• · This Copy No. 4 taken from Friedman File A l.9-2/15 Brownell Committee, 

which contains Copies 1, 2, and comeback. 

Declassified and approved for release by NSA on 05-30-2014 pursuantto E.O. 1352a 
REF ID:A53960 
-

c--u ITHt'\-, R" f;JE;.,.:J:D:A53960 ._.c .... h I ... . ~1"'1.UN 

&: 

1 

TOP s=cr<ET ~r rEBE 

f 0P S:SElnEi aJFl>B '* SiiGt:.IUH IHf!OilMA'HOH 

EO 3.3(h)(2) 

PL 86-36/50 USC 3605 

REPORT ON 

SIMILARITIES AHD DIFFERENCES BE'l'WEEH I I AFSA 

Dl R1llARD TO 00~.NI?J.TION, ME'lHODS 1 .AND ARRA.~OEMENTS 

FOR 

PROCE5SING PLAIN-TEXT TRAFFIC FOR THE PROOCCTION OF COMINT 

AND A :P'tlil COMMENTS THEREOU 

By1 WILLIAM F. l'lUIDMAll 

Date a JJ. }'(..arch 19,2 

-- - ----- • z:rv -~~__.._~~-~.'."I .. _ .. '!'*''5 .. .z. - ... , 13 , ~ ·"'l,o* .. ·_.,,___>_.,;<_~t:'.:_·_,_, .!..'....•' ~,.;.Y""'-~.:-·--"_..,____;__;;.....;__·_"....;·' ._>J<....__'-..-
EO 3.3(h)(2) 

PL 86-36/50 USC 3605 

l. a. The term Communicat.1.on• Int8M¥enoe /(COMM} deui&nates the 

1Df'omat1on mi teahniei! materiir 'lii\il:t ng l'rom/tha .int.erception &rd 

nuc:IJ" of :1ntiercepted coromunicat.1.ane. 

b. The term t:rattic analyaia (T/A) designates tho operations 

1nvo1Yed. in. the •tudy o? 'fJie ii'iitiriii!sn and cha:racteri8tics of intercepted communications (procedUN sign.ale, l!lessage heading~. oall signe• 

etc., Dh bear1np1 Raiio Finger Printina data, lUld other technical Iida) 

tor th• purpose o.f' obtaining 1ntormat1on2 oonceming t.h.• organim•tion and 

operat.1.on ot 'the commun1oat.1on ayatom or net'lfc:rks on wioh the c~at1ona IU"O pa.181.ng. 

o. Tho term trat.tio 1.ntell1gencei(T/I) is.that. C:OKINT llhi.Oh is 

produced .,,. draw!ng i.D!ererlces or aiCIUotlona trom the 1ntormat1on obtained 

b7 T/A operations detinod above. 

d. The tert1 e!!in ~ {P/'?) 1naltdes oa!IJl1Un1cat.1.ona ot tvo \aortea 

(1) Cate1ory 1 .. Plain-language co:mmunioaticna passed on 

internal. radio links or the country 1.nVol'Y'ed. 

Oft VO • 

•· The tem eaees~l"fl,fors to the steps and oporat.1.ons per. tom.ad on intercepted cohiiiliilca•ona, up to am inalwlirJg their translation. 

It doee not include the prepa.rat1on ot reports, apprec1-tiane1 digests, etc.,, based upon the intormation constituting th• ena-ps-oduot ot the 

C<J!IHT, T/A and T/I oparaRon•J 'tbat is, the t~ does not include tbe 

preparation or •o-oalled t1n1shecl "intelliganoe. 11 

2. a. The principal ditterenoes betweonl • !ArSA organ1sat1ona 

ard ar.rancmncnts tor the processing ot pl.&1n ... text are as tollowa1 

(l)b / Jis euttentl.T orpn111ec.t on 

a centr izil tunotioriit basis 1 that •• the etru.oture as a whole 

l. Thia and th• tollow.t.na det1n1t1ons apJ>l3' to the terms as apeciticaJ.4' u•ed in this report. 

