NATIONAL  SECURITY  COUNCIL   INTELLIGENCE 
DIRECTIVE  NO.  51 
U.S.   ESPIONAGE  AND   COUNTERINTELLIGENCE 
ACTIVITIES  ABROAD 
(Effective  17  Feb  mar)'  1972) 
Putsur.r.t  to  the  provisions  of  Section  102(d)   uf  the  National  Sc-curicy  Act 
of   1917,  as   amended,    the   National   Security  Council   hereby   authorizes   and 
directs  that: 
j 
1.  For  the  purpose  of  tlds  directive: 
a.  Espioaage  is  defined  as  that  intelligence  activity  directed   toward  the 
acquisition  of  information  through  clandestine  means. 
b.  Counterintelligence  is  defined  as  that  intelligence  activity,  with  its  re- 
sultant product,  devoted  to  destroying  the  effectiveness  of  inimical  foreign 
intelligence  activities  and  undertaken  to  protect  the  security  of  the  nation  and 
its  personnel,  information  and  installations  against  espionage,  sabotage  and 
subversion.  Counterintelligence  includes  the  process  of  procuring,  developing, 
recording  and  disseminating  information  concerning  hostile  clandestine  activitv 
and  of  penetrating,  manipulating  or  repressing  individuals,  groups  or  organiza- 
tions conducting  such  activity. 
2.  To  ensure  centralized  directum  through  prior,  comprehensive  and  con- 
tinuing coordination  of  ail  clandestine  activities  authorized  herein,  the  Director 
cf  Central  Intelligence  shall,  after  appropriate  consultation: 
a.  Establish  the  procedures  necessary  to  achieve  such  direction  and  co- 
ordination, including  the  assessment  of  risk  incident  upon  such  operations  as 
compared  to  the  value  of  the  activity,  and  to  ensure  that  sensitive  operations 
are  reviewed  pursuant  to  applicable  directives. 
b.  Coordinate  all  clandestine  activities  authorized  herein  and  ■  conducted 
•    outside  the  United  States  and  its  possessions,  including  liaison  that  concerns 
clandestine  activities  or  that  involves  foreign  clandestine  services,  except 
when  the  provisions  of  paragraph  S  apply;  also  coordinate  clandestine  activities 
with  overt  collection  abroad. 
c.  Invite  departments  and  agencies  not  permanent  members  of  the  United 
States  Intelligence  Board  that  have  clandestine  counterintelligence  re- 
sponsibilities abroad  to  participate  in  deliberations  of  the  Board  when  clan- 
destine counterintelligence  matters  affecting  such  responsibilities  arc  under 
consideration. 
d.  Make  mutually  agreeable  arrangements  with  other  departments  and 
agencies  for  such  cover  support  as  may  be  needed  by  the  Central  Intelligence 
»t-i./_ 
««.wn«dcs  NSCID  No.  5  dnicJ  13  January  IDGl.
Agency  and  coordinate  the  arrangements  for  cover  suppent  required  by  any 
other  dcpaitmciit  or  agency  to  cany  out  the  clandestine  activities  authorized 
£n  oarngiaph  4  below,  except  when  such  cover  fs  to  be  provided  unilaterally 
and  without  utilizing  the  facilities  of,  or  b-.  coming  fde::tih_d  with  o'.hcr  de- 
partments or  agencies  of  the  government  or  nongovernmental  organizations. 
e.  Resolve  disputes  aii.sip.g  in  the  cu-;ndi:::.tion  of  U.S.  espionage  and  clan- 
destine counterintelligence  activities  abroad. 
3.  The  Central  Intelligence  Agency  has  p:i:uary  responsibility  for  U.S.  clan- 
destine activities  abroad.  Subject  to  the  pruvisisiis  c:  paragraph  S,  it  is  responsible 
for  the  following  services  of  common  concern: 
c  The  conduct  of  espionage,  outside  t ho  Uui:ed  States  :.::i  :'ij  posje^io-s 
in  order  to  meet  the  intelligence  needs  of  all  departments  and  agencies  con- 
cerned, in  connection  with  the  national  security.  , 
b.  The  conduct  of  clandestine  counterintelligence  outside  the  United  States 
and  its  possessions. 
-  • 
c.  The  conduct  of  liaison  with  foreign  clar.destir.e  services  or,  concerning 
the  above  clandestine  activities,  with  foreign  intelligence  or  security  services. 
d.  The  maintenance  for  the  benefit  of  the  intelligc-nce  community  of  central 
indezes  and  records  of  foreign  counterintelligence  information.  AH  departments 
and  agencies  shall  contribute  to  this  index,  on  a  coatinuing  basis,  such  matcilal 
collected  by  them  as  is  appropriate  for  a  central  file;  this  material  shall  be 
collated  and  analyzed  for  appropriate  dissenunntfee 
e.  Upon  request  and  to  the  extent  practicable,  assisting  other  departments 
and  agencies  in  connection  with,  their  cover  and  suooort  needs. 
