Chapter Four – “If the President Does it, that means that it is not illegal”
Thomas Fuller’s quote, “Be you ever so high, the law is above you,” is one nearly inescapable in any text on the Rule of Law, or any discussion of sovereignty. The term is well-worn, but remains an important illustrative axiom, which serves to remind the traditional leaders of the past, such as monarchs and presidents, as well as the powerful and influential leaders of today (media moguls and political lobbyists, for example), that nobody can escape the Rule of Law. Though for lawyers it may be a phrase impossible to forget, in politics there are countless examples in modern political history demonstrating that to politicians it is a phrase easily overlooked. Nixon, for example may be glad to know that the Bush Administration would, in the space of ten years, vindicate the title quote so completely, and aim to dismiss Fuller’s phrase so totally, in their pursuit of victory in the War on Terror.
Bush, a president whose term was marred with accusations of illegal spying, wiretapping, rendition, human rights abuses and the ongoing debate over the invasion of Iraq in 2003, pursued a political philosophy that “asserts a conception of executive power which is unlimited; which cannot be constrained by the other branches of government, by Congress or by the Courts, when the president is acting as Commander-in-Chief.” In short, Bush sought a presidency fused with legal sovereignty. Both Americans and observers overseas would be familiar with this perspective, since it was shared by Richard Nixon during his term in office and afterward. Nixon, who was also dogged by accusations of at least questionable, at most illegal practices while in office, believed that as President he had absolute authority to authorise actions which would otherwise have been statutorily criminal. The difference is that Nixon believed that the President was beyond the rule of law in all circumstances. As was demonstrated in the quote above, Bush’s perspective mirrored Nixon’s, but was different in one crucial respect: that the unlimited power of the President was granted only when acting as Commander-in-Chief.
Whatever the differences in their philosophy, both assumed that as President they adopted the role of Sovereign in the legal-political system of the United States of America. The legitimacy of this claim is, of course, not possible to assume. Just as Nixon learned following the Houston plan and the Watergate scandal, Bush found that there are no circumstances in which the President is granted absolute authority to act beyond the law. The fundamental difference, of course, between the United States and the United Kingdom is that the United States has a formal constitution, which outlines the fundamental rights and responsibilities of government, and is defined in Eakin v Raub.
In this case Gibson, dissenting, states “What is a Constitution? It is an act of extraordinary legislation, by which the people establish the structure and mechanism of their government; and in which they prescribe fundamental rules to regulate the motion of the several parts.” The United Kingdom does not have a formal constitution, but instead, as was explained above, has a number of leading cases and ‘ordinary’ legislation, which defines the powers and limits of the Government, as well as the most fundamental rights and responsibilities of subjects. The case for Britain adopting a constitution will be discussed in further chapters.
The Constitution of the United States, in the Fourth Amendment, guarantees the right of Americans against unlawful search and seizure, and this has, alongside the development of more sophisticated communications technology, been expanded to include controls over the use of wiretapping, interception of email and the monitoring of internet use. The Bush administration however decided that the President, while acting as Commander-in-Chief, could exercise his Constitutional role to protect the United States from threats by issuing orders to tap the communications of domestic citizens of the United States without a warrant, where their communications were with a recipient outside the country. According to The Foreign Intelligence Surveillance Act (FISA),73 the president has the authority to authorise wiretaps without a warrant where they are directed at persons who are not citizens and are outside the United States. It also provides that the President can issue orders for warrantless wiretaps within fifteen calendar days of a declaration of war by Congress.
The Congressional Research Service, however, reported in 2006 that, “…media revelations that the President authorized the National Security Agency (NSA) to collect signals intelligence from communications involving U.S. persons within the United States, without obtaining a warrant or court order, raise numerous questions regarding the President’s authority to order warrantless electronic surveillance. Little information is currently known about the full extent of the NSA domestic surveillance, which was revealed by the New York Times in December, 2005, but allegedly began after the President issued a secret order in 2002.” These revelations came when an article published in the New York Times claimed that Bush ordered the NSA (National Security Agency) to carry out wiretaps against domestic American citizens without a court order. Given that this is illegal under FISA, except within fifteen calendar days of a declaration of war, this should ordinarily have attracted the attention of the courts (thus leading to a constitutional stand-off between the Judiciary and the Executive). However in these circumstances the Bush administration argued that the President, acting in his capacity as Commander-in-Chief, was granted unlimited power to carry out any intelligence gathering he saw fit to engage the enemy (in this case, potential terrorists and other threats). The article asserts that “Under a presidential order signed in 2002, the intelligence agency has monitored the international telephone calls and international e-mail messages of … perhaps thousands of people inside the United States without warrants over the past three years in an effort to track possible “dirty numbers” linked to Al Qaeda.”
