Report to tl'1e President by the COMMISSION ON

Transcription

1 The orgna documens are ocaed n Box 7, oder negence - Rockeeer Commsson Repor - Fna (1) o he Rchard B. Cheney Fes a he Gerad R. Ford Presdena Lbrary. Copyrgh Noce The copyrgh aw o he Uned Saes (Te 17, Uned Saes Code) governs he makng o phoocopes or oher reproducons o copyrghed maera. Gerad Ford donaed o he Uned Saes o Amerca hs copyrghs n a o hs unpubshed wrngs n Naona Archves coecons. Works prepared by U.S. Governmen empoyees as par o her oca dues are n he pubc doman. The copyrghs o maeras wren by oher ndvduas or organzaons are presumed o reman wh hem. you hnk any o he normaon dspayed n he PDF s subjec o a vad copyrgh cam, pease conac he Gerad R. Ford Presdena Lbrary.

2 Dgzed rom Box 7 o he Rchard B. Cheney Fes a he Gerad R. Ford Presdena Lbrary - ====== Repor o 1e Presden by he COMMSSON ON , -: ;. "..;... /;-.,. ::.._

3 COMMSSON ON CA ACTVTES WTHN THE UNTED STATES VCE PRESDENT NELSON A. ROCKEFELLER, Charman JOHN T. CONNOR C. DOUGLAS DLLON ERWN N. GRSWOLD LANE KRKLAND LYMAN L. LEMNTZER RONALD REAGAN EDGAR F. SHANNON, Jr. DA V!D W. BELN, Execuve Drecor Senor Counse HAROLD A. BAKER ERNEST GELLHORN MARVN L. GRAY, Jr. GEORGE A. MANFRED Speca Counse RONALD J. GREENE ROBERT B. OLSEN WLLAM W SCHWARZER \..OUU:e - - JA.,.\ES N. ROETHE JAMES B. WEDNER Sa Members R. MASON CARGLL PETER R. CLAPPER TMOTHY S. HARDY Speca Counse o he Vce Presden SOL NEL CORBN Counse o he Vce Presden PETER J. WALLSON (V)

4 COMMSSON ON CA ACVTES WTHN THE UNTED STATES Washngon, DC 2G500 Neson A. Rockeeer, Charman John T. Connor C. Dougas Don Erwn N. Grswod Lane Krkand Lyman. Lemnzer R,Jnad Reagan Edgar F. Shannon, Jr. June 6, 1975 Davd W. Ben, Execuve Ornc or The Presden The Whe House Washngon, D.C. Dear Mr. Presden: Your Comsson o nvesgae CA Acves whn he Uned Saes, havng compeed s assgnmen n accordance wh Execuve Order No o January 4, 1975, herewh subms s na repor... ReUydvd

5 Tabe o Conens Preace Par.-Summary o he nvesgaon :rage JC Chaper 1. The Fundamena ssues The Need or negence_ Summary o Fndngs, Concusons, and Recommendaons 9 Par. The CAs Roe and Auhory 4. negence and Reaed Acves by he Uned Saes beore The Sources o CA AuhorY Lega Anayss Par. Supervson and Conro ry he CA 7. Exerna Conros nerna Conros Par W. Sgncan Areas o nvesgaon 9. The U!As MaU nerceps v negence Communy Coordnaon Speca Operaons Group-"Operaon CHAOS" Proecon o he Agency agans Threas o Voence-Oce o Secury Oher nvesgaons by he Oce o Secury nvovemen o he CA n mproper Acves or he Whe ouse Domesc Acves o he Drecorae o OperLons Domesc Acves o he Drecorae o Scence and Technoogy CA Reaonshps wh Oher Federa, Sae, and Loca 225 Agences ndces and Fes on Amercan Czens Aegaons Concernng he Assassnaon o Presden Appendx CennedY Execuve Order (Esabshng a Commsson. on CA 251 Acves Whn he Uned Saes) Saemen by he Presden Naona Secury Ac o 1947, as Amended V. Bographca normaon and Acknowedgemens 279 V. ghghs o Cv Dsurbances and Oher Dsorders n he Uned Saes-January 1966 hrough January V. Proposed Amendmens o Saue 292 V. Asssance o and rom Federa, Sae and Loca Agences_ 294 (vu)

6 Preace. r Presden Gerad R. Ford creaed he Commsson on CA Acves whn he Uned Saes on January 4, He dreced he Commsson o deermne wheher any domesc CA acves exceeded he Agencys sauory auhory and o make approprae recommendaons. The ndngs, concusons and recommendaons o he Commsson are summarzed n Chaper 3 and deaed wh u background n subsequen chapers. A. Charges on CA Domesc Acves Charges ha he CA has conduced ega acves whn he Uned Saes voang he rghs o prvae czens have aroused concern: -Because o he number and serousness o aeged voaons _,_ VA.... UA..-4 -Because many o he Agencys acves are necessary secre and hereore are no we undersood by he Amercan peope. A he same me, many persons have voced aarm ha pubc conroversy and exposure woud serousy mpar he CAs aby o uncon-whch n urn coud serousy undermne he naona secury. Thereore, he Presden ook seps desgned o ensure ha he charges woud be uy and mparay nvesgaed and ha necessary correcve acons woud be aken. B. The Presdens Order The Presden requesed a repor on many o he charges :rom he Drecor o Cenra negence and receved n ae December On January 4, 1975, he ssued Execuve Order No esabshng a Commsson on CA Acves whn he Uned Saes. 1 He assgned hs Commsson hree asks: 1 ne Order s repred n u n Appendx. (X)

7 X (1) Asceran and evauae any acs reang o acves conduced whn he Uned Saes by he Cenra negence Agency whch gve rse o quesons o compance wh he provsons o 50 U.S.C. 403; (2) Deermne wheher exsng saeguards are adequae o preven any acves whch voae he provsons o 50 U.S.C. 403; (3) Make such recommendaons o he Presden and o he Drecor o Cenra negence as he Commsson deems approprae. Presden Ford apponed he members o he Commsson and desgnaed Neson A. Rockeeer, he Vce Presden o he Uned Saes and ormer Governor o New York, who has hed varous poss n he Federa Governmen snce 1940, as Charman. The oher members, a rom prvaa e, brough wdey vared experence o he Commsson : John T. Connor, Charman o he Board and Che Execuve Ocer o Aed Chemca Corporaon and ormer Secreary o Commerce (under Presden Johnson) ; C. Dougas Don, a Managng Drecor o Don, Read & Co., nc., an nvesmen bankng rm, ormer Secreary o he Treasury (under Bresdens Kennedy and Johnson) and ormer Ambassador o France and Undersecreary o Sae (under Presden Esenhower) ; Erwn N. Grswod, awyer, ormer Socor Genera (under PP<r.-" ct ""!--!!!! ;:::G::.) ;:;,;:! :.:...:....,..uv 1" nj.v.u Law Schoo; Lane Krkand, Secreary-Treasurer o he AFL-CO; Lyman L. Lemnzer, Genera, U.S. Army (Rered) and ormer Charman o he Jon Ches o Sa; Ronad Reagan, poca commenaor, ormer Presden o he Screen Acors Gud, and ormer Governor o Caorna; Edgar F. Shannon, Jr., Commonweah Proessor o Engsh and ormer Presden o he Unversy o Vrgna. The Presden named Davd W. Ben, a awyer rom Des Mones, owa, as he Commssons Execuve Drecor. A sa o eeven awyers was recrued, prmary rom he prvae pracce o aw and wh subsana nvesgave experence. C. Conduc o he nvesgaon The Commsson has been deermned rom s ncepon o make a horough and vgorous nvesgaon. Because o he sensvy o he CAs negence and counernegence acves, and her Th1a saue esabshed he CA n s reprned n u n Appendx

8 X crca reaonshp o naona secury, he Commsson recognzed ha mus cose s sessons o he pubc. Bu as a consequence has e a he more an obgaon o conduc a dgen nvesgaon, assurng he Amercan peope ha a serous quesons o egay and proprey whn he area o responsby assgned o he Commsson have been careuy nvesgaed and anayzed. The CA and oher agences were dreced by he Presden o cooperae wh he Commsson. Much o he evdence he Commsson examned has cmne rom CA es and personne. Bu he Commsson has sough wherever possbe o very he evdence ndependeny, usng avaabe ousde sources raher han reyng soey on summares or anayses o maeras supped by he CA or oher dvsons o he edera governmen. The Commsson began weeky he-arngs whn egh days aer s apponmen and even beore a u sa was avaabe. The Commsson recognzes ha no nvesgaon o any governmena negence agency can be ceran o uncoverng every reevan ac. Neverheess, he Commsson beeves ha s nvesgaon has dscosed he prncpa caegores o CA acves whn he Uned Saes whch mgh exceed s sauory auhory or mgh adversey aec he rrghs o Amercan czens.! D. Aeged Pans o Assassnae Ceran Foregn Leaders Aegaons ha he CA had been nvoved n pans o assassnae ceran eaders o oregn counres came o he Commssons aenon shory aer s nqury was under way. Ahough was uncear wheher or no hose aegaons e whn he scope o he Commssons auhory, he Commsson dreced ha an nqury be underaken. The Presden concurred n hs approach. The Commssons sa began he equred nqury, bu me dd no perm a u nvesgaon beore hs repor was due. The Presden hereore requesed ha he maeras n he possesson o he Commsson whch bear on hese aegaons be urned over o hm. Ths has been done..-..

9 Par Summary.A or -cne 1nveszgazon - 4,,.j4<QM4-&JW?4M A-Q;W1_-#k_4M;:-,.,..44A-:.4\44L4Ae_.c J.xew_.J;@ S. -4M.*Jr ""

10 - Chaper 1 The Fundamena ssues n announcng he ormaon o hs Commsson, he Presden noed ha an eecve negence. and counernegence capaby s essena o provde "he saeguards ha proec our naona neres and hep aver armed conc.s." Whe s va ha secury requremens be me, he Presden connued, s equay mporan ha negence acves be conduced whou "mparng our democrac nsuons and undamena reedoms." The Commssons assessmen o he CAs acves whn he Uned Sae rp.p<>.h<> m<>h:!sj -::" =!.:.:<: "!:,.:,. 11wvuuu rghs and naona secury. - A. ndvdua Rghs The B o Rghs n he Consuon proecs ndvdua beres agans encroachmen by governmen. Many saues a).d he common aw aso reec hs proecon. The Frs Amendmen proecs he reedoms o speech and o he press, he rgh o he peope o assembe peaceaby, and he rgh o peon he governmen or redress o grevances. has been consrued o proec reedom o peaceabe poca assocaon. n add- 1 :.::::: ::::::::,:;, P"OO&; ho..,a, Jm and or<co, j &rans unreasonabe searches and sezures, sha no be voaed... n accordance wh he objecves enuncaed n hese and oher Consuona amendmens, he Supreme Cour has ouned he oowng basc Consuona docrnes: 1. Any nrusve nvesgaon o an Amercan czen by he governmen mus have a sucen bass o warran he nvason caused by he parcuar nvesgave pracces whch are uzed; (3)

11 4 2. Governmen monorng o a czens poca acves requres even greaer juscaon; 3. The scope o any resung nruson on persona prvacy mus no exceed he degree reasonaby beeved necessary; 4. Wh ceran excepons, he scope o whch are no sharpy dened, hese condons mus be me, a eas or sgncan nvesgave nrusons, o he sasacon o an unnvoved governmena body such as a cour. These Consuona sandards gve conen o an acceped prncpe o our socey-he rgh o each person o a hgh degree o ndvdua prvacy. n recognon o hs rgh, Presden Truman and he Congressn enacng he aw creang he CA n 1947-ncuded a cause provdng ha he CA shoud have no poce, subpoena, aw-enorcemen powers or nerna secury uncons. Snce hen, Congress has urher ouned czen rghs n saues mng eecronc surveance and granng ndvduas access o ceran normaon n governmen es/ underscorng he genera concern o Congress and he Execuve Branch n hs area. \ j B. Governmen Mus Obey he Law The ndvdua beres o Amercan czens depend on governmen observance o he aw. Under our orm o Consuona governmen, auhory c.an be exercsed ony has been propery deegaed o a parcuar deparmen or agency by he Consuon or Congress. \os deegaons come rom Congress; some are mped rom he aocaon o responsby o he Presden. Where, er he basc auhory resdes, however, s undamena n our scheme o Consuona governmen ha agences-ncudng he CL\..-sha exercse ony hose powers propery assgned o hem by Congress or he Presden. Wbenever he acves o a governmen agency exceed s auhory, ndvdua bery may be mpared. C. Naona Secury ndvdua beres kewse depend on mananng pubc order a home and n proecng he counry agans nraon rom :1broad Omnbus Crme Conro and Sae Srees A.e o 1968 (18 U.S.C. Sees ) and PrYacy Ac o 1974 ( U.S.C. Sec. 552a). M41 k

12 5 and armed aack. Ensurng domesc ranquy and provdng or a common deense are no ony Consuona goas bu necessary precondons or a ree, democrac sysem. The process o ordery and awu change s he essence o democracy. Voen change, or orcng a change o governmen by he seahy acon o "enemes, oregn or domesc," s conrary o our Consuona sysem. The governmen has boh he rgh and he obgaon whn Consuona ms o use s avaabe power o proec he peope and her esabshed orrr o governmen. Neverheess, he mere nvocaon o he "naona secury" does no gran unmed power o he governmen. The degree o he danger and he ype o acon conempaed o mee ha danger requre careu evauaon, o ensure ha he danger s sucen o jusy he acon and ha undamena rghs are respeced. D. Resovng he ssues ndvdua reedoms and prvacy are undamena n our socey. Consuona governmen mus be mananed. An eecve and ecen negence sysem s necessary; and o be eec\e, many o s acves mus be conduced n secrecy. Sasyng hese objecves presens consderabe opporuny or conc. The vgorous pursu o negence by ceran mehods can ead o nvasons o ndvdua rghs. The preservaon o he Uned Saes requres an eecve negence capaby, bu he presernon o ndvdua beres whn he Uned Saes requres maons or resrcons on gaheng o negence. The drawng o reasonabe nes-where egmae negence needs end and eroson o Consuona governmen begns-s dcu. n seekng o draw such nes, we have been guded n he rs nsance by he commands o he Consuon as hey have been nerpreed by he Supreme Cour, he aws as wren by Congress, he vaues we beeve are reeced n he democrac process, and he ah we have n a ree socey. 1Ye have aso sough o be uy cognzan o he needs o naona secury, he requren1ens o a srong naona deense agans exerna aggresson and nerna subverson, and he duy o he governmen o proec s czens. n he na anayss, pubc saey and ndvdua bery susan each oher A.P!,,H" J\1Uowz.YMN 1 54)\\Q., ]

13 Chaper 2 The Need or negence --- Durng he perod o he Commssons nqury, here have been pubc aegaons ha a democracy does no need an negence ap._ paraus. The Commsson does no share hs vew. negence s normaon gahered or pocymakers n governmen whch umnaes he range o choces avaabe o hem and enabes hem o exercse judgmen. Good negence w no necessary ead o wse pocy choces. Bu whou sound negence, naona pocy decsons and acons canno eecvey respond o acua condons and reec he bes naona neres or adequaey proec our naona secury. negence gaherng nvoves coecng normaon abou oher counres mary capabes, subversve acves, economc condons, poca deveopmens, scenc and echnoogca progress, and soca acves and condons. The raw normaon mus be evauaed o deermne s reaby and reevance, and mus hen be anayzed. The na producs-caed "nshed negence"-are dsrbued o he Presden and he poca, mary and oher governmena eaders accordng o her needs. negence gaherng has changed rapdy and radcay snce he adven o he CA n 19-± 7. The ncreased compexy o nernaona poca, economc, and mary arrangemens, he ncreased desrucveness o he weapons o modern warare, and he adven o eecronc mehods o surveance have aered and enarged he needs or sophscaed negence. negence agences have had o rey more and more on scenc and echnoogca deveopmens o hep mee hese needs. Despe he ncreasng compexy and sgncance o negence n naona pocymakng, s aso mporan o undersand s ms. No a normaon s reabe, even when he mos hghy rened 1 Tbe CA s ony one o se"ern oregn negence agences n he edera governmen. Ohers ncude he Naona Secury Agency, he Deense ne!ugence Agency, he ne nee branches o he hree mary servces and he Sae Deparmens Bureau o ne!urenee and Research. (6)!,,!

14 7 negence mehods are used o coec. Nor can any negence sysem ensure ha s curren esmaes o anoher counrys nenons or uure capaces are accurae or w no be ourun by unoreseen evens. There are ms o accurae orecasng, and he use o decepon by our adversares or he peneraon o our negence servces ncreases he possby ha negence predcons may prove o be wrong. Ne, erheess, normed decson-makng s mpossbe whou an negence sysem adequaey proeced rom peneraon. Thereore, a va par o any negence servce s an eecve counernegence program, dreced oward proecng our own negence sysem and asceranng he acves o oregn negence servces, such as esponage, saboage, and subverson, and oward mnmzng or couneracng he eecveness o hese acves. Foregn nvasons o Uned Saes Prvacy Ths Commsson s devoed o anayzng he domesc acves o he CA n he neres o proecng he prvacy and secury rghs o Amercan czens. Bu we canno gnore he nvason o he prvacy and secury rghs o Amercans by oregn counres or her agens. Ths s he oher sde o he con-and mers aenon here n he neres o perspecve. "Wnesses wh responsbes or counernegence uwe od he Commsson ha he Uned Saes remans he prncpa negence arge o he communs boc. The communss nves arge sums o money, personne and sophscaed echnoogy n coecng normaon-whn he Uned Saes-on our mary capabes, our weapons sysems, our deense srucure and our soca dvsons. The communss seek o penerae our negence servces, o compromse our aw enorcemen agences and o recru as her agens Uned Saes czens hodng sensve governmen and ndusry jobs. n addon, s a common pracce n communs boc comres o nspec and open ma comng rom or gongo he Uned Saes. n an open socey such as ours, he negence opporunes or our adversares are mmeasuraby greaer han hey arc or us n her cosed socees. Our socey mus reman an open one, wh our radona reedoms unmpared. Bu whn he ncgnee acves o oher counres are ourshng n he ree envronmen we aord hem,. s a he more essena ha he oregn neg nce acves o he CA and our oher negence agences, us we ns he domsc counernegence acves o he FB, be gven he suppor neces > ".. \: 1!. *

15 n*n 8 sary o proec our naona secury and o shed.he prvacy and rghs o Amercan czens rom oregn nruson. The Commsson has receved esmaes ha communs boc negence orces curreny number we over 500,000 wordwde. The number o communs governmen ocas n he Uned Saes has rped snce 1960, and s s ncreasng. Neary 2,000 o hem are now n hs counry-and a sgncan percenage o hem have been dened as members o negence or secury agences. Conservave esmaes or he number o undened negence ocers among he remanng ocas rase he eve o over 40 percen. n addon o sendng ncreasng numbers o her czens o hs counry openy, many o whom have been raned n esponage, communs boc counres aso pace consderabe emphass on he ranng, provson o ase dencaon and dspachng o "ega" agens--ha s, operaves or whom an aas deny has been sysemacay deveoped whch enabes hem o ve n he Uned Saes as Amercan czens or resden aens whou our knowedge o her rue orgns. Whe makng arge-scae use o human negence sources, he communs counres aso appear o have deveoped eecronc coecon o negence o an exraordnary degree o echnoogy and sophscaon or use n he "Gned Saes and esewhere hroughou./ he word, and we beeve ha hese counres can monor and record housands o prvae eephone conversaons..amercans ha\ e a rgh o be uneasy no serousy dsurbed a he rea possby ha her persona and busness acves whch hey dscuss reey over he eephone coud be recorded and anayzed by agens o oregn powers. Ths rases he ra specer ha seeced Amercan users o eephones are poenay subjec o backma ha can serousy ajec her acons, or even ead n some cases o recrumen as esponage agens.!!!.z!! 111.,!!!J! ,-.-?"_,.--:"""",!!" 2 4,...>---""-J4!"1"1!1.S!! _., 11! J!,91!.!_44"".!!" :s;u!!! !\!!_"_.k!,..,.,_- <...