2. Thie into:rmation :f.a used. (l) u a guid• to eftic1m1# intel'Cept control 

and operaU.on, (2) as an aid to or,yptanaJ¥eia, and (3) as a basis tor 

what ia detinod !n lo. 

). I I 111 incl.uded in this category because •uch codes al"o 

aviUlb1e irid are 1n.ten1«1 tor econom;y, not eearec)". 
REF ID:A53960 

-ruP s...:.:cREl E:o~.3(h)(2) 

PL86..:36/50 USC 3605 

comprises nino lUi• De~nta -.hi.ch poJ'tOl'm.tec:hnioilly dit'· 

t!IX'9Ilt. operations, ThU.t.I · 

ao on., Within these Departments, .nd llbere deair'abla or neces-

•arr. tho technical. o erations are or ahisod on a aeo a ical 

b.:1.aia J tor exampltt • 

(2) In tho ca.aEtiot' the A13A COKIHT eatabl.1ahment,_ the primary 

components ot tb.e oJ."gan1zat1onal etl"UcturQ ~ separa.\ed on • t~ tionlll bUU but trom there on dOlm th,e •epara.tion\ is on a 

pographic-area. })a~1a. Re!errina to Appeiilu 21 it vill. be noted 

that tJ:a APSA COMINT organization ia d.1v:1.d..S ~p into thl"ee DUl1n 

Departmentsa Collection (02-C}, Processing {02...0)~ and ~aluation (02-E) J um.er the Proees,.ing Department. Uiere are t~ee 

divislo.na the M•chine Divi•ion (Al"SA-22)t •-··._the Genoral Pl'QCessing 

Division (AFSA-2)), end the Special Procesain& Di'Vi.a1on (Al"SA ... .24)" 

(h1.y the i __ •_ ,tter two ~at cone; in ~tl.'111 ___ with this \;repol"·-._ t • .AFSA-24 deal.a only vi yonnmmicationa,, except 

fo"t" certain T/A ard other opera ms c uc.ted r AFSA-2 ;2 on 

I IP14d.n ... textJ the detailed processing otp-lai,n .... t.ltiit ocm.'llunications 1• condu.oted vi thin AP'S.A-26, a separate 

division unier thb Chief or Evaluat.ton (AFSA-02E), a ms.tter Vij.oh 

will. be d1ac"'88ed d•tail pre11ently. AFSA .... 2J deals With ~th 

encrypted and plain-languaee comm.unioations .ot all other govarn ... 

llfll'ltsJ AF;;>A ... 2f is thon BU.bdividecl on a &eographic-area basis, 

•omelilhat like I 

2 

(!'!' r. ~ f"' _·-::--... ..- - • - • ~ •. IF--· 
REF ~~-----------------·-- ID: A5396Cl - --

TOP SECRET SUEDE 

teP SESRSf 5\i fl5B 

J I Howver, there 1s very close 

11.a!eon betveen the workers in these geographioal. d visions ant 

those in the homolo ous a ioal. d1v:ts1cns ot 

(a) The org1U1iu.t1onal •tructure o.t 'lollel 

1nd.1oating the po41tion o! the plain-teJ¢ am oth'..,.._er_pX"Q_.-c.-s-s"T"fii __ ___, 

·~:o ~.~(h)(2) one 

p~~:-36/SOJJ~c~sos:;.,~::.~~j~~F;e!:ZU>E~~:=eral 

(AFSA...,i4) ume:r the Chief or Processing (AF $A...02D). 

( c) Proeef)sing orl lcategocy l and Cataeor;y 2 

comunicat.iona is done within three geogra.phioal branchee (B1 c, 

D) or the Genaral Processing Division (AFSA-2)) wxler the Chie!' 

