EXECUTIVE PRIVILEGE
Presidential Power, Secrecy,
and Accountability
FOURTH EDITION, REVISED AND UPDATED
Mark J. Rozell
with
Mitchel A. Sollenberger
UNIVERSITY PRESS OF KANSAS
2002, 2010, 2020 by the University Press of Kansas
All rights reserved
Published by the University Press of Kansas (Lawrence, Kansas 66045), which was organized by the Kansas Board of Regents and is operated and funded by Emporia State University, Fort Hays State University, Kansas State University, Pittsburg State University, the University of Kansas, and Wichita State University
Originally published with the title Executive Privilege: The Dilemma of Secrecy and Democratic Accountability by Johns Hopkins University Press in 1994.
Library of Congress Cataloging-in-Publication Data
Names: Rozell, Mark J., author.
Title: Executive privilege : presidential power, secrecy, and accountability / Mark J. Rozell. Description: Fourth edition, revised and updated. | Lawrence : University Press of Kansas, 2020. | Series: Studies in government and public policy | Includes bibliographical references and index.
Identifiers: LCCN 2020004182
ISBN 9780700629633 (cloth)
ISBN 9780700629640 (paperback)
ISBN 9780700629657 (ebook)
Subjects: LCSH: Executive privilege (Government information)United States. | Executive privilege (Government information)United StatesHistory.
Classification: LCC JK468.S4 R67 2020 | DDC 342.73/06dc23
LC record available at https://lccn.loc.gov/2020004182.
British Library Cataloguing in Publication Data is available.
Printed in the United States of America
10987654321
The paper used in this publication is recycled and contains 30 percent postconsumer waste. It is acid free and meets the minimum requirements of the American National Standard for Permanence of Paper for Printed Library Materials Z39.481992.
For Nadine and Rene
PREFACE AND ACKNOWLEDGMENTS
The first edition of this book (1994) examined executive privilege controversies from the presidencies of George Washington through George H. W. Bush. At that time, executive privilege appeared to be dormant, and President Bill Clinton expressed an interest in reviving that presidential power. Because of the Watergate taint, President Richard M. Nixons successors had made little effective use of executive privilege. Presidents Gerald R. Ford, Jimmy Carter, and George H. W. Bush generally avoided mentioning executive privilege and looked to other constitutional and statutory sources of authority for withholding information. President Ronald Reagan made some efforts to revive executive privilege, but he ultimately backed down in each of his battles with Congress and thus further weakened that presidential power. By the mid-1990s, it appeared that executive privilege was either dead or weakened beyond repair.
Presidents Bill Clinton and George W. Bush changed all of that. Neither of these presidents was reluctant to use executive privilege. Each of them tried to reestablish the viability of executive privilege as a legitimate presidential power. In so doing, each precipitated substantial controversy over attempts to withhold testimony, documents, and other sources of information about the operations of the executive branch.
Executive privilege was a controversial issue during the scandal that led to Clintons impeachment. The Clinton White House was also involved in an extraordinary number of other executive privilege disputes over its two terms. Some of the Clinton-era controversies resulted in important legal decisions regarding executive privilege. The George W. Bush White House also became embroiled in a number of controversies over the presidents expansive and highly dubious exercises of executive privilege.
The executive privilege controversies of the Bill Clinton and George W. Bush years were the impetus for the new editions of this book. The second edition appeared in 2002, and thus covered executive privilege battles through the very early stages of George W. Bushs first term in office. The third edition appeared in 2010, and therefore covered the entirety of the George W. Bush era as well as the early period of Barack Obamas first term. Since then, there have been a number of significant executive privilege conflicts that will have a lasting impact on the future exercises of this presidential power. This latest edition provides substantial new material on the Obama years and also covers the very early period of the Donald J. Trump presidency.
I wrote the first edition in the early 1990s largely in response to the controversial much earlier work on executive privilege by Raoul Berger (1974). At the time, my purpose was to present a much-needed corrective to an enormously influential and flawed work of scholarship. Berger had written an entirely single-sided analysis of a complex constitutional issue and declared executive privilege a myth. Leading presidential observers and many constitutional scholars referred to Bergers work as the authoritative and even the last word on the subject. I believed then that a different voice was needed on this subject. The first edition of this book therefore stands largely as a rebuttal to Bergers analysis. This latest new edition provides a needed updating of executive privilege controversies in light of what has happened since 1994.
The events of the George W. Bush, Barack Obama, and now Donald J. Trump years have also provided an opportunity for additional reflection on this topic. At the end of the first edition I had expressed the hope that some future administration would take up the charge to reestablish the presidential use of executive privilege. I argued that executive privilege is a legitimate, and sometimes necessary, presidential power and that with the benefit of enough time and distance from Watergate, it would become possible once again some day for a president to use this authority without embarrassment.
Bill Clinton and George W. Bush gave me a lot more than I had hoped for, as both of these presidents used executive privilege in a number of inter-branch disputes and therefore revived the national debate over this presidential power. Yet in so doing, they did far more damage to this constitutional principle than if they had just followed the lead of their predecessors and avoided executive privilege as much as possible. Although Barack Obama had promised greater transparency, his administration too became embroiled in some highly contentious exercises of executive privilege. To date, the Donald J. Trump administration has made several far-reaching claims of executive privilege and is fighting off increased congressional demands for information and testimony by current and former White House officials as well as informal advisers to the president. This latest edition reflects the development of my thinking on this topic in light of the many executive privilege controversies over the past twenty-five years. Furthermore, in that period there have been important court decisions that have provided legal guidance on the meaning of executive privilege, the components of that principle, and its limitations. Although I believe today, as I did then, that executive privilege disputes are best handled outside of the courts through an accommodation process, any current analysis of this constitutional principle must consider the newer legal standards in this area.