Bid to shut Guantanamo roils Pentagon, White House, Congress

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Governor Discussing Guantanamo Bay Detainee Transfer Possibility


WASHINGTON (AP) — The Obama administration's struggling quest to close the U.S. detention center at Guantanamo Bay, Cuba, is mired in state and federal politics. Frustrated White House and Pentagon officials are blaming each other for the slow progress releasing approved detainees and finding a new prison to house those still held.

Defense Secretary Ash Carter is facing criticism from some administration officials who complain that he has not approved enough transfers, even though 52 Guantanamo detainees are eligible. Carter's predecessor, Chuck Hagel, was forced from the Pentagon job in part because the White House felt he was not moving quickly enough to send detainees to other countries.

Two officials said the White House is frustrated because President Barack Obama discussed the issue with Carter when he was hired this year to lead the Defense Department, and they believed Carter was on board with the White House's plans to act faster.

Other U.S. officials note that Carter has approved some transfers and is pushing his staff to move quickly to get more to his desk. But many other proposed transfers are slogging through the bureaucracy, under review by a long list of defense, military, intelligence and other administration offices. The transfers cannot be approved unless officials believe the detainees will not return to terrorism or the battlefield upon release and that there is a host country willing to take them.

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Bid to shut Guantanamo roils Pentagon, White House, Congress
399575 09: A view of the U.S. Naval Base, where al Qaeda and Taliban fighters from Afghanistan will be detained, January 10, 2002 in Guantanamo Bay, Cuba. The U.S. military has increased security at the Naval base in preparation for the Afghan prisoners. (Photo by Jorge Rey/Getty Images)
399884 01: U.S. Military Police guard Taliban and al Qaeda detainees in orange jumpsuits January 11, 2002 in a holding area at Camp X-Ray at Naval Base Guantanamo Bay, Cuba during in-processing to the temporary detention facility. The detainees will be given a basic physical exam by a doctor, to include a chest x-ray and blood samples drawn to assess their health, the military said. The U.S. Department of Defense released the photo January 18, 2002. (Photo by Petty Officer 1st class Shane T. McCoy/U.S. Navy/Getty Images)
Dressed in bright orange coveralls, al-Qaida and Taliban prisoners wash before midday prayers at Camp X-Ray, where they are being held, at the US Naval Base at Guantanamo Bay, Cuba, 27 January 2002. US Secretary of Defense Donald H. Rumsfeld visited the base Sunday. AFP PHOTO/J. SCOTT APPLEWHITE/POOL (Photo credit should read J. SCOTT APPLEWHITE/AFP/Getty Images)
402993 02: Tower guards watch over Camp X-Ray March 27, 2002 in Guantanamo Bay, Cuba. Over 300 detainees are being held at the camp as work continues on a more permanent prison nearby. (Photo by Chris Hondros/Getty Images)
403018 10: Civilian construction crew members work on the fencing area around Camp Delta March 28, 2002 in Guantanamo Bay, Cuba. Camp Delta is going to be a permanent detention facility for detainees from the war on terrorism, replacing the temporary Camp X-ray prison. Camp Delta is planned to be ready for use by April 12. (Photo by Chris Hondros/Getty Images)
General view shows Camp X-Ray at Guantánamo Bay, Cuba, 11 September, 2002. There was no remembrance ceremony at Camp Delta at the US naval base on Guantanamo and US officers did their best to ensure the almost 600 suspected al-Qaeda and Taliban members would not realize a year had passed since the terrorist attacks on the United States. AFP PHOTO Adalberto ROQUE (Photo credit should read ADALBERTO ROQUE/AFP/Getty Images)
GUANTANAMO BAY NAVAL BASE, CUBA - SEPTEMBER 10: A U.S. Armed Forces guard surveys the scene at Camp Delta September 10, 2002 on Guantanamo Bay Naval Base in Cuba. As the anniversary of the September 11 attacks nears, 598 detainees remain housed at the facility. Most of the detainees, from 43 different countries, were captured in Afghanistan and elsewhere during the war on terrorism. (Photo by Erik S. Lesser/Getty Images)
GUANTANAMO BAY, CUBA - DECEMBER 3: This image released by the U.S. Department of Defense shows the detainee hospital ward at Camp Delta on December 3, 2002 at Guantanamo Bay, Cuba. Nearly 600 suspected al Qaeda and Taliban fighters, captured during the war in Afghanistan, have been held prisoner at Camp Delta in Guantanamo Bay since January 2002. (Photo by DOD/Staff Sgt. Stephen Lewald/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: Razor wire surrounds Camp Delta where detainees from the U.S. war in Afghanistan live April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: U.S. Army soldiers stand at the entrance to Camp Delta where detainees from the U.S. war in Afghanistan live April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: An interrogation room in Camp Delta for detainees from the U.S. war in Afghanistan is shown April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: An interrogation room in Camp Delta for detainees from the U.S. war in Afghanistan is shown April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - DECEMBER 3: This image released by the U.S. Department of Defense shows the operating room at the detainee hospital at Camp Delta on December 3, 2002 at Guantanamo Bay, Cuba. Nearly 600 suspected al Qaeda and Taliban fighters, captured during the war in Afghanistan, have been held prisoner at Camp Delta in Guantanamo Bay since January 2002. (Photo by DOD/Staff Sgt. Stephen Lewald/Getty Images)
GUANTANAMO BAY, CUBA - DECEMBER 3: This image released by the U.S. Department of Defense shows the Camp Delta recreation and exercise area on December 3, 2002 at Guantanamo Bay, Cuba. Nearly 600 suspected al Qaeda and Taliban fighters, captured during the war in Afghanistan, have been held prisoner at Camp Delta in Guantanamo Bay since January 2002. (Photo by DOD/Staff Sgt. Stephen Lewald/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: (NOTE: DUE TO US MILITARY RESTRICTIONS PHOTOGRAPHS OF THE DETAINEES COULD ONLY BE TAKEN FROM BELOW THE HEAD) Detainees from the U.S. war in Afghanistan stand near their cell blocks at Camp Delta April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 7: U.S. Military Police stand in a cell block in Camp Delta where detainees from the U.S. war in Afghanistan live April 7, 2004 in Guantanamo Bay, Cuba. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - APRIL 8: The fence line that separates the U.S. military base on the right and the Cuban mainland is shown April 8, 2004 in Guantanamo Bay, Cuba. The base serves as a detention facility for prisoners captured in the war in Afghanistan. On April 20, the U.S. Supreme Court is expected to consider whether the detainees can ask U.S. courts to review their cases. Approximately 600 prisoners from the U.S. war in Afghanistan remain in detention. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - AUGUST 25: A U.S. Army soldier closes the gate at maximum security prison Camp Delta at Guantanamo Naval Base August 25, 2004 in Guantanamo, Cuba. Preliminary hearings began yesterday for four suspected Al Qaeda associates, charged by the U.S. with war crimes, as they appear before a commission of 5 military officers. (Photo by Mark Wilson/Getty Images)
