Our Nation's history has been marked by a progress of fits and starts
related to the structure, function, and division of powers of, our
federal government.
For instance, the division of powers
between State and federal government quickly became an issue when
Maryland attempted to impose a state tax on a bank created by the
federal government. When that dispute came before the Supreme Court,
that Court concluded that, under our Constitutional scheme, the States
lacked the power to tax the federal government's bank.
In
another instance, Congress had crafted a compromise between the
disputing Free and Slave States of the Union that averted dissolution of
the Union for a period of time and prevented immediate bloodshed. But
when the issue of the power of Free States to make perpetually free from
slavery any slave that passed through their borders came to the Supreme
Court, the Supreme Court fractured the political solution devised by
Congress and concluded that a slave freed in Illinois did not remain
free when in Missouri, the slave state next door.
Sometimes,
it seems, unsolvable conflicts arise between branches. The Nation can
even be in the throes of National calamity when these conflicts arise.
For
example, when Franklin Delano Roosevelt took office after the Crash of
1929, he used the occasion of national calamity and fear and uncertainty
to push a progressive agenda of centralized government and entitlement
spending. Many, including Justices of the Supreme Court, found those
programs to be without constitutional authorization.
When
disputes over those programs came before the Court, the Justices who
rejected the notion that the Constitution allowed them issued decisions
striking down the programs. In response, FDR became incensed at the
roadblock the Court was becoming to his agenda. He began to discuss
publicly the idea of increasing the number of seats on the Supreme
Court. By doing so, he reasoned, he could appoint a sufficient number
of Justices to reconstitute a new majority, one that would sustain the
constitutionality of the programs he advanced. When it seemed such a
turn of events might actually occur, the Court made a sea change of
direction, giving place to FDR's agenda. The talk of packing the Court
soon faded.
So, today, we face yet another instance
in which, by rights, a direct conflict should exist between two of the
three branches of the federal government. This dispute, by the way,
will never be resolved by the Supreme Court. It is one that will be
resolved only when either the Congress blinks, or the President does.
You
see, President Obama stakes out a position in the dispute over how to
respond to the alleged use of chemical weapons in Syria by Syria. His
position is that, as President, he does not need authorization from
Congress to act. Obama is not the first president to have taken that
view of the Constitution and its delegation of powers between the
branches of the federal government.
This goes to a couple of keenly important questions about the nature of our National government.
It
is possible that the President, the Congress and the Supreme Court all
have the power to declare war on other nations, and to carry out and
direct military action in the name of the United States. The only way
it is possible is either (a) the Constitution says so or (b) it does not
matter what the Constitution says. As it turns out, the Constitution
does say something about the power to declare war and to command the
military forces of the United States. And, as it turns out, it may not
matter what the Constitution says.
Article I of the Constitution
creates the Congress of the United States, gives to the Congress all the
legislative powers of the federal government, sets out the rules for
its election and operation, and describes with particular detail the
specifics of its authority (as well as specific limitations on its
authority). Among the provisions of the Constitution regarding the
powers of Congress, there are these:
"The Congress shall have the power ...
To declare war, grant letters of marque and reprisal, and make rules concerning captures on land and water;
To raise and support armies, but no appropriation of money to that use shall be for a longer term than two years;
To provide and maintain a navy;
To make rules for the government and regulation of the land and naval forces;
To provide for calling forth the militia to execute the laws of the union, suppress insurrections and repel invasions;
To
provide for organizing, arming, and disciplining, the militia, and for
governing such part of them as may be employed in the service of the
United States, reserving to the states respectively, the appointment of
the officers, and the authority of training the militia according to the
discipline prescribed by Congress...."
"The
President shall be commander in chief of the Army and Navy of the
United States, and of the militia of the several states, when called
into the actual service of the United States...."
Article II of the
Constitution creates the Presidency, gives to the President all the
executive powers of the federal government, sets the rules for the
election and succession of the President, and describes with particular
detail the specifics of the President's authority.
There is no like provision -- that is, one touching on the power to declare war or command military forces -- within
Article III of the Constitution.
