Universal Injunctions: Why Not Follow the Rule?

Over the last several years, a debate has flared up over universal injunctions, court orders that purport to benefit individuals across the nation, including vast numbers of people not party to the litigation from which the injunction issues. Critics on the left decry injunctions seeking to shut down executive action by the Obama Administration, while those on the right decry the mirror image injunctions against programs of the Trump Administration.1.Samuel L. Bray, Multiple Chancellors: Reforming the National Injunction, 131 Harv. L. Rev. 417, 418–19 (2017) (recounting the litigation).Show More To these actions, a third round of injunctions against immigration policies of the Biden Administration can now be added.2.State of Texas v. United States, 21-cv-00003 (S.D. Tex. Feb. 23, 2021). The court enjoined a 100-day moratorium on deportations imposed by the Department of Homeland Security in the Biden Administration.Show More All the while, a solution to these controversies remains hiding in plain sight in Federal Rule of Civil Procedure 23.3.Fed. R. Civ. P. 23.Show More Subdivision (b)(2) of the rule allows class actions when “final injunctive relief or corresponding declaratory relief is appropriate respecting the class as a whole.” Subdivision (b)(1) goes into even greater detail in identifying when class actions should be certified because individual actions would prejudice class members or parties party opposing the class. Both subdivisions speak to the need for injunctions whose benefits go beyond the named parties to the litigation. Why don’t these provisions solve the problem of universal injunctions? If a class can be certified, then the injunction can reach beyond the named parties. If it cannot, then the injunction must be limited to the named parties.

The scholarly commentary on universal injunctions has recognized the relevance of these provisions, particularly Rule 23(b)(2), but then inexplicably pushed them to the margins of analysis. Failure to certify a class has been identified as a precondition of the problem but not as a solution to it. One author has simply excluded certified national classes from the analysis,4.Alan Trammel, Demystifying Nationwide Injunctions, 98 Tex. L. Rev. 67, 77–78 (2019) (noting that due process protections in class action have “little to no bearing on most nationwide injunctions, though, in which the problematic questions concern the rights of nonparties”) (emphasis in original).Show More while another has pronounced the terms of Rule 23 to be “formalistic.”5.Michael T. Morley, Nationwide Injunctions, Rule 23(b)(2), and the Remedial Powers of the Lower Courts, 97 B.U. L. Rev. 615, 634 (2017) (“In short, certification under Rule 23(b)(2) is a formalistic gesture that neither limits the scope of a court’s discretion nor guarantees due process for putative class members.”).Show More A sophisticated history of universal injunctions in equity puzzles over the marginalization of the rule, but then moves on to formulate a different set of constraints on universal injunctions.6.Bray, supra note 1, at 469–81.Show More As this article notes, “the need for and value of this class action provision is greatly diminished if plaintiffs can get the same relief in an individual suit that they can in a class action.”7.Id. at 464–65.Show More Still another article delves deeply into the history of equitable remedies but stops abruptly in the middle of the twentieth century, before the current version of Rule 23 began to take shape.8.Mila Sohoni, The Lost History of the “Universal” Injunction, 133 Harv. L. Rev. 920, 982–93 (2020) (concluding her analysis with decisions from the 1930s and 1940s).Show More If the rule could so easily answer the problem they have posed, perhaps they fear that it would be dismissed as merely procedural, rather than a matter of constitutional dimensions concerning the remedial power of the federal courts. Conversely, those who favor universal injunctions, and who are less concerned with limits upon them, might find the rule too restrictive because it requires certification of a national class to support a universal injunction.

This Essay argues that debates over these apparently binary choices are misconceived. Analysis under Rule 23 does not displace, but instead incorporates, fundamental issues of constitutional law and federal judicial power. So, too, it does not dictate an all-or-nothing answer to the question whether universal injunctions are ever appropriate. The rule frames the appropriate terms in which such questions can be answered, without the addition of tests and factors that would further restrain or enhance the availability of universal injunctions. This Essay advances this argument in three parts. The first analyzes the prominence of constitutional issues in the current debate. The second recounts the history of universal injunctions from Equity Rule 38 to Federal Rule 23. The third responds to concerns that certification of class actions is too “formalistic” and argues that it should be seen instead as a necessary precaution related to the merits of the plaintiffs’ claims and the risk of conflicts of interest within the proposed class. All of these considerations yield the simple conclusions that universal injunctions must be preceded by certification of similarly broad class and that there is no need to address the power of courts to issue this remedy if this prerequisite is not met.

I. The Current Debate and Constitutional Issues

The current controversy over universal injunctions gained national prominence with litigation over initiatives in both the Obama and the Trump Administrations. In Texas v. United States,9.86 F. Supp. 3d 591 (S.D. Tex.), aff’d, 809 F.3d 134 (5th Cir. 2015), aff’d by an equally divided Court, 136 S. Ct. 2271 (2016) (mem.).Show More the district court issued a preliminary injunction against the Obama policy of not enforcing the immigration laws against “Dreamers,” adults who had immigrated as children without documentation as children.10 10.This program, Deferred Action for Parents of Americans and Lawful Permanent Residents, conferred benefits upon over four million individuals who are currently in the country without documentation, chiefly deferring any attempt to deport them. Texas v. United States,86 F. Supp. 3d at 604.Show More A few years later, universal injunctions were issued against Trump’s executive orders creating the “travel ban,” restricting entry of aliens from identified countries with predominantly Muslim populations.11 11.Trump v. Hawaii, 138 S. Ct. 2392 (2018).Show More These injunctions were reversed by the Supreme Court on the merits. Justice Thomas filed a concurring opinion also disapproving of the universal injunctions as an inappropriate remedy insofar as it extended to nonparties.12 12.Id. at 2425, 2427–29 (Thomas, J., concurring).Show More He expressed doubt that such injunctions conformed to the “case or controversy” requirement of Article III.13 13.Id. at 2425.Show More

He defined the problematic injunctions as those “that prohibit the Executive Branch from applying a law or policy against anyone—often called ‘universal’ or ‘nationwide’ injunctions.”14 14.Id. at 2424–25.Show More These injunctions have the highest profile and therefore generate the most debate, but the same problems arise with respect to any injunction that extends broadly beyond the parties to the litigation. For instance, an injunction that protects enforcement of a state statute against anyone raises the same basic issues.15 15.As occurred, for instance, in Galvan v. Levine, 490 F.2d 1255, 1257 (2d Cir. 1973), which concerned a statewide injunction against denial of unemployment benefits to certain workers from Puerto Rico.Show More As Howard Wasserman has pointed out, the problem is not with the geographic scope of the injunction but with those who can benefit from it.16 16.Howard M. Wasserman, Congress and Universal Injunctions, 2021 Cardozo L. Rev. De Novo 187, 191 (2021).Show More At the opposite extreme, the same problems do not arise with respect to injunctions for the benefit of existing parties that have incidental effects on nonparties. Orders to abate a nuisance are the standard example. A nuisance action by one landowner to enjoin a nearby factory from polluting the air works to benefit of adjoining landowners, but only because full relief to the actual plaintiff requires the factory to reduce pollution to all the landowners.17 17.Warth v. Seldin, 422 U.S. 490, 499 (1975) (“The Art. III judicial power exists only to redress or otherwise to protect against injury to the complaining party, even though the court’s judgment may benefit others collaterally.”).Show More This necessary incidental effect is a far cry from the wholesale extension of an injunction to reach nonparties all across the state or nation.

But is it fundamentally a constitutional problem? Anyone acquainted with the legal doctrine surrounding the “case or controversy” requirement under Article III knows that the definition of its scope and limits has proved elusive. It usually raises more questions than it answers.18 18.A recent case generated multiple opinions in the district court, court of appeals, and the Supreme Court, eventually yielding the conclusion that the plaintiff had sufficiently alleged standing to move beyond the pleading stage of litigation. See Robins v. Spokeo, Inc., 2011 WL 597867 (C.D. Cal. 2011), rev’d, 742 F.3d 409 (9th Cir. 2014), vacated and remanded, 136 S. Ct. 1540 (2016), on remand, 867 F.3d 1108 (9th Cir. 2017), cert. denied, 138 S. Ct. 931 (2018). All this occurred even though Congress had clearly granted the plaintiff the right to sue. 136 S. Ct. at 1545.Show More Yet most of the commentary on universal injunctions has sought a definitive resolution of their validity in constitutional law. Perhaps, given the vicissitudes of the decisions defining a “case or controversy,” this question is better avoided.

The leading article critical of universal injunctions, by Samuel Bray, has given this constitutional issue an historical dimension. He argued, and Justice Thomas agreed, that universal injunctions have become common only since the 1960s.19 19.Bray, supra note 1, at 437–45.Show More According to Bray, universal injunctions might have made sense in England in the eighteenth century, with completely unified courts of equity under the control of a single chancellor, but they were not suited to a federal system of government with judicial power widely distributed among many state and federal judges.20 20.Id. at 424–27.Show More The disjunction between a unitary chancellor and federal judicial system became problematic in the 1960s as courts moved away from traditional rules of standing, according relief primarily to the parties before them, to an emphasis on declaring what the law is, based on “facial” challenges to statutes and other forms of government regulation independent of the facts of a particular case.21 21.Id. at 450–52.Show More

The key decision for Professor Bray is Frothingham v. Mellon,22 22.262 U.S. 447 (1923).Show More usually regarded as a case barring taxpayer standing under Article III, but one heavily dependent on limited equitable remedies.23 23.Bray, supra note 1, at 430–33.Show More As the Court reasoned:

The party who invokes the power must be able to show not only that the statute is invalid but that he has sustained or is immediately in danger of sustaining some direct injury as the result of its enforcement, and not merely that he suffers in some indefinite way in common with people generally.24 24.262 U.S. at 488.Show More

The implicit contrast is with Flast v. Cohen,25 25.392 U.S. 83 (1968).Show More which upheld taxpayer standing to challenge a statute that disbursed funds to religious schools allegedly in violation of the Establishment Clause.26 26.Id. at 83–84.Show More The plaintiffs sought to prevent any expenditure at all under the statute, relief that went far beyond any immediate benefit to the plaintiffs.

The leading response to Bray’s argument, and similar attempts to invoke historical limitations upon equitable remedies, is Mila Sohoni’s exhaustive examination of equity practice through the first half of the 20th century.27 27.See Sohoni, supra note 8, at 943–93.Show More She found a wide range of cases, in both the Supreme Court and the lower federal courts, that awarded or approved of universal injunctions. She took the position that, regardless of the policy questions raised by universal injunctions, the history of equitable remedies demonstrates that it is not a constitutional problem under Article III.28 28.Id. at 993–1008.Show More She, however, cuts off her historical inquiry in the middle of the 20th century.

The policy problems that surround universal injunctions, to the extent they are independent of constitutional problems, revolve around the disproportionate power they allow a single district judge to exercise. A universal injunction that inures to the benefit of nonparties elevates the status of a single judge’s decision to a level comparable to a decision of the Supreme Court. It truncates the development of different lines of authority and forces the case onto the agenda of the Supreme Court. It also creates a risk of inconsistent decisions by different lower courts and invites the plaintiff to go forum shopping for a judge likely to be favorable.29 29.For a survey of these problems, see Bray, supra note 1, at 457–65.Show More By contrast, where parties seek to consolidate multi-district litigation through a change in venue, the choice of the transferee district lies with the panel on multidistrict litigation.30 30.28 U.S.C. § 1407(a), (b).Show More The district judge becomes an overseer of government at every level, regardless of the district or circuit boundaries that circumscribe the precedential effect of decisions by the lower federal courts.31 31.Bray, supra note 1, at 465.Show More

Some argue for universal injunctions based on judicial review of administrative action under the Administrative Procedure Act (APA).32 32.5 U.S.C. § 706; Sohoni, supra note 8, at 991–93.Show More It does create a kind of parity between the actions of the executive branch and the remedy available in the judicial branch. National or regional measures taken by the executive can be met by remedies of equal scope from the judiciary. A gap remains, however, between invalidating administrative action by depriving it of any force in the proceedings before the reviewing court and enjoining reliance upon it in any other proceedings.33 33.John Harrison, Section 706 of the Administrative Procedure Act Does Not Call for Universal Injunctions or Other Universal Remedies, 37 Yale J. L. & Reg. Online Bull., 37 (2020).Show More The APA authorizes courts to “set aside” agency action in the first sense by disregarding it, but it does not authorize injunctions to prevent reliance upon it generally.34 34.Id.Show More More generally, the limitation on federal jurisdiction to “cases and controversies” negates any implied principle of parity between executive and judicial action. Federal judges hand down their decisions only within the confines of a concrete case or controversy.

The preclusive effect of universal injunctions also contravenes the limits on non-mutual issue preclusion against the federal government, an extension of preclusion that the Supreme Court has explicitly prohibited.35 35.United States v. Mendoza, 464 U.S. 154, 158 (1984).Show More Indeed, to the extent the decision represents a binding judgment, it is binding only upon the defendant. The nonparties who benefit from the injunction are bound by an unfavorable decision only if they are in privity with the plaintiff.36 36.Taylor v. Sturgell, 553 U.S. 880, 892–95 (2008).Show More As will be discussed in Part II, a universal injunction revives the practice of “one-way intervention,” rejected in amendments to Federal Rule 23 in 1966.37 37.See infra notes 49–59 and accompanying text.Show More

These problems have elicited ad hoc responses, such as inquiring whether the injunction is necessary to secure equal treatment of nonparties; or limiting the geographical scope of the injunction to a federal judicial district or circuit; or requiring decisions from at least three federal circuits as evidence of settled law; or barring injunctions that resulted from forum shopping for a favorably inclined judge.38 38.Trammel, supra note 4, at 103–13; Sohoni, supra note 8, at 995.Show More Professor Sohoni tentatively suggests reinstating the practice of constituting three-judge district courts, allowing only those courts to issue universal injunctions with direct appeal to the Supreme Court.39 39.Sohoni, supra note 8, at 995.Show More In making this suggestion, she neglects the complications that arose when three-judge district courts were widely available, raising questions about whether the court was properly convened and the effect of summary affirmances by the Supreme Court.40 40.Robert L. Stern & Eugene Gressman, Supreme Court Practice, For Practice in the Supreme Court of the United States 66–67 (4th ed. 1969).Show More This back-to-the-future approach accords with her reliance on past equity practice in issuing universal injunctions for the benefit of nonparties. But as Part II discusses in detail, much has happened since the Federal Rules displaced the Equity Rules in 1938 and altered the procedures that apply in equity to unite with actions at law. While Professor Sohoni finds no ironclad rule that equitable relief must be limited to the parties, she does not examine the question of who can be made parties under modern procedure.

II. From Rules of Equity to Rules of Civil Procedure

Before 1938, federal equity practice supported a range of representative suits. Equity Rule 38 codified this practice:

When the question is one of common or general interest to many persons constituting a class so numerous as to make it impracticable to bring them all before the court, one or more may sue or defend for the whole.41 41.Federal Rule of Equity 38, 226 U.S. 649, 659 (1912).Show More

A few of these provisions have survived in Federal Rule 23, such as numerosity—“the class is so numerous that joinder of all members is impracticable”—and commonality—“there are questions of law or fact common to the class.”42 42.Fed. R. Civ. P. 23(a)(1), (2).Show More Yet most of the provisions in the current version of Rule 23 have no antecedent in Equity Rule 38, such as the provision for certification of a class action “[a]t an early practicable time.”43 43.Id. 23 (c)(1)(A).Show More In contrast to the short paragraph of the equity rule, the current version of the rule has eight subsections, most with subdivisions, many of which often are further subdivided.44 44.See Id. 23 (a)–(h).Show More It is also a long way from the equity rule to the complexity of class action practice today.

The process of elaboration began with the drafting and approval of the original Rule 23. This process changed the language of Equity Rule 38 and made it into a separate subsection (a), adding subsection (b) on derivative actions, and subsection (c) on notice.45 45.Fed. R. Civ. P. 23 advisory committee’s note to 1938 amendment, 56–60 (1937).Show More The most controversial change was the addition of three subdivisions to subsection (a), spelling out commonality in terms of “the character of the right sought to be enforced.” As the terminology evolved, class actions could be “true,” where the right is “joint or common”; “hybrid,” where the right is “several” and involves “specific property”; and “spurious,” where the right is “several, and there is a common question of law or fact affecting the several rights and a common relief is sought.”46 46.Zechariah Chafee, Jr., Some Problems of Equity 245–46 (1950).Show More Dividing class actions along these lines attracted criticism for relying on “outworn categories of rights,” not fitting the class actions recognized in current practice, and failing to “correspond to any essential differences in the handling or effect of class suits.”47 47.Id. at 245–47.Show More Zechariah Chafee, a prominent critic of the original Rule 23, would have reduced subsection (a) to a slight variant of Equity Rule 38, jettisoning the three subdivisions entirely.48 48.Id. at 249, 281.Show More

The amendments to Rule 23 took the opposite course, driven by concerns over notice to class members in spurious class actions. The Advisory Committee in 1966 focused on the problems created by “one-way intervention” in those class actions, where the absent class members receive notice only after judgment has been entered.49 49.Fed. R. Civ. P. 23 advisory committee’s note to 1966 amendment, 99, 104–06 (1966).Show More Although the committee hesitated to address preclusion, it recognized that it would be difficult to bind class members to a losing judgment in the absence of notice. But if they could still take advantage of a favorable judgment, the party opposing the class was left at a glaring tactical disadvantage. That party could not assert preclusion against absent class members based on a judgment unfavorable to the class, but absent class members could assert preclusion against the opposing party based on a favorable judgment. And instead of eliminating the subdivisions that identified different forms of class actions, the revisers preserved and altered them, moving them to a new subsection (b). That subsection contained the now familiar division of class actions by necessity under (b)(1), in which individual actions would work to the prejudice of the class or the party opposing the class; (b)(2) for class actions for injunctive or declaratory relief for the benefit of the class as a whole; and (b)(3) for class actions for damages and other forms of individual relief.50 50.Id. at 98, 100–04.Show More

To eliminate the problem of one-way intervention in all class actions and to clarify the basis for preclusion by a class action judgment, the revised rule required an early decision on certification and a description of the class in any resulting judgment.51 51.Id. at 104–06. (“Under proposed subdivision (c)(3), one-way intervention is excluded; the action will have been early determined to be a class or nonclass action, and in the former case the judgment, whether or not favorable, will include the class, as above stated.”).Show More The current provisions elaborate upon those adopted in 1966, but they take the same basic form, which is worth quoting at length:

(c) CERTIFICATION ORDER; NOTICE TO CLASS MEMBERS; JUDGMENT; ISSUES CLASSES; SUBCLASSES.

(1) Certification Order.

(A) Time to Issue. At an early practicable time after a person sues or is sued as a class representative, the court must determine by order whether to certify the action as a class action.

(B) Defining the Class; Appointing Class Counsel. An order that certifies a class action must define the class and the class claims, issues, or defenses, and must appoint class counsel under Rule 23(g). . . .

(3) Judgment. . . .

(A) for any class certified under Rule 23(b)(1) or (b)(2), include and describe those whom the court finds to be class members; and

(B) for any class certified under Rule 23(b)(3), include and specify or describe those to whom the Rule 23(c)(2) notice was directed, who have not requested exclusion, and whom the court finds to be class members.52 52.Fed. R. Civ. P. 23(c)(1)(A)–(B), (c)(3)(A)–(B).Show More

These provisions rejected practice under the old rule, which closely resembled the current practice of issuing universal injunctions. An early determination of who was a party to the class action was required, as opposed to the late inclusion of nonparties by one-way intervention or at the remedy stage of the litigation. Those who might benefit from, and be bound by, the class action had to be made known early and had to be specified in the judgment; a general injunction issued at the end of the case would not do.

The crucial provision is in subdivision (c)(1)(A), stating that “the court must determine” whether the case proceeds as a class action “[a]t an early practicable time after a person sues or is sued as a class representative.”53 53.Id. 23(c)(1)(A) (emphasis added).Show More A plaintiff who seeks a universal injunction is suing “as a class representative.” This way of formulating the plaintiff’s role is not some recent invention. Chafee devotes two whole chapters of his book, Some Problems of Equity, to class actions under the heading of “Representative Suits.”54 54.Chafee, supra note 46, at 199–295.Show More He published this book in 1950 and it served as a resource for revisers of Rule 23 in 1966, with prominent citations in their advisory committee notes.55 55.Fed. R. Civ. P. 23 advisory committee’s note to 1966 amendment, 98, 102-03, 104, 105, 106 (1966).Show More They adopted his critique of the original rule, but not his proposal to return to a variation on the old equity rule.

Advocates of universal injunctions without class certification might point to the introductory phrase in Rule 23, which seems to contain permissive language that does not require a class action but allows one: “One or more members of a class may sue or be sued as representative parties on behalf of all members only if” the requirements in the rule are met.56 56.Id. 23(a) (emphasis added).Show More But this resort to an isolated phrase neglects the logical structure of the rule, which sets out the necessary and sufficient conditions for maintaining a class action. Replacing “may” with “must” would seemingly command named plaintiffs to commence litigation “as representative parties,” when they might prefer to bring individual actions and seek only individual relief. This conclusion is confirmed by the use of “may” in the introductory phrase in subdivision (b): “A class action may be maintained if Rule 23(a) is satisfied and if” the requirements of one of the subdivisions of (b) is satisfied.57 57.Id. 23(b).Show More

The Supreme Court has made clear that there is nothing permissive about the duty to make a decision on certification imposed by subdivision (c)(1)(A). In East Texas Motor Freight System Inc. v. Rodriguez,58 58.431 U.S. 395, 404–05 (1977).Show More one reason the Court gave for reversing certification of a class action was the plaintiffs’ failure to move for certification prior to trial. Even if the district court had a duty sua sponte to make the certification decision, the plaintiffs’ failure to do so established that they were not adequately representing the class. Transposed to the context of universal injunctions, plaintiffs cannot engage in artful pleading to refuse to seek class certification or to wait until the remedy stage to request a universal injunction. To delay in this manner is equivalent to delaying a request for class certification and it demonstrates that the case should be treated as an individual action with an individualized remedy.