GUANTANAMO BAY, CUBA - AUGUST 23: A uniform and other supplies that are given to detainees lie on a bed in a cell at Camp Delta at Guantanamo Naval Base August 23, 2004 in Guantanamo, Cuba. On August 24, preliminary hearings will begin for four suspected Al Qaeda associates charged by the U.S. with war crimes as they appear before a commission of five military officers. (Photo by Mark Wilson/Getty Images)
GUANTANAMO BAY, CUBA - AUGUST 23: A U.S. Army soldier walks past detainees in a court yard at Camp Delta at Guantanamo Naval Base August 23, 2004 in Guantanamo, Cuba. On August 24, preliminary hearings will begin for four suspected Al Qaeda associates charged by the U.S. with war crimes as they appear before a commission of five military officers. (Photo by Mark Wilson/Getty Images)
GUANTANAMO BAY, CUBA - MAY 09: (IMAGE REVIEWED BY U.S. MILITARY PRIOR TO TRANSMISSION) A member of the U.S. Military stands guard while two detainee's stands near their cell at Camp 4 inside of Camp Delta May 9, 2006 in Guantanamo Bay, Cuba. Camp Delta was first occupied on April 28, 2002, when 300 detainees previously held at Camp X-Ray were transferred to Camp Delta. The rest of the detainees were moved on April 29. Camp X-Ray closed down on that same day. (Photo by Mark Wilson/Getty Images)
GUANTANAMO BAY, CUBA - MAY 09: (IMAGE REVIEWED BY U.S. MILITARY PRIOR TO TRANSMISSION) Clothes and slippers and board games that are given to detainee's sit in a cell of the Camp 2 cell block at Camp Delta May 9, 2006 in Guantanamo Bay, Cuba. Camp Delta was first occupied on April 28, 2002, when 300 detainees previously held at Camp X-Ray were transferred to Camp Delta. The rest of the detainees were moved on April 29. Camp X-Ray closed down on that same day. (Photo by Mark Wilson/Getty Images)
GUANTANAMO BAY, CUBA - MAY 09: (IMAGE REVIEWED BY U.S. MILITARY PRIOR TO TRANSMISSION) A member of the U.S. Military stands by while two detainee's stand inside the fence line at Camp 4 inside of Camp Delta May 9, 2006 in Guantanamo Bay, Cuba. Camp Delta was first occupied on April 28, 2002, when 300 detainees previously held at Camp X-Ray were transferred to Camp Delta. The rest of the detainees were moved on April 29. Camp X-Ray closed down on that same day. (Photo by Mark Wilson/Getty Images)
Guantanamo Bay, CUBA: The sign on the fence at Camp V 05 December 2006 on the US Naval base at Guantanamo Bay, Cuba. Approximately 445 enemy combatants from al Qaeda and the Taliban are in various security levels of lock-up here by a US Joint Task Force. AFP Photo/Paul J. Richards (Photo credit should read PAUL J. RICHARDS/AFP/Getty Images)
In this photo reviewed by US military officials, a US military guard stands watch as another does a 3-minute interval visual check of the single prisoner in each cell 26 June 2006 inside block A of the Camp 5 maximum security prison at the Guantanamo Bay US Naval Base in Cuba. The Supreme Court this week is expected to rule on the legality of President Bush's decision to create U.S. military tribunals for the detainees at Guantanamo, the first such tribunals since World War II. AFP PHOTO/POOL/Brennan Linsley (Photo credit should read BRENNAN LINSLEY/AFP/Getty Images)
In this photo reviewed by US military officials, a cell for a noncompliant detainee is pictured inside the maximum security prison Camp 5 at the Guantanamo Bay US Naval Base in Cuba. The Supreme Court this week is expected to rule on the legality of President Bush's decision to create U.S. military tribunals for the detainees at Guantanamo, the first such tribunals since World War II. AFP PHOTO/POOL/Brennan Linsley (Photo credit should read BRENNAN LINSLEY/AFP/Getty Images)
Guantanamo Bay, CUBA: In this photo reviewed by US military officials, an American flag waves in the front of the maximum security prison Camp 5 at the Guantanamo Bay US Naval Base in Cuba. The Supreme Court this week is expected to rule on the legality of President Bush's decision to create U.S. military tribunals for the detainees at Guantanamo, the first such tribunals since World War II. AFP PHOTO/POOL/Brennan Linsley (Photo credit should read BRENNAN LINSLEY/AFP/Getty Images)
In this photo reviewed by US military officials, a detainee whose name, nationality, and facial identification are not permitted, holds onto a fence as a US military guard walks within the grounds of the maximum security prison of Camp 5 at the Guantanamo Bay US Naval Base in Cuba, 26 June 2006. The Supreme Court this week is expected to rule on the legality of President Bush's decision to create US military tribunals for the detainees at Guantanamo, the first such tribunals since World War II. AFP PHOTO/POOL/Brennan Linsley (Photo credit should read BRENNAN LINSLEY/AFP/Getty Images)
The outer fence and guard tower at Camps 1 & 4 at Camp Delta at the US Naval Station in Guantanamo Bay, Cuba, 24 April 2007 mans his security station. US Militrary officials list about 385 current detainees of various threat levels and nationalities being held on the US base in Cuba captured in the US war on terror. AFP Photo/Paul J. Richards (Photo credit should read PAUL J. RICHARDS/AFP/Getty Images)
A man holds a poster that calls for closing down the US-run prison in Guantanamo Bay during a protest organised by Amnesty International orgnaization outside the US embassy in Rome 11 January 2008, to mark the sixth anniversary of the US prison in Cuba. AFP PHOTO / ALBERTO PIZZOLI (Photo credit should read ALBERTO PIZZOLI/AFP/Getty Images)
GUANTANAMO BAY NAVAL BASE, CUBA - JULY 23: In this image reviewed by the U.S. Military, a soccer ball sits inside an exercise area at the detention facility on July 23, 2008 at Guantanamo Bay U.S. Naval Base, in Cuba. The military base is providing the location for the trial of Salim Hamdan, the former driver for Osama bin Laden, who is charged with conspiracy and aiding terrorism and is the first prisoner to face a U.S. war-crimes trial since World War II. (Randall Mikkelsen-Pool/Getty Images)
