Dan Meador, Memorandum of Law

8/9/2019 Dan Meador, Memorandum of Law

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UNITED STATES COURT OF APPEAL

FOR THE TENTH CIRCUIT

UNITED STATES OF AMERICA ]

Plaintiff ]

]

vs. ] Case No. 97-5 !"

]

DAN MEADOR ]Defen#ant ]

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Memorandum of Law

In S%&&o't of Motion to Conve't Di'e(t A&&eal

No) (o*es Dan +eslie, Mea#o', (o**onl no)n as Dan Mea#o', an# /e'e0

in(o'&o'ates all state*ents of fa(t (on(e'nin1 t/e (/a'a(te' of t/e &a't an# /is a0o#e an#

'elations/i& to Fe#e'al 2%'is#i(tion, an# /is #enial of 0ein1 DAN +ES+IE MEADOR,

DAN MEADOR, o' an ot/e' 2%'is#i(ti(, non-*o'al 0ein1.

Petitione'3s *e*o'an#%* of la) e4&o%n#s on onl fo%' iss%es 'aise# in &etitione'3s

*otion to (onve't #i'e(t a&&eal to an e4t'ao'#ina' )'it a*o%ntin1 to a (o**on la)

'e*e# on a fo%'-s %a'e (/allen1e an# (ollate'al atta( on t/e in#i(t*ent, 2%#1*ent an#

senten(e in UNITED STATES OF AMERICA vs. DAN +ES+IE MEADOR, et(., (ase

96-CR- -C, t'ie# in t/e Unite# States Dist'i(t Co%'t fo' t/e No't/e'n Dist'i(t of

O la/o*a, 8. Dale Coo &'esi#in1. D%e to e4t'e*el li*ite# ti*e, la( of a((ess to la)s


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t/e Constit%tion, t/e A'ti(le IB Unite# States Dist'i(t Co%'t, 0ein1 a le1islative 'at/e'

t/an 2%#i(ial (o%'t, /as effe(te# a 0ill of attain#e' a1ainst &etitione'.

Co%nsel fo' t/e >Unite# States of A*e'i(a>, t/e Inte'nal Reven%e Se'vi(e, an# va'io%s

in#ivi#%als t/e fo%'-s %a'e (/allen1e an# (ollate'al atta( iss%es a1ainst )ill no #o%0t

alle1e, >T/e &lea#in1 is %nintelli1i0le,> o' >Alle1ations a'e 2%st so *%(/ *o'e ta4

&'oteste' '/eto'i(,> et(. 8o)eve', t/at is not t/e (ase A*on1 ot/e' t/in1s, &etitione'

/a&&ens to 0e an a)a'#-)innin1 )'ite', an# 'esea'(/ /as *at%'e# eno%1/ t/at &'e(io%s

fe) (onst'%(tive a'1%*ents 'e*ain. T/e Coo&e'ative Fe#e'alis* s(/e*e, fo'*e'l

no)n as Co'&o'atis*, /as 0een lai# 0a'e= t/e >Unite# States of A*e'i(a> is no) no)n

to 0e a 1ove'n*ent fo'ei1n to t/e Unite# States= t/e Inte'nal Reven%e Se'vi(e is in fa(t

s%((esso' to t/e @%'ea% of Inte'nal Reven%e, P%e'to Ri(o= no ta4in1 stat%te in t/e Inte'nalReven%e Co#e 'ea(/es t/e Union of seve'al States an# &eo&le in#i1eno%s to o' ot/e')ise

sit%ate# in t/e seve'al States %nless t/e /a&&en to 0e U.S. ;ove'n*ent e*&lo ees= t/e

Inte'nal Reven%e Co#e an# t/e Stat%tes at +a'1e vest a%t/o'it in t/e T'eas%'

De&a't*ent, via t/e ;ene'al A((o%ntin1 Offi(e, fo' a#*inist'ation an# (olle(tion of

#elin %ent ta4es in t/e Continental Unite# States= t/e so-(alle# in(o*e ta4 levie# in

S%0title A of t/e Inte'nal Reven%e Co#e is si*&l t/e >no'*al ta4> levie# a1ainst offi(e's

an# e*&lo ees of t/e Unite# States, et(. Inte'nal Reven%e A(t of Nov. ! , 9! an# t/e

P%0li( Sala' Ta4 A(t of 9 9:= an# Unite# States *%ni(i&al a%t/o'it , in(l%#in1 &oli(e

&o)e's, 2%#i(ial an# (o''e(tions a%t/o'it )it/in t/e Union of seve'al States &a't to t/e

Constit%tion is li*ite# to Fe#e'al en(laves, #efine# at " USC ? 7 :. T/e >Unite# States

of A*e'i(a, SS, P'esi#ent of t/e Unite# States>, /as stan#in1 onl in Fe#e'al (o%'ts

lo(ate# in P%e'to Ri(o an# t/e Bi'1in Islan#s.

T/e fa(t t/at 2%#i(ial offi(e's *a1ist'ates: in Unite# States Dist'i(t Co%'ts &'esi#e %n#e'

t/e 1ol#-f'in1e# Union a( e4e(%tive *a'tial la) a#*i'alt 0anne':, 'at/e' t/an t/e

offi(ial fla1 of t/e Unite# States, &'es('i0e# at USC ? , is &'oof &ositive of %n#e'l in1

a%t/o'it an# &%'&ose )/en t/e e4e(%tive a#*i'alt -*a'tial la) a%t/o'it is e4ten#e#

0e on# 0o'#e's of t/e 1eo1'a&/i(al Unite# States s%02e(t to Con1'ess3 A'ti(le IB ? .!

le1islative 2%'is#i(tion, an# t/e a%t/o'it *oves %n#e' t/'eat o' a(t%al fo'(e of a'*s, it


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(annot 0e (onst'%e# ot/e' t/an as a(ts of &l%n#e' an# )a', )it/ t/e sove'ei1n &eo&le of

t/e seve'al States 0ein1 t/e o02e(t of &l%n#e', s%&&'ession, se#ition an# t'eason.

Petitione' alle1es t/at it is not /is 'es&onsi0ilit to #is&'ove stan#in1 fo' t/e >Unite#

States of A*e'i(a>, t/e Inte'nal Reven%e Se'vi(e, t/e Unite# States Dist'i(t Co%'t, t/e

Unite# States Atto'ne , t/e De&a't*ent of %sti(e, et al. Petitione' /as 0een a''este# an#

i*&'isone#. Petitione' alle1es t/at t/ose 'es&onsi0le /ave (ons&i'e# to t/e (o**on en#

of false i*&'ison*ent. As t/e a((%se#, t/ose 'es&onsi0le a'e &'i*a fa(ie 1%ilt of false

i*&'ison*ent %nless o' %ntil t/e : &'ove stan#in1, !: &'ove s%02e(t-*atte'

2%'is#i(tion, an# : &'ove te''ito'ial 2%'is#i(tion.

T/e fo%' *e*o'an#%* (o*&onents t/at follo) #o not 'el on a0st'a(t o' (onst'%(tivea'1%*ents. T/e a'e 0ase# s %a'el on t/e Constit%tion of t/e Unite# States, Stat%tes at

+a'1e, stat%tes &%0lis/e# in t/e Unite# States Co#e evi#en(e of la) onl :, 'e1%lations,

e4e(%tive o'#e's, e4e(%tive offi(e' #ele1ations of a%t/o'it , an# ot/e' 1ove'n*ent-

1ene'ate# a%t/o'ities, in(l%#in1 2%#i(ial #e(isions t/at a'ti(%late (onstit%tional &'in(i&les.

T/e'efo'e, 'e %isite 'es&onse f'o* (o%nsel fo' t/e &laintiff >Unite# States of A*e'i(a>:

*%st 0e )it/ (on('ete 'at/e' t/an a0st'a(t &'oofs.

Fo' e4a*&le, t/e last senten(e of < USC ? !55 sti&%lates t/at %ntil t/e Unite# States /as

fo'*all a((e&te# 2%'is#i(tion ove' lan# a( %i'e# 0 t/e Unite# States, )it/ 2%'is#i(tion

(e#e# 0 t/e le1islat%'e of t/e State )/e'e t/e lan# is a( %i'e#, Unite# States 2%'is#i(tion

is &'es%*e# not to e4ist. G/e'e t/e instant *atte' is (on(e'ne#, (o%nsel fo' t/e >Unite#

States of A*e'i(a> *a &'ove Unite# States 2%'is#i(tion in t/e (o%nt of Ha , o' t/e

(o**%nit of Pon(a Cit , state of O la/o*a, 0 ente'in1 &'oof t/at t/e Unite# States

fo'*all a((e&te# 2%'is#i(tion to t/e (o%nt o' (o**%nit in (o*&lian(e )it/

'e %i'e*ents of < USC ? !55 an# A'ti(le I ? ". 7 of t/e Constit%tion.

Petitione' /as #e*onst'ate# t/at !6 USC ? 77< a: !: A: 7"


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not t/e De&a't*ent of t/e T'eas%' of t/e Unite# States, t/e De&a't*ent of t/e T'eas%' ,

P%e'to Ri(o, t/e Co**issione' of Inte'nal Reven%e, o' t/e Inte'nal Reven%e Se'vi(e, an#

t/at t/e Stat%tes at +a'1e, as )ell as 5 USC ? 55 !, vests a%t/o'it in t/e ;ene'al

A((o%ntin1 Offi(e, as 1ene'al a1ent fo' t/e T'eas%' of t/e Unite# States, fo' (olle(tion

of #elin %ent e*&lo ee ta4es.

In 'es&onse, (o%nsel fo' t/e >Unite# States of A*e'i(a> an# t/e Inte'nal Reven%e Se'vi(e

*%st &'o#%(e 'e %isite a%t/o'ities into 'e(o'# Stat%to' a%t/o'it , e4e(%tive o'#e's,

#ele1ations of a%t/o'it , 1ene'al a&&li(ation 'e1%lations.

Most i*&o'tantl , &etitione' alle1es t/at t/e >no'*al ta4> &'es('i0e# in S%0title A of t/e

Inte'nal Reven%e Co#e is not a t'%e in(o*e ta4 (onte*&late# 0 t/e Si4teent/A*en#*ent it is a &'ivile1e ta4:. T/e >no'*al ta4> )as fi'st i*&ose# on offi(e's an#

e*&lo ees of t/e Unite# States 0 A(t of %l "6! t/e Si4teent/ )as not i*&le*ente#

%ntil 9 . T/e'efo'e, (o%nsel fo' t/e Unite# States of A*e'i(a *%st #is(lose )/at

A'ti(le I #ele1ate# a%t/o'it t/e no'*al ta4 iss%es %n#e'. If t/e ta4 #oes not fall )it/in

Con1'ess3 A'ti(le I en%*e'ate# &o)e's, o' is *e'el an e4e'(isin1 a%t/o'it to 'e1%late

1ove'n*ent, e4tension of t/e a%t/o'it to t/e Union of seve'al States an# t/e &o&%lation

at la'1e is &atentl f'a%# an# *%st 0e (on#e*ne# as %s%'&ation of &o)e'.

An ol# (ollo %ialis* sa s t/at (lose (o%nts onl in /o'se s/oes an# /an# 1'ena#es. T/e

&'in(i&le a&&lies in t/is fo'%* P'oofs *%st 0e (on('ete. As in all t/in1s, t'%t/ /as

s%0stan(e. P'oofs of la), e4e(%tive o'#e's, e4e(%tive offi(e' #ele1ations of a%t/o'it , an#

1ene'al a&&li(ation 'e1%lations, alon1 )it/ #is(los%'e of (onstit%tionall #ele1ate#

a%t/o'it , (onstit%te t/e s%0stantial fo'(e of la). Git/o%t t/e 'e %isite &'oofs, t/ose

'es&onsi0le fo' &'ose(%tion of t/e instant *atte' a'e (on#e*ne# fo' false i*&'ison*ent

an# stan# in 2eo&a'# fo' ot/e' alle1e# offenses.

T/e fo%' *e*o'an#%* ele*ents follo)


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. T/e Unite# States Dist'i(t Co%'t fo' t/e No't/e'n Dist'i(t of O la/o*a, an# all ot/e'

Unite# States Dist'i(t Co%'ts lo(ate# in t/e Union of seve'al States &a't to t/e

Constit%tion. : +a( a%t/o'it to &'ose(%te felon ('i*es. !: /ave no 2%'is#i(tion

a%t/o'it 0e on# t/at &'es('i0e# at " USC ?7 :, an# : a'e in(o*&etent at la) as

(onte*&late# 0 t/e >a'isin1 %n#e'> (la%se at A'ti(le III ? !. an# t/e Fift/ A'ti(le of

A*en#*ent to t/e Constit%tion.

T/e Unite# States Dist'i(t Co%'t is a te''ito'ial (o%'t of t/e Unite# States, ('eate# at !"

USC ? !

? !. C'eation an# (o*&osition of #ist'i(t (o%'ts Jsi(]

a: T/e'e s/all 0e in ea(/ 2%#i(ial #ist'i(t a #ist'i(t (o%'t )/i(/ s/all 0e a (o%'t of 'e(o'#

no)n as t/e Unite# States Dist'i(t Co%'t fo' t/at #ist'i(t.

Pe' 8isto'i(al an# Stat%to' Notes, ? ! *e'el (ontin%es e4istin1 la) (o%'ts al'ea#

in e4isten(e, )it/ offi(e's of t/e 'es&e(tive (o%'ts, )o%l# (ontin%e to f%n(tion f'o* !"

USC ? Fe#e'al Co#e of Civil P'o(e#%'e:, an# " USC ? 6 Te''ito'ies an# Ins%la'

Possessions:. T/e >Unite# States Dist'i(t Co%'t> is #istin(t f'o* t/e >#ist'i(t (o%'t of t/e

Unite# States>, t/e fo'*e' 0ein1 a le1islative-te''ito'ial (o%'t of t/e Unite# States, t/e

latte' an A'ti(le III 2%#i(ial (o%'t of t/e Unite# States. T/ese (o%'ts )e'e va'io%sl

esta0lis/e#, )it/ t/e o'i1inal #ist'i(t (o%'ts of t/e Unite# States, o' t/ei' 'es&e(tive

&'e#e(esso's, 0 o'i1inal 2%#i(ia' a(ts of 7"9 an# 79 , t/en 0 Ena0lin1 A(ts fo' t/e

va'io%s States a#*itte# to t/e Union of seve'al States &a't to t/e Constit%tion

s%0se %ent to t/e fo%n#in1 States. T/e Unite# States Dist'i(t Co%'ts )e'e esta0lis/e# in

te''ito'ies 0elon1in1 to t/e Unite# States &'io' to an 1iven te''ito' 0ein1 a#*itte# to t/e

Union as a *e*0e' State. T/is a''an1e*ent (ontin%es to t/e &'esent in A*e'i(an Sa*oa,

;%a*, t/e Bi'1in Islan#s, an# ot/e' te''ito'ies of t/e Unite# States )/i(/ a'e not in t/e


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Union of seve'al States &a't to t/e Constit%tion, save t/e Dist'i(t of Col%*0ia, )/i(/ is

a le1iti*ate Fe#e'al #ist'i(t, an# P%e'to Ri(o, a (o**on)ealt/ Fe#e'al State.

