The United States government classification system is established under Executive Order 13526, the latest in a long series of executive orders on the topic. Issued by President Barack Obama in 2009, Executive Order 13526 replaced earlier executive orders on the topic and modified the regulations codified to 32 C.F.R. 2001. It lays out the system of classification, declassification, and handling of national security information generated by the U.S. government and its employees and contractors, as well as information received from other governments.
The desired degree of secrecy about such information is known as its sensitivity. Sensitivity is based upon a calculation of the damage to national security that the release of the information would cause. The United States has three levels of classification: Confidential, Secret, and Top Secret. Each level of classification indicates an increasing degree of sensitivity. Thus, if one holds a Top Secret security clearance, one is allowed to handle information up to the level of Top Secret, including Secret and Confidential information. If one holds a Secret clearance, one may not then handle Top Secret information, but may handle Secret and Confidential classified information.
The United States does not have a British-style Official Secrets Act; instead, several laws protect classified information, including the Espionage Act of 1917, the Atomic Energy Act of 1954 and the Intelligence Identities Protection Act of 1982. A 2013 report to Congress noted that the relevant laws have been mostly used to prosecute foreign agents, or those passing classified information to them, and that leaks to the press have rarely been prosecuted. The legislative and executive branches of government, including US presidents, have frequently leaked classified information to journalists. Congress has repeatedly resisted or failed to pass a law that generally outlaws disclosing classified information. Most espionage law only criminalizes national defense information; only a jury can decide if a given document meets that criterion, and judges have repeatedly said that being "classified" does not necessarily make information become related to the "national defense". Furthermore, by law, information may not be classified merely because it would be embarrassing or to cover illegal activity; information may only be classified to protect national security objectives.
The United States over the past decades under the Obama and Clinton administrations has released classified information to foreign governments for diplomatic goodwill, known as declassification diplomacy. Examples include information on Augusto Pinochet to the government of Chile. In October 2015, US Secretary of State John Kerry provided Michelle Bachelet, Chile's president, a pen drive containing hundreds of newly declassified documents.
Terminology
Derivative classification activity 1996–2011
In the U.S., information is called "classified" if it has been
assigned one of the three levels: Confidential, Secret, or Top Secret.
Information that is not so labeled is called "Unclassified information".
The term declassified is used for information that has had its classification removed, and downgraded
refers to information that has been assigned a lower classification
level but is still classified. Many documents are automatically
downgraded and then declassified after some number of years. The U.S. government uses the terms Sensitive But Unclassified (SBU), Sensitive Security Information (SSI), Critical Program Information (CPI), For Official Use Only (FOUO), or Law Enforcement Sensitive
(LES) to refer to information that is not Confidential, Secret, or Top
Secret, but whose dissemination is still restricted. Reasons for such
restrictions can include export controls, privacy
regulations, court orders, and ongoing criminal investigations, as well
as national security. Information that was never classified is
sometimes referred to as "open source" by those who work in classified
activities. Public Safety Sensitive (PSS) refers to information
that is similar to Law Enforcement Sensitive but could be shared between
the various public safety disciplines (Law Enforcement, Fire, and
Emergency Medical Services). Peter Louis Galison, a historian and Director
in the History of Science Dept. at Harvard University, claims that the
U.S. Government produces more classified information than unclassified
information.
Levels of classification used by the U.S. government
The
United States government classifies information according to the degree
which the unauthorized disclosure would damage national security.
Having Top Secret clearance does not allow one to view all Top Secret
documents. The user of the information must possess the clearance
necessary for the sensitivity of the information, as well as a legitimate need
to obtain the information. For example, all US military pilots are
required to obtain at least a Secret clearance, but they may only access
documents directly related to their orders. Secret information might
have additional access controls that could prevent someone with a Top
Secret clearance from seeing it.
Since all federal departments are part of the Executive Branch,
the classification system is governed by Executive Order rather than by
law. Typically each president will issue a new executive order, either
tightening classification or loosening it. The Clinton administration
made a major change in the classification system by issuing an executive
order that for the first time required all classified documents to be
declassified after 25 years unless they were reviewed by the agency that
created the information and determined to require continuing
classification.
Restricted Data/Formerly Restricted Data
Restricted
Data and Formerly Restricted Data are classification markings that
concern nuclear information. These are the only two classifications that
are established by federal law, being defined by the Atomic Energy Act
of 1954. Nuclear information is not automatically declassified after 25
years. Documents with nuclear information covered under the Atomic
Energy Act will be marked with a classification level (confidential,
secret or top secret) and a restricted data or formerly restricted data
marking. Nuclear information as specified in the act may inadvertently
appear in unclassified documents and must be reclassified when
discovered. Even documents created by private individuals have been
seized for containing nuclear information and classified. Only the
Department of Energy may declassify nuclear information.
Code Word classifications
Top
Secret is the highest level of classification. However some information
is compartmentalized by adding a code word so that only those who have
been cleared for each code word can see it. This information is also
known as "Sensitive Compartmented Information"
(SCI). A document marked SECRET (CODE WORD) could only be viewed by a
person with a secret or top secret clearance and that specific code word
clearance. Each code word deals with a different kind of information.
The CIA administers code word clearances.
