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STEVENS, R.A.V., AND ANIMAL CRUELTY SPEECH: WHY CONGRESS'S NEW STATUTE REMAINS CONSTITUTIONALLY PROBLEMATIC

Summary:

Abstract: The constitutionality of restrictions on speech depicting actual cruelty to animals is a question that continues to divide courts and commentators. In U.S. v. Stevens, the Supreme Court struck down a 1999 ban on depictions of animal cruelty. The Court invalidated the ban on its face because, as written, the statute extended beyond acts of actual animal cruelty to other forms of unlawful animal harm, such as hunting out of season. Thus, the Court did not resolve the core question presented.

Congress responded by drafting a new statute, one narrowed to “crush” videos--obscene depictions of animal cruelty--in an effort to avoid constitutional problems. This new statute, however, continues to raise constitutional and public policy concerns--despite its recent upholding in the Fifth Circuit in United States v. Richards.

This article is the first to analyze the constitutional and public policy issues presented by Congress's new animal cruelty speech regulation. This article contends that the modified statute is poor public policy and remains constitutionally problematic. First, as a policy matter, the statute is ineffective because it fails to criminalize the most widespread and troubling form of animal cruelty speech: animal fighting videos. Second, the statute's overly narrow reach--limited to obscene depictions of animal cruelty--in fact increases its constitutional problems by triggering the “virulence” doctrine first articulated in R.A.V. Since courts are unlikely to view obscene depictions of animal cruelty as virulently “prurient” obscenity, as opposed to the kind of “morbidly” violent speech entitled to the protections of strict scrutiny as established in Brown, the statute will likely be invalidated.

The article concludes with an exploration of possible new legislation, which could effectively prevent animal cruelty, while also preserving free speech rights.

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Safari Club International v. Jewell

Summary:

Safari Club International and the National Rifle Association filed suit challenging the federal government’s suspension of imports of trophies from elephants sport-hunted in Zimbabwe. In April of 2014, the U.S. Fish and Wildlife Service (“the Service”) suspended imports of trophies from elephants on the basis that the Service could no longer make the finding required under its regulations “that the killing of the animal whose trophy is intended for import would enhance survival of the species.” Safari Club asserted four main arguments against the Service’s suspension of imports: (1) the agency violated APA rulemaking requirements by not providing for notice and comment; (2) the agency applied prohibited guidelines and the wrong standard in making its findings; (3) the agency failed to overcome a statutory presumption in Section 9(c)(a) of the Endangered Species Act; and (4) the agency violated the APA by failing to explain why it maintained the enhancement finding requirement in the Special Rule after the requirement was eliminated from the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). The court reviewed Safari International’s arguments and granted summary judgment only with respect to the argument that the Service had failed to publish notice of the changed Zimbabwe enhancement finding in the Federal Register until May 12, 2014. The court dismissed the remaining arguments put forth by Safari International and granted summary judgment in favor of the Service. The court found that the Service had violated its commitment to publish any notice of a change in the Federal Register before the change can take effect. The Service violated this commitment by publishing notice of the suspension of imports of trophies in the Federal Register on May 12, 2014 but making the effective date of the suspension April 4, 2014. For this reason, the court found that the effective date of the suspension must be changed to May 12, 2014. With respect to Safari International’s other arguments, the court found that Safari International was unable to meet its burden and held in favor of the Service.

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Cotton v. Ben Hill County

Summary:

In this case, Cotton filed suit against Ben Hill County after Cotton’s cattle was seized for alleged animal cruelty and roaming at large. Cotton filed suit against Ben Hill County and the Sheriff’s Department arguing that he had been deprived of his property in violation of the Due Process Clause and Equal Protection Clause of the Fourteenth Amendment and in the violation of the Constitution of Georgia. The court reviewed the issue and granted summary judgment in favor of Ben Hill County and the Sheriff's Department. The court granted summary judgment because Cotton was unable to establish that his rights were violated under the Due Process Clause and the Equal Protection Clause of the Fourteenth Amendment. Cotton was unable to establish that his Due Process rights were violated because he was unable to provide any evidence that the allegations against Ben Hill County and the Sheriff’s Department were “the result of an official policy, custom or practice of the county or that the County acted with deliberate indifference to these rights.” Also, the court found that there was not a violation of the procedural requirements of the Due Process Clause because under state law, Georgia provided for a “post deprivation remedy for the loss.” Lastly, the court found that Cotton’s claims against the Sheriff's Department failed as a matter of law because Cotton was unable to establish that anyone from the Sheriff’s Department actually participated in the seizure and impoundment of the cattle. For those reasons, the court held in favor of Ben Hill County and granted summary judgment.