In 2002, a supplemental brief for the US Department of Justice for the US Foreign Intelligence Court (herein referred to as ‘the brief’) was authored by the US Department of Justice outlining the authority of the Executive to engage in illegal wiretapping activity against domestic US citizens, which asserted that, “the Constitution vests in the President inherent authority to conduct warrantless intelligence surveillance (electronic or otherwise) of foreign powers or their agents, and Congress cannot by statute extinguish that constitutional authority.” The most obvious criticism of this assertion is that the President cannot be above the law. Neither can he, even when exercising his authority as Commander-in-Chief, or even when securing the safety and security of the nation, excuse the breach of Constitutionally guaranteed rights such as the Fourth Amendment right to privacy of communications. The Constitution itself states that the role of the President is to defend and protect the Constitution of the United States, but the question to be asked is whether the President has the right to defend his own constitutionally authorised role as Commander-in-Chief against the Fourth Amendment, which would seek to limit the President’s authority to carry out warrantless wiretaps against US citizens.
Naturally, at first glance the answer to this riddle is simple: the Constitution, and not the President is sovereign in the United States, and so the President must uphold and respect the Fourth Amendment. But by doing so, he must concede that his role as commander-in-chief is not unlimited and so he must abide by the provisions of FISA. This argument was, however, dismissed in the brief, which claimed that “in considering the constitutionality of the amended FISA, it is important to understand that FISA is not required by the Constitution.” This bold statement asserts that the President, in exercising his role as Commander-in-Chief, has the authority to sweep aside inferior statutes (i.e. Any laws which are not constitutional) that preclude his ability to carry out actions which he considers to be necessary to secure the safety of the United States.
It has been made clear, however, that the courts do not agree with this position. In Butenko, for example, the court found that, “The President in his constitutionally designated role as Chief Executive is charged with the duty to see that the laws of the United States are enforced and obeyed. Yet it is incontrovertible that the President, through his subordinates, cannot ignore the admonitions of the Fourth Amendment when investigating criminal activity unrelated to foreign affairs. Thus, evidence seized in the investigation of domestic crimes as a result of actions outside the bounds of the Amendment would not be admissible in a criminal prosecution.”
This case, along with two others, was relied upon in the brief to legitimise the President’s claim to unlimited authority. However, it is clear that the Brief mistakes the President’s authority to carry out wiretaps in the interest of Foreign relations and international affairs with his authority to carry out those same acts against domestic US citizens. FISA grants the President the authority to allow warrantless wiretaps on non-US citizens where it is in the interests of foreign relations, but there are few exceptions pertaining to citizens, and even where these are stipulated there are nonetheless strict safeguards to ensure that this authority is not abused. The judgement in Butenko goes on to explain that, “The President’s authority to conduct foreign affairs … is implied, at least in part, from the language contained in Article II of the Constitution. The Constitution contains no express provision authorizing the President to conduct surveillance, but it would appear that such power is similarly implied from his duty to conduct the nation’s foreign affairs. Although direct threats to the existence of governmental institutions or to territorial integrity are of immeasurable gravity, there would seem to be nothing in the language of the Constitution to justify completely removing the Fourth Amendment’s requirements in the foreign affairs field and, concurrently, imposing those requirements in all other situations.”81 The second case the brief sought to rely on to justify the President’s authority to carry out wiretapping without warrant was Truong,82 which states that “the President may authorize surveillance without seeking a judicial warrant because of his constitutional prerogatives in the area of foreign affairs … only so long as the investigation was “primarily” a foreign intelligence investigation.” This case also, therefore, refutes the notion that the President is above the law, and reaffirms the fact that where the President permits an illegal wiretap, or any act not permitted according to statute or which is not in accordance with the constitution, he acts ultra vires, and therefore his actions cannot be permissible under the law.
