NATIONAL  SECURITY  COUNCIL  INTELLIGENCE 
DIRECTIVE  NO.  5l 
■  U.S.  ESPIONAGE  AND  COUNTERINTELLIGENCE     ' 
ACTIVITIES  ABROAD 
(Revised  15  September  1050) 
Pursuant  to  the  provisions  of  Section  103(d)  of  the  National  Security 
Act  of  19-17,  as  amended,  the  National  Security  Council  hereby  authorizes 
and  directs  that: 
1.  For  the  purpose  of  this  directive; 
a,  Espionage  Is  defined  os  th.it  intclli^c-:iec  activity  which  is  directed 
toward  the  acquisition  of  infcnr.ation  through  clandestine  operations. 
0.  Counterintelligence  is  defined  as  that  intelligence  activity,  with 
its  resultant  product,  which  is  devoted  to  ae^iroyinrc  the  cnectivenecs  cf 
inimical  fore-;:**  intelligence  activities  and  winch  is  undertaken  to 
protect  the  sscuiiry  of  the  nat'on,  and  its  personnel,  information  and 
installations  ab:cad,  against  espionage,  sabotage,  and  subversion. 
Ccuntcrinteiiirxneo  includes  (lie  process  of  procuring,  developing,  re- 
cording, and  disseminating  infsrnistion  coueorninn;  ho:.iile  clandestine 
activity  and  of  penetrating,  manipulating,  or  repressing  IncliYiduzlz, 
groups,  or  crjani::ationc  conducting  or  capable  of  conducting  such 
activity. 
2.  To  ensure  central/Lea  direction  through  prior,  comprehensive  and 
continninr:  cooidinstjon  of  ell  c;rndesi>ne  aetivhics  authorised  herein, 
the  Director  of  Centra)  i'nteU^crco  shall: 
"  a.  Establish,  in  consultation  v.'iih  the  U.S.  !'nteliir;tnce  Board,  th2 
'    procedures  necessary  to  schieve  such-  direct  ion  ar.d  ecoiuiaaiicn. 
b.  Coordinate  all  clandestine  activities  ruthorizrd  heivin  ana  con- 
ducted outside-  the  U.S.  and  its  possessions,  including  liaison  which 
concerns  clandestine  activities  or  which  involves  foreign  clandestine 
services,  except  when  the  provisions  of  paragraph  0  apply;  also  coordi- 
nate clandestine  activities  with  overt  collection  abroad. 
c.  Invite  depari.mer.ts  and  agencies  n^t  permanent  m-.-mbers  of  the 
U.S.  Intcllirjv-iicc  £oard  which  have  clamk.-.lmc  count-.  rmU-IUsrcnce 
responsibilities  abroad  to  participate  in  the  U.S.  Intelligence  IJoarcl 
deliberations  when  clandestine  counterintelligence  mailers  infecting 
such  responsibilities  are  under  consideration. 
rf.  Make  inutueity  agreeable  arrangements  with  other  department 
and  agencies  for  such  cover  support  as  may  be  ntedrd  by  the  Central 
Intelligence  Agency  and  coordinate  thearninr.enuuH.s  for  cover  sup])orL 
required  by  any  other  department  or  ngeney  to  carry  out  the  chmdes- 
»Th!s  Directive  supersedes  NSCID  No.  5.  dated  21  April  WiS. 
TSC  0110574
tine  activities  authorised  in  paragraph  4  below,  except  when  such 
cover  is  to  be  provided  unilaterally  and  without,  utilizing  the  facilities 
of,  or  becoming  identihed  with,  other  departments  or  agencies  of  the 
government  or  non- governmental  organizations. 
3.  The  Central  Intclhgencc.Agcncy  lias  primary  responsibility  for  U.S. 
clandestine  activities  abroad.  Subject  to  the  provisions  of  paragraph  8, 
it  is  responsible  for  the  following  cervices  of  common  concern: 
.-  c.  The  conduct  of  eepionegc  outside  the"  United  States  and  its  pos- 
sessions in  order  to  meet  the  intelligence  needs  of  all  departments  and 
agencies  concerned,  in  connection  with  the  national  security. 
h.  The  conduct  of  clandestine  counterintelligence  outside  the  United 
Slates  end  its  possesions. 
c.  The  conduct  of  liaison  with  fo^c.U-n  clandestine  services  or  con- 
corning  the  above  clandestine  activities  with  foreign  intelligence  or 
security  services. 
d.  Tiie  maintenance  for  the  benefit  of  the  intelligence  community 
of  central  indexes  and  records  of  foreign  countcrintcilircncc  informs.- 
tion.    All  departments  and  agencies  shall  contribute  to  this  index,  on 
.      a  continuing  basis,  such  material  collected  by  them  as  is  appropriate 
for  a  central  file;  this  material  shall  be  collated  and  analysed  for 
'•  appropriate  dissemination. 
e.  Upon  request  a:ud  to  the  extent  practicable,  assisting  other  de- 
partments and  agencies  in  connection  v.iih  their  cover  support  needs. 
