) 1..sc; 

MEMORANDUM FOR RECORD 

SUBJECT: TIC OM Activities of AFSA 

1 a. Until the cryptologic activities of the Department of Defense 

were unified under AFSA, the Army• s TICOM activities in ASA were conducted 

at AHS in the Office of the Special Assistant to the Chief, ASA (As-14.); 

the Navy• s TICOM activities in CSAW were conducted at NCS in NI-4; the 

Air Force conducted no TICOM activities, except for a series of interrogations, 

conducted in 1945 in the European Theater of Operations, which were later 

incorporated in a 13-volUrne document known o.s the "Seaborne Report. 11 

b. The TICOM publications produced by the TICOM unit of ASA from 

1946 to the time of unification totalled some 200 documents, many with 

multiple parts, comprising approximately 10,000 pages. This material was 

not only of historical interest and value but also of important current 

operational usage in all three fields: COMINT, COMSEC, and R&D. The CSAW 

TICOM unit produced approximately 25 complete documents totalling 500 

pages, and some studies which were partially based upon TICOM documents but• 

which were not actual translations of material. 

,/ 

I 

c. The number of ASA persons wholely engaged in TICOM activities 

when these were conducted at AHS was five; at CSAW only the part time 

services of one man were devoted to similar activities when these were /) 

conducted at NCS. The total number (Army, Navy and Air Force) e~~aged in 

.~~~~'O~~ TICOM work before unification was therefore 5-1/2. ~~he number of AFSA , 

.· +,;.~ ~ 

persons now engaged in these activities is sev:eD (four in AFSA-14 and ~ 

in AFSA-02). Not only has th'Efre been no saving in personnel but also, as 

7JG~~Q, 

will be pointed out later, that has been a decrease in efficiency. 

1 . 

Declassified and approved for release by NSA on 11-05-2014 pursuant to E.O. 1352e 
REF ID:A4148504 

There are indications that AFSA-02 intends to increase its TICOM staff 

in AFSA-254 by several persons. 

d.. A factual present{l.tion of the events leading to the current situation 

in regard to TICOM operations and activities will be useful. 

2 a. On 24 January 1950, the day prior to the scheduled move of TICOM 

' from AHS to NCS, Captain Mason, the Chief of AFSA-02, peremtorily demanded 

of Mr. Rhoads, Assistant Chief of AFSA-14 and at that time Acting Chief of 

AFSA-14 in my absence, that he turn over to AFSA-02 all TICOM documents in 

the possession of AFSA-14, "because of their great intell_igence value". 

Captain Mason stated that he wanted AFSA-02 to have the opportunity to examine 

the files in order to determine and select documents which had not yet been 

processed by the ASA TICOM unit and which might be of current operational 

value to AFSA-02. Mr. Rhoads pointed out that this would be easy to do if 

the documents were properly indexed; ASA 1 s TICOM unit had prepared some partial 

indexes but because of the very limited number of personnel in the TICOM unit 

and the pressure of work, it had not been possible to compile an overall 

index as yet; such a compilation should be done and would be very useful. He 

added that AFSA-02 was certainly welcome to examine the files but he did 

not feel that AF'SA-14 should turn over its TICOM files permanently to AFSA-02 

for such a purpose. After some discussion a compromise was reached when 

Mr. Rhoads agreed to turn over all TICOM documents not then being processed 

by AFSA-14, with the understanding that they were merely to be indexed by 

AFSA-254. Thus, although these documents were to be handed over to the custody 

of AFSA-02, this was to be only. a temporary arrangement and only for the indicated purpose; permanent custody was to remain with AFSA-14. On 25 January the 

