Presidential Records Act
of 1978
An Impeachable Offense
Find Law.com
John Dean
Friday, Nov. 09, 2001
On November 1, President George W. Bush signed his latest
effort to govern by secrecy — Executive Order 13233. For
good reason this Order has a lot of historians, journalists, and
Congresspersons (both Republican and Democratic) upset.
The Order ends 27 years of Congressional and judicial efforts
to make Presidential papers and records publicly available. In
issuing the Order, the President has pushed his lawmaking powers
beyond their limits.
The Secret Presidency
As President watchers know, we have a President who likes
secrecy.
He has hired only tested leak-proof and loyal staffers,
effectively sealing the Bush White House. He has had his records
as the Governor of Texas hidden, shipping them off to his
father's Presidential library, where they are inaccessible. He
has stiffed the Congressional requests for information about how
he developed his energy policy — refusing to respond.
No President can govern in a fishbowl. But not since Richard
Nixon went to work in the Oval Office has there been as
concentrated an effort to keep the real work of a President
hidden, showing the public only a scripted President, as now.
While this effort was evident before the September 11th terrorist
attacks, the events of that day have become the justification for
even greater secrecy.
The mystical veil of "national security" has been cast over
much of the Bush administration. There were the secret arrests of
terror-related suspects (currently over 1000 publicly unknown
people). There was the expansion of the wiretap granting powers
of a secret federal court hidden within the Department of
Justice. There was, and continues to be, an apparent policy of
precluding news organizations and congressional leaders from
access to anything other than managed and generic news about the
war in Afghanistan.
With all these moves, President Bush is brushing aside one
historical tradition of openness after another. It is in this
context that the President's latest action must be viewed.
The Executive Order suggests that President Bush not only does
not want Americans to know what he is doing, but he also does not
want to worry that historians and others will someday find out.
Certainly that is the implicit message in his new effort to
preclude public access to Presidential papers — his, and
those of all Presidents since the Reagan-Bush administration.
There is, however, no justification whatsoever for this latest
effort to hide the work of past, present, and future
Presidents.
What Bush's Executive Action Means
There has been some confusion about the meaning of the
President's actions in addressing Presidential papers. He has not
repealed the existing law, as some have asserted, because he does
not have that power. But he has sought to significantly modify
the law, and made its procedures far more complex, cumbersome and
restrictive. In doing so, he has exceeded his executive powers
under the Presidential Records Act of 1978.
White House Press Secretary Ari Fleischer has tried,
unsuccessfully, to spin Executive Order 13233 as doing nothing
more than implementing the existing law, but in fact, the Order
does much more. Perhaps unsurprisingly, when pressed during his
briefing, Mr. Fleischer dodged the tough questions, or said
"that's a matter for the lawyers." Fleischer contention that the
Order is innocuous would not hold up under close scrutiny, and so
he avoided that scrutiny.
Attorney Scott Nelson's Testimony Against the Order
One lawyer who appreciates exactly what has been done is
Washington attorney Scott L. Nelson, who represents Public
Citizen, the public advocacy group that flushed out the Nixon
papers during several decades of litigation. Mr. Nelson knows
these laws well because Richard Nixon was his client for 15 years
— ironically, much of that time fighting Public Citizen.
Indeed, Scott Nelson has been involved in the litigation that has
shaped the body of law that President Bush has ignored in issuing
his Executive Order.
On November 6, Nelson appeared before a subcommittee of the
House Committee on Government Reform, chaired by Congressman
Stephen Horn, to address the new Bush Order. He explained in
detail its flaws — which I have only summarized below, by
highlighting a few examples of how the Bush Order ignores, or
seeks to change, the law.
The Presidential Records Act
Under the 1978 Presidential Records Act, virtually all of a
former President's records are to be made publicly available by
the Archivist twelve years after that President leaves office.
There are narrow exceptions for papers that still must be
withheld for national security reasons.
But the 1978 statute specifically states that among the
material to be released by the Archives twelve years after a
President leaves office are his confidential and private
communications with his advisers (White House staff and Cabinet
Departments). The existing law does not provide an exception for
withholding "attorney-client" or "attorney work product"
materials.
The New Executive Order: Adding Presidential Privileges to
Those in the Act
Through Executive Order 13233, President Bush has sought to
re-interpret the 1978 law. To put it briefly, the Order adds and
enumerates privileges upon which a former or incumbent President
can block release of a former President's materials.
In claiming that the Order does not contradict the Records
Act, Bush relies on a clause in the Act that states that it does
not "confirm, limit, or expand constitutionally-based privileges
which may be available to an incumbent or former President."
Bush's lawyers read this clause as bringing into play all of
the privileges the law has precluded. They cite specifically the
Supreme Court's 1977 holding in Nixon v. Administrator of General
Services, which says that a former President can exert executive
privilege.
