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Supreme Court of the United States
No. 24A884*
Trump, President of the United States, et al. v. CASA, Inc., et al.
On application for partial stay
June 27, 2025

Justice Jackson, dissenting.

I agree with every word of Justice Sotomayor’s dissent. I write separately to emphasize a key conceptual point: The Court’s decision to permit the Executive to violate the Constitution with respect to anyone who has not yet sued is an existential threat to the rule of law.

It is important to recognize that the Executive’s bid to vanquish so-called “universal injunctions” is, at bottom, a request for this Court’s permission to engage in unlawful behavior. When the Government says “do not allow the lower courts to enjoin executive action universally as a remedy for unconstitutional conduct,” what it is actually saying is that the Executive wants to continue doing something that a court has determined violates the Constitution—please allow this. That is some solicitation. With its ruling today, the majority largely grants the Government’s wish. But, in my view, if this country is going to persist as a Nation of laws and not men, the Judiciary has no choice but to deny it.

Stated simply, what it means to have a system of government that is bounded by law is that everyone is constrained by the law, no exceptions. And for that to actually happen, courts must have the power to order everyone (including the Executive) to follow the law—full stop. To conclude otherwise is to endorse the creation of a zone of lawlessness within which the Executive has the prerogative to take or leave the law as it wishes, and where individuals who would otherwise be entitled to the law’s protection become subject to the Executive’s whims instead.

The majority cannot deny that our Constitution was designed to split the powers of a monarch between the governing branches to protect the People. Nor is it debatable that the role of the Judiciary in our constitutional scheme is to ensure fidelity to law. But these core values are strangely absent from today’s decision. Focusing on inapt comparisons to impotent English tribunals, the majority ignores the Judiciary’s foundational duty to uphold the Constitution and laws of the United States. The majority’s ruling thus not only diverges from first principles, it is also profoundly dangerous, since it gives the Executive the go-ahead to sometimes wield the kind of unchecked, arbitrary power the Founders crafted our Constitution to eradicate. The very institution our founding charter charges with the duty to ensure universal adherence to the law now requires judges to shrug and turn their backs to intermittent lawlessness. With deep disillusionment, I dissent.

I

To hear the majority tell it, this suit raises a mind-numbingly technical query: Are universal injunctions “sufficiently ‘analogous’ to the relief issued ‘by the High Court of Chancery in England at the time of the adoption of the Constitution and the enactment of the original Judiciary Act’” to fall within the equitable authority Congress granted federal courts in the Judiciary Act of 1789? Ante, at 6. But that legalese is a smokescreen. It obscures a far more basic question of enormous legal and practical significance: May a federal court in the United States of America order the Executive to follow the law?

A

To ask this question is to answer it. In a constitutional Republic such as ours, a federal court has the power to order the Executive to follow the law—and it must. It is axiomatic that the Constitution of the United States and the statutes that the People’s representatives have enacted govern in our system of government. Thus, everyone, from the President on down, is bound by law. By duty and nature, federal courts say what the law is (if there is a genuine dispute), and require those who are subject to the law to conform their behavior to what the law requires. This is the essence of the rule of law.

Do not take my word for it. Venerated figures in our Nation’s history have repeatedly emphasized that “[t]he essence of our free Government is ‘leave to live by no man’s leave, underneath the law’—to be governed by those impersonal forces which we call law.” Youngstown Sheet & Tube Co. v. Sawyer, 343 U. S. 579, 654 (1952) (R. Jackson, J., concurring). “Our Government is fashioned to fulfill this concept so far as humanly possible.” Id., at 654–655. Put differently, the United States of America has “‘“a government of laws and not of men.”’” Cooper v. Aaron, 358 U. S. 1, 23 (1958) (Frankfurter, J., concurring) (quoting United States v. Mine Workers, 330 U. S. 258, 307 (1947) (Frankfurter, J., concurring in judgment)); see also, e.g., Mass. Const., pt. 1, Art. XXX (1780), in 3 Federal and State Constitutions 1893 (F. Thorpe ed. 1909) (J. Adams); Marbury v. Madison, 1 Cranch 137, 163 (1803) (Marshall, C. J., for the Court); United States v. Dickson, 15 Pet. 141, 162 (1841) (Story, J., for the Court).

That familiar adage is more than just mere “‘rhetorical flourish.’” Cooper, 358 U. S., at 23. It is “‘the rejection in positive terms of rule by fiat, whether by the fiat of governmental or private power.’” Ibid. Indeed, “constitutionalism has one essential quality: it is a legal limitation on government; it is the antithesis of arbitrary rule; its opposite is despotic government, the government of will instead of law.” C. McIlwain, Constitutionalism: Ancient and Modern 21–22 (rev. ed. 1947); see also id., at 21 (“All constitutional government is by definition limited government”).

