuit, of some claim, demand, or request. In
law language, it is the prosecution of some demand in a Court of
justice. The remedy for every species of wrong is, says Judge
Blackstone, 'the being put in possession of that right whereof
the party injured is deprived.' 'The instruments whereby this
remedy is obtained, are a diversity of suits and actions, which
are defined by the
[19 U.S. 264, 408] Mirror to be 'the
lawful demand of one's right.' Or, as Bracton and Fleta express
it, in the words of Justinian, 'jus prosequendi in judicio quod
alicui debetur.' Blackstone then proceeds to describe every
species of remedy by suit; and they are all cases were the party
suing claims to obtain something to which he has a right.
To commence a suit, is to demand something by
the institution of process in a Court of justice; and to
prosecute the suit, is, according to the common acceptation of
language, to continue that demand. By a suit commenced by an
individual against a State, we should understand process sued
out by that individual against the State, for the purpose of
establishing some claim against it by the judgment of a Court;
and the prosecution of that suit is its continuance. Whatever
may be the stages of its progress, the actor is still the same.
Suits had been commenced in the Supreme Court against some of
the States before this amendment was introduced into Congress,
and others might be commenced before it should be adopted by the
State legislatures, and might be depending at the time of its
adoption. The object of the amendment was not only to prevent
the commencement of future suits, but to arrest the prosecution
of those which might be commenced when this article should form
a part of the constitution. It therefore embraces both objects;
and its meaning is, that the judicial power shall not be
construed to extend to any suit which may be commenced, or
which, if already commenced, may be
[19 U.S. 264, 409]
prosecuted against a State by the citizen of
another State. If a suit, brought in one Court, and carried by
legal process to a supervising Court, be a continuation of the
same suit, then this suit is not commenced nor prosecuted
against a State. It is clearly in its commencement the suit of a
State against an individual, which suit is transferred to this
Court, not for the purpose of asserting any claim against the
State, but for the purpose of asserting a constitutional defence
against a claim made by a State.
A writ of error is defined to be, a
commission by which the judges of one Court are authorized to
examine a record upon which a judgment was given in another
Court, and, on such examination, to affirm or reverse the same
according to law. If, says my Lord Coke, by the writ of error,
the plaintiff may recover, or be restored to any thing, it may
be released by the name of an action. In Bacon's Abridgment,
tit. Error, L. it is laid down, that 'where by a writ of error,
the plaintiff shall recover, or be restored to any personal
thing, as debt, damage, or the like, a release of all actions
personal is a good plea; and when land is to be recovered or
restored in a writ of error, a release of actions real is a good
bar; but where by a writ of error the plaintiff shall not be
restored to any personal or real thing, a release of all
actions, real or personal, is no bar.' And for this we have the
authority of Lord Coke, both in his Commentary on Littleton and
in his Reports. A writ of error, then, is in the nature of a
suit or action when it is to restore the party who obtains it to
the possession of any thing which is withheld
[19 U.S. 264, 410]
from him, not when its operation is entirely
defensive.
This rule will apply to writs of error from
the Courts of the United States, as well as to those writs in
England.
Under the judiciary act, the effect of a writ
of error is simply to bring the record into Court, and submit
the judgment of the inferior tribunal to re-examination. It does
not in any manner act upon the parties; it acts only on the
record. It removes the record into the supervising tribunal.
Where, then, a State obtains a judgment against an individual,
and the Court, rendering such judgment, overrules a defence set
up under the constitution or laws of the United States, the
transfer of this record into the Supreme Court, for the sole
purpose of inquiring whether the judgment violates the
constitution or laws of the United States, can, with no
propriety, we think, be denominated a suit commenced or
prosecuted against the State whose judgment is so far
re-examined. Nothing is demanded from the State. No claim
against it of any description is asserted or prosecuted. The
party is not to be restored to the possession of any thing.
Essentially, it is an appeal on a single point; and the
defendant who appeals from a judgment rendered against him, is
never said to commence or prosecute a suit against the plaintiff
who has obtained the judgment. The writ of error is given rather
than an appeal, because it is the more usual mode of removing
suits at common law; and because, perhaps, it is more
technically proper where a single point of law, and not the
whole case, is to
[19 U.S. 264, 411] be re-examined. But an appeal
might be given, and might be so regulated as to effect every
purpose of a writ of error. The mode of removal is form, and not
substance. Whether it be by writ of error or appeal, no claim is
asserted, no demand is made by the original defendant; he only
asserts the constitutional right to have his defence examined by
that tribunal whose province it is to construe the constitution
and laws of the Union.