Top Secret
An example of a U.S. classified document; page 13 of a United States National Security Agency report[17] on the USS Liberty incident, partially declassified and released to the public in July 2003. The original overall classification of the page, "Top Secret" code word
UMBRA, is shown at top and bottom. The classification of individual
paragraphs and reference titles is shown in parentheses—there are six
different levels on this page alone. Notations with leader lines at top
and bottom cite statutory authority for not declassifying certain
sections.
The highest security classification. "Top Secret shall be applied to
information, the unauthorized disclosure of which reasonably could be
expected to cause exceptionally grave damage to the national security that the original classification authority is able to identify or describe." It is believed that 1.4 million Americans have top secret clearances.
Secret
This is
the second-highest classification. Information is classified Secret when
its unauthorized disclosure would cause "serious damage" to national
security. Most information that is classified is held at the secret sensitivity.
Confidential
This
is the lowest classification level of information obtained by the
government. It is defined as information that would "damage" national
security if publicly disclosed, again, without the proper authorization.
Public Trust
Despite
common misconception, a public trust position is not a security
clearance, and is not the same as the confidential clearance. Certain
positions which require access to sensitive information, but not
information which is classified, must obtain this designation through a
background check. Public Trust Positions can either be moderate-risk or
high-risk.
Unclassified
Unclassified
is not technically a classification; this is the default and refers to
information that can be released to individuals without a clearance.
Information that is unclassified is sometimes restricted in its
dissemination as Sensitive But Unclassified (SBU) or For Official Use Only (FOUO). For example, the law enforcement bulletins reported by the U.S. media when the United States Department of Homeland Security raised the U.S. terror threat level
were usually classified as "U//LES", or "Unclassified – Law Enforcement
Sensitive". This information is supposed to be released only to law
enforcement agencies (sheriff, police, etc.), but, because the
information is unclassified, it is sometimes released to the public as
well. Information that is unclassified but which the government does not
believe should be subject to Freedom of Information Act
requests is often classified as U//FOUO—"Unclassified—For Official Use
Only". In addition to FOUO information, information can be categorized
according to its availability to be distributed (e.g., Distribution D
may only be released to approved Department of Defense and U.S.
Department of Defense contractor personnel). Also, the statement of NOFORN (meaning "no foreign nationals")
is applied to any information that may not be released to any non-U.S.
citizen. NOFORN and distribution statements are often used in
conjunction with classified information or alone on SBU information.
Documents subject to export controls have a specific warning to that
effect. Information which is "personally identifiable" is governed by
the Privacy Act of 1974 and is also subject to strict controls regardless of its level of classification.
Finally, information at one level of classification may be
"upgraded by aggregation" to a higher level. For example, a specific
technical capability of a weapons system might be classified Secret, but
the aggregation of all technical capabilities of the system into a
single document could be deemed Top Secret.
Use of information restrictions outside the classification system
is growing in the U.S. government. In September 2005 J. William
Leonard, director of the U.S. National Archives Information Security Oversight Office,
was quoted in the press as saying, "No one individual in government can
identify all the controlled, unclassified [categories], let alone
describe their rules."
Controlled Unclassified Information (CUI)
One of the 9/11 Commission
findings was that "the government keeps too many secrets". To address
this problem, the Commission recommended that '[t]he culture of agencies
feeling they own the information they gathered at taxpayer expense must
be replaced by a culture in which the agencies instead feel they have a
duty ... to repay the taxpayers' investment by making that information
available.'"
Due to over 100 designations in use by the U.S. government for
unclassified information at the time, President George W. Bush issued a
Presidential memorandum on May 9, 2008, in an attempt to consolidate the
various designations in use into a new category known as Controlled Unclassified Information
(CUI). The CUI categories and subcategories were hoped to serve as the
exclusive designations for identifying unclassified information
throughout the executive branch not covered by Executive Order 12958 or the Atomic Energy Act of 1954
(as amended) but still required safeguarding or dissemination controls,
pursuant to and consistent with any applicable laws, regulations, and
government-wide policies in place at the time. CUI would replace
categories such as For Official Use Only (FOUO), Sensitive But Unclassified (SBU) and Law Enforcement Sensitive (LES).
The Presidential memorandum also designated the National Archives as responsible for overseeing and managing the implementation of the new CUI framework.
This memorandum has since been rescinded by Executive Order 13556
of November 4, 2010 and the guidelines previously outlined within the
memo were expanded upon in a further attempt to improve the management
of information across all federal agencies as well as establish a more
standard, government-wide program regarding the controlled
unclassification designation process itself.
The U.S. Congress has attempted to take steps to resolve this, but did not succeed. The U.S. House of Representatives passed the Reducing Information Control Designations Act H.R. 1323
on March 17, 2009. The bill was referred to the Senate Committee on
Homeland Security and Governmental Affairs. Because no action was taken
in committee and bills expire at the end of every Congress, there is currently no bill to solve unclassified designations.
Restricted
During and before World War II,
the U.S. had a category of classified information called Restricted,
which was below confidential. The U.S. no longer has a Restricted
classification, but many other nations and NATO do. The U.S. treats Restricted information it receives from other governments as Confidential. The U.S. does use the term restricted data in a completely different way to refer to nuclear secrets, as described above.
