Senate Bill S517

                                
 
BILL NUMBER: S517A

SPONSOR: KRUEGER
 
TITLE OF BILL:  CONCURRENT RESOLUTION OF THE SENATE AND ASSEMBLY
proposing amendments to section 11 of article 1 of the constitution, in
relation to equality of rights and protection against discrimination

 
PURPOSE:

This resolution proposes to amend section 11 of article 1 of the consti-
tution. It would provide for broad equal rights and antidiscrimination
protections for residents of New York State.

 
SUMMARY OF PROVISIONS:

This amendment updates current equal protection language in the state
constitution to prohibit denial of equality of rights on the basis or
race, color, ethnicity, nationality, national origin, sex including
pregnancy, sexual orientation and gender identity or expression, disa-
bility, age, creed or religion, or like grounds.

              

 
EXISTING LAW:

Currently section 11 of the constitution provides protection from
discrimination on the basis of race, color, creed and religion.

 
JUSTIFICATION:

Equality of rights is a fundamental principal of both our state and our
nation, but conceptions of what equality of rights means have changed
dramatically over our,history. New York States equal protection clause
was adopted in 1938, prior to the civil rights movement, the women's
movement, the WET movement, the disability rights movement and the many
other challenges to discrimination in our state and nation.  New York's
constitution should reflect the evolution of concepts of equal rights
and protections from discrimination that have occurred over the last
eighty years. This amendment would provide for broad equality of rights
by both extending protections to classes currently excluded from the
constitution and by offering a more complete definition of the
protections afforded under this section.

 
FISCAL IMPLICATIONS:

None.

 
LEGISLATIVE HISTORY:

2018: S.7558A/A.9584A Seawright Judiciary

 
EFFECTIVE DATE:
Resolved (if the Assembly concur), That the foregoing amendments be
referred to the first regular legislative session convening after the
next succeeding general election of members of the Assembly and in
conformity with section 1 of article 19 of the constitution; be
published for three months previous to the time of such election.

                                
 
BILL NUMBER: S517B

SPONSOR: KRUEGER
 
TITLE OF BILL:  CONCURRENT RESOLUTION OF THE SENATE AND ASSEMBLY
proposing amendments to section 11 of article 1 of the constitution, in
relation to equality of rights and protection against discrimination

 
PURPOSE:

Section 11 of the New York Bill of Rights (Article 1) currently contains
an equal protection provision that tracks the equal protection clause of
the federal Constitution and a separate antidiscrimination provision
covering race, color, creed or religion.

The current discrimination provision purports to bar both governmental
and private discrimination in "civil rights." However, judicial decision
(See Dorsey v. Stuyvesant Town Corp., 299 N.Y 512) has sharply limited
the effectiveness of this provision on the basis that it fails to define
the term "civil rights" and is therefore not self-executing.

This resolution proposes to amend section 11 to achieve three primary
goals. First, it would expand section 11's coverage to include other
              

classifications that have been used to subordinate and disadvantage
certain members of those groups including, for example, women. These new
classification are sex including pregnancy, sexual orientation, gender
identity or expression, national origin, ethnicity, age and disability.

Second it would define the term "civil rights" to make section 11 self-
executing.

Third it would make clear that the prohibited discrimination would
include what is called disparate impact discrimination which consists of
using a seeming neutral requirement to achieve a discriminatory impact
lacking adequate justification. It does this both by barring denial or
abridgement of equal civil rights and defining "civil rights" in terms
of the "impact" of a particular right on equal opportunity.

 
SUMMARY OF PROVISIONS:

Section (a) continues unchanged the terms of New York's equal protection
provision, expands the classification covered by ban on discrimination
in civil rights provision, adds to that discrimination ban a ban on the
denial or abridgement of equal rights and defines the term civil rights
as "any right that impacts the equal opportunity of all the people of
New York to enjoy a full and productive life." The language of equal
opportunity is drawn from the preamble of New York's Human Rights Law.

Section (b) sets forth five constraints on the construction of section
11. This is necessary because section 11 is being made self-executing
with real force and effect. The first constraint protects bona fide
qualifications based on age or disability if allowed by law. For example
mandatory retirement if allowed by law (as is currently the case in
certain circumstances) would not be barred by section 11 if there is a
bona fide reason for that mandate. Nor would consideration of disability
as a qualification factor if there is a bona fide reason to do so and
that consideration is authorized by law. The second constraint is to
confirm the constitutionality of reasonable accommodation of pregnancy,
a form of sex discrimination, or disability, whether required by law or
provided on a voluntary basis in excess of legal requirements. The third
constraint is to confirm the constitutionality of single sex or single
religion education at a private educational institution. The language is
drawn from the New York Human Rights Law. This constraint could be
limited or eliminated by law. The fourth constraint is to assure that
questions of accommodation of religious practice and the like will be
resolved under the freedom of worship provision of the Bill of Rights
(section 3) and not under section 11, for example, as matter of a
claimed disparate impact on a particular religious group. Finally, the
fifth constraint is intended to protect public and private activity to
ameliorate conditions faced by the historically disadvantaged groups. It
is the primary purpose of section 11 to protect these very individuals
and communities.

