The City of Boerne Case
Key point 12-02.03. In the City of Boerne case (1997), the Supreme Court ruled that the Religious Freedom Restoration Act was unconstitutional. Other courts have limited this ruling to state and local legislation, and have concluded that the Act continues to apply to federal laws.
In the City of Boerne case, in 1997, the Supreme Court struck down the Religious Freedom Restoration Act on the ground that Congress exceeded its authority in enacting the law.[48] It is not clear whether the Supreme Court intended to invalidate the Act as applied to federal law, state law, or both. Some courts have concluded that the Supreme Court only intended to invalidate the Act as applied to state and local legislation, and that the Act still applies to federal legislation that burdens the exercise of religion. See, e.g., In re Young, 82 F.3d 1407 (8th Cir. 1996) (the Act prevented federal bankruptcy law from infringing upon the religious beliefs of church members). The Supreme Court will need to resolve this ambiguity. The Court's decision will impact virtually every religious organization in America. Some of those impacts are predictable, but others are not. This subsection reviews the facts of this important case, and the Court's conclusions.
Situated on a hill in the city of Boerne, Texas, some 28 miles northwest of San Antonio, is St. Peter Catholic Church. Built in 1923, the church's structure reflects the mission style of the region's earlier history. The church seats about 230 worshippers, a number too small for its growing parish. Some 40 to 60 parishioners cannot be accommodated at some Sunday services. In order to meet the needs of the congregation the Archbishop of San Antonio gave permission to the parish to plan alterations to enlarge the building.
A few months later, the Boerne City Council passed an ordinance authorizing the city's Historic Landmark Commission to prepare a preservation plan with proposed historic landmarks and districts. Under the ordinance, the Commission must pre-approve construction affecting historic landmarks or buildings in a historic district.
Soon afterwards the Archbishop applied for a building permit so construction to enlarge the church could proceed. City authorities, relying on the ordinance and the designation of a historic district (which, they claimed, included the church), denied the application. The Archbishop filed a lawsuit challenging the city's denial of the permit. The lawsuit relied upon RFRA as one basis for relief from the refusal to issue the permit. A federal district court concluded that by enacting RFRA Congress exceeded the scope of its authority. A federal appeals court reversed this decision, and upheld the constitutionality of RFRA. The city appealed to the United States Supreme Court. The appeal addressed the question of the constitutional validity of RFRA.
The Supreme Court ruled that RFRA was unconstitutional since Congress did not have the authority to enact it. The Court began its opinion by noting that the federal government "is one of enumerated powers." That is, each branch (legislative, executive, judicial) can only do those things specifically authorized by the Constitution. The First Amendment specifies that "Congress" cannot enact legislation "prohibiting the free exercise" of religion. Of course, "Congress" refers to the federal legislature, and so the First Amendment guaranty of religious freedom, as originally worded, was not a limitation on the power of state or local governments. In 1868, the Fourteenth Amendment to the Constitution was ratified, which prohibits any state from depriving "any person of life, liberty, or property without due process of law." Then, in 1940, the Supreme Court ruled that the "liberty" protected by the Fourteenth Amendment against state interference included the First Amendment guaranty of religious freedom. For the first time, this limitation upon the power of Congress to prohibit the free exercise of religion now applied to state and local governments as well. The Fourteenth Amendment contained a section (section 5) which gave Congress "power to enforce, by appropriate legislation, the provisions of this [amendment]." Congress pointed to this section as the source of its authority to enact RFRA. Members of Congress insisted that they were only protecting by legislation one of the liberties guaranteed by the Fourteenth Amendment that had been diminished by the Supreme Court's ruling in Smith.
