Those
Designated 'Combatants' Lose Legal Protections *
An Impeachable Offense
Reuters.com
December 1, 2002
By Charles Lane
The Bush administration is developing a parallel legal system
in which terrorism suspects -- U.S. citizens and noncitizens
alike -- may be investigated, jailed, interrogated, tried and
punished without legal protections guaranteed by the ordinary
system, lawyers inside and outside the government say.
The elements of this new system are already familiar from
President Bush's orders and his aides' policy statements and
legal briefs: indefinite military detention for those designated
"enemy combatants," liberal use of "material witness" warrants,
counterintelligence-style wiretaps and searches led by law
enforcement officials and, for noncitizens, trial by military
commissions or deportation after strictly closed hearings.
Only now, however, is it becoming clear how these elements
could ultimately interact.
For example, under authority it already has or is asserting in
court cases, the administration, with approval of the special
Foreign Intelligence Surveillance Court, could order a
clandestine search of a U.S. citizen's home and, based on the
information gathered, secretly declare the citizen an enemy
combatant, to be held indefinitely at a U.S. military base.
Courts would have very limited authority to second-guess the
detention, to the extent that they were aware of it.
Administration officials, noting that they have chosen to
prosecute suspected Taliban member John Walker Lindh, "shoe
bomber" Richard Reid and alleged Sept. 11 conspirator Zacarias
Moussaoui in ordinary federal courts, say the parallel system is
meant to be used selectively, as a complement to conventional
processes, not as a substitute. But, they say, the parallel
system is necessary because terrorism is a form of war as well as
a form of crime, and it must not only be punished after incidents
occur, but also prevented and disrupted through the gathering of
timely intelligence.
"I wouldn't call it an alternative system," said an
administration official who has helped devise the legal response
to the terrorist attacks of Sept. 11, 2001. "But it is different
than the criminal procedure system we all know and love. It's a
separate track for people we catch in the war."
At least one American has been shifted from the ordinary legal
system into the parallel one: alleged al Qaeda "dirty bomb"
plotter Jose Padilla, who is being held at a Navy brig, without
the right to communicate with a lawyer or anyone else. U.S.
officials have told the courts that they can detain and
interrogate him until the executive branch declares an end to the
war against terrorism.
The final outlines of this parallel system will be known only
after the courts, including probably the Supreme Court, have
settled a variety of issues being litigated. But the prospect of
such a system has triggered a fierce debate.
Civil libertarians accuse the Bush administration of an
executive-branch power grab that will erode the rights and
freedoms that terrorists are trying to destroy -- and that were
enhanced only recently in response to abuses during the civil
rights era, Vietnam and Watergate.
"They are trying to embed in law a vast expansion of executive
authority with no judicial oversight in the name of national
security," said Kate Martin, director of the Center for National
Security Studies, a Washington-based nonprofit group that has
challenged the administration approach in court. "This is more
tied to statutory legal authority than J. Edgar Hoover's
political spying, but that may make it more dangerous. You could
have the law serving as a vehicle for all kinds of abuses."
Administration officials say that they are acting under ample
legal authority derived from statutes, court decisions and
wartime powers that the president possesses as commander in chief
under the Constitution.
"When you have a long period of time when you're not engaged
in a war, people tend to forget, or put in backs of their minds,
the necessity for certain types of government action used when we
are in danger, when we are facing eyeball to eyeball a serious
threat," Solicitor General Theodore B. Olson, who leads the
administration's anti-terrorism legal team in the federal courts,
said in an interview.
Broadly speaking, the debate between the administration and
its critics is not so much about the methods the government seeks
to employ as it is about who should act as a check against
potential abuses.
Executive Decisions
Civil libertarians insist that the courts should searchingly
review Bush's actions, so that he is always held accountable to
an independent branch of government. Administration officials,
however, imply that the main check on the president's performance
in wartime is political -- that if the public perceives his
approach to terrorism is excessive or ineffective, it will vote
him out of office.
"At the end of the day in our constitutional system, someone
will have to decide whether that [decision to designate someone
an enemy combatant] is a right or just decision," Olson said.
"Who will finally decide that? Will it be a judge, or will it be
the president of the United States, elected by the people,
specifically to perform that function, with the capacity to have
the information at his disposal with the assistance of those who
work for him?"
Probably the most hotly disputed element of the
administration's approach is its contention that the president
alone can designate individuals, including U.S. citizens, as
enemy combatants, who can be detained with no access to lawyers
or family members unless and until the president determines, in
effect, that hostilities between the United States and that
individual have ended.
