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https://clinton.presidentiallibraries.us/files/original/f0e86c4ff8b203d193077d25efda1561.pdf
43f85652a5176bb7f16632e6fe476149
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WithdrawJl/Redaction Sheet
Clinton Library
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DOCUMENT NO.
AND TYPE
SUBJECTffiTLE
DAH:
RESTRICTION
001. memo
From Richard L. Shiffi·in and Paul P. cLborn to Walter Dellinger.
Subject: Cutler Memorandum on Exedtive Privilege. (3 pages)
10117/1994
P5
002. memo
Michael Small to File. Subject: Foreign! Relations Authorizations Act,
Fy 1994 and 1995/ Presidential Signing Statement. (9 pages)
05/06/1994
P5
COLLECTION!
~~:~~~~~r~;~~:tial Records
Cliff Sloan
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OA/Box Number: 4577
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FOLDER TITLE:
Presidential P6wers- Signing Statements and Vetoes [I]
2009-1522-f
bm748
RESTRICTION CODES
~
Presidential RecordJ Act- 144 U.S.C. 2204(a)]
Freedom of Information Act- 15 U.S.C. 552(b)l
PI
P2
PJ
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b(l) National security classified information l(b)(l) of the FOIAI
b(2) Release would disclose internal personnel rules and practices of
an agency l(b)(2) of the FOIAI
b(J) Release would violate a J<'ederal statute l(b)(J) of the FOIAI
b(4) Release would disclose trade secrets or confidential or financial
information l(b)(4) of the FOIAI
b(6) Release would constitute a clearly unwarranted invasion of
personal privacy l(b)(6) of the FOIAI
b(7) Release would disclose information compiled for law enforcement
purposes l(b)(7) of the FOIAI
b(8) Release would disclose information concerning the regulation of
financial institutions l(b)(8) of the FOIAI
b(9) Release would disclose geological or geophysical information
concerning wells l(b)(9) of the FOIAI
National SecuriJ Classified Information l(a)(l) of the .PRA]
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Relating to the appointment to Federal office l(a)(2) of the PRAI
Release would viJiate a Federal statute l(a)(J) of the PRA]
Release would diJclose trade secrets or confidential commercial or
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financial information l(a)(4) of the PRA]
PS Release would diJclose confidential advice between the President
and his advisors, ~r between such advisors la)(S) of the PRA]
P6 Release would cohstitute a clearly unwarranted invasion of
personal privacy i(a)(6) of the PRAI
C. Closed in accJrdance with restrictions contained in donor's deed
ofgift. .
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PRM. Personal record misfile defined in accordance with 44 U.S.C.
22ot(J).
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RR. Document will be reviewed upon request.
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�Me;morandl:lm
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Subj'ec;L
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Outler Memorandum on Executive Privilege
October 17, 1994
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'Fo '
From·
Walter Dellinger
Richard L.
Paul P • Colborn.J'k.
I;
Shiffrin~~
. This memorandum su·rnrnar izes our concerns about the attached
Sep:tember 28, 1994 memorandum· to general counsels from Lloyd
CUt-ler. regarding documents !protected by executive privil_ege.
1
. 1.
Has been converted into a White House statement on
privilege generally. Th~ purpose of the original
~r~fts.of the memorandum was simply to inform the agencies of the
V{h~t~ House policy of exerqising control'over certain. types of
documents and to set out the procedures that should be followed
when congressional requests to the agencies encompass such
documents. Between the last time we reviewed a draft (June 14th)
. and' the time it was issued l however, the memorandum's subject
~ine was changed -- from "¢ongressional requests to agencies for
documents originating in the White House, delivered from the
~hite House to an agency, br concerning White House-agency
(iie+iberations" to "Congres~ional Requests to Departments and
Agenc'ies for Documents Protected by Executive Privilege" -- and
~ ~ery brief background di~cussion of executive privilege was
significantly expanded to /include broader issues and statements
bf;Administration policy for the entire executive branch. The
result of these two change/s is that the memorandum has become a
White House statement on executive privilege generally. This is
problematic because the memorandum contains so many statements we
disagree with and the document could be cited by Congress as a
·dispositive executive bradch statement.
ex~cutive
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2. May be viewed as /narrowing the scope of executive
,privilege. The most probllematic specific part of the memorandum
is; the discussion in the second paragraph of what is protected by
executive privilege. we are concerned that the memorandum's
en:umeration of deliberations. and communications that are covered
b~ the privilege could be/read to be an exha~stive list.
A~though we believe that ~he intent of the drafters was that the
memorandum would only control the disposition of White House
documents and commuhicatibns between the White House and the
agencies, a broader interpretation that.the memorandum
definitively describes th~ current President's view of the scope
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CLINTON LIBRARY PHOTOCOPY
�of ~x~cutive privilege could be based on both the specific
wording of the first two se, tences of the paragraph ahd, the
context that the discussion is part of a document whose subje
i~ described broadly as "do9uments protected by ~xecutive
p~i~ilege" and part of a wi~e-ranging discussion of executive
p~i~ilege principles and policy that is not limited to White
.H6u~e interests.
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Because the enumeration omits at least two major categories
·of documents protected by ekecutive privilege -- intra-agency and
non-White House inter-agency deliberations and other confidential
c9m1nunications -- it will b~ necessary to issue a clarifying
statement. This is of vitaA importance because the two omitted
' cat:egor ies, especially the [intra-agency category, represent the
k!ind of documents that are most often subject to congressional
requests and therefore the most frequent subjects of executive
p:rivilege· concerns. Absent! a clarification, we would expect
c,brigressional committees td respond to agency attempts to protect
the confidentiality of int~rnal or inter-agency documents by
c/i ~ ing the Cutler memorandJm and demanding immediate .
unc;:onditional production on the grounds the ~ocuments are
dot within the scope of ex~cutive privilege.
In~orrectly
execut~ve
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statijg that
privilege always
operates as ~ gualified privilege. The third pa~agraph states
~hat "[e]xecutive privileg~ must always be weighed" against the
~nterests of the requesting coordinate branch of government.
