ndrew Weissmann was one of Robert Mueller’s top deputies in the special counsel’s investigation of the 2016 election, and he’s about to publish the first insider account, called Where Law Ends: Inside the Mueller Investigation. The title comes from an adapted quote by the philosopher John Locke that’s inscribed on the façade of the Justice Department building in Washington, D.C.: “Wherever law ends, tyranny begins.”
Weissmann offers a damning indictment of a “lawless” president and his knowing accomplices—Attorney General William Barr (portrayed as a cynical liar), congressional Republicans, criminal flunkies, Fox News. Donald Trump, he writes, is “like an animal, clawing at the world with no concept of right and wrong.” But in telling the story of the investigation and its fallout, Weissmann reserves his most painful words for the Special Counsel’s Office itself. Where Law Ends portrays a group of talented, dedicated professionals beset with internal divisions and led by a man whose code of integrity allowed their target to defy them and escape accountability.
“There’s no question I was frustrated at the time,” Weissmann told me in a recent interview. “There was more that could be done that we didn’t do.” He pointed out that the special counsel’s report never arrived at the clear legal conclusions expected from an internal Justice Department document. At the same time, it lacked the explanatory power of last month’s bipartisan Senate Intelligence Committee report on the 2016 election. “Even with 1,000 pages, it was better,” Weissmann said of the Senate report. “It made judgments and calls, instead of saying, ‘You could say this and you could say that.’”
The Mueller inquiry was the greatest potential check on Trump’s abuse of power. The press gives the president fits, but almost half the country chooses not to believe the news. Congress will protect Trump as long as his party controls at least one chamber. Local prosecutors and civil plaintiffs are severely limited in pursuing justice against a sitting president. Public opinion is immovably split and powerless until the next election. Only the Special Counsel’s Office—burrowing into the criminal matter of Russian interference in the 2016 election, a possible conspiracy with the Trump campaign, and the president’s subsequent attempts to block an investigation—offered the prospect of accountability for Trump. Mueller couldn’t try the president in court, let alone send him to prison, but he could fully expose Trump’s wrongdoing for a future prosecutor, using the enforceable power of a grand jury subpoena. The whole constitutional superstructure of checks and balances rested on Mueller and his team. As their work dragged on through 2017 and 2018, with flurries of indictments and plea deals but otherwise in utter silence, many Americans invested the inquiry with the outsized expectation that it would somehow bring Trump down.
Suddenly, in March 2019, the Special Counsel’s Office completed its work. A report, hundreds of pages long, with many lines blacked out, was delivered to the attorney general. Before releasing it to the public, Barr pronounced the president innocent, in a brazen mix of elisions, distortions, and outright lies—for the report presented extensive evidence of cooperation between the Trump campaign and Russian assets, and of the president’s efforts to obstruct justice. The lesson Trump took from the Mueller investigation was that he could do anything he wanted. He declared himself vindicated, vowed to pursue the pursuers, and immediately turned to extorting favors for another election from another foreign country. Uproar over “Russiagate” gave way to uproar over “Ukrainegate.” The Mueller report faded away, as if it had all been for nothing.