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WAR DEPARTMENT 

REGULATIONS FOR SECURITY AND . . ' 

DISSEMINATION OF COMMUNICATION 

INT~LLIGENCE 

29 JULY 1946 

.·· ...... 

TOP SECRET CRE1• ... M 

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REF ID:A71858 

TOP sZcRft' GltB"kM 

WAR DEPARTMENT . . 

REGULArIONS FOR SECURITY AND DISSEMINATION 

OF COMMUNICATION INTBLLIG:ENCB 

. . ,,......... 8eelilm I Gtaaral ••••••••...••.....•...........•....• ·. • • • . • . • . . . . . . . • . . . . • 1- .& 

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· m-~ ... ~ .. · ........ · ... · ............. ~ ..................... 11-11 

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. . PanllfGJfi · A:iat11arlt.v, &eope, a Parpciea or ReaaJat;laaB •••••.••.•......•••••.....••.•• : • • • 1 

. . l>llaitlcm.. of T.aia .................... " ............................• : . .. ... . . . i · Prlllalplm of Baiutt) .: ~·tkm ............... ·. . . . . . . . . . . . . . . . . . . . . . . . 8 . lntillll*tlan .....• ~ : ..... : . : ........ · .. : ..... .......... \ ........ ·.. . . . . . . . . . .. . . . 

. 1 •. ··Aathorlt)', SCope, ~ Purpoae. • • • t • • • 

a. 'l'heae ~ are ....... b)',. ~ .unchr t.b.e authority pt. the Director of Intelligmee, WD~ ·. TbeJ' ai8 -an e1aboi-atioli .of AR 88076, Safeguarding Military 

Information, with ieapeCt t.o Com.municat.icm lntelligmee; 

b •. This ~t · -~ ·~tion atreeting the national def~ of the Umt.ed 

. --Within the'"8imi"I ~the F.apionap Act; &O u.s.c., 81 and 82, Bl amended. . It& t;nUwnjlljon Gr .. the .. 'ievetat.ian of. it& eontenta in .8D7 mann• t.o an unauthorized 

pelaon ia ~~by Jaw •.. · · 

1. Detlnldon of T.,..._ .. 

._. Coni~.I.,,,,.,_ ia in~ prod~ ·by the study of eommUnieationa 

not criginat.ed bylUnit.ed Btat.e.. autharit.iea. -The iama Communication. Int.elligelice 

and Sipal In,~ are 8JDOD1lll01l8. CommunicatioJi. Intelligence ia divided 

into two ea~: · 

(1) 8peeial In~ 

(2) Traftlc I~ . 

b. Special I.,.,_,. ia that Cc;m,m.unieation lntelligaice which result& from the. deeryption of· the· at er. mbatance of enct)pt.ed communications. COmmunication 

· . Intelligence obtained from PJain. languaae ••11'111 may, on ocmaion, be cleeeed BB 

Special Intallipnee. -. 

e. ~ i,.,.,.,._ ia that Communication lnt.elligence which result& from ana1yais 

of eommuilieatioa network&, procedure sipe.la, ea1I aipa, D/F bearinga and other 

tee11nieal aids," i.e: int.emamee ·o~· intereept.ed communications by all 

means short of the actual decncling er of t.b.e t.at er BUbatenee of theae 

· eommunieationi. Communicatimi In · ·obtained from. plain language mea-

.imgS is normally included in the Traftlc lnt.elligmce cat.egory. ·However, Communication lnt.elligence obtained from :PlaiD language mM!egea. er obtai11ceci by the 

prOcesi deacn~ be clapped BB Special In~ if it clearly refteet.a r") 

t.b.e ~of. FormatiCilaaived ~ _encry~ m•~PB· , 

1 

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REF ID:A71858 

TOP see:tte't' CREAM 

d. Raw Trajfic is the name given to a plain text or encrypted radio message as it is 

intercepted, showing certain intercept data, but containing no indication of processing 

for Communication In~ligence. 

e. lndoctriM.ticm is instruction in regulations, doctrines, and principles concerning 

Communication Intelligence designed to imbue the recipient with a knowledge of 

the source and an appreciation of the necessity for security of this type of intelligence. 

3. Prlncl~les of Security and Dissemination. 

a. The value of Communication Intelligence in war and m peace cannot be overestimated. Preservation of this most important source of intelligence is vital and 

depends entirely on the effective concealment from other governments of both {a) 

the degree of our success in this field and {b} the particular sources with which we 

have been successful. To accomplish this concealment, it is essential that the dissemination accorded to Co111munication Intelligence, and to all related or resultant 

information, be strictly controlled and limited. The physical security of related 

documents is not alone sufficient; it is essential that all references to its existence 

either direct or indirect be avoided except among· authorized recipients. · -

b. The time limit for the safeguarding of Communication Intelligence never expires. 

