In a speech at Northwestern University yesterday, Attorney General Eric Holder provided the most detailed explanation yet for why the Obama administration believes it has the authority to secretly target U.S. citizens for execution by the CIA without even charging them with a crime, notifying them of the accusations, or affording them an opportunity to respond, instead condemning them to death without a shred of transparency or judicial oversight. The administration continues to conceal the legal memorandum it obtained to justify these killings, and, as The New York Times' Charlie Savage noted, Holder's "speech contained no footnotes or specific legal citations, and it fell far short of the level of detail contained in the Office of Legal Counsel memo." But the crux of Holder's argument as set forth in yesterday's speech is this:
Some have argued that the president is required to get permission from a federal court before taking action against a United States citizen who is a senior operational leader of Al Qaeda or associated forces. This is simply not accurate. "Due process" and "judicial process" are not one and the same, particularly when it comes to national security. The Constitution guarantees due process, not judicial process.
When Obama officials (like Bush officials before them) refer to someone "who is a senior operational leader of Al Qaeda or associated forces," what they mean is this: someone the President has accused and then decreed in secret to be a Terrorist without ever proving it with evidence. The "process" used by the Obama administration to target Americans for execution-by-CIA is, as reported last October by Reuters, as follows:
American militants like Anwar al-Awlaki are placed on a kill or capture list by a secretive panel of senior government officials, which then informs the president of its decisions . . . There is no public record of the operations or decisions of the panel, which is a subset of the White House's National Security Council . . . Neither is there any law establishing its existence or setting out the rules by which it is supposed to operate.
As Leon Panetta recently confirmed, the President makes the ultimate decision as to whether the American will be killed: "[The] President of the United States obviously reviews these cases, reviews the legal justification, and in the end says, go or no go."
So that is the "process" which Eric Holder yesterday argued constitutes "due process" as required by the Fifth Amendment before the government can deprive of someone of their life: the President and his underlings are your accuser, your judge, your jury and your executioner all wrapped up in one, acting in total secrecy and without your even knowing that he's accused you and sentenced you to death, and you have no opportunity even to know about, let alone confront and address, his accusations; is that not enough due process for you? At Esquire, Charles Pierce, writing about Holder's speech, described this best: "a monumental pile of crap that should embarrass every Democrat who ever said an unkind word about John Yoo."
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I've obviously written about the Obama assassination program many times before but there are several points worth examining in light of Holder's speech and the reaction to it:
(1) The willingness of Democrats to embrace and defend this power is especially reprehensible because of how completely, glaringly and obviously at odds it is with everything they loudly claimed to believe during the Bush years. Recall two of the most significant "scandals" of the Bush War on Terror: his asserted power merely to eavesdrop on and detain accused Terrorists without judicial review of any kind. Remember all that? Progressives endlessly accused Bush of Assaulting Our Values and "shredding the Constitution" simply because Bush officials wanted to listen in on and detain suspected Terrorists -- not kill them, just eavesdrop on and detain them -- without first going to a court and proving they did anything wrong. Yet here is a Democratic administration asserting not merely the right to surveil or detain citizens without charges or judicial review, but to kill them without any of that: a far more extreme, permanent and irreversible act. Yet, with some righteous exceptions, the silence is deafening, or worse.
How can anyone who vocally decried Bush's mere eavesdropping and detention powers without judicial review possibly justify Obama's executions without judicial review? How can the former (far more mild powers) have been such an assault on Everything We Stand For while the latter is a tolerable and acceptable assertion of war powers? If Barack Obama has the right to order accused Terrorists executed by the CIA because We're At War, then surely George Bush had the right to order accused Terrorists eavesdropped on and detained on the same ground.
That the same Party and political faction that endlessly shrieked about Bush's eavesdropping and detention programs now tolerate Obama's execution program is one of the most extreme and craven acts of dishonesty we've seen in quite some time. By stark contrast, right-wing leaders, pundits and bloggers are being commendably consistent: they cheered for Bush's due-process-free eavesdropping and detention programs and, based on exactly the same reasoning, they now lavishly praise President Obama for extending that mentality to assassinations.
(2) It isn't merely the Democratic Party generally and its hordes of adherents who have performed a complete reversal on these issues as of January 20, 2009. It's also true of Barack Obama and Eric Holder themselves.
Throughout the Bush years, then-Sen. Obama often spoke out so very eloquently about the Vital Importance of Due Process even for accused Terrorists. As but one example, he stood up on the Senate floor and denounced Bush's Guantanamo detentions on the ground that a "perfectly innocent individual could be held and could not rebut the Government’s case and has no way of proving his innocence." He spoke of "the terror I would feel if one of my family members were rounded up in the middle of the night and sent to Guantanamo without even getting one chance to ask why they were being held and being able to prove their innocence." He mocked the right-wing claim "that judicial inquiry is an antique, trivial and dispensable luxury." He acknowledged that the Government will unavoidably sometimes make mistakes in accusing innocent people of being Terrorists, but then provided the obvious solution: "what is avoidable is refusing to ever allow our legal system to correct these mistakes." How moving is all that? What a stirring tribute to the urgency of allowing accused Terrorists a day in court before punishing them.