To dispense with certification is equivalent to dispensing with all of the detailed requirements for maintaining a class action under Rule 23. Plaintiffs who seek a universal injunction without certification simply invite the court to ignore those requirements. The current version of the rule, and its predecessor in 1966, could not have been drafted with this option for wholesale evasion in mind. Here again, the Advisory Committee in 1966 deviated from Chafee’s comment on earlier equity practice: “The very identity of interests which made it easy to bring everybody in, also made it somewhat superfluous to do so.”59 59.Chafee, supra note 46, at 201 (discussing the evolution in equity from bills of peace to representative suits).Show More Instead of going back to equity, the Advisory Committee elaborated at length on the provisions for class actions under Rule 23.

Critics of certification as a prerequisite to universal relief might appeal to the prohibition in the Rules Enabling Act that the “rules shall not abridge, enlarge or modify any substantive right.”60 60.28 U.S.C. § 2072(b).Show More If equity authorizes courts to issue universal injunctions, so the argument goes, then it does so as a matter of substantive law and the Federal Rules cannot infringe upon the plaintiffs’ right to obtain such an injunction. An argument along these lines, however, misconceives the relationship between substance and procedure. Certification under Rule 23(b)(2) presupposes “that final injunctive relief or corresponding declaratory relief is appropriate respecting the class as a whole.”61 61.Fed. R. Civ. P. 23(b)(2).Show More If such equitable relief could not possibly be issued, certification under subdivision (b)(2) has to be denied. The rule no more limits the equitable power than Rule 8(a)(2), requiring “a short and plain statement of the claim showing that the pleader is entitled to relief,”62 62.Id. 8(a)(2).Show More limits the substantive claim asserted by the plaintiff. Both of these provisions, and many others in the Federal Rules, define the conditions under which substantive rights can be asserted in litigation. This is precisely the function of procedural rules: to regulate the process for enforcing substantive rights.63 63.Shady Grove Orthopedic Assocs., P.A. v. Allstate Ins. Co., 559 U.S. 393, 407–08 (2010) (opinion of Scalia, J.).Show More

III. The Burdens and Benefits of Certification

If the argument for certifying a class is so compelling, how did courts come to dispense with it? The answer returns to the history of Rule 23 and the prior equity practice of issuing universal injunctions. That practice had to be reconciled with the division of class actions under the original version of Rule 23 into true, hybrid, and spurious.64 64.Chafee, supra note 46, at 246–47.Show More Absent a joint right shared by the entire class or litigation concerning a common question with regard to a particular piece of property, the first two categories would not apply at all. That left most litigation over universal injunctions in the category of spurious class actions.

Yet, certifying a spurious class action did not yield much in the way of benefits. The court still had to work its way through the three-part division of class actions in an overly conceptual framework.65 65.Id.Show More And if the class were certified as spurious, it still permitted one-way intervention by class members. They could take advantage of a judgment favorable to the class and avoid being bound by an unfavorable judgment. The same would be true of a universal injunction in the absence of certification. Nothing much seemed to be gained by working through the complications of the original Rule 23.

It comes as no surprise that courts avoided certification and the precedential force of the prior equity practice retained its strength. The amendments to Rule 23 in 1966 should have altered the balance between the rule and equity practice, but they did not. The momentum of established precedent has carried over in several circuits, imposing a requirement of “necessity” as a preliminary step in deciding whether to certify a class action.66 66.E.g., Galvan v. Levine, 490 F.2d 1255, 1261–62 (2d Cir. 1973); Sandford v. R.L. Coleman Realty Co., 573 F.2d 173, 178 (4th Cir. 1978).Show More Only the Seventh Circuit has unequivocally rejected this approach.67 67.Vergara v. Hampton, 581 F.2d 1281, 1284 (7th Cir. 1978).Show More The changes made by the 1966 amendments, as discussed earlier, disapproved of one-way intervention, required early determination of certification, and created a special subdivision for class actions seeking declaratory and injunctive relief. Perhaps the uncertainty surrounding the new version of the rules led litigants and courts to avoid it.68 68.Marvin E. Frankel, Some Preliminary Observations Concerning Civil Rule 23, 43 F.R.D. 39, 39 (1967) (The revised rule “tends to ask more questions than it answers.”).Show More After several decades of practice under the rule, those concerns should have dissipated.

Some critics of required certification pronounce it to be “formalistic,”69 69.Morley, supra note 5, at 634.Show More and most lower federal courts have dispensed with certification when it is not needed.70 70.“[T]he need requirement now seems well-accepted as an appropriate consideration when certifying a Rule 23(b)(2) action.” 7AA Charles Alan Wright, Arthur R. Miller & Mary Kay Kane, Federal Practice and Procedure § 1785.2 n.5 (5th ed. 2005 & Supp. 2021).Show More This label calls attention to the burdens of maintaining a class action, in terms of certifying the class, assuring fairness to class members, selecting class counsel, managing the class action, and approving any settlement.71 71.Fed R. Civ. P. 23(c)–(g).Show More These costs are borne by the parties, their attorneys, and the judge. Yet they yield benefits in terms of defining the class affected by the judgment, determining the scope of the judgment itself, and protecting against inadequate representation and collusive settlements.72 72.Id. 23(a)(4), (c)(3)–(4), (e)(2).Show More These benefits often go to the form that a certification order and a judgment take, but they are not limited to matters of form.

The foundational case on adequacy of representation under the Due Process Clause, Hansberry v. Lee,73 73.311 U.S. 32 (1940).Show More illustrates the need for careful attention to the certification and management of class actions. There, white homeowners tried to bind prospective Black homeowners and those who would sell to them by a judgment upholding a racially restrictive covenant. The interests of these two groups were directly adverse. The first group wanted segregation; the second wanted integration.74 74.Id. at 37–38.Show More Several of the requirements of Rule 23 are directed to the same end of protecting the class. Transposed to recent cases on universal injunctions, adequacy of representation appears to be a significant constraint on judicial power. In Texas v. United States,75 75.86 F. Supp. 3d 591, 604 (S.D. Tex.), aff’d, 809 F.3d 134 (5th Cir. 2015), aff’d by an equally divided Court, 136 S. Ct. 2271 (2016) (mem.).Show More for instance, it is hard to believe that every state would have followed Texas in opposing the Obama Administration’s immigration policy with respect to “dreamers.” An injunction for the benefit of Texas, or perhaps limited geographically to Texas, has far more plausibility than one that applied nationwide. Just over half the states joined Texas in claiming that the federal immigration policy had a net adverse effect upon them.76 76.Id.at 604.Show More The other half did not want the injunction and a third opposed it,77 77.Brief of the States of Washington et al. as Amici Curiae Supporting Petitioners at 1, United States v. Texas, S. Ct. 2271 (2016) (mem.) (No. 15-674) 2016 WL 922867.Show More, yet it applied in their territory to the same extent as in Texas.

Class actions for injunctions under subdivision 23(b)(2) impose significantly lighter burdens than those, usually for damages, under subdivision 23(b)(3). The prerequisites for certification are simpler and less onerous under subdivision (b)(2), which requires only that “the party opposing the class has acted or refused to act on grounds that apply generally to the class, so that final injunctive relief or corresponding declaratory relief is appropriate respecting the class as a whole.”78 78.Fed. R. Civ. P. 23 (b)(2).Show More By contrast, subdivision (b)(3) requires a detailed inquiry into whether the questions common to the class predominate over individual issues and that a class is superior to other means of adjudication.79 79.Id. 23(b)(3).Show More Likewise the provisions for notice to the class are simply discretionary under subdivision (b)(2), while they are mandatory for all identifiable class members under subdivision (b)(3).80 80.Id. 23(c)(2).Show More For these reasons, plaintiffs usually prefer certification under (b)(2) to certification under (b)(3), as in the well-known case of Wal-Mart Stores, Inc. v. Dukes.81 81.564 U.S. 338, 345 (2011).Show More Given the more lenient standards for certification under (b)(2), there is no need to give plaintiffs the further option of not seeking certification at all.

Some decisions have dispensed with the need for certification for reasons entirely independent of the requirements of Rule 23. They have relied on the agreement by the party opposing the class to be bound by a universal injunction. This concession goes to the remedy stage of the litigation, to the acceptance that any relief awarded to the plaintiff extends to everyone similarly situated. Judge Friendly took this approach in his influential opinion in Galvan v. Levine,82 82.490 F.2d 1255, 1257, 1261 (2d Cir. 1973).Show More a case challenging state limits on unemployment benefits. The state had already withdrawn its policy of denying benefits to workers from Puerto Rico before judgment was entered.83 83.Id. at 1261. For further discussion of this case, see Bray, supra note 1, at 441–43.Show More In that posture of the case, Judge Friendly concluded, certification of a class was “largely a formality, at least for the plaintiffs.”84 84.Galvan, 490 F.2d at 1261.Show More But so was entry of a statewide injunction, since the state no longer contested eligibility for unemployment benefits to individuals in the plaintiffs’ position. By the time the case came before Judge Friendly on appeal, the state had effectively waived any objection to the scope of the injunction, making it difficult to reverse the district court’s judgment on this ground.

Nevertheless, even in cases where the defendant does not contest the scope of the relief requested, certification has its uses. It prevents the party opposing the class from changing positions, for instance, if a new government comes into office. There is no apparent reason to postpone resolution of such issues to the enforcement stage of the case, when they can be resolved at the outset. They would also be easily resolved if the party opposing the class agrees that the case should proceed as a class action. The decision to certify the class and issues of managing the class action become much easier to resolve once the parties agree on the scope of the action—if, indeed, these issues are contested at all.

Requiring certification forces an early decision on who can benefit from the litigation. The requirement of a decision “[a]t an early practicable time,”85 85.Fed. R. Civ. P.23(c)(1)(A).Show More comes long before the remedy stage of litigation, in which the presumption that the scope of the remedy should match the scope of the wrong might exert undue influence.86 86.Bray, supra note 1, at 467–68.Show More Rule 23 creates a more systematic structure for determining the scope of the injunction than the various ad hoc factors that have been proposed as limits: geographical restrictions based on the limits of the federal district or federal circuit; precedent in at least three circuits that supports the injunction; assuring equal treatment of all those who might benefit from the injunction.87 87.See supra note 38, and accompanying text.Show More Other proposals look to expanding the jurisdiction of three-judge district courts to handle universal injunctions, with direct review by the Supreme Court; and to relying upon judicial review under the Administrative Procedure Act, so that the scope of any court order matches the scope of executive action.88 88.See supra notes 32, 39, and accompanying text.Show More

The terms of Rule 23 retain enough flexibility to accommodate these considerations, assuming they are relevant, or if Congress acts to amend the relevant statutes. The rule itself does not prevent certification of class actions on a national, regional, or state-wide scale. The Supreme Court, for instance, upheld a nationwide class action in Califano v. Yamasaki.89 89.442 U.S. 682, 702–03 (1979).Show More Whether other cases can be certified on such a large scale depends on whether the requirements of the rule are met. As the Supreme Court has emphasized, “careful attention to the requirements of Fed. Rule Civ Proc. 23 remains nonetheless indispensable.”90 90.East Texas Motor Freight System Inc. v. Rodriguez, 431 U.S. 395, 405 (1977).Show More The availability of universal injunctions need not be addressed as a question of all or nothing. Indeed, even if a class action is certified, the court still must address the question of appropriate relief, which might, or might not, result in issuance of a broad injunction. As an initial matter, however, the scope of an injunction must be addressed for what it is: a question of joinder of parties.

Conclusion

The historical argument for universal injunction has, paradoxically, a curiously anachronistic quality. A detailed look at the historical record establishes the practice of issuing such injunction as a matter of equity. A detailed look at the Federal Rules of Civil Procedure makes this practice subject to procedural rules on joinder. Perhaps after 1938, but certainly after 1966, Rule 23 changed the procedural landscape surrounding equity practice, no matter how much it previously favored universal injunctions without joinder. It is time to follow the rule.

  1. * Distinguished Professor and Earle K. Shawe Professor of Employment Law, University of Virginia School of Law.

  2. Samuel L. Bray, Multiple Chancellors: Reforming the National Injunction, 131 Harv. L. Rev. 417, 418–19 (2017) (recounting the litigation).

  3. State of Texas v. United States, 21-cv-00003 (S.D. Tex. Feb. 23, 2021). The court enjoined a 100-day moratorium on deportations imposed by the Department of Homeland Security in the Biden Administration.

  4. Fed. R. Civ. P. 23.

  5. Alan Trammel, Demystifying Nationwide Injunctions, 98 Tex. L. Rev. 67, 77–78 (2019) (noting that due process protections in class action have “little to no bearing on most nationwide injunctions, though, in which the problematic questions concern the rights of nonparties”) (emphasis in original).

  6. Michael T. Morley, Nationwide Injunctions, Rule 23(b)(2), and the Remedial Powers of the Lower Courts, 97 B.U. L. Rev. 615, 634 (2017) (“In short, certification under Rule 23(b)(2) is a formalistic gesture that neither limits the scope of a court’s discretion nor guarantees due process for putative class members.”).

  7. Bray, supra note 1, at 469–81.

  8. Id. at 464–65.

  9. Mila Sohoni, The Lost History of the “Universal” Injunction, 133 Harv. L. Rev. 920, 982–93 (2020) (concluding her analysis with decisions from the 1930s and 1940s).

  10. 86 F. Supp. 3d 591 (S.D. Tex.), aff’d, 809 F.3d 134 (5th Cir. 2015), aff’d by an equally divided Court, 136 S. Ct. 2271 (2016) (mem.).

  11. This program, Deferred Action for Parents of Americans and Lawful Permanent Residents, conferred benefits upon over four million individuals who are currently in the country without documentation, chiefly deferring any attempt to deport them. Texas v. United States, 86 F. Supp. 3d at 604.

  12. Trump v. Hawaii, 138 S. Ct. 2392 (2018).

  13. Id. at 2425, 2427–29 (Thomas, J., concurring).

  14. Id. at 2425.

  15. Id. at 2424–25.

  16. As occurred, for instance, in Galvan v. Levine, 490 F.2d 1255, 1257 (2d Cir. 1973), which concerned a statewide injunction against denial of unemployment benefits to certain workers from Puerto Rico.

  17. Howard M. Wasserman, Congress and Universal Injunctions, 2021 Cardozo L. Rev. De Novo 187, 191 (2021).

  18. Warth v. Seldin, 422 U.S. 490, 499 (1975) (“The Art. III judicial power exists only to redress or otherwise to protect against injury to the complaining party, even though the court’s judgment may benefit others collaterally.”).

  19. A recent case generated multiple opinions in the district court, court of appeals, and the Supreme Court, eventually yielding the conclusion that the plaintiff had sufficiently alleged standing to move beyond the pleading stage of litigation. See Robins v. Spokeo, Inc., 2011 WL 597867 (C.D. Cal. 2011), rev’d, 742 F.3d 409 (9th Cir. 2014), vacated and remanded, 136 S. Ct. 1540 (2016), on remand, 867 F.3d 1108 (9th Cir. 2017), cert. denied, 138 S. Ct. 931 (2018). All this occurred even though Congress had clearly granted the plaintiff the right to sue. 136 S. Ct. at 1545.

  20. Bray, supra note 1, at 437–45.

  21. Id. at 424–27.

  22. Id. at 450–52.

  23. 262 U.S. 447 (1923).

  24. Bray, supra note 1, at 430–33.

  25. 262 U.S. at 488.

  26. 392 U.S. 83 (1968).

  27. Id. at 83–84.

  28. See Sohoni, supra note 8, at 943–93.

  29. Id. at 993–1008.

  30. For a survey of these problems, see Bray, supra note 1, at 457–65.

  31. 28 U.S.C. § 1407(a), (b).

  32. Bray, supra note 1, at 465.

  33. 5 U.S.C. § 706; Sohoni, supra note 8, at 991–93.

  34. John Harrison, Section 706 of the Administrative Procedure Act Does Not Call for Universal Injunctions or Other Universal Remedies, 37 Yale J. L. & Reg. Online Bull., 37 (2020).

  35. Id.

  36. United States v. Mendoza, 464 U.S. 154, 158 (1984).

  37. Taylor v. Sturgell, 553 U.S. 880, 892–95 (2008).

  38. See infra notes 49–59 and accompanying text.

  39. Trammel, supra note 4, at 103–13; Sohoni, supra note 8, at 995.

  40. Sohoni, supra note 8, at 995.

  41. Robert L. Stern & Eugene Gressman, Supreme Court Practice, For Practice in the Supreme Court of the United States 66–67 (4th ed. 1969).

  42. Federal Rule of Equity 38, 226 U.S. 649, 659 (1912).

  43. Fed. R. Civ. P. 23(a)(1), (2).

  44. Id. 23 (c)(1)(A).

  45. See Id. 23 (a)–(h).

  46. Fed. R. Civ. P. 23 advisory committee’s note to 1938 amendment, 56–60 (1937).

  47. Zechariah Chafee, Jr., Some Problems of Equity 245–46 (1950).

  48. Id. at 245–47.

  49. Id. at 249, 281.

  50. Fed. R. Civ. P. 23 advisory committee’s note to 1966 amendment, 99, 104–06 (1966).

  51. Id. at 98, 100–04.

  52. Id. at 104–06. (“Under proposed subdivision (c)(3), one-way intervention is excluded; the action will have been early determined to be a class or nonclass action, and in the former case the judgment, whether or not favorable, will include the class, as above stated.”).

  53. Fed. R. Civ. P. 23(c)(1)(A)–(B), (c)(3)(A)–(B).

  54. Id. 23(c)(1)(A) (emphasis added).

  55. Chafee, supra note 46, at 199–295.

  56. Fed. R. Civ. P. 23 advisory committee’s note to 1966 amendment, 98, 102-03, 104, 105, 106 (1966).

  57. Id. 23(a) (emphasis added).

  58. Id. 23(b).

  59. 431 U.S. 395, 404–05 (1977).

  60. Chafee, supra note 46, at 201 (discussing the evolution in equity from bills of peace to representative suits).

  61. 28 U.S.C. § 2072(b).

  62. Fed. R. Civ. P. 23(b)(2).

  63. Id. 8(a)(2).

  64. Shady Grove Orthopedic Assocs., P.A. v. Allstate Ins. Co., 559 U.S. 393, 407–08 (2010) (opinion of Scalia, J.).

  65. Chafee, supra note 46, at 246–47.

  66. Id.

  67. E.g., Galvan v. Levine, 490 F.2d 1255, 1261–62 (2d Cir. 1973); Sandford v. R.L. Coleman Realty Co., 573 F.2d 173, 178 (4th Cir. 1978).

  68. Vergara v. Hampton, 581 F.2d 1281, 1284 (7th Cir. 1978).

  69. Marvin E. Frankel, Some Preliminary Observations Concerning Civil Rule 23, 43 F.R.D. 39, 39 (1967) (The revised rule “tends to ask more questions than it answers.”).

  70. Morley, supra note 5, at 634.

  71. “[T]he need requirement now seems well-accepted as an appropriate consideration when certifying a Rule 23(b)(2) action.” 7AA Charles Alan Wright, Arthur R. Miller & Mary Kay Kane, Federal Practice and Procedure § 1785.2 n.5 (5th ed. 2005 & Supp. 2021).

  72. Fed R. Civ. P. 23(c)–(g).

  73. Id. 23(a)(4), (c)(3)–(4), (e)(2).

  74. 311 U.S. 32 (1940).

  75. Id. at 37–38.

  76. 86 F. Supp. 3d 591, 604 (S.D. Tex.), aff’d, 809 F.3d 134 (5th Cir. 2015), aff’d by an equally divided Court, 136 S. Ct. 2271 (2016) (mem.).

  77. Id. at 604.

  78. Brief of the States of Washington et al. as Amici Curiae Supporting Petitioners at 1, United States v. Texas, S. Ct. 2271 (2016) (mem.) (No. 15-674) 2016 WL 922867.

  79. Fed. R. Civ. P. 23 (b)(2).

  80. Id. 23(b)(3).

  81. Id. 23(c)(2).

  82. 564 U.S. 338, 345 (2011).

  83. 490 F.2d 1255, 1257, 1261 (2d Cir. 1973).

  84. Id. at 1261. For further discussion of this case, see Bray, supra note 1, at 441–43.

  85. Galvan, 490 F.2d at 1261.

  86. Fed. R. Civ. P.

     

    23(c)(1)(A).

  87. Bray, supra note 1, at 467–68.

  88. See supra note 38, and accompanying text.

  89. See supra notes 32, 39, and accompanying text.

  90. 442 U.S. 682, 702–03 (1979).

  91. East Texas Motor Freight System Inc. v. Rodriguez, 431 U.S. 395, 405 (1977).

Black Women’s Hair and Natural Hairstyles in the Workplace: Expanding the Definition of Race Under Title VII

Despite the Equal Employment Opportunity Commission’s (“EEOC”) interpretation of Title VII as including cultural characteristics often associated with race or ethnicity, Black women have not successfully litigated the freedom to wear their hair in natural hairstyles in the workplace. Courts have held that racial discrimination in the workplace must be based on immutable characteristics to trigger Title VII. Black women who deviate from the norm face significant barriers in the workplace. The bias against Black women’s hair, which has been perceived as unprofessional, adds additional burdens on Black women leading to pressure to conform to Eurocentric beauty standards. This pressure has had significant detrimental financial, health, and professional implications for Black women. This Essay contributes to debates on employment discrimination by arguing for the expansion of the definition of Title VII’s racial discrimination to include natural hair and natural hairstyle discrimination following the Supreme Court’s reasoning in Title VII sex discrimination cases. This Essay outlines the history of Black hair, its meaning in Black culture, and how implicit bias against Black hair has negatively affected Black women in the workplace. This Essay also provides a description of seminal cases on Black Women’s hair in the workplace and the immutability standard’s flaws. Lastly, this Essay makes a case for expanding Title VII’s definition of racial discrimination, drawing on the principle of reasonably comparable evils.