Those who birthed our Nation limited the power of government to preserve freedom. As they knew all too well, “constant experience shows us that every man invested with power is apt to abuse it, and to carry his authority as far as it will go.” Montesquieu, The Spirit of Laws, in 38 Great Books of the Western World 69 (T. Nugent transl., R. Hutchins ed. 1952). But the Founders reasoned that the vice of human ambition could be channeled to prevent the country from devolving into despotism—ambition could be “made to counteract ambition.” The Federalist No. 51, p. 322 (C. Rossiter ed. 1961) (J. Madison). If there were, say, a Constitution that divided power across institutions “in such a manner as that each may be a check on the other,” then it could be possible to establish Government by and for the People and thus stave off autocracy. Ibid.; see also Myers v. United States, 272 U. S. 52, 293 (1926) (Brandeis, J., dissenting) (“The doctrine of the separation of powers was adopted by the Convention of 1787, not to promote efficiency but to preclude the exercise of arbitrary power”). Through such separated institutions, power checks power. See Montesquieu, The Spirit of Laws, at 69. Our system of institutional checks thus exists for a reason: so that “the private interest of every individual may be a sentinel over the public rights.” The Federalist No. 51, at 322.

B

The distribution of power between the Judiciary and the Executive is of particular importance to the operation of a society governed by law. Made up of “‘free, impartial, and independent’” judges and justices, the Judiciary checks the political branches of Government by explaining what the law is and “securing obedience” with it. Mine Workers, 330 U. S., at 308, 312 (opinion of Frankfurter, J.); see Marbury, 1 Cranch, at 177. The federal courts were thus established “not only to decide upon the controverted rights of the citizens as against each other, but also upon rights in controversy between them and the government.” United States v. Lee, 106 U. S. 196, 220 (1882).

Quite unlike a rule-of-kings governing system, in a rule-of-law regime, nearly “[e]very act of government may be challenged by an appeal to law.” Cooper, 358 U. S., at 23 (opinion of Frankfurter, J.). In this country, the Executive does not stand above or outside of the law. Consequently, when courts are called upon to adjudicate the lawfulness of the actions of the other branches of Government, the Judiciary plays “an essential part of the democratic process.” Mine Workers, 330 U. S., at 312. Were it otherwise—were courts unable or unwilling to command the Government to follow the law—they would “sanctio[n] a tyranny” that has no place in a country committed to “well-regulated liberty and the protection of personal rights.” Lee, 106 U. S., at 221. It is law—and “‘Law alone’”—that “‘saves a society from being rent by internecine strife or ruled by mere brute power however disguised.’” Cooper, 358 U. S., at 23 (quoting Mine Workers, 330 U. S., at 308).

The power to compel the Executive to follow the law is particularly vital where the relevant law is the Constitution. When the Executive transgresses an Act of Congress, there are mechanisms through which Congress can assert its check against the Executive unilaterally—such as, for example, asserting the power of the purse. See K. Stith, Congress’ Power of the Purse, 97 Yale L. J. 1343, 1360 (1988) (describing Congress’s ability to “regulat[e] executive branch activities by limitations on appropriations”). But when the Executive violates the Constitution, the only recourse is the courts. Eliminate that check, and our government ceases to be one of “limited powers.” Gregory v. Ashcroft, 501 U. S. 452, 457 (1991). After all, a limit that “do[es] not confine the perso[n] on whom [it is] imposed” is no limit at all. Marbury, 1 Cranch, at 176.1

II

With that background, we can now turn to this suit and focus on the ways in which the majority’s ruling undermines our constitutional system. Justice Sotomayor has laid out the relevant facts, see ante, at 9–13 (dissenting opinion), and I will not repeat what she has said. It suffices for my purposes to reiterate that, before these applications arrived here, three District Courts had concluded that Executive Order No. 14160—which attempts to alter the Constitution’s express conferral of citizenship on all who are born in this Nation, Amdt. 14, §1—likely violates the Constitution. Those courts each thus enjoined the Executive from enforcing that order anywhere, against anyone. See 763 F. Supp. 3d 723 (Md. 2025), appeal pending, No. 25–1153 (CA4); 765 F. Supp. 3d 1142 (WD Wash. 2025), appeal pending, No. 25–807 (CA9); Doe v. Trump, 766 F. Supp. 3d 266 (Mass. 2025), appeal pending, No. 25–1170 (CA1). Three Courts of Appeals then declined to upset these injunctions during the pendency of the Government’s appeals. See 2025 WL 654902 (CA4, Feb. 28, 2025); 2025 WL 553485 (CA9, Feb. 19, 2025); 131 F. 4th 27 (CA1 2025).

