Detention, Treatment, and Trial of Certain Non-Citizens
November 13, 2001
By the authority vested in me as President and as Commander in Chief of the
Armed Forces of the United States by the Constitution and the laws of the United
States of America, including the Authorization for Use of Military Force Joint
Resolution (Public Law 107-40, 115 Stat. 224) and sections 821 and 836 of title
10, United States Code, it is hereby ordered as follows:
Section 1. Findings.
(a) International terrorists, including members of al Qaida, have carried out
attacks on United States diplomatic and military personnel and facilities abroad
and on citizens and property within the United States on a scale that has created
a state of armed conflict that requires the use of the United States Armed Forces.
(b) In light of grave acts of terrorism and threats of terrorism, including
the terrorist attacks on September 11, 2001, on the headquarters of the United
States Department of Defense in the national capital region, on the World Trade
Center in New York, and on civilian aircraft such as in Pennsylvania, I proclaimed
a national emergency on September 14, 2001 (Proc. 7463, Declaration of National
Emergency by Reason of Certain Terrorist Attacks).
(c) Individuals acting alone and in concert involved in international terrorism
possess both the capability and the intention to undertake further terrorist
attacks against the United States that, if not detected and prevented, will
cause mass deaths, mass injuries, and massive destruction of property, and may
place at risk the continuity of the operations of the United States Government.
(d) The ability of the United States to protect the United States and its citizens,
and to help its allies and other cooperating nations protect their nations and
their citizens, from such further terrorist attacks depends in significant part
upon using the United States Armed Forces to identify terrorists and those who
support them, to disrupt their activities, and to eliminate their ability to
conduct or support such attacks.
(e) To protect the United States and its citizens, and for the effective conduct
of military operations and prevention of terrorist attacks, it is necessary
for individuals subject to this order pursuant to section 2 hereof to be detained,
and, when tried, to be tried for violations of the laws of war and other applicable
laws by military tribunals.
(f) Given the danger to the safety of the United States and the nature of international
terrorism, and to the extent provided by and under this order, I find consistent
with section 836 of title 10, United States Code, that it is not practicable
to apply in military commissions under this order the principles of law and
the rules of evidence generally recognized in the trial of criminal cases in
the United States district courts.
(g) Having fully considered the magnitude of the potential deaths, injuries,
and property destruction that would result from potential acts of terrorism
against the United States, and the probability that such acts will occur, I
have determined that an extraordinary emergency exists for national defense
purposes, that this emergency constitutes an urgent and compelling govern-ment
interest, and that issuance of this order is necessary to meet the emergency.
Sec. 2. Definition and Policy.
(a) The term "individual subject to this order" shall mean any individual
who is not a United States citizen with respect to whom I determine from time
to time in writing that:
(1) there is reason to believe that such individual, at the relevant
(i) is or was a member of the organization known as al Qaida;
(ii) has engaged in, aided or abetted, or conspired to commit,
acts of international terrorism, or acts in preparation therefor,
that have caused, threaten to cause, or have as their aim to
cause, injury to or adverse effects on the United States, its
citizens, national security, foreign policy, or economy; or
(iii) has knowingly harbored one or more individuals described in
subparagraphs (i) or (ii) of subsection 2(a)(1) of this order;
(2) it is in the interest of the United States that such individual
be subject to this order.
(b) It is the policy of the United States that the Secretary of Defense shall
take all necessary measures to ensure that any individual subject to this order
is detained in accordance with section 3, and, if the individual is to be tried,
that such individual is tried only in accordance with section 4.
(c) It is further the policy of the United States that any individual subject
to this order who is not already under the control of the Secretary of Defense
but who is under the control of any other officer or agent of the United States
or any State shall, upon delivery of a copy of such written determination to
such officer or agent, forthwith be placed under the control of the Secretary
Sec. 3. Detention Authority of the Secretary of Defense. Any individual subject
to this order shall be --
(a) detained at an appropriate location designated by the Secretary of Defense
outside or within the United States;
(b) treated humanely, without any adverse distinction based on race, color,
religion, gender, birth, wealth, or any similar criteria;
(c) afforded adequate food, drinking water, shelter, clothing, and medical treatment;
(d) allowed the free exercise of religion consistent with the requirements of
such detention; and
(e) detained in accordance with such other conditions as the Secretary of Defense
Sec. 4. Authority of the Secretary of Defense Regarding Trials of Individuals
Subject to this Order.