Classified classifications
Executive
Order 13526, which forms the legal basis for the U.S. classification
system, states that "information may be classified at one of the
following three levels", with Top Secret as the highest level (Sec. 1.2). However, this executive order provides for special access programs that further restricted access to a small number of individuals and permit additional security measures (Sec. 4.3). These practices can be compared with (and may have inspired) the concepts multilevel security and role-based access control. U.S. law also has special provisions protecting information related to cryptography (18 USC 798), nuclear weapons and atomic energy (see Controls on atomic-energy information) and the identity of covert intelligence agents (see Intelligence Identities Protection Act).
Proper procedure for classifying U.S. government documents
To
be properly classified, a classification authority (an individual
charged by the U.S. government with the right and responsibility to
properly determine the level of classification and the reason for
classification) must determine the appropriate classification level, as
well as the reason information is to be classified. A determination must
be made as to how and when the document will be declassified, and the
document marked accordingly. Executive Order 13526 describes the reasons
and requirements for information to be classified and declassified (Part 1). Individual agencies within the government develop guidelines for what information is classified and at what level.
The former decision is original classification. A great majority
of classified documents are created by derivative classification. For
example, if one piece of information, taken from a secret document, is
put into a document along with 100 pages of unclassified information,
the document, as a whole, will be secret. Proper rules stipulate that
every paragraph will bear a classification marking of (U) for
Unclassified, (C) for Confidential, (S) for Secret, and (TS) for Top
Secret. Therefore, in this example, only one paragraph will have the (S)
marking. If the page containing that paragraph is double-sided, the
page should be marked SECRET on top and bottom of both sides.
A review of classification policies by the Office of the Director of National Intelligence aimed at developing a uniform classification policy and a single classification guide that could be used by the entire U.S. intelligence community
found significant interagency differences that impaired cooperation and
performance. The initial ODNI review, completed in January 2008,
said in part, "The definitions of 'national security' and what
constitutes 'intelligence'—and thus what must be classified—are unclear.
... Many interpretations exist concerning what constitutes harm or the
degree of harm that might result from improper disclosure of the
information, often leading to inconsistent or contradictory guidelines
from different agencies. ... There appears to be no common understanding
of classification levels among the classification guides reviewed by
the team, nor any consistent guidance as to what constitutes 'damage,'
'serious damage,' or 'exceptionally grave damage' to national security.
... There is wide variance in application of classification levels."
The review recommended that original classification authorities
should specify clearly the basis for classifying information, for
example, whether the sensitivity derives from the actual content of the
information, the source, the method by which it was analyzed, or the
date or location of its acquisition. Current policy requires that the
classifier be "able" to describe the basis for classification but not
that he or she in fact do so.
Classification categories
Step
3 in the classification process is to assign a reason for the
classification. Classification categories are marked by the number "1.4"
followed by one or more letters (a) to (h):
- 1.4(a) military plans, weapons systems, or operations;
- 1.4(b) foreign government information;
- 1.4(c) intelligence activities, sources, or methods, or cryptology;
- 1.4(d) foreign relations or foreign activities of the United States, including confidential sources;
- 1.4(e) scientific, technological or economic matters relating to national security; which includes defense against transnational terrorism;
- 1.4(f) United States Government programs for safeguarding nuclear materials or facilities;
- 1.4(g) vulnerabilities or capabilities of systems, installations, infrastructures, projects or plans, or protection services relating to the national security, which includes defense against transnational terrorism; and/or
- 1.4(h) the development, production, or use of weapons of mass destruction.
Classifying non-government-generated information
The Invention Secrecy Act of 1951 allows the suppression of patents (for a limited time) for inventions that threaten national security.
Whether information related to nuclear weapons can constitutionally be "born secret" as provided for by the Atomic Energy Act of 1954 has not been tested in the courts.
Guantanamo Bay detention camp
has used a "presumptive classification" system to describe the
statements of Guantanamo Bay detainees as classified. When challenged by
Ammar al-Baluchi in the Guantanamo military commission hearing the 9/11 case, the prosecution abandoned the practice. Presumptive classification continues in the cases involving the habeas corpus petitions of Guantanamo Bay detainees.
Protecting classified information
GSA-approved security container
Facilities and handling
One
of the reasons for classifying state secrets into sensitivity levels is
to tailor the risk to the level of protection. The U.S. government
specifies in some detail the procedures for protecting classified
information. The rooms or buildings for holding and handling classified
material must have a facility clearance at the same level as the most
sensitive material to be handled. Good quality commercial physical security
standards generally suffice for lower levels of classification; at the
highest levels, people sometimes must work in rooms designed like bank vaults (see Sensitive Compartmented Information Facility – SCIF). The U.S. Congress has such facilities inside the Capitol Building, among other Congressional handling procedures for protecting confidentiality. The U.S. General Services Administration
sets standards for locks and containers used to store classified
material. The most commonly-approved security containers resemble
heavy-duty file cabinets with a combination lock
in the middle of one drawer. In response to advances in methods to
defeat mechanical combination locks, the U.S. government switched to
electromechanical locks that limit the rate of attempts to unlock them.
