REF ID:A40063 

A8-20 AB-14 28 Apz- 47 Bill a.1019 

l. 'Ille principal object1ou that lave been ra.1aed aga1net a.1019 and 1ta predeceaaor, a.805i are founded upon teara that the 

enactment ot auch leg1al&t1on vou d be tantamount to the eatabl1•hment or a peaoe-time cenaorahip &nd might well constitute a aer1oua 

blov directed against .treedom ot apeeoh and preaa. The text of' the 

present bill 1• intended to be directed apec1t1call7 against the 

d18Cl08Ul'8 Of CrJ'ptologic 1nto:rma.tion1 but it goes f&r be7ond this 

b7 making it a· crime to publiah or divulge ••111' meaaase1 dooument. 

v1t1ng,. note, paper or the contents or meaning thereof' vbiah baa 

at &DJ' time been tranam1tted in code,. Without getting apeo1f'1c,. ott1c1al permiaaion. 81nce a great deal of' government bus1neaa 1• 

translated b7 measagea in code or cipher. the bill would appear to 

cover pr&ct1call7 all but the most rout1De State. War or B&VJ' 

Department bua1neaa. Hence, it 1• argued. a bill auoh aa s.1019 

a1ght. 1t enacted into l&v1 make it poaaible tor ott1c1&1• to use 

it tor ••lf'-protection or ~o further doubttul political enda. The 

conclusion ~ne reaches 1• almoat 1neecapable# viz., that the wording 

ot 8.1019 1• atill too broad--1.n ract~ ao broad•• to preclude &DJ' 

poaa1b111tr ot 1ta being enacted nov or in the near tuture. 

2. Another aer1oua objection appears in connection v1th 

Section 2 ot the bill. Th1• Section 1• apparentl7 directed against American c1t1aena vho ba~e aerved in tore1gn &rmi•• or nav1ea or 

have been eaplo7ed b7 tore1gn governments. But it 1• worded so 

broadb tb&t it cover• aon-.Amer1cana 6 too. The queat1on 1a1 bov 

can.• tJ. a. lav operate to rorce a 110n-u.a. c1t1aen to obtain per- Jl..1••1on ot the 8eoretar1 oi- State,, the 8ecretar7 ot War. and the 

Seoretar7 ot the K&VJ" betore divulging oerta1n 1D1'ol'Jlllt1ont !hia 

Section contain• an impractical provision and would aimpl~ be more 

or leaa aeaningle••· 

'· The bill aeem.11 to bave been dl'avn up on the theor7 th&t 

onl7 a person vho haa obtained the intormation in an ott1o1&1 

capacit7, b7 virtue or h1a aervice in, tor, or vith the government. 

oan or should be subjected to 1ta prov1•1ona. But moat ot the 

reoent v1olat1ona of' aecur1t7 have been committed b7 people vho 

have riever worked tor the government or been in. the Ar.111' or Ma'VJ'. 

the7 would not be touched b7 the proposed lav. 

4. the preaent bill onl7 takes care or villtul leakages. where 

an intent to diacloae 1ntormat1on must be present. But in m&Jl1' 

l 

@'pp roved for Release by NSA on 09-26-2013 pursuantto E .0. 1352a 

,, ': A 

... 
REF ID:A40063 

Bill B.1019 (continued) 

cases. leakage ot ol&aa1t1•d orJ"Ptologio intormation com.ea trom 

care1eaanea• or 1nd1acret1on, because ot a t&ilure to realize the 

real import ot the diacloaure or to underatand the ettect it ma7 

have on our aecur1t7. And it aeema to me tba.t the latter aouroe 

ot leakage 1• vbat ve should tr7 to cover as vell as the former. 

