A third function, more controversial than either of the two considered above, is the use of signing statements
to announce the President's view of the cons utionality of the legislation he is signing. This category embraces at least three species: statements that declare that the legislation (or relevant provisions)
would be uncons utional in certain applications; statements that purport to construe the legislation in a manner that would "save" it from uncons utionality; and statements that state flatly that the legislation is uncons utional on its face. Each of these species of statement may include a declaration as to how -- or whether -- the legislation will be enforced.
Thus, the President may use a signing statement
to announce that, although the legislation is cons utional on its face, it would be uncons utional in various applications, and that in such applications he will refuse to execute it. Such a Presidential statement could be analogized to a Supreme Court opinion that upheld legislation against a facial cons utional challenge, but warned at the same time that certain applications of the act would be uncons utional. Cf.
Bowen v. Kendrick, 487 U.S. 589, 622-24 (1987) (O'Connor, J., concurring). Relatedly, a signing statement may put forward a
"saving" construction of the bill, explaining that the President will construe it in a certain manner in order to avoid cons utional difficulties. See Federal Election Comm'n v. NRA Political Victory Fund, 1993 U.S. App. LEXIS 27298 (D.C. Cir. 1993), at *11-*12 (Silberman, J., joined by Wald, J.) (citing two Presidential signing statements adopting "saving" construction of legislation limiting appointment power). This, too, is analogous to the Supreme Court's practice of construing statutes, if possible, to avoid holding them uncons utional, or even to avoid deciding difficult cons utional questions.
More boldly still,
the President may declare in a signing statement that a provision of the bill before him is flatly uncons utional, and that he will refuse to enforce it. This species of statement merits separate discussion.(6)
In each of the last three Administrations, the Department of Justice has advised the President that the Cons ution provides him with the authority to decline to enforce a clearly uncons utional law.(7) This advice is, we believe, consistent with the views of the Framers.(8)
Moreover, four sitting Justices of the Supreme Court have joined in the opinion that the President may resist laws that encroach upon his powers by "disregard[ing] them when they are uncons utional." Freytag v. C.I.R., 111 S. Ct. 2631, 2653 (1991) (Scalia, J., joined by O'Connor, Kennedy and Souter, JJ., concurring in part and concurring in judgment).(9)
If the President may properly decline to enforce a law, at least when it uncons utionally encroaches on his powers, then it arguably follows that he may properly announce to Congress and to the public that he will not enforce a provision of an enactment he is signing. If so, then a signing statement that challenges what the President determines to be an uncons utional encroachment on his power, or that announces the President's unwillingness to enforce (or willingness to litigate) such a provision, can be a
valid and reasonable exercise of Presidential authority.(10) And indeed, in a recent decision by the United States Court of Appeals for the District of Columbia Circuit,
Federal Election Comm'n v. NRA Political Victory Fund, supra,
the court cited to and relied upon a Presidential signing statement that had declared that a Congressionally-enacted limitation on the President's cons utional authority to appoint officers of the United States was
without legal force or effect. Id. at * 11.