16 1.._. Chaper 3 Summary o Fndngs, Concusons, and Recommendaons As dreced by he Presden, he Commsson has nvesgaed he roe and auhory o he CA, he adequacy o he nerna conros and exerna supervson o he Agency, and s sgncan domesc acves ha rase quesons o compance wh he Ems on s sauory auhory. Ths chaper summarzes he ndngs and concusons o he Commsson and ses orh s recommendaons. A. Summary o Charges and Fndngs _...,. "" ,-.,.. The na pubc charges were ha he CAs domesc acves had nvoved: 1. Large-scae spyng on Amercan czens n he Uned Saes by he CA, whose responsby s oregn neg-ence. 2. Keepng dossers on arge numbers o Amercan czens. 3. Amng hese acves a Amercans who have expressed her dsagreemen wh varous governmen poces. These na charges were subsequeny suppemened by ohers ncudng aegaons ha he CA: -Had nerceped and opened persona ma n he Uned Saes or 20 years; -Had nraed domesc dssden groups and oherwse nervened n domesc pocs; -Had engaged n ega wreaps and break-ns; and, -Had mpropery asss d oher governmen agences. n addon, asserons have been made osensby nkng he CA o he assassnaon o Presden.John F. Kennedy. became cear rom he pubc reacon o hese charges ha he secrecy n whch he Agency nes.ssary opera s. combned wh he aegaons o wrongdong, had conrbued o wdespread pubc msundersandng o he Agencys acua pracces. (9)

17 em 10 A deaed anayss o he acs has convnced he Commsson ha he grea majory o he CAs domesc acves compy wh s sauory auhory. Neverheess, over he 28 years o s hsory, he CA has engaged n some acves ha shoud be crczed and no permed o happen agan-boh n gh o he ms mposed on he Agency by aw and as a maer o pubc pocy. Some o hese acves were naed or ordered by Presdens, eher drecy or ndrecy. Some o hem a whn he doubu area beween responsbes deegaed o he CA by Congress and he Naona Secury Counc on he one hand and acves speccay prohbed o he Agency on he oher. Some o hem were pany unawu and consued mproper nvasons upon he rghs o Amercans. The Agencys own recen acons, underaken or he mos par n 1973 and 1974, have gone ar o ermnae he acves upon whch hs nvesgaon has ocused. The recommendaons o he Commsson are desgned o cary areas o doub concernng he Agencys auhory, o srenghen he Agencys srucure, and o guard agans recurrences o hese mproprees. B. The CAs Roe and Auhory (Chapers 4-6) Fndngs The Cenra negence Agency was esabshed by he N a ona] Secury Ac o 1947 as he naons rs comprehensh e peaceme oregn negence servce. The objecye was o provde he Presden wh coordnaed negence, whch he counry acked pror o he aack on Pear Harbor. The Drecor o Cenra negence repors drecy o he Presden. The CA receves s pocy drecon and gudance rom he Naona Secury Counc, composed o he Presden, he Vce Presden, and he Secreares o Sae and Deense. The saue drecs he CA o correae, evauae, and dssemnae negence obaned rom Uned Saes negence agences, and o perorm such oher uncons reaed o negence as he Naona Secury Counc drecs. Reco:,1zng ha he CA woud be deang wh sensve, secre maeras, Congress made he Drecor o Cenra negence responsbe or proecng negence sources and mehods rom unauhorzed dscosure. A he same me, Congress sough o assure he Amercan pubc,..,,...,,!>..._ _ , ,..,,_,...,#...,.,., "

18 :! 11 ha was no esabshng a secre poce whch woud hreaen he cv beres o Amercans. speccay orbade he CA rom exercsng "poce, subpoena, or aw-enorcemen powers or nerna secury uncons." The CA was no o repace he Federa Bureau o nvesgaon n conducng domesc acves o nvesgae crme or nerna subverson. Ahough Congress conempaed ha he ocus o he CA woud be on oregn negence, undersood ha some o s acves woud be conduced whn he Uned Saes. The CA necessary manans s headquarers here, procures ogsca suppor, recrus and rans empoyees, ess equpmen, and conducs oher domesc acves n suppor o s oregn negence msson. makes necessary nvesgaons n he Uned Saes o manan he secury o s aces and personne. Addonay, has been undersood rom he begnnng ha he CA s permed o coec oregn negence-ha s, normaon concernng oregn capabes, nenons, and acves-rom Amercan czens whn hs counry by over means. Deermnng he ega proprey o domesc acves o he CA requres he appcaon o he aw o he parcuar acs nvoved. Ths ask nvoves consderaon o more han he Naona Secury Ac and he drecves o hen aona Secury Counc; Consuona and oher sauory provsons aso crcumscrbe he domesc acves o he CA. Among he appcabe Consuona provsons are he Frs Amendmen, proecng reedom o speech, o he press, and o peaceabe assemby; and he Fourh Amendmen, prohbng unreasonabe searches and sezures. Among he sauory pro, sons are hose whch m such acves as eecronc eavesdroppng and nercepon o he mas. The precse scope o many o hese sauory and Consuona provsons s no easy saed. The Naona Secury Ac n parcuar was draed n broad erms n order o provde exby or he CA o adap o changng negence needs. Such crca phrases as "nerna secury uncons arc e undened. The meanng o he Drecors responsby o proec negence sources and mehods rom unauhorzed dscosure has aso been a subjec o w1cerany. The word "oregn" appears nowhere n he sauory gran o nuhory, hough has aways been undersood ha he C.As msson,; med o maers reaed o oregn negence. Ths apparen sauory ambguy, ahough no posng probems n prnccc, has roubed members o he pubc who rend he saue whou havng he bene o he egsave hsory and he nsrucons o he CA rom he Naona Secury Counc., J j 1 J J. J J 1

19 .... mre..,..,:hr h we r:!nrrme& >rrr r w wemr e HzM erxe- r:nemr.. 12 Concusons The evdence whn he scope o hs nqury does no ndcae ha undamena rewrng o he N a ona! Secury Ac s eher necessary or approprae. The evdence does demonsrae he need or some sauory and admnsrave carcaon o he roe and uncon o he Agency. Ambgues have been paray responsbe or some, hough no a, o he Agencys devaons whn he Uned Saes rom s assgned msson. n some cases, reasonabe persons w der as o he awuness o he acvy; n ohers, he absence o cear gudenes as o s auhory deprved he Agency o a means o ressng pressures o engage n acves whch now appear o us mproper. Greaer pubc awareness o he ms o he CAs domesc auhory woud do much o reassure he Amercan peope. "The requse carcaon can bes be accompshed (a) hrough n specc amendmen caryng he Naona Secury Ac provson whch deneaes he permssbe scope o CA acves, as se orh n Recommendaon 1, and (b) hrough ssuance o an Execuve Order urher mng domesc acves o he CA, as se orh n Recommendaon 2. Recommendaon (1) Secon 403 o he Naona Secury Ac o 1947 shoud be amended n he orm se orh n Appendx V o hs Repor. These amendmens, n summary, woud: a. Make expc ha he CAs acves mus be reaed o oregn negence. b. Cary he responsby o he CA o proec negence sources and mehods rom unauhorzed dscosure. (The Agency woud be responsbe or proecng agans unauhorzed dscosures whn he CA, and woud be responsbe or provdng gudance and echnca asssance o oher agency and deparmen heads n proecng agans unauhorzed dscosures whn her own agences and deparmens.) c. Conrm pubcy he CAs exsng auhory o coec oregn negence rom wng sources whn he Uned Saes, and, excep as speced by he Presden n a pubshed Execuve Order, 1 prohb he CA rom coecon e- 1 The ExuuYe Order auhornd bj h 1aue ahoud r«orze ha when he eoedon o orep nepnee rom peuona who are no Uned Sau czens reaua n he ncdena &<quaon o normaon rom unknown ezena. he Acenr:r ohoud b pumed o make &ppropraa use or dopoaon o aueh normaon. Such eoeeon acvu mua be dreced a orep nau!cence aouree1, and he nvonmen o Aaerean esen. mua be nddena

20 -.. "r _._,,,. rer :K m, :n e rrr!re... wr::!!p! r!!& assyr "!:xhdh, r,..._ 13 ors whn he Uned Saes dreced a securng oregn negence rom unknowng Amercan czens. Recommendaon (2) The Presden shoud by Execuve Order prohb he CA rom he coecon o normaon abou he domesc acves o Uned Saes czens (wheher by over or cover means), he evauaon, correaon, and dssemnaon o anayses or repors abou such acves, and he sorage o such normaon, wh excepons or he oowng caegores o persons or acves: a. Persons preseny or ormery aaed, or beng consdered or aaon, wh he CA, drecy or ndrecy, or ohers who requre cearance by he CA o receve cassed normaon; b. Persons or acves ha pose a cear hrea o CA aces or personne, provded ha proper coordnaon wh he FB s accompshed; c. Persons suspeced o esponage or oher ega acves reang o oregn negence, provded ha proper coordnaon wh he FB s accompshed. d. normaon whch s receved ncdena o approprae CA acves may be ransmed o an agency wh approprae jursdcon, ncudng aw enorcemen agences. Coecon o normaon rom norma brary sources such as newspapers, books, magaznes and oher such documens s no o be aeced by hs order. normaon curreny beng mananed whch s nconssen wh he order shoud be desroyed a he concuson o he curren congressona nvesgaons or as soon hereaer as permed by aw. The CA shoud perodcay screen s es and emnae a maera nconssen wh he order. The order shoud be ssued aer consuaon wh he Naona Secury Counc, he Aorney Genera, and he Drecor o Cenra negence. Any modcaon o he order woud be permed ony hrough pubshed amendmens. r.!. [! [ (! C. Supervson and Conro o he CA 1. Exerna Conros (Chaper 7) Fndngs The CA s subjec o supervson and conro by varous execuve agences and by he Congress.

21 14 Congres.c; has esabshed speca procedures or revew o he CA and s secre budge whn our sma subcommees. 2 Hsorcay, hese subcommees have been composed o members o Congress wh many oher demands on her me. The CA has no as a genera rue receved deaed scruny by he Congress. The prncpa bodes whn he Execuve Branch perormng a supervsory or conro uncon are he X aona Secury Counc, whch gves he CA s pocy drecon and conro; he Oce o Managemen and Budge, whch revews he CAs budge n much he same ashon as revews budges o oher governmen agences; and he Presdens Foregn negence Advsory Board, whch s composed o dsngushed czens, servng par me n a genera advsory uncon or he Presden on he quay o he gaherng and nerpreaon o negence. None o hese agences has he specc responsby o overseeng he CA o deermne wheher s acves are proper. The Deparmen o Jusce aso exercses an oversgh roe, hrough s power o nae prosecuons or crmna msconduc. For a perod o over 20 years, however, an agreemen exsed beween he Deparmen o Jusce and he CA provdng ha he Agency was o nvesgae aegaons o crmes by CA empoyees or agens whch nvoved Governmen money or propery or mgh nvove operaona secury., oowng he nvesgaon, he Agency deermned ha ) / here was no reasonabe bass o beeve a crme had been commed. "" or ha operaona secury aspecs precuded prosecuon, he case was no reerred o he Deparmen o Jusce. The Commsson has ound nohng o ndcae ha he CA abused he uncon g\ en by he agremen. The agreemen, how-) / ever, m oh cd he Agency drecy n orbdden aw enorcemen acv- V.J> es, and represened an abdcaon by he Deparmen o Jusce ;r o s sauory responsbes. w Concusons Some mprovemen n he congressona oversgh sysem woud be hepu. The probem o provdng adqnac oversgh and conro whe mananng (SSena secury s no easy rcsoh ed. Severa knowedge.abc wnesses poned o he Jon Commee on Aomc Energy us an approprae mode or congressona oversgh o he Agency. Tha Commee has had an exceen record o provdng (ecve oversgh whe a\ odng breaches o secury n a hghy sensve area. j $! 1 Subcommeea o he Appropraons Commees and he Armed Servces Commees o he wo houses !:P.4, g_$,sj #.. _&.. :g; #

22 15 One o he underyng causes o he probems conronng he CA arses ou o he pervadng amosphere o secrecy n whch s acves have been conduced n he pas. One aspec o hs has been he secrecy o he budge. A new body s needed o provde oversgh o he Agency whn he Execuve Branch. Because o he need o preserve secury, he CA s no subjec o he usua consrans o aud, judca revew, pubcy or open congressona budge revew.and oversgh. Con- sequeny, s operaons requre addona exerna conro. The auhory assgned he job o supervsng he CA mus be gven sucen. power and sgncance o assure he pubc o eecve supervson. The suaon whereby he Agency deermned wheher s own\ v(. empoyees woud be prosecued mus no be permed o recur.. 1 Recommendaon (3)!.a The Presden shoud recommend o Congress he esabshmen,- o a Jon Commee on negence o assume he oversgh roe "1 curreny payed by he Armed Servces Commees. 3 Recommendaon ( 4) Congress shoud gve careu consderaon o he queson wheher he budge o he CA shoud no, a eas o some ex- ; en, be made pubc, parcuary n vew o he provsons o Arce, Secon 9, Cause 7 o he Consuon. 4 J 1:_.. Recommendaon (5) a. The uncons o he Presdens Foregn negence Advsory Board shoud be expanded o ncude oversgh o he CA. Ths expanded oversgh board shoud be composed o dsngushed czens wh varyng backgrounds and experence. shoud be headed by a u-me charman and shoud have a ume sa approprae o s roe. s uncons reaed o he CA shoud ncude: 1. Assessng compance by he CA wh s sauory auhory. 2. Assessng he quay o oregn negence coecon. 3. Assessng he quay o oregn negence esmaes. 4. Assessng he quay o he organzaon o he CA. 5. Assessng he quay o he managemen o he CA. 6. Makng recommendaons wh respec o he above subjecs o he Presden and he Drecor o Cenra negence, and, where approprae, he Aorney Genera. See aaemen by Commuoner Gr wod, Chaper 7. "No Money aha be drawn rom he Treaaury, bu n Connquence or Appropraons made b:r Law 1 and a reruar Saemen and Aco\ or he Recpa and Expendurea o a pabc MoneT aha be pubabed rom me o me. J. s!.;

23 ,., ".. 4 -n re r.---= :r zrr w re ersh z rr r b - 7 h 16 b. The Board shoud have access o a normaon n he CA. shoud be auhorzed o aud and nvesgae CA expendures and acves on s own nave. c. The nspecor Genera o he CA shoud be auhorzed o repor drecy o he Board, aer havng noed he Drecor o Cenra negence, n cases he deems approprae. Recommendaon (6) The Deparmen o Jusce and he CA shoud esabsh wren gudenes or he handng o repors o crmna voaons by empoyees o he Agency or reang o s aars. These gudenes shoud requre ha he crmna nvesgaon and he decson wheher o prosecue be made by he Deparmen o Jusce, aer consderaon o Agency vews regardng he mpac o prosecuon on he naona secury. The Agency shoud be permed o conduc such nvesgaons as requres o deermne wheher s operaons have been jeopardzed. The Ageny shoud scrupuousy avod exercse o he prosecuora uncon. 2. nerna Conros (Chaper 8) Fndngs The Drecors dues n admnserng he negence communy, handng reaons wh oher componens o he governmen, and passng on broad quesons o pocy eave hm e me or day-oday supervson o he Agency. Pas sudes have noed he need or he Drecor o deegae greaer responsby or he admnsraon o he Agency o he Depuy Drecor o Cenra negence. n recen years, he poson o Depuy Drecor has been occuped by a hgh-rankng mary ocer, wh responsbes or mananng ason wh he Deparmen o Deense, oserng he Agencys reaonshp wh he mary servces, and provdng op CA managemen wh necessary experence and sk n undersandng parcuar negence requremens o he mary. Generay speakng, he Depuy Drecors o Cenra negence have no been heavy engaged n admnsraon o he Agency. Each o he our drecoraes whn he CA-Op..raons, negence, Admnsraon, and Scence and Technoogy-s headed by a depuy drecor who rep01s o he Dndor and Depuy Dr(dor o Cenra negence. These our depues. ogeher wh ceran oher op Agency ocas such as he Comproer, onn he Agency?anagemen Comm(e, whch makes mnny o he admnsrave and managemen decsons aecng more han one drecorae.!! 1 J,

24 rh r,.-,_ bw-,.re T.,wee "Hew,.* a - &rw - a-e r s r 17 Ousde he chan o command, he prmary nerna mechansm or keepng he Agency whn bounds s he nspecor Genera. The sze o hs oce was receny sharpy reduced, and s prevous pracce o makng reguar revews o varous Agency deparmens was ermnaed. A he presen me, he acves o he oce are amos enrey concerned wh coordnang Agency responses o he varous nvesgang bodes, and wh varous ypes o empoyee grevances. The Oce o Genera Counse has on occason payed an mporan roe n prevenng or ermnang Agency acves n voaon o aw, bu many o he quesonabe or unawu acves dscussed n hs repor were no brough o he aenon o hs oce. A ceran pa,rochasm may have resued rom he ac ha aorneys n he oce have e or no ega experence ousde hr. Agency. s mporan ha he Agency receve he bes possbe ega advce on he oen dcu and unusua suaons whch conron. Concusons n he na anayss, he proper unconng o he Agency mus depend n arge par on he characer o he Drecor o Cenra negence. The bes assurance agans msuse o he Agency es n he apponmen o ha poson o persons wh he judgmen, courage, and ndependence o ress mproper pressure and mporunng, wheher rom he whe House, whn he Agency or esewhere. Comparmenaon whn he Agency, ahough cerany approprae or secury reasons, has somemes been carred o exremes whch preven proper supervson and conro. The Agency mus rey on he dscpne and negry o he men and women empoys. :Many o he acves we haye ound o be mproper or unawu were n ac quesoned by ower-eye empoyees. Brngng such suaons o he aenon o upper eves o managemen s one o he purposes o a sysem o nerna conros. Recommendaon (7) a. Persons apponed o he poson o Drecor o Cenra negence shoud be ndvduas o saure, ndependence, and negry. n makng hs apponmen, consderaon shoud be gven o ndvduas rom ousde he career servce o he CA, ahough promoon rom whn shoud no be barred. Experence n negence servce s no necessary a prerequse or he poson; managemen and admnsrave sks are a eas as mporan as he echnca experse whch can aways be ound n an abe depuy. b. Ahough he Drecor serves a he peasure o he Presden, no Drecor shoud serve n ha poson or more han 10 years. r!