The Supreme Court ruled that section 5 of the Fourteenth Amendment did not authorize Congress to enact RFRA. It acknowledged that section 5 authorizes Congress to "enforce" the Fourteenth Amendment, and therefore Congress can enact legislation "enforcing the constitutional right to the free exercise of religion." However, the Court then observed:
Congress' power under section 5, however, extends only to enforcing the provisions of the Fourteenth Amendment. … The design of the amendment and the text of section 5 are inconsistent with the suggestion that Congress has the power to decree the substance of the Fourteenth Amendment's restrictions on the states. Legislation which alters the meaning of the free exercise [of religion] clause cannot be said to be enforcing the clause. Congress does not enforce a constitutional right by changing what the right is. It has been given the power "to enforce," not the power to determine what constitutes a constitutional violation. Were it not so, what Congress would be enforcing would no longer be, in any meaningful sense, the "provisions of [the Fourteenth Amendment]. …"
If Congress could define its own powers by altering the Fourteenth Amendment's meaning, no longer would the Constitution be "superior paramount law, unchangeable by ordinary means." It would be "on a level with ordinary legislative acts, and, like other acts … alterable when the legislature shall please to alter it." Under this approach, it is difficult to conceive of a principle that would limit congressional power. Shifting legislative majorities could change the Constitution and effectively circumvent the difficult and detailed amendment process contained [therein].
The Court conceded that it is not always clear whether Congress is "enforcing" the Fourteenth Amendment or making unauthorized substantive changes in the Constitution. However, it insisted that there must be a "proportionality between the injury to be prevented or remedied and the means adopted to that end." The Court concluded that this test was not met in this case, since RFRA was not a "proportional" response to the "injury to be prevented or remedied." Rather, RFRA was an expansive law that was enacted to address minimal threats to religious freedom. The Court noted that
sweeping coverage ensures [RFRA's] intrusion at every level of government, displacing laws and prohibiting official actions of almost every description and regardless of subject matter. RFRA's restrictions apply to every agency and official of the federal, state, and local governments. RFRA applies to all federal and state law, statutory or otherwise, whether adopted before or after its enactment. RFRA has no termination date or termination mechanism. Any law is subject to challenge at any time by any individual who alleges a substantial burden on his or her free exercise of religion.
Further, this massive response was not warranted by any significant threat to religious freedom:
RFRA's legislative record lacks examples of modern instances of generally applicable laws passed because of religious bigotry. The history of persecution in this country detailed in the [congressional] hearings mentions no episodes occurring in the past 40 years. … The absence of more recent episodes stems from the fact that, as one witness testified, "deliberate persecution is not the usual problem in this country." Rather, the emphasis of the [congressional] hearings was on laws of general applicability which place incidental burdens on religion. Much of the discussion centered upon anecdotal evidence of autopsies performed on Jewish individuals and Hmong immigrants in violation of their religious beliefs … and on zoning regulations and historic preservation laws (like the one at issue here), which as an incident of their normal operation, have adverse effects on churches and synagogues. … It is difficult to maintain that they are examples of legislation enacted or enforced due to animus or hostility to the burdened religious practices or that they indicate some widespread pattern of religious discrimination in this country. Congress' concern was with the incidental burdens imposed, not the object or purpose of the legislation.
The stringent test RFRA demands of state laws reflects a lack of proportionality or congruence between the means adopted and the legitimate end to be achieved. If an objector can show a substantial burden on his free exercise, the State must demonstrate a compelling governmental interest and show that the law is the least restrictive means of furthering its interest. Claims that a law substantially burdens someone's exercise of religion will often be difficult to contest. Requiring a state to demonstrate a compelling interest and show that it has adopted the least restrictive means of achieving that interest is the most demanding test known to constitutional law. If "compelling interest" really means what it says … many laws will not meet the test. … [The test] would open the prospect of constitutionally required religious exemptions from civic obligations of almost every conceivable kind." Laws valid under Smith would fall under RFRA without regard to whether they had the object of stifling or punishing free exercise. … [RFRA] would require searching judicial scrutiny of state law with the attendant likelihood of invalidation. This is a considerable congressional intrusion into the states' traditional prerogatives and general authority to regulate for the health and welfare of their citizens.
