UNDERSTANDING THE LAW OF TERRORISM Second Edition Erik Luna Sydney and Frances Lewis Professor of Law Washington and Lee University School of Law Wayne McCormack E.W. Thode Professor of Law University of Utah School of Law
ISBN: 978-0-7698-4907-2 (print) ISBN: 978-0-3271-8763-9 (ebook) Library of Congress Cataloging-in-Publication Data McCormack, Wayne, author. Understanding the law of terrorism / Erik Luna, Professor of Law, Washington and Lee University School of Law; Wayne McCormack, E.W. Thode Professor of Law, University of Utah School of Law. -- Second Edition. pages cm. Includes index. ISBN 978-0-7698-4907-2 (softbound) 1. Terrorism--Law and legislation--united States. 2. Terrorism--United States--Prevention. 3. Detention of persons-- United States. 4. Government information--united States. 5. Terrorism--Prevention. I. Luna, Erik, author. II. Title. KF9430.M33 2014 344.7305 325--dc23 2014041158 This publication is designed to provide authoritative information in regard to the subject matter covered. It is sold with the understanding that the publisher is not engaged in rendering legal, accounting, or other professional services. If legal advice or other expert assistance is required, the services of a competent professional should be sought. Copyright 2015 Carolina Academic Press, LLC. All Rights Reserved No copyright is claimed in the text of statutes, regulations, and excerpts from court opinions quoted within this work. Carolina Academic Press, LLC 700 Kent Street Durham, North Carolina 27701 Telephone (919) 489-7486 Fax (919) 493-5668 www.caplaw.com Printed in the United States of America
DEDICATION To Britany-E.L. To Tatiana-W.M. iii
TABLE OF CONTENTS Chapter 1 GLOBAL TERRORISM AND U.S. LAW.............. 1 1.01 DEFINING TERRORISM................................... 2 [A] Definitions in Scholarship.................................. 3 [B] National and International Definitions......................... 5 [C] The Definitional Problem.................................. 7 1.02 U.S. LAW AND TERRORISM JURISDICTION.................. 11 [A] Federal Definitions...................................... 11 [B] Federal Crimes......................................... 13 [C] Extraterritorial Application of U.S. Law....................... 20 1.03 TERRORISM AND CONSPIRACY........................... 24 [A] The Law of Conspiracy................................... 24 [B] Defining the Terrorist Conspiracy............................ 27 [C] When to Intervene...................................... 30 1.04 GLOBAL TERRORISM CASES............................. 32 [A] World Trade Center I.................................... 32 [B] The Embassy Bombing Cases.............................. 34 [C] The 9/11 Conspirators.................................... 37 1.05 POLITICAL THREATS AND FREEDOMS..................... 42 Chapter 2 SUPPORTING TERRORISM...................... 55 2.01 TREASON, TRADING WITH THE ENEMY, AND MATERIAL SUPPORT............................................. 56 [A] Treason.............................................. 56 [B] Trading with the Enemy.................................. 61 [C] Material Support........................................ 65 2.02 MATERIAL SUPPORT OF FOREIGN TERRORIST ORGANIZATIONS (18 U.S.C. 2339B)...................................... 67 [A] The HLP Sequence...................................... 68 [B] Intersection Between Vagueness and Mens Rea.................. 72 [C] 2004 Amendments and Culmination of HLP.................... 76 [D] Aftermath............................................ 81 2.03 MATERIAL SUPPORT OF TERRORIST ACTS (18 U.S.C. 2339A)... 88 2.04 THE DESIGNATION PROCESS............................. 94 [A] FTO Designation....................................... 94 [B] IEEPA Designation..................................... 100 2.05 CIVIL ACTIONS FOR TERRORIST ACTIVITY................ 103 [A] Actions Against States................................... 103 [1] Libya............................................. 104 v