25 ..,... E 7 T De r w Wmx 21 5 d,, run:@. Z n67nm P ) 1 W< 18 Recommendaon (8) a. The Oce o Depuy Drecor o Cenra negence shoud be reconsued o provde or wo such depues, n addon o he our heads o he Agencys drecoraes. One depuy woud ac as he admnsrave ocer, reeng he Drecor rom day-oday managemen dues. The oher depuy shoud be a mary ocer, servng he uncons o oserng reaons wh he mary and provdng he Agency wh echnca experse on mary negence requremens. b. The advce and consen o he Senae shoud be requred or he apponmen o each Depuy Drecor o Cenra negence. Recommendaon (9) a. The nspecor Genera shoud be upgraded o a saus equvaen.o ha o he depuy drecors n charge o he our drecoraes whn he CA. b. The Oce o nspecor Genera shoud be saed by ousandng, experenced ocers rom boh nsde and ousde he CA, wh aby o undersand he varous branches o he Agency. c. The nspecor Generas dues wh respec o domesc CA acves shoud ncude perodc revews o a oces whn he Uned Saes. He shoud examne each oce or compance wh CA auhory and reguaons as we as or he eecveness o her programs n mpemenng pocy objecves. d. The nspecor Genera shoud nvesgae a repors rom empoyees concernng possbe voaons o he CA saue. e. The nspecor Genera shoud be gven compee access o a normaon n he CA reevan o hs revews.. An eecve nspecor Generas oce w requre a arger sa, more requen revews, and hghy quaed personne. g. nspecor Genera repors shoud be provded o he Naona Secury Counc and he recommended execuve oversgh body. The nspecor Genera shoud have he auhory, when he deems approprae, aer noyng he Drecor o Cenra negence, o consu wh he execuve oversgh body on any CA acvy (see Recommendaon 5). Recommendaon (10) a. The Drecor shoud revew he composon and operaon o he Oce o Genera Counse and he degree o whch hs oce s consued o deermne wheher he Agency s recevng adequae ega asssance and represenaon n vew o curren requremens. b. Consderaon shoud be gven o measures whch woud srenghen he oces proessona capabes and resources ncudng, among oher hngs, (1) occasonay deparng rom he

26 ..., 19 exsng pracce o hrng awyers rom whn he Agency o b:ng n seasoned awyers rom prvae pracce as we as o hre aw schoo graduaes whou pror CA experence; (2) occasonay assgnng Agency awyers o serve a our o duy esewhere n he governmen o expand her experence; (3) encouragng awyers o parcpae n ousde proessona acves. Recommendaon (11) To a degree conssen wh he need or secury, he CA shoud be encouraged o provde or ncreased aera movemen o personne among he drecoraes and o brng persons wh ousde experence no he Agency a a eves. Recommendaon (12) a. The Agency shoud ssue deaed gudenes or s empoyees urher specyng hose acves whn he Uned Saes whch are permed and hose whch are prohbed by saue, Execuve Orders, and NSC and DC drecves. b. These gudenes shoud aso se orh he sandards whch govern CA acves and he genera ypes o acves whch are permed and prohbed. They shoud, among oher hngs, specy ha: -Candesne coecon o negence dreced agans Uned Saes czens s prohbed excep as speccay permed by aw or pubshed Execuve Order. -Unawu mehods or acves are prohbed. -Pror approva o he DC sha be requred or any acves whch may rase quesons o compance wh he aw or wh Agency reguaons. c. The gudenes shoud aso provde ha empoyees wh normaon on possby mproper acves are o brng prompy o he aenon o he Drecor o Cenra negence or he nspecor Genera. D. Sgncan Areas o nvesgaon nroducon Domesc ach cs o he CA rasng subsana quesons o compance wh he aw have be<>n cosey examned by he Commsson o de<>rmne he con<>x n whch hey were perormed, he pressures o he mes, h rpnonshp o he ncvy o he Agencys orcb negence assgnmen. and o oher CA ncves, he procedures -

27 * -swerr- me<e-r sera ee zr MCrr>ZA a1 m"s& cm rn nwemw 20 used o auhorze and conduc he acvy, and he exen and eec o he acvy. n descrbng and assessng each such acvy, has been necessary o consder boh ha acvys reaonshp o he egmae naona secury needs o he naon and he hrea such acves mgh pose o ndvdua rghs o Amercans and o a socey ounded on he need or governmen, as we as prvae czens, o obey he aw.. The CAs Ma nerceps (Chaper 9) Fndngs A he me he CA came no beng, one o he hghes naona negence prores was o gan an undersandng o he Sove Unon and s wordwde acves aecng our naona secury. n hs conex, he CA began n 1952 a program o surveyng ma beween he Uned Saes and he Sove Unon as passed hrough a New York posa acy. n 1953 began openng some o hs ma. The program 1vas expanded over he oowng wo decades and umaey nvoved he openng o many eers and he anayss o enveopes, or "covers," o a grea many more eers. The New York ma nercep was desgned o aemp o deny persons whn he Uned Saes who were cooperang wh he Sove Unon ru1d s negence orces o harm he Uned Saes. was aso nended o deermne echnca communcaons procedures and ma censorshp echnques used by he Soves. The Drecor o he Cenra negence Agency approved commencemen o he New York ma nercep n Durng he ensung years, so ar as he record shows, Posmasers Genera Summered, Day, and Boun were normed o he program n varyng degrees, as was Aorney Genera Mche. Snce 1958, he FB was aware o hs program and receved 5,000 ems rom. A 1962 CA memorandum ndcaes ho Agency was aware ha he ma openngs woud be vewed as voang edera crmna aws prohbng obsrucon or deay o he mas. n he as year beore he ermnaon o hs program, on o 4,350,000 ems o ma sen o and rom he SO\ e Cnon, he Xew York nrcp examned he ousde o 2,300,000 o hese ems, phoographed 33,000 enveopes, and opened 8,700. The ma nercep was ermnaed nv: when he Che Posa nspecor reused o aow s connuaon whou an up-o-dae hgheve npprovn. The CA aso ran much smaer ma nerceps or Lr<> perods n San Francsco beween 1VG9 and 1971 nnd n h errory o Hawa. r J, J

28 21 durng 1954 and For a shor perod n 1957, ma n rans beween oregn counres was nerceped n New Oreans. Concusons Whe n operaon, he CAs domesc ma. openng programs were unawu. Uned Saes saues speccay orbd openng he ma. The ma openngs aso rase Consuona quesons under he Fourh Amendmen guaranees agans unreasonabe search, and he scope o he N uw York projec poses possbe dcues wh he Frs Amendmen rghs o speech and press. Ma cover operaons (examnng and copyng o enveopes ony) are ega when carred ou n compance wh posa reguaons on a med and seecve bass nvovng maers o naona secury. The New York ma nercep dd no mee hese crera. The naure and degree o asssance gven by he CA o he FB n he New York ma projec ndcae ha he CAs prmary purpose evenuay became parcpaon wh he FB n nerna secury uncons. Accordngy, he CAs parcpaon was prohbed under he Naona Secury Ac. Recommendaon (13) a. The Presden shoud nsruc he Drecor o Cenra negence ha he CA s no o engage a gan n domesc ma openngs excep wh express sauory auhory n me o war. (See aso Recommendaon 23.) b. The Presden shoud nsruc he Drecor o Cenra negence ha ma cover examnaons are o be n compance wh posa reguaons; hey are o be underaken ony n urherance o he CAs egmae acves and hen ony on a med and seeced bass ceary nvovng maers o naona secury. 2. negence Communy Coordnaon (Chaper 10) Fndngs As a resu o growng domesc dsorder, he Deparmen o Jusce, sarng n 1V67 a he drecon o Aorney Genem Hamscy Cark, coordnaed a seres o secre uns and neragency groups n an eor o coae and evu.unc negence reang o hese evens. Twso eors connued unv73. The neragency commees were desgned or anayc and no 1 r ;s

29 e Wh$ J operaona purposes. They were creaed as a resu o Whe House pressure whch began n 1967, because he FB perormed ony med evauaon and anayss o he normaon coeced on hese evens. The saed purpose o CAs parcpaon was o suppy reevan oregn negence and o urnsh advce on evauaon echnques. The CA was reucan o become unduy nvoved n hese commees, whch had probems o domesc unres as her prncpa ocus. repeaedy.reused o assgn u-me personne o any o hem. The mos acve o he commees was he negence Evauaon Sa, whch me rom January 1971 o May A CA ason ocer 4 aended over 100 weeky meengs o he Sa, some o whch concerned dras o repors whch had no oregn aspecs. wh he excepon o one nsance, here s no evdence ha he aced n any capacy oher han as an advser on oregn negence, and, o some degree, as an edor. ) On one occason he CA ason ocer appears o have caused a CA agen o gaher domesc normaon whch was repored o he negence Evauaon Sa.. The Commsson ound no evdence o oher acves by he CA ha were conduced on beha o he Deparmen o Jusce groups excep or he suppyng o approprae oregn negence and advce on evauaon echnques. V [ > Concusons The sauory prohbon on nerna secury uncons does no precude he CA rom provdng oregn negence or advce on evauaon echnques o nerdeparmena negence evauaon organzaons havng some domesc aspecs. The saue was nended o promoe coordnaon, no comparmcnaon o negence beween governmena deparmens. The aendance o he CA ason ocer a over 100 meengs o he negence Evauaon Sa, some o hem concerned whoy wh domesc maers, neverheess creaed a eas he appearance o mproprey. Tho Drecor o Cenra negence wus we advsed o approach such parcpaon reucany. Tho ason ocer nced mpropery n he one nsance n whch he dreced an agen o gaher domesc normaon whn he Uned Saes whch was repored o he negence Evauaon Sa. Th> Uaaou omcer was Che o he CAs Speca Operaons Group whch ran Operaon CHAOS, dacuaaed n Chaper 11 o hs Repor. ;. ; [

30 23 Much o he probem semmed rom he absence n governmen o any organzaon capabe o adequaey anayzng negence coeced by he FB on maers ousde he purvew o CA. Recommendaon (14) a. A capaby shoud be deveoped whn he FB, or esewhere n he Deparmen o Jusce, o evauae, anayze, and coordnae negence and counernegence coeced by he FB concernng esponage, errorsm, and oher reaed maers o nerna secury. b. The CA shoud resrc s parcpaon n any jon negence commees o oregn negence maers. c. The FB shoud be encouraged o connue o ook o he CA or such oregn negence and couner-negence as s reevan o FB needs. 3. Speca Operaons Group-"Operaon CHAOS" (Chaper 11) Fndngs The ae 1960s and eary 1970s " ere marked by wdespread voence and cr dsorders. Demonsraous, marches and proes assembes ere requen n a number o ces. Many unverses and coege campuses became paces o dsrupon and unres. Gorernmen aces were pckeed and somemes nradec. Threas o bombng and bombng ncdens occurred requeny. n rashngon and oher major ces, speca secury measures had o be nsued o conro he access o pubc budngs. Respondng o Presdena requess made n he ace o growng \.,/ domesc dsorder, he Drecor o Cenra negence n Augus 1067 \ esabshed u Speca Operaons Group whn hr CA o coec, co- } ordnae, eyauae and repor on he exen o oregn nuence on domesc dssdence. The Groups acres, whch apr came o be known as Operaon CL\OS. rd he CA o coec normaon on dssden.a.mereans rom CL\. ed nuns on r.seas and ron he FB. Ahough he saed pm pose o he Operaon was o deermne wheher here were any ore!n conacs wh Amercan dssden groups, resued n he accumuaon o consceralc maera on donwsc dssdens and her ncvs. Durn! sx years. w Op<>aon compc! some deren es, ncud11g es on,:200.amercan czens. The docus n hese es nn! rca maeras ncuded he n:ws o mon han :wo,ooo persons nnd organzaons, whch were enered no n compuerzed ndex. See AppeodU: V. r,..,..,.,., >-.,, _":,. --

31 24 Ths normaon was kep cosey guarded whn he CA. Usng hs normaon, personne o he Group prepared 3,500 memoranda or nerna use; 3,000 memoranda or dssemnaon o he FB; and 37 memoranda or dsrbuon o Whe House and oher op eve ocas n he goyernmen. The sa assgned o he Operaon was seady enarged n response o repeaed Presdena requess or addona normaon, umaey reachng a maxmum o 52 n Because o excessre soaon, he Operaon was subsanay nsuaed rom meanngu revew whn he Agency, ncudng revew by he Counernegence Sa-o whch he Operaon was echncay a par. Commencng n ae 1969, Operaon CHAOS used a number o agens o coec negence abroad on any oregn connecons wh Amercan dssden groups. n order o have sucen ;cover" or hese agens, he Operaon recrued persons rom domesc dssden groups or recrued ohers and nsruced hem o assocae wh such groups n hs counry. Mos o he Operaons recrus were no dreced o coec normaon domescay on Amercan dssdens. On a number o occasons, however, such normaon was repored by he recrus whe hey \Vere deveopng dssden credenas n he "C"ned Saes, and he normaon \vas reaned n he es o he Operaon. On hree occasons. an ag<.>n o he Operaon was specc a 1y dreced o coec domesc neg<.>nce. N"o evdence was ound ha. any Oprrnon CHAOS agen nsrd or was dreced by w "\gency o u:::c <.>ecronc snrveancr. wreaps or break-ns n he "Cned Saes agans any dssden ndvdua or group. Acvy o w Oprraon deerrased subsanay by md-1!)72. The Operaon was ormay ermnaed n )arch j.! 1 4 : > Concusons Some domesc ach es o Operaon CHAOS unawu! Xcreded h CL\.s sauory auhory. P\.P houg-h dcared msson o gawrng negruer abroad as o oregn nucnr on domesc dssde acves wns proper. )[o,; sgncauy, he Owra on became a reposor or arge quanes o normaon on he domesc nr, rs o Anwrcan czrns. Ths normaon was dernd prncpay rom FB rpors or r-om on r sources and no rom candesne coecon by w CA, and much o was no drecy reaed o he qwson o he exsence o oreb" connecons. :_""1:1!!11}...""""*_,..;;:..,..m_... ;... -.,.,_...,..,.L! *"" ---

32 25 was probaby necessary or he CA o accumuae an normaon base on domesc dssden acves n order o assess ary wheher he acves had oregn connecons. The FB woud coec normaon bu woud no evauae. Bu he accumuaon o domesc daa n he Operaon exceeded wha \Yas reasonaby requred o make such an assessmen and was hus mproper. The use o agens o he Operaon on hree occasons o gaher normaon whn he Uned Saes on srcy domesc maers was beyond he CAs auhory. n addon he negence dssemnaons and hose porons o a major sudy prepared by he Agency whch dea wh purey domesc maers were mproper. The soaon o Operaon CHAOS whn he CA and s ndependence rom supervson by he reguar chan o command whn he candesne servce made possbe or he acves o he Operaon o sray over he bounds o he Agencys auhory whou he knowedge o senor ocas. The absence o any reguar revew o hese acves pre\ened mey correcon o such msseps as dd occur. Recommendaon (15) a. Presdens shoud reran rom drecng he CA o perorm wha are essenay nerna secury asks. b. The CA shoud ress any eors, whaever her orgn, o nvove agan n such mproper acves. c. The Agency shoud guard agans aowng any componen (ke he Speca Operaons Group) o become so se-conaned and soaed rom op eadershp ha reguar supervson and revew are os. d. The es o he CHAOS projec whch have no oregn negence vaue shoud be desroyed by he Agency a he concuson o he curren congressona nvesgaons, or as soon hereaer as permed by aw. 4. Proecon o he Agency Agans Threas o Voence-Oce o Secury (Chaper 12) Fndngs The CA wns no mmune rom he hreas o, oence and dsrupon durng he pcrod o domesc unn s be ween 1U6 and H:2. The Oce o Secury was charged hroughou hs perod wh he responsby o nsurng he eonnupd und onng o h CA. The Oc hen ore. rom 1!H o O. had s >d ocrs coc normaon rom pubshed maeras, nw enorcemen auhores, / J! (.! " ". J 1 -.,, < ;. j! " j

33 26 oher agences and coege ocas beore recruers were sen o some campuses. MonDrng and communcaons suppor was provded o recruers when roube was expeced. The Oce w as aso responsbe, wh he approva o he Drecor o Cenra negence, or a program rom February 1967 o December 1968, whch a rs monored, bu aer nraed, dssden organzaons n he \Yashn,>on, D.C., area o deermne he groups panned any acves agans CA or oher governmen nsaaons. A no me \Vere more han 12 persons perormng hese asks, and hey perormed hem on a par-me bass. The projec was ermnaed when he Washngon Meropoan Poce Deparmen deveoped s own negence capaby. n December, 1967, he Oce began a connung sudy o d:;sden acvy n he "Uned Saes, usng normaon rom pubshed nnd oher vounary mo\vedgeabe sourer:::. The Oce produced weeky Suaon normaon Repors anayzng dssden ac, es and provdng caendars o ume evens. Caendars were g, en o he Secre Servce, bu he CA made no oher dssemnaons ousde he Agency. Abou 500 o 800 es were mananed on dssenng organzaons and nch dnas. Thousands o names n he es were ndexed. Repor pubcaon \YUS ended n ae 1972, and he enre projec was ended n Concusons The program under whch he Oce o Secury rendered asssance o Agency recruers on coege campuses \Yas jused as an exercse o he Agencys responsby o proec s own personne and operaons. Such suppor acres were no underakrn or he purpose o proecng he aces or operaons o oher gorernmena agences, or o manan pubc order or enorce aws. The Agrncy shoul no nrae a cssden group or secury purposes uness here s a cear danger o Agency nsaaons, operaons or personne, anc nnsgan: con rage o he hrea by w FB and oea aw enorcemen auhores s nadequae. The Agencys nraon o dssden group::; n he washngon area wen ar bryond sc ps JHcrssary o pro h.\gcm y s mn1 a(rs, pcr onne ;md opemons, and hereore xceeded he CL\.s sauo!} nnhory. n :ddon, he.\gpncy und rook o proec oh r g<h rmnwn <Pparnwns and agcnc5-: pocc uncon prohbed o by saue. ndgrner ac, y rrdrd oward >amng rom wha sourcps n domesc dssden group rece, cs s nanca suppor whn he ).//

34 Uned Saes, and how much ncome has, s no par o he auhorzed secury operaons o he Agency. Xeher s he uncon o he Agency o compe records on who aends peaceu meengs o such dssden groups, or ;vha each speaker has o say (uness reaes o dsrupve or voen acvy whch may be dreced agans he Agency). The Agencys acons n conrbung unds, phoographng peope, acves and cars, and oowng peope home were unreasonabe under he crcumsances and hereore exceeded he CAs auhory. wh ceran excepons, he program under whch he Oce o Secury (whou nraon) gahered, organzed and anayzed normaon abou dssden groups or purposes o secury was whn he CAs auhory. The accumuaon o reerence es on dssden organzaons and her eaders was approprae boh o e, auae he rsks posed o he Agency and o deveop an undersandng o dssden groups and her derences or secury cearance purposes. Bu he accumuaon o normaon on domesc acves wen beyond wha was requred by he Agencys egmae secury needs and hereore exceeded he CAs auhory. Recommendaon (16) The CA shoud no nrae dssden groups or oher orga nzaons o Amercans n he absence o a wren deermnaon by he Drecor o Cenra negence ha such acon s necessary o mee a cear danger o Agency aces, operaons, or personne and ha adequae coverage by a\v enorcemen agences s unavaabe. Recommendaon (17) A es on ndyduas accumuaed by he Oce o Secury n he program reang o dssdens shoud be dened, and, excep where necessary or a egmae oregn negence acyy, be desroyed a he concuson o he curren congressona nvesgaons, or as soon hereaer as permed by aw. 5. Oher nvesgaons by ze Oce o Secury (Chaper 13) A. Secury Cearance nvesgaons o Prospecve Empoyees and Operaves Fndngs and Concusons The Oce o Secury rouney conducs sandard secury nvesgaons o persons seekng uaou wh he.agency. n dong so, he -,..,_.,, _...,..._...,._._...,,_-,_"",.,...,,,_,.._..,..,,.;as!, ,...-_,.