]his statement is inconsistent with the long-established
executive .branch position that the state secrets component of
~xecutive·privilege is an absolute privilege, which means that it
is: not weighed against the[ interests of the other branch. The
ba-lancing referred to in the memorandum only arises in connect.ion
~ith qualified privileges,fsuch as the deliberative process and
pr'esidential communications components of executive privilege.
'e also question the inclu~io~ in this paragiaph of a reference
to balancing of "the judic~al need to obtain relevant evidence,
~~pecially in criminal pro~eedings.· Judicial needs are
f~relevant, of course, in the congressional context (which is the
subject of the memorandum)[, and the reference only adds to the
appearance that the memorandum is a broad statement on executive
~~ivilege generally.
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4. Misleadingly suggesting what is "usually" done by the
courts. The fourth paragtaph states that "[i]n the last resort,
this balancing is usually 6onducted by the courts" and "the
bourts usually decline to /intervene" until the accommodation
~tocess between Congress and the exec~tive branch has failed to
:resolve the matter. Thes~ statements are misleading because they
~~ggest that the courts h~ve a significant role in ~his area;
Ito the contrary, the courts historically have had quite a limited
r~le and there a~e politidal question and other justiciability ·.
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CLIN1iON LIBRARY PHOTOCOPY
�iss~es that necessarily limit their role. The statements are
a~SQ incorrect: (1) the ba~ancing is done during the
adcommodation process by the agencies and congress and at the
e~ecutive privilege stage by the President, and in only one case
(Senate Select Committee oniPresidential Campaign Activities v.
Nixon, 498 F.2d 725 (D.C. Cir. 1974) (fill bane)) has a court ever
b~lcinced; and (2) it is incbrrect to say that the courts "usuallY
d~cline to intervene" becau~e there are too few litigated cases
f6r!anything to be "usual" ~we're aware of only three cases:
sEi!na·te Select Comrni t tee; United States v. American Tel. & Tel.
Co.; 567 F.2d 121 (D.C. Cirl. 1977); United States v. House of
Reptesentatives, 556 F.Supp. 150 (D.D.C. 1983)).
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· CLINTON LIBRARY PHOTOCOPY
�011/27/91' ; 16:1'
-Memorandum·
Dellt-nge;r JohnSE!t~
Po¥1e 1:~ ·
:Roseborough
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Subjec:t -
(~1)(12
OLC
tt202
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st~i:ffr:ln
R.F'ile
R.et. l SMAU.-~~) 1-::!!!d/!':i!~l.~ t:h
Murphy
File
Sm:::.l
.
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--···
Dut.~
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:orie ign /~ela~~ons .~·Jth:~~ i z~tio~ Ac~, F'Y 1994
..,nd 199 ... /Pre~Identl !l ,,1gn1ng .:statement
t5~
!1ay
199!1
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...
To
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From
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Office of
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Michael .sma::. .l
File;
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r.~~gel
Cctm!;:e:t
on. Apr i 1 215, 19!U\, Hary Helen Carlson of' :.he: .st.9.te Def·''~ .t".:Jr:en 1:.
Legar Aavl.ser' s .. Office a:::.ked !OLC to review a d:r.·:-~ft- proe;;;5.,~e:·.:c.;i.a1
si1;nling staternent th:1t. h1~r. Of~ic:e had prepared in connection "l'i'1.th
the 'Foreign Relations. Authorization Act . Fisca.l Yer.)rs 1994. r:me 1995
(the '".~ct."').
c·eputy As~~istanr- At.torney.General 1?-ic~llard Shitfr.tn
!ind I~ reviewed the ·ira~: t signing state!Tlen t ~ ~1.~: . well as t.ru;: ,e1ct
· itself. We prcn.dded :orrJrPents to Ms. carls.on and t(1. n~present;atl ves
.:;f the Office of f.ianagement land Eudg·et. (DCIIl<tD'') ir:. <a serio::~.s of
tele;phone cc,nversations on ~.pril 27, April :za,, nne! Jl.prn 29,. .1.99'4.
sent the Sta·:e .r:.~~partment some sugges~:ed ~e·;;·is.i.om:. ·:o trte
·;~e ~l,so
:;ig-r~ing
.::omrrl~nts.
statement.
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This
surnmar:tzt~~~'
memrJrandum
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c;w: prj.n(:ipr.~.:!.
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The subject matl:er of the comments fell .r.r:t.o· t'''o cc;.~te-qo•· ies:
( i) provisions of the Ac-:.: that I argua.bly in tr.ude on thti: P.~·es idi:!n t' ~:
constitutic•r.al aut.ho1:ity to conduct the naticm.' s :'~or~:lign affi:tin;;
i9.nd I;( i i) Appointmenl:s Clause! and general sE:!p&r;~t ion ·~f p.~_,r,..re:::-s
•:onc~rns with respec~:
t''
provi!si.ons of the Act; t.J1;~t. ~.:1e;.ta.bli~~:·~ nr..-~r
t~nt ~ties with in the Jn i :..ed States Information A.ge~r•CY ( "rJS IJ'." J 1:.0
d•
l or.oa d cas t ..,.ng ;o.n:.. t 111 t .l'1,~f.=s . o. t. h.e U .!:>.
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r:::oo~. 1na t e .. i n t erna t"
·:ona. •
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gave rnmen t .
t.
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·,vces iden..t~~;:hot_i.ty With ~ewef;t to_Jc.'lretun__~ffe:;j,J:~~
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carlso~i s.e:~ii~
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tThe draft signirg· staterne nt t.hat M.s.
t\::: on ,\1.pril
26 £dentified a number of provisions in the Act; ·tnat argt.:abl~"
Lnt~i.lde on the President's cbnstit·utional autJH:>:t.ity to c:ond,..;.ct.
fare'ign affairs,, Our coruments[ focused on partJ~ of tr:.e Act dE.~i~ling·
·;ll'i trl· (a) Tibet.; ( b} Uni t.ed States pa:rt i.cipat icm :~n Lntt~ t·na.UorH3l
flndncial orga.n:lzath~ns; and (:c) presidential 6-et.{~rmin~t.ion~• 1.ri.th
::-espect to persons wt1c· Cl::.ntri.bute to nuclear prc1li ::eration tt1~·ou9h
th.e(provision of fit'lt:t!'l.c.ial as~istance.