The majority now does what none of the lower courts that have considered Executive Order No. 14160 would do: It allows the Executive’s constitutionally dubious mandate to go into effect with respect to anyone who is not already a plaintiff in one of the existing legal actions. Notably, the Court has not determined that any of the lower courts were wrong about their conclusion that the executive order likely violates the Constitution—the Executive has not asked us to rule on the lawfulness of Executive Order No. 14160. But the majority allows the Executive to implement this order (which lower courts have so far uniformly declared likely unconstitutional) nonetheless.

Given the critical role of the Judiciary in maintaining the rule of law, see Part I, supra, it is odd, to say the least, that the Court would grant the Executive’s wish to be freed from the constraints of law by prohibiting district courts from ordering complete compliance with the Constitution. But the majority goes there. It holds that, even assuming that Executive Order No. 14160 violates the Constitution, federal courts lack the power to prevent the Executive from continuing to implement that unconstitutional directive.

As I understand the concern, in this clash over the respective powers of two coordinate branches of Government, the majority sees a power grab—but not by a presumably lawless Executive choosing to act in a manner that flouts the plain text of the Constitution. Instead, to the majority, the power-hungry actors are . . . (wait for it) . . . the district courts. See ante, at 1 (admonishing district courts for daring to “asser[t] the power” to order the Executive to follow the law universally). In the majority’s view, federal courts only have the power to “afford the plaintiff complete relief ” in the cases brought before them; they can do nothing more. Ante, at 16. And the majority thinks a so-called universal injunction—that is, a court order requiring the Executive to follow the law across the board and not just with respect to the plaintiff—“grant[s] relief to nonparties.” See ante, at 6–8. Therefore, the majority reasons, issuing such orders exceeds district courts’ authority. See ante, at 21.

So many questions arise.2 The majority’s analysis is fully interrogated, and countered, in Justice Sotomayor’s dissent. My objective is to expose the core conceptual fallacy underlying the majority’s reasoning, which, to me, also tends to demonstrate why, and how, today’s ruling threatens the rule of law.

The pillar upon which today’s ruling rests is the majority’s contention that the remedial power of the federal courts is limited to granting “complete relief” to the parties. Ante, at 15–16. And the majority’s sole basis for that prop osition is the practice of the High Court of Chancery in England. Ante, at 6–7. But this cramped characterization of the Judiciary’s function is highly questionable when it comes to suits against the Executive. That is, even if the majority is correct that courts in England at the time of the founding were so limited—and I have my doubts, see ante, at 18–20 (Sotomayor, J., dissenting)—why would courts in our constitutional system be limited in the same way?

The Founders of the United States of America squarely rejected a governing system in which the King ruled all, and all others, including the courts, were his subordinates. In our Constitution-centered system, the People are the rulers and we have the rule of law. So, it makes little sense to look to the relationship between English courts and the King for guidance on the power of our Nation’s Judiciary vis-à-vis its Executive. See The Federalist No. 69, at 416 (A. Hamilton) (explaining how the President differs from the King, including because “[t]he person of the King of Great Britain is sacred and inviolable; there is no constitutional tribunal to which he is amenable”). Indeed, it is precisely because the law constrains the Government in our system that the Judiciary’s assignment is so broad, per the Constitution. Federal courts entertain suits against the Government claiming constitutional violations. Thus, the function of the courts—both in theory and in practice—necessarily includes announcing what the law requires in such suits for the benefit of all who are protected by the Constitution, not merely doling out relief to injured private parties.

Put differently, the majority views the Judiciary’s power through an aperture that is much too small, leading it to think that the only function of our courts is to provide “complete relief” to private parties. Sure, federal courts do that, and they do it well. But they also diligently maintain the rule of law itself. When it comes to upholding the law, federal courts ensure that all comers—i.e., everyone to whom the law applies and over whom the court has personal jurisdiction (including and perhaps especially the Executive)—know what the law is and, most important, follow it.3

III

Still, upon reading the Court’s opinion, the majority’s foundational mistake in mischaracterizing the true scope and nature of a federal court’s power might seem only marginally impactful. Indeed, one might wonder: Why all the fuss? After all, the majority recognizes that district courts can still issue universal injunctions in some circumstances. See ante, at 16–18. It even acknowledges that the lower courts may reimpose the same universal injunctions at issue in these cases, if the courts find on remand that doing so is necessary to provide complete relief to the named plaintiffs. See ante, at 19. From the standpoint of outcomes, that’s all welcome news. But, as I explain below, from the perspective of constitutional theory and actual practice, disaster looms.