35 28 Oce s perormng he necessary uncon o screenng persons o whom w make avaabe cassed normaon. Such nvesgaons are necessary, and no mproprees were ound n com1econ wh hem. B. nvesgaons o Possbe Breaches o Secmy 1. Persons nvesgaed Fndngs The Oce o Secury has been caed upon on a number o occasons o nvesgae specc aegaons ha negence sources nd mehods were hreaened by unauhorzed dscosures. The Conunssons nqury concenraed on hose nnsgaons rhch used nvesgave means nrudng on he prvacy o he subjecs, ncudng physca and eecronc suneance, unauhorzed enry, ma covers and nerceps, and revews o ndvdua edera ax reurns. The arge majory o hese nrcsgaons were dreced a persons aaed wh he Agency-such as empoyees, ormer empoyees, and deecors and oher oregn naonas used by he Agency as negence sources. A ew nresgaons nvoyng nrusons on persona prvacy were dreced a subjecs wh no reaonshp o he Agency. The Commsson has ound no evdence ha any such nvesgaons mre dreced :gans any congressman, jncge. or oher pubc ocn. FYe were dreced agans newsmen, n an eor o deermne her sources o Paked eassec normaon, and nne were dreced agans oher Uned Saes czens. The CAs nnsgaons o newsmen o deermne her sources o rassed normaon semmed rom pressures rom he \\yhe House and were pary a resu o he FBFs un" ngness o 1mdernke such m esgaons. The FB reused o proceed whou an adnwce opnon ) L/JJ ha he Jusee Deparmen woud prosecue a case were deycoped. 7,r! Concusons HYPsgnons o n1pgaons agans "\gpney empoyeps and operan s nr< a rrasonabr exrresr o h< Deors sauory dny o pror,., np.grnce som-ers nnd nwhods r-om unauhorzed dscosure rh" rn-psgnons nre awuy eonrucpd. Such nv<>sgaon nso nss;; he D<or n hp PXPresP o hs mrp, ewnhr anhor\ o erm. he empoymen o nny.agency empoyee. They are prper uness " a:; u _44S:#,Q _.,.,-_. _X#4@!#4 JPJ$_QJjZ9@&J:,._AP. 4QM;

36 29 her prncpa purpose becomes aw-enorcemen or he manenance o nerna secury. The Drecors responsby o proec negence sources and mehods s no so broad us o perm nvesgaons o persons havng no reaonshp whaever wh he Agency. The CA has no auhory o nvesgae newsmen smpy because hey have pubshed eaked J /.), cassed normaon. nvesgaons by he CA shoud be med o persons preseny or ormery aaed wh he Agency, drecy or ndrecy. Recommendaon (18) a. The Drecor o Cenra negence shoud ssue cear gudenes seng orh he suaons n whch he CA s jused n conducng s own nvesgaon o ndvduas preseny or ormery aaed wh. b. The gudenes shoud perm he CA o conduc nvesgaons o such persons ony when he Drecor o Cenra negence rs deermnes ha he nvesgaon s necessary o proec negence sources and mehods he dscosure o whch mgh endanger he naona secury. c. Such nvesgaons mus be coordnaed wh he FB whenever subsana evdence suggesng esponage or voaon o a edera crmna saue s dscovered. Recommendaon (19) a. n cases nvovng serous or connung secury voaons, as deermned by he Secury Commee o he Jned Saes negence Board, he Commee shoud be auhorzed o recommend n wrng o he Drecor o Cenra negence (wh a copy o he Naona Secury Counc) ha he case be reerred o he FB or urher nvesgaon, under procedures o be deveoped by he Aorney Genera. h. These procedures shoud ncude a requremen ha he FB accep such reerras whou regard o wheher a avorabe prosecuve opnon s s..<;ued by he Jusce Deparmen. The CA shoud no engage n such urher nvesgaons. Recommendaon (20) The CA and oher componens and agences o he negence communy shoud conduc perodc revews o a cassed maera orgnang whn hose deparmens or agences, wh a e" o decassyng as much o ha maera as possbe. The purpose o such revew woud be o assure he pubc ha has access o a normaon ha shoud propery he dscosed. F:, rormncndaon (21) The Commsson endorses egsaon, draed wh appropra /...!!

37 -C 30 saeguards o he consuona rghs o a aeced ndvduas, whch woud make a crmna oense or empoyees or ormer / empoyees o he CA wuy o dvuge o any unauhorzed }Jerson cassed normaon peranng o oregn negence or he coecon hereo obaned durng he course o her empoymen. 2. nvesgave Technques Fndngs Even an nvesgaon whn he CAs auhory mus be conduced by awu means. Some o he pas nvesgaons by he Oce o Secury whn he Uned Saes were conduced by means whch were nvad a he me. Ohers mgh have been awu when conduced, bu woud be mpermssbe oday. Some nvesgaons nvoved physca surveance o he ndvduas concerned, possby n conjuncon wh oher mehods o nvesgaon. The as nsance o physca surveance by he Agency whn he Uned Saes occm-red n The nvesgaon dscosed he domesc use o 3:2 v;reaps, he as n 1965; 32 nsances o buggng. he as n 1968: anc112 break-ns, he as n None o hese acves vas conduced under a judca warran, and ony one h he wren apprm-a o he Aorney Genera. normaon rom he ncome ax rpcords o 16 persons was obaned rom he nerna Rewnue Sen ce by he CA n order o hep deermne v1heher he axpayer was a secury rsk wh possbe connecons o oregn groups. The CA dd no empoy he exsng sauory and reguaory procedures or obanng such records rom he RS. n 91 nsances, ma covers (he phoographng o he ron and back o an enveope) were empoyc, and n 12 nsances eers " ere nerceped and opened.. The sae o he CA records on hese acves s such ha s oen dcu o deermne why he nwsguon occurred n he rs pace. who auhorzed he speca eo\ Prage. nnd wha he resus were. AhOwh here was esmony ha hse acv Ps were requeny known o he Drecor o Ccra negence and somemes o h.c Aorney Genera, he es oen nrc nsucpn. o conrm such normaon. C oncusos The use o physca surwnnee s no unawu uness rpaches he pon o hnrnssmen. The unnuhorzcd enres descrbed were,, -!!? w

38 ) ega when conduced and woud be ega conduced oday. Lke- wse, he revew o ndvduas cde!a ax reurns and he nercepon and openng o ma voaed specc saues and reguaons prohbng such conduc. Snce he consuona and sauory consrans appcabe o he use o eecronc eavesdroppng (bugs and wreaps) have been evovng over he yeas, he Commsson deems mpracca o appy hose changng sandards on a case-by-case bass. The Commsson does been ha whe some o he nsances o eecronc ea,, esdroppng w erc proper " hen conduced, many were no. To be awu oday, such acyes woud requre a eas he wren approva o he Aorney Genera on he bass o a ndng ha he naona secury s nvoved and ha he case has sgncan oregn connecons. Recommen.daon (22) The CA shoud no underake physca surveance (dened as sysemac observaon) o Agency empoyees, conracors or reaed personne whn he Uned Saes whou rs obanng wren approva o he Drecor o Cenra negence. Recommendaon (23) n he Uned Saes and s possessons, he CA shoud no nercep wre or ora communcaons 6 or oherwse engage n acves ha woud requre a warran conduced by a aw enorcemen agency. Responsby or such acves beongs wh he FB. Recommendaon (24) The CA shoud srcy adhere o esabshed ega procedures governng access o edera ncome ax normaon. Recommendaon (25) CA nnsgaon records shoud show ha each nvesgaon was duy auhorzed, and by whom, and shoud ceary se orh he acua bass or underadng he nvesgaon and he resus o he nvesgaon. C. Handng o Deecors Fndngs The OeP o Scnry s (hjgn wh provdng- srcnry or Wr,;ons who haw eed o he Cned nes. GcJwray n deecor 1 As >ncd n ue Omnbus Crme Conro and Sne Srees Ac, 18 U.S.C. Sees

39 32 canbe processed and paced no socey n a ew monhs, bu one deecor was nvounary conned a a CA nsaaon or hree years. He was hed n soary connemen under sparan vng condons. The CA mananed he ong connemen because o doubs abou he bona des o he deecor. Ths connemen was approved by he Drecor o Cenra negence; and he FB, Aorney Genera, Uned Saes negence Board and seeced members o Congress were aware o some exen o he con1wmen. n one oher case a deecor was physcay abused; he Drecor o Cenra negence dscharged he empoyee nvoved. "----- Concusons Such reamen o ndvduas by an agency o he rnec Saes s unawu. The Drecor o Ccnra ncgence and he nspecor Genera mus be aer o prewn repeons. 6. nvoz;emen o he CA n mproper Ac"oes or he Hhe House (Chaper 14) Fndngs Dnrng a w reques o Yarons mcmbrrs o he \Yhe House ":d, he CA proydec aas documens and dsguse marra, a ape recorder. camera, m and m proces..:;ng o E. T O\Yarc Hun. aso prq>a n d a p:-;ychoogca 1 proe o Dr. Dane E bwrg. Some o hs equpnhn was aer used whou he knowedge o he CA n connecon " h Ynrous mproper ac, Ps, ncudng he enry no he oce o Dr. Lews FPdng, Esbergs psychars. Some Pmbers o he CL\"s nw<ca sa \\"ho parcpapd n he pn paraon o he Esberg proe knp\\" ha O n s purposes was o suppor a pubc aack on Esberg. Exc<>p or hs ae, he nw,;gnon has <scospno e\ d nce ha hr CA \11(\\. or hn< rea :-:on o kno\\" ha he nss,;anee ga\ e woud w usd or mproper "JOSL,;. Pr sden Xxon and hs sar abo n:-;sp< n hs perod ha he C.\ urn OW o w Pn sden hghy ca:-:spd ks!pang o he Ld>anon andn:.,rs. h(\ Bay o P:.,rs. w Cuban mssh crss. and he Venam \Ynr. The reques was made on he ground ha hese ]_.s were Hd> by w Pn sdpn n w wrormunee o hs dups, bu he record shows w pnrpos.-, undscosed o hl CL\, was o.\" he Pn sens persona poea b. The Commsson hns uso nvesgaed he rsponse o he CA )--1

40 33 o he nvesgaons oowng he Waergae arress. Begnnng n June 1!)72, he CA receved varous requess or normaon and ) asssance n connecon wh hese nvesgaons. n a number o.,/ nsances, s responses were eher ncompee or deayed and some maeras ha may or may no have conaned reevan normaon were desroyed. The Commsson ees ha hs conduc reecs poor judgmen on he par o he CA, bu has ound no evdence ha he CA parcpaed n he \Vacrgae break-n or n he pos-\vaergae cover-up by he Whe House. Concusons Provdng he asssance requesed by he \Vhe House, ncudng he aas and dsguse maeras, he camera and he psychoogca proe on Esberg, was no reaed o he perormance by he Agency o s auhorzed negence uncons and was hereore mproper. No evdence has been dscosed, however, excep as noed n connecon wh he Esberg proe, ha he CA knew or had reason o know ha s asssance woud be used n connecon wh mproper acvrs. Nor has any evdence been dscosed ndcang ha he CA 1arcpaed n he pannng or carryng ou o eher he Fedng or \Yaergae break-ns. The CA appareny was unaware o he break-ns un hey were repored n he meda. The record does show, however, ha ndvduas n he Agency aed o compy wh he norma conro procedures n pro, dng asssance o E. Howard Hun. nso shows ha he Agencys aure o cooperae uy wh ongong nwsgaons oowng \Vaergae was nconssen wh s obgaons. Fnay, he Commsson concudes ha he requess or asssance by he \Vhe Honse nec a paern or acua and aemped msuse o he CA by he Nxon admnsraon. Recommendaon (26) a. A snge and excusve hgh-eve channe shoud be esabshed or ransmsson o a Whe House.sa requess o he CA. Ths channe shoud run beween an ocer o he Naona Secury Counc sa desgnaed by he Presden and he oce o he Drecor or hs Depuy. b. A Agency ocers and empoyees shoud be nsruced ha any drecon or reques reachng hem drecy and ou o reguary esabsh<"d channes shoud be mmedaey repored o he Drecor o Cenra negence.

41 »;: rw" $-er< &;em r $?# ere nx -e eh r -) nns SY ; xr -r#u? - --n r??,,;:. wear Domesc Acves o he Drecorae o Operaons (Chaper 15) Fndngs and Concusons n suppm o s responsby or he coecon o oregn negence and conduc o coyer operaons oyerseas, he CAs Drecorae o Operaons engages n a varey o acves whn he Uned Saes. A. Ove1 Coecon o Foregn negence whn he Uned Saes One dyson o he Drecorae o Operaons coecs oregn negence whn he Un:>d Saes rom resdens, busness rms, and oher organzaons w1ng o asss he Agency. Ths acvy s conduced openy by ocers who deny hemseves as CA empoyees. Such sources o normaon are no compensaed. n connecon \Yh hese coecon acyes, he CA manans approxmaey 50,000 acye es whch neude deas o he CL\..s rpaonshps " h hese Younary sources and he resus o a edera agency name check. The dysons coedon cjors haye bepn amos excusny con Hned o oregn economc, poca, mary, and operaona opcs. Commencng n 196D, howcyer, some aeyes o he c, son resued n he coecon o med normaon \Yh respec o.amerean dssdens and dsseu groups. Ahough he ocus \Yas on oregn conacs o hese groups. background normaon on domesc dsscrns was aso cokerc. Br,Yren DGD and DH, when hs acvy was ormay ermnaed, 400 repors were made o Operaon CHAOS. n 1D2 and 193, he dvson obaned and ransmed, o oher pars o he CA, normaon abou eephone cas beween he Wesern JPmsphere (ncudng he Unrd Saes) mu wo oher counres. The normaon was med o namrs, eephone numbers, :n11 ocaons o caers and recpens. dd no ncude w conen o he com ersaons. Ths, son aso occasonay rrceh rs repors concprnng crmna nevy whn he Uned Saes. Pursuan o wrrn rg-uaons, w source o a repor o e normaon rcccyed s rrerred o he :pproprap aw enorernwn ag-rncy. The CAs rors o eore oregn negence rom resdens o he :ned Sas wng o asss he CL\. nrc u. vad und necrs!ary eenwn o s responsby. No ony do hese persons provde ",.,."-.,.._;-v--""j.!!--ch 9&?$ w:--- """,J14;::>._K HH()J$J4LJ#k.#)#PEAA_,,,.Q_,Q.?

42 }$? r7 +r - r e= dr r" # \SCM#c osrxs. S"S 35 a arge reservor o oregn negence; hey are by ar he mos accessbe source o such normaon. The dvsons es on Amercan czens and rms represenng acua or poena sources o normaon consue a necessary par o s egmae negence acves. They do no appear o be vehces or he coecon or communcaon o derogaory, embarrassng, or sensve normaon abou Amercan czens. The dvsons eors, wh ew excepons, have been conned o egmae opcs. The coecon o normaon wh respec o Amercan dssden groups exceeded egmae oregn negence coecon and was beyond he proper scope o CA acvy. Ths mproprey was recognzed n some o he dvsons own memoranda. The Commsson \vas unabe o dscover any specc purpose or he cojecon o eephone o ca normaon or any use o ha normaon by he Agency. n he absence o a vad purpose, such coecon s mproper. B. Provson and Conro o Cover or CA Personne CA personne engaged n candesne oregn negence acves canno ra, e, ve or perorm her dues openy as Agency empoyees. Accordngy, vruay a CA personne servng abroad and many n he Uned Saes assume a "co\ er" as empoyees o anoher gm ernmen agency or o a commerca enerprse. CA nvoh emen n eeran ac, es, sueh as rpsearch and deveopmen projecs, are aso somemes conduced mer cover. CLAs co, er arrangemens nrc essena o he CAs perormanee o s oregn negence msson. The nyesgaon has dscosed 110 nsances n whch domesc aspecs o he CAs cover arrangeuwns nyoyed any Yoaons o aw. By drnon. howcwr. co, er Jwcrssaes an eemen o decepon whch mus be pmcced "hn he r:ncd Saes as we as whn orpgn counres. Ths crracs a rsk o cone wh Yarous rrgunory saurs and or ega n qunhs. The \ghy rrcognzrs hs r:-:k. has nsakd co11 ros und r whch eoyp" arr:wgcnwns are o:-y upervsed o aemp o ensure compabcc wh appcabh aws. The CA SS propreary compan( s o proddp eovrr and Jwrorm mbsran asks whou. arbuon o.\gcrwy. )os o he nrg< operang proprars-prmary nrjws-havc b> n qu! J!. r 1:! j j r 1.. J: C. Operang Propreary Companes

43 36 daed, and he remander engage n acves oerng e or no compeon o pr ne enerprse. The ony remanng arge propreary acdy s a compex o nanca companes, wh asses o approxmaey $20 mon, ha enabe he Agency o admnser ceran sensve russ, annues, escrows, nsurance arrangemens, and oher benes and paymens provded o ocers or conrac empoyees whou arbuon o CA. The remanng sma operang propreares. generay havng e,, er han en empoyees each, make nonarbuabe purchases o equpmen and suppes. Excep as dscussed n connecon wh he Oce o Secury ( soo Chapers 12 and 13), he Commsson has ound no evdence ha any propreares have been used or operaons agans Amercan czens or nnsgaon o her acves. A o hem appear o be subjec o cose supervson and mupe nanca conros whn he Agency. D. Deveopmen o Conacs \Vh Foregn Naonas n connecon wh he CAs oregn negence responsbes, seeks o deveop conacs wh oregn naonas \Yhn he "Cned aes. Amercan czens vounary asss n denopng hese conacs. As ar as he Commsson can nd, hese acves han no \ oh ed coercve mehods. These ach e>s appear o be dreced enrey o hr producon o orrgn negence and o be whn h(. auhory o he CA. \Y c onnd no m dnce ha any o wsc ac, es have been dreced agans Amercan czens. E. Asssance n Narcocs Conro Tw Drecora o Operaons JH o, ds or0gn ng>nce suppor. o he gonrnmcn;; e1ors o conro h0 ow o narcocs and o hrr dangerous drurs no hs counry. The C L\. coordnaes c and es 11e ncg0ne co0con m rscas ah prm d::> oher gonhn ::Pcs wh on gn ng<< on drug rae. Fmm he wgnnng o sw:h >ors n!!, w CA Drecor and (>her ocas ha, < nsrncn -mpo.n<s o mnk< uo aemp o gawr.n onnaon on.anwrcaus apgpdy rackug n drugs. snch normaon s obaned ncdenay, s ransmed o aw enorccnen. agences. (onn rns ha w CL\.s narcocs-r-an n-gpnc- ncy >s may nmh ( he AgPH.V n aw (norcmen or ohr acons n erd "- ns.amerean cz<ns hus 11 ppca run wa rran(. r, J + _...,..._