.
--------------------- (~li:r.1t:on
1.l
!?resident
signed th.a Act int.::-; law on A..ptL. 30,
<:lnd ~~issu~d a ~3ig·ning sti.i.temend. We: did not st::~.e. ~:he fina.l ve.~ aic~n
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cf · tthe Slgn:i.ng
~tater11elll:.
CLINTON LIBRARY PHOTOCOPY
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�U202 5.14
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Section 221 of t:he Act states .that the IH reetor of
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Tibet~
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shall seek to establish an office in r,ha.sa,
Tibet 1 for the purP9se of ( 1) dissemi;·lat.tng
infcl!.·matio;-t s.::)c~l~t. the united state:;;: 1~}
pto1noting ;Usc::ussi.ons on conflict r-eso~.\J.tion
and human .ri;Jhts; /P) · fac.i..li tat ing U!i it:~d
States
p:1va1:a
sector · 1nvolvament
1n
educationa.:. a1~.d cult~ral activities i.n 1'ibet;
ar:.d {4) ad·i'isii·tg theiUnited States government
with respe(~t ~·''Tibetan public opinion ..
is, of COtlr'SE
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part I of the People'S Rep\.tt,l.ic
of
(:r.:i.n::.t.
In l~ght of the sensitive nature of u~s. foreign relations ~ith
::hina: -- es-pecially '1riU ·respebt to the stat~.~~ \)f Tioet n.i:.cl ht.uni:tn
:~i9'hts iSSU~'!S there -- the draft. s.igning Si:.(~·::.e·menl:. 'ide:nt:. :~ii?.d
5ect/ion 221 as a poterttL::1.ly trbublesornc::; provisi.•:>n.. J:n part.ic:..:.l.a.r,
i:he s:igrl.ing statement r1oted th4t Section 221 co1.JJ.d be const:-ued .'liS
:=-equ/i'ring tl1e !)resident to establish a US:i:A office ln 'Tibe·t ·~·i t.li.Oi.:t
tl1e consent of China. Ac.ccrdingly, the signing .:n:atement t.ook t)~le
po5i t;ion that sectior. 2:21 woulf have to be implern~;•nted c~on..;i5.te:.·Jt
vi th :the Presi.d.ent' s fon~ign affairs responsibil!.ti,as.
1
;we told Ms. Carls'm thaJ we agreed \':hat se.:::ti<:m 221 I_:'.•!x;ed
;.,.-i th respect to the P:res ident' s conduct. l)f
fore~gn relations with Chlna a~d his hand~ing of the Tibetan lssue.
We a!lso pointed out that anot.har provisic:m of thE:~ A:~t, Secti.cn 2313-.,
-::::ouJ. 1d be rec-ld a.s requiring the USIA to take certain action ;.;·~-·:h
.1:-esp1~ct to Tibet, but. th.:~.t i t ~ad not been ident.if.~ed in tne O.::·c~.~t
:~igr.>.lj..ng statement.
Sec::tion 236 states thac. t.l'~e:: C>it·'::cto-: 4:>f the
USI~1 1 "shall establish proqrams :of ed~·caticmal anc cultural exchanqe
bet·o~~:~en ttH~ Un~ ted St.~tel~ ari? ~he people of li.be~~." _lilre adv·is~~d H!i.
carl~on that .Lf Sect 10n 22.1. was to be mentloned Uj the s1gtd.r\ij
::;tad~rnent, the·n so tno ~;hou.Jdj Sec~ion 236.
5u~:~seque:-tt draf't.J. i)f
':he J·si<;ning s1:atemen: gr-~uped sections 221 t.U'\t:l. 2-:>6 toget.ht~r and
said that both.provi.!:imw wou]d have to be imp:..emE:nt.ed consisl:ent
·-.;ri:.h~ the PresidE:mt's const1t.utional res·ponsibi:'.it:.ies.
-::onslt i tuti_onal concerns
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Inter(atipnal B insn.cial Or.gani zst!;iJ;,!lJ~
52~(a)
f Section
::tat:.E!s thit no e'unds made ;:s.-:lailable to c:.l;,r:ry
out /the Act (as well as the Foreign Assistance Act c·f 1961 or t~.·1e
Arms control ~:<port Act) inay I be provided to a c~;untry th•:~t. l:1as
eKpropr iated property balong~ng to a "United ·States prarson.
5e.ction 527 (b) stat(!S r.:ha-t, · ~he President shall iristt·uct :; .. S.
i:"eoi-esent.atives at mu:Lti:.atsral development banks S:~1d i.nternat:li:'lni:l
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financial institut1cm~ to yote aga1ns t any ioan ar ot1er
:Jt.liization of' the f\md::; fo-r the benefit of ~my c.ount:.ry r;hat h;ss
expropriated u.s. pr.opei-:-ty, unless .th~ · financta.}. assU-.:tanc•:!• in
·q,.testion is directed to the basic hum::m.I\e~ds o1: c:iti.zer.. s t:)f ·:h;:~t
H
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CLINTON LIBRARY PHOTOCOPY
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country.
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draft s1gnin11 stat,ernent said thae. Section .
···purport [s] ::;pec:ificc;lly to C.i~ect the Preside:~t hCIV.' to proceH:::i i.n
nego~iations w:lth :nte::r:.atioFJ.al organizati:;.ns,. · .a.nd rrd.gr.t:-. :t1e
:::or;sf.rued to requir·! t1."1e e>:e1
cutive branch l:O ·~:S:lX>us:r~ (:~;:-tain
::;ubs~:antive position:~ r':~gardirtg specific issu.e5. ·· P.s s:..tch., t~e,
.:~raft conti:'l.ued, Seci:ior: 527 (bl) co·..!ld be :\.nterp:ret..:.:d c-ts hinck:ri:ng
:he ~xercise of the d.Lscretion that the Constit~tlon bestows or t~e
i?res:ident in the concl.1ct c)f foreiqn affairs. 'l'l1.t~! draft stat.:<: th:.t
:ct ·afoid tr.is result, Se.::ticn S2Jlb) wc.~~.1.d be com".tn1ed as: I11€!1raly
"precatory.