Activists of Amnesty International dressed as a Guantanamo bay prisoner protest on January 10, 2009 in Berne. The American Civil Liberties Union (ACLU) wrote a letter to US Secretary of Defense Robert Gates on January 9, 2009 protesting the 'inhumane and unlawful practice' of force-feeding hunger strikers at Guantanamo Bay prison. The prison was opened in January 2002 to hold alleged 'enemy combatants' captured by US and allied forces around the world during the so-called 'war on terror.' AFP PHOTO/ MICHELE LIMINA (Photo credit should read MICHELE LIMINA/AFP/Getty Images)
GUANTANAMO BAY, CUBA - DECEMBER 7: An image reviewed by the US military shows the sun rising over tent city in 'Camp Justice' on December 07, 2008 in Guantanamo Bay, Cuba. Khalid Sheikh Mohammed, the alleged mastermind of the September 11, 2001 attacks, is set to appear Monday before a US military tribunal where he will face victims' kin for the first time. (Photo by Mandel Ngan-Pool/Getty Images)
GUANTANAMO BAY NAVAL BASE, CUBA - JULY 23: In this image reviewed by the U.S. Military, the stars and stripes are visible through razor-wire fencing at the detention camp on July 23, 2008 at Guantanamo Bay U.S. Naval Base, in Cuba. The military base is providing the location for the trial of Salim Hamdan, the former driver for Osama bin Laden, who is charged with conspiracy and aiding terrorism and is the first prisoner to face a U.S. war-crimes trial since World War II. (Randall Mikkelsen-Pool/Getty Images)
GUANTANAMO BAY, CUBA - JANUARY 18: (NOTE TO EDITORS: PHOTO HAS BEEN REVIEWED BY US MILITARY OFFICIALS) Signs mark off a restricted area at the U.S. Naval Base January 18, 2009 in Guantanamo Bay, Cuba. President-elect Barack Obama has said he intends to close the offshore prison. (Photo by Brennan Linsley-Pool/Getty Images)
GUANTANAMO BAY, CUBA - OCTOBER 27: (EDITORS NOTE: Image has been reviewed by U.S. Military prior to transmission.) A detainee stands at an interior fence inside the U.S. military prison for 'enemy combatants' on October 27, 2009 in Guantanamo Bay, Cuba. Although U.S. President Barack Obama pledged in his first executive order last January to close the infamous prison within a year's time, the government has been struggling to try the accused terrorists and to transfer them out ahead of the deadline. Military officials at the prison point to improved living standards and state of the art medical treatment available to detainees, but the facility's international reputation remains tied to the 'enhanced interrogation techniques' such as waterboarding employed under the Bush administration. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - OCTOBER 27: (EDITORS NOTE: Image has been reviewed by U.S. Military prior to transmission.) A 'non-compliant' detainee is escorted by guards after showering inside the U.S. military prison for 'enemy combatants' on October 27, 2009 in Guantanamo Bay, Cuba. Although U.S. President Barack Obama pledged in his first executive order last January to close the infamous prison within a year's time, the government has been struggling to try the accused terrorists and to transfer them out ahead of the deadline. Military officials at the prison point to improved living standards and state of the art medical treatment available to detainees, but the facility's international reputation remains tied to 'enhanced interrogation techniques' such as waterboarding employed under the Bush administration. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - MARCH 30: (EDITORS NOTE: Image has been reviewed by U.S. Military prior to transmission.) A U.S. Army soldier patrols past a guard tower at Camp Delta in the Guantanamo Bay detention center on March 30, 2010 in Guantanamo Bay, Cuba. U.S. President Barack Obama pledged to close the prison by early 2010 but has struggled to transfer, try or release the remaining detainees from the facility, located on the U.S. Naval Base at Guantanamo Bay, Cuba. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - MARCH 29: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) A guard tower stands next to the waters of the Caribbean at Camp Delta in the Guantanamo Bay detention center on March 29, 2010 in Guantanamo Bay, Cuba. U.S. President Barack Obama pledged to close the prison by early 2010, but the administration has struggled to transfer, try or release the remaining detainees from the facility, located on the U.S. Naval base on the Caribbean island. (Photo by John Moore/Getty Images)
WASHINGTON, DC - JANUARY 11: Activists wearing orange jumpsuits, as they dress as prisoners, hold up a sign during a protest against the detention center in Guantanamo Bay outside the White House January 11, 2011 in Washington, DC. The activists protested on the ninth anniversary of the opening of the prison in Guantanamo, that U.S. President Barack Obama promised during the campaign to close down. (Photo by Alex Wong/Getty Images)
GUANTANAMO BAY, CUBA - JUNE 25: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) A sign reading, 'Office of Military Commissions Expeditionary Legal Complex Guantanamo Bay, Cuba' stands close to where pre-trial hearings are being held for the detainees at the military prison on June 25, 2013 in Guantanamo Bay, Cuba. President Barack Obama has recently spoken again about closing the prison which has been used to hold prisoners from the invasion of Afghanistan and the war on terror since early 2002. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - JUNE 26: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) The entrance to Camp VI is seen at the U.S. military prison for 'enemy combatants' on June 26, 2013 in Guantanamo Bay, Cuba. President Barack Obama has recently spoken again about closing the prison which has been used to hold prisoners from the invasion of Afghanistan and the war on terror since early 2002. (Photo by Joe Raedle/Getty Images)
GUANTANAMO BAY, CUBA - JUNE 25: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) Prison cells are viewed in camp 6 where prisoners are housed in a communal facility at the U.S. military prison for 'enemy combatants' on June 25, 2013 in Guantanamo Bay, Cuba. President Barack Obama has recently spoken again about closing the prison which has been used to hold prisoners from the invasion of Afghanistan and the war on terror since early 2002. (Photo by Joe Raedle/Getty Images)
The US Naval Base in Guantanamo Bay, Cuba on August 9, 2013. AFP PHOTO/CHANTAL VALERY (Photo credit should read CHANTAL VALERY/AFP/Getty Images)
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During his two years as Pentagon chief, Hagel approved 44 detainee transfers. Carter, in his first seven months, has transferred six.