The substantial costs RFRA exacts, both in practical terms of imposing a heavy litigation burden on the states and in terms of curtailing their traditional general regulatory power, far exceed any pattern or practice of unconstitutional conduct under the free exercise clause as interpreted in Smith. Simply put, RFRA is not designed to identify and counteract state laws likely to be unconstitutional because of their treatment of religion. In most cases, the state laws to which RFRA applies are not ones which will have been motivated by religious bigotry. …
It is a reality of the modern regulatory state that numerous state laws, such as the zoning regulations at issue here, impose a substantial burden on a large class of individuals. When the exercise of religion has been burdened in an incidental way by a law of general application, it does not follow that the persons affected have been burdened any more than other citizens, let alone burdened because of their religious beliefs. (emphasis added)
Table of Contents
-
1Definitions and Status
-
§ 1.01Distinctions Between the Terms Pastor, Clergy, Minister
-
§ 1.02Definition of the Terms Pastor, Clergy, Minister — In General
-
§ 1.03Status—Employee or Self Employed
-
§ 1.03.01Social Security
-
§ 1.03.02Income Taxes
-
§ 1.03.03Retirement Plans
-
§ 1.03.04Legal Liability
-
§ 1.03.05Miscellaneous Federal and State Statutes
-
-
§ 1.04Status—Ordained, Commissioned, or Licensed
2The Pastor-Church Relationship
-
§ 2.01Initiating the Relationship—In General
-
§ 2.01.01Congregational Churches
-
§ 2.01.02Hierarchical Churches
-
§ 2.01.03Compliance with a Church's Governing Instrument in the Selection of a Minister
-
§ 2.01.04Civil Court Review of Clergy Selection Disputes—the General Rule of Non-Intervention
-
§ 2.01.05Civil Court Review of Clergy Selection Disputes—Limited Exceptions to the General Rule
-
§ 2.01.06Negligent Selection
-
-
§ 2.02The Contract
-
§ 2.03Compensation
-
§ 2.04Termination
3Authority, Rights, and Privileges
-
§ 3.01General Scope of a Minister's Authority
-
§ 3.02Officer of the Church Corporation
-
§ 3.03Property Matters
-
§ 3.04Performance of Marriage Ceremonies
-
§ 3.05Exemption from Military Duty
-
§ 3.06Exemption From Jury Duty
-
§ 3.07The Clergy-Penitent Privilege—In General
-
§ 3.07.01A "Communication"
-
§ 3.07.02Made in Confidence
-
§ 3.07.03To a Minister
-
§ 3.07.04Acting in a Professional Capacity as a Spiritual Adviser
-
§ 3.07.05In the Course of Discipline
-
-
§ 3.08The Clergy-Penitent Privilege—Miscellaneous Issues
-
§ 3.08.01Clergy-Parishioner Relationship
-
§ 3.08.02Marriage Counseling
-
§ 3.08.03Who May Assert the Privilege
-
§ 3.08.04When to Assert the Privilege
-
§ 3.08.05Waiver of the Privilege
-
§ 3.08.06The Privilege in Federal Courts
-
§ 3.08.07Constitutionality of the Privilege
-
§ 3.08.08Child Abuse Reporting
-
§ 3.08.09Confidentiality
-
§ 3.08.10Disclosure to Civil Authorities
-
§ 3.08.11Church Records
-
§ 3.08.12Death of the Counselee
-
-
§ 3.09Visiting Privileges at Penal Institutions
-
§ 3.10Immigration of Alien Ministers, Religious Vocations, and Religious Occupations
-
§ 3.11Miscellaneous Benefits
4Liabilities, Limitations, and Restrictions
-
§ 4.01Negligence
-
§ 4.02Defamation—In General
-
§ 4.02.01Pastors Who Are Sued for Making Defamatory Statements
-
§ 4.02.02Pastors Who Are Victims of Defamation
-
§ 4.02.03Defenses
-
-
§ 4.03Undue Influence
-
§ 4.04Invasion of Privacy
-
§ 4.05Clergy Malpractice
-
§ 4.06Contract Liability
-
§ 4.07Securities Law Violations
-
§ 4.08Failure to Report Child Abuse
-
§ 4.09Diversion of Church Funds
-
§ 4.10State Regulation of Psychologists and Counselors
-
§ 4.11Sexual Misconduct
-
§ 4.11.01Theories of Liability
-
§ 4.11.02Defenses to Liability
-
5Definitions
-
§ 5.01Tax Legislation—Federal
-
§ 5.01.01Churches
-
§ 5.01.02Mail Order Churches
-
§ 5.01.03Other Religious Organizations
-
§ 5.01.04Tax Legislation—State
-
-
§ 5.02Zoning Law
-
§ 5.02.01Churches
-
§ 5.02.02Accessory Uses
-
6Organization and Administration
-
§ 6.01Unincorporated Associations
-
§ 6.01.01Characteristics
-
§ 6.01.02Personal Liability of Members
-
§ 6.01.03Creation and Administration
-
-
§ 6.02Corporations
-
§ 6.02.01The Incorporation Process
-
§ 6.02.02Charters, Constitutions, Bylaws, and Resolutions
-
-
§ 6.03Church Records
-
§ 6.03.01Inspection
-
§ 6.03.02“Accountings” of Church Funds
-
§ 6.03.03Public Inspection of Tax-Exemption Applications
-
§ 6.03.04Government Inspection of Donor and Membership Lists
-
§ 6.03.05The Church Audit Procedures Act
-
§ 6.03.06Who Owns a Church’s Accounting Records?
