
[….] “Several lawmakers asserted Sunday that the president should have sought congressional approval for the missile strike, launched in response to reports of deadly poison gas strikes on a rebel-held suburb of Damascus. Congress, however, repeatedly has ducked votes on Syria policy since the fighting began there in March 2011.
But even some people who have expressed vehement public disagreement with Trump’s previous actions voiced support for the strike, which was carried out in coordination with Britain and France. Former CIA Director John Brennan was among those who praised the action as ‘proportional and necessary to send a signal.’ Speaking on NBC’s ‘Meet the Press,’ Brennan, who is now an analyst for that network, said that ‘the administration's actions against Syria were appropriate — and I tend to be a critic of this administration.’” [….]
[….] “At least 1,600 civilians were reported killed in weeks of punishing airstrikes before the main rebel faction in Duma agreed to surrender its last foothold in eastern Ghouta to the government, following the alleged chemical weapons attack. Many of those who survived find the red line drawn by Western governments over a single chemical weapons strike incomprehensible. ‘So it’s OK that I die from barrel bombs, bullets, rocket launchers, hunger, lack of medicine, but it’s not OK if I die from chemical weapons?’ said Bayan Rehan, another activist who recently left the region. ‘What is this idiocy they are offering the Syrian people?’”
First, a few thoughts on President Trump’s exercise of presidential power to set the tone for the rest of the post:
The weak version of the “unitary executive” (constitutional) doctrine of the presidency is disturbing enough from the point of view of democratic theory and praxis, but its dangers become patently obvious in the endeavor to elaborate a “strong” version, one which builds upon the legal scholarship of Steven G. Calabresi and Christopher S. Yoo and comes to fruition in the work of John Yoo (notorious author of the ‘Torture Memos’ and today Emanuel S. Heller Professor of Law at the University of California, Berkeley). Yet we are now witnessing the volatile logical extension and dangerous political conclusion of strong unitary executive theory in the manifestation of the “unilateral” (so to speak) doctrine of executive power. Trump’s presidency, punch drunk on this doctrine, has added injury to insult, exemplifying the unilateral model, albeit in a pathologically hysterical and narcissistic form.
Please see:
- Alford, Ryan. Permanent State of Emergency: Unchecked Executive Power and the Demise of the Rule of Law (McGill-Queens University Press, 2017).
- Calabresi, Steven G. and Christopher S. Yoo. The Unitary Executive: Presidential Power from Washington to Bush (Yale University Press, 2008).
- Krent, Harold J. “From a Unitary to a Unilateral Presidency,” Boston University Law Review, Vol. 88, No. 2 (2008): 523-559.
- Wills, Garry. Bomb Power: The Modern Presidency and the National Security State (Penguin Press, 2010).
- Yoo, John. “Unitary, Executive, or Both?” University of Chicago Law Review, Vol. 76, 2009.
In the following I will rely on the expertise and analyses of legal scholars and philosophers to explain why and how the U.S. bombing strikes (in coordination with the U.K. and France) in Syria were blatant violations of both U.S (municipal) constitutional law and international law. Perhaps the most disturbing fact related to acknowledging this manifest illegality is the almost absolute refusal of major mass media sources to address this topic in any significant sense, indeed, TV hosts, commentators and pundits more often than not stood on the sidelines as virtual cheerleaders of this country’s latest bombing campaign. What is worse, the general public by most accounts has lent its explicit and tacit consent, perhaps finding some sort of vicarious satisfaction in bombing a country led by the long-time despot and ruthless war criminal, Bashar Hafez al-Assad. At Opinio Juris, Keven Jon Heller speaks for me as well when he states, at the end of his post:
“I loathe Assad, a murderous dictator who deserves to spend the rest of his life in prison for his innumerable crimes. I understand the desire to something — anything — to prevent further violence against innocent Syrian civilians. I don’t believe, as I said in my response to [Harold] Koh, that attacking Syria would contribute to that goal — particularly if it was limited to aerial warfare, as it almost certainly would be. But even if it would, the prohibition of the use of force still matters. We should not cloak acts that categorically violate that prohibition in a patina of legal respectability.”
