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94TH CoNGRESS } 2d Session SENATE { REPORT No. 94-755 t• :• SUPPLEMENTARY REPORTS ON INTELLIGENCE ACTIVITIES BOOK VI FINAL REPORT OF THE SELECT COMMITTEE TO STUDY GOVERNMENTAL OPERATIONS WITH RESPECT TO INTELLIGENCE ACTIVITIES UNITED STATES SENATE APRIL 23 (under authority of the order of APRIL 14), 1976 U.S. GOVERNMENT PRINTING OFFICE 70-890 0 WASHINGTON : 1976 For sale by the Superintendent of Documents, U.S. Government Printing 01llce Washington, D.C. 20402 - Price $3.40 SENATE SELECT COMMI'ITEE TO STUDY GOVERNMENTAL OPERATIONS WITH RESPECT TO INTELLIGENCE ACTIVITIES FRANK CHURCH, Idaho, Ohairman JOHN G. TOWER, Texas, Vice Chairman PHILIP A. HART, Michigan HOWARD H. BAKER, JR., Tennessee WALTER F. MONDALE, Minnesota BARRY GOLDWATER, Arizona WALTER D. HUDDLESTON. Kentucky CHARLES MeC. MATHIAS. Ja., Maryland ROBERT MORGAN, North Carollna RICHARD S. SCHWEIKER, Pennsylvania GARY HART, Colorado WILLIAM G. MILLIIlR, Starr Director FaIllDIIlRlCK A. O. SCHWARZ, Jr., (Jhiel Oounsel CURTIS R. SMOTHERS, Counsel to the Minoritll AUDRlIlY HATRY, Olerk 01 the Committee (II) LETTER OF TRANSMITTAL On behalf of the Senate Select Committee To Study Governmental Operations with Respect to Intelligence Activities, and pursuant to the mandate of Senate Resolution 21, I am transmitting herewith to the Senate two studies prepared by the Library of Congress which supplement the other books of the Committee's Final Report. The publication of this book completes the record of the Committee's hearings, findings, and reports on the intelligence activities of the United States Government. The first study is entitled "The Evolution and Organization of the Federal Intelligence Function: A Brief Overview (1776-1975)" and was prepared at the Committee's request and under its direction, by Dr. Harold C. Relyea of the Congressional Research Service. It is published to provide a comprehensive compilation of public, unclassified, sources of information on American intelligence activities, and includes a full bibliography. The second study is entitled "Executive Agreements: A Survey of Recent Congressional Interest and Action" and was prepared by Marjorie Ann Brown of the Congressional Research Service. This survey is published to help the American people understand an important means used by our Government in the execution of its foreign policy and the efforts made by Congress to ensure that its constitutional responsibilities in foreign affairs are properly executed through the appropriate use of executive agreements and treaties. On behalf of the Committee and its staff, I would like to express our deep appreciation to the staff of the Library of Congres.<;, and particularly the Congressional Research Service. Their work has been of the highest quality and their prompt response to the Committee's numerous and diverse requests deserves a full measure of praise. FRANK CHURCH, Ohairman. (ill) 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 CONTENTS Page Letter of TransmittaL_ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ III THE EVOLUTION AND ORGANIZATION OF THE FEDERAI. INTELLIGENCE FUNCTION: A BRIEF OVERVIEW (1776-- 1975L ._ __ 1 Introduction__ ____ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 1 I. Research Limitations____ __ __ __ __ __ 2 II. Intelligence Authority_______________________________________ 3 PART ONE: The Small Beginnings (1776--1914)______________________ 7 I. Revolution and Intelligence__________________________________ 9 II. The New Nation___________________________________________ 15 III. The Mission to Florida______________________________________ 17 IV. Mexican War______________________________________________ 21 V. Civil War_________________________________________________ 2 4 VI. Pinkerton_ - - - - - --- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- 25 VII. Seward -- -- -- -- -- -- VIII. Baker -- -- -- -- ~- -- -- -- -- -- -- -- -- -- -- -- ----_-_- 332 IX. Dodge --- 44 X. Carnngton ---- 45 XI. Signal Services_____________________________________________ 507 XII. Lesser Efforts_ --- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- 57 XIII. Secret Service_ --- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- -- 59 