Pentagon press secretary Peter Cook issued a statement Saturday saying that Carter shares Obama's commitment to closing the detention facility ?responsibly and has been working "deliberately and diligently" on a comprehensive plan.

"Working with our interagency partners and Congress, his top priority has been and will continue to be the safety and security of the American people," Cook said.

Obama has promised to close the facility since he was a presidential candidate in 2008. He said it ran counter to American values to keep people in prison, many without criminal charges or due process.

Opponents have argued the detainees are essentially prisoners of war.

From a peak of 680 prisoners, 116 remain. Finding acceptable places for them has been an intractable problem.

"Finding a solution for these individuals involves complicated negotiations with international partners, extensive consultations with the leaders of the national security and legal organizations and final approval by me," Carter told reporters.

A key player in the process is Gen. Martin Dempsey, chairman of the Joint Chiefs of Staff. Dempsey, who spent more than three years as a commander in Iraq, continues to be very cautious in his recommendations for transfers. His opinions carry a lot of weight.

According to U.S. officials familiar with the process, Carter recently notified Congress of two transfers, and has four whose files are ready to go to Capitol Hill, likely later this month. Congress has 30 days to review the transfers before they are made public.

A number of U.S. officials familiar with the ongoing discussions spoke on condition of anonymity because they were not authorized to talk about the subject publicly.

The movement of detainees is only part of the challenge. A greater hurdle will be finding a U.S.-based prison to house the 64 detainees considered too dangerous to be sent to another country. Congress has opposed any effort to bring detainees to America, so Obama's long-stated goal of closing Guantanamo before he leaves office in January 2017 is more likely to die on the steps of Capitol Hill.

Aware of those objections, the White House last month stalled Pentagon efforts to send a plan to Congress outlining several U.S. prisons that could be upgraded and used for the detainees. Early drafts of the plan included some rough estimates of the costs and the time needed for renovations.

U.S. officials said the administration was worried that sending the plan to Congress could affect the crucial vote on the Iran nuclear deal by infuriating lawmakers who do not want the detainees moved to the U.S. or who adamantly oppose having them in a prison in their state or district. The resolution of disapproval of the Iran deal failed in the Senate, handing Obama a victory on that issue.