It is easy to forget, in vague discourse on the general constitutional rights and liberties of citizens, that the argument of the Government rests on the notion that the Executive branch may be granted absolute discretion to intercept private conversations and communications without any judicial review. As was stated neatly in United States v. United States District Court (Keith), “The price of lawful public dissent must not be a dread of subjection to an unchecked surveillance power. Nor must the fear of unauthorized official eavesdropping deter vigorous citizen dissent and discussion of Government action in private conversation. For private dissent, no less than open public discourse, is essential to our free society.” This principle has its roots in English common law, long before it was enshrined in the United States Constitution under the Fourth Amendment. Lord Mansfield, in Leach v Three of the Kings Messengers, says that “It is not fit that the receiving or judging of the information should be left to the discretion of the officer. The magistrate ought to judge; and should give certain directions to the officer.” This statement has held in the Common law in the United Kingdom just as well as the Constitution has protected this right in the United States.
The Constitution, although useful in securing and defining the basic rights of citizens and the operation of government, adds nothing useful to the protection of those rights except a more difficult means of expunging them. Although valuable in itself, the mere ability to keep the right secure is one just as well defended by the courts in the common law. Indeed, given the length of time and number of cases giving ample chances to remove or infringe this right, the common law has stood fast, and has prevailed. Now, with the introduction of the Human Rights Act, this right has been written into our body of Constitutional documents, and will now no doubt prove just as hard to expunge as a right in the US constitution.
The controversy surrounding illegal wiretaps came to a head in 2006, after the revelations in the press, and the practice was widely condemned both by the public and the courts. Speaking in judgement in a Federal Court in Michigan, Judge Anna Diggs Taylor ruled that the arbitrary violations of Fourth amendment rights were unlawful, and that “there are no hereditary kings in America.”Bowing to public and legal pressure, President Bush finally conceded to end the NSA’s secret wiretapping programme in January 2008, proving at last that everyone, the President being no exception, is subject to the rule of law as defined by the courts.
Nixon, of course, is a President who did not learn this valuable lesson. His presidency is remembered for the Watergate and Houston scandals, both of which helped to redefine the accepted view of the powers and authority of the President of the United States in a legal capacity. As has already been explained, the President has the authority to issue orders for wiretaps against domestic citizens only in specific circumstances and only if a warrant is authorised either before or immediately following the wiretap. If the wiretap is rejected, the evidence gathered cannot be used (the fruit of the illegal act). This is the basic circumstance of the Houston Scandal, which shares many similarities with the NSA Terrorist wiretapping programme carried out under the Bush Administration. The Houston Plan was a programme of warrantless wiretapping against domestic US citizens whom were suspected of aiding the Vietnamese during the American incursion in the middle of the twentieth century. Although Nixon personally authorised the operation, it was shelved before wiretaps could begin due to pressure from J Edgar Hoover, the director of the FBI, who felt that such an incursion was unconscionable.
The Parallels with the Bush administration are obvious, the only difference being that Nixon defended his position not by claiming that he was constitutionally authorised to do anything when acting in a certain constitutional capacity, as Bush argued.Instead, Nixon claimed that when the President commits any offense he cannot be prosecuted, because as President he is above the law. Naturally this was not true, as his impeachment testifies. The Houston plan is historic now, and has been replaced by the NSA Wiretapping affair, but it is Watergate that is arguably Nixon’s most damning criminal scandal.
Watergate began in 1972, when the Democratic Party headquarters in the Watergate Building, Washington D.C. was the target of a break-in. Eventually, it was revealed that the order for the break-in had come from the Oval Office, and that the President may have been directly involved. This was an immensely important allegation, as it would be a direct accusation of the President in a statutory crime. Two years after the break-in, the Special Prosecutor in charge of investigating the scandal, Leon Jaworski, obtained a subpoena requiring the President to release certain tapes and transcripts of meetings and conversations he had held with suspects indicted by the grand jury.
Nixon, bowing to pressure to appease the public mood, released edited transcripts of forty conversations, including twenty conversations ordered in the subpoena. Nixon’s attorney, James D Sinclair, told the court that, “The President wants me to argue that he is as powerful a monarch as Louis XIV, only four years at a time, and is not subject to the processes of any court in the land except the court of impeachment.” Naturally, the court rejected this statement, and demanded the release of all the tapes and transcripts, unedited, to be delivered to the court by the 31st May 1974. Upon referral to the Supreme Court, it was decided that the transcripts may indeed contain evidence of wrongdoing and, despite the President’s claim that he had the right to protect all privileged government communications, the court decided that Nixon had no right to “an absolute, unqualified Presidential privilege of immunity from judicial process under all circumstances.” This case redefined the role of the president politically and legally in the United States. The Supreme Court exercised its authority and made clear that even the President is subject to the rule of law as enacted through decisions of the courts.