4.  Subject  to  the  prcvi:-:.ons  of  paragraph  2  above,  other  departments 
and  agencies  with  commands  or  installations  located  outrAOe  the  U.S.  and 
its  possessions  may: 
a.  Conduct  supplementary  espionage  in  order  to  satisfy  depart- 
mental intelligence  neeas. 
b.  Conduct  clr.ndcstme  coun:ler:.utclhgence  r etivities  necessary  for 
the  security  oi  their  personnel,  commands,  activities  and  installations. 
c.  Conduct  liaison  with  foreign  clandestine  services  or  concerning 
-.  the  nbovc  clandestine  activities  with  foicign  intelligence  or  security 
services. 
5.  The  departments  and  agencies  concerned  shall  assist  the  Central 
Intelligence  Agency  in  its  conduct  of  espionage  by  providing  guidance  in 
the  form  of  continuous,  timely  and  specific  ccl.'ccton  rcquirem-mr;.  and, 
as  required,  assessment's  of  th.e  information  collected.  Such  cicpru  tmenis 
and  agencies  shall  provide  similar  suppoit  to  each  other  as  required. 
C.  In  a  foreign  area.  e>:ocpt  where  paragraph  G  applies,  the  ^.:r-.;ctor  of 
Central  Intelligence  shali,  aficr  consultation  wii.h  ih-2  Secretary  of  Slate, 
ensure  that  the  senior  U.S.  representative,  or  his  designated  representa- 
tive, is  appropriately  ad  vised  of  U.S.  espionage  and  clandestine  counter- 
intelligence activities  conducted  in  or  from  the  area. 
7.  In  a  foreign  area  where  major  U.S.  military  commands  are  stationed 
the  dcsi-'.naled  representative  oi  the  Director  of  Central  )ntc!ligoncc  shn.ll 
Keep  the  senior  U.S.  mihtmy  commanders,  or  their  designated  upreecnta- 
•--— -  - —   -    . .  . .  tsc  oco.y/'i
lives,  appropriately  informed  of  the  espionage  and  clandestine  counter- 
intelligence activities  and  operations,  conducted  by  the  Central  Intelli- 
gence Agency  in  or  from  such  areas,  including  liaison  between  CIA  and 
foreign  military  establishments. 
i 
8.  In  active  theaters  of  war  where  U.S.  forces  arc  engaged,  or  when  the 
•  President  so  directs: 
a.  Except  as  provided  in  sub-paragraph  b  below,  the  entire  Central 
Intelligence  Agency  organisation  conducting  espionage  and  clandes- 
tine, counterintelligence  operations  in  or  from  a  theater  shall  as  a  com- 
ponent force  be  under  the  direct  command  of  the  U.S.  Theater  Com- 
mander in  accordance  with  agreements  separately  readied  between, 
the  Director  of  Central  Intelligence  ami  the  Joint  Chiefs  of  Staff,  and 
shall  provide  espionage  and  counterintelligence  support  to  military 
operations. 
6.  Espionage  and  counterintelligence  operations  which,  because  of 
son\e  exceptional  political,  uiploinai-'c  or  ether  implication,  arc  con- 
ducted independently  by  the  Central  Intelligence  Agency,  shall  be 
coordinated  by  the  Director  of  Central  Intelligence  with  the  Joint 
Chiefs  of  Stall  and,  as  appropriate,  with  the  Secretary  of  State. 
c.  The  Joint  Chiefs  cf  StaiT  and  the  Director  of  Central  Intelligence 
shall  establish  general  procedures  for  the  coordination  of  liaison  on 
clandestine  activities  between  U.S.  military  commanders  and  foreign 
services  that  engage  in  such  activities. 