The only part of the proceeding which is in
any manner personal, is the citation. And what is the citation?
It is simply notice to the opposite party that the record is
transferred into another Court, where he may appear, or decline
to appear, as his judgment or inclination may determine. As the
party who has obtained a judgment is out of Court, and may,
therefore, not know that his cause is removed, common justice
requires that notice of the fact should be given him. But this
notice is not a suit, nor has it the effect of process. If the
party does not choose to appear, he cannot be brought into
Court, nor is his failure to appear considered as a default.
Judgment cannot be given against him for his nonappearance, but
the judgment is to be re-examined, and reversed or affirmed, in
like manner as if the party had appeared and argued his cause.
The point of view in which this writ of
error, with its citation, has been considered uniformly in the
Courts of the Union, has been well illustrated by a reference to
the course of this Court in suits instituted by the United
States. The universally received opinion is, that no suit can be
commenced [19 U.S.
264, 412] or prosecuted against the United States;
that the judiciary act does not authorize such suits. Yet writs
of error, accompanied with citations, have uniformly issued for
the removal of judgments in favour of the United States into a
superior Court, where they have, like those in favour of an
individual, been re-examined, and affirmed or reversed. It has
never been suggested, that such writ of error was a suit against
the United States, and, therefore, not within the jurisdiction
of the appellate Court.
It is, then, the opinion of the Court, that
the defendant who removes a judgment rendered against him by a
State Court into this Court, for the purpose of re-examining the
question, whether that judgment be in violation of the
constitution or laws of the United States, does not commence or
prosecute a suit against the State, whatever may be its opinion
where the effect of the writ may be to restore the party to the
possession of a thing which he demands.
But should we in this be mistaken, the error
does not affect the case now before the Court. If this writ of
error be a suit in the sense of the 11th amendment, it is not a
suit commenced or prosecuted 'by a citizen of another State, or
by a citizen or subject of any foreign State.' It is not then
within the amendment, but is governed entirely by the
constitution as originally framed, and we have already seen,
that in its origin, the judicial power was extended to all cases
arising under the constitution or laws of the United States,
without respect to parties.
[19 U.S. 264, 413] 2d. The second
objection to the jurisdiction of the Court is, that its
appellate power cannot be exercised, in any case, over the
judgment of a State Court.
This objection is sustained chiefly by
arguments drawn from the supposed total separation of the
judiciary of a State from that of the Union, and their entire
independence of each other. The argument considers the federal
judiciary as completely foreign to that of a State; and as being
no more connected with it in any respect whatever, than the
Court of a foreign State. If this hypothesis be just, the
argument founded on it is equally so; but if the hypothesis be
not supported by the constitution, the argument fails with it.
This hypothesis is not founded on any words
in the constitution, which might seem to countenance it, but on
the unreasonableness of giving a contrary construction to words
which seem to require it; and on the incompatibility of the
application of the appellate jurisdiction to the judgments of
State Courts, with that constitutional relation which subsists
between the government of the Union and the governments of those
States which compose it.
Let this unreasonableness, this total
incompatibility, be examined.
That the United States form, for many, and
for most important purposes, a single nation, has not yet been
denied. In war, we are one people. In making peace, we are one
people. In all commercial regulations, we are one and the same
people. In [19
U.S. 264, 414] many other respects, the American
people are one; and the government which is alone capable of
controlling and managing their interests in all these respects,
is the government of the Union. It is their government, and in
that character they have no other. America has chosen to be, in
many respects, and to many purposes, a nation; and for all these
purposes, her government is complete; to all these objects, it
is competent. The people have declared, that in the exercise of
all powers given for these objects, it is supreme. It can, then,
in effecting these objects, legitimately control all individuals
or governments within the American territory. The constitution
and laws of a State, so far as they are repugnant to the
constitution and laws of the United States, are absolutely void.
These States are constituent parts of the United States. They
are members of one great empire-for some purposes sovereign, for
some purposes subordinate.
In a government so constituted, is it
unreasonable that the judicial power should be competent to give
efficacy to the constitutional laws of the legislature? That
department can decide on the validity of the constitution or law
of a State, if it be repugnant to the constitution or to a law
of the United States. Is it unreasonable that it should also be
empowered to decide on the judgment of a State tribunal
enforcing such unconstitutional law? Is it so very unreasonable
as to furnish a justification for controlling the words of the
constitution?
We think it is not. We think that in a
government [19
U.S. 264, 415] acknowledgedly supreme, with respect
to objects of vital interest to the nation, there is nothing
inconsistent with sound reason, nothing incompatible with the
nature of government, in making all its departments supreme, so
far as respects those objects, and so far as is necessary to
their attainment. The exercise of the appellate power over those
judgments of the State tribunals which may contravene the
constitution or laws of the United States, is, we believe,
essential to the attainment of those objects.