5. The British Ott1o1al 8ecrets Act, vhich apparentl7 voPks 

verJ well (except poaa1bl7 in the case ot •peraona.gea" on the 

highest government level)# puts the m.a.1ntenance of aecUl'itJ on a 

d1trerent b&aia than that or having to obtain author1t1 before 

.making & d!•cloaUl'e. It puts the burden on the individual posaeaa- ing the 1ntormat1on--no matter how he obtained 1t--and tells him 

he 1• responsible tor it& aecurit~. It a person having into:rma.tion 

in hi• possession uses 1t •tor the benerit or &JQ" foreign pover or 

1 other manner re ud1c1al to the aafet or interests or the 

te, \Ul er 1 ng aupp e or e a1 s o e reasons. e 

care of~ or ao conducta h1aselt aa to endanger the aatet7 ot (the -.ater1&1) or 1.uf'ormation" he 1• deemed gu1.lt7 ot violating the l&v. Bovh~re~doea it provide tor a proper authoritJ to vhom one might &ppl7 tor perm1aa1on to diacloae. The diacloa'W!'e having been made, a.11 that 1a neceaaar7 to penalize the one vho baa ma.de it ia to p~ove tbat it 1• or vaa prejudicial to the aatet7 or 1ntereata ot 

the State. The person who me.kea a diacloaure does ao at his own 

ri•k• and it it turns out to bs.ve constituted a violation or 

1ecurit7, he can be penalised. That sort or lav baa plent7 or 

teetbft in it; 7et nobodJ can aa7 that it aeta up a censorah1p or 

that there ia leaa (reedom of apeech or presa in Great Britain 

than in the U.8. bacauae ot the Ottioial Secret• •ct. 

6. Taking a cue trom the latter. I have made &n attempt to 

parallel it in the present s.1019~ to cover both aoui-ces ot leakage mentioned in Par. 2 above# and to par&llel the aeverit7 ot 

the penalt7 vith the claaa1t1cation ot the 1n1'orma.t1on d1acloaed--

the higher the claaa1t1cat1on. the more aevere the penalt7. This 

ha• not been an element 1n &DJ previous bill that I am. aware or. 

but 1• one that appears reaao.nable. The attached draft ia therefore •Ubmitted tor •uch use as ma7 be made ot it • 

2 Incl• 

1. Oop7 ot 8.1019 

2. Draft ot proposed 

rev1111on 

.. 

VILt.IAK P. l'RDDllAN 

Ohiet, Comm.un1cat1ons Research 
• 

BOm CONGRESS 

laTSESsiox 

REF ID:A40063 

• 

s. 1019 

IN THE SENATE OF THE UNITED STATES 

.APRIL 1 (legislative day, MABca 24), 1947 

Mr._ GURNEY (by request) introduced the following bill; which was read twice 

and referred to the Committee on the Judiciary 

A BILL 

To· insure further the military security of the United States by 

preventing disclosures of information secured through official 

sources. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 That whoever, by virtue of his employment by or perform4 ance of services for the United States or by virtue of his 

5 employment by any person, firm, or corporation performing 

6 . services for the United States or by virtue of his service in 

7 'the armed forces of the United States, having obtained, or 

8 having had custody of, access to, or knowledge of ( 1) any 

9 information concerning the nature, preparation, or use of any 

10 code, cipher, or cryptographic or cryptanalytical system of 
REF ID:A40063 

' 

2 

1 the United States or any foreign government; or ( 2) any 

2 information concerning the design, construction, use, main3 tenance, or repair of any device, apparatus, or appliance 

4 · used or prepared or planned for use by the United States 'or 

5 any foreign government for cryptographic or cryptanalytic 

6 purpose; or ( 3) any message, document, writing, note, 

7 paper, or the contents or meaning thereof, which has been, 

8 or purports to have been, prepared _or transmitted in or by 

9 the use of any code, cipher, or cryptographic system of the 

10 United States or any foreign government; _or ( 4) ~Il.Y. in,.. 

11 formation concernmg the cryptogra.phic or cryptanalytic ----·· --- - . 

12 ~~!~~ies of .. t}ie United States or any foreign government; 

13 or ( 5) any information which has been or purports to have 

14 -been derived from cryptanalysis of messages transmitted by 

15 the United States or any foreign gqvernmentV shall .willfully// . I} •. 

