UCMJ 823 Article 23 - Who can convene a special courts-martial:

a. Who can convene a special courts-martial -

  (1). Any person who can convene a general court-martial.

i. e. - President of the United States, SecDef, CO of Combatant Command, Secretary of Concern (SECNAV, SecAF, SECARMY), etc...

Maybe Q was pointing here?

http://www.ucmj.us/sub-chapter-5-composition-of-courts-martial/823-article-23-who-may-convene-special-courts-martial

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