UNCLASSIFIED//FOR OFFICIAL USE ONLY (U//FOUO) Rightwing Extremism: Current Economic and Political Climate Fueling Resurgence in Radicalization and Recruitment IA-0257-09 UNCLASSIFIED//FOR OFFICIAL USE ONLY UNCLASSIFIED//FOR OFFICIAL USE ONLY (U//FOUO) Rightwing Extremism: Current Economic and Political Climate Fueling Resurgence in Radicalization and Recruitment 7 April 2009 (U) Prepared by the Extremism and Radicalization Branch, Homeland Environment Threat Analysis Division. Coordinated with the FBI. (U) Scope (U//FOUO) This product is one of a series of intelligence assessments published by the Extremism and Radicalization Branch to facilitate a greater understanding of the phenomenon of violent radicalization in the United States. The information is provided to federal, state, local, and tribal counterterrorism and law enforcement officials so they may effectively deter, prevent, preempt, or respond to terrorist attacks against the United States. Federal efforts to influence domestic public opinion must be conducted in an overt and transparent manner, clearly identifying United States Government sponsorship. (U) LAW ENFORCEMENT INFORMATION NOTICE: This product contains Law Enforcement Sensitive (LES) information. No portion of the LES information should be released to the media, the general public, or over non-secure Internet servers. Release of this information could adversely affect or jeopardize investigative activities. (U) Warning: This document is UNCLASSIFIED//FOR OFFICIAL USE ONLY (U//FOUO). It contains information that may be exempt from public release under the Freedom of Information Act (5 U.S.C. 552). It is to be controlled, stored, handled, transmitted, distributed, and disposed of in accordance with DHS policy relating to FOUO information and is not to be released to the public, the media, or other personnel who do not have a valid need-to-know without prior approval of an authorized DHS official. State and local homeland security officials may share this document with authorized security personnel without further approval from DHS. (U) All U.S. person information has been minimized. Should you require the minimized U.S. person information, please contact the DHS/I&A Production Branch at IA.PM@hq.dhs.gov, IA.PM@dhs.sgov.gov, or IA.PM@dhs.ic.gov. UNCLASSIFIED//FOR OFFICIAL USE ONLY
UNCLASSIFIED//FOR OFFICIAL USE ONLY (U) Key Findings (U//LES) The DHS/Office of Intelligence and Analysis (I&A) has no specific information that domestic rightwing* terrorists are currently planning acts of violence, but rightwing extremists may be gaining new recruits by playing on their fears about several emergent issues. The economic downturn and the election of the first African American president present unique drivers for rightwing radicalization and recruitment. -- (U//LES) Threats from white supremacist and violent antigovernment groups during 2009 have been largely rhetorical and have not indicated plans to carry out violent acts. Nevertheless, the consequences of a prolonged economic downturn--including real estate foreclosures, unemployment, and an inability to obtain credit--could create a fertile recruiting environment for rightwing extremists and even result in confrontations between such groups and government authorities similar to those in the past. -- (U//LES) Rightwing extremists have capitalized on the election of the first African American president, and are focusing their efforts to recruit new members, mobilize existing supporters, and broaden their scope and appeal through propaganda, but they have not yet turned to attack planning. (U//FOUO) The current economic and political climate has some similarities to the 1990s when rightwing extremism experienced a resurgence fueled largely by an economic recession, criticism about the outsourcing of jobs, and the perceived threat to U.S. power and sovereignty by other foreign powers. -- (U//FOUO) During the 1990s, these issues contributed to the growth in the number of domestic rightwing terrorist and extremist groups and an increase in violent acts targeting government facilities, law enforcement officers, banks, and infrastructure sectors. -- (U//FOUO) Growth of these groups subsided in reaction to increased government scrutiny as a result of the 1995 Oklahoma City bombing and disrupted plots, improvements in the economy, and the continued U.S. standing as the preeminent world power. (U//FOUO) The possible passage of new restrictions on firearms and the return of military veterans facing significant challenges reintegrating into their communities could lead to the potential emergence of terrorist groups or lone wolf extremists capable of carrying out violent attacks. * (U) Rightwing extremism in the United States can be broadly divided into those groups, movements, and adherents that are primarily hate-oriented (based on hatred of particular religious, racial or ethnic groups), and those that are mainly antigovernment, rejecting federal authority in favor of state or local authority, or rejecting government authority entirely. It may include groups and individuals that are dedicated to a single issue, such as opposition to abortion or immigration. UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 2 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY -- (U//FOUO) Proposed imposition of firearms restrictions and weapons bans likely would attract new members into the ranks of rightwing extremist groups, as well as potentially spur some of them to begin planning and training for violence against the government. The high volume of purchases and stockpiling of weapons and ammunition by rightwing extremists in anticipation of restrictions and bans in some parts of the country continue to be a primary concern to law enforcement. -- (U//FOUO) Returning veterans possess combat skills and experience that are attractive to rightwing extremists. DHS/I&A is concerned that rightwing extremists will attempt to recruit and radicalize returning veterans in order to boost their violent capabilities. (U) Current Economic and Political Climate (U//FOUO) DHS/I&A assesses that a number of economic and political factors are driving a resurgence in rightwing extremist recruitment and radicalization activity. Despite similarities to the climate of the 1990s, the threat posed by lone wolves and small terrorist cells is more pronounced than in past years. In addition, the historical election of an African American president and the prospect of policy changes are proving to be a driving force for rightwing extremist recruitment and radicalization. -- (U) A recent example of the potential violence associated with a rise in rightwing extremism may be found in the shooting deaths of three police officers in Pittsburgh, Pennsylvania, on 4 April 2009. The alleged gunman's reaction reportedly was influenced by his racist ideology and belief in antigovernment conspiracy theories related to gun confiscations, citizen detention camps, and a Jewish-controlled "one world government." (U) Exploiting Economic Downturn (U//FOUO) Rightwing extremist chatter on the Internet continues to focus on the economy, the perceived loss of U.S. jobs in the manufacturing and construction sectors, and home foreclosures. Anti-Semitic extremists attribute these losses to a deliberate conspiracy conducted by a cabal of Jewish "financial elites." These "accusatory" tactics are employed to draw new recruits into rightwing extremist groups and further radicalize those already subscribing to extremist beliefs. DHS/I&A assesses this trend is likely to accelerate if the economy is perceived to worsen. (U) Historical Presidential Election (U//LES) Rightwing extremists are harnessing this historical election as a recruitment tool. Many rightwing extremists are antagonistic toward the new presidential administration and its perceived stance on a range of issues, including immigration and citizenship, the expansion of social programs to minorities, and restrictions on firearms UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 3 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY ownership and use. Rightwing extremists are increasingly galvanized by these concerns and leverage them as drivers for recruitment. From the 2008 election timeframe to the present, rightwing extremists have capitalized on related racial and political prejudices in expanded propaganda campaigns, thereby reaching out to a wider audience of potential sympathizers. -- (U//LES) Most statements by rightwing extremists have been rhetorical, expressing concerns about the election of the first African American president, but stopping short of calls for violent action. In two instances in the run-up to the election, extremists appeared to be in the early planning stages of some threatening activity targeting the Democratic nominee, but law enforcement interceded. (U) Revisiting the 1990s (U//FOUO) Paralleling the current national climate, rightwing extremists during the 1990s exploited a variety of social issues and political themes to increase group visibility and recruit new members. Prominent among these themes were the militia movement's opposition to gun control efforts, criticism of free trade agreements (particularly those with Mexico), and highlighting perceived government infringement on civil liberties as well as white supremacists' longstanding exploitation of social issues such as abortion, inter-racial crimes, and same-sex marriage. During the 1990s, these issues contributed to the growth in the number of domestic rightwing terrorist and extremist groups and an increase in violent acts targeting government facilities, law enforcement officers, banks, and infrastructure sectors. (U) Economic Hardship and Extremism (U//FOUO) Historically, domestic rightwing extremists have feared, predicted, and anticipated a cataclysmic economic collapse in the United States. Prominent antigovernment conspiracy theorists have incorporated aspects of an impending economic collapse to intensify fear and paranoia among like-minded individuals and to attract recruits during times of economic uncertainty. Conspiracy theories involving declarations of martial law, impending civil strife or racial conflict, suspension of the U.S. Constitution, and the creation of citizen detention camps often incorporate aspects of a failed economy. Antigovernment conspiracy theories and "end times" prophecies could motivate extremist individuals and groups to stockpile food, ammunition, and weapons. These teachings also have been linked with the radicalization of domestic extremist individuals and groups in the past, such as violent Christian Identity organizations and extremist members of the militia movement. (U//FOUO) Perceptions on Poverty and Radicalization (U//FOUO) Scholars and experts disagree over poverty's role in motivating violent radicalization or terrorist activity. High unemployment, however, has the potential to lead to alienation, thus increasing an individual's susceptibility to extremist ideas. According to a 2007 study from the German Institute for Economic Research, there appears to be a strong association between a parent's unemployment status and the formation of rightwing extremist beliefs in their children--specifically xenophobia and antidemocratic ideals. UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 4 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY (U) Illegal Immigration (U//FOUO) Rightwing extremists were concerned during the 1990s with the perception that illegal immigrants were taking away American jobs through their willingness to work at significantly lower wages. They also opposed free trade agreements, arguing that these arrangements resulted in Americans losing jobs to countries such as Mexico. (U//FOUO) Over the past five years, various rightwing extremists, including militias and white supremacists, have adopted the immigration issue as a call to action, rallying point, and recruiting tool. Debates over appropriate immigration levels and enforcement policy generally fall within the realm of protected political speech under the First Amendment, but in some cases, anti-immigration or strident pro-enforcement fervor has been directed against specific groups and has the potential to turn violent. (U//FOUO) DHS/I&A assesses that rightwing extremist groups' frustration over a perceived lack of government action on illegal immigration has the potential to incite individuals or small groups toward violence. If such violence were to occur, it likely would be isolated, small-scale, and directed at specific immigration-related targets. -- (U//FOUO) DHS/I&A notes that prominent civil rights organizations have observed an increase in anti-Hispanic crimes over the past five years. -- (U) In April 2007, six militia members were arrested for various weapons and explosives violations. Open source reporting alleged that those arrested had discussed and conducted surveillance for a machinegun attack on Hispanics. -- (U) A militia member in Wyoming was arrested in February 2007 after communicating his plans to travel to the Mexican border to kill immigrants crossing into the United States. (U) Legislative and Judicial Drivers (U//FOUO) Many rightwing extremist groups perceive recent gun control legislation as a threat to their right to bear arms and in response have increased weapons and ammunition stockpiling, as well as renewed participation in paramilitary training exercises. Such activity, combined with a heightened level of extremist paranoia, has the potential to facilitate criminal activity and violence. -- (U//FOUO) During the 1990s, rightwing extremist hostility toward government was fueled by the implementation of restrictive gun laws--such as the Brady Law that