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We to~d ~l·s. Carl ;on that we agreed. •.d th tht-: st.,:~.te: Depa ;:·:::.:rhE•n't' s
·:?OSition with respect to Secti6n 527(b). We point~~d out·-, :t·Kweyer,
,!!';:
n·
.
that .Sact1on 823 of ':l~e A.ct I raised similar o:rncE~:rns re~·;;ardi:~tg
presidential aul:hori:.y c.·:,rer th~ u.s. role international fi.nc!nc:L.al
institutions, but that· i t had not been identified ~n ~he 6raEt
s ir;nlirn; statement.
SecU.on 823 states t.hat. t.rte r:>e.cret<.,ry· ,,f
~l'realsU,ry r.;.hall inst·~uci: u.s. represen.t.atives. of ~11tecna1ti•.:ln·;il
::i n~ncial inst Hut icr:s t1:• vote again.s t the use !)f ti'le ii"lst. i tut. .:.• :ln.:s'
::unds ,for \:he purposes o.r assisti11g acquisition of nuc;:J.ear ·we~~~po-r1s
:(ncrc~rials. r,ie advise•l M~l. Car1lson that if 527(b) rn.e·d.t.e·d at.t.ent:lQ-n
.\.n ~h~ s.l<~ling s~ati~men~, sol too di~ Secti•.)n 8:.1~.. Sub~:;eqw;::~1t
drafts o.f tne s ign1ng st6.~~ement grouped. the two pr•O\i lS :torts toge t.h,?.r
a.nd said that both p~·ov i ~~ions would be treated a.s ptE!Cotory.
c.
:Pres identir:~l ·r.·f-!t.erminations: Financial b.i.C. for
;tL~J..ear P:rolif.flrat ion
·-·---·--·-.. ---·
c~ntered
Much c.t: j:'lur att ent :..on
on Section 024 of the
·;,hi-rhl in our view, is ti:l·~ pr-o~ision of the legi.SliiU.on that
i:.he r.:tost signit:icant. cor.&~tit:utional Issw~s.
.
Section
824(a)
and
(b)l
pr9hibi.t
:i ur}s~i~tion of the .OnU;~d States f.rom
nny
pe·r.~5c:n
,;~c;t,
rose:s
within
t:1e
cont.rl.bul:.ing t1) nucl~~.u
pro:p~eration t.hrou~;h t.he ~r-bvi.sion of flrte1nc.i.al. as:.si.~it.~trl<;r~:w
.Section 824{c) stab!S ·;.hat ·''tiJf the Presi.d.ent claterm~:rtf~::z . in
·;.,.ri ~ir.g after opportt:n ity for he.aring r:m the n:!,:::o:cd, tha.t C:\ tin:.. LE.!d
;;tates pers,::~n or a foreign person nas; enq-a9eo! in prc)hib i t.ed
acti v'i ty • • , the Presi,;l.ent sh;:Jl.l, by order f impm;e the sar..c:t ions
desbiibed in [$ectior 824(d)Jlrl In turn, Section B24(d) lists the
':1-anct:,ions that. .. shall be impos ed purs.1.1ant to a:ny or.:te1~ ise::1.1ed \JTHi~r
[SeCtion 824(C)]~,. . Tht::tse senctions are l!l. ~an em de.al.i.n.~ti: i.n
-;~over::nment finance, a.nd a prot.~1ibition on ''l'iormnenc [ ingJ .a.ny U:ne -of
,;:,•Jsliness in the Uni t1;:d Sitatesi in whic·h. t".h.e per-son ·wa.s not. ertg·'l9·..;!d
as of the date of the o~jer~ Ar on "conduct[ingl any busi~ese f~cm
anyl location in tne Un.l. ted .States at 'l>rh ich tl;,e pe:rs:c:n di~ nc~t
::;c•nduct bus l.ness as of :.he date of the order.
Sect. :Lon 8..:~4 ( e·)
prdvides for. judicial :reviewl of orde!.·s issued .b·/ the Pn;s~.dt;.>.nt.
u.ndet Section 824(c} •· :Sect,on 824(b} permits t::-,e Pn~sident. to
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CLINTON .LIBRARY PHOTOCOPY
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'6'202 5Joi 0563
·~waiv e:the continued at>~licat~Qn of any sanct.ion impoged •::>n
1~er~~1n i pursuant
c~~~der ~ss~~ed under ... s~t,s.ect~i.c::~';., (cJ i.;f_ :::~:e
a1d cer~..~fJ.eS in wr1tlng t..) .. ,le com;re.~.:.,
1t"!1e continued in~po::>Jtion of t.he sanction \l:c_~ul,:. l':f.ve a serl.<iiJS
:!!d~verlse effect. on the,·. -~:afety. and soundness of the~ d(.m,es':. i ::: (lr
i nter. nat ional financ iO!l syste~ or on doroest tc or i.nte;::n.at..'.l.':>Tli:!l
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that 1
to r:n
.l.res_ d,.nt det(?.~mines.
payments systems."
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l~,s.
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t~at ~ection
carl7on told. u.c:;
824 ·was an.
~1e·.re:1~J:J.
I"Jot:.r
~dd1t:1on to tne Act~' and tnat 1t caught the .r..dn;.mlstnatlr.m. o:ff
·JUa::q.: :We also lear:'led that s9me .Tnembers of Co!is·r~~ss, ino:::lu:Lng
Rep. Lae Hamilton, Cllilirnan of t he House Foreign .1'-t:f.:·:airs corr~,ittee,
had ~xpres.sed misgi\,inc:r:~ abou~ Section 824, a-r1d th~t ':hE·V tve:~·e
1vill~ri.g to seek to mX!ify the provision at the ·ezrlies~ pr..i.ss.ibl.(:;
~late.l · The draft signincl stat~'ment not.ed thest; r;::,iir.ts.
