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Susan McDougal

Susan Carol Henley McDougal (born 1955) is an American former real estate broker who partnered with Bill and Hillary Clinton in the Whitewater Development Corporation, a 1970s Arkansas land venture aimed at developing vacation properties that ultimately failed amid financial irregularities.^[1]^[2] In 1996, McDougal was convicted on four felony counts—two of mail fraud, one of wire fraud, and one of misapplication of funds—for fraudulently diverting portions of a $300,000 federally backed Small Business Administration loan, originally designated for another project, to benefit Whitewater-related purchases.^[1]^[3]^[4] She served approximately two years in prison across multiple stints, including an 18-month term for civil contempt after invoking her Fifth Amendment rights and refusing to answer prosecutors' questions under immunity about the Clintons' knowledge and involvement in the loan transactions during independent counsel Kenneth Starr's Whitewater probe.^[5]^[6]^[3] McDougal's defiance drew national attention as a test of loyalty amid allegations that the investigation targeted the Clintons politically, though her convictions stemmed from documented financial misuses verified in federal court; she was pardoned by President Bill Clinton in 2001 solely for the underlying fraud offenses, sparing her from further supervised release but not retroactively nullifying her contempt incarceration.^[7]^[8]

Early Life and Education

Childhood and Family Background

Susan McDougal was born Susan Carol Henley in 1955 in Heidelberg, West Germany, as the middle child of seven siblings in a close-knit family.^[9] ^[10] Her father, James Henley, was a career U.S. Army sergeant from Camden, Arkansas, who had served in multiple conflicts before transitioning to civilian life by operating a service station in rural Arkansas after the family's return to the United States.^[10] ^[11] Her mother, Laurette Mathieu Henley, was Belgian-born and had begun studies to become a pharmacist before the Nazi invasion of Belgium prompted her flight to England, where she met James Henley during his military service.^[9] The Henleys settled in Camden, a small sawmill town in southern Arkansas, where Susan spent her childhood in modest circumstances amid a boisterous household.^[12] ^[11] She attended local public schools, growing up in an environment shaped by her father's military discipline and the family's relocation from overseas postings to the American South.^[12] This upbringing instilled values of family loyalty, which McDougal later cited as influential in her personal resolve.^[13]

Marriage and Initial Business Involvement

Susan Henley met James B. "Jim" McDougal, a professor at Ouachita Baptist University where she was a student, during her time in college in Arkadelphia, Arkansas.^[14] The two, with McDougal being fifteen years her senior, began a courtship that culminated in their marriage on May 23, 1976, shortly after Henley's graduation from the university.^[15] The ceremony was officiated by former Arkansas Lieutenant Governor Bob Riley and took place in Little Rock.^[1] Following the marriage, McDougal left his academic position at Ouachita Baptist University, and the couple relocated to Little Rock to pursue opportunities in the real estate sector.^[15] They began collaborating on property ventures, with Jim McDougal leveraging his experience in land development and Susan contributing to the operations of their joint endeavors.^[14] This marked Susan McDougal's entry into business, focusing initially on identifying and investing in Arkansas real estate deals amid the state's growing economic activity in the late 1970s.^[16] Their partnership emphasized high-risk, speculative projects typical of the era's savings and loan landscape, setting the stage for later expansions into savings institutions and development partnerships.^[15]

Real Estate and Financial Ventures in Arkansas

Madison Guaranty Savings and Loan

In January 1982, James McDougal acquired the small Woodruff Savings & Loan Association in Kingston, Arkansas, renaming it Madison Guaranty Savings and Loan and relocating its headquarters to Little Rock to pursue aggressive expansion in commercial real estate lending.^[17] The institution, insured by the Federal Savings and Loan Insurance Corporation, rapidly grew its assets through high-risk loans to insiders and speculative developments, including projects tied to McDougal's affiliated entities like Madison Financial Corporation.^[18] Susan McDougal, who married James McDougal in 1983, assumed a co-ownership and operational role through Madison Financial Corporation, serving as a director of Madison Guaranty alongside her husband.^[1]^[19] She participated in insider transactions, including personal loans from the institution dating back to March 1982 and using its funds for personal and affiliated benefits, as documented in regulatory examinations that highlighted self-dealing and misuse by principals.^[19] Susan also handled non-financial aspects, such as interior decorating for the Little Rock offices in 1985, billing records for which involved consultations with external parties.^[19] By May 1984, a Federal Home Loan Bank Board examination revealed severe deficiencies, prompting a supervisory agreement to curb risky practices, though compliance remained inadequate amid ongoing speculative lending.^[17] In July 1986, federal regulators removed James and Susan McDougal as directors due to the institution's deepening insolvency, misconduct, and insider abuses, installing new management in an effort to salvage operations.^[17]^[19] Madison Guaranty deteriorated further, entering conservatorship under the Federal Savings and Loan Insurance Corporation in February 1989 before its ultimate failure, resulting in taxpayer losses exceeding $73 million from fraudulent loans, phony appraisals, and self-dealing—hallmarks of the broader 1980s savings and loan crisis.^[17]^[19]^[18] Susan McDougal's involvement drew later scrutiny, culminating in her 1996 conviction for bank fraud tied to a $300,000 loan originated in 1984 during the period of McDougal control, involving misapplication of funds and misrepresentation to secure Small Business Administration guarantees.^[1]