Section (c) recognizes that under the federal Constitution there is the
possibility of federal preemption whether on statutory of constitutional
grounds. It allows provisions that are preempted to be enforced only as
allowed by the applicable constitutional or statutory provision. Simi-
larly section 11 may be enforced in a way needed to avoid loss of feder-
al funding if that course is authorized by law.

 
EXISTING LAW:

Currently section 11 of the constitution provides protection from public
or private discrimination on the basis of race, color, creed and reli-
gion but for the reasons mentioned above is not self-executing.

 
JUSTIFICATION:

Equality of rights is a fundamental principle of both our state and our
nation, but conceptions of what equality of rights means have changed
dramatically over our history. Section 11 was adopted in 1938, prior to
the civil rights movement, the women's movement, the LGBTQ movement, the
disability rights movement and the many other challenges to discrimi-
nation in our state and nation. New York's Constitution should reflect
the evolution of concepts of equal rights and protections from discrimi-
nation that have occurred over the last eighty years. This amendment
would provide that badly needed update.

 
FISCAL IMPLICATIONS:

None.

                                
 
BILL NUMBER: S517c           REVISED 07/09/2020

SPONSOR: KRUEGER
 
TITLE OF BILL:

CONCURRENT RESOLUTION OF THE SENATE AND ASSEMBLY proposing an amendment
to article 1 of the constitution, in relation to equality of rights and
protection against discrimination

 
PURPOSE:

New Yorkers deserve a Constitution that recognizes that every person has
full and equal rights under the law regardless of whom they are, whom
they love, or whom they worship. Because the New York Constitution's
Bill of Rights does not currently contain an equal rights provision, a
constitutional amendment is necessary to realize the promise of legal
equality for all New Yorkers.

This Equal Rights Amendment would create full, comprehensive, and equal
legal protections for every individual in New York by, among other
things, reflecting a commitment and pathway to eradicate the systemic
racism that is woven through the fabric of our society - from health
              

care to voting rights to policing. As equal protection protections under
the federal constitution are eroding, New York must act urgently to
provide full legal equality in the state constitution.

Beginning in the 1970s, the United States saw a widespread fight to
include "sex" among the categories protected by the federal constitu-
tion, known as the federal "Equal Rights Amendment." This amendment has
its roots in that tradition, while also recognizing that our modern
vision of equality demands comprehensive protection for women and all
groups who have faced historical discrimination.  Indeed, many individ-
uals are themselves members of numerous communities, identities, and
protected classes, and true equality demands protections that recognize
the interconnected nature of discrimination. The amendment is our oppor-
tunity to ensure that New York's constitutional language reflects that
commitment to full equality before the law - by providing comprehensive
legal protections that go above and beyond the protections of the feder-
al constitution.

The purpose of this amendment is to ensure that our state constitution
gives all New Yorkers the right to be free from discrimination. It does
so in three key ways.

First, this amendment would expand the list of classes protected by the
New York Constitution's existing second sentence of Article 1

Section 11, which bars discrimination against individuals based only on
their race or religion. The existing constitutional language fails to
fully reflect New York's commitment to inclusive equal rights.  This
amendment would expand the classes entitled to constitutional protection
to recognize the need for comprehensive and intersectional equal rights
under the law.

Second, this amendment would provide protections that go above and
beyond the protections secured under the federal equal protection clause
by prohibiting conduct that discriminates in its effect. In Dorsey v.
Stuyvesant Town Corp., 299 N.Y. 512 (1949), the New York Court of
Appeals held that the first sentence of Article I, Section 11 shall be
interpreted coextensively with the federal Constitution's equal
protection clause, which has been applied by the federal courts to ban
only discrimination that is intentional in nature. This amendment goes
beyond the first sentence of Dorsey. By encompassing and prohibiting
discriminatory impacts that result from the actions of government,
employers, and places of public accommodation, this amendment provides a
critical legal tool to dismantle facially "neutral" acts that in fact
discriminate against members of a protected class. Enabling the law to
recognize this type of systemic discrimination is a necessary step in
dismantling systems of oppression that have prevented New Yorkers from
achieving full equality for centuries.

In addition, the amendment acknowledges and prohibits intentional
discrimination based on religion while maintaining the current balance
that courts have struck when considering religious liberty claims. This
amendment expands constitutional protections against intentional
discrimination based on religion by expanding prohibitions to private
employers and providers of public accommodation. It also maintains the
current Bill of Rights' existing robust protections against intentional
religious discrimination while maintaining the state's ability to pass
nondiscriminatory public health measures or equal protection laws.

Third, the amendment expressly provides that the constitutional promise
of equality and protections against discrimination shall be self-execut-
ing and shall not require implementing legislation to be enforceable.
The Court of Appeals also ruled in Dorsey that the second sentence of
Article I, Section 11 is not self-executing and requires legislative
action to be effective; this amendment would expressly avoid that
result.

