Supreme Court Rules Plaintiffs Lack Standing to Challenge ACA's Individual Mandate | Practical Law

Supreme Court Rules Plaintiffs Lack Standing to Challenge ACA's Individual Mandate | Practical Law

In a highly anticipated decision concerning the constitutionality of the Affordable Care Act's (ACA's) individual mandate and severability of the rest of the ACA, the Supreme Court ruled that the individual plaintiffs and state plaintiffs lacked Article III standing to challenge the mandate. The Court therefore reversed and remanded with instructions to dismiss the case.

Supreme Court Rules Plaintiffs Lack Standing to Challenge ACA's Individual Mandate

Practical Law Legal Update w-031-2927 (Approx. 8 pages)

Supreme Court Rules Plaintiffs Lack Standing to Challenge ACA's Individual Mandate

by Practical Law Employee Benefits & Executive Compensation
Published on 18 Jun 2021USA (National/Federal)
In a highly anticipated decision concerning the constitutionality of the Affordable Care Act's (ACA's) individual mandate and severability of the rest of the ACA, the Supreme Court ruled that the individual plaintiffs and state plaintiffs lacked Article III standing to challenge the mandate. The Court therefore reversed and remanded with instructions to dismiss the case.
In the third installment of the Supreme Court's "epic Affordable Care Act trilogy" (as the dissent called it), the Court has turned back a challenge to the ACA's individual mandate—and the ACA itself (California v. Texas, (June 17, 2021)). The Supreme Court held that the state and individual plaintiffs in the litigation, which resulted from tax reform legislation enacted in 2017, lacked Article III standing to challenge the constitutionality of the ACA's individual mandate and severability of the remaining provisions. The Court therefore reversed and remanded with instructions to dismiss the case.

TCJA Legislation Led to Litigation Challenging Individual Mandate

Under the ACA's individual mandate, effective beginning in 2014, most individuals were required to either purchase health coverage that provides minimum levels of coverage (referred to as "minimum essential coverage" (MEC)) or make a payment to the IRS (26 U.S.C. § 5000A; see Practice Note, Affordable Care Act (ACA) Overview: Individual Mandate). In December 2017, however, the Tax Cuts and Jobs Act (TCJA) reduced to zero the payment for violating the individual mandate (Pub. L. No. 115-97 (2017); see Tax Cuts and Jobs Act (TCJA) Compliance for Fringe Benefits and Health Plans Toolkit).
After the TCJA zeroed out the individual mandate penalty, Texas and 17 other states sued the Department of Health and Human Services (HHS), challenging the individual mandate's constitutionality. Two individuals later joined the litigation as plaintiffs. The plaintiffs sought a declaration that the individual mandate, which the Supreme Court upheld in 2012 as a valid exercise of Congress's taxing power, was no longer constitutional because of the TCJA (Nat'l Fed'n of Indep. Businesses v. Sebelius (NFIB), 567 U.S. 519 (2012); see Legal Update, Supreme Court Upholds the ACA's Individual Mandate). The plaintiffs also argued that the rest of the ACA was not severable from the ACA's individual mandate. Several Democratic state attorneys general later intervened in the litigation to defend the ACA (the "intervenor states").

District Court Invalidates the ACA

In December 2018, Judge Reed O'Connor of the Northern District of Texas ruled that:
  • The individual plaintiffs had standing because they were required to purchase health insurance as a result of the individual mandate.
  • The ACA's individual mandate is unconstitutional.
  • The remainder of the ACA was not severable from the individual mandate and was therefore invalid.
The district court ruling was appealed to the Fifth Circuit and the district court stayed its ruling pending appeal (see Legal Update, Texas Ruling Invalidating ACA Is Appealed to the Fifth Circuit; US House Moves to Intervene).

Fifth Circuit Upholds Individual Mandate Ruling, Remands for More Severability Analysis

On appeal, the Fifth Circuit agreed that the plaintiffs had standing. However, the Fifth Circuit concluded that the individual mandate could no longer be upheld under Congress's taxing power because—without the penalty for noncompliance—the mandate lacked the essential features of a tax (Texas v. US, 945 F.3d 355 (5th Cir. 2019); see Legal Update, Fifth Circuit Affirms Ruling That ACA's Individual Mandate Is Unconstitutional, But Orders Do-Over of District Court's Severability Analysis). On the question of severability, the Fifth Circuit took issue with the depth of the district court's analysis and remanded for further consideration.
The Fifth Circuit denied rehearing en banc, and the intervenor states asked the Supreme Court to review the Fifth Circuit's decision. The Supreme Court granted this request and heard oral arguments in November 2020.

Supreme Court Reverses and Remands Based on Lack of Standing

In a 7-2 decision, the Supreme Court reversed on the grounds that the plaintiffs lacked Article III standing to challenge the individual mandate. A plaintiff establishes Article III by showing:
  • An injury in fact.
  • That the injury is "fairly traceable" to the defendant's challenged conduct.
  • That the injury is likely redressable by a favorable judicial decision.
For more information, see Practice Notes:
The court concluded that both the individual and state plaintiffs failed to show a causal connection between their alleged injuries and the individual mandate. As a result, the Court reversed and remanded with instructions to dismiss the case.