former ASA TICOM unit moved from AHS to NCS, turning most of its files over 

2 
~~~ 

~J 

tr J. to AFSA-254. 

REF ID:A4148504 

It may be added that Mr. Rhoads acceded to the peremptory 

} demands of AFSA-02 only under the pressure of the moment. He was struck 

1t 

with the suddenness of the demand, which was)in his opinion, highly irregu.la.r, 

.. entirely uncalled for, and constituted a seemingly unwarranted interference 

~~ with smooth operation. He felt that such factors as sudden change in one 

of the important details of a long-scheduled move, the loss by the TICOM 

Branch of its files, the disruption of the operations of that Branch, and ~ ~-~ ~ ~ $ I 

; ":f ~ the ensuing doubt as to the status of the Branch and its personne) constituted 

~'S~~ ~ ·s ~~factors that would lead to a notable decrease in efficiency and a lowering 

~ . ~j 

-J~iJ :~ ~ ~l'J. acceded to AFSA-02 1 s demand_) but did so only in the hope that in acceding to 

~~1l t 5 ~ 

~11.~ 

of the morale of the personnel within the Branch. Mr. Rhoads nevertheless 

it he might "keep peace in the family", a factor which might ultimately be 

for the good of the whole TICOM operation" ~~ ~iMd=r1 and outside AFSA. · 

b. In the course of the next few weeks, peremptory requests were 

made of Mr. Rhoads by Capt. Mason for all personnel of AFSA-ll+ to work -ff.-1 with AF'SA-254 at AHS on the indexing of the TICOM files. Despite the fact ·11l 

r~)~, 

·~ 1~.\;i 

that there had b~en no agreement that AFSA-14 was to provide such assistance . 

~ 'M--""~~k l-\.>-<..,.,J- --f-e...;v ~.r,. . ._J_ ~L- £.Y>....l.tr,i:,,.u...R.. V<-~b.1--bv•··~.L ... .:,-) 1 ~( w.u._q_ 1,1-v-t-,_.u 

and therefore that not all personnel of the TICOM Branch could b~ spared ~ 

, t· ~~ ~ l~~. ~ \<. ~w-'-ou_l_d_b_e_f_u_r_n_i_s_h_e_d_._· _T_w_o_p_er_s_o_n_s_r_r_o_m_AF:..__SA_-_14_,_c_a_pt_La_n_e_a_n_d_c_p_l_._B_a_r_n_e..,;s . _ . 

~ ~ ~ were subjected to~lurring remarks on the status and funetions of the 

{Y -J . . i TICOM Branch of AF~ "~ to"'- ~ . ~1~. ~ 

rg 

dtf 

-~ . i 

for this purpose but finally agreed that some assistance in this matter .ft_: 

t_ 

<\ 

~ 

r· 

c. Moreover, it soon developed that the mechanical job originally 

undertaken by AFSA-02, viz, that of indexing the TICOM files was to be 

expanded to a much larger one, viz, the proce§~ing of TICOM documents. This 

~ . ~ was, of course,/\not within the terms of the agreement stated in Paragraph 2 a 

'-'-

3 
REF ID:A4148504 

abo,re. However, again from a desire to "keep peace with the family," 

and in a spirit of accommodation to what was presented as pressing needs 

of AFSA-02 as a COMIN!:, prodg£~!9!! organization, Mr. Rhoads permitted himself 

to be persuaded that a division of labor between AFSA-02 and AFSA-14 in the 

TICOM field might be made on the following basis: TICOM d_ocuments of 11 operational use" would be processed by AF'SA-02; documents of only 11 historical interest 

would be processed by AF'SA-14. Some discussion ensued between Mr. R,hoads 

and Capt. (then Cmdr.) Fabian on this point and a draft memorandum was 

prepared on the subject of the responsibilities of AFSA-14 for TICOM 

activities. (See Encl.A). This draft memorandum, the terms of which 

were still in a fluid state, seems to have been used in connection with the 

~inalizing of the AFSA Organization Manual. Apparently Capt. Mason presented 

this draft memorandum to the Deputies, who hastily called for some 

representative from AFSA-14 to indicate whether it was satisfactory. In 

the ~bsence of myself and Mr. Rhoads, Capt. Lane (who, although not Chief 

of the T.ICOM Branch of AFSA-14, was '='.uite familiar with the subject) appeared 

before the Deputies and reported that the arrangements outlined in 

~ 

the draft 

memorandum were satisfactory to AFSA-14 on a working level. There wa5; no ) 

I\ 

detailed discussion of the matter with Capt. Lane by the Deputies and 

Capt. Mason, who was also present. 

d. Consideration of the matter by the Deputies resulted in a change in 

the AFSA Organization Manual in regard to the way in which responsibility for 

the conduct of AFSA' s TICOM activities would be fixed. AFSA-14, which 

