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American University Law Review Volume 50 | Issue 1 Article 2 2000 Executive Authority for National Security Surveillance William C. Banks M. E. Bowman Follow this and additional works at: http://digitalcommons.wcl.american.edu/aulr Part of the Law Commons Recommended Citation Banks, William C., and M.E. Bowman. "Executive Authority for National Security Surveillance." American University Law Review 50, no.1 (2000): 1-130. This Article is brought to you for free and open access by the Washington College of Law Journals & Law Reviews at Digital Commons @ American University Washington College of Law. It has been accepted for inclusion in American University Law Review by an authorized administrator of Digital Commons @ American University Washington College of Law. For more information, please contact [email protected]. Executive Authority for National Security Surveillance This article is available in American University Law Review: http://digitalcommons.wcl.american.edu/aulr/vol50/iss1/2 BANKSPP.DOC 8/15/2001 11:33 AM ARTICLES EXECUTIVE AUTHORITY FOR NATIONAL SECURITY SURVEILLANCE * WILLIAM C. BANKS ** M.E. BOWMAN TABLE OF CONTENTS Introduction............................................................................................ 2 I. National Security Surveillance: The Early Years ...................... 10 II. The Components of Modern National Security Law................ 19 A. Awakening to the Modern World....................................... 19 B. Assigning Responsibility for Domestic Intelligence........... 26 C. Legislative and Regulatory Change in the 1970s ............... 31 D. The Evolving Judicial Role.................................................. 35 1. The conceptual bases for privacy .................................. 36 2. The development of privacy as property ...................... 38 3. From property to persons.............................................. 43 4. The Keith decision.......................................................... 49 5. Case law after Keith—electronic surveillance................ 53 6. Case law after Keith—physical searches......................... 57 7. A summary of the evolving judicial role ....................... 65 E. Executive Branch Regulation ............................................. 68 F. Foreign Intelligence Surveillance Act ................................ 74 1. The constitutional parameters for regulation.............. 74 2. Categories of surveillance.............................................. 76 3. Surveillance target ......................................................... 80 4. Surveillance trigger........................................................ 83 5. Surveillance purpose...................................................... 84 6. FISA surveillance of First Amendment activities .......... 86 7. Minimization and other application requirements...... 88 8. Emergency surveillance ................................................. 89 9. The constitutionality of the FISC.................................. 90 * Laura J. and L. Douglas Meredith Professor, Syracuse University College of Law. ** Associate General Counsel, Federal Bureau of Investigation. The authors wish to thank Jennifer Morris for her excellent research assistance. 1 BANKSPP.DOC 8/15/2001 11:33 AM 2AMERICAN UNIVERSITY LAW REVIEW [Vol. 50:1 III. National Security Surveillance Today: Investigation of Terrorist Threats ........................................................................ 92 A. The Investigators and Their Authority............................... 95 B. Terror in the Heartland: Bombings of the World Trade Center and the Oklahoma City Federal Building................................................................................ 97 1. The bombing of the World Trade Center.................... 97 2. The Oklahoma City bombing.......................................100 3. Similarities and differences ..........................................102 4. Lingering questions ......................................................103 C. Recent Antiterrorism Reforms...........................................107 D. Fitting “Primary Purpose” to Current Needs ....................111 E. A Case Study: Palestinian Activists and the Popular Front for the Liberation of Palestine (PFLP) ...................114 1. The story........................................................................114 2. Applying the legal authorities ......................................119 Conclusions..........................................................................................125 INTRODUCTION It may have been only an after thought, but the Bill of Rights more directly affects the personal lives of Americans than any other aspect of our law.1 We cherish our right to speak, assemble and worship as we please.2 We also cherish our privacy, one aspect of which stems from the Fourth Amendment,3 our constitutional remedy for a perceived evil of British law—the general warrant. The British general warrant was a search tool employed without limitation on location, and without any necessity to precisely describe the object or person sought.4 British authorities were simply given license to “break into any shop or place suspected” wherever they 1. See MARJORIE G. FRIBOURG, THE BILL OF RIGHTS: ITS IMPACT ON THE AMERICAN PEOPLE 10 (1967) (calling the Bill of Rights America’s “most prized possession” for the personal rights it protects). 