Stephen Gerald Breyer (/ˈbraɪ.ər/BRY-ər; born August 15, 1938) is an American lawyer and retired jurist who served as anassociate justice of theU.S. Supreme Court from 1994 until his retirement in 2022. He was nominated by PresidentBill Clinton, and replaced retiring justiceHarry Blackmun. Breyer was generally associated with theliberal wing of the Court.[2] Since his retirement, he has been the Byrne Professor of Administrative Law and Process atHarvard Law School.[3]
Breyer was born on August 15, 1938, in San Francisco, California, to Anne A. (née Roberts) and Irving Gerald Breyer.[9][10] Breyer's paternal great-grandfather emigrated from Romania to the United States, settling in Cleveland, Ohio, where Breyer's grandfather was born.[11] Breyer was raised in amiddle-classReform Jewish family.[12][13] His father was a lawyer who served as legal counsel to theSan Francisco Board of Education.[14]
In 1967, Breyer returned to Harvard Law School as an assistant professor. He taught at Harvard Law until 1980, and he held a joint appointment atHarvard Kennedy School from 1977 to 1980.[24] At Harvard, Breyer was known as a leading expert onadministrative law.[27] While there, he wrote two highly influential books on deregulation:Breaking the Vicious Circle: Toward Effective Risk Regulation andRegulation and Its Reform.[28] In 1970, economistBen Kaplan spurred Breyer to write "The Uneasy Case for Copyright", one of the most widely cited skeptical examinations of copyright.[29] In 1979, Breyer co-wroteAdministrative Law and Regulatory Policy with Richard Stewart. Breyer was a visiting professor atthe College of Law in Sydney, Australia; theUniversity of Rome;[24] andTulane University Law School.[30]
In the last days of PresidentJimmy Carter's administration, on November 13, 1980, after he had been defeated for reelection, Carter nominated Breyer to the First Circuit, to a new seat established by 92 Stat.1629, and theUnited States Senate confirmed him on December 9, 1980, by an 80–10 vote.[32] He received his commission on December 10, 1980. From 1980 to 1994, Breyer was a judge on theU.S. Court of Appeals for the First Circuit; he was the court'schief judge from 1990 to 1994.[24] One of Breyer's duties as chief judge was to oversee the design and construction of a newfederal courthouse for Boston, beginning an avocational interest in architecture.[33] In 2018, he was named to chair thePritzker Architecture Prize jury, succeedingGlenn Murcutt.[34][35]
Many of Breyer's First Circuit decisions followed principles expressed in Goldberg's opinions, though some were reversed on appeal by an increasingly conservative Supreme Court. During Breyer's Supreme Court confirmation hearings, Ohio SenatorHoward Metzenbaum criticized him for never voting in favor of an antitrust claim while on the First Circuit.[33]
Breyer (right) withTed Kennedy at his Supreme Court confirmation hearing
In 1993, on the recommendation ofOrrin Hatch, PresidentBill Clinton considered both Breyer andRuth Bader Ginsburg for the seat vacated byByron White.[38] Clinton ultimately appointed Ginsburg,[39] fearing that Breyer's focus on administrative law would lead to conservative rulings.[40]
Breyer was nominated on May 17, 1994, after heavy lobbying by SenatorTed Kennedy. Benefiting from bipartisan recognition of his work for the Senate Judiciary Committee, he was confirmed on July 29 by an 87 to 9 vote.[40] Breyer wrote 551 opinions during his 28-year career, not counting those relating to orders or in the "shadow docket".[42] For his first 11 years, the composition of the Court remained unchanged, the longest such stretch in over 180 years.[43] Since the most senior member of the majority chooses its writer, Breyer generally did not produce high-profile majority opinions during the first half of his tenure.[44] In recognition of his service, he was inducted into theAmerican Philosophical Society in 2004.[45]
In 2015, Breyer broke a federal law that bans judges from hearing cases when they or their spouses or minor children have a financial interest in a company involved. His wife sold about $33,000 worth of stock inJohnson Controls a day after Breyer participated in the oral argument. This brought him back into compliance and he joined the majority in ruling in favor of the interests of a Johnson Controls subsidiary which was party toFERC v. Electric Power Supply Ass'n.[46]