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“The Unconstitutional Strike on Syria,” by Garrett Epps in The Atlantic, April 14, 2018
The Constitution still requires congressional authorization for an attack on another country. The requirement is not a formality.
[….] “Trump did not have the authority to order any kind of strike on Syria. Congressional authorization was needed before any use of force against Syria; Friday’s attack was unconstitutional. And his pledge that the United States ‘is prepared to sustain this response until the Syrian regime stops its use of prohibited chemical agents’—that is, a unilateral declaration of long-range war aims and a pledge of long-term military involvement—is about as gross a violation of the Constitution as I can think of.
The fact that Trump ordered a one-off missile strike a year ago doesn’t change that calculation. The fact that almost no one in Congress spoke up when he did doesn’t change that calculation. The fact that foreign policy commentators fawned on that decision doesn’t change that calculation. The Constitution still requires congressional authorization for an attack on another country. The requirement is not a formality. It is in the Constitution for a reason. Congress’s failure to assert its prerogatives is—even though it may have become a craven habit—a matter of life or death for a self-governing republic.
The reason, as I have written before, is that no president—not Barack Obama and not Donald Trump—has the authority under the Constitution to ‘declare war.’ Of all the toxic constitutional developments of the Obama years, by far the most disheartening is this: Obama’s unlawful intervention in Libya garnered strong criticism; but the harshest criticism came when Obama chose to obey the Constitution by asking for congressional authorization to strike Syria. For breaking the mold of presidential unilateralism, he garnered—and continues to garner—the undisguised scorn not only of his political enemies but even of many of his friends. That hostile verdict on his presidential leadership is the clearest sign that we have entered what future historians may describe as a post-constitutional era.
Why, of all the many military misadventures into which Uncle Sam has blundered since 2001, is Syria different? The reason is that, under the Constitution and the War Powers Act, the president has no authority to send military forces into hostilities except after congressional authorization or in response to a direct attack on the U.S. or its forces. The president has no inherent power over war; it is given to Congress. In 2001, George W. Bush grumbled about his supposed executive authority, but went to Congress for approval of a ‘war’ against ‘those nations, organizations, or persons he determines planned, authorized, committed, or aided the terrorist attacks that occurred on September 11, 2001;’ in 2002, he did the same again, and got approval to ‘defend the national security of the United States against the continuing threat posed by Iraq; and … enforce all relevant United Nations Security Council resolutions regarding Iraq.’ Those resolutions remain, at least technically, in force, and have been used by the Obama and Trump administrations as justification for U.S. efforts on behalf of forces—including some of the Syrian rebels—fighting against the Islamic State, supposedly a ‘successor’ to Al Qaeda.
Republicans in the congressional leadership insist that the 2001 authorization is all that’s needed. ‘The existing AUMF [The Authorization for Use of Military Force (AUMF), Pub. L. 107-40, codified at 115 Stat. 224 and passed as S.J. Res. 23 by the United States Congress on September 14, 2001, authorizes the use of United States Armed Forces against those responsible for the attacks on September 11, 2001 and any ‘associated forces.’ The authorization granted the President the authority to use all ‘necessary and appropriate force’ against those whom he determined ‘planned, authorized, committed or aided’ the September 11th attacks, or who harbored said persons or groups.”] gives him the authority he needs to do what he may or may not do,’ House Speaker Paul Ryan said Thursday. That plough really won’t scour, no matter how you torture the text. The nation of Syria is not the nation of Iraq; and the Syrian government is not Al Qaeda, nor an affiliate, nor a successor, nor anything except a sovereign nation against which the president has decided to go to war.” [….]
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Just prior to the coordinated “retaliatory” bombing strikes in Syria by the U.S., the UK and France, Anthony Gaughan at The Faculty Lounge wrote, “If history is any guide, the general public will support Trump’s decision to attack Assad’s regime. 67% of Americans approved last year’s missile strikes on Syria, which reflects a pattern of public support for American bombing campaigns. For example, the Obama Administration’s air strikes in Libya in 2011 received the support of 68% of Americans according to a March 2011 CBS News Poll. Surveys also consistently find high levels of public support for US drone strikes in Pakistan, Afghanistan, Yemen, Somalia, and Iraq. The relatively low-risk posed to American military personnel by air strikes combined with the ‘feel-good’ nature of bombing foreign adversaries have made drone strikes against terrorist cells, and ‘humanitarian’ bombing campaigns against dictators, quite popular with the public.”