Capital Management Services Operations

Capital Management Services, Inc. (CMS), based in Little Rock, Arkansas, functioned as a Specialized Small Business Investment Company (SSBIC) licensed by the Small Business Administration (SBA) to extend federally leveraged loans to small businesses owned by socially or economically disadvantaged individuals, including women and minorities.^[20] Established in the early 1980s by David Hale, a former municipal judge, CMS raised private capital and obtained SBA matching funds to support its lending activities, with operations centered on evaluating loan applications, disbursing funds, and monitoring repayment.^[21] However, a 1994 Government Accountability Office (GAO) review documented systemic deficiencies in CMS's operations, including inadequate board oversight, failure to adhere to SBA regulations on eligible borrowers, and insufficient documentation for loan purposes, which enabled misuse of funds.^[20] In practice, CMS's lending portfolio included high-risk loans that deviated from its mandate, such as extensions to entities lacking disadvantaged ownership or viable business plans.^[21] One notable transaction involved a $300,000 loan approved on March 13, 1986, to Master Marketing, a firm controlled by Susan McDougal and described in the application as a general marketing company serving Madison Guaranty Savings & Loan, her husband's institution.^[22] McDougal personally collected the check from CMS, signed the documents, and directed the proceeds, which federal prosecutors later traced primarily to personal uses and inflated real estate deals like Castle Grande rather than legitimate marketing operations.^[23] This loan exemplified operational lapses, as CMS approved it despite discrepancies in the borrower's qualifications and without verifying fund usage, contributing to McDougal's 1996 conviction on two counts of mail fraud and one count each of misapplication of SBA funds and aiding/abetting in connection with the transaction.^[24] CMS's broader operations intertwined with Arkansas political and financial networks, including alleged influence from state officials to facilitate loans, as claimed by Hale in testimony linking the McDougal loan to pressures during her 1986 divorce from James McDougal.^[25] Hale asserted the loan helped McDougal maintain liquidity amid personal financial strains, though he himself faced fraud charges for unrelated CMS misrepresentations to the SBA.^[26] GAO audits further revealed that CMS disbursed over $1 million in questionable loans, including to insiders, prompting SBA revocation of its license in 1993 after cumulative defaults exceeded regulatory thresholds.^[21] These irregularities underscored CMS's role in facilitating opaque financial flows within Arkansas's savings and loan sector, rather than fostering targeted small business growth.^[27]

The Whitewater Development Corporation

Partnership Formation with the Clintons

The partnership between Susan McDougal, her husband James McDougal, and Bill and Hillary Clinton originated from a longstanding acquaintance between James McDougal and Bill Clinton, who first met in 1968 while working on U.S. Senator J. William Fulbright's reelection campaign in Arkansas. James McDougal, a real estate investor and former Fulbright staffer, later approached the Clintons with a proposal for a joint land development venture in the Ozark Mountains, leveraging McDougal's experience in property deals. Susan McDougal, then Susan Henley and recently married to James since 1976, participated as a co-investor alongside her husband, contributing to the couple's half-share in the partnership.^[15]^[28] In late 1978, the two couples jointly acquired 230.24 acres of undeveloped land near Flippin, Arkansas, for approximately $203,000, financed primarily through loans from local banks including $182,000 from a federally insured institution, with the intent to subdivide and sell lots for vacation cabins marketed to out-of-state buyers. The McDougals covered most upfront costs and managed initial promotions, while the Clintons provided limited personal funds but shared equal ownership stakes—each couple holding 50 percent of the entity. This arrangement formalized their collaboration without requiring the Clintons to contribute additional capital beyond the initial investment.^[29]^[28]^[30] The Whitewater Development Corporation was officially incorporated on June 18, 1979, in Arkansas, with the land title transferred to the new entity shortly thereafter; James McDougal served as president, Susan McDougal as secretary, and the Clintons as vice presidents. The partnership's structure reflected the McDougals' active role in operations, including advertising and sales efforts, while the Clintons maintained a more passive involvement amid Bill Clinton's rising political career, which included his election as Arkansas governor in November 1978. Early sales were modest, with only a handful of lots sold by 1980, setting the stage for ongoing financial dependencies on McDougal's related banking ventures.^[29]^[15]^[28]

Loan Irregularities and Project Failures

Capital Management Services (CMS), an affiliate of Madison Guaranty Savings and Loan where Susan McDougal served as president, originated numerous loans that violated federal regulations, including inadequate collateral, falsified documentation, and diversion of funds for unauthorized purposes.^[28] These practices, overseen by McDougal, enabled insider transactions that propped up related ventures but eroded Madison's capital base.^[29] Federal regulators, including the Federal Home Loan Bank Board, identified such loans as unsafe, issuing cease-and-desist orders in 1986 for improper lending.^[29] A prominent example involved a $300,000 loan issued by CMS on April 3, 1986, to Master Marketing, an entity controlled by McDougal and misrepresented as a disadvantaged business for advertising services under a Small Business Administration program.^[28] Proceeds were misapplied, with $111,524 directed to repay a prior Flowerwood Farms loan at Stephens Security Bank, $25,000 used as a down payment on Lorance Heights property linked to Whitewater Development Corporation, and the remainder for personal or unrelated expenses; the loan was never repaid.^[28] McDougal signed the relevant documents and facilitated the diversions, constituting mail fraud via a false SBA Form 1031 and misapplication of funds.^[22] McDougal was convicted on May 28, 1996, of two counts of mail fraud, two counts of wire fraud, one count of misapplication of funds, and three counts of aiding and abetting in connection with the CMS loan scheme.^[1] She was sentenced to two years in prison on August 21, 1996, highlighting judicial findings of deliberate misrepresentation to secure federally backed financing.^[31] These irregularities contributed to the broader failure of Whitewater Development Corporation, a 1978 real estate partnership that accumulated $88,000 to $193,000 in losses by 1986 due to unsold lots, inaccessible land, and insufficient revenue to service debts like a $20,000 origination loan from Union National Bank.^[29] Diverted Madison funds temporarily masked Whitewater's insolvency but could not prevent foreclosure and default, as the project generated no viable returns.^[28] Madison Guaranty itself collapsed in 1989 after years of such risky lending, requiring a $73 million taxpayer bailout, as confirmed by federal banking regulators.^[32]