established a 5-day waiting period prior to purchasing a handgun and the 1994 Violent Crime Control and Law Enforcement Act that limited the sale of various types of assault rifles--and federal law enforcement's handling of the confrontations at Waco, Texas and Ruby Ridge, Idaho. UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 5 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY -- (U//FOUO) On the current front, legislation has been proposed this year requiring mandatory registration of all firearms in the United States. Similar legislation was introduced in 2008 in several states proposing mandatory tagging and registration of ammunition. It is unclear if either bill will be passed into law; nonetheless, a correlation may exist between the potential passage of gun control legislation and increased hoarding of ammunition, weapons stockpiling, and paramilitary training activities among rightwing extremists. (U//FOUO) Open source reporting of wartime ammunition shortages has likely spurred rightwing extremists--as well as law-abiding Americans--to make bulk purchases of ammunition. These shortages have increased the cost of ammunition, further exacerbating rightwing extremist paranoia and leading to further stockpiling activity. Both rightwing extremists and law-abiding citizens share a belief that rising crime rates attributed to a slumping economy make the purchase of legitimate firearms a wise move at this time. (U//FOUO) Weapons rights and gun-control legislation are likely to be hotly contested subjects of political debate in light of the 2008 Supreme Court's decision in District of Columbia v. Heller in which the Court reaffirmed an individual's right to keep and bear arms under the Second Amendment to the U.S. Constitution, but left open to debate the precise contours of that right. Because debates over constitutional rights are intense, and parties on all sides have deeply held, sincere, but vastly divergent beliefs, violent extremists may attempt to co-opt the debate and use the controversy as a radicalization tool. (U) Perceived Threat from Rise of Other Countries (U//FOUO) Rightwing extremist paranoia of foreign regimes could escalate or be magnified in the event of an economic crisis or military confrontation, harkening back to the "New World Order" conspiracy theories of the 1990s. The dissolution of Communist countries in Eastern Europe and the end of the Soviet Union in the 1990s led some rightwing extremists to believe that a "New World Order" would bring about a world government that would usurp the sovereignty of the United States and its Constitution, thus infringing upon their liberty. The dynamics in 2009 are somewhat similar, as other countries, including China, India, and Russia, as well as some smaller, oil-producing states, are experiencing a rise in economic power and influence. -- (U//FOUO) Fear of Communist regimes and related conspiracy theories characterizing the U.S. Government's role as either complicit in a foreign invasion or acquiescing as part of a "One World Government" plan inspired extremist members of the militia movement to target government and military facilities in past years. -- (U//FOUO) Law enforcement in 1996 arrested three rightwing militia members in Battle Creek, Michigan with pipe bombs, automatic weapons, and military UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 6 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY ordnance that they planned to use in attacks on nearby military and federal facilities and infrastructure targets. -- (U//FOUO) Rightwing extremist views bemoan the decline of U.S. stature and have recently focused on themes such as the loss of U.S. manufacturing capability to China and India, Russia's control of energy resources and use of these to pressure other countries, and China's investment in U.S. real estate and corporations as a part of subversion strategy. (U) Disgruntled Military Veterans (U//FOUO) DHS/I&A assesses that rightwing extremists will attempt to recruit and radicalize returning veterans in order to exploit their skills and knowledge derived from military training and combat. These skills and knowledge have the potential to boost the capabilities of extremists--including lone wolves or small terrorist cells--to carry out violence. The willingness of a small percentage of military personnel to join extremist groups during the 1990s because they were disgruntled, disillusioned, or suffering from the psychological effects of war is being replicated today. -- (U) After Operation Desert Shield/Storm in 1990-1991, some returning military veterans--including Timothy McVeigh--joined or associated with rightwing extremist groups. -- (U) A prominent civil rights organization reported in 2006 that "large numbers of potentially violent neo-Nazis, skinheads, and other white supremacists are now learning the art of warfare in the [U.S.] armed forces." -- (U//LES) The FBI noted in a 2008 report on the white supremacist movement that some returning military veterans from the wars in Iraq and Afghanistan have joined extremist groups. (U//FOUO) Lone Wolves and Small Terrorist Cells (U//FOUO) DHS/I&A assesses that lone wolves and small terrorist cells embracing violent rightwing extremist ideology are the most dangerous domestic terrorism threat in the United States. Information from law enforcement and nongovernmental organizations indicates lone wolves and small terrorist cells have shown intent--and, in some cases, the capability--to commit violent acts. -- (U//LES) DHS/I&A has concluded that white supremacist lone wolves pose the most significant domestic terrorist threat because of their low profile and autonomy--separate from any formalized group--which hampers warning efforts. -- (U//FOUO) Similarly, recent state and municipal law enforcement reporting has warned of the dangers of rightwing extremists embracing the tactics of "leaderless resistance" and of lone wolves carrying out acts of violence. -- (U//FOUO) Arrests in the past several years of radical militia members in Alabama, Arkansas, and Pennsylvania on firearms, explosives, and other related violations indicates the emergence of small, well-armed extremist groups in some rural areas. UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 7 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY (U) Outlook (U//FOUO) DHS/I&A assesses that the combination of environmental factors that echo the 1990s, including heightened interest in legislation for tighter firearms restrictions and returning military veterans, as well as several new trends, including an uncertain economy and a perceived rising influence of other countries, may be invigorating rightwing extremist activity, specifically the white supremacist and militia movements. To the extent that these factors persist, rightwing extremism is likely to grow in strength. (U//FOUO) Unlike the earlier period, the advent of the Internet and other information- age technologies since the 1990s has given domestic extremists greater access to information related to bomb-making, weapons training, and tactics, as well as targeting of individuals, organizations, and facilities, potentially making extremist individuals and groups more dangerous and the consequences of their violence more severe. New technologies also permit domestic extremists to send and receive encrypted communications and to network with other extremists throughout the country and abroad, making it much more difficult for law enforcement to deter, prevent, or preempt a violent extremist attack. (U//FOUO) A number of law enforcement actions and external factors were effective in limiting the militia movement during the 1990s and could be utilized in today's climate. -- (U//FOUO) Following the 1995 bombing of the Alfred P. Murrah federal building in Oklahoma City, the militia movement declined in total membership and in the number of organized groups because many members distanced themselves from the movement as a result of the intense scrutiny militias received after the bombing. -- (U//FOUO) Militia membership continued to decline after the turn of the millennium as a result of law enforcement disruptions of multiple terrorist plots linked to violent rightwing extremists, new legislation banning paramilitary training, and militia frustration that the "revolution" never materialized. -- (U//FOUO) Although the U.S. economy experienced a significant recovery and many perceived a concomitant rise in U.S. standing in the world, white supremacist groups continued to experience slight growth. (U//FOUO) DHS/I&A will be working with its state and local partners over the next several months to ascertain with greater regional specificity the rise in rightwing extremist activity in the United States, with a particular emphasis on the political, economic, and social factors that drive rightwing extremist radicalization. UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 8 of 9
UNCLASSIFIED//FOR OFFICIAL USE ONLY (U) Reporting Notice: (U) DHS encourages recipients of this document to report information concerning suspicious or criminal activity to DHS and the FBI. The DHS National Operations Center (NOC) can be reached by telephone at 202-282-9685 or by e-mail at NOC.Fusion@dhs.gov. For information affecting the private sector and critical infrastructure, contact the National Infrastructure Coordinating Center (NICC), a sub-element of the NOC. The NICC can be reached by telephone at 202-282-9201 or by e-mail at NICC@dhs.gov. The FBI regional phone numbers can be found online at http://www.fbi.gov/contact/fo/fo.htm. When available, each report submitted should include the date, time, location, type of activity, number of people and type of equipment used for the activity, the name of the submitting company or organization, and a designated point of contact. (U) For comments or questions related to the content or dissemination of this document, please contact the DHS/I&A Production Branch at IA.PM@hq.dhs.gov, IA.PM@dhs.sgov.gov, or IA.PM@dhs.ic.gov. (U) Tracked by: CRIM-040300-01-05, CRIM-040400-01-05, TERR-010000-01-05 UNCLASSIFIED//FOR OFFICIAL USE ONLY Page 9 of 9
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 1 of 36 1 MICHAEL F. HERTZ Acting Assistant Attorney General, Civil Division 2 DOUGLAS N. LETTER Terrorism Litigation Counsel 3 JOSEPH H. HUNT Director, Federal Programs Branch 4 VINCENT M. GARVEY Deputy Branch Director 5 ANTHONY J. COPPOLINO Special Litigation Counsel 6 PAUL G. FREEBORNE MARC KRICKBAUM 7 Trial Attorneys U.S. Department of Justice 8 Civil Division, Federal Programs Branch 20 Massachusetts Avenue, NW, Rm. 6102 9 Washington, D.C. 20001 Phone: (202) 514-4782 10 Fax: (202) 616-8460 11 Attorneys for the Government Defendants Sued in their Official Capacity 12 UNITED STATES DISTRICT COURT 13 NORTHERN DISTRICT OF CALIFORNIA 14 SAN FRANCISCO DIVISION 15 16 Case No. C:08-cv-4373-VRW ) 17 CAROLYN JEWEL, TASH HEPTING, ) GOVERNMENT DEFENDANTS' GREGORY HICKS, ERIK KNUTZEN, and ) NOTICE OF MOTION AND MOTION 18 JOICE WALTON, ) TO DISMISS AND FOR SUMMARY ) JUDGMENT 19 Plaintiffs, ) ) Date: June 25, 2009 20 v. ) Time: 2:30 p.m. ) Courtroom: 6, 17th Floor 21 NATIONAL SECURITY AGENCY ("NSA"); ) KEITH B. ALEXANDER, Director of the NSA; ) Chief Judge Vaughn R. Walker 22 UNITED STATES OF AMERICA; ) BARACK OBAMA, President of the United ) 23 States; UNITED STATES DEPARTMENT OF ) JUSTICE; ERIC HOLDER, Attorney General ) 24 of the United States; DENNIS C. BLAIR, ) Director of National Intelligence. ) 25 ) Government Defendants ) 26 Sued in Their Official Capacity. ) _______________________________________ 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 2 of 36 1 PLEASE TAKE NOTICE that, on June 25, 2009 at 2:30 p.m., before Chief Judge 2 Vaughn R. Walker, the Government Defendants sued in their official capacity in this action will 3 move to dismiss certain claims in the Complaint against them pursuant to Rule 12(b)(1) of the 4 Federal Rules of Civil Procedure, and for summary judgment as to any remaining claims 5 pursuant to Rule 56. The grounds for this motion are that the Court lacks subject matter 6 jurisdiction with respect to plaintiffs' statutory claims against the United States because 7 Congress has not waived sovereign immunity, and summary judgment for the Government on all 8 of plaintiffs' remaining claims against all parties (including any claims not dismissed for lack of 9 jurisdiction) is required because information necessary to litigate plaintiffs' claims is properly 10 subject to and excluded from use in this case by the state secrets privilege and related statutory 11 privileges. The grounds for this motion are set forth further in the accompanying (i) 12 Memorandum of Points and Authorities in Support of the Government Defendants' Motion to 13 Dismiss and for Summary Judgment; (ii) Public Declaration of Admiral Dennis C. Blair, 14 Director of National Intelligence (hereafter "Public DNI Decl."); (iii) Public Declaration of 15 Deborah A. Bonanni, Chief of Staff, National Security Agency (hereafter "Public NSA Decl."). 16 Additional grounds for these motions are also set forth in the (iv) Classified State Secrets 17 Privilege Declaration of Dennis C. Blair, Director of National Intelligence; (v) Classified 18 Declaration of Deborah A. Bonanni, Chief of Staff, National Security Agency; and (vi) 19 Supplemental Classified Memorandum of Points and Authorities in Support of the Government 20 Defendants' Motion to Dismiss and for Summary Judgment. These classified materials have 21 been lodged with court security officers and are available upon request solely for the Court's in 22 camera, ex parte review. 23 April 3, 2009 Respectfully Submitted, 24 MICHAEL F. HERTZ Acting Assistant Attorney General 25 DOUGLAS N. LETTER 26 Terrorism Litigation Counsel 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW 2