After a specific number of failed attempts, they will permanently lock,
requiring a locksmith to reset them.
Classified U.S. government documents typically must be stamped
with their classification on the cover and at the top and bottom of each
page. Authors must mark each paragraph, title and caption in a document
with the highest level of information it contains, usually by placing
appropriate initials in parentheses at the beginning of the paragraph,
title, or caption. Commonly, one must affix a brightly colored cover
sheet to the cover of each classified document to prevent unauthorized
observation of classified material (shoulder surfing) and to remind users to lock up unattended documents. The most sensitive material requires two-person integrity,
where two cleared individuals are responsible for the material at all
times. Approved containers for such material have two separate
combination locks, both of which must be opened to access the contents.
Restrictions dictate shipment methods for classified documents.
Top Secret material must go by special courier; Secret material within
the U.S. via registered mail; and, Confidential material by certified mail. Electronic transmission of classified information largely requires the use of National Security Agency approved/certified "Type 1" cryptosystems using NSA's unpublished and classified Suite A algorithms. The classification of the Suite A algorithms categorizes the hardware that store them as a Controlled Cryptographic Item (CCI) under the International Traffic in Arms Regulations,
or ITAR. CCI equipment and keying material must be controlled and
stored with heightened physical security, even when the device is not
processing classified information or contains no cryptographic key. NSA
is currently implementing what it's calling Suite B which is a group of commercial algorithms such as Advanced Encryption Standard (AES), Secure Hash Algorithm (SHA), Elliptic Curve Digital Signature Algorithm (ECDSA) and Elliptic curve Diffie–Hellman
(ECDH). Suite B provides protection for data up to Top Secret on
non-CCI devices, which is especially useful in high risk environments or
operations needed to prevent Suite A compromise. These less stringent
hardware requirements stem from the device not having to "protect"
classified Suite A algorithms.
Specialized computer operating systems known as trusted operating systems
are available for processing classified information. These systems
enforce the classification and labeling rules described above in
software. Since 2005, however, they are not considered secure enough to
allow uncleared users to share computers with classified activities.
Thus, if one creates an unclassified document on a secret device, the
resultant data is classified secret until it can be manually reviewed.
Computer networks for sharing classified information are segregated by
the highest sensitivity level they are allowed to transmit, for example,
SIPRNet (Secret) and JWICS (Top Secret-SCI).
The destruction of certain types of classified documents requires burning, shredding, pulping or pulverizing using approved procedures and must be witnessed and logged. Classified computer data presents special problems.
Lifetime commitment
When
a cleared individual leaves the job or employer for which they were
granted access to classified information, they are formally debriefed
from the program. Debriefing
is an administrative process that accomplishes two main goals: it
creates a formal record that the individual no longer has access to the
classified information for that program; and it reminds the individual
of their lifetime commitment to protect that information. Typically, the
individual is asked to sign another non-disclosure agreement
(NDA), similar to that which they signed when initially briefed, and
this document serves as the formal record. The debriefed individual does
not lose their security clearance; they have only surrendered the need to know for information related to that particular job.
Classifications and clearances between U.S. government agencies
Senator Barry Goldwater reprimanding CIA director William J. Casey for Secret info showing up in The New York Times, but then saying it was over-classified to begin with. 1983
In the past, clearances did not necessarily transfer between various
U.S. government agencies. For example, an individual cleared for
Department of Defense Top Secret had to undergo another investigation
before being granted a Department of Energy Q clearance.
Agencies are now supposed to honor background investigations by other
agencies if they are still current. Because most security clearances
only apply inside the agency where the holder works, if one needs to
meet with another agency to discuss classified matters, it is possible
and necessary to pass one's clearance to the other agency. For example,
officials visiting at the White House from other government agencies
would pass their clearances to the Executive Office of the President
(EOP).
The Department of Energy security clearance required to access
Top Secret Restricted Data, Formerly Restricted Data, and National
Security Information, as well as Secret Restricted Data, is a Q clearance. The lower-level L clearance
is sufficient for access to Secret Formerly Restricted Data and
National Security Information, as well as Confidential Restricted Data
and Formerly Restricted Data.
In practice, access to Restricted Data is granted, on a need-to-know
basis, to personnel with appropriate clearances. At one time, a person
might hold both a TS and a Q clearance, but that duplication and cost is
no longer required. For all practical purposes, Q is equivalent to Top
Secret, and L is equivalent to Secret.
Contrary to popular lore, the Yankee White
clearance given to personnel who work directly with the President is
not a classification. Individuals having Yankee White clearances undergo
extensive background investigations. The criteria include U.S.
citizenship, unquestionable loyalty, and an absolute absence of any
foreign influence over the individual, his family, or "persons to whom
the individual is closely linked".
Also, they must not have traveled (save while in government employ and
at the instructions of the United States) to countries that are
considered to be unfriendly to the United States.
Yankee White cleared personnel are granted access to any information
for which they have a need to know, regardless of which organization
classified it or at what level.
See also the Single Scope Background Investigation below, along
with explicit compartmented access indoctrination. Some compartments,
especially intelligence-related, may require a polygraph
examination, although the reliability of the polygraph is
controversial. The NSA uses the polygraph early in the clearance process while the CIA uses it at the end, which may suggest divergent opinions on the proper use of the polygraph.