It a:.:;o
identified substantf·.1e :;:b.je:ctibns to Section a.:14., inchtding t1."1e
rather extreme sanct:.on.s: i:1 :Se~tion 824 (c) and r..:he prov is i·:Jn f(:.r
j ud:i t1ial review of p:~es j.de.nt iai action.
The d.r.::,f!:'. did not c ~)Ltt;:h
U1ese!objecticns ·in c:ons,:.itutional ter-!T;s, hao-...'e•.J·~r. 'Tl:'le tir..-;;(ft. did
~;tate· that the ·:.)res ic .ent tal deterrrd.nations in sec:U·:::•r. ·8-:2-4 (c) •.rEi~ re
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discretion-ary. · ., Ms. CarJ::::on tolo l.JS that the St.;ttE~ De~partrr.~2nt h;:.d
take~; this oosition o:n U:e th.eor~~ that the provisi.on wc~tl.l~:~ be
·.mcaAstituti.onal if it mandated that the Pres ;.dent make ti~Le
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detet~ination.
l:ruchar"d
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Section f':24 wH.h · Depu·:y
Powell, ancl~ in a s,~pa::·r.r:e
(;;omrersati'on r with A1an ::.-.rezcRo, the i:.regal Ad·.riser to tl'';E! N'at i ::miS.l
Security council. . we all agreed that the pro'! iS iNl calling Cor
judibiaJ.
review
(If'
the I presidential
det(;~nr.tina';:ion
";as
e.xtr~ordinary. Richard and I told Ms. Carlson u·:at ·~re were un.f.t'JEl:te
~)f ahy corr.p;.:;.ra.ble pr~;i'Vi~Jlon. 2 ] More .t:o the point.r W!~ stated ;:l1<:.t
th.e p:-ovisicn arguably interfered with the Pre~;id~:.nt' s condl.l.ct:. c:,f
~ore·~'Jn a.ffail:'s.
Y•\lt., in the absence of judic:.aJ. r•.:P,ie-w, t;l:ie
·~·x!:r¢m~ sanctions cor; ten plated in Sect. ion 824 {c) u1.i9'ht the111se ].·v,~s
:::11e Uf1Const.i.tutiona1. 3. Ar..Ct even witJl judicial·revie\.;, a c·c.urt P.~i9ht
:"Iv':. : l..!Pho1d the sanctJons.
!
As for the· ques·.:ion 'l.it'iet.1")er tt1e Pre.sid.ent. t1as r:l.iscre·clc:!,. -:.o
Jtake the deter.rn.jnaticn, \l.'e told Ms. carlson that i.t~ l'it:1S l::te€~n m,c· s
~;1os.i.\ion that statut,:•ry langua:ge calling on. t~1e President to m;f<.e
·r:m:·eign policy-related "determinations" that lead tc1 the impos-: ·: :.:111
A.ssistant
Shiff:ri :1 1md I
Attorney
General
Jleff
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Mr. Krezck(> a:L.ao said that he 'IJas una~.r.::trE:J of al').:Y
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·:)ro·v:l.s ~on.
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3~c::tions
b~n
b~s:ixes:s
3
o::e of tb_e
ls a
OJ?- e17r.-a:r::·j.ng. 1?.-.L\.l!:
in
••r.l"dch the oerson on ·"'bl.c~::t. the s<:::.rt.ct.1.0n .:ts l.ilt}:':·Ol~lf~C. p:z:·evl.0\.1.sly h.~d
no":.lbeen engag·ed.. !n ou:~: •Jiew, this could be
.
-·~;...
-:ieprl.vat ion o.f .t .~...~,.,.9r;::y ~~~~.a t a k'
1ng ..
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CliNTON liBRARY PHOTOCOPY
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..;)f sanctions is !lQ1 c.iscretiori.qry."'
;ore
ha\;e
reviewed on tl1.is
Apparentlyr ei:;ch statut.
subject also cont8.1n~ · ~oro. ~d
p:rc:wisions th~:tt pertd.t t.he Pt.. e! s.ident to avoid trnttosJng sane·:: ·ons
altogether if h•~ con(:lud~~~ til.at it is in the n;:tirma: ir:ter~-~~t
do so.· Th~~ existence of :.;uch -w-~:lver provisions :·1as :t•e~~:rt c:ent:::-.~;.1. t:c•
our lanalys is.
We h ~ve stated that those prc·vis ic~n~ ·..r~uld h1a~;e
littil.e: meaning if t·1e Presiceh·,t has a:iso hiSid ·w·ldf,· :'..at:it.u~:.·fl· t.c•
:.eel line to make determi.n ~:.t ions [in the first inl;tan.ce ~ Mor·er)V~!~' r ;•e
havel ·Said that t.h\~ :nroed waiver ptOViSiO'tiS a11ev·i.at..:·j tr·,e
c:ons~ft~tion-aJ. .:once::n that 1.rould otherwise ari.s•~ · fr<>T!I co·;1st:·ui.~•g
t.he pr:esider..tial det~~rmil~jation [provisions as mand.atm:y. In sho:rt.,
the waiver pr·c,visiofl: ·1avF.~ the P-resident const.:. t.ut.ic·1ia.J.J.y .su.ffj.L·.i,?.nt
disc[r:tion tl? conduct. foreign .affairs because :r.e ca.n ;:~·;.,oid i!T1pcsir,s
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sanc:1ons.
·
~y contrast, the waiver p~ovision in Section f24(h) of the Act
is qu'i.te rtarrow.
Becemse r.~cction 824(h} ;:;pee:'lks i:..o ..v-.;:d:;.re~: c1f
·:·conltinu,g,tion .. of t:tle ::;anctidns, the provision presun1ably o:.tly
:,;. id~!s. in ~ sanct i.on!:i have I been in effect. fc•r :so::•me pe·r. iod <".if
t.ime.: Given the lintits of tbe wai'rer provisi.o~l·· there is a g.;,.~l(j,
;ugdment t.hat the· President mthst have discret:~orl to refndn ft:"om
n;aldrH~ tl1e section B~4(G) determination.
