PRIVACY AND CIVIL LIBERTIES OVERSIGHT BOARD 

Report on the Telephone Records Program 

Conducted under Section 215 

of the USA PATRIOT Act and on the 

Operations of the Foreign Intelligence Surveillance Court 

JANUARY23, 2014 
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PRIVACY & CIVIL LIBERTIES OVERSIGHT BOARD 

Report on the Telephone Records Program Conducted under Section 215 of the USA 

PATRIOT Act and on the Operations of the Foreign Intelligence Surveillance Court 

Part 1 INTRODUCTION .............................................................. 1 

Part 2 EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 

Part 3 DESCRIPTION OF THE NSA SECTION 215 PROGRAM ......................... 21 

Part 4 HISTORY OF THE NSA SECTION 215 PROGRAM .............................. 37 

Part 5 STATUTORY ANALYSIS ...................................................... 57 

Part 6 CONSTITUTIONAL ANALYSIS ............................................... 103 

Part 7 POLICY ANALYSIS AND RECOMMENDATIONS REGARDING THE NSA 

SECTION 215 PROGRAM .................................................... 137 

Part 8 DISCUSSION AND RECOMMENDATIONS REGARDING THE FOREIGN 

INTELLIGENCE SURVEILLANCE COURT ..................................... 173 

Part 9 DISCUSSION AND RECOMMENDATIONS REGARDING TRANSPARENCY ...... 190 

Part 10 CONCLUSION .............................................................. 207 

ANNEXES .......................................................................... 208 

A. Separate Statement by Board Member Rachel Brand . . . . . . . . . . . . . . . . . . . . . 208 

B. Separate Statement by Board Member Elise beth Collins Cook . . . . . . . . . . . . 214 

C. July 9, 2013 Workshop Agenda and Link to Workshop Transcript ........ 219 

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    ǤdzͷͲǤǤǤȚ ͳ ͅͲ͵ȋȌǤ
suppression or other means of challenging the lawfulness of a FISA order is simply not 

available to the subject of a FISA order." 610 Although criminal defendants must be notified if 

the government intends to enter into evidence or otherwise use against them evidence 

derived from FISA surveillance, special procedures under the statute limit what can be 

disclosed to defendants, and proceedings on a motion to suppress must be held ex parte if 

the Attorney General files an affidavit that disclosure or an adversary hearing would harm 

the national security of the United States.611 In practice, the government always files such 

an affidavit, and it appears that no defendant has ever obtained a copy of the government's 

statement of probable cause or other documents that served as the basis for FISA 

surveillance. 612 

II. The FISC's Role after 9/11 

Beginning in 2004, the role of the FISA court changed as a result of two significant 

developments. First, in 2004, the government approached the court with a request to 

approve a program involving what is now referred to as "bulk collection." Specifically, the 

government requested that the court approve, under the FISA provisions for pen registers 

and trap and trace devices, the bulk collection of "to and from" data concerning the Internet 

communications of many unspecified persons. Both the government and the court 

recognized that the application raised novel legal issues not presented in the individualized 

applications that had characterized the court's work until then. The government submitted 

a lengthy memorandum of law supporting its request, and the court, when it approved the 

request, issued a lengthy opinion addressing the legal issues presented. That request for 

collection of Internet metadata was followed by one in 2006 concerning telephony 

metadata, filed under a different provision of FISA and thus presenting further unique 

questions. 

610 Prepared Remarks of James G. Carr, Senior U.S. District Judge, N.D. Ohio, Senate judiciary Committee 

Hearing: Strengthening Privacy Rights and National Security: Oversight of FISA Surveillance Programs (July 31, 

2013), available at http://www.judiciary.senate.gov/pdf/7-31-13CarrTestimony.pdf. 

611 50 u.s.c. § 1806(t). 

612 Jimmy Gurule, FISA and the Battle Between National Security and Privacy, JURIST (Feb. 17, 2012) 

(noting that no court has ever disclosed FISA documents to a defendant and concluding that defendants face 

"insurmountable legal hurdles" to suppress evidence derived from electronic surveillance or physical 

searches authorized under FISA). It is our understanding that these practices will not be affected by the DO J's 

recent decision to notify defendants when surveillance under FISA leads to other evidence that the 

government intends to introduce against them. See Charlie Savage, Door May Open for Challenge to Secret 

Wiretaps, N.Y. TIMES (Oct. 16, 2013) (reporting that the DOJ had been taking a narrow view of "derived from" 

and had not been notifying defendants if they had been targeted under FISA but the information obtained was 

not itself introduced but had led to other evidence that was introduced). 

176 
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;>AG?;<NFVNBS
PRIVACY AND CIVIL LIBERTIES OVERSIGHT BOARD 

Workshop Regarding Surveillance Programs Operated Pursuant to Section 215 of the 

USA PATRIOT Act and Section 702 of the Foreign Intelligence Surveillance Act 

July9, 2013 

Renaissance Mayflower Hotel - Grand Ballroom 

1127 Connecticut Ave NW, Washington D.C. 

AGENDA 

09:00 Doors Open 

09:30 - 09:45 Introductory Remarks (David Medine, PCLOB Chairman) 

09:45 - 11:30 Panel I: LegaljConstitutional Perspective 

Facilitators: Rachel Brand and Patricia Wald, Board Members 

Panel Members: 

• Steven Bradbury (Formerly DOJ Office of Legal Counsel) 

• Jameel Jaffer (ACLU) 

• Kate Martin (Center for National Security Studies) 

• Hon. James Robertson, Ret. (formerly District Court and 

Foreign Intelligence Surveillance Court) 

• Kenneth Wainstein (formerly DOJ National Security Division/ 

White House Homeland Security Advisor) 

12:30 - 2:00 Panel II: Role of Technology 

Facilitators: James Dempsey and David Medine, Board Members 

Panel Members: 

• Steven Bellovin (Columbia University Computer Science 

Department) 

• Marc Rotenberg (Electronic Privacy Information Center) 

220 
11'

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e58TQCCe58*>@e58F;>AG?;<NFe58)J=e58:e585896VNBS
PRIVACY AND CIVIL LIBERTIES OVERSIGHT BOARD 

PUBLIC HEARING 

Consideration of Recommendations for Change: 

The Surveillance Programs Operated Pursuant to Section 215 of the USA PATRIOT Act 

and Section 702 of the Foreign Intelligence Surveillance Act 

November 4, 2013 

Renaissance Mayflower Hotel - Grand Ballroom 

1127 Connecticut Ave NW, Washington D.C. 

AGENDA 

08:45 Doors Open 

09:15 - 09:30 Introductory Remarks (David Medine, PCLOB Chairman, with Board 

Members 

Rachel Brand, Elisebeth Collins Cook, James Dempsey, and Patricia 

Wald) 

09:30 - 11:45 Panel I: Section 215 USA PATRIOT Act and Section 702 Foreign 

Intelligence 

Surveillance Act 

• Rajesh De (General Counsel, National Security Agency) 

• Patrick Kelley (Acting General Counsel, Federal Bureau of 

Investigation) 

• Robert Litt (General Counsel, Office of the Director of National 

Intelligence) 

• Brad Wiegmann (Deputy Assistant Attorney General, National 

Security Division, Department of Justice) 

11:45 -1:15 Lunch Break (on your own) 

223 
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