Ellingburg v. United States, Docket No. 24-482
Listen to the episode On Spotify on Apple Podcasts or on YouTube
Sometimes the toughest legal questions turn on how you label something: is it meant to make a victim whole, or is it part of a person’s punishment? The Supreme Court just faced that exact line-drawing problem in Ellingburg v. United States, a case about money a defendant is ordered to pay back and whether it counts as criminal punishment.
The Court, in a unanimous opinion written by Justice Brett Kavanaugh, said restitution under the Mandatory Victims Restitution Act of 1996 is criminal punishment when it comes to the Constitution’s ban on retroactive punishment. In other words, if you treat restitution like punishment, you can’t use the MVRA to reach back and apply it to conduct that happened before the law existed.
The Justices pointed to the law’s own design: it calls restitution a “penalty,” it’s placed in the criminal code, it’s imposed at sentencing alongside other punishments, and it’s enforced by the government. The Supreme Court reversed the Eighth Circuit and sent the case back for more proceedings. Justice Clarence Thomas wrote a separate concurrence, joined by Justice Neil Gorsuch.
When Does Court-Ordered Repayment Count as Criminal Punishment? Supreme Court Weighs In
Holsey Ellingburg, Jr. committed a federal crime in early 1996. A few months later, Congress passed a new law called the Mandatory Victims Restitution Act, which required convicted criminals to pay back their victims. Even though Ellingburg's crime happened before this law existed, he was sentenced under it later that year and ordered to pay $7,567.25 to his victim.
Fast forward nearly thirty years. Ellingburg is still being held to this repayment obligation. He challenged it, arguing that the Constitution prohibits the government from retroactively applying criminal punishments to conduct that occurred before a law was passed. This protection is called the Ex Post Facto Clause.
The Supreme Court took up the case to settle this fundamental question: Is mandatory restitution a criminal punishment, or is it something else?
In an unusual twist, both Ellingburg and the federal government agreed that the lower court got it wrong. Because both sides agreed, the Supreme Court appointed a lawyer named John F. Bash to argue in favor of the Eighth Circuit's decision. Justice Kavanaugh wrote the opinion for a unanimous Court, reversing the Eighth Circuit's ruling against Ellingburg.
Arguments Made By Counsel
Ellingburg and the Justice Department made a united front. They argued that everything about the restitution law screams "criminal punishment." The law itself is found in the criminal code's section on sentencing. It calls restitution a "penalty" for a criminal "offense." And here's the kicker: if someone doesn't pay, they can be sent back to prison. As Justice Jackson pointed out during the hearing, regardless of what happened at Ellingburg's original sentencing three decades ago, he's being held accountable today under a law that didn't exist when he committed his crime. That's the constitutional problem.
Court-appointed lawyer Bash put up a strong defense of the lower court's ruling. He argued that the restitution law actually works more like a civil lawsuit than criminal punishment. In civil cases, you pay based on the harm you caused, not based on how bad you were or whether you can afford it. Bash pointed out that when Congress made restitution mandatory instead of optional, it was making the system more about compensating victims. This sounds more civil than criminal. Justice Kagan seemed intrigued by this argument. She noted that some provisions of the law like allowing victims to keep asking for money years later when they discover new damages, or allowing offsets when victims win civil lawsuits "seem very odd if the statute is primarily punitive."
Justice Alito highlighted the government's difficult position: it was trying to avoid constitutional protections that apply to both criminal and civil cases. In criminal cases, defendants have a right to a jury trial under the Sixth Amendment. In major civil cases, there's a right to a jury trial under the Seventh Amendment. The government seemed to be arguing that restitution was avoiding both protections. Justice Gorsuch questioned whether the Court should bail the government out of this strategic corner it had painted itself into.
Opinion of the Court
Justice Kavanaugh, writing for all nine justices, held that "restitution under the MVRA is plainly criminal punishment for purposes of the Ex Post Facto Clause."
The Court followed a straightforward approach: to determine whether a law violates the constitutional ban on retroactive criminal laws, you first look at what the law actually says and how it's structured. Does it look like criminal punishment or does it look like something else?