I f th<3.t wer:e :-~c,+~. t.'!'~E:
case r: then t.he d.eter!f,inc.U.on. a~d •...-ai ver provisions of t.he /d,t;t: I \olher:
tak~n · tog-etl·~er, a.rguf.\bly· amou.n t to impert'l'l.iss ib.l.e i ...:. tt~.efe :t:'EH':Ce wi t:h
. t11e President's ccnduct of fo,eign affairs.
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1!'1 the end ho~mver p we concluded that th~ slgranc; !:'.t.Bti:·m·ent.
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need ::,ot. expressly r'~fer to tde i.ssue of wheth;!r '~.h.~: pr·e:sidet.tial
det~r,mi'naU.tm specified i:1 S ection 824(C) is. cli.S•:ret\:on;:J.Cr' Cir
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:-nand.~t.ory.
Our reas;:m.ir.~g was as folloii{S:
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ju.dlc' al review and sanction pro··nsJ.ons i.Hf~ £:c>
offe!1s i ve ·:hat they offered enough cc:,r..s·:: it.ut ion~::J. ·~:r: is t.
for the roi ll :iti the signing statement..
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Many members of Co~gres..s ha~ ~pparen;J~y ... rea~:i:~ed
that sectit.m ;£:~!4 pr~sE:nts a m~r.1ad o.e pr~~ctir.m.L a.nd
ct::.nstituti•:ma1 p::oblems,
and had. ad.vLsed. t.he·
Admin i str-a :ion that they 1o1ere wi lUng r.o wc.rl.;,
towards .re::tiJ:ylng them soon.
pr:'ov~s
'l'he q'l.lestit>n of. wheJher tb.e determina:::tcn
i.::m
is ·r.nandatcry or discretio;-uuy is a o.if::icult. one ..
TU1.y expli.cit. stademerit. abt1u.t
it. c~.;uld r:::au.se
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mo~t rt~cent. memorandum ~n the su.kljE:r. t: was writtt:m :~r.1
Jc.l.i, 1993 :t.y Pa. ul Colb·:.>rn arid Jacques deLisl€~ in respon.~N~ t·:J a.
n:-:qllest
f1'C•tll · Mx·.
K:rezckol regardiJ.'lg Wh€rt:.hE:.:c pres idf~:;:.c :i..~tl
d.etbnn:i.nation · provisioi:.:i'l in. tha Export ~~dministr·at.i<:J.r.). A:::t of lS' 79
·1; 4
andl' the
our
Foreign Af:.sis·:::.ance
Act
of
1961
I!lan <~a tory .
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CLINTON LIBRARY PHOTOCOPY
a:re
C'.l.isc:retic·n.axy
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�01; .. 27/fl4
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'6'202 5.14 (IHiJ
; 16:08
unnecessar r
Congress.
acr 1mony between the w·n:it.e
Houst:
A:ll told, ·these factors led us to conclLtde that
sriff ,idient for the s :.grd.ng statement to say that, "io 1 iqh t o:l.' th~!
ccmstft.uti.onaland p1:actical prob:Le·ms" posed by ·:.he provis~.on, "the
?resident "\~·ould re::n:..!l.n from! makii"Hil any de·t. 9rttL.itta.ti-c·ns''- ·,,;nder
sect~dn 824, This senteMce was phrased in such a w~y so as ~)hint
thatJ the detenninati<:1n -we~s i.n f~ct di.scret.tonary. I spokt: T''~~ t>:. Mr:.
Krezcko, and he. told me .that he agreed with our approach. At the
s~ggb~t.ion. . of_ his r.:li..:;!nt however, a subsE~qtient draft. •)f tbe
s i9n ing sta t::ement err.plo;i'e':l sl igl"1tly different le~L~l.la.ge.
It s.~ ic.
that! :the President \i' :ll.lld r.bt be "compel.J.,:;O.''' to :rrli!th:~ any
detenl).inations un~e~ Sect ion _1824. · thi_s rev is Lon re;.::::.:;!·~·':.e.::d a
. sorneolvhat more expl ::..c ~ t e::Kpre:ss 10n of the v1ew thd t. l:l'"le pres Hl.e.::·: t i al
detetrili.nat.ion was di~;cr~~uonar\r.
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Intei.]l£tJ...QJ.lSL~:~oa~Lcas ·mg
sepa.ra~:.e bi~l
title III of th•D Ac:t was briginally a
knc;wn as
tr:e r:nt:,ernational Broa.c.casting ·Act.
It was in':.rcKiuced in. :.he
Senate i.n 1993, and !-;ub::;·::lquently incorporated in.i::.G ttte Act.
r.eor~an:lzes
·[ ?:'itle :err
aAo cons•::>lidat.es th·? int.-9rr,?.lt:i.:.mal
oroadtasti.ng initia:iv,~s of I the United :::::-.at:.as g-ov·e.rmr~.;nt:.
?rev~ously, some· rJf t:he.st'! act.ivlities were carried ,~;i.i.T.". by the E:•:;t,rd
r:,f ~~tei·natio!'lal Br·:)acl~::astin-g ( ''BIE").
Titl1;: · :C! l ·of ·t.i.";e i\•;;t
aboH.shes the BlB. S·ict:L,~n 304 of the i\ct establishes i.n its. p.La:::-e
,i n5.rl!e-·member aroadcC!sti.ng Boar:d. of Gcvernors { trJ'e "Bc:>:ud"} ,, ;,·h:L.::::h
is hh'used within usr;... '!'he Board ccm:::ists .. of B m~·inber·s appo:.~it,;~d
by t~~ President by and ·~ith t~e advice and consont of tbe se~ate~
::.he :1;inth rnerr!ber is the .:J.irectdr of the USI.A.. Th•=' President shall
::lesigna.te one of th~;. mmnhers j(ot'her than the USIP. :o~r.-ector;. ~;s
ChaH:man o.E t.he Soarc. E:>eclusi?e '1f the USilt. n:i..·:·et:.:tor., ~.he B orht:!r-:;oa.ra member-s ser:~re·::c,;~r ia term. of_ three. years.