(a) Any individual subject to this order shall, when tried, be tried by military
commission for any and all offenses triable by military commission that such
individual is alleged to have committed, and may be punished in accordance with
the penalties provided under applicable law, including life imprisonment or
(b) As a military function and in light of the findings in section 1, including
subsection (f) thereof, the Secretary of Defense shall issue such orders and
regulations, including orders for the appointment of one or more military commissions,
as may be necessary to carry out subsection (a) of this section.
(c) Orders and regulations issued under subsection (b) of this section shall
include, but not be limited to, rules for the conduct of the proceedings of
military commissions, including pretrial, trial, and post-trial procedures,
modes of proof, issuance of process, and qualifications of attorneys, which
shall at a minimum provide for --
(1) military commissions to sit at any time and any place, consistent
with such guidance regarding time and place as the Secretary of
Defense may provide;
(2) a full and fair trial, with the military commission sitting as
the triers of both fact and law;
(3) admission of such evidence as would, in the opinion of the
presiding officer of the military commission (or instead, if any other
member of the commission so requests at the time the presiding officer
renders that opinion, the opinion of the commission rendered at that
time by a majority of the commission), have probative value to a
(4) in a manner consistent with the protection of information
classified or classifiable under Executive Order 12958 of April 17,
1995, as amended, or any successor Executive Order, protected by
statute or rule from unauthorized disclosure, or otherwise protected
by law, (A) the handling of, admission into evidence of, and access to
materials and information, and (B) the conduct, closure of, and access
(5) conduct of the prosecution by one or more attorneys designated by
the Secretary of Defense and conduct of the defense by attorneys for
the individual subject to this order;
(6) conviction only upon the concurrence of two-thirds of the members
of the commission present at the time of the vote, a majority being
(7) sentencing only upon the concurrence of two-thirds of the members
of the commission present at the time of the vote, a majority being
(8) submission of the record of the trial, including any conviction
or sentence, for review and final decision by me or by the Secretary
of Defense if so designated by me for that purpose.
Sec. 5. Obligation of Other Agencies to Assist the Secretary of Defense.
Departments, agencies, entities, and officers of the United States shall, to
the maximum extent permitted by law, provide to the Secretary of Defense such
assistance as he may request to implement this order.
Sec. 6. Additional Authorities of the Secretary of Defense.
(a) As a military function and in light of the findings in section 1, the Secretary
of Defense shall issue such orders and regulations as may be necessary to carry
out any of the provisions of this order.
(b) The Secretary of Defense may perform any of his functions or duties, and
may exercise any of the powers provided to him under this order (other than
under section 4(c)(8) hereof) in accordance with section 113(d) of title 10,
United States Code.
Sec. 7. Relationship to Other Law and Forums.
(a) Nothing in this order shall be construed to --
(1) authorize the disclosure of state secrets to any person not
otherwise authorized to have access to them;
(2) limit the authority of the President as Commander in Chief of the
Armed Forces or the power of the President to grant reprieves and
(3) limit the lawful authority of the Secretary of Defense, any
military commander, or any other officer or agent of the United States
or of any State to detain or try any person who is not an individual
subject to this order.
(b) With respect to any individual subject to this order --
(1) military tribunals shall have exclusive jurisdiction with respect
to offenses by the individual; and
(2) the individual shall not be privileged to seek any remedy or
maintain any proceeding, directly or indirectly, or to have any such
remedy or proceeding sought on the individual's behalf, in (i) any
court of the United States, or any State thereof, (ii) any court of
any foreign nation, or (iii) any international tribunal.
(c) This order is not intended to and does not create any right, benefit, or
privilege, substantive or procedural, enforceable at law or equity by any party,
against the United States, its departments, agencies, or other entities, its
officers or employees, or any other person.
(d) For purposes of this order, the term "State" includes any State,
district, territory, or possession of the United States.
(e) I reserve the authority to direct the Secretary of Defense, at any time
hereafter, to transfer to a governmental authority control of any individual
subject to this order. Nothing in this order shall be construed to limit the
authority of any such governmental authority to prosecute any individual for
whom control is transferred.
Sec. 8. Publication.
This order shall be published in the Federal Register.