What I mean by this is that our rights-based legal system can only function properly if the Executive, and everyone else, is always bound by law. Today’s decision is a seismic shock to that foundational norm. Allowing the Executive to violate the law at its prerogative with respect to anyone who has not yet sued carves out a huge exception—a gash in the basic tenets of our founding charter that could turn out to be a mortal wound. What is more, to me, requiring courts themselves to provide the dagger (by giving their imprimatur to the Executive Branch’s intermittent lawlessness) makes a mockery of the Judiciary’s solemn duty to safeguard the rule of law.

A

Do remember: The Executive has not asked this Court to determine whether Executive Order No. 14160 complies with the Constitution. Rather, it has come to us seeking the right to continue enforcing that order regardless—i.e., even though six courts have now said the order is likely unconstitutional. What the Executive wants, in effect, is for this Court to bless and facilitate its desire to operate in two different zones moving forward: one in which it is required to follow the law (because a particular plaintiff has secured a personal injunction prohibiting its unlawful conduct), and another in which it can choose to violate the law with respect to certain people (those who have yet to sue).

In the first zone, law reigns. For the named plaintiffs in the suits before us, for example, the lower courts’ determi nation that Executive Order No. 14160 is likely unconstitutional and cannot be implemented has teeth. Per the courts’ orders, the Executive is prohibited from denying citizenship to the offspring of the named plaintiffs. See ante, at 26 (leaving the injunctions in place to the extent “necessary to provide complete relief to each plaintiff with standing to sue”). Within this zone, the courts’ rule of decision—that Executive Order No. 14160 is likely unconstitutional—applies.

But with its ruling today, the majority endorses the creation of a second zone—one in which that rule of decision has no effect. In this zone, which is populated by those who lack the wherewithal or ability to go to court, all bets are off. There is no court-issued mandate requiring the Executive to honor birthright citizenship in compliance with the Constitution, so the people within this zone are left to the prerogatives of the Executive as to whether their constitutional rights will be respected. It does not matter what six federal courts have said about Executive Order No. 14160; those courts are powerless to make the Executive stop enforcing that order altogether. In effect, then, that powerlessness creates a void that renders the Constitution’s constraints irrelevant to the Executive’s actions. Of course, the Executive might choose to follow the law in this zone as well—but that is left to its discretion. And the Solicitor General has now confirmed that, in the absence of a personal injunction secured by a particular plaintiff, this Executive’s view is that compliance with lower court rulings on matters of constitutional significance is optional.4

I am not the first to observe that a legal system that operates on two different tracks (one of which grants to the Executive the prerogative to disregard the law) is anathema to the rule of law.5 Thus, the law-free zone that results from this Court’s near elimination of universal injunctions is not an unfamiliar archetype. Also eerily echoing history’s horrors is the fact that today’s prerogative zone is unlikely to impact the public in a randomly distributed manner. Those in the good graces of the Executive have nothing to fear; the new prerogative that the Executive has to act unlawfully will not be exercised with respect to them. Those who accede to the Executive’s demands, too, will be in the clear. The wealthy and the well connected will have little difficulty securing legal representation, going to court, and obtaining injunctive relief in their own name if the Executive violates their rights.

Consequently, the zone of lawlessness the majority has now authorized will disproportionately impact the poor, the uneducated, and the unpopular—i.e., those who may not have the wherewithal to lawyer up, and will all too often find themselves beholden to the Executive’s whims. This is yet another crack in the foundation of the rule of law, which requires “equality and justice in its application.” Papachristou v. Jacksonville, 405 U. S. 156, 171 (1972). In the end, though, everyone will be affected, because it is law’s evenhanded application—“to minorities as well as majorities, to the poor as well as the rich”—that “holds society together.” Ibid.

The majority “skips over” these consequences. Ante, at 23. No one denies that the power of federal courts is limited—both by the Constitution and by Congress. But the majority seems to forget (or ignores) that the Constitution and Congress also limit the power of the Executive. In addition, it is indisputable that the Executive’s power to leverage physical force in a manner that directly threatens to deprive people of life, liberty, or property creates uniquely harmful risks when unconstrained by law. But the majority today roots its holding in a purported statutory limitation, not a constitutional one. Ante, at 5, n. 4. And, as I have explained, our Constitution gives federal courts the authority to order the Executive to stop acting unlawfully. See Part I, supra. To the extent Congress has attempted to strip federal courts of that power via the Judiciary Act (and, to be clear, I do not think it has, for the reasons Justice Sotomayor discusses, see ante, at 23–31), it is powerless to do so.