16 without authori~ation by the head of the · 'department or · 

17 agency by which such person· was employed or in which he 

18 performed. services at the time when he had custody of or .-----······-· 

19 access to or obtained knowledge of the above-described in20 formation or material,/: or 

0

if such department or agency is ·--··· - ----. ,.. ~{ 

21 no longer ·in existencJ, without joint authorization by the 

22 Secretary of. State, .the Secretary of War, and the Secretary 

23 ~f. the N avyi . communicate, furnish, or transmit to another 

24 or publish any such information or material~ shall be fined 

25 n,Qt. more than $10,000 or imprisoned not more than ten 

\ 
REF ID:A40063 

3 

1 years or both. Authorizations, as herein provided, shall be 

2 granted only in accordance with regulations prescribed by 

3 the President. 

4 SEO. 2. Whoever, by virtue of his employment by or 

5 performance of services for any foreign government or by 

6 virtue of his service in the armed forces of any foreign govern7 ment, having obtained, or having had custody of, access to, 

8 or knowledge of ( 1) any information concerning the nature, 

9 preparation, or use of any code, cipher, or cryptographic or 

10 cryptanalytical system of the United States; or ( 2) any 

11 information concerning the design, construction, use, main12 tenance, or repair of any device, apparatus, or appliance used 

13 or prepared or planned for use by the United States for 

14 cryptographic or cryptanalytic purpose; or (3) any message, 

15 document, writing, note, paper, or the contents or meaning 

16 thereof, which has been, or purports to have been, prepared 

17 or transmitted in or by the use of any code, cipher, or crypto18 graphic systf'.m of the United States; or ( 4) any information 

19 concerning the cryptographic or cryptanalytic activities of 

20 the United States; or ( 5) any information which has been or 

21 purports to have been derived from cryptanalysis of messages 

22 transmitted by the United States, shall willfully, without joint 

23 authorization by the Secretary of State, the Secretary of War, 

24 and the Secretary of the Navy communicate, furnish, or trans25 mit to another or publish any such information or material, 
REF ID:A40063 

4 

1 shall be fined not more than $10,000, or imprisoned not more 

2 than ten years, or both. 

3 SEC. 3. The term "foreign gove;rnment" as used herein 

4 includes any person or persons acting or purporting to 

5 act for or on behaH of any military or naval force, faction, 

6 party, department, agency, or bureau of or wi.thin a foreign 

7 country, or for or on behalf of any governmen~ or any 

s person or persons purporting to act as a government within 

9 a fo'reign country, whether or not such government is recog10 nized, by the United States. 

11 SEC. 4. (a) The terms "code", "cipher", and "crypto12 graphic" as used herein include any secret writing, decep13 tion, mechanical or electrical device, or other method used 

14 for the purpose of . disguising or concealing the contents 

15 or the meaning of any communication. 

16 (b) The term "cryptanalytic" as used herein includes 

17 all methods of interception and all methods of obtaining 

18 information of the contents of cryptographic communication. 

19 SEC. 5. Nothing in this Act shall prohibit the furnish20 ing, upon lawful demand, of information _to any regularly 

21 constituted committee of the Senate or House of Repre22 sentatives of the United States of America, or joint com23 mittee thereof. 
REF ID:A40063 

BOTH CONGRESS 

lST SESSI01' s. 1019 

A BILL 

To insure further the military security of the 

United States by preventing disclosures of 

information secured through official sources. 

By Mr. GURNEY 

APBIL 1 (legislative day, MARCH 24), 1947 

Read twice and referred to the Committee on the 

Judiciary 
. 

f 

l 

I 

l 

REF ID:A40063 

D R A IP T 

A BILL 

To inaUl'e f'urther the m111ta17 aecur1t7 ot the United 

State• b7 preventing diecloaurea ot cla•a1t1ed 1ntormat1on 

relating to or7ptographic and crn>tana.l7tic mattera and ot 1mportance to the aatet7 ot the United Statea. 