theretofore had conducted those activities,· was given only Staff supervision 

of these activities (Page 16, Par B 15). Responsibility for the actual 

direction and conduct of TICOM activities was not specifically assigned to 

any office. Of course, the functions set forth in Paragraphs 3 and 6 of the 

4 
REF ID:A4148504 

' duties of AF'SA-25 (Page JO of the Organization Manual) can be 11 stretched" 

or construed to include TICOM activities; but the word TICOM is not 

.l.P 

T1NL 

_ 

~ 

. specifically: 

fOA". ~)al'" ~0"6J"4k~ 

mentioned in either 

.~ 

paragraph 

\~ ~ 

of 

~ 

r~ferei1 ~,~ ce.. f'he ~ 

A<ho3e f3a:rag1aphs-~, •1epY elotnP: _ "special documentary research" 1..<i U'-u" 

ft>aF. 3 

w...~ 

ef -Eage 3

1

°1( 

~ 

:kl 11 f~~~Q£~§§ing_tlvisvi2!,!~ -~2l..UJ- ~ o • 

11 .a-~ 

of AFSA-02• 

~ 

eai}o~n · , 

.( . .~~~Mo.-....J...1 . Par. 6)on the same page" -the sttldies and reports mentioned therein are "for 

the use of processing Divisions and)upon request, of recipients of published 

AFSA products as required". I think that the 11 AFSA/products11 here mentioned 

s 

are clearly COMINT decrypt)ll', since the data in TICOM documents are not 

"AFSA products". Fx esw1~ ho""* Deputies and AJi'SA-02 ~ construeL 

the matter in a very broad way, and asswned Pars • .3 and 6 of Page JO of ~he ·.L. 

· .~ 'v.... ~ ~_;/,yf'$.~-Ol. ~~:k ~VI.; 

AFSA Organization Manual to includ~ certain TICOM processing)because AFSA~r+ ;.,_ 

proceeded forthwith to undertake TICOM operations of a nature considerably 

beyond that of indexing the TICOM files. In fact, AFSA-02 Liunediately began 

to act on the assumption that ~ responsibility for TICOM activities and 

operations rested in AFSA-02 and notified interested units within AFSA and 

agencies outside Af'SA to that effect. (See Enc lo B and C). Not only was it 

represented that AFSA-02 did all the TICOM work and that AFSA-14 was no longer 

in the picture,· but also the Chief of AFSA-02 indicated orally to Capt. L9.n.e 

that he was doing everything he could to break up the TICQM; unit of AFSA-14 • 

..J 

(See P.4 of Encl~. By various actions and representations.AFSA-02 has 

made it appear that there is no longer any reason for the existence of the 

AFSA-14 TICOM ~~, Branch, the work h~ing 

~~-

beep _a~ turned over to AFSA-02) ·. o... ~ 

~he weakness in the ~ vivendi that was agre.ed to informally by 

Mr. Rhoads under pressure from AFSA-02 is that there was no firm agreement as 

to the significance of the phrase "operational use", nor as to what or who 

to ~ ~ 0--0 •CrvUlwould determine whether a specific TICOM docwnent. is/\ of "operational use" 

5 ·=-. 
REF ID:A4148504 

or only of "historical interest". Mr. Rhoads' understanding was that the 

word "operational" ~as to be applied only to ~terial_!gich_!~f_current . . ' 

usefulness !!L~g~ prody£tion of QOMINl' by AFSA:02; it was not to be applied 

to material which~ of current usefulness to any unit of AFSA not 

engaged in COM!fil. Q:r:Qguc~ion or to any unit outside AFSA, such as CIA. 

However, it now turn$ out that AFSA-02 1 s interpretation of the term 

"operational use" includes operations of any sort in current progress, 

either inside or outside AFSA -- a far wider interpr~tation than was ever 

contemplated by Mr. Rhoads when he agreed to the informal aITaDgement. Nor 

was there any firm agreement or understanding as to the mechanics of handling 

any new incoming TICOM documents from ECASA, ASAPAC, or other agencies 

outside AFSA. The ~ ~ndi has thus far worked out. so that all BleW 

and many old TICOM documents are in the first category• ~rything of a ~~}o.Q,...q_ 

TICOM nature ~ of "operational use 11 to some unit or other, either 

~~·L:!""~~~~~ 

inJide or outside AFSA, ~~~SA 02 Jil 'I Et<G-O to process practically " . " 

everything of a TICOM nature. How far this_ may or may not be from the fact 

is difficult to tell, since AFSA-14 no lon~r-sees any of the new incoming 

TICOM material; but on the basis of-the three documents thus far processed 

by AF'SA-254 this seems to be the way things are working out: nearly evecy 

TICOM document falls in the. category of 11

A~~-'lo-~~ ~--~ o.illL-t)r-~ o.Q.l.l'1c:qM·-~ operational.ly us~ful11 L · ,------a- ~--°~ ~ 