-
-
§ 6.04Reporting Requirements
-
§ 6.04.01State Law
-
§ 6.04.02Federal Law
-
-
§ 6.05Church Names
-
§ 6.06Officers, Directors, and Trustees—In General
-
§ 6.06.01Election or Appointment
-
§ 6.06.02Authority
-
§ 6.06.03Meetings
-
§ 6.06.04Removal
-
-
§ 6.07Officers, Directors, and Trustees—Personal Liability
-
§ 6.07.01Tort Liability
-
§ 6.07.02Contract Liability
-
§ 6.07.03Breach of the Fiduciary Duty of Care
-
§ 6.07.04Breach of the Fiduciary Duty of Loyalty
-
§ 6.07.05Violation of Trust Terms
-
§ 6.07.06Securities Law
-
§ 6.07.07Wrongful Discharge of an Employee
-
§ 6.07.08Willful Failure to Withhold Taxes
-
§ 6.07.09Exceeding the Authority of the Board
-
§ 6.07.10Loans to Directors
-
-
§ 6.08Immunity Statutes
-
§ 6.08.01Directors and Officers Insurance
-
-
§ 6.09Members—In General
-
§ 6.09.01Selection and Qualifications
-
§ 6.09.02Authority
-
-
§ 6.10Members—Discipline and Dismissal
-
§ 6.10.01Judicial Nonintervention
-
§ 6.10.02“Marginal” Civil Court Review
-
§ 6.10.03Preconditions to Civil Court Review
-
§ 6.10.04Remedies for Improper Discipline or Dismissal
-
-
§ 6.11Members—Personal Liability
-
§ 6.12Meetings of Members
-
§ 6.12.01Procedural Requirements
-
§ 6.12.02Minutes
-
§ 6.12.03Parliamentary Procedure
-
§ 6.12.04Effect of Procedural Irregularities
-
§ 6.12.05Judicial Supervision of Church Elections
-
§ 6.12.06Who May Attend
-
-
§ 6.13Powers of a Local Church
-
§ 6.14Merger and Consolidation
-
§ 6.15Dissolution
7Church Property
-
§ 7.01Church Property Disputes—In General
-
§ 7.02Church Property Disputes—Supreme Court Rulings
-
§ 7.03State and Lower Federal Court Rulings
-
§ 7.04Church Property Disputes—Dispute Resolution Procedures
-
§ 7.05Transferring Church Property
-
§ 7.06Zoning Law
-
§ 7.07Restricting Certain Activities Near Church Property
-
§ 7.08Building Codes
-
§ 7.08.01Lead Paint on Church Property
-
-
§ 7.09Nuisance
-
§ 7.10Landmarking
-
§ 7.11Eminent Domain
-
§ 7.12Defacing Church Property
-
§ 7.13Restrictive Covenants
-
§ 7.14Reversion of Church Property to the Prior Owner
-
§ 7.15Materialmen’s Liens
-
§ 7.16Religious Discrimination in the Sale or Rental of Church Property
-
§ 7.17Removing Disruptive Individuals
-
§ 7.18Adverse Possession
-
§ 7.19Accounting for Depreciation
-
§ 7.20Premises Liability
-
§ 7.20.01Liability Based on Status as Invitee, Licensee, or Trespasser
-
§ 7.20.02Defenses to Premises Liability
-
§ 7.20.03Use of Church Property by Outside Groups
-
§ 7.20.04Assaults on Church Property
-
§ 7.20.05Skate Ramps
-
§ 7.20.06Sound Rooms
-
-
§ 7.21Embezzlement
-
§ 7.22Places of Public Accommodation
8Employment Law
-
§ 8.01Introduction: Selection of Employees
-
§ 8.02New Hire Reporting
-
§ 8.03Employment Eligibility Verification
-
§ 8.04Immigration
-
§ 8.05Negligent Selection
-
§ 8.06Introduction: Compensation and Benefits
-
§ 8.07Workers Compensation
-
§ 8.08Fair Labor Standards Act
-
§ 8.08.01Enterprises
-
§ 8.08.02Individual Coverage
-
§ 8.08.03Federal Court Rulings
-
§ 8.08.04Department of Labor Opinion Letters
-
§ 8.08.05Exemptions
-
§ 8.08.06Ministers
-
§ 8.08.07State Laws
-
§ 8.08.08Case Studies
-
-
§ 8.09Introduction to Federal Employment and Civil Rights Laws—The “Commerce” Requirement
-
§ 8.09.01Counting Employees
-
-