@ #efinition, at !" USC ? 5 , t/e >#ist'i(t (o%'t of t/e Unite# States> is (lea'l

#istin1%is/e# f'o* t/e >Unite# States Dist'i(t Co%'t>

T/e te'*s >#ist'i(t (o%'t> an# >#ist'i(t (o%'t of t/e Unite# States> *ean t/e (o%'ts

(onstit%te# 0 (/a&te' 5 of t/is title.

T/e 0'oa#e' #efinition at !" USC ? 5 , )/i(/ in(l%#es te''ito'ial (o%'ts ('eate# 0 >A(tof Con1'ess>, is as follo)s

T/e te'* >(o%'t of t/e Unite# States> in(l%#es t/e S%&'e*e Co%'t of t/e Unite# States,

(o%'ts of a&&eal, #ist'i(t (o%'ts (onstit%te# 0 (/a&te' 5 of t/is title, in(l%#in1 t/e Co%'t

of Inte'national T'a#e an# an (o%'t ('eate# 0 A(t of Con1'ess t/e 2%#1es of )/i(/ a'e

entitle# to /ol# offi(e #%'in1 1oo# 0e/avio'.

In t/e Fe#e'al Co#e of C'i*inal P'o(e#%'e Title ", Unite# States Co#e:, o'i1inal

2%'is#i(tion ove' offenses a1ainst t/e Unite# States is veste# in A'ti(le III #ist'i(t (o%'ts

of t/e Unite# States at " USC ? ! , )/i(/ also &'ese'ves 2%'is#i(tion of la)s an#

(o%'ts of t/e seve'al States Const., A't. III ? !. :

? ! . Dist'i(t (o%'ts

T/e #ist'i(t (o%'ts of t/e Unite# States s/all /ave o'i1inal 2%'is#i(tion, e4(l%sive of t/e

(o%'ts of t/e States, of all offenses a1ainst t/e la)s of t/e Unite# States.


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Not/in1 in t/is title s/all 0e /el# to ta e a)a o' i*&ai' t/e 2%'is#i(tion of t/e (o%'ts of

t/e seve'al States %n#e' t/e la)s t/e'eof.

Te''ito'ial (o%'ts >Unite# States Dist'i(t Co%'ts>: )/i(/ /ave felon ('i*inal

2%'is#i(tion fo' &'ose(%tion of ('i*es liste# in Titles ", ! , !6 an# ot/e' titles of t/e

Unite# States Co#e a'e s&e(ifi(all en%*e'ate# at " USC ? ! , an# R%le 5 a:, Fe#e'al

R%les of C'i*inal P'o(e#%'e, fo' t/e Unite# States Dist'i(t Co%'ts

? ! . Co%'t of t/e Unite# States #efine#

As %se# in t/is title Jtitle ", Unite# States Co#e], e4(e&t )/e'e ot/e')ise e4&'essl

&'ovi#e# t/e te'* >(o%'t of t/e Unite# States> in(l%#es t/e Dist'i(t Co%'t of ;%a*, t/e

Dist'i(t Co%'t of t/e No't/e'n Ma'iana Islan#s, an# t/e Dist'i(t Co%'t of t/e Bi'1in

Islan#s.

T/e se(tion a0ove )as a##e# 0 P.+. < - !!, 99 . Desi1nations in R%le 5 a:, 0elo),

a'e #ate# 0 'e*oval of t/e Canal Kone f'o* Unite# States 2%'is#i(tion

R%le 5 . A&&li(ation an# E4(e&tion

a: Co%'ts. T/ese '%les a&&l to all ('i*inal &'o(ee#in1s in t/e Unite# States Dist'i(t

Co%'ts= in t/e Dist'i(t of ;%a*= in t/e Dist'i(t Co%'t of t/e No't/e'n Ma'iana Islan#s,

e4(e&t as ot/e')ise &'ovi#e# in a'ti(les IB an# B of t/e (ovenant &'ovi#e# 0 t/e A(t of

Ma'(/ ! , 976 9< Stat. !6 := in t/e Dist'i(t Co%'t of t/e Bi'1in Islan#s= an# e4(e&t as

ot/e')ise &'ovi#e# in t/e Canal Kone: in t/e Unite# States Dist'i(t Co%'t fo' t/e Dist'i(t

of t/e Canal Kone= in t/e Unite# States Co%'t of A&&eals= an# in t/e S%&'e*e Co%'t of


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t/e Unite# States= e4(e&t t/at t/e &'ose(%tion of offenses in t/e Dist'i(t Co%'t of t/e

Bi'1in Islan#s s/all 0e 0 in#i(t*ent o' info'*ation as ot/e')ise &'ovi#e# 0 la).

A%t/o'it of t/e va'io%s (o%'ts of t/e Unite# States is #ete'*ine# 0 (a&a(it Un#e'

A'ti(le III of t/e Constit%tion, t/e 2%#i(ial 0'an(/ of Unite# States ;ove'n*ent o&e'ates

in#e&en#ent of le1islative an# e4e(%tive 0'an(/es= %n#e' A'ti(le IB ? .!, )/i(/ vests

Con1'ess )it/ &lena' &o)e' ove' te''ito' 0elon1in1 to t/e Unite# States, e4e(%tive an#

2%#i(ial 0'an(/es o&e'ate %n#e' (on1'essionall #ele1ate# a%t/o'it as t/e Constit%tion

#oes not vest a%t/o'it in o' ove' te''ito' 0elon1in1 to t/e Unite# States in t/e e4e(%tive

o' 2%#i(ial 0'an(/es of 1ove'n*ent. T/%s, t/e follo)in1 stat%tes 1ove'n )/at e4e(%tive o'

2%#i(ial f%n(tions *a 0e e4e'(ise# )/en #ele1ate# a%t/o'it %n#e' Con1'ess3 A'ti(le IB? .! le1islative 2%'is#i(tion is (onfe''e# on t/e ot/e' 0'an(/es.

USC ? 7

? 7 . Pe'*anent seat of ;ove'n*ent

All t/at &a't of t/e te''ito' of t/e Unite# States in(l%#e# )it/in t/e &'esent li*its of t/e

Dist'i(t of Col%*0ia s/all 0e t/e &e'*anent seat of 1ove'n*ent of t/e Unite# States.

USC ? 7!

? 7!. P%0li( offi(es= at seat of ;ove'n*ent

All offi(es atta(/e# to t/e seat of 1ove'n*ent s/all 0e e4e'(ise# in t/e Dist'i(t of

Col%*0ia, an# not else)/e'e, e4(e&t as ot/e')ise e4&'essl &'ovi#e# 0 la).


10/94

Pe' USC ? 7!, stat%to' a%t/o'it is *an#ato' )/e'e e4e(%tive o' 2%#i(ial entities

o&e'ate in (a&a(ities )/i(/ a'e %n#e' Con1'ess3 a%t/o'it in t/e 1eo1'a&/i(al Unite#

States, t/e *an#ate a'ti(%late# in t/e follo)in1

Con1'ess, /avin1 t/e enti'e #o*inion an# sove'ei1nt , national an# *%ni(i&al, fe#e'al

an# state, ove' t/e te''ito'ies of t/e Unite# States, so lon1 as t/e 'e*ain in t/e te''ito'ial

(on#ition, *a itself #i'e(tl le1islate fo' an te''ito' , o' *a e4ten# t/e la)s of t/e

Unite# States ove' it, in an &a'ti(%la' t/at Con1'ess *a t/in fit. U.S. v. M(Millan,

Uta/ "97, 7 S.Ct. 95, 65 U.S. 5< , +.E#. "


11/94


12/94

(o%'ts. 8o'n0%( le v. Too*0s, "5 U.S. 6 ", ! +.E#. 966 "7 :. 8o)eve', an #o%0t as

to t/e in(l%sion of t/e Dist'i(t Co%'t fo' t/e Dist'i(t of Col%*0ia in t/e &/'ase is lai# to

'est 0 t/e &'ovisions of t/e %#i(ial Co#e (onstit%tin1 t/e 2%#i(ial #ist'i(ts, !" U.S.C. ?

" et se ., ('eatin1 #ist'i(t (o%'ts t/e'ein, i#. ? !, an# s&e(ifi(all &'ovi#in1 t/at t/e

te'* >#ist'i(t (o%'t of t/e Unite# States> *eans t/e (o%'t so (onstit%te#. I#. ? 5 . T/e

Dist'i(t of Col%*0ia is in(l%#e#. I#. ? "". Mo'eove', )/en t/ese &'ovisions )e'e

ena(te#, 'efe'en(e to t/e Dist'i(t of Col%*0ia )as #elete# f'o* t/e o'i1inal (ivil '%les

ena0lin1 a(t. !" U.S.C. ? !


13/94

If one )e'e to sto& at t/is &oint an# f'a*e a '%le 1ove'nin1 t/e a&&li(a0ilit of t/e

&'o&ose# '%les of evi#en(e in te'*s of t/e a%t/o'it (onfe''e# 0 t/e t/'ee ena0lin1 a(ts,

an i''e1%la' &atte'n )o%l# e*e'1e as follo)s

Civil a(tions, in(l%#in1 a#*i'alt an# *a'iti*e (ases #ist'i(t (o%'ts in t/e states,

Dist'i(t of Col%*0ia, an# P%e'to Ri(o.

@an '%&t( sa*e as (ivil a(tions, &l%s ;%a* an# Bi'1in Islan#s.

C'i*inal (ases sa*e as (ivil a(tions, &l%s Canal Kone an# Bi'1in Islan#s 0%t not;%a*:.

T/is i''e1%la' &atte'n nee# not, /o)eve', 0e a((e&te#. O'i1inall t/e A#viso' Co**ittee

on t/e R%les of Civil P'o(e#%'e too t/e &osition t/at, alt/o%1/ t/e &/'ase >#ist'i(t (o%'ts

of t/e Unite# States> #i# not in(l%#e te''ito'ial (o%'ts, &'ovisions in t/e o'1ani( la)s of

P%e'to Ri(o an# 8a)aii )o%l# *a e t/e '%les a&&li(a0le to t/e #ist'i(t (o%'ts t/e'eof,

t/o%1/ t/is )o%l# not 0e so as to Alas a, t/e Bi'1in Islan#s, o' t/e Canal Kone, )/ose

o'1ani( a(ts (ontaine# no (o''es&on#in1 &'ovisions. At t/e s%11estion of t/e Co%'t,

/o)eve', t/e A#viso' Co**ittee st'%( f'o* its notes a state*ent to t/e a0ove effe(t. !

Moo'e3s Fe#e'al P'a(ti(e . t/e S%&'e*e Co%'t in 956


14/94

a*en#e# R%le 5 a: to state t/at t/e R%les of C'i*inal P'o(e#%'e a'e a&&li(a0le in ;%a*.

T/e Co%'t too t/is ste& follo)in1 t/e ena(t*ent of le1islation 0 Con1'ess in 95< t/at

'%les t/e'etofo'e o' t/e'eafte' &'o*%l1ate# 0 t/e Co%'t in (ivil (ases, a#*i'alt , ('i*inal

(ases an# 0an '%&t( s/o%l# a&&l to t/e Dist'i(t Co%'t of ;%a*, " U.S.C. ? ! 0:,

an# t)o Nint/ Ci'(%it #e(isions %&/ol#in1 t/e a&&li(a0ilit of t/e R%les of C'i*inal

P'o(e#%'e to ;%a*. P%1/ v. Unite# States, ! ! F.!# 76 9t/ Ci'. 95 := 8at(/ett v.

;%a*, ! ! F.!# 767 9t/ Ci'. 95 := O'fiel#, T/e S(o&e of t/e Fe#e'al R%les of C'i*inal

P'o(e#%'e, " U. of Det. +. . 7 , "7 96


15/94

C/ina. T/is is li e)ise t'%e of t/e A(t of Fe0'%a' ! , 9 7 Stat. 9< = " U.S.C.

fo'*e' ? 6"" Jno) ? 77!], a%t/o'iLin1 t/e S%&'e*e Co%'t to &'es('i0e '%les in 'es&e(t to

&'o(ee#in1s afte' ve'#i(t o' fin#in1 o' afte' &lea of 1%ilt . In t/is 'es&e(t t/ese t)o

stat%tes #iffe' f'o* t/e A(t of %ne 9, 9 " Stat. a'isin1

%n#e'> (la%se at A'ti(le III ? !. , )/e'e t/e A'ti(le IB Unite# States Dist'i(t Co%'t

o&e'ates %n#e' Fe#e'al R%les of C'i*inal P'o(e#%'e, Fe#e'al R%les of Evi#en(e, et(.,

)/i(/ a((o**o#ate Civil +a), i*&osin1 A#*i'alt '%les, an# &'es%*&tions, )/i(/ 2oin

Civil +a) an# Ma'iti*e +a) into an in#istin1%is/a0le s ste*. Civil +a) &'o(ess is 0ot/

fo'ei1n an# 'e&%1nant to t/e Constit%tion of t/e Unite# States, an# )/e'e ('i*inal

*atte's a'e (on(e'ne#, is (ont'a' to t/e Fift/ A*en#*ent #%e &'o(ess (la%se.

In o'#e' to st'ai1/ten o%t t/e #istin(tion, t/e'e )as a (o''e(tion of t/e S%&'e*e Co%'t

o'#e' &e'tainin1 to ('i*inal '%les of &'o(e#%'e f'o* De(e*0e' !6, 9 to De(e*0e' !7,

9 ". T/e fi'st &o'tion of t/e 9 o'#e' is set o%t 0elo)

ORDER OF DECEM@ER !6, 9


16/94

It is o'#e'e# t/at R%les of C'i*inal P'o(e#%'e fo' t/e Dist'i(t Co%'ts of t/e Unite# States

1ove'nin1 &'o(ee#in1s in ('i*inal (ases &'io' to an# in(l%#in1 ve'#i(t, fin#in1 of 1%ilt

o' not 1%ilt 0 t/e (o%'t, o' &lea of 1%ilt , 0e &'es('i0e# &%'s%ant to t/e A(t of %ne !9,

9


17/94

R%le fo' t/e Unite# States Dist'i(t Co%'ts, Fe#e'al R%les of C'i*inal P'o(e#%'e, is as

follo)s

R%le . S(o&e

T/ese '%les 1ove'n t/e &'o(e#%'e in all ('i*inal &'o(ee#in1s in t/e (o%'ts of t/e Unite#

States, as &'ovi#e# in R%le 5 a:= an#, )/eneve' s&e(ifi(all &'ovi#e# in t/e '%les, to

&'eli*ina' , s%&&le*enta' , an# s&e(ial &'o(ee#in1s 0efo'e Unite# States *a1ist'ate

2%#1es an# at &'o(ee#in1s 0efo'e state an# lo(al 2%#i(ial offi(e's.

