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'RISK-AVERSE SYSTEM' President George W. Bush signed the law creating the tribunals on Oct. 17, 2006, after the U.S. Supreme Court struck down previous tribunals set up to try al Qaeda suspects, ruling that they violated U.S. military law and the Geneva Conventions. Obama took office in 2009 and vowed to close the prison. He approved legislation that included barring the use of evidence obtained under torture. The effort to close Guantanamo stalled amid opposition from Congress, with Republicans saying many of the prisoners are too dangerous to release. John Yoo, who helped draft the Bush administration's legal strategy after 9/11, said the Guantanamo courts were designed for plea bargaining to get suspects to cooperate with government intelligence agencies. The Supreme Court ruling "slowed the whole thing down, and it has become a risk-averse system that doesn't want to make another mistake," said Yoo, now a law professor at the University of California, Berkeley. Government interference is also an issue.

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