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Wildearth Guardians v. U.S. Department of the Interior

Summary:

In this case, Wildearth Guardians filed suit to challenge the United States Fish and Wildlife Service’s designation of critical habitat for the Canada lynx. Wildearth argued that United States Fish and Wildlife Service wrongly excluded geographical areas in its final critical habitat designation. The areas that Wildearth argued should have been included in the designation were the Southern Rockies in Colorado, the Kettle Range of northeastern Washington, the state of Oregon, and certain National Forest lands in Montana and Idaho. Ultimately, the court reviewed Wildearth’s arguments and held that the Fish and Wildlife Service did wrongly exclude the Southern Rockies in Colorado and the National Forest lands in Montana and Idaho. With regard to the areas in Washington and Oregon, the court found that the Fish and Wildlife Service did not err in excluding in those areas from the critical habitat designation. The Fish and Wildlife Service used “primary constituent elements” (PCE) to determine which areas should be designated as a critical habitat for the Canada lynx. The court found that with respect to Colorado, there was a close call as to one of the of PCE’s and that the Service should have favored the lynx according to the standard set in the Endangered Species Act. Lastly, the court found that the Service also erred with respect to Montana and Idaho because it failed to comply with previous court orders to inspect the lands to determine whether or not the lands contained “physical and biological features essential to lynx recovery.” The court found that had the Service complied with these orders, it would have found that Montana and Idaho should have been included in the designation. The plaintiffs motions were granted in part and the matter was remanded to the Service for further action consistent with this order. The final rule remains in effect until the Service issues a new final rule on lynx critical habitat, at which time the September 2014 final rule will be superseded.

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New England Anti-Vivisection Society v. United States Fish and Wildlife Service and Yerkes National Primate Research Center

Summary:

New England Anti-Vivisection Society (NEAVS), a non-profit organization that dedicates itself to animal-welfare, brought suit against the United States Fish and Wildlife Service (FWS) for issuing an export permit to Yerkes National Primate Research Center (Yerkes). NEAVS filed suit against FWS arguing that FWS had violated the Endangered Species Act, the Administrative Procedure Act, the National Environmental Policy Act, and the Convention on International Trade in Endangered Species. NEAVS argued that FWS had violated the acts by allowing Yerkes to export chimpanzees in exchange for making a financial donation that would be put towards a program to help with “habitat destruction and disease, which face wild chimpanzees in East Africa.” The court reviewed the case and determined that it did not have subject-matter jurisdiction to address the claims made by NEAVS. The court found that NEAVS was not able to establish standing under Article III of the Constitution because NEAVS had not “suffered an injury in fact.” Ultimately, the court held that NEAVS was unable to show that it had a “concrete and particularized injury in fact that is actual or imminent” and that is “traceable” to FWS’ actions. As a result, the court granted summary judgment in favor of FWS.

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Kollman v. Vilsack

Summary:

The Animal Welfare Act (AWA) (7 U.S.C. §§ 2131–2159) regulates the housing, sale, transport, treatment, and exhibition of animals. Defendants, United States Secretary of Agriculture, licensed Plaintiff, Lancelot Kollman, as an exhibitor under the AWA. However, after the death of two lions and Kollman’s failure to contest charges, the Secretary revoked Kollman's license. Still, Hawthorn, a company that holds an exhibitor license, hired Kollman to train a “tiger act” for performance at circuses throughout the United States. Hawthorn then asked Kollman to travel with the tigers and perform the act. However, the USDA received complaints about Kollman's participation in the act, despite having his license revoked. The USDA investigated and determined that Kollman was prohibited from exhibiting animals as an employee of Hawthorn. Kollman, sued Thomas J. Vilsack, the United States Secretary of Agriculture, and Chester A. Gipson, a deputy administrator of animal care. Kollman sued for a declaration that, at a circus maintained by his employer, Hawthorn Corporation, he could publicly perform the tiger act. The Defendants moved for summary judgment. The United States District Court, M.D. Florida, Tampa Division, held that the Defendants' motion for summary judgment was Granted. The court reasoned that Kollman was barred from presenting animals on behalf of Hawthorn because regardless of his status as a Hawthorn employee, Section 2.10(c) of the Animal Welfare Act clearly prohibited Kollman, as an individual with a revoked license, from exhibiting an animal. Secondly, Section 2.10(c) was unambiguous.