 
SUMMARY OF PROVISIONS:

Subsection (a) makes clear that equal rights may not be denied on
account of race, color, ethnicity, national origin, disability, and sex
including pregnancy and pregnancy outcomes, sexual orientation, gender
identity, and gender expression. Discrimination with respect to, for
instance, disability or pregnancy would include the failure to provide
reasonable accommodations. Further, by including a prohibition on sex
discrimination, this amendment prohibits discrimination on the basis of
pregnancy and pregnancy outcomes. The amendment's explicit clarification
however is critical. While federal courts, Congress, and the EEOC have
recognized that sex discrimination includes discrimination based on
pregnancy (including abortion), a lack of clarity on whether pregnancy
discrimination transgresses the federal constitution still exists. See
e.g. Geduldig v. Aiello, 417 U.S. 484 (1974). This translates in to New
York law as well. For example, New York State courts have failed to
recognize the New York State Patient Bill of Rights as applying to preg-
nant patients, as well as constitutional and common law protections to
privacy, bodily integrity, and medical decision-making throughout preg-
nancy. See, e.g., Dray v. Staten Island University Hospital, Order,
Genine Edwards, Supreme Court of the State of New York, Kings County,
October 4, 2019. And increasingly across the country in virtually every
state, including New York, women face criminal and civil consequences in
relationship to their pregnancies and pregnancy outcomes, including
abortions, miscarriages, stillbirths, or other adverse outcomes. This is
particularly important for women at the intersection of multiple margi-
nalized identities, namely Black women and women of color, who are not
only seen as less deserving of or fit for motherhood but further experi-
ence disproportionate discrimination in our criminal law system and
health disparities likely to lead to adverse outcomes that put them
under scrutiny and surveillance. It is not possible to achieve sex
equality while prosecutors and state agencies single out pregnant people
for punishment because of their pregnancy and the outcomes of their
pregnancies. And while the right to abortion is also protected in the
due process liberty right guaranteed by our State Constitution, it too
is a matter of fundamental equality. Indeed, the Supreme Court has
already acknowledged that the right to make decisions about reproductive
health, including abortion, is central to women's equality.

Subsection (b) bars discrimination in both intent and impact by govern-
ment entities, as well as barring discrimination in both intent and
impact by entities in the provision of public accommodations, employ-
ment, or personnel practices.

Subsection (c) bars intentional discrimination on account of religion
and specifies that free exercise of religion claims will continue to be
decided under section 3 of the Bill of Rights. It is the intent of the
sponsors that adoption of this equal rights amendment will not affect
the constitutional and statutory status quo with respect to discrimi-
nation on the basis of religion and the free exercise of religion, as
well as separation of church and state. Therefore this subsection does
not allow a person to claim that a general law or policy has a discrimi-
natory impact on their religion. Prohibiting discriminatory impact
against religion would mean that any religious practice or belief could
be used as a reason not to comply with a requirement of law, which this
amendment does not intend to do. Thus the amendment would not support
the kind of result reached in Burwell v. Hobby Lobby, Stores, Inc., 573
U.S. 682 (2014) (The Religious Freedom Restoration Act, commonly known
as RFRA, exempts a closely held corporation with religious objections
from complying with a federal health care requirement that employers
maintain insurance coverage that includes contraception.) New York
constitutional law is contrary to Burwell and this amendment does not
intend to change but rather to confirm existing law on this question.
See Catholic Charities of the Diocese of Albany v.  Serio, 3 NY3d 510
(2006) (Faith based social service organizations are not deprived of the
free exercise of religion guaranteed by section 3 of the New York Bill
of Rights by having to obey a legal requirement that insurance coverage
must include contraception.)

Subsection (d) protects the validity of efforts to remedy or ameliorate
demonstrated past discrimination on the basis of a protected character-
istic.

Subsection (e) asserts that the section is self-executing, not requiring
additional legislative action to make it effective; and provides that
the legislature may expand upon its protection of equal rights.

 
EXISTING LAW:

Section 11 of the Bill of Rights, which will continue after the adoption
of this equal rights amendment, contains a provision that tracks the
wording of the federal equal protection clause and bars governmental and
private discrimination in civil rights on the basis of race, color,
creed or religion. In furtherance of this provision, state and local
governments have adopted civil rights and human rights laws banning
discrimination on many grounds which will also remain in force to the
extent that they do not diminish the protections afforded by this amend-
ment.

 
JUSTIFICATION:

The concept of equality under the law is a foundational principle of our
democracy, but our understanding of which groups deserve and receive
legal protections has changed dramatically over our history.  The New
York Constitution was last amended to address this topic in 1938 when
section 11 was adopted, prior to the civil rights movement, the movement
for gender equality, the LGBTQ movement, the disability rights movement
and the many developments in anti-discrimination law.  As a beacon of
our future, New York's Constitution must reflect our broad conception of
equal rights and protections against discrimination, whether isolated or
systemic, and must provide a pathway for vindicating these rights.

 
FISCAL IMPLICATIONS:

To Be Determined