Categories that are not classifications
Compartments also exist, that employ code words
pertaining to specific projects and are used to more easily manage
individual access requirements. Code words are not levels of
classification themselves, but a person working on a project may have
the code word for that project added to his file, and then will be given
access to the relevant documents. Code words may also label the sources
of various documents; for example, code words are used to indicate that
a document may break the cover of intelligence operatives if its
content becomes known. The WWII code word Ultra identified information found by decrypting German ciphers, such as the Enigma machine,
and which—regardless of its own significance—might inform the Germans
that Enigma was broken if they became aware that it was known.
Sensitive Compartmented Information (SCI) and Special Access Programs (SAP)
The terms "Sensitive Compartmented Information" (SCI) and "Special Access Program" (SAP) are widely misunderstood as classification levels or specific clearances.
In fact, the terms refer to methods of handling certain types of
classified information that relate to specific national-security topics
or programs (whose existence may not be publicly acknowledged) or the
sensitive nature of which requires special handling, and thereby those
accessing it require special approval to access it.
The paradigms for these two categories, SCI originating in the
intelligence community and SAP in the Department of Defense, formalize
'Need to Know' and addresses two key logistical issues encountered in
the day-to-day control of classified information:
- Individuals with a legitimate need to know may not be able to function effectively without knowing certain facts about their work. However, granting all such individuals a blanket DoD clearance (often known as a "collateral" clearance) at the Top Secret level would be undesirable, not to mention prohibitively expensive.
- The government may wish to limit certain types of sensitive information only to those who work directly on related programs, regardless of the collateral clearance they hold. Thus, even someone with a Top Secret clearance cannot gain access to its Confidential information unless it is specifically granted.
To be clear, "collateral" simply means one lacks special access (e.g.
SCI, SAP, COMSEC, NATO, etc.). Confidential, Secret, and Top Secret are
all, by themselves, collateral clearances.
SAP and SCI are usually found at the Top Secret classification,
but there is no prohibition of applying such segregation to Confidential
and Secret information.
SAP and SCI implementation are roughly equivalent, and it is
reasonable to discuss their implementation as one topic. For example,
SAP material needs to be stored and used in a facility much like the
SCIF described below.
Department of Energy information, especially the more sensitive SIGMA categories, may be treated as SAP or SCI.
Access to compartmented information
Personnel who require knowledge of SCI or SAP information fall into two general categories:
- Persons with a need to know
- Persons with actual access
Access to classified information is not authorized based on clearance
status. Access is only permitted to individuals after determining they
have a need to know. Need-to-know is a determination that an individual
requires access to specific classified information in the performance of
(or assist in the performance of) lawful and authorized government
functions and duties.
To achieve selective separation of program information while
still allowing full access to those working on the program, a separate
compartment, identified by a unique codeword, is created for the
information. This entails establishing communication channels, data
storage, and work locations (SCIF—Sensitive Compartmented Information Facility),
which are physically and logically separated not only from the
unclassified world, but from general Department of Defense classified
channels as well.
Thus established, all information generated within the
compartment is classified according to the general rules above. However,
to emphasize that the information is compartmented, all documents are
marked with both the classification level and the codeword (and the
caveat "Handle via Channels Only", or "Handle
via Jointly" if the document contains material
from multiple programs).
Cover sheet for information protected by the BYEMAN control system
Examples of such SCI control systems are:
- COMINT or Special Intelligence (SI)
- ENDSEAL (EL)
- TALENT KEYHOLE (TK)
- HUMINT Control System (HCS)
- KLONDIKE (KDK)
- RESERVE (RSV)
- BYEMAN (BYE or B)
The COMINT control system is for sensitive signals intelligence information and contains several compartments, like:
- Very Restricted Knowledge (VRK)
- Exceptionally Controlled Information (ECI), which is used by NSA and restricted to very few people.
- GAMMA
A person is granted access to a specific compartment after the individual has: (a) had a Single Scope Background Investigation
similar to that required for a collateral Top Secret clearance; (b)
been "read into" or briefed on the nature and sensitivity of the
compartment; and (c) signed a non-disclosure agreement (NDA).
The individual then has access to all information in the
compartment, regardless of its classification (and assuming a need to
know). However, access does not extend to any other compartment; i.e.,
there is no single "SCI clearance" analogous to DoD collateral Top
Secret. The requirements for DCID 6/4 eligibility (a determination that
an individual is eligible for access to SCI), subsumes the requirements
for a TS collateral clearance. Being granted DCID 6/4 eligibility
includes the simultaneous granting of a TS collateral clearance, as
adjudicators are required to adjudicate to the highest level that the
investigation (SSBI) supports.
Groups of compartmented information
SAPs in the Department of Defense are subdivided into three further groups, as defined in .
There is no public reference to whether SCI is divided in the same manner, but news reports reflecting that only the Gang of Eight
members of Congress are briefed on certain intelligence activities, it
may be assumed that similar rules apply for SCI or for programs with
overlapping SAP and SCI content.
