We Must Not Use the OLC Lawyers as Scapegoats on Torture
by Brian Tamanaha
President Obama said Tuesday that Justice Department officials who authorized harsh interrogation techniques are not immune from prosecution. “With respect to those who formulated those legal decisions,” the president said, “that is going to be more of a decision for the attorney general within the parameters of various laws, and I don’t want to prejudge that.” (NPR, April 22)
Many voices are now protesting that a criminal investigation of the OLC lawyers who wrote the “torture memos” would be unfair or improper. The President has already ruled out prosecution of the CIA interrogators who committed the torture (assuming they kept to the guidelines). There has been no hint that the Justice Department plans to investigate the high level officials who ordered the torture (Cheney, Rumsfeld, and company). At least for now, only the OLC lawyers are in the cross-hairs, while those who ordered the torture and those who carried it out breath easy.
It smells like the OLC lawyers are being served up as scapegoats for the bad deeds of others. They were just doing their job. They should not be punished for offering their good faith legal analysis. The fact that they were wrong about the law does not make them guilty of a crime. So say their defenders.
If an investigation into the actions of the OLC lawyers is about finding a scapegoat, it would be indeed be wrong. Let me explain, therefore, why the OLC lawyers must be investigated. Preview: It’s not about the torture. It’s about the special position of the OLC.
The role played by the Office of Legal Counsel within the Department of Justice is this: “By delegation from the Attorney General, the Assistant Attorney General in charge of the Office of Legal Counsel provides authoritative legal advice to the President and all the Executive Branch agencies” (OLC website). The key words are “authoritative legal advice.” This quasi-judicial power—the power to issue legal opinions that bind the Executive Branch—is unique to the OLC.
Owing to this extraordinary power, the lawyers have a narrowly circumscribed charge and bear special responsibilities. Steven Bradbury spelled this out in a 16 May 2005 memo, Best Practices for OLC Opinions (which he issued just 6 days after he signed two pivotal “torture” memos). The pertinent passages read:
By delegation, the Office of Legal Counsel exercises the Attorney General’s authority under the Judiciary Act of 1789 to advise the President and executive agencies on questions of law….
Our Office is frequently called upon to address issues of central importance to the functioning of the federal Government, and, subject to the President’s authority under the Constitution, OLC opinions are controlling on questions of law within the Executive Branch. Accordingly, it is imperative that our opinions be clear, accurate, thoroughly researched, and soundly reasoned….
Over the years, OLC has earned a reputation for giving candid, independent, and principled advice—even when that advice may be inconsistent with the desires of policymakers. This memorandum reaffirms the longstanding principles that have guided and will continue to guide OLC attorneys in preparing the formal opinions of the Office.
OLC’s interest is simply to provide the correct answer on the law….
That’s an excellent description of the OLC’s role, power, and responsibilities. These standards applied to the torture memos issued by Bybee, Yoo, and Bradbury. The OLC’s very reason for existing is to issue independent, correct, legal decisions. The events surrounding the torture memos provide a perfect illustration of why it is essential that OLC lawyers strive in good faith to meet these standards.
The Senate Report on Detainee Treatment discloses that the top lawyers for the Army, Navy, Air Force, and the Marine Corps, as well as Legal Counsel for the Joint Chiefs of Staff, strongly opposed the use of these abusive interrogation techniques, citing “serious concerns regarding the legality of many of the proposed techniques.” (Senate Report xviii). The military lawyers also worried that use of these techniques would increase the risk that captured U.S. soldiers would be tortured in retaliation. (An example of this opposition is a memo, linked here, issued by the group that supervises SERE training, which bluntly labeled these techniques “torture.”)
But Bush Administration higher-ups wanted the techniques to be applied. The OLC was called upon to issue legal opinions as a means to circumvent and squelch the opposition from military lawyers (never mind that military lawyers were more familiar than OLC lawyers with the techniques and the applicable law). When the OLC officially concluded that the techniques were “legal,” the opposition was silenced. Military lawyers were instructed to consider the “OLC memorandum as authoritative” (Senate Report 119-20), clearing the way for the techniques to become official policy.
