• 

SEC II 0001 

9 April 1954 

'i'OP 8EEIW'f Y + S, B¥!lS ONL¥ 

MEMORANDUM FOR THE CHAIRMAN, USCIBINTCOM: 

Subject: 

Ref'erence: 

Emergency and Operational Dissemination of' COMINT. 

INTCOM 13. 7/8 of' 9 February 1954. 

1. The Security Committee has, as requested by your Committee, 

thoroughly reviewed the security aspects of' the above reference. The 

SECCOM f'eels the need f'or the inclusion, in such a paper, of' a!l pertinent re.ferences appearing in Appendix "B", an4 has there.fore compiled 

their conments in the form of' a suggested uscm Directive. 

2. This Directive (attached as Enclosure l) has been approved by 

the majority of the SECCOM. The points of dif.terence between this paper 

and its original version are included as Enclosure 2, since the majority 

or the members do not reel strongly toward either. 

3. The SECCOM believes that an attempt shoULd be made to obtain 

prior approval or USCIB for a:ny exceptiona.L dissElllination of' Category III 

and II COMmT. The majority or SECCOM agree that there may be cases of 

emergency in which enough time may in fact be available to obtain this 

prior approva..t.. It should be noted, however, that the SECCOM is in agreelnent with INTCOM on the principle that aey directive on this subject should 

cover only such cases or exceptional dissemination of Category III and II 

COMINT in which prior approval ca.miot be obtained from USCIB. 

4. Paragraph IV. B. or Enclosure 1 was 'Written to cover emer enc 

disseminetion of all Cate or II COMINT inclu · overnment 

aragra p IV •• covers only the operational dissemination or certainspecif'ied Categoey II non-military Plain Text as agreed i'rom time tQtlme by both Boards. Eo 3.31hl 121 

PL 86-36/50 USC 3605 

5. The Committee believes that Paragraph VI. c. concerns operational 

dissemination or a mass 0£ material rather than individual items. The 

plain text material which may be approved for use under this paragraph 

is extremely l:lmited and is subject to change from tiD.e to time. Therefore, th!f Comn:Lttee recommends that USClB deter such approval 'lllltil 

permission is requested: by a member to uae plain text on a specific subject 

and passed on specific circuits which he believes will qualify tor use 

under these provisions. Once approved by both Boards, that member may 

use material in accordance with provision<>£ Paragraph VI. c. without 

further referral to uscm. . 
~£;,JR;,A65858 TO:AO.....,, "'.& • .....,, .& 9 

SEC II 0001 

9 April 1954 

Subject: Emergency and Operational Dissemination of COMINT. 

----------------~---------------------

6. The SECCOM recommends that a copy of the approved directive on 

this subject be sent to LSIP for information. 

7. THIS DOCUMENT Alm ITS ENCLOSURES CONTAIN COMMUNICATIONS 

INTELLIGENCE INFORMATION Alm SHALL BE IWIDLID ONLY Di CHANNELS ElPRESSLY PROVIDED FOR COMINT. 

Enclosures 

1. Drai't Directive. 

2. a/s. 

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IJ• .• rxaA .4.J 

WILLIAM R. CULMER 

Major, Arty., USA 

Chairman, SECCOM 

TO:..n SECRET 
'FOP SEeRE'f 

USGIB DIRECTIVE NUMBER (CIBD /l. ___ ) 

(Approved by USCIB on ________ ) 

EMERGENCY AND OPERATIONAL DISSEMINATION OF COMINT 

I. PURPOSE 

The purpose of this Directive is to prescribe the lowest levels 

authorized to determine the existence of emergency or operational 

conditions justifying exceptional dissemination of COMINT. 

II. DEFINITIONS 

A. Disguised COMINT - For the purposes of this Directive, 

disguised COMINT is that Ce.tego:i.7 III and II COMINT from which the 

codeword has been removed and the subject lna.tter so worded that th6 

information contained cannot be traced specifically to COMINT by 

non-indoctrinated persons (including foreign nationals). 

B. Suitable Cover - For the purposes of this directive, suitable 

cover is the existence of substantially similar information based 

upon a genuine,. less sensitive source or an actual~situation wherein 

the intelligence itself can be attributed beyond reasonable doubt to 

other sources or events by non-indoctrinated persons (including foreign 

nationals). 

III. SCOPE 

This directive provides for: (a) exceptional, emergency dissemi~ 

nation and use of Category III and II COr.fINT where no suitable cover 

exists and where there is not sufficient time to obtain the decision 

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'!'Of 31!lSJ.=e1' 

of USCIB in each case in advance; (b) exceptional operational 

dissemination and use of certain specified Category II Plain Text; 

and (c) exceptional dissemination of Category I COMINT to certain 

allied Third Parties. 

IV. POLICY 

Ao Category III COI'vITNT 

1. Upon determination by proper authority, as indicated 

below, that a case of extreme emergency exists, in which there is an 

imminent threat to the vital national interests of the United States, 

justifying exceptional handling of individual items of Category III 

COMINT; such COI'vITNT items suitably disguised, may be disseminated 

to non-indoctrinated persons and/or action may be taken based solely 

on that COMINT. 