4; Tho division •io re::n•ible tor the etudy IUl1 """1-""t.i··· ... m... ot Task I I __ lplain-text traffic, '""1 tor the :UDt.ion 

or apeoiillsid 'ti'Ite.l. gence :tnrormatdon conoentlng Task •;JI I 

economic and illduatr.i.al organbat1ona and capa,bilitiee, s J.68 

on armed tOl"Ces (Rear Area) a.11 directed. 1t 

S. For e::ample, AFSA-242G works in close collaboration with other aeotiOM 

o£ AFSA- aM. with .AFSA·2~ Ot rtant interest ia the 

is orma.t1on being or direct use to - ....... ear g personnel or AFSA-282. Among other duties thUt 

aectton preparos general phns~ requirements, ar.d equipment. apeaU'1oat1ons !or ta.oilities or .fixed intercept stat.tons under operational 

control ot AP'SA. See Appmxlix 4 tor ttte other sections or AFSA-242. 

J 

TC)P SECFEET 

............. ____________ ~ 

- - --------
BEE ID:A53960 

EO 3.3(h)(2) 

I 

TOP S~CRE i ~t!μDE 

. -PL 86-36/50 USC 3605 

• I Is 

i 

ot Proce=9ein.g (AFSl .... 02D). Sue~ t/A ID:i 1/I work -.a ie neceasary 

or can b& done on t.ha•a communication1 j." al~o dette Within these 

earno branches. These branches (AP'SJ.-2.)B c, D) &leo prooe:s!l 

encrypted ool!mlun1oat1ons arxt, in !'act1 t.l., pt"ocea'ine or both 

encrypted am plain-text. comm.un1cations 111 ocncluoted\.aa an 

inteJ/ated operation - the persona who do .• the ol)'pt. anal·. ,-sis, T/A, 

iii!'' f 'Qii "'1Cryptad messages also prery• Cat.emrf ....... l a··.m·.. C&tegocy 2 pl.d.n-text messages in the various • languages 

inYol.Ved. l 

I 

(d) The organiZ4t1on o~ tho ottJ.oe ot 0per11tions\1n regard 

to tho procestd.ng or plain toxt i• -1.eto ehown 1n diagrammatic !QM 

1n App&Ddix 4. 

A A A ere s nov no eo'lm rpart to tlds, that 18, 

there :1.a no central unit !or "r•portin&ljl" In raot, &llCh 

activities are supposed to bo "ille~alu 10 far as AFSA doit'l,$ 

th.em in concerned.. i 

I 

(~) Hwcver, veey recently a, new departure has b0Sl. ma.def 

eertain Mite o! AFSA-02 are preparing &M issui.l'li •reports,," 

with tho COiJlita.nce of thecon~r q;enoies. 0! special intareat 

1n th.is connection are the repory.s7 prepared 1n Al"JA·23D. which 

deals w1 th the Ada.tic Area. Th1'se raport:;i are ot use principally 

\o ti!& Seryices. •Ince they c~p COllINT applicable to CO>ll:l""t······ ... st I I A tdmllar but emaller report1tli 

operation 1r.r conducted in AFSA-2 c 1 the prod.UC t ot lllich is o! 

special inte.Nst to CIA. U th18 sort ot 11 report.tna" ware exteni-

.t trithin AP'3A..021 am eapeo1all)r it the 11reportsn pru..-red within 

I 

I• D1 II • • T J '*' I ; •:e.tti . .. 1 rt .! 

1. Artl'f¥ 0·2 has ever.al representatives "4or1'.1n.; 111~ A.F:;A. ... 2JD porsonnel 

in tho preparation o! those reports. , 

I 

4 ! 
'E.O 3.3(h)(2) 

Pt.86-36/50 USC 3605 

the various units were then passed to a c::entt>al\ reporting unit for 

the whole ot AFSA...02 u directed, I am ot the opinion that not only 

would the e!fioieno;r or .AFSA-02 aperationa be increased. to an 

important degree but aleo thC! quality- _or_ the_. ··_•m-pr_ odu.ct_ \co_ ns1derabl)r improved. Such a central reportJ.ng unit V(llld be ve.ey- advi•-