XIV. Armed Forces Intelligence___________________________________ 61 XXVVI.. SPpoasnt iWsha-rADmeevneclaonpmWenatrs-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_-_- 664 9 PART TWO: The Middle Years (1914-39)___________________________ 75 I. Military Intelligence________________________________________ 76 II. Naval Intelligence__________________________________________ 89 III. Bureau of Investigation______________________________________ 94 IV. American Protective League__________________________________ 102 V. Other Factors______________________________________________ 107 VI. Red Scare_________________________________________________ 112 VII. American Black Chamber____________________________________ 115 VIII. Intelligence at Twilight______________________________________ 119 PART THREE: The National Security Colossus (1939-75)_____________ 132 I. Neutral America___________________________________________ 133 II. Attack____________________________________________________ 137 III. Office of Strategic Services__________________________________ 138 IV. Air Intelligence_ _____ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 156 V. Military Intelligence____ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 183 VI. Naval Intelligence__________________________________________ 216 VII. Civilian Intelligence_ ___ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 222 VIII. Postwar AdjustmenL_______________________________________ 240 IX. Atomic Energy Commission_ __ __ __ __ __ 243 X. National Security CounciL__________________________________ 244 XI. Central Intelligence Agency _______ __ __ __ __ 253 XII. Defense Intelligence_ ___ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 265 XIII. State Department__ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 271 XIV. President's Foreign Intelligence Advisory Board________________ 273 XV. Loyalty-Security___ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 274 XVI. Watergate_________________________________________________ 277 XVII. Justice Department- ____ __ __ __ __ 282 XVIII. Treasury DepartmenL__________ __ __ __ 286 XIX. Overview __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 290 (v) VI Page BIBLIOGRAPHY__ __ __ __ 293 APPENDIX I: The Evolution and Organization of Federal Intelligence Institutions (1882-1975) __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ __ 309 APPENDIX II: Government Information Security Classification Policy__ 313 I. National Defense __ __ ______ ___ ____ __ ___ ___ ___ ___ ____ 314 II. World War L___ ___ ___ __ ___ ___ ___ ______ ______ __ ____ ___ _ __ 321 III. Peacetime Protection_ ________________________________________ 324 IV. World War II ___ _ ____ _____ _ __ _ _ __ ___ 327 V. The Coolidge Committee___ ___________________________________ 332 VI. The Wright Commission_ ____ __ ______ __ __ __ ___ __ __ _ _ 334 VII. The Moss Committee_________________________________________ 337 VIII. Other Congressional Acts______________________________________ 344 IX. Overview __ ___ ___ ___ ______ __ ______ _ ___ _ __ __ ___ _ 348 Government Information Security Classification Policy: A Select Bibliography____________________________________________________ 350 ACKNOWLEDGMENTS___ __ _____ ___ ___ __ ___ ___ ___ ___ ___ ___ 353 EXECUTIVE AGREEMENTS: A SURVEY OF RECENT CONGRESSIONAL INTEREST AND ACTION 355 I. The Making of Executive Agreements_ _________________________ 356 II. Congressional Interest and Action Before 1967___________________ 357 III. Senate Resolutions: 1969,1970, and 1972_______________________ 358 IV. The Case Act, Public Law 92-403______________________________ 360 V. Attempts to Limit Spending Required by Executive Agreements__ _ 360 VI. Disapproval Procedure for Executive Agreements_ _______________ 363 VII. Future Congressional Concerns ________________________________ 364 APPENDIX A: Statistics on Executive Agreements and Treaties Entered Into by the United States, 1930-45; 1946-73________________________ 365 APPENDIX B: Department of State Revision of Circular 175 Procedure_ 367 APPENDIX C: Legislation Pending in the 93d Congress Relating to the Making of International Agreements_______________________________ 375
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