The bottom line is this: If courts do not have the authority to require the Executive to adhere to law universally, a dual-track system develops in which courts are ousted as guardians in some situations and compliance with law sometimes becomes a matter of executive prerogative. But “[t]here can be no free society without law administered through an independent judiciary.” Mine Workers, 330 U. S., at 312 (opinion of Frankfurter, J.). “If one man”— even a very important man, and even a democratically elected man—“can be allowed to determine for himself what is law, every man can. That means first chaos, then tyranny.” Ibid.

B

This leads me to another potentially destructive aspect of today’s decision—the Court’s dismissive treatment of the solemn duties and responsibilities of the lower courts. Sworn judicial officers must now put on blinders and take a see-no-evil stance with respect to harmful executive conduct, even though those same officials have already announced that such conduct is likely unconstitutional. Yes, certain named plaintiffs have brought particular lawsuits seeking protection of their legal rights. But their claim is that Executive Order No. 14160 violates the Constitution. If the court agrees with them, why on Earth must it permit that unconstitutional government action to take effect at all?

I have already explained why the majority’s answer—because the court is powerless to do anything but give “complete relief” to those parties—is wrong in terms of the actual scope of federal courts’ authority. See Part I, supra. I now observe that this response also erroneously suggests that a court does something wrongful when it imposes a universal injunction in a single plaintiff’s lawsuit—akin to giving a windfall to those who do not deserve the law’s protection because they have not sued. Ante, at 8–9, 12–15. This way of conceptualizing universal injunctions mistakes that remedy for the unearned spoils of particular adversarial engagements, rather than a necessary tool employed to defend the Constitution by reinforcing pre-existing rights.

Here is what I mean. Our Constitution indisputably confers individual rights that operate as unequivocal protections against government action.6 Thus, a constrained Executive—i.e., one who is bound by the Constitution not to violate people’s rights—is a public benefit, guaranteed to all from the start, without regard to the nature or existence of any particular enforcement action.7 Properly understood, then, when the Executive violates those pre-existing rights in a nonparticularized manner, a universal injunction merely restores what the People were always owed; that remedy does not improperly distribute an unearned benefit to those who did not have the temerity to secure it for themselves by filing a lawsuit.

Or consider it the other way: When a court is prevented from enjoining the Executive universally after the Executive establishes a universal practice of stripping people’s constitutional rights, anyone who is entitled to the Constitution’s protection but will instead be subjected to the Executive’s whims is improperly divested of their inheritance. The Constitution is flipped on its head, for its promises are essentially nullified.8 So, rather than having a governing system characterized by protected rights, the default becomes an Executive that can do whatever it wants to whomever it wants, unless and until each affected individual affirmatively invokes the law’s protection.

A concrete example helps to illustrate why this turnabout undermines the rule of law. Imagine an Executive who issues a blanket order that is blatantly unconstitutional—demanding, say, that any and all of its political foes be summarily and indefinitely incarcerated in a prison outside the jurisdiction of the United States, without any hearing or chance to be heard in court. Shortly after learning of this edict, one such political rival rushes into court with his lawyer, claims the Executive’s order violates the Constitution, and secures an injunction that prohibits the Executive from enforcing that unconstitutional mandate. The upshot of today’s decision is that, despite that rival’s success in persuading a judge of the unconstitutional nature of the Executive’s proclamation, the court’s ruling and injunction can only require the Executive to shelve any no-process incarceration plan that targets that particular individual (the named plaintiff); the Executive can keep right on rounding up its other foes, despite the court’s clear and unequivocal pronouncement that the executive order is unlawful.

The majority today says that, unless and until the other political rivals seek and secure their own personal injunctions, the Executive can carry on acting unconstitutionally with respect to each of them, as if the Constitution’s due process requirement does not exist. For those who get to court in time, their right not to be indefinitely imprisoned without due process will be protected. But if they are unable to sue or get to the courthouse too late, the majority says, oh well, there is nothing to be done, despite the fact that their detention without due process is plainly prohibited by law.

A Martian arriving here from another planet would see these circumstances and surely wonder: “what good is the Constitution, then?” What, really, is this system for protecting people’s rights if it amounts to this—placing the onus on the victims to invoke the law’s protection, and rendering the very institution that has the singular function of ensuring compliance with the Constitution powerless to prevent the Government from violating it? “Those things Americans call constitutional rights seem hardly worth the paper they are written on!”

