> But the simpler route is that there is no such thing as an “independent” agency. That’s a 20th century creation.
Actually, there are at least three early examples of independent agencies, though note that until the modern administrative state emerged in the late 19th century the Federal government was never so hierarchically organized as to admit to an "agency" as we understand that term today.
First was the 1790 sinking fund, a nominally executive committee created by Congress to pay down the national debt, which could override the President's preference regarding payments. Second was the office of the comptroller, which was strongly shielded from executive control for fear of a corrupt president, and which (IIRC) was the subject of vigorous Congressional debates. These two examples are possibly at least partly why in a recent emergency docket decision there's dicta exclaiming that Federal Reserve independence was not and in decisions to come would not be implicated by what SCOTUS (impliedly) has coming down the pipeline. Both of these examples would later be construed as examples of "quasi-legislative" executive agencies, rooted in Congress' power of the purse. (Though, it's likely SCOTUS will lean more heavily on powers and precedent regarding banking.)
Third was the de facto independence of federal district attorneys. Until 1820 they were answerable to nobody, except in theory to Congress by impeachment, until Congress nominally placed them under the Treasury Secretary in 1820. This would be an original example of "quasi-judicial" executive officers, which one might naturally apply to modern administrative and immigration law courts.
There are more, albeit less clear-cut practices, including the situation in Marbury v Madison. Also note that the removal power is distinct from the broader contemporary unitary executive theory, which aims to place even more plenary power in the presidency than merely removal (which is just the hook to prove the larger theory by logical inference which otherwise has little, if any, historical precedent or positive textual evidence), and therein lies much more complexity, which is why the whole debate has been muddled from the very beginning of the US--the Founders and early Congresses discussed it explicitly, but largely showing there was in fact no consensus, except what they de facto established in practice (e.g. many of those who argued for a unitary executive-like theory in fact joined in the establishment of and acquiesced to the practices of a partially independent comptroller). I think the black letter law annunciated by Humphrey's Executor, that Congress can in principle shield quasi-legislative and quasi-judicial agencies from the president, is spot on when trying to square constitutional text, constitutional theory, historical debates, and historical practice. Though, there's a good argument that over time the courts have not been vigilant enough in cabining Humphrey's Executor, e.g. by more clearly and strictly articulating what qualifies as quasi-legislative and quasi-judicial functions, which is presumably why Robert's recently suggested, as an olive branch offering, that Humphrey's Executive as applied today does not hew closely to the legal principle it expounded (and presumably, were Roberts to continue, that it applied it's own principle wrongly). Personally, I wouldn't mind a forthcoming SCOTUS opinion that effectively expands removal powers by way of affirming and applying Humphrey's Executor legal rule, even if it nominally reversed it's application with the same set of facts.
There are scores of law review articles discussing the subject going back well over a century, but a really good one written not long after the Reagan-era debates is "The President and the Administration" by none other than Cass Sunstein and (apropos HN) Lawrence Lessig, https://chicagounbound.uchicago.edu/journal_articles/7779/
That article is the most honest review of the debate I've read; perhaps too honest and earnest because they really pull their punches. (Perhaps that's partly because of Lessig's background in legal history and his reluctance to make absolute declarations about historical matters? EDIT: I confused Lessig with Eben Moglen at the FSF) It gives significant attention to Myers, FWIW, including agreeing (IIRC) that it was correctly decided.
And if you haven't read this already, here's the contemporaneous strong-man argument for independent agencies, Christine Kexel Chabot, Is the Federal Reserve Constitutional? An Originalist Argument for Independent Agencies, 96 Notre Dame L. Rev. 1 (2020), https://scholarship.law.nd.edu/ndlr/vol96/iss1/1
Actually, there are at least three early examples of independent agencies, though note that until the modern administrative state emerged in the late 19th century the Federal government was never so hierarchically organized as to admit to an "agency" as we understand that term today.
First was the 1790 sinking fund, a nominally executive committee created by Congress to pay down the national debt, which could override the President's preference regarding payments. Second was the office of the comptroller, which was strongly shielded from executive control for fear of a corrupt president, and which (IIRC) was the subject of vigorous Congressional debates. These two examples are possibly at least partly why in a recent emergency docket decision there's dicta exclaiming that Federal Reserve independence was not and in decisions to come would not be implicated by what SCOTUS (impliedly) has coming down the pipeline. Both of these examples would later be construed as examples of "quasi-legislative" executive agencies, rooted in Congress' power of the purse. (Though, it's likely SCOTUS will lean more heavily on powers and precedent regarding banking.)
Third was the de facto independence of federal district attorneys. Until 1820 they were answerable to nobody, except in theory to Congress by impeachment, until Congress nominally placed them under the Treasury Secretary in 1820. This would be an original example of "quasi-judicial" executive officers, which one might naturally apply to modern administrative and immigration law courts.
There are more, albeit less clear-cut practices, including the situation in Marbury v Madison. Also note that the removal power is distinct from the broader contemporary unitary executive theory, which aims to place even more plenary power in the presidency than merely removal (which is just the hook to prove the larger theory by logical inference which otherwise has little, if any, historical precedent or positive textual evidence), and therein lies much more complexity, which is why the whole debate has been muddled from the very beginning of the US--the Founders and early Congresses discussed it explicitly, but largely showing there was in fact no consensus, except what they de facto established in practice (e.g. many of those who argued for a unitary executive-like theory in fact joined in the establishment of and acquiesced to the practices of a partially independent comptroller). I think the black letter law annunciated by Humphrey's Executor, that Congress can in principle shield quasi-legislative and quasi-judicial agencies from the president, is spot on when trying to square constitutional text, constitutional theory, historical debates, and historical practice. Though, there's a good argument that over time the courts have not been vigilant enough in cabining Humphrey's Executor, e.g. by more clearly and strictly articulating what qualifies as quasi-legislative and quasi-judicial functions, which is presumably why Robert's recently suggested, as an olive branch offering, that Humphrey's Executive as applied today does not hew closely to the legal principle it expounded (and presumably, were Roberts to continue, that it applied it's own principle wrongly). Personally, I wouldn't mind a forthcoming SCOTUS opinion that effectively expands removal powers by way of affirming and applying Humphrey's Executor legal rule, even if it nominally reversed it's application with the same set of facts.
There are scores of law review articles discussing the subject going back well over a century, but a really good one written not long after the Reagan-era debates is "The President and the Administration" by none other than Cass Sunstein and (apropos HN) Lawrence Lessig, https://chicagounbound.uchicago.edu/journal_articles/7779/
That article is the most honest review of the debate I've read; perhaps too honest and earnest because they really pull their punches. (Perhaps that's partly because of Lessig's background in legal history and his reluctance to make absolute declarations about historical matters? EDIT: I confused Lessig with Eben Moglen at the FSF) It gives significant attention to Myers, FWIW, including agreeing (IIRC) that it was correctly decided.
And if you haven't read this already, here's the contemporaneous strong-man argument for independent agencies, Christine Kexel Chabot, Is the Federal Reserve Constitutional? An Originalist Argument for Independent Agencies, 96 Notre Dame L. Rev. 1 (2020), https://scholarship.law.nd.edu/ndlr/vol96/iss1/1