Introduction

Upon entering the professional world, students are often told to be themselves because interviews are a way for firms to determine whether they will fit into the firms’ culture. Implicit or unconscious bias plays a role in determining how they will be judged in the workplace context. They are encouraged to be themselves but do not understand that this “self” will be judged based on proximity to the accepted norm––straight white men. Deviating from the norm can be a liability in the workplace. In order to penetrate influential networks and take advantage of promotion opportunities, a person has to be perceived as “fitting in” with the dominant firm culture.1.Ashleigh Shelby Rosette & Tracy L. Dumas, The Hair Dilemma: Conform to Mainstream Expectations or Emphasize Racial Identity, 14 Duke J. Gender L. & Pol’y 407, 412 (2007) (explaining that socio-psychology research has provided strong evidence showing that being viewed as different can be a liability in the workplace); Steven Reidy & Meher Kanigiri, How Are Ethnic Hairstyles Really Viewed in the Workplace?, Cornell Univ. ILR School (2016) (explaining that the more someone is perceived as “fitting in” with the firm culture “the better their workplace outcomes, and the greater the degree of deviation from the group the worse the outcome,” and thus workers whose identity differs from the dominant firm culture face two choices: assimilating to the dominant firm culture or being excluded).Show More Additionally, how others view them has implications on how their non-visual qualities are assessed, including their ability to do the work assigned to them or how professional they look.

For Black women, who differ from this norm because of their skin color and gender, being themselves includes bringing their natural hair to these firms.2.Ra’Mon Jones, What the Hair: Employment Discrimination Against Black People Based on Hairstyles, 36 Harv. BlackLetter L.J. 27, 29 (2020) (defining natural hair “as hair that has not been altered by chemical straighteners, including relaxers and texturizers”).Show More Black women’s hairstyle choices can exacerbate the perceptions of dissimilarity or deviation from the norm.3.See Rosette & Dumas, supra note 1, at 413.Show More Many Black women know that the more different they appear to be, the more “uncomfortable” their white colleagues will be with them, and the harder it will be for them to achieve full acceptance at work.4.Id. at 412.Show More Hence, Black women are routinely motivated to achieve the looks of their white counterparts.5.Id.; seeJena McGregor, More States Are Trying to Protect Black Employees Who Want to Wear Natural Hairstyles at Work, Wash. Post (Sept. 19, 2019), https://www.washingtonpost.com/business/2019/09/19/more-states-are-trying-protect-black-employees-who-want-wear-natural-hairstyles-work/ [https://perma.cc/S26M-ABL6] (noting that Minda Harts, founder of a career development company for women of color, stated that she wears her hair straight 99 percent of the time because she has seen how others look upon clients wearing braids and natural hairstyles in corporate America).Show More Black hair texture is a physical characteristic and ethnic indicator of African descent, different from all other races’ hair because of its shape and composition.6.Kim Carter, Workplace Discrimination and Eurocentric Beauty Standards, 36 GPSOLO 36, 36 (2019); Venessa Simpson, What’s Going on Hair?: Untangling Societal Misconceptions that Stop Braids, Twists, and Dreads from Receiving Deserved Title VII Protection, 47 Sw. L. Rev. 265, 265 (2017).Show More However, throughout history, Black hair textures and natural hairstyles have been considered “unprofessional,” “unkempt,” and “messy.”7.See Carter, supra note 6, at 36.Show More

As a young Black woman born and raised in Cameroon, a majority Black country in Africa, I had never considered my natural hair or protective hairstyles,8.“Protective hairstyles” are also called natural hairstyles. They can be used interchangeably.Show More such as box braids, cornrows, and Senegalese twists, to be unprofessional, unkempt, and messy. They have always been a part of my identity. As a young girl, a lady would “cornrow” or “thread” my hair every two weeks on Saturday mornings, sometimes adding beads to the hairstyle.9.Cornrows are also called plaits. Threading one’s hair means wrapping one’s hair in thread.Show More As I grew older, I was able to get box braids and other natural hairstyles. Changing one’s hair was the norm. Adorning one’s hair with beads, cowries, scarves, and other accessories was not unconventional. No one would frown upon me for wearing cornrows for two weeks and then wearing my hair in braids the following weeks. Women in the workforce in Cameroon would always wear their hair in intricate hairstyles.10 10.The historian John Thornton wrote that when Europeans first came into contact with western Africa in the late fifteenth century, they remarked on the many hairstyles African wore. There were “various combinations of braids, plaits . . . shaved areas, and areas cut to different lengths . . . creating a stunning effect.” See Shane White & Graham White, Slave Hair and African American Culture in the Eighteenth and Nineteenth Centuries, 61 J. Southern Hist. 45, 51 (1995).Show More It is not until I moved to the United States that I realized that others might perceive my hair as unprofessional, unkempt, and messy.

Title VII of the Civil Rights Act of 1964 prohibits workplace discrimination on the basis of “race, color, religion, sex or national origin.”11 11.Civil Rights Act of 1964, Pub. L. No. 88-352, 78 Stat. 241, 254.Show More Workplace discrimination based on natural hair and natural hairstyles is not one of the protected classes enumerated in Title VII. Because courts have determined that racial discrimination in the workplace must be based on immutable characteristics to trigger Title VII, a Black woman who is discriminated against because she wears her hair in a natural hairstyle is not protected under the law in most states.12 12.See infraSection III.C.Show More Afros have been the only recognized “immutable” hairstyle that a Black woman can wear in the workplace.

This Essay argues that the Supreme Court should expand the definition of racial discrimination under Title VII to include natural hair and natural hairstyle discrimination, dropping the immutability standard. Part I provides a brief history of Black hair and its meaning in Black cultures and explores the prejudice against Black women’s hair in the workplace. Part II provides background information on Title VII of the Civil Rights Act of 1964 and discusses prominent case precedent establishing that Title VII’s protections against racial discrimination in the workplace did not extend to hair discrimination against Black women. Part II also addresses the Equal Employment Opportunity Commission’s (EEOC) interpretation of racial discrimination under Title VII, the immutability standard used by courts, and objections to the standard. Lastly, Part III describes Title VII discrimination cases and the Supreme Court’s expansion of the definition of Title VII’s sex discrimination through a series of seminal sex discrimination cases. Additionally, Part III applies the Supreme Court’s reasoning in Title VII sex discrimination cases to hair discrimination, adopting the “reasonably comparable evils” principle enunciated in these cases to argue for the expansion of the definition of racial discrimination under Title VII.

I. Black Hair: its Meaning in Black Culture and Prejudice Against Black Women’s Hair in the Workplace

A. Black Hair History and its Meaning in Black Culture

In African civilizations, hair served a broad range of purposes, including aesthetic, defining social status, class distinction and identification, enhancing self-image and esteem, and cultural and religious purposes.13 13.See Sharon Adetutu Omotoso, Gender and Hair Politics: An African Philosophical Analysis, 12 J. Pan African Stud. 5, 5 (2018); Ciera Berkemeyer, New Growth: Afro-Textured Hair, Mental Health, and the Professional Workplace, 44 J. Legal Prof. 279, 284 (2020); see also Rumeana Jahangir, How Does Black Hair Reflect Black History?, BBC News (May 31, 2015), https://www.bbc.com/news/uk-england-merseyside-31438273 [https://perma.cc/‌XZF2-UUN2]; White & White, supra note 10, at 49;Reidy & Kanigiri, supra note 1.Show More It is the texture of African hair that allowed it to be designed and shaped in different ways.14 14.See White & White, supra note 10, at 50.Show More As an instrument for identity, ethnic group societies in West Africa, including the Mendes and the Mandingo, would use their hair to communicate among themselves.15 15.See Omotoso, supra note 13, at 9.Show More Hairstyles worn by community members helped identify a person’s age, rank in the community, ethnic identity, marital status, and religion, among other things.16 16.Id.Show More For example, powerful hunters and warriors would wear a patch of hair that would grow on a spot in the middle of their head infused with potent medicine to boost their body physically and spiritually.17 17.Id. at 10.Show More Black hair is also associated with religion and spirituality.18 18.See id. at 11; Berkemeyer, supra note 13, at 284.Show More Given its location at the highest point of the body, hair was said to be the channel for spiritual interaction with God.19 19.See Jahangir, supranote 13; seealsoOmotoso, supra note 13, at 12.Show More It was held that God would set the occasions that would then primarily determine hairstyles or hair patterns.20 20.See Omotoso, supra note 13, at 11.Show More In the Yoruba culture, children born with knotted hair (i.e., dreadlocks) were regarded as particularly favored with wealth.21 21.Id.Show More The child’s name would reflect that belief––“Dada-olowo eyo,” which means a person who is “divinely blessed with cowries (money) to attract wealth to their family.”22 22.Id.Show More Consequently, their head would not be washed during the naming ceremony because the hair had “special powers.”23 23.Id.Show More Even if the hair was washed, it would not be combed.24 24.Id.Show More

Exposure to Western cultures through the slave trade, colonialism, neo-colonialism, and globalization have transformed the meaning of Black hair in Africa and around the world, with African cultures coming to be viewed as unconventional and uncivilized.25 25.Id. at 12.Show More Slavery, a traumatic experience for Africans both physically and psychologically, contributed to the obliteration of Africans’ culture and identity.26 26.See Berkemeyer, supra note 13, at 284.Show More Europeans had traded and communicated with Africans for a long time and thus knew the complexity and the importance of Black hair.27 27.Tabora A. Johnson & Teiahsha Bankhead, Hair It Is: Examining the Experiences of Black Women with Natural Hair, 2 Open J. Soc. Sci. 86, 87 (2014).Show More European captors would shave African slaves’ heads to rob them of their humanity and break their spirit before they boarded slave ships or upon their arrival to the Americas.28 28.See Berkemeyer, supra note 13, at 284; Johnson & Bankhead, supra note 27, at 87.Show More Nevertheless, slaves would use their hair and hairstyles, specifically braids, as a carrier of messages to communicate the number of roads leading to freedom or places of meeting to escape servitude.29 29.See Berkemeyer, supra note 13, at 284.Show More They would also wear myriad hairstyles, engaging in the same cultural activity as their African counterparts.30 30.See White & White, supra note 10, at 51 (explaining that “[d]escriptions of hair arrangements contained in eighteenth-century runaway advertisements indicate that, within the obvious limits imposed by an oppressive system, African American slaves were engaged in the same cultural activity”).Show More

Eighteenth-century America viewed the physical traits of African Americans, including their hair, negatively.31 31.See White & White, supra note 10, at 58 (explaining that Black people “were not supposed to be proud of their hair, as they or their ancestors had been in Africa; any suggestion that they were would have sharply challenged complacent white cultural assumptions”).Show More “To have Black hair was to have slave hair,” which was considered to be the quintessential trait of “negro” status.32 32.Crystal Powell, Bias, Employment Discrimination, and Black Women’s Hair: Another Way Forward, 2018 BYU L. Rev. 933, 940–41 (2019) (explaining that “negro status” was the status of a “sub-human” with natural hair linked to non-human qualities, such as wool or bush).Show More Europeans did not consider Black hair to be hair at all.33 33.See Johnson & Bankhead, supra note 27, at 88.Show More After the abolishment of slavery in much of the world, including the United States, several Black people adjusted their hair to fit in with mainstream white society.34 34.See Jahangir, supranote 13.Show More To achieve that, Black people would smooth their hair texture, sometimes using chemical mixtures.35 35.See Omotoso, supra note 13, at 13–14 (noting that as of 2005, African-Americans spent $81.6 million per annum on chemical products (especially relaxers)); Chante Griffin, How Natural Black Hair at Work Became a Civil Rights Issue, JSTOR Daily (July 3, 2019), https://daily.jstor.org/how-natural-black-hair-at-work-became-a-civil-rights-issue/ [https://perma.cc/H9P4-6J79] (explaining that Madam C.J. Walker, a Black woman, invented the hot comb used to straighten Black hair, providing Black women an “avenue for increased societal acceptance in an era when minstrel songs mocked” African Americans’ hair texture).Show More With the 1960s Civil Rights Movement in the United States and protests against racial segregation and tyranny, the afro became a “symbol of rebellion, pride and empowerment,” and a prominent affirmation of African roots and Black beauty.36 36.Jahangir, supranote 13; see also Reidy & Kanigiri, supra note 1.Show More Colonialism caused a similar ambivalence toward Black hair in Africa. African men and women alike were caught in a predicament––they either had to assimilate to colonialist culture or adhere strictly to their cultural ideals.37 37.See Omotoso, supra note 13, at 12.Show More In modern Africa, recent trends show a tendency towards the use of hair extensions and chemical application among women due to continued exposure to Western culture through the media and globalization and the desire to gain social acceptance.38 38.See id. at 6.Show More Nonetheless, hair continues to serve many of its original purposes in Africa, and intricate African hairstyles continue to be seen across the continent.

Today, more than just serving its traditional purposes, African hairstyles have come to serve new purposes. Cutting one’s hair, once associated with the mourning of close relatives in some ethnic groups, has now become a time-saving hairstyle.39 39.See id. at 13.Show More Similarly, protective styles provide a way for Black women to protect their hair. Due to its texture and shape, Black hair is more susceptible to dryness and breakage than straight hair.40 40.See Berkemeyer, supra note 13, at 281 (explaining that “when follicles curve sebum is not able to travel the length of the hair. Because moisture is harder to retain in [curly and kinky] textures, the natural hair community often turns to protective styling to maintain healthy, moisturized hair” because it reduces continuous manipulation of hair, promotes growth retention, and protects the ends of the hair).Show More Protective styles enable Black women to maintain healthy and moisturized hair.41 41.See id. at 281.Show More They also allow Black women to reduce daily manipulation of their hair, which helps to prevent breakage.42 42.See Simpson, supra note 6, at 266.Show More

However, biases, implicit or explicit, toward African attributes continue to persist today, especially in the United States, resulting in Black people seeking to conform to European beauty standards by “straitening—or removing the kink from—[their] Black hair.”43 43.Carter, supra note 6, at 36.Show More Some people still consider Black hair to be “unacceptable, unprofessional and even ugly.”44 44.Reidy & Kanigiri, supra note 1; see also Rosette & Dumas, supra note 1, at 407.Show More Despite the Civil Rights Act of 1964, which ended segregation in public areas and prohibited employment discrimination, the social pressure to mimic European hair has persisted in the United States, affecting Black women’s hair-grooming decisions.45 45.See Griffin, supra note 35 (noting that the Act created the EEOC, which operates “as the lead enforcement agency in the area of workplace discrimination” and explaining that when the EEOC was introduced, the federal government’s main concern was to ensure that individuals be granted equal access to public workplaces—it did not envisage that Black hair would require equal access as well); Kalen Kennedy, My Natural Hair Is Unprofessional: The Impact of Black Hairstyles on Perceived Employment-Related Characteristics 8 (2020) (Master’s Thesis, Marquette University), https://epublications.marquette.edu/cgi/viewcontent‌.cgi?article=1580&context=theses_open [https://perma.cc/D9EN-H43Q](explaining that Black women are aware of the general public’s perceptions of their hair and go to great lengths to avoid being perceived negatively because of their hair and hairstyle. This includes “spending hours preparing their hair for work . . . spending large amounts of money on hair supplies, avoiding physical activity, or avoiding going outdoors when it is raining”).Show More

B. How Implicit Bias Against Black Hair Has Affected Black
Women in the Workplace

While not all employers have grooming policies that expressly address Black hair and protective hairstyles in the workplace, there remains a perception that Black hair is unprofessional and unkempt.46 46.See Berkemeyer, supra note 13, at 282 (stating that even where grooming policies do not specifically target Black women’s hair, implicit bias may play a significant role in crafting grooming policies that seem to be racially neutral but that adversely affect Black professionals and Black employees); Kennedy, supra note 45, at 8.Show More Multiple studies have documented implicit bias against Black hair.47 47.All the studies that I found related to implicit bias against Black hair. It would be rare for someone to make overtly racist comments about Black women’s hair in the workplace since that could open the door to liability in some states. Depending on whether the style is the Afro, it could also be a Title VII violation.Show More While a person’s unconscious beliefs may not always align with their conscious beliefs,48 48.See Laura McLaughlin, Self-Sabotaging: How Implicit Bias May Be Contributing to your “Can’t Find Any Women or Diverse Associates” Hiring Problem, ABA (Mar. 31, 2016),https://www.americanbar.org/groups/litigation/committees/commercial-business/practice/2016/self-sabotaging-how-implicit-bias-may-be-contributing-cant-find-any-women-diverse-associates-hiring-problem/ [https://perma.cc/77XL-23YF]; Melissa Little, Implicit Bias: Be an Advocate for Change, ABA, https://www.americanbar.org/groups/‌young_lawyers/publications/tyl/topics/professional-development/implicit-bias-be-an-advocate-for-change/ [https://perma.cc/WW7H-93PL] (last visited Nov. 18, 2020).Show More when it comes to Black women’s hair, the result remains the same––pressure on Black women to style their hair in a way that conforms to Eurocentric hair standards. Participants in a study were asked to link a hairstyle to different traits.49 49.See Kennedy, supra note .Show More They associated straightened hair with “clean, professional, feminine, and pretty,” afro with “wild, radical, and solidarity,” and dreadlocks with “drug use, ghetto, nasty, and gross.”50 50.Id. at 17.Show More

The Perception Institute’s “Good Hair” study examined the explicit and implicit views about Black women’s hairstyles.51 51.See Alexis McGill Johnson et al., Perception Inst., The “Good Hair” Study: Explicit and Implicit Attitudes Toward Black Women’s Hair (2017), https://perception.org/wp-content/uploads/2017/01/TheGood-HairStudyFindingsReport.pdf [https://perma.cc/592M-J8KE].Show More The study comprised of a national sample of 4,163 women and men who were asked about their opinions concerning textured hair––“hairstyles that exhibit a prototypically Black hair texture”––and smooth hair.52 52.Id. at 4; Kennedy, supra note , at 9.Show More The research’s findings revealed that participants viewed Black women’s textured hair as “less beautiful, sexy, attractive, and professional than smooth hair.”53 53.Id.Show More Women participants describe “good hair” as “straight, smooth, silky, and soft, not frizzy or ‘kinky.’”54 54.Johnson et al., supra note 51, at 11.Show More Black women perceived their textured hair as socially stigmatized, a view which is confirmed by white women’s devaluation of textured hair.55 55.See Kennedy, supra note 45, at 10; Johnson et al., supra note 51, at 6; see Rosette & Dumas, supra note 1, at 415–16 (Black women “are highly aware that their hairstyles may highlight the fact that they are different and thereby invite negative stereotypes about Black women . . . [and have had to] ‘shift so that their hair doesn’t blind their employers to their talent’” (citation omitted)).Show More Some women went as far as linking good hair to whiteness, “explaining that the ‘good hair’ standard is based on the type of hair that white women have, and is often hair that biracial women have.”56 56.Johnson et al., supra note 51, at 11.Show More Both Black and white women thought that afros are considered unprofessional in the United States, indicating a common understanding across races of the innate bias in the United States’ conceptualization of professionalism.57 57.See Kennedy, supra note , at 10.Show More Black women are also more likely to be sent home from the workplace because of their hair.58 58.The CROWN Act, The Official Campaign of the CROWN Act Led by the CROWN Coalition, https://www.thecrownact.com [https://perma.cc/UE6K-XA2X] (last visited May 8, 2021).Show More Similarly, the Hair Implicit Association Test’s findings indicated that while most participants, regardless of race, show an implicit bias against textured hair, white men and women displayed stronger levels of implicit bias against textured hair.59 59.SeeKennedy, supra note 45, at 10 (hairstyles were categorized as either textured (afro, dreadlocks, twist-out, braids) or smooth (straight, long curls, short curls, and pixie cut)); see also Johnson et al., supra note 51, at 13.Show More

II. Seminal Cases on the Issue of Black Women’s Hair in the Workplace and the Immutability Requirement

A. Black Women’s Inability to Successfully Litigate the Freedom to Wear Their Hair in Natural Hairstyles

Title VII of the Civil Rights Act of 1964 bans employment discrimination based on “race, color, religion, sex and national origin” in making hiring decisions, granting or denying promotions, or determining a person’s pay or benefits.60 60.See Civil Rights Act of 1964, Pub. L. No. 88-352, 78 Stat. 241, 254.Show More In its manual interpreting Title VII, the EEOC, the federal agency responsible for enforcing Title VII, prohibits employment discrimination against a person based on an immutable characteristic associated with race, such as hair texture or certain facial features.61 61.SeeFacts About Race/Color Discrimination, U.S. Equal Emp’t Opportunity Comm’n, https://www.eeoc.gov/laws/guidance/facts-about-racecolor-discrimination [https://perma.cc/MX5A-VGQQ] (last visited May 8, 2021).Show More The EEOC’s interpretation of Title VII also includes “cultural characteristics often linked to race or ethnicity,” such as grooming habits provided that “the cultural practice or characteristic does not materially interfere with the ability to perform job duties.”62 62.See id.; see also Equal Emp’t Opportunity Comm’n, Notice Concerning the Supreme Court’s Decision in Vance v. Ball State University, 133 S. Ct. 2434 (2013), https://www.eeoc.gov/laws/guidance/section-15-race-and-color-discrimination [https://perma.cc/7CFV-BXSG] (last visited May 8, 2021).Show More

Because of courts’ definition of race under Title VII as including immutable characteristics only and their rejection of cultural practices or characteristics arguments, Black women have not successfully litigated the freedom to wear their hair in natural hairstyles in the workplace.63 63.See Renee Henson, Are My Cornrows Unprofessional?: Title VII’s Narrow Application of Grooming Policies, and its Effect on Black Women’s Natural Hair in the Workplace, 1 Bus., Entrepreneurship & Tax L. Rev. 521, 523 (2017).Show More In Rogers v. American Airlines, Renee Rogers, a Black woman and long-term employee of American Airlines, filed a discrimination lawsuit under Title VII.64 64.527 F. Supp. 229 (S.D.N.Y. 1988).Show More She maintained that the airline discriminated against her as a Black woman because of its grooming policy that prohibited employees in certain positions from wearing an all-braided hairstyle. The United States District Court for the Southern District of New York held that a neutral employer policy that prohibited an all-braided hairstyle did not constitute racial discrimination. The court suggested that a racially neutral employer’s policy would violate Title VII in two circumstances: (1) the policy has a disparate impact on Black women and was not related to the job or consistent with a business necessity or (2) the policy is applied in a discriminatory fashion.65 65.Rogers v. Am. Airlines, Inc., 527 F. Supp. 229 (S.D.N.Y. 1988); Imani Gandy, Black Hair Discrimination is Real––But is it Against the Law?, Rewire News Group (Apr. 17, 2017), https://rewirenewsgroup.com/ablc/2017/04/17/black-hair-discrimination-real-but-is-it-against-law/ [https://perma.cc/E3JT-8KCM].Show More The court distinguished American Airlines’ policy from policies prohibiting afros because an all-braided is not an immutable characteristic but rather “the product…of artifice” and is an “easily changed characteristic.”66 66.Rogers, 527 F. Supp. at 232.Show More Lastly, the court rejected Rogers’ cultural argument stating that even if the all-braided hairstyle is associated with a particular race or nationality, it is not an impermissible basis for distinctions in applying an employer’s policy.