Gaughan proceeds to point out that the bombing strikes in Syria continue a U.S. penchant for ignoring and dismissing international law on the use of force (or jus ad bellum more generally):
“Yet, aside from the domestic enthusiasm for bombing raids, it is striking how little concern American presidents give to international law when deciding whether to bomb a country. It’s not just the Trump Administration. For the last 25 years, Democratic and Republican presidents alike have repeatedly bombed countries (and, in the case of Iraq in 2003, invaded and occupied a country for nearly a decade) without a basis in international law for doing so. In each case the public displayed complete indifference to the lack of legal authority for the military operations.
Consequently, presidents do not even bother any more to make serious legal arguments for dropping bombs on other countries.”
Nonetheless, there is an international law-like justification proffered by the U.S., one that has gained some traction in international law and politics, namely, the moral, legal, and political principle of humanitarian intervention (the various strands of this principle have never been adequately distinguished or made coherent as a triune principle), a principle that is not enshrined in international law and has been routinely invoked in inconsistent and incoherent fashion by a host of states, including most prominently the U.S. Dissatisfaction among legal scholars, practitioners, activists on the ground, and representatives of the less powerful states with the crass exploitation and manipulation of this concept (intended to have normative legal effect), one with patent rhetorical appeal (who could be against anything described as ‘humanitarian’?), has since led to articulation of a possible alternative international norm, Responsibility to Protect (R2P or RtoP). Responsibility to Protect is “based upon the underlying premise that sovereignty entails a responsibility to protect all populations from mass atrocity crimes and [gross or egregious if not systematic] human rights violations,” such as ethnic cleansing, genocide, war crimes, and crimes against humanity, all of which are violations of jus cogens norms, minimally defined as “non-consensual, universal norms concerning what is required of states in international law:”
“In international law, some crimes so clearly harm the international community that they must be proscribed by all societies [hence the need for ‘universal jurisdiction’]. Such crimes are often said to violate jus cogens norms, norms that can be clearly known and understood by all as universally binding. One of the main justifications for prosecuting war crimes, crimes against humanity or genocide is that they violate these jus cogens norms.”
Responsibility to Protect reflects a “global political commitment” insofar as it “was endorsed by all member states of the United Nations at the 2005 World Summit.” The principle has profound conceptual and legal implications for our understanding of sovereignty, armed conflict, human rights, and peace and security in the international system of nation-states.
Gaughan rightly notes that “humanitarian justification” has “become America’s all-purpose rationale for using force against anyone at any time. The pending bombing campaign against Syria is the latest case in point. On Monday night President Trump emphasized the humanitarian necessity of bombing Syria:
‘We can’t let atrocities like we all witnessed, and you can see that and it’s horrible, we can’t let that happen in our world. Especially when we’re able to, because of the power of the United States, because of the power of our country, we’re able to stop it.’
President Trump’s words echo the humanitarian rhetoric of his immediate predecessors. In Bosnia in 1995, Kosovo in 1999, Iraq in 2003, and Libya in 2011 the Clinton, Bush, and Obama administrations, respectively, claimed that preventing humanitarian disasters justified the use of American military force.
For example, in 1999 President Clinton declared that NATO’s campaign against Serbia was necessary to stop ‘the unspeakable brutality in Kosovo’ and ‘restore the Kosovars to their homes with security and self-government.’ In 2003 President Bush declared that by invading Iraq the United States would ‘tear down the apparatus of terror’ and help Iraqis ‘build a new Iraq that is prosperous and free.’ In 2011 President Obama defended his bombing campaign in Libya as necessary to prevent a humanitarian disaster. He declared, ’Some nations may be able to turn a blind eye to atrocities in other countries. The United States of America is different.’