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 3 of 36 JOSEPH H. HUNT 1 Director, Federal Programs Branch 2 VINCENT M. GARVEY Deputy Branch Director 3 s/ Anthony J. Coppolino 4 ANTHONY J. COPPOLINO Special Litigation Counsel 5 s/ Paul G. Freeborne 6 PAUL G. FREEBORNE 7 s/ Marc Krickbaum MARC KRICKBAUM 8 Trial Attorneys U.S. Department of Justice 9 Civil Division, Federal Programs Branch 20 Massachusetts Avenue, NW, Rm. 6102 10 Washington, D.C. 20001 Phone: (202) 514-4782 11 Fax: (202) 616-8460 Email: tony.coppolino@usdoj.gov 12 Attorneys for the Government Defendants 13 Sued in Their Official Capacity 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW 3
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 4 of 36 1 MICHAEL F. HERTZ Acting Assistant Attorney General, Civil Division 2 DOUGLAS N. LETTER Terrorism Litigation Counsel 3 JOSEPH H. HUNT Director, Federal Programs Branch 4 VINCENT M. GARVEY Deputy Branch Director 5 ANTHONY J. COPPOLINO Special Litigation Counsel 6 PAUL G. FREEBORNE MARC KRICKBAUM 7 Trial Attorneys U.S. Department of Justice 8 Civil Division, Federal Programs Branch 20 Massachusetts Avenue, NW, Rm. 6102 9 Washington, D.C. 20001 Phone: (202) 514-4782 10 Fax: (202) 616-8460 11 Attorneys for the Government Defendants Sued in their Official Capacity 12 UNITED STATES DISTRICT COURT 13 NORTHERN DISTRICT OF CALIFORNIA 14 SAN FRANCISCO DIVISION 15 Case No. C:08-cv-4373-VRW 16 ) CAROLYN JEWEL, TASH HEPTING, ) GOVERNMENT DEFENDANTS' 17 GREGORY HICKS, ERIK KNUTZEN, and ) MEMORANDUM IN SUPPORT OF JOICE WALTON, ) MOTION TO DISMISS AND FOR 18 ) SUMMARY JUDGMENT Plaintiffs ) 19 ) Date: June 25, 2009 v. ) Time: 2:30 p.m. 20 ) Courtroom: 6, 17th Floor NATIONAL SECURITY AGENCY ("NSA"); ) 21 KEITH B. ALEXANDER, Director of the NSA; ) Chief Judge Vaughn R. Walker UNITED STATES OF AMERICA; ) 22 BARACK OBAMA, President of the United ) States; UNITED STATES DEPARTMENT OF ) 23 JUSTICE; ERIC HOLDER, Attorney General ) of the United States; DENNIS C. BLAIR, ) 24 Director of National Intelligence. ) ) 25 Government Defendants ) Sued in Their Official Capacity 26 _______________________________________ 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 5 of 36 1 TABLE OF CONTENTS 2 PAGE 3 INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 4 ARGUMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 5 I. CONGRESS HAS NOT WAIVED SOVEREIGN IMMUNITY FOR PLAINTIFFS' STATUTORY CLAIMS. . . . . . . . . . . . . . . . . . . . . . . . . 2 6 A. Congress Has Not Waived Sovereign Immunity as to Plaintiffs' 7 Claims for Damages. . . . . . . . . . . . . . . . . . . . . . . . . 3 8 1. Congress Has Expressly Preserved Sovereign Immunity For Plaintiffs' Wiretap Act and ECPA Claims. . . . . . . 3 9 2. Congress Has Not Waived Sovereign Immunity in 10 FISA Section 1810. . . . . . . . . . . . . . . . . . . . 7 11 B. Congress Has Not Waived Sovereign Immunity for the Equitable Relief Plaintiffs Seek under FISA, the Wiretap Act, and ECPA. . . . 8 12 1. APA Section 702 Does Not Waive Sovereign 13 Immunity Where Other Statutes Explicitly or Implicitly Bar Relief Against the United States. . . . . 9 14 2. Larson Fails to Provide an Independent Basis for Equitable 15 Relief. . . . . . . . . . . . . . . . . . . . . . . . . 10 16 II. INFORMATION SUBJECT TO THE STATE SECRETS PRIVILEGE AND RELATED STATUTORY PRIVILEGES IS NECESSARY TO 17 LITIGATE THIS CASE AND MUST BE EXCLUDED FROM FURTHER PROCEEDINGS. . . . . . . . . . . . . . . . . . . . . . . . . . . .. . 12 18 A. The State Secrets Privilege Bars Use of Privileged Information In 19 Litigation. . . . . . . . . . . . . . . . . . . . . . . . . . .. . 12 20 B. The United States Has Properly Asserted the State Secrets and Related Statutory Privileges in this Case. . . . . . . . . . . . . 14 21 III. WHERE STATE SECRETS ARE NEEDED TO LITIGATE PLAINTIFFS' 22 CLAIMS, THE CASE CANNOT PROCEED. . . . . . . . . . . . . . . . . . . . . .. . 16 23 A. Standing Cannot be Established or Refuted Without the Disclosure of State Secrets and Harm to National Security. . . . . . . . .. . 18 24 B. The Disclosure of Privileged Information Would Also be Required 25 to Adjudicate Plaintiffs' Claims on the Merits. . . .. . . . . . . 21 26 V. LITIGATION OF THE PLAINTIFFS' CLAIMS CANNOT PROCEED UNDER FISA. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -i-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 6 of 36 CONCLUSION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . 25 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -ii-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 7 of 36 TABLE OF AUTHORITIES 1 CASES PAGE(S) 2 Alaska v. Babbitt, 75 F.3d 449 (9th Cir. 1996) (Babbitt II) . . . . . . . . . . . . . 9, 10, 11 3 Alaska v. Babbitt, 38 F.3d 1068 (9th Cir. 1994) (Babbitt I) . . . . . . . . . . . . . . . . . 9 4 Al-Haramain Islamic Found., Inc. v. Bush, 564 F. Supp. 2d 1109 (N.D. Cal. 2008) . . . 7, 13, 24 5 Al-Haramain Islamic Found., Inc. v. Bush, 507 F.3d 1190 (9th Cir. 2007) . . . . . . . . passim 6 American Civil Liberties Union v. NSA, 493 F.3d 644 (6th Cir. 2007). . . . . . . . . . . . . 19 7 Aminoil U.S.A., Inc. v. Cal. State Water Ctrl. Bd., 674 F.2d 1227 (9th Cir. 1982). . . . . . 11 8 Block v. North Dakota, 461 U.S. 273 (1983). . . . . . . . . . . . . . . . . . . . . . 9, 10, 11 9 Cent. Bank of Denver v. First Interstate Bank, 511 U.S. 164 (1994). . . . . . . . . . . . . . 7 10 Cent. Res. Life of North America Ins. Co. v. Struve, 852 F.2d 1158 (9th Cir. 1988) . . . . . 11 11 Children's Hosp. Health Ctr. v. Belshe, 188 F.3d 1090 (9th Cir. 1999). . . . . . . . . 4, 6, 11 12 CIA v. Sims, 471 U.S. 159 (1985) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13, 23 13 City of Los Angeles v. Lyons, 461 U.S. 95 (1983) . . . . . . . . . . . . . . . . . . . . . . 18 14 Dep't of the Army v. Blue Fox, Inc., 525 U.S. 255 (1999) . . . . . . . . . . . . . . . . . 2, 6 15 Dep't of Army v. Fed. Labor Relations Auth., 56 F.3d 273 (D.C. Cir. 1995) . . . . . . . . . . 6 16 Dugan v. Rank, 372 U.S. 609 (1963) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 17 Duncan v. Walker, 533 U.S. 167 (2001). . . . . . . . . . . . . . . . . . . . . . . . . . . 4, 6 18 Ellsberg v. Mitchell, 709 F.2d 51 (D.C. Cir. 1983) . . . . . . . . . . . . . . . 12, 14, 18, 19 19 El-Masri v. United States, 479 F.3d 296 (4th Cir. 2007). . . . . . . . . . . . . . . . . . . 12 20 F.D.I.C. v. Meyer, 510 U.S. 471 (1994). . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 21 Freeman v. DirecTV, 457 F.3d 1001 (9th Cir. 2006) . . . . . . . . . . . . . . . . . . . . . . 7 22 Hepting v. AT&T, 493 F. Supp. 2d 974 (N.D. Cal. 2006). . . . . . . . . . . . . . . . . . passim 23 Halkin v. Helms, 690 F.2d 977 (D.C. Cir. 1982) (Halkin II) . . . . . . . . . . . . . 12, 13, 19 24 Halkin v. Helms, 598 F.2d 1 (D.C. Cir. 1978) (Halkin I). . . . . . . . . . . . . . . . . 13, 18 25 Hawaii v. Gordon, 373 U.S. 57 (1963) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 26 Holloway v. United States, 526 U.S. 1 (1999). . . . . . . . . . . . . . . . . . . . . . . . . 4 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -iii-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 8 of 36 Hughes v. United States, 953 F.2d 531 (9th Cir. 1992) . . . . . . . . . . . . . . . . . . . . 9 1 Jones v. United States, 527 U.S. 373 (1999) . . . . . . . . . . . . . . . . . . . . . . . . . 5 2 Kasza v. Browner, 133 F.3d 1159 (9th Cir. 1998). . . . . . . . . . . . . . . . . . . . . passim 3 Lane v. Pena, 518 U.S. 187 (1996) . . . . . . . . . . . . . . . . . . . . . . . . . . . 2, 6, 8 4 Larson v. Domestic & Foreign Commerce Corp., 337 U.S. 682 (1949) . . . . . . . . . 3, 8, 10, 11 5 Lewis v. Casey, 518 U.S. 343 (1996). . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 6 Lujan v. Defenders of Wildlife, 504 U.S. 555 (1992). . . . . . . . . . . . . . . . . . . . . 18 7 Multi Denominational Ministry of Cannabis v. Gonzales, 8 474 F. Supp. 2d 1133 (N.D. Cal. 2007) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 9 New Jersey v. T.L.O., 469 U.S. 325 (1985). . . . . . . . . . . . . . . . . . . . . . . . . . 22 10 Northrop Corp. v. McDonnell Douglas Corp., 751 F.2d 395 (D.C. Cir. 1984) . . . . . . . . . . 14 11 North Side Lumber Co. v. Block, 753 F.2d 1482 (9th Cir. 1985). . . . . . . . . . . . . . . . 10 12 O'Connor v. Ortega, 480 U.S. 709 (1987). . . . . . . . . . . . . . . . . . . . . . . . . . . 22 13 Palomar Pomerado Health Sys. v. Belshe, 180 F.3d 1104 (9th Cir. 1999) . . . . . . . . . . . 11 14 People for the American Way Found v. NSA ("PFAW"), 462 F. Supp. 2d 21 (D.D.C. 2006) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16, 19 15 Pennhurst State School & Hosp. v. Halderman, 465 U.S. 89 (1984). . . . . . . . . . . . . 10, 11 16 Prescott v. United States, 973 F.2d 696 (9th Cir. 1992) . . . . . . . . . . . . . . . . . . . 2 17 Rakus v. Illinois, 439 U.S. 128 (1978) . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 18 Sigman v. United States, 217 F.3d 785 (9th Cir. 2000). . . . . . . . . . . . . . . . . . . 2, 8 19 Smith v. Maryland, 442 U.S. 735 (1979) . . . . . . . . . . . . . . . . . . . . . . . . . 22, 23 20 Tenet v. Doe, 544 U.S. 1 (2005). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 21 Terkel v. AT&T Corp., F. Supp. 2d 899 (N.D. Ill. 2006) . . . . . . . . . . . . . . . . . 15, 16 22 Territory of Guam v. HHS, 997 F.2d 1290 (9th Cir. 1993). . . . . . . . . . . . . . . . . . . 10 23 Totten v. United States, 92 U.S. 105 (1875). . . . . . . . . . . . . . . . . . . . . . . 12, 23 24 Touche Ross & Co. v. Redington, 442 U.S. 560 (1979) . . . . . . . . . . . . . . . . . . . . . 8 25 Tuscon Airport Auth. v. Gen. Dynamics Corp., 136 F.3d 641 (9th Cir. 1998) . . . . . . . . . 10 26 United States v. Barr, 25 F. Case 30 (C.C. D. Va. 1807). . . . . . . . . . . . . . . . . . . 12 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -iv-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 9 of 36 United States v. Forrester, 512 F.3d 500 (9th Cir. 2007) . . . . . . . . . . . . . . . . . . 23 1 United States v. Menashe, 348 U.S. 528 (1955) . . . . . . . . . . . . . . . . . . . . . . . . 4 2 United States v. Marchetti, 466 F.2d 1309 (4th Cir. 1972). . . . . . . . . . . . . . . . . . 13 3 United States v. Morton, 467 U.S. 822 (1984). . . . . . . . . . . . . . . . . . . . . . . . . 4 4 United States v. Nordic Village, Inc., 503 U.S. 30 (1992). . . . . . . . . . . . . . . . . 2, 6 5 United States v. Reynolds, 345 U.S. 1 (1953) . . . . . . . . . . . . . . . . . . 12, 13, 14, 17 6 Vermont Agency of Nat. Res. v. United States, 529 U.S. 765 (2000) . . . . . . . . . . . . . . 8 7 Warth v. Selden, 422 U.S. 490 (1975) . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 8 Wilner v. National Security Agency, 2008 WL 2567765 (S.D. N.Y. 2008) . . . . . . . . . . 16, 19 9 Zuckerbraun v. General Dynamics Corp., 935 F.2d 544 (2d Cir. 1991) . . . . . . . . . . . . . 17 10 CONSTITUTIONAL PROVISIONS 11 U.S. CONST. amend. I . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1, 22 12 U.S. CONST. amend. IV . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1, 20, 22, 23 13 STATUTES 14 5 U.S.C. � 702. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3, 8, 9, 10 15 18 U.S.C. � 2511. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1, 22 16 18 U.S.C. � 2520 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . passim 17 18 U.S.C. � 2702 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 18 18 U.S.C. � 2703 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1, 5, 22 19 18 U.S.C. � 2707 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . passim 20 18 U.S.C. � 2711 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 21 18 U.S.C. � 2712 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . passim 22 50 U.S.C. � 1801 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21 23 50 U.S.C. � 1806 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5, 19, 25 24 50 U.S.C. � 1809 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1, 8, 10, 21, 22 25 50 U.S.C. � 1810 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3, 7, 8, 10, 20 26 Section 223 of the Patriot Act of 2001, Pub. L. No. 107-56, 115 Stat. 272 . . . . . 4, 5, 6, 7 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -v-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 10 of 36 LEGISLATIVE MATERIALS 1 Administration's Draft Anti-Terrorism Act of 2001: Hearing Before the H. Comm. 2 on the Judiciary, 107th Cong. 17 (2001) . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3 H.R. REP. NO. 109-174(I), at 496 (2005) . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 4 H.R. REP. NO. 107-236(I), at 42 (2001) . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 5 H.R. REP. NO. 95-1283, at 66 (1978). . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 6 H.R. REP. NO. 94-1656, at 13 (1976) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 7 CRS Summary, H.R. 3162 (Oct. 24, 2001) . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -vi-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 11 of 36 INTRODUCTION 1 Plaintiffs in this action allege that the Government, through the National Security Agency 2 ("NSA"), is undertaking an "illegal and unconstitutional dragnet communications surveillance in 3 concert with major telecommunications companies," and that NSA has indiscriminately 4 intercepted the content of communications, as well as the communications records, of millions of 5 ordinary Americans. See Complaint � 1, 7; see also id. �� 9-11; 73-75; 82-97. 