44 37 Begnnng n he a o 1973, he Drecorae monored conversaons beween he Uned Saes and Lan Amerca n an eor o deny narcocs rackers. Three monhs aer he program began, he Genera Counse o he CA was consued. He ssued an opnon ha he program was ega, and was mmedaey ermnaed. Ths monorng, ahough a source o vauabe normaon or enorcemen ocas, was a voaon o a saue o he Uned Saes. Connuaon o he operaon or over hree monhs whou he knowedge o he Oce o he Genera Counse demonsraes he need or mproved nerna consuaon. (See Recommendaon 10.) 8. Domesc Acves o he Drecorae o Scence and Technoogy (Chaper 16) Fndngs and Concusons The CAs Drecorae o Scence and Technoogy perorms a varey o research and dheopmen and operaona suppor uncons or he Agencys oregn negence msson. )!any o hese ac, es are perormed n he Uned Saes and m oh e cooperaon wh prvae companes. A ew o hese acves were mproper or quesonabe..:\s par o a program o es he nuence o ch ugs on humans. re ::<Par( h ncuded he admnsmon o LSD o persons who \YC nna\\ are ha hey " ere beng esed. Ths " as ceary ega. One [PJ-son ded n 1953, appareny as a resu. n 1%:3, oowng w nsppcor Generas dscon ry o hese enns, new srngen crera m re ssued prohbng drug Psng by h( CA on unknowng persos. A drug esng programs \Wre ended n 19GT. 11 he process o esng monorng equpmen or use oyersras. he (L\ has overheard ronn rsa ons beween Amercans. The names o h :-;prakers \He no dened; he conens o he conwrsnons were 1101 dssemnaed. "\11 recordngs wprc desroyed when esng was eonded. Such esng shoud no be nced agans SSJWrng per )ns n he Jned Saes. ::\os o he esng underaken by w Ageney ) Pasy hnye been perormed 11sng ony.\gency JWrsonJH and ;,,. wh he u knowedge o hose whose conn rsaons wen brng rc- /"":! "rdc. Ths s w pn sen Ag><Y pracce. :::. Oher ncv s o hs Drecorae ncude he manuaeun o aas \" n d nas or u:-;c by CA mpoy cs and agenb. Aas >dcnas nro nceessnry o acae CL\ ennd snp operaons, bu w ::; rd es eonros und accounaby mus be munnned over he use o such (..,., \,. - $! ;- "1. }. -!!"!.. j

45 ,ocumens. Recen gudenes esabshed by he Depuy Drecor or Operaons o conro he use o aas documenaon appear adequae o preven abuse n he uure. As par o anoher program, phoographs aken by CA aera phoography equpmen are provded o cvan agences o he go, ernmen. Such phoographs are used o assess naura dsasers, conduc roue sur\eys am ores nvenores, and deec crop bgh. Permng cvan use o aera phoography sysems s proper. The economy o operang bu one aera phoography program dcaes he use o hese phoographs or approprae cvan purposes. Recommendaon (27) n accordance wh s presen gudenes, he CA shoud no agan engage n he esng o drugs on unsuspecng persons. Recommendaon (28) Tesng o equpmen or monorng conversaons shoud no nvove unsuspecng persons vng whn he Uned Saes. Recommendaon (29) A cvan agency commee shoud be reesabshed o oversee he cvan uses o aera negence phoography n order o avod any concerns over he mproper domesc use o a CA-deveoped sysem. 9. CA Reaonshps Vh Oher Federa, Sae, and Loca Agences (Chaper 17) CA operaons ouch he neres o many oher agences. The CL\, b, oher agences o he gonrnnwn, requeny has occason o gn or receve as::sance rom oher agencs. Ths nvesgaon has con n racd on hose reaonshps wheh rase subsana quesons undcr he C.A s egsa re mandae. Fndngs and Concusons A. Federa Bureau o nvesgaon Tw FB eounernegcnec opmons oen have posve nc :..ru e rnmeaons. LkewsP, egm:< (onwse CL\ ad\ >s oth onny eross he pah o FB nve,;;gaons. Day ason s hen ore PCssary beween w wo agnc>s. :\hwh roune normaon s passed back and orh. Occasonay Jon opernons nrc conduced. The reaonshp beween he ugenccs...! 1?

46 -.<.... x r. Wbdrme n«m m 77hD&MH czv h rr: nrr m rr ""* -- ;.::._,..c- r has, however, no been unormy sasacory over he years. Forma ason was cu o rom February 1970 o November 1972, bu reaonshps have mproved n recen years. The reaonshp beween he CA and he FB needs o be cared and ouned n dea n order o ensure ha he needs o naona sccury are me whou creang concs or gaps o jursdcon. Recommendaon (30) The Drecor o Cenra negence and he Drecor o he FB shoud prepare and subm or approva by he Naona Secury Counc a deaed agreemen seng orh he jursdcon o each ag ency and provdng or eecve ason wh respec o a maers o muua concern. Ths agreemen shoud he conssen wh he provsons o aw and wh oher appcabe recommendaons o hs Repor. Fndngs and Concusons B. Narcocs Law Enorcemen Agences Begnnng n ae 1970, he CA asssed he Bureau o Narcocs :111d Dangerous Drugs ( BNDD) o unconr possbe corrupon whn ha organzaon. The CA used one o s propreary companes oren agens or HNDD and gan hem shor nsrucona courses. On r wo and one-ha years, he CA recrued 19 agens or he 1\XDD. The projec was ermnaed n The Drecor \Yas correc n hs wren drecve ermnang he prujec. The CAs parcpaon n aw enorcemen acves n he, nuse o hese acves \Yas orbdden by s saue. The Drecor an he nspecor Genera shoud be aer o preven nvovemen o h. \.gency n smar enerprses n he uure. C. The Deparmen o Sae J.o more han o years he CA hrough a propreary concuded.(ranng sehoo or oregn poce and secury ocers n h "ned :-:\ae,; under he auspces o he Agency or nernaona Deveopmen., w Depn.ruwn o Sae. The propreary abo sod sma amouns o sed reanns and poce equpmen o he oregn occrs and her d parmens. TH CAs nd, es n provdng ednrnona programs or or!n poc- w< re no mprop r under he.\gcneys saue. Ahough w schoo was condudcd vhn he Cn d Saes hrough n CA propreary, had no oher sgncan domesc mpac. F.-:::: _ /<.::: ". j

47 40 Engagng n he rearms busness was a quesonabe acvy or a governmen negence agency. shoud no be repeaed. D. Fundng Requess From Oher Federa Agences n he sprng o 1970, a he reques o he \Vhe House, he CA conrbued $33, or paymen o saonery and oher coss or r>pes o persons who wroe he Presden aer he nvason o Cnmboda. Ths use o CA unds or a purpose unreaed o negrnce s mproper. Seps shoud be aken o ensure agans any repeon o such an ncden. E. Sae and Loca Poce The CA handes a varey o roune secury maers hrough a on wh oca poce deparmens. n addon, oered ranng, ou r-ses rom 1966 o 1973 o :"ned Saes poce ocers on a varey "aw enorcemen echnques, and has requeny supped equpmen o sae and oca poce. genera, he coordna.on and cooperaon beween sae and Jn, a aw enorcemen agences and he CA has been exempary, u,;ed upon a desre o acae her respecve egmae ams and :: 1a s..\o:; o he asssance rendered o sae and oca aw enorcemen a!ences by he CA has been no more han an eor o share wh aw,.,orcemen auhores he benes o new mehods, echnques, and upmen deveoped or used by he.agency. On a ew occasons, however, he Agency has mpropery become m oved n acua poce operaons. Thus, despe a genera rue a!.!:ns provdng manpower o oca poce orces, he CA has en :Pn, aong wh rado-equpped vehces, o he washngon.\eropo:m Poce Dparmen o hep monor an-war demonraons. p d he sam Deparmen sune a poce normer. aso prov<ec :111 n<>rpreer o he Farax Couny (Vrgna) Poce Deparmen o, nn crmna nvesgaon. n eompance wh he spr o a. recen.ac o Congr<>ss, he CA nnnaed a bu roune nsssanco o sae nnd oca aw Pnorce n!ences n!:. Such n!"ssah. s now (ng provd sa< and oen agences by he FB. There s no mpropry n he C.As ur...,,ug he FB wh normn on on new echnca deveopmens "d1may be useu o oca aw norcemen. For se,:ern yeurs he CA hus gn n graues o ocu poce o- { r! J,, > 4 - ".. } -;1,. 1! \. - -"" 1,;; ;..

48 anwr 41 c>rs who had been hepu o he Agency. Any such pracce shoud!11 ermnaed. The CL\ has aso receved asssance rom oca poce orces. Asde {rom roune maers, ocers rom such orces have occasonay a,;.":scd he Oce o Secury n he conduc o nvesgaons. The CL\ has occasonay obaned poce badges and oher dencaon or 11sc as cover or s agens. Excep or one occason when some oca poce asssed he CA u an nnahorzed enry, he asssance receved by he CA rom sae an( oca aw enorcemen auhores vas proper. The use o poce dencaon as a means o provdng cover, whe no srcy speakng a voaon o he Agencys sauory auhory as ong as no poce uncon s perormed, s a pracce subjec o msundersandng and ho11d be avoded. 10. ndces and Fes on Amercan Czens (Chaper 18) Fndngs Bographca normaon s a major resource o an negence ;!\(Y The CA manans a number o es and ndces ha ncude o:_;ra ph ca normaon on Amercans..\sa par o s norma process o ndexng nanws and normaon o mcgn negence neres, he Drecorae o Operaons has nd x>d S(mc 7.000,000 names o a naonaes. _\11 esmaec15,000 " wsc are beend o be Amercan czens. \\here a person s bcenc o be o possby connung negence : r s. es o coec normaon as receved arc opened. An es :: a>d >,OOO ou o n oa o 750,000 such es concern Amercan zens. For he mos par, he names o Amercans appear n ndces :u;d es as acua or poena sources o normaon or asssance o 1- CA. n addon o hese es, es on some 7,200 Amercan z( ns, reang prmary o her domesc ach es, were, as aready ad, eomped whn he Drecorae o Operaons as par o < < raon CHAOS. Tw 1Jrecorne o.admnsraon mnnans a number o es on J>Tsons who ha, e been assocac wh he CA. These es arc manr ;n ( or secury. per3onne. ranng, medca and payro purposes. Y Pry ew are mananed on pc >ons una ware ha hey have r reaonshp wh he CA. Howner, he Oce o Secury mananed :J." on.amercan czens assocaed wh dssdpn groups who were PHr naed wh he Agency because hey WPre consdered a hrpn o he physca seenry o.agency aces nnd empoyees. These._...

49 42 es were aso mananed, n par, or use n uure secury cearance deermnaons. Dssemnaon o secury es s resrced o persons,\- han operaona need or hem. The Oce o Legsave Counse manans es concernng s reaonshps wh congressmen.! Concusons Ahough manenance o mos o he ndces, es, and records o 1 H \gency has been necessary and proper, he sandards apped by 1 he Agency a some pons durng s hsory have permed he ac umnaon and ndexng o maeras no needed or egmae negrnee or secury purposes. ncuded n hs caegory arc many o he s reaed o Operaon CH.:\OS and he acves o he Oce o < cury concernng dssden groups. Consan vgance by he Agency s essena o prenn he coec on o normaon on Uned Saes czens " hch s no. needed or pmper negence acves. The Execun Order recommended by hp Commsson (Hecommencaon 2) w ensure purgng o non,.na or mproper maeras rom.agency es. 1. Aegaons Concernng he Assassnaon o Pres" den [(ennedy (Chaper 19) Xumerous aegnons have been made ha he CA parcpaed n r )( as-sassnaon o Presden,John F. Kennedy. The Comms;;on sa nwgned hese aegaons. On he bass o w snjs n-e,;gnon, 11 Commsson concudes h< here s no credbe CYdencc o CA H] \ emen. %4 4 $. 4 C WA

50 d Par Te CAs Roe and Auhory "-,,.,_..,.,._._.

51 &.::.u... -;;wa --,- # K re"r#m---"?x%m Mz 7-SS? Mrr" - --re-13 r n- MTzn- r nroducon The ega auhory o he Cenra negence Agency derves prmary rom he Naona Secury Ac o 11H7 and he mpemenng drecves o he Naona Secury Counc. The Ac, wren n broad erms, s propery undersood ony :gans he hsorca background. Chaper 4 dscusses hs background. Chaper 5 ses orh he sauory anguage and descrbes he egsb\ c hsory, he subsequen Naona Secury Counc drecves, :n! he admnsrave pracce. Chaper 6 anayzes he scope o he CAs ega auhory or s ac\ es whn he Uned Saes. (44) :.";

52 Chaper 4 negence and Reaed Acves by he Uned Saes beore 1947 The Uned Saes, ke oher counres, has ong coeced negence. Un word "Tar, however, s ac Yes were mnma. Genera Dwgh D. Esenhower descrbed he prewar Uned Saes negence sysem as "a shockng decency ha mpeded a consruc Ye pannng." 1 was no un he Oce o Sraegc Servces ( OSS) " as esabshed durng he second word \Var ha he organzed coeeon o negence began on a subsana scae, ahough he FB was acve n Lan Amerca n he ae 1930s and durng he war. Even beore Pear Harbor, Presden Frankn D. Hoosen was acuey aware o decences n Amercan negcnce. \Yhcn cang on "am J. DonoYan, a Xew York a,yyer who aer headed OSS, o dra a pan or an negence sence, he buny observed: "\Ve ha \e no negence sen ce. DonoYans sudy recommencpc ha a een m un be esabshed o coordnae negence ac, es and o process normaon or he Presden. As a resu, OSS was creaed o operae n ceran major heaers. The uncon o OSS was o coec and anayze sragc normaon requred by he Jon Ches o Sa and o conduc speca operuons no assgned o oher agences. Oher negence scryces o he Sae Deparmen and he mary sen-ces \Yere mnnnne o eoec acc1 n>gence dwy reaed o her specc msons. OSS reed prmary on hree operang sas: (1) he Secre negence dyson. assgned o owrscas coecon, generay nn>h ng rsponag; () he X-2 L, son. w OHnerespona!!L un whch proeced he secury o rsponage agns; (:3) he HSearch nnd.anayss dyson, whch prndueed negenee repors or pocy makers. Tho OSS aso perormed oher uncons, yaryng ronpropaganda o paramary operaons. ** ,_.,,..,,.._,.,..,,.,.,,..,.;,<e""-,1! };s>nhowr. Crusn e n F.uro,,. J. ::! (1948). 1.. Ransom, The ncucnc E abshmcn, p. 61 (1970). (45) JW"1! """-.J ""w"" "-""_...,....,..., ,... ":"":;r.;" --...,.. """! """Y.-.m_ :...-,:..-+.<! 1 J ;r"?

53 46 e 7"Wrd.-, z,. m bw me By he end o he war, approxmaey 13,000 cmpoyees were engnged n he negence and speca operaons acves o he OSS..!upped pocymakers wh essena acs and negence esmaes. aso payed an mporan roe n drecy adng mary campagns..neverheess, OSS ne, cr receved compee jursdcon m er a oregn negence acves. n he Souhwes Pacc Theaer, s acves were med. :Moreover, ahough he jursdcona boundares bebyeen he FB and he mary servces were nrrc1 made enrey cear, he FB had been assgned responsby {or negence acves n Lan Am<rca. Frcon n<vaby deveoped among he FB. he mary and OSS durng he war. On Ocober, 1945, oowng he end o he war, Presden Tru Jnan ordered ha OSS be dssoved as an ndependen body. Se\ era o he brancws o OSS connued and were absorbed by oher agen s, Hesearch and negence evauaon \VUS assgned o he Sae pnrmen, and c sponage and r< ued speca operaons were ranspnh o he Yar Deparmen. :n n beore OSS,,-as csmembrrcd. however, proposas had been d r:mn np or a poshva r cenrazn negence sysem. These eary :n-. and he dscussons concernng wm, ed nmaey o he cre ;JnJJ o he CA. The parcpans n hese eary dscussons a be<\(d srongy ha a posbyar negence capaby was necessary. T. ) dered ony n her.-ews concemng he proper srucure and 1nk or a cenrazed ag<ncy. T org na pan Genrra Dononm submed o Presden Hoosc. n XoHmber caed or separaon o negence sen.ces ron1 H,Jon Ches o Sa. Drec Presdena supetson was! O((d. To :n>c dupcaon and ensure eecve coordnaon, Donovan J : ":-: an "organzaon " heh \Y procure negence boh by.n :1nd cover mehods an \r a he same me pro\ dc ne :: n " gncanee, <eennne nnona 1 negenee objec\ es. and cor h,.!e negnce naern 1 eo>d < by a Go1 rrnmen agence;;." nder hs pan, a po\\eru cenrazn agency woud han dom ::a d he negence SP!Tces o sehm deparmens. DonoYans. Jnorandum aso propos<d ha hs agency han auhory o condud,,d,\ Prsn operaons abroad" bu "no poce or nw rnoreenwn un h>j-, h<r a honw o abroad." -na crnrazpd approahs \\(!< orrrc n n sponse as soon as hjo\ :s pan \\as d s med or commen. The X a, y ook he ead """ng a eon1pp! 111erg>r o nrgjhe :wn eps. ass:>re ha w >unonm proposa \\as no pashe snce :>ach ope1 nng dpparr:w! had ndvdua needs whch requred "operang negence,,ar o be." propo:::c a CenranegLH:e Agency n name a or...,.. r? ;-, {,

54 47 ony whose uncon woud be o coo dnae negence normaon, "ns ar as praccabe, [o] uny a oregn negence acves, and o synhesze a negpncc deveopmens abroad." The Army concurred n he Navys opposon o a ghy cenrazed negence sen ce. The Sae Deparmen preerred an nerdeparmena commee organzaon chared by he Secreary o Sae. The Deparmen conpnded ha, n peaceme, he Secreary o Sae shoud supervse a opernons aecng oreg11 reaons. The Jon Ches aso avored coordnaon bu opposed gh cenrazaon. Ther opposon o negence coecon by a cenra gency was paced on he narrower ground ha coecon o ne ;_;NCe shoud generay by carred ou by exsng deparmens excep when done by candesne mehods. They aso objeced o Donovans proposa ha he new agency engage n oregn cover operaons!sueh as OSS propaganda. and paramary acons) because "subver re operaon abroad does no appear o be an approprae uncon o n Cenra negence servce." Ths aspec o he orgna Donovan pnn was no, hereaer, speccay ncuded n any proposa. The FB aso deveoped s own proposa or poswar negence. woud ha, e assgned responsby or "cvan" negence o he FB on a word-wde bass and e "mary" negence o he n rrncd servces. On January 22, 1946, n response o hs pocy debae, Presden Truman ssued a drecve esabshng he Cenra negence Group 1 (n). The na drecve was deveoped by he Bureau o he Budge :1,; a compromse. The CG was dreced o coordnae exsng depar!11\ha negence and o perorm hose negence uncons whch 1 Xaona negence Auhory (NA.), a orerunner o he Na : : H Secury Counc, concuded shoud be perormed cenray. The < G suppemened bu dd no suppan deparmena negence... n es, ahough he FB dd abrupy whdraw s negence...-n ee rom Lan Amerca. The XA and CG were repaced one and one-ha years aer by he \:!ona Secury Counc and he Cenra negence.agency. The (.\s organzaon and roe reeced he CG compromse beween ompeng conceps o gh cenrazaon and oose conecemon. Tw (.\ was ony one o severa agences assgned negence uncons. os o he specc assgnmens gh en he CA, as we us he pro. :!.:ons on poce or nerna secury uncons n s snue, c.osey.,ow he orgna 1944 Dono\ an pan and he Presdena drecve : a ng he CG.. 1 " " $ -. ; 1 ;;., )!$,> - 1 JJ. ;:.! J. J 1 -=,...-

55 Chaper 5 The Sources o CA Auhory The Naona Secury Ac o 1947 charges he CA wh he duy o coordnang he negence acves o he edera gonrnmen nr correang, evauang and dssemnang negence whch a res naona secury. n addon, he Agency s o perorm such oher uncons and dues reaed o negence as he Naona ( cury Counc may drec. The saue makes he Drecor o Cenra negence responsbe or proecng negence sources and 111dhods. Congress conempaed ha he CA woud be nvoved n a a"pcds o oregn negence, ncudng coecon. undersood ha he Agency oud engage n some acves, ncudng some over o orcon, whn he Uned Saes. The saue expressy provdes ha he.agcncy sha have no aw norcemen powers or nerna secury uncons. Ths prohbon s an negra par o he denon o he CAs auhory. reecs Congress genera undersandng ha CA acves n he Uned aes woud be jused ony o he exen hey suppored he CAs basc oregn negence msson, Ths undersandng has been reeced n he Naona Secury Counc negence Drecves and he owr documens whch urwr dene. he Agencys jursdcon. Mcrmnng he scope o he Agencys auhory whn he Uned Sa(S s prmary a maer o drawng he ne beween he respon by o he CA and ha o he FB, whe ensurng adequae coordnaon o ayod gaps n conrage. The areas posng he mos <u!.sana probems n hs respec hn e m oved counernemgence :uu he pr senaon o he secury o negence sources and nhods. ;;. /, cj,, oj:<. k 1 hr.o erms men hs repor requre denon: o.-er ro!n on-nh J:ene cocpnn nce whch dscose he deny o h o<n: ncnry o he ource o h normaon. ( 2 Jand ne eoccon-s<cr ro.-coo nc\ s where he source o he norm&!ror, h unnware o ho <env or n cnce o he coe<or.. :o <over ncve,-ne\e, ndudn coc!on, ha ore secre, and denabe as "nk nks o he Und aes go.-ernmeu. (48).,.

