United States Court of Appeals
for the district of columbia circuit
Division for the Purpose of
Appointing Independent Counsels
Ethics in Government Act of 1978, As Amended
In re: Madison Guaranty Savings Division No. 94-1
& Loan Association
Before: Sentelle, Presiding Judge, Fay and Cudahy*, Senior Circuit Judges.
O R D E R
Pursuant to the Independent Counsel Reauthorization Act of 1994, 28 U.S.C. 591-599
(1994), the court, on its own motion, concludes that termination of the office of Independent
Counsel in the above-captioned matter is not currently appropriate under the standard set forth in
28 U.S.C. 596(b)(2).
Per Curiam
For the Court:
Mark J. Langer, Clerk
by
Marilyn R. Sargent
Chief Deputy Clerk
*Senior Judge Cudahy dissents from the ORDER.
United States Court of Appeals
for the district of columbia circuit
Filed August 18, 1999
Division No. 94-1
In re: Madison Guaranty Savings & Loan Association
Division for the Purpose of
Appointing Independent Counsels
Ethics in Government Act of 1978, as Amended
Before: Sentelle, Presiding Judge, and Fay and Cudahy, Senior Circuit Judges.
ON TERMINATION OF INDEPENDENT COUNSEL QUESTION
Opinion of the Special Division filed Per Curiam.
Dissenting Opinion filed by Senior Judge Cudahy.
Per curiam: 28 U.S.C. 596(b)(2) empowers the Division of the Court "on its own
motion or upon the request of the Attorney General [to] terminate an office of independent
counsel . . . on the ground that the investigation of all matters within the prosecutorial
jurisdiction of such independent counsel . . . have been completed or substantially completed that
it would be appropriate for the Department of Justice to complete such investigations and
prosecutions." The statute further provides that the Division should enter an appropriate order on
its own motion at the end of the first two-year period of the independent counsel investigation,
the second two year period and thereafter at the end of each succeeding year. We have never
interpreted this section to empower the Division to supervise independent counsel. Indeed, it
could not constitutionally do so. In Morrison v. Olson, 487 U.S. 654 (1988), the Supreme Court
upheld the constitutionality of the Ethics in Government Act against a challenge that it violated
the separation of powers doctrine precisely because the Division created under the Act "has no
power to supervise or control the activities of the counsel." Id. at 695. We have consistently
followed the Supreme Court's teaching on this doctrine. See, e.g., In re North (Walsh Show
Cause Order), 10 F.3d 831, 837 (D.C. Cir., Spec. Div., 1993). Therefore, in the absence of a
motion from the Attorney General, or a party having standing to raise an actual case or
controversy cognizable by the court under Article III, as in Walsh Show Cause Order, supra, we
have limited our termination inquiry to request of the independent counsel as to whether the
investigation was completed. Where, as in Walsh Show Cause Order, there has been a dispute
concerning the completion, or even a potential dispute, we have called upon the independent
counsel for further filing. Otherwise, we have not engaged in conduct that might have crossed
the constitutional barrier into supervision. Nor do we intend to do so today.
In the current case, as in prior instances under the statute, the Division has inquired of the
independent counsel and received his assurance that his work is ongoing. Having neither the
constitutional authority to supervise nor a motion from the Attorney General, nor any Application
by any other party having standing to bring before the court an Article III controversy, we have
not looked beyond the public record to seek support for this proposition. In this case, the public
record offers ample support.
As our dissenting colleague recognizes, this investigation has reached the fifth
anniversary of the appointment, a good deal less time than that occupied by the investigation in
In re North or In re Pierce, and has been unusually productive, having resulted, as our colleague
recognizes, in the impeachment of a President, as well as twenty-four (24) indictments and
sixteen (16) convictions not alluded to by our dissenting colleague. While we cannot, without
challenging the border of unconstitutional supervision, inquire as to the precise day-to-day nature
of the remaining work, it is quite evident that it involves at least the production of a final report,
along with such "residual noninvestigative and nonprosecutorial authority duties relating to the
filing of the Final Report," as would normally accompany the winding-down of an investigation
of the present scope. See In re North, 10 F.3d at 834.