R%le 5 a:, s%&'a, in 'elevant &a't, affi'*s t/e asse'tion t/at t/e '%les a&&l onl to

&'o(ee#in1s in A'ti(le IB Unite# States Dist'i(t Co%'ts > a: Co%'ts. T/ese '%les a&&l to

all ('i*inal &'o(ee#in1s in t/e Unite# States Dist'i(t Co%'t >

8e'e is )/e'e t/e '%00e' *eets t/e 'oa# " USC ? ! , in (o*&lian(e )it/ USC ?

7!, vests a%t/o'it in A'ti(le III #ist'i(t (o%'ts of t/e Unite# States

T/e #ist'i(t (o%'ts of t/e Unite# States s/all /ave o'i1inal 2%'is#i(tion, e4(l%sive of t/e

(o%'ts of t/e States, of all offenses a1ainst t/e la)s of t/e Unite# States.

R%le 5 ( : #efines, o' a&&lies, t/e te'* >State>, in a stan#-alone &osition, as follo)s

>State> in(l%#es Dist'i(t of Col%*0ia, P%e'to Ri(o, te''ito' an# ins%la' &ossession.


18/94

T/e R%le 5 ( : a&&li(ation fo' t/e te'* >A(t of Con1'ess> na''o)s #o)n t/e *atte' of

)/e'e an 1iven le1islation is a&&li(a0le

>A(t of Con1'ess> in(l%#es an a(t of Con1'ess lo(all a&&li(a0le to an# in fo'(e in t/e

Dist'i(t of Col%*0ia, in P%e'to Ri(o, in a te''ito' o' in an ins%la' &ossession.

T/e va'io%s A(ts of Con1'ess &'o*%l1ate# %n#e' A'ti(le IB ? .! a%t/o'it a'e a&&li(a0le

in an# li*ite# to Con1'ess3 le1islative 2%'is#i(tion ove' te''ito' 0elon1in1 to t/e Unite#

States. T/is a%t/o'it #oes not 'ea(/ t/e Union of seve'al States &a't to t/e Constit%tion

an# t/e A*e'i(an &eo&le at la'1e. F%'t/e', Civil +a), )/i(/ (an 0e li ene# to a#*i'alto' e4e(%tive '%le ove' (on %e'e# &eo&les, (annot e4ten# inlan# to t/e Union of seve'al

States &a't to t/e Constit%tion. T/e'efo'e, A'ti(le III #ist'i(t (o%'ts of t/e Unite# States,

lo(ate# in t/e Union of seve'al States, a'e o0li1e# to o&e'ate )it/in '%les an# fo'%*s

&'es('i0e# 0 t/e En1lis/-A*e'i(an (o**on la) at t/e ti*e t/e Constit%tion 7"9: an#

t/e @ill of Ri1/ts 79 : )e'e i*&le*ente#. T/e sove'ei1n A*e'i(an &eo&le (a'' t/e

(onstit%tionall se(%'e# 'i1/t to s%0stantive #%e &'o(ess of la), as (onte*&late# 0 t/e

>a'isin1 %n#e'> (la%se at A'ti(le III ? !. , an# t/e Fo%'t/, Fift/, Si4t/, an# Sevent/

A*en#*ents, t/'o%1/o%t )/at *i1/t 0e #es('i0e# as t/e >A*e'i(an E*&i'e> an )/e'e

t/e *i1/t 0e s%02e(t to Fe#e'al a%t/o'it . T/e (onstit%tionall se(%'e# 'i1/ts of t/e

sove'ei1n &eo&le, alon1 )it/ %naliena0le an# in/e'ent 'i1/ts not en%*e'ate# Nint/

A*en#*ent:, a'e ante(e#ent to (onstit%tionall en%*e'ate# &o)e's #ele1ate# to t/e

Unite# States Tent/ A*en#*ent:.

T/e 'i##le is 'esolve# in t/e follo)in1 fas/ion A'ti(le III #ist'i(t (o%'ts of t/e Unite#

States a'e veste# )it/ o'i1inal 2%'is#i(tion 'e1a'#in1 felon ('i*es a1ainst t/e Unite#

States " USC ? ! , st &a'a1'a&/:, )it/in 2%'is#i(tion of t/e 1eo1'a&/i(al Unite#

States, as #efine# at ! USC ? 7. T/e A'ti(le III #ist'i(t (o%'t of t/e Unite# States, as

#efine# at !" USC ? 5 , *%st o&e'ate )it/in '%les an# fo'%*s &'es('i0e# 0 t/e


19/94

En1lis/-A*e'i(an (o**on la), as (onte*&late# 0 t/e >a'isin1 %n#e'> (la%se at A'ti(le

III ? !. , an# t/e Fo%'t/, Fift/, Si4t/, an# Sevent/ A*en#*ents.

A'ti(le IB Unite# States Dist'i(t Co%'ts e*&o)e'e# 0 stat%te at " USC ? ! ;%a*,

No't/e'n Ma'iana Islan#s, an# t/e Bi'1in Islan#s:, an# R%le 5 a:, F.R.C'i*.P. fo' t/e

Unite# States Dist'i(t Co%'ts, ;%a*, t/e No't/e'n Ma'iana Islan#s, t/e Bi'1in Islan#s,

an# fo'*e'l , t/e Canal Kone:, *a &'ose(%te felon offenses &'es('i0e# in Title " an#

ot/e' titles of t/e Unite# States Co#e. T/ese A'ti(le IB (o%'ts, an# Unite# States Dist'i(t

Co%'ts lo(ate# in t/e Union of seve'al States &a't to t/e Constit%tion, o&e'ate %n#e' t/e

Fe#e'al R%les of C'i*inal P'o(e#%'e an# t/e Fe#e'al R%les of Evi#en(e, 0ot/ )'itten

s&e(ifi(all fo' Unite# States Dist'i(t Co%'ts.

T/e o0vio%s %estion is )/ Con1'ess esta0lis/e# A'ti(le IB te''ito'ial (o%'ts )it/in t/e

Union of seve'al States. T/e'e is a le1iti*ate ans)e' 0e on# t/e o0vio%s #e(e&tion

Unite# States Dist'i(t Co%'ts lo(ate# in t/e Union of seve'al States a((o**o#ate t/e

Fe#e'al Ma1ist'ate S ste*. T/e 'es&onsi0ilit of t/is s ste* is li*ite# to *is#e*eano'

an# &ett offenses (o**itte# on Fe#e'al te''ito' )it/in t/e Union of seve'al States

)/e'e t/e Unite# States /as se(%'e# e4(l%sive o' (on(%''ent 2%'is#i(tion in (o*&lian(e

)it/ &'ovisions of A'ti(le I ? ". 7 of t/e Constit%tion, an# o' < USC ? !55 : t/e

Unite# States *%st se(%'e title to lan#= !: t/e State le1islat%'e *%st (e#e 2%'is#i(tion see

title "


20/94

R%le 5 0: : lea#s t/e )a to #ete'*inin1 s%02e(t *atte' 2%'is#i(tion of Unite# States

Dist'i(t Co%'ts lo(ate# in t/e Union of seve'al States

: P'o(ee#in1s @efo'e Unite# States Ma1ist'ate %#1es. P'o(ee#in1s involvin1

*is#e*eano' an# ot/e' &ett offenses a'e 1ove'ne# 0 R%le 5".

T/e Unite# States *a1ist'ate 2%#1e, ('eate# an# #%ties &'es('i0e# at !" USC ?? 6 -6 9,

is al*ost as ill%sive as t/e Unite# States Dist'i(t Co%'t O'i1inall /e )as a national &a'

(o**issione', 'e %i'e# to live in o' nea' t/e national &a' )/e'e /e )o%l# se've as

(o**issione'. 8e /as 1one t/'o%1/ seve'al title (/an1es, in(l%#in1 Unite# States(o**issione' an# Unite# States *a1ist'ate, %ntil finall settlin1 into 0la( 'o0es %n#e'

t/e (%''ent /an#le Unite# States *a1ist'ate 2%#1e. T/e te'* >2%#1e> is a *isno*e'.

8o)eve', t/e Unite# States Ma1ist'ate S ste*, a((o**o#ate# 0 Unite# States Dist'i(t

Co%'ts )it/in t/e Union of seve'al States, is 1ove'ne# 0 " USC ? <

*is#e*eano's an# a&&li(ation of &'o0ation la)s. S%02e(t *atte' 2%'is#i(tion (o*es

&'i*a'il f'o* ot/e' titles of t/e Unite# States Co#e.

T/e Fe#e'al Ma1ist'ate S ste* /as 0een i*&le*ente# %n#e' 'e1%lations &'o*%l1ate# 0

t/e Defense +o1isti(s A1en( , 'elatin1 to *ilita' installations ! CFR, Pa't !9


21/94

0: Mis#e*eano's an# Ot/e' Pett Offenses. If t/e (/a'1e a1ainst t/e #efen#ant is a

*is#e*eano' o' ot/e' &ett offenses t'ia0le 0 a Unite# States *a1ist'ate 2%#1e %n#e' "

U.S.C. ? < , t/e *a1ist'ate 2%#1e s/all &'o(ee# in a((o'#an(e )it/ R%le 5".

( : Offenses not T'ia0le 0 t/e Unite# States Ma1ist'ate %#1e. If t/e (/a'1e a1ainst t/e

#efen#ant is not t'ia0le 0 t/e Unite# States *a1ist'ate 2%#1e, t/e #efen#ant s/all not 0e

(alle# %&on to &lea#

A'1%a0l , no offense 0 an of t/e sove'ei1n A*e'i(an &eo&le is t'ia0le 0 a Unite#

States *a1ist'ate 2%#1e as /e /as no a%t/o'it in la) not la) )/i(/ *a 0e i*&ose# on

t/e sove'ei1n A*e'i(an &eo&le. To #e*onst'ate, it is %sef%l to (onsi#e' t/e s(o&e of Fe#e'al R%les of Civil P'o(e#%'e fo' t/e Unite# States Dist'i(t Co%'ts S%&'e*e Co%'t of

t/e Unite# States o'#e'. De(e*0e' !9, 9 ":, as a'ti(%late# in R%les an# !

R%le . S(o&e an# P%'&ose of R%les.

T/ese '%les 1ove'n t/e &'o(e#%'e in t/e Unite# States #ist'i(t (o%'ts in all s%its of a (ivil

nat%'e )/et/e' (o1niLa0le as (ases at la) o' in e %it o' in a#*i'alt , )it/ t/e e4(e&tions

state# in R%le " . T/e s/all 0e (onst'%e# an# a#*iniste'e# to se(%'e t/e 2%st, s&ee# ,

an# ine4&ensive #ete'*ination of eve' a(tion.

R%le !. One Fo'* of A(tion.

T/e'e s/all 0e one fo'* of a(tion to 0e no)n as >(ivil a(tion>.

+a) an# e %it , la) 0ein1 En1lis/-A*e'i(an (o**on la), si*&l #o not *i4 o' *e'1e.

T/e a'e t)o #istin(t s ste*s. An# t/at is *o'e (e'tainl t/e (ase fo' a#*i'alt , t/e la)

of t/e sea. In A'ti(le III ? !. of t/e Constit%tion, la) an# e %it a'e t)o #istin(t (lasses


22/94

of (ase (ove'e# 0 t/e >a'isin1 %n#e'> (la%se, an# a#*i'alt an# *a'iti*e (ases, as )ell

as 2%'is#i(tion, a'e #istin(t an# se&a'ate la) an# e %it a'e a&&li(a0le )it/in t/e Union

of seve'al States= a#*i'alt an# *a'iti*e 2%'is#i(tion follo)s t/e e00 an# flo) of t/e sea

%n#e' Unite# States 2%'is#i(tion.

T/e notion t/at all *a 0e 2oine# %n#e' a sin1le set of '%les, to 0e #esi1nate# >(ivil

a(tion>, is a0s%'#. G/at t/e R%les of P'o(e#%'e an# Evi#en(e fo' Unite# States Dist'i(t

Co%'ts i*&oses is a *o#e'n #e'ivation of Ro*an Civil +a), )it/ Civil +a) 0ein1 t/e

f'ate'nal t)in to *a'iti*e la) t/e a#*i'alt , )/et/e' &'in(e o' (a&tain, is sove'ei1n an#

s%&'e*e. T/is stan#s in (ont'a#i(tion to (o**on la), )/i(/ is &'e#i(ate# on /isto'i(all

&'oven nat%'al la) >t/e +a)s of Nat%'e an# of Nat%'e3s ;o#> JDe(la'ation of

In#e&en#en(e]:, )/e'e *an is not onl ('eate# in t/e i*a1e of /is C'eato', 0%t isen#o)e# )it/ >(e'tain %naliena0le 'i1/ts>, an# onl t/en is 1ove'n*ent >instit%te#

a*on1 *en> )it/ s&e(ifi(all #ele1ate# a%t/o'it . Civil +a) is 0ot/ fo'ei1n an#

'e&%1nant to t/e Constit%tion an# ot/e' (o*&onents of t/e o'1ani( la) of t/e Unite#

States.

T/e nat%'e of t/e Fe#e'al State a te''ito' of t/e Unite# States )as a'ti(%late# in E4

&a'te Mo'1an, D.C.A' . "" , !< F. !9"

A te''ito' %n#e' t/e Constit%tion an# la)s of t/e Unite# States is an in-(/oate state a

&o'tion of t/e (o%nt' not in(l%#e# )it/in t/e li*its of an state, an# not et a#*itte# as

a state into t/e Union, 0%t o'1aniLe# %n#e' t/e la)s of Con1'ess, )it/ a se&a'ate

le1islat%'e, %n#e' a te''ito'ial 1ove'no' an# ot/e' offi(e's a&&ointe# 0 t/e P'esi#ent an#

Senate of t/e Unite# States.