Although from time to time reports of alleged Communication Intelligence activities 

may· be broadcast or published, it is of the utmost importance that complete and 

absolute silence on such matters be maintained by those who have ever been connected with Communication Intelligence activities, and by all individual recipients of 

Communication Intelligence, whether past or present, unless they are freed from 

this obligation by an unmistakable and categorical order. 

4. Interpretation. 

All questions with respect to the interpretation or application of these regulations 

will be directed, through the most secure channels, to the Director of Intelligence, 

WDGS, or his authorized representative. 

~gp 8ii6RWF GHA-M 2 
REF ID : A 7185 ~eP SEOH't' OHl\M 

Section II 

SECURITY 

Para.graph 

.Code Words..... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 

Classification.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 

Transmission. . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . '1 

Control..................................................................... 8 

Employment of Communication Intelligence.. . .. . . . .. . . . . . .. .. .. . . . . . . . . . . . . . . . 9 

Security of Regulations...................................................... 10 

5. Code Words. 

a. CREAM is the code word used to designate Special Intelligence. 

b. SPECIAL CREAM is the code word for an extremely restricted type of Special 

Intelligence of limited distribution within the list of authorized CREAM recipients. 

c. IVORY is the code word used to designate Traffic Intelligence. 

a. The applicable code word, in addition to the classification, shall appear on every 

sheet . of paper which contains or discloses Communication Intelligence. This rule 

applies to maps and charts on which are plotted data and information derived from 

such sources. The code word shall be included in the text of every encrypted message conveying such intelligence and shall appear iii plain language at the head of 

the decrypted version, except when such information is appropriately disguised for 

dissemination to an official who is not an authorized recipient as contemplated in 

paragraph llg of these.regulations. . 

e. The code word need not be used in connection with the exchange, use, or dissemination of technical matter sent by a center ~ID. producing Communication 

Intelligence over cryptographic channels o~cyphers --'expressly and exclusively -

provided for such technical matter. A center engaged in the production of Communication Intelligence may, at the discretion of the senior officer concerned, omit 

the classification and code word from its worksheets and similar documents used in 

technical operations within the center or between it and its intercept and D/F stations. 

6. Classification. 

a. Special Intelligence, technical matter pertaining to its production, and the code words 

CREAM and SPECIAL CREAM are classified TOP SECRET. This classification 

as well as the code word shall appear on every sheet of paper which contains or 

discloses the existence of this class of intelligence. This rule applies to maps and 

charts on which are plotted data and information derived from Special Intelligence. 

b. Traffic Intelligence, technical matter pertaining to its production, and the code word 

IVORY are classified SECRET. This classification as well as the code word IVORY 

shall appear on every sheet of paper which contains or discloses the existence of this 

class of intelligence. This rule applies to maps and charts on which are plotted · 

data and information derived from Traffic Intelligence. 

3 't'6P SROH'f' GR-BAM 
.. ----=....::···-:_ -· .. :.·_·,::-:-~::-·-::.:·-----:----=---==:-:--·-;.:::.,..: ____ ··:--.--~~,,...,.,;,,· """-,;;,,··-;;,.-'···-·""""·'--------------------------

REF ID:A71858 

I OP SECRET CHAM 

c. Raw Traffic showing no evidence of processing for Communication Intelligence 

. purposes is classified CONFIDENTIAL. . 

d. Communications which reveal actual success, progress or processes in the production 

of Communication Intelligence shall bear the appropriate code word designations 

even though they do not themselves reveal Communication Intelligence as such. 

-· / e. The term Special Intelligence may be used in unclassified correspondence when not 

l. . connected by inference, elaboration, or explanation with subjects which would 

'• disclose classified information. 

7. Transmission. 

a. Plain language tranSmission. 

(1) Special Intelligence and TOP SECRET technical matter shall not be transmitted in plain language (unencrypted) except as follows: 

(a) By officially designated courier, sealed, over routes approved by the Director of Intelligence, WDGS. 

(b) By completely protected local communication systems exclusively internal 

to the centers producing and utilizing Special Intelligence. 

(2) Traffic Intelligence and SECRET or CONFIDENTIAL technical matters 

shall not be transmitted in plain language (unencrypted), except as follows: 

(a) As provided in 7a (1) above. 