For reasons that are not clear to us, our dissenting colleague would depart from our usual
custom and commence supervision in the case of Independent Counsel Starr as has never been
done with any other independent counsel. Nothing known to us explains why we should visit
upon this particular independent counsel a level of supervision different than that ever before
afforded in the absence of some motion by the Attorney General or some other party having the
standing to bring a case or controversy within the cognizance of the court rather than an exercise
in unconstitutional supervision.
For those reasons, we have today issued an order declining to terminate the Office of
Independent Counsel in this matter.
CUDAHY, Senior Circuit Judge, dissenting:
Terminating the office of an independent counsel when his work is completed is one of
the most important obligations with which this court is charged. An endless investigation, which
the passivity of the majority invites, can serve no possible goal of justice and imposes needless
burdens on the taxpayers. The approach advocated by the majority renders the termination
provisions of the Independent Counsel Act, 28 U.S.C. 596(b)(2), a dead letter. The language in
Morrison v. Olson, 487 U.S. 654, 695 (1988), on which the majority relies may preclude this
Division from attempting to "supervise or control" the manner in which an independent counsel
carries out his duties. There is certainly no indication, however, that the Supreme Court intended
to nullify the termination provisions of the statute.
I do seem to agree with the majority on certain preliminary questions. First, this Division
must make a termination decision. Second, this decision must be based on some information.
Third, the Division can request this information from an independent counsel. On the questions
of how much information, what kind of information and what sort of decision the available
information dictates, I emphatically disagree. The approach advocated by the majority here is in
stark contrast to the aggressive performance of this Division in In re North (Walsh Show Cause
Order), 10 F.3d 831 (D.C. Cir. 1993).
The Independent Counsel statute provides that the Division "shall" make a determination,
even if on its "own motion." 28 U.S.C. 596(b)(2). We need not wait for some other party to
suggest that the Division exercise its powers of termination (as ex-President Reagan did in In re
North). The statute also directs that our termination decision be based on specific information:
whether an independent counsel's investigations are "completed or so substantially completed
that it would be appropriate for the Department of Justice to complete such investigations . . . ."
We further know that the Division can, without breaching any constitutional walls that separate
powers, request that an independent counsel provide information regarding the status of his
investigations so that the Division may determine whether the statutory "conditions for
termination [have] been met." In re North, 10 F.3d at 832. In fact, in the North case, the
Division's informational requests of Independent Counsel Lawrence Walsh took the emphatic
form of an Order to Show Cause why his investigation should not be terminated. See id.
I have sought to have this Division request specific information from the Independent
Counsel about further investigative activity that he could usefully undertake and which could not
now properly be turned over to the Department of Justice. My efforts along these lines have been
rebuffed. The only word which is available to me of the Independent Counsel's possible
investigative prospects are very general representations that such prospects may exist, conveyed
in an informal "contact" between the Independent Counsel and the Presiding Judge of this
Division. Despite the very high esteem in which I hold the Presiding Judge, I do not believe that
vague intimations informally conveyed are an adequate basis for our official action. I strongly
believe that the Division needs more information -- of the specific kind identified in the statute --
in order to make its decision. In any event, based on what I know (or do not know) now, there is
a strong case for termination, and it would be very difficult to persuade me otherwise.
This investigation is celebrating its fifth birthday, and it has led to the impeachment of the
President of the United States followed by his acquittal by the Senate. This is a natural and
logical point for termination, since it is not clear how additional measures against the principal
subject of the investigation could be pursued. Nor is there any indication that the Independent
Counsel would pursue them -- whatever they might be. In addition, there apparently are no
pending prosecutions against lesser figures. The past record of the Independent Counsel in
procuring indictments and convictions of others implicated in the investigation is certainly of
interest but is quite irrelevant to future prospects or legitimate needs at this stage of the process.
From the information at my disposal, I must conclude that there is nothing further to be
done, beyond a Final Report, and certainly nothing that cannot properly be turned over to the
Department of Justice, as the statute provides. Termination, of course, may be conditional on
completion and submission of a Final Report. See In re North, supra. I would therefore
terminate the office of this Independent Counsel subject to completion and submission of a Final
Report.
For these reasons, I respectfully dissent.