TABLE OF CONTENTS [2] Iran.............................................. 107 [3] Saudi Arabia and Afghanistan............................ 110 [B] Claims Against Non-State Actors........................... 114 Chapter 3 TERRORISM SEARCHES AND DETENTION........ 123 3.01 TERRORISM SEARCHES................................. 124 [A] Terrorism and Suspicionless Searches........................ 125 [B] Terrorism and Extraterritorial Searches....................... 132 3.02 PROFILING AND TERRORISM............................ 137 [A] Japanese Exclusion................................... 138 [B] Modern History of Profiling............................... 141 [C] FBI Guidelines........................................ 146 [D] The Law of Profiling.................................... 149 3.03 DETENTION AND DEPORTATION......................... 154 [A] Material Witness Warrants................................ 156 [B] Alien Detentions....................................... 160 [C] Deportation of Suspected Terrorists......................... 165 [D] Secrecy of Detention Practices............................. 169 3.04 FOREIGN DETENTION CASES............................ 174 Chapter 4 TERRORISM AND INTELLIGENCE SURVEILLANCE.............................. 181 4.01 TERRORISM AND INTELLIGENCE SURVEILLANCE: BACKGROUND........................................ 182 [A] Surveillance Pre-FISA................................... 183 [B] Foreign Intelligence Surveillance Act........................ 188 4.02 9/11 AND THE USA PATRIOT ACT......................... 195 [A] FISA s Problems and 9/11................................ 196 [B] The USA PATRIOT Act................................. 201 [C] National Security Letters................................. 210 4.03 TERRORISM, THE NATIONAL SECURITY AGENCY, AND MASS SURVEILLANCE....................................... 216 [A] Terrorist Surveillance Program............................. 217 [B] FISA Amendments..................................... 226 4.04 THE SNOWDEN REVELATIONS........................... 235 [A] FISC Authorization..................................... 236 [B] Challenges and Criticisms................................ 245 Chapter 5 INTERROGATION AND TORTURE............... 253 5.01 TERRORISM AND INTERROGATION....................... 254 [A] Domestic Interrogation.................................. 255 vi
TABLE OF CONTENTS [1] Pre-9/11 Cases...................................... 256 [2] Post-9/11 Cases...................................... 261 [B] Interrogation Abroad.................................... 267 5.02 TERRORISM AND TORTURE............................. 271 [A] History and Law....................................... 271 [B] Justifying Torture...................................... 275 [C] Foreign Experiences.................................... 280 5.03 THE U.S. PATH TO TORTURE........................... 286 [A] Abu Ghraib and Beyond................................. 286 [B] The Principal Torture Memoranda.......................... 288 [C] Critiques and Ethical Concerns............................. 295 [D] Fallout and Remedies................................... 299 5.04 EXTRAORDINARY RENDITION AND INTERROGATION........ 304 [A] The Extraordinary Rendition Program........................ 304 [B] Renditions and Torture Claims............................. 306 Chapter 6 GOVERNMENT SECRETS AND TRIAL PROCEDURES................................ 311 6.01 STATE SECRETS....................................... 312 [A] Reynolds Privilege and Totten Bar.......................... 313 [B] State Secrets Privilege in Terrorism Cases..................... 316 6.02 DEFENSE RIGHTS...................................... 318 [A] Confrontation and Compulsory Process....................... 319 [B] Discovery........................................... 324 6.03 CLASSIFIED INFORMATION PROCEDURES ACT............. 331 [A] The CIPA Process and State Secrets......................... 331 [B] Classified Information and Executive Control.................. 336 6.04 CIPA AND TERRORISM TRIALS........................... 340 [A] Security Clearances..................................... 340 [B] Disclosure, Discovery, and Admissibility..................... 342 [C] Substitutions and Redactions.............................. 348 6.05 CIPA-RELATED PROCEDURES AND MOUSSAOUI............. 353 [A] Deposing KSM et al..................................... 353 [B] Appellate Secrecy and Jurisdiction.......................... 354 [C] Compulsory Process, Substitutions, and Sanctions............... 356 6.06 PUBLIC TRIALS AND COURTROOM SECURITY.............. 361 [A] Public Trials and Right of Access........................... 361 [1] Closed Hearings..................................... 363 [2] Public Access to Sealed Documents....................... 366 [B] Gag Orders.......................................... 368 [C] Security and Anonymity................................. 371 vii