Investigations and Criminal Proceedings

The federal probes into the Whitewater Development Corporation and affiliated entities, such as Madison Guaranty Savings and Loan Association and Capital Management Services (CMS), stemmed from the RTC's oversight of Madison Guaranty's insolvency. Madison Guaranty, an Arkansas thrift institution where Susan McDougal functioned as a corporate officer, was seized by regulators on March 7, 1989, after engaging in high-risk lending that depleted its capital; the failure imposed taxpayer costs exceeding $60 million.^[33] RTC examiners, reviewing the institution's records, documented systemic irregularities including fraudulent self-dealing loans, unauthorized insider advances, and fictitious transactions designed to inflate assets.^[18] McDougal, alongside her then-husband James McDougal, faced early regulatory scrutiny for these practices, having been compelled to resign from Madison Guaranty in July 1986 following a Federal Home Loan Bank Board examination that flagged violations.^[17] A pivotal aspect of the RTC's inquiry involved loans linking Madison to Whitewater, a real estate venture co-owned by the Clintons and the McDougals; for instance, McDougal attended board meetings as a director of Madison Bank's affiliate where a $300,000 loan to Whitewater was approved despite inadequate collateral.^[28] The RTC generated at least 10 criminal referrals to the Department of Justice between 1990 and 1993 detailing potential felonies at Madison, including one on September 2, 1992, prepared by RTC criminal investigator L. Jean Lewis, which identified the Clintons as witnesses to McDougal's alleged misconduct in diverting thrift funds.^[34]^[35] These referrals underscored causal links between Madison's collapse—driven by lax oversight and speculative deals—and broader financial entanglements, though initial DOJ responses were delayed amid political transitions.^[29] Parallel federal attention targeted CMS, a Small Business Administration-certified investment firm under McDougal's management, which received over $300,000 in federally guaranteed loans but channeled funds into improper channels. A key irregularity was a 1986 SBA-backed $300,000 disbursement from CMS to McDougal personally for "Master Marketing," a purported enterprise that produced no verifiable business activity, instead facilitating personal expenditures and sham flips to evade lending restrictions.^[20] Government Accountability Office audits confirmed inadequate SBA monitoring enabled such diversions, contributing to referrals integrated into the Whitewater probe.^[21] Escalation occurred with the invocation of the independent counsel statute; Attorney General Janet Reno appointed Robert B. Fiske Jr. on January 20, 1994, to probe Whitewater and Madison matters, but a special judicial division replaced him with Kenneth W. Starr on August 5, 1994.^[36] Starr's office, operating until 1998, coordinated with RTC data to investigate McDougal's operational roles across entities, yielding evidence of deliberate fraud in loan origination and fund misuse that violated federal banking and securities laws.^[37] These probes prioritized empirical reconstruction of transactions over partisan narratives, though congressional oversight later critiqued early executive branch handling for potential conflicts.^[38]

Fraud Conviction and Sentencing

In May 1996, after a three-month federal trial in Little Rock, Arkansas, Susan McDougal was convicted on two counts of felony fraud related to illegal loans from Madison Guaranty Savings and Loan, the institution owned by her then-husband James McDougal.^[31] ^[3] The charges centered on her role in securing approximately $300,000 in fraudulent loans through her company, Capital Management Services, which were misrepresented as legitimate business transactions but diverted for personal expenses and other unauthorized uses, including political contributions.^[22] Co-defendants James McDougal and Arkansas Governor Jim Guy Tucker were convicted on multiple counts of fraud and conspiracy in the same trial, with James McDougal facing 18 felony convictions while cooperating with prosecutors.^[31] On August 20, 1996, U.S. District Judge George Howard Jr. sentenced McDougal to two years in prison for the fraud convictions, a term within federal guidelines for the offenses.^[39] ^[40] Her defense attorney argued the prosecution aimed to coerce testimony against President Bill Clinton in the broader Whitewater investigation, but the judge rejected claims of vindictive prosecution and imposed the sentence.^[39] McDougal remained free on bond pending appeal, though her convictions were ultimately upheld.^[23]

Contempt of Grand Jury and Imprisonment

Refusal to Testify Before Kenneth Starr's Investigation

Following her conviction on two felony counts of fraud related to illegal loans from Madison Guaranty Savings and Loan on May 28, 1996, Susan McDougal was subpoenaed to appear before a federal grand jury in Little Rock, Arkansas, impaneled as part of Independent Counsel Kenneth Starr's investigation into the Whitewater development and associated financial transactions involving the Clintons.^[41] The probe sought her testimony on matters including her business dealings with Bill and Hillary Clinton, specifically regarding loans funneled through Capital Management Services and potential knowledge of unreported campaign contributions or improper uses of funds from the failed savings and loan.^[3] On September 4, 1996, McDougal appeared before the grand jury but refused to respond to prosecutors' questions after being asked three initial inquiries, invoking her Fifth Amendment right against self-incrimination despite having been granted use immunity by Starr's office, which eliminated the risk of prosecution based on her testimony.^[42]^[43] U.S. District Judge George Howard Jr. ruled that the immunity rendered her Fifth Amendment claim invalid, as truthful answers could not incriminate her.^[44] McDougal maintained that her silence was necessary to avoid what she described as a setup for perjury charges, asserting that Starr's team would disbelieve any exculpatory statements about the Clintons and twist her words to fabricate evidence of their involvement in wrongdoing.^[9] She later elaborated in public statements and her 2003 memoir that the investigation's aggressive tactics, including repeated summonses and perceived conflicts of interest among prosecutors, convinced her that cooperating would require lying to implicate the Clintons, whom she insisted had no knowledge of fraudulent activities at her firms.^[45]^[46] Starr's office countered that her refusal obstructed the inquiry into verifiable financial irregularities, such as the diversion of federally insured deposits to political and personal uses, and that immunity provided full protection for honest testimony.^[47] Throughout subsequent appearances, including one on April 23, 1998, after her release from initial incarceration, McDougal persisted in her defiance, answering no substantive questions and reiterating concerns over the investigation's motives.^[47] This stance, unique among Whitewater figures who cooperated under pressure, highlighted tensions between individual resistance to compelled testimony and the legal imperative to uncover evidence in cases involving public officials.^[48]