2. The lowest level of authority1 permitted t~ determine 

2 the existence of such an emergency condition are the following: 

a. Within the military establishment, 

(1) Commander of an Army Group 

(2) Conn:nander of a Naval Fleet 

(3) Commander of a Numbered Air Force 

1

This authority is limited to the incumbent in person or bis duly authorized 

or acting relief. 

~his list applies only in situations where there is not sufficient time to 

enable the designated authority to refer the matter to USCIB. Exceptions 

and limitations to this list shall, in each case, be specifically authorized by USCIB. (See Appendix A for current list of exceptions and limitations to the above list). 

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Approved by USCIB on ----=~~=~-=-==----- CIBD #_.___ _ 

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b. Secretary of State 

c. Director FBI 

d. Director of Central Intelligence. 

3. The exceptions described in Paragraph 1 above shall 

be made only upon a determination that the advantages to be gained 

clearly justify the risk of compromise of the COMINT source and 

the extent of the loss which would probably follow such a compromise. 

In making this determination, due regard shall be given to: 

a. The availability of suitable cover. 

b. The relative value of the particular 

OOMINT source involved and the possibility that its compromise may lead to 

the loss of other ,COMINT sources, pa:rticularly those which are more valuable. 

c. The possible repercussions on current and 

future operations and also on other connn.ands 

and areas. 

B. Category II COMINT in General 

1. Upon determination by proper authority as indicated 

below that a case of emergency exists which involves a matter of 

importance to the national security of the United States (or that 

-conditions outlined in Paragraph A. 1. above exist), justifying excep-

-tional handling of individual items of Category II COMINT; such COMINT 

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Approved by USCIB ON-------------- CIBD #___ _ 

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'· 

items, suitably disguised, may be disseminated to non-indoctrinated 

persons and/or action may be taken based solely on that COMil~To 

2. The lowest level of authority1 permitted to determine 

the existence of such emergency conditions are the following: 2 

ao Within the military establishment 

(1) Commander of an .Army Corps, 

(2) Commander of a Numbered ("Two-digit") 

Eo 3. 3 I h I I 2 I 

PL 86-36/50 USC 3605 Naval Task Force and 

(J) Commander of a Numbered Air Forceo 

b. Department of State member of USCIB 

c. Director, FBI 

d. CIA Senior Field Representativeo 

J. Paragraph A. J. above applies. 

C. Category II Plain Text J I 

-' _____ _____, 

1. Upon determination by proper authority as indicated 

below, of a matter (subject) of sufficient importance, essential to 

operations directly related to the security of the United States, 

1

This authority is limited to the incumbent in person or his duly autho~ ized or acting relief. 

2

This, list applies only in situations where there is not sufficient time 

to enable the designated authority to refer the matter to USCIBo Exceptions and limitations to this list shall, in each case, be specifically 

authorized by USCIB. (See Appendix A for current list of exceptions and 

limitations to the above list). 

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Approved by USCIB on ------------ CIBD #_._ _ 

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t' ~~5858-

justifying exceptional handling of certain Category II Plain Text as 

specified from time to time by USCIB; such COMINT on that subject may 

be included in documents and operational directives not carrying a 

(X)MINT codeword and/or action may be taken based solely on that 

COMINT, provided that there is adequate reason why the recipients 

should not be indoctrinated. 

2. The lowest level of authority permitted to make the 

above decision is the USCIB member of each member department or 

agency. 

J. The exceptions described in Paragraph 1 above shall be 

made only under the following conditions:· 

a. All precautions must be taken to ensure that 

COMINT does not thereby come to the knowledge of 

Third Parties; 

b. The advantages to be gained are sufficiently 

great to justify the risk to the COMINT source; 

c. The information could reasonably be attributed by 

non-indoctrinated persons (inc"iuding foreign 

nationals) to other sources-agent, attache, defector, and the like; 

d. The COMINT origin of the information is not stated. 

Whenever possible and plausible the information 

shall be specifically attributed to other sourceso 

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Approved by USCIB on CIBD # __ _ 

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.. t' 

D. Category I COMINT 

1. Upon dete:rm;i.nation by proper authority t!iat a 

requirement exists, during active hostilities or in the case of an 

emergency involving a matter of importance to the national security 

of the United States, Category I COMINT may be disseminated to 

nationals of Third Parties who are engaged directly with the 

United States in these hostilities or are allied directly with the 

United States in dealing with the emergency concerned. 

l . 2. The lowest level of authority permitted to determine 

2 such a requirement are the following: 

a. Within the military establishment the 

(1) Commander of an Anrr:t Division 

(~) Commander of a Naval Task Group and the 

(.3) Commander of an Air Division 

b. Department of State Member of USCID 

c. FBI member of uscm 

.d. CIA Senior Indoctrinated Field Representatives 

Serving tmder USCIB member • 

.3. It is recognized that the exceptional dissemination 

authorized above will involve loss of control by COMINT authorities, 

1

This authority is limited to the incumbent in person or his duty autho~ ized or acting relief. 

