What is the future of ABA accreditation of law schools? (In short, fairly secure)
A recent announcement by the chair of the Federal Trade Commission with respect to the American Bar Association drew some attention. As announced:
Today, Federal Trade Commission Chairman Andrew N. Ferguson announced a new policy that prohibits FTC political appointees from holding leadership roles in the American Bar Association (ABA), participating in ABA events, or renewing their ABA memberships. Additionally, the FTC will no longer use its resources to support any employee's ABA membership or participation in ABA activities.
Although this missive is not related to the ABA’s role accrediting law schools, nevertheless the question arises: is there potential peril for the ABA’s role in accrediting law schools?
While the ABA has insisted for a long time that there is a significant wall of separation between its accrediting authority and its other activities, there is no question that its active political engagement as an organization, including, inter alia, claiming that the Equal Rights Amendment is currently the Twenty-Eighth Amendment to the United States Constitution, has drawn significant criticism. Formal separation or not, the appearance of political influence is enough to draw challenges.
But the ABA is no stranger to controversy with the federal government with respect to its role as accreditor. In the 1990s, it entered into a consent decree with the Department of Justice because its accreditation standards were, at the time, deemed too stringent. In 2016, the Department of Education came after the ABA for being too lax in its standards. It has hardly been a model accrediting body.
That said, to be an accrediting body of law schools can mean two things.
The first, and what the ABA’s troubles have reflected, is to be an accrediting body of an institution of higher education so that the institution is eligible for, among other things, federal loan disbursements. You can read the fairly generic statements in the CFR to see what an accreditor must do. There are many accreditors of higher education—the ABA is only one. Indeed, most law schools are twice accredited, because they are a part of a university, and that university is accredited by some other body (e.g., the Middle States Commission on Higher Education, the Higher Learning Commission, WASC, or some other entity).
Anyone can do this—anyone can form an organization that meets the CFR rules and start accrediting schools. Understandably, there haven’t been many making the effort to jump into this domain.
And so long as the ABA continues to meet the CFR rules—subject, of course, to oversight, as the DOJ in 1995 and Department of Education in 2016 made perfectly clear they are willing to do—they will continue to accredit schools.
The second, and what many separately discuss, is the role of ABA accreditation as a condition of admission to the bar. The vast majority of states require that bar admittees have attended an ABA-accredited law school and obtained a JD. There are a few notable exceptions, like California, which permits admission to the bar for those who attend a California-accredited school, or even an unaccredited school, if certain conditions are met.
For many years, I’ve wondered (somewhat rhetorically) why the ABA continues to accredit law schools. It used to be that it believed accreditation would improve the quality of lawyers admitted to the bar, by requiring a certain floor of education. It’s obvious over the years that the ABA, through various pressures (e.g., the 1995 consent decree), does not measure much on this domain. The ABA also focuses increasingly on outputs of law schools—e.g., how many of your students have passed the bar exam. If students pass the bar exam, which is the barrier to practice, then it seems that accreditation is a superfluous barrier to practice. Of course, there are consumer protection rationales for accreditation, but those are different measures that might be implemented more inexpensively than the full-scale ABA accreditation.
Likewise, the ABA continues to require more and more specific demands of law schools (in contravention of its own advice a decade ago) and fails to measure whether it is achieving its goals when it implements new standards that purport to achieve some desired end.
But for a state bar or state supreme court considering whether ABA accreditation is a worthy precursor to admission to the bar, states have precious little influence.
A state could, like California, open up admission to the bar to a larger group of individuals. That would diminish the ABA’s influence. But the experiment in California has not played out particularly well, in my view. The vast majority of non-ABA accredited schools are materially worse (but not all!) than the bulk of ABA schools. There is tremendous market pressure for prospective students to attend an ABA accredited school. These non-ABA accredited schools are typically cheaper, but the student quality tends to be much lower, and many will fail the bar exam and never ultimately practice law. It is a tradeoff to consider these risks.
So there is a way to dilute the influence of the ABA, but it does not seem particularly viable (at least, as seen in California so far).
States also have great challenges by thinking about in-state and out-of-state influence. A single state—say, New York or Texas—could insist that ABA accreditation is not a prerequisite to pass the bar exam. The state might require, say, attending any school that issues a JD. Of course, this is mostly going to be ABA accredited schools or California schools—and there might be much less oversight, if some unaccredited school opens and purports to issue a “JD.”
Likewise, a state could require a graduate attend any accredited school that issues a JD. That way, if the school is accredited by, say, WASC and issues a JD, it would count just as much as an ABA accredited JD. But few law schools would change their behavior. You’d need an ABA-accredited JD to get admitted to the other 49 states, so the incentive to skip ABA accreditation is quite low.
States, you see, have little leverage as individual states, at least in one direction, that of loosening standards. If one state relaxes its standards, schools won’t change. That’s because they really need to ensure they meet the most stringent jurisdiction’s requirements so their graduates can be admitted into any state. In California—a very large market—some schools have taken the leap to focus exclusively on one state at the expense of all others. But for many schools, it is not feasible to think they would change. It would take a critical mass of states to loosen standards—and even then, it’s not clear many schools would change.
A state could also tighten its standards with idiosyncratic additional rules (e.g., a requirement that all law school graduates take 15 units of “experiential learning”; that all law school graduates perform 50 hours of pro bono work before acceptance to the bar; etc.). California has attempted versions of these. In-state schools tend to react with robust programs. Mostly, however, it places significant costs on (often first-generation) law students at out-of-state schools who unwittingly learn about conditions to legal practice because most schools simply can’t provide bespoke accommodations to each state’s bar.
So a state bar could change who accredits or loosen the standards for who accredits, but it likely doesn’t affect many schools’ behavior (except, perhaps, attract a few more marginal players into the market, who might launch schools). A state bar could tighten the standards (e.g., require more than the ABA or something the ABA doesn’t require), but that tends to fall on individual out-of-state law students.
In short, the two functions of ABA accreditation—complying with the Department of Education regulations to unlock federal loans for students at those schools, and ensuring some minimum level of education as a condition for admission to the bar—appear to be fairly secure. True, the Department of Education could revoke the ABA’s accrediting authority, but it would need to explain why it’s failed existing CFR rules, and that seems unlikely at the moment. Likewise, it could suspend them from accrediting new schools (as it has temporarily done in the past), but that would really just preserve the status quo. Alternatively, it might develop new CFR rules for all accrediting bodies, not just the ABA, about what needs to go into accreditation (or what should not be a part of accreditation), but that seems a heavy future lift. And finally, it seems unlikely state bars are in a position to do much, unless a critical mass of them manage to free schools from ABA accreditation specifically and permit alternative accrediting bodies as permissible (and even then, the vast majority of law schools would still seek ABA accreditation so long as even one state requires ABA accreditation as a condition for bar admission).
But, of course, politics and administrative rules are a dynamic field, and things could change quickly. That said, I tend to anticipate the status quo will remain, and that’s my anticipation here, too.