TABLE OF CONTENTS [1] Anonymous Juries.................................... 371 [2] Anonymous Witnesses................................. 374 Chapter 7 TERRORISM AND WAR........................ 377 7.01 INTERNATIONAL LAW OF WAR.......................... 378 [A] Just War Theory and the Law of Armed Conflict................ 378 [B] U.N. Charter System.................................... 382 7.02 U.S. WAR POWER...................................... 388 [A] Background.......................................... 388 [B] The Steel Seizure Framework, the War Powers Resolution, and the Posse Comitatus Act........................................ 392 7.03 TERRORISM AND MILITARY FORCE BEFORE 9/11............ 396 [A] Hostage-Taking, Hijackings, and Bombings................... 398 [B] 1990s: Iraq and Al Qaeda................................ 400 7.04 WAR AND TERRORIST ORGANIZATIONS................... 403 7.05 MILITARY FORCE IN RESPONSE TO TERRORISM: THE WAR IN AFGHANISTAN........................................ 412 [A] Background.......................................... 412 [B] Legal Arguments...................................... 417 [C] Posse Comitatus....................................... 423 7.06 MILITARY FORCE TO PREEMPT TERRORISM: THE WAR IN IRAQ................................................ 424 [A] Background.......................................... 424 [B] Legal Arguments...................................... 430 Chapter 8 MILITARY DETENTION AND TRIAL............. 441 8.01 MILITARY DETENTION AND TRIAL: BACKGROUND.......... 442 [A] The Civil War Precedents................................ 443 [1] Merryman.......................................... 443 [2] Milligan........................................... 444 [B] The World War II Precedents.............................. 447 [1] Quirin............................................ 447 [2] Endo............................................. 449 [3] Eisentrager......................................... 450 8.02 TERRORISM AND DOMESTIC MILITARY DETENTION......... 453 [A] Hamdi.............................................. 453 [B] Padilla.............................................. 457 [C] Al-Marri............................................ 463 [D] 2012 NDAA.......................................... 466 8.03 TERRORISM AND MILITARY DETENTION ABROAD.......... 469 [A] Rasul: Guantánamo Detention and Statutory Habeas Corpus........ 469 viii
TABLE OF CONTENTS [B] Post-Rasul: Detention Review and Jurisdiction Stripping.......... 473 [C] Boumediene: Guantánamo Detention and Constitutional Habeas Corpus.............................................. 479 [D] Post-Boumediene: The Obama Administration and Detention Review in the D.C. Circuit...................................... 486 8.04 MILITARY COMMISSIONS............................... 493 [A] Hamdan............................................. 493 [B] Military Commissions Act................................ 499 [C] Hamdan II........................................... 502 [D] Military Commissions and the Obama Administration............ 509 Chapter 9 TARGETED KILLINGS......................... 515 9.01 TARGETED KILLINGS: SOME BACKGROUND............... 516 [A] Definition and Legal Constraints........................... 516 [B] Terrorism-Related Targeted Killings......................... 522 9.02 TARGETED KILLINGS AS COUNTERTERRORISM POLICY: ARGUMENTS IN FAVOR................................ 529 9.03 TARGETED KILLINGS AS COUNTERTERRORISM POLICY: ARGUMENTS AGAINST................................. 540 9.04 PROMINENT LEGAL CASES.............................. 551 [A] The Israeli Targeted Killings Case.......................... 551 [B] The Case of Anwar al-awlaki............................. 554 Table of Cases............................................... TC-1 Index........................................................ I-1 ix