In EEOC v. Catastrophe Management Solutions, the Eleventh Circuit affirmed the dismissal of a lawsuit filed by the EEOC on behalf of Chasity Jones, a Black woman who wore dreadlocks, under Title VII.67 67.852 F.3d 1018 (11th Cir. 2016).Show More While Catastrophe Management Solution (CMS)’s grooming policy did not explicitly prohibit dreadlocks, CMS’s human resources manager, Jeannie Wilson, rescinded Jones’s offer after refusing to cut her dreadlocks according to the race-neutral policy. Wilson told Jones that dreadlocks “tend to get messy.”68 68.See Catastrophe Mgmt. Solutions, 852 F.3d at 1021.Show More Because the EEOC indicated an intention to proceed under a disparate treatment theory but made disparate impact arguments, the court refused to address EEOC’s arguments that CMS’s policy disproportionately affected Black employees.69 69.See id. at 1024 (explaining that a disparate treatment claim requires a plaintiff to show that an employer intentionally discriminated against the plaintiff based on their race, while a disparate impact claim only requires proof that an employment practice has an actual adverse impact on a protected group); Dawn D. Bennett-Alexander & Linda F. Harrison, My Hair Is Not Like Yours: Workplace Hair Grooming Policies for African American Women as Racial Stereotyping in Violation of Title VII, 22 Cardozo J.L. & Gender 437, 441 (2016) (explaining that a plaintiff can bring either a disparate treatment or disparate impact claim); see Ricci v. DeStefano, 557 U.S. 557, 581 (2009).Show More The court held that even though dreadlocks were a common way of wearing hair for Black people and suitable for Black hair texture, they were not an immutable characteristic of Black people; hence, there was no violation of Title VII.

These cases suggest that wearing the afro is the only natural hairstyle that a Black woman could legally wear in the workplace.70 70.See Powell, supra note , at 933–34.Show More Every other natural hairstyle, including braids, dreadlocks, and cornrows, can be prohibited.71 71.Id.Show More As mentioned before, afros have been perceived negatively, which means that Black women’s only option is to alter their hair texture to make it straight,72 72.Id.Show More imposing significant burdens on Black women.73 73.See infraSection III.B. for a description of the burdens imposed on Black women.Show More

B. The Case for Dropping the Immutability Requirement

While the EEOC is responsible for enforcing Title VII, courts ultimately have the authority to interpret Title VII’s statutory language. The Supreme Court explained that Congress in Title VII did not grant the EEOC the power to promulgate substantive regulations.74 74.James J. Brudney, Chevron and Skidmore in the Workplace: Unhappy Together, 83 Fordham L. Rev. 497, 505 (2014).Show More Hence, the EEOC’s manual interpreting Title VII’s race as including cultural characteristics often linked to race or ethnicity has not been accorded the same deference as rules that Congress has proclaimed as carrying the force of law.75 75.See id.; Theodore W. Wern, Judicial Deference to EEOC Interpretations of the Civil Rights Act, the ADA, and the ADEA: Is the EEOC a Second Class Agency, 60 Ohio State Law J. 1533, 1549–50 (1999) (explaining that between 1964 and 1998, the Supreme Court deferred to the EEOC’s position approximately 54 percent compared to the baseline figure of 72 percent for other administrative agencies).Show More As a result, despite the EEOC’s more expansive definition of “race,” courts have historically interpreted race as falling into one of two categories of immutability.

First, the Supreme Court has defined immutable characteristics as those characteristics that their “possessors are powerless to escape or set aside.”76 76.Jessica A. Clarke, Against Immutability, 125 Yale L.J. 2, 14 (2015).Show More The Supreme Court considered such traits as suspect, and a legislative classification that is based on such a trait deserves heightened scrutiny by the courts.77 77.See id. at 13–14; see Sharona Hoffman, The Importance of Immutability in Employment Discrimination Law, 52 Wm. & Mary L. Rev. 1483, 1510 (2011).Show More In Frontiero v. Richardson, the Supreme Court defined sex, race, and national origin, as immutable characteristics that are determined “solely by the accident of birth.”78 78.411 U.S. 677, 686 (1973).Show More Similarly, the Eleventh Circuit in Catastrophe Management Solutions concluded that immutable traits are defined as physical characteristics that a group of people shares and transmit to the next generations over time.79 79.EEOC v. Catastrophe Mgmt. Solutions,852 F.3d 1018, 1027 (11th Cir. 2016).Show More The court considered such characteristics as a matter of birth and not culture.80 80.See id.Show More

Courts have also defined immutable characteristics as traits that are “so fundamental to the identities or consciences of its members that members either cannot or should not be required to change it.”81 81.Hoffman, supra note 77, at 1512.Show More The characteristic does not have to be completely fixed to be considered immutable.82 82.Id.Show More This notion of immutability has been associated with ideas about privacy and liberty,83 83.See Clarke, supra note 76, at 26.Show More finding inspiration in Justice Blackmun’s dissent in Bowers v. Hardwick.84 84.478 U.S. 186 (1986).Show More Justice Blackmun objected to anti-sodomy laws by drawing on cases protecting the right to privacy. He argued that rights associated with the family are protected, not because of their direct effects on the general public welfare but “because they form so central a part of an individual’s life” and are “significant” ways “that individuals define themselves.”85 85.Bowers, 478 U.S. at 204–05 (1986), overruled by Lawrence v. Texas, 539 U.S. 558 (2003).Show More Kerrigan v. Commissioner of Public Health cemented the idea of immutability as an argument about choice––“a person’s fundamental right to self-determination.”86 86.See Clarke, supra note 76, at 26–27 (citing Kerrigan v. Commissioner of Public Health, 957 A.2d 407, 438 (Conn. 2008)) (explaining that “cases on the new immutability hold that, if a trait is not innocent in the sense of being an accident of birth, it must be innocent in the sense of being an ‘integral part of human freedom’”).Show More In Kerrigan, the Connecticut Supreme Court held that sexual orientation is immutable because the Constitution protects the right of “homosexual adults to engage in intimate, consensual conduct” as an “integral part of human freedom.”87 87.Kerrigan v. Commissioner of Public Health, 957 A.2d 407, 438 (Conn. 2008) (citing Lawrence, 539 U.S. at 576–77.Show More

However, the Rogers court did not find that an all-braided hairstyle was so fundamental to Black women’s identities that Black women should not be required to change it.88 88.Rogers v. Am. Airlines, Inc., 527 F. Supp. 229 (S.D.N.Y. 1988) Rogers, an American Airlines employee whose duties consisted of extensive passenger contact, had worn an all-braided hairstyle at work against American Airlines’ grooming policy.Show More Instead, the court ruled that Rogers’s braided hairstyle could easily be changed, and as such, her employer’s policy did not constitute a Title VII violation. The court’s ruling would then run counter to the Constitution’s protection of the right to privacy because it would assume that the Constitution would not protect Rogers’s right to choose to wear an all-braided hairstyle. Although Rogers implicates Title VII and not the Equal Protection Clause, the notion of immutability from the equal protection context plays a role in employment discrimination law.89 89.See Clarke, supra note 76, at 31.Show More While the term “immutability” is not mentioned in any employment discrimination statute, including Title VII, courts have adopted its concept from the equal protection context to interpret the scope of statutory prohibitions on discrimination.90 90.Seeid. at 29.Show More Beyond the courtrooms, immutability-based ideas have influenced discourses about which characteristics should be prohibited bases for discrimination.91 91.Seeid.at 30–31.Show More

Courts should dismiss both definitions of immutability because they are fundamentally flawed. By defining immutable traits as accidents of birth in natural hair and hairstyles discrimination cases, the Eleventh Circuit ignored “basic elements of antidiscrimination analysis.”92 92.Paulette M. Caldwell, A Hair Piece: Perspectives on the Intersection of Race and Gender, 1991 Duke L.J. 365, 377 (1991).Show More Such elements include the group’s history, patterns of oppression of the group that may help define its social and economic position, the group’s current position relative to that of other groups in society, and whether employment practices perpetuate the subordination of the individual or group.93 93.Seeid.Show More The Eleventh Circuit overlooked that African Americans are descendants of slaves who were forced to come to the United States under extremely abhorrent conditions. Before their arrival to the United States and after they were in the United States, their natural hair and natural hairstyles were an integral part of their identity.94 94.See infra Part I.Show More

The Eleventh Circuit disregarded the patterns of oppression against African Americans since their arrival in the United States and their current position relative to that of other groups. Black individuals have been discriminated against since the inception of the United States in every aspect of their lives, including in the healthcare system. For example, Black women were subjected to non-consensual medical experiments during slavery.95 95.Cynthia Prather et al., Racism, African American Women, and Their Sexual and Reproductive Health: A Review of Historical and Contemporary Evidence and Implications for Health Equity, 2 Health Equity 249, 251–52 (2018), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC6167003/ [https://perma.cc/MDJ2-NFDQ] (describing experimental reproductive surgeries performed on enslaved Black women during slavery).Show More Jim Crow laws restricted their civil rights, and they were not protected against rape in some states.96 96.See id. at 252.Show More Today, Black individuals’ social and economic position is no better than other racial or ethnic groups. The poverty rate for Black people is 21.2 percent, although Black individuals only represent 13.4 percent of the U.S. population.97 97.See Kaiser Fam. Found., Poverty Rate by Race/Ethnicity (2019), https://www.kff.org/other/state-indicator/poverty-rate-by-raceethnicity/?currentTimeframe=‌0&sortModel=%7B%22colId%22:%22Location%22,%22sort%22:%22asc%22%7D [https://perma.cc/N6VP-AF8E]; U.S. Census Bureau, Quick Facts, https://www.census.gov/quickfacts/fact/table/US/IPE120219 [https://perma.cc/C357-JR7Q].Show More On the other hand, the poverty rate for white individuals is 9 percent, and they represent 76.3 percent of the population.98 98.Seeid.Show More

The Eleventh Circuit did not consider that employment practices can perpetuate the subordination of Black individuals. Several employment policy decisions are made without a Black person’s input.99 99.See Taylor Mioko Dewberry, Title VII and African American Hair: A Clash of Cultures, 54 Wash. U. J.L. & Pol’y 329, 348 (2017).Show More In fact, “whites hold a disproportionate share of business ownership and decision-making power within corporate structures.”100 100.See Barbara Flagg, Fashioning a Title VII Remedy for Transparently White Subjective Decisionmaking, 104 Yale L.J. 2009, 2036 (1995).Show More Additionally, upper management consists primarily of non-Black individuals. Black people account for only 3.2 percent of the senior leadership roles at large companies, and there are only three African American CEOs at Fortune 500 companies today.101 101.See Khristopher J. Brooks, Why So Many Black Business Professionals Are Missing from the C-Suite, CBS (Dec. 10, 2019, 9:14AM), https://www.cbsnews.com/news/black-professionals-hold-only-3-percent-of-executive-jobs-1-percent-of-ceo-jobs-at-fortune-500-firms-new-report-says/ [https://perma.cc/T6HS-V98T].Show More Consequently, individuals to whom “racial identity is not a central life experience” have promulgated many supposedly race-neutral policies, including grooming policies.102 102.See Dewberry,supra note 99, at 348.Show More And studies have shown that white men and women displayed stronger levels of implicit bias against textured hair.103 103.See Kennedy, supra note 45, at 10; Johnson et al., supra note 51, at 13.Show More

Courts should also reject the “fundamental to the identities” definition of immutability. Rogers and Jones would have likely succeeded under this definition of immutability because their natural hair and natural hairstyles are so fundamental to Black women’s identities that they should not be required to change them. However, this definition has some flaws. First, this definition of immutability masked moralizing judgments about what is fundamental to a group, who gets to decide what is fundamental to say group, and what ought to be protected under Title VII.104 104.SeeClarke, supra note 76, at 33–35.Show More Another issue is the notion of “fundamental” itself. Why is it that a trait or characteristic must be viewed as fundamental before finding that it is protected under Title VII? Anti-discrimination law’s underlying predicate is that people should be judged on the basis of their qualifications and not based on extraneous identity traits, such as race, disability, and sex.105 105.SeeRobert Post, Prejudicial Appearances: The Logic of American Antidiscrimination Law, 88 Calif. L. Rev. 1, 11-16 (2000) (discussing the concept of blindness in antidiscrimination law).Show More Lastly, another problem with this definition of immutability is that it does not incorporate any limiting principle, which could make it difficult for judges and the public to accept arguments based on it.106 106.See Clarke, supra note 76, at 45.Show More Unlike the definition of immutability that is restricted to traits that are accidents of birth, this definition does not have any apparent limits on which traits are fundamental to a group.107 107.See id.Show More

III. Expanding Title VII’s Definition of Racial Discrimination
to Include Natural Hair and Natural Hair Discrimination
as a Form of Racial Discrimination

A. The Supreme Court’s Extension of the Definition of Title VII’s Sex Discrimination over the Years

Title VII prohibits an employer from treating an employee unfavorably because of their sex.108 108.See Sex-Based Discrimination, Equal Emp. Opportunity Comm’n, https://www.eeoc.gov/sex-based-discrimination [https://perma.cc/7CZ7-8NS2] (last visited Jan. 21, 2021).Show More The EEOC has interpreted Title VII’s sex discrimination as discrimination based on sexual harassment, sexual orientation, and gender identity.109 109.Id.Show More The Supreme Court’s expanded view of sex discrimination aligned with the EEOC’s interpretation after the Court overruled Willingham v. Macon Telegraph Publishing Co.

In Willingham, the Fifth Circuit held that a plaintiff must show sex discrimination based on an immutable trait. The employer’s grooming policy required employees, men and women, who came into contact with the public to be neatly dressed and groomed following the standards traditionally accepted in the business community.110 110.See Willingham v. Macon Tel. Pub. Co., 507 F.2d 1084, 1087 (5th Cir. 1975).Show More The plaintiff was denied employment solely because he did not have a short haircut as required of male employees. The plaintiff argued that since “short hair is stereotypically male, requiring it of all male applicants” violated Title VII.111 111.Id.at 1089.Show More The Court stated that though the legislative history is inconclusive, it is unlikely that Congress intended for its prohibition of sexual discrimination to have “significant and sweeping implications.”112 112.Id. at 1090.Show More The Court then concluded that congressional action was required to read Title VII as barring discrimination based on sexual stereotypes.

However, in Price Waterhouse v. Hopkins, the Supreme Court ruled that Congress intended for its prohibition of sexual discrimination to have significant and sweeping implications and held that employment discrimination based on sex stereotypes is illegal sex discrimination under Title VII. The Court indicated that Title VII’s prohibition against discrimination based on a statutorily protected class is not limited to protecting only those characteristics of the class that may be viewed as immutable.113 113.See Price Waterhouse v. Hopkins, 490 U.S. 228 (1989).Show More The employee, Ann Hopkins, alleged that her employer, the accounting firm Price Waterhouse, denied her a promotion to the partnership because her gender presentation defied the firm’s view of how a woman should look and act. For instance, one partner told Hopkins that she needed to “walk more femininely, talk more femininely, dress more femininely, wear make-up, have her hair styled, and wear jewelry.”114 114.Id. at 235.Show More While the characteristics that Price Waterhouse identified as reasons for not promoting Hopkins were mutable, the Court ruled that discrimination based on these characteristics, which Hopkins could have changed but did not, constituted sex discrimination. The Court noted that Congress intended to “strike at the entire spectrum of disparate treatment of men and women resulting from sex stereotypes.”115 115.Id. at 251.Show More The court found that in asking Hopkins to make herself more feminine, her employer required her to conform to the stereotype associated with sex. The Court also opined that “Congress’ intent to forbid employers to take gender into account in making employment decisions appears on the face of the statute”116 116.Id. at 239.Show More and that any “employer who acts on the basis of a belief that a woman cannot be aggressive, or that she must not be, has acted on the basis of gender.”117 117.Id. at 250.Show More

In Oncale v. Sundowner Offshore Services, Inc., the Court expanded Title II’s definition of sex discrimination to include same-sex harassment. The Court ruled that a plaintiff could bring a male-on-male sexual harassment claim under Title VII, regardless of whether the drafters of Title VII had contemplated it at the time it was enacted.118 118.See Oncale v. Sundowner Offshore Services., Inc., 523 U.S. 75, 79–82 (1998).Show More Joseph Oncale was employed on an oil platform by Sundowner Offshore Services when he was forcibly subjected to sex-related, humiliating actions, physical assault, and rape threats by his supervisors. The Court stated that “statutory prohibitions often go beyond the principal evil [they were passed to fight] to cover reasonably comparable evils, and it is ultimately the provisions of our laws rather than the principal concerns of our legislators by which we are governed.”119 119.Id. at 79.Show More Oncale established that Title VII prohibits discrimination because of sex in the terms or conditions of employment, with the critical issue being “whether members of one sex are exposed to disadvantageous terms or conditions of employment to which members of the other sex are not exposed.”120 120.Id. at 80.Show More

In Bostock v. Clayton County, the Court extended Title VII protections to sexual orientation and gender identity. In each of the cases presented before the Court, an employer allegedly fired a long-time employee for being homosexual or transgender. The Court noted that it is unlikely that when Congress passed Title VII, it intended it to cover gay and transgender people. Similarly, drafters of Title VII “[l]ikely…weren’t thinking about many of the Act’s consequences that have become apparent over the years,” including the protections against discrimination based on sexual harassment.121 121.Bostock v. Clayton Cnty., 140 S. Ct. 1731, 1737 (2020).Show More The Court explained that “the limits of the drafters’ imagination supply no reason to ignore the law’s demands.”122 122.Id.Show More The Court focused its decision on the “ordinary public meaning” of the terms used in Title VII when it was enacted.123 123.Id. at 1738.Show More Accordingly, the Court found that “sex” as used in 1964 referred to “status as either male or female [as] determined by reproductive biology.”124 124.Id. at 1739.Show More The Court applied this definition of “sex” to Title VII’s “but for” causation standard. The Court then established the legal test as follows: whether a “particular outcome would not have happened ‘but for’ the purported cause.”125 125.Id. at 1739.Show More According to the Court, with a but-for test, a court must change one thing at a time and see if the outcome changes. If the outcome does change, there is a but-for cause.126 126.Id.Show More The Court explained that while there may be other causes of a particular outcome, in Title VII cases, an employer cannot avoid liability by citing another factor that contributed to its challenged employment action or decision. As long as the plaintiff’s sex was one but-for cause of the employer’s action or decision, Title VII is triggered.127 127.Id. at 1745.Show More

B. The Case for Extending the Definition of Title VII’s Prohibition of Racial Discrimination to Include Hair Discrimination

Even though Title VII does not define “race” or “sex,” Rogers, Catastrophe Management Solutions, and Willingham have interpreted it to mean that a plaintiff must show racial or sex discrimination based on an immutable trait or characteristic. The Willingham’s court explained its decision by stating that Congress did not intend for its prohibition of sexual discrimination to have significant and sweeping implications.

However, the Supreme Court in Price Waterhouse indicated that it was precisely Congress’ intent for its prohibition of sexual discrimination to have significant and sweeping implications, noting that Congress intended to strike at the entire spectrum of disparate treatment of men and women resulting from stereotypes. In Oncale, the Court explained that “statutory prohibitions often go beyond the principal evil [they were passed to fight] to cover reasonably comparable evils.”128 128.SeeOncale, 523 U.S. at 79.Show More In Bostock, the Supreme Court noted that the drafters of Title VII likely did not think about many of the Act’s consequences that have become apparent over the years.