Then we have Eric Holder, who in 2008 gave a speech to the American Constitution Society denouncing Bush's executive power radicalism and calling for a "public reckoning." He specifically addressed the right-wing claim that Presidents should be allowed to eavesdrop on accused Terrorists without judicial review in order to Keep Us Safe. In light of what the Attorney General said and justified yesterday, just marvel at what he said back then, a mere three years ago:
To those in the Executive branch who say “just trust us” when it comes to secret and warrantless surveillance of domestic communications I say remember your history. In my lifetime, federal government officials wiretapped, harassed and blackmailed Martin Luther King and other civil rights leader in the name of national security. One of America’s greatest heroes whom today we honor with a national holiday, countless streets, schools and soon a monument in his name, was treated like a criminal by those in our federal government possessed of too much discretion and a warped sense of patriotism. Watergate revealed similar abuses during the Nixon administration.
To recap Barack Obama's view: it is a form of "terror" for someone to be detained "without even getting one chance to prove their innocence," but it is good and noble for them to be executed under the same circumstances. To recap Eric Holder's view: we must not accept when the Bush administration says "just trust us" when it comes to spying on the communications of accused Terrorists, but we must accept when the Obama administration says "just trust us" when it comes to targeting our fellow citizens for execution. As it turns out, it's not 9/11/01 that Changed Everything. It's 1/20/09.
(3) The ACLU said yesterday that Holder's speech "is ultimately a defense of the government’s chillingly broad claimed authority to conduct targeted killings of civilians, including American citizens, far from any battlefield without judicial review or public scrutiny." The ACLU then added:
Few things are as dangerous to American liberty as the proposition that the government should be able to kill citizens anywhere in the world on the basis of legal standards and evidence that are never submitted to a court, either before or after the fact.
Anyone willing to trust President Obama with the power to secretly declare an American citizen an enemy of the state and order his extrajudicial killing should ask whether they would be willing to trust the next president with that dangerous power.
This is notable for three reasons. First, the ACLU isn't merely saying this is a bad policy; they are instead pointing out the obvious: that there are "few things as dangerous" as having your own Government assert the right to target citizens for death with no judicial process, yet that's exactly what the Obama administration is doing with little backlash. Second, the ACLU is challenging progressive defenders of the President to do what none will ever do: explain why they would trust not only Barack Obama, but also Sarah Palin, or Newt Gingrich, or Michele Bachmann, with the power to target U.S. citizens for assassination in secret and with no judicial oversight. Third, that the ACLU is condemning an Obama policy as "as dangerous to American liberty" as a policy can be -- also known as: a supreme hallmark of tyranny -- demonstrates the huge gulf that has arisen under the Obama presidency between the Democratic Party and the ACLU (a group universally praised by Democrats when a Republican President is in office), though this gulf has been obvious for quite some time.
(4) What's so striking is how identical Obama officials and their defenders sound when compared to the right-wing legal theorists who justified Bush's most controversial programs. Even the core justifying slogans are the same: we are at War; the Battlefield is everywhere; Presidents have the right to spy on, detain and kill combatants without court permission; the Executive Branch is the sole organ for war and no courts can interfere in the President's decisions, etc. I spent years writing about and refuting those legal theories and they are identical to what we hear now. Just consider how similar the two factions sound to one another.
When it came to their War on Terror controversies, Bush officials constantly said back then exactly what Obama officials and defenders say now: we're only using these powers against Terrorists -- The Bad People -- not against regular, normal, Good Americans; so if you're not a Terrorist, you have nothing to worry about. Here's White House spokesman Trent Duffy in December, 2005, defending Bush's warrantless eavesdropping program:
This is a limited program. This is not about monitoring phone calls designed to arrange Little League practice or what to bring to a potluck dinner. These are designed to monitor calls from very bad people to very bad people who have a history of blowing up commuter trains, weddings and churches.
Similarly, when George Bush went before the cameras in December, 2005, to proudly admit and defend his warrantless spying program, he assured the nation that this was all justified because it was only aimed at "the international communications of people with known links to al Qaeda and related terrorist organizations."
Find a defender of Obama's assassination program and all you'll hear is exactly the same thing: this is only being directed at The Terrorists like Awlaki, so we don't need any court review or due process. Here was Holder yesterday: "it is imperative for the government to counter threats posed by senior operational leaders of al Qaeda, and to protect the innocent people whose lives could be lost in their attacks," and assassination orders are only issued once "the U.S. government has determined, after a thorough and careful review, that the individual poses an imminent threat of violent attack against the United States."