Civil and Criminal Contempt Rulings

In September 1996, following Susan McDougal's refusal to testify before a federal grand jury investigating the Whitewater affair as part of Independent Counsel Kenneth Starr's probe, U.S. District Judge Susan Webber Wright held her in civil contempt of court pursuant to 28 U.S.C. § 1826.^[3]^[42] McDougal was sentenced to up to 18 months in federal prison, the statutory maximum, until she agreed to testify or the grand jury's term expired; the ruling stemmed from her invocation of the Fifth Amendment despite a grant of immunity that negated self-incrimination risks.^[3]^[49] She served the full term without cooperating, including periods in solitary confinement, and was released in July 1998 after the grand jury expired, having also begun serving time on her prior Whitewater fraud conviction.^[3]^[50] Subsequently, on May 4, 1998, a federal grand jury in Little Rock indicted McDougal on two counts of criminal contempt of court and one count of obstruction of justice, alleging willful defiance of court orders to testify about her knowledge of Bill and Hillary Clinton's financial dealings in the Madison Guaranty Savings and Loan and related entities.^[51] The criminal contempt charges specifically targeted her refusals on two separate occasions before the grand jury, independent of the civil proceeding.^[52]^[3] McDougal's trial on the criminal charges began in March 1999 before U.S. District Judge George Howard Jr., after Judge Wright recused herself due to prior involvement in the civil contempt matter.^[53]^[54] On April 12, 1999, the jury acquitted her of obstruction of justice but deadlocked 7-5 in her favor on the two criminal contempt counts, resulting in a mistrial on those charges.^[55]^[56] Prosecutors from Starr's office expressed intent to retry the contempt counts but ultimately declined, citing the jury's strong lean toward acquittal and resource constraints amid the ongoing Lewinsky investigation.^[56]^[54] No further convictions arose from these proceedings, distinguishing them from her earlier civil contempt incarceration.^[3]

Additional Legal Challenges

Obstruction of Justice Indictment

In May 1998, a federal grand jury in Little Rock, Arkansas, indicted Susan McDougal on one count of obstruction of justice and two counts of criminal contempt stemming from her repeated refusals to testify before grand juries investigating the Whitewater scandal and related financial dealings involving the Clintons.^[57]^[3] The obstruction charge specifically alleged that McDougal had willfully impeded the grand jury process by failing to provide truthful testimony after being granted immunity and ordered by a federal judge to answer questions about loans from Madison Guaranty Savings and Loan, including a $300,000 loan to Bill Clinton that was never repaid.^[51] Prosecutors from Independent Counsel Kenneth Starr's office argued that her silence, despite immunity stripping her of Fifth Amendment protections, constituted an intent to obstruct the inquiry into potential fraud and influence peddling tied to the Clintons' real estate ventures.^[58] McDougal's refusals dated back to September 1996, when she first declined to answer over 100 grand jury questions, leading to an initial 18-month sentence for civil contempt upon her release from a prior fraud conviction; she was subpoenaed again in August 1997 and invoked similar non-responses, prompting the criminal escalation.^[59] During the 1998 proceedings, McDougal maintained she could not recall key details without risking perjury and expressed fear of politically motivated prosecution, though immunity legally compelled her cooperation.^[3] The indictment highlighted discrepancies in her prior statements, such as her knowledge of Capital Management Services (CMS), a firm linked to Whitewater that allegedly funneled unreported funds, as evidence of her capacity to provide relevant testimony.^[60] McDougal's trial on these charges began in March 1999 in the U.S. District Court for the Eastern District of Arkansas.^[49] On April 12, 1999, the jury acquitted her of the obstruction of justice count after deliberating for several days, finding insufficient evidence of willful intent to obstruct beyond mere refusal.^[61] The panel deadlocked 7-5 in favor of acquittal on one contempt charge related to the 1996 refusal, leading to a mistrial on that count, while deliberations on the second contempt charge were not fully resolved in initial reports; subsequent proceedings resulted in her conviction on criminal contempt, though the obstruction acquittal stood.^[56]^[3] The outcome was viewed by Starr's team as a setback in compelling testimony from Whitewater principals, amid criticisms of the investigation's scope.^[62]

Presidential Pardon and Aftermath

On January 20, 2001, President Bill Clinton granted Susan McDougal a full and unconditional pardon for her 1996 convictions on two felony counts in the U.S. District Court for the Eastern District of Arkansas: mail fraud under 18 U.S.C. § 1341 and aiding and abetting the misapplication of Small Business Investment Corporation funds under 18 U.S.C. § 657.^[63] ^[64] The pardon, issued among 140 others on Clinton's final full day in office, effectively erased the criminal record associated with those convictions, though McDougal had already served approximately 3.5 months of her original two-year fraud sentence before release due to health issues, followed by extended incarceration for contempt.^[65] ^[66] McDougal learned of the pardon while watching television coverage and stated publicly that she had not anticipated it, emphasizing her ongoing resentment toward Independent Counsel Kenneth Starr for what she described as a politically motivated probe.^[1] ^[67] In the immediate aftermath, she described the action as enabling a "fresh start," allowing her to move forward without the lingering legal stigma of the fraud charges, though she maintained her innocence regarding involvement with the Clintons in Whitewater irregularities.^[68] By April 2001, McDougal settled a lingering 1999 civil lawsuit tied to the Whitewater investigation, resolving outstanding financial claims without admitting liability.^[7] The pardon drew scrutiny as part of broader criticism of Clinton's end-of-term clemency grants, with observers noting McDougal's status as a former business associate who had refused to testify against him, though no direct evidence of quid pro quo emerged in contemporaneous reporting.^[69] McDougal subsequently focused on personal recovery, avoiding further federal entanglements related to the scandal.^[7]

Post-Incarceration Life

Release and Professional Reentry

Susan McDougal completed her 18-month civil contempt sentence on March 4, 1998, after refusing to testify before the grand jury investigating President Bill Clinton.^[3] She then began serving her two-year sentence for the 1996 Whitewater-related fraud convictions but was released early on July 15, 1998, after serving approximately four months, due to severe back pain requiring surgery; a federal judge granted her compassionate release to home confinement pending the procedure.^[3]^[12] During this period, she underwent spinal surgery and recovered under supervised conditions.^[70] Following her physical release, McDougal faced ongoing legal hurdles, including an indictment for obstruction of justice in 1998 related to alleged witness tampering during her contempt imprisonment; she was acquitted on all counts in September 1999 after a trial in Los Angeles federal court.^[3] On January 20, 2001, President Clinton issued a full pardon for her fraud convictions during his final hours in office, commuting the remaining portion of her sentence and restoring her civil rights, which had been restricted by the felonies.^[63]^[65] This pardon effectively cleared her record of the Whitewater felonies, enabling broader societal reintegration without the stigma and limitations of ongoing felony status.^[64] Professionally, McDougal maintained a low profile in the immediate years after her release and pardon, focusing on resolving prior civil disputes, such as a 2001 settlement with former employers Zubin Mehta and Nancy Kovack over pre-prison embezzlement allegations from her time as their property manager.^[7] By 2011, after completing chaplain training, she entered public service as a chaplain at the University of Arkansas for Medical Sciences (UAMS), a role she has held since June of that year, providing spiritual support in a medical context.^[1] She has also engaged in public speaking on the conditions faced by women in prisons, drawing from her own incarceration experiences across seven facilities.^[1] These activities represent her reentry into professional spheres emphasizing advocacy and caregiving, distinct from her earlier real estate involvement.^[1]