56 49 A. The Saues The Naona Secury Ac o 1947 repaced he Naona negence Auhory wh he Naona Secury Counc, composed o he Pnsden, he Secreary o Sae, he Secreary o Deense, and oher ;ecreures and Under Secreares when apponed by he Presden wh he advce and consen o he Senae. 3 Subsequen egsaon added he Vce Presden as a member. The Ac aso creaed he C >nra negence Agency and paced under he drecon o he :\nonn Secury Counc. The Agencys sauory auhory s conaned m Te 50 U.S.C. Seons403 (d) and (e): (11) For he purpose o coordnang he negence acves o he severa (O\rnmen deparmens and agences n he neres o naona secury, hn he he duy o he [Cenra negence] Agency, under he drecon o h Xnona Secury Counc- (1) o advse he Naona Secury Counc n maers concernng such negence acves o he governmen deparmens and agences as reae o naona secury ; (2) o make recommendaons o he Xaona Secur) Counc or he coordnaon o such negence acves o he deparmens and agences n he gonrnmen as reae o he naona secury; {3) o correae and evauae negence reang o he naona secury, nnc provde or he approprae dssemnaon o such negence whn h Governmen usng where approprae exsng agences and aces: rm:de, ha he.\gency sha have no poce, subpoena, aw-enorcemen powers, or nerna secury uncon,;: Prodcd urrcr, Tha he deparmens and oher agences o he Govrnmen sha connue o coec, evauae, correae, and dssemnae deparmena negence:.4zd proz:c. urher, Tha he Drecor o Cenra negence sha be reponsbe or proecng neg>nce sources and mehods rom unauhorzed dscosure ; ( 4) o perorm. or he bene o he exsng negence agences, such addona sprvres o common concern n;;; hp Xnona Secury Counc dpermnes can be more ekpny accompsh>d cenray; (5) o perorm such oher uncons nn< cue rpaed o nj!gence nrecng he naona securr a,; he Xnonn Secury Counc may rom mp o m drec. (!)To h! exn recomnwnp< by w Naona SN ury Counc and approved 1.Y he Pr<>s!Pn, such negp< or h<> PJHrnwns and ngpnps o he <;.,,.rnmen. expep ns herenn<>r prov!({!, renn o he nnonn S<cury hn h<> open o he nspecon o he Drecor o Cenra n>genr<, nnd such! gen< ns rea<> o he naonn secury nn.e: JOS;<.SR({ by such depar A 1111<1 oh<>r ng<>ne!ps o he Governmen, Xcep ns he"(nner pro>ded. u he md! avaabe o be DrPor o nrn npgence or corrpaon, "nunnn. and <sspmnnon: Trn, rd, 1ozr1rr. Tha npon he wren reques o he Drecor o C<>nrn "nr he orgna an. he Drecor or Muua Seeury and he Charman o hp!ona!ernry RP11oureea Board v. ere ncuded u memb>rs. Boh h e po on have!..,. >Hn abosh<<.,, r z...! - ; ) 1 1 : J { "! j; J 1 "1- j;,.\j 1 J.:!1._::; \! r 1!....? j }

57 50 n(:ence, he Drecor o he Federa Bureau o nvesgaon sha make R\"Anhe o he Dre(or o Cenra negence such normaon or correarnn, (Vauaon, and dssemnaon a may he essena o he naona secury. The Drecor o Cenra negence, who heads he CA, s apponed by he Presden wh he advce and consen o he Senae. Thr poson o Depuy Drecor o Cenra negence, added o he saue n 1953, s subjec o smar apponmen provsons. A no 1 m may boh posons be ed by mary ocers, Oher provsons o he 1947 Ac gve he Drecor o Cenra nh gence compee auhory over he empoymen o CA per onne. He may, n hs dscreon, dsmss any empoyee whenever "he ha deem such ermnaon necessary or ad...-sabe n he neress o 1 he cned Saes." Hs decson s no subjec o judca or Cv : rvce revew. n he 1949 CA Ac, Congress enaced addona provsons perng he Agency o use condena sca and admnsrave pro < dnres. Ths Ac exemps he CA rom a usua maons on he \J)(!dme o edera unds. provdes ha CA unds may be ndnded n he budges o oher deparmens and hen ranserred o.\.gency whou regard o he resrcons paced on he na appropraon. Ths Ac s he sauory auhory or he secrecy o h,, Agencs budge. Thr 1!)49 Ac aso auhorzes he Drecor o make expendures or "n!.j"rs o a condena, exraordnary, or emergency naure on L:> prrsona voucher and hou urher accounng. n order o J ropc negence sources and mehods rom dscosure, he 19-1!).\d urher exemps he CA rom havng o dscose s "organzaon. uncons, names, oca es, saares or number o personne " poyed.". :!:. B. The Legsave Hsory The 1947 Congressona hrarngs and debaes reec a dua concern. Congress nceeped he need or a cenrazed negence agency ha v.oud suppy he Prcsden wh a compee and accurae pcure o w rapnbcs. nenons. and acves o oregn counres. On he H 1 han<, wre was consch rabc congrpsona concern m rr poss- 11 msuscs o hs new ngrncy. The commens o Represcnan < ar nce Brown (Hcpubcnn-Oho) are nsrnye: nrn very mu(! nrsed n s>cng he UnP 1 :::a>s have as ne a on gn ;nry and nnvnnegnjc( as hey (n possby han>, bu nm no neresed n hng UJ h>rp n h> Uned n> nny parcnar cenrn po(y(sr] ngen(y nn h r any PrE>shPn,nm do no car< wha hs name may be, and jus aow hm.. u\. a g>sayo o hs own he> wnns o have. J:, Pry now and n you ge> n man ha comes up n power and ha has an :np ras dea.

58 51 The House, n he course o s deberaons, added anguage o he h submed o Congress by Presden Truman whch deaed he!pccc uncons gven o he CA. n dong so, generay oowed h<> anguage o he Presdena drecve whch had esabshed he C<nru negence Group, he CAs predecessor. The ncuson n he 191 j Ac o specc uncons and prohbons, hereore, was o rnsuro ha a Presden coud no aer he CAs basc uncons whou rs obanng he approva o Congress. 1. Auhory To Coec negence The sauory uncons o he Agency ncude coordnang ndgence acves and wrreang and evauang negence. The "aue se does no expressy auhorze he Agency o engage n n>gence coecon. Congress e hs maer o he Naona N>cury Counc, whch was auhorzed o drec he Agency o peronn "oher uncons and dues reaed o negence:: and "addona servces o common concern," whch are "or he bene o he xsng negence agences." s cear rom he egsave hsory ha Congress expeced he :\ ona Secury Counc o gve he CA responsby and auhory or overseas esponage. The Naona negence Auhory had g; en hs responsby o he predecessor Cenra negence (;roup n "nesses and congrrssnwn were rrucan o dscuss suh maers pubcy, bu Genera Hoy Vandenberg, Drecor o he \G, od he Senae commee n secre sesson: he Uned Saes s o be orced by condons n he word oday o ener d1mdesne opemons abroad, hen such opemons shoud be cenrazed n one njn ncy o avod he msakes ndcaed. and we shoud oow he experence " he negence organzaons o oher counres whch h ave proven successu n hs ed. :-::ome wnesses durng he congressona hearngs opposed gvng he CA any responsbes or coecon o negence and urged hn he auhory ohe Naona Secury Counc o assgn addona,mrons o he CA be deeed so ha he CA coud no coec nprpnce. Congress dc no agrp(..ahough hyo congressnwn expn sscd dsappro\ a o any CA coecon. he genera provsons were!n chaenged durng he oor debaes. They rpmnn n he saue as auhory or he CA o coec negence a he drecon o he aona Secury Counc...,. r >). - - " r! ;1, 2. The Meanng o "negence" 11e 1946 Pnsdena 1 Drecve expressy rsrced he Cenrn neww.e Group o acd s ronn ded wh oregn nc gence. Ahough he 1947 Naona Secury Ac does no conan hs ex-., -...,.....,..._ " ,...,..,..!----

59 A -#WHV 52 pre resrcon, here was a genera undersandng n and ou o C()ngress ha he CAs acves woud be smary conned..\n {Xchnnge beween Genera Vandenberg and Congressman Che Jod (Democra-Caorna), aer he oor manager o he CA,a ue, s ndcave: Gr:o:RAL YANDE:BERG. The Xaona negence Auhory and he Cenra npj:"ence Group have nohng whasoever o do wh anyhng domesc; so \hn we ak abou he Cenra negence Group or he NA, aways means nr.:n negence, because we have nohng o o wh domesc negence.!ppres nave HoLFELD. Tha was my undersandng, and waned con 1\rm<>d. n!syng beore a House commee, Navy Secreary James Forr>n ad: The purposes o he Cenra negence Auhory [sc] are med deney o purposes ousde o hs counry, excep he coaon o normaon gahered oy oher governmen agences. H<>.:ardng domesc operaons, he Federa Bureau o nvesgaon s work ng a n mes n coaboraon wh Genera Vandenberg. He rees upon hem or domesc acves. When Represenave Brown asked wheher addona maons "hnud be aached because he CA "mgh possby aec he rghs a:h prveges o he peope o he ned Saes," Genera Yanden rg Jsponded: ". sr; do no hnk here s anyhng n he b, snce s a oregn n.:euee, ha can possby aec any o he prveges o he peope o he n Saes... can see no rea reason or mng a hs me. ThP agency has neyer dspued ha s auhory s resrced o or!n n 1gence. 3. Acves Whn he Uned Saes The ac ha he CA s resrcen o acves reang o "oregn 11 gpnce" does no, o course e us wha hose acves are and wwher hev may be conduced \Yhn he "Cned Saes..Aen >urs, esyng beore a House commee, made he pon: Th y woud have o exercc ceran uncons n he Uned Saes. They woud " n hpr headquarers n he Uned Sues.!on mporany, nn exchange bewpen Dnrs and Congressman \hnns(o (DPmorra-.\ahama) m ng he cosed oup wnrngs nd ars ha Congress undersood w Agency woud han auhory o.,j., oregn np:,._r. nre n hs counr;r rom knowng sources: HPprSNave [A:S.-\SO. Lm 1 [coecon) o orgn rounres, o cours. r. :LLES. There s one e J)robcm here. s a V>ry mporan sec on o P,,. hn. w pon rnsec here. n Xew York an Chcago and a hrough he rounry wher we have he Jmdness organzaons and phanhropc nn _..,.,..,. =; ""? ,..,..-

60 53 oh r nr,::nnzaons who send her peope hroughou he word. They coec 8 n n(ndous amoun o normaon. here ough o be a way o coecng ha 111 re Vned Saes, and magne ha woud no be excuded by any erms o pour J. h p"(>senave )!AXAsco. The enr o he commee as o coecng norma nn on our own naonas, we do no wan ha done, bu do no hnk he commpe bas any objecon o her gong o any source o normaon ha our unonas mgh ha, e on oregn operaons. s ha your undersandng? H<>pn senah e "ADSWORTH. (Repubcan-Xew York) Yes. HPpresenave )ANAsco. They coud go o Chcago and ak o he presdens,.(orne o he machnery rms ha have oces a over he word. rr. DuLLES. Tha mus be done. Less cear rom he egsave hsory s wheher Congress conempaed ha he CA woud coec oregn negence whn he ned Saes by candesne T!Nns, so ha he source o he neg JHe woud be unaware ha normaon was beng provded o he <.\. As saed above, here was a genera reucance o dscuss openy 1 P suujec o candesne coecon. Accordngy, he absence o ds uson o he subjec provdes e gudance. The 1946 Presdena drecve o he predecessor CG conaned xprcss auhory ony or candesne eoecon "ousde o he Uned ;-;nes and s possessons," bu here s no cor.respondng provson n he!h7 Naona Secury Ac. eher Dues nor Vandenberg n her esmony (quoed n par a bon) reerred o candesne coecon as an acvy he Agency m!h be assgned whn he Uned Saes. On he oher hand, Con :mss aed o ncude hs acvy among he prohbons expressy ncorporaed n he saue. j, J. Proecng negence Sources and Mehods The responsby o he Drecor o Cenra negence "or prodng negence sources and mehods rom mauhorzed ds oure" reecs congressona recognon ha he negence unc nn 1wcessary nvoh es sensve maeras and ha sec{cy s crca. Ths anguage was orgnay nsered n he eary dra.s o he "\r n response o he exp{ssed concern o some mary ocas ha u r\ nn agency mgh no propery respec he need or secrecy. Con LT"-" was aso aware o he concern ha Uned S<1es esponage aws 1\PP necc, e n prevenng unauhorzed dscosure o cassed ormaon. The saue does no provde he Drecor o Cenra negence wh gudance on he scope o hs responsby or on how s o be P rormed; nor does gran hm addona auhory o dscharge hs responsby. The egsave debaes dd no ocus on hese 1,-;US. " --,...,... *., !1W""-4 ""."" _.,,..._._ ,..,......,,...,.,..., *""*"...

61 54 s. Prohbon Agans he Exercse o Poce and Law Enorce men Powers and nerna Secury Funcons The 1947 Ac expcy ms he CAs domesc roe by prohbng he Agency rom exercsng aw enorcemen or poce powers or underakng nerna seury uncons. Ths prohbon was aken amos verbam rom he 1946 Presdena drecve. Ahough he wordng o he prohbon was no speccay dscusc.;ed n congressona hearngs or debaes, seyera congressmen and wnesses expressed her concern ha he CA neher nvade he FBs jursdcon nor become a secre poce. Dr. Vannevar Bush, he Charman o he Jon Research and Deveopmen Board, respondng o a queson abou he CAs exercse o domesc poce and reaed acves, saed: hnk here s no danger o ha. The b provdes ceary ha s no concrned wh negence on nerna aars, and hnk hs s a saeguard n,.;n!ns s becoma1g an empre. We arendy have, o course, he FB n hs counry, concerned wh nerna muers, and he coecon o negence n connecon wh aw enorcemen n< rnay. \Ye have had ha or a good many years. hnk here are very ew dzens who beeve hs arrangemen w ge beyond conro so ha w be an mproper aar. H >presenave Brown quesoned Secreary Forresa cosey abou po,;sbe domesc acves o he CA: HP(Jresenave BROWN. Ths Che o he Cenra negence Agency, he D {or. houd he decde he wans o go no my ncome ax records, presume a rou1 do so, coud he no? S!creury FORRESTAL. do no assume he coud. hnk hp woud huve a very shor e-- am no reerrng o you, ::O.r. Brown, n hnk he woud have a very shor e. Tenera Vandenberg spoke or many when he sad: v>ry srongy advocae hu [he CA] have no poee, subpoena, aw euorc mcn pow(,rs or nernu secury uncons. 6. "Servces o Common Concern" and "Oher Funcons and Du es Reaed o negence" Th > saue grans broad auhory o he Naona Secury Counc o a-;gn he CA or n sponsbes n he neg ncc ed, sub J< o he prohbon on aw enorcemen powers or nerna secury unrons. The precedng dscusson shows ha Congr<ss speccay 1"X<Ced ha coecon o negence " oud be among hose rcspon bs. Oher such servces o common concern w >re menoned bv 1rnra nndnb>rg b >or he\ SHe Commee on he Anne; n ces: ) s necssary or a cenra negence agency o perorm oher (uncons] n rommon con(>rn o wo or more ng.>nces. These are projecs whch s ber.! 7 ;:{ 1 " J,,,{ } j,. #.} :. :r., ; ; J..; :J : 1

62 55 JP\"P< can be mos eceny or economcay perormed cenray. An exampe u such a :sen ce s he monorng o oregn voce broadcasm... Smary, we a\"e cenrazed he acves o he varous oregn documen branches whch 1wr 011erned by some o he servces ndvduay or jony durng he war. Xeher he congressona hearngs nor he 11oor debaes dscussed w ms on he po\ver o he NSC o assgn parcuar acves o 1 he CA as "oher uncons and dups reaed o negence." The broad anguage reeced concerns ha Amercan experence wh )(nceme negence needs and requremens was exremey med. Severa wnesses-cabne ocers, mary eaders and negence ( xpers-esed beore Congress ha he NSC shoud be ao,ved h xby n s drecon he CL<\. was o be responsve o changng condons and he Uned Saes was o deveop an eec ;e ne- 1!PCP servce. rnder he auhody o hs "oher uncons" provso, he Na on a! Secury Counc has assgned he CA responsby or or "11!11 cover operaons o a poca or paramary naure. C. Pracce Under he Naona Secury Ac The N"aona Secury Counc proddes he CA and oher ne:.:pnce agences wh gudance and drecon hrough Naona Se, 11ry Counc negence Drecns (NSCDs) and oher oca Orandu. B means o hese documens, he XSC exercses s sauory auhory o assgn he CA sen-ces o common concern and oher une ons and dues reaed o negence. The :KSC has aso gven Hne greaer speccy o he dues o correaon, eyauaon, and d:-;_" mnaon whch are speccay nssgned n he saue. Ony hose drecyes whch are pernen o he Commssons nqury are ds hpd bp ow. nce!h, he CA has had, under XSC drec, e, he responsby or a esponage (ha s, candesne coecon o oregn ne.."c>) and candesne counerneg-ence acves conduced ousde w r ned Saes and s possesson. n 1948, he Xaona Secury (ounc Hded he responsby or O\er coecon o oregn ne- 1: :. whn he ned Saes. owen r, he XSC has no assgned!,,. CL\. responsby or candesne coecon o oregn ne :."!!c n he n >d Sah s. The CA has a number o mscean >ous responsbes o an nej.,\he-gaherng na nrc. Perhaps he mos mporan or purposes o Th Commsson s w rcsponsby nssgned by he XSC or dea.:, wh persons who deec o he rned Saes onrseas. (Deecons ":hn hs counry are he responsby o he FB.) The Drecor o.

