In 1974, Congress ordered a lockdown on all records kept by the Nixon White House, afraid that the outgoing president would try to wipe out the paper trail of his disastrous second term and chastened by the recent destruction of decades’ worth of FBI files by the late director J. Edgar Hoover’s loyal secretary. That order was expanded four years later into a law requiring that all presidents’ papers—everything from briefings to personal notes and everyday communications between the president, vice president, and their staffers—be handed over to the National Archives twelve years after their terms ended for eventual public release. Ronald Reagan was the first chief executive to whom the Presidential Records Act applied, and his papers were due to be turned over to Carlin at the beginning of Bush’s term.
Gonzales wanted Carlin to delay the release until June. His letter didn’t say why, but Carlin agreed. Then in June, Carlin got another memo from Gonzales—Bush’s attorney now wanted until the end of August. Carlin agreed again. The extensions continued until November, when Bush issued an executive order: effective immediately, the release of presidential records would require the approval of both the sitting president and the president whose records were in question, rather than just the former. It was what open-government advocates would later describe as a two-key system: under Bush’s rule, Nixon could have buried the Watergate tapes without explaining himself to anyone.
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