.Ole •ino• it not only could !use or integrate t.be\ report~ prepared h1' various amall reporting units in the• processing \_seotions &n1 

branches, but it could aerve the important tuoot1on\ or :stam.e.m .. !sing terminology_, format, etc. It is ortimt to \.,mphasize this 

ph.aee in the dittereooes between AFS mechanioe 1n hand .., 

!na the P/L problem. 

has there een any & eI!J.'P p t'I av a e meeeagas 

......._on.--a-aub·ject, and in these rart1it instances the translation.IJ are pub ... 

ti.shed in book form rather th4n ae 1rd1 vi.dual .oams. On the other 

hlUXl,, AFSA has alwa,ys been un!er soma preesurQ to issue &S\ large 

a nutnbcI' or individual translations ae poseibl6. The right to 

"1"1to reports 1s not univera:dl.ly nov .acknowledged. In the Qaoe or 

8h.1pbuildine;., A.FSA wa9 enjoined t<> restrict its efforts !ntir~ 

to .messaeo tx-anslat1on~ 

b. There is one area~--.• pict-ure "Which•. presents additfona.l 

operational d;tf'tereuoes botween .· / AFSA, namely t.h. ose in connootiQ?l·. with 

the handling ot vhat is called orl.'f .ide Conir.tunit:ations." Because ot 

their very nature, foreign trade communications D&as across the geographical. 

bourdaries eat.t>Ushed vi thin both AFSAr loperattng divisions 

end bl"anohes,, and unless the COJ11ll1uni<'lathms m: OO'Wt parties to an interna. ... ti.on.al trade act1Tit;r or operation are available tor aV.xly- by one rather than 

t\1'o group• ot CC!o:NT wrkers, :much can be lost in the wrq o! intalligence. 

For ~e mesaages invol.Yilla !oreign-tr..d.e deals ~ pa.as between Brasil. 

a.rd CHChoalo-Vald.aJ it the •tud-¥ or euch messages 1a divided on • geogxiaphic ... area basis., one at\117 group would handle only those originating in Czeohoalav.icia, altho\lih both sets o! messaps would be 4 icable to the eame 

1'oreian-trade deal,. Recognizing th:iJJ tact,, 

In AFSA.1 lowever6 ore n ... r e pro 

1.e apU t up amona va.riou• braJ:XJhes ot AFSA-2) and between AFSA•2l mi AFSA-26. 

Su.oh a epli t 10.inldvisable .m. in my opinion 1 t would be well for 

A.FSA to !ollow pattern in this area. or the P/L problem mi set up 

a aingle unit proceae all. !"orei&n ... trade coorJu.Ttications ot Category ~ type. 

In tbia reapeot.,, ;you will be interested to know that AFSA-02 has plarmed the 

aama type or operation, the only- problem. delqihg action bein& the shortage 

of orltio&l lin¢et11 to vo:rk both plain language am eryptanalytio problems. 

The ohange Jna.Y well be et.teatat within the next .30 days. 

s 

I-UP' F-· - -~ -
- ~o 3.3(h)(2) 

REF ID: A5396.'t>t86-36/50 USC 3605 

2.!QP S:SSRE'l MBB 

Here sortel"s are au: . . .. . c . . n ey wo 11 

catc rases,. so to/speak. They are nQt ling\d.sts .. bUt they do the 

t'irst step sat1stactor1ly bocause they are quite co.'!lpetent \.to sort according 

to only about a1x cate:rories. The /tratric thus sorted 1.nt.o cato ories am 

links is sent. to 

e 

AFSA. operation,,/ ere 1s no/p . nary ac . ng a .• ·• ercep station 

am all the traffic is sent to .AFSA, where a branch (AFSA-21.J). or the 

Tratfic Di'fision (AFSA-2l.) und.er the Chier or Collectd.on (AF$A-02C) does 

the eliminary scanning/such/as is done at the intercept site \in tJB case 

4.) 