Padilla was held as a material witness for a month after his
May 8 arrest in Chicago before he was designated an enemy
combatant. He is one of two U.S. citizens being held as enemy
combatants at the Navy brig in Charleston, S.C. The other is
Yaser Esam Hamdi, a Saudi Taliban fighter who was captured by
American troops in Afghanistan and sent to the U.S. prison at
Guantanamo Bay, Cuba, until it was discovered that he was born in
Louisiana.
Attorneys are challenging their detentions in federal court.
While civil libertarians concede that the executive branch has
well-established authority to name and confine members of enemy
forces during wartime, they maintain that it is unconstitutional
to subject U.S. citizens to indefinite confinement on little more
than the president's declaration, especially given the inherently
open-ended nature of an unconventional war against terrorism.
"The notion that the executive branch can decide by itself
that an American citizen can be put in a military camp,
incommunicado, is frightening," said Morton H. Halperin, director
of the Washington office of the Open Society Institute. "They're
entitled to hold him on the grounds that he is in fact at war
with the U.S., but there has to be an opportunity for him to
contest those facts."
However, the Bush administration, citing two World War II-era
cases -- the Supreme Court's ruling upholding a military
commission trial for a captured American-citizen Nazi saboteur,
and a later federal appeals court decision upholding the
imprisonment of an Italian American caught as a member of Italian
forces in Europe -- says there is ample precedent for what it is
doing.
Courts traditionally understand that they must defer to the
executive's greater expertise and capability when it comes to
looking at such facts and making such judgments in time of war,
Bush officials said. At most, courts have only the power to
review legal claims brought on behalf of detainees, such as
whether there is indeed a state of conflict between the United
States and the detainee.
In a recent legal brief, Olson argued that the detention of
people such as Hamdi or Padilla as enemy combatants is "critical
to gathering intelligence in connection with the overall war
effort."
Nor is there any requirement that the executive branch spell
out its criteria for determining who qualifies as an enemy
combatant, Olson argues.
"There won't be 10 rules that trigger this or 10 rules that
end this," Olson said in the interview. "There will be judgments
and instincts and evaluations and implementations that have to be
made by the executive that are probably going to be different
from day to day, depending on the circumstances."
The federal courts have yet to deliver a definitive judgment
on the question. A federal district judge in Virginia, Robert G.
Doumar, was sharply critical of the administration, insisting
that Hamdi be permitted to consult an attorney. But he was
partially overruled by the U.S. Court of Appeals for the 4th
Circuit, based in Richmond.
The 4th Circuit, however, said the administration's assertion
that courts should have absolutely no role in examining the facts
leading to an enemy combatant designation was "sweeping." A
decision from that court is pending as to how much of a role a
court could claim, if any. The matter could well have to be
settled in the Supreme Court.
Secret Surveillance
The administration scored a victory recently when the U.S.
Foreign Intelligence Surveillance Court of Review ruled 3 to 0
that the USA Patriot Act, passed by Congress shortly after the
Sept. 11 terrorist attacks, gives the Justice Department
authority to break down what had come to be known as "the wall"
separating criminal investigations from investigations of foreign
agents.
The ruling endorsed the administration's view that law
enforcement goals should be allowed to drive Justice Department
requests for special eavesdropping and search warrants that had
been thought to be reserved for counterintelligence operations.
But the court went further, agreeing with the administration that
"the wall" itself had no real basis in pre-Patriot Act law.
Instead, the court ruled, "the wall" was a product of internal
Justice Department guidelines that were, in turn, based partly on
erroneous interpretations of the law by some courts.
There is no clear line between intelligence and crime in any
case, the court said, because any investigation of a spy ring
could ultimately lead to charging U.S. citizens with crimes such
as espionage.
The decision overruled an earlier one by the lower-level
Foreign Intelligence Surveillance Court, in which seven judges
sharply criticized past Justice Department misstatements in
applications for permission to do secret surveillance.
Administration officials say that the ruling permits what is
only sensible -- greater sharing of information between federal
prosecutors and federal counterintelligence officials.
Thanks to enforcement of "the wall" by FBI lawyers, they note,
pre-Sept. 11 permission to search Moussaoui's computer was not
sought, a crucial missed opportunity to prevent the attacks.
In practical terms, the ruling means that the attorney general
would still have to convince the Foreign Intelligence
Surveillance Court that he has probable cause to believe that a
given subject of a wiretap or search is an agent of a foreign
terrorist group, a standard that is not dissimilar to the one
required for warrants in ordinary criminal cases.
Yet civil libertarians say that targets of such investigations
who end up being ordered out of the country or prosecuted would
lose a crucial right that they would have in the ordinary
criminal justice system -- the right to examine the government's
evidence justifying the initial warrant.
"So the government starts off using secret surveillance
information not to gather information upon which to make policy,
but to imprison or deport an individual, and then it never gives
the individual a fair chance to see if the surveillance was
lawful," Martin said.
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