InGratz v. Bollinger (2003), Breyer concurred in the judgment that universities could not quantitatively advantage minority applicants, yet he joined the majority inGrutter v. Bollinger (2003), which held that educational diversity was a compelling government interest. He also concurred in the judgment ofSchuette v. BAMN (2014) that theMichigan Civil Rights Initiative's ban onaffirmative action atpublic universities was enforceable, prompting criticism that the Court only defers to the political process when the outcome matches its preference.[50]
Breyer has consistently opposedcapital punishment as often violating theEighth Amendment's prohibition oncruel and unusual punishment, voting with the majority inAtkins v. Virginia (2002) andRoper v. Simmons (2005).[25] InGlossip v. Gross (2015), he dissented against a requirement that prisoners challenging the method of their execution must provide a known and available alternative. Breyer's dissent argued that evolving international standards likely made all impositions of the death penalty unconstitutional, reviving a position shared by his predecessor, Justice Blackmun.[53]
Under Breyer's framework of "active liberty", political speech would receive stronger First Amendment protections than commercial speech to ensure that people could freely elect their representatives and then have that democratic government impose effective business regulations. In concurrences toSnyder v. Phelps (2011) andUnited States v. Alvarez (2012), Breyer rejected liability for protests against same-sex marriage and lies about military awards as restrictions on political speech that should fail for overbreadth. In comparison, his dissent inSorrell v. IMS Health Inc. (2011) argued that legislatures should be free to protect their constituents' privacy by restricting the sale of medical data.[58]
Breyer's balancing of the speaker's interest in spreading their message against the government's regulatory interest draws from the free speech analysis of European courts. Accordingly, his concurrence in the judgment ofReed v. Town of Gilbert (2015) favored a balancing test for content-based regulations, rather than uniform application ofstrict scrutiny.[59] InMahanoy Area School District v. B.L. (2021), he held that schools generally cannot punish students' off-campus speech, establishing "rules of thumb" rather than a categorical limitation.[60] First Amendment litigatorFloyd Abrams faults this proportionality analysis for ignoring the community's interest in hearing diverse perspectives. Legal scholarJohn Hart Ely had previously criticized balancing tests in free speech cases as furthering the judge's preferred viewpoint.[59]
Breyer's rulings inintellectual property cases showcased his continuing skepticism of copyright. In dissents toEldred v. Ashcroft (2003) andGolan v. Holder (2012), Breyer criticized retroactive extensions of copyright as economically unproductive and contrary tofree speech. InKirtsaeng v. Wiley (2013), he held that thefirst sale doctrine allowed owners of textbooks sold abroad to resell them in the United States without the copyright holder's permission.[61]
InMGM Studios v. Grokster (2005), the Court unanimously heldpeer-to-peer file sharing companiesGrokster andStreamcast liable for copyright infringement because of they marketed their products for such uses. In his concurrence, Breyer argued without such intent,Sony v. Universal (1984) would protect these companies from liability because of their software's substantial non-infringing uses.[62]
Breyer's positions in cases involving Native American were varied. InChickasaw Nation v. United States (2001), his majority opinion denying the tax exemption for government-run lotteries to tribalpull-tab gambling was viewed as "the potential demise of the Indian canon of construction", which dictates that statutes should be interpreted in favor of Native Americans.[65] InUnited States v. Lara (2004), Breyer held that the federal and tribal governments may prosecute non-member Native Americans for the same charges without violating theDouble Jeopardy Clause, interpreting theIndian Civil Rights Act as deference totribal sovereignty. He was criticized for concurring inAdoptive Couple v. Baby Girl (2013) that theIndian Child Welfare Act's additional procedures for ending parental rights do not apply to non-custodial Native American biological fathers.[66]
Religion