Memoir Publication and Public Commentary

In 2003, Susan McDougal published her memoir The Woman Who Wouldn't Talk: Why I Refused to Testify Against the Clintons & What I Learned in Jail, co-written with Pat Harris and featuring an introduction by journalist Helen Thomas.^[71] The book, released on January 20, 2003, by Carroll & Graf Publishers, details McDougal's involvement in the Whitewater investigations, her conviction for bank fraud in 1996, and her subsequent 18-month imprisonment for civil and criminal contempt after refusing to testify before Independent Counsel Kenneth Starr's grand jury.^[72] McDougal attributes her silence to a belief that testifying would require her to commit perjury, as she claimed to lack knowledge of impeachable offenses by the Clintons, and portrays Starr's probe as a politically motivated pursuit exceeding its original Whitewater scope.^[73] The memoir also recounts McDougal's experiences across seven federal facilities, including solitary confinement and health issues like a reported heart attack, which she links to the stress of incarceration.^[45] Reviews noted gaps in her recollection of events but emphasized her narrative of personal resilience amid legal pressures, without introducing new evidentiary claims against or exonerating the Clintons beyond her prior statements.^[72] Following her 2001 pardon by President Bill Clinton, McDougal engaged in public commentary through interviews, expressing enduring resentment toward Starr, whom she accused of vindictive tactics during her imprisonment.^[67] In a January 22, 2001, CBS News interview, she stated she had not anticipated the pardon—learning of it via television—and affirmed she would "never forgive" Starr for what she described as abusive treatment, including repeated jailings despite her fraud conviction having been served.^[67] A 2003 CBS appearance tied to the memoir reiterated her post-release isolation from the Clintons until the pardon, framing her ordeal as a stand against coerced testimony lacking factual basis.^[74] By 2004, McDougal indicated plans for a second book focusing on female inmates encountered during her sentence, while participating in fundraising efforts, though specifics on the project's completion remain undocumented.^[75] Her commentary consistently maintained that no incriminating Clinton-related evidence existed to compel her cooperation, aligning with her trial testimony under immunity where she invoked memory lapses for over 200 questions.^[45]

Controversies and Interpretations

Claims of Political Persecution

Susan McDougal asserted that Independent Counsel Kenneth Starr's investigation was politically motivated, aimed at obtaining incriminating information against President Bill Clinton and Hillary Clinton rather than pursuing legitimate inquiries into financial misconduct. In a 1997 interview, she stated that she had offered Starr's team three times to recount the facts of events but was denied, as they insisted on questions focused on the Clintons.^[76] McDougal refused to testify before Starr's grand jury, citing fears of a "perjury trap" where truthful answers would be twisted to fabricate charges against her for contradicting witnesses like David Hale, who had implicated the Clintons in improper loans.^[77]^[46] McDougal described Starr's tactics as demanding she lie to save herself, expressing lasting bitterness toward him for this alleged coercion.^[67] She portrayed her subsequent contempt imprisonment as the consequence of resisting a partisan effort, claiming the prosecutors sought to use her as a tool to damage the Clintons politically. Supporters echoed these allegations; Hillary Clinton labeled Starr a "politically motivated prosecutor who is allied with the right-wing opponents" of her husband.^[78] President Clinton referred to McDougal's treatment as "persecution," framing the broader independent counsel probe as part of a "grand design" against his administration.^[79] McDougal conducted a media campaign positioning herself as a "political prisoner" of Starr, emphasizing her refusal to participate in what she viewed as an unjust witch hunt.^[80] In her 2003 memoir The Woman Who Wouldn't Talk, she detailed these experiences, arguing that the investigation's relentless pressure on Whitewater associates like herself stemmed from ideological opposition to the Clintons rather than evidence of their wrongdoing. These claims were advanced primarily by McDougal and Clinton allies amid the highly partisan context of the late 1990s, where Starr's expansion of the probe into personal matters intensified accusations of bias from Democratic sources.^[46]

Evidence of Fraudulent Activities and Accountability

Susan McDougal was convicted on May 28, 1996, in the United States District Court for the Eastern District of Arkansas on four felony counts related to a fraudulent $300,000 loan guaranteed by the Small Business Administration (SBA).^[22] The convictions stemmed from her role in obtaining the loan through Capital Management Services (CMS), a firm controlled by her then-husband James McDougal, by submitting a false SBA Form 1031 that misrepresented the funds as operating capital for "Master Marketing," a purported minority-owned consulting business that lacked any verifiable existence, such as tax records or business accounts.^[22] Instead, the loan proceeds were diverted to personal uses, including repaying $153,370.57 in existing debts and purchasing $45,000 in new land, constituting mail fraud (18 U.S.C. § 1341), aiding and abetting misapplication of loan funds (18 U.S.C. § 657), aiding and abetting false entries in financial reports (18 U.S.C. § 1006), and aiding and abetting false statements to influence the loan (18 U.S.C. § 1014).^[22] Trial evidence included testimony from David Hale, a former municipal judge and CMS associate who corroborated the scheme's mechanics; loan documentation showing the misrepresentation; bank records tracing fund diversions; and the absence of operational proof for Master Marketing, demonstrating the loan's fraudulent procurement to inflate CMS's capital for further SBA backing.^[22] These activities were linked to broader irregularities at Madison Guaranty Savings and Loan, where McDougal served as an officer, though the convictions specifically addressed the CMS loan fraud rather than direct Whitewater Development ties.^[3] The Eighth Circuit Court of Appeals upheld the convictions in 1998, rejecting challenges to the sufficiency of evidence and jury instructions.^[22] On August 21, 1996, McDougal was sentenced to two years in federal prison for the fraud counts.^[39] She did not begin serving this term immediately, as subsequent civil and criminal contempt proceedings for refusing to testify in the Whitewater investigation delayed it until March 1998, following the expiration of her contempt sentence.^[3] After serving approximately four months of the fraud sentence, she was released in July 1998 due to severe back pain requiring surgery, with the court later reducing the term to time served plus 90 days of home detention.^[3] On January 20, 2001, President Bill Clinton issued a full and unconditional pardon for McDougal's 1996 fraud convictions, nullifying the remaining penalties and restoring her rights, amid criticism that it rewarded her refusal to cooperate with investigators probing Clinton-related matters.^[68]^[66]