3 a. Upon my return to duty I found TICQM, affairs· in a rather unsettled 

state and the situation as depicted above. I did not have an 9pportunity to 

concur in)or comment on)the changes made in the AFSA Organization Manual, 

relative to TICOM operations, when these changes_ were impending; also, I 

did not believe the informal_ arrangements made between AFSA-02 and the 

Assistant Chief of AF'SA-14 for a division of labor were best for all concerned. 

6 
REF ID:A4148504 

But I was willing to go along and see how well they would serve in p.ractice. I 

I had a brief talk with Capt. Mason and indicated that I was willing to try 

out the new arrangements for the division of effort .in. TICOM operattons. 

b. However, I regret to report that in my_ opinion the new arrangements 

have already turned out to be far from satisfactory, so far as AFSA's overall . 

interests are concerned, The deficiencies are s$t forth in the next paragraph. 

4 a. It was note_d above, in Parag!aph 2 a, that the bulk of the TICOM 

files in ther possession of AFSA-14 was turned over to AFSA-254 on the 

understanding that the many docwnents, which it was.not possible for AFSA-14 

to index while it was also heavily engaged in processing important documents 

of current value, would be indexed by AFSA-254. 

b. On 12 June 1950 the Chief of AFSA-25 stated that AFSA-254 had 

completed some 350 in9ex cards covering.this material. On 13 June AFSA-254 

turned over only 95 such cards, covering a lesser· number of items,. since 

some documents require.more than one index card. These· as a sample of what 

the indexing will be like if completed by AFSA-254 leave much.to be.desired. 

Enclosure D deals with this matter in detail. 

c. With respect to the speed with which the indexing job is being 

carried forward, it. was AFSA-14's understanding, when the .job was undertaken, 

that AFSA-02 undertook it in order to bring it to a speedy completion and 

proposed to do so by assigning more persons to the project. On 16 June 1950 

I had an inquiry made and learned that as of that date no work whatever was 

in progress and that indexing probably could not be·resumed before.the end of. 

July. Only one person had been assigned to the project and was going on leavee 

QA/ 

This, e an example of what AFSA·2?4 has been ~ble to accomplish in six months 

work on .the TICOM files )leaves much to be desir~d .. ~' ~ ~. · 

ll'"\~l~~J~~~~PSA-")..,s--4 ~~l ~~. ~-~~~'~0--~~,cr~ lt<L ~~ 

¥bu~~· 
REF ID:A4148504 

~ 

d. kt the last mentionea:Gah ~16 ~une 50!_ I also learned that 

of the 32 filing cabinets,originally brought together in th~ first stage of 

the indexing project 9 had been returned to the basement of the cafeteria at . . AHS "because they contained mainly Japanese material of no current interest 11 o 

Thus this material has not been and presumably will not be worked on by 

AFSA-02 at allo AFSA-14 should have be.en notified to take these files 

over, in accordance with our informal agreement. AFSA-14, moreover, does 

have a definite interest in these fiies since CIA has_ asked if AFSA-14 

' would produce certain documents relative to the Japanese cryptologic 

effort of World War II. · · . · 1 . . e. Thus far, AFSA-254 has apparently produced and disseminated t~rea . VN 0... ~~·ti-~~ ~''C.T\R. ·~~ 

TICOM ~~b~-P\eAe ~zw:m.kn is merely a, retyping Of a' report_ in English, 

received from ECASAj (Copies are attached hereto, Enclosures E, F, G)o 

C..11 RIAWhether more than these three have thus far been produced is not knoWll to . ~ ' ' . . 

me. These publications, as examples of recent. AFSA TICOM production, are 

unworthy of AFSA-02 or of AFSA as a whoie, for reasons given in Enclosures H 

and I, two reports on these publications for my information. - (I call your 

attention especially to Paragraphs 5 and 6 of Enclosure H and Paragraph 4 of 

Enclosure I.) In addition to their defects, it is to be noted that although . . . ~·~~·&!~~ 

these publications may be of "operational use" .to som~ organizatiort'~~ to .. 

AF'SA-02fr:ne of them can be said to be of direct use in current COMINT productibn 

by AFSA-02. 

8 
REF ID:A4148504 

. - (~.--A)_..~ 

~ ~ ~;._~rt-~w.t.rLiO 

~~ 

,J j • . fll • 

