Prof. Kurt Lash has a very important forthcoming article on the State Citizenship Clause. Here is his Introduction:
I. Introduction
The first sentence of the Fourteenth Amendment declares:
“All persons born or naturalized in the United States and subject to the
jurisdiction thereof is a citizen of the United States and of the State wherein
they reside.” This opening sentence contains not one, but two citizenship
clauses. The first defines national citizenship. The second defines state
citizenship. Although significant historical scholarship exists regarding the
other provisions in Section One of the Fourteenth Amendment, the State Citizenship
Clause has been unstudied, unapplied and, quite often, unrecognized.
A close look at the history of the State Citizenship Clause,
however, reveals its key purpose in the overall structure of Section One of the
Fourteenth Amendment. Although today courts emphasize the “all persons” clauses
(due process and equal protection), the majority of Section One addresses the
status and rights of citizens. The National citizenship clause echoes the
opening sentence of the 1866 Civil Rights Act and formally overrules the
Supreme Court’s decision in Dred Scott. The State citizenship clause goes
further and addresses a critical omission in the 1866 Civil Rights Act. That
Act defined national citizenship but left the status of state citizenship
undefined and unprotected. The second citizenship clause remedies this
omission and prohibits states from establishing a tiered system of citizenship
where black Americans are treated as second class state citizens and denied the
same civil rights granted to white state citizens.
Recognizing the role played by the State Citizenship Clause
in securing the equal status of state citizens helps resolve a number of
textual historical conundrums regarding the full meaning and structure of
Section One of the Fourteenth Amendment. For example, recent scholarship
suggests that the original understanding of the Equal Protection Clause
guaranteed nothing more than the equal application of laws protecting a person’s
life, liberty or property. It appears this Clause did not prohibit states from
discriminating on the basis of race in regard to the broader category of
citizens civil rights. If so, then this means the original scope of the Equal
Protection Clause was far narrower than the Supreme Court’s current
interpretation and would not support the Court’s ruling in canonical cases like
Brown v. Board of Education and Loving v. Virginia. The original understanding of the
State Citizenship Clause, on the other hand, prohibits states from establishing
a two-tiered system of state citizenship whereby civil rights and benefits are
distributed differently on the basis of race.
The history of the State Citizenship Clause also sheds
important light on the original understanding of the Fourteenth Amendment’s
Privileges or Immunities Clause. The citizenship clauses define the status of
national and state citizenship: Any person born in the United States is a
citizen of the United States, and any United States citizen residing in a state
is also a citizen of that state. The Privileges or Immunities Clause then
declares that no state shall abridge the privileges or immunities of these
citizens. These privileges include the rights secured by the status of national
citizenship (for example, those enumerated in the Bill of Rights) and those
rights secured by the status of state citizenship (local civil rights).
Although whole forests have been felled in the effort to define the
“fundamental” rights protected by the Privileges or Immunities Clause, the
meaning of the Clause is both simple and easily enforceable. States cannot deny
national citizens those rights secured by national law (including rights listed
in the national Constitution) and states must extend local civil rights equally
to all its citizens, regardless of race. The latter include all civil rights
(not just “fundamental” rights), from the right to educational benefits to the
right to skip down a public sidewalk.
This helps clarify a lot of issues we will be discussing.