This is nothing more than an exercise of supremely circular reasoning and question-begging: whether someone is actually a Terrorist can be determined only when the evidence of their guilt is presented and they have an opportunity to respond, just as Holder and Obama said during the Bush years. Government assurances that they're only targeting Terrorists -- whether those assurances issue from Bush or Obama -- should reassure nobody: this is always what those who abuse power claim, and it's precisely why we don't trust government officials to punish people based on unproven accusations. Here's what Nixon's Attorney General, John Mitchell, said in order to assuage growing fears of new government eavesdropping powers, as reported by this July 25, 1969 article from Time Magazine:
Mitchell refused to disclose any figures, but he indicated that the number was far lower than most people might think. "Any citizen of this United States who is not involved in some illegal activity," he added, "has nothing to fear whatsoever."
We supposedly learned important lessons from the abuses of power of the Nixon administration, and then of the Bush administration: namely, that we don't trust government officials to exercise power in the dark, with no judicial oversight, with no obligation to prove their accusations. Yet now we hear exactly this same mentality issuing from Obama, his officials and defenders to justify a far more extreme power than either Nixon or Bush dreamed of asserting: he's only killing The Bad Citizens, so there's no reason to object!
Here's a critique I wrote in January, 2006, of the Bush DOJ's 42-page whitepaper justifying its warrantless eavesdropping on accused Terrorists. Just read that and you'll see: the essence of the Bush view of the world was that when it comes to war, it is the President who has sole responsibility and power and courts may not review or interfere with what he decides about who is a Terrorist and what should be done to them. The President is the "sole organ for the Nation in foreign affairs," declared the Bush DOJ, and "among the President’s most basic constitutional duties is the duty to protect the Nation from armed attack" and thus, "the Constitution gives him all necessary authority to fulfill that responsibility." Or, as Holder put it yesterday: "The conduct and management of national security operations are core functions of the Executive Branch, as courts have recognized throughout our history" and therefore "the president is [not] required to get permission from a federal court." One cannot reject the Bush legal worldview invoked to justify those programs while embracing the Obama worldview expressed here -- at least not with an iota of intellectual coherence or dignity.
(5) The dubious or outright deceitful legal claims made by Holder are too numerous to chronicle all of them, but there are a couple worth highlighting. He said, for instance, that "the Supreme Court has made clear that the Due Process Clause does not impose one-size-fits-all requirements, but instead mandates procedural safeguards that depend on specific circumstances." That part is true: in the 2004 case of Hamdi v. Rumsfeld, the Supreme Court rejected the Bush administration's argument that it could detain American citizens accused of Terrorism without any process for them to contest the accusations against them, though the Court held that something less than a full-scale trial could satisfy the Due Process clause. But as Marcy Wheeler points out, the Court imposed "due process" requirements that are the exact opposite of what the Obama administration is doing with its assassinations. Said the Court (emphasis added):
It is during our most challenging and uncertain moments that our Nation’s commitment to due process is most severely tested; and it is in those times that we must preserve our commitment at home to the principles for which we fight abroad. . . .
We therefore hold that a citizen-detainee seeking to challenge his classification as an enemy combatant must receive notice of the factual basis for his classification, and a fair opportunity to rebut the Government’s factual assertions before a neutral decisionmaker. . . .
In sum, while the full protections that accompany challenges to detentions in other settings may prove unworkable and inappropriate in the enemy-combatant setting, the threats to military operations posed by a basic system of independent review are not so weighty as to trump a citizen’s core rights to challenge meaningfully the Government’s case and to be heard by an impartial adjudicator.
How can Eric Holder possibly cite the Supreme Court's Due Process holdings in the War on Terror context when the Court has held that citizens -- merely to be detained, let alone killed -- are entitled to exactly that which the Obama administration refuses to provide: "a fair opportunity to rebut the Government’s factual assertions before a neutral decisionmaker" and "a citizen’s core rights to challenge meaningfully the Government’s case and to be heard by an impartial adjudicator"? It's precisely because Obama refuses to fulfill those Court-imposed obligations before ordering citizens executed that this behavior is so objectionable.
If, as Holder argues, the Due Process Clause allows a citizen to be killed based on accusations by the President that are made in total secrecy and which he has no opportunity even to hear, let alone refute, then that core Constitutional safeguard is completely meaningless. And the Supreme Court in the very ruling Holder references leaves no doubt about that, as it required an adversarial hearing before a neutral arbiter even for someone accused of being an "enemy combatant" at the height of the War on Terror.