So,
it turns out, the Constitution does have something to say about how the
United States makes war. It turns out, as well, that what the
Constitution does not say is that each of the three branches of the
federal government, alike, is empowered to declare war. Nor does it
leave doubt about whether the President has the power to declare war.
Only
the Congress of the United States BY THE CONSTITUTION'S EXPRESS TERMS
has the power to declare war, to raise and support armies and navies and
to make rules for their conduct.
The President has a
defined but important, limited role in this constitutional scheme: as
Article II states, "The President shall be commander in chief of the
Army and Navy of the United States. And only the President is
authorized to act as such.
Now what end is effected by
these provisions of the Constitution? The answer may be more important
that the simpler question of whether we should bomb Syria. The end
effected by the Constitution is that the power resides in the Peoples'
representatives -- the Congress -- to declare that the United States is
at war with another country, and to authorize the undertaking of
military hostilities. No doubt exists in the constitutional language.
That this is so is not debatable.
Presidents (Obama is
not the first to take the view set out in the article linked above) find
this notion -- that military action can only be authorized by the
Congress -- to be too limiting on the power of the President as
Commander in Chief. So, in the case of the Korean and Vietnam
conflicts, Presidents Truman, Kennedy and Johnson each directed military
action be taken without any declaration of war from Congress.
Congress, in the early '70s, in response to these military adventures,
passed over a veto by President Nixon,
the War Powers Resolution,
which by its terms limits where and how the President may undertake
military action. The Resolution requires consultation with Congress
before such action, reporting of such actions to Congress within a
limited period after they are taken, and cessation of action unless
authorized subsequent to notice to Congress.
So now, with the "red line" drawn by the President having
seemingly
been crossed by the Assad regime in Syria, we come to the terrible
moment when American military forces are called to inflict military
action on that regime. The question, though, is whether President Obama
has the requisite authority to commit military action.
Above,
as the article indicates, he claims that authority. He, as Presidents
before him, thinks assertion of that power is essential to maintaining
the authority of the Presidency. So the question of whether he has that
authority seems resolved to him. But is the question resolved in the
view of the Congress? Well, if the War Powers Resolution indicates the
view of the Congress on the power of the President to commit the United
States to military adventures and hostilities, then the question
is resolved, but it is
resolved against the President's view of the matter. Nor is the War Powers Resolution the only evidence of a different view held by the Congress.
Consider
Senator Obama's view, expressed in an interview with the Boston Globe
during his campaign for the Democratic Presidential nomination:
"The
President does not have power under the Constitution to unilaterally
authorize a military attack in a situation that does not involve
stopping an actual or imminent threat to the nation."
No
wonder Joe Biden became Obama's eventual running mate. They shared the
same deep conclusion on this question. Then candidate Biden was
questioned by Chris Matthews about his view on the power of the
President. Here's the exchange:
"Chris Matthews: You said that if the United States
had launched at attack on Iran without Congressional approval, that
would've been an impeachable offense. Do you want to review that comment
you made?
Joe Biden:
Absolutely. I want to stand by that comment I made. The reason I made
the comment was as a warning. I don't say those things lightly, Chris.
you've known me for a long time. I was Chairman of the Judiciary
Committee for 17 years. I teach separation of powers in Constitutional
law. This is something I know. So I brought a group of Constitutional
scholars together to write a piece that I'm going to deliver to the
whole United States Senate pointing out that the president HAS NO
CONSTITUTIONAL AUTHORITY to take this country to war against a country
of 70 million people unless we're attacked or unless there is proof that
we are about to be attacked. And if he does, I would move to impeach
him. The House obviously has to do that, but I would lead an effort to
impeach him. The reason for my doing that -- and I don't say it lightly,
I don't say it lightly."
Of course, it is
possible that Obama and Biden, as candidates, were immature in their
reflection on the necessary scope of presidential authority. Now, laden
with responsibility for the security of the Nation, perhaps, their
understanding has matured. Even so, a mature reflection does not
substitute for the language and meaning of the Constitution. Unless the
Constitution does not matter.
It appears that we may learn in the next few weeks just how little the Constitution matters to this administration.