These observations are indictments, especially for a Nation that prides itself on being fair and free. But, after today, that is where we are. What the majority has done is allow the Executive to nullify the statutory and constitutional rights of the uncounseled, the underresourced, and the unwary, by prohibiting the lower courts from ordering the Executive to follow the law across the board. Moreover, officers who have sworn an oath to uphold the law are now required to allow the Executive to blatantly violate it. Federal judges pledge to support and defend the Constitution of the United States against all enemies, foreign or domestic. 5 U. S. C. §3331. They do not agree to permit unconstitutional behavior by the Executive (or anyone else). But the majority forgets (or ignores) this duty, eagerly imposing a limit on the power of courts that, in essence, prevents judges from doing what their oaths require.9

I view the demise of the notion that a federal judge can order the Executive to adhere to the Constitution—full stop—as a sad day for America. The majority’s unpersuasive effort to justify this result makes it sadder still. It is the responsibility of each and every jurist to hold the line. But the Court now requires judges to look the other way after finding that the Executive is violating the law, shamefully permitting unlawful conduct to continue unabated.

Today’s ruling thus surreptitiously stymies the Judiciary’s core duty to protect and defend constitutional rights. It does this indirectly, by preventing lower courts from telling the Executive that it has to stop engaging in conduct that violates the Constitution. Instead, now, a court’s power to prevent constitutional violations comes with an asterisk—a court can make the Executive cease its unconstitutional conduct *but only with respect to the particular plaintiffs named in the lawsuit before them, leaving the Executive free to violate the constitutional rights of anyone and everyone else.


Make no mistake: Today’s ruling allows the Executive to deny people rights that the Founders plainly wrote into our Constitution, so long as those individuals have not found a lawyer or asked a court in a particular manner to have their rights protected. This perverse burden shifting cannot coexist with the rule of law. In essence, the Court has now shoved lower court judges out of the way in cases where executive action is challenged, and has gifted the Executive with the prerogative of sometimes disregarding the law. As a result, the Judiciary—the one institution that is solely responsible for ensuring our Republic endures as a Nation of laws—has put both our legal system, and our system of government, in grave jeopardy.

“The accretion of dangerous power does not come in a day.” Youngstown, 343 U. S., at 594 (opinion of Frankfurter, J.). But “[i]t does come,” “from the generative force of unchecked disregard of the restrictions that fence in even the most disinterested assertion of authority.” Ibid. By needlessly granting the Government’s emergency application to prohibit universal injunctions, the Court has cleared a path for the Executive to choose law-free action at this perilous moment for our Constitution—right when the Judiciary should be hunkering down to do all it can to preserve the law’s constraints. I have no doubt that, if judges must allow the Executive to act unlawfully in some circumstances, as the Court concludes today, executive lawlessness will flourish, and from there, it is not difficult to predict how this all ends. Eventually, executive power will become completely uncontainable, and our beloved constitutional Republic will be no more.

Perhaps the degradation of our rule-of-law regime would happen anyway. But this Court’s complicity in the creation of a culture of disdain for lower courts, their rulings, and the law (as they interpret it) will surely hasten the downfall of our governing institutions, enabling our collective demise. At the very least, I lament that the majority is so caught up in minutiae of the Government’s self-serving, finger-pointing arguments that it misses the plot. The majority forgets (or ignores) that “[w]ith all its defects, delays and inconveniences, men have discovered no technique for long preserving free government except that the Executive be under the law, and that the law be made by parliamentary deliberations.” Id., at 655 (opinion of R. Jackson, J.). Tragically, the majority also shuns this prescient warning: Even if “[s]uch institutions may be destined to pass away,” “it is the duty of the Court to be last, not first, to give them up.” Ibid.

Footnotes

Together with No. 24A885, Trump, President of the United States, et al. v. Washington et al., and No. 24A886, Trump, President of the United States, et al. v. New Jersey et al., also on applications for partial stays.

These foundational separation-of-powers principles are, of course, the doctrinal underpinnings of the observations I make in Parts II and III, infra. If my point is “difficult to pin down,” ante, at 22, that could be due to the majority’s myopic initial framing—it casts today’s emergency applications as being solely about the scope of judicial authority, while ignoring (or forgetting) the concomitant expansion of executive power that results when the equitable remedial power of judges is needlessly restricted. Or perhaps the culprit is the majority’s threshold decision to rest its holding solely on the Judiciary Act, ante, at 5, n. 4, thereby facilitating its convenient sidestepping of the startling constitutional implications that follow from blanket limitations on the Judiciary’s response to the Executive’s lawlessness. Whatever the source of the majority’s confusion, there is no question that its statutory holding restricting the traditional equitable power of federal courts to craft a suitable remedy for established (or likely) constitutional violations has significant ramifications for the separation of powers and for constitutional rights more broadly. Justice Sotomayor thoroughly explains why restricting judges in this manner is legally and historically unfounded. My goal is to highlight the myriad ways in which the majority’s newly minted no-universal-injunctions limitation also subverts core constitutional norms and is fundamentally incompatible with the rule of law.