The propriety of entrusting the construction
of the constitution, and laws made in pursuance thereof, to the
judiciary of the Union, has not, we believe, as yet, been drawn
into question. It seems to be a corollary from this political
axiom, that the federal Courts should either possess exclusive
jurisdiction in such cases, or a power to revise the judgment
rendered in them, by the State tribunals. If the federal and
State Courts have concurrent jurisdiction in all cases arising
under the constitution, laws, and treaties of the United States;
and if a case of this description brought in a State Court
cannot be removed before judgment, nor revised after judgment,
then the construction of the constitution, laws, and treaties of
the United States, is not confided particularly to their
judicial department, but is confided equally to that department
and to the State Courts, however they may be constituted.
'Thirteen independent Courts,' says a very celebrated statesman,
(and we have now more than twenty such Courts,) 'of final
jurisdiction over the same causes, arising upon the same laws,
is a hydra in government, from
[19 U.S. 264, 416] which nothing but
contradiction and confusion can proceed.'
Dismissing the unpleasant suggestion, that
any motives which may not be fairly avowed, or which ought not
to exist, can ever influence a State or its Courts, the
necessity of uniformity, as well as correctness in expounding
the constitution and laws of the United States, would itself
suggest the propriety of vesting in some single tribunal the
power of deciding, in the last resort, all cases in which they
are involved.
We are not restrained, then, by the political
relations between the general and State governments, from
construing the words of the constitution, defining the judicial
power, in their true sense. We are not bound to construe them
more restrictively than they naturally import.
They give to the Supreme Court appellate
jurisdiction in all cases arising under the constitution, laws,
and treaties of the United States. The words are broad enough to
comprehend all cases of this description, in whatever Court they
may be decided. In expounding them, we may be permitted to take
into view those considerations to which Courts have always
allowed great weight in the exposition of laws.
The framers of the constitution would
naturally examine the state of things existing at the time; and
their work sufficiently attests that they did so. All
acknowledge that they were convened for the purpose of
strengthening the confederation by enlarging the powers of the
government, and by giving efficacy
[19 U.S. 264, 417]
to those which it before possessed, but could not
exercise. They inform us themselves, in the instrument they
presented to the American public, that one of its objects was to
form a more perfect union. Under such circumstances, we
certainly should not expect to find, in that instrument, a
diminution of the powers of the actual government.
Previous to the adoption of the
confederation, Congress established Courts which received
appeals in prize causes decided in the Courts of the respective
States. This power of the government, to establish tribunals for
these appeals, was thought consistent with, and was founded on,
its political relations with the States. These Courts did
exercise appellate jurisdiction over those cases decided in the
State Courts, to which the judicial power of the federal
government extended.
The confederation gave to Congress the power
'of establishing Courts for receiving and determining finally
appeals in all cases of captures.'
This power was uniformly construed to
authorize those Courts to receive appeals from the sentences of
State Courts, and to affirm or reverse them. State tribunals are
not mentioned; but this clause in the confederation necessarily
comprises them. Yet the relation between the general and State
governments was much weaker, much more lax, under the
confederation than under the present constitution; and the
States being much more completely sovereign, their institutions
were much more independent.
The Convention which framed the constitution,
on [19 U.S. 264,
418] turning their attention to the judicial power,
found it limited to a few objects, but exercised, with respect
to some of those objects, in its appellate form, over the
judgments of the State Courts. They extend it, among other
objects, to all cases arising under the constitution, laws, and
treaties of the United States; and in a subsequent clause
declare, that in such cases, the Supreme Court shall exercise
appellate jurisdiction. Nothing seems to be given which would
justify the withdrawal of a judgment rendered in a State Court,
on the constitution, laws, or treaties of the United States,
from this appellate jurisdiction.
Great weight has always been attached, and
very rightly attached, to contemporaneous exposition. No
question, it is believed, has arisen to which this principle
applies more unequivocally than to that now under consideration.
The opinion of the Federalist has always been
considered as of great authority. It is a complete commentary on
our constitution; and is appealed to by all parties in the
questions to which that instrument has given birth. Its
intrinsic merit entitles it to this high rank; and the part two
of its authors performed in framing the constitution, put it
very much in their power to explain the views with which it was
framed. These essays having been published while the
constitution was before the nation for adoption or rejection,
and having been written in answer to objections founded entirely
on the extent of its powers, and on its diminution of State
sovereignty, are entitled to the more consideration where they
[19 U.S. 264, 419]
frankly avow that the power objected to is given,
and defend it.