(b) By protected postal channels over routes approved by the Director of 

Intelligence, WDGS. 

b. Encrypted transmission. 

(1) Special Intelligence and TOP SECRET technical matters transmitted in 

encrypted form shall be in the cryptographic systems expressly provided for 

this purpose and in no other. 

(2) Traffic Intelligence and SECRET or CONFIDENTIAL technical• matter 

transmitted in encrypted form shall be in the cryptographic systems expressly 

provided for this purpose or in the highest grade cryptographic system available. 

c. Raw Traffic will be transmitted in the special cryptographic systems expressly 

provided for this· purpose, or in the intercepted form by officially designated courier 

over approved routes. 

8. Control. 

a. The number of persons authorized to have access to Communication Intelligence 

must be restricted to the absolute minimum consistent with the effective accomplishment of assigned missions. 

b. All instruction in the handling and use of Communication Intelligence that may be 

authorized by the Director of Intelligence to be included in the cuniculum of a 

Service School will be in accordance with· these regulations. 

c. All persons handling Communication Intelligence shall be specially indoctrinated 

before being permitted access to this class of intelligence. 

(1) Indoctrination will include the execution of an oath binding the signer to 

secrecy concerning Communication Intelligence. 

TOP SECHT CHAM 4 

···i 

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7 

REF ID: A 7185S,.op SECRET CREAM 

(2) Responsibility for the indoctrination of appropriate personnel rests with the 

Director of Intelligence, WDGS, or with his representative in the Theater of 

Operation or on duty with a major command or agency. 

(3) Prior to the indoctrination of persons who are to be entrusted with Communication Intelligence, an inquiry as to the loyalty, integrity, and discretion of such 

persons will be made through authorized channels to the Director of Intelligence, 

WDGS, who will conduct an investigation and report the results to the Commander originating the request. In cases where the urgency of the situation 

requires that an individual be indoctrinated before final report on the investigation is received, the Commander of a Theater of Operations, Major Command, 

or Agency may· personally certify in writing that the individual's reliability 

justifies indocmnation. · 

(4) IndividuaIS need not be indoctrinated in order to receive (a) D/F fixes and · 

bearings classified CONFIDENTIAL; (b) Certain categories and series of 

plain language intercepts from commercial circuits classified CONFIDENTIAL; 

(c) Certain categories and series of plain language intercepts from military 

circuits classified SECRET, provided the source is disguised. 

d. If an officer relinquishes a post which has permitted him access to Communication 

Intelligence, he automatically relinquishes his right to see such material and will 

sign an undertaking to that effect. 

e. No person who is a current recipient of Special Intelligence or who is engaged in its 

production shall, without special authority, be committed to a hazardous undertaking which might subject him to capture or questioning on these matters either 

in time of peace or war. 

9. Employment of Communication Intelligence. 

a. In time of war, the full value of Communication Intelligence cannot be realized 

unless.operational use~ made of it. However, when action is contemplated in the 

light of Communication Intelligence, the possibility ·of compromising the source 

shall always be borne in mind and this danger shall always be weighed against the 

military advantage to be gained. A minor advantage is not sufficient ground for 

risking the· compromise of any Communication Intelligence source. When the 

decision is made to take action based on Communication Intelligence, studied effort 

shall be made to ensure that such action cannot be attributed to Communication 

Intelligence alone. In every case, unless the senior officer concerned, after full 

consideration of the risks involved to the source, considers it completely impracticable, action against a specific target revealed by Communication Intelligence shall be 

preceded by appropriate reconnaissance or other suitable deceptive measures to 

which the enemy -can reasonably be expected to attribute the action. 

b. In time of peace, the principle that the conservation of Communication Intelligence 

sources is a paramount consideration affecting any action taken in the light of Communication Intelligence shall be rigidly upheld. 

10. Security of Regulations. 

a. These regulations shall be transmitted only over channels authorized for the transmission of CREAM and shall be made available only to persons authorized to receive 

CREAM. 