Con1'ess stan#s s%&'e*e in te''ito'ies of t/e Unite# States= Con1'ess *a e4e'(ise onl

(onstit%tionall #ele1ate# a%t/o'it )/e'e t/e Union of seve'al States &a't to t/e

Constit%tion an# t/e sove'ei1n A*e'i(an &eo&le a'e (on(e'ne#. T/is is ta(itl a'ti(%late#


23/94

in t/e /isto'i(al note follo)in1 'e&eale# " USC ? 9


24/94

an# so%'(e of a%t/o'it , )as a##'esse# 0 C/ief %sti(e Ma's/all in A*e'i(an Ins%'an(e

Co. v. 56 @ales of Cotton, Pet. 5 "!":

T/ese Jte''ito'ial] (o%'ts t/en, a'e not Constit%tional (o%'ts, in )/i(/ t/e 2%#i(ial &o)e'

(onfe''e# 0 t/e Constit%tion on t/e 1ene'al 1ove'n*ent (an 0e #e&osite#. T/e a'e

in(a&a0le of 'e(eivin1 it. T/e a'e le1islative (o%'ts, ('eate# in vi't%e of t/e 1ene'al

'i1/ts of sove'ei1nt )/i(/ e4ists in t/e 1ove'n*ent, o' in vi't%e of t/e (la%se )/i(/

ena0les Con1'ess to *a e all nee#f%l '%les an# 'e1%lations 'es&e(tin1 t/e te''ito'

0elon1in1 to t/e Unite# States. T/e 2%'is#i(tion )it/ )/i(/ t/e a'e investe#, is not a &a't

of t/at 2%#i(ial &o)e' )/i(/ is #efine# in t/e # a'ti(le of t/e Constit%tion, 0%t is

(onfe''e# 0 Con1'ess, in t/e e4e(%tion of t/ose 1ene'al &o)e's )/i(/ t/at 0o# &ossesses ove' t/e te''ito'ies of t/e Unite# States. Alt/o%1/ a#*i'alt 2%'is#i(tion (an 0e

e4e'(ise# in t/e States in t/ose (o%'ts onl )/i(/ a'e esta0lis/e# in &%'s%an(e of t/e #

a'ti(le of t/e Constit%tion, t/e sa*e li*itation #oes not e4ten# to t/e te''ito'ies. In

le1islatin1 fo' t/e*, Con1'ess e4e'(ises t/e (o*0ine# &o)e's of t/e 1ene'al an# of t/e

State 1ove'n*ent.

A *o'e (onte*&o'a' , an# #efinitive, state*ent )/i(/ s&e(ifi(all a##'esses t/e >Unite#

States Dist'i(t Co%'t> )as *a#e in @alLa( v. Po'to Ri(o, !5" U.S. !9" at ! 9! :

T/e Unite# States Dist'i(t Co%'t is not a t'%e Unite# States (o%'t esta0lis/e# %n#e' A'ti(le

III of t/e Constit%tion to a#*iniste' t/e 2%#i(ial &o)e' of t/e Unite# States t/e'ein

(onve e#. It is ('eate# 0 vi't%e of t/e sove'ei1n (on1'essional fa(%lt , 1'ante# %n#e'

A'ti(le IB, Se(tion of t/at inst'%*ent, of *a in1 all nee#f%l '%les an# 'e1%lations

'es&e(tin1 t/e te''ito' 0elon1in1 to t/e Unite# States. T/e 'ese*0lan(e of its 2%'is#i(tion

to t/at of t'%e Unite# States (o%'ts in offe'in1 an o&&o't%nit to non'esi#ents of 'eso'tin1

to a t'i0%nal not s%02e(t to lo(al infl%en(e #oes not (/an1e its (/a'a(te' as a *e'e

te''ito'ial (o%'t.


25/94

Finall , >T/e Unite# States Dist'i(t Co%'t /as onl s%(/ 2%'is#i(tion as Con1'ess

(onfe's.> Easte'n Metals Co'&. v. Ma'tin, 9 F.S%&&. ! 5 D.C.N. . 96


26/94

0: S%(/ '%les s/all not a0'i#1e, enla'1e o' *o#if an s%0stantive 'i1/t. All la)s in

(onfli(t )it/ s%(/ '%les s/all 0e of no f%'t/e' fo'(e o' effe(t afte' s%(/ '%les /ave ta en

effe(t.

T/e sove'ei1n A*e'i(an &eo&le a'e ass%'e# of s%0stantive #%e &'o(ess of la), 0ein1

En1lis/-A*e'i(an (o**on la) &'o(ess an# fo'%*s, as (onte*&late# 0 t/e >a'isin1

%n#e'> (la%se at A'ti(le III ? !. an# t/e Fo%'t/, Fift/, Si4t/, an# Sevent/ A*en#*ent to

t/e Constit%tion. Fe#e'al R%les of Civil P'o(e#%'e, Fe#e'al R%les of C'i*inal P'o(e#%'e,

an# Fe#e'al R%les of Evi#en(e, i*&le*ent Civil +a), as #oes a&&eal '%les &'e#i(ate# on

'%les fo' t/e Unite# States Dist'i(t Co%'t, t/e Civil +a) 0ein1 a fo'* of la) 0ot/ fo'ei1n

an# 'e&%1nant to t/e Constit%tion. T/e'efo'e, '%les &'o*%l1ate# 0 t/e S%&'e*e Co%'t of t/e Unite# States %n#e' a%t/o'it of !" USC ? !


27/94

In a state*ent a((o*&an in1 a &'evio%s t'ans*ittal to t/e (ivil '%les, MR. USTICE

DOU;+AS AND I sai#

>MR. USTICE @+ACH AND MR. USTICE DOU;+AS a'e o&&ose# to t/e s%0*ission

of t/ese '%les to t/e Con1'ess %n#e' a stat%te )/i(/ &e'*its t/e* to 3ta e effe(t3 an# to

'e&eal 3all la)s in (onfli(t )it/ s%(/ '%les3 )it/o%t 'e %i'in1 an affi'*ative

(onsi#e'ation, a(tion, o' a&&'oval of t/e '%les 0 Con1'ess o' 0 t/e P'esi#ent. Ge

0elieve t/at )/ile so*e of t/e R%les of Civil P'o(e#%'e a'e si*&l /o%se ee&in1 #etails,

*an #ete'*ine *atte's so s%0stantiall affe(tin1 t/e 'i1/ts of liti1ants in la)s%its t/at in

&'a(ti(al effe(t t/e a'e t/e e %ivalent of no) le1islation )/i(/, in o%' 2%#1*ent, t/e

Constit%tion 'e %i'es to 0e initiate# in an# ena(te# 0 t/e Con1'ess an# a&&'ove# 0 t/eP'esi#ent. T/e Constit%tion, as )e 'ea# it, &'ovi#es t/at all la)s s/all 0e ena(te# 0 t/e

8o%se, t/e Senate, an# t/e P'esi#ent, not 0 t/e *e'e fail%'e of Con1'ess to 'e2e(t

&'o&osals of an o%tsi#e a1en( . > Footnotes o*itte#.: 7 U.S. "65-"66.

So fa' as Con1'ess3 #ele1ate# &o)e' is (on(e'ne#, Fe#e'al '%les of &'o(e#%'e an#

evi#en(e 1o *%(/ f%'t/e' t/an si*&l *a in1 ne) la) t/e a((o**o#ate Civil +a),

)/i(/ is not a%t/o'iLe# o' 'e(o1niLe# 0 t/e Constit%tion, an# even if Civil +a) )as

a%t/o'iLe#, *e'1in1 of la), e %it an# a#*i'alt into a sin1le s ste* )it/ %nive'sal

a&&li(ation, (ont'a' to (lea' #ivisions set o%t in A'ti(le III ? !. of t/e Constit%tion,

)o%l# a*o%nt to Con1'ess a%t/o'iLin1 t/e 2%#i(ial 0'an(/ of 1ove'n*ent to %nilate'all

a*en# t/e Constit%tion. T/e Constit%tion #oes not &'ovi#e t/e 2%#i(ial 0'an(/ of t/e

Fe#e'al 1ove'n*ent a 'ole in a*en#in1 t/e Constit%tion. No' #o Con1'ess o' t/e

P'esi#ent /ave a%t/o'it to #ele1ate t/ei' 'es&e(tive 'oles in national 1ove'n*ent to ot/e'

0'an(/es ea(/ 0'an(/ *%st f%n(tion in its o)n (a&a(it , as &o)e's of t/e va'io%s

offi(es a'e s&e(ifi(all #ele1ate# 0 t/e Constit%tion.

T/e'efo'e, all '%les &'o*%l1ate# %n#e' a%t/o'it of !" USC ? !


28/94

2%'is#i(tion, o' t/e *%st 0e #efa%lte# #%e to t/e 2%#i(ial 0'an(/ of 1ove'n*ent la( in1

(onstit%tionall -veste# le1islative a%t/o'it , an# no a%t/o'it to %nilate'all a*en# t/e

Constit%tion.

Con(l%sion

T/e Unite# States Dist'i(t Co%'t fo' t/e No't/e'n Dist'i(t of O la/o*a, an# all ot/e'


Constit%tion, #o not /ave stat%to' o' 'e1%lato' a%t/o'it to &'ose(%te felon ('i*es

even )/en sai# ('i*es a'e (o**itte# on Fe#e'al en(laves lo(ate# in t/e Union of seve'al

States, as #efine# at " USC ? 7 :.



Constit%tion, a'e le1islative-te''ito'ial (o%'ts t/at /ave no a%t/o'it )/ateve' 0e on#

Unite# States 2%'is#i(tion )it/in t/e Union of seve'al States save on Fe#e'al en(laves,

#efine# at " USC ? 7 : an# se(%'e# in a((o'#an(e )it/ &'ovisions of A'ti(le I ? ". 7 of

t/e Constit%tion an# < USC ? !55.



Constit%tion, i*&ose a *e'1e# s ste* of Civil +a) an# Ma'iti*e +a), %n#e'

*o#e'niLe# A#*i'alt '%les, an# a'e t/e'efo'e in(o*&etent at la) as (onte*&late# 0 t/e

>a'isin1 %n#e'3 (la%se at A'ti(le III ? !. an# t/e Fo%'t/, Fift/, Si4t/, an# Sevent/ A'ti(les

of A*en#*ent to t/e Constit%tion. T/e'efo'e, t/e *a not #e&'ive t/e sove'ei1n

A*e'i(an &eo&le of life, li0e't , o' &'o&e't .

!. Petitione' alle1es t/at a1en(ies of t/e Unite# States, in(l%#in1 t/e offi(e of t/e Unite#

States Atto'ne fo' t/e No't/e'n Dist'i(t of O la/o*a, an# t/e De&a't*ent of %sti(e of

t/e Unite# States, an# t/e Inte'nal Reven%e Se'vi(e, t/e latte' an a1en( of t/e

De&a't*ent of t/e T'eas%' , P%e'to Ri(o, o&e'atin1 in t/e Continental Unite# States as an


29/94

in#e&en#ent (ont'a(to' to &'ovi#e s ste*s #evelo&*ent an# 'e(o'#- ee&in1 se'vi(es fo'

t/e T'eas%' of t/e Unite# States, an# t/e A'ti(le IB le1islative-te''ito'ial Unite# States

Dist'i(t Co%'t fo' t/e No't/e'n Dist'i(t of O la/o*a, la( five essential ele*ents of

a%t/o'it to &'ose(%te t/e instant *atte' in t/e Union of seve'al States &a't to t/e

Constit%tion of t/e Unite# States, t/e O la/o*a 'e&%0li( in(l%#e#.

T/e five essential ele*ents a'e as follo)s

: T/e a1en( , #e&a't*ent, o' (o%'t *%st o&e'ate )it/in t/e f'a*e)o' of &o)e's

#ele1ate# to t/e Unite# States, &'in(i&all via &o)e's #ele1ate# to Con1'ess via A'ti(le I

? " of t/e Constit%tion 1ove'ne# 0 t/e Tent/ A'ti(le of A*en#*ent, Constit%tion of t/e

Unite# States:=

!: All #e&a't*ents of Unite# States ;ove'n*ent, in(l%#in1 t/e Unite# States Dist'i(t

Co%'t, *a o&e'ate onl )it/in t/e (%''ent 0o'#e's of t/e Seat of ;ove'n*ent, 0ein1 t/e

Dist'i(t of Col%*0ia, USC ? 7 :, an# *a not o&e'ate 0e on# t/e Seat of ;ove'n*ent

%nless t/e a'e a%t/o'iLe# to o&e'ate else)/e'e 0 s&e(ial la) USC ? 7!:, an# t/en

*%st o&e'ate )it/in (onfines &'es('i0e# 0 sai# la)=

: G/en Con1'ess 0 stat%te vests t/e P'esi#ent of t/e Unite# States )it/ a%t/o'it , t/e

P'esi#ent *a #ele1ate t/e a%t/o'it 0 E4e(%tive O'#e', &'ovi#in1 t/e E4e(%tive O'#e'

is &%0lis/e# in t/e Fe#e'al Re1iste', 1ivin1 t/e 1ene'al &o&%lation noti(e of a%t/o'it

#ele1ation USC ? < :=

: G/en t/e P'esi#ent #ele1ates a%t/o'it to an a#*inist'ative a1en( /ea# o' an

e4e(%tive offi(e' s%(/ as t/e Se('eta' of t/e T'eas%' , Atto'ne ;ene'al, et(., o'

Con1'ess 0 stat%te vests a%t/o'it in an e4e(%tive offi(e', t/e offi(e' *a 'e-#ele1ate

a%t/o'it to ot/e's )it/in affe(te# a1en(ies in (o*&lian(e )it/ 'e %i'e*ents of t/e

Fe#e'al Re1iste' A(t 0 &%0lis/in1 s%(/ #ele1ation in t/e Fe#e'al Re1iste' USC ?

5


30/94

5: An# t/e e4e(%tive offi(e' o' a1en( /ea# in )/o* a#*inist'ative a%t/o'it fo' an

1iven title o' (/a&te' of t/e Unite# States Co#e is veste# *%st &%0lis/ 1ene'al 'e1%lations

in t/e Unite# States Co#e is veste# *%st &%0lis/ 1ene'al 'e1%lations in t/e Fe#e'al

Re1iste' fo' all stat%tes t/at /ave 1ene'al a&&li(ation, &e' *an#ate of t/e A#*inist'ative

P'o(e#%'es A(t 5 USC ? 55!: an# t/e Fe#e'al Re1iste' A(t USC ?? 5< et se .,

s&e(ifi( &%0lis/in1 'e %i'e*ents at ? 5


31/94

Reven%e>. T/e na*e (/an1e# f'o* @IR to IRS )as #one via T.D.O. No. 5


32/94

In a (ase involvin1 t/e #ivision of a%t/o'it 0et)een fe#e'al an# state 1ove'n*ents, t/e

in %i'es as to )/et/e' an a(t of Con1'ess is a%t/o'iLe# 0 one of t/e &o)e's #ele1ate# to

Con1'ess in A'ti(le I of t/e Fe#e'al Constit%tion, o' sove'ei1nt 'ese've# 0 t/e

Constit%tion3s Tent/ A*en#*ent, a'e *i''o' i*a1es of ea(/ ot/e' if a &o)e' is #ele1ate#

to Con1'ess in t/e Constit%tion, t/e Tent/ A*en#*ent e4&'essl #is(lai*s an

'ese'vation of t/at &o)e' to t/e state, )/e'eas if a &o)e' is an att'i0%te of state

sove'ei1nt 'ese've# 0 t/e Tent/ A*en#*ent, it is ne(essa'il a &o)e' t/e Constit%tion

/as not (onfe''e# on Con1'ess= t/e Tent/ A*en#*ent #i'e(ts t/e (o%'ts to #ete'*ine

)/et/e' an in(i#ent of state sove'ei1nt is &'ote(te# 0 a li*itation on an A'ti(le I &o)e'.