Jn .a.dditit:H1, not
·morel' than 4 ,.,f. the 8 i:lppcd.nted m~mbers sh:.ill :::,e_ CJ.f tl~e !:;u.me
poli~ical
party.
l'.sect::.~)n
la~·s
th·f~
·
305
out in some detail
functicms of t:rre
3oarJ. Among those functions is the direction ant~: :r·.H:ipe.r·vi:::•ic;:o:"l of
all international br:>ad1:::asting activities of th~ United. Sta:t~.;-;;.
Tl"iiS 1 exceeds the functic;-Js fodnerly exercised by ~b~ BIB.
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: Sec't ion
3 07 (a) establishes . cti1 In te rna.ti t:>TH1,]. Broadca.s t :. r:.g
:3ureau { tli'~ "Bureau") within the USIA. I t fu.r.t.:1:1er st.c:ttes that t'.l~.e
:3t.:re~.u' s · fur:ct ion is to carry I out all nonmi.:i..it.a.ry i.nt~:rnat: :. ~;na,l
::>roaacasting activities: of tne. united States.,
1'he Conf'er:lm.::e
~tepott indicates tha··:. u ...~ Act I declines to speG1f:r. ln detc{Ll the
stiu~ture,.
responsibilities ~f the Euraa~,
Section 307 (b) r..rr.:r?ides r-~)r t:he
''ppo'·~ntment of a Burt· au :H rec:tor by the Chai r.rn.a:n r.::f t.be Boa rei., in
organization,
and
.'Leav'ing trLat t.ask to thE! Board.
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CLINTON LIBRARY PHOTOCOPY
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consultation with thf.: Director of t.he USIA and w.it.l"! tl1e concur:~·~~
of· tt1e: majority of t.1e U<:Jard.
In n~vie.wing Ti t.lt~ III,. v.•e iderit i tied C'i-'C const.it\l t::. :l om.1
I
concerfls: (a) the :;·equi.rement: ·that not mor~ l:l't.an 4 cf t::le. 8
appolirl:ted members of the· Board lean be of the same ·?et1 :, ti(~a.l p~:.rty;
a11d (b) the manner o: El})J,ointment of the Bureall Din:tctor·.
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Political .'~alancing Requirements
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Political balancing requirements of. the sort conta~.:ne,:l. :in
sect, ion 304 of t.he ll.ct are c9mmon features ·.:<f. stattJtes c:·e.::.ti.n.g
.~independent agencie:>." Such agencies a.re hei:\d.ed bv off ice~r~: ...,ho
are li~s~lated fro~ r·residenti~~ control ~h~o,..:.g:!:l ste,tutcry t.en·. u:e
protect.1ons that llm·.. t t:he Prestdent's alnllt~r ~. o .::·emovetl1.e:m fr.om
off ~c'~ before the. ex~ir.~tion 6f tr.ei r- prescribed t1~nns.
su·:: the
Boatd;is an .entity wit.hii~. usu-.,1 which is not an :~na.,e.p~~nder.t c..gen·~y:
both the Direct.or or the· USIAI and the n'lembet:s ..::Jf t'\le :so.ord are
c.leariy remo-vable by th~! Pres ~dent at wi 11. The ::·eq~:d.remer..t t·.'11~t
r~o !hrJre than 4 of t-hf:· 8 Cippoir•~ed ·meinbers of the ·s·:)~n~ be~ frow t1"l€~
same political part} i~; ther~fore ·incongrucm!L
Indeed, \Je are
unawate of any statut.e: in which such requirements .~\re impase:d ·wit:r.
::espect to the appointnto;:nt of 6fficers who are clearly removetb:'.e e.t
will~~ t-iore fundamer~tally; asi a constitutional ma ::ter, '\I!E: c..dvi:s&.d
the I State Department: tl1at the requirement a.rguably tra.rnmels. tr~e
Pre~iden.t' s e::.rercise of di.scr:et.ion in appointing c·ff1cer.s "'d~.( ;:tee
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a!1sv.•erable to him.
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I we discussed we question of whether and """. tt>e s;.snL~<;
st.altement should tre:\t the pt,litical balancing ·rc~qulremen-:~: ·.,.,nr-,
:~ls. tartson, two officials ;of BIB, (.Richard Nc:sride ami John
ltin<lberg),
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ana Ron :f 1ett;!·son and Annette Rooney of ()ME..
w'e a:.l
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ThEll~e a.r:e iL nunlb~r .of statutes settin•3 llp a.genc.le:.s t:h&.t ·
:u:·e silent with I.·es1oect to the President's pc·we:: r;:) :c·em,)•,re :.be
agebci' heads but tha:: ccmtain poli-tical balancing
an.cl..
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ot:her trappings that wou:Ld sJggest r.hat the a.gr!lnC~/ i~:. ir.rte:::.c1~;d t-:.c'
l)e la.n inde:pend.eut age·llCJ, insplated ::ro~ presid€~Ilti.. a1 cor.1t.:col. By
stat,itor'r ma.ndate, t.he membership of the na·'.r~-a::•·:Jlirr-~he-Jd B:::E! w~s
pol.i ticaily balanc.~ed.
The sta·c.ute d.id n.ct: speak. ~.c ·::.r1e
· re~ova1Jil i ty <>f BIB o:E f i.~~ers J It could be arg\..led. tl~tcl.t. BIB ...,t;;t.s ·an
inde~)endent. agency. But ~;:;verJ if that. is a corr~;ct chs,~::a.ct.e:r·i.~~i;ltion·
::~:·i B~B it does not. :ie:s:::rib'a t:.he Board, because :.. e. j.s ~?at·,: cf e.r.i.
entit.y the USIA whc·se h~ad clearly serves at t.he pl.ea::m~:·t~· of ·tn.c-::
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·1::-e:.luit2.men1:!~'
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our files inCiicate that althoUgh we c''.id not: ><ri :oe a.
rorl!k"l-1 oill co1nment at.· the I time 1 we raised tb::·se co:"J.ce:c::n::J :\ r..
cok.n!. m:i.caticms . with th,;.;. Oftice of Legislati·ve :!\ffc;t.irs of the:
,Ju~t:ice Department. in cc·!lne¢tion with a June :·:.993 :!.~~~view c.>'E ·the:
se pa:rat:e legislation. th.:lt: ev1e-ntu~.lly became Tit:lt::J !Il .::;:f' the ~·:t.
