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File No. 

SUBJECT: 

REF ID:A67386 

S~c:Hl' 

WAR DEPARTMENT 

Off ice Chief Signal Officer 

Vfa.shington 

Div. No. 13 

Date. 

l.!emorandum on the meet in~ of the Subcor.Jl'lli ttee on 

State, '!ar, snd Navy Del)3.rtI!lent CoI!llli.unications. 

Received of the Chief Signal Officer the 

following described communication(s): 

Letter dated r.~ay 24, 1938 

Indorsement(s) dated ~~~~~~~--~~- • 

Incl o sure ( s). 

-:;;. 

C"> ~ ~ 

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. Rank. 

Col. G. V. Strong, G-2 1 

/ 

.. 

&t ~linder :Juilding, \lashihgtun, D. C. 

Office. 

NOTE: Return to the Chief Signal Officer. 

Declassified and approved for release by NSA on 04-10-2014 pursuantto E .0. 1352a 

J 

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REF ID :A67386. 

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JmilORANDUll TOt Col. G. V. Strong 

l. The Subco!ll!l.1ttee on State, Wu, and Jla"J' tleputaeni COllll\UD.1-

cationa met at 10:00 a.a., KS7 17, 1n the Ott'ice at the Director ot 

KaTal Comm.un1oat1one. 

Present: 

Rear Mnire.l C. E. Courtney, t1. 5. ll., ll'a."11' Depe.rtm.eni,. 

Senior Member. 

Kr. D. A. Selmon, State Department, 

Jlajor w. o. Reeder, u. s. A., War Department, M.eabers. 

llr. w. Y. l'riedalan, War llepar'h!.ent, 

Comno.nder t.. P'. Batto rd, U. S. !I'., Jfa.'Q' Departmnt, 

I.1eu,enant P. V. Mercer, u. s .. B., lfa'Y)" Depanmen'\, !echn1cal A4T1sors. 

a. Adairal Courtney opened the .meting and •tated that a 

Subcom1ttee on Comun1ca1i1ons, consisting ot /ubl1ral Coul'tney, :wr. 

Salmon, and 'Major Reeder, had been appointed to 1nTest1gate 1JlproT1ng 

connun1cat1ons between the State, War, and lfa"7 Departments. The Subooml'IJ1ttee was to stud7 and report on clasa1f1eat1on ot messages and a 

:uew interdepartmental. code or c 1phbr srstea. 

3. Lieutenant Mercer stated tbai the Naval Co!1J!lQJ11cation SerY1c• 

had been handling a considerable eaount or ~tate Departaent aeesagee to 

and trom the ra:r :la.at since the beg1l1n1ng ot the S1nO•Japaneae ditt1-

oult1ee and that ha had obserred certain 41sorepanc1es e.nd chances tor 

!aprovement. The RaV7 and Siate Departments apparently gaTe 41tterent 

uantn.gs to the same words used in connection •1th securit7 claes1t1cat1on ot codea and oiphers and the precedence to be ginn aesssgea. 

:trery-thing 'W8.8 working emooihl.7 now because the people concerned understood the te:nu used bJ' the other service; but there had been trouble 

in the past ud there would be e 1.Jllilar trouble 1n the tuture 1t the 

'Ra17 bad to hruiUe State Department assagea 1n eome other quarter o't 

tho world. On lll8.J2Y' occasions messages 14entics.l 1l1 substance and 

a1lll1lar in fl'ord1ng would be sent rrom the l'iaer1can Kinistar to the State 

:Department in a Ste.te De:pertmant eode and troia the Co.mar1nder in Chief 

to the llavy Department in a JIJaTT system. Thia 1Rl.S Tery bad Ol7Ptograph1call7. as 1t subjected both qst8118 to c!7Ptanal)rt1c attack. A 

SECRET ":;; i."nO 

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REF ID:A67386 

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com.on ayetea held by State and Na"f1 Department ott'iciala• and possibl,y 

the Anq, J>lU a wider use ot 1ntormai1on addresses, would :reduce the 

uoun\ o:t radio '\ra:rt1o and a:N'o:r4 o ona14era\ile protection to the ar•t• 

uaed. 

'· 00L1nwnder Be:N"or4 atat•4 that ~he Ctate, War, and :tlaTJ Departaenta had s OO!IDIOn reepo.ll81b1l11'7 1A D.atioual 4etenae and preaena'Uon 

or ottioial eeor.ta. It 1Rl8 therefore yery 4ea1rabX.. that the tb~ 

Departments use the name phraeeoloST and, it p%'8.ctioabl• 1 have OOOlllOn 

etan4_a~a ot aJeOW:i tT. ~u ~he present ·U• there was 1D. extatenc• u 

AnlT-lfa'fJ' oipher bu't 1'l ns reatr1cste4 to join' operation.a, pnriioul.arq 

1n coutal de'f'enae, and should no'\ 'b6 uoed tor adail'l1atra.tb'e .atten 

or 1ntelllpnoe. There had been a fJkte•lfa"fJ' oi:pher tor Jla.D1 T•ar• bu"t 

1t ,,... little ueed beoauae 1t W'll$ ot Tery aomplex type and 41tt1oul' to 

Operate, and was genera.ll.7 unsat1stactorr. It had been withdrawn tl'Clll 

•en-1c• about three yeara •&O· The:re was need ot a atate-Raq aipher, 

lllld it would be wiee to include the ArJq, as there would. be u:w ooou1ou 

when direct QOJIJ!lun1cat1ona b•tYnten the State IJepartment ottioiale an4 ~ otticers, or a111tary J111aa1ons, :might be .n.ec•••tll.7· 