The groups for Department of Defense SAPs are:
- Acknowledged: appears as a line item as "classified project" or the equivalent in the federal budget, although details of its content are not revealed. The budget element will associate the SAP with a Department of Defense component organization, such as a Military Department (e.g. Department of the Navy), a Combatant Command (e.g. U.S. Special Operations Command) or a Defense Agency (e.g. Defense Information Systems Agency.)
- Unacknowledged: no reference to such SAPs is found in the publicly published federal budget; its funding is hidden in a classified annex, often called the "black budget". The Congressional defense committees, however, are briefed on the specifics of such SAPs.
- Waived: At the sole discretion of the Secretary of Defense, on a case-by-case basis in the interest of national security, there is no mention in the budget at all, and only the "Big 6" members of Congress; the Chairman and Ranking Minority Members of the armed services committees, the appropriations committees and the defense appropriations subcommittees; receive notification of such SAPs.
Examples of SCI topics are human intelligence, communications
intelligence, and intelligence collected by satellites. One or more
compartments may be created for each area, and each of these
compartments may contain multiple subcompartments (e.g., a specific
HUMINT operation), themselves with their own code names.
Specific compartmented programs will have their own specific
rules. For example, it is standard that no person is allowed
unaccompanied access to a nuclear weapon or to command-and-control
systems for nuclear weapons. Personnel with nuclear-weapons access are
under the Personnel Reliability Program.
Some highly sensitive SAP or SCI programs may also use the "no
lone zone" method (that is, a physical location into which no one is
allowed to enter unaccompanied) described for nuclear weapons.
Handling caveats
The United States also has a system of restrictive caveats
that can be added to a document: these are constantly changing, but can
include (in abbreviated form) a requirement that the document not be
shared with a civilian contractor or not leave a specific room. These
restrictions are not classifications in and of themselves; rather, they
restrict the dissemination of information within those who have the
appropriate clearance level and possibly the need to know the
information. Remarks such as "Eyes Only" also limit the restriction. One
violating these directives might be guilty of violating a lawful order
or mishandling classified information.
For ease of use, caveats and abbreviations have been adopted that
can be included in the summary classification marking (header/footer)
to enable the restrictions to be identified at a glance. They are
sometimes known as Dissemination Control Abbreviations. Some of these caveats are (or were):
- FOUO: For Official Use Only. Used for documents or products which contain material which is exempt from release under the Freedom of Information Act.
- NFIBONLY: National Foreign Intelligence Board Departments Only
- NOFORN: Distribution to non-US citizens is prohibited, regardless of their clearance or access permissions (NO FOReign National access allowed).
- NOCONTRACTOR: Distribution to contractor personnel (non-US-government employees) is prohibited, regardless of their clearance or access permissions.
- ORCON: Originator controls dissemination and/or release of the document.
- PROPIN: Caution—Proprietary Information Involved
- REL
: Distribution to citizens of the countries listed is permitted, providing they have appropriate accesses and need to know. Example: "REL TO USA, AUS, GBR, CAN, NZL" indicates that the information may be shared with appropriate personnel from Australia, the United Kingdom, Canada, and New Zealand.
-
- FVEY is the country code used as shorthand for the Five Eyes.
X : Information is exempt from automatic declassification (after the statutory default of 25 years) for exemption reason , and declassification review shall not be permitted for years (as determined by law or the Interagency Security Classification Appeals Panel). For the most part, the exemption reasoning and caveats are outlined in paragraphs (b)–(d) and (g)–(i) of Sec. 3.3 of Executive Order 13526, but paragraph (b) is typically the one being referenced as the exemption reason value .
- Example: "50X1" indicates the information must remain classified for 50 years, since it pertains to intelligence activities, sources, or methods (reason (1) of Section 3.3, paragraph (b)).
- RESTRICTED: Distribution to non-US citizens or those holding an interim clearance is prohibited; certain other special handling procedures apply.
Classification level and caveats are typically separated by "//" in
the summary classification marking. For example, the final summary
marking of a document might be:
SECRET////ORCON/NOFORN
Controls on atomic-energy information
The Atomic Energy Act of 1954 sets requirements for protection of information about nuclear weapons and special nuclear materials. Such information is "classified from birth",
unlike all other sensitive information, which must be classified by
some authorized individual. However, authorized classifiers still must
determine whether documents or material are classified or restricted.
The U.S. Department of Energy recognizes two types of Restricted Data:
- Restricted Data. Data concerning the design, manufacture, or utilization of atomic weapons; production of special nuclear material; or use of special nuclear material in the production of energy.
- Formerly Restricted Data. Classified information jointly determined by the DOE and the Department of Defense to be related primarily to the military utilization of atomic weapons and removed from the Restricted Data category.
Documents containing such information must be marked "RESTRICTED
DATA" (RD) or "FORMERLY RESTRICTED DATA" (FRD) in addition to any other
classification marking. Restricted Data and Formerly Restricted Data are
further categorized as Top Secret, Secret, or Confidential.
SIGMA categories and Critical Nuclear Weapon Design Information
RESTRICTED DATA contains further compartments. The Department of Energy establishes a list of SIGMA Categories for more fine-grained control than RESTRICTED DATA.
Critical Nuclear Weapon Design Information (CNWDI, colloquially pronounced "Sin-Widdy") reveals the theory of operation or design of the components of a nuclear weapon. As such, it would be SIGMA 1 or SIGMA 2 (sigmas) material, assuming laser fusion is not involved in the information.