Although I will not spend much space discussing it here, the majority’s primary premise—that universal injunctions “grant relief to nonparties”—is suspect. When a court issues an injunction (universal or otherwise), it does so via an order that governs the relationship between the plaintiff and the defendant. Fed. Rule Civ. Proc. 65(d). That order provides the plaintiff with relief: If the plaintiff believes that the defendant has violated the court’s order, she may come back to court, injunction in hand, and demand enforcement or compensation through the mechanism of civil contempt. See Longshoremen v. Philadelphia Marine Trade Assn., 389 U. S. 64, 75 (1967) (recognizing that an “injunction” is “an equitable decree compelling obedience under the threat of contempt”). As the majority recognizes, nonparties may benefit from an injunction a court issues in a plaintiff ’s case. See ante, at 16. But that does not mean those incidental beneficiaries have received relief—“the injunction’s protection” (i.e., the ability to seek contempt) “extends only to the suing plaintiff.” Ante, at 17. An injunction prohibiting the Executive from acting unlawfully operates precisely the same way. Such an injunction may benefit nonparties as a practical matter—but only the named plaintiffs have the right to return to the issuing court and seek contempt, if the Executive fails to comply. See Gompers v. Bucks Stove & Range Co., 221 U. S. 418, 444–445 (1911) (“Proceedings for civil contempt are between the original parties”); Buckeye Coal & R. Co. v. Hocking Valley R. Co., 269 U. S. 42, 48–49 (1925) (holding that a nonparty injured by the defendant’s noncompliance with an injunction could not enforce the injunction); cf. Blue Chip Stamps v. Manor Drug Stores, 421 U. S. 723, 750 (1975) (“[A] consent decree is not enforceable directly or in collateral proceedings by those who are not parties to it even though they were intended to be benefited by it”). So, the majority’s concern that universal injunctions inappropriately grant “relief ” to nonparties is incorrect. Nonparties may benefit from an injunction, but only the plaintiff gets relief. Federal Rule of Civil Procedure 71 is not to the contrary. Contra, ante, at 15, n. 11. At most, that rule and the cases the majority cites suggest that, in certain narrow circumstances, a nonparty for whose benefit an injunction was issued may be able to go to the issuing court and seek contempt. But “the precise contours of Rule 71 . . . remain unclear,” Beckett v. Air Line Pilots Assn., 995 F. 2d 280, 287–288 (CADC 1993), and courts have largely recognized that, to the extent nonparty enforcement of an injunction is available, the nonparty must stand in a close relationship to the plaintiff or have been specifically named in the injunction. See United States v. American Soc. of Composers, Authors, and Publishers, 341 F. 2d 1003, 1008 (CA2 1965) (nonparty could not enforce injunction where it was “not . . . named in the judgment” even though it was “indirectly or economically benefited by the decree”).

No one is saying that the reasoning of a district court’s opinion, on its own, “has the legal force of a judgment,” ante, at 22; of course it does not. The real issue today’s applications raise is whether district-court opinions are entitled to respect while litigation over the lawfulness of the defendant’s conduct is ongoing. As I have explained, the majority’s key move is to start by assuming that the remedial power of federal courts is quite narrow (i.e., it is only appropriately exercised to grant “complete relief ” to the parties). Ante, at 5–11, 16. The majority forgets (or ignores) that federal courts also make pronouncements of law and issue orders compelling compliance if violations are identified. Then, having zeroed in on solely the courts’ plaintiff-specific-remedies function, the majority unsurprisingly insists that a district court cannot respond to the Executive’s decision to violate the law universally by issuing an order compelling universal cessation of the Executive’s unlawful behavior. This kind of broad injunction is merely one tool in a judge’s kit of remedial options—one that is directly responsive to the court’s duty to uphold the law and the Executive’s decision to consciously violate it—and it is no more or less binding than any of the district court’s other determinations. So, rather than disdainfully securing permission to disregard the district court’s opinion and continue engaging in unlawful conduct vis-à-vis anyone who is not the plaintiff, an enjoined Executive that believes the district court was wrong to conclude that its behavior is unlawful has a rule-of-law-affirming response at the ready: It can seek expedited review of the merits on appeal. District courts themselves also have the flexibility to stay their injunctions pending appeal, if that is requested and the circumstances demand it. But rather than permit lower courts to adapt their remedies to the particulars of a given case, the majority today ties judges’ hands, requiring them to acquiesce to executive lawlessness in every situation.