6 This is not the first instance in which these allegations have been before this Court. The 7 plaintiffs in this case (it appears with one exception) are the same plaintiffs who filed the 8 Hepting action against AT&T raising identical allegations. See Hepting v. AT&T, 493 F. Supp. 9 2d 974 (N.D. Cal. 2006). Plaintiffs now bring a seventeen-count complaint against the United 10 States and Government officials in their official capacity, claiming that the alleged actions 11 violate the First and Fourth Amendments of the United States Constitution, and the separation of 12 powers doctrine, as well as various statutory provisions--Section 109 of the Foreign Intelligence 13 Surveillance Act of 1978 ("FISA"), 50 U.S.C. � 1809; the Wiretap Act, as amended by the 14 Electronic Communications Privacy Act ("ECPA"), 18 U.S.C. � 2511(1)(a), (1)(c), (1)(d) and 15 (3)(a); and the Stored Communications Act ("SCA"), 18 U.S.C. � 2703(a), (b), and (c).1 16 As a threshold matter, the Court should dismiss plaintiffs' statutory claims against the 17 Government Defendants in their official capacity for lack of subject matter jurisdiction because 18 Congress has not waived sovereign immunity. This leaves plaintiffs with, at most, constitutional 19 claims for declaratory and injunctive relief against the United States. These claims cannot 20 proceed as well--indeed, none of plaintiffs' claims could proceed against any 21 defendant--because, at every stage, litigation plaintiffs' claims would require or risk the 22 23 1 24 A summary of plaintiffs' claims is attached as Exhibit 1. Plaintiffs also sue NSA Director Alexander and several former officials in their personal capacity, see Compl. �� 26, 25 29-31, 33-37 and Counts I-VIII; X-XI; XIII-XIV; XVI-XVII. This motion is brought solely by 26 the Government Defendants sued in their official capacity. However, as set forth herein, the Government's proper invocation of the state secrets and applicable statutory privileges also 27 excludes information relevant to addressing the personal capacity claims and requires summary judgment and dismissal of all personal capacity claims as well. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 12 of 36 disclosure of information that is properly subject to the state secrets privilege and related 1 statutory privileges. 2 This lawsuit squarely puts at issue whether, or to what extent, the Government utilized 3 certain intelligence sources and methods after the 9/11 attacks. As in Hepting, the Director of 4 National Intelligence ("DNI") has once again demonstrated that the disclosure of the information 5 implicated by this case, which concerns how the United States seeks to detect and prevent 6 terrorist attacks, would cause exceptionally grave harm to national security. See Public and 7 Classified In Camera, Ex Parte Declarations of Dennis C. Blair, Director of National 8 Intelligence. The information subject to the DNI's privilege assertion should therefore be 9 excluded from this case. In addition, because disclosure of the privileged information would be 10 required or at risk in further proceedings, the Court should grant summary judgment for the 11 United States on all of plaintiffs' claims and dismiss this case against all defendants. 12 While the dismissal of private claims is a significant step, long-standing authority holds 13 that "the greater public good" is the protection of the national security interests of the United 14 States. Kasza v. Browner, 133 F.3d 1159, 1167 (9th Cir. 1998) (quoting Bareford v. Gen. 15 Dynamics Corp., 973 F.2d 1138, 1144 (5th Cir. 1992)). 16 ARGUMENT 17 I. CONGRESS HAS NOT WAIVED SOVEREIGN IMMUNITY FOR PLAINTIFFS' 18 STATUTORY CLAIMS. 19 "Absent a waiver, sovereign immunity shields the Federal Government and its agencies 20 from suit." Dep't of the Army v. Blue Fox, Inc., 525 U.S. 255, 260 (1999) (quoting F.D.I.C. v. 21 Meyer, 510 U.S. 471, 475 (1994)). Plaintiffs bear the burden of establishing such a waiver, see 22 Prescott v. United States, 973 F.2d 696, 701 (9th Cir. 1992), which must be explicitly and 23 unequivocally expressed in statutory text. See Lane v. Pena, 518 U.S. 187, 192 (1996); Sigman 24 v. United States, 217 F.3d 785, 792 (9th Cir. 2000). This Court should "strictly construe[]" any 25 purported waiver "in favor of the sovereign," Blue Fox, 525 U.S. at 261, and a statute does not 26 waive sovereign immunity if it will bear any "plausible" alternative interpretation. See United 27 States v. Nordic Village, Inc., 503 U.S. 30, 33-37 (1992). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -2-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 13 of 36 As set forth below, in the Wiretap Act and ECPA, Congress expressly preserved 1 sovereign immunity against claims for damages and equitable relief, permitting such claims 2 against only a "person or entity, other than the United States." See 18 U.S.C. � 2520; 18 U.S.C. 3 � 2707. Plaintiffs attempt to locate a waiver of sovereign immunity in other statutory provisions, 4 primarily through a cause of action authorized by the Stored Communications Act, 18 U.S.C. 5 � 2712, but this attempt fails. Section 2712 does not erase the express reservations of sovereign 6 immunity noted above, because it applies solely to a narrow set of allegations not presented here: 7 where the Government obtains information about a person through intelligence-gathering, and 8 Government agents unlawfully disclose that information. Likewise, the Government preserves 9 its position that Congress also has not waived sovereign immunity under in FISA to permit a 10 damages claim against the United States. See 50 U.S.C. � 1810. 11 Plaintiffs' claims for equitable relief under Section 702 of the Administrative Procedure 12 Act ("APA") and the Supreme Court's decision in Larson v. Domestic & Foreign Commerce 13 Corp., 337 U.S. 682 (1949), fare no better. First, Section 702 does not provide an equitable 14 remedy when another statute explicitly or implicitly forbids such relief. Second, plaintiffs 15 cannot proceed without a waiver of sovereign immunity Larson, because Congress has explicitly 16 forbidden equitable relief, and the relief plaintiffs seek would run against the United States. 17 A. Congress Has Not Waived Sovereign Immunity as to Plaintiffs' 18 Claims for Damages. 19 Plaintiffs seek damages against the United States under the Wiretap Act and ECPA, as 20 well as FISA (Counts VI, IX, XII, and XV), but can establish no waiver of sovereign immunity 21 for these claims. 22 1. Congress Has Expressly Preserved Sovereign Immunity For Plaintiffs' Wiretap Act and ECPA Claims. 23 Congress has expressly barred suits against the United States for damages and equitable 24 relief based on alleged violations of the Wiretap Act and ECPA, in both cases by permitting 25 relief against only a "person or entity other than the United States." See 18 U.S.C. � 2520(a); 18 26 U.S.C. � 2707(a). Congress enacted these express reservations of sovereign immunity in Section 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -3-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 14 of 36 223 of the Patriot Act of 2001, Pub. L. No. 107-56, 115 Stat. 272. See � 223(a)(1), (b)(1) 1 (inserting the words "other than the United States."). Plaintiffs' apparent theory--that another 2 provision of Section 223 of the Patriot Act, codified in 18 U.S.C. � 2712, provides the requisite 3 waiver of sovereign immunity for plaintiffs' Wiretap Act and ECPA claims, see Compl., Counts 4 IX, XII, XV--is meritless. Such a theory depends on the assumption that Congress, in the same 5 Act, expressly reserved sovereign immunity in Sections 2520(a) and 2707(a) for Wiretap Act 6 and ECPA claims, and expressly waived sovereign immunity for those claims in Section 2712(a). 7 Such a construction would use one provision of an Act to "emasculate . . . entire section[s]" 8 elsewhere in the Act, see United States v. Menashe, 348 U.S. 528, 538-39 (1955), and thereby 9 violate the "cardinal principle of statutory construction" that courts must "give effect, if possible, 10 to every clause and word of a statute," rather than rendering any section "superfluous." Duncan 11 v. Walker, 533 U.S. 167, 174 (2001) (collecting cases) (internal quotations omitted). 12 In fact, all of the provisions enacted in Section 223 of the Patriot Act can be read 13 harmoniously. As noted, 18 U.S.C. � 2520(a) (Section 223(a)(1)) generally precludes suits 14 against the United States for claims arising under the Wiretap Act, Chapter 119 of Title 18. 15 Similarly, 18 U.S.C. � 2707(a) (Section 223(b)(1)) precludes suits against the United States for 16 conduct that constitutes a "knowing or intentional" violation of ECPA, Chapter 121 of Title 18. 17 Finally, 18 U.S.C. � 2712 (Section 223(c)(1)) creates a narrow exception to these provisions, 18 waiving sovereign immunity for damages suits against the United States solely for certain 19 "willful violation[s]" of the Wiretap Act, ECPA, and specific provisions of FISA--all of which 20 concern willful disclosures of information by Government agents, not alleged or at issue here. 21 This construction of Section 223 is supported by reading "the statute as a whole, 22 including its object and policy," not by reading any one provision in isolation.2 See Children's 23 Hosp. Health Ctr. v. Belshe, 188 F.3d 1090, 1096 (9th Cir. 1999); see also Holloway v. United 24 States, 526 U.S. 1, 7 (1999); United States v. Morton, 467 U.S. 822, 828 (1984). Section 223 is 25 entitled "Civil Liability For Certain Unauthorized Disclosures," and the text of the statute makes 26 27 2 The text of Section 223 of the Patriot Act is attached as Exhibit 2. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -4-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 15 of 36 clear that Congress intended its provisions, including the provision codified in 18 U.S.C. � 2712, 1 to afford relief only where Government agents make unauthorized disclosures of information 2 obtained through surveillance. 3 Accordingly, Section 223(a)(3) amended the Wiretap Act to state that "[a]ny willful 4 disclosure or use by an investigative or law enforcement officer or governmental entity of 5 information beyond the extent permitted by [the Wiretap Act] is a violation . . . of [the Act]." 6 See 18 U.S.C. � 2520(g). Similarly, Section 223(b)(3) amended ECPA to state that "[a]ny 7 willful disclosure of a `record'. . . obtained by an investigative or law enforcement officer, or a 8 governmental entity, pursuant to 2703 of this title . . . that is not a disclosure made in proper 9 performance of the official functions of the officer or governmental entity making the disclosure, 10 is a violation of [ECPA]." See 18 U.S.C. � 2707(g). And Section 223(c)(1) added 18 U.S.C. 11 � 2712, providing for money damages against the United States for a "willful violation" of FISA, 12 the Wiretap Act, and ECPA. The phrase "willful violation" in Section 223(c)(1) (18 U.S.C. 13 � 2712) "gathers meaning" from the use of the term "willful" in its surrounding provisions. See 14 Jones v. United States, 527 U.S. 373, 389 (1999) (internal quotation omitted). In particular, a 15 "willful violation" in Section 223(c)(1) refers to the "willful disclosure" of intelligence 16 information by Government agents, as described by Section 223(a)(3) and (b)(3), and such 17 disclosures by the Government are the only actions that create liability against the United States. 18 Other provisions of Section 223 also address themselves to unauthorized disclosures by 19 Government agents. For example, Section 223(a)(2) and (b)(2) amended the Wiretap Act and 20 ECPA to provide for administrative discipline of Government agents who make such willful 21 disclosures. See 18 U.S.C. � 2520(f); 18 U.S.C. � 2707(d). Similarly, Section 223(c)(1)(a) 22 authorized suit against the United States for violations of specific sections of the FISA--sections 23 106(a), 305(a), and 405(a)--which also concern the use and disclosure by Federal officers of 24 information acquired from electronic surveillance, a physical search, or a pen register and trap 25 and trace device. See 18 U.S.C. � 2712(a) (authorizing suit for violations of 50 U.S.C. 26 �� 1806(a), 1825(a), 1845(a)). Each of these provisions demonstrates that the "object and 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -5-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 16 of 36 policy" of Section 223 was to impose liability for unauthorized disclosures of intelligence 1 information by Government agents. See Belshe, 188 F.3d at 1096.3 2 The legislative history of Section 223, though scarce, confirms that Section 2712(a) is 3 intended to authorize suit against the United States solely for such alleged unauthorized 4 disclosures by the Government. Section 223 was an amendment proposed by Representative 5 Barney Frank during the consideration of the Patriot Act before the House Committee on the 6 Judiciary. Citing the historical example of leaks by FBI Director J. Edgar Hoover against Dr. 7 Martin Luther King, Jr., Mr. Frank explained that when law enforcement agents 8 "inappropriate[ly] release . . . information garnered by surveillance," the victim of such leaks 9 should have "the right to go into Federal court under the Federal Tort Claims Act before a 10 federal judge and get damages from the Government." Administration's Draft Anti-Terrorism 11 Act of 2001: Hearing Before the H. Comm. on the Judiciary, 107th Cong. 17 (2001), Exh. 3. 