What Is the Constitutional Textual Basis for Key Statutes That Constrain The
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THE LAND AND NAVAL FORCES CLAUSE Dakota S. Rudesill* Abstract What is the constitutional textual basis for key statutes that constrain the national security apparatus and condition the President’s ability to direct it – statutes that are neither spending limitations, nor war declarations or authorizations for the use of military force (AUMFs), nor militia laws? There are a series of such statutory frameworks, including the Uniform Code of Military Justice (UCMJ), Posse Comitatus Act and its relatives (particularly parts of the Insurrection Act), Foreign Intelligence Surveillance Act (FISA), the covert action statute, anti-torture laws, and the War Powers Resolution. The best or at least strong additional textual footing for these statutes, this article argues, is Article I, Section 8, Clause 14 of the Constitution. This clause gives Congress the power “To make Rules for the Government and Regulation of the land and naval Forces.” Although the common assumption is that this Land and Naval Forces Clause is a single enumerated power, this article theorizes the Clause as providing Congress * Assistant Professor of Law, Moritz College of Law, The Ohio State University. For their comments I thank participants at conferences and workshops held at Yale Law School, The Ohio State University’s Moritz College of Law, the University of Toledo School of Law, and Indiana University’s Maurer School of Law, in addition to participants in the American Constitution Society’s junior scholars workshop at the annual meeting of the American Association of Law Schools (AALS). Special thanks for valuable discussions or reading drafts goes to Akhil Amar, James E. Baker, Martha Chamallas, Alan Cohn, Ruth Colker, Ashley Deeks, William Eskridge, Michael Gerhardt, Steve Huefner, Heidi Kitrosser, Harold Hongju Koh, David Koplow, Debby Merritt, Jon Michaels, John Mikhail, Peter Shane, Lee Strang, Christopher Walker, Robin West, and Evan Zoldan. I thank Moritz for its research support. A number of research assistants were very helpful to this project over its development, particularly Clair Viglione, Sarah Erickson-Muschko, Thomas Rovito, Billy Braff, Rebecca Givner-Forbes, Andrew Hopkins, Lee Matheson, and Cowles Ostrander. I am responsible for any errors. I thank the editors of the University of Cincinnati Law Review for permission to reproduce this article or any part of it for any scholarly, policy, or pedagogical purpose. 392 UNIVERSITY OF CINCINNATI LAW REVIEW [VOL. 86 two powers: a well-recognized Internal Regulation power over military justice and other internal affairs of the national security apparatus, and also an External Government power over operations. This article analyzes the Clause’s text, counter- authoritarian origins, and its constitutional interpretation since the Founding Era. This article argues for the Clause’s constitutional rediscovery and embrace as primary textual footing for a series of vital statutory frameworks that govern the military and the Intelligence Community at the intersection of liberty and security, and regarding the use of force and cyber operations. Ultimately, the Clause’s power is contingent: Congress must use it and other legal actors must give life to its statutes and constitutional values for it to be meaningful. Table of Contents Introduction .......................................................................................... 393 I. Internal Regulation ......................................................................... 398 II. External Government ...................................................................... 408 A. Text ....................................................................................... 409 B. Origins .............................................................................. 416 1. British and American Origins .................................. 417 2. First Iteration: The Clause in the Articles of Confederation .......................................................... 420 3. Second Iteration: The Clause in the Constitution .... 423 C. Constitutional History: Citation to the Clause in the Three Branches ..................................................................... 433 1. Legislative Branch ................................................... 434 2. Executive Branch .................................................... 441 3. Judicial Branch ........................................................ 445 III. The Clause Rediscovered: Constitutional Footing for Statutory Frameworks ................................................................................ 450 A. Internal Regulation ............................................................... 452 1. Uniform Code of Military Justice (UCMJ) ............. 