/ea#note !5: States a'e not *e'e &oliti(al s%0#ivisions of t/e Unite# States, an# state

1ove'n*ent a'e neit/e' 'e1ional offi(es no' a#*inist'ative a1en(ies of t/e fe#e'al

1ove'n*ent= t/e Fe#e'al Constit%tion instea# leaves to t/e seve'al states a 'esi#%a' an#

inviola0le sove'ei1nt , 'ese've# e4&li(itl to t/e states 0 t/e Constit%tion3s Tent/

A*en#*ent.

In Ne) o' vs. Unite# States, t/e (o%'t )ent on to sa t/at if t/e Constit%tion #oes not

#ele1ate an a%t/o'it to t/e Unite# States, t/e seve'al States *a not a((o**o#ate

Fe#e'al e4e'(ise of a &o)e' )/i(/ is not 1'ante#, 0%t *%st fi'st se(%'e a (onstit%tional

a*en#*ent. T/e #e(ision also a##'esse# t/e o0vio%s, (allin1 on 2%#i(ial )is#o* of t/e

&ast T/e %estion )/e'e (onstit%tional 1ove'n*ent is (on(e'ne# is not )/at &o)e's

1ove'n*ent s/o%l# /ave, 0%t )/at &o)e's a'e s&e(ifi(all #ele1ate#. T/ose )/o e4(ee#

(onstit%tionall #ele1ate# a%t/o'it inva'ia0l #o so fo' self-se'vin1 en#s, t/e #e(ision

(on(l%#es.

T/is notion is f%n#a*ental to *atte's at /an# as t/e (ent'al %estion is not )/at &o)e's

t/e Constit%tion #ele1ates, )/i(/ *i1/t s%&&o't )/at Con1'ess /as #one, 0%t *o'e on t/e


33/94

o'#e' of )/at Con1'ess /a# #one an# t/e 'elations/i& of (on1'essional an# a1en( a(ts

'elative to t/e Constit%tion.

G/e'e t/e instant *atte' is (on(e'ne#, le1iti*a( of t/e Unite# States Dist'i(t Co%'t fo'

t/e No't/e'n Dist'i(t of O la/o*a, t/e Inte'nal Reven%e Se'vi(e, t/e De&a't*ent of

%sti(e, an# t/e Unite# States Atto'ne , 'elies on &e'fo'*an(e of le1iti*ate f%n(tions

)it/in t/e (onstit%tional f'a*e)o' , 0%t t/e'e a'e t)o #iffe'ent (onstit%tional f'a*e)o' s

to (onsi#e' Con1'ess3 A'ti(le I #ele1ate# a%t/o'it as it a&&lies to t/e Union of seve'al

States &a't to t/e Constit%tion, an# Con1'ess3 &lena' &o)e' ove' te''ito' 0elon1in1 to

t/e Unite# States. Un#e' &'ovisions of A'ti(le IB ? .! of t/e Constit%tion, Con1'ess *a

*a e all nee#f%l '%les an# 'e1%lations 'es&e(tin1 te''ito' 0elon1in1 to t/e Unite# States.

An 1iven A(t of Con1'ess, o' a(t of an a1en( o' 1ove'n*ent offi(ial, *a 0ele1iti*ate in t/e 1eo1'a&/i(al Unite# States s%02e(t to Con1'ess3 A'ti(le IB ? .!

le1islative 2%'is#i(tion, 0%t not in t/e Union of seve'al States &a't to t/e Constit%tion,

)/e'e Con1'ess *a e4e'(ise onl #ele1ate# &o)e's, *ost of )/i(/ a'e en%*e'ate# at

A'ti(le I ? " of t/e Constit%tion.

T/e (/a'a(te' of t/e Inte'nal Reven%e Se'vi(e, s%&'a, is *ate'ial to t/e instant *atte', as

t/is *atte' UNITED STATES OF AMERICA vs. DAN +ES+IE MEADOR, et(., 96-CR-

-C:, t/e t)o Moo'e-;%n)all (ases &'ose(%te# in t/e Unite# States Dist'i(t Co%'t fo'

t/e No't/e'n Dist'i(t of O la/o*a 95-CR- !9-C 96-CR-


34/94

T/eo'eti(all , Con1'ess *i1/t lev , (olle(t an# enfo'(e in(o*e ta4 la)s Si4teent/

A*en#*ent, 9 :, 0%t in 'ealit , t/e so-(alle# >in(o*e ta4> &'es('i0e# in S%0title A of

t/e Inte'nal Reven%e Co#e Bol. 6"A, Stat%tes at +a'1e, as a*en#e# in 9"6 an# sin(e: is

t/e >no'*al ta4>, fi'st levie# in "6! a1ainst )a1es of offi(e's an# e*&lo ees of t/e

Unite# States, t/en 'ene)e# so*eti*e &'io' to 9! t/e >no'*al ta4> is to#a levie#

onl a1ainst )a1es of offi(e's an# e*&lo ees of t/e Unite# States, Unite# States &oliti(al

s%0#ivisions, an# offi(e's of (o'&o'ations )/e'e t/e Untie# States /as a &'o&'ieta'

inte'est see #efinition at !6 USC ? < ( ::. T/e (o'&o'ate in(o*e ta4 )/i(/ )as

effe(te# at a&&'o4i*atel t/e ti*e t/e Si4teent/ A*en#*ent )as &'o*%l1ate# )as

'e&eale# 0 t/e Inte'nal Reven%e A(t of Nov. ! , 9! .

Asi#e f'o* si*&l not 0ein1 a ta4 levie# %n#e' Si4teent/ A*en#*ent a%t/o'it , *a in1)/ateve' a%t/o'it t/e Unite# States *i1/t /ave via t/e Si4teent/ A*en#*ent i''elevant,

t/e s&e(ial ta4es &'es('i0e# in S%0titles A C of t/e Inte'nal Reven%e Co#e of 95 , as

a*en#e# in 9"6 an# sin(e, #o not 'el on a s&e(ifi( (onstit%tional 1'ant of a%t/o'it as

t/e a'e &'e#i(ate# on Con1'ess3 A'ti(le IB ? .! le1islative 2%'is#i(tion in t/e self-

inte'este# Unite# States, an# (e'tain &'ivile1es an# 0enefits #e'ive# f'o* 1ove'n*ent

e*&lo *ent.

One of t/e non-(onstit%tional >&'ivile1es> #e'ive# f'o* e*&lo *ent fo' Unite# States

;ove'n*ent is t/e &'ivile1e of #is(/a'1in1 'at/e' t/an &a in1 #e0t, )it/ t/e *e#i%*

0ein1 >&%0li( *one > &'e#i(ate# on o0li1ations of t/e Unite# States see CFR, Pa't

!

(o*&letel o%tsi#e t/e Constit%tion t/e'e is no A'ti(le I (onstit%tional a%t/o'it fo'

Con1'ess to s%0stit%te t/is *at/e*ati(all i*&ossi0le an# t/e'efo'e f'a%#%lent ('e#it an#

*oneta' s ste*, an# no (onstit%tional 1'ant of a%t/o'it fo' t/e Union of seve'al States

&a't to t/e Constit%tion to &a'ti(i&ate see &a'ti(%la'l , A'ti(le I ?? ".5, ".6


35/94

e*&lo ee of IRS, is initiato' of all 'elate# *atte's. 8o)eve', it is %sef%l to (onsi#e' all

a%t/o'ities fo' e a1en(ies of t/e Unite# States involve#, in(l%#in1 t/e offi(e of t/e

Unite# States Atto'ne , t/e De&a't*ent of %sti(e, an# t/e Unite# States Dist'i(t Co%'t,

else)/e'e #e*onst'ate# to 0e an A'ti(le IB le1islative-te''ito'ial-stat%to' (o%'t of t/e

Unite# States.

So fa' as (onstit%tional a%t/o'it (on(e'nin1 Con1'ess3 'es&onsi0ilit to &'es('i0e an# o'

&'ose(%te ('i*es, it is e4t'e*el li*ite# e4(e&t %n#e' A'ti(le IB ? .! a%t/o'it 'elatin1

to te''ito'ies 0elon1in1 to t/e Unite# States. T/e S%&'e*e Co%'t of t/e Unite# States /a#

t/e follo)in1 to sa on t/e *atte' in t/e fi'st #e(a#e afte' Unite# States 1ove'n*ent

(onvene# %n#e' t/e Constit%tion

In 'elation to ('i*es an# &%nis/*ents, t/e o02e(ts of t/e #ele1ate# &o)e' of t/e Unite#

States a'e en%*e'ate# an# fi4e#. Con1'ess *a &'ovi#e fo' t/e &%nis/*ent of

(o%nte'feitin1 t/e se(%'ities an# (%''ent (oin of t/e Unite# States an# *a #efine an#

&%nis/ &i'a(ies an# felonies (o**itte# on t/e /i1/ seas, an# offenses a1ainst t/e la) of

nations. A't. I s. " @%t t/e'e is no 'efe'en(e to a (o**on la) a%t/o'it Eve' &o)e'

is Ja] *atte' of #efinite an# &ositive 1'ant= an# t/e ve' &o)e's t/at a'e 1'ante# (annot

ta e effe(t %ntil t/e a'e e4e'(ise# t/'o%1/ t/e *e#i%* of la). Unite# States vs. Go''all,

! Dallas ! U.S.: " , 9 79":

T/e Fo%'teent/ A*en#*ent an# seve'al a*en#*ents &'o*%l1ate# sin(e "7< e4&an#

Unite# States a%t/o'it 'elative to votin1 an# (ivil 'i1/ts violations a1ainst >(itiLens of

t/e Unite# States>, an# *i1/t (on(eiva0l e4ten# a%t/o'it 'elatin1 to a t'%e in(o*e ta4

levie# %n#e' a%t/o'it of t/e Si4teent/ A*en#*ent, 0%t t/e Unite# States #oes not /ave

1ene'al (ivil an# ('i*inal 2%'is#i(tion t/'o%1/o%t t/e Union of seve'al States &a't to t/e

Constit%tion. Git/o%t a s&e(ial (onstit%tional 1'ant of a%t/o'it , &e' U.S. vs. Constantine

an# Ne) o' vs. Unite# States, s%&'a, (o%'ts of t/e Unite# States, )/et/e' A'ti(le III

2%#i(ial (o%'ts #ist'i(t (o%'ts of t/e Unite# States:, o' A'ti(le IB le1islative-te''ito'ial


36/94

(o%'ts Unite# States Dist'i(t Co%'ts:, la( s%02e(t *atte' 2%'is#i(tion )it/in t/e Union of

seve'al States save on Fe#e'al en(laves, #efine# as Unite# States s&e(ial *a'iti*e an#

te''ito'ial 2%'is#i(tion, &e' " USC ? 7 :.

In *an instan(es, &'ose(%to's fo' t/e >Unite# States of A*e'i(a> a 1ove'n*ent fo'ei1n

to t/e Unite# States: &'e#i(ate &'ose(%tion of offenses on t/e (o**e'(e (la%se A't. I ?

". :, 0%t t/e'e is an in/e'ent falla( in t/is notion as no s&e(ifi( a%t/o'it fo' &'es('i0in1

&%nis/*ent is en%*e'ate# in t/e Constit%tion Tent/ A*en#*ent 0lo( = U.S. vs. Ga''all,

s%&'a:, an# Title " of t/e Unite# States Co#e a##'esses onl offenses (o**itte# in t/e

1eo1'a&/i(al Unite# States s%02e(t to Con1'ess3 A'ti(le IB ? .! le1islative 2%'is#i(tion,

an# Unite# States a#*i'alt an# *a'iti*e 2%'is#i(tion. T/e te'* >inte'state (o**e'(e> is

#efine# at " USC ? State> at R%le 5 ( :, Fe#e'al R%les of C'i*inal P'o(e#%'e fo'

Unite# States Dist'i(t Co%'ts te''ito'ial (o%'ts of t/e Unite# States:, (la'ifies

1eo1'a&/i(al li*itations of t/e a0ove #efinition

>State> in(l%#es Dist'i(t of Col%*0ia, P%e'to Ri(o, te''ito' an# ins%la' &ossession.

T/e Union of seve'al States &a't to t/e Constit%tion is e4(l%#e# onl te''ito' s%02e(t

to Con1'ess3 A'ti(le IB ? .! &lena' *%ni(i&al: &o)e' is in(l%#e#. T/%s, Unite# States


37/94

s%02e(t *atte' an# te''ito'ial 2%'is#i(tion a'e (on(%''ent Title " of t/e Unite# States

Co#e, as )ell as Titles 9, ! , !6 an# ", alon1 )it/ *ost ot/e' titles of t/e Unite# States

Co#e, a'e li*ite# to Unite# States te''ito'ial an# *a'iti*e 2%'is#i(tion, as " USC ? 7

(lea'l in#i(ates. T/ese titles #o not a&&l to t/e Union of seve'al States %nless a 1iven

stat%te o' A(t s&e(ifi(all 'efe'en(es t/e seve'al States &a't to t/e Constit%tion.

Unless a s&e(ifi( (onstit%tionall #ele1ate# &o)e' is ente'e# into 'e(o'# to a%t/enti(ate

Fe#e'al ('i*inal &'ose(%tion, Con1'ess3 A'ti(le IB le1islative 2%'is#i(tion e4ten#s onl to

te''ito' 0elon1in1 to t/e Unite# States, so Fe#e'al te''ito'ial an# s%02e(t *atte'

2%'is#i(tion a'e (on(%''ent. T/e fa(t is ve'ifie# in n%*e'o%s (o%'t #e(isions, t/e follo)in1

a*on1 t/e*

Git/o%t &'oof of t/e 'e %isite o)ne's/i& o' &ossession Jof lan#] 0 t/e Unite# States, t/e

('i*e /as not 0een *a#e o%t. U.S. vs. @enson, 95 F.!# 75, at " 97 :.

All (o%'ts of 2%sti(e a'e #%t -0o%n# to ta e 2%#i(ial noti(e of t/e te''ito'ial e4ten# of

2%'is#i(tion, alt/o%1/ t/ese a(ts a'e not fo'*all &%t into evi#en(e, no' in a((o'# )it/

&lea#in1s. ones vs. U.S., 7 U.S. !

Fe#e'al ('i*inal 2%'is#i(tion is neve' &'es%*e#= it *%st al)a s 0e &'oven= an# it (an

neve' 0e )aive#. U.S. vs. Ro1e's, ! Fe#. 65" Unite# States Dist'i(t Co%'t, G.D. A' .,

""5:

Unli e *ost state (o%'ts of 1ene'al 2%'is#i(tion, in )/i(/ 2%'is#i(tion is 1ene'all

&'es%*e# %nless (ont'a' is #e*onst'ate#, in fe#e'al #ist'i(t (o%'ts a0sen(e of

2%'is#i(tion is 1ene'all &'es%*e# %nless &a't invo in1 fe#e'al 2%'is#i(tion (lea'l

#e*onst'ates t/at it e4ists. State of +a. Bs. S&'int Co**%ni(ations Co., "9! F.S%&&. 5.