Presidents use the humanitarian rationale for a reason: it resonates with both the general public and Congress. For example, a 2017 article in the Journal of Conflict Resolution by Prof. Sarah Kreps and Sarah Maxey found that ‘the public is more likely to support the use of force for humanitarian purposes than for defending another country — by margins of up to 27 percent.’ Fascinatingly, they found that using a humanitarian justification, rather than a national security argument, is particularly effective for building support among Democrats. As they explained in an excellent Washington Post op-ed last weekend, ‘if Trump decides to further involve the U.S. military in Syria, emphasizing humanitarian needs can build a sense of moral obligation and support from both Democrats and Republicans. Focusing narrowly on U.S. national interests won’t do the trick.’
But there is one important catch when presidents make humanitarian-based arguments for military intervention: humanitarian justifications do not constitute a valid legal basis for military operations.
Under international law, there are only two internationally agreed-upon scenarios for lawfully using military force against another country. The first is when a nation is engaged in individual or collective self-defense. The second is when an offensive use of force is authorized by a United Nations Security Council Resolution. Neither scenario applies to the proposed attack on Assad’s regime.
First of all, no Security Council Resolution authorizes a U.S. bombing raid in Syria. Russia, a close ally of Syria and a permanent member of the UN Security Council, supports Assad’s regime and adamantly opposes any attack, even one to enforce the Chemical Weapons Convention that Syrian forces violated by using chemical weapons.
Russia’s opposition is critically important. There are 5 permanent members of the Security Council—the US, the United Kingdom, Russia, China, and France—and each individually possesses a veto over Security Council resolutions. Article 27 of the United Nations Charter states that ‘decisions of the Security Council . . . shall be made by an affirmative vote of nine members including the concurring votes of the permanent members.’
Although the word ‘veto’ does not appear in the United Nations Charter, the term ‘concurring’ has been interpreted by the 5 permanent members of the Security Council as granting each of them a veto power. Accordingly, Russia has the clear legal authority to block any resolution put before the Security Council.
In the absence of a Security Council resolution, the only other internationally-recognized legal basis for the United States to use force in Syria is self-defense. Article 51 of the United Nations Charter expressly acknowledges: ‘the inherent right of individual or collective self-defence if an armed attack occurs against a Member of the United Nations, until the Security Council has taken measures necessary to maintain international peace and security.’
The problem, of course, is the United States has not been attacked by Assad’s government. Although a theory of self-defense at least arguably provides a plausible justification for U.S. military operations against ISIS terrorist forces in eastern Syria, the self-defense argument cannot be extended to the Assad regime. Assad has ruthlessly murdered tens of thousands of his fellow Syrians, but he has not taken any hostile act with regard to the United States.
Thus, no matter how compelling the humanitarian case, the United States would clearly violate traditional understandings of international law by attacking the Syrian government.”
Gaughan’s analysis is spot-on and finds, if you will, collaborative endorsement from such eminent international law professors as Kevin Jon Heller, Mary Ellen O’Connell, Marko Milanovic, and Jack Goldsmith and Oona Hathaway, all of whom have well argued, these “unauthorized armed reprisals are [always] unlawful,” for they “do not fit the exception to the prohibition on the use of force for self-defence,” thus they “violat[e] the jus cogens prohibition of the use of force that is enshrined in Art. 2(4) of the UN Charter.”
While, as Gaughan informed us, the U.S. is suspiciously if not cynically fond of vague and ill-considered invocations of a humanitarian rationale, Milanovic distinguishes the resort to this same rationale by the UK, which alone has “attempted to articulate a justificatory legal argument” based on humanitarian intervention. And although prima facie plausible and rhetorically appealing, it is manifestly weak for any number of reasons, the foremost being that “there is no exception to the U.N. Charter regime for humanitarian intervention.” Professor Milanovic has detailed the precise reasons why the UK’s attempt at justification by way of humanitarian intervention is inconsistent to the point of legal (and, I would add, moral) incoherence.

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Further Reading:
- Abiew, Francis Kofi. The Evolution of the Doctrine and Practice of Humanitarian Intervention. The Hague: Kluwer Law International, 1999.
- Arend, Anthony Clark and Robert J. Beck. International Law and the Use of Force: Beyond the UN Charter Paradigm. New York: Routledge, 1993.