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Bid to shut Guantanamo roils Pentagon, White House, Congress
Washington, UNITED STATES: This undated handout photo received 27 April 2007 courtesy of Rewards for Justice shows Abd al-Hadi al-Iraqi. A top Al-Qaeda commander who led operations in Afghanistan and plotted the assassination of Pakistan's President Pervez Musharraf has been taken into US custody, a Pentagon spokesman said 27 April 2007. Abd al Hadi al-Iraqi, who was taken to Guantanamo Bay, Cuba within the past week, was intercepted as he was trying to reach Iraq to manage Al-Qaeda operations and possibly plot attacks against western targets outside Iraq, Pentagon spokesman Bryan Whitman said. Whitman said al-Iraqi 'was one of Al-Qaeda's highest ranking and senior operatives at the time of his detention.' AFP PHOTO/REWARDS FOR JUSTICE/HO/ RESTRICTED TO EDITORIAL USE (Photo credit should read HO/AFP/Getty Images)
In this Pentagon-approved sketch by court artist Janet Hamlin, presiding judge, Navy Capt. J. Kirk Waits addresses Hadi al Iraqi, who presses a button on his microphone so he can respond, during his arraignment at the Guantanamo Bay U.S. Naval Base in Cuba, Wednesday, June 18, 2014. Abd al-Hadi al-Iraqi was arraigned on five war crimes charges, largely for allegedly organizing attacks on U.S. and allied forces in Afghanistan. He faces up to life in prison. (AP Photo/Janet Hamlin, Pool)
In this Pentagon-approved sketch by court artist Janet Hamlin, Assistant U.S. Attorney Dept. of Justice Mikeal Clayton of the prosecution attends the arraignment of Hadi al Iraqi, at the Guantanamo Bay U.S. Naval Base in Cuba, Wednesday, June 18, 2014. A military judge arraigned Abd al-Hadi al-Iraqi on five war crimes charges, largely for allegedly organizing attacks on U.S. and allied forces in Afghanistan. He faces up to life in prison. (AP Photo/Janet Hamlin, Pool)
FILE - In this Nov. 18, 2008 file photo, reviewed by the U.S. Military, a female guard, bottom, and male guard escort a detainee who carries a book from the detainee library trailer to the detention facility in an open air common area at Camp Delta 4 on the U.S. Military Base in Guantanamo Bay, Cuba. Some prisoners in the highest-security unit of the Guantanamo Bay detention center have launched a protest against what they consider the religiously offensive use of female guards to move them around the U.S. base in Cuba, lawyers for the men say. (AP Photo/Brennan Linsley, File)
FILE - In this Dec. 6, 2006, file photo, reviewed by a U.S. Dept of Defense official, a shackled detainee is transported by guards away from his annual Administrative Review Board hearing with U.S. officials, at Camp Delta detention center, Guantanamo Bay U.S. Naval Base, Cuba. A resolution of a dispute over the use of female guards inside the secret Camp 7 at the Guantanamo Bay prison will have to wait until at least January, a U.S. military judge ruled Tuesday Nov. 18, 2014. Navy Capt. J.K. Waits agreed to a request by lawyers for an alleged al-Qaida commander to put off a hearing on the issue at the U.S. base in Cuba, according to Army Lt. Col. Myles B. Caggins, a Pentagon spokesman. (AP Photo/Brennan Llinsley, File)
In this photo reviewed by the U.S. military a communal area in an unused portion at Camp VI detention facility for captured al-Qaeda and Taliban militants is shown during a tour at Guantanamo Bay Naval Base, Cuba, at Guantanamo Bay Naval Base, Cuba, Tuesday, Nov. 19, 2013. (AP Photo/Charles Dharapak)
This image reviewed by the US military shot through a one way mirror shows guards moving a detainee from his cell in Cell Block A of the 'Camp Six' detention facility of the Joint Detention Group at the US Naval Station in Guantanamo Bay, Cuba, January 19, 2012. AFP PHOTO/Jim WATSON (Photo credit should read JIM WATSON/AFP/Getty Images)
GUANTANAMO BAY, CUBA - SEPTEMBER 16: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) A U.S. Navy sailor passes by a sign at the U.S. detention center for 'enemy combatants' on September 16, 2010 in Guantanamo Bay, Cuba. With attempts by the Obama administration to close the facility stalled, more than 170 detainees remain at the detention center, which was opened by the Bush administration after the attacks 9/11. The facility is run by the Joint Task Force Guantanamo, located on the U.S. Naval Station at Guantanamo Bay, which is the oldest American naval base outside of the continental United States. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - SEPTEMBER 16: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) A U.S. military guard walks out of the maximum security section of the U.S. detention center for 'enemy combatants' on September 16, 2010 in Guantanamo Bay, Cuba. With attempts by the Obama administration to close the facility stalled, more than 170 detainees remain at the detention center, which was opened by the Bush administration after the attacks of 9/11. The facility is run by the Joint Task Force Guantanamo, located at the U.S. Naval Station at Guantanamo Bay on the southeastern coast of Cuba. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - SEPTEMBER 16: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) U.S. military guards deliver lunch to detainees inside the U.S. detention center for 'enemy combatants' on September 16, 2010 in Guantanamo Bay, Cuba. With attempts by the Obama administration to close the facility stalled, more than 170 detainees remain at the detention center, which was opened by the Bush administration after the attacks of 9/11. The facility is run by the Joint Task Force Guantanamo, located on the U.S. Naval Station at Guantanamo Bay, which is the oldest American naval base outside of the continental United States. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - SEPTEMBER 15: (EDITORS NOTE: Image has been reviewed by the U.S. Military prior to transmission.) Portraits of the U.S. chain of command adorn the entrance of a military dining hall at the U.S. detention center on September 15, 2010 in Guantanamo Bay, Cuba. With attempts by the Obama administration to close the facility stalled, more than 170 detainees remain at the detention center. The facility is run by the Joint Task Force Guantanamo, located on the U.S. Naval Station at Guantanamo Bay, which is the oldest American naval base outside of the continental United States. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - SEPTEMBER 14: A sign stands at the U.S. naval base on September 14, 2010 at Guantanamo Bay, Cuba. The U.S. Naval Station at Guantanamo Bay houses the American detention center for 'enemy combatants'. The base was first established in 1903 and is the oldest American naval base outside the continental United States. (Photo by John Moore/Getty Images)
GUANTANAMO BAY, CUBA - OCTOBER 03: IMAGE REVIEWED BY U.S. MILITARY PRIOR TO TRANSMISSION U.S. Army public affairs soldiers escort journalists to the Northeast Gate, the only passage in the fenceline between Cuba and the U.S. Naval Station at Guantanamo Bay, October 3, 2007 in Guantanamo Bay, Cuba. The U.S. military and the Cuban military do hold meetings once a month at the crossing point to maintain good realations and to reduce misunderstandings between the forces. About 340 'enemy combatants' captured since the September 11, 2001 attacks on the United States continue to be held at the facility. (Photo by Chip Somodevilla/Getty Images)