452 2. National Defense Authorization Acts (NDAAs) ..... 452 B. External Government ............................................................ 453 1. Posse Comitatus Act and Domestic Relatives ......... 453 2. Foreign Intelligence Surveillance Act (FISA) ......... 457 3. Covert Action .......................................................... 461 2018] THE LAND AND NAVAL FORCES CLAUSE 393 4. Interrogation ............................................................ 463 5. War Powers Resolution ........................................... 464 IV. The Clause Rediscovered: Contemporary Importance ................... 467 A. In Context of New Lawmaking Dynamics ........................... 467 B. In Context of Change in the Security Environment, Especially Growing Cyberization ......................................... 472 C. In Context of Volatile Politics and Policy ............................ 475 V. Conclusion ...................................................................................... 480 INTRODUCTION Article I, Section 8, Clause 14 of the United States Constitution provides Congress the power “[t]o make Rules for the Government and Regulation of the land and naval Forces.” This Land and Naval Forces Clause1 is textually located within the wheelhouse of Congress’s legislative powers regarding national security. The Clause has been understood since the Founding to grant Congress authority over military justice, and it has been cited by the Supreme Court in landmark cases.2 This provision’s full history and significance beyond the military justice context, however, are unappreciated, in some respects ambiguous, and insufficiently studied.3 1. There is no consensus on what to call the Clause. The Supreme Court recently referenced part of it (as explained below) as the “Military Regulation Clause.” See United States v. Kebodeaux, 570 U.S. 387, 394-95 (2013). Other cases simply quote it, or give the Clause different names. See, e.g., United States v Ali, 71 M.J. 256, 272 (C.A.A.F. 2012) (“Rules and Regulations Clause”) (Baker, J., concurring). Some scholars reference “the Government and Regulation power.” See Saikrishna Bangalore Prakash, The Separation and Overlap of War and Military Powers, 87 TEX. L. REV. 299, 332 (2008). Others reference the “Rules for the Government and Regulation Clause.” See David J. Barron & Martin S. Lederman, The Commander in Chief at the Lowest Ebb – A Constitutional History, 121 HARV. L. REV. 941, 1082-83 (2008) [hereinafter Lowest Ebb Part II]. Some practitioners call it the Make Rules Clause. I term it the Land and Naval Forces Clause to emphasize its subject matter and distinct language versus other Article I, Section 8 war powers. 2. See, e.g., Hamdan v. Rumsfeld, 548 U.S. 557, 591 (2006) (Clause cited along with others providing Congress national security powers, in case rejecting President’s order regarding trials of post- 9/11 detainees as violation of UCMJ); Youngstown Sheet & Tube Co. v. Sawyer, 343 U.S. 579, 643-44 (1952) (Jackson, J., concurring) (Clause cited in canonical national security separation of powers case). 3. This article, like other articles focused on individual clauses of the Constitution, employs common interpretive approaches without being about constitutional interpretation. See Andrew Kent, Congress’s Under-Appreciated Power to Define and Punish Offenses Against the Law of Nations, 85 TEX. L. REV. 843, 857 (2007) (article on Define and Punish Clause not intended to resolve larger originalist debates); John Mikhail, The Necessary and Proper Clauses, 102 GEO. L.J. 1045, 1054 (2013) (article on Necessary and Proper Clause does not endeavor to engage with originalist conversation in systematic fashion or set out originalist theory). Reserving the interpretive methodological implications of this study for a future work, this article does close textual and structural analysis, including intratextual work; considers a range of originalist evidence that bears on Framer understanding and original public meaning (different methodological focuses between which this article does not choose); gathers and analyzes relevant parts of the constitutional record, including via empirical analysis of legislative citations and 394 UNIVERSITY OF CINCINNATI LAW REVIEW [VOL. 86 This article urges the constitutional rediscovery of this neglected “cryptic” Clause4 – rediscovery of its text, counter-authoritarian purposes, constitutional history, and the growing contemporary importance of statutes written pursuant to it. Relying on the Clause, Congress can restrain the national security apparatus and the President’s use of it regarding military justice and discipline, espionage, cyber operations, and regarding surveillance, interrogation, and other liberty infringements. The conventional assumption is that the Clause