In the Common Defense : National Security Law for Perilous Times

The United States faces the realistic and indefinite threat of terrorist attack with nuclear weapons. Whether the United States is successful in preventing such an attack will depend on whether we effectively wield the instruments of security. It will also depend on whether we effectively manage national security processes and apply the law in a manner that both enhances security and upholds our core values. As a result, lawyers, not just presidents, generals, and spies, will decide the outcome of this conflict. This book, first published in 2007, is essential for anyone wanting an understanding of national security law and process. The book includes chapters on constitutional law, the use of force, and homeland security, presented in the context of today's threats and as applied to issues like rendition and electronic surveillance. Cover......Page 1 Half-title......Page 3 Title......Page 5 Copyright......Page 6 Dedication......Page 7 Contents......Page 9 Acknowledgments......Page 13 Abbreviations......Page 15 Introduction......Page 17 1 Perilous Times: Describing the Threat......Page 24 A. INVOKING NATIONAL SECURITY......Page 29 B. DEFINING NATIONAL SECURITY......Page 32 C. SECURITY, THE RULE OF LAW, AND CONSTITUTIONAL VALUES......Page 36 2. Constitutional Values and the Rule of Law......Page 37 A. LAW AND SECURITY......Page 39 B. LAW AND LEADERSHIP......Page 44 C. LAW AND LIBERTY......Page 45 4 Constitutional Framework......Page 48 1. Text......Page 49 2. Statutory Gloss and Interpretation......Page 52 3. Case Law......Page 54 B. COURTS AND CONSTITUTIONAL LAW......Page 62 1. Legal Limits on the Exercise of Jurisdiction......Page 63 2. Legal Policy and the Exercise of Jurisdiction......Page 65 3. Institutional Limitations......Page 66 4. Contextual Application of Law......Page 67 C. OBSERVATIONS ON THE PRACTICE OF CONSTITUTIONAL LAW......Page 68 1. Practice as Precedent......Page 70 2. Theory as Law......Page 71 3. The Volume of Constitutional Decision......Page 74 4. Institutional and Political Oversight......Page 78 5. Formal and Informal Practice......Page 79 6. A Few Good Men and Women......Page 85 A. LEGAL AND HISTORICAL BACKGROUND......Page 87 B. THE FOREIGN INTELLIGENCE SURVEILLANCE ACT, AS AMENDED......Page 94 C. WARRANTLESS ELECTRONIC SURVEILLANCE......Page 103 D. EPILOGUE......Page 112 6 National Security Process......Page 115 1. Executive Decision......Page 116 2. Congress......Page 118 3. The Media......Page 119 4. Non-Governmental Organizations......Page 120 1. Formal Framework......Page 121 2. National Security Council Staff......Page 126 3. Informal and Ad Hoc Process......Page 132 C. THE OFFICE OF THE VICE PRESIDENT......Page 135 D. APPRAISAL......Page 137 A. BUREAUCRATIC AND LEGAL FRAMEWORK......Page 142 1. Legal Framework......Page 143 2. Congressional Oversight......Page 146 3. National–Military Bifurcation......Page 148 4. Intelligence Community......Page 150 1. Collection......Page 151 2. Analysis and Dissemination......Page 157 3. Counterintelligence......Page 163 4. Covert Action......Page 164 a. Statutory Context......Page 166 c. Legal Permits and Constraints......Page 170 d. Legal Policy Issues......Page 172 5. Liaison......Page 175 C. EXTRADITION, RENDITION, AND EXTRAORDINARY RENDITION: LAW APPLIED......Page 178 D. CONCLUSION......Page 188 8 Use of Military Force......Page 192 A. THE WAR POWER......Page 193 1. Theory and Law......Page 194 2. The Common Law of History......Page 197 b. Reporting......Page 199 c. Sixty-Day Clock......Page 201 d. Appraisal......Page 205 B. INTERNATIONAL LAW......Page 208 1. Resort to Force......Page 209 a. Self-Defense......Page 210 b. Anticipatory Self-Defense......Page 212 c. From Anticipation to