5 TOP SECRET C1.t&•.,M 

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'f8P SBGRB'I' GR-KAM REF ID:A71858 

Section III 

DISSEMINATION 

Para.graph 

Dissemination Procedures............ . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 

Authorized Recipients. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 

11. Dissemination Procedures. 

a. Dissemination Agencies. Communication Intelligence will be disseminated only by 

agencies designated by the Director of Intelligence, WDGS. 

b. Special Security Represent,o,tives. The Director of Intelligence, WDGS, may attach 

to each theater having headquarters authorized to receive Communication Intelligence, an officer, with such assistants as may appear desirable, who will represent 

the War Department in all matters involving the security, transmission and exchange 

of Communication Intelligence and who will supervise all special security personnel 

within such theater. Such officers, who will be known as Special Security Representatives (S.S.R.), and their assistants, Special Security Officers (S.S.0.), will be attached 

to theater headquarters for administration only. 

c. Special Security Officers. Special Security personnel, to be known as Special Security 

Officers (S.S. 0.), will be attached by the Director of Intelligence, WDGS, to each 

headquarters entitled to receive Communication Intelligence. Such personnel for 

purposes of administration will be subject to theater control. They will hold special 

cryptographic systems,· or special settings of machine ciphers, for the transmission 

of Communication Intelligence and will have sole responsibility for (1) decrypting 

all Communication Intelligence messages received at the headquarters to which they 

are attached and safe delivery of the decrypted texts to authorized recipients and 

(2) encrypting all Communication Intelligence messages sent from such headquarters. 

They will also advise recipients at such headquarters regarding security in the 

handling of Communication Intelligence and the enforcement of these regulations. 

d. Commu11.ication Personml. Where necessary to provide for the prompt transmission 

of Communication Intelligence messages, special communication personnel will be 

attached to disseminating centers and operational headquarters and will be responsible for maintaining direct radio communication between such centers and 

headquarters. 

e. Physical Handli11.g of Materials. 

(1) No CREAM material; and only such records as cannot give any clue to the 

nature of the source, may be kept at any operational headquarters below an 

Army Group or an headquarters of an Army Air Force, except by an S. S. 0. 

provided with adequate means for emergency destruction. It is the duty of 

the S.S. 0. to maintain an accurate record of.all copies of messages delivered 

to any headquarters and, in the case of distribution to formations below Army 

Group or an headquarters of an Army Air Force, to retrieve and destroy them. 

The length of time commanders may retain CREAM messages depends on 

their proximity to the enemy, but destruction should normally take place as 

soon as the necessary action has been taken. It is the responsibility of the 

'f8P SHORJff GREAM 6 

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_________________________________ .'} 
• 

REF ID : A 718 5 ~OP SHORlff' OH:AM 

senior S. S. 0. attached to any headquarters to destroy all messages and documents containing CREAM and all special cryptographic material, should he 

consider that the situation warrants such action. 

(2) Special measures will be taken to insure that all CREAM material is at all 

times so handled and kept that no unauthorized person can obtain access to it. 

Recipients of CREAM at operational commands under no circumstances may 

carry on their persons, or dispatch outside their headquarters, CREAM messages which have been delivered to them. Ordinarily, CREAM may be received, discussed or worked upon only in a room which is reserved -for that 

purpose alone and to which no person who is not authorized to receive CREAM 

has access. When it is impossible to set aside a room exclusively for this 

purpose, a room or other segregated place shall be provided which recipients 

may use periodically, or when required, for reading, discussing or otherwise 

using CREAM. When eircumstance8 require that a commander or other 

recipient receive or discuss CREAM at any other place, every precaution shall 

be taken to insure that no unauthorized person shall see such material, that 

such discussion does· not take place within the hearing of any unauthorized 

person, and that the CREAM material is retained only for the minimum period 

of time necessary for reading and discussing it. 

f. Mixing of Communication Intelligence With Other Intelligence. Any summary, report, 

estimate, appreciation or other paper based upon or including information from 

CREAM sources automatically becomes subject to the same security regulations 

concerning dissemination, distribution, handling and use, as the CREAM material 

itself, unless · 

(1) the information has also been received from other sources, or (2) the information 

relates to Order of Battle and (a) sufficient time has elapsed to make it reasonable for the enemy to assume that the information was obtained from other 

sources known b:l'-the enemy to be available to us, and (b) the Theater Commander has specifiCany authorized such information to be so included. 

In any case, the source of such information shall not be disclosed. (In view of the 

above, it is evident that, in order to avoid subjecting information not from CREAM 

sources to the special security requirements fo:1: CREAM, such information should 

not be mixed with CREAM except when absolutely necessary.) 

g. Dissemination in Disguised Form. In the event that information derived from Communication Intelligence must be supplied to officials other than approved recipients 

for necessary action, instructions will be issued to such persons in the form of operational orders, or other communications, so worded that, if captured, the source 

could not be identified as Communication Intelli~ce. Only essential specific items 

will be transmitted and names, times, positions, and other data identical with that 

from the original decrypted texts must be carefully disguised. If it is to be transmitted by a means exposed to interception, it shall be encrypted in the available 

cryptographic system of greatest security and most limited distri~ution. The code 

words CREAM, SPECIAL CREAM or IVORY shall not be used in connection with 

such communications. · 

k. Prohi"bition Against Use for Commercial Advantage. Communication Intelligence shall 

never under any circumstances or in any form be disseminated to any Command, 

Department, Agency, Organization, Office, or individual from which or from whom 

it might reasonably be expected to find its way, officially or unofficially, into the 

possession of any person or group who could use it for commercial competition or 

commercial gain or advantage. 

