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But the statute was written in a very complex way designed to obscure from adversaries and the public alike what it did and did not do. In particulate, it left the NSA free to wiretap without warrants using submarines to tap cables on the international seabed or by pointing antennas at communications satellites handling international phone calls.

Both of those techniques would collect both purely foreign communications and one-end-foreign, one-end-domestic ones. The NSA separately created procedures barring the deliberate targeting of an American absent special permission, but this would still permit bulk collection without targeting anyone, or warrantless collection targeting a foreigner even when he was talking to an American. For technical reasons, it is harder to tap a fiberoptic line from the middle, deep under the water.

The NSA needed to do it from the cable landing stations where the cable emerged from the water and plugged into the network.

In , the Reagan administration drafted legislation to alter FISA in light of this changing technological situation, so that it could again collect communications with at least one end on foreign soil without a FISA warrant at least so long as it did not target an individual American.

But by , the Bush-Quayle administration decided not to go forward with it. Part of the reason, as Lawton candidly acknowledged in this memo, was that the bill would have to be written in such a way as to keep obscure what it was doing, which would lead to public speculation that something sinister was going on.

But the Reagan administration had, in , invented something that partially mitigated its problem — for a growing amount of purely foreign-to-foreign traffic crossing the American network.

The idea was that a careful parsing of FISA showed that the statute did not cover transiting foreign-to-foreign communications, even if collected from a wire on domestic soil, and that the Fourth Amendment did not cover foreigners abroad. Thus the president had inherent authority to collect, without a FISA warrant, a phone call from, say, someone in France to, say, someone in Iran, as it crossed a domestic network switch.

The Reagan legal team produced a memo for the president to sign to the secretary of defense and the attorney general saying he understood that they were interpreting the law in this way and approved.

Each subsequent president, including Obama in January , has signed such a memo. That document was partially declassified after the Snowden leaks and the uncensored parts include a reference to transiting communications. I know I have. Instant gratification and appearances don't really go far enough to sustain a relationship or friendship, do they? You can't change the laws of chemistry. What about taking advantage of our wisdom and experience to get it right this time? I am by no means an expert on relationships, far from it.

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