D. llr. l'l'i•ban etated that the A:Otl'. lfaq am Ooaat GUard AOW 

had at leset one cryptograph1o ayetea oOllllOn to all three servtaee, 

and '\Phe.t tlle Giat• Depertm.ont. ne ptu"Ohaaina 80J'lle ot this apparatus 

wtth th.e War tlepart.mant on a Joint order. 'l'heretore U shoul4 be a 

nry •iaJ>le u.tter to eupplr a oommon otpher tor the three Depe.rtmnta. 

Ip. 4eterm1n1na a e ipher or th1a n.a'ure 1 t wu neo•••a.t"J' to oona14er 

i>o•el'ble tuture cond1t1ou rather \han the bllledtate present, aa 418-

'\ribl.J.tlon took suoh a long -ti.M the.ii •• co ul4 not nu tor the •1tuat1on. 

't;o arise. The .Ar1q •hould b• 1nolude4 1n tb1• ere-ta, •• there 1• 9.Jl 

1.nfttanoe ot a ailita...7 intellS.C-noe ot1'1oer ooaing aboard a JraT7 ahi:p 

abroad to aend a usaage to th• War Depe.rllllent 1n a He.'9J' cipher. 

I. llr. Balaon atated that although ~oxnmon ata:o.dards ot ••ouri'T 

1Nll"e doubtless 4e•1red 1n pr111c1ple and m.igb.t be practtcable be~ween 

the A1"flf¥ a.n4 K'a.'T, the S'\ate De-pe.rtlllent's probleas were •o «itteX"en" tha" 

they could noi posatbl:y -.gree to uade:rtake 1'. Jieaaagee S.n which other 

4epartmenta were i~te>:-eated were another :all't1er and h• thought the State 

Departmen~ oould eg:ree tQ ~tM . .nc proposed by the A':n:T and 11•'7· W. 

•houl~ b• able to 1ron out our d1tt1ouli1es in r.canl to aeoreoy ol1111•ir1oation end preoe4enoe O~ •asage&. iJhe 1'reUW!J' Departllen~ also W 

'be included in the d 1etribut1on ot this new oS.pher 11yai-. ea c onaula 

trequentl7 have to ooaaann1oate with Coa.at Guard outteX"8 1n regard to 

ua:rcotia and liquor IJllllggliq, and then were other ocoa.e1ou when 

Ooaet Guard Ttteaela would tind ihia Oipher T•rt uaetul. 

f. Oo.mm.ander 8attord a~a.ted the BaYy Department alread.y ha.ct '\ha 

tao1l1,1es tor the production or alphabet• and k97 lie~• tor the propoee4 

ayata and that the !tavy Department would be willing '\o print the tin' 

'two e41tione; aubeequent ec1U1ona could be let\ "to tbe tuture. '1'he 

"' I -

SEOREf 

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REF ID:A67386 

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Sa'Yf Oepartment would prepar. the aan.usoripte and euhll.it them directl)' 

to the other two I>epe.rtmante for inapection and approYal.. 

8. J. general diacueaion then followed and 1.he tollo·dng 4ec1aiona 

wr. Hafihedt 

{l) laoh :O.p•!'taent turni•h its 1n.1tl'Uctiona relatiYe to aecurit1 

ol&1e1tioatlon and precedence ot .... ages to the other t.o Departments. 

le.ah Departnen'\ would make en independent a'tudy and aubmU a propoae.l 

tor unlro:rm phraeeolo1:1. 

(8) To adopt a common a1pher tor 1.nterdepartmento.l commun1cat1one 

t.tween the Staie, Wa.r, lfavy, and T:reuUl"J' Departlaenta, 41atr1but1oa 

going down to d4tatro7ors and gunboata or the lta"Y and Coast O\aard cutters. 

The queat1on. ot the exact 41atr1but1on ot this •ratea nnd whether to 

Mke a •econd oipher or lS..it-ed dietr1but1on to be 4eterre4 tor the ~­

being. !be lfaV)' to undertake prepantion ftnd pr1nt1.J:lg ot the alphabote 

and key lists for the new ayatea and to start without 4elay 1n order to 

•eet the completion ot the phTaical apparatus which had beon Ol'dered to~ 

;he State Depertment. 

9. The Subcommittee then adjourned at l.2sl5 to reconvene •' 

10100 a.a. on Monda:y, May 231 19~, 1n the Otf'1oe o! the Dil'*ctor ot 

llaval Oommun1oatlon.e. 

