National gay groups are pushing Congress to pass a new and
dramatically expanded federal hate crimes law. While the effort has
strong emotional and symbolic appeal, it probably has little
practical value and may forestall legislation that really can make
a difference in the lives of gay Americans.
The current federal hate-crimes law was passed in 1968. It
covers crimes motivated by bias against a person's race, ethnicity,
national origin, or religion. It allows federal prosecution only
where the victim is engaged in a federally protected activity (like
a civil-rights demonstration). A separate federal law requires the
FBI to report the incidence of hate crimes, including anti-gay
crimes.
The proposed law would add sexual orientation, gender, gender
identity, and disability to the already protected categories. But
it would do more than simply add these new categories to a
pre-existing law. It would also allow federal investigation and
prosecution of hate crimes regardless of the victim's involvement
in a federally protected activity. Thus while it adds more
categories it also enlarges the scope of the existing federal hate
crimes law.
Having myself been a victim of such an attack 17 years ago, I
know anti-gay violence tends to be especially vicious. Hate crimes
put a whole group of people under fear of attack.
Some opponents of hate-crimes laws have worried that they will
be used to punish speech or thought because they focus on a
person's motivation in committing a crime. This isn't a very strong
objection. Law constantly inquires into motive and these laws have
not been used to punish "hate speech." Law legitimately gives
special protection to especially vulnerable victims.
But will a new federal law do anything to stop hate crimes?
Supporters argue it will do two things. First, it allows federal
prosecution of anti-gay crimes -- something that until now has been
left to the states. Second, it gives resources to local authorities
to investigate and prosecute anti-gay crimes on their own.
I am skeptical about the practical value of hate-crimes laws.
All but seven states already have them, and 24 of these state laws
include anti-gay crimes. Passage of a federal bill will improve by
some degree the likelihood of punishing offenders for attacks that
have already occurred, but that could be done without
creating special categories of protection.
We now have almost 40 years of experience with these laws, yet
there's no evidence they have actually reduced hate crimes. A new
federal law will not likely deter future violence.
Here's why. Bias crimes are especially irrational, welling up
from deep hatreds, resentments, and fears that law can hardly
touch. They're often committed by young males in their teens and
early 20s who don't know the nuances in criminal law and whose
animalistic behavior is probably not very responsive to nice legal
incentives. Neither the prospect of federal (as opposed to state)
prosecution nor the threat of additional time in prison (beyond
what the offender would get anyway) will deter bias attacks.
Supporters also argue that local authorities need federal help
to prosecute hate crimes, citing the Matthew Shepard case as an
example of the high cost involved. But that crime was prosecuted
without federal help and supporters cite no hate crimes that have
gone unpunished because of expense.
Besides, lack of resources is a common complaint of police and
prosecutors. They'd always love more money, but there is no
evidence that this is a problem unique to hate crimes. Perhaps the
federal government should help, but why give special assistance to
the prosecution of one class of crimes that seems no more costly
than another?
Further, the investigation and prosecution of violent crime,
with a few exceptions, has traditionally been the job of the
states. There is no evidence that local and state authorities are
systematically ignoring hate crimes under existing laws.
Sure, some law enforcement authorities in isolated jurisdictions
have occasionally seemed insufficiently concerned about anti-gay
crimes. But where is the evidence of widespread, systematic
underenforcement to justify a federal law covering every
jurisdiction in all 50 states? We should have such evidence before
the federal government intrudes on yet another area of traditional
state authority.
Aside from these dubious instrumental rationales for hate-crimes
laws, the purpose of them seems entirely symbolic. Like much other
legislation, they are primarily mechanisms for groups to raise
morale and achieve recognition. That's not unimportant.
But while law can properly send messages about tolerance and
inclusion in a variety of ways, purely symbolic criminal
laws are a bad idea. They allow authorities to posture morally at
the cost of threatening people with loss of liberty and increasing
opportunities for prosecutorial abuse. This was one of many
problems with sodomy laws.
No doubt national gay-rights groups, especially the Human Rights
Campaign, are looking for a victory early in the new Congress to
show long-suffering donors and skeptical bloggers they can be
effective. Winning on hate crimes may also reassure members of
Congress that they can vote for a pro-gay bill without serious
repercussions. Other important issues, like employment protection
and DADT, are on the horizon. An "anti-crime" measure is the
easiest first step and may actually get President Bush's signature,
leading to more progress later.
But passing this seemingly symbolic bill may have the opposite
effect. It may give the new Congress a "pass" -- allowing Democrats
to say they have done something "pro-gay" and freeing them to avoid
the harder and far more consequential questions of military service
and protecting gay families in the law. These are issues, unlike
hate crimes, about which Congress really can do something of
practical value.