~~~~ 

Having entered into av: ~em=cm lft9re e1 less fePlilSilhoo i&--wr-l'.'t.iAg- D ~ 

~ 

c,.1'J)~R.AF'S-A.; A_ 

AFSA-14.endeavored to its utmost to abide by its terms and to conduct 

itself--within the spirit of the agreement. 

. bill of particulars is in order when such a 

in Encl. K. 

This can hardly be said of AFSA-02. A · 

'f". 

cha¢ge is made and these will be found 

5 a. It is apparent that the present situation as regards TICOM activities 

is. far from satisfaptory. Not only is there no "peace within the family", as can 

readily be gathered by a perusal of a recent report by Capt. La.ne)(Encl.J), but 

also the overall ·efficiency and economy of AFSA 1 s TICOM operations have. materially 

-decreased. In my opinion there are good reasons for cancelling the informal 

arrangements ·and turning the whole TICOM operation back to AFSA-14, where it 

originally was and where, in my opinion, it still belongs. 

b. A factor in corrobora"tion of the foregoing view is that TICOM 

activities are intended to support not only AFSA-02 operations but also 

AFSA-02 and AFSA-04 operations. In the past, all three activities have 

benefited "from the publications elaborated by AFSA-14 and its predecessor~ ASA-14. 

AFSA-14 as a Staf'f agency is in a better position to service the needs of all 

- AFSA offices and divisions than is AFSA-02; which has only a current operational 

COMINT interes.t in TICOM activities and results; it is also in a better position' 

to service organizations outside AFSA •. 

c. That there remains a great deal of work to be done is indicated py tre 

fact that to date only 5 - 6% of the TICOM documents have thus far been translated 

and that 8 - 10% of the remainder merit translation. This will occupy the present. 

Staff of AFSA-11~' s TICOM unit several years. Were it not for this last fact, 

were it the case that TICOM activities are nearing. completion, I w9l.1ld be cont~nt 

to leave matters as they are, on the premise that the present situation would 

9 
REF ID :·A4148504 

.l 

soon solve it.self. But since this is not the case and since TICOM activities 

should be continued for some years, it seems warranted to try. to ameliorate the 

situation for ~he ge>od of Jl.FSA as a whole. 

~ ~~ a..ci 1 ~ ~ U1 ·;-e..:.e '".Q , 6'o/'"Q _t.' ~ ·1o 

6. I\ n :::§ recommend• that: · 0 _ 

a •. Paragraph· B 15 of the functions of JIFSA-14 9.S set forth in the AFSA r 

Organization Manual be amended to return to AFSA-14 directional.and operational 

- responsibility for all TICOM- activities. 

b. AFSA-02 be di~ected to release all the TICOM files and cabinets which 

were taken over from AFSA-14 and to return them. immediately to AFSA-14. Space for 

the cabine~s is available. 

c. AFSA-02 be directed to stop all further TICOM processing operations 

within that office. 

d.. AFSA-02 be directed to rout all incoming TICOM documents ~mmediately 

to AFSA-14. 

4. AFSA-02 be directed to notify all units.and ag~ncies within or outside 

AFSA which have·been notified of a change in AFSA TICOM responsibilities that all 

TICOM matters are again the undivided responsibility of A.FSA-14 and that all 

TICOM operational and processing matters should ·be referred to A.FSA-14 .. 

Encl. A-K. 

10