GUANTANAMO BAY, CUBA - OCTOBER 03: IMAGE REVIEWED BY U.S. MILITARY PRIOR TO TRANSMISSION A large American flag is framed on the wall inside the Administrative Review Boards and Combatant Status Review Tribunals room inside the Camp Delta detention facility at the U.S. Naval Station at Guantanamo Bay October 3, 2007 in Guantanamo Bay, Cuba. Not technically a legal process, the tribunals 'provide an annual review to assess whether the detainees held at Guantanamo Bay present a threat to the U.S. or its allies,' according to the Office for the Administrative Review of the Detention of Enemy Combatants. Based on the tribunal's reccomendations, 199 detainees have been approved for release or transfer from Guantanamo. About 340 'enemy combatants' captured since the September 11, 2001 attacks on the United States continue to be held on the island. (Photo by Chip Somodevilla/Getty Images)
ADDS NAME OF FORMER PRISONER - Adel bin Muhammad El Ouerghi from Tunisia, a former prisoner at Guantanamo Bay, front left, carries groceries accompanied by a member of PIT-CNT, one of Uruguay's workers union, right, in Montevideo, Uruguay, Thursday, Dec. 11, 2014. El Ouerghi is one of six prisoners who were held for 12 years at Guantanamo Bay who arrived to Uruguay on Sunday as refugees amid a renewed push by President Barack Obama to close the prison. (AP Photo/Ines Guimaraens,Diario El Observador) NOT FOR USE IN URUGUAY WEBSITES OR PUBLICATIONS - NO PUBLICAR EN URUGUAY
ADDS NAME OF FORMER PRISONER - Adel bin Muhammad El Ouerghi from Tunisia, former prisoner at Guantanamo Bay, holds an Uruguayan flag as he stands on a balcony in Montevideo, Uruguay, Thursday, Dec. 11, 2014. El Ouerghi is one of six prisoners who were held for 12 years at Guantanamo Bay who arrived to Uruguay on Sunday as refugees amid a renewed push by President Barack Obama to close the prison. (AP Photo/Ines Guimaraens, Diario El Observador) NOT FOR USE IN URUGUAY WEBSITES OR PUBLICATIONS - NO PUBLICAR EN URUGUAY
An unidentified person shows to the press a pair of orange pants, similar to those worn by prisoners at Guantanamo, through a window at the residence where former Guantanamo prisoners are living in Montevideo, Uruguay, Friday, Dec. 12, 2014. Six prisoners held for 12 years at Guantanamo Bay arrived last Sunday as refugees in Uruguay amid a renewed push by President Barack Obama to close the prison. Among those transferred was Abu Wa'el Dhiab, a 43-year-old Syrian on a long-term hunger strike protesting his confinement who was at the center of a legal battle in U.S. courts over the military's use of force-feeding. The Pentagon identified the other Syrians sent to Uruguay as Ali Husain Shaaban, 32; Ahmed Adnan Ajuri, 37; and Abdelahdi Faraj, 33. Also released were Palestinian prisoner Mohammed Abdullah Taha Mattan, 35, and 49-year-old Adel bin Muhammad El Ouerghi of Tunisia. (AP Photo/Matilde Campodonico)
Uruguay's President Jose Mujica, second left, speaks surrounded by labor leaders Marcelo Abdala, left, Marcelo Pereira, second right, and Defense Minister Eluterio Fernandez, right, during a press conference at the workers union PIT-CNT in Montevideo, Uruguay, Tuesday, Dec. 16, 2014. Mujica says the United States has guaranteed that six former Guantanamo Bay prisoners who arrived in Uruguay as refugees are not terrorists. He showed a document from the U.S. State Department saying there's no information that "the men were involved in conducting or facilitating terrorist activities" against the U.S., its partners or allies. Members of Uruguay's opposition had requested the release of the documents. (AP Photo/Matilde Campodonico)
Former Guantanamo prison inmate Tunisian Abdul Bin Muhammad Abbas Ouerghi shows his Uruguayan identity card during lunch at a house in Canelones department, near Montevideo on December 14, 2014. AFP PHOTO / PABLO PORCIUNCULA (Photo credit should read PABLO PORCIUNCULA/AFP/Getty Images)
A lighthouse and old migrants boats on the ground of the marine museum, on Tuesday, Nov. 4, 2014 at the U.S. Navy base at Guantanamo Bay, Cuba in this photo approved for release by the U.S. military. (Walter Michot/Miami Herald/TNS via Getty Images)
FILE - In this undated file photo provided by the Sherburne County Sheriff Office, Zacarias Moussaoui is shown. Moussaoui, known as the "20th hijacker" in the 9/11 terror attacks is asking a South Florida federal judge for a transfer to the military prison at Guantanamo Bay, Cuba. The request is part of a rambling, handwritten letter filed Wednesday, Dec. 10, 2014, in Miami federal court. He is serving a life prison sentence after pleading guilty in 2005 to conspiring with the Sept. 11 hijackers to kill Americans. Moussaoui has been writing letters to courts around the country from his prison cell in Florence, Colorado, claiming inside knowledge about al-Qaida and the Sept. 11, 2001, plot. The letter filed in Miami repeats some of those claims. (AP Photo/Sherburne County, Minn., Sheriff's Office, File)
German-born Turkish Murat Kurnaz, a former Guantanamo detainee and author, gestures during a press conference on November 12, 2014 in Geneva after a session of the United Nations Committee against Torture (CAT). The US delegation was asked to explain why the US military prison at Guantanamo Bay in Cuba remains open, why many detainees remain there without charge and when Washington plans to shut it down. AFP PHOTO / FABRICE COFFRINI (Photo credit should read FABRICE COFFRINI/AFP/Getty Images)
British Moazzam Begg leaves Belmarsh Prison in south London, after his release, Wednesday, Oct. 1, 2014. British prosecutors dropped terrorism charges Wednesday against the former Guantanamo Bay detainee who is a high-profile advocate for the rights of terror suspects. Begg, who has been in prison for seven months awaiting trial, had been due to stand trial next week on seven counts relating to the war in Syria. But in a last-minute reversal, prosecutors acknowledged that new evidence had emerged that undermined the case. (AP Photo/Lefteris Pitarakis)
The six prisoners freed from Guantanamo are being resettled to Uruguay, instead of being sent home.
The original courtroom at the U.S. Navy base at Guantanamo Bay, Cuba in this photo approved for release by the U.S. military. (Walter Michot/Miami Herald/TNS via Getty Images)
Male and female Army soldiers enter a facility on Tuesday, Nov. 4, 2014 at the U.S. Navy base at Guantanamo Bay, Cuba in this photo approved for release by the U.S. military. (Walter Michot/Miami Herald/TNS via Getty Images)
People protest against "indefinite detentions" at Guantanamo Bay detention center and Bagram prison, in front of the White House, Friday, Oct. 24, 2014, in Washington. (AP Photo/Jacquelyn Martin)
An entrance sign near the quarters for guards at the U.S. military detention center at the Guantanamo Bay Naval Base in Cuba, June 7, 2014. (AP Photo/Ben Fox)
Cori Crider, lawyer of the Syrian national recently freed from Guantanamo prison Abu Wael Dhiab, speaks to the press outside of the Military Hospital in Montevideo on December 8, 2014. Six Guantanamo inmates transferred to Uruguay were to leave hospital in freedom after more than a decade in what one called the 'black hole' of the US military prison. AFP PHOTO/Pablo Porciuncula (Photo credit should read PABLO PORCIUNCULA/AFP/Getty Images)
A soldier stands guard at the entrance of the military hospital in Montevideo, Uruguay, Monday, Dec. 8, 2014. Six Guantanamo Bay prisoners sent to Uruguay to be resettled as refugees are undergoing medical checkups before being released to begin new lives, the country’s defense minister said Monday, and one issued a letter thanking Uruguay for taking them in. (AP Photo/Matilde Campodonico)
TO GO WITH STORY BY OMAR HASAN-- Khalid al-Odah, the father of Fawzi al-Odah, one of two Kuwaiti detainees still being held at Guantanamo Bay , holds his son’s picture, at his home in the Qurtuba district of Kuwait City on January 8,2012. Tens years since the opening of the US detention centre in Guantanamo Bay in Cuba, the families of remaining Arab detainees are tired of waiting despite US pledges to shut down the facility. Fawzi al-Odah and Fayez al-Kandari, the only two Kuwaitis still at the centre, 'may spend the rest of their lives in prison without trial,' said Odah's father, Khaled, who heads Gulf emirate's committee of the families of detainees. AFP PHOTO/YASSER AL-ZAYYAT (Photo credit should read YASSER AL-ZAYYAT/AFP/GettyImages)