Breyer was praised for the difference between his votes in the 2005 casesVan Orden v. Perry andMcCreary County v. ACLU, which dealt with public displays of theTen Commandments. In the former, he concurred in the judgment to allow their display outside theTexas State Capitol, and in the latter, he deemed their display inside Kentucky county courthouses unconstitutional.[67] Framing the First Amendment as meant to reduce religious divisiveness, Breyer focused on the greater and immediate objection to the latter display.[12][68]
Breyer announcing his pending retirement alongside PresidentJoe Biden on January 27, 2022Breyer in 2024
After Democratic victories in the 2020presidential andSenate elections, progressive activists and Democratic members of Congress called on Breyer to retire so that President Biden could nominate a younger liberal justice.[72][73] In an August 2021New York Times interview, Breyer said he wished to retire before his death, and recounted a conversation he had with JusticeAntonin Scalia in which Scalia mentioned that he did not want his successor to "reverse everything I've done for the last 25 years". Breyer said that Scalia's point will "inevitably be in the psychology" of his decision to retire.[74] In a September 2021 interview withFox News'sChris Wallace, Breyer said activists calling for his retirement are "entitled to their opinion" and "I didn't retire because I had decided on balance I wouldn't retire". He said he took several factors into account when deciding his retirement plans, and reiterated that he did not plan to "die on the court".[75]
On January 27, 2022, Breyer announced that he would retire from the Supreme Court.[76] To succeed him, BidennominatedKetanji Brown Jackson, a judge of theU.S. Court of Appeals for the D.C. Circuit who had once clerked for Breyer.[77] The Senate confirmed her by a vote of 53–47 on April 7, 2022.[78] Breyer's retirement took effect at noon on June 30, following the court's final opinions and orders for the term.[79][80]
On July 2, 2022, it was announced that Breyer had been appointed Byrne Professor of Administrative Law and Process atHarvard Law School. Breyer had previously attended and taught at Harvard Law School.[81] In May 2024, he received an honoraryDoctor of Laws degree fromYale University in recognition of his contributions to the field of law and his nearly three decades of service on the Supreme Court.[82] As a retired Supreme Court justice, Breyer can still sit as a judge in lower federal courtsby designation. He first returned to the bench in 2025 in the First Circuit Court of Appeals, the court on which he was a judge before his Supreme Court appointment.[83] Breyer attended thesecond inauguration of Donald Trump in 2025, appearing with the nine sitting Supreme Court justices.[84]
Breyer is known for hispragmatic approach to legal interpretation, which emphasizes practical consequences and the purpose of legislation.Cass Sunstein described this outlook as one that "will tend to make the law more sensible" and praised Breyer's critiques oforiginalism as "powerful and convincing".[85] In showcasing how Supreme Court decisions would have complex real-world effects, Breyer often posed complex hypotheticals during oral arguments and proposed multi-factor balancing tests in his opinions.[67][86] While these hypotheticals were sometimes criticized for being meandering, Breyer continued this approach to oral arguments when he returned to the First Circuit in 2025.[87][88]
Breyer's extensive experience inadministrative law is accompanied by his staunch defense of theFederal Sentencing Guidelines. He rejects the strict interpretation of theSixth Amendment espoused byJustice Scalia that all facts necessary to criminal punishment must be submitted to a jury and proved beyond a reasonable doubt.[96] In many other areas on the Court, too, Breyer's pragmatism was considered the intellectual counterweight to Scalia'stextualism.[97] For example, inNLRB v. Noel Canning (2014), Breyer led a 5-4 majority in interpreting theRecess Appointment Clause based on its purpose of filling vacancies, whereas Scalia dissented in favor of the clause'splain meaning.[98][99]
