Shortly before the holidays, I received a call from New York Times reporter Michael Schmidt asking me to meet with him about some reporting he had done. Schmidt did not describe the subject until we met up, when he went over with me a portion of the congressional interview of former FBI General Counsel James Baker, who was then my Brookings colleague and remains my
Lawfare colleague. When he shared what Baker had said, and when I thought about it over the next few days in conjunction with some other documents and statements, a question gelled in my mind.
Observers of the Russia investigation have generally understood Special Counsel Robert Mueller’s work as focusing on at least two separate tracks: collusion between the Russian government and the Trump campaign, on the one hand, and potential obstruction of justice by the president, on the other. But what if the obstruction
was the collusion—or at least a part of it?
Late last year, I wrote a memo for Schmidt outlining how I read all of this material, a memo from which this post is adapted.
Today, the
New York Times is reporting that in the days following the firing of James Comey, the FBI opened an investigation of President Trump. It wasn’t simply the obstruction investigation that many of us have assumed. It was also a counterintelligence investigation predicated on the notion that the president’s own actions might constitute a national security threat: ...
The following is an adaption of the memo I sent Schmidt. I have updated it in important respects in light of the reporting in the Times’s actual story. The analysis remains, however, tentative; I want to be careful not to overread the threads of evidence I am pulling together here.
...
What is the significance of all of this? I have two big takeaways.
First, if this analysis is correct, it mostly—though not entirely—answers the question of the legal basis of the obstruction investigation. The
president’s lawyers, Barr in his memo, and
any number of conservative commentators have all argued that Mueller cannot reasonably be investigating obstruction offenses based on the president’s actions within his Article II powers in firing Comey; such actions, they contend, cannot possibly violate the obstruction laws. While this position is disputed, a great many other commentators, including me, have scratched their heads about Mueller’s obstruction theory.
But if the predicate for the investigation was rooted in substantial part in counterintelligence authorities—that is, if the theory was not just that the president may have violated the criminal law but also that he acted in a fashion that may constitute a threat to national security—that particular legal puzzle goes away. After all, the FBI doesn’t need a possible criminal violation to open a national security investigation.
The problem does not entirely go away, because as the Times reports, the probe was partly predicated as a criminal matter as well. So the question of Mueller’s criminal theory is still there. But the weight on it is dramatically less.
This possibility, of course, raises a
different legal puzzle, which is whether and under what circumstances the president can be a national security investigative subject of his own FBI given that it is ultimately he who defines national security threats for the executive branch. But that’s a question for another day.
Second, if it is correct that the FBI’s principle interest in obstruction was not as a discrete criminal fact pattern but as a national security threat, this significantly blurs the distinction between the obstruction and collusion aspects of the investigation. In this construction, obstruction was not a problem distinct from collusion, as has been generally imagined. Rather, in this construction, obstruction
was the collusion, or least part of it. The obstruction of justice statutes become, in this understanding, merely one set of statutes investigators might think about using to deal with a national security risk—specifically, the risk of a person on the U.S. side coordinating with or supporting Russian activity by shutting down the investigation.
It was about Russia. It was always about Russia. Full stop.