9.  In  addition  to  the  a  Love,  the  Director  of  Central  Intelligence,  in 
consultation  with  the  U.S.  Intelligence  Board  and  other  interested  de- 
partments and  agencies  shall: 
a.  Develop  appropriate  policy  recommendations  for  National  Secu- 
rity Council  considejratirn  with  respect  to  the  over-all  U.S.  countcr- 
.  intelligence  c/iort  condi.-cteci  outside  (ho  U.S.  and  iis  possession.';. 
o.  To  the  extent  necessary  to  ensure  conformity  with  policies  ap- 
proved by  the  National  -Security  Council,  provide  for  the  coordination 
of  all  types  oi  U.S.  counterimelligence  activities  conducted  abroad  and 
for  the  coordination  oi  such  activities  with  those  conducted  by  the 
departments  and  agencies  responsible  for  domestic  counterintelligence.
(Page  Ten) 
NATIONAL  SECURITY  COUNCIL  INTELLIGENCE 
DIRECTIVE  NO.  51 
U.S.  ESPIONAGE  AND  COUNTERINTELLIGENCE 
ACTIVITIES  ABROAD 
(Revised  15  September  1958) 
Pursuant  to  the  provisions  of  Section  102  (d)  of  the  National  Security- 
Act  of  1947,  as  amended,  the  National  Security  Council  hereby  authorizes 
and  directs  that: 
1.  For  the  purpose  of  this  directive: 
a.  Espionage  is  defined  as  that  intelligence  activity  which  is  directed 
toward  the  acquisition  of  information  through  clandestine  operations. 
b.  Counterintelligence  is  defined  as  that  intelligence  activity,  with 
its  resultant  product,  which  is  devoted  to  destroying  the  effectiveness  _f 
inimical  foreign  intelligence  activities  and  which  is  undertaken  to 
protect  the  security  of  the  nation,  and  its  personnel,  information  and 
installations  abroad,  against  espionage,  sabotage,  and  subversion, 
counterintelligence  includes  the  process  of  procuring,  developing  re- 
cording and  disseminating  information  concerning  hostile  clandestine 
activity  and  of  penetrating,  manipulating,  or  pressing  individuals, 
groups,  or  organizations  conducting  or  capable  of  conducting  such 
activity. 
2.  To  ensure  centralized  direction  through  prior,  comprehensive  and 
continuing  coordination  of  all  clandestine  activities  authorized  herein, 
the  Director  of  Central  Intelligence  shall: 
a.  Establish,  inconsultation  with  the  U.S.  Intelligence  Board,  the 
procedures  necessary  to  achieve  such  direction  and  coordination. 
b.  Coordinate  all  clandestine  activities  authorized  herein  and  con- 
ducted outside  the  U.S.  and  its  possessions,  including  liaison  which 
concerns  clandestine  activities  or  which  involves  foreign  clandestine 
services,  except  when  the  provisions  of  paragraph  8  apply;  also  coordi- 
nate clandestine  activities  with  overt  collection  abroad. 
c.  Invite  departments  and  agencies  not  permanent  members  of  the 
U.S.  Intelligence  Board  which  have  clandestine  counterintelligence 
responsiblities  abroad  to  particpate  in  the  U.S.  Intelligence  Board 
deliberations  when  clandestine  counterintelligence  matters  affecting 
such  reponsiblities  are  under  consideration. 
d.  Make  mutually  agreeable  arrangements  with  other  departments 
and  agencies  for  such  cover  support  as  may  be  needed  by  the  Central 
Intelligence  Agency  and  coordinate  the  arrangements  for  cover  support 
required  by  any  other  department  or  agency  to  carry  out  the  clandes- 
1  This  Directive  supersedes  NSCID  No. 5,  dated  21  April  1958. TSC  030574
(Page  Eleven) 
tine  activities  authorized  in  paragraph  4  below,  except  when  such 
cover  is  to  be  provided  unilaterally  and  without  utilizing  the  facilities 
of,  or  becoming  identified  with,  other  departments  or  agencies  of  the 
government  or  non-governmental  organizations. 
3.  The  Central  Intelligence  Agency  has  primary  responsiblity  for  U.S. 
clandestine  activites  abroad.   Suject  to  the  provision  of  paragraph  8, 
it  is  responsible  for  the  following  services  of  common  concern: 
a.  The  conduct  of  espionage  outside  the  United  States  and  its  pos- 
sessions in  order  to  meet  the  intelligence  needs  of  all  departments  and 
agencies  concerned,  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  clandestine  services  or  con- 
cerning the  above  clandestine  activities  with  foreign  intelligence  or 
security  services. 
d.  The  maintenance  for  the  benefit  of  the  intelligence  community 
of  central  indexes  and  records  of  foreign  counterintelligence  informa- 
tion.  All  departments  and  agencies  shall  contribute  to  this  index,  on 
a  continuing  basis,  such  material  collected  by  them  as  is  appropriate 
for  a  central  file;  this  material  shall  be  collated  and  analyzed  for 
appropriate  dissemination. 
e.  Upon  request  and  to  the  extent  practicable,  assisting  other  de- 
partments and  agencies  in  connection  with  their  cover  support  needs. 
