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Open Up, Mr. President!

Legislation introduced in Congress Thursday would nullify an executive order signed by President Bush in 2001 limiting public access to presidential documents and greatly expanding the scope of executive privilege. Rep. Henry A. Waxman (D-Calif.) announced the bipartisan bill during a House of Representatives subcommittee hearing that featured widespread condemnation of the president’s action, not only for its perceived effect of restricting research and freezing the flow of public information, but also for its role in building back-ups at the presidential libraries.

The Presidential Records Act Amendment of 2007 would largely restore the 1978 Presidential Records Act to its form under President Reagan, limit executive privilege to current and former presidents, and set firm deadlines for the review of documents before their public release. A similar bill never made it out of Congress back in 2004.

“History is not partisan,” said Waxman, a sponsor of the bill and chair of the House’s Committee on Oversight and Government Reform, a subcommittee of which held the hearing on presidential records Thursday. “Historians and scholars need access to our nation’s history as it happened, not as a former president wished that it happened.”

Bush’s order, back in the news of late amid protests of his proposed library at Southern Methodist University, effectively grants current and former presidents — and their heirs — far greater discretion to indefinitely classify documents long after the 12-year post-presidency period during which executive privileges have typically applied. Also, for the first time, vice presidents can likewise enjoy the privilege.

“Any presidential library created under this executive order will be a mockery,” said Steven L. Hensen, a past president of the Society of American Archivists and director of technical services for Duke University’s rare books library. “There are records, but they could be embargoed by Laura Bush or Jeb or whoever.”

In defense of the order, Allen Weinstein, archivist of the United States, testified that “there should be no question that, to date, Executive Order 13233 has not been used by former presidents or the incumbent president to prevent the opening of records to the public.”

More than 2.1 million pages of presidential records have been opened since November 2001, when the order went into effect, Weinstein said, and on “only one occasion” did the order restrict the release of documents. A total of 64 pages, 30 of which were duplicates, were kept closed at the Reagan Library, Weinstein said.

Thomas S. Blanton, for one, was not impressed.

Blanton, director of the non-governmental National Security Archive at George Washington University, said that from 1994 to 2001, the Reagan Library alone opened more than 5 million pages — more than twice the total number of pages opened by the entire presidential system since that time. And while the number of pages actively restricted may be low, Blanton says the lack of a time limit on a presidential review of documents before their release has contributed to a delay in response time that grew from 24 months in November 2001 to 78 months in February of this year.

For instance, he said his 1997 request for the Malta Summit transcript from George H.W. Bush’s library — a Russian version of which is already available publicly — was forwarded first to agencies for declassification review in 2001, and then to the White House in 2005. He’s still waiting.

Bush’s order is only partly to blame, said Blanton, who also cited staff and resource shortages at the presidential libraries, even as a wave of electronic documents being sent their way has stressed the system still further. The backlogs at the Reagan, Bush and William J. Clinton Libraries extend up to five years, Weinstein confirmed. The average combined time for National Archives and Records Administration staff to complete their reviews has risen to 210 days, from 170 in October 2005 and 90 in April 2004.

Yet, while speakers briefly touched on resource shortages, the focus Thursday remained primarily on the open access issues at play. Rep. Michael Turner of Ohio, the senior Republican on the House Subcommittee on Information Policy, Census and National Archives, redirected the attention to the national security issue, often invoked by the executive order’s defenders, by asking Weinstein whether the events of September 11 give him “additional pause in areas where you didn’t have pause before.” Weinstein’s affirmative answer, Turner said, is important in providing a context to the debate, although scholars insist that exemptions under the original law were more than adequate in keeping sensitive security documents closed.

Scholars, meanwhile, pointed to other national interests achieved by opening the documents.

“We need to think of presidential papers as raw material, like iron,” said Anna K. Nelson, a distinguished historian in residence at American University who represented the Society for Historians of American Foreign Relations Thursday. The research, done by a few, trickles down through books, articles and, ultimately, textbooks, to the many, she said — “from iron to steel.”

Elizabeth Redden

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Comments

In a country that is supposed to be for the people and by the people, I’m wondering why we allow our politicians to hide certain parts of their doings while in office from us (the public). I think that there will probably be more executive orders needed in order to reverse the damage that Bush has done to the laws we have in this country.

Rogeo, at 7:55 pm EST on March 2, 2007

Ms. Redden writes that the order provides “far greater discretion to indefinitely classify documents long after the 12-year post-presidency period during which executive privileges have typically applied.”