In describing his interpretive philosophy, Breyer has sometimes noted his use of six interpretive tools: text, history, tradition, precedent, the purpose of a statute, and the consequences of competing interpretations.[100] He has noted that only the last two differentiate him from textualists such as Scalia. Breyer argues that these sources are necessary, however, and in the former case (purpose), can in fact provide greater objectivity in legal interpretation than looking merely at what is often ambiguous statutory text.[101] With the latter (consequences), Breyer argues that considering the impact of legal interpretations is a further way of ensuring consistency with a law's intended purpose.[85]
Active Liberty
Breyer in 2011
In 2005, Breyer publishedActive Liberty: Interpreting Our Democratic Constitution, which urges judges to interpret legal texts in light of their purpose and the consequences of a ruling. The book is considered a response toAntonin Scalia's 1997 bookA Matter of Interpretation, emphasized adherence to the original meaning of the text alone.[89][102] InActive Liberty, Breyer argues that theFramers of the Constitution sought to establish a democratic government that would maximize both "negative liberty" (freedom from government coercion) and "positive liberty" (freedom to participate in government). In Breyer's terminology, the latter is the "active liberty" that judges should champion by supporting the public's self-governance with their decisions.[103]
Political scientistPeter Berkowitz has criticized Breyer's view that theDue Process Clause confers aright to abortion as restraining democratically elected state legislatures and Congress from enacting abortion restrictions.[104] Legal scholarCass Sunstein has rebutted that among the nine justices of theRehnquist Court, Breyer had the highest percentage of votes to uphold acts of Congress and defer toExecutive Branch decisions.[105] Legal authorJeffrey Toobin framed Breyer's view as upholding judges' responsibility to enforce the limits of the Constitution.[19] In a 2006 discussion atNew York Historical, Breyer noted that democratic means did not end slavery and that judicial intervention was needed to enforce "one man, one vote" and broadercivil and political rights that provide the basis for democratic decision-making.[106]
In 2010, Breyer published a second book,Making Our Democracy Work: A Judge's View.[108] In it, he argues that judges have six tools they can use to determine a legal provision's proper meaning: (1) text; (2) historical context; (3)precedent; (4) tradition; (5) purpose; and (6) consequences of potential interpretations.[109]Textualists, such asAntonin Scalia, feel comfortable using only the first four of these tools, while pragmatists, like Breyer, believe that "purpose" and "consequences" are particularly important interpretative tools.[110]
Breyer cites several watershed moments in Supreme Court history to show why the consequences of a particular ruling should always be in a judge's mind. He notes thatPresident Jackson ignored the Court's ruling inWorcester v. Georgia, which led to theTrail of Tears and severely weakened the Court's authority.[111] He also cites theDred Scott decision, an important precursor to theAmerican Civil War.[111] When the Court ignores the consequences of its decisions, Breyer argues, it can lead to devastating and destabilizing outcomes.[111]
In 2015, Breyer publishedThe Court and the World: American Law and the New Global Realities, which argues that globalization requires that U.S. courts show greater appreciation of foreign and international law.[112][113] On March 26, 2024, Breyer publishedReading the Constitution: Why I Chose Pragmatism, Not Textualism. In an interview coinciding with its release, he lamented that textualism "will not help achieve the goals of those who write statutes or those who wrote and adopted the Constitution".[114]
Publications
Breyer, Stephen G.; MacAvoy, Paul W. (1974).Energy Regulation by the Federal Power Commission. Washington, DC: Brookings Institution.ISBN9780815710769.OCLC866410.
Breyer, Stephen G.; Stewart, Richard B. (1979).Administrative Law and Regulatory Policy (1st ed.). New York: Little, Brown and Company.
Breyer, Stephen G. (1982).Regulation and its Reform (1st ed.). Cambridge, MA: Harvard University Press.
Breyer, Stephen G. (1994).Breaking the Vicious Cycle: Toward Effective Risk Regulation. Cambridge, MA: Harvard University Press.ISBN9780674081147.OCLC246886908.
Breyer, Stephen G.; Stewart, Richard B.; Sunstein, Cass R.; Vermeule, Adrian (2006).Administrative Law and Regulatory Policy: Problems, Text, and Cases (6th ed.). Boston, MA: Aspen Publishers.ISBN978-0735556065.