63 cnra negence has mpemened hs assgnmen by ssung drecves whch se orh he deas or he deecor program. Under hen aona Secury Counc drecves, he Drecor o Cenra negence has prmary responsby or he dencaon o mpendng crses and he ransmsson o ree\ an negence o he 11pproprae ocas. The Drecor aso has he responsby or naona negence-normaon requred or he ormuaon o cury pocy whch ranscends he excusve compeence o any one deparmen. The CA s responsbe or he reguar producon o curren negence o mee he day-o-day needs o he Presden and oher hgh-eve ocas. Whe hese drecves do no expressy prohb he producon o negence on purey domesc maers, s cear ha her ocus s on overseas evens. n connedon wh he sauory responsby o he Drecor o Cenra negence or he proecon o negence sources and mehods rom unauhorzed dscosure, he Naona Secury Counc ns dreced ha each agency or deparmen be responsbe or he proecon o s own sources and mehods, and ha he Drecor ca upon hese oher bodes as approprae o nvesgae any unauhorzed 1scosures and repor o hm. The Drecor, has n urn, deegaed hese n sponsbes o he Secury Commee o he Uned Saes negence Board, a board composed o he heads o he varous negence agences.. A parcuary dcu secury probem s presened by "eaks o nssed normaon o he ne\\s meda. Csuay here s no \vay o deermnng whch agency s he source or any parcuar dscosure..\ presen a "eak cases are reerred o he Secury Commee or dscusson and approprae acon. The Secury Commee has been gven he auhory o consder he probems caused by he "eak," ndudng he d>gree o harm o he naona neres, and o make n pors and recommendaons or correcve ncon as approprae. The Commee, however, has no auhory o drec eher w FB or any member agency o nvesgae "eaks.! The poson o he FB durng he 1960!s and eary 19Os was rm: he FB \Youd no hande "eak" cases uness dreced o do so by he Aorney Genera. Ths was a reecon o he aude o Drecor.J. Edgar Hom er. He e ha m esga.on o news "eaks! was an napproprae use o FB resources, because, mos o he me, he ource o such a "eak" coud no be dscoverpd, and oen when he source was dscovered, urned ou o be a hgh-rankng oca :ans whom no acon woud be aken. As a resu, he CA, under Prsdena pressure, has occasonay m esgaed such "eaks se, yng on he "sources and nwhods" provso or auhory. The FBs nerna secury auhory and he CA!s oregn ne _., !1!1. 4!1!.<!!p..,. _.,..,,,....

64 n ar«-. 57 nee responsbes resu n requen conac, parcuary n he "(!\ o counernegence. The FB has responsby or "nvesga, e work n maers reang o esponage, saboage, subversve ac, es and reaed maers regardng he secury o he Uned Saes. The CA has he correspondng auhory overseas. aso manans cenra records and ndces o oregn counernegence normaon. The NSC has assgned o he Drecor o Cenra negence responsby or esabshng procedures o ensure he cenrazed drecon and pror coordnaon o oregn and domesc counernegence acves. Cose coordnaon beween he wo agences s requred n many suaons such as a vs by a oregn negence ocer o hs counry o engage n esponage. The "ranser" o responsby or counernegence requres consan cooperaon beween he CA and FB. Such coordnaon has no aways exsed, bu he Commsson was normed by represenaves o boh he CA and he FB ha good reaons and ecen ason preseny exs beween he wo agences..\ orma memorandum beween he CA and he FB n February!HG provdes he mos. deaed saemen o he undersandng by he wo agences o her respecve auhores. For exampe, he FB mus be kep advsed o candesne CA personne n he Uned.nes. "Where CA handng o agens n hs counry s nadequae o proec he FBrs nerna secury neres, he FB has unresrced access o hem. The 1966 memorandum does no soh e a probems. does no oune or ndcae n any specc degree he ms on CA s acves n ued o oregn negence. Xo reerence s made o he CAs roe whn he Uned Saes o proec negence sources and mehods or o s power o conduc nvesgaons or hs purpose. Ths has been a roubesome area, as he FB has decned o nnsgae he persond o CA or any oher governmen agency suspeced o a breach o S({ury uness here s subsana Hdence o esponage. whn he as year, work has begun o suppemen and rewre hs memorandum o mprove coordnaon and ayod uure concs or gaps o jurrocon. -

65 Chaper 6 Lega Anayss nroducon The CA, ke every oher agency o he edera governmen, poss.esses ony ha auhory whch he Consuon or duy enaced saues coner on. And, ke every oher agency, s subjec o nny prohbons or resrans whch he Consuon and appcabe nues mpose on. Congress yesed broad powers n he CA. s purpose was o creae u11 dpd re cenrazed oregn negence agency. wh sucen auhory and exby o mee ne\v condons as hey arose. Bu he Agencys auhory under he Ac s no unmed. A s nncons mus reae n some v.-ay o oregn negence. The Agency urhpr r>sreed by he Acs prohbon on nw enorcemen pmn rs and 11erna secury uncons, us we as by oher Consuona and sauory proysons. JePrmnng he awuness o parcuar Agency conduc requres nnnyss o s auhory as we as any appcabe resrcons. The propss does no aways produce cear and precse answers. Dcu JPsons o sauory and Consuona nerpreaon arc nvoh ed. ThPrc are ew, any, auhorave judca decsons. The egsan h:ory :me he experence under he Ac are an unceran gude. n many nsances, he ony a pproprac es s one o reasonabe&-. >rrrn persons are key o hod derrn opnons as o wha.w saues and Consuon auhorze or prohb n parcuar 1 rn1111s a nc>s. Leu 1 quesons are ony he begnnng o a. compee anayss o u ssues. A dsncon mus be drawn bewepn wha he aw a11orzrs or prohbs and wha may be desrabe or undesrabe as ma r o pubc pocy. Acves whch he aw nuhorzps may, uonheess, be undesrabe as a maer o pocy. ConveSey, pocy may ereae o. compeng need or acves whch hnve no been auhorzed; o he exen ha no Consuona resrcons pose an abso- (GS),:" \.. <:: ;.

66 59 Jue barrer, auhory or such acves may be sough does no now exs. n he Commssons recommendaons, boh aw and pocy are consdered. Ths chaper, however, s nended o dea ony wh he appcabe aw. A. The Exen o he CAs Auhory 1. The Auhory o he CA as o Foregn negence.ahough he Naona Secury Ac does no expressy m he CAs negence acves o oregn negence, appears rom ho egsave hsory as a whoe and he conssen pracce under he saue ha he Agencys responsby s so med. n decdng wha consues "oregn negence," he subjec Juaer o he normaon and no he ocaon o s source s he prncpa acor ha deermnes wheher s whn he purvew o!jp CA. 1 Ths concuson s suppored by ha poron o he egsa n hsory whch ndcaes he CA may coec oregn negence n hs counry by m er means. Foreg-n negence" s a erm wh no seed meanng. s used o111 no dened n X aona Secury Counc nemgence Drecves.,; scope s uncear where normaon has boh oregn and domesc a:pecs. The egsave hsory ndcaes genera congressona concern ha h.agency shoud no drec acves agans Uned Saes czens or nccumuae normaon on hem. Ho\venr, Congress dd no expn ssy prohb any acdes by he CA excep he exercse o aw,.n orcemen and nerna secury uneons. We beeve he congressona concern s propery accommodaed by ;Hs rung "oregn negence" as normaon concernng he capa J,es, nenons, and ac, cs o oregn naons, ndvduas or n es, where\ er ha normaon can Le ound. does no ncude no11nuon on domesc acdes o Cned Saes czens uness!! n re s reason o suspec hey are engaged n esponage or smar ":J acves on Leh:d o oregn powers. Th \ auhory o w CL\. o coec oregn negence n hs "ry Ly cunesn means s aso uncear. The Ac neher expr;;sy nuhorzcs sueh coecon nor expressy prohbs. The uonn cury Counc hns never ormay nssgned hs responsby o hc C.A. The Commsson concudes ha he CAs nuhory n hs nren needs dnrcnon.!<..., <o Jdne v. Rau, 261 Jo. Supp. 70 (D. :Yd. 1966), vocaed a11d remadd, 399 F. 24 T8 (4h Cr. 1968), r. :.,. " r " ;,.,._._ ,.. "",._.,.,,...,,.!" ,.,-. *-"" "" *""""" 4...,"""",...,...,..," J!!)111!411!11.P!.J!1J<""o-..a -:_a_c!>z.,...

67 60 z. Suppor Acves n order o carry on s auhorzed negence uncons whn and whou he Uned Saes, he CA mus necessary engage n a n rey o suppor acves. Such acves ncude he operaon o s headquarers, he recrumen and ranng o empoyees, he pro- 1 uremen o suppes, communcaon wh overseas saons, and ( ke. Tho Commsson nds ha he auhory o conduc oregn negence operaons ncudes he auhory o conduc such oherwse wu domesc acves as are reasonaby necessary and approprae by way o suppor. Ths ncudes he auhory o use hose unusua cover and suppor devces requred by he candesne naure o he CA. 3. Proecon o Sources and Mehods The X aona Secury Ac requres he Drecor o Cenra negence o proec negence sources and mehods rom unauhorzed d,.;dosure. The Commsson beeves ha hs provson and he nh, ren auhory o he Drecor auhorze he Agency o ake reasonabe measures no oherwse prohbed o proec he aces and pprsonne o he Agency rom ousde hreas and o ensure good ( eur.y pracces by persons naed wh he.agency. Wha measures nre reasonabe n a parcuar case depends on a he ads and crcumsances. No genera rue can be ad down, bu some n enm acors can be suggesed. Among hem are: -The degree o danger o he secury o he Agency; -The sensvy o he acves nvoved; -The exen and naure o he Agencys nrusons on ndvdua prvacy; and, -The aernave means o proecon avaabe. BPcause o he uncerany nheren n a es o reasonabeness, he ( ommsson n he chapers whch oow has recommended boh sauory changes and a number o resrcons on he means \vhch he.\gency may empoy o proec s sources and mehods. On rare OC{asons, he Agency has assered ha he Drecors auhory perms hm o nvesgae uny unauhorzed dseosme ha j opardz>s negence sources and mehods. Ths cam has been h n ea& s when h<>rc was no reason o beeveh<> d,-cosn e came rom n person n any wa) rcned o he Agency. Ahough he sau-.. ry nnguag and egsan., hsory are. no precse, he Commsson nds ha such an nerpraon s U\\HTnned, esprcuy n gh o he nppcnhe NSCD ha makes he CA responsbe ony or 1 :!11Jhorz(d dscosures om he Agency., " ! -- ( ;- r "

68 !-r. 61 n our judgmen: (a) The nvesgave auhory o he Drecor s med o prsons aaed wh he Agency-ha s, empoyees (ncudng ormer empoyees and appcans or empoymen), conracors and her mpoyees, knowng sources o negence, agens and smar persons used by he Agency n operaons, and ohers who requre cearance by he CA or access o cassed normaon. Such m esgaons mus be conduced n a awu manner conssen wh he requremens o he Consuon and appcabe saues. (b) nvesgaon o breaches o secury by empoyees o oher governmen agences s he responsby o he heads o hose agences or o he FB.. (c) The CA has no auhory o nvesgae newsmen. The Commsson proposes sauory changes as we as an Execuve Order o cary hese maers. 1. Oher Auhm y The CA derves some auhory rom edera saues o genera nppcaon. he Economy Ac o auhorzes governmen n;:<>nces o provde servces and equpmen o each oher where ha ourse woud be n he bes neres o he governmen. Pubc Law rrqnres a edera agences o asss he Secre Servn n he perormance o s proecve dues. The auhory graned n hese acs s oen exercsed by he CA, bu onr nvesgaon has dscosed no mproprees arsng rom ha exercse. The CA may rom me o me be deegaed some o he Presdens nheren auhory under he Consuon n maers aecng oregn raons. The scope o he Presdens nheren auhory and he power o he Congress o conro he manner o s exercse are dcu (onsuona ssues no rased by he acs ound by he Commsson n rarryng ou s assgnmen.!.!. " :!! 1.. ; 1 { B. The Resrcons on CAs Auhory 1. The Prohbon on Law Enorcemen Powers or nerna Secury Funcons The sauory provso ha "he Agency sha have no poc, sub>a, aw-morcemen pow(rs, or n rnn SCnry uncons" wns nay d sned o preven he CA rom b comng a naona secre poee oree. wns aso nended o proec he donwsc jursdcon h FB. The saue does no dene he erms used U.S.C. aec ": " """.....,*"" "P "!,"_,,j>!_a}!!s:,_._:.j"",;..,4.....,_ "?""

69 .r { -.- &d - :-r r " s e ae --re,,. rk rmrrr o me 62!any maers reaed o oregn negence or he secury o he AWncy aso reae o aw enorcemen or nerna secury. For exampe, an unauhorzed dscosure o cassed normaon by an Agency poyee may aso voae he esponage acs or oher crmna saues..\ddonay, he Agency n he ordnary course o s busness has nuonshps o varous ypes wh aw enorcemen agences. Some o hese reaonshps may rase quesons o compance wh he pro\ so. The Commsson nds ha wheher Agency acvy s prohbed.pc nds prncpay on he purpose or whch s conduced. he prncpa purpose o he acvy s he prosecuon o crmes or proecon agans cv dsorders or domesc nsurrecon, hen he acvy s prohbed. On he oher hand, he prncpa purpose reaes o or<gn negence or o proecon o he secury o he Agency, he nd, y s permssbe, whn ms, even hough mgh aso be p<rormed by a aw enorcemen agency. For nsance, he mere ac ha he Agency has es on or conandg he names o Amercan czens s no n se a voaon o he -1 a uory prohbon on aw enorcemen or nerna secury uncr :o.". The es s aways he purpose or whch he es were accumuae and he use made o hem hereaer. The Commsson does no consrue he provso o prohb he CA rom e\ auang and dssemnang oregn npgencc whch may be n nan and useu o aw enorcemen. Such a uncon s smpy an Pxercse o he Agencys sauory responsby "o correae and vauae negence reang o he naona secury. Xor do we, JP\e ha he CA s barred rom passng domesc normaon o "resed agences, ncudng aw enorcemen agences. where ha mnaon was ncdenay acqured n he course o auhorzed!nn gn npgenre acves. nd>e(. wwre he Agency has normar on drecy reevan o an ongong crmna nvesgaon, as dd n, connecon wh he \Yaergae nvesgaon, he A_,.rency s under duy o brng s c\d>ncc o he aenon o he npproprae ;hores. o ong as he Agency does no nch ey parcpae n he addes h w >norrpmen agences, we nd ha s proper or o urnsh, ;.h agn1ces wh he bcnrs o echnca cpwopmens d X]Wrse d1 may mprove her cec veness. n }w pas, he Agency hns conducn som- echnca ranng o!bers o sae nnd oca poce orces hrough he Law Enorcenwn Asssanc Admnsmon. A 1973 saup prohbrd hs prac :n. Tw "\g< ney hns nhprpc w sa 11 o P\ dp!h< CO!!<>::>onn <n ha. ermnae urnshng such ranng drecy o <Xnaw donpn ng uch s ns w>. Tw Commsson nppro\s he.:\g m ys,,... ; *! r : ;,... ; 1 «"

70 z-- ow *** rz 63 decson o eave o he FB such ranng o sae and oca poce ocers. z. Consuona Prohbons The Cenra negence Agency, ke a organs o governmen, s T.qured o obey he Consuon. The proecons o he Consuon exend generay o a persons whn he borders o he Uned!"n>S. cnn aens who have enered he counry egay. n. The Fs Amendmen.-The Frs Amendmen o he Consuon proecs nmong oher hngs reedom o speech, o he press, and o poca assocaon rom abrdgemen by he governmen. These rnuoms are no absoue. The Amendmen, as r. Jusce Homes noed, does no "proec a man n asey shoung re n a heare and en usng a panc." Neverheess, governmen conduc whch nhbs he <XPrc;,;e o hese Consuona rghs rases a subsana Consu onn queson. The nercepon o prvae communcaons and he undue a eumuaon o normaon on poca vews or acves o A.merc:w czens coud have some nhbng crc. Because he Comms -on has ound hese ac\ es were mproper or oher reasons, s nnn< epssary o expore he Frs Amendmen quesons n dea.!.. The Fourh Amendmen.-The Fourh Amendmen prohbs r< asonabe searches and sezures. n ordnary crmna cases. n.w :dor<men ocers mns oban a juccn warrnn beore searchng :1 J <rsons resdence, hoe room. or oee. excep n ;exgen crcum ances. \Ywn he Supreme Cour hed n 1067 ha prn1e conversaons w>re proecpd by he Fourh Amendmen, made cear ha a wnaps and oher orms o surrepous eecronc SUTeance TP whn he ed o m esgan acdes ha ordnnry requre 1 ror judca appro\ n. s uncear wheher he Presden can ne whou such appron :n sonw cases where he naona secury s m oycd. The Supreme Cour rceeny hed ha a \Y.rnm s requred n naona secury as.: s havng "no sgnc,m. COHcon wh a oregn power, s n;:pns or agences." 3 owe\ er, he Cour expressy reserved decson wh wr a sgncan oreg-n connecon won jusy a ccrcn "H. :-\mne owpj eours un e w< ha no wanan s r<qurcd n :<11 <:1:-PS. :\ wr he Fourh.:\ mendmen nor nny oher Cons uonn or a nory provson pro h hs physea sun-.nncc-- he obs< rvn on., he pubc comn!s nnd!on:-ts o an ndvun-uness such sur- - 1 "11r Sau v. Und SacB D,arc Cour, 407 U.S. 297 (1972)