§ 8.10The “Ministerial Exception” under State and Federal Employment Laws
-
§ 8.11Procedure for Establishing a Discrimination Claim
-
§ 8.12Title VII of the Civil Rights Act of 1964
-
§ 8.12.01Application to Religious Organizations
-
§ 8.12.02Application to Religious Educational Institutions
-
§ 8.12.03Religion as a "Bona Fide Occupational Qualification"
-
§ 8.12.04Discrimination Based on Religion or Morals
-
§ 8.12.05Sexual Harassment
-
§ 8.12.06The Catholic Bishop Case
-
§ 8.12.07Failure to Accommodate Employees’ Religious Practices
-
§ 8.12.08The Religious Freedom Restoration Act
-
§ 8.12.09The Civil Rights Act of 1991
-
-
§ 8.13The Age Discrimination in Employment Act
-
§ 8.14The Americans with Disabilities Act
-
§ 8.14.01Discrimination in Employment
-
§ 8.14.02Discrimination in Public Accommodations
-
-
§ 8.15Family and Medical Leave Act
-
§ 8.16Employer “Retaliation” Against Victims of Discrimination
-
§ 8.17Discrimination Based on Military Status
-
§ 8.18Employee Polygraph Protection Act
-
§ 8.19Occupational Safety and Health Act
-
§ 8.20Display of Posters
-
§ 8.21Discrimination under State Laws
-
§ 8.22Termination of Employees
-
§ 8.22.01Severance Agreements
-
-
§ 8.23National Labor Relations Act
-
§ 8.24Reference Letters
-
§ 8.25Employee Evaluations
-
§ 8.26Employment Interviews
-
§ 8.27Arbitration
-
§ 8.28Employee Handbooks
-
§ 8.29Employee Privacy
-
§ 8.30Insurance
9Government Regulation of Churches
-
§ 9.01Introduction
-
§ 9.02Regulation of Charitable Solicitations
-
§ 9.03Limitations on Charitable Giving
-
§ 9.04Federal and State Securities Law
-
§ 9.05Copyright Law
-
§ 9.05.01Copyright Ownership
-
§ 9.05.02Works Made for Hire
-
§ 9.05.03Exclusive Rights
-
§ 9.05.04Infringement
-
§ 9.05.05The "Religious Service" Exemption to Copyright Infringement
-
§ 9.05.06Electronic Media
-
§ 9.05.10Other Exceptions to Copyright Infringement
-
-
§ 9.06Government Investigations
-
§ 9.07Judicial Resolution of Church Disputes
-
§ 9.08Political Activities by Churches and Other Religious Organizations
-
§ 9.09Bankruptcy Law
10Church Legal Liability
-
§ 10.01Negligence as a Basis for Liability—In General
-
§ 10.02Vicarious Liability (Respondeat Superior)
-
§ 10.02.01The Requirement of Employee Status
-
§ 10.02.02Negligent Conduct
-
§ 10.02.03Course of Employment
-
§ 10.02.04Inapplicability to Nonprofit Organizations
-
-
§ 10.03Negligent Selection of Church Workers—In General
-
§ 10.04Negligent Selection of Church Workers—Sexual Misconduct Cases Involving Minor Victims
-
§ 10.05Negligent Selection of Church Workers—Sexual Misconduct Cases Involving Adult Victims
-
§ 10.05.01Court Decisions Recognizing Negligent Selection Claims
-
§ 10.05.02Court Decisions Rejecting Negligent Selection Claims
-
§ 10.05.03Risk Management
-
-
§ 10.06Negligent Selection of Church Workers—Other Cases
-
§ 10.07Negligent Retention of Church Workers—In General
-
§ 10.07.01Court Decisions Recognizing Negligent Retention Claims
-
§ 10.07.02Court Decisions Rejecting Negligent Retention Claims
-
§ 10.07.03Risk Management
-
-
§ 10.08Negligent Supervision of Church Workers—In General
-
§ 10.09Negligent Supervision of Church Workers—Sexual Misconduct Cases Involving Minor Victims
-
§ 10.09.01Court Decisions Recognizing Negligent Supervision Claims
-