Breyer, Stephen G.; Bessler, John D. (2016).Against the Death Penalty. Washington, DC: Brookings Institution.ISBN9780815728900.OCLC948669357.
Breyer, Stephen G. (2020).Breaking the Promise of Brown: The Resegregation of America's Schools. Washington, DC: Brookings Institution Press.ISBN9780815731665.OCLC1197773870.
^Kersch, Ken (2006)."Justice Breyer's Mandarin Liberty".University of Chicago Law Review.73:759–822.As his decision to characterize both the New Deal and Warren Courts as centrally committed to democracy and 'active liberty' makes clear, Justice Breyer identifies his own constitutional agenda with that of these earlier courts, and positions himself, in significant respects, as a partisan of midcentury constitutional liberalism.{{cite journal}}: CS1 maint: url-status (link)
^Serial No. J-103-64(PDF). Washington, DC: U.S. Government Printing Office. 1995. p. 24.ISBN01-6-046946-5.Archived(PDF) from the original on December 3, 2018. RetrievedApril 5, 2018.
^abcdKersch, Ken I. (2006). "Stephen Gerald Breyer". In Urofsky, Melvin I. (ed.).Biographical Encyclopedia of the Supreme Court: The Lives and Legal Philosophies of the Justices.Washington, D.C.:CQ Press. pp. 74–88.ISBN193311648X.
^abcFriedman, Leon (2013). "Stephen G. Breyer". In Friedman, Leon; Israel, Fred L. (eds.).Justices of the United States Supreme Court: Their Lives and Major Opinions (4th ed.). Facts on File. pp. 437–464.ISBN9780816070152.
^Tushnet, Mark (2015). "Stephen Breyer and the First Amendment as Legal Doctrine". In Knowles, Helen J.; Lichtman, Steven B. (eds.).Judging Free Speech: First Amendment Jurisprudence of US Supreme Court Justices.New York City:Palgrave Macmillan. pp. 215–234.ISBN9781137434913.
^McGann, Anthony J.; Smith, Charles Anthony; Latner, Michael; Keena, Alex (March 2016).Gerrymandering in America: The House of Representatives, the Supreme Court, and the Future of Popular Sovereignty.Cambridge University Press. pp. 49–50,233–234.doi:10.1017/CBO9781316534342.ISBN9781316534342.
^abSunstein, Cass R. (May 2006)."Justice Breyer's Democratic Pragmatism"(PDF).The Yale Law Journal.115 (7):1719–1743.doi:10.2307/20455667.JSTOR20455667.S2CID154739751.Archived(PDF) from the original on July 4, 2017.Breyer thinks that, as compared with a single-minded focus on literal text, his approach will tend to make the law more sensible, almost by definition. He also contends that it 'helps to implement the public's will and is therefore consistent with the Constitution's democratic purpose.' Breyer concludes that an emphasis on legislative purpose 'means that laws will work better for the people they are presently meant to affect. Law is tied to life, and a failure to understand how a statute is so tied can undermine the very human activity that the law seeks to benefit.' Quote is at p. 1726.
^Kersch, Ken I. (May 22, 2003). "The Synthetic Progressivism of Stephen G. Breyer". In Maltz, Earl M. (ed.).Rehnquist Justice: Understanding the Court Dynamic.University Press of Kansas. pp. 241–267.ISBN978-0700612444.
^Gewirtz, Paul; Golder, Chad (July 6, 2005)."So Who Are the Activists?".The New York Times.Archived from the original on March 7, 2008. RetrievedMarch 23, 2007.
^Sullivan, Kathleen M. (February 5, 2006)."Consent of the Governed".The New York Times.Archived from the original on December 29, 2015. RetrievedFebruary 18, 2017.
^Breyer, Stephen (March 26, 2024).Reading the Constitution: Why I Chose Pragmatism, Not Textualism.Simon & Schuster. pp. 197–208.ISBN9781668021538.