'A Different Understanding With the President'

Just past the Oval Office, in the private dining room overlooking the South Lawn, Vice President Cheney joined President Bush at a round parquet table they shared once a week. Cheney brought a four-page text, written in strict secrecy by his lawyer. He carried it back out with him after lunch.

In less than an hour, the document traversed a West Wing circuit that gave its words the power of command. It changed hands four times, according to witnesses, with emphatic instructions to bypass staff review. When it returned to the Oval Office, in a blue portfolio embossed with the presidential seal, Bush pulled a felt-tip pen from his pocket and signed without sitting down. Almost no one else had seen the text.

Cheney's proposal had become a military order from the commander in chief. Foreign terrorism suspects held by the United States were stripped of access to any court -- civilian or military, domestic or foreign. They could be confined indefinitely without charges and would be tried, if at all, in closed "military commissions."

"What the hell just happened?" Secretary of State Colin L. Powell demanded, a witness said, when CNN announced the order that evening, Nov. 13, 2001. National security adviser Condoleezza Rice, incensed, sent an aide to find out. Even witnesses to the Oval Office signing said they did not know the vice president had played any part.

The episode was a defining moment in Cheney's tenure as the 46th vice president of the United States, a post the Constitution left all but devoid of formal authority. "Angler," as the Secret Service code-named him, has approached the levers of power obliquely, skirting orderly lines of debate he once enforced as chief of staff to President Gerald R. Ford. He has battled a bureaucracy he saw as hostile, using intimate knowledge of its terrain. He has empowered aides to fight above their rank, taking on roles reserved in other times for a White House counsel or national security adviser. And he has found a ready patron in George W. Bush for edge-of-the-envelope views on executive supremacy that previous presidents did not assert.

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Cheney vs. Rice: A Foreign-Policy Showdown

The battle continues between Cheney and Rice.

Rice has more directly clashed with Cheney's office on issues like Mideast peace, where according to administration sources who declined to be named discussing internal deliberations, she's found herself stymied in efforts to push for more engagement with Syria and the Palestinian radical group Hamas. A senior White House official concedes that even on what should be the simplest-to-achieve deal—a new relationship with Syria that would help stabilize Iraq—Cheney's office is blocking Rice's efforts to bring Bush around. The secretary has also fought with the veep's office in seeking to soften detention policies at Guantánamo. In the interview, however, Rice insisted her relationship with Cheney himself is good. "The vice president has never been somebody who tries to [undermine others] on the sidelines, behind the scenes. He really doesn't," she said. "In fact we have a kind of friendly banter about it, in which I'll tease him about the image that he doesn't like diplomacy."