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'0'20Z 514 o.5u.3
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agreed' that this wa:; a. stickl! issue.
Title !r:: of the
appalre~tly including the politilcal balanc1n.g ut.quirements
something that was forced upon the .~dministrcttior~.
T·~ tl ·
contrary, lt ~.ra~. the Adnli!'listration' s idea. It ··11o~1ld U:ereft.~:~·~~ he
odd for .the President to complai~l in a signing staternt~nt, abclul:: the
constitutionaJ.ity oj~ p:rovisions for. whi.ch his .~.dmir:.i.!;t.r:Jtior:.
l?res sed.
Ac:cc:>rdingl~·, 'iJ'e reccrrru:nended t.li.at tt'te ~:J: . gning S:t~t~~ffii3Z\t
not 1
say anyt'h J.nt;J abotlt 't:1e pol ·it ic~l balancing ree;:ui relr.e;r. ts
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Al@ointrneni~-~.L~ureal
Director
p~escr
The Appo1ntment':; Clause
ibes the ma.J1....tel· of appo :::: t.!tlert t
of 'j'Officers ol: the United. s!tates.n
The Clc.use cl.istingLd.Sh·eS
bet~~een
·•pr irlcipal ofi:. icers, • who must be ap;~·C1i nted by 1::·~.e
?resjider..t and confirned by the senate, and irtfe:d.•:Jr officers., '•mo
may be, appointee by ":he Pres ider. t alone, the cm.tr·t::; of La"'·, <H the
Heads :of Deoartments . " It is tl.uclear from the fac1.'! oJ: the s'C.atut:e
as to whether the B·ur,~au .· Dilrector is an officer, or .:1 mere
=mpllbi,ee.
The EuJ:ee!u D:lr-ectot' s functions are riot specified in
Titl,e: III, and the l·!gi;~lative history mal<es plain that is \J!;) tc
i:he !Board to define his :.'r herlduties. Ttw probl·!!Hil i.~;- t.r.at if t.h~
Bure1
au Di rect(>r is an l Lifer io r officer,'· his app-:)intmenr. by the
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::hai~r~an of the ·.soard is :incons;istent with tbe App<J:!.nt.ments C.lat.tste.
The c~airman of the Hoard is not the "Head of a I:•ep.3.rttn.ent:·· tl:.e
JO(H d: is an entity w:ithit~\ USIAI, and the. "Head" <)f tl·\at J)epartmE~nt
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.The BIB offic1a .. s -~,.::.th ·.vhom. we spoke were f~ll':ll1.1ar '-~'· tn tl:e·
histo·ry an.d purpose of ritlel III of the Act.
They vere !ll!;o
qen.~rally familiar wi :h t.he distinction bet•,.,•een "off iu:r·s "~ whc.1 :nus t
be appointed in conformity witn t.l'1e Appointments c;_:au~;e, and ol~.her
l~;ove:r:1~nent employees wh·::> may I be appol.n·ted ~n any manner-.
Tbe
offilcHals :::Jtated thatr a:a they understood it, t'he :Bureau Director
,,las !probably meant to b~! an officer. Ho·..rever. we r-~~cominendE!r~ to
··~.he State I>epar.tment and OMB th~at t,he signing statenent. not ado ~:e~~~s
~:;hiS • possible
Appo~ n.t1·n.:~·nts Clause . problem~
J~qai.n,
-we 'J(;:re
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.LnfJJuenced by
the fact~ . that Title ·. I I I vras or.igj.naJ.ly
an
Ad:u~r~istrat!.on bill.
Furt.het~more, in t:he (3Vent ~~)f lit'.f;a.U.c:J.n
· (~ha]J.enqing some ac·.:ion of the Bureau Directoc ir. ·wt:..ict: tEl
/.1ppdintments Clause .s.tta1::k is made, we believe that there ;,s a
def~1l.sible a.r:·gurnent l:ha.t the 8";Jreau Director is :1ot:. an offi,:::e:l~.
~t:his· argument. would .te predic~ted on the. rath.er cursf:)ry ·-;tatu.'::ory
language defining the · Bure~u Di r·ector' s . fu:nct:.i~ms, and t.rh=
~~tatiement in tlie legL;lai:..iv·e history indicating thE•t Con~Jress LE;:ft
it tJo the Board to sp,~cify those functicms. Tt,e arc3'ument '~o·u1d be
~
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Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Previously Restricted Documents
Date
A point or period of time associated with an event in the lifecycle of the resource
1993-2001
Description
An account of the resource
<p>This collection contains documents that were previously restricted under the <a href="http://www.archives.gov/presidential-libraries/laws/1978-act.html" target="_blank">Presidential Records Act</a> for restrictions P2 (appointment to federal office) and/or P5 (confidential advice between the President and/or his advisors and between those advisors). For more information concerning these collections please see the collection finding aids index. The finding aids detail the scope, content, and provide a box and folder title list for each collection.</p>
<p>The <a href="http://www.archives.gov/presidential-libraries/laws/1978-act.html" target="_blank">Presidential Records Act (PRA)</a> includes provisions that these types of documents be withheld for twelve years after the end of a president's administration. These documents are now being made available to the public. The documents will be released in batches and will be uploaded here as they become available. The documents will also be available in the Clinton Library’s research room.</p>
<p>Please note the documents in this collection may not contain all the withheld documents listed on the collection's withdrawal sheet index.</p>
Publisher
An entity responsible for making the resource available
William J. Clinton Presidential Library & Museum
Extent
The size or duration of the resource.
397 folders
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
2009-1522-F - Presidential Signing Statements
Identifier
An unambiguous reference to the resource within a given context
2009-1522-F
Is Part Of
A related resource in which the described resource is physically or logically included.
Previously Restricted Document Release no. 7
Format
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Adobe Acrobat Document
Publisher
An entity responsible for making the resource available
William J. Clinton Presidential Library & Museum
Medium
The material or physical carrier of the resource.
Reproduction-Reference