The pressure on Black women to change their hair to adapt it to the mainstream standard imposes significant burdens on Black women, which Congress almost certainly did not contemplate at the time Title VII was enacted. Wearing smooth or straight hairstyles to fit in means that Black women have to change their hair texture.129 129.See Carter, supra note 6, at 36–37.Show More This can be achieved by using chemical treatments, commonly known as relaxers, that have the effect of altering the texture of Black hair to straight and can impose an important financial burden on Black women.130 130.See Powell, supra note , at 963.Show More To maintain straight hair, Black women spend a lot of money on relaxers and other hair straightener products. The sales of relaxers were valued at $131.8 million in 2014 in the United States.131 131.Nana Sidibe, This Hair Trend Is Shaking up the Beauty Biz, CNBC (July 1, 2015), https://www.cnbc.com/2015/07/01/african-americans-changing-hair-care-needs.html [https://perma.cc/BTQ5-5T4Z].Show More

Resorting to chemical treatments also has profound health implications for Black women. Black women can experience balding, burns on the scalp, and other scalp diseases due to chemical use and heat damage.132 132.See Powell, supra note , at 965; Fuqua Insights, Research Suggests Bias Against Natural Hair Limits Job Opportunities for Black Women (Aug. 12, 2020), https://www.fuqua.duke.edu/duke-fuqua-insights/ashleigh-rosette-research-suggests-bias-against-natural-hair-limits-job [https://perma.cc/C56J-RMEL].Show More In addition, a study has shown that Black women exercise less than any other group, and hair presents a critical barrier to exercise for many Black women in that the “time and economic constraints involved in preserving a hairstyle postexercise frames physical activity as prohibitive, or perhaps a luxury.”133 133.H. Shellae Versey, Centering Perspectives on Black Women, Hair Politics, and Physical Activity, 104 Am. J. Public Health 810, 813 (2014), https://www.ncbi.nlm.nih.gov/pmc/‌articles/PMC3987595/pdf/AJPH.2013.301675.pdf [https://perma.cc/MM8G-MNA7] (out of 123 Black women aged 21 to 60, 38% of women surveyed “cited avoiding exercise because of their hair”).Show More The hairstyles that Black women referenced in the study for accommodating exercise generally involve the least amount of maintenance––ponytails, braids, cornrows, and natural hairstyles134 134.Id.Show More––some of the same styles that are not considered to be professional. Another study determined that the use of hair relaxers or chemical hair straighteners increased Black’s women exposure to deleterious tumor-causing hormones.135 135.See Carter, supra note 6, at 39.Show More The study found that Black women were two to three times more likely than white women to develop uterine fibroids.136 136.Id.Show More Although uterine fibroids are benign, they can cause gynecologic morbidity and are the leading indication of hysterectomy in the United States.137 137.Id.; see Lauren A. Wise, et al., Hair Relaxer Use and Risk of Uterine Leiomyomata in African-American Women, 175 Am. J. of Epidemiology 432, 432 (2012), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC3282879/pdf/kwr351.pdf [https://perma.cc/Z87T-QKQ6].Show More Even if a Black woman does not experience explicit racism in the workplace, microaggressions, such as hair practices and comments about one’s appearance, is a form of discrimination that can lead to mental health problems, including anxiety, depression, and stress.138 138.See Berkemeyer, supra note 13, at 285.Show More The Good Hair study showed that “Black women suffer more anxiety around hair issues than their white peers” because of the pressure to conform to Eurocentric standards of beauty and professionalism.139 139.Id. at 287.Show More

Black women who choose to wear their natural hair and natural hairstyles and who, as a result, do not conform to their employers’ grooming standards, have faced discrimination in the form of lack of employment or promotion opportunities, and termination.140 140.See Carter, supra note 6, at 37.Show More Brittany Noble, a news anchor, faced criticism for her natural hair and was eventually terminated for wearing a natural hairstyle while on air in 2019.141 141.Id. at 39.Show More A recent experiment shows that bias against natural hair often starts during the hiring process. During the study, participants from various backgrounds assumed the role of recruiters and had to assess fictitious job applicants.142 142.SeeFuqua Insights, supra note 132.Show More The participants were more likely to rate Black women with straight hair and white women with either curly or straight hairstyles as more professional than Black women with natural hairstyles, who were deemed less professional and less competent.143 143.Id.Show More The participants were, thus, less likely to recommend Black women with natural hairstyles for interviews.144 144.Id.; see Chelsea Stein, MSU Research Exposes Discrimination Against Black Women with Natural Hair, Broad College of Business (Sept. 18, 2020), https://broad.msu.edu/news/msu-research-exposes-discrimination-against-black-women-with-natural-hair/ [https://perma.cc/D73C-HSYA].Show More In another instance of the same study, two groups of participants had to evaluate the same Black woman candidate: one group saw a photo of the candidate with natural hair, and the other group saw the candidate with straight hair.145 145.SeeFuqua Insights, supra note 132.Show More The latter group rated the candidate higher for professionalism and strongly recommended her for an interview.146 146.Id.Show More In that study, discrimination against natural hairstyles was for fictitious jobs in consultancy, an industry with more conservative dress norms.147 147.Seeid. (explaining that candidate’s hair texture did not influence perceptions of professionalism in the ad industry perhaps because advertising is viewed as a more creative industry than consulting).Show More

The burdens that Black women face when it comes to their hair and natural hairstyles could be described as “reasonably comparable evils” similar to the principal evil––race discrimination––that Title VII was passed to combat. Afros or natural hairstyles have historically and culturally been associated with the Black race.148 148.See Part I for the history and meaning of Black hair.Show More They are part of a Black person’s identity and a physical manifestation of their blackness. The pressures that Black women face in the workplace to assimilate to Eurocentric standards of professionalism come at a great cost to their finances, health, and professional growth. The fact that a Black woman can be fired, passed over for promotion, or simply not hired because of her hair is a form of racial discrimination. This is especially the case because none of the employer’s practice or grooming policies in Catastrophe Management Solutions or Rogers were related to job performance. Jones was hired before her offer was rescinded when she refused to cut her dreadlocks. Jones’ hiring showed that Jones had the required qualifications to get the job done. However, her natural hairstyle of choice became an impediment to her career advancement. Likewise, Rogers was a long-term employee of American Airlines. Nothing in the fact of the case suggests that her job performance was subpar. Similarly, her hairstyle of choice became an impediment to her career development.

Moreover, hair discrimination is similar to the sex stereotype discrimination that Hopkins faced when Price Waterhouse declined to promote her. Similar to the characteristics that Price Waterhouse identified as reasons for not promoting Hopkins, the characteristic that Wilson identified as a reason for rescinding Jones’ offer, is mutable. However, this did not deter the Court in Price Waterhouse in finding that requiring an employee to conform to a stereotype associated with sex constituted a violation of Title VII. Unlike Hopkins, who was required to conform to a stereotype, Jones was asked to “deviate” from a stereotype that associated dreadlocks––a hairstyle historically and culturally associated with Black individuals––with messiness and unprofessionalism. The result in both cases is the same. Just as Hopkins’ ability to get promoted depended on her willingness to conform to a stereotype requiring her to become more feminine, Jones’ ability to keep her offer was based on her willingness to deviate from a widely-held belief in professional environments that dreadlocks are unprofessional.

The terms or conditions that the Court in Oncale determined could trigger Title VII are like the terms or conditions placed on Jones and Rogers. Jones had to cut her dreadlocks before being hired for a position, and in Rogers, some employees could not hold certain positions if they wore their hair in an all-braided hairstyle. In Catastrophe Management Solutions and Rogers, Rogers and Jones, members of one race, were exposed to disadvantageous terms or conditions of employment to which members of other races were not exposed. In order for Rogers to have access to certain positions, she had to avoid wearing an all-braided hairstyle, and Jones had to cut her dreadlocks to be hired. Conditions like the ones presented to Jones and Rogers do not factor into the equation when hiring or promoting women of other races for the simple fact that it is rare, if not impossible, to see women professionals of other races with an all-braided hairstyle or dreadlocks. Similarly, a Black woman is 80 percent more likely to change her hair to meet social norms or expectations at work than a white woman is,149 149.See Cache McClay, Why Women Are Fighting Back Against Hair Oppression, BBC News (Dec. 13, 2019), https://www.bbc.com/news/world-us-canada-50786370 [https://perma‌.cc/9E62-6XS2].Show More showing that these terms or conditions disproportionately affect Black women.

Lastly, applying Bostock’s legal test to Catastrophe Management Solutions and Rogers would provide a different result than what the courts held in both cases. Had the employer’s grooming practice or policy in each case not prohibited Jones or Rogers from wearing a natural hairstyle, Jones would have been hired, and Rogers would have been able to keep her all-braided hairstyle. Bostock’s legal test is whether a particular outcome would not have happened but for the purported cause. In both instances, the plaintiff was intentionally penalized for wearing their hair in natural hairstyles. They would not have been penalized but for the fact that they wore their hair in natural hairstyles. And as mentioned before, it is rare, if not impossible, to find women professionals of other races wearing a hairstyle historically and culturally associated with Black individuals in the workplace. It is because the hairstyle is historically and culturally associated with Black individuals that it is viewed unfavorably. As described before, African cultures were seen as unconventional and uncivilized when they came to be viewed through Europeans’ lenses. There was no other factor that could explain the decision to rescind Jones’ offer as Wilson clearly stated that Jones had a choice between cutting her dreadlocks and working at CMS or refusing to do so and not working at CMS. Likewise, Rogers had to change her all-braided hairstyle. And even assuming that there was another factor that contributed to Jones and Rogers being penalized because of their choice of hairstyle, their employers would not be able to avoid liability under Title VII by citing that the other factor contributed to their employer’s decision under Bostock.

C. Addressing Dissenting Viewpoints on the Expansion of Title VII’s Prohibition of Racial Discrimination to Include Hair Discrimination

People who do not believe that natural hair and hairstyle discrimination is a form of racial discrimination may disagree with expanding the definition of racial discrimination following the sex discrimination example. Many individuals, both Black women and non-Black individuals, may argue that there is no bias against natural hair and natural hairstyles in the workplace. However, the data shows that many Black women have been discriminated against because of their hair and natural hairstyles. And Jones’s and Rogers’s stories are great illustrations of the consequences of the bias and discrimination that Black women experience in the workplace.

Opponents of the expansion may also argue that employers have the right, as private companies, to adopt rules regarding professional code of conduct and grooming policies. However, if a practice or grooming policy disproportionately affects Black women because of their racial identity, the law should protect them. In Rogers, American Airlines asserted that its “policy was adopted in order to help American project a conservative and business-like image.”150 150.Rogers,527 F. Supp. at 233.Show More This implies that Black women’s hair and natural hairstyles are not conservative and business-like and refers back to the perception that natural hair and natural hairstyles are not professional. Giving employers the broad authority to adopt the policies that would govern their businesses “leaves room for decisions informed by implicit bias” against Black women.151 151.SeeDewberry, supranote 99, at 352.Show More

Opponents of expanding the definition of Title VII racial discrimination to include natural hair and natural hairstyle discrimination may argue that employers’ grooming policies did not explicitly target Black women and their natural hairstyles. The well-documented history of prejudice and discrimination against Black individuals in the United States has shown otherwise. Discriminatory hair policies may seem neutral, but they may appear to be so simply because the expectation is that all employees have to assimilate to the dominant hair culture and hairstyles of white individuals.152 152.See Michelle L. Turner, The Braided Uproar: A Defense of My Sister’s Hair and a Contemporary Indictment of Rogers v. American Airlines, 7 Cardozo Women’s L.J. 115, 129–30 (2001).Show More Additionally, racial discrimination that was characterized by overt discriminatory acts has now been transformed into more subtle and indirect discriminatory practices.153 153.See Dewberry,supranote 99, at 345.Show More By extending the definition of racial discrimination to include natural hair and natural hairstyle discrimination, employers would be more mindful of the type of grooming policies they promulgate or practices that they perpetuate. Similarly, it would force them to confront their implicit bias because, otherwise, they open the door to potential liability.

Further, critics may oppose extending Title VII protections to natural hairstyles because of the possibility that other characteristics would be deemed Title VII violations. It is unlikely that expanding Title VII in such a way would lead to a chain reaction whereby other things would be viewed as violations of Title VII. In the sex discrimination cases, the Supreme Court has incorporated a limiting principle based on “reasonably comparable evils.” The Court did not create newly protected categories under Title VII. The Court has determined that sexual stereotypes, sexual harassment, and sexual orientation, and gender identity discrimination are reasonably comparable evils to the principal evil––sex discrimination. Similarly, natural hair and hairstyle discrimination is a reasonably comparable evil to the principal evil––racial discrimination. In both instances, the reasonably comparable evils are derived from the principal evil.

Lastly, the judiciary may refuse to expand the definition of Title VII’s racial discrimination to include natural hair and natural hairstyle discrimination, positing that legislatures, as elected bodies, have the authority to legislate. Recent legislative developments have aimed at protecting Black individuals from discrimination based on natural hair and natural hairstyles. However, they are recent, local, and not broadly implemented. The CROWN (Creating a Respectful and Open Workforce for Natural Hair) Act became effective in California in January 2020 and bans employment discrimination against employees who choose to wear natural hairstyles.154 154.See Senate Bill No. 188, 2019-2020 Reg. Sess. ch. 58 (Cal. 2019) https://leginfo.legislature.ca.gov/faces/billTextClient.xhtml?bill_id=201920200SB188 [https://perma.cc/R2P5-PW3E]; Natasha L. Domek and Lauren J. Blaes, A Heads up on the CROWN Act: Employees’ Natural Hairstyles now Protected, 9 Nat’l L. Rev. (2019) (explaining that Senate Bill 188 is also known as the Creating a Respectful and Open Workplace for Natural Hair (CROWN) Act, which revises the California Education Code and the Fair Employment and Housing Act’s definition of race).Show More Its definition of “race” includes traits historically associated with race, such as hair texture and protective hairstyles.155 155.Senate Bill No. 188, 2019-2020 Reg. Sess., ch. 58, § 2(a)(1) (Cal. 2019).Show More It acknowledges that U.S. history is “riddled with laws and societal norms that equated ‘blackness,’ and [the associated] physical traits,” such as “dark skin, kinky and curly hair to a badge of inferiority, sometimes subject to separate and unequal treatment.”156 156.Senate Bill No. 188, 2019-2020 Reg. Sess., ch. 58, § 1(a) (Cal. 2019).Show More Similarly, the CROWN Act became law in Montgomery County, Maryland, in February 2020.157 157.See Press Release, Montgomery County Council, CROWN Act Becomes Law in Montgomery County, (Feb. 6, 2020), https://www2.montgomerycountymd.gov/‌mcgportalapps/Press_Detail.aspx?Item_ID=23850&Dept=1 [https://perma.cc/7XEF-NPYM].Show More The Virginia legislature passed a bill that became effective in July 2020, amending its Human Rights Act to extend the definition of “because of race” or “on the basis of race” to include traits historically associated with race, including hair texture, type, and style.158 158.SeeKatherine P. Sandberg et al., Natural Hair Movement Spurs Nationwide Legislative Response to Prevent Hairstyle Discrimination, 48 ABA J. Lab. & Emp. Law 1, 6 (2020). For more examples of similar initiatives, see also NYC Commission on Human Rights, Legal Enforcement Guidance on Race Discrimination on the Basis of Hair (2019), https://www1.nyc.gov/assets/cchr/downloads/pdf/Hair-Guidance.pdf [https://perma.cc/A5GY-KPMT] (The New York City’s Commission on Human rights’ guidelines to protect “rights of New Yorkers to maintain natural hair or hairstyles that are closely associated with their racial, ethnic, or cultural identities,” including “the right to maintain natural hair, treated or untreated hairstyles such as locs, cornrows, twists, braids, Bantu knots, fades, Afros, and/or the right to keep hair in an uncut or untrimmed state”).Show More In many states, where natural hair and natural hairstyle discrimination is not prohibited, Black women have no recourse against discrimination. And the U.S. Congress has yet to pass a law banning race-based hair discrimination.159 159.CROWN ACT of 2019, S. 3167, 116th Congress (2020). The U.S. House of Representatives passed the CROWN Act in September 2020. The Act moved to the U.S. Senate, which did not vote on it before the end of the 116th Congress in January 2021.Show More

Conclusion

Black women who deviate from the norm of straight hair face significant barriers in the workplace. Implicit bias surrounding Black women’s hair, which has been perceived as unprofessional and associated with less competence, adds additional burdens on Black women leading to pressure to conform to the norm. This pressure has several detrimental financial, health, and professional implications for Black women. A Black woman’s decision to straighten her hair should be based on “a personal preference, not a burden to conform to a set of criteria,”160 160.Fuqua Insights, supra note 132 (citing Ashleigh Shelby Rosette, a management professor and a senior associate dean at the Fuqua School of Business at Duke University).Show More written or otherwise. While braids, twists, and dreadlocks are the main hairstyle choices that would not fit these criteria, they would release Black women from the burdens of hair straightening. However, these natural hairstyles are not protected under the law because they are not viewed as immutable characteristics of the Black race. The only legally permissible hairstyle that Black women can wear in the workplace, and that is protected under Title VII is the afro, which has also been perceived negatively.

Over the decades, the Supreme Court has demonstrated by its decisions in sex discrimination cases that Title VII could be expanded to account for injustices that were not contemplated when Title VII was originally passed. Likewise, it is unlikely that Congress considered the burdens that Black women would face in the workplace because of the negative perceptions around Black hair and natural hairstyles. Consequently, Title VII’s drafters did not consider prohibitions on natural hair and natural hairstyles to constitute racial discrimination when it passed Title VII. By its extension of the definition of sex discrimination under Title VII, the Supreme Court has shown its willingness to go beyond the original understating of Title VII sex discrimination “to accommodate new understandings of the nature and expression of sex discrimination.”161 161.Charlie Birkel, “Comparable Evils”: How to Read Sexual Orientation into Title VII’s Evolving Protections, Harv. C.R.-C.L. L. Rev. (2017), https://harvardcrcl.org/comparable-evils-how-to-read-sexual-orientation-into-title-viis-evolving-protections/ [https://perma.cc/E3AX-DGJE].Show More Expanding the definition of Title VII’s racial discrimination to include hair discrimination would ensure that Black women no longer face pressures to continually choose between retaining their own identity at the expense of their career goals or abandoning their cultural heritage to conform with the dominant culture.162 162.See Reidy & Kanigiri, supra note 1.Show More

