Page:CRS Report 95-772 A.djvu/1

 CRS-1 Executive Orders and Proclamations {{center|1=

Introduction
}} Typically, an inquiry concerning executive orders and proclamations may only be related to one particular issue. However, it is useful to fully understand the dynamics behind executive orders and proclamations. Otherwise, the reader may be disappointed when it becomes apparent that there is no hard and fast rule concerning these presidential instruments. The fact is, executive orders and proclamations encompass so many aspects of government and society that each of them must be considered on a case-by-case basis. Consequently, this report seeks to give a better understanding of executive orders and proclamations, but may not provide ready answers to questions concerning specific presidential actions. This report examines the origin and usage of these presidential instruments. It also analyzes the scope of the President's authority to use such instruments and possible responses by Congress and the Judiciary. The first task is to define executive orders and proclamations. Unfortunately, there is no exact meaning since neither the Framers of the Constitution nor Congress defined executive orders or proclamations. However, many commentators have expressed their understanding of such instruments. The most commonly cited description is that prepared by the House Government Operations Committee: Executive orders and proclamations are directives or actions by the President. When they are founded on the authority of the President derived from the Constitution or statute, they may have the force and effect of law. . . . In the narrower sense Executive orders and proclamations are written documents denoted as such. . . . Executive orders are generally directed to, and govern actions by, Government officials and agencies. They usually affect private individuals only indirectly. Proclamations in most instances affect primarily the activities of private individuals. Since the President has no power or authority over individual citizens and their rights except where he is granted such power and authority by a provision in the Constitution or by statute. The President's proclamations are not legally binding and are at best hortatory unless based on such grants of authority. The difference between Executive orders and proclamations is more one of form than of substance. . . . As executive orders and proclamations are not defined in the Constitution, there is also no specific provision in the Constitution authorizing the President to issue executive orders and proclamations. However, the fact remains that Presidents have been issuing them since the inception of the Republic. Often Presidents have relied