the material is than sent to AF'SA.-26 where tinal scanning is done. 

position or AFSA-213 1n the or&ard.'5ational. strucb.\re .. \ 8$8 Appendix 

). •· It hEL9 been/.susgesta:l in cert$1n quartl!:r's (1) thatl1-............ ___ __, system ot centru.1zed F'/L processing is mote eti'iciOZJf;, ani better than our 

: 

dec;:r:zl'Jd syste:a, (2) t.tut. there.t'<:We we would. do well to f'ollow the lf{J) tha.t i.f' so ce.atralized the Wiole P/L processing\operaon co shotWiiba l:U't.ad oat C>l A.FSA and madCJ .a roaponsibilit;y or 

some other intellig~co organization which ll'd.ght be more ef'.ticient in COHih"T 

product.ion .from "thia SOlll"Ce_, and (4) that. if' not lift$! out from A.FSA Vt11"k1ng quutars the other intelligence oraantzation Bho.uld be pemittecl to 

cOl'lduct t.'le intepated P/L processing by• its own pe:raonneJ. in AF:JA working 

qutrters. 

i:.. .ls/ to the t:Jrst of' tbo foregoing suggest.ions, I think it valid 

to siq that. if' tnel l1a moN et'.ficient •.(and I daresay it 1s) 

this is not because or but despite the centralizatian. •• Careful analysis or 

the technioa.l picture leads me to the cciiv1ct.1on that ~e primary !actor 

which makes./ 1 t mro e.f!ioient is the fact tm. tj •. ·•· ]not only pend tted 

to enaaga in a ao-called •intelligence function• but. is encouraged and 

auppartediin doin,g so. I • - I / I Instead of having to do Whit: .AFSl does, viz., 

process/am translate millions ot ma11$ages meraly to turn them over to a 

duq ~thorized nintelligence..producing agen:,p which deems its prerogat.i ve 

to put the •bits and pieces" to .. ·gether t.o make an .. ·•.. •intelligonce story_.n ersonnel are permitted to select., di.sea.rd" s"WQrnarin,, ext.ract, etc., 

rom the original. bits am pieces, this resulting 1n ll much more efficient 

operation" s1:nce a "reporting'' eyste111 el.iminates the 11eressit.y ot .f'ullJ' 

processing and tranal.at:J.ug large m.mbers o~ messages which may not. be useful.8 

8. An exception which is logical w:xier a nreport.ingll syatesr.. is in the case 

ot decrypts o! diplomatic messages. Here our state Department desires 

tho verb&tira texts., a.Di righ.tl,y so. In tact, it voul.d be wall if' those 

decrypts were turned over · t e ges in those cases 

wtlere the toreign la.nguages., tilbuld present littJ.e 

d1.C!'icultl)'" for consumer-rd ent. Incidentally, 

it this were done 1n the case of a grca.t deal o! labor 

1n AFSA would be saved by el1m1na ng ne o translation. '-~ ~[,. 

practice u rouovedl i-=t~=:;f=· s=CnET~CJrC:ut~ 
REF ID:A53960 

!l~O 3.3(h)(2) 

Rt 86-36/50 USC 3605 

In addition tho .m ... produot is probabl1 ot batte.r quality, aim• amaJ.l bits 

ot in!ormation that turn up 1n processing aro l1kel:Y to be unknown to 

purel.7 111nte.ll1gence" prod.ucin& personnel who are merely reoipients o£ 

transl.a ti on a, It is f -1.liari t;y w1 th .ii the b1. ts al)i \pieces that makes 

!or better qu.alitT ot ths end product.---

c. A• to tba aecord suggestJ.on, I .t&e:l. sure \that regal.'dlesa o! 