Access to CNWDI is supposed to be kept to the minimum number of
individuals needed. In written documents, paragraphs containing the
material, assuming it is Top Secret, would be marked (TS//RD-CNWDI).
SIGMA information of special sensitivity may be handled much like SAP or
SCI material (q.v.)
While most Naval Nuclear Propulsion Information
is sensitive, it may or may not be classified. The desired power
densities of naval reactors make their design peculiar to military use,
specifically high-displacement, high-speed vessels. The proliferation of
quieter- or higher-performance marine propulsion systems presents a
national-security threat to the United States. Due to this fact, all but
the most basic information concerning NNPI is classified. The United States Navy
recognizes that the public has an interest in environmental, safety,
and health information, and that the basic research the Navy carries out
can be useful to industry.
Sharing of classified information with other countries
In
cases where the United States wishes to share classified information
bilaterally (or multilaterally) with a country that has a sharing
agreement, the information is marked with "REL TO USA", (release) and
the three-letter country code. For example, if the U.S. wanted to release classified information to the government of Canada, it would mark the document "REL TO USA, CAN". There are also group releases, such as NATO, FVEY or UKUSA.
Those countries would have to maintain the classification of the
document at the level originally classified (Top Secret, Secret, etc.).
Claims of U.S. government misuse of the classification system
It is desired that no document be released which refers to experiments with humans and might have adverse effect on public opinion or result in legal suits. Documents covering such work field should be classified 'secret'. —April 17, 1947 Atomic Energy Commission memo from Colonel O. G. Haywood, Jr. to Dr. Fidler at the Oak Ridge Laboratory in Tennessee
Every bureaucracy strives to increase the superiority of its position by keeping its knowledge and intentions secret. Bureaucratic administration always seeks to evade the light of the public as best it can, because in so doing it shields its knowledge and conduct from criticism ...
While the classification of information by the government is not
supposed to be used to prevent information from being made public that
would be simply embarrassing or reveal criminal acts, it has been
alleged that the government routinely misuses the classification system
to cover up criminal activity and the potentially embarrassing.
Steven Aftergood, director of the Project on Government Secrecy at the Federation of American Scientists notes that
... inquiring into classified government information and disclosing it is something that many national security reporters and policy analysts do, or try to do, every day. And with a few narrow exceptions—for particularly sensitive types of information—courts have determined that this is not a crime." Aftergood notes, "The universe of classified information includes not only genuine national security secrets, such as confidential intelligence sources or advanced military technologies, but an endless supply of mundane bureaucratic trivia, such as 50-year-old intelligence budget figures, as well as the occasional crime or cover-up.
In The Pentagon Papers
case, a classified study was published revealing that four
administrations had misled the American public about their intentions in
the Vietnam War, increasing the credibility gap.
Russo and Ellsberg were prosecuted under Espionage Law. The case
prompted Harold Edgar & Benno C. Schmidt, Jr. to write a review of
Espionage law in the 1973 Columbia Law Review. Their article was
entitled "The Espionage Statutes and Publication of Defense
Information". In it, they point out that Espionage law does not criminalize classified information, only national defense
information. They point out that Congress has repeatedly resisted or
failed to make the disclosing of classified information illegal, in and
of itself. Instead, Congress has strictly limited which sort of
classified information is illegal, and under which specific
circumstances it is illegal. i.e. in
Congress specifically criminalized leaking cryptographic information
that is classified, but when it passed the law it specifically stated
the law didn't criminalize disclosing other types of classified
information. Another article that discusses the issue is by Jennifer Elsea of the Congressional Research Service.
Various UFO conspiracies
mention a level "Above Top Secret" used for UFO design information and
related data. They suggest such a classification is intended to apply to
information relating to things whose possible existence is to be
denied, such as aliens, as opposed to things whose potential existence
may be recognized, but for which access to information regarding
specific programs would be denied as classified. The British government,
for example, denied for several decades that they were either involved
or interested in UFO sightings. However, in 2008, the government
revealed they have monitored UFO activity for at least the past 30
years.
The existence of an "Above Top Secret" classification is considered by
some as unnecessary to keep the existence of aliens a secret, as they
say information at the Top Secret level, or any level for that matter,
can be restricted on the basis of need to know.
Thus, the U.S. government could conceal an alien project without having
to resort to another level of clearance, as need to know would limit
the ability to have access to the information. Some suggest that claims
of the existence of such a classification level may be based on the
unsubstantiated belief that the levels of classification are themselves
classified. As such, they feel that books claiming to contain "Above Top
Secret" information on UFOs or remote viewing should arguably be taken with a grain of salt.
Without making a judgment on if such classifications have been
used for space aliens, it is a reality that even the names of some
compartments were classified, and certainly the meaning of the code
names. In the cited document, an (S) means the material it precedes is
Secret and (TS) means Top Secret. According to the Department of Defense
directive, "the fact of" the existence of NRO
was at the secret level for many years, as well as the fact of and the
actual phrase "National Reconnaissance Program" (see Paragraph II).