The Court found overwhelming evidence that restitution under this law is criminal punishment. First, the law itself uses the language of criminal law by calling restitution a "penalty" for a criminal "offense." Second, only people who have been convicted of crimes can be ordered to pay. Third, restitution is imposed at sentencing, right alongside prison time and fines. Fourth, the government, not the victim, is the opposing party in the case. Fifth, for less serious crimes, restitution can be imposed instead of jail time or fines, making it potentially the only punishment. Sixth, the law is located in the criminal code in sections specifically about sentencing. And seventh, people who don't pay can be sent to prison.
The Court noted that it has consistently described this type of restitution as criminal punishment in previous cases. In one case, the Court said the law requires courts "to impose restitution as part of the sentence." In another, restitution was described as designed "to mete out appropriate criminal punishment."
The Court addressed Bash's argument that a previous case about sex offender registration should control here. In that case, the Court found that registration requirements were civil, not criminal. But the Court distinguished that situation: sex offender registration used clearly civil procedures, while restitution under this law has every characteristic of criminal punishment.
The Court acknowledged that Congress had a goal to help crime victims. A goal that isn't about punishment. But this just showed "that Congress intended restitution under the MVRA to both punish and compensate." When the text and structure of a law show that Congress intended to impose punishment, that settles the question.
Importantly, the Court noted that its ruling "does not mean that a restitution statute can never be civil." Congress could potentially design a victim compensation system that truly operates as a civil remedy. The Court sent the case back to the lower court to consider other arguments the government had made.
Separate Opinions
Justice Thomas, joined by Justice Gorsuch, wrote separately while agreeing with the majority's conclusion. He wanted to address deeper questions about how courts should determine what counts as criminal punishment.
Justice Thomas argued that the modern legal test for distinguishing criminal from civil laws "has little basis in history" and "is unnecessarily convoluted." The current approach means legislatures could potentially dodge constitutional protections just by using the right labels. Under the current framework, Justice Thomas observed, a legislature might impose a retroactive $10,000 fine on previously innocent conduct like "drinking coffee or going to the gym" simply by calling the law "civil," putting it in the civil code, and having a health agency enforce it.
Thomas proposed returning to the original understanding from a 1798 case. Back then, a "crime" meant a "public wrong" while "punishment" meant any forced penalty like taking away life, liberty, or property that addressed that wrong. Under this approach, what matters isn't what legislators call something but "what the law does": if it punishes a wrong against society enforced by the government, constitutional protections apply; if it merely adjusts disputes between private citizens, they don't.
This understanding, Thomas argued, would extend constitutional protections to many things currently labeled as civil, including fines imposed by government agencies, enforcement actions by regulators, and even municipal penalties like speeding tickets. Anywhere the government enforces a penalty for an injury to the community.
Can Court-Ordered Repayment Ever Be Considered Civil Rather Than Criminal?
This decision establishes that determining whether the constitutional ban on retroactive criminal laws applies depends primarily on what the law says and how it's structured, not just on what effects it has in practice. The Court explicitly avoided a more complicated analysis of the statute's effects because the text so clearly showed Congress intended it as punishment.
The decision preserves flexibility in two important ways. First, the Court emphasized it wasn't saying these features are always necessary for something to count as criminal punishment. Second, the majority explicitly stated that restitution statutes can be designed as civil remedies; future legislatures could create victim compensation programs that genuinely operate outside the criminal system if they use sufficiently civil mechanisms.
Justice Thomas's separate opinion, however, suggests constitutional protection expansion by applying all government-enforced penalties for wrongs against society, regardless of civil labels. This would include administrative fines, civil forfeitures, and even traffic tickets. A substantial departure from current law that treats these as outside constitutional retroactivity protections. While this position didn't command a majority, it signals potential future developments and alerts lawyers that nominally civil government enforcement actions may face heightened constitutional scrutiny.
The practical impact is that defendants sentenced under this restitution law for crimes committed before 1996 may be able to challenge the retroactive application.