A Precedent from the Clinton Years
Finally, no case to this point holds that executive privilege applies to conversations between Executive officials and persons outside the government, such as corporate officers of Enron and other companies.
The closest the courts have come to extending the privilege to such discussions was in the 1993 decision of the U.S. Court of Appeals for the D.C. Circuit in Association of American Physicians and Surgeons, Inc. v. Hillary Clinton. That case raised the question whether the Federal Advisory Committee Act ("FACA") applied to the health-care-reform panel chaired by then-First Lady Hillary Clinton. And that question, in turn, depended on whether the First Lady is, or is not, an officer or employee of the government.
Under FACA, if a person who is not an officer or employee of the government is a member of a government group, then the group's proceedings must be open to the public. The health-care-reform panel had kept its proceedings private, so if the First Lady was not a government officer or employee, it had broken the law. Fortunately for the Clinton Administration, however, the court held that the First Lady is indeed an officer or employee of the government, and FACA thus did not apply.
The court strained the statutory language in order to reach this conclusion - but why? The answer is that a contrary result--to be precise, a finding that the statute's requirement of public meetings applied to the health-care-reform panel--would have raised a difficult constitutional question. And, under a well-established principle of legal interpretation, courts construe statutes in order to avoid difficult constitutional questions. The D.C. Circuit applied that principle in this case.
According to the D.C. Circuit, the difficult constitutional question was this: Does executive privilege extend to conversations between Executive officials and persons outside the government? If so, then FACA unconstitutionally violates that privilege by requiring those conversations to be disclosed. Had the court ruled that the First Lady was neither a government officer nor a government employee, it would have had to decide the difficult constitutional question--for FACA then would have required disclosure of deliberations between the (non-government) First Lady and the executive branch government officials on the commission.
Why the Hillary Clinton Case Suggests Cheney's Privilege Claim May Prevail
The relevance of this complex case to Cheney's situation is straightforward: The D.C. Circuit thought that executive privilege might extend to conversations between executive officials and persons outside the government. And any appeal in the Comptroller General's case against Vice President Cheney would go to the D.C. Circuit (before possibly going to the U.S. Supreme Court).
Thus, a claim of privilege by the Vice President could succeed - particularly if GAO were to go beyond its current requests and seek not only the names of people with whom Cheney consulted, but also the content of deliberations. The D.C. Circuit's speculation as to the breadth of the executive privilege indicates that even if private industry representatives acted as members of the Energy Group, the Group's deliberations may still be privileged, and thus not subject to FACA disclosure.
Will we soon learn the answer to the question the D.C. Circuit left open and the other puzzles surrounding executive privilege? Probably not. If history is our guide, it seems more likely that at