The Solicitor General said that quiet part out loud by baldly asserting that the Executive reserves the right to defy Circuit precedent. Tr. of Oral Arg. 33–34, 60–61. Although he further suggested that the administration would abide by precedent from this Court in future similar cases, id., at 35, 63, even that seems to be a matter of prerogative, as there is no inherent limit to the limited-scope-of-authority logic that underlies today’s holding, see ante, at 41 (Sotomayor, J., dissenting). The Executive’s less-than-sterling record of compliance with Supreme Court rulings to date casts further doubt on this compliance claim; as Justice Sotomayor has explained, the Executive Order at issue here seems to squarely violate at least one—and perhaps five—of our bedrock precedents. See ante, at 7–9 (dissenting opinion).

See E. Fraenkel, The Dual State, pp. xiii, 3, 71 (1941) (describing the way in which the creation of a “Prerogative State” where the Executive “exercises unlimited arbitrariness . . . unchecked by any legal guarantees” is incompatible with the rule of law); see also J. Locke, Second Treatise of Civil Government 13 (J. Gough ed. 1948) (“[F]reedom of men under government is to have a standing rule to live by, common to every one of that society . . . and not to be subject to the . . . arbitrary will of another man”); The Federalist No. 26, p. 169 (C. Rossiter ed. 1961) (A. Hamilton) (contrasting the monarch’s “prerogative” with the emergence of “liberty”); Myers v. United States, 272 U. S. 52, 295 (1926) (Brandeis, J., dissenting) (“[P]rotection of the individual . . . from the arbitrary or capricious exercise of power [is] an essential of free government”); Youngstown Sheet & Tube Co. v. Sawyer, 343 U. S. 579, 641 (1952) (R. Jackson, J., concurring) (observing that our Constitution—which embodies the rule of law—does not grant to the Executive the “prerogative exercised by George III”).

See, e.g., Amdt. 1 (prohibiting the government from preventing the “free exercise” of religion or “abridging the freedom of speech”); Amdt. 2 (prohibiting the government from infringing on the right “to keep and bear Arms”); Amdt. 4 (prohibiting the government from conducting “unreasonable searches and seizures”); Amdt. 5 (prohibiting the government from depriving persons of “life, liberty, or property, without due process of law”).

In this way of framing the issue, nonparties are more than mere “incidental” beneficiaries of universal injunctions that require the Executive to respect constitutional rights. See n. 2, supra. Rather, the very concept of constitutional rights makes the People intended beneficiaries of the constraints that the Constitution imposes on executive action.

Again, the law binds the Executive from the outset in our constitutional scheme, for the benefit of all. See Part I, supra. Thus, a lawsuit is merely the vehicle that invokes the Judiciary’s power to check the Executive by enforcing the law. The topsy-turvy scheme the majority creates today gets those well-established norms exactly backward: The law disappears as an initial constraint on the Executive, and apparently only exists if a particular plaintiff files a particular lawsuit in a particular court, claiming his (particular) entitlement.

The majority highlights a number of policy concerns that some say warrant restriction of the universal-injunction remedy. Ante, at 20–21. In my view, those downsides pale in comparison to the consequences of forcing federal courts to acquiesce to executive lawlessness. Moreover, and in any event, the various practical problems critics have identified are largely overblown. For example, while many accuse universal injunctions of preventing percolation, the facts of this very suit demonstrate otherwise: Three different District Courts each considered the merits of Executive Order No. 14160, and appeals are now pending in three Courts of Appeals. See supra, at 7. Other prudential concerns are better addressed in more targeted ways, such as by changing venue rules to prevent forum or judge shopping, or by encouraging lower courts to expedite their review, thereby teeing the merits up for this Court as quickly as possible. That is not to say that universal injunctions can or should be issued in every case; a court must always fit its remedy to the particular case before it, and those particulars may caution against issuing universal relief in certain instances. See ante, at 22–23 (Sotomayor, J., dissenting). But the Court today for the first time ever adopts a blanket authority-diminishing rule: It declares that courts do not have the power to exercise their equitable discretion to order the Executive to completely cease acting pursuant to an unlawful directive (unless doing so is necessary to provide complete relief to a given plaintiff ). And, again, this very suit illustrates why that bright line rule goes much too far. As Justice Sotomayor emphasizes, multiple courts have recognized that Executive Order No. 14160 is “patently unconstitutional under settled law,” and those courts thus issued the relief necessary to “protect newborns from the exceptional, irreparable harm associated with losing a foundational constitutional right and its immediate benefits.” Ibid.

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