§ 10.09.02Court Decisions Rejecting Negligent Supervision Claims
-
§ 10.09.03Risk Management
-
-
§ 10.10Negligent Supervision of Church Workers—Sexual Misconduct Cases Involving Adult Victims
-
§ 10.10.01Court Decisions Recognizing Negligent Supervision Claims
-
§ 10.10.02Court Decisions Rejecting Negligent Supervision Claims
-
§ 10.10.03Risk Management
-
-
§ 10.11Negligent Supervision of Church Workers—Other Cases
-
§ 10.11.01Risk Management
-
-
§ 10.12Counseling—In General
-
§ 10.12.01Risk Management
-
-
§ 10.13Breach of a Fiduciary Duty
-
§ 10.13.01Court Decisions Recognizing Fiduciary Duty Claims
-
§ 10.13.02Court Decisions Rejecting Fiduciary Duty Claims
-
§ 10.13.03Risk Management
-
-
§ 10.14Ratification
-
§ 10.15Defamation
-
§ 10.16Defenses to Liability
-
§ 10.16.01Contributory and Comparative Negligence
-
§ 10.16.02Assumption of Risk
-
§ 10.16.03Intervening Cause
-
§ 10.16.04Statutes of Limitations
-
§ 10.16.05Charitable Immunity
-
§ 10.16.06Release Forms
-
§ 10.16.07Insurance
-
§ 10.16.08Other Defenses
-
-
§ 10.17Damages—In General
-
§ 10.17.01Punitive Damages
-
§ 10.17.02Duplicate Verdicts
-
-
§ 10.18Denominational Liability—In General
-
§ 10.18.01Court Decisions Recognizing Vicarious Liability
-
§ 10.18.02Court Decisions Rejecting Vicarious Liability
-
§ 10.18.03Defenses to Liability
-
§ 10.18.04Risk Management
-
§ 10.18.05The Legal Effect of a Group Exemption Ruling
-
-
§ 10.19Risks Associated with Cell Phones
-
§ 10.20Risks Associated with the Use of 15-Passenger Vans
12The Present Meaning of the First Amendment Religion Clauses
-
§ 12.01The Establishment Clause
-
§ 12.01.01The Lemon Test
-
-
§ 12.02The Free Exercise Clause
-
§ 12.02.01The Smith Case
-
§ 12.02.02The Religious Freedom Restoration Act
-
§ 12.02.03The City of Boerne Case
-
§ 12.02.04Conclusions
-
13Significant First Amendment Issues
-
§ 13.01The Right to Witness
-
§ 13.02Prayer on Public Property other than Schools
-
§ 13.03Prayer During Public School Activities
-
§ 13.04Display of Religious Symbols on Public Property
-
§ 13.05Recurring Use of Public Property by Religious Congregations for Religious Services
-
§ 13.06Nonrecurring Use of Public Property by Adults for Religious Events and Activities
-
§ 13.07Use of Public School Property by Students for Religious Purposes
-
§ 13.08Sunday Closing Laws
-
§ 13.09The Right to Refuse Medical Treatment
-
§ 13.10Definition of "Religion" and "Religious"
This content is designed to provide accurate and authoritative information in regard to the subject matter covered. It is sold with the understanding that the publisher is not engaged in rendering legal, accounting, or other professional service. If legal advice or other expert assistance is required, the services of a competent professional person should be sought. "From a Declaration of Principles jointly adopted by a Committee of the American Bar Association and a Committee of Publishers and Associations." Due to the nature of the U.S. legal system, laws and regulations constantly change. The editors encourage readers to carefully search the site for all content related to the topic of interest and consult qualified local counsel to verify the status of specific statutes, laws, regulations, and precedential court holdings.
-