Preemption......Page 216 e. Security Council Authorization......Page 223 f. Humanitarian Intervention and Other Compelling Circumstances......Page 226 2. Application of Force – Methods and Means of Warfare......Page 229 a. Specific Rules and General Principles......Page 230 b. Legal Policy and the Application of the Law......Page 235 C. CONSTITUTIONAL CHAIN OF COMMAND......Page 241 1. Combatant Commands......Page 246 2. Opcon, TacCon, AdCon, and Foreign Command......Page 249 3. Appraisal......Page 250 9 Homeland Security......Page 256 A. THE THREAT REVISITED......Page 258 B. HOMELAND SECURITY STRATEGY......Page 259 C. DECISION-MAKING STRUCTURE......Page 262 1. Presidential Process and Decision......Page 263 2. Sub-Cabinet Coordination......Page 270 3. State and Local Coordination......Page 273 1. Federalism......Page 277 2. The Military Instrument......Page 281 a. Legal Framework......Page 283 PART II SPECIFIC REGIMES AND APPRAISAL......Page 290 A. NONPROLIFERATION......Page 291 B. MARITIME SECURITY......Page 297 C. PUBLIC HEALTH......Page 301 1. Katrina and the GAO Reality Gap......Page 306 2. Toward a Homeland Security Legal Strategy......Page 310 a. Herding the Legal Elephants......Page 313 b. Principles to Inform Homeland Security Law......Page 317 10 The National Security Lawyer......Page 323 A. NATIONAL SECURITY LEGAL PRACTICE......Page 326 B. THE DUTY OF THE NATIONAL SECURITY LAWYER......Page 333 Attachments......Page 343 A. The National Security Council (NSC)......Page 347 C. The NSC Deputies Committee (NSC/DC)......Page 348 D. Interagency Working Groups (NSC/IWGs)......Page 350 Organization of the National Security Council System National Security Presidential Directive NSPD–1......Page 351 1. Perilous Times: Describing the Threat......Page 361 2. The Meaning of National Security......Page 362 3. National Security law......Page 363 4. Constitutional Framework......Page 364 5. Electronic Surveillance: Constitutional Law Applied......Page 365 6. National Security Process......Page 369 7. Intelligence......Page 372 8. Use of Military Force......Page 377 Discrimination or Distinction......Page 381 Basic Rule......Page 382 9. Homeland Security......Page 386 10. The National Security Lawyer......Page 395 Index......Page 397 Cover 1 Half-title 3 Title 5 Copyright 6 Dedication 7 Contents 9 Acknowledgments 13 Abbreviations 15 Introduction 17 1 Perilous Times: Describing the Threat 24 2 The Meaning of National Security 29 A. INVOKING NATIONAL SECURITY 29 B. DEFINING NATIONAL SECURITY 32 C. SECURITY, THE RULE OF LAW, AND CONSTITUTIONAL VALUES 36 1. Physical Security 37 2. Constitutional Values and the Rule of Law 37 3 National Security Law 39 A. LAW AND SECURITY 39 B. LAW AND LEADERSHIP 44 C. LAW AND LIBERTY 45 4 Constitutional Framework 48 A. SEPARATE AND SHARED POWERS: SOURCES OF CONSTITUTIONAL LAW 49 1. Text 49 2. Statutory Gloss and Interpretation 52 3. Case Law 54 B. COURTS AND CONSTITUTIONAL LAW 62 1. Legal Limits on the Exercise of Jurisdiction 63 2. Legal Policy and the Exercise of Jurisdiction 65 3. Institutional Limitations 66 4. Contextual Application of Law 67 C. OBSERVATIONS ON THE PRACTICE OF CONSTITUTIONAL LAW 68 1. Practice as Precedent 70 2. Theory as Law 71 3. The Volume of Constitutional Decision 74 4. Institutional and Political Oversight 78 5. Formal and Informal Practice 79 6. A Few Good Men and Women 85 5 Electronic Surveillance: Constitutional Law Applied 87 A. LEGAL AND HISTORICAL BACKGROUND 87 B. THE FOREIGN INTELLIGENCE SURVEILLANCE ACT, AS AMENDED 94 C. WARRANTLESS ELECTRONIC SURVEILLANCE 103 D. EPILOGUE 112 6 National Security Process 115 A. CONSTITUTIONAL FRAMEWORK AND OVERVIEW 116 1. Executive Decision 116 2. Congress 118 3. The Media 119 4. Non-Governmental Organizations 120 B. PRESIDENTIAL DECISION-MAKING 