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9th Cir. Invalidates Portion of Terror Law

Attorney General John Ashcroft may be crowing about the sentencing of the Buffalo Six (Lackawanna) defendants this week, but perhaps not for long. The 9th Circuit Court of Appeals today dealt a serious blow to the darling of the Justice Department's terrorism nursery--the law prohibiting providing material support to a terrorist organization. It's an issue we think is likely to reach the Supreme Court.

In an opinion written by Judge Harry Pregerson, the 9th Circuit ruled unconstitutional a portion of the "providing material support to terrorist organization" provision of the 1996 Antiterrorism and Effective Death Penalty Act (“AEDPA”). The law was enacted under Clinton following the 1995 Oklahoma City Bombing.

Under the Act, [8 U.S.C. § 1189 and 18 U.S.C. § 2339B], the Secretary of State may designate an organization as a “foreign terrorist organization.” One who provides material support or services to such an organization commits a crime that is punishable by up to life in prison.

The issue in the case:

...whether a criminal prosecution under 18 U.S.C. § 2339B requires the government to prove as an element of the offense that the defendant knew the organization had been designated by the Secretary as a foreign terrorist organization, or at least knew of the organization’s unlawful activities leading to its designation.

The ruling:

...we construe 18 U.S.C. § 2339B to require proof that a person charged with violating the statute had knowledge of the organization’s designation or knowledge of the unlawful activities that caused it to be so designated. In addition, we reaffirm our decision in Humanitarian Law Project II that the prohibition on providing “training” and “personnel” in § 2339B is impermissibly
overbroad, and thus void for vagueness under the First and Fifth Amendments.

...The language of 18 U.S.C. § 2339B does not in any way suggest that Congress intended to impose strict liability on individuals who donate “material support” to designated organizations.

....we believe that when Congress included the term “knowingly” in §2339B, it meant that proof that a defendant knew of the organization’s designation as a terrorist organization or proof that a defendant knew of the unlawful activities that caused it to be so designated was required to convict a defendant under the statute.

We find it ironic that the Court relied upon none other than Sen. Orrin Hatch (R-Utah) to establish the above proposition:

The one statement in the Congressional Record that refers to an intent
requirement in § 2339B was made by Senator Hatch, who cosponsored AEDPA.

In introducing the Senate Conference Report to the Senate, Senator Hatch stated: “[t]his bill also includes provisions making it a crime to knowingly provide material support to the terrorist functions of foreign groups designated by a Presidential finding to be engaged in terrorist activities. I am convinced we have crafted a narrow but effective designation provision which meets these obligations while safeguarding the freedom to associate, which none of us would willingly give up.” 142 Cong. Rec. S3354 (daily ed. April 16, 1996) (statement of Sen. Hatch) (emphasis added).

Bottom line:

Thus, to sustain a conviction under § 2339B, the government must prove beyond a reasonable doubt that the donor had knowledge that the organization was designated by the Secretary as a foreign terrorist organization or that
the donor had knowledge of the organization’s unlawful activities that caused it to be so designated.

We know we're running on here a bit, but this part is really important, so stay with us. In a prior appeal of this same case, the 9th Circuit ruled that the terms “personnel” and “training” were "void for vagueness under the First and Fifth Amendments because they bring within their ambit constitutionally protected speech and advocacy."

The Government in today's case argued it had fixed that problem. It said it revised the U.S. Attorney's Manual to define the terms so all is fine now. The 9th Circuit disagreed.

Because “personnel” could be construed to include unequivocally pure speech and advocacy protected by the First Amendment, we decline to depart from our legal ruling in Humanitarian Law Project II that the term “personnel” is void for vagueness.

We also reaffirm our legal conclusion in Humanitarian Law Project II that the
term “training” is unconstitutionally vague. Reasonable people could easily assume that the use of the word “training” in § 2339B encompasses First Amendment protected activities.

....The government argues that it has cured the constitutional deficiencies in §2339B’s prohibition of “personnel” and “training” because it developed the definition of the two terms in the United States Attorneys’ Manual. The government’s argument carries little weight, however, because the proper analysis centers on whether the statute provides citizens with reasonable notice. ...

The Court noted, the U.S. Attorneys' Manual conveys no rights and is not enforceable. Further,

Because the United States Attorneys’ Manual’s expanded definition is neither accessible to the public nor clear from the statute, we conclude that the United States Attorneys’ Manual definitions do not change our holding.

The Court didn't invalidate the whole statute--just the portions criminalizing the provision of personnel and training.

Thus, § 2339B is enforceable, except for the terms “personnel” and “training” included in the definition of “material support.”

We analyzed this AEDPA provision, the earlier 9th Cir. case and the U.S. Attorney's Manual provision last October, here. A detailed background post on the Buffalo Six case is here. Howard Bashman of How Appealing also finds today's ruling to be very significant.

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