2. See U.S. CONST. amend. I (“Congress shall make no law respecting an establishment of religion, or prohibiting the free exercise thereof; or abridging the freedom of speech, or of the press; or the right of the people peaceably to assemble, and to petition the government for a redress of grievances.”). 3. The right of the people to be secure in their persons, houses, papers and effects against unreasonable searches and seizures shall not be violated, and no Warrants shall issue but upon probable cause, supported by Oath or affirmation, and particularly describing the place to be searched and the persons or things to be seized. U.S. CONST. amend. IV; see also FED. R. CRIM. P. 41(c)(1) (a magistrate “shall issue a warrant identifying the property to be seized and naming or describing the person or place to be searched”). 4. See NELSON B. LASSON, THE HISTORY AND DEVELOPMENT OF THE FOURTH AMENDMENT TO THE UNITED STATES CONSTITUTION 16 (1970) (describing the general warrant). BANKSPP.DOC 8/15/2001 11:33 AM 2000] NATIONAL SECURITY SURVEILLANCE 3 chose.5 With that kind of unfettered discretion, the general warrant 6 could be, and often was, used to intimidate. General warrants executed during the reign of Charles I sought to intimidate dissidents, authors, and printers of seditious material by ransacking homes and seizing personal papers.7 In 1765, the courts declared general warrants illegal, and Parliament followed a year later.8 In the colonies, complaints that royal officials were violating the privacy of colonists through the use of writs of assistance, equivalent to general warrants, grew.9 Because English law did not, as yet, recognize a right of personal privacy, the crown’s abuses in the colonies were not remediable at law.10 It was thus no surprise that the new American Constitution and the government it created would respect a series of individual freedoms. James Madison authored what would become the Fourth 11 Amendment and proposed it to the Congress on June 8, 1789. For the new nation, warrants would require specificity to physically invade the privacy of its citizenry.12 Today, that same specificity is required to authorize electronic and physical invasions of privacy.13 Although the Fourth Amendment eliminated the abuses of general warrants, its commands remain unclear, especially in the face of technological progress.14 Moreover, the Fourth Amendment was designed to protect against overreaching in investigations of criminal enterprises.15 Investigations of politically motivated threats to our 5. See William Cuddihy & Carmon B. Hardy, A Man’s House Was Not His Castle: Origins of the Fourth Amendment to the United States Constitution, 37 WM. & MARY QTLY. 371, 381 (July 1980) (quoting a 1621 Privy Council general warrant). 6. See DAVID M. O’BRIEN, PRIVACY, LAW, AND PUBLIC POLICY 38 (1979) (describing the intimidation motives of the general warrant). 7. See id. (describing the motives for Charles I’s use of general warrants). 8. See Entrick v. Carrington, 95 Eng. Rep. 807, 818 (K.B. 1765) (calling the general warrant “fatal to liberty”); see also O’BRIEN, supra note 6, at 38 (delineating the end of British general warrants). 9. See O’BRIEN, supra note 6, at 38-39 (noting the colonists disdain for writs for assisting); see also LASSON, supra note 4, at 28-29 (describing the historical emergency of the writ of assistance). 10. See LASSON, supra note 4, at 13 (stating that the many years of arbitrary and unrestricted powers of English government was one of the factors elevating reasonable search and seizure to constitutional significance in the United States). 11. See O’BRIEN, supra note 6, at 39 (quoting James Madison’s initial draft of the Fourth Amendment). 12. See id. (noting Madison’s initial demand for a particular description of the place to be searched). 13. See, e.g., Katz v. United States, 389 U.S. 347, 355 (1967) (upholding the “narrow and particularized” warrant requirement for electronic surveillance of conversations in a public telephone booth). 14. See generally James X. Dempsey, Communications Privacy in the Digital Age: Revitalizing the Federal Wiretap