Fawzi Al Odah of Kuwait imprisoned at #Guantanamo without any charge released after 13 years http://t.co/cYdmBN648p
Protesters dressed in orange prison outfits and black masks attend a demonstration outside the US embassy in Kuwait City on May 2, 2012, calling for the release of Kuwaiti prisoners still behind the bars at the US detention camp in Guantanamo Bay. Fawzi al-Odah and Fayez al-Kandari (portrait) are the only two Kuwaitis still held at the US prison. AFP PHOTO / YASSER AL-ZAYYAT (Photo credit should read YASSER AL-ZAYYAT/AFP/GettyImages)
Women attend a demonstration outside the US embassy in Kuwait City on May 2, 2012, calling for the release of Kuwaiti prisoners still behind the bars at the US detention camp in Guantanamo Bay. Fawzi al-Odah and Fayez al-Kandari are the only two Kuwaitis still held at the US prison. AFP PHOTO / YASSER AL-ZAYYAT (Photo credit should read YASSER AL-ZAYYAT/AFP/GettyImages)
This photo reviewed by the US military and made during an escorted visit shows a US naval medic explaining the 'feeding chair' procedures at the detention facility in Guantanamo Bay, Cuba, April 9, 2014. The chair is used during the procedures of forced feeding for detainees in hunger strike. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo reviewed by the US military and made during an escorted visit shows a US naval medic explaining the 'feeding chair' procedures at the detention facility in Guantanamo Bay, Cuba, April 9, 2014. The chair is used during the procedures of forced feeding for detainees in hunger strike. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo reviewed by the US military and made during an escorted visit shows a US naval medic explaining the 'feeding chair' procedures at the detention facility in Guantanamo Bay, Cuba, April 9, 2014. The chair is used during the procedures of forced feeding for detainees in hunger strike. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo reviewed by the US military and made during an escorted visit shows a US naval medic explaining the 'feeding chair' procedures at the detention facility in Guantanamo Bay, Cuba, April 9, 2014. The chair is used during the procedures of forced feeding for detainees in hunger strike. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
NEW YORK, NY - MAY 23: Protestors demand the closure of the Guantanamo Bay detention center, used by U.S. military forces to hold people indefinitely, in Times Square on May 23, 2014 in New York City. Organizers of the protest claimed the gathering was in coordination with protests happening in 40 other cities. (Photo by Andrew Burton/Getty Images)
NEW YORK, NY - MAY 23: Protestors demand the closure of the Guantanamo Bay detention center, used by U.S. military forces to hold people indefinitely, in Times Square on May 23, 2014 in New York City. Organizers of the protest claimed the gathering was in coordination with protests happening in 40 other cities. (Photo by Andrew Burton/Getty Images)
NEW YORK, NY - MAY 23: Protestors demand the closure of the Guantanamo Bay detention center, used by U.S. military forces to hold people indefinitely, in Times Square on May 23, 2014 in New York City. Organizers of the protest claimed the gathering was in coordination with protests happening in 40 other cities. (Photo by Andrew Burton/Getty Images)
NEW YORK, NY - MAY 23: Protestors demand the closure of the Guantanamo Bay detention center, used by U.S. military forces to hold people indefinitely, in Times Square on May 23, 2014 in New York City. Organizers of the protest claimed the gathering was in coordination with protests happening in 40 other cities. (Photo by Andrew Burton/Getty Images)
Protestors wearing orange prisoners' jumpsuits hold signs as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
Protestors wearing orange prisoners' jumpsuits hold signs as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
Protestors hold a sign and wear orange prisoners' jumpsuits as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
Protestors wearing orange prisoners' jumpsuits hold signs as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
Protestors hold signs as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
Protestors wearing orange prisoners' jumpsuits hold signs as they call for the closing of the Guantanamo Bay detention facility during a global day of action for the closing of the prison and the end of indefinite detention in front of the White House in Washington on May 23, 2014. The action comes one year after US President Barack Obama once again made the case for closing the detention facility at Guantánamo Bay in a speech at National Defense University. AFP PHOTO/Nicholas KAMM (Photo credit should read NICHOLAS KAMM/AFP/Getty Images)
WASHINGTON, DC - MAY 23: Tourists mingle with demonstrators urging President Barack Obama to fulfill his pledge to close the military prison in Guantanamo Bay, Cuba, and end indefinite detention during a rally outside the White House May 23, 2014 in Washington, DC. Organized by several groups, including The National Religious Campaign Against Torture, CODEPINK, Amnesty International, the Torture Abolition and Survivor Support Coalition and the Dorothy Day Catholic Worker, the protesters gathered to mark the anniversary of Obama's May 23, 2013 national security speech. (Photo by Chip Somodevilla/Getty Images)
This photo made during an escorted visit and reviewed by the US military, shows the razor wire-topped fence and a watch tower at the abandoned 'Camp X-Ray' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 9, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo made during an escorted visit and reviewed by the US military, shows the razor wire-topped fence and a watch tower at the abandoned 'Camp X-Ray' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 9, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo made during an escorted visit and reviewed by the US military shows the basic detainee belongings on display at a cell of 'Camp 5' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 8, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo made during an escorted visit and reviewed by the US military shows the signs otside the fence of 'Camp 6' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 8, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo made during an escorted visit and reviewed by the US military, shows the interogation room of the abandoned 'Camp X-Ray' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 9, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo made during an escorted visit and reviewed by the US military shows chains and handcuffs used at the medical center of 'Camp 5' detention facility at the US Naval Station in Guantanamo Bay, Cuba, April 8, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
This photo reviewed by the US military and made during an escorted visit shows a welcome board at the road to the US Naval Station in Guantanamo Bay, Cuba, April 7, 2014. AFP PHOTO/MLADEN ANTONOV (Photo credit should read MLADEN ANTONOV/AFP/Getty Images)
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Three to five civilian facilities are being eyed as potential sites, officials said. A Pentagon team has gone to military facilities in South Carolina and Kansas to develop better estimates of construction and other changes that would be needed to house the detainees as well as conduct military commission trials for those accused of war crimes.