Then there is Holder's reliance on the old neocon trick: cite what Lincoln did in the Civil War or what FDR did in World War II -- as though those are comparable to the War on Terror -- to justify what is being done now. Thus we hear this from Holder: "during World War II, the United States tracked the plane flying Admiral Isoroku Yamamoto -- the commander of Japanese forces in the attack on Pearl Harbor and the Battle of Midway – and shot it down specifically because he was on board." This argument has been hauled out before by administration officials when responding to my critiques of Obama's assassination program.
Even leaving aside the vast difference between wars posing an existential threat (the Civil War, WW2) and the so-called War on Terror, the difference between the Yamamoto killing and Obama's citizen assassinations is self-evident. There was no doubt that Adm. Yamamoto was in fact a commander of an enemy army at war with the U.S.: he wore that army's uniform and identified himself as such. By contrast, there is substantial doubt whether Anwar Awlaki or other accused Al Qaeda members are in fact guilty of plotting Terrorist attacks on the U.S. That's true for exactly the reason that Holder, in another part of his speech, explained: Al Qaeda members "do not behave like a traditional military – wearing uniforms, carrying arms openly, or massing forces in preparation for an attack."
That's why applying traditional war doctrine to accused Terrorists (who are not found on a battlefield but in their cars, their homes, at work, etc.) is so inappropriate, and why judicial review is so urgent: because the risk of false accusations is so much higher than it is when capturing uniformed soldiers on an actual battlefield. Just recall how dubious so many government accusations of Terrorism turned out to be once federal courts began scrutinizing those accusations for evidentiary support. Indeed, Yemen experts such as Gregory Johnsen have repeatedly pointed out in response to claims that Awlaki plotted Terrorist attacks: "we know very little, precious little when it comes to his operational role" and "we just don’t know this, we suspect it but don’t know it." Given this shameful record in the War on Terror, what rational person would "trust" the Government to make determinations about who is and is not a Terrorist in the dark, with no limits or checks on what they can do?
(6) Holder's attempt to justify these assassinations on the ground that "capture is not feasible" achieves nothing. For one, the U.S. never even bothered to indict Awlaki so that he could voluntarily turn himself in or answer the charges (though at one point, long after they first ordered him killed, they "considered" indicting him); instead, they simply killed him without demonstrating there was any evidence to support these accusations. What justifies that? Additionally, the fact that the Government is unable to apprehend and try a criminal does not justify his murder; absent some violent resistance upon capture, the government is not free to simply go around murdering fugitives who have been convicted of nothing. Moreover, that Awlaki could not have been captured in a country where the government is little more than an American client is dubious at best; if the U.S. could locate and enter the home of Osama bin Laden without the cooperation of the Pakistani government, why could it not do the same for Awlaki in Yemen?
But the most important point is that Holder is not confining this assassination power to circumstances where "capture is not feasible." To the contrary, he specifically said that killing "would be lawful at least in the following circumstances": meaning that the President's asserted power is not confined to those conditions. As Charlie Savage wrote: "Significantly, Mr. Holder did not say that such a situation is the only kind in which it would be lawful to kill a citizen. Rather, he said it would be lawful 'at least' under those conditions." We have no idea how far the Obama administration believes its assassination power extends because it refuses to release the legal memorandum justifying it; there is no legal framework governing it; and there is no transparency or accountability for the President's execution orders.
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In sum, Holder's attempt to make this all seem normal and common should insult anyone with the most basic understanding of American law. As The New York Times put it when first confirming the assassination program in April, 2010: " The Obama administration has taken the extraordinary step of authorizing the targeted killing of an American citizen. . . . It is extremely rare, if not unprecedented, for an American to be approved for targeted killing, officials said. A former senior legal official in the administration of George W. Bush said he did not know of any American who was approved for targeted killing under the former president." To date, not a single such citizen has been identified.
As always, the most important point to note for this entire debate is how perverse and warped it is that we're even having this "debate" at all. It should be self-negating -- self-marginalizing -- to assert that the President, acting with no checks or transparency, can order American citizens executed far from any battlefield and without any opportunity even to know about, let alone rebut, the accusations. That this policy is being implemented and defended by the very same political party that spent the last decade so vocally and opportunistically objecting to far less extreme powers makes it all the more repellent. That fact also makes it all the more dangerous, because -- as one can see -- the fact that it is a Democratic President doing it, and Democratic Party officials justifying it, means that it's much easier to normalize: very few of the Party's followers, especially in an election year, are willing to make much of a fuss about it at all.
And thus will presidential assassination powers be entrenched as bipartisan consensus for at least a generation. That will undoubtedly be one of the most significant aspects of the Obama legacy. Let no Democrat who is now supportive or even silent be heard to object when the next Republican President exercises this power in ways that they dislike.