Be it enacted b7 the Senate and House ot Representatives 

ot the United State• ot America in Oongreaa aaaembled, That 

'VhQeye_i- b&ving been given, or having obtained, or having had 

cuatod.J' ot, &cceaa to, or knowledge ot (1) any ott1c1&117 olas• 

a1t1ed 1nf"orma.t1on concerning the nature, preparation, or use 

, ot &D.J' code, cipher, or cr1ptogr&ph1o or oryptanal7t1cal a7atem 

; ot the United Stat•• or &IQ" toreign gover.nmentJ or (2) &D.J 

l 

1 

ottic1&ll7 ol&aa1t1ed 1ntormation concerning the design, construe-

• ~ 

tion, uae, maintenance, or repair ot &D.J' device. apparatus, or 

appliance uaed or prepared or planned tor uae bJ the United States 

or &D.J' foreign government tor cr;rptograph1o or cr7ptanal7tic purpoae; 

or (3) the contenta ot &BJ meaaage prepared or transmitted in or 

.. ~i.,the uae 0~ &11J' co~e, cipher, or c:yptogr,phic a7atem or the 

~a-it.Lj;~A.I>-~ J.kiu~~cJ;--,.,,_ a.-J..*~ ~ 

Un1:ed States or &DJ' toreign govermnen~ or (4) &DJ otf1c1ally 

----:--- ·-- ~-----~~------~--~-

r )'I • 

. , 

~ ' - _ .... 

-'\ . . l 

. , -

1 

• • 
REF ID:A40063 

. act1v1t1ea ot the United States or &D.J' toreign government; or 

(5) &Jl1' ott101&ll7 clasaitied 1ntor.mat1on vhich baa been .. derived trom cr71>tan&l7a1a ot messages trgnam1tted b7 the 

United States or &DJ" toreign government, shall (a) uae the intormat1on or meaaagea in a manner prejudicial to the isatetyKor 

interests ot the United State• or tor the benefit ot &DJ' toreign 

po'ifer to the detriment of the United 5tatea, or (b) retain &DJ' 

document or other matter ot the categories described under items 

(1), (2), (,), (4), and (5) above, when he baa no right to retain 

it or vhen it 1• oontrarr to tbe aatet7 or interests ot the 

United States tor him to ret&1n it, or (o) tails to comply with 

all directives issued b7 lavtul authorit7 with regard to the 

r~turn or disposal thereot, or (d) tails to take reasonable care 

ot, or •o conducts h1mselt as to endanger the aatet~ ot &Jl1' 

dOC\UD.ent or other matter ot the categories deacr1bed under items 

(1), (2), (,), (4), and (5) above, ab.all (1) in the caae of matter 

• 

ott1c1al17 cl&aaitied "reatricted", be tined not more than $1000 

• 

or im.pr1aoned not more than two 7eara or bothJ (11) in the case 

ot matter ottia1all7 claaa1t1ed "cont14ent1al"1 be tined not more 

than •sooo or 1m.pr1aoned not ~ore than tive 7ears o~ bothJ and 

2 
~I 

REF ID:A40063 -~ ,, , 

than ten 7ears or both. 

SEO. 2. The release to the public ot any olaasit1ed in-

' -~ 

~ 

to~mation or matter ot the categories described under items I 

~ \ 

(1), (2), (3), (4), and (5) ot Section l ebali be in accordance 

with regulations preaor1bed b7 the Pre1tdent. \ 

\ 

I\ 

' 

Sections '• 4, and 5--same as present •1milarl7 numbered 

sections • 

.., .. 

.... . ... ' 

.. ' ,_ 'I ,. - ' I 

" ... . .. .. ...... 'I'- . ' ~ 

~-

•t. • 

v-

... . . 

r 

-

..... 

.. ..... 

~ ' - - • - t 

• .. :;:-1: ... : - " 

.. 

,._ 

. , 

• 

.. 

;. 

, • ' ~ 

"" .. 

.. 

.... .. 

.... . 

.... 

.,.. - ~- .. ... "' .., 

-~ 
I 

J 

.... 

80tb CONGRESS 

l.at SESSION 

REF ID:A40063 

s. 1019 

IN TBB SENATE or THE UNITBD STATES 

April 1 (Leg1al&t1ve CJa7, March 24), 1947 

Hr. Gurne1 (bJ request) introduced the tolloving b1llJ vh1ob 

vaa read twice and referred to the Committee on the Jud101ar7 

A BILL 

To insure further the military aecim1t7 ot the United 

States b7 preventing diaoloaurea or 1ntormat1on secured tbl'ough 

6tt1c1a1 aourcea. 

