.. __ .tL REF ID:A55252 

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OOP.l 

- DEJ?ARrMElifl' OF ll1U'EHSE 

ARMED FOROFB SEOUBI1'X' AGE:NOY 

Weeh1DSton 25, D. O. 

MEl4>BMIDU".i! FOR All'SA:·l2 

AFSA·ll/meb 

mt 181951 

Subject; Oamment on USOIB 15/195, "Measures tc:w tm Ino:rMse4 Ssourity otC~ 

1., .AFSA-ll recanmends that we take the position of supporting tho 

prinoiplea ot thie proposal while reserving juQge1Jlent au details. 1'h111 

is s logical poeition to take, because it would be uaelsos to belabor 

the details (some ot ilhloh need second thoughts) until we baYe some eiscuran.ce that the general 1r1neiple:s on which they are baraed have geJ18l'al. 

u. s. acceptance. 

2. In my opinion, theso principleG are torced on ue whether we liko 

the or not. The basie purpose ot.. the mw proposal ia to J:p.c~se ,'!ihe 

secm.•it:i ot reallJ' top-level, mall7 sensitive OOMINT, and to inCr9§§.!l 

,,the vefulnees Of lower-level, less sensitive Oe>.M:tm. It 1s p;ropoaed to 

4o this bJ' separating the two, and handling them. di:tterently, eo that 

the hiehalevel, s0UBitive COMIN'.r will not be imperilled by assoeiotion 

V1 th low-level OOMINT which requires wide dissemination, and the lO'lllevel OOMIN.f will not. be sewed up to tho point of useles.s1!esa by aaoooif.1-

tion with high-level 0-0UINT which requires stringent sategugl.'d.so Unless 

you av.:aratt them, .1.21! m!!. noj;. _!Scan.J?}.ieh thi.§. punoaeo 

3o 'fhe salient feature ot the nn proposal, theu 1 is the .method 

ot 4ivision ot oa..u:NJ1 into separ:lte cste6Qriea. The proposed categori• 

zation can be celled a departure from or not a departure from the beaio 

princ1plee of' the present Appendix B depending on hoW far down JOU go 

in your 4ef1n1tion ot "baaio•o Th.a original 1946 Appendix B provided 

tor dividing Co.r.mlT into categories based broadly on di:f'i"ioulty ot production. '.rhe proposed version does thG eam.e thing, ao that th.are is 

reallf no departure f1"0m iihe old prine1pla in that respect., Where the 

ditterence lies is 1n the direction ot slicing the categoriefJo The 

original division was a horizontal ons--orypt~nalysis was dif'ticult, so 

it formed the top cetegory, with greatly limited d1saemination--treff'1c 

analysis was lees di'ff'icult, so it form.ad the lower categor7, w.i.th lees 

rest:ricted dissCD1nat1on. (I ignore tor the moment th~ fact that, 1Jl 

practice, no difference wais made in degrees ot dissflllinationo) f.b.us, 

with any mpacifie body of tareian t:fflftic, 7011 could cr'1Ptanalyze it and 

disseminate the produot narrowly as tO.P""CBtego27 OOMINT, or tnttioanalyzo it end put out tho product more widely as lOR"-level OO:MINI'. 

4,., !fbis bae1o of categorizing began to come loose et the seams 

al.moat as eoon as it was devisedo The ll8ture ot the problem. 118s auch1 

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Declassified and approved for release by NSA on 05-21-2014 pursuantto E.O. 1352a 
·- e REF ID:A55252 

COl:JY 

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JUL 18 1951 

SubJeot: Camm.ent on USO!B 15/1915 ~ "Measures for the Increased seourit7 

Of OOLIJ:N'i'n 

or began to became auch, that t.he neat distinction between difficult, 

sensitive Cl"Jl)tanalyais and eae71 insensitive traffic analysis s1mplJ' 

41d not hold. ~is was racognlzed in 1948 1n amendments to .~ppend1:a: B 

by which excaptic.nal shifts ot category could be made tor .epec:ltio oaaes 

ot "eaay" cmtanelyoiis and "ditf.'icult" traffic amlJBie. Thim makeshift seemed to patch up· the old Appendix B al.moat adequately tor a while, 

but tha plain. loneuogs problem end various probliSl!!IS brought out by the 

Korean War11 and which have been partiall7 solved on a piece""'3ZU!lal basia, 

have ahown that a more :f'a.l!domen.tal change is needed" 

5. !r.i:I.& present proposal. provides tor a vertical oatego:rJ" di"fision 

b7 technical 411'ficult7 end aeneitivit7 ot the :toreip. eammmicationa 

than21elves, rather than by what is done with them. Thia atatemcmt, 

thOUgh an wersimplit'ication, is eeaentiall7 true. Of oourae, the proposed top category will continue to contain largely the products of 

cry:ptenalyais, end very few ot traffic analysi•, and ths bottcm cstegor7 

will be heavily traffic anel7Ed.s-.,.but this will be because o:r the nature 

ot things , and uot because of artit'ieiali ties eraated by categOJ:'11' dafini• 

tions 11 as a+. present. (Under the propoeal 11 categorization, 1n p:raot1oe, 

will be specific-tor each new oo.mm job as 1 t COlllGls up someone will 

have to detem1ne what category it belongs to. At present, the categOl'J' 

ie prescribed by blanket rules which, as otto:n aa not, fail to satisfy 

the needs in individual casea.) 

6., The details of how muoh we are going to take the wraps ott the 

lou-level stuff 0 am wb!ltthe coda-worda will be, and how hanclled0 and 

whether there shall be one level of clearance o:r two or tour, requizie 

some study, and I do not propose to go into that now.. It aeeme to me 

'(;hat USOIB must agree (l) that the four proposed oategOl!'iea are :nseee ... sery, (2) that the hiBher ones mu.st oom.e under rules predicated on Aita 

secur1 tz, and ( 5) that the lower onee must cone under l'tllel! predica·;ed 

on usefulness. Thia much agreed on, we should presE11t these basio points 

to ISIB ,· to get their reaction. Only then need we start hegg11nS arter 

the detaile of implementation. The proposed .revised Appendix B submitted 

with the paper ia marel:r one way ot doing it-there are maDJ" others. 

/15/ E. s. L. Goodwin 

Eo s. Lo GOODWIN 

Captain, u. ~. Navy 

AFSA ... ll 

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