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H.J. Justin & Sons, Inc. v. Brown

Summary:

In this case, plaintiff filed suit challenging the California Penal Code, specifically sections 653o and 653r. Plaintiff manufactured boots from the hides of animals, including the hides of the African elephant, the Indonesian python, and the Wallaby kangaroo. Section 653o and 653r of the California Penal Code prevented plaintiff from selling his boots in California because the provisions forbid the sale of products made from dead bodies, or any part of the elephant, python, or kangaroo. Plaintiff challenged these provisions arguing that the provisions were preempted by the Convention on International Trade in Endangered Species of Wild Fauna and Flora and by the Endangered Species Act of 1973, thus making the provisions unconstitutional. The plaintiff also argued that the provisions were unconstitutional because of the burden placed on interstate commerce which violates the Commerce Clause of the U.S. Constitution. Ultimately, the court held that the provisions of the California Penal Code were not unconstitutional and dismissed plaintiff’s claim. The court looked to whether or not the provisions were expressly or impliedly preempted and determined that because the provisions were not expressly preempted the court needed to do an analysis of implied preemption. Looking to legislative history, the court found that Congress did not intend to preempt the provisions of the California Penal Code with the enactment of the Endangered Species Act of 1973. Lastly, the court held that the California statue was not a burden on interstate commerce because Congress was aware of the existence of the California provisions and decided that the Endangered Species Act would not affect the California provisions. As a result, the court dismissed plaintiff’s claim and held for the defendant.

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People for the Ethical Treatment of Animals, Inc. v. United States Department of Agriculture

Summary:

In this case, People for the Ethical Treatment of Animals, In.c (PETA) filed a complaint against the United States Department of Agriculture (USDA) for violating the Administrative Procedure Act (APA). PETA argued that the USDA had violated the APA because the USDA has a “policy, pattern, and practice or rubber stamping” exhibitor license renewals to noncompliant animal exhibitors. Under the APA, any agency action that is found to be “arbitrary, capricious, or an abuse of discretion” must be held unlawful by the courts. The court in this case reviewed the facts of the case in accordance with the Chevron decision. According to the court in Chevron, a court must give deference to an agency if: (1) "the statutory language is silent or ambiguous with respect to the question posed," or (2) "the agency’s answer is based on a permissible construction of the statute.” The statutory language that the court considered in this case was the Animal Welfare Act (AWA) that regulate the transportation, handling, and treatment of animals. Ultimately, the court determined that the AWA was silent with regard to exhibitor renewals and therefore moved to the second step of the Chevron decision. The court found that the AWA does not prohibit the USDA’s administrative renewal process for animal exhibitor licenses. The court held that the USDA did not act arbitrarily or abuse its description when it chose to renew certain exhibitor licenses. As a result, the court rejected PETA’s claim against the USDA.

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United States v. Hess

Summary:

This case stems from a United States Fish and Wildlife Service's investigation into illegal trafficking of rhinoceros horns and ivory called "Operation Crash." Defendant James Hess, a taxidermist in Maquoketa, Iowa, agreed to sell a pair of lack rhinoceros horns in 2011 to another individual involved in the trafficking operation. As a result of his role, he was charged with one count of Lacey Act Trafficking for knowingly engaging in conduct involving the sale and purchase of wildlife with a market value exceeding $350 that was transported and sold in violation of the Endangered Species Act. Hess was ultimately sentenced to 27 months in prison followed by three years of supervised release. On appeal, Hess first argued that the District Court made an “unsustainable finding on the record presented” when it stated that Hess "helped establish a market for these black rhino horns, and that is a serious offense against the planet." Because Hess failed to object at sentencing, this issue was reviewed for plain error. This court found no plain error, as the record supported the statement that Hess' action contributed to furthering a market for black rhinoceros horns. As to defendant's argument that his sentence was unreasonable, the court found that he failed to overcome the presumption of reasonableness in his bottom of the guidelines sentencing range. The judgment of the district court was affirmed.

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Neita v. City of Chicago

Summary:

Vaughn Neita brought this suit for damages under 42 U.S.C. § 1983 and Illinois law, alleging false arrest and illegal searches in violation of the Fourth Amendment arising from an animal cruelty arrest. He was ultimately found not guilty on all counts by an Illinois judge. In 2012, Neita owned a dog-grooming business and rescue shelter. He brought two dogs to the Chicago Department of Animal Care and Control because one dog had attacked another dog in Neita's care and another dog had become ill after whelping a litter of puppies. When Neita arrived with the dogs, an animal control employee contacted police officers who then arrested Neita and searched his business premises, resulting in 13 counts of animal cruelty. With regard to this § 1983 action and Illinois state claims, while Neita amended his complaint twice, it was ultimately dismissed with prejudice for failure to adequately plead any constitutional violation. This appeal then followed. The Seventh Circuit held that to prevail on a false arrest claim under § 1983, a plaintiff must show that there was no probable cause for his or her arrest. Neita arrived at Animal Control to surrender two dogs that showed no signs of abuse or neglect without evidence that he mistreated either dog. Those statements in the amended complaint are sufficient to permit a false arrest claim to proceed. As to the claim of illegal searches, the court found that a plausible claim for false arrest also allowed his claim for an illegal search incident to his arrest to move forward. The dismissal of Neita's claims was reversed and remanded for further proceedings.

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