Top U.S. intelligence officials gathered in the White House Situation Room in March to debate a controversial proposal. Counterterrorism officials wanted to create a government dragnet, sweeping up millions of records about U.S. citizens—even people suspected of no crime.
Counterterrorism officials wanted to create a government dragnet, sweeping up millions of records about U.S. citizens-even people suspected of no crime. Julia Angwin reports on digits. Photo: Getty Images.
Not everyone was on board. "This is a sea change in the way that the government interacts with the general public," Mary Ellen Callahan, chief privacy officer of the Department of Homeland Security, argued in the meeting, according to people familiar with the discussions.
A week later, the attorney general signed the changes into effect.
Through Freedom of Information Act requests and interviews with officials at numerous agencies, The Wall Street Journal has reconstructed the clash over the counterterrorism program within the administration of President
Barack Obama.
The debate was a confrontation between some who viewed it as a matter of efficiency—how long to keep data, for instance, or where it should be stored—and others who saw it as granting authority for unprecedented government surveillance of U.S. citizens.
The rules now allow the little-known National Counterterrorism Center to examine the government files of U.S. citizens for possible criminal behavior, even if there is no reason to suspect them. That is a departure from past practice, which barred the agency from storing information about ordinary Americans unless a person was a terror suspect or related to an investigation.
Now, NCTC can copy entire government databases—flight records, casino-employee lists, the names of Americans hosting foreign-exchange students and many others. The agency has new authority to keep data about innocent U.S. citizens for up to five years, and to analyze it for su ious patterns of behavior. Previously, both were prohibited. Data about Americans "reasonably believed to cons ute terrorism information" may be permanently retained.
The changes also allow databases of U.S. civilian information to be given to foreign governments for analysis of their own. In effect, U.S. and foreign governments would be using the information to look for clues that people might commit future crimes.
"It's breathtaking" in its scope, said a former senior administration official familiar with the White House debate.
Counterterrorism officials say they will be cir spect with the data. "The guidelines provide rigorous oversight to protect the information that we have, for authorized and narrow purposes," said Alexander Joel, Civil Liberties Protection Officer for the Office of the Director of National Intelligence, the parent agency for the National Counterterrorism Center.
The Fourth Amendment of the Cons ution says that searches of "persons, houses, papers and effects" shouldn't be conducted without "probable cause" that a crime has been committed. But that doesn't cover records the government creates in the normal course of business with citizens.
Congress specifically sought to prevent government agents from rifling through government files indiscriminately when it passed the Federal Privacy Act in 1974. The act prohibits government agencies from sharing data with each other for purposes that aren't "compatible" with the reason the data were originally collected.
But the Federal Privacy Act allows agencies to exempt themselves from many requirements by placing notices in the Federal Register, the government's daily publication of proposed rules. In practice, these privacy-act notices are rarely contested by government watchdogs or members of the public. "All you have to do is publish a notice in the Federal Register and you can do whatever you want," says Robert Gellman, a privacy consultant who advises agencies on how to comply with the Privacy Act.
As a result, the National Counterterrorism Center program's opponents within the administration—led by Ms. Callahan of Homeland Security—couldn't argue that the program would violate the law. Instead, they were left to question whether the rules were good policy.
Under the new rules issued in March, the National Counterterrorism Center, known as NCTC, can obtain almost any database the government collects that it says is "reasonably believed" to contain "terrorism information." The list could potentially include almost any government database, from financial forms submitted by people seeking federally backed mortgages to the health records of people who sought treatment at Veterans Administration hospitals.
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