- Bellamy, Alex J. Responsibility to Protect: The Global Effort to End Mass Atrocities. Cambridge, MA: Polity Press, 2009.
- Bellamy, Alex J. and Tim Dunne, eds. The Oxford Handbook of the Responsibility to Protect. Oxford, UK: Oxford University Press, 2016.
- Buchanan, Allen. Justice, Legitimacy, and Self-Determination: Moral Foundations for International Law. New York: Oxford University Press, 2004.
- Chatterjee, Deen K. and Don E. Scheid, eds. Ethics and Foreign Intervention. Cambridge, UK: Cambridge University Press, 2003.
- Chesterman, Simon. Just War or Just Peace? Humanitarian Intervention and International Law. New York: Oxford University Press, 2001.
- Evans, Gareth. The Responsibility to Protect: Ending Mass Atrocity Crimes Once and For All. Washington, DC: Brookings Institution Press, 2008.
- Fletcher, George P. and Jens David Ohlin. Defending Humanity: When Force is Justified and Why. New York: Oxford University Press, 2008.
- Fox, Gregory H. Humanitarian Occupation. Cambridge, UK: Cambridge University Press, 2008.
- Gaus, Gerald F. Justificatory Liberalism: An Essay on Epistemology and Political Theory. New York: Oxford University Press, 1996.
- Glennon, Michael J. Limits of Law, Prerogatives and Power: Intervention after Kosovo. New York: Palgrave Macmillan, 2001.
- Greenwood, Christopher. Humanitarian Intervention: Law and Policy. Oxford, UK: Oxford University Press, 2001.
- Harriss, John, ed. The Politics of Humanitarian Intervention. London: Pinter, 1995.
- Hoffman, Stanley. The Ethics and Politics of Humanitarian Intervention. Notre Dame, IN: University of Notre Dame Press, 1996.
- Holzgrefe, J.L. and Robert O. Keohane, eds. Humanitarian Intervention: Ethical, Legal, and Political Dilemmas. Cambridge, UK: Cambridge University Press, 2003.
- Jokic, Aleksander, ed. Humanitarian Intervention: Moral and Philosophical Issues. Orchard Park, NY: Broadview Press, 2003.
- Kennedy, David. The Dark Side of Virtue: Reassessing International Humanitarianism. Princeton, NJ: Princeton University Press, 2004.
- Loughlin, Martin and Neil Walker, eds. The Paradox of Constitutionalism: Constituent Power and Constitutional Form. New York: Oxford University Press, 2007.
- May, Larry. Crimes Against Humanity: A Normative Account. New York: Cambridge University Press, 2005.
- Orford, Anne. Reading Humanitarian Intervention: Human Rights and the Use of Force in International Law. Cambridge, UK: Cambridge University Press, 2003.
- Orford, Anne. International Authority and Responsibility to Protect. Cambridge, UK: Cambridge University Press. 2011.
- Pattison, James. Humanitarian Intervention and the Responsibility to Protect: Who Should Intervene? Oxford, UK: Oxford University Press, 2010.
- Tanaka, Yuki and Marilyn B. Young, eds. Bombing Civilians: A Twentieth-Century History. New York: The New Press, 2009.
- Tesón, Fernando R. Humanitarian Intervention: An Inquiry into Law and Morality. Ardsley, NY: Transnational, 3rd ed., 2005.
- Thakur, Ramesh. The United Nations, Peace and Security: From Collective Security to the Responsibility to Protect. Cambridge, UK: Cambridge University Press, 2nd, 2017.
- Welsh, Jennifer M., ed. Humanitarian Intervention and International Relations. New York: Oxford University Press, 2004.
- Wheeler, Nicholas J. Saving Strangers: Humanitarian Intervention in International Society. Oxford, UK: Oxford University Press, 2000.
The following bibliographies are also relevant: International Criminal Law; International Law; and Violent Conflict & The Laws of War.
Images (from top to bottom):
- The night sky over Damascus (Hassan Ammar/Associated Press)
- The destroyed Scientific Research Center in Damascus (Reuters)
- Protestors demonstrate against any UK military escalation in Syria on Whitehall in London (Reuters)