The 1978 law only recognizes the enumerated privileges set
forth in the Freedom Of Information Act. Nevertheless, Bush's
Executive Order makes clear that he reads the law as entitling a
former or incumbent President to assert a laundry list of
privileges: the state secrets or national security privilege; the
communications with advisors privilege, the attorney-client and
attorney work product privileges, and the deliberative process
privilege.
Shifting the Burden, and Adding Extra Procedures
President Bush has also shifted the burden from the former
President to the person seeking the material. Under the Executive
Order, the person seeking material must show that he should be
given it; it is no longer necessary for the former President to
show why material must not be disclosed.
Bush's Executive Order also takes the Archivist of the United
States out of the role of deciding if a former President's
invocation of privilege should or should not be honored. That
role is now assigned to the incumbent President. And obviously,
it is likely that Presidents — wanting successors to honor
their own invocations of privilege — might tend to accept
former President's claims.
The new Executive Order also creates an elaborate procedure
for an incumbent President to block his predecessor from
releasing documents. In addition, under Bush's order, a former
President can indefinitely block release of his material, which
is not possible under existing law.
Another added benefit for former Presidents is this: When the
incumbent President agrees with the former President about his
decision to not release records, the incumbent President (through
the Department of Justice) will defend the privilege against
attack. That saves the former President what can be significant
legal expenses for attorney's fees to contest the case in
court.
A New Power for Vice Presidents
While Scott Nelson did not mention it in his testimony, the
most remarkable change the Executive Order effects is that it
gives not just a President, but also a Vice President, the power
to invoke executive privilege over his papers.
The Presidential Records Act includes Vice Presidential
records. But it does not give a former Vice President the right
to invoke executive privilege — for Congress does not have
the power to do so.
Indeed, under the Constitution, the executive privilege is
unique to the President. Bush's Order is nothing less than absurd
in purporting to grant the power to invoke this privilege to the
Vice President, (and may only feed suspicion that Dick Cheney's
role is more Presidential than may be appropriate to his
office).
The Effect of The New Executive Order
President Bush has not stated why he revoked the existing
Executive Order (Number 12667) addressing Presidential Records.
President Reagan issued the Order in 1989 after studying the law
for almost eight years of his presidency. Many believed Reagan's
Order went beyond the law. Yet President Clinton did not
challenge or change it during his eight years in office.
Ironically, if President Clinton — not President Bush
— had been the one who issued this new Executive Order,
Republicans in Congress would no doubt have called for his
impeachment for failure to execute the laws (that is, failure to
abide by the Presidential Records Act.)
Just as Clinton's assertions of privilege in court were
repeatedly questioned — and even argued by some to be abuse
of process or even obstruction of justice — Clinton's
extension of Presidential privileges through an Executive Order
would have faced heavy criticism. But when Bush takes the same
action — especially now, with his new popularity —
the criticism is highly modulated in tone.
Why Bush Apparently Issued the New Executive Order
What appears to have provoked President Bush's action is the
fact that some 68,000 documents from the Reagan presidency were
waiting at the White House when Bush arrived, ready for release
by the National Archives.
These documents passed the twelve-year deadline for public
release on January 12, 2001, but their release has been stalled
by the Bush White House until now. The documents are believed to
contain records that Papa Bush, as Reagan's Vice President, is
not happy to have made public. They also contain papers of others
now working for Bush, who might be embarrassed by their
release.
Look for either Papa Bush, or someone designated by former
President Reagan, to object to any of these 68,000 documents'
release pursuant to the new Executive Order. If that happens, it
will confirm my guess as to why the Order was written at this
time. The effect will be to tie the release of those records up
for years.
The most certain effect of this new Order will be litigation.
The Order will be tested in court, if the President does not
withdraw it as requested by both Republicans and Democrats in the
Congress. And should the Order not be overturned by the courts, I
believe Congress will act. In fact, Congress could act even
before the courts resolve these matters.
In short, the prospects for Bush's Executive Order 13233
remaining the law of the land is slim to none.
A Troubling Penchant For Secrecy
More troubling than the Order's throwing a monkey wrench into
the process of releasing Presidential papers, however, is the
President's penchant for secrecy. Secrecy provokes the question
of what is being hidden and why.
If President Bush continues with his Nixon-style secrecy, I
suspect voters will give him a Nixon-style vote of no confidence
come 2004. While secrecy is necessary to fight a war, it is not
necessary to run the country. I can assure you from firsthand
experience that a President acting secretly usually does not have
the best interest of Americans in mind. It is his own personal
interest that is on his mind instead.
The Bush administration would do well to remember the
admonition of former Senator Daniel Patrick Moynihan in his
report on government secrecy: "Behind closed doors, there is no
guarantee that the most basic of individual freedoms will be
preserved. And as we enter the 21st Century, the great fear we
have for our democracy is the enveloping culture of government
secrecy and the corresponding distrust of government that
follows."
John Dean, a FindLaw columnist, is a former Counsel to the
President of the United States. His most recent book, The
Rehnquist Choice: The Untold Story of the Nixon Appointment That
Redefined the Supreme Court, was just published by the Free
Press.
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