The OLC has the power to trump opposing views on the law because, as described above, the OLC is the highest legal authority within the Executive Branch. This is why OLC lawyers must live up to their duty to issue independent, thoroughly researched, soundly reasoned, correct legal opinions. The awesome power to issue binding legal opinions is easy to abuse.
With this background, it is easy to identify the flaw in David Broder’s recent assertion that it would be wrong to investigate the OLC lawyers. Broder writes, “The memos on torture represented a deliberate, and internally well-debated, policy decision, made in the proper places — the White House, the intelligence agencies and the Justice Department — by the proper officials.”
Broder is wrong because the OLC lawyers were not asked for their opinion on policy. That is outside their charge. They do not have final authority on policy. They were asked to render a legal opinion on the legality of the proposed use of the abusive interrogation techniques. If the policy was illegal, it was the job of the OLC lawyers to say “NO,” as Bradbury asserts in his OLC Best Practices Memo, “even when that advice may be inconsistent with the desires of policymakers.”
Again, the duty of OLC lawyers to render its best independent judgment of the law is directly linked to its binding authority within the Executive Branch. It was by pointing to the OLC’s legal authority that President Bush could declare: “We don’t torture.” The OLC had issued legal opinions concluding that the interrogation techniques were “not torture”. It is for this reason that Bush Administration officials can now say in their defense for authorizing the torture: “We checked with the OLC lawyers, who assured us that this policy complied with the law.” That is why CIA interrogators can now say in their defense for inflicting the torture: “We checked with the OLC lawyers, who assured us that these interrogation techniques were legal.”
Everyone involved in the torture is pointing to the OLC lawyers, and for good reason: It was precisely the job of OLC lawyers to give the policy makers, and those who carry out the policy, independent advice on what a correct reading of the law allows or prohibits.
As this discussion emphasizes, the OLC occupies a pivotal position as the final check on the legality of proposed government conduct. The essence of the rule of law is that government officials are bound by and act consistent with the law. Ensuring compliance with the rule of law is the very point and purpose of the OLC.
If the OLC lawyers do not carry out this role with integrity, the institutional arrangement designed to preserve the rule of law is fatally compromised. There is nothing to stop illegal government activity at the highest levels. More to the point, a compromised OLC can play an affirmative role in aiding and abetting illegal activity because its legal opinions supply a defense to putative law-breakers. This increases the likelihood that the illegal activity will occur (as in this instance, when the CIA agents were reluctant to utilize the interrogation techniques without the “golden shield” provided by the legal opinions).
In opposition to a criminal investigation of the OLC lawyers, Peggy Noonan writes, “As for the memo writers, some of whose constitutional theories were apparently tilted to the extreme in favor of the executive, it is hard to see how it would help future administrations, or this one, to have such advice, however incorrectly formulated, criminalized.”
Noonan is absolutely correct that we must not criminalize erroneous legal advice. The key question here, however, is whether this was “just” bad legal advice, or whether it involved active participation by OLC lawyers in the violation of U.S. laws against torture. If the latter occurred, then a criminal investigation would help future administrations by serving as a reminder that the government must act within the limits of the law, and that it is the special job of OLC lawyers to make sure this happens. It is about deterring lawbreaking–facilitated by lawyers–at the highest levels of government.
That is why there should be a criminal investigation of the OLC lawyers. Lawyers have been held criminally responsible before (for example, German lawyers after WW II, and tax lawyers who construct illegal tax shelters or write bogus opinion letters). It might be true that they did not knowingly facilitate a conspiracy to violate the federal anti-toture statute, and it might prove impossible to establish criminal intent on their part (email exchanges to and from OLC lawyers surrounding the production of the memos will shed light on this). In either case, they won’t be prosecuted. But we won’t know the answers to these questions until after a criminal investigation has been completed.
A criminal investigation into the actions of the OLC lawyers is required not because our country has engaged in torture (as bad as that was). Ultimately, it’s about preserving the integrity of our system of law.