121 1. Formal Framework 121 2. National Security Council Staff 126 3. Informal and Ad Hoc Process 132 C. THE OFFICE OF THE VICE PRESIDENT 135 D. APPRAISAL 137 7 Intelligence 142 A. BUREAUCRATIC AND LEGAL FRAMEWORK 142 1. Legal Framework 143 2. Congressional Oversight 146 3. National–Military Bifurcation 148 4. Intelligence Community 150 B. THE FIVE INTELLIGENCE FUNCTIONS 151 1. Collection 151 2. Analysis and Dissemination 157 3. Counterintelligence 163 4. Covert Action 164 a. Statutory Context 166 b. Executive Process and Review 170 c. Legal Permits and Constraints 170 d. Legal Policy Issues 172 5. Liaison 175 C. EXTRADITION, RENDITION, AND EXTRAORDINARY RENDITION: LAW APPLIED 178 D. CONCLUSION 188 8 Use of Military Force 192 A. THE WAR POWER 193 1. Theory and Law 194 2. The Common Law of History 197 3. The War Powers Resolution 199 a. Consultation 199 b. Reporting 199 c. Sixty-Day Clock 201 d. Appraisal 205 B. INTERNATIONAL LAW 208 1. Resort to Force 209 a. Self-Defense 210 b. Anticipatory Self-Defense 212 c. From Anticipation to Preemption 216 d. Protection of Nationals 223 e. Security Council Authorization 223 f. Humanitarian Intervention and Other Compelling Circumstances 226 2. Application of Force – Methods and Means of Warfare 229 a. Specific Rules and General Principles 230 b. Legal Policy and the Application of the Law 235 C. CONSTITUTIONAL CHAIN OF COMMAND 241 1. Combatant Commands 246 2. Opcon, TacCon, AdCon, and Foreign Command 249 3. Appraisal 250 9 Homeland Security 256 PART I HOMELAND SECURITY DECISION-MAKING, RESOURCES, AND LEGAL FRAMEWORK 258 A. THE THREAT REVISITED 258 B. HOMELAND SECURITY STRATEGY 259 C. DECISION-MAKING STRUCTURE 262 1. Presidential Process and Decision 263 2. Sub-Cabinet Coordination 270 3. State and Local Coordination 273 D. THREE WHOS: WHO DECIDES? WHO PAYS? WHO ACTS? 277 1. Federalism 277 2. The Military Instrument 281 a. Legal Framework 283 PART II SPECIFIC REGIMES AND APPRAISAL 290 A. NONPROLIFERATION 291 B. MARITIME SECURITY 297 C. PUBLIC HEALTH 301 D. APPRAISAL 306 1. Katrina and the GAO Reality Gap 306 2. Toward a Homeland Security Legal Strategy 310 a. Herding the Legal Elephants 313 b. Principles to Inform Homeland Security Law 317 10 The National Security Lawyer 323 A. NATIONAL SECURITY LEGAL PRACTICE 326 B. THE DUTY OF THE NATIONAL SECURITY LAWYER 333 Attachments 343 Organization of the National Security Council Presidential Decision Directive PDD–2 347 A. The National Security Council (NSC) 347 B. The NSC Principals Committee (NSC/PC) 348 C. The NSC Deputies Committee (NSC/DC) 348 D. Interagency Working Groups (NSC/IWGs) 350 Organization of the National Security Council System National Security Presidential Directive NSPD–1 351 Notes 361 1. Perilous Times: Describing the Threat 361 2. The Meaning of National Security 362 3. National Security law 363 4. Constitutional Framework 364 5. Electronic Surveillance: Constitutional Law Applied 365 6. National Security Process 369 7. Intelligence 372 8. Use of Military Force 377 Necessity 381 Military Objective 381 Discrimination or Distinction 381 Basic Rule 382 9. Homeland Security 386 10. The National Security Lawyer 395 Index 397

The threat of terrorism places U.S. national security police at the crossroads of security and liberty. This book focuses on the legal issues surrounding the war on terror. This book is essential reading for anyone who wants an honest review of the law and an accessible understanding of how law relates to U.S. national security. This is also a book about national security government and why it is dependent on good process and the moral integrity of those who wield its power. This is at heart a book about the process and practice of government and what we should mean when we refer to "good government."