Individual Plaintiffs Lack Article III Standing

The individual plaintiffs argued that they had suffered a financial injury based on having to make monthly payments to purchase health insurance to satisfy the MEC requirement. But even assuming this "pocketbook injury" met the injury element of standing, the Court concluded that it could not satisfy the traceability requirement. In the majority's view, this was because—with the individual mandate's penalty set to zero—the government could not enforce the penalties against those who failed to comply. In other words, there was no possible government action causally connected to the injury of having to purchase health insurance. Moreover, the Court observed that cases cited by the plaintiffs to support their standing argument all involved a time when the mandate was still enforceable, because its penalty was still in effect.
The majority also reasoned that to find standing for the plaintiffs to challenge the unenforceable individual mandate would essentially allow a federal court to issue an impermissible advisory opinion (without any possibility of judicial relief).

State Plaintiffs Also Lack Article III Standing

The Supreme Court also held that the state plaintiffs lacked Article III standing. In support of their standing to sue, the state plaintiffs had alleged two financial injuries:
Regarding the alleged indirect injury, the Supreme Court concluded that the state plaintiffs failed to show how these injuries were fairly traceable to unlawful government conduct in enforcing the MEC requirement. The Court observed that standing is generally more difficult to establish where the causal connection between an injury and a challenged action is based on a third party's decision (here, for example, an individual's choice to enroll in Medicaid). The Court reasoned that individuals could decide to enroll in state-operated programs for reasons unrelated to the individual mandate (for example, to receive COVID-19 testing services). In addition, the evidence provided by the state plaintiffs, which included statements from state officials concerning costs of new enrollees in state-run programs and a Congressional Budget Office (CBO) report, was not strong enough to tie the alleged costs to the individual mandate, once its penalty was reduced to zero under the TCJA.
The state plaintiffs' second alleged injury involved the costs related to providing state health plans (which, as the dissent emphasized, could be tens of thousands of dollars per year). These costs included:
  • Providing coverage information to beneficiaries.
  • Furnishing related information to the IRS.
The Court reasoned that the requirements to furnish health coverage information to the IRS and provide related coverage information to individuals are imposed by ACA provisions that operate independently of the individual mandate.
As a result, the Court concluded that the state plaintiffs failed to show a concrete injury that was fairly traceable to the government's conduct in enforcing the individual mandate.

Concurrence Acknowledges Inconsistencies in ACA Rulings

Justice Thomas agreed with the majority that the plaintiffs in this case lack standing. In a concurring opinion, however, he indicated that the Court had erred in its two earlier decisions regarding the ACA. (In addition to NFIB, this refers to King v. Burwell, 576 U.S. 473 (2015); see Legal Update, Supreme Court Upholds ACA Subsidies.) Disagreeing with the dissent, Justice Thomas argued that the majority was right not to consider the plaintiffs' "standing-through-inseverability" theory, as it was not raised in the lower courts or opening briefs before the Court.

Dissenting Justices Would Have Invalidated Individual Mandate on the Merits

In a dissenting opinion, Justice Alito (joined by Justice Gorsuch) criticized the majority for "pull[ing] off an improbable rescue" of the ACA. The dissent would have held that:
  • The state plaintiffs had standing to bring suit.
  • The individual mandate could no longer be upheld under the taxing power (under NFIB).
  • Those ACA provisions that are "inextricably linked" to the individual mandate are unenforceable.
As a result, the dissent would have held that the state plaintiffs were entitled to relief from the ACA.

Practical Impact

Litigation experts will likely have much to say on what California v. Texas means for plaintiffs' ability to establish standing going forward. But for plan sponsors of health plans and their advisors, the ruling means that the ACA—controversial from the start—remains good law and will continue to impose significant compliance challenges now and in the future. This includes requirements that have been on the books for quite some time now (such as the employer mandate and age 26 coverage rules). But it also includes requirements that are either newly implemented (most notably, the Section 2715A cost transparency regulations) or will be implemented in the near future (nondiscrimination in health care providers, as required under the Consolidated Appropriations Act, 2021 (CAA-21)).
For its part, the Biden administration has already taken significant steps to bolster the ACA (especially regarding the health insurance exchanges), and we will likely see additional efforts in the coming months to undo certain changes and cutbacks to the ACA under the Trump administration (for example, regarding ACA contraceptives and the Section 1557 nondiscrimination rules). In February 2021, the Biden administration's Department of Justice had informed the Supreme Court of its change in litigation position in the case, including with regard to severability. However, oral arguments in the case had already occurred several months earlier (see Legal Update, In Supreme Court Litigation, Biden Administration Asserts That ACA's Individual Mandate Is Constitutional and Severable).