38/94

In &'in(i&le, t/e e4(l%sive le1islative 2%'is#i(tion of t/e Unite# States JCon1'ess3 A'ti(le

IB ? .! le1islative 2%'is#i(tional], is not a##'esse# to s%02e(t *atte', 0%t to s&e(ifi(

1eo1'a&/i(al lo(ations, &e' U.S. vs. @evons, 6 U.S. G/eat.: 6 " ":. It is

a4io*ati( t/at t/e &'ose(%tion *%st al)a s &'ove te''ito'ial 2%'is#i(tion ove' a ('i*e, in

o'#e' to s%stain a (onvi(tion t/e'efo', U.S. vs. @enson, 95 F!#. 75, at " 97 :.

G/en a fe#e'al (o%'t is )it/o%t 2%'is#i(tion ove' t/e offense a 2%#1*ent of (onvi(tion 0

t/e (o%'t an# o' 0 t/e 2%' is voi# a# initio, on its fa(e. @a%*an vs. U.S., 56 F.!# 5

5t/ Ci'. 9 6:.

T/e (onne(tion 0et)een te''ito'ial an# s%02e(t *atte' 2%'is#i(tion is *a#e 0 t/e

follo)in1

T/e s%02e(t-*atte' of a ('i*inal offense is t/e ('i*e itself. S%02e(t-*atte' in its 0'oa#est

sense *eans t/e (a%se= t/e o02e(t= t/e t/in1 in #is&%te. Stil)ell vs. Men /a*, < P.!# 5,

6 Han. 9 !:

%'is#i(tion of t/e s%02e(t *atte' is #e'ive# f'o* t/e la). It (an neit/e' 0e )aive# no'

(onfe''e# 0 (onsent of t/e a((%se#. O02e(tion to t/e (o%'t ove' t/e s%02e(t *atte' *a

0e %'1e# at an sta1e of t/e &'o(ee#in1s, an# t/e 'i1/t to *a e s%(/ an o02e(tion is neve'

)aive#. 8o)eve', 2%'is#i(tion ove' t/e &e'son of t/e #efen#ant *a 0e a( %i'e# 0

(onsent of t/e a((%se# o' 0 )aive' of o02e(tions. ! A*. %'.!#, >C'i*inal +a)>, ? 9,

&.5"9.

T/e a&&ea'an(e of (onfli(t a0ove is 'esolve# 0 t/e follo)in1


39/94

T/e la) ('eates (o%'ts an# #efines t/ei' &o)e's. Consent (annot a%t/o'iLe# a 2%#1e to #o

)/at t/e la) /as not 1iven /i* t/e &o)e' to #o. Sin1leton vs. Co**on)ealt/, !


40/94

#o*ain, e4(e&t in t/e (ases in )/i(/ it is e4&'essl 1'ante# Ala0a*a is t/e'efo'e

entitle# to t/e sove'ei1nt an# 2%'is#i(tion ove' all te''ito' )it/in /e' li*its, s%02e(t to

t/e (o**on la).

I*&li(ations 'elatin1 to Fe#e'al 2%'is#i(tion li*its, an# t/e &ossi0ilit of (o*&'o*isin1

Fe#e'al 2%'is#i(tion on en(laves )it/in t/e seve'al States, )e'e f'a*e# in Senate /ea'in1s

'e&o'te# in t/e >Re&o't of t/e Inte'#e&a't*ental Co**ittee fo' t/e St%# of %'is#i(tion

Ove' Fe#e'al A'eas Git/in t/e States>, Pa't II, >A Te4t of t/e +a) of +e1islative

%'is#i(tion>, %ne 957, &a1e 99, in t/e se(tion title#, >Relation of States to Fe#e'al

En(laves>

One of t/e Nav offi(e's testif in1 at t/e Senate /ea'in1 'aise# a %estion as to t/e effe(t

on t/e Fe#e'al ('i*inal 2%'is#i(tion ove' Fe#e'al a'eas of a 1'ant to t/e States of

(on(%''ent 2%'is#i(tion fo' ta4 *atte's. T/e Atto'ne ;ene'al of t/e Unite# States 'aise#

t/e sa*e %estion in (o**entin1 on t/e 0ill 0 lette' to t/e C/ai'*an of t/e Senate

Finan(e Co**ittee

F'o* t/e stan#&oint of t/e enfo'(e*ent of t/e ('i*inal la), t/e le1islation *a 'es%lt in

an e*0a''ass*ent )/i(/ is &'o0a0l %ninten#e#. C'i*inal 2%'is#i(tion of t/e Fe#e'al

(o%'ts is 'est'i(te# to Fe#e'al 'ese'vations ove' )/i(/ t/e Fe#e'al ;ove'n*ent /as

e4(l%sive 2%'is#i(tion, as )ell as to fo'ts, *a1aLines, a'senals, #o( a'#s, o' ot/e'

nee#f%l 0%il#in1s U.S.C., title ", &a'. # Jno) " USC ? 7 :]. A %estion )o%l# a'ise

as to )/et/e', 0 &e'*ittin1 t/e lev of sales an# &e'sonal-&'o&e't ta4es on Fe#e'al

'ese'vations, t/e Fe#e'al ;ove'n*ent /as (e#e# 0a( to t/e States its e4(l%sive

2%'is#i(tion ove' Fe#e'al 'ese'vations an# /as 'etaine# onl (on(%''ent 2%'is#i(tion ove'

s%(/ a'eas. T/e 'es%lt *a 0e t/e loss of Fe#e'al ('i*inal 2%'is#i(tion ove' n%*e'o%s

'ese'vations, )o%l# 0e #e&lo'a0le.


41/94

D%e to (on(e'ns of t/e Atto'ne ;ene'al an# ot/e's, in )/i(/ li*its of Fe#e'al

2%'is#i(tion )it/in t/e seve'al States )as (lea'l 0ein1 t/at &'es('i0e# at )/at is no) "

USC ? 7 : )as a'ti(%late#, a s&e(ial &'ovision 'ese'vin1 Fe#e'al 2%'is#i(tion )as a##e#

to le1islation 1'antin1 a%t/o'it of States to lev ta4es in Fe#e'al a'eas lo(ate# )it/in

t/ei' 'es&e(tive 0o'#e's.

T/e seve'al States, 0 vi't%e of t/e T'eat of Pea(e, )e'e 'e(o1niLe# as sove'ei1n

&oliti(al 0o#ies )it/in t/ei' 'es&e(tive 1eo1'a&/i(al 0o%n#s. @ )a of t/e Constit%tion

of t/e Unite# States, t/e Peo&le of t/e J%]nite# States of A*e'i(a #ele1ate# (e'tain

en%*e'ate# &o)e's to t/e Unite# States, 0 )a of le1islative a%t/o'it veste# in

Con1'ess, e4(l%sive of e4e(%tive an# 2%#i(ial 0'an(/es of 1ove'n*ent. A*on1 t/ose

&o)e's )as a%t/o'it fo' Con1'ess to a( %i'e lan# fo' t/e Unite# States fo' s&e(ifi( &%'&oses an# 0 &'es('i0e# *eans A'ti(le I ? ". 7, Constit%tion of t/e Unite# States:,

an# to *a e all nee#f%l '%les an# 'e1%lations ne(essa' fo' a#*inist'ation of lan#s so

a( %i'e# A'ti(le IB ? .!, Constit%tion of t/e Unite# States:. A%t/o'it 'elatin1 to t/e

te''ito'ies of t/e Unite# States s%02e(t to Con1'ess3 A'ti(le IB ? .! le1islative 2%'is#i(tion

#iffe's f'o* A'ti(le I en%*e'ate# &o)e's a&&li(a0le to t/e Union of seve'al States &a't

to t/e Constit%tion an# &eo&le sit%ate# in t/e seve'al States.

T/e'efo'e, t/e Constit%tion of t/e Unite# States, 0ein1 t/e la) of t/e lan#, is a &a'a*o%nt

iss%e fo' an an# all ('i*inal &'ose(%tion 0 Fe#e'al a%t/o'ities It is t/e sole so%'(e of

a%t/o'it fo' t/e Unite# States, an# )/en (/allen1e#, t/ose 'es&onsi0le fo' &'ose(%tin1

alle1e# offenses a1ainst t/e Unite# States *%st #is(lose an# #e*onst'ate t/e 'oot of

(onstit%tional a%t/o'it to esta0lis/ te''ito'ial an# o' s%02e(t-*atte' 2%'is#i(tion. In t/e

a0sen(e of (onstit%tionall en%*e'ate# &o)e's, Fe#e'al offi(ials /ave no a%t/o'it in t/e

Union of seve'al States.

Petitione' alle1es t/at no s%(/ a%t/o'it is in evi#en(e )/e'e t/e instant *atte' is

(on(e'ne#, so t/e 'oot an# fo%n#ation of f%n#a*ental la) ne(essa' fo' Fe#e'al

1ove'n*ent to &'ose(%te t/e instant *atte' is a0sent.


42/94

As #e*onst'ate# in anot/e' se(tion, t/e Unite# States Co#e is not la), it is *e'el

evi#en(e of la), so no la) is in evi#en(e to s%&&o't &'ose(%tion of t/e instant *atte' "

USC ?? 5< 5< a'e *e'el evi#en(e of la), t/e Stat%tes at +a'1e a'e *issin1, )it/

t/e Stat%tes at +a'1e 0ein1 t/e la) ne(essa' to s%&&o't &'ose(%tion:, 0%t t/e Unite#

States Co#e is s%ffi(ient fo' #e*onst'atin1 stat%to' , #ele1ation, an# 'e1%lato' a%t/o'it

ne(essa' fo' an 1iven ;ove'n*ent a1en( , o' (ont'a(t a1en(ies s%(/ as Inte'nal

Reven%e Se'vi(e, to se(%'e le1al stan#in1 to s%stain (a%ses a1ainst &eo&le sit%ate# in t/e

Union of seve'al States &a't to t/e Constit%tion of t/e Unite# States.

T/e (/a'a(te' an# line of a%t/o'it of t/e Inte'nal Reven%e Se'vi(e, )/i(/ o&e'ates %n#e'

#i'e(tion of t/e Co**issione' of Inte'nal Reven%e, De&a't*ent of t/e T'eas%' , P%e'to

Ri(o, an# a&&li(ation of Inte'nal Reven%e Co#e ('i*inal stat%tes, #e*onst'ates /o) t/efo%' essential ele*ents 'elatin1 to stat%to' a%t/o'it , P'esi#ential an# e4e(%tive offi(e'

#ele1ations of a%t/o'it , an# 'e1%lations &'es('i0in1 a&&li(ation of stat%tes, a'e essential

to all ('i*inal &'ose(%tion 0 Fe#e'al a%t/o'ities.

T/e instant *atte' a'ises f'o* ;ove'n*ent initiatives on 0e/alf of t/e >Unite# States of

A*e'i(a> an# t/e Inte'nal Reven%e Se'vi(e, fo' ('i*inal &'ose(%tion of Henne F. Moo'e

an# Colleen Moo'e, )/o live in @a'tlesville, O la/o*a, an# Ga ne Ri(/a'# ;%n)all,

)/o lives in Pon(a Cit , O la/o*a, fo' alle1e# inte'fe'en(e )it/ a#*inist'ation of

inte'nal 'even%e la)s !6 USC ? 7! ! a::. T/e Moo'es an# M'. ;%n)all )e'e in#i(te# in

995 95-CR- !9-C: 0%t afte' &etitione' (o*&ose# a lette' f'a*in1 ('i*inal (o*&laints

a1ainst 8. Dale Coo , Neal @. Hi' &at'i( , Sa* o ne', T'a( Foste', an# ot/e's, an#

sent t/e (o*&laint in (a'e of t/e (o%'t (le' fo' t/e Unite# States Dist'i(t Co%'t, No't/e'n

Dist'i(t of O la/o*a, fo' #elive' to t/e fo'e*an of t/e 1'an# 2%' t/en t/o%1/t to 0e

(onvene# fo' t/e No't/e'n Dist'i(t of O la/o*a, M'. Hi' &at'i( ente'e# a *otion fo' t/e

in#i(t*ent a1ainst t/e Moo'es an# M'. ;%n)all to 0e #is*isse#. 8. Dale Coo , se'vin1

as *a1ist'ate of t/e A'ti(le IB Unite# States Dist'i(t Co%'t fo' t/e No't/e'n Dist'i(t of

O la/o*a, #is*isse# t/e (ase. T/e Moo'es an# M'. ;%n)all )e'e s%0se %entl in#i(te#

on 0asi(all t/e sa*e (/a'1es, )it/ !6 USC ? 7! ! a: on(e a1ain t/e (o'e (/a'1e, in

996 96-CR-


43/94

st le# as a 'ef%sal fo' (a%se )/i(/ )as file# in 'es&onse to t/e 996 s%**ons *aile# to

t/e Moo'es )/en (/a'1es )e'e 'einstate# s/o%l# /ave 0een t'eate# as a *otion to

#is*iss, &e' R%le 5 ( :, Fe#e'al R%les of C'i*inal P'o(e#%'e fo' t/e Unite# States

Dist'i(t Co%'t:.

As is t/e (ase )/e'e t/e instant *atte' is (on(e'ne#, t/e &'ose(%tin1 atto'ne in t/e offi(e

of t/e Unite# States Atto'ne , se'vin1 as a1ent fo' t/e >Unite# States of A*e'i(a> an# t/e

>Inte'nal Reven%e Se'vi(e>, faile# to ve'if (onstit%tional a%t/o'it to esta0lis/ te''ito'ial

o' s%02e(t *atte' 2%'is#i(tion fo' t/e t)o Moo'e-;%n)all in#i(t*ents.

As #e*onst'ate# else)/e'e, t/e >Unite# States of A*e'i(a> is a 1ove'n*ent fo'ei1n to

t/e >Unite# States> an# t/e Union of seve'al States &a't to t/e Constit%tion. T/e >Unite#States of A*e'i(a> is not a%t/o'iLe# as a 1ove'n*ental entit 0 t/e Constit%tion of t/e

Unite# States, o' titles ", 9, ! , !6 o' !" of t/e Unite# States Co#e. @e(a%se t/e

>Unite# States of A*e'i(a> nat%'e an# te''ito'ial a%t/o'it /ave 0een t'eate# e4tensivel

in a se&a'ate se(tion, t/at *atte' )ill not 0e t'eate# /e'e. 8o)eve', it is %sef%l to

#e*onst'ate t/at stan#in1 *%st 0e &'oven in 'e(o'#

Stan#in1 (annot 0e infe''e# a'1%*entativel f'o* ave'*ents in t/e &lea#in1s, 0%t 'at/e'

*%st affi'*ativel a&&ea' in 'e(o'#= it is t/e 0%'#en of t/e &a't )/o see s t/e e4e'(ise of

2%'is#i(tion in /is favo' (lea'l to alle1e fa(ts #e*onst'atin1 t/at /e is a &'o&e' &a't to

invo e 2%#i(ial 'esol%tion of t/e #is&%te= t/e &a'ties *%st alle1e fa(ts essential to s/o)

2%'is#i(tion, an# if t/e fail to *a e t/e ne(essa' alle1ations, t/e /ave not stan#in1.