7 TOP SECRET CREAM 
'WP SECRET CHAM 

REF ID:A71858 

12. Authorized Recipients. 

a. To Whom Disseminated. The principle of dissemination is based on "the need to 

know". Each item of Communication Intelligence shall therefore be made known 

only to those individuals who require it in the performance of their duties and who 

have been appropriately indoctrinated in accordance with paragraph Sb. above. 

b. Limitation as to Echelon. The levels upon. which CREAM may be disseminated, and 

the number of officers at any level authorized to receive it, are rigidly restricted, as 

follows: 

(1) CREAM will not be made available to staffs below the level of the headquarters of an Army or Army Air Force except that (a) CREAM may be passed in 

the forlil of operational orders to lower formations, as provided in paragraph 

llg. above, and (b) in exceptional circumst.ances making it imperative, the 

Commander-in-Chief of the Theater may authorize CREAM t.O be passed to 

lower fonnations down to the level of divisions or equivalent Air Force formations if they are operating independently, but only in strict accordance with 

paragraph 7 above and only if the physical security of the receiving head.-

quarters is assured. . 

(2) Within headquarters authorized to receive CREAM, it may be made available 

only to officers holding the following post.a: 

(a) Commander and his Deputy 

Chief of Staff and his Deputy 

Senior Intelligence Staff Officer 

Senior Operations Staff Officer 

Senior· PJanning Officer } At Army Group, Army Air Force or 

Senior Signal Officer higher level 

Senior Signal Intelligence Officer 

(b) Additional in¥.ligence and operations staff officers absolutely neeeSsa.ry 

for it.s handling and use,· as specifically authorized in each instance pursuant 

to paragraph 12c. below, except that in the case of formations below the 

level of Army or equivalent Air Foree formations, no recipient.a may be 

authorized in addition to Commander, Chief of Staff, and senior intelligence and operations staff officers. 

(c) No officer will be entitled to receive CREAM solely by reason of his rank· 

or the post which he holds. 

(3) In time of war or.national emergency, it may be found necessary to sub-divide 

both Special Intelligence and Traffic Intelligence into smaller . categories in 

order to permit certain. classes of Communication Intelligence (compromise of 

which would not endanger the more important sources) to be distributed to 

special agencies and lower echelons of military forces which, for security reasons, 

w9uld not normally receive other Communication Intelligence. 

c. Additional Recipients. In the event that a Commander considers it essential that 

any officer in addition to those specificially enumerated in pai'agraph 12b(2)(a) above 

should be authorized to receive CREAM, he will request such authorimtion from 

the Director of Intelligence, WDGS~ through the S.S.O., gi\.ing reasons for the request. 

d. Commu:nic~ Between Recipients. Communication between recipient.a on matters 

which in any way concern Communication Intelligence, whether in the form of 

queries, comment.a, summaries or appreciations, will be transmitted only over the 

channels authorized in paragraph 7 above. If any recipient considers it. essential 

~81' SBCH'f CltEAM 8 

·, 

.•. 

f 
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REF ID:A71858 

TOP SECRET CltE2\M 

that any Communication Intelligence should receive distribution in addition to that 

already given, he will not transmit it directly but will request the S.S.O. to arrange 

for the additional distribution. 

e. DiscuB8ion- With Noo-retiflients. No authorized recipient of Communication Intelligence will under any circumstances show or read any Communication Intelligence 

material to, or discuss it with, any· person of any service uni~ he is absolutely 

·certain that such person is also authorized to receive such material. 

f. Maintenance of Lists of Recipients. The S.S.O. at each headquarters which receives 

Communication Intelligence, or, if no such officer has been designated, an authorized 

recipient designated by the Commander, will maintain on a current basis a list of all 

persons at such headquarters authorized to receive Communication Intelligence and 

will transmit over authorized channels to the Director of Intelligence, WDGS, the 

names and post.s '6f all recipient.s and any changes therein. 

9 I OP Sl:GltET 0RBAM 

·- ----····---------------------'----~-