12 The House Judiciary Committee approved the Frank amendment, recognizing that the 13 Amendment "provide[d] for actions against the United States" "for unlawful disclosures 14 obtained by [intelligence gathering]." H.R. REP. NO. 107-236(I), at 42 (2001), Exh. 4. Four 15 years later, when Congress reauthorized 18 U.S.C. � 2712 and other provisions in the Patriot 16 Act, it recognized that Section 2712 was limited to the "unauthorized disclosure of pen trap, 17 wiretap, stored communications or FISA information." H.R. REP. NO. 109-174(I), at 496 (2005), 18 Exh. 5.4 19 20 3 This harmonious reading of all the provisions of Section 223 of the Patriot Act not only 21 comports with proper statutory construction, see Duncan, 533 U.S. at 174; Belshe, 188 F.3d at 22 1096, but also with the Supreme Court's frequent admonition that courts should construe any purported waiver of sovereign immunity "strictly" and "in favor of the sovereign." See Blue 23 Fox, 525 U.S. at 261; Lane, 518 U.S. at 192. Moreover, since there is a "plausible" interpretation of 18 U.S.C. � 2712 that does not waive sovereign immunity, the Court should 24 adopt that interpretation. See Nordic Village, 503 U.S. at 33-37; Dep't of Army v. Fed. Labor Relations Auth., 56 F.3d 273, 277 (D.C. Cir. 1995). 25 4 26 A Congressional Research Service summary of the Patriot Act likewise explained that Section 223 "provide[s] for administrative discipline of Federal officers or employees who 27 violate prohibitions against unauthorized disclosures of information gathered under this Act" and "[p]rovides for civil actions against the United States for damages by any person aggrieved by 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -6-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 17 of 36 Thus, both the text and legislative history of Section 223 of the Patriot Act make clear 1 that a "willful violation" in 18 U.S.C. � 2712 means a willful, unauthorized disclosure of 2 information by a Government agent. Plaintiffs do not allege any such disclosures, and thus the 3 general reservations of sovereign immunity in 18 U.S.C. �� 2520(a) and 2707(a) control 4 plaintiffs' statutory claims for damages against the Government under Counts IX, XII, and XV.5 5 2. Congress Has Not Waived Sovereign Immunity 6 in FISA Section 1810. 7 Plaintiffs' final claim for damages against the United States is under FISA, where 8 plaintiffs assert that 50 U.S.C.� 1810 waives sovereign immunity (Count VI). Defendants 9 recognizes that the Court found an "[i]mplicit" waiver of sovereign immunity under 50 U.S.C. 10 � 1810 in Al-Haramain Islamic Foundation, Inc. v. Bush, 564 F. Supp. 2d 1109, 1124-25 (N.D. 11 Cal. 2008). But the Government respectfully disagrees with the Court's conclusion and, for the 12 record of this case, expressly reserve its position that Section 1810 contains no waiver of 13 sovereign immunity to bring a damages claim against the United States.6 14 15 such violations." CRS Summary, H.R. 3162 (Oct. 24, 2001), Exhibit 6. 16 5 Plaintiffs allege that the Government solicited, acquired, or received their communications from telecommunications carriers, not that Government agents disclosed 17 intelligence information unlawfully (See Compl. �� 9-10, 13, 73-84, 90-97). Allegations that 18 third parties made disclosures to the Government do not establish that the Government made unauthorized disclosures within the meaning of 18 U.S.C. � 2712. Moreover, nothing in any of 19 the statutes upon which plaintiffs base their claims creates liability against the United States for allegedly aiding and abetting disclosures of third parties, and the Supreme Court has refused to 20 impose such secondary civil liability absent any "congressional direction to do so." Cent. Bank of Denver v. First Interstate Bank, 511 U.S. 164, 183 (1994); see also id. at 177 ("If . . . 21 Congress intended to impose aiding and abetting liability, we presume it would have used the 22 words `aid' and `abet' in the statutory text."). The Ninth Circuit has followed Central Bank of Denver by refusing to find a private cause of action under 18 U.S.C. � 2702 against those who 23 allegedly aid and abet, or conspire with, electronic communication service providers in unlawfully disseminating the contents of electronic communications under ECPA. Freeman v. 24 DirecTV, 457 F.3d 1001, 1004-09 (9th Cir. 2006). 25 6 The Government briefed the sovereign immunity issue in the Al-Haramain action, see 26 Memorandum of Points and Authorities in Support of Defendants' Second Motion to Dismiss or for Summary Judgment (Dkt. 17, Case No. 07-109-VRW) ("Defs. 2d MSJ Mem.") at 8-12; see 27 also Defendants' Reply in Support of Defendants' Second Motion to Dismiss or for Summary Judgment (Dkt. 29, Case No. 07-109-VRW) ("Defs. 2d MSJ Reply") at 4-8. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -7-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 18 of 36 Sovereign immunity cannot be waived implicitly; waivers of sovereign immunity must 1 instead be explicit and unequivocal. See Multi Denominational Ministry of Cannabis v. 2 Gonzales, 474 F. Supp. 2d 1133, 1140 (N.D. Cal. 2007) (Walker, C.J.); see also Lane, 518 U.S. 3 at 192; Sigman, 217 F.3d at 792. Section 1810 creates a "cause of action against any person" 4 who violates the provisions of 50 U.S.C. � 1809.7 But Section 1810 does not mention suit 5 against the United States, and the United States is not a "person" within the meaning of the 6 statute. There is a "longstanding interpretive presumption that [the term] `person' does not 7 include the sovereign," Vermont Agency of Nat. Res. v. United States, 529 U.S. 765, 780 (2000) 8 (collecting cases), and the presumption may be overcome "only upon some affirmative showing 9 of statutory intent to the contrary." Id. FISA reveals no such intent. When Congress intends to 10 waive the sovereign immunity of the United States, it knows how to do so expressly. Cf. Touche 11 Ross & Co. v. Redington, 442 U.S. 560, 572 (1979); Central Bank, 511 U.S. at 176-77, 184. 12 Notably, Congress expressly authorized actions for damages "against the United States" as to 13 specific violations of FISA, see 18 U.S.C.� 2712--but not as to alleged violations of Section 14 1810. Without such an express waiver, plaintiffs' FISA claim may not proceed. 15 B. Congress Has Not Waived Sovereign Immunity for the 16 Equitable Relief Plaintiffs Seek under FISA, the Wiretap Act, and ECPA. 17 Plaintiffs' statutory claims for equitable relief (see Compl., Counts V, VII, X, XIII, XVI) 18 fare no better. Again, plaintiffs' alleged bases for equitable relief for their Wiretap Act and 19 ECPA claims are 18 U.S.C. � 2520, and 18 U.S.C. � 2707, which expressly reserve sovereign 20 immunity by permitting claims only against a "person or entity, other than the United States." 21 18 U.S.C. �� 2520(a), 2707(a). Plaintiffs base another claim for equitable relief on Section 22 1809, 50 U.S.C. � 1809, but nowhere in FISA has Congress waived sovereign immunity for 23 equitable relief against the United States. And as discussed below, neither Section 702 of the 24 APA nor the Larson doctrine supply the basis for such relief. 25 26 7 FISA defines "person" to mean "any individual, including any officer or employee of 27 the Federal Government, or any group, entity, association, corporation, or foreign power." 50 U.S.C. � 1801(m). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -8-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 19 of 36 1. APA Section 702 Does Not Waive Sovereign Immunity Where 1 Other Statutes Explicitly or Implicitly Bar Relief Against the United States. 2 Section 702 of the APA provides a general waiver of sovereign immunity for suits 3 seeking equitable relief against the United States based on "agency action," see 5 U.S.C. � 702, 4 but Congress has also made clear that � 702 does not waive sovereign immunity "where some 5 other statute controls." Alaska v. Babbitt, 38 F.3d 1068, 1072-73 (9th Cir. 1994) (Babbitt I). 6 Section 702 emphasizes that "[n]othing herein . . . affects other limitations on judicial review 7 [or] . . . confers authority to grant relief if any other statute that grants consent to suit expressly 8 or impliedly forbids the relief which is sought." Id. Because Congress has expressly forbidden 9 relief for the plaintiff's Wiretap Act and ECPA claims (Counts VII, X, and XIII) by barring 10 equitable relief against the United States in Sections 2520(a) and 2707(a) of Title 18, these 11 specific and express reservations of sovereign immunity preclude jurisdiction under � 702 of the 12 APA. See Block v. North Dakota, 461 U.S. 273, 284-86 & n.22 (1983) (holding there is no 13 jurisdiction under � 702 when another statute expressly forbids relief by preserving sovereign 14 immunity); accord Alaska v. Babbitt, 75 F.3d 449, 451-53 (9th Cir. 1996) (Babbitt II); Hughes v. 15 United States, 953 F.2d 531, 537 (9th Cir. 1992). 16 In addition, the Supreme Court has held that "� 702 provides no authority to grant relief 17 when Congress has dealt in particularity with a claim and [has] intended a specified remedy to be 18 the exclusive remedy." Block, 461 U.S. at 284-86 & n.22 (quoting H. REP. NO. 94-1656 at 13 19 (1976)) (rejecting claims under � 702 because the Quiet Title Act provided the "exclusive 20 means" to challenge an action); accord Babbitt II, 75 F.3d at 452-53; Babbitt I, 38 F.3d at 1072- 21 73. Congress has provided such an exclusive remedy for claims under the Wiretap Act and 22 ECPA in 18 U.S.C. � 2712, which provides for damages only against the United States for 23 certain willful disclosures by Government agents, and makes clear that "an action against the 24 United States under this subsection shall be the exclusive remedy against the United States for 25 any claims within the purview of this section." 18 U.S.C. � 2712(d). Plaintiffs cannot evade this 26 exclusive damages remedy by seeking equitable relief under the APA, because "a precisely 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -9-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 20 of 36 drawn, detailed statute" such as Section 2712 "preempts more general remedies" under � 702. 1 See Block, 461 U.S. at 285; Babbitt II, 75 F.3d at 453. 2 Similarly, plaintiffs' claim for equitable relief under Section 702 of the APA for an 3 alleged violation of FISA (Compl., Count V) is also foreclosed. As outlined above, Congress 4 limited recovery for violations of Section 1809 by permitting recovery only against a "person," 5 and limiting such recovery to damages and fees. See 50 U.S.C. � 1810. Section 1810 thus 6 forecloses equitable relief under � 702 of the APA for at least two reasons. First, by permitting 7 relief only for damages, � 1810 "impliedly forbids declaratory and injunctive relief and 8 precludes a � 702 waiver of sovereign immunity." See Tuscon Airport Auth. v. Gen. Dynamics 9 Corp., 136 F.3d 641, 646 (9th Cir. 1998) (holding the same for the Tucker Act) (internal 10 quotation omitted); accord North Side Lumber Co. v. Block, 753 F.2d 1482, 1484-85 (9th Cir. 11 1985). Second, by choosing to permit recovery only against a person, Congress implicitly 12 prohibited recovery against the United States. See supra Sec. I(A)(2). 13 Accordingly, the Court lacks subject matter jurisdiction to grant plaintiffs' claims for 14 equitable relief under FISA, the Wiretap Act, and ECPA pursuant to Section 702 of the APA.8 15 2. Larson Fails to Provide an Independent Basis for Equitable Relief. 16 Plaintiffs' reliance on Domestic and Foreign Commerce Corp. v. Larson to support their 17 statutory claims for equitable relief likewise fails. In Larson, the Supreme Court rejected the 18 notion that no waiver of sovereign immunity was required for a suit against a Government 19 official for acts he committed in his official capacities. 337 U.S. at 703. The Court went on to 20 observe in dicta that there may be certain circumstances where, if an officer of the United States 21 takes action that is unconstitutional or beyond his statutory authority, a suit against him for 22 equitable relief is not a suit against the sovereign, and no waiver of sovereign immunity is 23 necessary. See Larson, 337 U.S. at 689-90, 701-02. In the context of state sovereign immunity, 24 the Supreme Court has described Larson's ultra vires exception as "questionable," Pennhurst 25 26 8 Plaintiffs also bring a freestanding APA claim that is not tied to another statute (Count 27 XVI). This claim fails because � 702 of the APA "does not confer jurisdiction independent of some other specific statute." Territory of Guam v. HHS, 997 F.2d 1290, 1292 (9th Cir. 1993). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -10-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 21 of 36 State School & Hosp. v. Halderman, 465 U.S. 89, 116 n.27 (1984), and has emphasized that any 1 exception must be "very narrow" in order to preserve the principle of sovereign immunity. See 2 id. at 114 n.25. The narrow exception does not apply here. 3 First, as with plaintiffs' APA claims, Larson "provides no authority to grant relief," 4 because Congress has created an exclusive remedy in 18 U.S.C. � 2712, and that statute's 5 "precisely drawn, detailed" provisions "preempt[] more general remedies" under Larson. See 6 Block, 461 U.S. at 284-86 & n.22; Babbitt II, 75 F.3d at 451-53. Second, even if Larson 7 provided an avenue for relief, plaintiffs cannot establish a Larson claim because "the effect of 8 the relief sought" would run against the United States. See Pennhurst, 465 U.S. at 107 9 (emphasis omitted). Plaintiffs allege that the equitable relief they seek would halt widespread 10 intelligence-gathering activity of the United States, and thus there is no question that plaintiffs 11 seek relief that "would . . . restrain the Government from acting, or . . . compel it to act," or 12 "interfere with the public administration." Pennhurst, 465 U.S. at 102 n.11 (quoting Dugan, 372 13 U.S. 609,620 (1963)); see also Hawaii v. Gordon, 373 U.S. 57, 58 (1963). The Ninth Circuit has 14 repeatedly dismissed such ultra vires theories. See Cent. Res. Life of North America Ins. Co. v. 15 Struve, 852 F.2d 1158, 1159-60, 1161 (9th Cir. 1988) (holding that "it cannot be seriously 16 maintained" that a suit seeking an injunction ordering a state official to approve the marketing of 17 insurance within the state was not against the sovereign); Aminoil U.S.A., Inc. v. Cal. State Water 18 Ctrl. Bd., 674 F.2d 1227, 1234 (9th Cir. 1982) (holding that a suit nominally against a federal 19 official, which sought a determination that the official acted beyond the scope of his statutory 20 authority was, in reality, a suit against the United States that would "preclude the [official] in his 21 official capacity from enforcing the [law]."); see also Palomar Pomerado Health Sys. v. Belshe, 22 180 F.3d 1104, 1108 (9th Cir. 1999) (holding that where plaintiff sought an injunction that 23 would restrain a state from reducing medical payment rates charged by plaintiff, relief would 24 interfere with public administration and was thus barred absent waiver of sovereign immunity). 