which type o.r P/L processing ia preferable (c~trillzed.\ or decentralized) 

the contact. between the personnel processing Pi/i a.rd those pl'Ocessin& 

encrypted mess~s (inal.uding the T~d T l! phases) mtist be exceptionally 

close,. It ia true that 1 t 18 close · bu't, in AFSA_. irt. tho case or 

three large geozraphioal br~httt!J ( ... 1 (;1 D) which\\ handle Category 2 

tratfic, it ia not a case or close contaotr tlle aama peQple work on both 

encrypted ant P/L tratfic. lt i• lo~al that the procas~tng •Ct1vit4.u 

be arranged. eo that this will be poseible, tor it is very\otten. the oase 

that vhethe?" a message will be sent in enorypted or in pl&fn .. ~e tom 

is .. decision of the originator am thus subject to his vW.m. or tho ir..omoo.t 

perhaps. Hence. it 1e occasionally found that both i;ypas ot\ mess-.ges are 

9tmt on tho lllU!le •ubjeot ard there.tore the plldn-..language onf!l tom excellent 

"crlbatt into tba encryptad oneBJ on the otJ:ler ha.IXf.1 the deoeypted :ir~IJl!lages 

orten make the plain-la.neuage ones more intelligible. In this conneo· .. t1ont 

in AppenrU.c:es S am 6 vill bo town additic:;nal technioal reaeona and 

..:ample• vb¥ the oame unit ehould hardlo bi>th! tyJ'I$ ot .., .. a&!IO and ~ 

the >.F'S •yatem in this regard is1 in ray opinion,- better thanl \.. \ I s;ystem.~ In short, central11ation oft~s -.dva.ntages1 but ao doe.1 deoen~il­ iu.tion, and the technical edvantagea ot each 1n tl-)9 spacit'io oaee um.er 

discueeion must bo the guide aa to hw much or each tiYpe or vorking ahould 

be mnployed 1n r anization I am told in this connect.ion a recent 

AFSA V1a1 tor to 

have, as deaor.\.bed above w:xler paragraph 2a 1 • 

d. As to the third euggest1011., I think l have aaid enough ~ the 

!ore&oina cOJml\ellts to indicate my ca:rvtction that While of couroae ~ost 

anything ia possible am that the P/L proce~ating could be put in one 

packaa;a and lifted out o.r !FSA~ to do eo voUld bO & 6ild .mistake. It W'Oul.d 

reduce ..r.r1ciency in tho procasaln£ 0£ both P/L and encrypted co..iwunic•t.1.ros • 

9.. until recently intemall fCca.togory l) P/L traffic vas pro ... cessed b,y a section of a branch ot the Special Processing Division 

(AF5A ... 246)J it. 1• no-w1 processed b;y a a~parate division (AFSA-26) um.er 

the Chier or Exploitation (AFSA...02E} J but even the close contaot 

betwen thtt personnel worki~.· I I 

and thosa working on intern. P/L tral"tio cannot be as ertieient u would be the case if p esisina or both types or tra!f'ic 

were uxxier the Alll9 division. 
,. 

.. .,._ , .. ,, .. ......... . ~... . ~ ... ~ -._ ................... .,. ..... ~.. ..._ ...... a• - ~ ..._ _..,. ._ - .J."-- -·~~ - .;.._, ··--·· ---···-··ri'nF. ~ ID : A53960 

TCP S~~ET Sf F~!)E · 

•• 1"1nal.J.T1 as to the .fourth suggestion, it is hardl.7 necesea:r,y 

to point out tho .Snr1n1strative and other problems ot baVing personnel who 

do not bolong to 10u work 1n your quarters but not uniar ;rour adr.dnistrat1Ys or operational control. Th.era are GllOU&h cases or this eort ot thing al.read¥ - vhere tr..e necessity tot' them ie much JtOt'e evident than 1n the 

cue unier consideration. 

8 

WILLIAM F. FRIEDMAN 

Consultant 
1:~~l: i.':1:1" : II :wil:: t:~\!'i):··~:l '.'}) ({,,(()) -----

FUNCTIONAL OllGANISATI ON 

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EO 3.3(h)(2) 

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