A~  Subject  to  the  provisions  of  paragraph  2  above,  other  departments  and 
agencies  with,  commands  or  histaihitioas  located  outside  the  U.S.  and  its  pos- 
sessions may: 
c  conduct  supplementary  espionage   In  order  to  satisfy  departmental   in- 
b.  conduct  clandestine  counterintelligence  activities  necessary  for  the  se- 
cmnry  cf  their  personnel,  commands,  activities  and  installations; 
c.  conduct  liaison  wit-la  foreign  clandestine  ser/iccs  or,  concerning  the  above 
clandestine  activities,  with  foreign  intelligence  or  security  servlccs. 
5.  The  departments  and  agencies  concerned  shall  assist  the  Central  Intelli- 
gence Ag^^'  in  Its  conduct  of  espionage  by  providing  guidance  hi  the  form 
of  continuous,  timely  mid  specific  collection  requirements  and,  as  required, 
assessments  of  the  valui  of  the  information  collected.  Such  departments  and 
agencies  shall  provide  si  -nlar  support  to  each,  other  as  required.  Conversely,  the 
Central  Intelligence  Agmcy  shall  assist  ether  departments  and  agencies  by 
providing,  as  practicable,  assessments  of  die  value  to  national  intelligence  of  the 
information  dcriscd  from  the  acti'.itics  of  other  agencies  as  authorized  herein. 
6.  In  a  foreign  area,  except  where  paragraph  S  applies,  the  Director  of  Central 
Intelligence  shall,  after  consultation  with   the  Secretary  cf  State,  ensure   th.it
c/ 
tlic*  senior  U.S.  representative,  or  I:,:s  designated  representative,  is  appropriatC-ly 
sJviictl  on  a  timely  b.:.s;s  of  U.S.  espionage  and  clandestine  counterintelligence 
?.cti\»tic-i  conducted  in  or  nffeeting  t!:e  area. 
7.  In  a  foieigu  area  where  m.ror  U.S.  military  commands  arc  stationed,  the 
de.Mguated  icp:vM;i:t.iIivc  of  t!:c  Director  of  Central  Intelligence  shall  keep  the 
senior  U.S.  military  cu;:m:;t:u'.er^  cr  their  designated  representatives,  appropri- 
ately informed  of  the  espionage  am!  clandestine  counterintelligence  activities 
and  operations  conducted  by  the  Central  Intelligence  Agency  in  or  from  such 
areas,  including  liaison  between  the  Central  Intelligence  Agency  and  foicign 
mil: tray  establishments. 
.  S.  In   active  theaters  of  \ear  where  U-S.  forces  arc  cn^aeied,   or   when   the 
President  so  directs: 
a.  Except  as  provided  in  subparagraph  b  below,  the  entire  Central  Intelli- 
gence Agency  organization  conducting  espionage  and  clandestine  counter- 
intelligence operations  in  or  from  a  theater  shall,  as  a  component  force,  be 
under  the  direct  command  of  the  VJ5.  Theater  Commander,  in  accordance 
with  agreements  separately  reached  between  the  Director  of  Central  Intelli- 
gence and  the  Secretary  of  Defease,  and  shall  provide  espionage  and  counter- 
intelligence support  to  military  opcrations- 
b.  Espionage  and  counterintelligence  operations  that  because  of  some 
exceptional  political,  diplomatic  or  other  implications,  are  conducted  inde- 
pendently by- the  Central  Intelligence-  Agency,  shall  be  coordinated  by  the 
Director  of  Central  latelligcr.ee  with  the  Secretary  of  Defense  and  v/Itii  the 
Secretary  of  State. 
c.  The  Secretary  of  Defense  and  the  Director  cf  Central  Intelligence  shzH 
establish  general  procedures  for  the  coordination  of  liaison  on  clandestine 
activities  betwecu  U.S.  military  coirmianders  and  foreign  services  that  en^a^e 
in  such  activities. 
9.  In  addition  to  the  above,  the  Director  cf  Central  Intelligence  shall: 
a.  Develop  appropriate  policy  recommendations  for  National  Security  Coun-       </ 
til  consideration  with  respect  to  the  overall  U.S.  couuterintelligence   effort 
conducted  outside  the  U.S.  aed  its  possessions. 
b.  To  the  extent  necessary  to  ensure  conformity  with  policies  approved  by 
the  National  Security  Council,  provide  for  the  coordination  of  all  types  of 
U-S.  counterintelligence  activities  conducted  abroad  and  for  the  coordination 
of  such  activities  with  those  conducted  by  the  departments  and  agencies 
responsible  for  domestic  counterintelligence.