10... the Subcommittee on State, War, ed. .Na17 Depart1119n4' Communi .. oe.tiona aet at 10i00 a.a., Mq' !!, 1n the O.tf'ice ot the Director of 

JlaTal Coir.aun.1oat1ona with all membel:'B p~sent. 

ll. Comtlander S~ord presento4 a paper containing the lf1.11·q's 

atudy ct aeoreoy Ol8.8s1t1cat1on a.Ad precedence and suggested \nat 1~ 

be uaed. aa the baais or 41eoWJe1on. This was aaree4 to and a general 

d1aoues1on followed. 

l.2. It was pointed out that the ol.e.ss1tiont1on ttS.cr.t" and 

wcontidential" were •ubetsntiall:,r 1dentioal tor the Ar'lJ7 nn4 Na~ and 

bad the a8Jl'l.9 scope tor the State Department. exoept the ele&ent or 

1'.ationel. securitJ' was not 1nvo1Te4. 'l'he State Depar1:mont olaseitioat1on 

ot "Rout1n•" oorresponde4 ae.otlf to the Anf¥ and Ha~ 01A11sification 

ttaeatrioted" and '\here wua no purpose 1n che.ng~ a word which was nll 

1stabl1ahed. by uaqe within the State Depertm.ent. 

13. In the matter or p.reoeclenee ot aaaages s:IJlilar uniformity 

existecl. Arttl;ft Bavy, 8,aw Department all \,ISed "Routine" and "lllt.". 

The Btate Department'• ttRueh" correaponded nactq to the "Priority" 

of the >.:nq and Ne.'f7. !he term trRu11h" had been adopted tor reasons of 

•oon~ and would oawse no oontu.aion on !'faT.r oirau1ts provided its 

aean1ng wae kno1fil io our operatore. 

.. 3 .. SIGRf: t 

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REF ID:A67386 

SEC RE-. 

14. Mr .. Bal.aon a-tate4 that h• 11>ul.d lib a oow ot the aJ.aut•• 

CJr the la•t llef'1.J14 to present °'o Jlr., W•ll••• Major R.ed.er a.aid. that 

he would ltk• a 00117 tor th• Cb.let or 81iat.t. It •aa •xplained th.a\ 

'1le 1nltl"U0'1o%UI had been io prepare onl.7 on.e oopT or the a!nut•• ot 

the •etin& a!ld aubai~ it "\Q the Chi•t ot Na.Tal Operation•. llejor 

•e4e:r augge•ted that the SUbco:tamittee ... , ap.111. '\OJ10rrow aorn.ina 'o 

t"ev1ew ll.ud approve the llinutea or laat week'• JMtot1ng aDd ihta week'• 

aeetina, and noe1T• their peraonal oop1es 1t eonsent aoul4 ba obtaiae4 

Mruiwhil•• 

.us. The f'ollowil)g 4eo1.s1one were reaoheds 

(l) Retain ihe pr••ent noaenolature tor aecn1C7 olaas1tia-t1on 

and tor prececlenoe or .ae~•a&•e 8.S follow•• 

1i9~ CL..\SSilIOATIOll 

State Am. l!.!z 

Secret B•ore'\ •oret 

Oont14ent1e.l Cont1dent1al Oonf 1dent1al 

lloutin.e hatr1ate4 neatricted 

Plein Lancuage Plain ~ Pt.in i..anguage 

•otes "Boutille" OOl'l.8 :.t,d.ared 1clent1oal 

wtih ~Re•tr1o~4"• 

, nm;:~mo:x 

11!te !:el. J9lZ 

Ruh PrJ.orl'Q' .Priol'1Q' •1w 111'• JIU• 

In the abaenca or th6 above two 4.eeignat1ona .. aaagea •111 take preoe-

!ence after "Ru.ah" and "Pr1or1 't7". 

Jrote t "Rut.th" oona14•:re4 1dent1oal with 

-.Pr1or1t;r". 

(2) '.t'he liaq Department to cODenc& the preparation ot the 

Interdepartmental Cipher, aul:JUtting it 'to the Sta.ta and Wu Dape.rtmonta 

t-or apJ:>rovul 'before prin:Ung. 

16. The Subco:m:iittee then adjourned at lli30 to rooonvene &~ 

l0c30 a.m. on Tuesday, -JlaT 84, 1938, 1n the Of:f'1tM of the D1reotor ot 

laTe.1 Ccmxm.u.nications. 

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REF ID:A67386 

~iCft_Ef __ 17. the SubcoJIDl.1,tee reoon.Tena4 at lOr 30 a.a. on iQi"-2(th, 1n 

'\he Oftice ot the DiHOto.r otlfaT"li-eoJIDllWlioationa. The lUnu,ee Of 

the previous Metina•, u prepe.M4 b7 Cosaman4er aattord, were diaous ... aed a.net approTe4. 'the SU'bcomittff 4ec1d.e4 to report 1ndiT1duall1 

to the umbers o! the ';'lo:rk1ng Committee the 4ec1aions -.bodied 1n 

this Ul!lOr&ndUlll. 

W. o. Bsede:r,, 

Major, Sfgnal Corps~ 

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