References

[1]
Susan Carol Henley McDougal (1955–) - Encyclopedia of Arkansas
Dec 2, 2024 · McDougal herself was convicted of four felonies: mail fraud, wire fraud, misapplication of funds, and aiding and abetting, charges stemming from ...
[2]
The Whitewater Scandal: What You Should Know - Investopedia
The Clintons partnered with James and Susan McDougal to purchase 230 acres of land to build and sell vacation homes. ... "Whitewater Partner Jim McDougal Dies In ...Whitewater Development... · The Whitewater Investigation · Outcome
[3]
The trials and tribulations of Susan McDougal - April 8, 1999 - CNN
Apr 12, 1999 · Legally, McDougal's troubles break into four proceedings: First, she was tried and convicted in May 1996 on Whitewater-related fraud charges.
[4]
frontline: once upon a time in arkansas: Clinton deposition - PBS
Susan McDougal was convicted for fraudulently obtaining a $300,000 loan from a Small Business Administration-backed lending operation run by Little Rock ...
[5]
Susan McDougal Goes to Jail For Not Testifying on Clinton
Sep 10, 1996 · After refusing to testify under immunity last Wednesday, Mrs. McDougal was cited for contempt and given until this morning to either cooperate ...
[6]
Susan McDougal Cited For Contempt - Time Magazine
Sep 6, 1996 · LITTLE ROCK: Susan McDougal, the Clintons' convicted former business partner, was held in contempt of court Wednesday for refusing to answer ...
[7]
Susan McDougal, Happy at Last - Los Angeles Times
May 24, 2001 · McDougal, who was pardoned of her Whitewater convictions by outgoing President Bill Clinton in January, last month quietly settled the 1999 ...
[8]
Only In Arkansas: Lawyer McDougal - CBS News
Apr 19, 2007 · McDougal was pardoned for her conviction on Whitewater-related fraud charges, so that wouldn't block her from joining the bar. But legal ...
[9]
Susan Mcdougal's Silence | The New Yorker
Feb 10, 1997 · Susan's father, James, was a career military man. Her mother, Lorette, is Belgian by birth. She was studying to be a pharmacist when the Nazis ...
[10]
McDougal keeps her silence, in jail Whitewater figure refuses to ...
Susan, the middle child, was born in Germany in 1955 — and settled in rural Arkansas, where James ran a service station ...
[11]
Key Whitewater Figure to Come Forward : Probe: Susan McDougal ...
Mar 12, 1994 · From humble beginnings in Camden, Ark.--one of seven children born to a soldier father and Belgium-born immigrant mother--she became a highly ...
[12]
Though Set Free, Susan McDougal Remains Fettered
Jun 29, 1998 · If convicted, the woman who chose to endure nearly two years of incarceration rather than tell Mr. Starr what she knew about President Clinton's ...
[13]
Jail Provides 'Some Relaxation' From Troubles, Mcdougal Says
Jun 1, 1997 · Reared a Baptist, the fourth of seven kids born to an Army sergeant who fought in two wars, McDougal attributes her resolve to family honor.Missing: children | Show results with:children<|separator|>
[14]
BLOOD SPORT: A DEAL GONE BAD - Time Magazine
SUSAN MCDOUGAL STRETCHED HER legs in the ample passenger space of her husband Jim's light green Mercedes 280-S as it cruised north along the ...
[15]
Jim McDougal (1940–1998) - Encyclopedia of Arkansas
His second wife, Susan Henley McDougal, was also implicated in the investigation. Jim McDougal was born on August 25, 1940, in Bradford (White County), the ...
[16]
https://www.cnn.com/US/9604/13/whitewater.background/index.html
[17]
frontline: once upon a time in arkansas: a chronology - PBS
Federal Home Loan Bank Board meets in Dallas to review Madison Guaranty examination. Jim and Susan McDougal are forced to resign from the institution. 1988, As ...
[18]
[PDF] Vol I App 2 Failure of Madison Guaranty and the S&L Crisis of the ...
The chart was prepared by the Office of the Independent Counsel based on Madison Guaranty monthly, quarterly, and semi-annual reports submitted to the. FHLBB ...
[19]
[PDF] Aftermath of the McDougals' Involvement with Madison Guaranty
Hubbell in a $10 million lawsuit to recoup taxpayer losses from Madison Guaranty Savings and Loan. Association"). She later admitted that she felt mildly ...
[20]
[PDF] Inadequate Oversight of Capital Management Services, Inc.--an SSBIC
Mar 21, 1994 · review the operations of Capital Management Services, Inc., a Little Rock,. Arkansas, Specialized Small Business Investment Company (SSBIC)I.
[21]
[PDF] Inadequate Oversight of Capital Management Services, Inc.-an SSBIC
Management made a $300,000 loan to Susan McDougal, wife of James McDougal. Subsequent to the issuance of our report, we were able to trace the funds to an ...
[22]
United States of America, Appellee, v. Susan H. Mcdougal ...
Susan McDougal appeals her conviction on four counts arising out of a $300,000 Small Business Administration loan from Capital Management Services to her, doing ...
[23]
UNITED STATES v. McDOUGAL (1998) - FindLaw Caselaw
Susan McDougal appeals her conviction on four counts arising out of a $300,000 Small Business Administration loan from Capital Management Services to her, doing ...
[24]
Susan McDougal gets prison in Whitewater - Tampa Bay Times
Aug 21, 1996 · McDougal, who has no source of income, was convicted on three counts of fraud in connection with a $300,000 loan she received in the '80s from a ...
[25]
once upon a time in arkansas: THE CASTLE GRANDE DEAL - PBS
Susan McDougal was convicted of fraudulently obtaining a $300,000 loan that was tied to Castle Grande. In November 1998,independent counsel Starr indicted ...
[26]
Divorce Spurred Susan McDougal to Borrow, Lawyer Says
Mar 13, 1996 · Hale, a former municipal judge, loaned the money from his government-backed small-business investment corporation, Capital Management Services ...
[27]
Whitewater Investigation's Focus: Another Tangled Arkansas Deal