Be 1t enacted b7 the Senate and House or Representatives 

ot the Un1\id Statea or America in Oongreaa aaaembled, That 

I 

•boever, b7 virtue ot his emp107D1ent b7 or pertorma.nce ot 

aerv1cea tor the United Statea or b7 virtue ot bis emplOJlllent 

b7 &IQ" peraon, tirm, or corporation pertorming services tor 

the United States or bf virtue or his service in the armed 

tore•• ot the United States, having obtained, or having had 

ou11tod7 ot, acoeaa to, or knowledge ot (1) &117 1n1'ormation 

• ooncern!ng the nature, J>l'eparation, or uae ot &DJ' code,, cipher, 

or c~7ptogr&ph1c or Cl'Jptana.l7t1cal a7atem ot the United 

~tatee or •D1' tore1gn government; or (2) &DJ' 1ntormat1on con-

,, ,., ... .6 - '"" 

• .... -..:e.,,. ~ .. 

_..., CferoJ.ng the dea1gn, COn8tl"UOt10D1 UB91 •1nten&DC91 Ol' l'8p&1l' ""'" ... • . .l'r'=' .. ... ~ 

.. .:. - ;:. ~ 

·ot &J17 4ev1oe,-~ppara.tua, or appliance μa•d or prepared or 

:; 

.... ,,,. If ' 

-£ ... + 1 

- .. 

.. 
.. 

REF ID:A40063 ..,...,,... .... ~-

f 

.. - - - ~ --- - _ ... "" 

• planned tor uae b7 the United State• or &DJ' tore1gn government 

tor 017Ptograpbio or Ol'J'Ptan&l7tio purpoae1 or (') an7 message, 

document, vr1t1ng, note, pa.per, or tbe oontenta o:r meaning 

thereot, Which baa been, or pUl'porta to bave been .. prepared 

or tranam1tted in or b7 the uae ot &l'Q" code, o1pher, or cr7pto-

• 

graphic a7atem ot the U!11ted States or &llJ' tore1gn governmentJ 

or (4) an,. 1ntonm.t1on concerning the or1ptograpb1c or crypt-

•n&17tio activitiea ot the United State1 or &ll1' tore1gn governmentJ or (5) &D.7 1ntormation 1fh1oh baa been o:r purports to 

have been der1Yed ti-om cr7ptanal7a1a ot me•eagea transmitted 

b7 the United Btatea or &lJ1" tore1gn government,, •ball v1ll:tull7, 

Vithout author11&t1on b7 the head ot the department or ageno7 

b7 Which auoh peraon vaa emplo7ed or in Vbich he perrormed 

••rY1cee •t the time vben he had custody or o~ access to or 

obtained knowledge ot the &bove-deacr1bed information or 

ian.ter1al, or it auoh department or agenc7 1• no longer in 

existence, without jo1nt authorization b~ the Secret&?'J" ot 

• oomm.UD1.cat~, turniah, or transmit to another or publish &111' 

auch 1Drol'JD&tion or material, aball be tined not more tban - ----- - - ------ - ----- - . ' ~ ' . •10,000 or illpr1a~n'd no~-•ore.tban te~ 7eara or botb. ..... :._ .... "' JI ~ - ... 

.... ~ .. - - I ~· ... "II 

-r -

.. 

. '

. -

-,, 

-- "'Pr ............ 

.. .. 
REF ID:A40063 ~ ol .fl..... ' ~ .... ---

- -- -- --- __.._._._ ........ ....,!*"ltO-~ 1'il.._-__.o'!:..•.........:t..m;~~-~-..::.~ ... r~~.::.""T'T;,•~;,~.e.:"=',..._.C"1'.~ 

, 

Author1.za.t1ona, as herein provided, ah&ll be granted onlJ in 

-

aooordance vith regulation• preacr!bed b7 the President. 