In discussing the extent of the judicial
power, the Federalist says, 'Here another question occurs: what
relation would subsist between the national and State Courts in
these instances of concurrent jurisdiction? I answer, that an
appeal would certainly lie from the latter, to the Supreme Court
of the United States. The constitution in direct terms gives an
appellate jurisdiction to the Supreme Court in all the
enumerated cases of federal cognizance in which it is not to
have an original one, without a single expression to confine its
operation to the inferior federal Courts. The objects of appeal,
not the tribunals from which it is to be made, are alone
contemplated. From this circumstance, and from the reason of the
thing, it ought to be construed to extend to the State
tribunals. Either this must be the case, or the local Courts
must be excluded from a concurrent jurisdiction in matters of
national concern, else the judicial authority of the Union may
be eluded at the pleasure of every plaintiff or prosecutor.
Neither of these consequences ought, without evident necessity,
to be involved; the latter would be entirely inadmissible, as it
would defeat some of the most important and avowed purposes of
the proposed government, and would essentially embarrass its
measures. Nor do I perceive any foundation for such a
supposition. Agreeably to the remark already made, the national
and State systems are to be regarded as ONE WHOLE. The Courts of
the latter will of course be natural auxiliaries to the
execution [19 U.S.
264, 420] of the laws of the Union, and an appeal
from them will as naturally lie to that tribunal which is
destined to unite and assimilate the principles of natural
justice, and the rules of national decision. The evident aim of
the plan of the national convention is, that all the causes of
the specified classes shall, for weighty public reasons, receive
their original or final determination in the Courts of the
Union. To confine, therefore, the general expressions which give
appellate jurisdiction to the Supreme Court, to appeals from the
subordinate federal Courts, instead of allowing their extension
to the State Courts, would be to abridge the latitude of the
terms, in subversion of the intent, contrary to every sound rule
of interpretation.'
A contemporaneous exposition of the
constitution, certainly of not less authority than that which
has been just cited, is the judiciary act itself. We know that
in the Congress which passed that act were many eminent members
of the Convention which formed the constitution. Not a single
individual, so far as is known, supposed that part of the act
which gives the Supreme Court appellate jurisdiction over the
judgments of the State Courts in the cases therein specified, to
be unauthorized by the constitution.
While on this part of the argument, it may be
also material to observe that the uniform decisions of this
Court on the point now under consideration, have been assented
to, with a single exception, by the Courts of every State in the
Union whose judgments have been revised. It has been the
unwelcome [19 U.S.
264, 421] duty of this tribunal to reverse the
judgments of many State Courts in cases in which the strongest
State feelings were engaged. Judges, whose talents and character
would grace any bench, to whom a disposition to submit to
jurisdiction that is usurped, or to surrender their legitimate
powers, will certainly not be imputed, have yielded without
hesitation to the authority by which their judgments were
reversed, while they, perhaps, disapproved the judgment of
reversal.
This concurrence of statesmen, of
legislators, and of judges, in the same construction of the
constitution, may justly inspire some confidence in that
construction.
In opposition to it, the counsel who made
this point has presented in a great variety of forms, the idea
already noticed, that the federal and State Courts must, of
necessity, and from the nature of the constitution, be in all
things totally distinct and independent of each other. If this
Court can correct the errors of the Court of Virginia, he says
it makes them Courts of the United States, or becomes itself a
part of the judiciary of Virginia.
But, it has been already shown that neither
of these consequences necessarily follows: The American people
may certainly give to a national tribunal a supervising power
over those judgments of the State Courts, which may conflict
with the constitution, laws, or treaties, of the United States,
without converting them into federal Courts, or converting the
national into a State tribunal. The one Court
[19 U.S. 264, 422]
still derives its authority from the State, the
other still derives its authority from the nation.
If it shall be established, he says, that
this Court has appellate jurisdiction over the State Courts in
all cases enumerated in the 3d article of the constitution, a
complete consolidation of the States, so far as respects
judicial power is produced.
But, certainly, the mind of the gentleman who
urged this argument is too accurate not to perceive that he has
carried it too far; that the premises by no means justify the
conclusion. 'A complete consolidation of the States, so far as
respects the judicial power,' would authorize the legislature to
confer on the federal Courts appellate jurisdiction from the
State Courts in all cases whatsoever. The distinction between
such a power, and that of giving appellate jurisdiction in a few
specified cases in the decision of which the nation takes an
interest, is too obvious not to be perceived by all.
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