Jul 11, 1996 · Hale ran Capital Management Services, a company that ostensibly made federally assisted loans to businesses owned by women and minorities ...<|control11|><|separator|>
[28]
[PDF] Vol II Part A Clintons McDougals & Whitewater - GovInfo
Clinton, purchased this land in 1978 and soon after formed a corporation -- the Whitewater Development Company, Inc. ("Whitewater Development" or. "Whitewater") ...
[29]
S. Rept. 104-280 - INVESTIGATION OF WHITEWATER ...
James McDougal's Madison Guaranty: A Corrupt Savings & Loan ... loan for Susan McDougal........ 595 10. The jurors in the Tucker/McDougal trial believed ...
[30]
Whitewater Scandal - Encyclopedia of Arkansas
Dec 19, 2024 · Tucker, Susan McDougal was convicted of fraud in connection with the loan from Hale and was sentenced to two years in prison. She became a ...
[31]
SUSAN MCDOUGAL GETS 2 YEARS FOR FRAUD TIED TO ...
Aug 21, 1996 · ... fraudulent $300,000 small business loan in 1986. McDougal, a ... guilty pleas to conspiracy and mail fraud charges. Proceeds of the ...Missing: details | Show results with:details
[32]
Official Statement From Robert Ray on Whitewater - ABC News
Sep 20, 2000 · Clinton to Madison Guaranty Savings & Loan Association (“Madison Guaranty”), Capital Management Services, Inc. (“CMS”), and the Whitewater ...<|separator|>
[33]
Whitewater: Case Closed - CBS News
Sep 20, 2000 · The McDougals were convicted in a 1996 fraud trial stemming from the collapse of the S&L, which cost taxpayers more than $60 million. Jim ...
[34]
'84 Clinton Campaign Listed in RTC Probe : Whitewater ...
One of the RTC's 10 “criminal referrals” on Madison, which have been forwarded to special counsel Robert B. Fiske Jr., seeks further investigation into whether ...
[35]
[PDF] Vol IV Part F Ch. 1 DOJ Handling of the RTC Referrals - GovInfo
The referral identified him and Mrs. Clinton as potential witnesses to the alleged criminal conduct relating to. Madison Guaranty by Jim McDougal. The delay in ...
[36]
AllPolitics - Whitewater - Timeline - CNN
Jan. 20, 1994 -- Robert B. Fiske Jr., a New York attorney, is appointed by Attorney General Janet Reno as independent Whitewater counsel. Feb ...
[37]
Final Report of the Independent Counsel in Re Madison Guaranty ...
... RTC Criminal Referrals and the Contacts Between the White House and the Department of the Treasury. Details Share. Chapter 1 - DOJ Handling of the RTC Referrals.
[38]
S. Rept. 104-204 - PROGRESS OF THE INVESTIGATION INTO ...
Instead, CMS allegedly engaged in a number of sham transactions and made a number of improper loans, including a loan for $300,000 to Susan McDougal--allegedly ...
[39]
Clinton Friend Gets Sentence Of Two Years - The New York Times
Aug 21, 1996 · Susan McDougal, former business partner of Pres and Mrs Clinton, is sentenced to two years in prison in Whitewater-related fraud case; ...Missing: details | Show results with:details
[40]
Mrs. McDougal jailed 2 years for Whitewater - SouthCoastToday.com
Susan McDougal was sentenced to two years in prison yesterday in a fraud case her lawyer denounced as bait to ensnare her former ...
[41]
Whitewater-Chronology - The New York Times
June 30: On the last day before the independent counsel statute expires, Hubbell pleads guilty to a felony and a misdemeanor. — Oct. 18 ...Missing: RTC | Show results with:RTC
[42]
Susan Mcdougal Held In Contempt For Silence
Sep 5, 1996 · McDougal was convicted of misusing $300,000 that she had borrowed from a government-backed small business investment corporation owned by Hale.
[43]
Whitewater Figure Refuses Order to Testify - Los Angeles Times
Sep 5, 1996 · McDougal refused to testify before the grand jury even though Starr had assured her that she would get immunity for her testimony if it was ...
[44]
[PDF] FOIA RD 56806 (URTS 16302) Docld: 70104950 Page 1
Aug 1, 2018 · As you know, President Clinton's former business partner,. Susan McDougal, has refused to testify before a federal grand jury in Little Rock.
[45]
Why I Refused to Testify Against the Clintons & What I Learned in Jail
Jan 24, 2003 · She was imprisoned after refusing to testify against the Clintons during the Whitewater trial. A recent article in the Washington Post discussed ...<|separator|>
[46]
The Woman Who Wouldn't Talk: Why I Refused to Testify Against the ...
McDougal refused to testify, she writes, because she didn't want her statements about the Clintons' innocence twisted into perjury by the Starr Commission. She ...
[47]
McDougal Again Defies Grand Jury - April 23, 1998 - CNN
Apr 23, 1998 · A spokesman for Starr said McDougal was called because "Judge Starr believes any witness should have a last clear chance to testify" and tell ...
[48]
"Joan of Arkansas" defeats Kenneth Starr - Salon.com
An ecstatic Susan McDougal won a major battle against independent counsel Kenneth Starr Monday when a jury of 12 Arkansans found her not guilty of obstruction ...
[49]
United States v. Susan McDougal, No. 08-2524 (8th Cir. 2009)
Mar 20, 2009 · At the conclusion of the hearing, the district court held McDougal in civil contempt pursuant to 28 U.S.C. § 1826. ... The sealed docket for ...
[50]
https://www.nytimes.com/1998/11/24/us/clintons-friend-found-not-guilty-of-all-9-embezzlement-charges.html
[51]
Susan McDougal Indicted for Refusing to Answer Grand Jury's ...
May 5, 1998 · Mrs. McDougal recently began serving a two-year sentence for her conviction in the first Whitewater trial on charges of mail fraud, ...
[52]
Starr Secures an Indictment of McDougal - Los Angeles Times
May 5, 1998 · The grand jury indictment of McDougal, on two counts of criminal contempt and one count of obstruction of justice, followed the tax charges ...
[53]
Whitewater Judge Recuses Herself From McDougal Case - CNN
May 8, 1998 · ... Susan McDougal to 18 months in jail for civil contempt, recused herself Thursday from presiding over McDougal's criminal contempt trial.