FG P@Q, In(. vs. Dallas, 9 U.S. ! 5, < S.Ct. 596,


44/94


45/94

Git/ Inte'nal Reven%e Se'vi(e i#entit #is(lose#, t'a( in1 a%t/o'it via : s&e(ial

stat%te 1'antin1 #e&a't*ents of 1ove'n*ent a%t/o'it 0e on# t/e Dist'i(t of Col%*0ia,

!: t/e nee# fo' P'esi#ential E4e(%tive O'#e's to #ele1ate a%t/o'it veste# in t/e

P'esi#ent, : t/e nee# fo' e4e(%tive offi(e' #ele1ations of a%t/o'it , an# : t/e nee# fo'

'e1%lations )/i(/ &'es('i0e a&&li(ation of stat%te a%t/o'it , )ill #e*onst'ate t/at t/e

Inte'nal Reven%e Se'vi(e la( s stan#in1 in t/e Continental Unite# States, an# t/at

&'ose(%tion of t/e Moo'e-;%n)all (ases, &'e#i(ate# on !6 USC ? 7! ! a:, )as &atentl

f'a%# an# a*o%nte# to %s%'&ation of &o)e' an# o&e'ation %n#e' (olo' of la).

A%t/o'it fo' a#*inist'ation of t/e Inte'nal Reven%e Co#e, 'e&'o#%(e# /e'e f'o* Title

!6, is at ? 77< a: !: A: 7"o' /is #ele1ate> i: )/en %se# )it/ 'efe'en(e to t/e Se('eta'

of t/e T'eas%' , *eans an offi(e', e*&lo ee, o' a1en( of t/e T'eas%' De&a't*ent #%l

a%t/o'iLe# 0 t/e Se('eta' of t/e T'eas%' #i'e(tl , o' in#i'e(tl 0 one o' *o'e

'e#ele1ations of a%t/o'it , to &e'fo'* t/e f%n(tion *entione# o' #es('i0e# in t/e (onte4t=

an# ii: )/en %se# )it/ 'efe'en(e to an ot/e' offi(ial of t/e Unite# States, s/all 0e so

(onst'%e#.

!6 USC ? 7"


46/94

E4(e&t )/en s%(/ a%t/o'it is e4&'essl 1iven 0 t/is title to an &e'son ot/e' t/an an

offi(e' o' e*&lo ee of t/e T'eas%' De&a't*ent, t/e Se('eta' s/all &'es('i0e all nee#f%l

'%les an# 'e1%lations fo' t/e enfo'(e*ent of t/is title, in(l%#in1 all '%les an# 'e1%lations

as *a 0e ne(essa' 0 'eason of an alte'ation of la) in 'elation to inte'nal 'even%e.

T/e Inte'nal Reven%e Se'vi(e, )/i(/ is not an a1en( of t/e T'eas%' of t/e Untie#

States, a a T'eas%' De&a't*ent, o' t/e De&a't*ent of t/e T'eas%' , Unite# States, *a

(olle(t S%0title A C ta4es onl as #esi1nate# at ? 77< a: !: @:

@: Pe'fo'*an(e of (e'tain f%n(tions in ;%a* an# A*e'i(an Sa*oa. T/e te'*>#ele1ate,> in 'elation to &e'fo'*an(e of f%n(tions in ;%a* o' A*e'i(an Sa*oa )it/

'es&e(t to t/e ta4es i*&ose# 0 (/a&te's , ! an# ! , also in(l%#es an offi(e' o'

e*&lo ee of an ot/e' #e&a't*ent o' a1en( of t/e Unite# States, o' of an &ossession

t/e'eof, #%l a%t/o'iLe# 0 t/e Se('eta' #i'e(tl , o' in#i'e(tl 0 one o' *o'e

'e#ele1ations of a%t/o'it : to &e'fo'* s%(/ f%n(tions.

Stat%to' a%t/o'it at se(tions 77< a: !: A: an# 7"


47/94

Soli(ito' of t/e T'eas%' , a'e 'es&onsi0le fo' (olle(tin1 #elin %ent ta4es o)e# to t/e

Unite# States

? 55 !. Git//ol#in1 &a = in#ivi#%als in a''ea's

a: t/e &a of an in#ivi#%al in a''ea's to t/e Unite# States s/all 0e )it//el# %ntil /e /as

a((o%nte# fo' an# &ai# into t/e T'eas%' of t/e Unite# States all s%*s fo' )/i(/ /e is

lia0le.

0: G/en &a is )it//el# %n#e' s%0se(tion a: of t/is se(tion, t/e ;ene'al A((o%ntin1

Offi(e, on 'e %est of t/e in#ivi#%al, /is a1ent, o' /is atto'ne , s/all 'e&o't i**e#iatel tot/e Atto'ne ;ene'al t/e 0alan(e #%e= an# t/e Atto'ne ;ene'al, )it/in 6< #a s, s/all

o'#e' s%it to 0e (o**en(e# a1ainst t/e in#ivi#%al.

T/e /isto'i(al note follo)in1 5 USC ? 55 ! #is(loses (a&a(ities

In s%0se(tion 0:, 'efe'en(e to t/e >;ene'al A((o%ntin1 Offi(e> is s%0stit%te# fo'

>a((o%ntin1 offi(e's of t/e T'eas%' > on a%t/o'it of t/e A(t of %ne


48/94

Title III. ;ene'al A((o%ntin1 Offi(e

Se(. < . T/e'e is ('eate# an esta0lis/*ent of t/e ;ove'n*ent to 0e no)n as t/e

;ene'al A((o%ntin1 Offi(e, )/i(/ s/all 0e in#e&en#ent of t/e e4e(%tive #e&a't*ents an#

%n#e' t/e (ont'ol an# #i'e(tion of t/e Co*&t'olle' ;ene'al of t/e Unite# States. T/e

offi(es of Co*&t'olle' of t/e T'eas%' an# Assistant Co*&t'olle' of t/e T'eas%' a'e

a0olis/e#, to ta e effe(t %l , 9! . All ot/e' offi(e's an# e*&lo ees of t/e Co*&t'olle'

of t/e T'eas%' s/all 0e(o*e offi(e's an# e*&lo ees in t/e ;ene'al A((o%ntin1 Offi(e at

t/ei' 1'a#es an# sala'ies on %l , 9! , an# all 0oo s, 'e(o'#s, #o(%*ents, &a&e's,

f%'nit%'e, offi(e e %i&*ent an# ot/e' &'o&e't of t/e offi(e of t/e Co*&t'olle' of t/eT'eas%' s/all 0e(o*e t/e &'o&e't of t/e ;ene'al A((o%ntin1 Offi(e. T/e Co*&t'olle'

;ene'al is a%t/o'iLe# to a#o&t a seal fo' t/e ;ene'al A((o%ntin1 Offi(e.

T/e si1nifi(ant se(tion so fa' as t/e instant *atte' is (on(e'ne# is ? Se(. ! 6. All (lai*s an# #e*an#s )/ateve' 0 t/e ;ove'n*ent of t/e Unite# States o'

a1ainst it, an# all a((o%nts )/ateve' in )/i(/ t/e ;ove'n*ent of t/e Unite# States is

(on(e'ne#, eit/e' as #e0to' o' ('e#ito', s/all 0e settle# an# a#2%ste# in t/e ;ene'al

A((o%ntin1 Offi(e.>


49/94

T/e te'* >all> %se# in Se(. #ele1ate,> in 'elation to &e'fo'*an(e of f%n(tions in ;%a* o' A*e'i(an Sa*oa )it/

'es&e(t to t/e ta4es i*&ose# 0 (/a&te's , ! an# ! , also in(l%#es an offi(e' o'

e*&lo ee of an ot/e' #e&a't*ent o' a1en( of t/e Unite# States, o' of an &ossession

t/e'eof, #%l a%t/o'iLe# 0 t/e Se('eta' #i'e(tl , o' in#i'e(tl 0 one o' *o'e

'e#ele1ations of a%t/o'it : to &e'fo'* s%(/ f%n(tions.

T/e Inte'nal Reven%e Co#e (lea'l s&lits lines of a%t/o'it T/e T'eas%' of t/e Unite#

States, via t/e ;AO, is 'es&onsi0le fo' (olle(tion of S%0title A C ta4es, )/e'e

a&&li(a0le, in t/e Continental Unite# States= IRS, as an a1en( of t/e De&a't*ent of t/e

T'eas%' , P%e'to Ri(o, &'es%*a0l /as #ele1ate# a%t/o'it to (olle(t S%0title A C ta4es

in ;%a* an# A*e'i(an Sa*oa.

Be'ifi(ation t/at >inte'nal 'even%e la)s> a'e (%sto*s la)s so fa' as esta0lis/in1 inte'nal

'even%e #ist'i(ts %n#e' a%t/o'it of t/e P'esi#ent, at !6 USC ? 76! , is ve'ifie# 0


50/94

follo)in1 t/e a%t/o'ities fo' esta0lis/in1 inte'nal 'even%e #ist'i(ts. T/is is #one 0

'efe'en(in1 t/e Pa'allel Ta0le of A%t/o'ities an# R%les, 0e1innin1 on &a1e 7! of t/e

996 In#e4 vol%*e to t/e Co#e of Fe#e'al Re1%lations= t/e Ta0le an# ot/e' fin#in1 ai#s

a'e a%t/o'iLe# at 55 USC ? 5 < an# CFR, Pa't ".5:. It is fo%n# t/at !6 USC ? 7! is

not liste#. T/e'efo'e, &e' USC ? 5

2%'is#i(tion, t/e E4e(%tive O'#e' #oes not /ave to 0e &%0lis/e# as a #o(%*ent of 1ene'al

a&&li(ation t/at affe(ts t/e Union of seve'al States an# &eo&le in#i1eno%s to t/e seve'al

States. T/e'efo'e, it is not liste# in t/e Pa'allel Ta0le of A%t/o'ities an# R%les as /avin1

1ene'al a&&li(ation.


51/94

E.O. NO.

ot/e')ise, t/e seve'al (%sto*s-(olle(tion #ist'i(ts, !: to #is(ontin%e &o'ts of ent' 0a0olis/in1 t/e sa*e an# esta0lis/in1 ot/e's in t/ei' stea#, an# : to (/an1e f'o* ti*e to

ti*e t/e lo(ation of t/e /ea# %a'te's in an (%sto*s-(olle(tion #ist'i(t as t/e nee#s of t/e

se'vi(e *a 'e %i'e.

0: T/e a%t/o'it veste# in t/e P'esi#ent 0 se(tion of t/e Anti-S*%11lin1 A(t of

A%1%st 5, 9 5, (. ", 9 Stat. 5 7 Jse(tion 7< of Title 9], : to fin# an# #e(la'e t/at

at an &la(e )it/in an a'ea on t/e /i1/ seas a#2a(ent to 0%t o%tsi#e (%sto*s )ate's an

vessel o' vessels /ove' o' a'e 0ein1 e&t off t/e (oast of t/e Unite# States an# t/at, 0

vi't%e of t/e &'esen(e of an s%(/ vessel o' vessels at s%(/ &la(e o' )it/in s%(/ a'ea, t/e

%nla)f%l int'o#%(tion o' 'e*oval into o' f'o* t/e Unite# States of an *e'(/an#ise o'

&e'son is 0ein1, o' *a 0e, o((asione#, &'o*ote#, o' t/'eatene#, !: to fin# an# #e(la'e

t/at (e'tain )ate's on t/e /i1/ seas a'e in s%(/ &'o4i*it to s%(/ vessel o' vessels t/at

s%(/ %nla)f%l int'o#%(tion o' 'e*oval of *e'(/an#ise o' &e'sons *a 0e (a''ie# on 0 o'

to o' f'o* s%(/ vessel o' vessels, an# : to fin# an# #e(la'e t/at, )it/in an (%sto*s-

enfo'(e*ent a'ea, t/e (i'(%*stan(es no lon1e' e4ist )/i(/ 1ave 'ise to t/e #e(la'ation of

s%(/ a'ea as a (%sto*s-enfo'(e*ent a'ea.

( : T/e a%t/o'it veste# in t/e P'esi#ent 0 se(tion of t/e A(t of A%1%st !6, 9"5,

P%0li( +a) 9"-"9, 97 Stat. 5 < 6 U.S.C. < : Jse(tion < of Title 6, S/i&&in1] to


52/94

s%s&en# t/e &'ovisions of la) 'e %i'in1 t/e ins&e(tion of fo'ei1n-0%ilt vessels a#*itte# to

A*e'i(an 'e1ist' .

#: T/e a%t/o'it veste# in t/e P'esi#ent 0 se(tion 5 of t/e a(t of Ma !", 9


53/94

Jse(tion 6 of Title 6], so t/at fo'ei1n vessels f'o* a (o%nt' i*&osin1 &a'tial

#is('i*inatin1 tonna1e #%ties %&on A*e'i(an vessels, o' &a'tial #is('i*inatin1 i*&o't

#%ties %&on A*e'i(an *e'(/an#ise, *a en2o in o%' &o'ts t/e i#enti(al &'ivile1es )/i(/

t/e sa*e (lass of A*e'i(an vessels an# *e'(/an#ise *a en2o in s%(/ (o%nt'

P'ovi#e#, t/at &'io' to t/e iss%an(e of an o'#e' of t/e Se('eta' of t/e T'eas%'

s%s&en#in1 an# #is(ontin%in1 )/oll o' in &a't: #is('i*inatin1 tonna1e #%ties, i*&osts,

an# i*&o't #%ties )it/in t/e Unite# States, t/e De&a't*ent of State s/all o0tain an#

f%'nis/ to t/e Se('eta' of t/e T'eas%' an &'oof 'e %i'e# 0 t/e sai# se(tion !!", as

a*en#e#, as t/e 0asis fo' t/at o'#e'.

1: T/e a%t/o'it veste# in t/e P'esi#ent 0 se(tion 65< of t/e Inte'nal Reven%e Co#e

Jno) (ove'e# 0 se(tion 76! of Title !6], to esta0lis/ (onvenient (olle(tion #ist'i(ts fo' t/e &%'&ose of assessin1, lev in1, an# (olle(tin1 t/e ta4es &'ovi#e# 0 t/e inte'nal

'even%e la):, an# f'o* ti*e to ti*e to alte' s%(/ #ist'i(ts.