25 26 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -11-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 22 of 36 II. INFORMATION SUBJECT TO THE STATE SECRETS PRIVILEGE AND 1 RELATED STATUTORY PRIVILEGES IS NECESSARY TO LITIGATE THIS CASE AND MUST BE EXCLUDED FROM FURTHER PROCEEDINGS. 2 Apart from the jurisdictional defects of plaintiffs' statutory claims against the 3 Government, all of plaintiffs' claims in this case would require or risk the disclosure of 4 information properly protected by the DNI's assertion of the state secrets privilege. Plaintiffs' 5 Complaint quite clearly seeks disclosure of whether or to what extent the Government may have 6 utilized certain intelligence sources and methods after the 9/11 attacks in order to detect and 7 prevent further attacks. It also seeks disclosure of whether any of the alleged activities (if they 8 exist) are ongoing. As set forth below, the Director of National Intelligence (supported by the 9 NSA) has properly asserted privilege to protect such information from disclosure in order to 10 prevent exceptionally grave harm to national security. 11 A. The State Secrets Privilege Bars Use of Privileged Information In Litigation. 12 "The state secrets privilege is a common law evidentiary privilege that permits the 13 government to bar the disclosure of information if `there is a reasonable danger' that disclosure 14 will `expose military matters which, in the interests of national security, should not be 15 divulged.'" Al-Haramain Islamic Found. v. Bush, 507 F.3d 1190, 1196 (9th Cir. 2007) (quoting 16 United States v. Reynolds, 345 U.S. 1, 10 (1953)). The ability of the executive to protect state 17 secrets from disclosure in litigation has been recognized from the earliest days of the Republic. 18 See Totten v. United States, 92 U.S. 105 (1875); United States v. Barr, 25 F. Case 30 (C.C.D. Va. 19 1807); Reynolds, 345 U.S. at 7-9; Al-Haramain, 507 F.3d at 1196-97; Kasza, 133 F.3d at 1165- 20 66 (discussing cases); see also Hepting, 439 F. Supp. 2d at 98-981.9 The privilege protects a 21 broad range of information, including the "disclosure of intelligence-gathering methods or 22 capabilities." See Ellsberg v. Mitchell, 709 F.2d 51, 57 (D.C. Cir. 1983) (footnotes omitted); 23 accord Al-Haramain, 507 F.3d 1202-03 (holding that state secrets privilege precludes disclosure 24 25 9 The privilege has a firm foundation in the constitutional authority of the President 26 under Article II to protect national security information. See Dept. Of the Navy v. Egan, 484 U.S. 518, 527 (1988); United States v. Nixon, 418 U.S. 683, 710-11 (1974) (recognizing the 27 President's constitutional authority to protect national security information) (citing Reynolds); see also El-Masri v. United States, 479 F.3d 296, 304 (4th Cir. 2007). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -12-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 23 of 36 of whether plaintiffs were subject to foreign intelligence surveillance);10 see also Halkin v. 1 Helms, 690 F.2d 977, 990 (D.C. Cir. 1982) (Halkin II) (holding that state secrets privilege 2 protects intelligence source and methods involved in NSA surveillance). The privilege also 3 protects information that on its face may appear innocuous, but in a larger context could reveal 4 sensitive classified information. Kasza, 133 F.3d at 1166. 5 An assertion of the state secrets privilege "must be accorded the `utmost deference' and 6 the court's review of the claim of privilege is narrow." Kasza, 133 F.3d at 1166; see also Al- 7 Haramain, 507 F.3d at 1203 ("[W]e acknowledge the need to defer to the Executive on matters of 8 foreign policy and national security and surely cannot legitimately find ourselves second guessing 9 the Executive in this arena"). Aside from ensuring that the privilege has been properly invoked as 10 a procedural matter, the sole determination for the court is whether, "under the particular 11 circumstances of the case, `there is a reasonable danger that compulsion of the evidence will 12 expose military matters which, in the interest of national security, should not be divulged.'" 13 Kasza, 133 F.3d at 1166 (quoting Reynolds, 345 U.S. at 10). Moreover, the Ninth Circuit has 14 made clear that the focal point of review is whether the Government has identified a reasonable 15 danger to national security--not a court's own assessment as to whether information is a secret or 16 its disclosure would cause harm. See Al-Haramain, 507 F.3d at 1203 ("[J]udicial intuition . . . is 17 no substitute for documented risks and threats posed by the potential disclosure of national 18 security information."); see also CIA v. Sims, 471 U.S. 159, 180 (1985) ("It is the responsibility of 19 the [intelligence community], not that of the judiciary to weigh the variety of complex and subtle 20 factors in determining whether disclosure of information may lead to an unacceptable risk of 21 compromising the . . . intelligence-gathering process."); Halkin v. Helms, 598 F.2d 1, 8-9 (D.C. 22 Cir. 1978) (Halkin I) ("`[C]ourts, of course, are ill-equipped to become sufficiently steeped in 23 24 10 The Government recognizes that the Ninth Circuit in Al-Haramain remanded for 25 consideration of whether the state secrets privilege is preempted by the Foreign Intelligence 26 Surveillance Act, see Al-Haramain, 507 F.3d at 1205-06, and that this Court has ruled that the privilege is preempted by the FISA, see Al-Haramain, 564 F. Supp. 2d at 1115-125. As set forth 27 below, the Government expressly preserves its position that the FISA does not preempt the state secrets privilege or other statutory privileges. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -13-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 24 of 36 foreign intelligence matters to serve effectively in the review of secrecy classifications in that 1 area.'") (quoting United States v. Marchetti, 466 F.2d 1309, 1318 (4th Cir. 1972)). In addition, in 2 assessing whether to uphold a claim of privilege, the court does not balance the respective needs 3 of the parties for the information. Rather, "[o]nce the privilege is properly invoked and the court 4 is satisfied that there is a reasonable danger that national security would be harmed by the 5 disclosure of state secrets, the privilege is absolute" and cannot be overcome by even the most 6 compelling need in the litigation. Kasza, 133 F.3d at 1166; see also Northrop Corp. v. 7 McDonnell Douglas Corp., 751 F.2d 395, 399 (D.C. Cir. 1984); Ellsberg, 709 F.2d at 57. 8 B. The United States Has Properly Asserted the State Secrets and 9 Related Statutory Privileges in this Case. 10 The United States has properly asserted and supported the state secrets privilege in this 11 case. First, as a procedural matter, "[t]here must be a formal claim of privilege, lodged by the 12 head of the department that has control over the matter, after actual personal consideration by the 13 officer." Reynolds, 345 U.S. at 7-8 (footnotes omitted). Here, the Director of National 14 Intelligence, who is head of the United States Intelligence Community, see 50 U.S.C. � 403 15 (b)(1); Al-Haramain, 507 F.3d at 1202 n.6, has formally asserted the state secrets privilege after 16 personal consideration of the matter. See Public and Classified In Camera, Ex Parte Declarations 17 of Admiral Dennis C. Blair, Director of National Intelligence.11 Second, the Government has 18 amply demonstrated in these submissions that there is a reasonable danger that disclosure of the 19 privileged information would cause exceptionally grave harm to national security. 20 Plaintiffs' allegations implicate several facts at the heart of the Government's privilege 21 assertion. First, plaintiffs allege that they have been personally subject to alleged NSA 22 intelligence activities. See e.g. Compl. �� 9, 10. But the DNI has explained that the disclosure of 23 information concerning whether or not plaintiffs have been subject to alleged NSA intelligence 24 activity would inherently reveal NSA intelligence sources and methods. Whether specific 25 individuals were targets of alleged NSA activities would either reveal who is subject to 26 11 27 The DNI's assertion of privilege is supported by the Public and Classified In Camera, Ex Parte Declarations of Deborah A. Bonanni, Chief of Staff, National Security Agency. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -14-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 25 of 36 investigative interest--helping that person to evade surveillance--or who is not--thereby 1 revealing the scope of intelligence activities as well as the existence of secure channels for 2 communication. See Public DNI Decl. � 13; Public NSA Decl. � 11-12. 3 Second, plaintiffs allege that they have been subject to a dragnet on the content of their 4 communications, as well as the collection of their communication records, as part of an alleged 5 presidentially-authorized program after the 9/11 attacks. See, e.g., Compl. � 7. But the facts 6 necessary to litigate these allegations are also properly excluded by the DNI's privilege assertion. 7 The DNI explains that, as the Government has previously indicated, the NSA's collection of the 8 content12 of communications under the now inoperative Terrorist Surveillance Program ("TSP") 9 was directed at international communications in which a participant was reasonably believed to 10 be associated with al Qaeda or an affiliated terrorist organization, and thus plaintiffs' allegation 11 that the NSA has indiscriminately collected the content of millions of communications sent or 12 received by people inside the United States after 9/11 under the TSP is false. See Public DNI 13 � 15; see also Public NSA Decl. � 14. But attempting to demonstrate that the TSP was not the 14 content dragnet plaintiffs allege, or that the NSA has not otherwise engaged in the alleged content 15 dragnet, would require the disclosure of highly classified NSA intelligence sources and methods 16 about the TSP and other NSA activities. See Public DNI Decl. � 15; see also Public NSA Decl. 17 �� 15-16. The DNI has also explained that confirmation or denial of whether the NSA has 18 collected communication records would cause exceptional harm to national security by disclosing 19 whether or not NSA utilizes certain intelligence sources and methods and thereby revealing the 20 capability and operations or lack thereof for foreign adversaries to exploit. See Public DNI Decl. 21 � 16; see also Public NSA Decl. � 15. Indeed, this Court has previously barred discovery into 22 allegations concerning communications records, see Hepting, 439 F. Supp. 2d at 997, and the 23 harms outlined by the DNI warrant no alteration of the Court's conclusion.13 Indeed, the Court in 24 25 12 The term "content" is used herein and by the DNI to refer to the substance, meaning or 26 purport of a communication, as defined in 18 U.S.C. � 2510(8). See Public DNI Decl. � 14 n.1. 13 27 While the Court in Hepting did not conclude that the state secrets privilege bars disclosure of whether or not such a program exists or whether AT&T was involved, see Hepting, 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -15-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 26 of 36 Terkel v. AT&T Corp., 441 F. Supp. 2d 899, 917 (N.D. Ill. 2006), addressing an identical 1 allegation, upheld the Government's state secrets privilege assertion to preclude disclosure of 2 whether the Government was obtaining large quantities of communications records in order to 3 protect against the disclosure of information that would allow adversaries to gain valuable insight 4 into the Government's intelligence activities. 5 Finally, all of plaintiffs' claims require the disclosure of whether or not AT&T assisted the 6 Government in alleged intelligence activities, and the DNI again has demonstrated that disclosure 7 of whether the NSA has an intelligence relationship with a particular private company would also 8 cause exceptional harm to national security--among other reasons by revealing to foreign 9 adversaries which channels of communication may or may not be secure. See Public DNI Decl. 10 � 17; Public NSA Decl. � 16. Again, in Terkel, the court upheld the Government's privilege 11 assertion over whether AT&T in particular has disclosed communications records to the 12 Government. See 441 F. Supp. 2d at 917. 13 In sum, the DNI's privilege assertion is amply supported and clearly demonstrates there is 14 a reasonable danger that disclosure of the privileged information would harm national security.14 15 16 439 F. Supp. 2d at 977, the Government's privilege assertion demonstrates that plaintiffs' 17 communications records allegation concerns information that should be excluded from the 18 litigation, and claims based on this allegation should be dismissed. 