  1. * Law clerk at Baker McKenzie. I would like to thank the Virginia Law Review Online staff, especially Editor in Chief Tiffany Mickel and Online Editor Allison Burns for their hard work on the piece; Catherine Guerrier for her feedback and support; Courtney Davis for her thoughtful comments and encouragement; and my family for their continued love and support.
  2. Ashleigh Shelby Rosette & Tracy L. Dumas, The Hair Dilemma: Conform to Mainstream Expectations or Emphasize Racial Identity, 14 Duke J. Gender L. & Pol’y 407, 412 (2007) (explaining that socio-psychology research has provided strong evidence showing that being viewed as different can be a liability in the workplace); Steven Reidy & Meher Kanigiri, How Are Ethnic Hairstyles Really Viewed in the Workplace?, Cornell Univ. ILR School (2016) (explaining that the more someone is perceived as “fitting in” with the firm culture “the better their workplace outcomes, and the greater the degree of deviation from the group the worse the outcome,” and thus workers whose identity differs from the dominant firm culture face two choices: assimilating to the dominant firm culture or being excluded).
  3. Ra’Mon Jones, What the Hair: Employment Discrimination Against Black People Based on Hairstyles, 36 Harv. BlackLetter L.J. 27, 29 (2020) (defining natural hair “as hair that has not been altered by chemical straighteners, including relaxers and texturizers”).
  4. See Rosette & Dumas, supra note 1, at 413.
  5. Id. at 412.
  6. Id.; see Jena McGregor, More States Are Trying to Protect Black Employees Who Want to Wear Natural Hairstyles at Work, Wash. Post (Sept. 19, 2019), https://www.washingtonpost.com/business/2019/09/19/more-states-are-trying-protect-black-employees-who-want-wear-natural-hairstyles-work/ [https://perma.cc/S26M-ABL6] (noting that Minda Harts, founder of a career development company for women of color, stated that she wears her hair straight 99 percent of the time because she has seen how others look upon clients wearing braids and natural hairstyles in corporate America).
  7. Kim Carter, Workplace Discrimination and Eurocentric Beauty Standards, 36 GPSOLO 36, 36 (2019); Venessa Simpson, What’s Going on Hair?: Untangling Societal Misconceptions that Stop Braids, Twists, and Dreads from Receiving Deserved Title VII Protection, 47 Sw. L. Rev. 265, 265 (2017).
  8. See Carter, supra note 6, at 36.
  9. “Protective hairstyles” are also called natural hairstyles. They can be used interchangeably.
  10. Cornrows are also called plaits. Threading one’s hair means wrapping one’s hair in thread.
  11. The historian John Thornton wrote that when Europeans first came into contact with western Africa in the late fifteenth century, they remarked on the many hairstyles African wore. There were “various combinations of braids, plaits . . . shaved areas, and areas cut to different lengths . . . creating a stunning effect.” See Shane White & Graham White, Slave Hair and African American Culture in the Eighteenth and Nineteenth Centuries, 61 J. Southern Hist. 45, 51 (1995).
  12. Civil Rights Act of 1964, Pub. L. No. 88-352, 78 Stat. 241, 254.
  13. See infra Section III.C.
  14. See Sharon Adetutu Omotoso, Gender and Hair Politics: An African Philosophical Analysis, 12 J. Pan African Stud. 5, 5 (2018); Ciera Berkemeyer, New Growth: Afro-Textured Hair, Mental Health, and the Professional Workplace, 44 J. Legal Prof. 279, 284 (2020); see also Rumeana Jahangir, How Does Black Hair Reflect Black History?, BBC News (May 31, 2015), https://www.bbc.com/news/uk-england-merseyside-31438273 [https://perma.cc/‌XZF2-UUN2]; White & White, supra note 10, at 49; Reidy & Kanigiri, supra note 1.
  15. See White & White, supra note 10, at 50.
  16. See Omotoso, supra note 13, at 9.
  17. Id.
  18. Id. at 10.
  19. See id. at 11; Berkemeyer, supra note 13, at 284.
  20. See Jahangir, supra note 13; see also Omotoso, supra note 13, at 12.
  21. See Omotoso, supra note 13, at 11.
  22. Id.
  23. Id.
  24. Id.
  25. Id.
  26. Id. at 12.
  27. See Berkemeyer, supra note 13, at 284.
  28. Tabora A. Johnson & Teiahsha Bankhead, Hair It Is: Examining the Experiences of Black Women with Natural Hair, 2 Open J. Soc. Sci. 86, 87 (2014).
  29. See Berkemeyer, supra note 13, at 284; Johnson & Bankhead, supra note 27, at 87.
  30. See Berkemeyer, supra note 13, at 284.
  31. See White & White, supra note 10, at 51 (explaining that “[d]escriptions of hair arrangements contained in eighteenth-century runaway advertisements indicate that, within the obvious limits imposed by an oppressive system, African American slaves were engaged in the same cultural activity”).
  32. See White & White, supra note 10, at 58 (explaining that Black people “were not supposed to be proud of their hair, as they or their ancestors had been in Africa; any suggestion that they were would have sharply challenged complacent white cultural assumptions”).
  33. Crystal Powell, Bias, Employment Discrimination, and Black Women’s Hair: Another Way Forward, 2018 BYU L. Rev. 933, 940–41 (2019) (explaining that “negro status” was the status of a “sub-human” with natural hair linked to non-human qualities, such as wool or bush).
  34. See Johnson & Bankhead, supra note 27, at 88.
  35. See Jahangir, supra note 13.
  36. See Omotoso, supra note 13, at 13–14 (noting that as of 2005, African-Americans spent $81.6 million per annum on chemical products (especially relaxers)); Chante Griffin, How Natural Black Hair at Work Became a Civil Rights Issue, JSTOR Daily (July 3, 2019), https://daily.jstor.org/how-natural-black-hair-at-work-became-a-civil-rights-issue/ [https://perma.cc/H9P4-6J79] (explaining that Madam C.J. Walker, a Black woman, invented the hot comb used to straighten Black hair, providing Black women an “avenue for increased societal acceptance in an era when minstrel songs mocked” African Americans’ hair texture).
  37. Jahangir, supra note 13; see also Reidy & Kanigiri, supra note 1.
  38. See Omotoso, supra note 13, at 12.
  39. See id. at 6.
  40. See id. at 13.
  41. See Berkemeyer, supra note 13, at 281 (explaining that “when follicles curve sebum is not able to travel the length of the hair. Because moisture is harder to retain in [curly and kinky] textures, the natural hair community often turns to protective styling to maintain healthy, moisturized hair” because it reduces continuous manipulation of hair, promotes growth retention, and protects the ends of the hair).
  42. See id. at 281.
  43. See Simpson, supra note 6, at 266.
  44. Carter, supra note 6, at 36.
  45. Reidy & Kanigiri, supra note 1; see also Rosette & Dumas, supra note 1, at 407.
  46. See Griffin, supra note 35 (noting that the Act created the EEOC, which operates “as the lead enforcement agency in the area of workplace discrimination” and explaining that when the EEOC was introduced, the federal government’s main concern was to ensure that individuals be granted equal access to public workplaces—it did not envisage that Black hair would require equal access as well); Kalen Kennedy, My Natural Hair Is Unprofessional: The Impact of Black Hairstyles on Perceived Employment-Related Characteristics 8 (2020) (Master’s Thesis, Marquette University), https://epublications.marquette.edu/cgi/viewcontent‌.cgi?article=1580&context=theses_open [https://perma.cc/D9EN-H43Q](explaining that Black women are aware of the general public’s perceptions of their hair and go to great lengths to avoid being perceived negatively because of their hair and hairstyle. This includes “spending hours preparing their hair for work . . . spending large amounts of money on hair supplies, avoiding physical activity, or avoiding going outdoors when it is raining”).
  47. See Berkemeyer, supra note 13, at 282 (stating that even where grooming policies do not specifically target Black women’s hair, implicit bias may play a significant role in crafting grooming policies that seem to be racially neutral but that adversely affect Black professionals and Black employees); Kennedy, supra note 45, at 8.
  48. All the studies that I found related to implicit bias against Black hair. It would be rare for someone to make overtly racist comments about Black women’s hair in the workplace since that could open the door to liability in some states. Depending on whether the style is the Afro, it could also be a Title VII violation.
  49. See Laura McLaughlin, Self-Sabotaging: How Implicit Bias May Be Contributing to your “Can’t Find Any Women or Diverse Associates” Hiring Problem, ABA (Mar. 31, 2016),https://www.americanbar.org/groups/litigation/committees/commercial-business/practice/2016/self-sabotaging-how-implicit-bias-may-be-contributing-cant-find-any-women-diverse-associates-hiring-problem/ [https://perma.cc/77XL-23YF]; Melissa Little, Implicit Bias: Be an Advocate for Change, ABA, https://www.americanbar.org/groups/‌young_lawyers/publications/tyl/topics/professional-development/implicit-bias-be-an-advocate-for-change/ [https://perma.cc/WW7H-93PL] (last visited Nov. 18, 2020).
  50. See Kennedy, supra note .
  51. Id. at 17.
  52. See Alexis McGill Johnson et al., Perception Inst., The “Good Hair” Study: Explicit and Implicit Attitudes Toward Black Women’s Hair (2017), https://perception.org/wp-content/uploads/2017/01/TheGood-HairStudyFindingsReport.pdf [https://perma.cc/592M-J8KE].
  53. Id. at 4; Kennedy, supra note , at 9.
  54. Id.
  55. Johnson et al., supra note 51, at 11.
  56. See Kennedy, supra note 45, at 10; Johnson et al., supra note 51, at 6; see Rosette & Dumas, supra note 1, at 415–16 (Black women “are highly aware that their hairstyles may highlight the fact that they are different and thereby invite negative stereotypes about Black women . . . [and have had to] ‘shift so that their hair doesn’t blind their employers to their talent’” (citation omitted)).
  57. Johnson et al., supra note 51, at 11.
  58. See Kennedy, supra note , at 10.
  59. The CROWN Act, The Official Campaign of the CROWN Act Led by the CROWN Coalition, https://www.thecrownact.com [https://perma.cc/UE6K-XA2X] (last visited May 8, 2021).
  60. See Kennedy, supra note 45, at 10 (hairstyles were categorized as either textured (afro, dreadlocks, twist-out, braids) or smooth (straight, long curls, short curls, and pixie cut)); see also Johnson et al., supra note 51, at 13.
  61. See Civil Rights Act of 1964, Pub. L. No. 88-352, 78 Stat. 241, 254.
  62. See Facts About Race/Color Discrimination, U.S. Equal Emp’t Opportunity Comm’n, https://www.eeoc.gov/laws/guidance/facts-about-racecolor-discrimination [https://perma.cc/MX5A-VGQQ] (last visited May 8, 2021).
  63. See id.; see also Equal Emp’t Opportunity Comm’n, Notice Concerning the Supreme Court’s Decision in Vance v. Ball State University, 133 S. Ct. 2434 (2013), https://www.eeoc.gov/laws/guidance/section-15-race-and-color-discrimination [https://perma.cc/7CFV-BXSG] (last visited May 8, 2021).
  64. See Renee Henson, Are My Cornrows Unprofessional?: Title VII’s Narrow Application of Grooming Policies, and its Effect on Black Women’s Natural Hair in the Workplace, 1 Bus., Entrepreneurship & Tax L. Rev. 521, 523 (2017).
  65. 527 F. Supp. 229 (S.D.N.Y. 1988).
  66. Rogers v. Am. Airlines, Inc., 527 F. Supp. 229 (S.D.N.Y. 1988); Imani Gandy, Black Hair Discrimination is Real––But is it Against the Law?, Rewire News Group (Apr. 17, 2017), https://rewirenewsgroup.com/ablc/2017/04/17/black-hair-discrimination-real-but-is-it-against-law/ [https://perma.cc/E3JT-8KCM].
  67. Rogers, 527 F. Supp. at 232.
  68. 852 F.3d 1018 (11th Cir. 2016).
  69. See Catastrophe Mgmt. Solutions, 852 F.3d at 1021.
  70. See id. at 1024 (explaining that a disparate treatment claim requires a plaintiff to show that an employer intentionally discriminated against the plaintiff based on their race, while a disparate impact claim only requires proof that an employment practice has an actual adverse impact on a protected group); Dawn D. Bennett-Alexander & Linda F. Harrison, My Hair Is Not Like Yours: Workplace Hair Grooming Policies for African American Women as Racial Stereotyping in Violation of Title VII, 22 Cardozo J.L. & Gender 437, 441 (2016) (explaining that a plaintiff can bring either a disparate treatment or disparate impact claim); see Ricci v. DeStefano, 557 U.S. 557, 581 (2009).
  71. See Powell, supra note , at 933–34.
  72. Id.
  73. Id.
  74. See infra Section III.B. for a description of the burdens imposed on Black women.
  75. James J. Brudney, Chevron and Skidmore in the Workplace: Unhappy Together, 83 Fordham L. Rev. 497, 505 (2014).
  76. See id.; Theodore W. Wern, Judicial Deference to EEOC Interpretations of the Civil Rights Act, the ADA, and the ADEA: Is the EEOC a Second Class Agency, 60 Ohio State Law J. 1533, 1549–50 (1999) (explaining that between 1964 and 1998, the Supreme Court deferred to the EEOC’s position approximately 54 percent compared to the baseline figure of 72 percent for other administrative agencies).
  77. Jessica A. Clarke, Against Immutability, 125 Yale L.J. 2, 14 (2015).
  78. See id. at 13–14; see Sharona Hoffman, The Importance of Immutability in Employment Discrimination Law, 52 Wm. & Mary L. Rev. 1483, 1510 (2011).
  79. 411 U.S. 677, 686 (1973).
  80. EEOC v. Catastrophe Mgmt. Solutions, 852 F.3d 1018, 1027 (11th Cir. 2016).
  81. See id.
  82. Hoffman, supra note 77, at 1512.
  83. Id.
  84. See Clarke, supra note 76, at 26.
  85. 478 U.S. 186 (1986).
  86. Bowers, 478 U.S. at 204–05 (1986), overruled by Lawrence v. Texas, 539 U.S. 558 (2003).
  87. See Clarke, supra note 76, at 26–27 (citing Kerrigan v. Commissioner of Public Health, 957 A.2d 407, 438 (Conn. 2008)) (explaining that “cases on the new immutability hold that, if a trait is not innocent in the sense of being an accident of birth, it must be innocent in the sense of being an ‘integral part of human freedom’”).
  88. Kerrigan v. Commissioner of Public Health, 957 A.2d 407, 438 (Conn. 2008) (citing Lawrence, 539 U.S. at 576–77.
  89. Rogers v. Am. Airlines, Inc., 527 F. Supp. 229 (S.D.N.Y. 1988) Rogers, an American Airlines employee whose duties consisted of extensive passenger contact, had worn an all-braided hairstyle at work against American Airlines’ grooming policy.
  90. See Clarke, supra note 76, at 31.
  91. See id. at 29.
  92. See id. at 30–31.
  93. Paulette M. Caldwell, A Hair Piece: Perspectives on the Intersection of Race and Gender, 1991 Duke L.J. 365, 377 (1991).
  94. See id.
  95. See infra Part I.
  96. Cynthia Prather et al., Racism, African American Women, and Their Sexual and Reproductive Health: A Review of Historical and Contemporary Evidence and Implications for Health Equity, 2 Health Equity 249, 251–52 (2018), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC6167003/ [https://perma.cc/MDJ2-NFDQ] (describing experimental reproductive surgeries performed on enslaved Black women during slavery).
  97. See id. at 252.
  98. See Kaiser Fam. Found., Poverty Rate by Race/Ethnicity (2019), https://www.kff.org/other/state-indicator/poverty-rate-by-raceethnicity/?currentTimeframe=‌0&sortModel=%7B%22colId%22:%22Location%22,%22sort%22:%22asc%22%7D [https://perma.cc/N6VP-AF8E]; U.S. Census Bureau, Quick Facts, https://www.census.gov/quickfacts/fact/table/US/IPE120219 [https://perma.cc/C357-JR7Q].
  99. See id.
  100. See Taylor Mioko Dewberry, Title VII and African American Hair: A Clash of Cultures, 54 Wash. U. J.L. & Pol’y 329, 348 (2017).
  101. See Barbara Flagg, Fashioning a Title VII Remedy for Transparently White Subjective Decisionmaking, 104 Yale L.J. 2009, 2036 (1995).
  102. See Khristopher J. Brooks, Why So Many Black Business Professionals Are Missing from the C-Suite, CBS (Dec. 10, 2019, 9:14AM), https://www.cbsnews.com/news/black-professionals-hold-only-3-percent-of-executive-jobs-1-percent-of-ceo-jobs-at-fortune-500-firms-new-report-says/ [https://perma.cc/T6HS-V98T].
  103. See Dewberry, supra note 99, at 348.
  104. See Kennedy, supra note 45, at 10; Johnson et al., supra note 51, at 13.
  105. See Clarke, supra note 76, at 33–35.
  106. See Robert Post, Prejudicial Appearances: The Logic of American Antidiscrimination Law, 88 Calif. L. Rev. 1, 11-16 (2000) (discussing the concept of blindness in antidiscrimination law).
  107. See Clarke, supra note 76, at 45.
  108. See id.
  109. See Sex-Based Discrimination, Equal Emp. Opportunity Comm’n, https://www.eeoc.gov/sex-based-discrimination [https://perma.cc/7CZ7-8NS2] (last visited Jan. 21, 2021).
  110. Id.
  111. See Willingham v. Macon Tel. Pub. Co., 507 F.2d 1084, 1087 (5th Cir. 1975).
  112. Id. at 1089.
  113. Id. at 1090.
  114. See Price Waterhouse v. Hopkins, 490 U.S. 228 (1989).
  115. Id. at 235.
  116. Id. at 251.
  117. Id. at 239.
  118. Id. at 250.
  119. See Oncale v. Sundowner Offshore Services., Inc., 523 U.S. 75, 79–82 (1998).
  120. Id. at 79.
  121. Id. at 80.
  122. Bostock v. Clayton Cnty., 140 S. Ct. 1731, 1737 (2020).
  123. Id.
  124. Id. at 1738.
  125. Id. at 1739.
  126. Id. at 1739.
  127. Id.
  128. Id. at 1745.
  129. See Oncale, 523 U.S. at 79.
  130. See Carter, supra note 6, at 36–37.
  131. See Powell, supra note , at 963.
  132. Nana Sidibe, This Hair Trend Is Shaking up the Beauty Biz, CNBC (July 1, 2015), https://www.cnbc.com/2015/07/01/african-americans-changing-hair-care-needs.html [https://perma.cc/BTQ5-5T4Z].
  133. See Powell, supra note , at 965; Fuqua Insights, Research Suggests Bias Against Natural Hair Limits Job Opportunities for Black Women (Aug. 12, 2020), https://www.fuqua.duke.edu/duke-fuqua-insights/ashleigh-rosette-research-suggests-bias-against-natural-hair-limits-job [https://perma.cc/C56J-RMEL].
  134. H. Shellae Versey, Centering Perspectives on Black Women, Hair Politics, and Physical Activity, 104 Am. J. Public Health 810, 813 (2014), https://www.ncbi.nlm.nih.gov/pmc/‌articles/PMC3987595/pdf/AJPH.2013.301675.pdf [https://perma.cc/MM8G-MNA7] (out of 123 Black women aged 21 to 60, 38% of women surveyed “cited avoiding exercise because of their hair”).
  135. Id.
  136. See Carter, supra note 6, at 39.
  137. Id.
  138. Id.; see Lauren A. Wise, et al., Hair Relaxer Use and Risk of Uterine Leiomyomata in African-American Women, 175 Am. J. of Epidemiology 432, 432 (2012), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC3282879/pdf/kwr351.pdf [https://perma.cc/Z87T-QKQ6].
  139. See Berkemeyer, supra note 13, at 285.
  140. Id. at 287.
  141. See Carter, supra note 6, at 37.
  142. Id. at 39.
  143. See Fuqua Insights, supra note 132.
  144. Id.
  145. Id.; see Chelsea Stein, MSU Research Exposes Discrimination Against Black Women with Natural Hair, Broad College of Business (Sept. 18, 2020), https://broad.msu.edu/news/msu-research-exposes-discrimination-against-black-women-with-natural-hair/ [https://perma.cc/D73C-HSYA].
  146. See Fuqua Insights, supra note 132.
  147. Id.
  148. See id. (explaining that candidate’s hair texture did not influence perceptions of professionalism in the ad industry perhaps because advertising is viewed as a more creative industry than consulting).
  149. See Part I for the history and meaning of Black hair.
  150. See Cache McClay, Why Women Are Fighting Back Against Hair Oppression, BBC News (Dec. 13, 2019), https://www.bbc.com/news/world-us-canada-50786370 [https://perma‌.cc/9E62-6XS2].
  151. Rogers, 527 F. Supp. at 233.
  152. See Dewberry, supra note 99, at 352.
  153. See Michelle L. Turner, The Braided Uproar: A Defense of My Sister’s Hair and a Contemporary Indictment of Rogers v. American Airlines, 7 Cardozo Women’s L.J. 115, 129–30 (2001).
  154. See Dewberry, supra note 99, at 345.
  155. See Senate Bill No. 188, 2019-2020 Reg. Sess. ch. 58 (Cal. 2019) https://leginfo.legislature.ca.gov/faces/billTextClient.xhtml?bill_id=201920200SB188 [https://perma.cc/R2P5-PW3E]; Natasha L. Domek and Lauren J. Blaes, A Heads up on the CROWN Act: Employees’ Natural Hairstyles now Protected, 9 Nat’l L. Rev. (2019) (explaining that Senate Bill 188 is also known as the Creating a Respectful and Open Workplace for Natural Hair (CROWN) Act, which revises the California Education Code and the Fair Employment and Housing Act’s definition of race).
  156. Senate Bill No. 188, 2019-2020 Reg. Sess., ch. 58, § 2(a)(1) (Cal. 2019).
  157. Senate Bill No. 188, 2019-2020 Reg. Sess., ch. 58, § 1(a) (Cal. 2019).
  158. See Press Release, Montgomery County Council, CROWN Act Becomes Law in Montgomery County, (Feb. 6, 2020), https://www2.montgomerycountymd.gov/‌mcgportalapps/Press_Detail.aspx?Item_ID=23850&Dept=1 [https://perma.cc/7XEF-NPYM].
  159. See Katherine P. Sandberg et al., Natural Hair Movement Spurs Nationwide Legislative Response to Prevent Hairstyle Discrimination, 48 ABA J. Lab. & Emp. Law 1, 6 (2020). For more examples of similar initiatives, see also NYC Commission on Human Rights, Legal Enforcement Guidance on Race Discrimination on the Basis of Hair (2019), https://www1.nyc.gov/assets/cchr/downloads/pdf/Hair-Guidance.pdf [https://perma.cc/A5GY-KPMT] (The New York City’s Commission on Human rights’ guidelines to protect “rights of New Yorkers to maintain natural hair or hairstyles that are closely associated with their racial, ethnic, or cultural identities,” including “the right to maintain natural hair, treated or untreated hairstyles such as locs, cornrows, twists, braids, Bantu knots, fades, Afros, and/or the right to keep hair in an uncut or untrimmed state”).
  160. CROWN ACT of 2019, S. 3167, 116th Congress (2020). The U.S. House of Representatives passed the CROWN Act in September 2020. The Act moved to the U.S. Senate, which did not vote on it before the end of the 116th Congress in January 2021.
  161. Fuqua Insights, supra note 132 (citing Ashleigh Shelby Rosette, a management professor and a senior associate dean at the Fuqua School of Business at Duke University).
  162. Charlie Birkel, “Comparable Evils”: How to Read Sexual Orientation into Title VII’s Evolving Protections, Harv. C.R.-C.L. L. Rev. (2017), https://harvardcrcl.org/comparable-evils-how-to-read-sexual-orientation-into-title-viis-evolving-protections/ [https://perma.cc/E3AX-DGJE].
  163. See Reidy & Kanigiri, supra note 1.

Reclaiming the Right to Know: The Case for Considering Derivative Benefits in FOIA’s Personal Privacy Exemptions

The Freedom of Information Act provides the public with a statutory right to access troves of government information with nine limited exemptions. Two of those exemptions—Exemption 6 and Exemption 7(C)—protect the personal privacy of people mentioned within the government’s files, allowing the government to withhold personally identifiable information if disclosure would cause an “unwarranted” invasion of privacy. Under the Supreme Court’s precedent, courts must conduct a balancing test to determine whether disclosure is unwarranted, weighing the privacy interests of the individuals mentioned in the requested documents against the public’s interest in disclosure. The Supreme Court has clarified that disclosure can only serve the public interest if disclosure will reveal something about the government’s actions, thus allowing the public to oversee the government’s performance.

The Supreme Court has acknowledged that it has left a critical aspect of the balancing test undefined, however. It has never explicitly decided whether disclosure must directly and immediately reveal something about the government’s conduct, or whether the public interest can be served derivatively by using the requested information to uncover additional information outside of the requested documents that reveals the government’s actions.

This Note argues that the Supreme Court actually has answered this question and that courts must consider derivative benefits as part of the public interest. The Supreme Court has repeatedly, though tacitly, considered indirect and derivative harms to personal privacy. After identifying the Court’s tacit pattern, this Note argues that the statute’s language and the Court’s own logic require derivative benefits to receive the same treatment as derivative harms. Finally, this Note examines how this problem has been dealt with by the federal circuits and identifies the fault lines along which the circuits are beginning to split.