Paragraph V(a) is largely redacted, but the introduction
to the documents clarifies (see Document 19) that it refers to the
now-cancelled BYEMAN code word and control channel for NRO activities.
BYEMAN, the main NRO compartment, was classified as a full word,
although the special security offices could refer, in an unclassified
way, to "B policy".
Responsible agencies
Any
agency designated by the President can originate classified information
if it meets the content criteria; each agency is responsible for
safeguarding and declassifying its own documents. The National Archives and Records Administration
(NARA) has custody of classified documents from defunct agencies, and
also houses the National Declassification Center (since 2010) and Information Security Oversight Office. The Interagency Security Classification Appeals Panel
has representatives from the Departments of State, Defense, and
Justice; the National Archives, the Office of the Director of National
Intelligence; the National Security Advisor; the Central Intelligence
Agency; and Information Security Oversight Office.
Declassification
Declassification is the process of removing the classification of a document and opening it for public inspection.
Automatic declassification
In accordance with Executive Order 13526, published January 5, 2010 (which superseded Executive Order 12958,
as amended), an executive agency must declassify its documents after 25
years unless they fall under one of the nine narrow exemptions outlined
by section 3.3 of the order. Classified documents 25 years or older
must be reviewed by any and all agencies that possess an interest in the
sensitive information found in the document. Documents classified for
longer than 50 years must concern human intelligence sources or weapons
of mass destruction, or get special permission. All documents older than 75 years must have special permission.
Systematic declassification
The
Order also requires that agencies establish and conduct a program for
systematic declassification review, based on the new and narrower
criteria. This only applies to records that are of permanent historical
value and less than 25 years old. Section 3.4 of Order 13526, directs
agencies to prioritize the systematic review of records based upon the
degree of researcher interest and the likelihood of declassification
upon review.
Mandatory Declassification Review
A
Mandatory Declassification Review, or MDR, is requested by an
individual in an attempt to declassify a document for release to the
public. These challenges are presented to the agency whose equity, or
"ownership", is invested in the document. Once an MDR request has been
submitted to an agency for the review of a particular document, the
agency must respond either with an approval, a denial, or the inability
to confirm or deny the existence or nonexistence of the requested
document. After the initial request, an appeal can be filed with the
agency by the requester. If the agency refuses to declassify that
document, then a decision from a higher authority can be provided by the
appellate panel, the Interagency Security Classification Appeals Panel (ISCAP).
Freedom of Information Act
The U.S. Freedom of Information Act (FOIA) was signed into law by President Lyndon B. Johnson
on July 4, 1966, took effect the following year, and was amended in
1974, 1976, 1986, 1996 and 2002 (in 1974 over President Ford's veto).
This act allows for the full or partial disclosure of previously
unreleased information and documents controlled by the U.S. government.
Any member of the public may ask for a classified document to be
declassified and made available for any reason. The requestor is
required to specify with reasonable certainty the documents of interest.
If the agency refuses to declassify, the decision can be taken to the
courts for a review. The FOIA does not guarantee that requested
documents will be released; refusals usually fall under one of the nine
of the declassification exemptions that protect highly sensitive
information.
History of National Archives and Records Administration role
After declassification, the documents from many agencies are accessioned at the National Archives and Records Administration and put on the open shelves for the public. NARA also reviews documents for declassification.
NARA first established a formal declassification program for
records in 1972, and between 1973 and 1996 reviewed nearly 650 million
pages of historically valuable federal records related to World War II,
the Korean War, and American foreign policy in the 1950s as part of its
systematic declassification review program. From 1996 to 2006, NARA had
processed and released close to 460 million pages of federal records,
working in partnership with the agencies that originated the records.
Over the years, NARA has processed more than 1.1 billion pages of
national security classified federal records, resulting in the
declassification and release of ninety-one percent of the records.
NARA has also provided significant support to several special
projects to review and release federal records on topics of
extraordinary public interest such as POW/MIAs or Nazi war crimes.
Additionally, NARA works closely with reference archivists to ensure
that the federal records most in demand by researchers receive priority
for declassification review and performs review on demand for
individuals who need records that do not fall into a priority category.
NARA has improved or developed electronic systems to support
declassification, automating some processes and thus ensuring a more
complete record of declassification actions. With assistance from the
Air Force, NARA established
the Interagency Referral Center (IRC) in order to support agencies as
they seek access to their equities in federal records at the National
Archives at College Park and to ensure that high-demand records are
processed first.
In 2009, Executive Order 13526 created the National Declassification Center at NARA, which also houses the Information Security Oversight Office.
Presidential libraries
Presidential libraries
hold in excess of 30 million classified pages, including approximately 8
million pages from the administrations of Presidents Hoover through
Carter, that were subject to automatic declassification on December 31,
2006. The foreign policy materials in Presidential collections are among
the highest-level foreign policy documents in the Federal government
and are of significant historical value.
From 1995 to 2006, the national Presidential Library
system reviewed, declassified, and released 1,603,429 pages of
presidential materials using systematic guidelines delegated to the
Archivist of the United States. NARA has also hosted on-site agency
review teams at the Eisenhower, Kennedy, and Ford Presidential Libraries
to manage classified equities and all presidential libraries have
robust mandatory declassification review programs to support requests of
individual researchers.