14 19 Both the DNI and the NSA have asserted statutory privileges to protect the information at issue, underscoring that the protection of the privileged information is not only 20 supported by the judgment of the Executive, but also pursuant to authority delegated by Congress. First, Section 6 of the National Security Agency Act of 1959, Pub. L. No. 86-36, � 6, 21 73 Stat. 63, 64, codified at 50 U.S.C. � 402 note, forecloses "disclosure of the organization or any function of the National Security Agency, of any information with respect to the activities 22 thereof. . . ." Second, Section 102A(i)(1) of the Intelligence Reform and Terrorism Prevention 23 Act of 2004, Pub. L. No. 10-458, 118 Stat. 3638 (Dec. 17, 2004), codified at 50 U.S.C. � 403- 1(i)(1), requires the Director of National Intelligence to protect intelligence sources and methods 24 from unauthorized disclosure. The information subject to these statutory privileges is co- extensive with the assertion of the state secrets privilege by the DNI. See Public DNI Decl. � 10; 25 Public NSA Decl. � 10. Notably, in People for the American Way Found v. NSA ("PFAW"), 462 26 F. Supp. 2d 21 (D.D.C. 2006), the court applied Section 6 of the National Security Act to bar disclosure under FOIA of information related to the operation of the Terrorist Surveillance 27 Program, including whether the plaintiffs in that case had been subject to TSP surveillance, and recognized as well that this information would be protected by the DNI's statutory privilege. See 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -16-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 27 of 36 III. WHERE STATE SECRETS ARE NEEDED TO LITIGATE PLAINTIFFS' 1 CLAIMS, THE CASE CANNOT PROCEED. 2 Once the Court has upheld a claim of the state secrets privilege, the evidence and 3 information identified in the privilege assertion is "completely removed from the case," Kasza, 4 133 F.3d at 1166, and the Court must undertake a separate inquiry to determine the 5 consequences of this exclusion on further proceedings. First, if the plaintiffs cannot establish 6 their standing as a factual matter without the excluded state secrets, then the privilege assertion 7 (unless preempted) would require dismissal. See Al-Haramain, 507 F.3d at 1204-05. Similarly, 8 if the plaintiffs cannot make out a prima facie case in support of their claims absent the excluded 9 state secrets, the court should enter summary judgment for the United States because the evidence 10 needed to adjudicate the merits is unavailable. See Kasza, 133 F.3d at 1176 (affirming entry of 11 summary judgment for the United States on state secrets privilege grounds). Likewise, if the 12 privilege "`deprives the defendant of information that would otherwise give the defendant a valid 13 defense to the claim, then the court may [also] grant summary judgment to the defendant.'" 14 Kasza, 133 F.3d at 1166 (quoting Bareford, 973 F.2d at1141) (emphasis in original); accord 15 Zuckerbraun v. General Dynamics Corp., 935 F.2d 544, 547 (2d Cir. 1991). 16 In addition, courts have also considered the related question of whether the "very subject 17 matter" of the case warrants dismissal as a threshold matter. See Al-Haramain, 507 F.3d at 1197- 18 1201; see also Kasza, 133 F.3d at 1166 (citing Reynolds, 345 U.S. at 11 n.26). The Ninth Circuit 19 has recognized that "a bright line does not always separate the subject matter of the lawsuit from 20 the information necessary to establish a prima facie case," and that "in some cases there may be 21 no dividing line." Al-Haramain, 507 F.3d at 1201.15 The court also observed that in some cases 22 23 id. at 29, 31 & n.8. Likewise, in Wilner v. National Security Agency, No. 07 Civ. 3883, 2008 24 WL 2567765, at **4-5, (S.D. N.Y. June 25, 2008) (appeal pending), the court applied Section 6 to bar disclosure of whether the plaintiffs had been subject to TSP surveillance. 25 15 26 See, e.g., Kasza, 133 F.3d at 1170 (finding that the very subject matter of the case is a state secrets because "[n]ot only does the state secrets privilege bar [plaintiff] from establishing 27 her prima facie case on any of her eleven claims, but any further proceedings in this matter would jeopardize national security"). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -17-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 28 of 36 "the suit itself may not be barred because of its subject matter and yet, ultimately, the state secrets 1 privilege may nonetheless preclude the case from proceeding to the merits." Id.16 Here, plaintiffs 2 do not challenge the publicly acknowledged Terrorist Surveillance Program, but allege that other 3 "dragnet" activities were authorized after 9/11 and are ongoing, including the alleged collection 4 of communication records. Dismissal of these allegation would thus be appropriate on the ground 5 that its very subject matter would inherently risk or require the disclosure of state secrets. But, to 6 be clear, the Government does not seek dismissal merely on this basis, but seeks summary 7 judgment, as permitted by Kasza, on the ground that the Government's privilege assertions 8 exclude the very information necessary for plaintiffs to establish their standing or a prima facie 9 case, as well as information relevant to the defense of both the Government and personal capacity 10 defendants. 11 A. Standing Cannot be Established or Refuted Without the 12 Disclosure of State Secrets and Harm to National Security. 13 The fundamental, threshold issue of plaintiffs' standing cannot be adjudicated without 14 state secrets. Plaintiffs, of course, bear the burden of establishing standing and must, at an 15 "irreducible constitutional minimum," demonstrate (1) an injury-in-fact, (2) a causal connection 16 between the injury and the conduct complained of, and (3) a likelihood that the injury will be 17 redressed by a favorable decision. Lujan v. Defenders of Wildlife, 504 U.S. 555, 559-60 (1992). 18 In meeting that burden, plaintiffs must demonstrate an actual or imminent--not speculative or 19 hypothetical--injury that is particularized as to them; they cannot rely on alleged injuries to 20 unnamed members of a purported class. See, e.g., Warth v. Selden, 422 U.S. 490, 502 (1975); see 21 also Ellsberg, 709 F.2d at 65. Moreover, to obtain prospective relief, plaintiffs must show that 22 they are currently subject to an alleged activity or otherwise "immediately in danger of sustaining 23 some direct injury" as the result of the challenged conduct. City of Los Angeles v. Lyons, 461 24 16 Al-Haramain itself was such a case. The Ninth Circuit held that the "very subject 25 matter of the case" was not a state secret based on several public disclosures by the Government 26 as to the existence of the Terrorist Surveillance Program. See 507 F.3d at 1197-1200. But the court nonetheless held that the case would have to be dismissed on the ground that the state 27 secrets privilege precluded plaintiffs from establishing their standing (unless the FISA preempted that privilege). See id. at 1205. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -18-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 29 of 36 U.S. 95, 102 (1983). Plaintiffs cannot rest on general allegations in their Complaint, but must be 1 able to set forth specific facts that establish their standing to obtain the relief sought. See Lewis v. 2 Casey, 518 U.S. 343, 358 (1996) (quoting Lujan, 504 U.S. at 561). 3 Here, the DNI has properly asserted privilege over facts essential for plaintiffs to establish 4 their standing, or for the Government to respond to their allegations of injury,17 and courts have 5 consistently recognized the dismissal is necessary in these circumstances. In Al-Haramain, the 6 Ninth Circuit upheld the Government's assertion of the state secrets privilege (unless otherwise 7 preempted by FISA) and found that it foreclosed plaintiffs there from establishing their standing 8 as a factual matter. See 507 F.3d at 1205.18 Likewise, in Terkel, supra, the court dismissed the 9 very claim at issue here--whether AT&T had disclosed communication records to the 10 Government--because the state secrets privilege foreclosed plaintiffs from establishing their 11 standing. See 441 F. Supp. 2d at 919-20. The Sixth Circuit has also rejected standing based on a 12 "well founded belief"--as opposed to actual evidence-- that communications were being 13 intercepted under the TSP. See American Civil Liberties Union v. NSA, 493 F.3d 644, 656, (6th 14 Cir. 2007) (Batchelder, J.) (where states secrets privilege prevents discovery of evidence of 15 standing, allegations of harm held to be speculative and insufficient); see also id. at 692 16 (Gibbons, J. concurring) (dismissal required where state secrets privilege prevents plaintiffs from 17 establishing whether they were subject to TSP or government from presenting evidence to refute 18 that allegation).19 19 20 17 The Government and personal capacity defendants likewise would not be able to 21 present any evidence in an attempt to disprove plaintiffs' standing without information covered by the state secrets privilege assertion (e.g., whether or not a particular person's communications 22 were intercepted). See Halkin I, 598 F.2d at 11 (rejecting contention that acquisition of plaintiff's communication may be presumed from certain facts because "such a presumption 23 would be unfair to the individual defendants who would have no way to rebut it"). 24 18 Again, the Government preserves its position that FISA Section 1806(f) does not preempt the state secrets privilege or authorize a court to invoke its procedures in order to 25 adjudicate whether or not a party has in fact been subject to surveillance and has standing. 26 19 A similar state secrets assertion was upheld in Halkin II. See 690 F.2d at 998 (holding 27 that plaintiffs' inability to adduce proof of actual acquisition of their communications rendered them incapable of making the showing necessary to establish their standing to seek relief); see 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -19-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 30 of 36 The Government's privilege assertion also precludes plaintiffs from establishing standing 1 as to any statutory claim that may survive the Government's motion to dismiss. For each cause of 2 action, plaintiffs must establish, as a threshold matter, that they have been "aggrieved"--that is, 3 subject to the alleged action being challenged.20 Because plaintiffs cannot adduce proof that the 4 content of their communications has been collected by the Government, or that their 5 communications records likewise have been obtained by the Government, the most basic element 6 of every claim--their standing as "aggrieved persons"--cannot be established. 7 It bears emphasis that plaintiffs' allegation of a "dragnet" of surveillance by the 8 NSA--the alleged interception of communication content and records of millions of domestic and 9 international communications made by ordinary Americans, see, e.g. Compl. � 7--does not 10 establish their standing. Even if that allegation were sufficient to avoid dismissal on the 11 pleadings, plaintiffs would be required to demonstrate that they personally have been subject to 12 the alleged communications dragnet, and the information relevant to doing so is properly 13 protected by the state secrets privilege. Plaintiffs cannot establish the existence of an alleged 14 content dragnet (previously denied by the Government, see Hepting, 439 F. Supp. 2d at 996), or 15 its application to them personally without the disclosure of NSA intelligence sources and 16 17 also Ellsberg, 709 F.2d at 51 (holding that dismissal was warranted where a plaintiff could not, 18 absent recourse to state secrets, establish that he was actually subject to surveillance). See also PFAW, 462 F. Supp. 2d at 28-32; Wilner, 2008 WL 2567765, at **4-8 (barring disclosure under 19 FOIA of whether plaintiffs had been subject to surveillance under the TSP). 20 20 With respect to plaintiffs' claim for damages under FISA Section 1810, the term "aggrieved person" is "coextensive [with], but no broader than, those persons who have standing 21 to raise claims under the Fourth Amendment with respect to electronic surveillance," H.R. REP. NO. 95-1283, at 66 (1978); see also Rakus v. Illinois, 439 U.S. 128, 132 n.2 (1978) (a party 22 raising a Fourth Amendment claim "must allege such a personal stake or interest in the outcome 23 of the controversy as to assure the concrete adverseness which Art. III requires."). Similarly, under the Wiretap Act, 18 U.S. C. � 2510, civil actions may be brought only by a "person whose 24 . . . communication is intercepted, disclosed, or intentionally used." 18 U.S.C. � 2520(a). The Stored Communication Act likewise limits it civil remedies to "person[s] aggrieved" under the 25 statute, id. � 2707(a); see id. 2711(1) (adopting � 2510(11) definition of "aggrieved person" as 26 one "who was a party to any intercepted . . . communication" or "a person against whom the interception was directed"). Each of these provision reflects the fundamental point that only 27 persons who can establish factually that their own rights were injured by the actual interception or disclosure of their own communications (or records) have Article III standing to proceed. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -20-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 31 of 36 methods. Similarly, plaintiffs cannot establish standing based on allegations that records 1 concerning their communications were collected as part of (or apart from) the alleged 2 communications dragnet. As this Court noted in Hepting, "the government has neither confirmed 3 nor denied whether it monitors communication records and has never publicly disclosed whether 4 [such a program] actually exists," see 493 F. Supp. 2d at 997, and the Court further recognized, 5 in barring discovery on this claim in Hepting, that: 6 Revealing that a communication records program exists might 7 encourage that terrorist to switch to less efficient but less detectable forms of communication. And revealing that such a program does 8 not exist might encourage a terrorist to use AT&T services when he would have done so otherwise. 9 Id.; accord, Terkel, 441 F. Supp. 2d at 917. The Government's privilege assertion as to this 10 allegation again demonstrates the exceptional harm to national security that would result from any 11 further proceedings on this allegation. For this reason, plaintiffs cannot sustain their burden of 12 showing that such a program exists, much less satisfy their burden of establishing standing by 13 showing that their communication records were collected under such an alleged program. 14 B. The Disclosure of Privileged Information Would Also be 15 Required to Adjudicate Plaintiffs' Claims on the Merits. 16 Beyond the fact that plaintiffs cannot obtain evidence to establish standing, still more state 17 secrets would be required to litigate each of plaintiffs' claims on the merits. For example, 18 plaintiffs' "content" surveillance claims would require proof not only of an alleged interception of 19 their communications, but that any such interception met the highly specific definition of 20 "electronic surveillance" under the FISA, which includes inter alia, interception of a 21 communication on a wire inside the United States. See 50 U.S.C. � 1809; 1801(f). This would 22 require disclosure of specific facts concerning where and how any communications were 23 intercepted--information that would reveal precise intelligence sources and methods under which 24 content may be captured by the Government (if at all). Another element of plaintiffs' FISA claim 25 would require proof that the Government intentionally disclosed or used information obtained 26 under color of law by electronic surveillance, knowing or having reason to know the information 27 was obtained through unauthorized electronic surveillance. See 50 U.S.C. � 1809. Thus, 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -21-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 32 of 36 assuming the content of their communications had been intercepted at all, plaintiffs still would 1 have to show an intentional disclosure or use of that information to support this aspect of their 2 FISA claim--information that, again, would either reveal the existence of foreign intelligence 3 interest in plaintiffs or their communicants or, conversely, the lack thereof--in either case 4 revealing the scope of NSA intelligence activities.21 5 Similarly, for their ECPA claims, plaintiffs would have to show that the Government 6 required an electronic communication service provider to disclose the content of plaintiffs' 7 communications in electronic storage, and whether or not such a disclosure occurred pursuant to a 8 court order or statutory authority. See 18 U.S.C. � 2703(a), (b). With respect to plaintiffs' ECPA 9 claim concerning the alleged collection of communication records, see 18 U.S.C. � 2703(c), not 10 only must there be official confirmation or denial of the existence of the alleged activity but, if 11 that activity were confirmed, plaintiffs must adduce proof concerning the scope and operation of 12 any such program, including, for example, whether it actually encompassed plaintiffs' records, 13 when and how it may have done so, whether any such records were put to any use and in what 14 manner, and again whether any such action was authorized by court order or statute. In any 15 event, litigation of plaintiffs' ECPA claims would require or risk disclosure of intelligence 16 sources and methods as to whether or not, or when and how, the content of plaintiffs' wire or 17 electronic communications, or records of their communications, were obtained by the 18 Government. 19 Plaintiffs' related Fourth and First Amendment claims both put at issue not only whether 20 plaintiffs' individual communications (content or records) were collected, but whether there 21 existed a reasonable basis for the particular search or seizure, whether exigent circumstances 22 23 21 24 Likewise, plaintiffs' Wiretap Act claims would require proof that one of plaintiffs' wire or electronic communications, as defined in the Act (see 18 U.S.C. � 2510 (1), (12)), had 25 been intercepted--information that would reveal particular intelligence methods were or were 26 not used to target plaintiffs' communications. If such an interception had occurred, plaintiffs must then show that the content of their communications, defined to mean the "substance, 27 meaning or purport" of the communication (see 18 U.S.C. � 2510(8)), was knowingly disclosed and used in violation of the Act. See 18 U.S.C. � 2511(1)(c) and (d). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -22-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 33 of 36 warranted any action at issue, and what specific information was actually obtained, viewed, used, 1 or disclosed by the Government. Fourth Amendment claims require fact-specific determinations, 2 including whether a search was undertaken, under what authority, whether it violated an 3 expectation of privacy, and why the Government may have acted. See, e.g., O'Connor v. Ortega, 4 480 U.S. 709, 718 (1987) ("`what is reasonable depends on the context within with a search takes 5 place'") (quoting New Jersey v. T.L.O., 469 U.S. 325, 334-35 (1985)). And if the Government 6 obtained only non-content informational records, there may be no Fourth Amendment issue at 7 all.22 8 In addition, as to all of the foregoing claims, the plaintiffs again would have to obtain 9 confirmation or denial as to whether AT&T participated in the alleged activity, as well as where, 10 how, and to what extent, to determine if any such participation involved plaintiffs' 11 communications. The DNI has set forth a more than reasonable basis to conclude that harm to 12 national security would result from the disclosure of whether the NSA has worked with any 13 telecommunications carrier in conjunction with the alleged activities. Indeed, this Court 14 previously has observed that it is not in a position to second-guess the DNI's judgment regarding 15 a terrorist's risk preferences for picking a communications carrier--a judgment that might depend 16 on an array of facts not before the Court. Hepting, 439 F. Supp. 2d at 990, 997. 17 Plaintiffs' allegations with respect to AT&T are also foreclosed by the Totten/Tenet 18 doctrine, in which the Supreme Court has made clear that litigation that would risk the disclosure 19 of an alleged espionage relationship is barred per se. 20 The possibility that a suit may proceed and an espionage relationship may be 21 revealed, if the state secrets privilege is not found to apply, is unacceptable: "Even a small chance that some court will order disclosure of a source's identity could 22 well impair intelligence gathering and cause sources to `close up like a clam.'" 23 22 24 See Smith v. Maryland, 442 U.S. 735, 742-46 (1979) (holding that individuals have no legitimate expectation of privacy in the numbers they dial on the telephone and pen register 25 search of such information does not constitute a search for Fourth Amendment purposes); United 26 States v. Forrester, 512 F.3d 500,10 (9th Cir. 2007) ("[E]-mail and Internet users have no expectation of privacy in the to/from addresses of their messages or the IP addresses of the 27 websites they visit because they should know that this information is provided to and used by Internet service providers for the specific purpose of directing the routing of information." ). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -23-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 34 of 36 See Tenet v. Doe, 544 U.S. 1, 11 (2005) (quoting CIA v. Sims, 471 U.S. at 175). Plaintiffs' 1 allegations with respect to AT&T must be dismissed for this independent reason as well.23 2 Finally, adjudication of the merits would require disclosure of whether any of the alleged 3 activities (if they exist) are ongoing, or occurred only during certain periods, or were authorized 4 at some point by statute or court order. Disclosure of such information would be relevant not 5 only to the question whether any prospective relief is appropriate, but also whether plaintiffs may 6 seek damages for any past alleged violation.24 In either case, such disclosures again would reveal 7 a range of facts concerning whether, when, how, why, and under what authority the NSA may 8 have utilized certain intelligence sources and methods--information that is subject to the 9 Government's privilege assertion and cannot be disclosed without risking exceptionally grave 10 harm to national security. 11 IV. LITIGATION OF PLAINTIFFS' CLAIMS CANNOT PROCEED UNDER FISA. 12 Finally, as noted above, the Government reserves its position that the FISA does not 13 preempt the state secrets privilege. We recognize the Court has addressed this issue in the Al- 14 Haramain action and is unlikely to change its view. Thus, the Government will not brief the 15 16 17 23 In enacting the FISA Act Amendments Act of 2008, the Senate Select Committee on 18 Intelligence ("SSCI") found that the "details of the President's program are highly classified" and that, as with other intelligence matters, the identities of persons or entities who provide 19 assistance to the U.S. Government are protected as vital sources and methods of intelligence." See S. Rep. 110-209 at 9 (Dkt. 469-2). Notably, the SSCI expressly stated that "[i]t would be 20 inappropriate to disclose the names of the electronic communication service providers from which assistance was sought, the activities in which the Government was engaged or in which 21 providers assisted, or the details regarding any such assistance," because "identities of persons or 22 entities who provide assistance to the intelligence community are properly protected as sources and methods of intelligence." Id. 23 24 For example, plaintiffs' "separation of powers" claim seeks only prospective equitable 24 relief as to ongoing activities allegedly authorized by the President pursuant to his Article II powers. See Compl., Count XVII. But the sole basis for this allegation remains media reports 25 concerning activities allegedly authorized in 2001, and the Government's acknowledgment of 26 the Terrorist Surveillance Program in 2005. The TSP ended in 2007, and plaintiffs' allegations as to any ongoing "dragnet" authorized by the President is sheer speculation that could not be 27 addressed in further litigation without the disclosure of classified intelligence sources and methods. 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -24-
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 35 of 36 matter again at length but incorporates by reference its prior detailed discussion of the issue.25 In 1 sum, we simply reiterate our position that the state secrets privilege, which is rooted in the 2 constitutional authority of the President as well as the common law, cannot be preempted absent 3 an unmistakably clear directive by Congress that it intended to do so. Nothing in the text or 4 legislative history of the FISA says anything about preempting the state secrets privilege--let 5 alone reflects a clear and unambiguous intention to do so. In particular, Section 1806(f) of FISA 6 only applies where the Government has acknowledged surveillance and seeks to use surveillance 7 evidence in a court proceeding. See 18 U.S.C. � 1806 ("Use of Information"). Most importantly, 8 that provision cannot be read (and has never been applied) to compel the Government to disclose 9 (or risk the disclosure of) information concerning intelligence sources and methods that the 10 Government chooses to protect. 11 CONCLUSION 12 For the foregoing reasons, the Court should dismiss plaintiffs' statutory claims for lack of 13 jurisdiction, uphold the Government's privilege assertions, enter summary judgment for the 14 Government Defendants, and dismiss the case as to all defendants and all claims. 15 April 3, 2009 Respectfully Submitted, 16 MICHAEL F. HERTZ 17 Acting Assistant Attorney General 18 DOUGLAS N. LETTER Terrorism Litigation Counsel 19 JOSEPH H. HUNT 20 Director, Federal Programs Branch 21 VINCENT M. GARVEY Deputy Branch Director 22 23 s/ Anthony J. Coppolino ANTHONY J. COPPOLINO 24 Special Litigation Counsel 25 26 25 The Section 1806(f) issue was addressed at length by the Government in the Al- 27 Haramain action. See Defs. 2d MSJ at 12-24 (Dkt. 17, 07-109-VRW); and Defs. 2d MSJ Reply at 8-24 (Dkt. 29 in 07-109-VRW). 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW
Case 3:08-cv-04373-VRW Document 18 Filed 04/03/2009 Page 36 of 36 s/ Paul G. Freeborne 1 PAUL G. FREEBORNE 2 s/ Marc Krickbaum MARC KRICKBAUM 3 Trial Attorneys 4 U.S. Department of Justice Civil Division, Federal Programs Branch 5 20 Massachusetts Avenue, NW, Rm. 6102 Washington, D.C. 20001 6 Phone: (202) 514-4782 Fax: (202) 616-8460 7 Email: tony.coppolino@usdoj.gov 8 Attorneys for the Government Defendants Sued in their Official Capacity 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 Government Defendants' Notice of Motion to Dismiss and For Summary Judgment and Memorandum Jewel et al. v. National Security Agency et al., Case No. 08-cv-4373-VRW -26-
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