The visits to the Navy Consolidated Brig in Charleston, South Carolina, and the United States Disciplinary Barracks at Fort Leavenworth in Kansas triggered immediate outrage from lawmakers and governors there.

Republican Govs. Nikki Haley of South Carolina and Sam Brownback of Kansas have threatened to sue the administration if detainees are brought to either state.

Both the House and Senate have pending legislation that would maintain prohibitions on transferring detainees to U.S. facilities. The Senate legislation allows the restrictions to be lifted if the White House submits a plan to close the facility and it's approved by Congress.

GOP Sen. John McCain of Arizona, chairman of the Senate Armed Services Committee, has made it known he would consider a comprehensive plan to close Guantanamo, but said it must include answers to a number of tough legal and policy questions, including whether detainees held in the U.S. would have additional rights.

Sen. Lindsey Graham, R-S.C., has opposed using the Charleston brig because it is in a populated area.

Sen. Pat Roberts, R-Kan., has said flatly that, "Not on my watch will any terrorist be placed in Kansas."

Carter has acknowledged the challenge of getting a U.S. facility approved by Congress, but has insisted that some lawmakers have indicated a willingness to consider a plan.

"This would be a good thing to do if — if we can all come together behind a plan to do it," Carter told reporters. "Our responsibility is to provide them with a plan that they can consider that is a responsible one."

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