2 Exceptions and limitations to this list shall, in each case, be specifically authorized by USCID. (See Appendix A for current list of exceptions 

and limitations to the above list). 

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Approved by USCm on -------........ .._........,"""""'._ TO.PSECRET 

CIBD # ___ _ 
-·~ 

but every effort shall be made to ensure that the following provisions 

are enforced to the maximum extent possible: 

ao Whenever Category I OOMINT is to be transmitted 

by a means exposed to interception, it shall 

.normally be transmitted in an appropriate 

cryptographic system. It may. be transmitted 

in plain language only when there is no suitable 

means of secure cormntlllication available and when 

there is an urgent operationaLneed· to do so. 

Whenever possible such plain-language transmissions shall be in the form of operational 

orders so worded that the subject matter c~ 

not be traced specifically to i~s COMINT origin. 

b. In taking action based on Category I C0~1INT care 

shall be taken not to risk the COMINT source unnecessarily. Whenever possible, efforts shall 

be made to devise a suitable cover. 

V. .mQ_CEDURES 

A. USCIB member departments or agencies taking action tlllder a:n.y 

of the provisions outlined in Paragraph IV. A. or B., above will, in 

' 

each individual case, immediately furnish a report of such action, 

through appropriate channels to the Executive Secretary, USCIB. This· 

report shall contain a statement of cirmnnstances and an identification of each individual CONINT item involved. 

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Approved by USCIB on-----=="=-=-""="=-:=~=--- 'FOP SECRET 

CIBD #. ___ _ 
... .. ~~5858~ 

B. Wherever Category II Plain Text is used as'permitted in 

Paragraph c. above, an immediate report of such use shall be made to 

the Executive S~cretary ,, USCIB. Such report will include a copy of , 

the document in question together with a general description of the 

COMINT source material included and the extent thereof. 

C. A copy of such implementing directives as are issued by 

individual USCIB member departments or agencies shall be furnished 

the Executive Secretary USCIB for study and retention. 

D. The Executive Secretary, USCIB, shall inform other USCIB 

members of action reported in accordance with this direct.ive and, in 

addition, shall inform foreign COMINT boards of action reported in 

accordance with Paragraphs IV. A. and B. above. 

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Approved by USCIB on -------------- CIBD II.. __ _ 

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APPENDIX A 

.IQ 

.... us ..... c .... IB ........ D.,..IRE......,.CT......,IVE--....NUMBER;;,,;,,,;;,;;;o=----.. ' C-..IB--..D _..# __ ) 

Currently Approved Exceptions and Limitations to the Lowest Levels of 

Authority. 

OGA 

A. CATEGORY III cm1INT 

1. For these purposes the Eighth A.rmy is considered as 

an Army Group. 

(Approved by USCIB on __________ ) 

2. For these purposes the 5th and 7th Independent Air 

Divisions are considered as Nmnbered Air Forces. 

(Approved by USCIB on __________ ) 

B. CATEGORY II COlrrNT 

1. For these purposes CIA Senior Field Representative is 

limited to those{ 

(Approved by USCIB on __________ ) 

2. For these purposes the 5th and 7th Independent Air 

Divisions are considered as Nmnbered Air Forces. 

(Approved by USCIB on ___________ ) 

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-re~65858-

.. 9 April 1953 

!eP SBtHH • lf, S. F!FS Qm,y 

COMPARISOll OF THE ORIGilW. AND THE FINAL VERSIONS OF THE SECCOM 

DRAFT DIREC'l'I\IE.ON EMERGENCY AND OPERATIONAL DISSEMINATION OF COMINT 

The original and the final version of the. SECCOM Draft Directive on 

Emergency and Operational Dissemination of (X)l'1J:NT differ on only two points. 

These points of dif'f erence are outlined below - the dashes indicatine the 

original version and the underscore indicating the final version. 

III, SOOPE 

This directive provides for: (a) ~ iifieae exceptional.,1. ~ of eme:cgencv 

dissemination and use of Category III and II OJMINT where no suitable cover 

exists and 'Where 44t 48 88RSi:rie:riKi Y)iP&8:1;iealile there .. is net sufficient time 

to :re'!llii:Pe :ret'ewM. 4ie obtain the decision of USCIB ,f.., .a aeei:sia in each 

case in advance; (b) exceptional operational dissemination and use of certain 

specified Category II Plain Text; and (c) exceptional dissemination of 

category I COMINT to certain allied Third Parties. 

Footnote "2" to Paragraphs IV.A.2. and IV.B.2 •. 

2 . . . 

This list applies only in situations· where there is not sufficient tim~ 

to enable the designated· aUthority tg refer the maller to USQIB. Exceptions and limitations to this list shall, in each case, be specifically 

authorized by USCIB. ,· 

~closure .2 w/SEC II 0001 dtd 9 Apr 1954. 

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