/: T/e a%t/o'it )/i(/ is no) veste# in t/e P'esi#ent 0 se(tion !56 0: of t/e Inte'nal

Reven%e Co#e Jse(tion !56 0: of Title !6 I.R.C. 9 9:], an# )/i(/ on an# afte'

an%a' , 955, )ill 0e veste# in t/e P'esi#ent 0 se(tion 7 5 0: of t/e Inte'nal

Reven%e Co#e of 95 Jse(tion 7 5 0: of t/e Inte'nal Reven%e Co#e of 95 Jse(tion

7 5 0: of Title !6 I.R.C. 95 :], to iss%e, in a((o'#an(e )it/ &'ovisions of t/e sai#

se(tion !56 0: o' 7 5 0:, as t/e (ase *a 0e, o'#e's &'ovi#in1 fo' t/e 'e1ist'ation an#

t/e i*&osition of a s&e(ial ta4 %&on all &e'sons in t/e Canal Kone )/o &'o#%(e, i*&o't,

(o*&o%n#, #eal in, #is&ense, sell, #ist'i0%te, o' 1ive a)a na'(oti( #'%1s.

i: T/e a%t/o'it veste# in t/e P'esi#ent 0 se(tion 5 ! " of t/e Revise# Stat%tes, as

a*en#e# 9 U.S.C. 5


54/94

/ave /e'etofo'e, %n#e' t/e 'es&e(tive &'ovisions of la) (ite#, 'e %i'e# t/e a&&'oval of t/e

P'esi#ent in (onne(tion )it/ t/ei' &e'fo'*an(e 0 t/e Se('eta' of t/e T'eas%'

a: T/e a%t/o'it veste# in t/e Se('eta' of t/e T'eas%' 0 se(tion 6 of t/e a(t of %l ",

9 7, (. , 5< Stat. "< Jse(tion 7!" of Title


55/94

JT'eas%' De&t. O'#e' 5


56/94

A(tin1 Se('eta' of t/e T'eas%'

JF.R. Do(. 56-6!"


57/94

t/e'e a'e no 1ene'al a&&li(ation 'e1%lations &e'tainin1 to S%0title A C ta4in1 a%t/o'it

)/i(/ e4ten# to t/e Union of seve'al States fo' &'ose(%tion of ('i*inal offenses liste# in

t/e Inte'nal Reven%e Co#e, !6 USC ? 7! ! a: in &a'ti(%la'.

T/e'efo'e, t/e >Unite# States of A*e'i(a> (ase a1ainst t/e Moo'es an# M'. ;%n)all is

#efa%lte# as f'a%# an# %s%'&ation of &o)e', )it/ t/e %lt'a vi'%s of #efa%ltin1 t/e instant

*atte'.

It )ill 0e note# t/at t/e'e a'e no 'e1%lations fo' Title " of t/e Unite# States Co#e, t/e

Fe#e'al Co#e of C'i*inal P'o(e#%'e. T/e'efo'e, not/in1 in Title ", in(l%#in1 ?? 5<

5< , is a&&li(a0le to t/e Union of seve'al States &a't to t/e Constit%tion.

T/ese alle1ations *a also 0e ve'ifie# 0 )a of t/e De&a't*ent of %sti(e, )/i(/ is an

e4e(%tive a1en( at t/e Seat of ;ove'n*ent !" USC ? 5< :, an# t/e offi(e of t/e Unite#

States Atto'ne , fo'*e'l no)n as a #ist'i(t atto'ne !" USC ? 5 :.

T/e Unite# States Atto'ne /as a%t/o'it 0 'e1%lation #ele1ation: fo' !" USC ? 5 7,

&'es('i0in1 #%ties, onl %n#e' !" CFR, Pa't 77 see Pa'allel Ta0le of A%t/o'ities an#

R%les, &. 76":. T/e 'e1%lation a%t/o'iLes t/e Unite# States Atto'ne to (o**%ni(ate )it/

'e&'esente# &e'sons 2%'is#i( &e'sons:, not/in1 *o'e. It #oes not e4ten# s&e(ial *a'iti*e

an# te''ito'ial 2%'is#i(tion in t/e Union of seve'al States &a't to t/e Constit%tion of t/e

Unite# States 0e on# t/at &'es('i0e# at " USC ? 7 : Fe#e'al en(laves lo(ate# in t/e

seve'al States.

Mo'e (on#e*nin1 )/e'e t/e Moo'e-;%n)all (ase an# t/e instant *atte' a'e (on(e'ne#,

U.S. Atto'ne a%t/o'it 'elative to Fe#e'al ta4es &e'tains to inte'nal 'even%e la)s, a a

(%sto*s la)s, not no'*al an# So(ial Se(%'it ta4es see !" USC ? 5 7 ::. T/is is

ve'ifie# 0 t/e s&e(ifi( 1'ant of a%t/o'it at 5 USC ? 55 ! ;AO *%st (e'tif (a%ses to

t/e Atto'ne ;ene'al in /is (a&a(it as Soli(ito' of t/e T'eas%' , an# t/e Atto'ne

;ene'al *%st initiate liti1ation. T/e s&e(ifi( 1'ant is e4(l%sive of a%t/o'it of t/e U.S.

Atto'ne at !" USC ? 5 7 :.


58/94

T/is is si1nifi(ant as t/e Ta4 Division of t/e De&a't*ent of %sti(e !" CFR, Pa't s&e(ial la)> 'e %i'e# 0 ? 7! fo' t/e De&a't*ent of %sti(e an# t/e

U.S. Atto'ne to &'ose(%te ('i*inal *atte's is " USC ? 7, )it/ s%0se(tion 7 :

#ete'*inin1 1eo1'a&/i(al li*itations )it/in t/e Union of seve'al States &a't to t/e

Constit%tion. T/is is t/e te''ito'ial li*it fo' t/e Unite# States, not t/e >Unite# States of

A*e'i(a>, to e4e'(ise 2%'is#i(tion of t/e Unite# State. " USC ? 7 : &'es('i0es t/e

follo)in1 Fe#e'al 2%'is#i(tion )it/in t/e Union of seve'al States


59/94

: An lan#s 'ese've# o' a( %i'e# fo' t/e %se of t/e Unite# States, an# %n#e' t/e

e4(l%sive o' (on(%''ent 2%'is#i(tion t/e'eof, o' an &la(e &%'(/ase# o' ot/e')ise a( %i'e#

0 t/e Unite# States 0 (onsent of t/e le1islat%'e of t/e State in )/i(/ t/e sa*e s/all 0e,

fo' t/e e'e(tion of a fo't, *a1aLine, a'senal, #o( a'#, o' ot/e' nee#f%l 0%il#in1.

Te''ito' s&e(ifie# in " USC ? 7 : in(l%#es lan#s Con1'ess is a%t/o'iLe# to &%'(/ase

%n#e' a%t/o'it of A'ti(le I ? ". 7 of t/e Constit%tion, an# t)o (ate1o'ies of lan# 'ese've#

fo' t/e Unite# States in States a#*itte# to t/e Union afte' t/e Civil Ga' lan#s set asi#e

0 t'eat as Native A*e'i(an In#ian 'ese'vations an# t'%st lan#s, an# %na&&'o&'iate#

&%0li( lan#s, *ost of )/i(/ /ave 0een #esi1nate# as national &a' s an# fo'ests seeConstit%tion fo' t/e State of O la/o*a, A't. I ? = O la/o*a (ession la)s, Title "Unite# States of

A*e'i(a>, o&e'ates as a le1islative 0o# of 1ove'n*ent fo'ei1n to t/e Unite# States. T/is

(a&a(it is even one ste& 'e*ove# f'o* Con1'ess3 a%t/o'it as t/e Con1'ess of t/e Unite#

States )it/ &lena' &o)e' ove' te''ito' 0elon1in1 to t/e Unite# States a%t/o'iLe# at

A'ti(le IB ? .! of t/e Constit%tion.

T/at (onsi#e'ation asi#e, t/e USC ? 7! *an#ate fo' Unite# States Atto'ne e4e'(ise of

#%ties !" USC ? 5 7: 'elatin1 to offenses a1ainst t/e Unite# States !" USC ? 5 7 ::,

is #e&en#ent on " USC ? 7 fo' 2%'is#i(tional #efinition, )it/ ? 7 : a&&li(a0le )it/ t/e


60/94

Union of seve'al States. T/e De&a't*ent of %sti(e is s%02e(t to t/e sa*e te''ito'ial

li*itations.

@ot/ t/e Unite# States Atto'ne an# t/e De&a't*ent of %sti(e /ave 1ene'al 2%'is#i(tion

in Unite# States te''ito'ies an# ins%la' &ossessions, an# in Unite# States *a'iti*e

2%'is#i(tion. 8o)eve', 2%'is#i(tion fo' t/ese offi(es )it/in t/e Union of seve'al States,

&e' " USC ? 7 :, follo)s #ele1ation o'#e's an# 'eo'1aniLation &lans a&&li(a0le to t/e

De&a't*ent of Defense an# t/e De&a't*ent of t/e Inte'io', )it/ t/e @%'ea% of In#ian

Affai's an# t/e @%'ea% of +an# Mana1e*ent 0ein1 t/e t)o &'evalent a1en(ies in t/e

De&a't*ent of t/e Inte'io'.

G/e'e E4e(%tive O'#e's, e4e(%tive offi(e' #ele1ations, an# 'e1%lations a'e not &%0lis/e#in t/e Fe#e'al Re1iste' in (o*&lian(e )it/ 'e %i'e*ents of USC ? 5#ist'i(t (o%'t of t/e Unite#

States>, e4(l%sivel of t/e A'ti(le IB Unite# States Dist'i(t Co%'t. Onl t/ose Unite#

States Dist'i(t Co%'ts s&e(ifi(all a%t/o'iLe# 0 stat%te at " USC ? ! , an# 0 R%le

5 a:, Fe#e'al R%les of C'i*inal P'o(e#%'e fo' Unite# States Dist'i(t Co%'ts, /ave

a%t/o'it to &'ose(%te felon offenses Unite# States Dist'i(t Co%'ts fo' ;%a*, t/e

No't/e'n Ma'iana Islan#s, an# t/e Bi'1in Islan#s.

Unite# States Dist'i(t Co%'ts lo(ate# in t/e Union of seve'al States a'e li*ite# to

&'ose(%tion of &ett an# *is#e*eano' offenses %n#e' a%t/o'it of " USC ? < , in t/e


61/94

f'a*e)o' of 'e1%lations &'o*%l1ate# 0 t/e Defense +o1isti(s A1en( ! CFR, Pa't

!9


62/94

!: D'%1 Enfo'(e*ent A#*inist'ation=

: C'i*inal Division of t/e De&a't*ent of %sti(e=

: Inte'nal Reven%e Se'vi(e=

5: C%sto*s Se'vi(e=

6: I**i1'ation an# Nat%'aliLation Se'vi(e3

7: U.S. Ma's/als Se'vi(e=

": National Pa' Se'vi(e=

9: U.S. Postal Se'vi(e=


63/94

A*e'i(an Sa*oa, t/e T'%st Te''ito' of t/e Pa(ifi( Islan#s, o' t/e Co**on)ealt/ of t/e

No't/e'n Ma'iana Islan#s.

T/e list of Fe#e'al te''ito'ies an# Unite# Nations t'%st te''ito'ies an# Unite# Nations t'%st

te''ito'ies at !" CFR 65.7< #: is a 'easona0l (o*&lete listin1 of te''ito'ies s%02e(t to

Con1'ess3 A'ti(le IB ? .! le1islative 2%'is#i(tion. T/ese a'e t/e >Fe#e'al> states t/at a'e

*e*0e's of t/e &oliti(al allian(e o' (oalition no)n as t/e >Unite# States of A*e'i(a>,

an# it is /e'e onl , e4(l%sive of t/e Union of seve'al States &a't to t/e Constit%tion, t/at

t/e Fe#e'al la) enfo'(e*ent (o**%nit /as stan#in1 an# 2%'is#i(tion.

Un#e' A'ti(le I ? " an# A'ti(le IB of t/e Constit%tion, Con1'ess is veste# )it/ a%t/o'itto (all o%t t/e *ilitia if ne(essa' to enfo'(e la)s of t/e Union, in t/e event of (ivil

%&'isin1, o' in t/e event of invasion. Eit/e' t/e le1islat%'e o' (/ief e4e(%tive of a State

*%st e4ten# a 'e %est fo' assistan(e in t/e event of 'e0ellion o' (ivil %&'isin1. In ot/e'

)o'#s, t/e'e is no (onstit%tional 1'ant of a%t/o'it fo' Unite# States (ivil enfo'(e*ent

a1en(ies to e4e'(ise *%ni(i&al an# &oli(e &o)e's in t/e Union of seve'al States &a't to

t/e Constit%tion. Conse %entl , t/e Tent/ A*en#*ent 0an a1ainst e4e'(ise of Fe#e'al

a%t/o'it )/i(/ is not s&e(ifi(all #ele1ate# (onstit%tes an a0sol%te 0a''ie' to t/e (ivilian

la) enfo'(e*ent a1en(ies e4e'(isin1 &o)e's in t/e Union of seve'al States.

T/e Fe#e'al la) enfo'(e*ent (o**%nit is also a *i4e# 0a1 of enfo'(e*ent a1en(ies

t/at /as no ('i*inal enfo'(e*ent a%t/o'it )/ateve' in t/e Union of seve'al States At

least t)o of t/e a1en(ies, t/e @%'ea% of Al(o/ol, To0a((o an# Fi'ea'*s an# t/e Inte'nal

Reven%e Se'vi(e, 0ot/ s%((esso's of t/e @%'ea% of Inte'nal Reven%e, a'e a1en(ies of t/e

De&a't*ent of t/e T'eas%' , P%e'to Ri(o. T/e @%'ea% of Inte'nal Reven%e )as not

('eate# 0 Con1'ess, 0%t t/e &'ovisional 1ove'n*ent of P%e'to Ri(o, in a&&'o4i*atel

9< , t/e &'ovisional 1ove'n*ent 0ein1 %n#e' s%&e'vision of t/e Unite# States *ilita'

%ntil a&&'o4i*atel 9


64/94

T/e Fe#e'al @%'ea% of Investi1ation is an a#*inist'ativel ('eate# a1en( in t/e

De&a't*ent of %sti(e see /isto'i(al note fo' !" USC ? 5 :, )/i(/ /as stat%to'

a%t/o'it to investi1ate Title " ('i*es onl 0 Unite# States 1ove'n*ent offi(e's an#

e*&lo ees !" USC ? 5 5:. T/e F@I )as not ('eate# %n#e' Con1'ess3 le1islative

a%t/o'it an# /as no ot/e' le1iti*ate (/a'te' )/i(/ e4ten#s a1en( &oli(e &o)e's to t/e

Union of seve'al States &a't to t/e Constit%tion.

T/ese a1en(ies #o not o&e'ate %n#e' Con1'ess3 #ele1ate# a%t/o'it , an# t/e a'e not

('eat%'es of t/e Constit%tion of t/e Unite# States. T/e'efo'e, t/e #o not /ave *%ni(i&al

an# &oli(e &o)e's )it/in t/e Union of seve'al States &a't to t/e Constit%tion of t/e

Unite# States. G/ateve' le1iti*ate a%t/o'it t/e /ave *%st t/e'efo'e 0e li*ite# to

te''ito'ies of t/e Unite# States, as #efine# 0 t/e te'* >state> at !" CFR, Pa't 65.7<

Documents

Dan Meador, Memorandum of Law