[54]
McDougal prepares for another round with Starr - Tampa Bay Times
McDougal, who has already served 18 months on a civil contempt citation, goes on trial today facing a three-count indictment alleging criminal contempt and ...<|separator|>
[55]
https://www.nytimes.com/library/politics/041399mcdougal-trial.html
[56]
McDougal Wins Acquittal, Deadlock on Starr Charges
Apr 13, 1999 · She already had served 18 months in prison for civil contempt for refusing to answer questions from the grand jury in 1996. The image of ...
[57]
Jury Indicts Susan McDougal - CBS News
May 4, 1998 · McDougal with two counts of criminal contempt of court and one count of obstruction of justice. ... Starr continued investigating Webb Hubbell, ...
[58]
McDougal Indicted, Again : NPR
NPR's Nina Totenberg reports on Monday's indictment of Susan McDougal for contempt of court and obstructing justice. Called once again to testify before the ...
[59]
Whitewater Grand Jury: The End - CBS News
May 5, 1998 · Obstruction of justice carries a maximum 10-year prison term with a $250,000 fine. She already has been convicted by a jury on fraud charges ...Missing: outcome | Show results with:outcome
[60]
Starr's Case Comes into Focus | American Enterprise Institute - AEI
She's returned to jail, where she's already spent 18 months on a civil contempt charge. Eleven days later, she's indicted on contempt and obstruction of justice ...
[61]
McDougal acquitted of obstruction charge - Cape Cod Times
McDougal already had served 18 months in jail for civil contempt based on her refusal to answer grand jury questions. She also served two months of a two ...
[62]
Witnesses undermine Starr case against Susan McDougal - World ...
The trial of Susan McDougal on criminal contempt and obstruction of justice charges continued this week in Little Rock, Arkansas with prosecutors from the ...
[63]
Pardons Granted by President William J. Clinton (1993-2001)
Susan H. McDougal, E. D. Ark. 1996, Mail fraud, 18 U.S.C. § 1341; aiding and abetting in misapplication of Small Business Investment Corporation funds, 18 ...Missing: aftermath | Show results with:aftermath
[64]
Clinton Pardons McDougal, Hearst, Others - ABC News
Jan 19, 2001 · President Clinton today pardoned his former Whitewater business partner Susan McDougal and 139 others, including newspaper heiress Patty Hearst and former CIA ...
[65]
Clinton Pardons McDougal, Cisneros - The New York Times
Jan 20, 2001 · McDougal's pardon came just one day after the Whitewater investigation was closed down under a deal in which Clinton gave up his law license ...Missing: details date<|separator|>
[66]
Clinton pardons his brother, Susan McDougal, others - Deseret News
Jan 22, 2001 · McDougal's pardon came just one day after the Whitewater investigation was closed down under a deal in which Clinton gave up his law license ...Missing: details date aftermath
[67]
McDougal Speaks Out - CBS News
Jan 22, 2001 · Whitewater figure Susan McDougal said she didn't expect a last-minute pardon from President Clinton, adding she will never forgive Kenneth ...Missing: career | Show results with:career
[68]
Pardon gives fresh start to 140 - SouthCoastToday.com
Jan 22, 2001 · -- Susan McDougal is looking forward to a new life now that she has a pardon from President Clinton excusing her for her Whitewater-related ...Missing: career | Show results with:career
[69]
Clinton Issues Pardons, Clearing Deutch and McDougal, but Not ...
Jan 21, 2001 · Ms. McDougal spent 21 months in jail for refusing to testify about Mr. Clinton to Mr. Ray's predecessor, Kenneth W. Starr.
[70]
AILING SUSAN MCDOUGAL RELEASED TO PARENTS FOR HOME ...
Jun 26, 1998 · McDougal, 43, spent 18 months behind bars for civil contempt after she refused to testify about the Clintons before a grand jury investigating ...Missing: date activities
[71]
https://www.publishersweekly.com/9780786711284
[72]
THE WOMAN WHO WOULDN'T TALK | Kirkus Reviews
... book. THE WOMAN WHO WOULDN'T TALK. by Susan McDougal with Pat Harris ‧ RELEASE DATE: Jan. 20, 2003. Even with her memory gaps, no reader will feel McDougal got ...
[73]
The Woman Who Wouldn't Talk: Why I Refused to Testify A…
Rating 4.0 (111) The Woman Who Wouldn't Talk: Why I Refused to Testify Against the Clintons & What I Learned in Jail · Susan McDougal, Helen Thomas (Introduction), Pat Harris ( ...
[74]
Susan McDougal Speaking Out  Finally - CBS News
Jan 25, 2003 · Not about Bill Clinton's role in a questionable land deal called Whitewater. For her silence she would spend 18 months in jail for contempt of ...
[75]
She didn't sing in prison but she's talking now - SFGATE
Jul 21, 2004 · McDougal, a bubbly brunette, served two years in prison after being convicted in one of the Whitewater trials and cited for contempt when she refused to ...
[76]
frontline: once upon a time in arkansas: interviews: susan mcdougal
As a young college student at Ouachita Baptist University, Susan Henley metand married Professor Jim McDougal. Susan is now in prison for refusing toanswer ...Missing: childhood | Show results with:childhood
[77]
THE PROSECUTOR: FOLLOWING LEADS OR DIGGING DIRT ...
Starr knew exactly what he didn't ... Susan McDougal, and former associate attorney general Webster L. ... perjury trap," issued overbroad subpoenas, and ...
[78]
Ken Starr Would Not Be Denied - The New York Times
Sep 6, 1998 · After the Lewinsky affair broke, Hillary Clinton called Starr ''a politically motivated prosecutor who is allied with the right-wing opponents ...
[79]
Citizen Clinton - Time Magazine
Jun 28, 2004 · ... persecution,” as Clinton called it, perhaps not inadvertently). “Starr was the instrument of a grand design,” the President said, launching ...
[80]
https://www.wsj.com/articles/SB867710035115364000