The word “classify” actually is a term of art in archival circles. Consequently, for reporters, a better phrase than “classify” to describe what is involved with E.O. 13233 would be “claim privilege.” That’s because the term “classify” has a specific meaning for archivists. The process of protecting classified information is described in a different, much earlier executive order, the one on national security classification, available athttp://www.archives.gov/isoo/policy-documents/eo-12958-amendment.html

The order that Ms. Redden is writing about, Executive Order 13233, passes on certain rights to a President’s heirs. A President’s son or daughter (such as Chelsea Clinton or Barbara or Jenna Bush) usually would not have held government office enabling them to “classify” documents. Even if they once did have classification authority, which is unlikely unless they were government employees in certain positions, the ability to classify documents doesn’t pass on to family members from an official. That’s because it attaches to a government function, not to a person.

Of course, the government has been protecting classified information for a long time, using statutes and executive orders going back to 1940. For a historical narrative of that separate process as described on a government website, seehttps://www.osti.gov/opennet/forms.jsp?formurl=od/history.html

President Bush’s 2001 order on application of executive privilege as it relates to the Presidential Records Act resulted from notification received by the White House at the beginning of 2001 that the National Archives proposed to open certain records at its Ronald Reagan Presidential Library. These were records that the government archivists had determined did not require statutory or regulatory protection as of then. The White House reportedly considered the issue, as reflected in letters sent to the Archives between March and August 2001, available at

http://www.fas.org/sgp/news/2001/09/presrecs.html

and then issued Executive Order 13233.

Again, I understand why Ms. Redden used the term classify more generally than it is intended — I’ve seen others outside the National Archives do that also — but for federal archivists, the word has a specific meaning related to the older order, E.O. 12958, not President Bush’s E.O. 13233. Of course, material that falls within the scope of E.O. 12958 is protected as long as necessary, and has been for a long time. President Nixon set in motion a systematic process of declassification in the 1970s.

Maarja Krusten, Historian and former NARA Nixon tapes archivist, at 4:25 am EST on March 3, 2007

The Executive Branch was created for secrecy

First, Congress cannot nullify an executive order. The branches of government are co-equal. Just as the President cannot issue an executive order mandating that the Legislature change its procedures, the Congress cannot nullify the orders of the Executive.

Second, even a flimsy read of the Federalist Papers confirms that the Executive was created specifically to allow for “secrecy and despatch” in government, especially in warfighting and foreign policy.

Rogio may think he is climbing upon the high horse of open government, but a straw man on a high horse is still a straw man.

Jeff Younger, at 4:30 am EST on March 3, 2007

Confusion understandable but these links should help

Mr. Younger’s post suggests that I was correct in cautioning Ms. Redden not to use the term “classify.” Executive orders covering national security matters have been issued since 1940 and the current one is E.O. 12958, issued during the Clinton administration and amended in part by President Bush. There is a process in place for systematic declassification.

The hearing last Thursday was about an existing statute, the Presidential Records Act of 1978, the administration of which has been affected by a different executive order, 13233. The focus of the order is exertion of executive privilege over Presidential records that the National Archives proposes to open. So the records would already have been screened within the government for application of existing laws and orders relating to privacy, secrecy, etc., before notification was made to the former and sitting President that the Archives proposed to open them.

If you are interested in learning more about the separate process of classification and declassification, here are two links, one from the National Archives’ website, the other an article in the Washington Post about the Archives’ records declassification division. (My late twin sister, Eva Krusten, worked as a senior archivist in that division and trained some of the people mentioned in the piece.)

See

http://www.archives.gov/isoo/speeches-and-articles/ncms-2004.html

for the text of a speech by a high ranking National Archives’ official in 2004 at a seminar at the National Classification Management Society

and

http://www.washingtonpost.com/wp-...011501216.html?referrer=emailarticle

There seems to be a lot of confusion among the public about some of these processes. I’m not surprised of course, I have little or no idea how you all do things on campus. I’ve never worked in academe. So if I tried to comment on the intricacies of some of your processes, I’m sure I’d get some things wrong, also. But if you read the stories, you can see that assessment of equities in classified documents is handled within the government as it is an executive function. You’ll see a description of a 25 year time period. NO mention there of a 12 year time period. There also is no description of a President’s heirs playing a role, as is envisioned in the assertion of the Presidential communications privilege under E.O. 13233.

I hope this helps clarify some of these complicated issues.

Maarja Krusten, Historian and former NARA Nixon tapes archivist, at 1:55 pm EST on March 3, 2007

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