71 64,runcc reaches he pon o harassmen. The use o undercover!g ns or normers s aso argey unconroed by ega sandards. 4 r. Wah er a-nd Consen-Consuona rghs may be waved n cer- 1 a n crcumsances. The Supreme Cour has hed ha a vad waver m 11 sk knowng and vounary, and he evdence o such a waver mus ( dpar and unequvoca. The governmen canno make waver o Con uona rghs a condon o pubc empoymen, uness he demand or such a waver s reasonaby reaed o a proper governmena objecu and he waver s he eas resrcve means avaabe o acheve 1 hn objecve. \Vheher a parcuar waver s vad depends on a he hrs o he case. 3. Sauory Prohbons a. The Omnbus Grme Conro and Sae Sree8 A.c.-Te o he Omnbus Crme Conro and Sae Srees Ac 5 prohbs he ::J, r epon o prvae conversaons hrough wreaps or oher orms.,( dpdronc ean&croppng uness one pary o he conversaon con >:L or a judca \Yarran s olancd. The saue expressy does no.: r, e whaever power he Presden has o order warraness wre- 1 a p or eavesdroppng n naona secury cases. An Execu vc Order, -L:Pd.June 30,1965, perms warraness wreaps so ong as he wren : r n a o he Presden or he Aorney Genera s obaned. The saue denes "nercepon o mean ;;he acquson o he. ;J< Hs o any \Yre or ora communcaon hrough he usc o any J,., ronc, mechanca, or oher devce." A number o judca de. : nns un e hed ha. he Ac docs no prohb.he coecon o ong.::_.:nnee eephone bng records. These records show he eephone.mn e caed, he dae and me o he ca, and, n some cases, he :,! :m s o he pares. They do no ndcae he conen o he ca..\ deren queson s posed by he acquson o communcaons ;:: dpha o he esng o nercepon equpmen o be used abroad. (n hp ace o he saue, such ach cs appear o be prohbed. h. Saues Proecng he Uned Saes 111 as.-opcnng rs-cass r;;n o examne s conens whou a nwv ssued warran s 1!::11." The saues se orh no excepon r nnona secury. ; 1! { "S. T examnaon o he exeror o rs-cass ma whou openng "s n dren prohm. LO\n>r e<rr: eours ha, < w< ha!a,;( so-caed "ma covers" are vad hey are conduced whn H runework o he posa reguaons and 1ere s no UnUsonabe r,y o h> mn. Th< Supr<nw Cour has no passed on hs ssue..!! - \ ; "\? v. rd Snc, 3S:S U.S. 293 (1966).,.S.C. Pe e Eq. 18 U.B.C. s

72 65 C. D8cosure o /ncqtm Tax normaon.-federa saues, Execun Orders, and nerna Hevenue Servce reguaons prohb ds j 0,..ure o normaon rom edera ncome ax reurns excep under rnreu11y dened procedures. There s no excepon o hese requre- 111Pns or he CA. ndeed. CA nspecon o ax reurns was one orm o mproper acvy speccay menoned n he 1947 Acs egsan h!-1ory. d. Oher Saues.-The Commsson has no aemped o deny or unayze a saues whch mgh concevaby appy o acves by r CA or on s beha. \Yheher n any parcuar case a crmna or n her prohbory saue resrcs he auhory o he CA whn he Cned Saes s a queson o nerpreaon o ha saue n gh o he Naona Secur:y Ac. The saue may conan an express or m J d excepon or acves requred n he neres o naona secury; on he oher hand, may be an unquaed prohbon on ceran o orhnc. Ony nn anayss o he anguage, any reevan egsave hsory. md he underyng poces can answer he queson n a par ruar case. r. 1 - j.. / " (. " _; Concusons The evdence whn he scope o hs nqury does no ndcae ha undamena rewrng o he X aona Secury Ac s eher Heessary or approprae. Th evcnce does demonsrae he need or some sauory and adnsrnm carcaon o he roe and uncon o he Agency. Ambgues have been paray responsbe or some, hough no a, o h Agencys devaons whn he Uned Saes rom s a,.;..g11ec msson. n some cases, reasonabe persons w der as o h awuness o he acvy; n ohers, he absence o cear gudenes as o s auhory deprved he Agency o a means o ressng prssures o engage n acdes whch now appear o us mproper. Greaer pubc awareness o he ms o he CAs domesc auhory woud do much o reassure he Amercan peope. The rquse carcaon ean bes be accompshed (a) hrough a 1wee nmendmen caryng he Naona Secury Ac proyson 11 ch dneaes he perms,:;be scope o CA acvs, ns se orh n Recommendaon 1, an (b) hrough ssuance o an Execuve Onr urher mng domesc acves o he CA, as se orh n Heconunendaon 2. Reommendaon (1) Secon 403 o he Naona Secury Ac o shoud be amended n he orm se orh n Appendx V o hs Repor. These amendmens, n summary, woud: --..,..,.,, -"JS(P..-..., r! " k J,,

73 -J&r -e-# rt"?1 WC, n c s!w&r Wr TdMzce!#"Q>-_,-.Kw ;r 66 a. Make expc ha he CAs acves mus be reaed o oregn negence. b. Cary he responsby o he CA o proec nejgence sources and mehods rom unauhorzed dscosure. (The Agency woud be responsbe or proecng agans unauhorzed dscosures whn he CA, and woud be responsbe or provdng gudance and echnca asssance o oher agency and deparmen heads n proecng agans unauhorzed dscosures whn her own agences and deparmens.) c. Conrm pubcy he CAs exsng auhory o coec oregn negence rom wng sources whn he Uned Saes, and, excep as speced by he Presden n a pubshed Execuve Order,r prohb he CA rom coecon eors whn he Uned Saes dreced a securng oregn negence rom unknowng Amercan czens.,. (!.. 1 )! /ccommcndaon (2) The Presden shoud by Execuve Order prohb he CA rom h> coecon o normaon abou he domesc acves o u.s. czens (wheher by over or cover means), he evauaon, correaon, and dssemnaon o anayses or repors abou such acv " and he sorage o such normaon, wh excepons or he oowng caegores o persons or acves: a. Persons preseny or ormery aaed, or beng consdered or aaon, wh he CA, drecy or ndrecy, or ohers who requre cearance by he CA o receve cassed normaon; b. Persons or acves ha pose a cear hrea o CA aces or personne, provded ha proper coordnaon wh he FB s accompshed; c. Persons suspeced o esponage or oher eg a acves reang o oregn negence, provded ha proper coordnaon wh he FB s accompshed. d. normaon whch s receved ncdena o approprae CA acves may be ransmed o an agency wh approprae jursdcon, ncudng aw enorcemen agences. Cuecon o normaon rom norma brary sources such as Th. F.ucu e Ordr auhorzed by ha aaue ohoud roo:nu ha whon he oeoon o,.p nknn rom proona who are no Uned Sa dzena "Ua n he ncdena - oon o normaon rom unknownk czens. he A:en) ahoud H! perm>d o make,..p,.prae uae or d!.poaon o aurh normaon. Surh Ooron av«mu be dreced a hcn nc... nre aourcea, and he nvovemen o Amerun daena muo be nddana...._._.....

74 -*--...,... " Sb 67 newspapers, books, magaznes, and oher such documens s no o be aeced by hs order. normaon curreny beng mananed whch s nconssen wh he order shoud be desroyed a he concuson o he cur rn congressona nvesgaons, or as soon hereaer as per med by Jaw. The CA shoud perodcajy screen s es and emnae a maera nconssen wh he order. The order shoud be ssued aer consuaon wh he Naona ecury Counc, he Aorney Genera, and he Drecor o Cen ra negence. Any modcaon o he order woud be per med ony hrough pubshed amendmens. 1,,.

75 ank

76 --.!.$-.,.,j., ) :\ 1 ;;; ;; ; Par Supervson and Conro o he CA -.

77 :r1r d#e7wc 3 SZ#s! r m O# ;(.. senwn rac?j nroducon The Presden has dreced he Commsson o deermne wheher :\,:ng saeguards are adequae o ensure ha uure domesc CA 11ves do no exceed he Agencys auhory. \Ve have, hereore, ; x:mned C.As exerna and nerna conros. Conro over he CA s exercsed boh whn he Agency and xprnay by conro o pocy, resources and operaons. Frs, po :..:-; are esabshed, wren no reguaons and ssued as gudenes...:., ond, resources such as money, propery and personne are ao <:!( d o acves conssen wh hs gudance. Thrd, drec super,:on o CA acves seeks o ensure ha acves o he organzar:ojure conssen wh pocy gudance. n hs par o he repor, we rs examne hesupervson o he ( 1.\ xemay and hen expan how he CA has been conroed!r!y. (70),.

78 .,,. we- Chaper 7 Exerna Conros }ken use o he CAs negence roe and he resung speca need or rrecy, he Agency s subjec o deren exerna checks rom o h governmen agences. docs no whn any reguar paern o execuve supervson n nd conro. s de\ eopmen durng a perod o "cod war," n whch he needs or naona secury suppored a broad consrucon o CAs auhor.!. med conro by Congress over s acves. n rn eny, here has been e pubc scruny o s acves. > vc(s whch have been uzed or exerna conro o CA are : oows:! A. Conro by he Execuve Branch. Thr Naona Secury Counc and Reaed Bodes rmarv < xecuve conro over CA acves s exercsed bv he \ n >na Secury Counc (NSC), whch by saue s responsbe or qn nghe CA.,,.,_,,jp s nomnay supervsory poson, he conro exercsn by L :-:c reaes amos enrey o basc poces nnd aocaon o r n1 rc s. :-( deermnes where and how he CA shoud underake some a 11 (,.; nnd h<r scope. The NSC generay doe no eons1>r w ;,.,:a!.y o specc operaona mho<s, quesons o admusm. anag men, or wheher parcua projecs are whn he CL\ s!nuory auhory. 1!1,. rr.>n bers o h NSC nre he Presden, Vce PresdPn. ard creares o Snc and Deense: ahough no.members o he - S:-\C, he Drecor o Cenra negence and he Chnrmnn o w ;<-;:: :: Ch.>s o SnT aend a XSC mengs as obserwrs and [ ;!n(>rs.... (71) -, ,.. q._,...._,._... -,. -

79 72 h< XSC esabshes pocy or he CA prmary hrough!ona Secury Counc negence Drecves (NSCDs). Add""<d o he enre negence communy, hey oen assgn re,j"<,!>bes o he CA n addon o hose assgned expcy by h<!h aona Secury Ac. Each s ssued under auhory o ha.\d. 1 n genem, hese drecves are broad deegaons o responsby; hh do no ocus on parcuar mehods or meeng he assgnmens. To sonw E>xen, NSCDs may aso m he acves o he CA by :.,..,:nng asks o oher agences. SC auhory over he CA s aso exercsed hrough wo comrn< <.S: The NSC negence Commee and he 40 Commee. Th< XSC negence Comm{e, creaed n 1971 oowng he rr< ommcjhaon o a repor on he negence communy by James H. Schesnger (hen. o he Oce o Managemen and Budge), J:scns he vewpon o users o negence esmaes and evauaons. s members are subcabne ocas, ncudug he Presdens \"nn or Naona Secury Aars and he Drecor o Cenra!.>gence. mees nrequeny. T oher NSC subcommee, now named he 40 Commee, r rpws oregn cover operaons and coecon acves nvovng 11::h rsk and senshty. has exsed n some orm snce 1948, hor11 y aer he NSC rs auhorzed he CA o engage n such :;. \ Ps. s now chared by he Asssan o he Presden or \"a ma Secury Aars; ncudes he Charman o he Jon C:,,.,; o Sa and he Drecor o Cenra negence as members, 1111d has rcpresena\ es rom he Sae and Deense Deparmens as "P]. The nvesgaon dscosed no cases n whch domesc ac.yr.,;;-.-< \ cn hose recognzed by he.agency as hghy sensve-were u.med o he 40 Commee or approva. n addon o he subordnae commc<s o he NSC, he Presd has. b Execun Order, esabshed a Foregn negence Ach s ry Board o prh ac czens o advse hm on he objecves and man Anen. o he naons n{gence eor and o conduc sudes on p, c opcs o neres o hm. ndcn Esenhower rs esabshed he Board n Presden 1-\ nj dv n or ganzed n 1961, and "VC he asscrnmen o revew-. b b :, h H<ns a he Bay o Pgs. The Board has a sa o wo bu empoys consuans and recens "snnw on Joan rom negence agences. m<es or weve days each year (wo days each wo monhs). "dn-.ts requeny conss o brengs by negence servces and "" r mnkrs. o <-ad ane a barer a eooaned o NaUooa Secury Decaou Memorandum o- doh no ban 40 mew ben..!,, :; : 1 ", 5 : J._ r "".... -;-?

80 73 nr Advsory Board does no exer conro over he CA. n ac, J>( (A s he Boards ony source o normaon abou CA acv:r. has no consdered domesc negence acves, excep ha m :r Pary 1970s expored he reaonshp beween he CA and!... FB n connecon wh oregn negence acves whch coud.,,.,.,uy be accompshed whn he Uned Saes. Thus n June 1972, he Board recommended o he Presden ha : L.. jursdcona nes be cared, eher eg.sa, ey or admnsra : \, y, so ha some governmen agency mgh underake ceran spe,.! uegence acves whn he Uned Saes. :. 01/zer negence Commees.\s one componen o he edera governmens oregn negence n c s-abe he one wh he wdes auhory-he CA receves,,, Juc, nomna drecon and conro rom coordnang comm :.,.. :"abshcd by he NSC. Th ndependence o hese commees as a means o exerna con! rn. med, however, by he ac ha hey are chared by he,:, <!or o Cenra negence n hs roe as coordnaor o he ;:. gpnce communy. 111 hs supervsory roe over he enre negence communy, he 1 :n or has ssued drecves (DCDs) addressed o a negence., r: :; s ncudng he CA. These are smar o her XSC couner ; 1 rh ( XSCDs), bu are more deaed. Ther prmary purpose s a!ocae responsby or negence-reaed acves among he nn 1 negence servces. For exampe, one DCD spes ou he ; dnres or reamen o oregn deecors whn he cned :- n s and dvdes responsbes n hs area beween he CA and. FB. n perormng hs oversgh uncon, he Drecor s asssed by a o abou 50 proessonas assgned o hm rom he Yarous :L.. gnce agences (ncudng he CA), normay headed by a agr 1k Jnry oeer. Ths negence Communy Sa pro, des he J n cor wh suppor o coordnae he Yarous negence sen ces. n hs roe, he Drecor s aso advsed by wo oher organzu... r;.,, h negence Resources Advsory Commee and he cned ",,,.., n<genee Board. Tho negence Resources Advsory Commee, ormed n he r;.. )mmrndnon o he 1971 Schesnger Repor. uch ses he Drecor : a prepamon o a consodaed negence program budge. The Lned Snes negence Board, n exspnce snce 19JS, s >:nposed o he hends o he prncpa oregn npg{nce agnes. r n<h s he Drecor on he negence communys operung r. -pon><bes. These ncude. esabshng negence nn us nnd

81 74 p1rcs, producn neence_evauaons nd esmaes, and uper,. ;ns,: he dsrbuon o mehgence maerm. O he nehgence H "!! cvcn sandng commees, he Secury Commee has he.:: a s re\ ance o hs repor. advses he Drecor on he pro :rwn u negence sources and mehods rom unauhorzed ds, ;... un. For exampe, has proposed unorm sandards o physca.r. 1"- rsonne secury and recommended nvesgaons o some se ; ;;ny eaks. J. Oce o Managemen and Budge The OJce o )anagemen and Budge ( OMB), an agency n he :x( u\ c Branch, supervses he budge o he edera go ;ernmen. n hs connecon, conros he CAs budge and, hereore, s :, -.oh<s. n much he same manner as docs or oher governmen..: rwps. The CAs proposed budge and suppor maeras are re. :,.,, Pd!Jy one budge examner and hs supensor (who s aso respon :\.],. or a oher negence agences) o he Oce o Managemen : Hndg. Tn mpac o he OB budgeary process on some CA acves,, 111P by he normaon supped o OB by he CA. For ex ::q.jp, he proposed budge or he dvsons o he Drecorae o " ra ons Jumps a personne coss under a "anagemen Suppor 11 gory raher han aocang hem o uncona areas whn each : ncon. Ye, personne coss represen a arge percenage o he LrPdornes budge. Budges o oher drecoraes reyea more de :n d normaon. 0:\B pr (pares a na CA budge, wh he Presdens a.pprovn,.,r ub!sson o Congress. he CA dsagrees wh an OB recom ::; ndnoh, may, and requeny docs, appea o he Presden. n onauee wh he 1!)-19 Ac, he CA budge s no dened n he hug submed o Congress, bu s ncuded n oher approprao. coun:::. Congressona oversgh commees are normed whch } oron.;; o he budge arc nended or he. CA..\ r Congress appropraes he unds, OB ransers hem o h ( 1.\ h r he auhory o he Ac. Oher mnscrs o unds., ):, 1 A may ake pa;c whou OB a ppnwa under hp Economy \. o w::2 (81 L.S.C. (8G). Funds so ranserred consue sgn, n porons o CA expendures. These unds nrc subjec o 1:\B on rgh, however, snce r-e\-ews hem when hey are rs propo;;ed or ncuson n he budge o he ranserrng agency. 0:\1 B nso -e\ ews CA r-equess o make expendures rom s "gy reserve und. Ths und, reppnshed by urmm uppropra! :h n" w!us unobgaed unds rom pr evous CA appropraons. 1!1 &\ anbe or unancpaed needs..:\!hough he Dr ecor has suu- 1!. :Z :;{ }. } -r- ; 1

82 J ", 75 on auhory o spend reserve unds whou consung O\B, ad ;,;urn\ e pracce requres ha he rs oban he approva o, 1,1 B n1h he charmen o he appropraons subcommees o he \,,... T!-.S. o B >Xercscs conro over resources aocaed o he CA. does -o ronro he CAs operaona acves, s no an aud agency, hr budge process s no desgned o esabsh negence pocy r o 1wdorm an oversgh uncon. OB s generay aware o he : HO: -:,.cne CA acves, bu her approva or dsapprova s con ron by he Naona Secury Counc and s subordnae n.mm ees. 1,.. J 1. The Deparmen o Jusce Th Deparmen o Jusce s charged by saue wh he respons;y o m esgang and prosecung crmna cases on beha o he ;,r,,j ::es. n so dong, exercses he Presdens Consuona r ;.pon.by o ake care ha he aws are ahuy execued. :.m a 1 prosecuon s he mos drasc orm o exerna conro o L" on(uc n oca posons. n rnos edera agences, a repor o possbe crmna conduc s \ -!acd on a premnary bass o deermne wheher here s any "- or. appears o have some subsance, s reerred o he!. J:! o,jusce or nvesgaon and or a decson on wheher ; r- w be prosecuon. n 11:,1. he CA poned ou o he Deparmen o Jusce ha, :, r:::ny cases nvovng CA, prosecuon vouc requre pubc ds.! r<\n o!cnsve Agency operaons and procedures. E\ n nvesgaon and prosecun consderaon by ousders woud. -. rnnac hs normaon more wdey han he Agency beeved j roprae. Tw Deparmen o Jusce responded ha he Agency shoud n ;.rae such aegaons aecng s operaons., aer nvesga! :.n. nppeared ha prosecuon woud be precuded by he need o rn n sensh e normaon hen he Agency shoud so ndcae n s! ;. s nnd no reer he case o he Deparmen o Jusce. h dong hs, he Deparmen o Jusce abdcaed s sauory,.,. nnd paced on he Drecor o Cenra negence he respons, : v or nwsgnng crmna conduc und makng he prosccuora ;""on-deary aw enorcemen powers. (There s, however, no ev!"nn\ hn hese powers were ever n bused by he.agency.) Th" -ne o aars connued un January 1975, when he De&rnwn o Jusce dreced ha cases wh n poena or crmna... n on be reerred o or consderaon.,. --