Introduction

Even the most popular federal agency in the country1.Lydia Saad, Postal Service Still Americans’ Favorite Federal Agency, Gallup (May 13, 2019), https://news.gallup.com/poll/257510/postal-service-americans-favorite-federal-agency.aspx [https://perma.cc/UL33-X7N7].Show More is not without its controversies. When President Trump named Louis DeJoy Postmaster General, Democrats quickly raised objections about his fitness for the office, based on financial conflicts of interest and an alleged history of illegal political contributions.2.Alison Durkee, Postmaster General Louis DeJoy Should Resign Over ‘Obvious Financial Conflicts of Interest,’ Experts Testify, Forbes (Sept. 14, 2020), https://www.forbes.com/sites/alisondurkee/2020/09/14/postmaster-general-louis-dejoy-should-resign-over-obvious-financial-conflicts-of-interest-experts-testify/?sh=7acc7503147c [https://perma.cc/D9ZC-X7DF].Show More In a hearing before a House Oversight subcommittee, for instance, experts testified that DeJoy held investments worth tens of millions of dollars in private contractors working with the Postal Service, and other witnesses testified that as a private businessman DeJoy had pressured his employees to donate to certain political candidates and then illegally reimbursed them through company bonuses.3.Id.Show More

Citizens for Responsibility & Ethics in Washington (“CREW”), a nonpartisan nonprofit dedicated to government accountability, 4.About CREW, Citizens for Resp. & Ethics in Wash., https://www.citizensforethics.org/about/ [https://perma.cc/K4YX-W9ZH] (last visited Apr. 14, 2021).Show More decided to investigate DeJoy’s conflicts of interest.5.See E-mail from Meredith Lerner, Rsch. Assoc., Citizens for Resp. & Ethics in Wash., to USPS FOIA Officer, Re: Freedom of Information Act Request (Aug. 11, 2020), https://www.citizensforethics.org/wp-content/uploads/legacy/2020/08/2020.08.11-Louis-DeJoy-USPS-FOIA-final.pdf [https://perma.cc/88VT-BTNH].Show More CREW filed a request with the Postal Service under the Freedom of Information Act (“FOIA”), seeking both the agency’s records regarding financial interests from which DeJoy was obligated to divest and records of any communications between DeJoy and the USPS regarding certain stock holdings of his.6.Id.Show More

The Postal Service denied the request because it determined that disclosure would not be in the public interest.7.Nikhel Sus (@NikhelSus), Twitter (Sept. 9, 2020, 12:38 PM), https://twitter.com/NikhelSus/status/1303734508018110464 [https://perma.cc/Q2UD-2MFD]; Letter from Jessica Y. Brewster-Johnson, Senior Ethics Couns., USPS, to Meredith Lerner, Rsch. Assoc., Citizens for Resp. & Ethics in Wash., Re: FOIA Case No. 2020-FPRO-01619 (Sept. 9, 2020) (on file with author). Nikhel Sus serves as CREW’s Senior Counsel over Complaints & Litigation. Our Team, Citizens for Resp. & Ethics in Wash., https://www.citizensforethics.org/about/our-team/ [https://perma.cc/BSH8-KUCN] (last visited Apr. 4, 2021). Many thanks to Nikhel Sus for providing the complete text of the Postal Service’s denial of the FOIA request.Show More DeJoy, the agency explained, had a personal privacy interest in his financial transactions, bringing the requested records within the scope of FOIA’s Exemption 6. Furthermore, the denial said, CREW “did not provide any information about how release of this record would contribute to the public’s understanding of the operations or activities of the Postal Service.”8.Brewster-Johnson, supra note 7.Show More CREW has since filed suit to compel USPS to disclose the records.9.See CREW Sues USPS on Louis DeJoy Conflicts, Citizens for Resp. & Ethics in Wash. (Oct. 13, 2020), https://www.citizensforethics.org/legal-action/lawsuits/usps-louis-dejoy-conflicts/ [https://perma.cc/M5AT-85E3].Show More

The Postal Service’s explanation defies common sense. How can the public not have an interest in the head of a federal agency’s potential conflicts of interest? Why did CREW have to justify its request with any public interest, much less one that would “contribute to the public’s understanding of the operations” of the Postal Service? And how can CREW show such an interest in order to justify a request? Those are the questions this Note seeks to answer.

The Freedom of Information Act grants the public a judicially enforceable right to access information gathered and stored by the executive branch of the federal government, with nine limited exceptions.10 10.5 U.S.C. § 552(b)(1)–(9).Show More Two of those exceptions—Exemption 6 and Exemption 7(C)—revolve around personal privacy and permit the government to withhold personally identifiable information from certain types of records if disclosure of those records would constitute “an unwarranted invasion of personal privacy.”11 11.Id. § 552(b)(6), (b)(7)(C).Show More The Supreme Court has found that this requires courts to determine whether to disclose or withhold records based on a balancing test between the public interest in disclosure and the privacy interests of the individuals identified in the records.12 12.See U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 497 (1994).Show More

However, in practice, the Supreme Court’s balancing test is weighted against disclosure. The Supreme Court has gradually expanded the scope of the privacy interests protected by the personal privacy exemptions while narrowing what weighs in favor of the public interest. Under the Supreme Court’s current interpretation, often called the “core purpose doctrine,” there is no public interest in disclosure unless disclosure would shed light on the government’s conduct and activities.13 13.U.S. Dep’t of Just. v. Reps. Comm. for Freedom of the Press, 489 U.S. 749, 773–75 (1989).Show More This narrow conception of the public interest is a fixture of the FOIA landscape, which raises the question of how best to assert a cognizable public interest.14 14.The core purpose doctrine has drawn its fair share of critics, but the Supreme Court shows no signs of revising it. See, e.g., Michael Hoefges, Martin E. Halstuk & Bill F. Chamberlin, Privacy Rights Versus FOIA Disclosure Policy: The “Uses and Effects” Double Standard in Access to Personally-Identifiable Information in Government Records, 12 Wm. & Mary Bill Rts.J. 1, 8–9 (2003); Christopher P. Beall, The Exaltation of Privacy Doctrines Over Public Information Law, 45 Duke L.J. 1249, 1251–52 (1996); Martin E. Halstuk, When Secrecy Trumps Transparency: Why the Open Government Act of 2007 Falls Short, 16 CommLaw Conspectus 427, 428–29 (2008) [hereinafter Halstuk, Secrecy Trumps Transparency].Show More

One central ambiguity remains in the balancing test under the core purpose doctrine: must disclosure of the requested information directly shed light on the government’s conduct, or may it shed light indirectly after a series of intervening causal steps? The Supreme Court has acknowledged, but not answered, the question of what it calls “derivative uses.”15 15.U.S. Dep’t of State v. Ray, 502 U.S. 164, 178 (1991).Show More The U.S. Court of Appeals for the Second Circuit has described derivative use as the idea “that the public interest can be read more broadly to include the ability to use redacted information to obtain additional as yet undiscovered information outside the government files.”16 16.Associated Press v. U.S. Dep’t of Def., 554 F.3d 274, 290 (2d Cir. 2009) (citing Ray, 502 U.S. at 178).Show More For instance, to return to the CREW example, one argument for disclosure based on derivative benefits would be that, while the requested information about DeJoy would not directly show how the USPS was performing its duties, disclosure would indirectly allow the public to better oversee the USPS by further investigating the relationship between the agency’s actions and the Postmaster General’s own financial interests. The idea of derivative benefits recognizes the reality that the personally identifiable information protected by the privacy exemptions will rarely, by itself and directly, give the public a better understanding of government decision making. Nevertheless, derivative benefits can frequently add to the public’s capacity to monitor government performance when combined with other available information or when used for further investigation to uncover new information.

This Note explores the Supreme Court’s interpretation of the personal privacy exemptions and concludes that courts must consider derivative uses when conducting the balancing test. In fact, there are two types of derivative uses, and both must be considered. The first type, derivative benefits, is when the derivative use of requested information advances the public interest. Conversely, derivative harms occur when someone uses the requested information after its disclosure in a way that further invades the privacy of the individuals identified in the records. These two types of derivative use weigh in favor of disclosure and nondisclosure, respectively.

As this Note demonstrates, the Supreme Court has repeatedly factored in derivative harms as justification for nondisclosure without ever explicitly recognizing that it has done so. At the same time, however, the Court has failed to recognize the corresponding value of derivative benefits, though the caselaw implies that there is an appropriate role for derivative benefits in limited circumstances. Because FOIA embodies a pro-disclosure policy, and because there is no principled reason to consider one type of derivative use without the other, courts must consider derivative benefits, just as they follow the Supreme Court’s lead in considering derivative harms.

This Note makes three main contributions to this field. First, while this is not the first piece to advocate for the consideration of derivative uses, it is the first to do so for a narrow conception of derivative uses that is consistent with current Supreme Court doctrine. Broader versions of derivative use, as others have championed, would unrealistically require either the Court or Congress to overrule the core purpose doctrine. Second, this Note brings existing literature up to date by analyzing the impact of the Supreme Court’s latest disclosure case under the personal privacy exemptions. No other article has touched on this topic in any depth for roughly two decades. Finally, this Note is the first to discuss in any detail the treatment of derivative uses by the lower courts. This is critical to understanding the direction the doctrine is developing and is all the more pressing because this issue has the potential to cause a circuit split.

Part I of this Note provides a brief look at the history of FOIA and explains how the Supreme Court interprets the two personal privacy exemptions. Part II examines United States Department of State v. Ray,17 17.502 U.S. 164 (1991).Show More the one case in which the Supreme Court discussed derivative uses directly, while Part III analyzes the implications of the Court’s caselaw after Ray. Part IV lays out how and why courts should consider derivative benefits, and, finally, Part V analyzes the most important derivative use cases at the circuit level and predicts where the circuits are likely to split in the future.