SEO. 2. 'Whoever. b7 virtue of hia emplopent b7 or pertormanoe ot aervicea to~ Giq tore1gn government or b7 virtue 

ot hi• aerv1ce in the &l'med torcea or &117 foreign government, 

6.av1ng obtained, 01' having bad cu1tod7 or. acceaa to, or 

• 

kriov1edge ot (1) anr 1nf"ormat1on concerning the nature, prei>ar&tion, or uae ot &DJ' oode, cipher, or orT,Ptogr&phic or 'II 

Cf1Jtpt&nal7t1cal a7atem ot the United StateaJ or (2) a117 information concerning the design, construction, use 6 ma1nte23ilnoe, or repair or &DJ' device, &pparatue, or appliance used 

or prepared or planned tor use b7 the United States ~or cr7ptographic or or1ptanal7t1o purpoaeJ or (3) &IQ' message, document, 

Yr1t1ng, note, paper, or the contents or meaning thereot, 

'fbioh baa beoo., or purporta to have been, prepared or trans-

• 

*1tted in or b7 the uae ot &DJ code, cipher, or Ol'Jptograph1c 

•t•tem ot the Unit~d StateaJ or (4) a~ 1ntormat1on concerning 

I the or7ptog:raph1a or Cr7Ptanal7tic activities ot the United 

< 

' \ 

8tat••J or (5) &nJ' intormation vhich baa been or purports to 

have been der!Yed trom cr7ptanal1a1a ot meaeagea transmitted .. ... - ... 

- ./.. --; 

.. . .. . .... ..,_ "'.,_r 

,. '~ 

- ~ - ,.. I Ip-•.,. 

I -

-... ... 
REF ID:A40063 _ ...... _ .... .,.,. 

; ~ 

, I 

-- ----

authorization by the 8eoretar7 or State, the Seoretal'J' ot War, 

and the Sec~eta~~ ot the Nav1 communicate, turniah, or transm1t to another or publ1•b &ll7 auoh 1ntormat1on or material, 

•ball be tined not more than •10,000, or imp%'1aoned not more 

than ten 7eara, or both • 

• 

UC. ). '?be tel'Jll "foreign government" aa used herein 

include• &DJ" person or per•ona acting or purporting to aot tor 

o~ on behalf' ot •Jl1' m111t&lT or naval force. 1'&ct1on, pe.rt;r, 

C.epartment, agenc7, or bUl'e&u ot Ol' v1th1n & f'oreign countr7, 

o~ tor or on beh< ot &J>1 government or &IQ' person or peraona 

purporting to aot aa a government within a tore1gn oountr7, 

Vhether or not auob government 1• recognized b7 the United 

&tate•. 

8BO. 4. (a) The terms "code", "cipher", and "cr7ptosraph1c" 

•• ueed herein include &Jl1' aecret writing, deception, mechanical 

or eleatr1cal device. or other method used tor the purpose ot 

d1agu1a1ng or concealing the contents or the meaning ot &DJ' 

• 

oommun1oat1on. 

(b) The ten "cl'JPt&Ml7tio 11 as used herein includes all 

. m.ethoda ot interception and all :methoda ot obtaining 1ntorma-

~ .... .. ' ., ... 

'\ 

" ~ 

> 

.r • 

A 

- v 

.. -

. ~ ' 

' .. 

;; 

' • 

~ 

> -

-+ 

, 

• 

• 

... f 
, 

.. ) .... 

.. 

REF ID:A40063 

BEC. 5. nothing 1n thia Act •ball prohibit the turn1ab1ng, 

11»0n l&v:rul 4-nd, ot 1ntormat1on to &llJ" regularl7 conat1tut;ed 

oomm1ttee ot the Senate or P...ouae ot Repreeentativea ot the 

United Btatea or Amer1ca, or joint oomm1ttee thel"eor • 

• 

• .. : 4 .... ~ 

.. -

" L.... .i 

I .J 

I - A 

" 

.. - - . 

' M " 

.. 

• 

• 

.6 E 

r 

.. ., 

----..----·-~ ...--- , 

.. 

-

f -

• 

• 

-· " 

...~..,; -

• .. • •