4.  Subject  to  the  provisons  of  paragraph  2  above,  other  departments 
and  agencies  with  commands  or  installations  located  outide  the  U.S.  and 
its  possessions  may: 
a.  Conduct  supplementary  espionage  in  order  to  satisfy  depart- 
mental intelligence  needs. 
b.  Conduct  clandestine  counterintelligence  activities  necessary  for 
the  security  of  their  personnel,  commands,  activities  and  installations. 
c.  Conduct  liaison  with  foreign  clandestine  services  or  concerning 
the  above  clandestine  activities  with  foreign  intelligence  or  security 
services. 
5.  The  departments  and  agencies  concerned  shall  assist  the  Central 
Intelligence  Agency  in  its  conduct  of  espionage  by  providing  guidance  in 
the  form  of  c.itinuous,  timely  and  specific  collection  requirements  and 
as  required,  assessments  of  the  information  collected.   Such  departments 
and  agencies  shall  provide  similar  support  to  each  other  as  required. 
6.  In  a  foreign  area,  except  where  paragraph  8  applies,  the  Director  of 
Central  Intelligence  shall,  after  consultation  with  the  Secretary  of  State, 
ensure  that  the  senior  U.S.  representative,  or  his  designated  representa- 
tive, is  appropriately  advised  of  U.S.  espionage  and  clandestine  counter- 
intelligence activities  conducted  in  or  from  the  area. 
7.  In  a  foreign  area  where  major  U.S.  military  commands  are  stationed 
the  designated  representative  of  the  Director  of  Central  Intelligence  shall 
keep  the  senior  U.S.  military  commanders,  or  their  designated  representa- 
TSC  020574
(Page  Twelve) 
tives,  appropriately  informed  of  the  espionage  and  clandestine  counter- 
intelligence acitivities  and  operations,  conducted  by  the  Central  Intelli- 
gence Agency  in  or  from  such  areas,  including  liaison  between  CIA  and 
foreign  military  establishments. 
8.  In  active  theaters  of  war  where  U.S.  forces  are  engaged,  or  when  the 
President  so  directs: 
a.  Except  as  provided  in  sub-paragraph  b   below,  the  entire  Central 
Intelligence  Agency  organization  conducting  espionage  and  clandes- 
tine counterintelligence  operations  in  or  from  a  theater  shall  as  a  com- 
ponent force  be  under  the  direct  command  of  the  U.S.  Theater  Com- 
mander in  accordance  with  agreements  separately  reached  between 
the  Director  of  Central  Intelligence  and  the  Joint  Chiefs  of  Staff,  and 
shall  provide  espionage  and  counterintelligence  support  to  military 
operations. 
b.  Espionage  and  counterintelligence  operations  which,  because  of 
some  exceptional  political,  diplomatic  or  other  implication,  are  con- 
ducted independently  by  the  Central  Intelligence  Agency,  shall  be 
coordinated  by  the  Director  of  Central  Intelligence  with  the  Joint 
Chiefs  of  Staff  and,  as  appropriate,  with  the  Secretary  of  State. 
c.  The  Joint  Chiefs  of  Staff  and  the  Director  of  Central  Intelligence 
shall  establish  general  procedures  for  the  coordination  of  liaison  on 
clandestine  activities  between  U.S.  military  commander  and  foreign 
services  that  engage  in  such  activities. 
9.  In  addition  to  the  above,  the  Director  of  Central  Intelligence,  in 
consultation  with  the  U.S.  Intelligence  Board  and  other  interested  de- 
partments and  agencies  shall: 
a.  Develop  appropriate  policy  recommendations  for  National  Secu- 
rity Council  consideration  with  respect  to  the  over-all  U.S.  counter- 
intelligence effort  conducted  outside  the  U.S.  and  its  possessions. 
b.  To  the  extent  necessary  to  ensure  conformity  with  policies  ap- 
proved by  the  National  Security  Council,  provide  for  the  coordination 
of  all  types  of  U.S.  counterintelligence  activities  conducted  abraod  and 
for  the  coordination  of  such  activities  with  those  conducted  by  the 
departments  and  agencies  responsible  for  domestic  counterintelligence.