  1. * J.D., University of Virginia School of Law, 2022. I am grateful to Professor Sarah Stewart Ware, who patiently supervised and guided this Note, and to the members of the Virginia Law Review who so diligently edited and improved it. All errors are mine alone.
  2. Lydia Saad, Postal Service Still Americans’ Favorite Federal Agency, Gallup (May 13, 2019), https://news.gallup.com/poll/257510/postal-service-americans-favorite-federal-agency.aspx [https://perma.cc/UL33-X7N7].
  3. Alison Durkee, Postmaster General Louis DeJoy Should Resign Over ‘Obvious Financial Conflicts of Interest,’ Experts Testify, Forbes (Sept. 14, 2020), https://www.forbes.com/sites/alisondurkee/2020/09/14/postmaster-general-louis-dejoy-should-resign-over-obvious-financial-conflicts-of-interest-experts-testify/?sh=7acc7503147c [https://perma.cc/D9ZC-X7DF].
  4. Id.
  5. About CREW, Citizens for Resp. & Ethics in Wash., https://www.citizensforethics.org/about/ [https://perma.cc/K4YX-W9ZH] (last visited Apr. 14, 2021).
  6. See E-mail from Meredith Lerner, Rsch. Assoc., Citizens for Resp. & Ethics in Wash., to USPS FOIA Officer, Re: Freedom of Information Act Request (Aug. 11, 2020), https://www.citizensforethics.org/wp-content/uploads/legacy/2020/08/2020.08.11-Louis-DeJoy-USPS-FOIA-final.pdf [https://perma.cc/88VT-BTNH].
  7. Id.
  8. Nikhel Sus (@NikhelSus), Twitter (Sept. 9, 2020, 12:38 PM), https://twitter.com/NikhelSus/status/1303734508018110464 [https://perma.cc/Q2UD-2MFD]; Letter from Jessica Y. Brewster-Johnson, Senior Ethics Couns., USPS, to Meredith Lerner, Rsch. Assoc., Citizens for Resp. & Ethics in Wash., Re: FOIA Case No. 2020-FPRO-01619 (Sept. 9, 2020) (on file with author). Nikhel Sus serves as CREW’s Senior Counsel over Complaints & Litigation. Our Team, Citizens for Resp. & Ethics in Wash., https://www.citizensforethics.org/about/our-team/ [https://perma.cc/BSH8-KUCN] (last visited Apr. 4, 2021). Many thanks to Nikhel Sus for providing the complete text of the Postal Service’s denial of the FOIA request.
  9. Brewster-Johnson, supra note 7.
  10. See CREW Sues USPS on Louis DeJoy Conflicts, Citizens for Resp. & Ethics in Wash. (Oct. 13, 2020), https://www.citizensforethics.org/legal-action/lawsuits/usps-louis-dejoy-conflicts/ [https://perma.cc/M5AT-85E3].
  11. 5 U.S.C. § 552(b)(1)–(9).
  12. Id. § 552(b)(6), (b)(7)(C).
  13. See U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 497 (1994).
  14. U.S. Dep’t of Just. v. Reps. Comm. for Freedom of the Press, 489 U.S. 749, 773–75 (1989).
  15. The core purpose doctrine has drawn its fair share of critics, but the Supreme Court shows no signs of revising it. See, e.g., Michael Hoefges, Martin E. Halstuk & Bill F. Chamberlin, Privacy Rights Versus FOIA Disclosure Policy: The “Uses and Effects” Double Standard in Access to Personally-Identifiable Information in Government Records, 12 Wm. & Mary Bill Rts. J. 1, 8–9 (2003); Christopher P. Beall, The Exaltation of Privacy Doctrines Over Public Information Law, 45 Duke L.J. 1249, 1251–52 (1996); Martin E. Halstuk, When Secrecy Trumps Transparency: Why the Open Government Act of 2007 Falls Short, 16 CommLaw Conspectus 427, 428–29 (2008) [hereinafter Halstuk, Secrecy Trumps Transparency].
  16. U.S. Dep’t of State v. Ray, 502 U.S. 164, 178 (1991).
  17. Associated Press v. U.S. Dep’t of Def., 554 F.3d 274, 290 (2d Cir. 2009) (citing Ray, 502 U.S. at 178).
  18. 502 U.S. 164 (1991).
  19. Hoefges et al., supra note 14, at 9–11 (quoting 5 U.S.C. § 552(f)). The “right” to access information gathered and held by the government is purely statutory. The Supreme Court has rejected the idea that citizens have any legally enforceable right under the Constitution to access government information. Barry Sullivan, FOIA and the First Amendment: Representative Democracy and the People’s Elusive “Right to Know,” 72 Md. L. Rev. 1, 14 (2012).
  20. See Hoefges et al., supra note 14, at 9 n.42.
  21. John C. Brinkerhoff, Jr., FOIA’s Common Law, 36 Yale J. on Regul. 575, 594 (2019) (quoting 5 U.S.C. § 1002 (repealed 1966)); see also Halstuk, Secrecy Trumps Transparency, supra note 14, at 434–35. The government used the “properly and directly concerned” requirement in particular to withhold information. Id. at 434. If the requested information did not pertain to the requestor himself, the government denied disclosure. This effectively excluded all third parties such as journalists and attorneys. Id.
  22. Brinkerhoff, supra note 20, at 594. One famous example, which demonstrates how toothless the disclosure requirements of the APA were, involved the government finding good cause to withhold the contents of telephone books. Id. at 594 n.141 (quoting James E. Hakes, Note, Comments on Proposed Amendments to Section 3 of the Administrative Procedure Act: The Freedom of Information Bill, 40 Notre Dame L. Rev. 417, 436 (1965)).
  23. See EPA v. Mink, 410 U.S. 73, 79 (1973).
  24. Dep’t of the Air Force v. Rose, 425 U.S. 352, 361 (1976) (quoting Rose v. Dep’t of the Air Force, 495 F.2d 261, 263 (2d Cir. 1974)).
  25. See Martin E. Halstuk & Charles N. Davis, The Public Interest Be Damned: Lower Court Treatment of the Reporters Committee “Central Purpose” Reformulation, 54 Admin. L. Rev. 983, 991 (2002).
  26. S. Rep. No. 88-1219, at 8 (1964).
  27. Hoefges et al., supra note 14, at 9–10.
  28. Id. Over the ensuing decades, Congress has amended FOIA a number of times in order to generate more disclosure and twice has done so expressly to overrule the Supreme Court. However, these amendments have not significantly dented the advantage that the government enjoys in court. Brinkerhoff, supra note 20, at 610 (citing Laurence Tai, Fast Fixes for FOIA, 52 Harv. J. on Legis. 455, 456–57 (2015)); see also Halstuk, Secrecy Trumps Transparency, supra note 14, at 427–28 (noting that the OPEN Governance Act of 2007, which amended FOIA, improved access to government-held information in a number of ways but still failed to “address systemic obstacles to a transparent government”).
  29. 5 U.S.C. § 552(a)(3)(A)–(B); Hoefges et al., supra note 14, at 10.
  30. 5 U.S.C. § 552(a)(4)(B).
  31. See Brinkerhoff, supra note 20, at 594. Brinkerhoff argues persuasively that a central reason for FOIA’s failure to promote disclosure to the extent Congress intended is its connection to the APA. The judiciary has interpreted FOIA using an approach similar to administrative common law. This approach runs contrary to the statutory text and employs doctrines that empower the executive, leading to a weakening of FOIA’s presumption in favor of disclosure and giving the government a marked advantage in litigation. This Note does not touch on FOIA’s background of administrative law. Rather, it examines one way in which the Supreme Court has unduly narrowed the two personal privacy exemptions. Still, it is worth bearing in mind that there are larger nondisclosure forces at work that apply to all of FOIA and not simply the two exemptions discussed here.
  32. 5 U.S.C. § 552(b)(1)–(9).
  33. Id. § 552(b)(6).
  34. Id. § 552(b)(7)(C).
  35. See U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 496–97 n.6 (1994) (noting that the differences between the two exemptions are “of little import” because they differ only in “the magnitude of the public interest that is required” to justify disclosure).
  36. See U.S. Dep’t of Just. v. Reps. Comm. for Freedom of the Press, 489 U.S. 749, 756 (1989).
  37. 5 U.S.C. § 552(b)(6).
  38. Id. § 552(b)(7)(C).
  39. Id. § 552(b)(6), (b)(7)(C).
  40. See Reps. Comm., 489 U.S. at 756. Congress’ initial draft of Exemption 7(C) contained the same language and therefore offered the same level of privacy protection as Exemption 6, but President Gerald Ford insisted on more stringent protections in return for his support for the bill. Hoefges et al., supra note 14, at 13 n.67 (citing 120 Cong. Rec. 17,033 (1974); H.R. Rep. No. 93-1380, at 4 (1974) (Conf. Rep.)).
  41. See Hoefges et al., supra note 14, at 11–12 (citing H.R. Rep. No. 89-1497, at 11 (1966)).
  42. H.R. Rep. No. 89-1497, at 11 (1966).
  43. See U.S. Dep’t of Just., Department of Justice Guide to the Freedom of Information Act: Exemption 7(C), at 1–2 (2019), https://www.justice.gov/oip/page/file/1206756/download [https://perma.cc/VE85-4NWX] [hereinafter DOJ Guide to Exemption 7(C)]; Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157, 166 (2004).
  44. S. Rep. No. 89-813, at 9 (1965).
  45. Hoefges et al., supra note 14, at 12–13.
  46. See U.S. Dep’t of the Air Force v. Rose, 425 U.S. 352, 361 (1976).
  47. See Brinkerhoff, supra note 20, at 579–82.
  48. See Rose, 425 U.S. at 380–81 (creating a balancing test which weighs public interests against personal-privacy interests); U.S. Dep’t of Just. v. Reps. Comm. for Freedom of the Press, 489 U.S. 749, 776–80 (1989) (defining the scope of public interests and privacy interests).
  49. U.S. Dep’t of State v. Wash. Post Co., 456 U.S. 595, 602 (1982); U.S. Dep’t of Just., Department of Justice Guide to the Freedom of Information Act: Exemption 6, at 4 (2019), https://www.justice.gov/oip/page/file/1207336/download [https://perma.cc/L8BW-S4DL] [hereinafter DOJ Guide to Exemption 6].
  50. 5 U.S.C. § 552 (b)(6).
  51. Wash. Post, 456 U.S. at 601 (noting that Exemption 6 “surely was not intended to turn upon the label of the file which contains the damaging information”); see also N.Y. Times Co. v. Nat’l Aeronautics & Space Admin., 920 F.2d 1002, 1004, 1009–10 (D.C. Cir. 1990) (en banc) (holding that an audio tape of the final moments of the astronauts aboard the Challenger space shuttle qualified as a “similar file” under Exemption 6).
  52. Wash. Post, 456 U.S at 602.
  53. Id. at 600–02 (rejecting the argument that “similar files” only protect intimate information). How to interpret and apply Exemption 6’s threshold requirement had been a point of contention among the lower courts for some time. A number of lower courts had held that records must contain intimate information before they could fall within the scope of “personnel and medical files and similar files.” See Hoefges et al., supra note 14, at 20.
  54. 5 U.S.C. § 552 (b)(7)(C).
  55. See Lauren Bemis, Note, Balancing a Citizen’s Right to Know with the Privacy of an Innocent Family: The Expansion of the Scope of Exemption 7(C) of the Freedom of Information Act Under National Archives & Records Administration v. Favish, 25 J. Nat’l Ass’n Admin. L. Judges 507, 511 (2005); Richard L. Huff & Craig E. Merutka, Freedom of Information Act Access to Personal Information Contained in Government Records: Public Property or Protected Information?, Army L., Jan. 2010, at 2, 5 (noting that the threshold can be met by more than just criminal investigations).
  56. FBI v. Abramson, 456 U.S. 615, 631–32 (1982).
  57. Huff & Merutka, supra note 54, at 5.
  58. See DOJ Guide to Exemption 6, supra note 48, at 2.
  59. 425 U.S. 352, 372 (1976).
  60. See, e.g., Multi Ag Media LLC v. U.S. Dep’t of Agric., 515 F.3d 1224, 1229–30 (D.C. Cir. 2008) (establishing that any privacy interest greater than de minimis triggers the balancing test); Fed. Lab. Rels. Auth. v. U.S. Dep’t of Veterans Affs., 958 F.2d 503, 510 (2d Cir. 1992) (“Hence, once a more than de minimis privacy interest is implicated the competing interests at stake must be balanced in order to decide whether disclosure is permitted under FOIA.”); see also DOJ Guide to Exemption 6, supra note 48, at 71–72; DOJ Guide to Exemption 7(C), supra note 42, at 27.
  61. U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 505 (1994) (Ginsburg, J., concurring in the judgement).
  62. 489 U.S. 749, 763, 769 (1989).
  63. Id. at 763.
  64. Id. at 775; see also id. at 774 (“FOIA’s central purpose is to ensure that the Government’s activities be opened to the sharp eye of public scrutiny, not that information about private citizens that happens to be in the warehouse of the Government be so disclosed.”). The Supreme Court’s core purpose doctrine is also often called the central purpose test. The two phrases are interchangeable.
  65. See Hoefges et al., supra note 14, at 56–57.
  66. For a few critiques, see Hoefges et al., supra note 14, at 25–26; Beall, supra note 14, at 1258; Halstuk, supra note 14, at 463–68. Reporters Committee was at least partially a response to the flood of FOIA requests by private individuals seeking information only for their own benefit. The core purpose doctrine prevents these kinds of requests. See infra note 170 and accompanying text.
  67. U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 507–08 (Ginsburg, J., concurring in the judgement).
  68. Id. at 502 (withholding disclosure of home addresses); N.Y. Times Co. v. Nat’l Aeronautics & Space Admin., 782 F. Supp. 628, 633 (D.D.C. 1991) (withholding disclosure of recordings of the astronauts aboard the Challenger); World Pub’g Co. v. U.S. Dep’t of Just., 672 F.3d 825, 831–32 (10th Cir. 2012) (withholding “mug shots” of arrestees). Courts also routinely protect more mundane information such as social security numbers, telephone numbers, and medical information. See DOJ Guide to Exemption 6, supra note 48, at 73–75 for a more thorough list.
  69. 502 U.S. 164 (1991).
  70. Id. at 178–79.
  71. Id. at 166.
  72. Id. at 167–69.
  73. Ray v. U.S. Dep’t of Just., 908 F.2d 1549, 1554–55 (11th Cir. 1990).
  74. Id. at 1554.
  75. Id. at 1555–56.
  76. Ray, 502 U.S. at 176–77.
  77. Id.
  78. Id.
  79. See id. at 180–81 (Scalia, J., concurring in part and concurring in the judgement).
  80. Id. at 178–79.
  81. Id. at 178.
  82. Id. at 178–79.
  83. Id. at 178.
  84. Id. at 179.
  85. Id.
  86. Id.
  87. Id. See the discussion of Favish, infra at Section III.C, for the Court’s most recent guidance on what evidence can overcome the presumption of legitimacy.
  88. Id. at 180 (Scalia, J., concurring in part and in judgement) (“The majority does not, in my view, refute the persuasive contention that consideration of derivative uses, whether to establish a public interest or to establish an invasion of privacy, is impermissible.”).
  89. Id.
  90. Id. at 180–81.
  91. Id.
  92. Id.; see also Eric J. Sinrod, Blocking Access to Government Information Under the New Personal Privacy Rule, 24 Seton Hall L. Rev. 214, 226 (1993) (noting the Court’s double standard on the derivative use issue).
  93. Ray, 502 U.S. at 182.
  94. The one exception to this expansion of privacy rights came in the Court’s most recent privacy exemption case, FCC v. AT&T Inc., 562 U.S. 397 (2011). In this decision, the Court held that “personal privacy” as protected by Exemption 7(C) does not extend to corporations. Because the Court found that the exemption did not apply, that case does not impact the derivative use issue.
  95. 510 U.S. 487 (1994).
  96. Id. at 487, 497.
  97. Id. at 490 (quoting 5 U.S.C. § 7114(b)(4)).
  98. Id. at 490–91.
  99. Id. at 491–92.
  100. Id. at 495.
  101. Id. at 497.
  102. Id.
  103. Id. at 502.
  104. See Karl J. Sanders, Note, FOIA v. Federal Sector Labor Law: Which “Public Interest” Prevails? 62 U. Cin. L. Rev. 787, 813–15 (1993) (arguing that the facts of FLRA presented a strong opportunity for considering derivative benefits).
  105. Fed. Lab. Rels. Auth., 510 U.S. at 500 (quoting U.S. Dep’t of Just. v. Reps. Comm., 489 U.S. 749, 763 (1989)).
  106. Id. at 501.
  107. Id. In contrast, the Fifth Circuit had found it hard to see how receiving mail could ever be an unwarranted invasion of privacy. Anyone uninterested in the mail could simply “send it to the circular file.” Fed. Lab. Rels. Auth. v. U.S. Dep’t of Def., 975 F.2d 1105, 1110 (5th Cir. 1992).
  108. Justice Ginsburg, although concurring in the judgement, wrote separately to express her unease about the direction of the Court’s FOIA jurisprudence. Fed. Lab. Rels. Auth., 510 U.S. at 504–09 (Ginsburg, J., concurring in the judgement). She observed that Reporters Committee had “changed the FOIA calculus” by implementing a core purpose doctrine that had no origin in the statutory language. Id. at 505–07. Nevertheless, she concurred because she felt that Reporters Committee was controlling precedent and that the other members of the Court were committed to preserving it. Id. at 509.
  109. Bibles v. Or. Nat’l Desert Ass’n, 519 U.S. 355, 355–56 (1997) (per curiam).
  110. Or. Nat’l Desert Ass’n v. Bibles, 83 F.3d 1168, 1169–71 (9th Cir. 1996), rev’d, 519 U.S. 355 (1997).
  111. Id. at 1171.
  112. Bibles, 519 U.S. at 355–56.
  113. Id.
  114. Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157, 158 (2004).
  115. Id. at 172. While Favish altered the Court’s doctrine in important ways, it left the basic foundation of Reporters Committee intact despite an amicus brief arguing that a recent amendment to FOIA effectively overruled the core purpose doctrine. Brief for Reporters Committee for Freedom of the Press as Amicus Curiae at 24, Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157 (2004) (No. 02-954). When Congress amended FOIA to clarify that it also extended to records in an electronic format, it added that the purpose of the statute was to provide a right to access non-exempt records “for any public or private purpose.” Pub. L. No. 104-231, § 2(a)(1), 110 Stat. 3048 (1996) (emphasis added). Senator Patrick Leahy, who introduced the amendment, wrote in a Senate report that this language was specifically intended to counter the Court’s erroneous core purpose doctrine, but the Court brushed past this without comment in Favish. See S. Rep. No. 104-272, at 26–27 (1996); Halstuk & Davis, Public Interest Be Damned, supra note 24, at 1015–16.
  116. Favish, 541 U.S. at 174–75.
  117. See U.S. Dep’t of Just. Off. of Info. & Priv., Supreme Court Decides to Hear “Survivor Privacy” Case (2003), https://www.justice.gov/archive/oip/foiapost/2003foiapost17.htm [https://perma.cc/48K3-SHTX].
  118. Favish, 541 U.S. at 161–64.
  119. Id. at 165.
  120. Id. at 165–69.
  121. Id. at 166.
  122. Id. at 166–67.
  123. Id. at 173–75.
  124. Id. at 174. The Department of Justice has found that most plaintiffs fail to meet this heightened evidentiary standard. DOJ Guide to Exemption 6, supra note 48, at 67. However, for one example in which this standard was found to have been met, see Union Leader Corp. v. United States Department of Homeland Security, 749 F.3d 45 (1st Cir. 2014), discussed infra at Section V.D.
  125. Favish, 541 U.S. at 174, 175. The Court’s requirement places requestors in a Catch-22. To be allowed to investigate government misconduct, they must first be able to offer significant evidence of government misconduct. This requirement, while tracking with common sense by refusing to let bare allegations trump concrete privacy interests, has no roots in FOIA’s text. See Halstuk, Secrecy Trumps Transparency, supra note 14, at 468.
  126. Favish, 541 U.S. at 175.
  127. Id. at 172.
  128. Id.
  129. Id. While the Court contextualized its requirement as applying to Exemption 7(C), it is probable that it would interpret Exemption 6 in the same way because of their similarity, which the Court has repeatedly recognized. See Fed. Lab. Rels. Auth., 510 U.S. at 496 n.6 (explaining that the difference between the two exemptions is purely in the magnitude, not kind, of privacy protection provided).
  130. Bemis, supra note 54, at 539–40.
  131. See Fed. Lab. Rels. Auth., 510 U.S. at 507 (Ginsburg, J., concurring in the judgement) (“A FOIA requester need not show in the first instance that disclosure would serve any public purpose.” (emphasis added)).
  132. 5 U.S.C. § 552(a)(4)(B).
  133. U.S. Dep’t of Just., Freedom of Information Act Guide & Privacy Act Overview 432–33, 432 n.47 (Pamela Maida ed., May 2004 ed.) (citing Nat’l Ass’n of Retired Fed. Emps. v. Horner, 879 F.2d 873, 878 (D.C. Cir. 1989)).
  134. See the discussion of Ray supra Part II for a full analysis of the Scalia-Kennedy concurrence.
  135. See supra notes 122–25 and accompanying text.
  136. U.S. Dep’t of State v. Ray, 502 U.S. 164, 178–79 (1991).
  137. Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157, 172–75 (2004).
  138. Id.
  139. Id. at 172–73 (“We do not in this single decision attempt to define the reasons that will suffice, or the necessary nexus between the requested information and the asserted public interest that would be advanced by disclosure.”).
  140. See Hoefges et al., supra note 14, at 39. While this was noted pre-Favish, it is still true after that case.
  141. Brinkerhoff, supra note 20, at 577.
  142. See Wash. Post Co. v. U.S. Dep’t of Health & Hum. Servs., 690 F.2d 252, 261 (D.C. Cir. 1982).
  143. See Lillian R. BeVier, Information About Individuals in the Hands of Government: Some Reflections on Mechanisms for Privacy Protection, 4 Wm. & Mary Bill Rts. J. 455, 485 (1995) (arguing that the Supreme Court had turned the privacy exemptions into shields for nondisclosure).
  144. Cf. Nat’l Ass’n of Retired Fed. Emps. v. Horner, 879 F.2d 873, 878 (D.C. Cir. 1989) (“Where there is a substantial probability that disclosure will cause an interference with personal privacy, it matters not that there may be two or three links in the causal chain.”).
  145. See U.S. Dep’t of State v. Ray, 502 U.S. 164, 181 (1991) (Scalia, J., concurring).
  146. See supra Part III and Section IV.C for a discussion of the Court’s implicit acceptance of derivative benefits in certain circumstances.
  147. Bibles v. Or. Nat’l Desert Ass’n, 519 U.S. 355, 355–56 (1997) (per curiam).
  148. See Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157, 172–74 (2004).
  149. See, e.g., Hopkins v. U.S. Dep’t of Hous. & Urb. Dev., 929 F.2d 81, 88 (2d Cir. 1991) (dismissing a derivative benefits argument because “[w]ere we to compel disclosure of personal information with so attenuated a relationship to governmental activity, however, we would open the door to disclosure of virtually all personal information, thereby eviscerating the FOIA privacy exemptions”).
  150. See Favish, 541 U.S. at 174.
  151. Id. at 170–72.
  152. See U.S. Dep’t of Def. v. Fed. Lab. Rels. Auth., 510 U.S. 487, 508–09 (1994) (Ginsburg, J., concurring in the judgement).
  153. See Navigator Publ’g v. U.S. Dep’t of Transp., 146 F. Supp. 2d 68, 70–71 (D. Me. 2001) (rejecting an argument based on derivative benefits in part because the court doubted the requestor’s sincerity, believing that the requestor would use the requested information for personal profit rather than to vindicate the public interest).
  154. See, e.g., Hoefges et al., supra note 14, at 60–63 (advocating for an expansive conception of public interest).
  155. See John Doe Agency v. John Doe Corp., 493 U.S. 146, 161 (1989) (Scalia, J., dissenting) (remarking that courts treat the need to narrowly construe FOIA’s exemptions as “a formula to be recited rather than a principle to be followed”); Fed. Lab. Rels. Auth., 510 U.S. at 507 (Ginsburg, J., concurring in the judgement) (“The Reporters Committee ‘core purpose’ limitation is not found in FOIA’s language.”).
  156. Whether this shield should have been created by Congress rather than the Supreme Court is irrelevant to the overall point that the core purpose doctrine has certain benefits as a matter of policy. Early commentators on FOIA often viewed it as a sort of Pandora’s box which had released all number of unforeseen consequences and threatened to inundate government agencies with requests. Reporters Committee was an attempt to put the lid back on the box. See Beall, supra note 14, at 1253–56.
  157. See Hoefges et al., supra note 14, at 10 n.49.
  158. See Nat’l Archives & Recs. Admin. v. Favish, 541 U.S. 157, 170 (2004).
  159. See Manna v. U.S. Dep’t of Just., 51 F.3d 1158, 1165 (3d Cir. 1995).
  160. Other scholars have suggested rebalancing the disclosure scales through an opposite approach: narrowing the relevant privacy interests rather than expanding the conception of the public interest. See Hoefges et al., supra note 14, at 63. Under this approach, the privacy exemptions cannot be triggered merely by the existence of personally identifiable information in the requested documents. Instead, the government can only invoke the privacy exemptions if the requested documents contain personal information that is intimate in nature or inherently private. Id. at 63 & n.435. While such a proposal is outside the scope of this article, there are reasons to believe that the Supreme Court has expanded the protected zone of privacy beyond the statute’s text and purpose. However, this proposal runs into the same difficulty as the calls to overturn the core purpose doctrine—it would require dismantling Reporters Committee, which is highly unlikely. See U.S. Dep’t of Just. v. Reps. Comm. for Freedom of the Press, 489 U.S. 749, 763 (1989) (indicating that FOIA’s privacy exemptions protect more than what is inherently private).
  161. A number of district courts across the country have also allowed disclosure based on derivative benefits. For a substantial but far from comprehensive list, see DOJ Guide to Exemption 6, supra note 48, at 57–59.
  162. In contrast to the limited caselaw on derivative benefits, consideration of derivative privacy harms is ubiquitous among the circuits, even if courts seldom acknowledge it as such. See, e.g., Prudential Locations LLC v. U.S. Dep’t of Hous. & Urb. Dev., 739 F.3d 424, 426, 431 (9th Cir. 2013) (finding that disclosing the names of those who had alleged a certain business had broken federal law would risk exposing them to retaliation, stigma, and harassment); Forest Guardians v. U.S. FEMA, 410 F.3d 1214, 1216, 1220 (10th Cir. 2005) (finding that privacy interests would be invaded by disclosure of electronic mapping files because lot numbers could be manipulated to reveal home addresses). Only the Fifth Circuit, citing the Ray concurrence approvingly, has expressed doubt over whether derivative harms should be accorded any weight. See Cooper Cameron Corp. v. U.S. Dep’t of Lab., 280 F.3d 539, 554 n.68 (5th Cir. 2002) (noting that the court’s ruling accorded with the Ray concurrence); Sherman v. U.S. Dep’t of the Army, 244 F.3d 357, 365 n.14 (5th Cir. 2001) (citing the Ray concurrence and expressly disclaiming that Court’s holding involved weighing derivative harms). However, the Fifth Circuit has not addressed the issue since the Supreme Court’s decision in Favish, and one of its district courts has more recently found that weighing derivative harms is permitted. See Inclusive Cmtys. Project, Inc. v. U.S. Dep’t of Hous. & Urb. Dev., No. 3:14-cv-3333, 2016 U.S. Dist. LEXIS 123779, at *21–22 (N.D. Tex. Sept. 13, 2016) (choosing to consider derivative privacy harms because the Supreme Court and the D.C. Circuit do so). Because derivative harms are not a serious point of contention among the circuits, the following discussion is limited to derivative benefits.
  163. See, e.g., Beall, supra note 14, at 1259–60 (arguing that FLRA was the death knell for derivative benefits).
  164. ACLU v. U.S. Dep’t of Just., 655 F.3d 1, 15 (D.C. Cir. 2011).
  165. See Cooper Cameron Corp., 280 F.3d at 543.
  166. ACLU, 655 F.3d at 3.
  167. Id. at 3–4.
  168. Id. at 4–5.
  169. Id. at 5.
  170. Id. at 6–12.
  171. Id. at 11–12. But cf. Union Leader Corp. v. U.S. Dep’t of Homeland Sec., 749 F.3d 45, 53 (1st Cir. 2014) (finding that because the requestor did not intend to directly contact the subjects of the requested documents, the privacy interests at stake were diminished).
  172. ACLU, 655 F.3d at 15.
  173. Id. at 13–14.
  174. Id. at 15.
  175. Id. at 15–16.
  176. See Multi AG Media LLC v. U.S. Dep’t of Agric., 515 F.3d 1224, 1226 (D.C. Cir. 2008) (allowing disclosure on a derivative benefits theory); Painting & Drywall Work Pres. Fund v. U.S. Dep’t of Hous. & Urb. Dev., 936 F.2d 1300 (D.C. Cir. 1991) (denying disclosure but finding that the ability of a journalist to use the requested information to further investigate governmental action weighed in favor of the public interest).
  177. Multi AG Media LLC, 515 F.3d at 1224.
  178. Id. at 1231–32.
  179. Id. at 1231. But see McCutchen v. Dep’t of Health & Hum. Serv., 30 F.3d 183, 188 (D.C. Cir. 1994) (observing that the mere desire to oversee how the government is performing its duties does not create a public interest that can outweigh privacy concerns).
  180. See Lepelletier v. FDIC, 164 F.3d 37, 48 (D.C. Cir. 1999); see also Halstuk & Davis, The Public Interest Be Damned, supra note 24, at 1011–13.
  181. Lepelletier, 164 F.3d at 39.
  182. Id. at 47.
  183. Id. at 48.
  184. Id.
  185. Id. The D.C. Circuit also forbade the district court from releasing the depositors’ names in conjunction with the amount owed to them by the government, another sign that it believed the depositors did possess a privacy interest. Id.
  186. See Long v. Off. of Pers. Mgmt., 692 F.3d 185, 198 (2d Cir. 2012); Associated Press v. U.S. Dep’t of Def., 554 F.3d 274, 293 (2d Cir. 2009); Hopkins v. U.S. Dep’t of Hous. & Dev., 929 F.2d 81, 88–89 (2d Cir. 1991).
  187. Hopkins, 929 F.2d at 82.
  188. Id. at 88.
  189. Id.
  190. Associated Press, 554 F.3d at 290 (“Although this Court has not addressed the issue of whether a derivative use theory is cognizable under FOIA as a valid way by which to assert that a public interest is furthered, we have indicated that it may not be.”).
  191. Id. at 279–80.
  192. Id. at 290. See also Long v. Off. of Pers. Mgmt., 692 F.3d 185, 194 (2d Cir. 2012) (“The use of personnel files to contact government employees in the hopes of uncovering malfeasance does not serve FOIA’s objectives.”). But see Kuzma v. U.S. Dep’t of Just., 692 F. App’x 30, 35 (2d Cir. 2017) (rejecting a derivative use argument that would merely “provide further avenues for research” into alleged government misconduct). While the Second Circuit’s comments here seem broad enough to go beyond skepticism just related to direct contact, the plaintiff’s derivative benefits argument was so threadbare and the court’s analysis so perfunctory that it is unlikely that this case hints at anything larger. See id.
  193. See Forest Servs. Emps. v. U.S. Forest Serv., 524 F.3d 1021, 1028 (9th Cir. 2008) (rejecting a direct contact argument); Lahr v. Nat’l Transp. Safety Bd., 569 F.3d 964, 979 (9th Cir. 2009) (same).
  194. See Elec. Frontier Found. v. Off. of the Dir. of Nat’l Intel., 639 F.3d 876, 888–89 (9th Cir. 2010); Rosenfield v. U.S. Dep’t of Just., 57 F.3d 803, 815 (9th Cir. 1995).
  195. See Forest Servs., 524 F.3d at 1027–28.
  196. Id at 1028.
  197. Id. See also Lahr, 569 F.3d at 975 (finding Forest Services to be binding precedent and similarly denying disclosure where the public interest could only be advanced at the expense of privacy via direct contact); Painting Indus. of Haw. Mkt. Recovery Fund v. U.S. Dep’t of the Air Force, 26 F.3d 1479, 1485 (9th Cir. 1994) (rejecting a derivative benefits argument predicated on direct contact because the public interest and the privacy interest were “intertwined”).
  198. See Elec. Frontier Found., 639 F.3d at 887–88; see also Rosenfield, 57 F.3d 803, 815 (allowing disclosure of names so that the public could ascertain whether the FBI improperly targeted the leadership of a political movement).
  199. Elec. Frontier Found., 639 F.3d at 880–81.
  200. Id. at 888.
  201. Id. at 887–88.
  202. Union Leader Corp. v. U.S. Dep’t of Homeland Sec., 749 F.3d 45, 48 (1st Cir. 2014).
  203. For analysis of the evidentiary standards laid out by the Supreme Court in Favish, see the discussion supra Section III.C.
  204. Union Leader, 749 F.3d at 54.
  205. Id. at 55–56.
  206. Id. at 56.
  207. News-Press v. U.S. Dep’t of Homeland Sec., 489 F.3d 1173, 1174 (11th Cir. 2007). The Eleventh Circuit also allowed disclosure based on derivative benefits in Ray before the Supreme Court reversed. Because of that reasoning, at least one district court in the aftermath of Ray found that considering derivative benefits was still permissible until the Eleventh Circuit ruled otherwise, since the Supreme Court had declined to answer that question. See Ray v. U.S. Dep’t of Just., INS, 852 F. Supp. 1558, 1564–65 (S.D. Fla. 1994).
  208. News-Press, 489 F.3d at 1177–78.
  209. Id. at 1178–81.
  210. Id. at 1192–93. The court reached its decision even while knowing that the newspapers would likely need to contact some recipients directly in the course of their investigation. See id. at 1203. This stands in contrast to the decisions of the Ninth Circuit, which generally do not allow disclosure where the derivative benefits entail direct contact with the identifiable subjects of the requested documents.
  211. Id. at 1205.
  212. News-Press v. U.S. Dep’t of Homeland Sec., 2005 U.S. Dist. LEXIS 27492, at *54 (M.D. Fla. Nov. 4, 2005).